ALASKA GROUNDFISH FISHERIES

INTRODUCTION

	The North Pacific Ocean (Fig. 1<%8>9<%0>-1) is one of the most
productive oceans, supporting many of the world's largest
populations of groundfish, salmon, crabs, marine mammals, and
seabirds. Large-scale commercial fisheries for groundfish in Alaska
waters were developed and dominated by foreign fleets from the
early 1950's until the Magnuson Fishery Conservation and Management
Act (MFCMA) was passed in 1976. This act produced one of the great
success stories for development of a U.S. groundfish industry. The
Alaska ground-fish fishery is now a major industry with total 1992
groundfish catches generating ex-vessel revenues of $658 million.
Though foreign fisheries dominated through 1983 (and were important
through 1986), joint ventures and, later, domestic fishermen and
processors fully replaced them.
	Alaska's groundfish fisheries are managed by two fishery management
plans: one for the Bering Sea/Aleutian Islands and the other for
the Gulf of Alaska. Thus they are under constant watch by the North
Pacific Fishery Management Council. The Pacific halibut is managed
under treaty between the United States and Canada, and primary
assessment and management recommendations are provided by the
International Pacific Halibut Commission.

SPECIES AND STATUS

Pacific Halibut

	Halibut is found from the Bering Sea to Oregon, though the center
of abundance is in the Gulf of Alaska. The resource is considered
as one large interrelated stock but is regulated by subareas with
catch quotas and time-area closures. The fishery has a long
tradition extending back to the late 1800's. There is an active
recreational fishery as well.
	The total 1991 Pacific halibut catch was 34,381 t, worth $110.5
million dockside. In 1992, 35,700 t of Pacific halibut were landed
commercially (31,100 t in the United States and 4,700 t in Canada)
(Fig. 1<%8>9<%0>-2) worth $71.2 million. Other catches were 4,000
t taken in the recreational fishery, unreported catch of 650 t
taken for personal use,  wasted mortality of 1,450 t due to fishing
by lost gear and discard, and incidental catch mortality of 9,260
t by fishermen targeting other species. About 6,273 U.S. vessels
were licensed for the commercial halibut fishery, as were 435
Canadian vessels. Not all U.S.-licensed vessels fished.
	The exploitable portion of the Pacific halibut stocks apparently
peaked at 200,000 t in 1986-88 (Fig. 1<%8>9<%0>-2). The population
has since declined at about 5%/year. Some decline is still
expected, but halibut numbers are still fairly high by historical
standards. The species is fully utilized (Table 1<%8>9<%0>-1).

Bering Sea-Aleutian Islands Groundfish

	The average Eastern Bering Sea-Aleutian Islands groundfish catch
during 1990-92 was about 1.66 million t (Table 1<%8>9<%0>-2; Fig.
1<%8>9<%0>-3). The total catch in 1992 was 1.76 million t, valued
at $522 million (ex-vessel). The dominant species harvested were
walleye pollock (1.4 million t valued at $355 million); Pacific cod
(164,000 t valued at $82 million), and yellowfin sole (106,000 t
valued at $13.6 million).
	Groundfish populations have been maintained at high levels since
implementation of the MFCMA. Their long-term potential yield (LTPY)
is about 3.00 million t. The current potential yield (CPY) of 2.42
million t for 1992 is slightly below LTPY. This potential, however,
has not been fully utilized because catch quotas cannot exceed the
optimum yield (OY) set by the FMP at 2.0 million t out of
consideration for both socioeconomic and biological factors.
Walleye Pollock:  Pollock produce the largest catch of any single
species inhabiting the U.S. EEZ. The three main stocks, in
decreasing order of abundance, are: Eastern Bering Sea (EBS) stock,
Aleutian Basin (AB) stock, and the Aleutian Islands (AI) stock. The
EBS stock is still moderately high (near the level that produces
LTPY) and is now fully utilized. The AI stock is believed to be in
the same condition as the EBS stock.
	Another large pollock fishery lies outside the U.S. and Russian
EEZ's in the  Donut hole  of the central Bering Sea (Fig. 19-1).
This fishery was dominated by Japan, the former Soviet Union,
Poland, China, and the Republic of Korea. They target the AB
pollock stock during its migration through the donut hole area.
Historical catches from this stock were apparently too high and not
sustainable. The abundance of the AB stock is now extremely low,
and all the fishing nations agreed to cease fishing in the donut
hole area for 1993 and 1994.  The 1992 catch was negligible when
compared to the peak catch of 1.45 million t in 1989.
	Pacific Cod: Pacific cod abundance remained fairly high and stable
throughout the 1980's. However, the stock has been declining since
about 1990. This decline and poor recruitment over the past few
years may be due to changing environmental conditions or ecological
relationships. The cod stock is fully utilized. 
	Flatfishes: Yellowfin sole is the most abundant of the flatfishes.
During the 1950's, yellowfin sole was the major trawling target,
but it now ranks behind both pollock and Pacific cod. Yellowfin
sole is fully utilized. Greenland turbot, the only depressed
flatfish stock, is expected to decline further during the
mid-1990's owing to poor spawning success in the 1980's. It is
fully utilized.
	All other flatfish species are in good-to-excellent condition.
Populations continue to be high and increasing for arrowtooth
flounder and high and stable for rock sole, flathead sole, Alaska
plaice, and other flatfishes. The rock sole is now the second-most
abundant of the flatfishes, increasing substantially from 1980. It
is underutilized, as are most other flatfishes. Their catches have
been restricted to prevent excessive incidental catches of Pacific
halibut and king and Tanner crabs.
	Sablefish: Sablefish or blackcod is a valuable species caught
mostly with longline and pot gear below the depths fished by
trawlers. Sablefish is considered to be a single stock from the
Bering Sea-Aleutian Islands (BSAI) region to the Gulf of Alaska.
The BSAI population declined substantially in 1990, partly due to
migration into the Gulf of Alaska. Current abundance is low to
average, and recruitment has been relatively weak. Sablefish is
fully utilized.
	Rockfishes: Rockfishes are assessed and managed as two major
groups: Pacific ocean perch (POP) and  other rockfish.   POP
abundance dropped sharply owing to intensive foreign fisheries in
the 1960's and remained low into the early 1980's. In recent years,
catch levels have been set well below CPY to help rebuild the
stocks. The POP group is now recovering and is considered fully
utilized. 
	The  other rockfish  group includes two thornyhead species and
about 30 other rockfish species not included in the POP group.
Little is known about them, but they are considered fully utilized.
Atka Mackerel: The Atka mackerel stock occurs mainly in the
Aleutian Islands region.  Previously, CPY for this species had been
set conservatively low because of uncertainty regarding its
abundance. However, trawl surveys conducted by NMFS in 1986 and
1991 have confirmed a higher abundance of the stock than previously
believed, and its CPY for 1992 and 1993 have been raised. The stock
is considered fully utilized.
	Other Species: In recent years,  other species  catches have
represented 1% or less of the total groundfish catch. Sculpins and
skates probably constitute most of this resource, but the abundance
of pelagic squids, smelts, and sharks is largely unknown. The CPY
has been set at the average catch level.

Gulf of Alaska Groundfish

	Groundfish abundance in the Gulf of Alaska has been relatively
stable, rising slowly from 1984. The estimated LTPY for Gulf of
Alaska groundfish is 451,377 t (Table 1<%8>9<%0>-3). The CPY is
735,507 t which reflects higher than normal abundance of the
stocks. The RAY is 225,170 t. The wide disparity between the CPY
and the RAY is because groundfish fishing is restricted by the
NPFMC to reduce incidental catches of Pacific halibut.
	Gulf of Alaska groundfish catches have ranged from a low of 135,400
t in 1978 to a high of 352,800 t in 1984 (Fig. 1<%12>9<%6>-<%0>4),
with pollock dominant, followed by Pacific cod and sablefish. The
1992 groundfish catches of 213,000 t were valued at $136 million
(ex-vessel revenue). Sablefish comprised about 34% ($46.1 million)
of the total Gulf value. Other major revenue-producing species that
year were Pacific cod ($38.3 million), pollock ($26.6 million), and
rockfishes ($12.9 million).
	Pollock and Pacific Cod: Pollock numbers appear to be recovering
after a few years of low abundance. It is fully utilized. Pacific
cod are abundant and fully utilized, but are expected to decline.
Reproduction has not kept pace with natural and fishing losses. 
Flatfish, Sablefish, and Rockfish: Flatfish are in general very
abundant, largely owing to great increases in arrowtooth flounder.
Flatfish are managed as deep-water and shallow-water groups, while
flathead sole and arrowtooth flounder are managed as separate
categories. 
	Sablefish are still fairly abundant, though they are projected to
decline due to low recruitment. They are fully utilized. 
 	Slope  rockfish are at low levels and are fully utilized. They
grow slowly, are long-lived, and have not rebounded from the heavy
foreign fishing in the 1960's. The principal species in this group,
Pacific ocean perch, shortraker rockfish, and rougheye rockfish,
are highly valued. They are in a separate management category.
Thornyhead rockfishes are also believed to be at a low level and
decreasing. The abundance of continental shelf rockfishes (pelagic
and demersal) is unknown and needs further research.

ISSUES

Transboundary Stocks and Jurisdiction

	Large unregulated foreign pollock fisheries in the  Donut hole  of
the Bering Sea (Fig. 1<%8>9<%0>-1) were a major U.S. concern as
they targeted the migrating U.S. (and Russian) stocks outside the
U.S. EEZ. Another concern is the lack of data to determine the
status of the stocks. Several international meetings have been
organized to develop cooperative research and management of the
fishery. The user countries have now begun to cooperate on research
and reached agreement to cease fishing in the donut hole area for
1993 and 1994 due to extreme low abundance of the Aleutian Basin
pollock stock.

Bycatch and Multispecies Interactions

	Marine mammal interactions with fish and fisheries are a growing
concern. Steller sea lions are listed as threatened under the
Endangered Species Act, and groundfish fisheries have been modified
to reduce impact on them. Pollock provide food for sea lions, and
some fisheries have occurred near rookeries; however, there is lack
of data to show a direct cause-and-effect relationship between the
pollock fishery and the decline of the sea lions.
	The incidental catch of Pacific halibut and king and Tanner (snow)
crabs off Alaska now curtails expansion of the groundfish
fisheries. When halibut and crab bycatch limits are reached, the
groundfish fisheries get closed down, usually before harvesting the
entire groundfish quotas. Various incentive programs are being
tested to control bycatches while improving the groundfish harvest.
The latest program is an individual vessel incentive program
whereby bycatch rates are established for the fleet and tracked by
individual vessels. This program is designed to give a vessel more
control over its total fishing time by controlling its own bycatch
rates.
	Bycatches of chinook and  other  (mostly chum) salmon continue to
be a significant problem in the Bering Sea/ Aleutian Islands and
Gulf of Alaska management areas. While no regulations other than
trawl fishing season delays have yet been promulgated to reduce
salmon bycatch, the NPFMC is reviewing potential measures that
could further constrain groundfish trawl fishing in the future.

Progress

	Large unregulated foreign pollock fisheries in the  donut hole  of
the central Bering Sea remain a major concern to the U.S. as these
fisheries are capable of targeting U.S. pollock stocks during their
migration outside the U.S. EEZ. Seven international conferences
have been held through June 1993 to develop an international
agreement for management of the straddling stocks. To date,
agreement has been reached to conduct cooperative research on the
stocks and to cease pollock fishing in the donut hole area for 1993
and 1994. A longer term agreement for management of the fisheries
remains to be concluded.
	As the domestic groundfish fisheries are now fully developed and
rapidly over-capitalized, allocation disputes between user groups
have been exacerbated. These problems include inshore vs. offshore,
fixed gear vs. trawler, and other user conflict issues. The NPFMC
has been addressing the problems as they arise and developing FMP
amendments to mitigate them. Recent FMP amendments have been
i<%-2>mplemented that have made explicit allocations to inshore and
offshore sectors of the industry as well as percentage allocation
of harvest amounts to specific gear types.<%0>
	NMFS has promulgated regulations to implement an Individual Fishing
Quota (IFQ) program for sablefish and Pacific halibut. Under the
IFQ program, vessel owners will be allocated transferrable quota
shares of sablefish and halibut. Fishing under this program is
scheduled to begin early in 1995.
	Bycatch of nontarget species and adverse interactions with marine
mammal populations by the groundfish fisheries are continuing
problems for the NPFMC. These problems have been mitigated via a
combination of regulations that control bycatch limits and
time-area closures, and institute protection of special northern
sea lion rookery areas. The NPFMC is also testing an incentive
program to control bycatch while improving the groundfish harvest.
This is an individual vessel incentive program whereby bycatch
rates are established for the fleet and regulated by individual
vessels. It is designed to give a vessel more control over its own
fishing destiny by holding it directly accountable for its bycatch
rates.