OPINION
EASTAUGH, Justice.
I. INTRODUCTION
On February 26, 1993, the Commissioner of the Alaska Department of Fish and Game (Commissioner) issued an "Exploratory Scallop Fishing Permit" (Permit) that allowed Mark Kandianis to dredge for scallops in an area closed to scallop fishing. The Kodiak Seafood Processors Association (KSPA) sought a temporary restraining order to stop the dredging and a declaratory judgment holding that the...
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