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CHANGES UNDER ALASKA'S SABLEFISH IFQ PROGRAM, 1995 TO 1997

This is the final report of the Alaska Department of Fish and Game - Commercial Fisheries Entry Commission pursuant to National Oceanic and Atmospheric Administration Award No. NA87FN0320 covering the sablefish IFQ program from 1995 through 1997. The executive summary is contained in a separate document. The final report for the halibut fishery is contained in a separate document.

This project is partially funded by National Oceanic and Atmospheric Administration (NOAA) Cooperative Agreement Award No. NA87FN0320. The project and budget period for the grant is June 1, 1998 through May 31, 1999. Information about the award can be obtained from: Peter Jones Federal Program Officer, Alaska Region National Marine Fisheries Service P.O. Box 21668 Juneau, AK 99802-1668

List of Preparers:

Elaine Dinneford

Kurt Iverson

Ben Muse

Kurt Schelle

Organization:

Alaska Department of Fish and Game

Commercial Fisheries Entry Commission

This study uses NMFS-RAM administrative data and other ancillary data to analyze the first three years of the sablefish individual fishing quota (IFQ) program in Alaska. The topics covered in the report include basic data on the extent of consolidation of quota share (QS) holdings, the volume of permanent QS transfers; QS prices; the volume of seasonal QS lease transfers, and IFQ lease prices. The report highlights the importance of several special features of the IFQ program and provides an extensive overview of changes in the geographic distribution of QS holdings. The report includes summary data on permanent transfers including the amount of QS transferred as sales, gifts, and trades; the relationships between the transferors and transfer recipients; and the finance methods used in sales transfers. The report investigates changes in the distribution of QS by person-type, changes in the distribution of QS between initial QS recipients and new entrants, and changes in sablefish harvest and delivery patterns. The report also provides information on the consolidation of IFQ permit holders onto single vessel operations and on the underharvest of IFQ during the 1995 to 1997 fishing seasons.

Table of Contents

Chapters in the report are available as PDF files (portable document format). You can read and/or print them using Adobe Acrobat. Click here for information on downloading free Adobe Acrobat reader software.

1 Introduction

(PDF file, 91K)

1.1 The Purpose of This Study

1.2 The Sablefish Fishery

1.3 Background on the Sablefish IFQ Program

2 Overview of This Report

(PDF file, 22K)

2.1 Topics in the Report

2.2 Overview of Chapters 3 through 16

3 Consolidation of QS Holdings

(PDF file, 41K)

3.1 Introduction

3.2 QS Consolidation by Vessel Category

3.3 QS Consolidation by Size of QS Holding

4 QS Transfers and QS Prices

(PDF file, 60K)

4.1 Transfer Rates by Area

4.2 Transfer Rates by Area and Vessel Category

4.3 QS Sales Prices

4.4 Estimated QS Prices

5 Sablefish QS Leases

(PDF file, 80K)

5.1 Sablefish QS and QS Holder Lease Rates by IFQ Area

5.2 Sablefish QS and QS Holder Transfer and Lease Rates by Area and Vessel Category, 1995-1997

5.3 Lessors, Lessees, Leases, and Lease Rates

5.4 QS Lease Prices

6 Types of Transfers, Financing of Transfers, Relationships Between Transferors and Transfer Recipients, and Use of Brokers

(PDF file, 67K)

6.1 Sales, Gifts, Trades, and Other Transfers

6.2 Finance Source on Priced Sales Transfers

6.3 Relationship of Transferors and Transfer Recipients

6.4 Use of Broker Services in Permanent QS Transfers

6.5 Use of Broker Services in Lease Transfers

7 Distribution of QS by Blocking Factor, CDQ Compensation QS, CDQ Compensation QS "Swaps"

(PDF file, 37K)

7.0 Introduction

7.1 QS Blocks, CDQ Compensation QS, and Swappable CDQ Compensation QS

8 "Sweep-ups" of Small QS Blocks

(PDF file, 17K)

8.1 Changes in Sweepable QS Blocks

8.2 Sweep-up Transactions

8.3 Sweepable QS Relative to Total QS

8.4 Summary

9 Changes in QS Holdings by Type of Person(PDF file, 47K)

10 Changes in the Distribution of Sablefish QS by State(PDF file, 14K)

11 Changes by Management Area, Rural-Urban, and Local-Nonlocal

(PDF file, 86K)

11.2 Net Result of QS Transfers, Migrations, and Revocations

11.3 Details of Sablefish QS Transfers: To and From Each Resident Category

11.4 Intra-cohort and Cross-cohort Transfers

12 Changes in the Distribution of Sablefish QS by Census Area(PDF file, 35K)

13 New Entrants in the Fishery(PDF file, 19K)

14 Changes in Harvest and Delivery Patterns(PDF file, 51K)

15 Overharvest and Underharvest of IFQs and TACs

(PDF file, 35K)

15.1 TACs and Harvests: 1991 to 1997

15.2 Total Available IFQs and Actual Harvest by Vessel Category

15.3 Unchanged QS and Unharvested IFQ, 1995 to 1997

16 Consolidation of Permit Holders on Fishing Operations(PDF file, 22K)

Appendix I Local/Nonlocal and Rural/Urban Designations(PDF file, 3K)

Appendix II QS Transfer Application Forms

Appendix III Sablefish "Catcher Vessels Only" File(PDF file, 9K)

List of Tables

1 Introduction

Table 1-1 Quota Share Pools and IFQ TACs by Sablefish Management Area, 1995-1997

3 Consolidation of QS Holdings

Table 3-1a. Initial Issuance and Year-end 1997 QS and QS Holders by Management Area

Table 3-1b. Consolidation of Sablefish QS Holdings From Initial Issuance Through Year-end 1997, by Mangement Area

Table 3-2a. Initial Allocation and Year-end 1997 QS by Management Area and Vessel Category

Table 3-2b. Initial Allocation and Year-end 1997 QS Holders by Management Area and Vessel Category

Table 3-3a. Initial Allocation and Year-end 1997 QS by Management Area and Size of QS Holding

Table 3-3b. Initial Allocation and Year-end 1997 QS Holders by Management Area and Size of QS Holding

4 QS Transfers and QS Prices

Table 4-1. Sablefish QS Transfer Rates by Area and Year

Table 4-2. Sablefish QS Transfer Rates by Area, Vessel Class, and Year

Table 4-3. Annual Prices for Sablefish QS and IFQ Transfers by Area and Year

Table 4-4. Annual Prices for Sablefish QS and IFQ Transfers by Area, Vessel Class, and Year

Table 4-5. Annual Prices for Sablefish QS-Only Transfers by Area and Year

Table 4-6. Annual Prices for Sablefish QS-Only Transfers by Area, Vessel Class, and Year

Table 4-7. Estimated Prices Per Unit of Sablefish QS, Expressed in Dollars Per Pound of IFQ

5 Sablefish QS Leases

Table 5-1. Sablefish QS and QS Holder Lease Rates by Area, 1995-1997

Table 5-2a. Sablefish QS Transfer and Lease Rates, 1995-1997 by Area, Year, and Vessel Category

Table 5-2b. Transfer and Lease Rates of Sablefish QS Holders, 1995-1997 by Area, Year, and Vessel Category

Table 5-3. Leases of QS, by Area and Vessel Category, 1995-1997

Table 5-4. Priced and Unpriced Sablefish QS Leases by Area and Vessel Category, 1995-1997

Table 5-5. Average Prices For Sablefish "Priced" QS Leases by Area and Vessel Category, 1995-1997

Table 5-6. Average Prices For Sablefish QS "Priced" Leases, 1995-1997 by Area and Block Status

6 Types of Transfers, Financing of Transfers, Relationships Between Transferors and Transfer Recipients, and Use of Brokers

Table 6-1a. Sablefish QS Transfer Activity by Area, Year, and Nature of the Transfer

Table 6-1b. Numbers of Sablefish QS Transfers by Area, Year, and Nature of the Transfer

Table 6-2a. Priced QS Sales, by Area, Year and Finance Method, 1995-1997

Table 6-2b. QS Transactions for Priced QS Sales, by Area, Year, and Finance Method, 1995-1997

Table 6-3a. QS Transferred by Area, Year, and Relationship of Transfer Parties, 1995-1997

Table 6-3b. QS Transfer Transactions by Area, Year, Relationship of Transfer Parties, 1995-1997

Table 6-4a. Use of Brokers In Sablefish QS Transfers, by Year

Table 6-4b. Use of Brokers In Sablefish QS Transfers, by Area and Year

Table 6-4c. Use of Brokers In Sablefish QS Transfers, by Vessel Category and Year

Table 6-5a. Use of Brokers in Sablefish QS Leases, by Year

Table 6-5b. Use of Brokers in Sablefish QS Leases, by Area and Year

7 Distribution of QS by Blocking Factor, CDQ Compensation QS, CDQ Compensation "Swaps"

Table 7-1a. Sablefish Initial Allocation and Year-end 1997 QS by Area, Block, and CDQ Status

Table 7-1b. Sablefish QS Holders: Initial Allocation and Year-end 1997 QS Holders by Area, Block, and CDQ Status

Table 7-2. Net Changes in Swappable QS and Number of Persons Holding Swappable QS, From Initial Issuance Through 1997, by Area

Table 7-3. Swappable Sablefish QS: Net Changes From Initial Allocation to Year-end 1997, by Area and Vessel Category

Table 7-4. Swappable Sablefish CDQ QS: Swaps From/To Vessel Categories, by Area

Table 7-5. Initial and Year-end 1997 Sablefish QS: Net QS Changes in Vessel Categories Due to Swaps, Revocations, Appeals, and Other Factors

8 "Sweep-ups" of Small QS Blocks

Table 8-1. Persons Holding Sweepable Sablefish QS Blocks, Number of Sweepable Blocks, and Total Sweepable QS Holdings at Initial Issue and Year-end 1997

Table 8-2. Number of Transferors and Recipients of Sweep-up Transactions, With Mean QS of Sweep-ups, by Area

Table 8-3. 1997 Year-end Total Sablefish QS, Blocked QS, and Sweepable Blocked QS by Area

9 Changes in QS Holdings by Type of Person

Table 9-1. Sablefish QS by Area and Type of Holder

Table 9-2. Sablefish QS Holders by Area and Type of Holder

Table 9-3. Sablefish QS by Type of Holder, Vessel Category, and Area

Table 9-4. Sablefish QS Holders by Type of Holder, Vessel Category, and Area

10 Changes in the Distribution of Sablefish QS by State

Table 10-1. Initial Allocation and Year-end 1997 QS Holdings by Area and State

Table 10-2. Initial Allocation and Year-end 1997 QS Holders by Area and State

11 Changes by Management Area, Rural-Urban, Local-Nonlocal

Table 11-1a. Initial Allocation and Year-end 1997 QS Holdings by Management Area and Resident Type

Table 11-1b. Initial Allocation and Year-end 1997 QS Holders by Area and Resident Type

Table 11-2. Net Result of Sablefish QS Transfers, Migrations, and Revocations From Initial Issuance Through Year-end 1997, by Management Area and Resident Type

Table 11-3a. Sablefish QS Transfers From Initial Issuance Through Year-end 1997: The Number of Transfers and the Amount of QS Transferred To and From Each Resident Type, by Management Area

Table 11-3b. Sablefish QS Transfers From Initial Issuance Through Year-end 1997: The Number of Transferors and Transfer Recipients, by Resident Type and Management Area

Table 11-4a. Intra-cohort and Cross-cohort Transfers of Sablefish QS From Initial Issuance Through Year-end 1997, by Management Area

Table 11-4b. Intra-cohort and Cross-cohort Transfers From Initial Issuance Through Year-end 1997, by Management Area

12 Changes in the Distribution of Sablefish QS by Census Area

Table 12-1a. Initial Allocation and Year-end 1997 QS Holdings by Management Area and Census Area

Table 12-1b. Initial Allocation and Year-end 1997 QS Holders by Management Area and Census Area

13 New Entrants in the Fishery

Table 13-1a. Sablefish QS Holdings for Initial Issuees and New Entrants at Year-end

Table 13-1b. New Entrants to the IFQ Fisheries

Table 13-2. Leases of Sablefish QS to Initial Issuees and New Entrants to the Area

14 Changes in Harvest and Delivery Patterns

Table 14-1. Sablefish Deliveries (Pounds) for Alaska, Catcher/Processors, and Other Places: 1991-1997

Table 14-2. Sablefish Deliveries by Alaska Census Area: 1991-1997

Table 14-3. Sablefish Harvest (pounds) by Area, Year, and Quarter: 1995-1997

Table 14-4. Sablefish Harvest (pounds), by Area, Year, and State of QS Owner: 1995-1997

Table 14-5. Sablefish Harvests by QS Owners and Hired Skippers, 1995-1997

Table 14-6. Sablefish Harvests by QS Owners and Hired Skippers, 1995 to 1997, by Vessel Category

15 Overharvest and Underharvest of IFQs and TACs

Table 15-1. Comparison of Sablefish TACs and Harvest by Management Area, 1991 to 1997

Table 15-2. Available IFQs and IFQs Harvested, by Area and Vessel Category

Table 15-3a. Fished and Unfished QS Owned by Initial Issuees Who Had Not Altered Their QS Holdings by Year-end 1995 to 1997

Table 15-3b. Number of Initial QS Recipients Who Had Not Altered Their QS Holdings by Year-end 1995 to 1997: Persons With and Without Harvests

16 Consolidation of Permit Holders on Fishing Operations

Table 16-1. Summary of 1991-1997 Sablefish Harvest and Participation

Table 16-2. Summary of 1995-1997 Sablefish Harvest and Participation by Vessel Category

List of Figures

Figure 1. Map of Sablefish Management Areas

Figure 2. QS Transfer Application Form - 1995

Figure 3. QS Transfer Application Form - 1996

Figure 4. QS Transfer Application Form - 1997