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HomeMy WebLinkAboutExecutive Summary; Commercial Fishing Environmental Assessment 1998IN REPLY REFER TO· United States Department of the Interior NATIONAL PA.RK SERvlCE Alaska Regional Office 2525 Gambell Street. Room 107 Anchorage, Alaska 99503-2892 Dear Reader: The National Park Service (NPS) has prepared a Commercial Fishing Environmental Assessment (EA) for Glacier Bay National Park and is soliciting your review and comments. The enclosed EA describes five alternatives for managing commercial fishing in the marine waters of Glacier Bay National Park and examines each alternative's potential effects on park resources and commercial fishing. NPS previously published proposed regulations, described as the preferred alternative in the EA, on commercial fishing for Glacier Bay National Park on April 16, 1997. We invite all interested individuals and groups to comment on this EA and the Proposed Rule. Commenting: Please share your concerns and ideas with us regarding the Commercial Fishing Environmental Assessment. Your comments are important and will be assessed and considered before a final decision is made regarding commercial fishing activities in the marine waters of Glacier Bay National Park. The comment period on the EA and Proposed Rule will end June 1, 1998. Please send written comments by that date to: Superintendent Glacier Bay National Park and Preserve Box 140 Gustavus, Alaska 99826 Phone: (907) 697-2230 Open hou)?t;;S and hearings: Public open houses and hearings on the NPS Proposed Rule and EA, will be held in May in the following Alaskan communities: Gustavus, Hoonah, Pelican, Elfin Cove, Juneau and Sitka, and in Seattle, Washington. The open houses will provide opportunity to talk informally with park staff about the NPS Proposed Rule and EA. Hearings will be held following the open houses to provide opportunity for formal, recorded testimony on the Proposed Rule and EA. Scheduling information will be published several weeks prior to the open houses/hearings. Executive Summary Commerci~l Fishing Environmental Assessment April1998 Glacier Bay National Park and Preserve United States Department of the Interior T National Park Service T Alaska Region EXECUTIVE SUMMARY COMMERCIAL FISHING ENVIRONMENTAL ASSESSMENT INTRODUCTION Glacier Bay National Park and Preserve is a glacier-crowned, maritime wilderness that stretches northward from Alaska's Inside Passage to the Alsek River, encircling the magnificent, saltwater Glacier Bay. The park derives its name and much of its biological and cultural significance from this great Bay, which harbors spectacular tidewater glaciers and a unique assemblage of marine and terrestrial life. This 3.3 million-acre unit of the National Park System is one of the few protected areas in the world that includes extensive saltwater habitat within its jurisdiction. Within the boundary of Glacier Bay are over 600,000 acres of marine waters, including 53,000 acres of designated wilderness, making it the largest marine area managed by the National Park Service (NPS) (see map). NPS regulations have prohibited commercial fishing in Glacier Bay National Park (and the predecessor national monument) since 1966, and the Wilderness Act has prohibited commercial fishing in the wilderness waters within Glacier Bay National Park since 1980. Commercial fishing activities, however, have continued in both wilderness and non wilderness areas of the park. NPS regulations and management policies allow commercial fishing only where specifically authorized by Federal law or treaty rights. Since 1990, several attempts have been made to resolve the commercial fishing issue through litigation, administrative rulemaking and legislation. In 1990, the Alaska Wildlife Alliance and American Wildlands filed a lawsuit challenging the NPS's failure to bar commercial fishing activities from the park. In 1994, the district court concluded that "there is no statutory ban on commercial fishing in Glacier Bay National Park, provided, however, that commercial fishing is prohibited in that portion of Glacier Bay National Park designated as wilderness area." NPS published its first proposed rule to phase out commercial fishing in the park on August 5, 1991. At the state of Alaska's request, the Department of the Interior did not issue a final rule in 1993 and agreed to discuss with the state and Alaska congressional delegation the possibility of resolving the issue through a legislative approach. In 1992, Congress considered but did not enact proposed legislation on commercial fishing in Glacier Bay National Park. Further discussions on legislative and regulatory possibilities in 1993 and 1994 did not lead to a resolution. In 1995 and 1996, NPS and the state of Alaska co-hosted several public meetings involving interested parties on commercial fishing in park waters. NPS developed and published a proposed rule on commercial fishing on April 16, 1997 (62 FR 1854 7). The environmental assessment addresses the potential environmental impact of the proposed rule and alternatives. Tile proposed regulations would allow commercial fishing in nonwilderness marine waters of Glacier Bay proper to continue for 15 years. Commercial fishing would generally be authorized to continue in nonwilderness waters outside Glacier Bay proper. These fisheries would continue under a cooperative fisheries management plan developed by NPS and the state of Alaska and implemented through the Alaska Board of Fisheries, subject to the Secretary of the Interior's authority to protect park resources and values. This action would bring Glacier Bay into conformance not only with the general policy and rules applicable to the national park system, but also with tlte objectives underlying the establishment of the park. In addition to resolving the legal issues, the proposed action would enhance the protection of park resources and values consistent with National Park Service law and policy. Specifically, NPS's objectives include: • to preserve and perpetuate habitats and natural population structure and distribution of species; • to ensure that natural, successional and evolutionary process occur unimpeded; • to ensure that natural biological and genetic diversity is maintained; -. N *E s 20 Miles ~~~~~-·--------2., 10 0 10 Sound Legend Parle Boundary Park Waters Wilderness Waters Boundary L--------~--------------------~--·-·-·-· ~---~------·---------~-----·--- Map of Glacier Bay National Park and Preserve .. • to minimize visitor and vessel-use conflicts; • to protect wilderness values; • to sustain and strengthen Hoonah Tlingit cultural ties to the park; and • to expand our knowledge and understanding of marine ecosystems. TI1e NPS has continued to gather infonnation throughout the scoping period for this environmental assessment through a series of three public workshops held in Juneau, Alaska during the past several months. DESCRIPTION OF ALTERNATIVES The environmental assessment describes the proposed action and four alternatives for managing commercial fishing in the marine waters of Glacier Bay National Park. The NPS will implement the Wilderness Act's prohibition on commercial fishing in wilderness waters regardless of any decision made under this environmental assessment and rulemaking process. Closure of all wilderness waters to commercial fishing is outside the scope of this process ALTERNATIVE ONE: PROPOSED ACTION The proposed action (1997 proposed rule) would enhance protection of the park's biological resources and reduce conflicts between commercial fishing and recreation activities, while providing continued fishing opportunities in outer waters. The proposal would provide displaced fishers a reasonable opportunity to adjust their fishing activities to areas outside Glacier Bay proper, amortize their current investment in fishing vessels and gear, or in many cases, continue fishing until retirement. Glacier Bay Proper: The proposed action would prohibit all commercial fishing in Glacier Bay proper. A 15-year limited exemption in nonwilderness waters of Glacier Bay proper would allow eligible commercial fishing to continue in this area. The exemption would be available throughout the 15 years from October I through April 30 (outside the primary visitor-use season). Commercial fisheries eligible for the 3 15-year exemption would include trolling for salmon, longlining for halibut and pot or ring net fishing for Dungeness and Tanner crab. All other fisheries and gear types would be prohibited. Participation in the eligible fisheries would be limited to those fishers with an established history (at least 6 out of I 0 years, 1987 -1996) in Glacier Bay. All commercial fishing in Glacier Bay proper would tenninate in 15 years. Outer Waters: The proposed action would generally authorize commercial fishing to continue in nonwilderness waters outside Glacier Bay proper. Authorized fisheries would be limited to those species and gear types (troll for salmon, longlining for halibut and groundfish, pots and ring net fishing for Dungeness and Tanner crab and purse seining in Excursion Inlet only) that have historically occurred and have provided commercially viable fisheries. All other fisheries and gear types would be prohibited. Dungeness crab and halibut studies and a Hoonah Tiingit cultural fishery are included in the proposed action. ALTERNATIVE TWO: NO ACfiON This alternative would enforce the statutory and regulatory prohibitions regarding commercial fishing activities within the marine waters of Glacier Bay National Park. Enforcement ofNPS regulations would result in the immediate cessation of all commercial fisheries in all park waters (Glacier Bay proper, Icy Strait, and outer coast waters) with no opportunity to phase out fishing through limited exemptions. The Hoonah Tiingit cultural fishery and specific research proposals would not be elements of this alternative. ALTERNATIVE THREE This alternative incorporates marine reserve concepts consistent with the objectives of the NPS Organic Act and the Alaska National Interest Lands Conservation Act (ANILCA). The alternative provides an opportunity for NPS and the state of Alaska to test the effectiveness of high-latitude marine reserves for various purposes. Scientific infonnation would be emphasized in the management and protection of resources throughout the park. Specifically, this alternative would focus on protecting those species for which the park could serve as an effective marine reserve (i.e., resident species) while allowing continued harvest of species that are subject to harvest outside park waters (i.e., transient species). Glacier Bay Proper: Alternative Three would authorize winter trolling for king salmon in nonwilderness waters of Glacier Bay proper. Commercial fishing for king salmon would be limited to the winter season (currently October II through-April I4). A 7-year exemption would be offered for the Tanner crab fishery and a 5-year exemption would be offered for the Dungeness crab fishery. These fisheries would terminate at the end of their respective exemption periods. All other commercial fisheries would be prohibited Outer Waters: Alternative Three would authorize commercial fishing for salmon, halibut and Tanner crab in nonwilderness waters outside Glacier Bay proper. Commercial fishing for Pacific cod would be autl10rized only in Icy Strait. Dungeness crab and halibut studies and a Hoonal11lingit cultural fishery are included in tl1is alternative. ALTERNATIVE FOUR: CONTINUED FISHING The objective of Alternative Four would be to allow holders of valid permits to continue commercial fishing throughout Glacier Bay National Park. This alternative would prohibit only those fisheries that cannot be sustained or that cause unacceptable habitat degradation. Glacier Bay Proper: Alternative Four would authorize most current fisheries in Glacier Bay proper and park outer waters to continue. Authorized commercial fisheries would include trolling for all species of salmon, longlining for halibut and groundfish; and pot or ring net fishing for Dungeness, Tanner and king crab. Outer Waters: Alternative Four would autl10rize current fisheries in t11e outer waters. Authorized commercial fisheries would include trolling for all species of salmon; purse seining for salmon (Excursion Inlet only); longlining for halibut and groundfish; dingle bar fishing for ling cod; pot or ring net fishing for Dungeness, Tanner and king 4 crab; pot fishing for shrimp; and dredging for scallops. A Dungeness crab study and a Hoonah llingit cultural fishery are included in this alternative. ALTERNATIVE FIVE: 199I DRAFT REGULATIONS 1l1is alternative would enllance the protection of park resources in accordance with the NPS Organic Act and its amendments and protect \\-ilderness values as mandated by the Wilderness Act. Conserving the marine ecosystem of Glacier Bay in an unimpaired state would protect an ecological model against which marine related activities in other areas may be measured. Glacier Bay and Outer Waters: Alternative Five would prohibit all commercial fishing activities in Glacier Bay National Park. The NPS would offer a 7-year exemption to the systemwide prohibition on commercial fishing, allowing continued commercial fishing in nonwilderness waters by traditional methods Authorized commercial fisheries would include trolling for salmon; purse seining for salmon (Excursion Inlet only); longlining for halibut; and pot or ring net fishing for Dungeness, Tanner and king crab. All other fisheries would be prohibited. During the 7-year period, the NPS would continue and initiate studies and research regarding fisheries in Glacier Bay National Park and the relationship of those fisheries to marine and terrestrial ecosystems preserved in the park, the scientific values of ecosystems and resources preserved in the park, including visitor enjoyment. A Hoonal1 Tlingit cultural fishery would not be initiated in this alternative. AFFECTED ENVIRONMENT Glacier Bay proper opens to the north off Icy Strait and branches for more that 60 miles through increasingly deforested mountains to terminate in bare rock and glacial ice. Glacier Bay proper, t11e heart of the present park, was Iudden under a vast ice sheet as recently as 200 years ago. A century ago the American naturalist and writer John Muir found the glaciers had receded more than 30 miles and began documenting one of the most rapid glacial retreats ever recorded. Tlingit oral history and subsequent investigation have established that the Bay had previously been ice-free and home to numerous Tlingit people who had inlmbited it between periodic glacial advances for thousands of years. The successional processes offer unparalleled opportunity for scientific study, a fact recognized in Glacier Bay's establishment as a national monument in 1925. The national park and preserve, expanded to its current boundaries in 1980, encompasses an extensive and diverse north Pacific coastal biome. The sheltered waters of Glacier Bay ebb and flow with the region's huge tides, while ocean waves pound the beaches of the wild and remote gulf coast. Between the Bay and the coast, the lofty, snow-clad peaks of the Fairweather Range spawn the park's largest glaciers. The mountains Umt surround Ute Bay descend into newly deglaciated foothills and outwash plains, rapidly turning green as the ice age retreats. A mature spruce and hemlock forest blankets the shorelines and creeps up Ute slopes of the lower Bay. New islands emerge from the waters as the weight ofthe glaciers lifts from Ute eart11' s mantle, and beaches continue to rise and expand. Marine waters make up nearly one-fifth of the park; and with no point of parkland more tl~an 30 miles from the coast, the terrestrial and marine environments are closely intertwined. The combination of large seasonal runoff and tidal turbulence generates an upwelling of nutrient- rich waters, fonning the basis for a productivity that resonates through the entire ecosystem. Stimulated by long hours of sunlight, phenomenal phytoplankton blooms nurture krill and other invertebrates. These food sources are exploited by a variety of animal life, both terrestrial and aquatic, and account for much of the biodiversity in tlte park. More than 200 species of fish swim in park waters, including all five species of Pacific salmon; Dungeness, king and Tanner crab; as well as clams, scallops and shrimp. Intertidal communities include barnacles, mussels, seastars, urchins, sea cucumbers, sea anemones and a variety of crabs, worms, snails, chi tons and seaweeds. The intertidal zone is a significant feeding and refuge area for commercially 5 valuable marine species and an important nursery area for others. Many fishes are associated with subtidal benthic communities; and several sustain important fisheries such as Pacific halibut, rockfish, lingcod, Pacific cod, sablefish and pollock. Small schooling fishes in tlte pelagic zone include capelin, sandlance, herring, juvenile walleye pollock, juvenile salmonids and myctophids Oantemfish). The productivity of these waters is funneled up the food chain by these aquatic prey, making Glacier Bay an important foraging ground for marine mammals. Several cetacean and pinniped species feed extensively in the Bay, including the endangered humpback whale and the threatened Steller sea lion. Thousands of lwbor seals breed and nurture their pups on the floating ice in Johns Hopkins Inlet and the reefs of the Beardslee Islands. About 220 bird species or nearly 25% of the total number of species in all of North America have been recorded in the park. The shallow waters and gently sloping beaches of the Beardslee Islands, for instance, are important foraging and breeding areas for shorebirds and waterfowl and a migratory stopover for many species, as well. Many land mantmals and birds use some component of the marine environment, and the ocean tides are ilie pulse of the entire ecosystem. The waters and nearly 1,200 miles of shoreline are also the main avenue for visitors to explore the park and Ute zone where most contact between humans and Ute park's many creatures occurs. Several adjacent communities are integrally linked to the Glacier Bay/Icy Strait area including Gustavus (directly adjacent to the park), Hoonah, Elfin Cove, Pelican and Excursion Inlet Titese communities depend -to varying degrees -on various aspects of Glacier Bay National Park. Individuals in each community derive economic return from the park -either directly as park employees, concession employees, commercial fishers, charter operators or backcountry guides or indirectly through associated employment related to fishing or tourism. More than 336,000 people visited Glacier Bay National Park in 1997, choosing among several methods to explore the park's many attractions. TI1e majority enter Glacier Bay on cruise ships or tour boat excursions. During the visitor use season, all vessels (except commercial fishing vessels) enter the Bay under a permit system, which was initiated in 1983 as part of vessel regulations designed to protect the endangered humpback whale. ENVIRONMENTAL CONSEQUENCES The environmental effects of the proposed action and four alternatives are summarized in Table I. While the summaries display the effects of implementing the statutory prohibition on commercial fishing in wilderness waters, these effects are not the result of the proposed action or alternatives. 6 Table I. Summary of impacts of wilderness water closures and Alternatives 1, 2, 3, 4, and 5 on park resources and commercial fisheries. --------·-·-·- Alternative I Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) ( 1991 Draft Regulations) COMMERCIAL FISHERIES Wilderness Wilderness Wilderness Wilderness Wilderness • All fishers would be displaced from • All fiShers would be displaced from • All fishers would be displaced from • All fishers would be displaced from • All fishers would be displaced from wilderness waters except <7 Dungeness wilderness waters. wilderness waters; except some wilderness waters; except some wilderness waters. crabbers under the S-7 )T. study in the • Harvest of86-130 thousand lbs.I)T. Dungeness crabbers under the 5-7 ;y. Dungeness crabbers under the 5-7 ;y. • Harvest of86-130 thousand lbs./;y. Beardslee Island wilderness, who would Dungeness crab and small but study in Beardslee Island wilderness. study in Beard~lee Island wilderness. Dungeness crab and small but harvest an estimated 86-130 thousand unquantified harvest of King crab, • Harvest of 86-130 thousand lbs./;y. • Harvest of86-130 thousand lbs./;y. unquantified harvest of King crab, lbs/;y. Tanner crab, shrimp, salmon, halibut Dungeness crab and small but Dungeness crab and small but Tanner crab, shrimp, salmon, halibut • Harvest of 86-130 thousand lbs.I)T. and groundfish would cea.~e. unquantified harvest of King crab, unquantified harvest of King crab, Tanner and groundfish would cease. Dungeness crab and small but Tanner crab, shrimp, salmon, halibut crab, shrimp, salmon, halibut and unquantified harvest of King crab, and groundfish would cease. groundfish would cease. Tanner crab, shrimp, salmon, halibut and groundfish would cease Bay Proper-during 15 yr. exemption Bay Proper Bay Proper-during 7 yr. exemption Bay Proper Bay Proper-during 7 yr. exemption • QualifYing tanner crabbers reduced, •14-25 Tanner crabbers, 4 King • 14-25 Tanner crabbers and 8-13 • 14-25 Tanner crabbers, 4 King • 14-25 Tannercrabbers,4 King yet harvest would continue of 166-328 crabbers, and 8-13 Dungeness crabbers Dungeness crabbers would continue to crabbers, and 8-13 Dungeness crabbers crabbers, and 8-13 Dungeness crabbers thousand lbs.I;T. would be displaced, and harvest would harvest 166-328 thousand lbs./;y. would continue to harvest 166-328 would continue to harvest 166-328 • Up to 4 King crabbers displaced and cease for 166-328 thousand lbs.I)T. Tanner crab and <21-32 thousand thousand lbs.I;T. Tanner crab, 200-2,000 thousand lbs.l;y. Tanner crab, 200- 200-2,000 lbi)T. harvest would cease. Tanner crab, 200-2,000 thousand lbs.I)T. Dungeness crab. lbs.I;T. King crab and 21-32 thousand 2,000 lbs./;y. King crab, and 32-48 -...1 • Up to 4 Dungeness crabbers displaced lbs.I)T., King crab, and 32-48 thousand • Dungeness crabbers would be lbs.I;T. Dungeness crab. thousand lbs.I;T. Dungeness crab. from Bartlett Cove for S-7)T study, and lbs.I)T. Dungeness crab. displaced from Bartlett Cove during 5-• Dungeness crabbers would be displaced • Winter and summer salmon trollers harvest of32-48 thousand lbsi)T. would • All salmon trollers would be 7 ;y. study, and after study harvest from Bartlett Cove during 5-7 yr. study, would continue to harvest small but continue in Bay proper. displaced. Harvest of 8,000 King would continue at 32-48 thousand and after study harvest would continue at unknown number of salmon. • Small number of summer salmon salmon/yr. during winter troll and small, Jbs.f)T. 3 2-48 thousand lbs./;y. • 31-46 halibut vessels would continue trollers displaced and small summer summer har•.'est would cease. • Up to 4 King crabbers would be • Winter and summer salmon trollers to harvest 188-328 thousand lbs./jT. harvest would cease; winter King • 31-46 halibut vessels would be displaced and 200-2,000 lbs.lyr. would continue to harvest small but • >4 groundfish fiShers would be salmon troll and harvest would displaced and harvest of 188-328 harvest would cease. unknown number of salmon. displaced and harvest of2-6 thousand continue. thousand lbs./;y. would cease, quota • Some number of summer salmon • 31-46 halibut vessels would continue to lbs./;y. groundfish would cease. • QualifYing halibut fishers reduced and achieved elsewhere. trollers would be displaced and small, harvest 188-328 thousand lbs.l;y. would achieve quota share harvest in • > 4 groundfish fishers would be summer harvest would cease; winter • >4 groundfish fishers would con.tinue Bay Proper-after 7 yr. exemption lower bay over shorter season; 188-328 displaced and harvest of 2-6 thousand King salmon harvest would continue. fishing and harvest 2-6 thousand lbs./yr. • All Tanner, King, and Dungeness thousand lbs.I}T. harvest would be lbs.lyr. would cease. • 31-46 halibut vessels would be crabbers would be displaced and harvest reduced. displaced and harvest of 188-328 would cease. • 7 4 groundfish fishers displaced and thousand lbs./;y. would cease, quota • All salmon trollers would be displaced harvest of2-6 thousand lbsi)T. would achieved elsewhere. and small but unknown amount of cease. • >4 Groundfisffishers would be winter and summer salmon harvest displaced and harvest of 2-6 thousand would cease. Bay Proper-after 15 yr. exemption lbs.l;y. would cea.~e. • 31-46 halibut vessels would be • All fishers would be displaced. displaced and harvest of would cease, • Harvest would cease for Tanner crab, Bay Proper-after 7 yr. exemption quota achieved elsewhere. Dungeness crab, King salmon and • All Tanner crabbers and Dungeness halibut. crabbers would be displaced and harvest would cease. _ .. Table I. Summary of impacts of wilderness water closures and Alternatives 1, 2, 3, 4, and 5 on park resources and commercial fisheries. Alternative I Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) (1991 Draft Regulations) Outer fVaters -during I 5 yr. Outer Waters Outer Waters Outer Waters Outer Waters -during 7 yr. exemption exemption • Displaced Tanner crabbers ( 18-31) • 16-25 Tanner crabbers and 5 King • 16-25 Tanner crabbers, 5 King • 16-25 Tanner crabbers, 5 King • Displaced Glacier Bay proper fishers King crabbers ( <5) and Dungeness crabbers would continue to harvest crabbers, and 22-61 Dungeness crabbers crabbers, and 22-61 Dungeness crabbers would enter all fisheries and there would crabbers ( 17-52) would enter Icy Strait 148-453 thousand lbs./yr. Tanner crab would continue to harvest 148-453 would continue to harvest 148-453 be a minor increase in the number of fishery outside park and competition in outer waters and up to 12,000 thousand lbs./yr. Tanner crab, I 0 thousand lbs./yr. Tanner crabs, I 0 fishers and amount of take in all would increase. Harvest would cease in thousand lbs./yr. King crab in Icy thousand lbs./yr. King crab, and 222,000 thousand lbs./yr. King crab, and fisheries. outer coast waters for 4-24 thousand Strait outside park. to I. 75 million lbs./yr. Dungeness crab. 222,000-1.75 million lbs./yr. of • 8 shrimp fishers and 9 scallop fishers lbs./yr. Tanner crab, and 102,000-U • 9-39 Dungeness crabbers, 5 shrimp • Up to 6 shrimp fishers and 9 scallop Dungeness crab. would be displaced and harvest of 40 million lbs.i)T. Dungeness crab. fishers, and 9 scallop fishers would be fishers would continue to harvest up to 40 • Up to 5 shrimp fishers would be thousand lbs./yr. shrimp and 3 5 • Up to 5 shrimp and 9 scallop fishers displaced from outer coast and harvest thousand lbs./yr. of shrimp and 35 displaced and harvest of shrimp and <35 thousand lbs./yr. scallop would cease. would be displaced, and harvest of 20 of 102,000-U million lbs.i)T. thousand lbs./yr. scallops. thousand lbs./yr. scallop would cease. thousand lbs./yr. shrimp and 3 5 Dungeness crab, 20 thousand lbs./yr. • 521-714 salmon trollers and 42 • 521-714 salmon trollers and up to 42 Outer Waters -after I 5 yr. exemption thousand lbs.i)T. scallop would cease. shrimp, and 35 thousand lbs.!)T. Excursion Inlets seiners would continue Excursion Inlet seiners would continue • Displaced Glacier Bay proper fishers • 179-277 salmon trollers would be scallop would cease. Some of these to harvest 2.8-7.6 million lbs.I)T. and 684 to harvest 2.8-7.6-U million lbs./yr. would enter all fisheries. displaced and harvest of 573,000-1.5 fishers would enter the Icy Strait thousand lbs./yr. respectively of salmon. and 684 thousand lbs.I)T., respectively • I 5-25 Tanner crabbers, 5 King million lbs.i)T. would cease along outer fishery and competition would • 362-618 halibut vessels would continue of salmon. crabbers, and 22-61 Dungeness crabbers coast increase. to harvest 3-4.1 million lbs./yr. including • 125-273 halibut vessels would would continue to harvest 148-453 • Up to 42 Excursion Inlet seine fishers • Small number of displaced Bay Icy Strait. continue fishing and harvest of3-4.1 thousand lbs./)T. Tanner crab, 12 would be displaced, and harvest of up to proper summer salmon trollers and • Up to 77 groundfish fishers would million lbs./yr. 00 thousand lbs./yr. King crab, and 22,000-684 thousand lbs./yr. would continue in halibut fishers would enter fishery, but continue to harvest 89-339 thousand • Up to 29 groundfish fishers would be I. 7 5 million lbs.i)T. Dungeness crab. state waters outside park. overall number of fishers and harvest lbs.f)T. displaced and harvest of7-119 thousand • 521-714 salmon trollers would • 125-273 halibut vessels would be levels would continue comparable to lbs./yr. along outer coast would cease; continue to take 2.8-7.6 million lbs./yr. displaced, and harvest of I. 7-2.5 million past efforts. displaced fishers would enter Icy Strait • Up to 42 Excursion Inlet seiners lbs./yr. would cease along outer coast. • Up to 42 Excursion Inlet seiners fishery outside park waters and harvest would continue to harvest 684 thousand Number of halibut fishers and harvest would be displaced and harvest of 685 would increase by 8-13 thousand lbs.i)T. lbs.i)T. salmon. would increase in Icy Strait outside thousand lbs.i)T. would cease. • 362-618 halibut vessels would park. • Up to 48 groundfish fishers would be Outer Waters-after 7 yr. exemption continue to harvest 2.9-4.1 million • Up to 29 groundfish fishers would be displaced and harvest of7-119 • 2-3 Tanner crabbers, 5 King crabbers, lbs./yr. displaced and harvest of 7-119 thousand thousand lbs./yr. in park waters would and 8-13 Dungeness crabbers would be • Up to 77 groundfish fishers would lbs./yr. would cease along outer coast. cease. Groundfish harvest in Icy Strait displaced and harvest would cease. continue to harvest 89-339 thousand Number of groundfish fishers and outside park waters would increase 8-Displaced crabbers would enter Icy lbs./yr. harvest in Icy Strait outside park would 13 thousand lbs./yr. due to displaced Srait fishery outside park and increase. fishers entering fishery. competition would increase. • 179-227 salmon trollers and 42 Excursion Inlet seiners would be displaced and harvest of 573,000-2.1 million lbs./yr. salmon would cease. • 125-273 halibut vessels would be displaced and harvest of I. 7-2.5 million lbs./yr. of halibut would cease. Icy Strait harvest of halibut outside park waters would increase 188-328 thousand lbs./yr. FISHERIES REVENUE During the phase-Qui period, the estimated revenue reductions for Alternative I ($.4 M), Alternative 4 ($.1 M) and Alternative 5 ($.43 M) would be extremely small, in comparison to the $3.5 M effect of the no-action alternative. For alternatives estimated to produce only minor reductions in revenues, reductions in and redistributions of income and well-being could be expected. Alternative 3 would reduce revenues by $1.35 M. In the post-transition era, Alternative 4 ($.2 M) would have the least effect on revenues. Alternative I is the second least limiting in terms of revenues and would be projected to reduce fishery revenues annually by $1.8 M. Alternative 3 would reduce fisheries revenues by $2.35 M annually while Alternatives 2 and 5 would reduce annual revenues by $3.5 M and $3.3 M, respectively. \0 Table I. Summary of impacts of wilderness water closures and Alternatives 1, 2, 3, 4, and Son park resources and commercial fisheries. Alternative 1 (Proposed Action) Tanner Crab During 15-year phase-out • Completely protected from commercial harvest in wilderness waters; harvest continues in Bay proper and non-wilderness outer waters. After 15-year phase-out • Completely protected from commercial harvest in Bay proper, harvest continues in non-wilderness outer waters. Kine Crab • Completely protected from commercial harvest in all park waters. Duneeness Crab During 15-year phase-out • Completely protected from commercial harvest in wilderness waters (except for 5-7 year research project in portion of Beardslee Islands); protected during visitor-use season in Bay proper (except year-round in Bartlett Cove for 5-7 yrs.). • After I 5-year phase~ut Completely protected from commercial harvest in Bay proper; harvest continues in non-wilderness outer waters. Shrim111111d Weathervane Scallops • Completely protected from commercial harvest in all Park waters. ., ; ' ; 'li· --·----~- :q;_ .. Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (No Action) (Continued Fishing) (1991 Draft Regulations) COMMERCIALLY HARVESTED MARINE SPECIES • Completely protected from • Completely protected from • Completely protected from commercial During 7-year phase-out commercial harvest in all park waters. commercial harvest immediately in harvest in wilderness waters; present • Completely protected from wilderness waters and after 7 years in harvest continues in all non-wilderness commercial harvest in wilderness Bay proper; present harvest continues waters. waters; present harvest continues in all in non-wilderness outer waters. non-wilderness waters. After 7-year phase-out • Completely protected from commercial harvest in all park waters. • Completely protected from • Completely protected from • Completely protected from commercial Durmg 7-year phase-out commercial harvest in all park waters. commercial harvest in all park waters. harvest in wilderness waters; present • Completely protected from harvest continues in all non-wilderness commercial harvest in wilderness waters. waters; present harvest continues in all non-wilderness waters. After 7-year phase-out • Completely protected from commercial harvest in all park waters. • Completely protected from • Completely protected from • Completely protected from commercial During 7-year phase-out commercial harvest in all park waters. commercial harvest immediately in harvest in wilderness waters (except for 5-• Completely protected from wilderness waters, Bartlett Cove and 7 year research project in portion of commercial harvest in wilderness outer waters, and after S years in Bay Beardslee Islands); present harvest waters. proper. continues in non-wilderness waters (except for 5-7 yr. research project in After 7 -year phase-out Bartlett Cove). • Completely protected from commercial harvest in all park waters. ,. Completely protected from commercialharve~ ~ all Park waters. ,. Completely protected from · ,. Completely protected from commercial ,. Completely protected from commercial harvest in all park waters. harv~st in _Bay proper;-~ harvest . commercial harvest in all park waters. contmues m non-wtl~emess outer waters. Table I. Summary of impacts of wilderness water closures and Alternatives 1, 2, 3, 4, and 5 on park resources and commercial fisheries. Alternative 1 Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) ( 1991 Draft Regulations) Pacific Salmon During 1 5-year phase-out • Completely protected from • Completely protected from • Completely protected from commet"cial During 7-year phase-out • Completely protected from conunet"cial harvest in all Park waters. conunet"cial harvest in wildet"ness harvest in \\ildet"ness waters; present • Completely protected from commet"cial harvest in wildet"ness waters waters and Bay propel' (except wintet' harvest continues in non-wildet"ness commet"cial harvest in wildet"ness and in Bay propel' during visitor-use trolling for kings continues in Bay waters. Walet'S. season; harvest continues outside proper); troll harvest continues in non- visitor-use season and in non-wildet"ness wildet"ness oulet' watet"S; NPS requests After 7-year phase-out outet" waters. ADFG close Excursion Inlet purse • Completely protected from seine fishet"Y. commet"cial harvest in all park watet'S. After 15-year phase-out • Completely protected from cornmet"cial han•est in Bay proper, harvest continues in non-wildet"ness outet' watet'S. Pacific halibut During 1 5-year phase-out • Completely protected from • Completely protected from • Completely protected from commet"cial During 7-year phase-out • Completely protected from commet"cial harvest in all Park waters. commet"cial harvest in wildet"ness harvest in wildet"ness watet"S; present • Completely protected from cornmet"cial harvest in wildet"ness waters waters and Bay proper, present han•est han•est continues in all non-wildet"ness commet"cial harvest in wildet"ness and in Bay propel' during visitor-use continues in non-wildet"ness outet" waters. watet"S; present harvest continues in all -0 season; han·est continues outside visitor waters. non-wildet"ness watet"S. use-season and in non-wildet"ness outet" waters. After 7-year phase-out • Completely protected from After 15-year phase-out commet"cial harvest in all park watet'S. • Completely protected from commet"cial harvest in Bay proper, han•est continues in non-wildet"ness outet' waters. Groundflsh During 1 5-year phase-out • Completely protected from • Completely protected from • Completely protected from commet"cial • Completely protected from directed • Completely protected from directed commet"cial han•est in all Park watet'S. commet"cial harvest in wildet"ness harvest in wildet"ness waters; present commet"cial fishet"Y harvest in all park fisheries in wildet"ness watet'S and Bay watet'S and Bay proper, rockfish and han•est continues in all non-wildet"ness watet'S; incidental catch from halibut proper, incidental catch from halibut lingcod protected from directed watet'S. long-lining continues during 7-year long-lining continues; present harvest fisheries in outet' watet'S, present exemption for that fishet"Y. continues in outet' waters except lingcod pacific cod harvest continues; dinglebar. incidental catch from halibut long- lining continues in outet' watet"S. After 15-year phase-out • Harvest continues in outet' waters except lingcod dinglebar. -WATER QUALITY During 1 5-year phase-out • Effects of commet"cial fishing on park • Most park waters at minimal risk of • Most park watet'S at risk of small, During 7•year phase-out. • Most park waters at risk of small watet' quality would end. small, periodic spills from fishing periodic spills from fishing boats. • Most park watet'S at risk of small, periodic spills from fishing boats. boats. periodic spills from fishing boats. After 15-year phase-out After 7-year phase-out • Glaciet' Bay proper watet'S protected; • All park watet'S protected. outet' waters at continued risk. ------··- Table I. Summary of impacts of wilderness water closures and Alternatives l, 2, 3, 4, and 5 on park resources and commercial fisheries. Alternative 1 Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) ( 1991 Draft Regulations) NON-COMMERCIAL MARINE SPECIES During 15 year phase-out • Effects of commercial fishing on non-• Some direct mortality and sublethal • Direct mortality and sublethal effect During 7-year phase-out • Direct mortality and sublethal effect commercial marine species in park effect from harvest methods, pollution from harvest methods, pollution and • Direct mortality and sublethal effect from harvest methods, pollution and waters would end. !-.'Iarine systems and habitat disturbance would habitat disturbance would continue in from harvest methods, pollution and habitat disturbance would continue in would evolve toward a more natural continue in most park waters. most park waters. habitat disturbance would continue in most park waters. condition. most park waters. After 15-year phase-out After 7-year phase-out • Effects would end in the Bay proper • Effects would end in all park waters. and continue in outer waters. THREATENED AND ENDANGERED SPECIES Humpback Whale During 15-year phase-out • Effects of commercial fishing on • Whales would continue to be at low-• Whales would continue to be at low-During 7-year phase-out • Summer closures would substantially humpback whales in park waters would level risk of short-term behavioral level risk of short-term behavioral • Whales would continue to be at low- reduce risks for humpback whales of end. disturbance, collision with fishing disturbance, collision with fishing vessels, level risk of short-term behavioral short-term behavioral disturbance, vessels, entanglement in or ingestion of entanglement in or ingestion of fishing disturbance, collision with fishing collision with ftshing vessels, fishing gear or debris and exposure to gear or debris, and exposure to marine vessels, entanglement in or ingestion of entanglement in or ingestion of fishing marine pollution in most park waters. pollution in most park waters. fishing gear or debris and exposure to gear or debris and exposure to marine marine pollution in most parl<. waters. pollution in the Bay proper. These risks would remain in outer waters. After 7-year phase-out • Effects would end in all park waters. After 15-year phase-out • Effects would end in the Bay proper and continue in outer waters. SteUer Sea Lion During 15-year .phase-out • Effects of commercial fishing on • Winter King salmon trolling would • Sea lions would be at continued low-During 7-year .phase-out • Sea lions would be at continued low-Steller sea lions in parl<. waters would expose sea lions to low-level risk of level risk of short-term behavioral • Sea lions would be at continued low- level risk of short-term behavioral end. short-term behavioral disturbance, disturbance, vessel collision, level risk of short-tenn behavioral disturbance, ves.~el collision, vessel collision, entanglement in entanglement in or ingestion of fishing disturbance, vessel collision, entanglement in or ingestion of fishing trolling flashers, exposure to marine gear, exposure to marine pollution in entanglement in or ingestion of fishing gear, exposure to marine pollution and pollution, and removal of prey. Other most park waters and may lose gear or exposure to marine pollution in removal of prey in all park waters and continuing fisheries would expose sea availability of important food sources. most park waters and may lose may undergo reduced availability of lions to some low-level risks of the availability of important food sources. important food sources. above. After 7-year phase-out After 15-year phase-out • Effects would end in all park waters. • Effects would end in the Bay proper in 15 years but continue in outer waters . .. •. li t ;: d :I''" <~·: Table I. Summary of impacts of wilderness water closures and Alternatives 1, 2, 3, 4, and 5 on park resources and commercial fisheries. Alternative 1 Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) (1991 Draft Regulations) NON-ENDANGERED MARINE MAMMALS During I 5-year phase-out • Effects of conunercial fishing on • Crab fishing in the Bay proper and • Marine mammals would continue to be During the 7-year phase-out • Marine mammals would be at marine mammals in park waters would salmon trolling, halibut and Pacific at low-level risk of short-term behavioral • Marine mammals would be exposed to continued low-level risk of short-term e-nd cod long-lining and Tanner crab disturbance, collision with conunercial low-level risk of short-term behavioral behavioral disturbance, collision with fishing in outer waters would expose fishing vessels, entanglement in or disturbance, collision with fishing fishing vessels, entanglement in or marine mammals to minimal risk of ingestion of fishing gear and marine vessels, entanglement in or ingestion of ingestion of fishing-gear or debris, short-term behavioral disturbance, debris, exposure to marine pollution and fishing-gear and debris, exposure to exposure to marine pollution and collision with fishing vessels, removal of prey by conunercial fishing marine pollution and removal of prey by removal of prey by commercial fishing entanglement in or ingestion of fishing-activities in most park waters. commercial fishing activities in most activities in all park waters. Risks gear and debris, exposure to marine park waters. would be much reduced in Glacier Bay pollution and removal of prey. proper in the sununer months. After 7-year phase-out • Effects would end in all park waters. After 15-year phase-out • Effects would end in Glacier Bay proper and continue in outer waters. TERRESTRIAL MAMMALS During I 5-year phase-out • Effects of commercial fishing on • Terrestrial mammals would be at • Terrestrial mammals would be at During 7-year phase-out • Terrestrial mammals would be at terrestrial mammals in the park would minimal risk of behavioral minimal risk of behavioral disturbance, • Terrestrial mammals would be at minimal risk of behavioral disturbance, end Terrestrial systems in Glacier Bay disturbance, entanglement in and entanglement in and ingestion of minimal risk of behavioral disturbance, -entanglement in and ingestion of proper would evolve toward a more ingestion of conunercial fishing gear or conunercial fishing gear or debris and entanglement in and ingestion of N commercial fishing gear or debris and natural condition. debris and contact with pollutants. contact with pollutants. conunercial fishing gear or debris and contact with pollutants. Effects would be localized contact with pollutants. After 1 5-year phase-out After 7-year phase-out • Effects would end in Glacier Bay • Effects would end and all terrestrial proper and continue in outer waters. systems would evolve toward a more • T errestria! systems in Glacier Bay natural condition. proper would evolve toward a more natural condition. MARINE BIRDS During I 5-year phase-out • Effects of conunercial fishing on • Conunercial fishing would expose • Conunercial fishing would expose During 7-year phase-out • Commercial fishing would expose marine birds in the park would end. marine birds to minimal risk of marine birds to low-level risk of • Commercial fishing would expose marine birds to low-level risk of behavioral disturbance, entanglement behavioral disturbance, entanglement in marine birds to low-level risk of l behavioral disturbance, entanglement in in or ingestion of fishing gear or or ingestion of fishing gear or debris, and behavioral disturbance, entanglement in ! or ingestion of fishing gear or debris, debris, and contact with pollutants. contact with pollutants. Effects would be or ingestion of fishing gear or debris, I and contact wit.., pollutants. Effects Effects would be on individuals and on individuals and would not affect and contact with pollutants. Effects would be Oil individuals and would not would not affect marine bird marine bird populations. would be on individuals and would not affect marine bird populations. populations. affect marine bird populations. After I 5-year phase-out After 7-year phase-out • Effects would end in Glacier Bay • Effects would end in all park waters. proper, but continue in outer waters. Table I. Summary of impacts of \\ilderness water closures and Alternatives 1, 2, 3, 4, and 5 on park resources and commercial fisheries. Alternative 1 Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) ( 1991 Draft Regulations) I WILDERNESS During 15-year phase-out I • Effects of conunercial fishing on • Wilderness values would be • The wilderness character of both marine During 7-year phase-out I • Wilderness values would be enhanced marine and terrestrial wilderness in the enhanced by closure of many fisheries. and terrestrial wilderness areas would • Wilderness values would be enhanced by the seasonal closure of the Bay plllk would end. continue to be impacted by corrunercial by the seasonal closure in the Bay proper. Some off-season wilderness fishing in adjacent non-wilderness waters. proper. Some off-season wilderness visitors would experience impacts visitors would experience impacts during fall-spring fisheries. Impacts to during fall-spring fisheries. Impacts to terrestrial wilderness would continue in terrestrial wilderness would continue in outer waters and outside of the visitor outer waters and outside of the visitor use season. use season. After 15-year phase-out After 7-;rear phase-out • Effects would end in Glacier Bay • Effects would end in all marine and proper but would continue in terrestrial terrestrial \\ildemess. wilderness adjacent to outer waters. VISITOR USE/EXPERIENCE During 1 5-;rear phase-out • Effects of conunercial fishing on • Disturbance of back country users in • Disturbance of back country users in the During 7-year phase-out • Disturbance ofbackcountry users visitor use/experience in the plllk would Bay proper would decrease as fisheries pm would cootinue as would • Disturbance ofbackcountry users would CO!Jtinue as would interactions end. phased out, as would interactions interactions between conunercial fishing would continue in the pm as would between commercial fishing vessels and between commercial fishing vessels vessels and cruise ships, tour boat~. interactions between commercial fishing -'-' cruise ships, tour boats, charter vessels and cruise ships, tour boats, charter charter vessels and private boats. vessels and cruise ships, tour boats, and private vessels. vessels and private boats. Interactions charter vessels and private boats. between vessels and impacts to After 1 5-year phase-out back country users may increase in After 7-year phase-out • Effects would end in Glacier Bay outer waters. • Effects would end in all pm waters. proper but would continue in outer waters. LOCAL COMMUNITIES • Elfin Cove, Gustavus, Juneau, • The communities of Juneau, Sitka, • Elfin Cove, Excursion Inlet, • All ley Strait communities would • Following the 7-year phase-out, this Excursion Inlet, and Sitka would not be Petersburg. Gustavus, and Excursion Gustavus, Juneau, Petersburg and maintain their current structure and alternative would affect communities affected. Inlet would be slightly affected by Sitka would not be affected. character, although some would similarly to Alternative Two. •The community of Hoonah would be commercial fishing closure; the gradually evolve toward tourist-based noticeably affected. character of these cities and towns • Pelican would be substantially economies regardless of commercial •The community of Pelican would be would likely not change. affected if the seafood processing fishing regulations. affected, but community character and • Elfin Cove would be somewhat facility could not sustain operations. social composition would not change. impacted. • Hoonah and Pelican would be • Hoonah would be adversely affected; ,. substantially impacted by the closure of but the traditional character of the all fisheries in park waters. community would be sustained . ,; .. _';, . :' ., -r t tl:. i -•. ~ ''i Table I. Summary of impacts of wilderness water closures and Alternatives I, 2, 3, 4, and 5 on park resources and commercial fisheries. Alternative 1 Alternative. 2 Alternative 3 Alternative 4 Alternative 5 (Proposed Action) (No Action) (Continued Fishing) ( 1991 Draft Regulations) MARITIME TRADITION • The Icy Strait maritime tradition • The ley Strait maritime tradition • This alternative would sustain the • This alternative would sustain the ley • Alternative would affect the Icy Strait would be impacted following the l S-would be substantially diminished by maritime tradition, but in a much Strait maritime culture by pennitting maritime culture similarly to Alternative year phase-out by reducing the number the closure of all commercial fisheries in diminished form. continued commercial fishing throughout Two. of active fishers, eliminating Glacier all pa!X waters. most pa!X waters. Bay as a resource base, reducing fishers' connection to special places within Bay proper waters and by reducing the diversity and economic viability of the commercial fishing lifeway. Because commercial fishing would be allowed to continue in outer waters, the maritime tradition would be sustained. TLINGIT CULTURE • Tlingit culture would be impacted by • This alternative would seriously • This alternative would have mixed • Commercial fishing would remain • Following the 7 -year phase-out, this the eventual exclusion of commercial impact Tiingit culture. Displacement of effects on Tlingit culture as it would economically viable, an important alternative would affect Tiingit culture fishers from Glacier Bay proper. culturally important individuals in the allow some fisheries important to component ofTiingit culture, and Tiingit similarly to Alternative Two. Because commercial fishing would be community, reduced connection to Tlingit culture to continue fishers would maintain significant ties to allowed to continue in outer waters, homeland, lost cultural identity, and (particularly salmon trolling) but their homeland. many Native fishers would remain reduced income would weaken the would close the Excursion Inlet seine economically viable. fabric of Hoonah Tlingit culture. fisherv. -~