NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competencies and with regard for appropriate balance.
This report and the committee were supported by the National Oceanic and Atmospheric Administration. The views expressed herein are those of the authors and do not necessarily reflect the views of the sponsor.
This study was supported by Contract No. 50-DKNA-6-90040, Task No. 7-95103 between the National Academy of Sciences and the National Oceanic and Atmospheric Administration. Any opinions, findings, conclusions, and recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the view of the organizations or agencies that provided support for the project.
Cover: Double hoop halibut spirit mask (approximately 24 inches tall) made of driftwood by Yupik artist Lola Ferguson, Nunivak Island, Alaska. Used with permission of the artist; photo provided by the Department of the Interior, Indian Craft Shop, Washington, D.C.
Library of Congress Catalog Card Number 98-86773
International Standard Book Number 0-309-06082-6
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COMMITTEE TO REVIEW THE COMMUNITY DEVELOPMENT QUOTA PROGRAM
JOHN HOBBIE, Chair,
Marine Biological Laboratory, Woods Hole, Massachusetts
DANIEL BROMLEY,
University of Wisconsin, Madison
PAUL DAYTON,
Scripps Institution of Oceanography, California
DANIEL HUPPERT,
University of Washington
STEPHEN LANGDON,
University of Alaska, Anchorage
SETH MACINKO,
Alaska Department of Fish And Game
MARSHALL SAHLINS,
University of Chicago, Illinois
CRAIG SEVERANCE,
University of Hawaii, Hilo
RONALD TROSPER,
Northern Arizona University
MIRANDA WRIGHT,
Doyon Foundation, Alaska
Staff
CHRIS ELFRING, Study Director (from 1/98)
M. ELIZABETH CLARKE, Study Director (until 12/97)
GLENN MERRILL, Research Associate
JENNIFER WRIGHT, Senior Project Assistant
ANN CARLISLE, Project Assistant
OCEAN STUDIES BOARD
KENNETH BRINK (Chairman),
Woods Hole Oceanographic Institution, Massachusetts
ALICE ALLDREDGE,
University of California, Santa Barbara
DAVID BRADLEY,
Pennsylvania State University, State College
DANIEL BROMLEY,
University of Wisconsin, Madison
OTIS BROWN,
University of Miami, Florida
WILLIAM CURRY,
Woods Hole Oceanographic Institution, Massachusetts
RANA FINE,
University of Miami, Florida
CARL FRIEHE,
University of California, Irvine
ROBERT GAGOSIAN,
Woods Hole Oceanographic Institution, Massachusetts
JOHN HOBBIE,
Marine Biological Laboratory, Woods Hole, Massachusetts
EILEEN HOFMANN,
Old Dominion University, Norfolk, Virginia
EDWARD HOUDE,
University of Maryland, Chesapeake Biological Laboratory, Solomons
JOHN KNAUSS,
University of Rhode Island, Narragansett
ROBERT KNOX,
University of California, San Diego
RAY KRONE,
University of California, Davis
LOUIS LANZEROTTI,
Bell Laboratories, Lucent Technologies, Murray Hill, New Jersey
NANCY MARCUS,
Florida State University, Tallahassee
B. GREGORY MITCHELL,
University of California, San Diego
NEIL OPDYKE,
University of Florida, Gainesville
MICHAEL ORBACH,
Duke University Marine Laboratory, Beaufort, North Carolina
TERRANCE QUINN,
University of Alaska, Juneau
JAMES RAY,
Shell Oil Company, Houston, Texas
GEORGE SOMERO,
Stanford University, Pacific Grove, California
PAUL STOFFA,
University of Texas, Austin
KARL TUREKIAN,
Yale University, Kline Geology Laboratory, New Haven
Staff
MORGAN GOPNIK, Director
EDWARD R. URBAN, JR., Senior Program Officer
DAN WALKER, Senior Program Officer
SUSAN ROBERTS, Program Officer
ROBIN MORRIS, Financial Associate
LORA TAYLOR, Senior Project Assistant
SHARI MAGUIRE, Senior Project Assistant
JENNIFER WRIGHT, Senior Project Assistant
ANN CARLISLE, Project Assistant
COMMISSION ON GEOSCIENCES, ENVIRONMENT, AND RESOURCES
GEORGE M. HORNBERGER (Chair),
University of Virginia, Charlottesville
PATRICK R. ATKINS,
Aluminum Company of America, Pittsburgh, Pennsylvania
THOMAS E. GRAEDEL,
Yale University, New Haven, Connecticut
DEBRA KNOPMAN,
Progressive Policy Institute, Washington, D.C.
KAI N. LEE,
Williams College, Williamstown, Massachusetts
JUDITH E. MCDOWELL,
Woods Hole Oceanographic Institution, Massachusetts
RICHARD A. MESERVE,
Covington & Burling, Washington, D.C.
HUGH C. MORRIS,
Canadian Global Change Program, Delta, British Columbia
RAYMOND A. PRICE,
Queen's University at Kingston, Ontario
H. RONALD PULLIAM,
University of Georgia, Athens
THOMAS C. SCHELLING,
University of Maryland, College Park
VICTORIA J. TSCHINKEL,
Landers and Parsons, Tallahassee, Florida
E-AN ZEN,
University of Maryland, College Park
MARY LOU ZOBACK,
U.S. Geological Survey, Menlo Park, California
Staff
ROBERT M. HAMILTON, Executive Director
GREGORY H. SYMMES, Assistant Executive Director
JEANETTE SPOON, Administrative and Financial Officer
SANDI FITZPATRICK, Administrative Associate
MARQUITA SMITH, Administrative Assistant/Technology Analyst
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Bruce Alberts is president of the National Academy of Sciences.
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The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce M. Alberts and Dr. William A. Wulf are chairman and vice chairman, respectively, of the National Research Council.
Preface
The Community Development Quota (CDQ) program was designed to improve social and economic conditions in rural western Alaska by helping communities build their capacity to engage in commercial fishing. Like all new efforts, the program has had some start-up difficulties. But as indicated in this review conducted by the Committee to Review the Community Development Quota Program, there has been significant progress and the program offers a great deal of promise for this particular region. Whether a similar program might be effective in other parts of Alaska or in the western Pacific, where there has been interest in the approach, is less clear because of differences in the environments, fishery management strategies, and the nature of the communities.
As chair of this committee, and as a member of the Ocean Studies Board, I would like to thank my fellow committee members for their hard work, patience, and cooperation. They were drawn from diverse fields, yet quickly and efficiently dealt with the complexities of the CDQ program. Moreover, they made a special effort to visit many communities involved with the CDQ program and, as a result, they obtained a variety of perspectives and experiences. The many people who contributed are thanked in Appendix F and the sites visited are listed in Chapter 1. We offer special thanks to the following people for their diligence in providing information for the committee's use: Clarence Pautzke and the rest of the staff at the North Pacific Fishery Management Council in Anchorage, Alaska; Kitty Simonds and the staff at the Western Pacific Fishery Management Council in Honolulu, Hawaii; the many NOAA staff who helped (including William Fox, Amy Gautam, Jay Ginter, Sally Bibb, Sam Pooley, and Ray Clarke); Glenn
Haight, Department of Community and Regional Affairs in Juneau, Alaska; and Julie Anderson, formerly with the Department of Community and Regional Affairs in Juneau, Alaska.
Our sincere appreciation goes to Elizabeth Clarke, who served as the study's director until she returned to her home institution, the University of Miami; and Chris Elfring, Director of the Polar Research Board, who saw the study through to completion. Each provided important leadership. We would also like to thank research associate Glenn Merrill and project assistant Ann Carlisle for their hard work on this project.
This report has been reviewed by individuals chosen for their diverse perspectives and technical expertise, in accordance with procedures approved by the NRC's Report Review Committee. This independent review provided candid and critical comments that assisted the authors and the NRC in making the published report as sound as possible and ensured that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The content of the review comments and draft manuscript remain confidential to protect the integrity of the deliberative process. We wish to thank the following individuals for their participation in the review of this report: Dr. Matt Berman, University of Alaska, Anchorage; Dr. Paul Callaghan, University of Guam, Mangilao; Dr. Nicholas Flanders, Institute of Arctic Studies, Hanover, New Hampshire; Mr. Zeke Grader, Pacific Coast Federation Fishermen's Associations, San Francisco, California; Dr. Patrick V. Kirch, University of California, Berkeley; Dr. Bonnie McCay, Rutgers University, Cook College, New Brunswick, New Jersey; Dr. H. Ronald Pulliam, University of Georgia, Athens; and Dr. Terrance Quinn, University of Alaska, Juneau.
While the individuals listed above provided many constructive comments and suggestions, responsibility for the final content of this report rests solely with the authoring committee and the NRC.
This study was requested by Congress as part of the Magnuson-Stevens Act of 1996. The request had two parts, this effort to review Community Development Quotas and another focused on Individual Fishing Quotas. Both reports are part of the Ocean Studies Board's continued effort to provide advice to Congress and the National Marine Fisheries Service on important fisheries issues.
JOHN E. HOBBIE
CHAIRMAN
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