The Federal Fisheries Service, 1871–1940: Its Origins, Organization, and Accomplishments

The U.S. Fish Commission was initiated in 1871 with Spencer Fullerton Baird as the first U.S. Fish Commissioner as an independent entity. In 1903 it became a part of the new U.S. Department of Commerce and Labor and was renamed the Bureau of Fisheries, a name it retained when the Departments of Commerce and Labor were separated in 1912. The Bureau remained in the Commerce Department until 1941 when it was merged with the Biological Survey and placed in the Department of Interior as the U.S. Fish and Wildlife Service. It was a scientific agency with well conceived programs of action, and it provided knowledge, advice, and example to state governments and individuals with fisheries interests and needs. Its efforts were supported by timely international agreements which constituted the precedent for Federal interest in fishery matters. The Fisheries Service earned stature as an advisor through heavy emphasis on basic biological research. The lack of such knowledge was marked and universal in the 1870’s, but toward the end of that decade, strong steps had been taken to address those needs under Baird’s leadership. USFC research activities were conducted cooperatively with other prominent scientists in the United States and abroad. Biological stations were established, and the world’s first and most productive deepsea research vessel, the Albatross, was constructed, and its 40-year career gave a strong stimulus to the science of oceanography. Together, the agency’s scientists and facilities made important additions to the sum of human knowledge, derived principles of conservation which were the vital bases for effective regulatory legislation, conducted extensive fish cultural work, collected and disseminated fisheries statistics, and began important research in methods of fish harvesting, preservation, transportation, and marketing.

Collaborative Pacific Halibut, Hippoglossus stenolepis, Bycatch Control by Canada and the United States

ABSTRACT—Bycatch mortality of Pacific halibut, Hippoglossus stenolepis, in nontarget fisheries is composed primarily of immature fish, and substantial reductions in yield to directed halibut fisheries result from this bycatch. Distant-water bottomtrawl fleets operating off the North American coast, beginning in the mid 1960’s, experienced bycatch mortality of over 12,000 t annually. Substantial progress on reducing this bycatch was not achieved until the of extension fisheries jurisdictions by the United States and Canada in 1977. Bycatch began to increase again during the expansion of domestic catching capacity for groundfish, and by the early 1990’s it had returned to levels seen during the period of foreign fishing. Collaborative action by Canada and the United States through the International Pacific Halibut Commission has resulted in substantial reductions in bycatch mortality in some areas. Methods of control have operated at global, fleet, and individual vessel levels. We evaluate the hierarchy of effectiveness for these control measures and identify regulatory needs for optimum effects. New monitoring technologies offer the promise of more cost-effective approaches to bycatch reduction.

Measuring Fishing Capacity and Utilization with Commonly Available Data: An Application to Alaska Fisheries

Due to a lack of data on vessel costs, earnings, and input use, many of the capacity assessment models developed in the economics literature cannot be applied in U.S. fisheries. This incongruity between available data and model requirements underscores the need for developing applicable methodologies. This paper presents a means of assessing fishing capacity and utilization (for both vessels and fish stocks) with commonly available data, while avoiding some of the shortcomings associated with competing “frontier” approaches (such as data envelopment analys

Humpback and Fin Whaling in the Gulf of Maine from 1800 to 1918

The history of whaling in the Gulf of Maine was reviewed primarily to estimate removals of humpback whales, Megaptera novaeangliae, especially during the 19th century. In the decades from 1800 to 1860, whaling effort consisted of a few localized, small-scale, shore-based enterprises on the coast of Maine and Cape Cod, Mass. Provincetown and Nantucket schooners occasionally conducted short cruises for humpback whales in New England waters. With the development of bomb-lance technology at mid century, the ease of killing humpback whales and fin whales, Balaenoptera physalus, increased. As a result, by the 1870’s there was considerable local interest in hunting rorquals (baleen whales in the family Balaenopteridae, which include the humpback and fin whales) in the Gulf of Maine. A few schooners were specially outfitted to take rorquals in the late 1870’s and 1880’s although their combined annual take was probably no more than a few tens of whales. Also in about 1880, fishing steamers began to be used to hunt whales in the Gulf of Maine. This steamer fishery grew to include about five vessels regularly engaged in whaling by the mid 1880’s but dwindled to only one vessel by the end of the decade. Fin whales constituted at least half of the catch, which exceeded 100 animals in some years. In the late 1880’s and thereafter, few whales were taken by whaling vessels in the Gulf of Maine.

The Ancillary Harvest of Atlantic Menhaden, Brevoortia tyrannus, Roe on the North Carolina Coast

Gravid Atlantic menhaden, Brevoortia tyrannus, are available along the central coast of North Carolina during the fall and are harvested by the purse-seine fleet from the port of Beaufort. Virtually all of the catch, sexually immature fish included, is reduces to fish meal, fish oil, and fish solubles; however, minor quantities of roe from ripening female menhaden are extracted for local consupmtion. Routine and selective port sampling information was used to characterize the seasonal and biostatistical nautre of the roe menhaden catches at Beaufort. Fishermen recognize two size classes of roe Atlantic menhaden: "forerunners," which are usually the smallest and earliest adult menhaden encountered in the Fall Fishery, and "mammy shad," which are the largest menhaden harvested and produce the greatest roe yields. Roe is extracted from femal fish at various points along the reduction process stream and by several techniques. Vessel cremen and factory personnel extract menhaden roe for personal and local consumption. Undetermined quantities of menhaden roe are channeled into local retail seafood markets. Wholesale prices are about $20 per gallon of roe, while retail prices are about $5 per pound. Carteret County, North Carolina, is probably the only area on the U.S. Atlantic and Gulf coasts where menhaden roe is sold in retail seafood markets. The potential of extracting menhaden roe for foreign markets is discussed

Beluga, Delphinapterus leucas, Habitat Associations in Cook Inlet, Alaska

A review of available information describing habitat associations for belugas, Delphinapterus leucas, in Cook Inlet was undertaken to complement population assessment surveys from 1993-2000. Available data for physical, biological, and anthropogenic factors in Cook Inlet are summarized followed by a provisional description of seasonal habitat associations. To summarize habitat preferences, the beluga summer distribution pattern was used to partition Cook Inlet into three regions. In general, belugas congregate in shallow, relatively warm, low-salinity water near major river outflows in upper Cook Inlet during summer (defined as their primary habitat), where prey availability is comparatively high and predator occurrence relatively low. In winter, belugas are seen in the central inlet, but sightings are fewer in number, and whales more dispersed compared to summer. Belugas are associated with a range of ice conditions in winter, from ice-free to 60% ice-covered water. Natural catastrophic events, such as fires, earthquakes, and volcanic eruptions, have had no reported effect on beluga habitat, although such events likely affect water quality and, potentially, prey availability. Similarly, although sewage effluent and discharges from industrial and military activities along Cook Inlet negatively affect water quality, analyses of organochlorines and heavy metal burdens indicate that Cook Inlet belugas are not assimilating contaminant loads greater than any other Alaska beluga stocks. Offshore oil and gas activities and vessel traffic are high in the central inlet compared with other Alaska waters, although belugas in Cook Inlet seem habituated to these anthropogenic factors. Anthropogenic factors that have the highest potential negative impacts on belugas include subsistence hunts (not discussed in this report), noise from transportation and offshore oil and gas extraction (ship transits and aircraft overflights), and water quality degradation (from urban runoff and sewage treatment facilities). Although significant impacts from anthropogenic factors other than hunting are not yet apparent, assessment of potential impacts from human activities, especially those that may effect prey availability, are needed.

Application of Suction-cup-attached VHF Transmitters to the Study of Beluga, Delphinapterus leucas, Surfacing Behavior in Cook Inlet, Alaska

Suction-cup-attached VHF radio transmittes were deployed on belugas, Delphinapterus leucas, in Cook Inlet, Alaska, in 1994 and 1995 to characterize the whales' surfacing behavior. Data from video recordings were also used to characterize behavior of undisturbed whales and whales actively pursued for tagging. Statistics for dive intervals (time between the midpoints of contiguous surfacings) and surfacing intevals (time at the surface per surfacing) were estimated. Operations took place on the tidal delta of the Susitna and Little Susitna Rivers. During the 2-yr study, eight whales were successfully tagged, five tags remained attached for >60 min, and data from these were used in the analyses. Mean dive interval was 24.1 sec (interwhale SD=6.4 sec, n=5). The mean surfacing interval, as determined from the duration of signals received from the radio transmitters, was 1.8 sec (SD=0.3 sec, n=125) for one of the whales. Videotaped behaviors were categorized as "head-lifts" or "slow-rolls." Belugas were more likely to head-lift than to slow-roll during vessel approaches and tagging attempts when compared to undisturbed whales. In undisturbed groups, surfacing intervals determined from video records were significantly different between head-lifting (average = 1.02 sect, SD=0.38 sed, n=28) and slow-rolling whales (average = 2.45 sec, SD=0.37 sec, n=106). Undisturbed juveniles exhibited shorter slow-roll surfacing intervals (average = 2.25 sec, SD=0.32 sec, n=36) than adults (average = 2.55 sec, SD=0.36 sec, n=70). We did not observe strong reactions by the belugas to the suction-cup tags. This tagging method shows promise for obtaining surfacing data for durations of several days.

Reported Trip Costs, Gross Revenues, and Net Returns for U.S. Atlantic Pelagic Longline Vessels

Logbook set and trip summary data (containing catch and cost information, respectively) collected by NOAA’s National Marine Fisheries Service (NMFS) were analyzed for U.S. pelagic longline vessels that participated in Atlantic fisheries in 1996. These data were augmented with vessel information from the U.S. Coast Guard. Mean fish weights and ex-vessel prices from NMFS observers and licensed seafood dealers, respectively, were used to estimate gross revenues. Comparisons revealed that net returns varied substantially by vessel size and fishing behavior (i.e. sets per trip, fishing location, season, and swordfish targeting). While the calculated economic effects of proposed regulations will depend on the descriptive statistic chosen for analysis, which itself depends on the type of analysis being conducted, results show that considering heterogeneity within this fleet can have a significant effect on predicted economic consequences.

The U.S. Fish Commission Steamer Albatross: A History (Papers from a Symposium)

At her launch on 19 October 1882 in Wilmington, Del., the Albatross was the world’s first large deep-sea oceanographic and fisheries research vessel, and she would go on to have a distinguished 40-year career, ranging from the north Atlantic Ocean to the Gulf of Mexico, around Cape Horn in 1887–88, and into the North Pacific. By 1908, Deputy Fish Commissioner Hugh M. Smith reported that “The Albatross has contributed more to the knowledge of marine biology than has any other vessel.” And, of course, her career continued for another 13 years, being decommissioned in late 1921, serving later as a training vessel for nautical cadets, and disappearing from the records in Hamburg, Germany, in late 1928.

Declining Rockfish Lengths in the Monterey Bay, California, Recreational Fishery, 1959–94

California’s Monterey Bay area is an important center of recreational fishing for rockfish of various Sebastes species. The species composition of commercial passenger fishing vessel catches from 1959 to 1994 varied with changes in fishing location and depth. The shift from shallow nearshore locations to deeper offshore locations in the late 1970’s and 1980’s changed the emphasis from the blue rockfish, S. mystinus, of shallow waters to the deeper, commercially fished chilipepper, S. goodei, and bocaccio, S. paucispinis. The mean size of rockfish in the catch increased as the latter species were targeted at greater depths but then declined as stocks of older fish disappeared by the mid 1980’s. During 1960–94 the mean size of all ten leading species in the recreational catch declined. The declines ranged from 1% for canary rockfish, S. pinniger, to 27% for chilipepper. The sizes of the deeper living species declined more than those of shallower species. The low frequency of strong recruitment events and increase in fishing mortality and natural mortality appear to have contributed to the declining mean size. The scarcity of older fish, observed as a drop in mean size to below the size of maturity for 50% of females, leads to concern for future recruitment of the larger species, especially bocaccio, chilipepper, yellowtail rockfish, S. flavidus, and canary rockfish.

Charles Henry Gilbert (1859-1928), Naturalist-in-Charge: the 1906 North Pacific Expedition of the Steamer Albatross

Fishery science pioneers often faced challenges in their field work that are mostly unknown to modern biologists. Some of the travails faced by ichthyologist and, later, fishery biologist Charles Henry Gilbert (1859-1928) during his service as Naturalist-in-Charge of the North Pacific cruise ofthe U.S. Bureau of Fisheries Steamer Albatross in 1906, are described here, as are accomplishments of the cruise. The vessel left San Francisco, Calif., on 3 May 1906, just after the great San Francisco earthquake, for scientific exploration of waters of the Aleutian islands, Bering Sea, Kamchatka, Sakhalin, and Japan, returning to San Francisco in December. Because the expedition occurred just after the war between Japan and Russia of 1904-05 floating derelict mines in Japanese waters were often a menace. Major storms caused havoc in the region, and the captain of the Albatross, Lieutenant Commander LeRoy Mason Garrett (1857-1906), U.S.N., was lost at sea, apparently thrown from the vessel during a sudden storm on the return leg of the cruise. Despite such obstacles, Gilbert and the Albatross successfully completed their assigned chores. They occupied 339 dredging and 48 hydrographic stations, and discovered over 180 new species of fishes and many new species of invertebrates. The expedition's extensive biological collections spawned over 30 descriptive publications, some of which remain today as standards of knowledge.

Florida's Halfbeak, Hemiramphus spp., Bait Fishery

Two species of halfbeaks, ballyhoo, Hemiramphus brasiliensis, and balao, H. balao, form the basis of a relatively small but valuable bait fishery in southeastern Florida. Halfbeak landings increased rapidly in the late 1960's but are now relatively stable (about 450,000 kg or 1 million lb annually), and their ex-vessel price is about $600,000. Fishing methods, which had changed in the late 1960's when landings increased, have changed little since the 1970's. Data from a fishery-dependent survey (1988-91) show that catch rates were highest from October to February, when catches were dominated by large ballyhoo (>200 mm or 8 inches fork length (FL)); rates were lowest from May to September, when catches contained both species in more equal numbers and the size range was greater (about 150-250 mm FL) than it was for winter landings. There was little bycatch, and only flyingfishes (Exocoetidae) and needlefishes (Belonidae) occurred consistently. Comparisons of the 1988-91 data with similar data reported from 1974 indicated that halfbeak populations have remained relatively stable.

Skimmers: Their Development and Use in Coastal Louisiana

The origin, development, and utilization of the skimmer net is reviewed along with other historical shrimp gears used in coastal Louisiana. The skimmer was developed to catch white shrimp, Penaeus setiferus, observed jumping over the cork line (headrope) of trawls being worked in shallow waters. A description of the gear is presented including basic components and various frame designs used by fishermen during its development. The advantages of skimmers over bottom trawls include: multiple use as both trawl and butterfly net (wing net), ease of deployment, increased maneuverability, reduction and greater survivability of bycatch, and ability to cover more area due to increased speed and continuous fishing capability. Disadvantages may include compromising vessel stability when stored upright on the deck, possible damage to water bottoms when improperly rigged, and limitation to a 12-foot (3.6 m) maximum depth due to size restrictions. The growing popularity of the skimmer net is evident by its introduction into North Carolina and inquiries from other southeastern Atlantic and Gulf coast states.

Hawaii's Pelagic Fisheries

Hawaii's diverse pelagic fisheries supply the bulk of the State's total catch. The largest Hawaii fishery is the recently expanded longline fishery, which now lands about 4,400 metric tons (t) of broadbill swordfish, Xiphias gladius; 1,500 t of bigeye tuna, Thunnus obesus, and 3,000 t of other pelagic species annually. The increased catch of these other species has raised concerns regarding the continued availability of yellowfin tuna, T. albacares; blue marlin, Makaira mazara; and mahimahi, Coryphaena hippurus, in the small-vessel troll and handline fisheries which target those species. Analysis of catch per unit effort (CPUE) statistics from Hawaii's fisheries did not provide strong evidence of recent declines in availability related to local fishery expansion. A more influential factor was variation in Pacific-wide CPUE, representing overall population abundance and catchability. Exogenous factors, including Pacific-wide fishing pressure, may overwhelm the influence of local fishing pressure on fish availability.

The Commercial, Subsistence, and Recreational Fisheries of American Samoa

Domestic fisheries in American Samoa landed 587,000 lb of fish and invertebrates in 1991 worth $993,000. Most of the catch (78%) and value (80%) was taken by the shoreline subsistence fishery that occurs on the coral reefs surrounding the islands. Artisanal fisheries for offshore pelagic fishes (primarily skipjack tuna, Katsuwonus pelamis; and yellowfin tuna, Thunnus albacares) and bottomfishes (snappers, emperors, groupers) accounted for 16% and 3%, respectively, of the domestic catch. Recreational tournament catches for pelagic fishes represented the remainder (3%). While sportfishing is becoming increasingly important, other domestic fisheries have declined in recent years. The shoreline subsistence fishery has dropped by about 25% over the past decade owing to socioeconomic factors and possibly overexploitation. Artisanal fisheries have also declined precipitously in recent years owing to hurricane-related damages, attrition of fishermen, and competition with imports. Artisanal fisheries show some potential for growth, but may be constrained by marketing issues, vessel capabilities, and limited stock sizes (for bottomfish) or local availability of high-value (pelagic) fishes. In contrast to the small-scale domestic fisheries, American Samoa is also homeport to a distant-water fleet of large purse seiners and longliners that fish beyond the EEZ and deliver about 160,000-220,000 short tons of tuna per year to local canneries.