03/27/2023 03:30 PM Senate RESOURCES
| Audio | Topic |
|---|---|
| Start | |
| SB34 | |
| Overview: Alaska Bycatch Review Task Force | |
| Adjourn |
+ teleconferenced
= bill was previously heard/scheduled
| *+ | HJR 11 | TELECONFERENCED | |
| += | SB 34 | TELECONFERENCED | |
ALASKA STATE LEGISLATURE
SENATE RESOURCES STANDING COMMITTEE
March 27, 2023
3:30 p.m.
MEMBERS PRESENT
Senator Click Bishop, Co-Chair
Senator Cathy Giessel, Co-Chair
Senator Bill Wielechowski, Vice Chair
Senator Scott Kawasaki
Senator James Kaufman
Senator Forrest Dunbar
Senator Matt Claman
MEMBERS ABSENT
All members present
COMMITTEE CALENDAR
SENATE BILL NO. 34
"An Act reestablishing the Citizens' Advisory Commission on
Federal Management Areas in Alaska; and providing for an
effective date."
- MOVED SB 34 OUT OF COMMITTEE
OVERVIEW: ALASKA BYCATCH REVIEW TASK FORCE
- HEARD
HOUSE JOINT RESOLUTION NO. 11
Urging the United States Environmental Protection Agency to
develop a woodstove certification program that addresses the
threat to clean and healthy winter air in Fairbanks; and urging
the state Department of Environmental Conservation to develop an
economically and legally defensible state implementation plan
for the Fairbanks North Star Borough nonattainment area.
- BILL HEARING CANCELED
PREVIOUS COMMITTEE ACTION
BILL: SB 34
SHORT TITLE: CITIZEN ADVISORY COMM ON FEDERAL AREAS
SPONSOR(s): SENATOR(s) KAUFMAN
01/18/23 (S) PREFILE RELEASED 1/13/23
01/18/23 (S) READ THE FIRST TIME - REFERRALS
01/18/23 (S) RES, FIN
03/15/23 (S) RES AT 3:30 PM BUTROVICH 205
03/15/23 (S) Heard & Held
03/15/23 (S) MINUTE(RES)
03/24/23 (S) RES AT 3:30 PM BUTROVICH 205
03/24/23 (S) Heard & Held
03/24/23 (S) MINUTE(RES)
03/27/23 (S) RES AT 3:30 PM BUTROVICH 205
WITNESS REGISTER
STEPHANIE MADSEN, Member
Alaska Bycatch Review Task Force (ABRT);
Executive Director
At-sea Processors Association
Juneau, Alaska
POSITION STATEMENT: Delivered an overview of the Alaska Bycatch
Review Task Force.
LINDA KOZAK, Member
Alaska Bycatch Review Task Force (ABRT);
Chair
Bering Sea and Gulf of Alaska Crab Committee
Kodiak, Alaska
POSITION STATEMENT: Provided commentary following the overview
of the Alaska Bycatch Review Task Force.
ACTION NARRATIVE
3:30:48 PM
CO-CHAIR CLICK BISHOP called the Senate Resources Standing
Committee meeting to order at 3:30 p.m. Present at the call to
order were Senators Kawasaki, Claman, Wielechowski, Kawasaki,
Dunbar, Co-Chair Giessel, and Co-Chair Bishop.
SB 34-CITIZEN ADVISORY COMM ON FEDERAL AREAS
3:31:38 PM
CO-CHAIR BISHOP announced the consideration of SENATE BILL NO.
34 "An Act reestablishing the Citizens' Advisory Commission on
Federal Management Areas in Alaska; and providing for an
effective date."
3:31:58 PM
CO-CHAIR GIESSEL moved to report SB 34, work order 33-LS0250\B,
from committee with individual recommendations and attached
fiscal note(s).
3:32:12 PM
CO-CHAIR BISHOP found no objection and SB 34 was reported from
the Senate Resources Standing Committee.
^OVERVIEW: Alaska BYCATCH REVIEW TASK FORCE
OVERVIEW: ALASKA BYCATCH REVIEW TASK FORCE
3:32:16 PM
CO-CHAIR BISHOP announced an overview of the Alaska Bycatch
Review Task Force by Stephanie Madsen and Linda Kozak.
3:33:07 PM
STEPHANIE MADSEN, Member, Alaska Bycatch Review Task Force
(ABRT), and Executive Director, At-sea Processors Association,
Juneau, Alaska, introduced herself.
3:33:36 PM
LINDA KOZAK, Member, Alaska Bycatch Review Task Force (ABRT),
and Chair, Bering Sea and Gulf of Alaska Crab Committee, Kodiak,
Alaska, introduced herself.
3:34:13 PM
At ease
3:34:37 PM
CO-CHAIR BISHOP reconvened the meeting.
3:34:44 PM
MS. MADSEN began the presentation with a description of the
diverse task force membership. She explained that the task force
was comprised of 17 members including two non-voting members:
Representative Bryce Edgmon and former Senator Peter Micciche.
3:35:38 PM
MS. MADSEN moved to slide 2, "Alaska Bycatch Review Task Force."
Governor Dunleavy created the 17-member
Alaska Bycatch Review Task Force (ABRT) to help better
understand unintended bycatch of high-value fishery
resources in state and federal waters
Bycatch is defined as:
Fish which are harvested in a fishery, but are not
sold or kept
3:35:49 PM
CO-CHAIR BISHOP asked about the definition. He wondered what
happens to the fish that are not sold or kept.
MS. MADSEN stated that bycatch is defined as fish that are
harvested in a fishery but are not sold or kept. She clarified
that Area M [state-managed waters along Western Alaska Peninsula
and Eastern Aleutian Islands] is not considered a bycatch
fishery. She explained that bycatch includes incidentally caught
fish that are prohibited or subject to regulatory and/or
economic discards. She said that halibut, crab and salmon were
the focus and the group also considered prohibited species
catch. She noted that the approved use of bycatch in a food bank
program was an exception.
CO-CHAIR BISHOP clarified that the definition excludes fish from
Area M.
MS. MADSEN affirmed the statement. She stated that Area M is not
considered a bycatch fishery and was not discussed in the task
force.
3:37:11 PM
MS. MADSEN moved to slide 3, "Administrative Order #326
Purpose of the ABRT."
• Study what impacts bycatch has on fisheries.
• Evaluate and recommend policies informed by a better
understanding of the issue of bycatch of high-value
Alaska fishery resources.
• Ensure state agencies are leveraging available
resources to better understand the issue of bycatch.
• Utilize the best available science to inform policy
makers and the public about these issues
MS. MADSEN continued with slide 4, "Alaska Bycatch Review Task
Force Process
• ABRT members agreed to operate on a consensus-based
process.
• Focused on the high-value species of salmon, halibut
and crab. Regions addressed were the Gulf of Alaska
and Bering Sea. ABRT did not address Southeast or
Aleutian Islands.
• Four committees were formed and prepared
recommendations which were submitted to the full
Task Force for review in August, 2022.
• Recommendations were made on three categories; State
Engagement, Research and Management. All
recommendations were unanimously approved, with the
exception of one management proposal.
• Final report (43 pages) was submitted to Governor
Dunleavy on November 30, 2022.
SENATOR WIELECHOWSKI asked about the consensus-based process. He
asked if all decisions were unanimous.
MS. MADSEN replied no, a lack of consensus was noted and the
pros and cons of the discussion were presented. The process is
held at community and task force levels. Committee
recommendations were discussed by the committee and approved by
the task force.
SENATOR WIELECHOWSKI asked if a majority of task force members
observing an issue would trigger additional research.
MS. MADSEN asked if additional research meant additional work.
SENATOR WIELECHOWSKI replied yes.
MS. MADSEN replied that the task force achieved consensus with
an abundance of meetings and public comment.
3:40:41 PM
MS. MADSEN moved to slides 5 and 6, Alaska Bycatch Review Task
Force Committees." She explained that the task force had an
active website with all committees and members listed.
Science, Technology and Innovation
Tommy Sheridan, Chair
Ragnar Alstrom
Linda Kozak
Stephanie Madsen
Peter Micciche
Western Alaska Salmon
Co-Chairs George Guy and Stephanie Madsen
Ragner Alstrom
Bryce Edgmon
Karma Ulvi
Gulf of Alaska Halibut and Salmon
Brian Gabriel, Chair
Kevin Delaney
Duncan Fields
Mike Flores
Linda Kozak
Raymond May
Bering Sea and Gulf of Alaska Crab
Linda Kozak, Chair
Kevin Delaney
Stephanie Madsen
Erik Velsko
MS. MADSEN continued with slide 7, "Alaska Bycatch Review Task
Force Meeting Information."
Meetings were held from January 28 November 15, 2022
Full Task Force 14 Meetings
Science, Technology & Innovation Committee 5 Meetings
Western Alaska Salmon Committee 10 Meetings
Gulf of Alaska Halibut and Salmon Committee 8 Meetings
Bering Sea & Gulf of Alaska Crab Committee 8 Meetings
Total 45 Meetings
One meeting was held in-person and all other meetings
conducted online. Public testimony was taken at 43 of
the 45 meetings.
3:41:45 PM
CO-CHAIR GIESSEL informed the public that the meetings were
listed on slide 7.
CO-CHAIR BISHOP asked if the 45 meetings were recorded and
transcribed.
MS. MADSEN replied that most meetings were held via Zoom, and
each committee was responsible for its minutes. She explained
that additional funds were not available to support the task
force. She noted that the Department of Fish and Game provided
staff to draft minutes of the meetings. She clarified that
committee members set up Zoom meetings and communicated with the
Department of Fish and Game staff to provide public notice. She
stressed the importance of public comment accessibility.
3:43:14 PM
MS. MADSEN moved to slide 8, "Alaska Bycatch Review Task Force
Presentations." She explained that the presentations were
available at committee and task force levels. She added that the
presentations were posted online and in the report.
The ABRT received 30 presentations all available on
the ABRT website Agencies/Organizations Presenting
(Partial List)
• Alaska Department of Fish & Game
• North Pacific Fishery Management Council
• NOAA Fisheries Sustainable Fisheries Division
• Alaska Fisheries Science Center (NOAA)
• International Pacific Halibut Commission
• University of Alaska Fairbanks
• Alaska Pacific University/Cornell University
• Alaska Ocean Cluster
• FishNext Research Dr. Craig Rose
• Alaska Seafood Cooperative
• Sea State, Inc. SeaShare
• Alaska Charter Association
• United Catcher Boats
• Alaska Marine Conservation Council
• Groundfish Forum
• Pollock Conservation Cooperative Research Center
• At-Sea Processors Association
• Alaska Groundfish Data Bank
• Alaska Bering Sea Crabbers
3:44:02 PM
MS. MADSEN moved to slide 9, "Alaska Bycatch Review Task Force
Presentations and Information."
Full Task Force:
https://www.adfg.alaska.gov/index.cfm?adfg=bycatchtask
force.meetinginfo
• Overview of bycatch in federal and state fisheries.
• Genetic stock identification of salmon bycatch in
groundfish fisheries.
• SeaShare: salmon/halibut bycatch utilization for
hunger-relief.
• Federal groundfish observer and monitoring program.
Science, Technology & Innovation Committee:
https://www.adfg.alaska.gov/index.cfm?adfg=bycatchta
sk force.committees#meetings_abrt
• An Ocean Intelligence System for a Changing World."
• Alaska Blue Economy Center.
• Pollock Conservation Cooperative Research Center.
• Alaska Ocean Cluster.
MS. MADSEN continued with slide 10, "Alaska Bycatch Review Task
Force Presentations and Information."
Western Alaska Salmon Committee:
https://www.adfg.alaska.gov/index.cfm?adfg=bycatchtask
force.committees#meetings_wasc
• Western Alaska Chinook and chum salmon stock status.
• Regulatory structure of salmon bycatch measures for
the Bering Sea pollock fishery.
• Salmon bycatch reduction Incentive Plan Agreements
(IPAs).
• Research on salmon excluders in pollock trawl nets.
• Updated chum and Chinook salmon bycatch genetic
information; Adult Equivalent (AEQ) estimates and
impact rate analysis for Western Alaska Chinook
salmon; and North Pacific Fishery Management Council
actions.
• Current and future research by ADF&G Salmon and
Ocean Ecology Program and Alaska Fishery Science
Center.
3:44:29 PM
CO-CHAIR BISHOP asked about the salmon bycatch Incentive Plan
Agreements (IPAs).
MS. MADSEN replied that IPAs are programs required for the
pollock fishery. The programs are described in regulation and
must be approved by the National Marine Fisheries Service. She
added that the task force provides annual reports to the
council. She noted that the April meeting will include a salmon
agenda item with the incentive plan updates and genetic
information gathered in 2022. The North Pacific Fishery
Management Council established a salmon bycatch committee that
will provide recommendations about component analysis.
CO-CHAIR BISHOP requested additional information about advances
in salmon genetic analysis.
3:45:55 PM
MS. MADSEN replied that she would address the query later in her
presentation.
MS. MADSEN moved to slide 11, "Alaska Bycatch Review Task Force
Presentations and Information."
Gulf of Alaska Halibut and Salmon Committee:
https://www.adfg.alaska.gov/index.cfm?adfg=bycatchtask
force.committees#meetings_goahs
• Chinook salmon stock status and trends.
• Chinook salmon bycatch management and genetic
information.
• Halibut bycatch in groundfish fisheries.
• Summary of the 2021 halibut fishery data and stock
assessment results.
• Halibut deck sorting on non-pelagic trawl vessels.
• Overview of GOA shoreside trawl fleet and history of
trawl fishery rationalization efforts.
• Discard mortality in the directed halibut fishery.
• Industry recommendations for research and management
MS. MADSEN continued with slide 12, "Alaska Bycatch Review Task
Force Presentations and Information."
Bering Sea and Gulf of Alaska Crab Committee:
https://www.adfg.alaska.gov/index.cfm?adfg=bycatchtask
force.committees#meetings_bsai
• Gulf of Alaska Tanner crab stock status and
management update.
• Cooperative research to reduce non-pelagic trawling
efforts on crab and habitat.
• Impacts of modified non-pelagic trawl sweep gear on
crab bycatch.
• Tanner crab bycatch and groundfish catch in the
Central Gulf of Alaska.
• Overview of Bering Sea/Aleutians stock status and
management.
• Seascape-scale modeling of benthic habitat
disturbance from fishing activities.
• Bering Sea/Aleutian Islands crab bycatch management
measures.
• Industry recommendations for research and
management.
3:46:31 PM
MS. MADSEN moved to slide 14, "Alaska Bycatch Review Task Force
State Engagement Recommendations."
• Establish a process for providing bycatch-related
information and resources to Alaskans in a format
that is understandable and easily accessible.
• Continue to offer the public an opportunity to
provide input on North Pacific Council issues before
each meeting. Consideration should be given to
additional methods to seek input from stakeholders,
tribal entities and communities on bycatch issues.
3:47:57 PM
SENATOR WIELECHOWSKI queried the scope of Alaskan bycatch,
specifically king salmon, chum salmon and halibut. He asked how
many fish or pounds of fish comprised the state's bycatch.
MS. MADSEN replied that she would follow up with accurate
numbers. She informed the committee that the state's bycatch was
small in comparison to other fisheries in the United States. She
mentioned that the pollock fishery caught approximately 250
thousand Western Alaskan chum salmon in 2022. She added that 50
thousand chum were technically classified as Western Alaskan
chum while 40 thousand were allocated to the coastwide Western
Alaska and 10 thousand to the Kotzebue fishery. She remarked
that the Chinook salmon bycatch was lower with 2000 caught last
year in her sector. She stated that exact figures were found in
the IPA reports.
MS. MADSEN continued that the Amendment 80 sector provides the
council a halibut bycatch report. She explained that many
fisheries are required to report all fish caught by every
vessel. She mentioned that the cooperative report outlines every
vessel in the sector and all fish species captured.
3:50:23 PM
SENATOR WIELECHOWSKI asked if bycatch in Alaska presents a
problem for the state.
MS. MADSEN replied that bycatch is both inevitable and unwanted.
She believed that bycatch is considered a problem when disasters
occur such as two multi-species salmon collapses. She remarked
on the decline seen in two crab species as well. She added that
halibut stock fluctuates too. She stressed the need to lessen or
avoid bycatch. She theorized that the intensity of the problem
was in the eye of the beholder.
SENATOR WIELECHOWSKI queried the degree that bycatch contributes
to the fisheries' collapse.
3:51:25 PM
MS. MADSEN expressed some discomfort because she was tasked with
presenting the task force report. She recalled that Dr. Katie
Howard presented relevant issues to the House Fisheries
Committee. She commented that the federal government sees
climate change as the driver of the fishery declines and the
contribution of bycatch remains unclear. She supposed that
bycatch may contribute to the fishery declines.
3:51:55 PM
CO-CHAIR GIESSEL asked what happens to the bycatch.
MS. MADSEN responded that the pollock fishery requires every
salmon be counted by census and discarded via regulatory
recommendations. She clarified that the regulations stipulate
that food-grade fish are placed in the SeaShare food-bank
program. Since the bycatch is prohibited, they must be
discarded, but most vessels attempt to retain food-grade fish
for the food bank. She added that appropriate facilities are
required to redistribute the fish for hunger relief. Halibut is
a regulatory discard and fish caught offshore are not eligible
for the SeaShare program. Onshore bycatch is eligible for the
food bank program.
CO-CHAIR BISHOP requested more information about the expansion
efforts for the SeaShare program.
MS. MADSEN replied that the SeaShare program is improving. She
stated that the program challenges involved appropriate hubs and
containers for distribution. She recalled mention of donations
made to Yukon villages, but she did not have details. She added
that the North Pacific Fishery Management Council will receive a
SeaShare program update in April.
3:54:06 PM
SENATOR WIELECHOWSKI asked about task force discussions or
recommendations for utilizing the National Oceanic and
Atmospheric Administration (NOAA) enforcement officers as
observers on fishing vessels.
MS. MADSEN replied that two federal employees function as
observers on fishing vessels.
SENATOR WIELECHOWSKI asked if all fishing boats had observers.
MS. MADSEN replied that every offshore vessel had federal
observers, but inshore vessels varied by the fishery. She stated
that the fisheries planned to move to electronic monitoring,
which is more applicable to catcher vessels. All catcher
processors have two federal observers onboard. She mentioned the
use of cameras onboard to observe salmon discard. She added that
the National Observer Program collects the salmon genetics, with
every tenth Chinook salmon genetically tested. Every thirtieth
chum salmon is genetically tested. All testing occurs at the
Auke Bay lab in Juneau.
3:55:53 PM
SENATOR KAWASAKI asked about the percentage of bycatch that
becomes part of the SeaShare program.
MS. MADSEN replied that she did not have the figures at hand,
but the SeaShare report would include the poundage of salmon
collected. She reminded the committee that the fish must be
deemed food-grade for use in the SeaShare program. She added
that halibut are eligible for the program from shoreside
processors; there is no halibut donation program at sea.
SENATOR KAWASAKI asked if ineligible fish are discarded.
MS. MADSEN replied yes, the fish are classified as regulatory
discards. She highlighted that recommendations and a request for
full utilization of food-grade bycatch were upcoming in the
presentation.
3:57:05 PM
SENATOR DUNBAR asked how many halibut or salmon are
unintentionally caught in a typical catcher processor.
MS. MADSEN stated that she was not prepared to speak about
halibut, but her trawler caught 250 metric tons of pollock and
one Chinook salmon.
SENATOR DUNBAR clarified that a full net of pollock would yield
only one Chinook salmon.
MS. MADSEN responded that Chinook and chum salmon are different
in their practices and habits. She stated that some pollock
catches yield zero salmon. She added that the fish finder on her
vessel does not distinguish between pollock and salmon.
SENATOR DUNBAR recalled that purse seine fishing can yield an
abundance of unintentionally caught jellyfish. He understood
that Ms. Madsen would capture large trawls of pollock with
relatively few salmon.
MS. MADSEN stated that Senator Dunbar's assessment is generally
correct. She clarified that chum salmon travel in groups and may
be caught in greater numbers depending on their migration and
the location of the pollock. She stressed the importance of
genetic determinations for more accurate predictions. The
genetic work will ultimately lead to less unintended bycatch.
She noted that areas of greater bycatch are identified via a
third party to appropriately shut down high-risk areas. The
incentive is to remain on high pollock grounds. The penalty
involves a move, which is costly for a catcher processor fleet.
4:01:22 PM
SENATOR CLAMAN asked if the bycatch volume subjects the fleet to
the penalty of moving.
MS. MADSEN replied that a formula base rate (the number of
pollock divided by the number of salmon) is calculated to
determine bycatch avoidance areas. The vessel performance is
also considered and if the vessel is determined to be a "poor
performer," they are excluded from the area for at least a week.
SENATOR WIELECHOWSKI asked if the task force identified the
levels of acceptable and excessive bycatch.
MS. MADSEN replied that the task force did not provide
recommendations about acceptable levels of bycatch.
4:02:42 PM
SENATOR WIELECHOWSKI assumed that metrics would be helpful.
MS. MADSEN clarified the question. She interpreted that Senator
Wielechowski wondered about a certain level of acceptable
bycatch. She responded that bycatch are not acceptable species
and must be avoided. The declining rate of a species determines
the impacts of bycatch. She anticipated that reports from the
federal and state governments would show that the Chinook salmon
failure is occurring in the juveniles near the shore. For chum
salmon, the failure is suspected to result from warm water and
change in the availability of their food source.
4:05:02 PM
SENATOR KAUFMAN queried the criteria that classify a vessel as a
poor performer.
MS. MADSEN replied that a poor performer is simply a vessel in
the wrong place at the wrong time. She referred to an outlier
provision in the salmon avoidance plan. A vessel that is an
outlier for more than two seasons will receive additional
penalties.
CO-CHAIR BISHOP asked about gear and excluders.
4:06:28 PM
MS. MADSEN replied that salmon excluder work data was presented
to the committees and task force. She stated that the salmon
excluder work was ongoing and required in the pollock fishery.
She stated that salmon are stronger swimmers than pollock. She
mentioned various methods to discourage salmon bycatch including
lights used to distract the salmon. She clarified that the
excluder work was another tool available to avoid capturing
Chinook salmon.
4:07:21 PM
CO-CHAIR BISHOP attempted to add perspective about the pollock
and salmon ratio Ms. Madsen mentioned. He interpreted the ratio
to be quite small when comparing the one salmon caught to 250
metric tons of pollock.
4:08:07 PM
SENATOR WIELECHOWSKI agreed that the numbers of bycatch sound
reasonable, but the legislature often hears about the problems
with bycatch. He wondered why a task force is necessary for one
king salmon out of so many fish.
MS. MADSEN replied that the declines seen in chum, coho and crab
led to the creation of the task force. She suspected that last
year's election played a part in the popularity of the bycatch
concept. She stated that the task force served an important role
in educating the public.
SENATOR WIELECHOWSKI asked if the task force concluded that
bycatch is not contributing to declines in fish and crab counts.
MS. MADSEN replied no, the task force concluded that the state
should continue to focus on bycatch with the available tools to
ensure that numbers do not increase. She added that bycatch is
found in fixed gear and pot fisheries. She remarked that pot cod
fishers in the Bering Sea captured more king crab than the
trawlers.
4:10:21 PM
MS. MADSEN continued with slide 15, "Alaska Bycatch Review Task
Force State Engagement Recommendation." She remarked that the
total chum salmon catch in 2022 was approximately 250 thousand,
with 50 thousand from Western Alaska.
• Support legislative action to continue the Education
Tax Credit Program and expand it to include gear
modifications or technology improvements that would
help reduce bycatch.
• State should work with other entities, including the
State Department, to request information on Chinook
and chum salmon taken in Russian waters, as well as
the genetic origin of these salmon.
4:11:23 PM
SENATOR CLAMAN asked what the average chum weighs. He wished to
compare the metric tons of pollock to the number of fish.
MS. MADSEN replied that she did not have the data available, but
noted that the information is collected by the Federal Observer
Program. She remarked that bycatch fish were currently smaller
than mature fish; weight and age were accounted for and
available.
SENATOR CLAMAN asked about a general range of chum salmon
bycatch weight.
MS. MADSEN replied that she did not know.
CO-CHAIR BISHOP attempted to provide perspective about the
number of fish for committee members.
4:13:23 PM
MS. MADSEN moved to slide 16, "Alaska Bycatch Review Task Force
State Engagement Recommendations."
Continued Focus on Bycatch
• Using the Alaska Bycatch Review Task Force as a
template, the state should establish a permanent
bycatch advisory entity.
• Work with Alaska Board of Fisheries, stakeholders
and a bycatch advisory entity to develop a State of
Alaska Bycatch Policy. This policy could be used by
the Alaska Board of Fisheries for stage-managed
fisheries and the State of Alaska representative to
the North Pacific Fishery Management Council when
developing the State of Alaska position regarding
bycatch in federally managed waters.
SENATOR WIELECHOWSKI considered the notion that bycatch is not a
problem. He referenced an Anchorage Daily News article about
Black Sea sablefish and black cod ending the year at 7.9 million
pounds in 2020, which was 519 percent over the trawl bycatch
limits. He asked if the figures were accurate.
MS. MADSEN stated that she was available to discuss the task
force report. She offered to return to the committee with
additional information. She clarified that she did not state
that bycatch is not a problem.
CO-CHAIR BISHOP asserted that the committee would stay focused
on the task force report.
MS. MADSEN acknowledged the importance of the issue to Alaskans.
She wished to answer all committee member questions but felt an
obligation to her fellow task force members.
4:15:19 PM
SENATOR WIELECHOWSKI asked if the task force provided
recommendations regarding gear usage or techniques to reduce
bycatch.
MS. MADSEN replied yes.
4:15:56 PM
MS. MADSEN continued with slide 17, "Alaska Bycatch Review Task
Force Research Recommendation.
• Develop State bycatch research priorities, utilizing
input from communities, Alaska Native tribes, industry,
and the public, to share with funding entities that would
help identify and acquire research funds.
• Implement strategies to encourage and facilitate
industry/agency cooperative research to reduce bycatch
and associated mortality.
• Create methods for collaboration with Alaska Native
tribes, organizations and other research entities to
better track proposed or funded bycatch research, along
with developing opportunities for cooperative projects
and combined reporting of findings.
CO-CHAIR BISHOP queried the methods of collaboration with Alaska
Native tribes. He suggested potential roles Alaska Natives might
play in the process.
MS. MADSEN replied that three tribal members participated in the
task force. She agreed that further work and implementation were
required. She opined that communication and outreach would go a
long way.
CO-CHAIR BISHOP understood that the task force provided
recommendations about collaboration.
SENATOR KAWASAKI queried how the research stated in the
presentation differed from past studies. He wondered how the
current research adapted to today's situation. He cited a report
from 1979 mentioning the Chinook bycatch that was recycled in
the 2010 NOAA report.
MS. MADSEN replied that future slides should answer more
questions. She stated that the research cited about Chinook
salmon was accurate.
4:20:01 PM
MS. MADSEN moved to slide 18, "Alaska Bycatch Review Task Force
Research Recommendations: All Species and Gear." She stated that
the task force recommends additional research to reduce bycatch.
She stressed the need for updated discard mortality rates. She
stated that discard mortality rates for crab and halibut are
outdated. She added the recommendation for gear modification and
improved technology. She remarked on the need to better
understand the shifting distribution patterns. She clarified
that fish are found in different spots now because of climate
change and food distribution.
4:22:12 PM
SENATOR DUNBAR asked about updating discard mortality rates. He
wondered if the current rates were too low or too high.
MS. MADSEN responded that the task force members varied in their
opinions, so further research is needed to know for certain. She
added that discard mortality is applied to a vessels bycatch
rate. The public was interested in the current science related
to the discard rates.
SENATOR WIELECHOWSKI asked about the gear modification
recommendation and whether it suggested modified sweeps.
MS. MADSEN replied that the overall recommendation was for gear
modifications and improved technology for all species and all
gear.
SENATOR WIELECHOWSKI asked if the recommendation was general or
specific regarding gear modifications.
MS. MADSEN replied that the recommendation was general,
recognizing that new technological improvements should be
investigated.
SENATOR WIELECHOWSKI asked if the suggestions will be
implemented this fishing season.
MS. MADSEN responded that pollock fishing gear was specifically
defined in regulation. She mentioned salmon excluders requiring
an experimental fishing permit.
SENATOR WIELECHOWSKI asked which fishing method yields the
greatest bycatch.
MS. MADSEN replied that both salmon species are found in pollock
fishery bycatch. She stated that the Amendment 80 trawlers
account for the majority of the halibut bycatch. She mentioned
different impacts based on the sector. She mentioned the catcher
processor sector located offshore for the pollock fishery. She
added that mothership and inshore sectors also exist. She
recalled presentations indicating that chum salmon are near the
catcher vessel harvesting zones. She revisited the value of
genetics as it allows knowledge about Western Alaska salmon.
CO-CHAIR BISHOP opined that the genetic data would provide a
solution.
MS. MADSEN shared Senator Bishop's opinion.
4:25:53 PM
SENATOR CLAMAN observed that the evidence indicates that bycatch
might not be such a problem. He acknowledged community opinions
indicating otherwise. He asked if the task force concluded that
additional research is needed to make a firm determination.
MS. MADSEN clarified that the task force concluded that its work
must continue. The issue required dissecting the best available
science, gearwork and technology. The conversation vacillates
between viewing bycatch as a cause of the decline or merely a
contributor. She noted that some scientists deny that bycatch is
a problem. She observed a difference of opinion among the
science community about whether bycatch led to the fishery
declines.
SENATOR CLAMAN asked Ms. Madsen if she sensed consensus about
the cause of the declines in Alaskan salmon, halibut and crab.
MS. MADSEN replied that various presentations describe the
Chinook salmon and crab declines.
4:28:18 PM
MS. MADSEN moved to slide 19, "Alaska Bycatch Review Task Force
Research Recommendations: Western Alaska Salmon."
Improve our ability to determine the stock of origin
of chum and Chinook salmon taken as bycatch.
Reduce bycatch through improved understanding of
distribution and migration patterns of Alaska chum and
Chinook salmon stocks.
4:28:34 PM
MS. MADSEN continued with slide 20, "Alaska Bycatch Review Task
Force Research Recommendations: Western Alaska Salmon."
Research that helps us understand the relative
importance of particular mechanisms for driving
abundance of Western Alaska Chinook and chum
• Marine migration patterns relative to groundfish
fisheries.
• Improved stock-specific information.
• Improved understanding of fishery impacts.
MS. MADSEN continued with slide 21, "Alaska Bycatch Review Task
Force Research Recommendations: Western Alaska Salmon."
Research on additional non-adult abundance estimates
• Critical survival periods for Western Alaska salmon.
• Understand how ocean/climate conditions impact
future runs.
• Role of diet, health, and disease on survival and
spawning success.
4:29:19 PM
MS. MADSEN moved to slide 22, "Alaska Bycatch Review Task Force
Research Recommendations: Gulf of Alaska Salmon."
Note: Much of the salmon research recommendations
apply to both the Bering Sea and Gulf of Alaska.
Gulf of Alaska specific salmon research
recommendation:
• Conduct annual genetic and spatial assessment of
Gulf of Alaska (GOA) Chinook salmon
4:29:51 PM
MS. MADSEN moved to slide 23, "Alaska Bycatch Review Task Force
Research Recommendations: Gulf of Alaska Halibut."
Top Priority
Investigate better ways to estimate total halibut
removals and discard mortality
• Impacts of repeated capture/discarding of females,
sublegal and legal males.
• Impacts of fishing gear on habitat.
• Increase tagging to better understand movement
between management areas.
• Investigate halibut diet and growth rate; changes in
length at age.
• Studies on commercial fishery size limit and trade-
offs.
• Determine relative fecundity of halibut based on
size and age.
4:30:17 PM
MS. MADSEN continued with slide 24, "Alaska Bycatch Review Task
Force Research Recommendations: Crab."
Recommendations apply to crab in all regions of the
state
Address observed and unobserved mortality caused by
gear interactions
• Impacts of repeated capture/discarding.
• Address data gaps regarding uncertainties in the
directed crab fisheries and unobserved state pot cod
fishery.
• Research habitat disturbance utilizing tools such as
the fishing effects model. Address observed and
unobserved mortality caused by gear interactions
4:31:06 PM
MS. MADSEN moved to slide 25, "Alaska Bycatch Review Task Force
Research Recommendations: Crab."
Continued research on critical crab habitat to better
inform on open and closed commercial fishing areas
• Tagging studies and other research to determine
seasonal movement and distribution.
• Improve understanding of preferred habitat at
various life stages.
• Examine Vessel Monitoring System use in developing
essential fish habitat models.
4:31:59 PM
MS. MADSEN moved to slide 26, "Alaska Bycatch Review Task Force
Management Recommendations."
Management recommendations were developed at the
committee level after many meetings, dozens of
informational presentations and public comment. The
ABRT had additional discussion, made some revisions
and came to consensus on all but one issue.
The ABRT considered and adopted 17 management
recommendations by unanimous consent for fixed
(longline and pot) and trawl gear for the Bering Sea
and Gulf of Alaska.
4:32:13 PM
MS. MADSEN continued with slide 27, "Alaska Bycatch Review Task
Force Management Recommendations."
The following recommendation applies to all species,
gear groups and regions
Bycatch Utilization
The State of Alaska should support taking incremental
measures through the regulatory process to improve
bycatch utilization with a particular focus on species
that are otherwise marketable, but are caught with
non-targeted gear or discards in a directed fishery
that are required by regulation.
4:33:06 PM
MS. MADSEN continued with slide 28, "Alaska Bycatch Review Task
Force Management Recommendations: Bering Sea."
Bering Sea Fixed Gear
Four Management Recommendations
Bering Sea Trawl Gear
Four Management Recommendations
4:34:33 PM
CO-CHAIR GIESSEL asked about the acronym IFQ.
MS. MADSEN replied that IFQ refers to Individual Fishing Quotas.
CO-CHAIR BISHOP stated that IFQs are assigned to a limited
number of fishermen.
MS. MADSEN responded that an IFQ fishery exists for crab,
halibut, and black cod. She clarified that the pollock fishery
is not classified as IFQ.
4:36:01 PM
SENATOR DUNBAR commented that moving to an IFQ system will
fundamentally change the system. He acknowledged that the change
may be contentious and political because the quotas are limited.
He found it interesting to see the IFQ issue presented as a task
force recommendation. He wondered how realistic the
recommendation was.
MS. MADSEN replied that IFQs may be considered for the fishery
due to the limited number of participants in the program. She
added that the Gulf of Alaska Rationalization Program has more
participants, but also has experience with IFQs. She spoke about
the concern related to barriers to entry. She mentioned
potential solutions that depend on the fishery's complexity. She
noted that the crab fishery was less complex and driven by
congressional request. She stated that the halibut IFQ was the
first program and lessons were learned from the process. She
expressed optimism about future IFQ programs.
SENATOR DUNBAR attempted to understand the industry structure,
specifically the pollock fishery. He understood that the ships
were large and worth $100 million. He asked who rationalizes the
fishery.
MS. MADSEN replied that the pollock fishery is rationalized via
the American Fisheries Act as a congressionally authorized
program. She stated that the pollock fishery in the Gulf of
Alaska is a smaller fishery currently considered for
rationalization. She informed the committee that the North
Pacific Management Council is advisory to the Secretary of
Commerce.
4:39:35 PM
MS. MADSEN moved to slide 30, "Alaska Bycatch Review Task Force
Management Recommendations: Bering Sea."
Bering Sea Trawl Gear
• Work to achieve real time genetic reporting that
provides the composition of Western Alaska salmon in
the bycatch. This can then be used in management of
the pollock fishery to avoid areas and times when
Western Alaska salmon are on the grounds in the
Bering Sea.
• The State should work to establish a scientific
based chum salmon cap to reduce bycatch of Western
Alaska salmon in the pollock fishery in the Bering
Sea.
MS. MADSEN continued with slide 31, "Alaska Bycatch Review Task
Force Management Recommendations: Bering Sea."
Bering Sea Trawl Gear
• Review effectiveness of fixed open and closed areas
for trawling and continue to examine methods to
develop flexible spatial management.
• A review is recommended for the Bering Sea trawl
prohibited species caps (PSC) in relation to crab,
to be supported by the State of Alaska. This review
would examine the impacts to the resource and trawl
sector if trawl crab PSC were to be applied across
the entire Bering Sea, instead of only the current
sub-areas.
4:41:29 PM
MS. MADSEN moved to slide 32, "Alaska Bycatch Review Task Force
Management Recommendations Gulf of Alaska."
Gulf of Alaska Fixed Gear (longline and pot)
Two Management Recommendations
• Following gear modification research, consider
regulations for the directed crab fishery and pot
cod fishery to reduce incidental take and discard
mortality.
• Address the lack of monitoring in the directed
Tanner crab and state waters pot cod fisheries.
4:41:50 PM
MS. MADSEN moved to slide 33, "Alaska Bycatch Review Task Force
Management Recommendations Gulf of Alaska." She highlighted
the Gulf of Alaska trawl gear and six management
recommendations.
4:41:58 PM
MS. MADSEN continued with slide 34, "Alaska Bycatch Review Task
Force Management Recommendations Gulf of Alaska."
Gulf of Alaska Trawl Gear
• Recommend the State of Alaska initiate review of the
open and closed areas in the Gulf of Alaska for
pelagic and non-pelagic trawl gear and consider
closing new/additional areas to reduce the bycatch
of halibut, salmon and Tanner crab.
• To better quantify removal of prohibited species, it
is recommended that trawl catcher vessels in the
Gulf of Alaska be required to have 100% observer
coverage when engaged in non-pelagic trawling. It is
further recommended that the State of Alaska work to
obtain funding, either through specific
appropriations and/or grants for the additional
coverage.
CO-CHAIR BISHOP added that Senator Lisa Murkowski and her
delegation supported the electronic monitoring option for
observer coverage.
MS. MADSEN concurred; the congressional delegation supports the
use of electronic monitoring.
CO-CHAIR BISHOP asked for agency specificity.
MS. MADSEN replied that the agency responsible for the
implementation of electronic monitoring changes is the National
Marine Fisheries Service. She highlighted communication issues
identified in the task force; the use of acronyms and other
general terms is difficult for the public to understand.
4:43:55 PM
MS. MADSEN moved to slide 35, "Alaska Bycatch Review Task Force
Management Recommendations Gulf of Alaska."
Gulf of Alaska Trawl Gear
• It is recommended that a regulatory requirement be
approved for the Gulf of Alaska pelagic trawl fleet,
including any tenders of pelagic trawl caught fish,
to have 100% electronic monitoring. It is further
recommended that the State of Alaska work with
National Marine Fisheries Service, our federal
delegation, and others to work to acquire funding to
install electronic monitoring equipment on all GOA
catchers and tenders.
• It is recommended the State of Alaska propose that
the NPFMC consider development of an abundance-based
management program for halibut bycatch in the GOA as
a way to address bycatch during fluctuations of
halibut biomass.
4:44:30 PM
MS. MADSEN moved to slide 36, "Alaska Bycatch Review Task Force
Management Recommendations Gulf of Alaska."
Gulf of Alaska Trawl Gear
It is recommended that the State of Alaska investigate
the value of requiring full retention of Tanner crab
in all GOA trawl fisheries for a period of time to
adequately assess removals.
As a means of reducing and managing bycatch and
associated mortality of high value species within the
Gulf of Alaska, it is recommended that
rationalization-type management tools be considered.
4:44:55 PM
SENATOR DUNBAR asked Ms. Madsen if her organization was
primarily in the Bering Sea Fishery. He wondered if the Gulf of
Alaska Fishery had representation on the task force.
MS. MADSEN responded that she was the sole trawl representative,
and she represented her colleagues in the Gulf of Alaska.
4:45:40 PM
MS. MADSEN moved to slide 37, "Alaska Bycatch Review Task Force
Research and Management Relationships." She stated that the
recommendation came from former Senator Micciche who suggested
linking management and research in a visual format. The charts
displayed the relationship between research and management
actions.
4:46:06 PM
MS. MADSEN moved to slide, 38, "Next Steps."
Bycatch Advisory Council
The Bycatch Advisory Council was formed on March 10,
2023 under the ADF&G Commissioner's authority and will
advise the department on ways to implement
recommendations contained in the final report of the
Alaska Bycatch Review Task Force.
MS. MADSEN continued with slide 39, "Bycatch Advisory Council
Membership
The members of the Bycatch Advisory Council are
comprised of six individuals who served on the Alaska
Bycatch Review Task Force.
• Kevin Delaney
• Brian Gabriel
• John Jensen
• Linda Kozak
• Stephanie Madsen
• Karma Ulvi
These individuals represent the interests of coastal
communities, and the commercial, sport and subsistence
fisheries. They will continue to focus on the issues
of salmon, crab and halibut bycatch.
4:47:08 PM
SENATOR WIELECHOWSKI wondered about the next steps. He
appreciated the task force recommendations and wondered about
further discussion and implementation plans.
MS. MADSEN replied that some implementation is underway related
to chum salmon and genetic work. She stated that the
congressional senators established the Salmon Research Task
Force slated for a series of meetings. She highlighted efforts
with the North Pacific Research Board and the state and federal
priorities for research. She stated that management
recommendations were underway at a slower pace. She informed the
committee that salmon was the April topic and crab would be
discussed in June by the North Pacific Fishery Management
Council. She was unsure about the role the Board of Fisheries
would play. She stressed that the Bycatch Advisory Council must
continue to take recommendations, specifically those related to
state engagement and communication. She reminded committee
members that all of the presentations mentioned could be found
on the website.
4:49:17 PM
SENATOR DUNBAR noted that the harvest of salmon in Area M was
classified as incidental take versus bycatch.
MS. MADSEN replied that she was unfamiliar with the Area M
fishery.
SENATOR DUNBAR asked how to prevent the council from being
siloed from the issue.
MS. MADSEN responded that the Board of Fisheries manages the
Area M fishery. The council lacks authority over the Area M
fishery. She stated that BOF met recently on Alaska Peninsula
issues. She declined to comment on the outcome of the meeting.
CO-CHAIR BISHOP asked Ms. Kozak to offer her closing comments.
4:50:57 PM
MS. KOZAK thanked Ms. Madsen for the presentation. She stated
that the rationalization tools for the Gulf of Alaska trawl
fishery and the Bering Sea pot cod fishery were not considered
IFQ fisheries, but a cooperative fishery instead. She noted the
task force dissection of bycatch issues exclusively. She stated
that social engineering issues were abundant, yet they were not
discussed in the task force. She added that the bycatch task
force does highlight an issue with bycatch. She stressed the
importance of reducing bycatch in Alaska. She noted that the
Bycatch Advisory Council will take the recommendations from the
task force and work with the administration and policymakers to
implement research-driven solutions. She remarked that the task
force did not attempt to set policy. The Bycatch Advisory
Council will continue the work and hold public meetings soon.
4:53:28 PM
CO-CHAIR BISHOP revisited the topic of genetic testing. He found
the lengthy process fascinating. He suggested genetic testing
practices available on the fishing vessels to lessen bycatch.
MS. MADSEN agreed with Co-Chair Bishop. She believed that the
ability to identify areas of Western Alaska salmon would lessen
bycatch. She offered credit to the Auke Bay lab for the quick
turnaround for genetic testing. She spoke about the complexity
involved in genetic testing. She committed to promoting the
option and she agreed that it provides an important solution.
CO-CHAIR BISHOP thanked the presenters for serving on the task
force and council.
4:56:14 PM
There being no further business to come before the committee,
Co-Chair Bishop adjourned the Senate Resources Standing
Committee meeting at 4:56 p.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| Presentation Alaska Bycatch Review Task Force 03.27.23.pdf |
SRES 3/27/2023 3:30:00 PM |
|
| Alaska Bycatch Review Task Force Final Report Nov. 2022 (sm).pdf |
SRES 3/27/2023 3:30:00 PM |