Pending the determination of maximum numbers of entry permits under Alaska Stat. § 16.43.240 and before the initial issue of entry permits under Alaska Stat. § 16.43.270, the commission shall designate as distressed fisheries those for which it estimates that the optimum number of entry permits will be less than the highest number of units of gear fished in that fishery during any one of the four years immediately preceding January 1, 1973.