The Community Development Quota Program in Alaska (1999) / Chapter Skim
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4 Evaluation of the Performance of Community Development Quota Program
4 Evaluation of the Performance of Community Development Quota Program
Pages 72-102
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From page 72... ...
Factors such as the effects on the local culture, the ability of the program to contribute to self-determination, and the possibility of the program to enhance indigenous uses of modern technology are difficult to quantitatively evaluate. Chapter 2 has described some of the ways in which development is perceived in western Alaska.
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From page 73... ...
. The State of Alaska and NMFS evaluate the CDQ program by measuring criteria such as: the number of community members to be employed and the nature of the work; the number and percentage of low income people in the communities; the number of communities; the relative benefits for the communities and the plans for developing a selfsustaining fisheries economy; and the success or failure in administration of a previous Community Development Plan.
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From page 74... ...
The following sections provide conclusions and recommendations related to: community development strategies, participation and benefits, governance and decisionmaking, environmental and economic sustainability, development of human resources, and program duration. The North Pacific Fishery Management Council (NPFMC)
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From page 75... ...
NPFMC, the NMFS, and the State of Alaska have determined that all investments made by the CDQ groups must be in "fishery related" activities. This restriction means that although the CDQ program has two objectives community development and fishery development "community development" is defined as "fishery development." The committee finds this strict requirement to be of dubious merit.
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From page 76... ...
In addition, there are many investment needs in these villages that would contribute materially to "community development." Among the alternatives are development of general infrastructure, health clinics, recreation centers, schools, improved roads, water and sewerage systems, and fire protection. Conclusion While the Community Development Plans prepared by each of the CDQ groups are similar in some important respects, the specific elements included vary considerably among groups.
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From page 77... ...
The CDQ program has enhanced the employment of western Alaskans in the commercial fishing industry before the program, employment on factory trawlers and in on-shore processing plants was not generally available to the people of the CDQ villages. The categories in which employment increased are: (a)
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From page 78... ...
It is possible, for instance, that a resident active in both pollock seasons and in other fishing could earn cash income on the order of $14,900. The significance of this income supplement can be judged by comparison to annual cash incomes per household, which averaged $30,180 for all western Alaska native villages in 1990, but ranged from a low of $11,340 in Savoonga to $54,070 in King Salmon in 1990.
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From page 79... ...
79 a' no a' an no o .= · no o ~ ad ~ o ~ .= ·0 o cq ~L, no no ¢ as be no ~ an -~ ~ no ~ ·0 5- ,~ ~ c)
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From page 80... ...
It is possible that those members of the community who have experience with other organizations and corporations, such as Alaska Native Claims Settlement Act (ANCSA) corporations, could be deriving greater benefits from the CDQ program.
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From page 81... ...
At the same time, many of the young people have made productive use of their wages, such as investing in snow machines, all-terrain vehicles, and other equipment needed for subsistence activities for themselves or their families. Moreover, it can be foreseen that the educational and training programs will be at least as beneficial locally as the fisheries employment in ways not necessarily imagined by earlier notions of "community development." To appreciate this difference we need to explore the concept of "community" and its future in western Alaska.
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From page 82... ...
To the local people, the CDQ program benefits bring valued independence and greater self-determination. Conclusion The CDQ program has had important impacts on western Alaska communities.
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From page 83... ...
The ultimate objectives would be to develop both the business acumen and labor productivity of village residents. GOVERNANCE AND DECISIONMAKING The overall structure of the CDQ program established by the North Pacific Fishery Management Council was reaffirmed and codified in federal legislation during the reauthorization of the Magnuson-Stevens Fishery Conservation and Management Act of 1996.
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From page 84... ...
Federal Oversight Federal oversight of the CDQ program involves several elements. The North Pacific Fishery Management Council allocates a portion of each species to the CDQ program as a whole, while the State of Alaska allocates the overall Community Development Quota to the specific CDQ groups representing the eligible communities.
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From page 86... ...
Additional information such as letters of support from the communities, demonstration of management and technical expertise, including the balance sheet and income statement for the past twelve months, should be provided as well.
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From page 87... ...
State Of Alaska Oversight Based upon its evaluation of the Community Development Plans submitted by the six CDQ groups, the State of Alaska allocates a percentage of each species' CDQ to the communities. Evaluation of the Community Development Plans is coordinated by the Department of Community and Regional Affairs, with participation by staff of the Department of Commerce and Economic Development and the Department of Fish and Game in a CDQ evaluation group.
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From page 88... ...
88 THE COMMUNITY DEVELOPMENT QUOTA PROGRAM IN ALASKA sion-making problem. The need for the fair application of a set of criteria to the applications was raised at our hearings and in our site visits.
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From page 89... ...
Or is it to provide a check upon possible mismanagement (e.g., poor investments, misallocation of royalty payments) by the community development management organizations?
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From page 90... ...
On October 31, 1997, the executive director of the Coastal Villages Fishing Cooperative indicated that his board of directors had decided to dissolve the partnership. The Coastal Villages region has since begun proceedings to dissolve the Imarpiqamiut partnership, formed a new organization to oversee the management of the CDQ (the Coastal Villages Region Fund)
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From page 91... ...
If these terms are defined in terms of market-oriented economic evaluation, the State may overlook the contributions to the modern subsistence economy. The first criterion listed in the Community Development Plan application for multispecies allocation was "the applicant's objectives." This criterion, however, is not present in the letter to the North Pacific Fishery Management Council, and it is not present in the federal regulations.
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From page 92... ...
Although the Community Development Plan that is submitted to the State is a public document with the exception of financial data, which is in an appendix
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From page 93... ...
The six CDQ groups are in competitive positions with each other regarding the state's allocation of quota. They are in a cooperative relationship with each other in participation in the North Pacific Fishery Management Council process, which affects the overall quota available and the regulation of fishing effort.
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From page 94... ...
For instance, the committee received testimony relating to these frictions in Nome and Dillingham. Generally, each village has an internal governance structure that affects the opportunities of residents to participate in Community Development Plan discussions and decisions.
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From page 95... ...
, quality of Community Development Plans, and so forth. · One way to improve responsiveness of the CDQ groups' managers to the communities would be to improve communication.
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From page 96... ...
mandate that the Community Development Plans include information describing the "existing fishery related infrastructure and how the Community Development Plan would use or enhance existing harvesting or processing capabilities, support facilities, and human resources" [emphasis added)
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From page 97... ...
Nor does it describe which career paths students are selecting, the number of students who have successfully completed college, the number of students working in their career field, or the number working in the fishing industry. The largest area of fishery sector employment appears to be on the fish processing line on a factory trawler, the so-called "slime line." Generally speaking, the "slime line" involves long hours in the processing facility preparing fish to be run through filleting machines.
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From page 98... ...
The American fishing fleet would never be content to compete with Japanese and Russian fishing vessels off the coast of Oregon or elsewhere; to do so would threaten capital investment in vessels, shore-based and off-shore processing facilities, jobs, and related infrastructure that has blossomed over the past 15-20 years. Clearly the CDQ program is similar to other features of American fisheries policy, including allocations and the EEZ itself, in that they can be modified by Congress or the regional councils.
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From page 99... ...
As noted earlier, this program has been successful in bolstering community development in western Alaska. It has passed a crucial point in its evolution and we should expect the allocation of harvests to the CDQ groups to become a long-standing, if not permanent, feature of the federal fishery management system in the North Pacific.
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From page 100... ...
Conservation of fishery resources depends on actions taken in the North Pacific Fishery Management Council, the National Marine Fisheries Service, the Alaska State Board of Fisheries, and other entities under international treaties. But at the community level, the CDQ groups face two related policy issues: how they will structure their investment policies to deal with ecological uncertainty, and to what extent will they become involved in management to address issues of ecological sustainability?
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From page 101... ...
If this activity is undertaken, possibly by the National Marine Fisheries Service, representative reserves may be established in areas close to communities that might otherwise be open to CDQ fishing. Protection of essential fish habitat is of obvious concern in regions where bottom trawling is utilized.
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From page 102... ...
Because the CDQ program is designed specifically to increase participation in fisheries activities and at the same time improve the long-term economic conditions of the participating communities, special emphasis should be given to environmental stewardship. Recommendations · Overall, concern for the long-term health of the Bering Sea ecosystem needs to feature more prominently in the CDQ program.
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