Opinion ID: 1319429
Heading Depth: 2
Heading Rank: 3

Heading: special circumstances points

Text: The regulations adopted by the CFEC provide for an award of up to 10 points based on the applicant's income dependence percentage in the fishery for which application is made. 20 AAC 05.630(b)(1). The points are awarded only for the years 1971 and 1972, presumably because those years accurately reflect an applicant's income dependence on the fishery as of January 1, 1973, the qualification date. However, the regulations also provide for up to 10 points if special circumstances exist such that an applicant's income dependence is not realistically reflected by his income dependence percentage for the years 1971 and 1972.... 20 AAC 05.630(b)(2). Since Jones did not fish in the Southeast in 1971 and 1972, his income dependence percentage for those years was zero. Jones argues that a zero percentage does not reflect his true income dependence on the Southeast purse seine fishery. Therefore, he claims that the special circumstances provision should be applied to his situation. The special circumstances issue was first raised by Jones in his petition for reconsideration. Jones claims that procedural due process requires that the CFEC fully evaluate any new issues raised at the reconsideration stage. We have held that an applicant's interest under the Limited Entry Act is a property interest entitled to due process protection. Estate of Miner v. Commercial Fisheries Entry Comm'n, 635 P.2d 827, 832 (Alaska 1981). However, we agree with the CFEC that an agency may, consonant with due process, impose reasonable limits on its adjudicatory procedure. Whether to consider a new issue raised for the first time in a petition for reconsideration can properly be committed to the agency's discretion. We find no due process violation here. In his petition for reconsideration, Jones alleged: 7.0 That the Commission, in failing to allow applicant to credit points from fishing in other Alaska Districts, and with reference to points which the applicant is entitled to receive for work in the Kodiak purse seine fishery, has unfairly discriminated against the applicant who has established that by reason of financial hardship and other special circumstances the applicant's participation in the Southeast fishery for one or more years was precluded and income dependence in the years 1971 and 1972 are not realistically reflected. In denying Jones' petition, the CFEC explained that: Neither the Act nor the regulations promulgated to implement the Act allow the awarding of points to one fishery for participation in another. In your case, awarding points for the Southeastern Alaska purse seine fishery for participation in the Kodiak purse seine fishery is not possible.... Jones argues that the CFEC's explanation is not responsive to his broad allegation and that the CFEC should have considered all of the evidence of special circumstances. [6] It is understandable that the allegation might have been read narrowly as only asking the CFEC to award points that Jones would have received for participation in other fisheries during 1971 and 1972. In this regard, the CFEC was correct in refusing to award extra points. However, we agree with Jones that the CFEC should have considered the other evidence in the record of special circumstances, i.e. the particular factors that caused Jones not to participate in the Southeast fishery during 1971 and 1972. Jones submitted evidence that he had fished in the Southeast from 1949 to 1970, a total of 22 seasons. Several events, including the destruction of the Lila D and a dispute with the local cannery, allegedly forced him to leave the Southeast to fish elsewhere in 1971 and 1972. Jones, of course, had no way of foreseeing the passage of the Limited Entry Act, and, as the CFEC acknowledges, he probably would have remained in Southeast had he anticipated limited entry. We have stated before that the special circumstances provision is designed to govern all situations not specifically covered by the regulations proper.... State, Commercial Fisheries Entry Commission v. Templeton, 598 P.2d 77, 81 (Alaska 1979). Moreover, the provision must be read consistently with the Limited Entry Act's purpose of avoiding unjust discrimination. AS 16.43.010(a). We think that the CFEC's failure to consider Jones' situation as a whole had the potential to result in unjust discrimination. Accordingly, this case is REMANDED to the superior court with further instructions to remand to the CFEC to consider the evidence set forth above and any other relevant evidence in the record that may constitute special circumstances within the meaning of 20 AAC 05.630(b)(2). If the CFEC concludes that Jones is not entitled to economic dependence points under the special circumstances provision, then it should set forth specifically its basis for so concluding. See Fields v. Kodiak City Council, 628 P.2d 927, 932-34 (Alaska 1981). [7]