Cook Inlet Fisherman's Fund v. Alaska Department of Fish & Game, Alaska Board of Fisheries, and Commissioner Doug Vincent-Lang

CourtAlaska Supreme Court
DecidedOctober 29, 2025
DocketS19034
StatusUnpublished

This text of Cook Inlet Fisherman's Fund v. Alaska Department of Fish & Game, Alaska Board of Fisheries, and Commissioner Doug Vincent-Lang (Cook Inlet Fisherman's Fund v. Alaska Department of Fish & Game, Alaska Board of Fisheries, and Commissioner Doug Vincent-Lang) is published on Counsel Stack Legal Research, covering Alaska Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Cook Inlet Fisherman's Fund v. Alaska Department of Fish & Game, Alaska Board of Fisheries, and Commissioner Doug Vincent-Lang, (Ala. 2025).

Opinion

NOTICE Memorandum decisions of this court do not create legal precedent. A party wishing to cite such a decision in a brief or at oral argument should review Alaska Appellate Rule 214(d).

THE SUPREME COURT OF THE STATE OF ALASKA

COOK INLET FISHERMAN’S FUND, ) ) Supreme Court No. S-19034 Appellant, ) ) Superior Court No. 3KN-22-00515 CI v. ) ) MEMORANDUM OPINION ALASKA DEPARTMENT OF FISH & ) AND JUDGMENT* GAME, ALASKA BOARD OF ) FISHERIES, and COMMISSIONER ) No. 2116 – October 29, 2025 DOUG VINCENT-LANG, in an ) official capacity, ) ) Appellees. ) )

Appeal from the Superior Court of the State of Alaska, Third Judicial District, Kenai, Jason M. Gist, Judge.

Appearances: Carl Bauman, Law Offices of Carl Bauman, Soldotna, for Appellant. Aaron C. Peterson, Senior Assistant Attorney General, Anchorage, and Treg Taylor, Attorney General, Juneau, for Appellee.

Before: Carney, Chief Justice, and Borghesan, Henderson, Pate, and Oravec, Justices.

INTRODUCTION In the summer of 2022, the Alaska Department of Fish and Game (ADF&G) closed a portion of the commercial fishery in Cook Inlet in an effort to

* Entered under Alaska Appellate Rule 214. protect the weakening king salmon run, but kept the personal use fishery open. Challengers sued, arguing that this management decision violated the dormant Commerce Clause of the United States Constitution. The superior court granted summary judgment in favor of ADF&G, holding that the management decision did not violate the dormant Commerce Clause. Because the fish harvested in the personal use fishery will never enter a stream of commerce, and because the commercial closures apply equally to residents and non-resident fishing ventures, we hold that ADF&G’s management decision does not impermissibly discriminate against interstate commerce and affirm the decision of the superior court. FACTS AND PROCEEDINGS A. Background Cook Inlet Fisherman’s Fund (CIFF) is a nonprofit corporation that represents commercial fishing interests in Cook Inlet. This is CIFF’s third time before us challenging ADF&G’s fishery management decisions. 1 The Cook Inlet fishery accommodates commercial, sport, personal, and subsistence uses of all five Pacific salmon species — king, coho, sockeye, pink, and chum.2 ADF&G is “charged with the duty to conserve and develop Alaska’s salmon fisheries on the sustained yield principle.”3 The department fulfills this duty by

1 In Cook Inlet Fisherman’s Fund v. State, Dep’t of Fish & Game (CIFF I), 357 P.3d 789 (Alaska 2015), we rejected CIFF’s arguments that ADF&G’s closure of certain portions of the salmon fishery violated the State’s own fishery management plans and the uniform application and sustained yield clauses of the Alaska Constitution. Then in Cook Inlet Fisherman’s Fund v. State, Dep’t of Fish & Game (CIFF II), 514 P.3d 1250 (Alaska 2022), we rejected CIFF’s argument that Alaska’s fishery management was subject to federal standards in 2019 and 2020. 2 CIFF I, 357 P.3d at 792 (“All five Pacific salmon species make their way through Cook Inlet and into its numerous river systems, including the Kasilof and Kenai Rivers.”). 3 5 Alaska Administrative Code (AAC) 39.223(a).

-2- 2116 establishing management plans for fisheries throughout the state. 4 Two of the department’s management plans relating to Cook Inlet are at issue here. The first is the Kenai River Late-Run King Salmon Management Plan.5 That plan provides that “[t]he department shall manage the late-run Kenai River king salmon stocks primarily for sport and guided sport uses.”6 The plan also provides that ADF&G “shall” manage the late-run king salmon fishery to “achieve an optimal escapement goal of 15,000 – 30,000” king salmon of a certain size. 7 If the projected king escapement is less than 15,000 of a certain size, then ADF&G is required to close commercial set netting and heavily restrict commercial drift netting at and around the mouth of the Kenai River.8 The second plan at issue is the Upper Cook Inlet Personal Use Salmon Fishery Management Plan.9 Fishing for personal use is defined as “the taking, fishing for, or possession of finfish . . . by Alaska residents for personal use and not for sale or barter.” 10 In Cook Inlet, the personal use fishery is accessible only to persons with an Alaska resident sport fishing license. 11 The plan allows residents to dipnet for salmon on the Kenai, Kasilof, Beluga, and Susitna Rivers, and on Fish Creek.12 Most kings

4 See, e.g., 5 AAC 21.353-.377 (providing various salmon fishery management plans for regions throughout Alaska, including Cook Inlet). 5 5 AAC 21.359. 6 5 AAC 21.359(a). 7 5 AAC 21.359(b). 8 5 AAC 21.359(d). 9 5 AAC 77.540. 10 AS 16.05.940(27). 11 5 AAC 77.540(a)(1). 12 5 AAC 77.540(c)-(d), (g)-(h).

-3- 2116 may not be retained and any kings caught while fishing for other species (bycatch) must be released.13 B. The 2022 Commercial Closures The king salmon population in the Kenai River has been suffering. 14 In January 2022, ADF&G projected that the late king run in the Kenai would consist of 16,004 fish — only 1,004 fish above the minimum escapement goal. 15 Because of this, the commissioner of ADF&G required sport fishers on the Kenai to use only “one unbaited, single-hook, artificial lure” and prohibited sport fishers from retaining “king salmon of any size while sport fishing through July 31, 2022.” Then in March 2022, the department published an advisory announcement entitled Upper Cook Inlet 2022 Outlook For Commercial Salmon Fishing. The announcement stated that ADF&G’s sockeye escapement forecasts were well above its sustainable escapement goals for that species. And the announcement explained that from July 9 through July 15, portions of the commercial fishery would be closed on the weekends to “facilitate movement of fish into the rivers for the personal use fishery.” However, on June 3, 2022, ADF&G issued an emergency order restricting commercial set gillnet fishing near the mouth of the Kenai to “no more than 24 hours per week” to ensure that the king salmon run achieved its escapement goal of 15,000 – 30,000 kings.16 Then effective July 17, 2022, the commissioner completely closed the

13 See id. 14 See CIFF II, 514 P.3d 1250, 1252-53 (Alaska 2022) (describing 2019 outlook for late king run as “well below average”); see also CIFF I, 357 P.3d 789, 792 (Alaska 2015) (describing 2013 early king run in Kenai River as “possibly the lowest on record” and late run as “the lowest on record”). 15 See 5 AAC 21.359(b) (setting optimal escapement goal for late-run kings in Kenai River at “15,000 – 30,000” fish). 16 See 5 AAC 21.359(e)(3)(C) (providing that “if the use of bait retention of king salmon are prohibited in Kenai River sport fishery,” then commercial set gillnet fishing in Upper Subdistrict shall be open “for no more than 24 hours per week”).

-4- 2116 Kenai River king sport fishery, prohibiting even catch-and-release of the fish, due to projections that the late king run would be far below the optimal escapement goal of 15,000. 17 This action also triggered the closing of “the commercial drift gillnet fishery in the Central District” and the “commercial set gillnet fishery in the Upper Subdistrict and the Central District” 18 near the mouth of the Kenai River pursuant to the Kenai River Late-Run King Salmon Plan. C. The 2022 Complaint In light of these closures, CIFF filed a complaint and a motion for a preliminary injunction in Kenai Superior Court, arguing that ADF&G’s implementation of the Kenai River Late-Run King Salmon Plan violated the dormant Commerce Clause of the Constitution.

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Cook Inlet Fisherman's Fund v. Alaska Department of Fish & Game, Alaska Board of Fisheries, and Commissioner Doug Vincent-Lang, Counsel Stack Legal Research, https://law.counselstack.com/opinion/cook-inlet-fishermans-fund-v-alaska-department-of-fish-game-alaska-alaska-2025.