Rule Proposal:
This rule would prevent the need to make adjustments to daily bag limits and size limits for walleye in the Wisconsin Ceded Territory. Instead, all lakes, rivers, and streams in the Ceded Territory would have a daily bag limit of 3 walleye (walleye, sauger, or hybrids) with varying size limits. The 3-fish daily bag limit and size limits would be applied to specific waters to prevent a total harvest (tribal and non-tribal) of more than 35% of the adult walleye population in those waters, which preserves a sustainable walleye fishery.
Under this rule, a “Ceded Territory walleye management zone” is being created in addition to a 3 fish daily bag limit. Walleye in most waters in the Ceded Territory would have a minimum size limit of 15 inches, except walleye between 20 and 24 inches may not be kept and only 1 walleye larger than 24 inches may be kept. Unless a different regulation was requested by the local fisheries biologist to ensure better management of the walleye population in a specific water, lakes would have size limits based on the following table:
If the current regulation is: → | Then it will become this under the rule: |
15" minimum size, 5 fish daily bag limit (general statewide walleye regulations) | 15" minimum size, 20-24” protected slot, and 1fish may be >24", 3 fish daily bag limit |
No minimum size, 5 fish daily bag limit | No minimum size, but only 1fish may be >14", 3 fish daily bag limit |
No minimum size, but only 1fish may be >14", 3 or 5 fish daily bag limit | No minimum size, but only 1fish may be >14", 3 fish daily bag limit |
No minimum size, 14-18” protected slot, and 1 fish may be >18", 3 or 5 fish daily bag limit | No minimum size, 14-18” protected slot, and 1 fish may be >18", 3 fish daily bag limit |
18" minimum size, 3 fish daily bag limit | 18" minimum size, 3 fish daily bag limit |
28" minimum size, 1 fish daily bag limit | 28" minimum size, 1 fish daily bag limit |
SECTIONS 1 through 6 make the changes noted above in the 30 counties that are completely or partially within the Ceded Territory. SECTION 8 changes the walleye bag limits to 3 fish per day on Wisconsin-Michigan boundary waters. No changes are made to Wisconsin-Minnesota boundary waters. The regulation changes follow the Ceded Territory boundary line, not county boundary lines.
In addition, SECTION 5 creates a catch-and-release only walleye fishery in the Minocqua and Tomahawk chains of lakes in Oneida County. Out of mutual concern for the walleye population in these mixed-fishery chains of Ceded Territory lakes, representatives of the Lac Du Flambeau Chippewa Tribe, the Headwaters Basin Chapter of Walleyes for Tomorrow, the Department, and the Great Lakes Indian Fish and Wildlife Commission have collaboratively developed a plan for a cooperative rehabilitation project. It seeks to restore healthy, self-sustaining walleye populations with a density of at least three adult fish per acre in Minocqua and Kawaguesaga lakes, and to improve the age diversity and abundance of walleye in Tomahawk Lake. All parties mentioned have agreed to not harvest walleye in the Minocqua chain of lakes for a period of five years - until March 2020 - at which point limited harvest would be permitted.
SECTIONS 7 and 9 update the language that specifies how modifications in daily bag limits or size limits may be made in response to Chippewa harvest levels in the Ceded Territory, including Wisconsin-Michigan boundary waters.
6. Summary of, and Comparison with, Existing or Proposed Federal Statutes and Regulations: Authority to promulgate fishing regulations is granted to states. None of the proposed changes violate or conflict with federal regulations.
7. Comparison with Similar Rules in Adjacent States: Fisheries management rules are generally similar in the states surrounding Wisconsin. Each bordering state regulates fishing by the use of seasons, bag limits, and size limits. Specific seasons and bag and size limits may differ for species among the surrounding states, but the general principles are similar. Michigan, Minnesota, Iowa, and Illinois all have statewide seasons and bag and size limits for fish species, along with special or experimental regulations on individual waters.
In Minnesota, several Bands of Lake Superior Chippewa have harvested walleye and northern pike from Mille Lacs since 2000. Annual allowable total catch quotas are calculated for the lake and apportioned between tribal members and anglers. The State of Minnesota adjusts the size of fish allowed for angler harvest annually (a “harvest slot” limit), based on walleye population size and the age composition of that population.
Off-reservation spear harvest also occurs in Michigan, and the state of Michigan and the Great Lakes Indian Fish and Wildlife Commission use the same model for calculating Safe Harvest that is used in Wisconsin. Michigan has no specific response to tribal harvest in the regulations for state anglers but may consider such adjustments in the near future.
8. Summary of Factual Data and Analytical Methodologies Used and How Any Related Findings Support the Regulatory Approach Chosen:
The department currently regulates anglers’ harvest of walleye through a combination of daily bag limits, harvest-length restrictions, and season closures. The current statewide base regulation for walleye management is a 15-inch minimum size restriction in conjunction with a 5-fish daily bag limit, but numerous other regulatory combinations are used to manage angling harvest depending upon lake- or river-specific situations.
In the Ceded Territory, a “sliding bag limit system” - where daily bag limits are adjusted during the fishing season to prevent a total harvest of more than 35% of the adult walleye population - has been used since 1991 and has shown to be effective in managing walleye exploitation among all anglers. However, concerns about the system have been expressed by many anglers and business interests in northern Wisconsin, including the annual uncertainty resulting from sliding bag limits that occur between March and May, and the resulting bag limits of 1 or 2 walleye per day. Comments received by the department state that these regulations discourage anglers from fishing on affected lakes to the economic detriment of associated businesses. Public input from both anglers and business interests suggests that a stable daily bag limit of 3 walleye may be a preferable tool for walleye harvest management, even if it means more restrictive size limits would be needed to achieve the same level of angling harvest reduction.
The department investigated the potential impact of various harvest size restrictions in conjunction with a 3-walleye daily bag limit using creel survey data collected from anglers. Creel survey data allows for determination of the proportion of walleye that would be excluded from harvest if a more restrictive harvest regulation were put in place.
In lakes with a 15-inch minimum harvest size restriction, the addition of a 20-24 inch protected slot limit could potentially more than offset any increased harvest expected from a bag limit increase from 2 to 3 walleye/day. Based on 2013 angling regulations, lakes with 15-inch minimum harvest restrictions account for 71% of all Ceded Territory walleye waters and 46% of mixed fishery waters.
Evaluation of creel survey data illustrates that, on average, changing ‘No minimum size’ regulations to ‘No minimum but only one fish may be greater than 14 inches’ regulations would result in up to a 10.7% reduction in the harvest of adult walleye and up to a 10.8% reduction in the total number of walleye harvested from those waters. These regulations are applied to waters with high walleye recruitment and slow growth due to high population density. The harvest of young and small adult fish is encouraged to ‘thin’ the population, allow for increased growth of remaining fish and increase potential for higher proportions of large fish in the population.
Protected slot regulations can be expected to have a far greater impact in controlling or reducing angler exploitation than ‘1-over’ regulations which allow harvest of one fish larger than a given length in an angler’s daily bag limit. Further, the relative impact of protected slot regulations for fish greater than 20 inches would be limited where harvest of small fish predominates, and greatest where numbers and harvest of large fish is more prevalent.
If angler bag limits are standardized to 3 walleye/day in the Ceded Territory and regulations were modified to add a ‘1 over 14 inch’ component to existing ‘no minimum harvest size’ regulations and a 20 to 24-inch protected slot limit added to existing 15-inch minimum size regulations, the department expects that angler harvest would increase in approximately 33% of Ceded Territory mixed fishery waters, and remain similar or be slightly reduced in approximately 67% of Ceded Territory mixed fishery waters.
Lakes where increased harvest would be expected are those that currently have ‘No minimum size but only one fish >14 inches’ regulation or a ‘14 to 18-inch protected slot limit’ regulation. As previously noted, these regulations are applied to waters with high recruitment and slow walleye growth due to high fish density. The harvest of young fish is encouraged to “thin” the population, allow for increased growth of remaining fish and increase the potential for more large fish in the population. In these cases, some level of additional harvest may improve size structure and quality of the fishery.
The proposed rule is sufficient to control overall angler exploitation of walleye at a sustainable rate that is well within the bounds established by Federal Court rulings, and will not increase angler harvest in the majority of Ceded Territory lakes except as noted above. The rule will potentially allow for development of improved size structure within walleye spawning populations in many fisheries. The rule does not regulate tribal harvest. It is crafted to minimize the risk that total walleye harvest will not exceed 35% of the adult walleye population.
The department ensures the accuracy, integrity, objectivity and consistency of data used in preparing the proposed rule.
9. Analysis and Supporting Documents Used to Determine the Effect on Small Business or in Preparation of an Economic Impact Report: The rule change would impact sport anglers. Changes in angling regulations enacted to accommodate declared, expected, or realized tribal harvest could potentially alleviate or minimize regional social and economic disruption sometimes associated with reductions in walleye bag limits on off-reservation waters within the Ceded Territory. Exact economic impact of the rule is unknown, but more predictable, stable angling regulations may have a positive indirect impact on fishing-related businesses.
10. Effect on Small Business (initial regulatory flexibility analysis): It is not expected that there will be any effect on small business directly related to these rule changes. The rule does not impose any reporting requirements on small businesses nor are any design or operational standards contained in the rule.
11. Agency Contact Person:
Steve Hewett, Fisheries Management Section Chief
Department of Natural Resources
P.O. Box 7921
Madison, WI 53707-7921
Phone: 608-267-7501
Fax: 608-266-2244
12. Place where comments are to be submitted and deadline for submission:
Written comments may be submitted at the public hearings, by regular mail, fax or email to the contact listed above. Written comments may also be submitted to the Department using the Wisconsin Administrative Rules Internet website at http://adminrules.wisconsin.gov. Hearing dates and the comment submission deadline are to be determined. Section 1 NR 20.20 (2) (g) is amended to read:
NR 20.20 (2) ASHLAND (for species or waters not listed, including Lake Superior, see sub. (73))
(g) Walleye, sauger and hybrids | 1. Spider lake, Moquah lake Spider−Moquah chain of lakes | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
| 3. Gordon lake, Lake Galilee, Zielke lake, North Fork Flambeau river and its tributaries upstream to the first dam or lake, Mineral lake, Spillerburg lake | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total but only 1 may be longer than 14” 3 in total | None but only 1 may be longer than 14 |
| 4. All tributaries and connected sloughs to Lake Superior | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total but only 1 may be longer than 20” | 15 but only 1 may be longer than 20 |
| 5. Spillerburg lake | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total | None |
Section 2 NR 20.20 (3) (f) 2. is repealed.
Section 3 NR 20.20 (4) (i), (9) (g), (16) (h), (18) (h) 2., (19) (e), (21) (h), (26) (g), (34) (e), (35) (g), and (37) (i) are amended to read:
NR 20.20 (4) BAYFIELD (for species or waters not listed, including Lake Superior, see sub. (73))
(i) Walleye, sauger and hybrids | 1. Bony lake, Jackson lake, Middle Eau Claire lake, Namekagon lake, Pike Lake chain (includes Buskey Bay lake, Millicent lake, Hart lake, Twin Bear lake, Eagle lake, Flynn lake and McCarry lake combined) | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total but only 1 may be longer than 14” 3 in total | None except the possession of fish from 14 to 18 is prohibited and only 1 fish may be longer than 18 |
| 2. All tributaries to Lake Superior and their connected sloughs | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total but only 1 may be longer than 20” | 15 but only 1 may be longer than 20 |
| 3. Diamond lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total but only 1 may be longer than 28” | 15, except the possession of fish from 20” to 28” is prohibited |
| 4. Lake Owen, Lower Eau Claire lake, Upper Eau Claire lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
NR 20.20 (9) (g) CHIPPEWA (for species or waters not listed see sub. (73))
(g) Walleye, sauger and hybrids | 1. Chippewa river and its impoundments and tributaries upstream to the first dam or lake including Yellow river upstream to the Suetlik dam at Cadott and its tributaries upstream to the first dam or lake, Long lake (T32N R8W) including Herde lake, Dark lake (T32N R8W), Jump river and its tributaries upstream to the first dam or lake | a. Hook and line | First Saturday in May to the first Sunday in March | 5, but only 1 may be longer than 18 inches 3 in total | No minimum length, except the possession of fish from 14” through 18” is prohibited None except the possession of fish from 14 to 18 is prohibited and only 1 fish may be longer than 18 |
| 2. Long lake (T32N R8W) including Herde lake and Dark lake, Sand lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
NR 20.20 (16) (h) DOUGLAS (for species or waters not listed, including Lake Superior, see sub. (73)). Note: Allouez bay, Little Pokegama bay, Kimballs bay and Pokegama bay are considered part of the St. Louis river, a Wisconsin−Minnesota boundary water. See ch. NR 21. The Nemadji river is an inland water that is contiguous with these Wisconsin−Minnesota boundary waters but is regulated under this subsection. (h) Walleye, sauger and hybrids | 1. Nemadji river | a. Hook and line | Saturday 2 weeks prior to the Saturday nearest Memorial day to March 1 | 2 in total | 15 |
| 2. Tributaries to Lake Superior and their connected sloughs upstream to the first dam or lake | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total but only 1 may be longer than 20” | 15, but only 1 may be longer than 20 |
| 3. Beauregard lake, Minong flowage including Cranberry lake and upstream to the confluence of Totagatic river and Bergen creek in Washburn county | a. Hook and line | First Saturday in May to the first Sunday in March | 5 3 in total | None, but only 1 may be longer than 14 |
| 4. Amnicon lake, Lake Nebagamon, Lower Eau Claire lake, Red Lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
NR 20.20 (18) EAU CLAIRE (for species or waters not listed see sub. (73))
(h) Walleye, sauger and hybrids | 2. Chippewa river upstream from Dells Pond dam including sloughs, bayous, flowages and tributaries upstream to the first dam or lake | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total, but only 1 may be longer than 18 inches 3 in total | No minimum length, except the possession of fish from 14” through 18” is prohibited None except the possession of fish from 14 to 18 is prohibited and only 1 fish may be longer than 18 |
NR 20.20 (19) FLORENCE (for species or waters not listed, see sub. (73))
(e) Walleye, sauger and hybrids | 1. Keyes lake, Sea Lion lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
NR 20.20 (21) FOREST (for species or waters not listed, see sub. (73))
(h) Walleye, sauger and hybrids | 1. Crane lake, Franklin lake, Hilbert lake, Jungle lake, Lucerne lake, Metonga lake, and Pickerel lakes lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
| 2. Butternut and Franklin lakes | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total but only 1 may be longer than 18” | None except the possession of fish from 14” through 18” is prohibited |
NR 20.20 (26) IRON (for species or waters not listed, including Lake Superior, see sub. (73))
(g) Walleye, sauger and hybrids | 1. Grand Portage lake, Mercer lake | a. Hook and line | First Saturday in May to the first Sunday in March | 3 in total | 18 |
| 3. Catherine lake, Cedar lake, Echo lake, Gile flowage, Island lake, Little Oxbow lake, Oxbow lake, Pine lake, Randall lake, Sherman lake, Spider lake, North Fork Flambeau river and its tributaries, West Branch Montreal river, Turtle river upstream from Echo lake | a. Hook and line | First Saturday in May to the first Sunday in March | 5 3 in total | None, but only 1 may be longer than 14 |
| 4. Tributaries to Lake Superior and their connected sloughs | a. Hook and line | First Saturday in May to the first Sunday in March | 5 in total | 15, but only 1 fish may be longer than 20 |
| 5. Wilson lake Bear river, Flambeau river upstream of Turtle-Flambeau flowage, Little Turtle river, Manitowish river (including Benson lake, Sturgeon lake, and Vance lake), Trude lake, Turtle-Flambeau flowage | a. Hook and line | First Saturday in May to the first Sunday in March | 5 3 in total | None |
| 6. Sherman lake | a. Hook and line | Continuous | None | None |
NR 20.20 (34) LANGLADE (for species or waters not listed see sub. (73))
