Local residents argue that a huge — and growing — number of dipnetters from Anchorage and the Matanuska Valley are taking advantage of the fisheries, which Peninsula residents claim was created primarily for them. Others maintain that large amounts of fish are being shipped to friends and family in the Lower 48, when the fisheries were created to support subsistence lifestyles.

According to Ken Tarbox, retired former research project leader to the upper Cook Inlet commercial fisheries division for the Alaska Department of Fish and Game, the problems associated with the fisheries have been present since the beginning.

“You're putting a lot of people near sensitive habitat,” Tarbox said. “There's nothing in place to prevent erosion from happening. We're seeing all-terrain vehicles, too much human traffic, limited facilities, and garbage and waste. When you get a lot of people together in a confined space, there are going to be social conflicts. And of course, as with any fishery, there are enforcement issues.”

Upward of 18,000 permits were issued to Alaska residents this year. The fishery is not open to those from outside Alaska. The Kenai fishery saw the largest state resident participation since it opened in 1996, and July 21 marked the busiest day in the history of the fishery, with parking lots at 100 percent capacity and dipnetters standing shoulder to shoulder along the riverbank.

Kenai parks and recreation director Robert Frates, in a memo addressed to the police department, chief of police and the public works manager, stated “the volume of people participating in the 2007 fishery separated this from previous seasons. It is this elevated participation that resulted in some higher costs, namely for portable bathroom services. The popularity of the fishery also resulted in extra challenges, ranging from parking issues, pedestrian traffic on dunes, litter and other associated issues.”

The Kenai police department handled 153 dipnet fishery-related calls this year, ranging from parking complaints and violations to theft, drunkenness and vandalism. There were 18 vehicles impounded and four arrests made.

Robert Begich, Department of Fish and Game sport fish area management biologist for the Northern Kenai Peninsula, said the fisheries are easy to enforce. He said most violations result from failing to record harvest prior to leaving the fishing site, or failure to mark fish by clipping tails.

“Even on a busy day, it's pretty orderly,” Begich said. “It's an amazingly family-oriented activity.”

But Glenn Godfrey, lieutenant with the Alaska Wildlife Troopers, said that even with additional seasonal enforcement officers this year, enforcing the fisheries is difficult at times.

“(The fisheries) are easy to get to,” Godfrey said. “But with over 18,000 permits issued this year, it takes a lot of time to check everyone.”

Godfrey said the most common violations are fishing during closed periods, people forgetting to log fish and clip their tails, and non-Alaskan residents participating.

“If we had more resources and officers we could do a better job,” Godfrey said. “There are a lot of people, a lot of boats. We do the best we can. The big problem is there simply aren't enough officers to enforce the fisheries.”

This year, the Kenai fishery ran from 6 a.m. on July 10 to midnight on July 31. On July 25, the Alaska Department of Fish and Game gave an emergency order to open the dipnet fishery to 24 hours daily until the closure.

Outsiders dipping

A busy day at the Kenai personal use dipnet fishery. This year, the fishery experienced its busiest season to date. Upward of 18,000 permits were issued to Alaska residents this year. Of the 6,330 dipnetters surveyed in Kenai this year, only 10 percent said they reside on the Peninsula. Photo courtesy of the Alaska Department of Fish and Game

In 1981, the Cook Inlet Personal Use Salmon Dip Net Fishery Management plan was adopted at the Board of Fisheries meeting. The plan provided for a personal use dipnet fishery in the Kenai and Kasilof rivers that targeted sockeye salmon and a personal use gillnet fishery in the marine waters at the mouth of the Kasilof River.

In 1989, the Alaska Supreme Court's McDowell Decision ruled that all Alaska residents are subsistence users. In 1996, an updated Board of Fisheries plan declared the seasonal limit for the Kenai fishery was 25 salmon for head of household and 10 for each additional family member. Annual bag limits for the Kasilof fishery are equal to those of the Kenai fishery. The fisheries are open to Alaska residents only.

Begich was quick to point out that both the Kenai and Kasilof salmon returns are meeting or exceeding escapement goals.

“The fisheries are doing fine, and are stable with regard to the number of people and permits,” he said.

Kenai Mayor Pat Porter emphasized that the fishery gives an economic boost to the community. This year, the Kenai fishery brought in cumulative revenues of $200,343.

“The dipnet fishery is a positive thing for our community,” Porter said. “We've done a really good job putting infrastructure into place. I think the city is beginning to work out the kinks with respect to the influx of people. Each year, it gets better - additional restrooms, additional waste receptacles.”

But not everyone views the fishery as positively. According to Tarbox, the Kenai fishery has to bear the additional burden of boat-based dipnetting, which has had a significant negative impact on the water quality. Tarbox said the use of boats on the Kenai has exceeded the state water quality standards for hydrocarbons: The state standard is 10 parts per billion, and boats from the Kenai fishery can add 10 parts on its own.

“I think it's a multi-agency problem,” Tarbox said. “When you have a problem like this, the city government gets involved, the Alaska Department of Fish and Game gets involved, the Department of Environmental Conservation gets involved. Then you have issues with the wetlands, which no one wants to take responsibility for. I think it's incumbent upon Fish and Game to take responsibility. They created (the fisheries), so they need to take the lead on solving the problems.”

According to the 2007 Dipnet Report, the total cost of administration recommendations is roughly $75,000. The Kenai police department's suggestions for improvements include controlling overflow parking, improving signage, installing orange barrier fencing to help prevent dune destruction and hiring additional public safety officers. The parks and recreation department recommended additional portable restrooms and dumpsters, protecting dunes from pedestrian and vehicle traffic and providing garbage and fish waste stations.

“My feeling is the first line of defense for these habitats is to provide facilities and an opportunity for people to do the right thing,” Tarbox said. “The second line is stronger enforcement. And the third line, obviously, would be to shut the fisheries down. Regulations are only part of the issue. A comprehensive package needs to be put together to find the best solution for each issue.”