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.

■ Anglers fished 626 million days in 19961

representing a 23% increase in fishing

activity from the 511 million days fished 

in 1991.

■ Freshwater fishing totaled 515 million

recreational angler days in 1996.

■ Saltwater fishing totaled 103 million

recreational angler days in 1996.

■ 17 percent of the U.S. population (aged 

16 and older) fished in 1996 representing 

a 2 percent decline from the 1991 census.

■ 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. 

■ 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

■ 15% of the nation’s total lake acres and 

5% of the nation’s total river miles are under

fish consumption advisories. 

■ 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.

■ 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.

■ There were 56 overutilized, 70 fullyutilized, 31 underutilized, and 44 marine

stocks of unknown utilization in Federal

waters.

■ 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 NonMeasurable 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.

SPOTLIGHT

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).

SPOTLIGHT

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.

SPOTLIGHT

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 severalfold 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
SPOTLIGHT

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.

SPOTLIGHT

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 sitespecific 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.

SPOTLIGHT

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.

SPOTLIGHT

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, socioeconomic, 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).

SPOTLIGHT

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. 

SPOTLIGHT

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

SPOTLIGHT

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).

SPOTLIGHT

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 nontraditional 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 communityled 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.

SPOTLIGHT

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).

SPOTLIGHT

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.

SPOTLIGHT

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.

SPOTLIGHT

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 communication, 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