Biennial Report to the President of the United States Federal Agency Implementation of Executive Order 12962-Recreational Fisheries Highlights of Accomplishments For Fiscal Years 1996–1997

              Biennial Report
to the President
of the United States
Federal Agency
Implementation of
Executive Order 12962-
Recreational Fisheries
Highlights of Accomplishments For
Fiscal Years 1996–1997
Prepared By National Recreational Fisheries
Coordination Council, Washington, DC
NATIONAL RECREATIONAL FISHERIES COORDINATION COUNCIL
On June 7, 1995, President Clinton signed Executive Order 12962 (Order)–Recreational
Fisheries to improve the quality, function, sustainable productivity, and distribution of U.S.
aquatic resources for increased recreational fishing opportunities nationwide. In addition to
specifying Federal agency duties, the Order established a National Recreational Fisheries
Coordination Council co-chaired by the Secretary of the Interior and the Secretary of
Commerce, set time lines for adoption of a Recreational Fishery Resources Conservation
Plan (Conservation Plan), expanded the role of the Sport Fishing and Boating Partnership
Council, and required the development of a joint policy by the National Marine Fisheries
Service and the U.S. Fish & Wildlife Service for administering the Endangered Species Act
of 1973. The Executive Order also stipulated that a biennial report of accomplishments of the
Conservation Plan be prepared.
In addition to the completion of the Recreational Fishery Resources Conservation
Plan by the National Recreational Fisheries Coordination Council in 1996, each of the
agencies signatory to the plan developed and implemented individual agency plans during
1997. This report highlights some of the accomplishments of the Federal agencies in
implementing both their individual plans and, collectively, the Conservation Plan during fiscal
years 1996 and 1997.
As the representatives designated by the Secretary of Commerce and the Secretary
of the Interior to co-chair the National Recreational Fisheries Coordination Council,
we are pleased to provide this report to the President on the accomplishments of the Federal
agencies towards fulfilling the directive of Executive Order 12962 to conserve, restore, and
enhance aquatic systems and fish populations and to provide for increased recreational
fishing opportunities for all Americans.
John Rogers Rolland A. Schmitten
Deputy Director Director
U.S. Fish & Wildlife Service National Marine Fisheries Service
Executive Summary
Recreational fisheries are an integral
component of our national heritage and
continue to play an important role in the
social, cultural, and economic well-being
of our Nation. We must strengthen our
efforts in order to conserve, restore, and
enhance aquatic systems to provide for
increased recreational fishing opportunities
nationwide.
The key to accomplishing this task is
through strong partnerships among Federal,
State, and Tribal governments, private land
managers, and the recreational fishing
community. This Biennial Report to the
President of the United States, Federal
Agency Implementation of Executive Order
12962—Recreational Fisheries Highlights
of Accomplishments for Fiscal Years
1996–1997—provides a summary of
Federal agency accomplish-ments towards
achieving these goals. It fulfills the
requirements under Section 2(d) of
Executive Order 12962 to prepare a
biennial report of accomplishments of the
Conservation Plan.
The Biennial Report describes the many
diverse contributions the Federal
government makes to recreational fishing.
Some agencies directly support recreational
fishing by providing boat ramps, bank and
shoreline fishing areas, parking, and fish
cleaning stations on their lands. Others help
assure that there are fish to catch by
stocking hatchery fish or by providing
scientific information to determine when
and how many fish anglers can take. Others
focus on reducing the pollution that enters
our nation’s streams, rivers, lakes, and
coasts, keeping them healthy for fish and
for people. Many agencies provide education
opportunities to help people learn how to
fish, to stay in touch with the natural world,
to understand why a clean environment is
important and what they can do to keep it
clean, and to fish and boat safely.
Each of the Federal agencies signatory to
the Conservation Plan and represented on
the National Recreational Fisheries
Coordination Council provided information
and assisted in the preparation of this
Biennial Report. The report also summarizes
the specific accomplishments of USFWS
and NMFS in implementing the Joint
Recreational Fishing/ Endangered Species
Act (ESA) Policy required under Section 4
of the Order.
The following abbreviations are used
throughout this report:
ACE Army Corps of Engineers
BIA Bureau of Indian Affairs
BLM Bureau of Land Management
BOR Bureau of Reclamation
BPA Bonneville Power Administration
DOC Department of Commerce
DOD Department of Defense
ESA Endangered Species Act
FERC Federal Energy Regulatory
Commission
IAFWA International Association of Fish
and Wildlife Agencies
MOU Memorandum of Understanding
NMFS National Marine Fisheries
Service
NOAA National Oceanic and
Atmospheric Administration
NPS National Park Service
NRCS Natural Resources Conservation
Service
NRFCC National Recreational Fisheries
Coordination Council
SWPA Southwest Power Administration
TVA Tennessee Valley Authority
USFS U.S. Forest Service
EPA U.S. Environmental
Protection Agency
USAF U.S. Air Force
USA U.S. Army
USCG U.S. Coast Guard
USDA U.S. Department of Agriculture
USGS U.S. Geological Survey
USFWS U.S. Fish & Wildlife Service
USN U.S. Navy
Success Indicators
Recreational fishing provides significant
social, cultural, and economic benefits to the
American society, and is the second most
popular form of outdoor recreation in the
United States (with swimming being first).
Recreational fishing is enjoyed by people
of all ages and from all walks of life.
Particularly for children, recreational fishing
provides an introduction to the environment
and an opportunity to develop an
appreciation for natural resources.
Recreational fishing also contributes
significantly to the nation’s economy. The
following Success Indicators were derived
from: 1) 1996 National Survey of Fishing,
Hunting, and Wildlife Associated Recreation,
conducted by the USFWS and the Bureau of
the Census; 2) EPA’s National Water Quality
Inventory: 1996 Report to Congress;
3) EPA’s 1996 National Listing of Fish
Consumption Advisories; and 4) NMFS’s
Status of U.S. Living Marine Resources.
n Anglers fished 626 million days in 19961
representing a 23% increase in fishing
activity from the 511 million days fished
in 1991.
n Freshwater fishing totaled 515 million
recreational angler days in 1996.
n Saltwater fishing totaled 103 million
recreational angler days in 1996.
n 17 percent of the U.S. population (aged
16 and older) fished in 1996 representing
a 2 percent decline from the 1991 census.
n 29,935,533 recreational fishing license
holders in 1996 purchased 37,864,650
licenses, tags, permits and stamps, providing
nearly $447 million in revenues to the States.
n In 1996, 64% of the miles of rivers and
streams surveyed, 61% of the acres of
lakes and reservoirs surveyed, and 62% of
the square miles of estuaries surveyed
supported healthy aquatic life.
1
1 The number of recreational angler days differs from
the sum of freshwater and saltwater days because of
survey design.
2
n 15% of the nation’s total lake acres and
5% of the nation’s total river miles are under
fish consumption advisories.
n 100% of the Great Lakes waters and their
connecting waters and a large portion of
the nation’s coastal waters are under fish
consumption advisories.
n The rate of wetland loss has been reduced
by nearly 37% from 458,000 acres per year
during the 1950’s–1970’s to about 290,000
acres per year in the 1980’s.
n There were 56 overutilized, 70 fully-utilized,
31 underutilized, and 44 marine
stocks of unknown utilization in Federal
waters.
n 5,094 facilities were constructed or
maintained to enhance recreational fishing
opportunities.
A Note About
Agency Outputs
Because of the varying missions of Federal
agencies some of the outputs listed in the
Conservation Plan are not applicable to all
agencies. For example, agencies that do not
manage or assist others in managing lands
Specific Agency
Accomplishments
This section provides details of Federal
agencies’ accomplishments for fiscal years
1996 and 1997. All four of the Conservation
Plan’s strategies are addressed below, and
three levels of reporting are available
for each strategy: (1) the measurable
agency outputs described on pages 7-10
and on page 16 of the Conservation
Plan, (2) where appropriate, additional
measurable outputs, and (3) significant
non-measurable accomplishments.
Additional Measurable Outputs are
agency(ies) activities which can be
quantified, yet are not specified in the
Conservation Plan. Significant Non-
Measurable Accomplishments are
agency(ies) activities important to increasing
recreational fishing opportunities yet
cannot be directly quantified. While the
Measurable Agency Outputs are listed in
the Conservation Plan and provided in this
report, only selected material is listed
under Additional Measurable Outputs and
Significant Non-Measurable
Accomplishments.
# of Paid Fishing License Holders
in millions
Ten-Year Trend in Number of Paid Fishing License Holders (in millions)
and waters can not report on acres of flat
water and miles of streams restored, areas
opened to public fishing, or access improved.
Nor would it be applicable for agencies that
do not manage or assist others in managing
fish to report on the number of fishable
populations established.
Agencies that manage Federal lands and
waters, or that assist private landowners
on a volunteer basis, do not necessarily
have data collection systems in place that
mirror the core and supplemental agency
outputs listed in the Conservation Plan.
Consequently, agencies have reported
accomplishments using their own unique
outputs that support the Conservation Plan.
The NRFCC recognizes that a more uniform
reporting of outputs is desirable and is
working toward this goal.
S P O T L I G H T
The NRFCC and its State and private partners
developed the concept of recreational fishery
roundtables ( stakeholder meetings at the State
level) to capture near-term, on-the-ground
opportunities to improve recreational fisheries.
Preliminary roundtables were held successfully in
Arkansas and Maryland. Results were discussed
with the IAFWA and were well-received. The
IAFWA is considering a resolution recommending
that recreational fishery roundtables be held in
other States.
Anglers fished 626 million days in 1996
1988 1989 1990 1991 1992 1993 1994 1995 1996
31
32
30
29
1987
In-depth information for these categories
can be obtained from the individual agencies.
STRATEGY 1
Outputs for Fish and Their Habitats
A. Measurable Agency Outputs
Restored 338,301 acres of surface water
(BLM, USFS, NRCS, EPA, TVA, BIA, USA,
USAF, and USN).
Restored 3,992 miles of stream habitat
(USFWS, BLM, NPS, USFS, ACE, TVA,
BIA, and FERC).
Opened 17,439 acres of flat water for fish
migration (USFS, BLM, and TVA).
Restored 480,364 acres of riparian habitat
(TVA, BLM, NMFS, BIA, USFS, and
NRCS).
Opened 7,798 miles and 3,990,660 acres
for anadromous fish migration (ACE, EPA
and NMFS).
S P O T L I G H T
Recreational fisheries activities within the
USFWS received a boost in 1996 and 1997 by
implementation of the “Fisheries Across
America” program with the National Fish and
Wildlife Foundation. Twenty-one projects totaling
$1,021,365 were completed to protect, conserve,
and restore native fish populations. These
projects provided for the restoration of 4,386
acres of riparian habitat and 66 stream miles.
B. Additional Measurable Agency Outputs
Improved water quality on 3,840,000 acres of
surface water (ACE and NRCS ).
Improved 33,500 acres of surface water and
22,800 miles of streams to meet State water
quality standards (NRCS and ACE).
Restored 962,013 acres of wetland (ACE,
NMFS, NRCS, and USFWS).
Produced and distributed 127 million fish for
restoration or mitigation in FY 1997, and
distributed nearly 56 million rainbow, brown,
cutthroat and lake trout eggs to Federal,
State, and Tribal partners—all directly
benefitting recreational anglers (USFWS
and BPA).
Provided stewardship of fishery resources
on 656 million acres of Federal land (DOD,
USFWS, BLM, USFS, ACE, and NPS).
Provided 464,000 additional acre-feet of
water for fish (BOR).
Secured 24,057 acre-feet of water rights to
protect or restore fisheries (EPA and BLM).
National Resources Inventory (NRCS)
reports soil erosion declined by 1.4 billion
tons between 1982–1997.
In 1996, to determine whether water bodies
fully supported aquatic life, States and
Tribes surveyed: 693,305 miles of rivers and
streams; 16,818,769 acres of lakes (excluding
Great Lakes); 28,829 square miles of
estuarine waters; and, 3, 651 miles of
ocean shoreline (excluding Alaska) (EPA).
C. Significant Non-Measurable
Accomplishments
In fiscal year 1997, the USFWS received
$1.5 million to mount a major initiative to
begin addressing the impacts of whirling
disease. Activities included coordinated
research aimed at developing non-lethal
detection methods to identify parasites in
fish and worm hosts, fish strain susceptibility
studies, studies examining the biological
response of fish to the parasite, and
establishment of a National Partnership
on Management of Wild and Native Cold
Water Fisheries.
Scientists with USGS and universities have
developed a System Integration and
Analysis Model for the Klamath River in
California to evaluate alternative reservoir
release schedules that will assist in
restoration of Pacific salmon populations.
SWPA facilities at Bull Shoals and Norfork
in Arkansas and Tenkiller Ferry in
Oklahoma were modified to aspirate more
atmospheric air during times of generation.
Modifications included the installation of
turbine hub baffles, modification of the
turbine vacuum system and cutting of
additional air openings in the headcovers
of the units. These modifications provided
increased downstream dissolved oxygen
levels at full power output. The maximum
recommended generation rates were larger
and the duration of time the rate limits were
in place was shorter.
S P O T L I G H T
Since 1990, the USFWS, NRCS, BLM, USFS, EPA,
and USGS have worked with private landowners,
ranchers, conservation organizations and State
resource managers to improve native fish
populations in the middle portion of the Blackfoot
River ecosystem in Montana. Currently,
conservation easements provide perpetual
protection on over 40,000 acres of riparian areas,
wetlands, grasslands and timbered areas; use of
Best Management Practices to improve grazing
has reduced physical damage to streams; water
conservation measures have improved stream
flows; over 1,500 acres of wetlands have been
restored; removing barriers to fish migration has
reconnected almost 200 miles of stream; and
screens on irrigation canals have reduced
entrainment of juvenile fish. These cooperative
actions have increased trout populations several-fold
in some river stretches, especially native
cutthroat and bull trout.
3
Denil Fishway, Chickahominy River, VA
Saltwater fishing provided 103 million angler days
in 1996
S P O T L I G H T
In FY 1997, FERC issued 71 licenses for the
operation of non-Federal hydropower projects.
These licenses contain provisions for protecting
and enhancing fisheries habitats and/or providing
recreational fishing opportunities. In 46 of the 71
licenses issued, flows were either restored or
initiated in over 58 miles of bypassed reaches,
(i.e., between the dam and the powerhouse). At 9
of these 46 projects, the mode of operation was
further converted from a peaking mode to provide
a more natural flow to protect aquatic habitats
and resources from flow fluctuations.
BOR has conducted an Anadromous Fish
Screen Program since 1994 in conjunction
with the California Department of Fish and
Game, USFWS, and other CalFed Bay-Delta
program participants in the Central Valley
to protect juvenile anadromous fish from
unscreened or inadequately screened water
diversion points.
The Massachusetts Bay National Estuary
Program, funded by EPA, spearheaded
an interagency effort to restore 12
recreational and commercial shellfish beds
in communities along the Massachusetts
coast. Restoration projects are focused on
identifying pollutant sources, such as storm
water runoff. Approximately 300 acres
of shellfish beds re-opened in the North
River, and 200 acres re-opened in the
Back River watershed.
BOR constructed a temperature-control
device on the water supply intake at Shasta
Dam in California to preserve the cold water
pool on the Sacramento River for the benefit
of downstream cold water fish. This $80
million device will enable endangered winter
run chinook salmon to coexist with full power
production at Shasta Dam.
NPS is leading one of the largest habitat
restoration projects ever attempted. Two
large dams on the Elwha River will be
removed and access for 30 miles of salmon
spawning habitat restored in Olympic
National Park. The final Environmental
Impact Statement for the Elwha River
Ecosystem and Restoration Project was
released in November 1997. The USGS, in
cooperation with the Lower Elwha Klallam
Tribal Council which has treaty fishing
rights, is assisting these efforts by evaluating
the current ecological status and nutrient
dynamics of the Elwha River.
BOR rehabilitated and improved the fish
passage structure at Marble Bluff Dam in
Nevada to provide passage for the
endangered Cui-ui and threatened Lahontan
cutthroat trout.
BIA assisted Tribes in improving 356 acres
of surface water and 30 miles of river and
stream by stopping the illegal dumping of
sewage into surface waters.
S P O T L I G H T
Twelve million dollars of EPA Clean Water Act
State Revolving Funds will be used in conjunction
with $12 million from US Department of Interior to
increase flows in the Truckee River in Nevada by
purchasing water rights from willing sellers. This
is a landmark agreement and a first of its kind use
of clean water loans to purchase water for
instream flows to support aquatic life. The
estimated amount of water to be purchased
through this agreement is 24,000 acre-feet.
Expected benefits include improved fish
spawning conditions, recruitment of riparian
vegetation, reduction in water temperatures,
increases in dissolved oxygen concentrations,
and reductions in non-point source loadings.
Improved habitat for Lahontan cutthroat trout, as
well as other trout species, is expected to
substantially enhance recreational fishing
opportunities in the river.
NPS and USFWS are working with the
State of Arkansas to restore a self-sustaining
population of channel catfish to reaches
of the Buffalo National River. The project
is supported in part by a grant from the
American Sportfishing Association.
EPA and ACE partnered with the National
Fish and Wildlife Foundation, NMFS,
USFWS, and the North Carolina Marine
Fisheries Commission to jointly fund the
removal of the 260-foot long Quaker Neck
Dam on the Neuse River near Goldsboro,
North Carolina. Demolition of the dam will
allow better passage for anadromous species
such as striped bass, American shad, hickory
shad and shortnose sturgeon to a 75-mile
stretch of the Neuse River and 925 miles of
its tributaries. The dam is being voluntarily
removed by Carolina Power & Light.
4
Fighting chair allows for bluewater excitement Stream fishing provides unique challenges
5
BPA implemented a Northern Squawfish
Management Program designed to reduce
predation of salmonids by northern
squawfish and ultimately improve salmonid
survival at mainstem hydro-electric power
generating facilities. Northern squawfish
were removed through a sport reward
fishery, a dam-angling fishery, and site-specific
gill net fisheries. In 1997, anglers
removed 120,000 northern squawfish and
expended 27,000 angler days of fishing effort.
This project also employed a fishing
instructor who conducted 33 public fishing
clinics coordinated through local port
districts and area bait and tackle shops.
TVA enhanced protection of wetlands,
cultural resources, and sensitive natural
resources along more than 25% of 11,000
miles of reservoir shoreline and developed
plans to ensure the proper use and
stewardship of approximately 34,000 acres
of reservoir land.
S P O T L I G H T
The biodiversity and abundance of fish and other
life has steadily increased below all 16 dams in
TVA’s Lake Improvement Plan as a result of the
continuous improvement in dissolved oxygen and
minimum flows. Fish communities are rebounding
and fishing has increased. For example, fishing in
the 12 mile long tailwater below South Holston
Dam has increased from 60,000 hours per year in
1991 to 125,000 hours per year in 1997, and 55
percent of the 1997 fish were wild fish.
BPA managed 49 anadromous and resident
fish production projects in 1997, totaling
$20,114,988 in appropriations. Specific
activities included construction of a
largemouth bass hatchery located on the
Kalispel Indian Reservation, operation and
maintenance of numerous hatcheries,
purchase of fish for Mt. View and Sheep
Creek Reservoirs in Nevada, and design
work for a number of facilities.
S P O T L I G H T
Sixty species/species complexes of interest to
recreational anglers are being restored and/or
conserved through fishery management plans
prepared by Regional Fishery Management
Councils. These plans are approved and
implemented by NMFS, under the authority of
the Magnuson-Stevens Act; and by interstate
marine fisheries commissions, their member
States, NMFS and USFWS under authorities
such as the Atlantic Coastal Fisheries
Cooperative Management Act, and the Atlantic
Striped Bass Conservation Act.
$12,564,051 of NMFS’s base funding was
awarded to States, researchers, interstate
marine fisheries commissions, and industry
to gather biological, statistical, socio-economic,
habitat, hooking mortality,
regulatory, migratory, catch and release,
stocking, and marking information on
recreational species such as bluefin tuna,
striped bass, weakfish, summer flounder,
sharks, winter flounder, marlin, salmon,
halibut, small mouth bass, yellow perch,
red snapper, American shad, and Spanish
mackerel.
In 1997, NMFS staff began identifying,
describing, and mapping critical reef fish
habitats in the eastern Gulf of Mexico
for future potential recreational fishing
reserve sites.
USGS has developed the first rapid
identification method for determining the
sex of chinook salmon using only non-lethal
tissue sampling. This technology allows
managers of remnant salmon runs to
provide an optimum sex ratio for captive
rearing efforts.
Through 1997, more than 140,000 sharks
of 40 different species were tagged and
released under the NMFS Cooperative
Shark Tagging Program.
USGS provided tools to detect the effects
of endocrine disrupting chemicals in
fish populations. Models were developed
to assess the risk of these chemicals to
fish populations of the Columbia River
ecosystem.
EPA’s Chesapeake Bay Program Office, in
partnership with NMFS, USFWS, NPS
and State and local parties, opened 78 miles
of river to both migratory and anadromous
fishes following the removal of dams and
installation of fish ladders and elevators.
STRATEGY 2
Outputs for Facilities and Access
A. Measurable Agency Outputs
Federal agencies constructed or maintained
5,202 facilities to enhance recreational fishing
opportunities (BOR, BIA, USFWS, BLM,
NPS, USFS, NRCS, ACE, USFS, and TVA).
B. Additional Measurable Agency Outputs
Recreational fishing opportunities
were provided on 702 Federal facilities
(BOR, USFWS, and NPS).
Federal lands provided 194,399,990 days of
recreational fishing in 1997 (USN, USFWS,
BOR, NPS, USFS, BPA, ACE, and USA).
Federal lands provide 3,308,920 acres of
lakes and ponds and 51,060 miles of stream
for recreational fishing (USA, BOR, NPS,
and USN).
Federal agencies and their partners are
working to restore wild salmon populations in the
Pacific Northwest
6
Administration of the Watershed Protection
Program (P.L. 566) provides for 80,066 acres
of lakes for recreational fishing (NRCS).
S P O T L I G H T
The USFS improved recreational fishing
opportunities on National Forests by constructing
or restoring 96 boat ramps, parking areas,
fishing piers, docks, or fish cleaning stations in
1997. These projects collectively provide a
13,300 increase in angler capacity at Forest
Service facilities.
C. Significant Non-Measurable
Accomplishments
The USN at Patuxent Naval Air Station
planted 50,000 American beachgrass plants
and 28 rows of panic grass in an effort to
stabilize the beach at Fishing Point. The
Station also stabilized nearly 3,000 feet of
shoreline along the Chesapeake Bay which
had been eroded by heavy fishing use. In
addition, lights were installed at a popular
fishing pier using funds gained from the
sale of fishing permits.
FERC approved 35 recreation plans in
1997 and 8 additional plans in 1998.
Implementation of these 43 approved
recreation plans will provide for one or more
fishing piers/platforms at 17 FERC-licensed
projects, one or more boat launches at 20
projects, improved bank/shore fishing
opportunities at 15 projects, fish cleaning
stations at 2 projects, 12 canoe portages,
improved camping facilities at 2 projects and
development of brochures identifying the
recreational facilities available at 3 projects.
S P O T L I G H T
ACE created 1,699 artificial underwater habitats,
installed black bass spawning structures and
catfish nesting boxes, and used submerged
erosion control mats to improve aquatic habitats
in reservoirs. These actions resulted in the
improvement of 58 acres of shoreline, 4,133 acres
of mud flats, and 148 stream and river miles.
These actions represent a 400 % increase over
1996 in surface water acres improved and a
100 % increase in miles of river improved for
fish migration.
New fishing piers at Lake Havasu were
constructed by BLM for universal access,
and existing facilities were upgraded to
meet standards.
The National Wildlife Refuge System
(USFWS) provided recreational fishing
opportunities for 5.2 million people at 293
refuges. The wildlife-rich estuary of Florida’s
Ten Thousand Islands National Wildlife
Refuge, one of the nation’s newest refuges,
provides great opportunities for red drum,
snook, sea trout, and tarpon fishing. The
Upper Mississippi National Wildlife Refuge
stretches 220 miles through the States of
Illinois, Iowa, and Wisconsin and provides
opportunities for walleye, largemouth bass,
perch, and other warmwater species.
Another 1997 addition to the National
Wildlife Refuge System, the Black Bayou
Lake National Wildlife Refuge in Louisiana,
provides fishing for largemouth bass, sunfish
and crappie in a 1,600 acre oxbow lake.
Aquatic plant management and improved
habitat provided an additional 90,000 fishing
days at TVA reservoirs in 1997.
Tailwater fishing has increased as much as
20% per year at some TVA facilities due to
the success in operational changes that
increase minimum flows and dissolved
oxygen. Reservoir fishing has been improved
by stabilizing water levels, improving water
quality, protecting shorelines, and managing
aquatic plant populations.
STRATEGY 3
Outputs for Education and Support
A. Measurable Agency Outputs
1,231,795 individuals participated in fishing
and aquatic education programs sponsored
by Federal agencies (EPA, USCG, USFWS,
BLM, USFS, NMFS, NRCS, ACE, BIA,
and TVA).
11,074 National Fishing Week and similar
fishing events were sponsored by Federal
agencies (BPA, USFWS, BLM, BIA, NPS,
USFS, NMFS, ACE, EPA, USCG, NRCS,
and TVA).
Federal agencies constructied or maintained 5202 facilities in 1997 to enhance recreational fishing
In 1997, EPA released the aquatic resources
educational tool known as the Index of
Watershed Indicators. This is the first
comprehensive assessment of watersheds in
the continental U.S. The data, now available
to all citizens on the Internet, highlight
which watersheds have good water quality,
moderate water quality, more serious
problems, and insufficient data to fully
characterize watershed health.
NMFS has provided rods and reels to
support the California Department of Fish
and Game’s Youth Fishing Club Program.
The Program provides a vehicle to get
approximately 300 minority children
connected with the marine environment by
sponsoring monthly fishing activities. Each
activity includes a seminar on some aspect of
marine conservation in addition to an
opportunity to go fishing. NMFS has also
provided rods and reels to the New York
Sportfishing Federation in support of its
“Take-A-Kid Fishing” Program.
7
S P O T L I G H T
NMFS developed, funded, and implemented a
tagging protocol workshop of organizational
representatives from around the country
(BOAT/U.S.; American Littoral Society; USFWS;
Virginia Institute of Marine Science; Atlantic,
Gulf and Pacific States Marine Fisheries
Commissions; Geographic Modeling System Lab;
Virginia Tech; Sea Grant; and the American
Fisheries Society) to develop protocols for a
national strategy to prevent private marine
tagging programs from negatively impacting
bona fide scientific tagging programs.
B. Additional Measurable Agency Outputs
Federal agencies invested $1,695,000 in
aquatic environmental education activities.
(NPS, BLM, TVA, BPA, NMFS, EPA,
BOR and USFWS)
3,080,000 individuals received multimedia
aquatic resource education and 1,668,000
individuals visited Federal agency aquatic
education Internet sites (EPA, BLM,
NMFS, USFWS, and USFS).
416,000 aquatic resource education
publications were distributed to the public
(USFWS, EPA).
Safe boating programs were provided
to 125,584 participants (USAF, FERC,
and TVA).
3,188 boating safety classes were held
specifically for children (USCG).
151,282 courtesy marine safety examinations
were performed (USCG).
$42.9 million was provided to states for
recreational boating safety programs and
$2.3 million was provided to non-profit
organizations (USCG).
S P O T L I G H T
The Naval Surface Weapons Center was selected
by the USN to sponsor a pilot DOD Fishing
License Amnesty Day in 1997. In conjunction with
the Indiana DNR and the USFWS, the Center
sponsored a free fishing weekend for military
personnel and the local community.
C. Significant Non-Measurable
Accomplishments
1,393 children, disabled citizens, and non-traditional
angling adults were introduced
to marine recreational angling for the first
time through a NMFS cost-sharing
partnership program with States and
private fishing clubs.
BOR supported Catch a Special Thrill
(C.A.S.T.) and Take-A-Kid-Fishing events for
underprivileged or disabled children. Events
were held at Black Canyon Reservoir (ID),
Lake Berryessa (CA), Millerton Lake (CA),
Navajo Reservoir (NM), Henry Hagg
and Prineville Reservoirs (OR), and at
the Kids Day Fishing Derby at Folsom
Reservoir (CA).
USGS held an Open House at its Virginia
headquarters that attracted up to 22,000
visitors. Programs demonstrated how
scientists determine the territories of fish,
explained on-going research on declining
Atlantic shortnose sturgeon, let children
make impressions of a Chesapeake Bay fish,
and showed a working model of how flumes
allow fish passage at hydroelectric dams.
Sharing knowledge and experience encourages
young anglers
Funding for fishing programs has increased
enjoyment for all ages, races and abilities
$545 million in excise tax revenues were
distributed to States under the Federal
Aid in Sport Fish Restoration Program
(Dingell-Johnson/Wallop-Breaux) in 1996
and 1997 (USFWS).
C. Significant Non-Measurable
Accomplishments
In FY 1997, EPA, DOC, NRCS, USFS, NPS,
ACE, and DOT helped shape a new Federal
interagency partnership known as the
American Heritage Rivers Initiative. EPA
and its partners are working to focus the
delivery of resources to support community-led
efforts to protect natural resources and
aquatic habitat while spurring economic
revitalization and preserving historic and
cultural heritage.
ACE established 349 partnership
agreements in 1997 that resulted in more
than $8.5 million in projects and activities.
These activities included volunteer lake
cleanups, marina grants, fish stockings,
tournaments, the construction of piers and
information kiosks, aquatic habitat
improvement, and fishery research and
development.
S P O T L I G H T
The USDA’s Conservation Buffer Initiative is a
large public and private partnership of Federal
agencies, conservation groups, State agencies,
conservation districts, environmental groups,
and others working with agricultural industry
corporations. They have designed or installed
200,000 miles of buffers. Federal agencies include
NOAA, EPA, USDA, and USFWS. Private
industries include Cargill, ConAgra, Farmland
Industries, Monsanto, Novartis Crop Protection,
Pioneer Hi-Bred International, and Terra
Industries. Environmental groups and trade
associations number over 75 and includeTrout
Unlimited, B.A.S.S., Inc., IAWFA, the National
Fish and Wildlife Foundation, The Nature
Conservancy, American Farm Bureau Federation,
Environmental Defense Fund, Izaak Walton
League of America, National Association of
Conservation Districts, National Corn Growers
Association, National Rifle Association of
America, Society of American Foresters, and
Water Environment Federation.
8
STRATEGY 4
Outputs for Partnerships
A. Measurable Agency Outputs
2,823 conservation easements and/or
agreements were administered with private
landowners to improve fishery resources
(NRCS, USFWS, BLM, USFS, and TVA).
2,549 partnership agreements were executed
to increase recreational fishing opportunities
on private lands (USFWS, BLM, NRCS,
TVA, BIA, and USAF).
1,784 partnership projects were completed
(NMFS, BLM, USFS, ACE, TVA,NCRS,
and FERC)
Non-Federal partners provided $25 million
in support of cooperative projects to
improve fish and fishing (USFS, BLM, ACE,
and TVA).
B. Additional Measurable Agency Outputs
Interjurisdictional Fishery Management
Plans were developed for 209 fisheries
(NMFS, USFWS, and NPS).
$156 million were provided to improve
recreational fisheries (NPS, NMFS, and
BPA).
S P O T L I G H T
The NPS developed a Cooperative Watershed
Management Plan with the Pennsylvania Fish and
Boat Commission to manage the wild trout fishery
in Valley Creek within Valley Forge National
Park. The NPS and Fish Commission developed
partnerships with local governments and
conservation groups to develop a comprehensive
stormwater management plan for the watershed.
Michigan Huron Pines RC&D Council
(NRCS) has partnered with USFWS, Trout
Unlimited, Michigan Flyfishing, Michigan
DNR, and local Soil and Water Conservation
Districts on the Upper Manistee River and
AuSable River to enhance fishing access,
curb streambank erosion, empty sandtraps,
restore and replace instream structures and
preserve habitat. As a result of these efforts,
the 1997 angler census yielded the highest
index observed for the trout fishery.
Habitat improvement projects benefit both fish
and anglers
Black Bass fishing is the most popular type of fishing
in the U.S.
9
The Multi-State Aquatic Resources
Information System (NRCS, USGS, USFS,
USFWS) is using a centrally located server
and homepage where participating States
provide a core set of quantitative attributes
characterizing the status of aquatic
resources in each State. This information can
be linked to physio-chemical and land use
data bases to assess the potential impacts of
land use policies. Potential benefits include
analyses for targeting State and Federal
programs to optimize the effects on
identified fishery resources.
A NMFS and USFWS Interagency
Personnel Agreement established obligations
and procedures to support NMFS in its
analysis of mass marking and selective
fisheries for coho salmon. NMFS will provide
$90,000 to fund an 18-month position to
analyze the selective recreational harvest
of marked hatchery fish and the impacts to
wild fish populations.
NMFS initiated a MOU with BOAT/US to
cooperate on volunteer tagging of near-shore
recreationally important species such as
striped bass, red drum, and tarpon.
BLM’s National Riparian Team trained
over 2,000 individuals, including private land
owners, in the techniques needed to restore
riparian areas.
S P O T L I G H T
The US Naval Academy (USN) is contributing
to efforts with local government, the Horn Point
Environmental Center, the Chesapeake Bay
Foundation, and the Severn River Association
to restore over 2 million oysters to the Old Fort
oyster bar in the Severn River and juvenile
oysters on Mill Creek. Oyster bars are important
habitats for recreational fish.
The Bring Back the Natives Initiative,
funded cooperatively among BLM, the
National Fish and Wildlife Foundation,
USFS, Trout Unlimited and others provided
over $900,000 in funds for a variety of
projects. Over $302,000 in BLM challenge
cost-share funds were matched with over
$600,000 in private contributions.
USGS sampled fish throughout the
Mississippi River Basin and found that
organochlorine insecticides and PCBs have
declined substantially since 1986. These
data, in conjunction with biomarker results,
will be used to guide future research and
regulatory activities on specific contaminants
and assess consequences of remediation and
regulatory actions.
S P O T L I G H T
From October 1996 to March 1997, the USFWS
held 16 separate stakeholder meetings
throughout the country. More than 430 people
attended these meetings to improve communi-cation,
to help identify the appropriate roles and
responsibilities of the Service in recreational
fisheries, and to develop cooperative approaches
for meeting Regional priorities, goals, and
objectives. Attendees included nearly 140 State
representatives, more than 90 conservation group
representatives, more than 40 business people,
and about 30 representatives from Tribes and
other Federal agencies.
USGS mapped spawning habitat of lake
trout in Lake Huron and yellow perch in
Lake Michigan using a remotely operated
underwater vehicle with a side scan sonar
closed-circuit TV system, geographic
positioning system, and computer based
GIS. The maps were needed to implement
fishery management actions as part of
the Great Lakes fishery restoration and
management efforts.
EPA produced the Catalog of Federal
Funding Sources for Watershed Protection.
The catalog contains information on 52
funding sources (grants and loans) for
watershed protection projects.
Piers increase fishing opportunities for coastal anglers
NMFS continues to work closely with the
USFWS and the Maine Atlantic Salmon
Authority to implement the Maine Atlantic
Salmon Conservation Plan. Successful
implementation of this interagency plan will
preclude the need to list any stocks of
Atlantic salmon in the State of Maine as
either threatened or endangered. The
cooperative recovery effort includes State,
Federal, and private programs and is only
the second of its kind in the nation approved
for fish species. It includes continuing
broodstock development and stocking of
Atlantic salmon in rivers, upland habitat
improvement, construction of fish weirs on
some rivers, changes in both aquaculture and
agriculture operations to reduce their
threats to salmon survival, and continue
monitoring and research programs to
evaluate and improve progress. The plan also
provides for an integrated program of
population monitoring and regulated catch
and release fishing.
10
NMFS issued a biological opinion on the
issuance of a Section 10 incidental take
permit to Idaho to authorize a recreational
fishery for chinook salmon in the Snake
River basin.
NMFS negotiated a comprehensive plan
with the State of Oregon (the Oregon
Coastal Salmon Restoration Initiative)
which provides much of the protection that
otherwise would have been required of the
Federal Government under provisions of
the ESA. Key provisions of the plan were
designed to provide greater protection for
naturally-produced fish while preserving
recreational fisheries targeting hatchery
fish. Oregon adopted a model salmon
management plan that will allow expansion
of recreational fisheries as listed and
candidate populations of coho increase
toward full recovery. Increasing harvest will
be allowed with demonstrated increases in
ocean survival and wild fish escapements.
NMFS facilitated an excellent fishery in
Idaho due to a “bumper crop” of hatchery
spring/summer chinook while protecting
wild populations listed as threatened
under the ESA. Production of unlisted
hatchery populations provided for a
carefully regulated sportfishery targeting
on marked, hatchery fish.
NMFS is working with the States of Oregon,
Washington, and Idaho to develop detailed
Recreational Fishery Management and
Evaluation Plans (RFMEP), which, in
conjunction with special conditions developed
in a draft Section 4(d) rule and MOUs
between NMFS and the States, will allow
continued fishing for hatchery-produced
steelhead in waters where threatened
steelhead exist (i.e., Snake River basin).
Management plans will attempt to identify
strategies that allow recreational fisheries to
target unlisted, hatchery fish in a manner
that is compatible with protection and
recovery of listed, wild populations.
Protective measures apply both to adult and
juvenile steelhead which are subject to
harvest in stream-based trout fisheries. The
principles and management measures
developed as part of the RFMEPs have also
been applied to negotiations regarding
candidate Evolutionarily Significant Units in
Oregon, Washington and California, in some
cases as features in conservation plans that
could defer ESA listing.
Implementation of the
Recreational Fishing/
Endangered Species
Act (ESA) Policy.
In 1996, as required by the E.O., the USFWS
and NMFS developed a joint policy to
resolve conflicts between recreational
fisheries and administration of the ESA.
Highlights of the actions taken by each
agency in FY 1997 to implement the policy
are listed below for each agency.
NMFS Accomplishments
NMFS and the USFWS withdrew their joint
proposed rule to list Atlantic salmon in
Maine, December 18, 1997, allowing the
State of Maine to take the lead in conserving
this species by implementing its Atlantic
Salmon Conservation Plan. The State of
Maine will permit recreational fishing under
a catch and release regime, provided that the
populations are determined to be able to
sustain incidental hooking mortality. Had the
Services listed the species as threatened, a
directed recreational fishery would have
been difficult to justify.
Federal agencies are working together to restore the nation’s trout and salmon fisheries
In cooperation with Colorado, Utah, and
Wyoming the USFWS has adopted
nonnative stocking procedures for the upper
Colorado River Basin. Nonnative fish
stocked for sportfishing had been identified
as a threat to fish listed under the ESA. The
agreement prohibits stocking of certain
warmwater sportfish in ponds occurring
within the 100 year floodplain of the
Colorado River and specifies when and
where such fish can be stocked. The USFWS
agreed to raise and stock up to 40,000
catchable sized rainbow trout or cutthroat
trout to create seasonal recreational fisheries
to offset recreational fishing opportunities
that would be lost under the prohibitions
of the agreement.
During the past 8 years, efforts to restore
the threatened Greenback cutthroat trout
included removal of nonnative trout, thereby
eliminating fisheries in 19 streams. To offset
lost recreational fishing due to the recovery
program, the USFWS provided recreational
fishing opportunities by creating fisheries
on DOD and NPS waters using hatchery
reared greenbacks. These opportunities
were accompanied by education and
interpretation outreach to explain the past
plight and bright future for the recovery of
this salmonid.
11
NMFS participated in an interagency
collaborative effort to resolve difficult water
and flood management issues in the
Guadalupe River watershed (habitat for
steelhead and chinook near San Jose,
California). The group hopes to resolve
mitigation requirements for a 100-yr. flood
protection project planned by the ACE for
the downtown area, develop a channel
management plan that provides adequate
flows, temperatures, and riparian habitat for
salmon and other ecosystem components,
and ensures long-term compliance with the
ESA, possibly through development of a
habitat conservation plan.
NMFS performed numerous formal and
informal consultations under the ESA
with both the private and public sectors
pertaining to potential projects that may
impact listed salmon and steelhead and
their habitat.
NMFS consulted with the USFWS on
assessments of the expected impacts of
1997 Snake River basin tributary fisheries
on threatened and endangered Snake
River salmon species and the expected
impacts of October 1997 through January
1998 fall and winter season mainstem
and tributary fisheries on the listed
Columbia River steelhead. These favorable
reviews are essential for the continuation
of any recreational fisheries affecting the
listed stocks.
NMFS and the USFWS continue to provide
fish health certification and diagnostic
services for captive broodstock efforts with
the Red Fish Lake sockeye.
USFWS Accomplishments
Upper Columbia River Basin Field Office
provided technical assistance to 280
landowners for stream enhancement
projects, completed 10 stream restoration
projects, rehabilitating over 15 miles of
stream channel, and provided technical
assistance to BOR on fisheries issues such as
fish passage and habitat restoration for listed
and non-listed species.
Lahontan National Fish Hatchery worked
with States, Tribes and Federal agencies to
expand the role of the threatened native
Lahontan cutthroat trout in recreational
fishing programs and reduce the presence of
non-native trout that compete with Lahontan
cutthroats. They also worked to restore the
Truckee River habitat for recreational
fisheries. They produced over 200,000
Lahontan cutthroat trout for recreational
fishing and public education programs.
USFWS is reintroducing coaster brook trout
and lake sturgeon to key locations in the
Great Lakes. This work will create a world
class brook trout fishery and bring a once
recreationally valuable, but now candidate
endangered species back from the brink of
extinction.
Fishing provides tranquility... ...and excitement
USFWS, in cooperation with other Federal
agencies, the State of Alaska, Tribes, and
private entities have prevented conflicts
between recreational fisheries and the 22
listed or proposed species in Alaska.
Through the USFWS efforts, nearly 500,000
anglers fished 2.7 million days and caught
6.3 million fish in Alaska during 1997
without any conflicts over implementation
of the ESA.
The National Fish Hatchery System
contributed to the recovery of 29 fish species
listed under the ESA, thereby helping to
restore and maintain recreational fishery
opportunities.
In 1997, the USFWS decided to use mass
marking of hatchery fish as a means of
providing harvest opportunities for
surplus hatchery stocks while providing
a measure of protection for depressed wild
stocks in the Columbia River Basin. Mass
marking at Eagle Creek and Willard
National Fish Hatcheries in conjunction with
selective fisheries using gear and techniques
that result in low mortality of non-retained
fish will help maintain a reasonable level of
recreational harvest even though wild runs
are depressed. Hatchery steelhead at
USFWS hatcheries in the Columbia River
basin have been mass marked for over ten
years. This program has provided
substantial recreational fishery opportunities
for steelhead throughout the basin.
USFWS continued work on mass marking
and selective fisheries issues related to
coho salmon. These efforts should increase
recreational fishing opportunities for coho
salmon while lessening impacts to wild
stocks which may be listed or proposed for
listing under the ESA. In 1997, the USFWS
began mass marking coho salmon production
at Quilcene and Makah National Fish
Hatcheries, and double-index tagged coho
salmon at Quinault National Fish Hatchery
for selective fishery evaluation, pending
agreement with the Quinault Nation
regarding mass marking all of the Quinault
National Fish Hatchery coho salmon. Mass
marking will permit selective harvest of
hatchery fish in recreational fisheries and
reduce catches of co-mingled wild fish.
The Lower Snake River Compensation
Plan Office program manages one of the
USFWS’s largest salmon, steelhead, and
resident rainbow trout production programs
and has undertaken considerable changes in
its mitigation program to accommodate its
responsibilities for mitigation, recreational
fishing, and the administration of the ESA.
Non-endemic stocks previously used for
mitigation are being replaced with locally
adapted stocks to reduce impacts on listed
salmon and steelhead. A captive broodstock
programs with listed endemic stocks has
been initiated as a gene conservation
program to assist in recovery and provide
a local stock that will not be in conflict with
listed stocks. Many of the stocks utilized for
mitigation programs are considered reserve
stocks. These unlisted reserve stocks
represent an Evolutionarily Significant
Unit for the species and can be used for
recovery purposes if needed.
In cooperation with BLM, BOR, and the
States of California and Arizona, the
USFWS continues to implement the Lake
Havasu Fisheries Improvement Program.
This program has provided millions of
dollars to enhance habitat for sportfish
while reducing potential conflicts with
razorback sucker and bonytail chub recovery
through consultation and communication
among the partners.
12
Anglers and boaters...partners in conservation
NATIONAL RECREATIONAL FISHERIES COORDINATION COUNCIL
BONNEVILLE
POWER ADMINISTRATION
NATIONAL RECREATIONAL FISHERIES
COORDINATION COUNCIL
Army Corps of Engineers
Bureau of Indian Affairs
Bureau of Land Management
Bureau of Reclamation
Bonneville Power Administration
Department of Commerce
Department of Defense
Endangered Species Act
Federal Energy Regulatory Commission
International Association of Fish and
Wildlife Agencies
Memorandum of Understanding
National Marine Fisheries Service
National Oceanic and Atmospheric Administration
National Park Service
Natural Resources Conservation Service
National Recreational Fisheries
Coordination Council
Southwest Power Administration
Tennessee Valley Authority
U.S. Forest Service
U.S. Environmental Protection Agency
U.S. Air Force
U.S. Army
U.S. Coast Guard
U.S. Department of Agriculture
U.S. Geological Survey
U.S. Fish & Wildlife Service
U.S. Navy