Qzsj on d C/ Book lIL4^ /foi 59th Congfress 2d Session Y'V House of Representatives Document No. 251 REPORT s-i:^' ON THE ALASKAN FUR-SEAL FISHERIES BY EDWIN W. SIMS Solicitor of the Department of Commerce and Labor Augfust 31, 1906 WASHINGTON GOVERNMENT PRINTING OFFICE 1906 LETT1;R OF TRANSMITTAL Department of Commerce and Labor, Office of the Secretary, WasJihKjfo))^ Deeernher 10^ 1906. Sir: 1 have the honor to transmit herewith the report of Mr. Edwin W. Sims, late solicitor of the Department of Commerce and Labor, on the Alaskan Fur-Seal Fisheries. On June 21, 1906, I directed Mr. Sims, at that time solicitor of the Department, to proceed to Alaska and investigate the conditions of the Alaskan fur-seal fisheries. Mr. Sims visited St. Paul, St. George, and Otter Islands of the Pribilof g-roup in Bering Sea, Unalaska and Kodiak islands, Sitka, and other places during the months of July and August and collected the information upon which this report is based. In addition to a historical resume of the industry and a discussion of recent raids by Japanese poachers, the report contains two appen- dices, the first giving statistical information reg'arding the Pribilof fur-seal herd from the discovery of the islands in 1786 to 1906, inclu- sive, and the second showing the probable increase of the herd in case there be a total cessation of pelagic sealing and a rational land killing. Respectfully, V. H. Metcalf, Secretai'y. The Speaker of the House of Representatives. 0EC13 lyOb D.ofO. REPORT ON THE ALASKAN FDR-SEAL FISHERIES. Department of Justice, Office of the Solicitor of the Departmemt of Commerce and Labor, Washington^ AuguM 31^ 1906. Sir: I have the honor to advise you that in accordance with the terms of your letter of June 21, 190H, directing- me to investigate the conditions of the Alaskan Fur-Seal Fisheries, I visited St. Paul, St. George, and Otter islands of the Pribilof group in Bering Sea, Una- laska, Kodiak, Sitka, and other places in Alaska during- the months of July and August, and collected information bearing upon the subject to be investigated. I spent an entire week on the island of St. Paul, during- which time 1 personally visited all of the seal rookeries and witnessed several drives. As the result of my observation and investigation I have the honor to submit the following report: destruction of the seal herd by pelagic sealers. The Pribilof fur-seal herd is being rapidl}^ wiped out of existence as the result of pelagic sealing — the killing of seals in the water. The destructive effect of this method of taking seals has not been fully realized, and unless prompt measures are taken to stop it the entire herd will soon be annihilated. Estimates as to the number of seals in the Pribilof herd at the time this Government purchased Alaska vary from 2,000.000 to 7,000,000. The best estimate, in my judgment, is that it consisted of about 4,000,000 seals. To-day the herd numbers less than 180,000 seals; in other words, there are fewer seals in the Pribilof herd to-day than there were in 1835, when the Russian Government felt impelled to adopt drastic measures to prevent its destruction. During the first twent}^ 3^ears of Am^'ican ownership it was at all times possible to secure 100,000 skins annually on the Pribilof Islands. From 1890 down to the present time the number of skins which could be obtained has steadily decreased. This season the lessee of the sealing privilege was unable to secure even the 16,000 skins which it was authorized to take. 3 4 REl'ORT ON THE ALASKAN FUR-SEAL FISHERIES. lIEIfl) IS IN A MOST CRITICAL CONDITION. While it is true that the size of the herd has been steadily decreasing" for a number of years, 1 believe that its existence is more seriousl}' threatened at this time than ever before in its history. The herd is in a most critical condition. The high price paid for sealskins in the London market last year has not only led to renewed activity on the part of the Canadian seal- ing Heet, but is un(]uestionably responsible for the appearance in Ber- ing Sea this year of the largest fleet of Japanese vessels which has ever directed its operations against the Pribilof herd. Authentic reports arc to the effect that the Canadian fleet engaged in pelagic sealing the past season numbered upward of thirty vessels. Keports vary as to the size of the Japanese fleet, some placing it at thirteen and others at thirty vessels. Fleets of this size can not long prey on the already diminished herd without soon annihilating it. IMPORTANCE OF THE ALASKAN FUR-SEAL FISHERIES. Since the purchase of Alaska in 1867 the United States has received a revenue from the lease of the sealing privilege on the Pribilof Islands of about 19,000,000- almost $2,000,000 more than it paid for all Alaska. In addition to this the Government annually collects a large sum in customs revenue on manufactui-ed sealskins which are reimported from London, where the}^ are sent in their raw state for treatment. The trade in skins taken on these islands l)v citizens of the United States since the puj'chase of Alaska aggregates more than $50,000,000. TREATIES AND LAWS VIOLATED BY PELAGIC SEALERS. From information furnished me during the course of ni}' investiga- tion, I believe that a part — at least five or six — of the vessels of the Canadian fleet this year continued their pelagic sealing operations in the vicinit}' of Sitka and at other points in Alaska during the months of May and June, in violation of Article II of the Articles of A^ward of the Paris Tribunal of Arbitration, establishing a yearly closed season from May 1 to July 31. The vessels of the Japanese flfeet not only took thousands of seals within the territorial waters of the United States surrounding the Pribilof Islands during the past summer, but during a period of two days — July 16 and 17 — the crews of four of the schooners committed a series of unlawful acts which terrorized the native inhabitants and injuriously disturbed the seal life on the rookeries of St. Paul Island. Raiding parties from three of these schooners actually landed on the island. One of the parties which landed killed 185 seals and got away with 120 skins before it was discovered. REPOKT ON THE ALASKAN FUR-SEAL FISHERIES. 5 As a result of the raids, five of the poachers were killed while attempt- m^ to escape arrest, and twelve, including' two wounded, were cap- tured. Three small boats and some arms and paraphernalia for killing seals on land were also captured. The force protecting the islands sutlered no casualties, although it was subject to a ritie tire from the decks of a schooner anchored close inshore while making arrests on the second day. Before going into the details of the opei-ations of the Japanese seal- ing fleet during- the past season 1 shall at this point refer briefly to some general facts in connection with the Pribilof Islands and the seal herd, in order that you may more fully appreciate existing conditions. THE PRIBILOF ISLANDS. The Pribilof Islands, which are the home of the fur-seal herd which takes their name, were discovered in 1786 \)y Grerassim Pribilof, a navigator in the employ of one of the Russian trading companies. The}' are situated in Bering Sea, about 2,000 miles from Seattle by the most direct route. The group consists of St. Paul, St George, Walrus, and Otter islands, and Sea Lion Rock. They are completely isolated from other land, the nearest port being Unalaska, which is 214 miles to the southward. The islands are of volcanic origin, and are desert islands to the extent that they produce nothing capable of sustaining man. The island of St. Paul, which is the largest of the group, is 13^ miles long and 7* miles wdde and has a shore line of 45i miles. It has a population of 1(!8. St. George Island, which lies at a distance of about 40 miles south- east of St. Paul, is 12 miles long and 4^ miles wide, with a shore line of 30 miles. It has a population of 91. Otter Island, Walrus Island, and Sea Lion Rock are much smaller and are uninhabited. During a large part of the 3^ ear the islands and the surrounding sea are enveloped in a dense fog. There are no vessels on the islands capable of being navigated to the mainland or the nearest port, and the only time the residents come in touch with the outside world is when the North American Commercial Company's steamer calls there twice each ,year, and at irregular intei'vals when a revenue cutter chances to stop for a few hours. THE PRIBILOF FUR-SEAL HERD. The islands which I have just described are the natural retreat and the only breeding ground of the Pribilof or American fur-seal herd, which, even in its depleted condition, is the largest fur-seal herd in the world. The seals of this herd breed upon the islands of St. Paul and St. George during the summer, and annually, in the fall, leave them and proceed through Bering Sea and the passes between the Aleutian b REPOET ON THE ALASKAN FUR-SEAL FISHERIES. Islands into the Pacific Ocean. Some of them go as far south as the Santa Barbara channel, off southern California. Generally speaking, this annual migration of the fur-seal herd may be said to commence in November, and by the latter part of December there are few, if any animals left on the islands. They remain away until the following spring, the first arrivals usuall}' appearing about the first of Ma}^ and the last the latter part of June or first of July. In the interval between their arrival in the spring and their departure in the fall the offices of reproduction are accomplished. Within a few hours after she arrives on the island the cow gives birth to her pup. Five or six days later she comes in heat and is served b}' the bull. As the females do not leave the island from the time they first land until after impregnation, it follows that all adult cows whenever found at sea are pregnant. During the period of about six months which the seals annually spend on the islands the females make frequent and regular trips to the feeding grounds about 150 miles to the southward in Bering Sea. After feeding they go to sleep on the surface of the water, while the food they have taken digests. When rested, the}' return to the islands, where they nurse the pups. The female seal gives birth to one pup each year for probably ten years, commencing the third year of her existence. VARIATIONS IN THE SIZE OF THE HERD. At the time of the discovery of the islands by the Russians, fur seal, sea otter, walrus, sea lions, and foxes were found in almost unlimited numbers. The killing of all these species of animals pro- ceeded with wanton prodigality from the year 1786 until the 3^ear 1835, when the fur-seal herd was reduced to less than 200,000. This shrinkage was caused by the indiscriminate killing of both males and females. A closed season was established on the islands from 1835 to 1845-1850, during which period onlv such seals were killed as were necessary to furnish food and clothing for the natives. The killing of females on land was also discontinued after 1835 and was never again legally resumed. This resulted in a gradual rehabilitation of the herd, allowing an increasing number of young male seals to be taken each year from 1850 until 1870, the date of the connnencement of the first lease of the seal- ing rights to the Alaska Commercial Company. From that year and during the twent}' years of this first lease 100,000 young male seals were killed ainnially for commercial purposes, and the skins marketed, with the exception of the years 1877 and 1883, when, owing to a glut in the market for skins, only 75,000 seals were killed. This reduction, however, was voluntary on the part of the lessee and was not the result of a lack of seals. EEPORT ON THE ALASKAN FUB-SEAL FISHERIES. 7 METHODS OF SECURING SEALSKINS. The skins of seals for commercial purposes are secured in two ways: (1) By killing the seal on land; (2) by killing- the seal in the water — i. e,, pelagic sealing. 1. The killing of seals on land is confined to the Pribilof Islands, is engaged in only by those who lease that right from the Government, and is limited to those surplus immature bachelors which may be taken without affecting the herd. The prohibition against the killing of females established })y the Russians in 1835 has been embodied in our laws and is always strictly observed. The character and number of the seals to be taken is determined by law and by the regulations of the Secretary of Commerce and Labor, and the operations of the lessee on the islands are subject to the direct surveillance of Govern- ment agents appointed for that purpose. The history of the herd con- clusivel}^ demonstrates that a rational and carefully regulated land killing is beneficial rather than detrimental to the herd. 2. The killing of seals in the water — pelagic sealing — is engaged in by vessels owned and manned by the citizens of other nations and by Indians dwelling on certain of the coasts of the United States and Canada.-' It is a wantonly destructive method of securing furs. The Indians are allowed to take seals in canoes or undecked boats pro- pelled wholly by paddles, oars, or sails and not transported b}^ or used in connection with other vessels or manned by more than five persons. The vessels of other nations which engage in pelagic sealing are schooners ranging in size from 2.5 to 125 tons burden. Each vessel carries a crew of from 10 to 50 men, usuall}^ about 30, and carries from 5 to 20 boats or canoes. The schooner cruises about until she comes into sealing territory, when the small boats, which are usually manned by three men, are lowered. These boats scatter out in search of seals. Seals in motion are shot; seals asleep or resting on the water are usually speared. In the spring the pelagic sealers pick up the herd ofi^ northern Cali- fornia and follow it northward. In the summer they cruise around the feeding grounds in Bering Sea. The catch at this point is chiefly females which have come to feed and which, if unmolested, would return to the Pribilof Islands to nourish their young. One of the Japanese sealers of a part}^ which landed on St. Paul Island during the summer stated under oath that seven or eight out of every ten seals taken in Bering Sea by the schooner on which he belonged were females. Pelagic sealing was nominal from the 3^ear 1868 to 1880. From 1881, however, when 10,000 skins were taken by pelagic sealers from the Pribilof herd this catch increased annually until 1894, when 61,838 «See act of April 6, 1894, 28 Stat., 52, art. 8. 8 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. skins were taken. The pelagic catch for 1905 was 25,320 skins. The decrease in the pelagic catch from 181)4 down to the present time is due to a steady decrease in the size of the herd. The increase of the pehigic sealing- has had direct relation to the diminution of the number of seals on the rookeries, and the present low^ condition of the herd is, in mj'^ judgment, due solely to the killing of female seals at sea. The rational land killing of surplus, immature bachelors, which has been carried on under lease from this Government, has had nothing to do with the decrease in the size of the herd. THE KILLINC OF FEMALP]S A WANTON DESTRUCTION OF SEAL LIFE. The killing of female seals at any time or any place results in wanton destruction of seal life. Those females killed while the herd is on its way northward in the spring are pregnant, and each death results in the loss of two lives to the herd. Those females killed on the feeding grounds in Bering Sea in the summer and early fall are not onh^ preg- nant, but they have nursing pups on shore which die of starvation when the mothers fail to return. Each death thus results in the loss of three lives to the herd. In addition to this the skins secured by the pelagic sealer represents only about 50 per cent of those he has actually killed. The others sink and are not recoverable, or, when only wounded, escape and die later from their wounds. These facts, coupled with the knowledge that the pelagic sealer has since 1S90 secured almost twice as many skins as have been secured on the islands, fixes beyond question the cause of the depletion of the herd. TEKiVIS OF THE LEASE FROM THE GOVERNMENT. Since 1870 the exclusive right to engage in the business of taking fur seals on the Pribilof Islands has been exercised by American com- panies operating under lease from the Govermnent. From 1870 to 1890 the right was exercised by the Alaska Commercial Company. At the present time the North American Commercial Company is the lessee under a contract which expires in 1910. Under the terms of this contract as construed by the United States Supreme Court (U. S. v. North American Commercial Co., 171 U. S., 110), the company pays at the rate of $10.22i for each skin taken. The Secretary of Com- merce and Labor determines by regulation the kind and number of seals to be taken each yeai and the method of killing. In addition to the sum paid the Government for each skin, the com- pany furnishes free to the natives on the islands dried salmon and salt and salt barrels for preserving a supply of meat, 80 tons of coal annually, comfortable dwellings and necessary schoolhouses which it keeps in repair, competent teachers and a free school for the education of the children eight months of the year, competent physicians, medi- cines and medical supplies, and the necessaries of life for the widows and orphans and aged and infirm inhabitants of the islands unable to REPORT ON THE ALASKAN FUR-SEAL FISHERIES. 9 provide for themselves. The company also employs the natives to perform, such work on the islands as they are fitted to perform at a compensation fixed from time to time by the Secrctar}^ of Commerce and Labor. THE TRIBUNAL OF AKBITKATIOX. As the result of certain differences which had arisen between Great Britain and the United States over the seizures of Canadian vessels and the efforts of this Government to protect the seal herd, these two nations, on February 29, 1892, concluded a treaty whereb}^ they agreed to submit the questions in dispute to a tribunal of arbitration. This tribunal, which concluded its labors in Paris in 1898, is usually spoken of as "'The Paris Tribunal of Arbitration,'' and its findings and award as "The Award of the Paris Tribunal." Generally si)eaking, the chief contentions of the United States before this tribunal were: (1) That Bering Sea was a closed sea, and (2) that it had a property right in the seal herd which justified it in protecting the ^eals on the high seas. The treaty also provided that in case the determination of the questions submitted as to the exclu- sive jurisdiction of the United States left the subject in such position that the concurrence of Great Britain was necessary to the establish- ment of regulations for the proper protection of the fur-seal herd, the arbitrators were to determine what concurrent regulations outside of the jurisdictional limit of the respective Governments were necessary and over what waters such regulations should extend.*^ The tribunal found that Bering Sea was not a closed sea, and also decided adversely to the United States on the question of its right to protect the seal herd outside of territorial waters. Accordingly, a set of regulations was adopted, the essential features of which were the establishment of a closed zone of 60 miles in Bering Sea about the Pribilof Islands and a closed season from May 1 to August 1, within which all sealing was prohibited. While the treaty of 1892 provides that "the high contracting parties engage to consider the result of the proceedings of the tribunal of arbitration as a full, perfect, and final settlement of all the (pies- tions referred to the arbitrators" (Art. XIV), it is in this connection worthy of note that the regulations, which were part of the award, provide in terms that they "shall be submitted every five years to a new examination, so as to enable both interested Governments to con- sider whether, in the light of past experience, there is occasion for any modification thereof" (Art. IX). THE MODUS VIVENDI. For the purpose of avoiding the irritating differences, and with a view to promoting the friendly settlement of the questions pending between a Article VII. 10 REPOKT ON THE ALASKAN FUR-SEAL E'ISHERIES. the two (irovernments, an agreement was entered into on June 15, 1891, for a modus vivendi in relation to the fur-seal fisheries in Bering- Sea. By the terms of the modus vivendi, which remained effective until the award of the Paris tril)unal, the killing of all seals, with the exception of a limited number for the sustenance of the native inhabitants of the Pribilof Islands, was suspended. EXISTING LAWS AND TREATIES.'* The substance of existing laws and ti'eaties is as follows: The laws of the United States prohibit American citizens and sul)jects from kill- ing any seals at aii}^ time in the waters of the North Pacific Ocean and Bering Sea or on any land or in any of the waters of Alaska subject to the jurisdiction of the United States. Indians dwelling on the coast of the United States may, however, kill seals in the water under certain restrictions, and those persons or corporations operating under lease from the Government may kill seals on the Pribilof Islands. These are the only exceptions to an absolute and universal prohibition running against citizens and subjects of the United States. Now while that feature of these laws which prohibits Americans from killing seals in the open ocean — the waters of the north Pacific Ocean and Bering Sea — is not effective as again.-t the citizens and subjects of other nations, those provisions which absolutely prohibit the killing of seals on any land or in any water su])ject to the jurisdic- tion of the United States in Alaska is effective as against all the world, aliens as well as citizens. It follows, therefore, that with the excep- tion of the Indians and those operating under lease from the Govern- ment no person ma}' lawfully kill seals in Alaska or in Alaskan waters. Citizens and subjects of Grent Britain and of the Ignited States, in addition to being bound, in common with other people who come within the jurisdiction of the United States, to yield obedience to its laws, are subject to the award of the Paris tribunal. The articles of this award provide for a closed zone of 60 miles around the Pribilof Islands, within which the citizens of both countries are forbidden to kill seals at any time; provide a closed season from May 1 to August 1 each 3' ear, during which the citizens of both nations are prohibited from killing seals in the waters of the north Pacific Ocean, including Bering Sea, north of the thirty-fifth degree of north latitude and east of the one hundred and eightieth meridian of longitude, till it strikes the water boundary between the United States and Russia; forbid tne use of firearms in Bering Sea, and include other minor regulations. Subsequent to the award American citizens were by the act of Decem- ber 29, 1897, denied the privilege accorded by the Paris award, and are now, as I have before indicated, absolutely forbidden to kill any «See vol. 3, Comp. Stat., p. 3003. EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 11 seals at any time in the waters of the north Pacific Ocean or Bering Sea north of the thirty-tifth deoree of north hititude. This prohibi- tion does not, however, ran against Indians dwelling on the coast of the north Pacitic Ocean. So far as I am aware Great Britain is the only nation with which we have any treaty regulating the killing of seals from the Pribilof herd.« The legal situation may therefore be summarized as follows: American citizens, with the exceptions noted, and all others, are prohibited from killing seals in the waters of the north Pacific Ocean, or on any land, or in any of the waters of Alaska su])ject to the juris- diction of the United States. The subjects of Great Britain are prohibited from killing seals at any time within a zone of 60 miles surrounding the Pribilof Islands, and, during the closed season, from the 1st of May to the 1st of August, in those waters of the north Pacific Ocean above described. Citizens of all other nations may, therefore, kill seals at any time and at any place, excepting the land and water areas of Alaska subject to the jurisdiction of the United States. ST. PAUL AND ST. GEORGE A GOVERNMENT RESERVATION. The laws of the United States, for the purpose of protecting the seals on their breeding lookeries, declare the islands of St. Paul and St. George to be a special reservation for Government purposes,* on which no one, not even a citizen of the United States, ma}" land or remain except by the authority of the Secretary of Commerce and Labor, Any person found on either of the islands in violation of these laws is directed to be summarily removed, and it is made the duty of the Secretary of War to carry the direction into eft'ect. For some vears after they were made a Government reservation, the seal rookeries, which are located at widely separated points on the shores of St. George and St. Paul islands, were guarded l>y a detachment of United States soldiers. Since the withdrawal of this military guard the rookeries have been guarded by armed natives designated for that duty by the agent in charge. This guard is maintained each year dur- ing the period when the seals are present on the rookeries, and was being maintained at the time of the raids in July. The laws also prohibit the killing of any seals within the limits of Alaska or the waters thereof, and make it a separate offense to kill any seals in the waters adjacent to St. Paul or St. George, or on the beach, cliffs, or rocks of those islands, where they haul up from the sea to remain. Other provisions expressly prohibit the killing of female seals, and make it an offense to kill any seals at any time by « For terms of a modus vivendi with Russia respecting killing on the Asiatic side of the Pacitic, see 28 Stat., 1202. b R. S., 1959. Also sec. 176, act of March 3, 1899, 30 Stat., 1280. 12 REPORT ON THE ALASKAN FUR-SEAL FISHERIES, the use of tirearms or by other means tending- to driv^e them away from the ishinds. The penalties for violations of these laws include fines rano-ing- from $200 to $1,000 or imprisonment, or both fine and imprisonment, for each offense. Provision is also made for the for- feiture of vessels whose crews are found violating- the laws. SUPERVISION AND CONTROL OF THE FUR-SEAL FISHERIES. The law vests the supervision and control of the fur-seal fisheries in the Secretary of Commerce and Labor, and authorizes him to make all needful regulations to carry into full efl'ect all of its provisions. The management and supervision of the seal fisheries on the islands are exercised through agents which he is autliori/.ed to appoint, and who are charged with the performance of such duties as may l)e assigned to them by him. Existing- reguhitions promulgated by the Secretary of Commerce and Lal)or advise the agents that the only persons entitled to land on the islands are (jovernment officers, representatives and employees of the North American Commercial Compan}^, and duly accredited rep- resentatives of the Russian C'hurch, and authorize the agents to remove persons who endanger the peace and good government of the inhabit- ants of the islands. The reguhitions also authorize the employment of the natives in guarding the rookeries, and instruct the agents to take such action as sound judgment directs, in case of emergency. At the time of the raids on St. Paul dur-ing the past summer the affairs of the island were in charg^e of Mr. W. 1. Lembkey, chief agent, and Mr. James Judge, assistant agent. OPERATIONS OF THE JAPANESE FLEET. SEALS KILLED CLOSE TO THE PKIBILOF ISLANDS. The -Japanese pelagic sealing fleet which operated in Bering Sea during the summer consisted of at least K! vessels, each of which carried a crew of about 30 men, and from 5 to 7 small boats for sealing. It is evident from the number of vessels sighted from the islands that the entire fleet operated exclusively in the waters sur- rounding- the islands, and on many occasions killed seals within the 3-mile limit. The seals which breed on these islands have been un- disturbed in the waters surrounding- them for many years, and they undoubtedly fell an easy prey to this unexpected onslaught. In view of this fact, and in view of the further fact that large numbers of breeding- females are continually passing from the islands to the feed- ing grounds about 150 miles southwest, and from there back to the islands, the seal herd has without doubt suffered a heavier blow as the result of the operations of this fleet during the past season than has been administered to it for many years past. KEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 13 Wholly aside from the fact that this fleet of vessels engaged in pelagic sealing at the very doors of a reservation which has been set aside by this Government for breeding purposes, the crews of some of the vessels engaged in a series of high-handed and outrageous depre- dations within the land and water territory of the United States which included repeated violations of express provisions of its laws. They used shotguns to kill seals in the water, and used cannon, probably for signaling. The reports of shotgun tiring and the boom of cannon, which were continuallv heard on the shore nearly all of two days, were so close as to disturb injuriously the rookeries. The crews killed seals in the water close to the shore, easily within the 3-mile limit, and landed on St. Paul Island. They killed seals on land, 1»5 per cent of which were females. At the time of these depredations the entire armament of the 38 men over '21 years of age on St. Paul Island con- sisted of 12 rifles. On the other hand, each schooner prol)ably carried a crew of more than 30 men. If the 1 schooners which were seen hovering around the islands on these days, and which were undoubt- edly acting in concert, had united their crews in a i-aid. they could have mustered a force of upward of 120 men. AGENTS POWERLESS UNTIL POACHERS LANDED. Without water craft the Government agents w^ere unable to do any- thing to stop the poachers from killing seals in the water, using fire- arras, and engaging in other unlawful operations within the 3-mile limit. It was only when the crews of the schooners landed, or attempted to land, on the islands that they were able to make arrests, and those of the Japanese who were killed belonged to parties w^hich were caught red-handed and were attempting to escape arrest. I have made the foregoing general statements at this point in order that you may appreciate the excitement and apprehension under which the residents of the island were laboring, and the courage the}' dis- plaj^ed when the crews of the schooners actually landed and attempted to transfer the scene of their depredations from the waters surround- ing the island to the island itself. A more detailed account of the raids on the rookeries on St. Paul Island, Jul}' 16 and IT, is as follows: LANDING OF JAPANESE POACHERS ON ST. PAUL ISLAND, JULY 16. About 9 o'clock on the morning of July 16 the native watchmen at Northeast Point, St. Paul Island, reported a schooner, about 2 miles out, sailing toward the shore. Upon the receipt of this information Chief Agent W. 1. Lembkey and Assistant Agent elames Judge, each accompanied by three or four natives, proceeded to a point on the shore from which the schooner could be seen. These agents and their parties then separated and concealed themselves at points where land- ings were feasible close to two of the principal breeding areas, and 14 REPORT ON THE ALA8KAN FUR-SEAL FISHERIES. about half a mile from each other. The schooner, which was easily seen by these parties, continued to cruise parallel with the shore at a distance of about 2 miles out until 10.30 a. m., when a small l)oat put off and approached within a half mile of the shore. This movement was evidently for the purpose of locating the seal rooker}^, for upon discovering- that there were no seals at that par ticular place the boat returned to the schooner and was taken about a mile farther on to a point opposite the breeding areas under Hutchin- son Hill, Avhere it again put off from the schooner and headed for the shore. The boat shortl}^ afterwards made a landing about 200 yards east of the large-;t breeding area on the island — that located under Hutchinson Hill — and a crew of six Japanese disembarked, pulled up the boat, and proceeded to cross the beach to the grassy plateau beyond. A few yards from the water's edge they were surprised by Chief Agent Lembkey and the native guard under his command, and in com- pliance with his order threw up their hands without resistance. In reply to an inquiry, one of the landing party, who spoke some English, stated to Mr. Lembkey that they had come ashore for water. It was obvious, however, after investigating the contents of the boat, that this statement was untrue. The only receptacle capable of containing water carried by the boat was a 5-gallon cask, which was full of fresh water. On the other hand, it was manifest from the presence of seal- ing clubs, skinning knives, and other paraphernalia for taking seals on land that the purpose of their visit was to raid the rookery. The men were accordingly placed in charge of a native guard and later in the day were taken to the village 12 miles distant on the other end of the island. The party effecting this capture consisted of Chief Agent Lembkey and three or four natives. The only arms of the Govern- ment agent's force were two riffes carried by the natives. The boat in which the raiders landed was taivcn charge of b}" the Government agents and is now in their keeping. It is of the Otter boat type, about 18 feet long, and, in addition to carrying six oars, was equipped with a mainsail and jib. The boat and its equipment is typical of the small boats usually cari-ied by the schooners engaged in pelagic sealing. The oars were muffled and the rowlocks wound with rope which was greased with tallow, so that the boat might be pro- pelled through the water without noise. The oars were fastened to the boat so that when suddenl}^ dropped they would not float away, and in front of each seat on both sides of the boat and within easy reach of the oarsmen was a canvas knife shield. The boat was also provided with a gun rack. When captured, it contained six sealing- clubs, two skinning knives, a compass, a cask full of fresh water, some ship's biscuits, a short sealing club for killing seals in the water, and bamboo poles with iron hooks for hauling them aboard. REPORT ON THE ALASKAN FUR-SEAL FISHERIES, 15 The seal rookeries at Northeast Point, where the raid was attempted, are the largest and most extensive on the island. A conservative esti- mate, based upon an actual count of seals on certain portions, places the total number of seals on these particular rookeries at the time of the attempted raid at 30,000. Of these 15,000 were females. During- the remainder of the day the schooner from which the boat put off continued to cruise around Northeast Point, sometimes close in shore and at other times farther out, but easily within the 3-mile limit many times. Upon my arrival at St, Paul Island, July 20, I examined, through an interpreter, the men captured as above described. They at that time stated that the name of the schooner from which they came was the Dai Ni Toyai Mam., i. e., Toyai Maru No. "2; that she carried a crew of 32 men, and had sailed from Hakodate, Japan, Ma\^ 20, 1906. They stated that she was not a pelagic sealer, and denied that she was one of a regular Japanese sealing fleet, but admitted that since entering Bering Sea she had spoken two or three other Japanese schooners, among which they named the Boso Maru. OTHER SCHOONERS SIGHTED JULY 16. At about the same time the Toyai Maru No. '2 was discovered off Northeast Point on the morning of July 16, another schooner was sighted at the south end of the island. She cruised off' the southwest part of the island within the territorial waters of the United States for about two hours. Reef rookery, the second largest breeding rookery on the island, is located at this point. No attempt was made to land, however, and the vessel finally disappeared in a fog to the southward. About 3 o'clock in the afternoon of the same day still another schooner was sighted cruising off' Halfway Point, which is on the south side of the island and about midway between the points where the other schooners were seen, A native guard was placed at this point for the night, but the vessel, which was about 1 mile from shore, was soon obscured b}^ the fog. Lukanin and Polovina rookeries are situated a short distance from where the schooner was seen. The reports of small arms and the boom of cannon tired a short distance from shore were heard on different parts of the island during the day. JAPANESE POACHERS KILLED BY NATIVE GUARD JULY 17, About 8 o'clock on the morning of July 17 the native guard at Northeast Point heard the report of shotguns, which were evidently being ffred at seals in the water a short distance from shore. The guards could not see more than a few 3'ards owing to a dense fog, and at that time were unable to make out an}" boats. One of the guards went inland to report to Agent" Lembkey at the watch house, and the 16 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. two reiiiaiiiing, Michael Kozloff and John Fratis, proceeded to a point on the shore opposite the tiring- and, concealing themselves, awaited developments. About iialf an hour later, during- whicH time the shot- gun firing on the water continued at irreg-ular intervals, the guards discovered three boats a short distance out headed for the shore. The one closest in contained three Japanese, one of whom occupied a position in the bow with a shotgun in his hands. After the occupants of the foremost boat had lowered the sails, and just as they were about to land on the beach, the two watchmen, who had remained concealed, appeared on the scene and shouted, ''Hands up!'*" The men in the boat instead of complying with this conmiand hurriedl}^ turned about and commenced to row the boat away from the shore. Guard Kozloff, who was in charge, motioned with his hands and called to them to come ashore, and when the boat continued on her way three rifle shots were fired in the water close to her. She^ did not stop, however, and the guards a few seconds later fired six shots in I'apid succession directly at the boat. Following this shoot- ing the men ceased to row and dropped into the bottom of the boat, and the boat slowly drifted in tow^ard shore. The two other boats had in the meantime disappeared in the fog. Chief Agent Lembkev, who arrived on the scene shortly after the shooting, recovered the boat and it was hauled up on the beach. Two of its occupants were dead and the other was suffering from a wound in the shoulder. The boat was of the .same type and equipment as tiie one captured the day before. Among other things it contained a quantity of food, fresh water, 2 loaded shotguns, and 146 loaded and 9 empty shells. Most of the loaded shells were charged with buckshot, although on subsequent examination some were found to contain a heavy lead slug like a rifle bullet. The shotguns showed evidence of having been recently fired. The boat also contained a seal which apparently had been killed with a charge of buckshot a short time before. I learned from the wourlded prisoner, whom I interviewed upon my arrival at the island, that the bo;it was not from the schooner whose boat had been captured the day previous, but was from another schooner— the Mei Maru. The prisoner further stated that the schooner carried a crew of 30 men, and had sailed from Hakodate, Japan, May 23, 1906. At the time the Japanese attempted to land, and when the shooting occurred as above described, the entire force on guard at that point consisted of two natives, each armed with a rifle. POACHERS OFF ZAPADNI ROOKERY FIRED ON. At Zapadni rookery, which is about 12 miles from Northeast Point, where the events just described took place, shotgun firing close inshore was heard at frequent intervals during the da}', and undoubtedly a EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 17 larg-e number of seals were killed in the water. These operations were carried on under the protection of a dense fog, and it was not until 3 o'clock in the afternoon, when it lifted, that the native guard discovered three boats a short distance from shore. The boats con- tained about 18 men and were headed for land. The guards, two in number, who were evidently excited over the shooting which had been going on around them and who l)eliev'ed that the force, which greatly outnumbered them, was about to land and raid the rookery, opened tire without delay. The boats immediately pulled out of sight, and it is not known whether an}^ of the marauders were injured. POACHERS LAND AND KILL SEALS. Notwithstanding the capture of the boat on the morning of Tuesday Jul}' 17, the reports of shotguns evidently tired at seals in the water, were heard oti' different parts of Northeast Point almost incessantly during the da3\ The boom of cannon, proliably used for the purpose of signaling in the fog, was also heard at frequent intervals. The widely separated points at which these shots were heard indicates that several boats were thus engaged. A dense fog which hung over the island partially lifted about 8 o'clock p. m., and disclosed a schooner riding at anchor less than 300 yards from the breeding rookery on the west side of Northeast Point. Although the watchmen failed to dis- cover it, owing to the fog, 18 or 20 men had landed and were at that time killing seals on the rookery close to the water at a point where their operations could not be seen farther inland. The presence of the schooner was immediately reported to the watch- house, and Chief Agent Lembkey and Assistant Agent Judge, at the head of a force of about fifteen natives, hurried to the scene. In the meantime the raiders, who had evidently been warned of the approa(;h of the native guai'd by an outpost, hurriedly collected the sealskins already taken and embarked in their boats, and when the guard arrived at the shore they were alreadj^ a few 3^ards off and rowing for the schooner. Upon their refusing to come ashore, in compliance with an order given b}^ the Government agents, the native guard was directed to fire. This fire was returned from the deck of the schooner, but no one of the island guard was injured. The boats soon came to a stop and the order was given to cease firing. The raiding force consisted of a flotilla of five small boats contain- ing about 20 men. It appears that two of the boats were being used to carry away skins. The force under the Government agents consisted of 15 natives, only 6 of whom were armed. As the boats drew in shore and it became apparent that the raiders outnumbered the native force, Agent Judge concluded that it would be dangerous to attempt to capture the entire party with a force armed with only six rifles. In consequence of this the crew of only one of H.Doc. 251, 59— 2 2 18 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. the small boats were allowed to land, and the remaining boats were motioned ofi' and returned to the schooner, which still remained at anchor a short distance from shore. Had the devastation which the raiders had wrought on the rookery been known at this time, none of the boats would have been permitted to return to the schooner. The boat which was compelled to return to shore contained six men, one of whom was dead and one wounded. The body of one man, who had evidently fallen overl)oard when he was shot, floated off and was not picked up by the boats. It is believed that the body of a third was thrown overboard when the boats reached the schooner. The boats of the raiding flotilla were of the same general character as those previously captured and which I have heretofore described in detail. METHODS OF RAIDERS OUTRAGEOUS AND CRUEL. Upon making an examination of the rookeries at the point where the small boats were first seen, the Government agents discovered that the raiders had practically wiped out of existence one section of a breeding rookery. More than 183 seals had been killed. Of this number, 120 had been skinned and the skins loaded into the boats, which had unwittingly been permitted to return to the schooner. It was apparent that the raiders had been frightened away in the midst of their raid, because 63 dead and wounded seals, some partially skinned and others untouched, were found. That part of the rookery which was raided was what is known as a breeding rooker}' and was occu- pied by several hundred female seals, new-born seal pups, and a few breeding bulls. Bachelor or young male seals do not frequent these breeding grounds. All of the seals killed, with the exception of two, were females. When it is remembered that the killing of female seals is universally condemned, was prohibited by the Russians as early as 1835, and has never been permitted by this Government, the fact that over 95 per cent of the seals killed on the island by the marauders were females stands out as especially malevolent. The raid was not only in violation of law, but the method of killing proceeded along the most cruel and inhuman lines. At this season of the year female seals have nursing pups and are also pregnant. Thus the killing of a female results in the loss of three lives to the herd. While an actual count had not been made before I left the island, it is estimated that at least 180 pups died of starvation as a result of the raid. Some of the seals were only stunned and not killed before being skinned. Upon their arrival at the scene shortly after the raid, the Government agents found that some of the 63 seals which had been clubbed by the raiders, and which had been partially skinned, were not yet dead. REPORT ON THE ALASKAN FUR-SEAL FISHERIES. 1^ It also appears that the raiders had been unable to drive away or kill with their clubs some of the larc^e breeding- bulls, which stood their ground in an effort to protect the rookery, and in order to ren- der them harmless the raiders had pounded out their e^^es with sealing clubs. When the Government agents and natives reached the scene these sightless old fellows still maintained their guard of the rookery. These, as well as the other seals which had been maimed bej^ond hope of recovery, were soon put out of misery by the natives. About 20 sealing clubs and 4 sealing knives were found on the rooker}^ after the raid. It appears, therefore, that so far as is definitely known on the islands the occurrences above described resulted in the death of 5 of the raiders, the wounding of !2, and the capture of a total of 12 prisoners, includ- ing those wounded. The prisoners, in compliance with an order of the Government agent, buried their dead on Hutchinson Hill on the afternoon of July 18. The w^ounded were early given medical atten- tion by Dr. F. B. Smith, the physician on the island. On the evening of July 18 a schooner was sighted off Northeast Point, but the Japanese prisoners, who were given an opportunity^ to examine her through the glasses, seemed to be unable to identify her. DISPOSITION OF THE CAPTURED RAIDERS. I arrived at St. Paul Island in company with Hon. George M. Bowers, Commissioner of Fisheries, on the afternoon of JuW 20, 1906, on the revenue cutter McCiillocli^ Capt. J. C. Cantwell commanding. The Government agents and the natives were very anxious to get rid of the prisoners, and they were at once turned over to the McCulloch^ which proceeded to Unalaska. At that place the 10 uninjured men were turned over to the deput}" United States marshal, and the wounded men, who had been placed under the care of Dr, T, B. McClintic, were retained on the cutter. The prisoners were again taken on board the cutter on Jul}" 31 and carried from Unalaska to Kodiak, where a preliminary hearing was had before United States Commissioner Fred D. Kelsey. As a result of this hearing they were held to the grand jury and were turned over to the custody of United States Marshal L. L. Bowers, at Kodiak, for delivery at Valdez. Chief Agent W. I, Lembkey and the native Avitnesses then proceeded to Valdez. I have since been advised that all of the prisoners were indicted by the grand jury at Valdez and, as a result of subsequent proceedings, each of them was sentenced to imprisonment for three months in the Valdez jail. While the punishment meted out to the raiders is hardly commensurate with the outrageous character of their acts, still it must not be forgotten that they were merely seamen who, according to their own statements, went ashore in compliance with the orders of their superior officers. 20 REPOKT ON THE ALASKAN FUR-SEAL FISHERIES. MANY SCHOONERS SIGHTED NEAR ST. PAUL ISLAND. During the week I spent on St. Paul Island schooners were fre- quentl}" seen. On Jul}^ 23 one was sighted cruising about 5 miles to the southeast; on July 24, at 2 p. m., one was seen about the same point, and at 7 o'clock in the evening another was sighted sailing less than 2 miles from shore off the salt house at Northeast Point, which at that time contained 8,700 skins. She was standing in toward shore when sighted, and the regular guard of four natives was doubled. On this day a guard of armed natives was also placed at Zapadni rookery. On July 26 a schooner was seen off Zapadni Point in the morning and another off Northeast Point in the evening. As the McCalloch was leaving the island on the morning of July 27, the fog lifted and disclosed a schooner Ij'ing to about 2 miles froai Walrus Island. The cutter at once gave chase, but the schooner put on all sail and headed for a fog bank, in which she was soon lost to sight and escaped. On the afternoon of the same day the cutter over- hauled another schooner, the ToMwa Marii. She was outside the 3-mile limit, however, and as there was nothing to indicate that she had participated in the recent raids, she was not even spoken by the cutter. Since my return I have been advised that schooners were frequently seen in the vicinity of the islands during August, and that on the 8th of August a watchman on St. Paul Island saw a schooner make a land- ing on Otter Island. At the time I visited Otter Island, in the latter part of July, there were only a few seals there. I am informed, however, that later in the season the number of seals on this island inc;reases and that more than 1,000 seals have been found there on occasions. RAIDS EVIDENTLY PLANNED IN ADVANCE. It is evident that the four schooners seen around St. Paul Island on the days of the raids were acting in concert in pursuance of plans care- fully laid previous to their departure from a Japanese port. At least three of these schooners sailed from the same port in Japan about the same time. They spoke each other after arriving in Bering Sea, and appeared off widel}' separated points of the island about the same time. It is improbable that these coincidences were accidental. GOVERNMENT AGENTS ENTIT[.ED TO CREDIT. Chief Agent W. I. Lembkey and Assistant Agent James Judge are entitled to great credit for the intelligent and courageous way they handled what in my judgment was a dangerous and difficult situation. The native guards also demonstrated that they could be relied on in case of emergency, and are entitled to credit for the splendid support they gave the Government agents. EEPOET ON THE ALASKATST FUR-SEAL FISHERIES. 21 The Russian as well as the American islands have always been looked upon with envious eyes by the pelagic sealers. The Govern- ment ag-ents knew that the year previous the crews of schooners, act- ng in concert, had effected a landing on the Russian seal islands and had held off the armed guard at least two weeks, during which time both sides suffered many casualties and many seals were killed. At the time of the raids the entire male population of 8t. Paul Island, including the two Government agents, the company's repre- sentatives, and all the natives over 21 3^ears of age, was 38. The com- bined crews of the schooners which appeared off' the island greatly outnumbered this force, and had they once gained a foothold there was nothing to prevent their killing an unlimited number of seals, robbing the salt houses, committing other depredations, and sailing away. Knowledge of these facts, coupled with an appreciation of their helplessness and inability to stop the unlawful killing of seals in the water a short distance from shore, undoubtedly^ prompted the Gov- ernment agents to take summary action when the marauders landed and attempted to transfer their operations from the water to the land. Manifestly the situation was one which called for such action. While neither the law nor the regulations in terms direct the agents to use force in protecting the rookeries, their duty and authority so to do is beyond question. They are sent to the islands for the pur- pose, among other things, of enforcing the laws; are supplied with arms and anuuunition, and are authorized to employ the natives in guarding the rookeries. They were familiar with the fact that poach- ing vessels had been seized b}' the agents and revenue cutters on pre- vious occasions, and that on at least one occasion the native guard had fired on the crew of a vessel which attempted to raid the rookeries. The unlawful killing of seals within the territorial waters surround- ing the islands, the landing on St. Paul, and the commission of other depredations, such as those of the past summer, can undoubtedly be prevented by the establishment of an active revenue-cutter patrol. It is imperative, however, if the seals are to be protected on their rookeries, that a closer and more continuous surveillance of the waters surrounding the islands be maintained permanently in the future. CONCLUSIONS AND RECOMMENDATIONS. RECOMMENDATIONS AS TO REVENUE-CUTTER PATROL. The patrol maintained by the vessels of the Revenue-Cutter Service has for a number of years past consisted largely of cruises around the 60-mile zone in Bering Sea. The vessel detailed on this duty does not, under ordinary circumstances, reach the sea until a])out the 1st of August, that being the time vessels of the Canadian fleet are per- mitted, by the terms of the award of the Paris tribunal, to enter those 22 HEPORT ON THE ALASKAN FUE-SEAL FISHERIES. waters. The nominal purpose of the patrol is to prevent the vessels of the Canadian fleet from sealing inside the 60-mile zone. I recom- mend that tliis patrol be reorganized along the following lines. . One of the important provisions of the award is that which forbids the citizens and subjects of Great Britain and the United States to kill, capture, or pursue in Siwy manner whatever, during the season extending each year from the 1st of May to the 31st of July, l)oth inclusive, fur seals on the high seas in the North Pacific Ocean or Bering Sea." At that time the females are heavy with young and the herd is proceeding northward along the Pacific coast and through the Aleutian passes to Bering Sea and the Pribilof Islands. It is a most humane provision and should be strictly enforced. I am convinced, however, from the reports I received while in Alaska, that at -least five or six Canadian schooners failed to bring their operations to a close on the 1st of Ma}^ last. In view of these facts I recommend that a revenue cutter be required to cruise along the coast of Alaska, from the 1st of May until the middle or latter part of June, along the route known to be taken by the seal herd. It is possible to ascertain with a reasonable degree of certainty the general location of the herd at that time of the year. The pelagic sealers know where to find the seals and how to follow them up. The cutter detailed on this patrol should also secure that information and pursue the same course as that pursued by the pelagic sealers — that is, in a general way to follow up the herd. It also developed during the course of my investigation that it is the practice of the vessels of the Canadian fleet to cruise in the waters of the North Pacific Ocean and Bering Sea before the closed season comes to an end, in order that they may be on the ground at the time it opens. It has been persistently reported that some of these vessels do not wait until the season opens before commencing operations. I therefore reconnnend that the vessel which has been engaged in fol- lowing the herd northward along the coast from the 1st of May, cruise around the Aleutian Islands, both outside and inside of Bering Sea, during the month of July. This vessel should then be required to maintain the usual patrol around the confines of the 60-mile zone from the 1st of August until such a time as the vessels of the Canadian fleet cease their operations and leave the sea. From my knowledge of the situation I })elieve it to be entirely pos- sible for one vessel to maintain the patrol :is al)ove outlined. AN ADDITIONAL PATROL SHOULD BE ESTABLISHED. In addition to the foregoing I recommend that a vessel of the Rev- enue-Cutter Service be directed to patrol the waters of Bering Sea in a 3 Comp. Stat., p. 3005, art. 2. EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 23 the vicinity of the Pribilof Inlands continuall^y from the 1st of June to us late in October as the weather permits, or as the pelagic sealing fleet of an}^ nation other than Great Britain is in those waters. This vessel should cruise close to the islands, and should be required to call at each island not less than once every two weeks for the pur- pose of securing from the agent in charge information as to the num- ber and character of vessels sighted from the islands during the time it has been cruising elsewhere. The vessels engaged on the patrol should ])e required not only to cooperate with the chief agent of the seal fisheries, but to transport him to points in Alaska, to the various islands of the Pribilof group, and to comply with such other requests as he ma}^ find it necessary to make in connection with the discharge of his duties. OFFICERS SHOULD MAKE DETAILED REPORTS. The officers of these vessels should also make a detailed annual report to the Secretary of Commerce and Labor. This report should contain information as to the date the patrol is commenced; the course or route of the vessel; the number of days, exclusive of those spent in port, that the vessel was on the patrol; the number of times it called at the seal islands, and the time the patrol came to a close. In view of the fact that one or more vessels of the Revenue-Cutter Service have for j^ears been engaged on the seal patrol, the carrying out of the foregoing recommendations will not entail any considerable additional expense on the Government. RECOMMENDATIONS AS TO STRENGTHENING THE LAWS. The laws for the protection of the seal fisheries are in a very unsatis- f actor}' condition, and in my judgment are insufficient to meet exist- ing conditions. As they now stand they consist of disconnected and w holly unrelated provisions which have been enacted at different times to meet emergencies, and, as some of the later provisions modify or constructiveh' repeal some of the earlier provisions, there is consider- able room for confusion and doubt. It is highly desirable that all of the laws with reference to the seal fisheries be embodied in one com- prehensive act, and that existing provisions be strengthened and sup- plemented in the following important particulars: The law should expressly set aside all of the islands of the Pribilof group avS a special reservation for Government purposes. As it now stands, it in terms includes only the islands of St. Paul and St. George, in consequence of which there is grave doubt as to the status of Otter Island, Walrus Island, and Sea Lion Rock. Thousands of seals fre- quent Sea Lion Rock, and some seasons a considerable number resort to Otter Island. The islands referred to are only a few miles from the island of St. Paul, the largest of the Pribilof group, and it is 24 EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. essential that they be included in all laws enacted for the protection and preservation of the seal herd. It should in terms be declared unlawful for aliens, as well as citizens, either to enter the territorial waters surrounding the islands or to land on the islands themselves without ])ermits so to do from the Secretar}^ of Commerce and Labor, except in cases of stress of weather or for water. Vessels entering the waters for these excepted purposes should, however, be required to approach the islands at the villages and "not attempt to land at isolated portions of St. Paul or 8t. George islands where are located the principal breeding rookeries. Landings on the uninhabited islands of the group should also be prohibited. Those provisions which make it unlawful for any person to kill seals in the water or kill seals by the use of firearms or by any means tend- ing to drive the seals away from the islands, or to kill female seals, should be strengthened and continued in force. No person, of course, except those operating under lease from the Government, should be permitted to kill seals on land. AUTHORITY OF GOVERNMENT AGENTS SHOULD BE EXTENDED. The Government agents on the islands should, under the direction of the Secretary of Commerce and Labor, be charged with the enforce- ment of the law and expressly authorized to use force in carrying its provisions into effect and in protecting the rookeries, including the right to make arrests. Thev should also be expressly authorized to designate, arm, and maintain a native guard to assist them in preserv- ing order, enforcing the law, and in making arrests. The chief agent on the island should be empowered to take action in case of violations of the seal laws similar to that taken by United States commissioners in case of violations of laws of the United States; that is to say, he should be authorized to conduct hearings and bind over to the grand jury, or commit, pending investigation, persons arrested for the violation of those laws. Owing to the isolated situation of the islands it is highly desirable that some person have authority to conduct an ofhcial investigation on the ground where witnesses are available in cases of arrest similar to those which were made during the past summer. The act should also contain a provision making it an offense to attempt to do any of the things declared to be unlawful. The penal- ties for violations of the laws should be more severe, and it should be made the duty of the officers of vessels of the Revenue-Cutter Service and of the Navy to search any vessel found within the territorial waters surrounding the islands. Authority should also be given to seize and forfeit any trespassing vessel found within these waters with seals or sealskins and the para- phernalia for taking or capturing the same. REPOET ON THE ALASKAN FUR-SEAL FISHERIES. 25 LACK OF PROPER ARMS AND AMMUNITION. I also recommend that the Department give early consideration to the matter of placing- at the disposal of the agents on the islands a proper supply of arms and ammunition. Aside from a small brass cannon used for signaling and a few rifles owned by the nativ^es, the entire equipment available for use in protecting the seal rookeries and the villages and salt houses on the islands, consists at the present time of 12 rifles on St. Paul and 6 on St. George. It is obvious that under existing circumstances it would be entirely possible for the combined crews of four or live schooners, such as cruised around the islands during the past summer, or for a crew of pirates, such as that on the Carmencita^ which hovered around the islands last year, to land and not only raid the rookeries but plunder the village and salt houses, where are stored vahiable skins. Unless they are furnished with the proper arms, the handful of people on these islands can not reasonably be expected to successfully guard seal rookeries worth millions of dollars, which the lawless crews of a score of poaching schooners are ever ready to raid. All the world knows that the United States owns the Pribilof Islands, and that in the exercise of its sovereign power and for the purpose of preserving the seal herd which frequents those islands it has enacted laws making it unlawful for any person to land or remain thereon, and all the world should be given to understand in unmistakable terms that vessels which approach within the 3-mile limit do so at their peril. RECOMMENDATIONS AS TO ARMS AND OTHER EQUIPMENT. In view of the foregoing, I urgently recommend that the islands of St. Paul and St. George be equipped with a sufficient number of small cannon to permit the placing of one or more at the various points of landing and in the vicinity of the principal seal rookeries. To avoid all danger of international complications, the cannon supplied may very properly be limited to guns tiring a solid shot and having a maximum range of 3 miles or less. Each island should also be equipped with one or more rapid-fire guns for use in case of an attempt by a landing part}^ to plunder the salt houses or the villages. The supply of rifles and ammunition should also be increased. 1 found on investigation that those interested in pelagic sealing keep themselves well posted on the measures taken b}^ this Government to enforce its laws and regulations and the provisions of treaties with other nations. They are, for instance, not slow, as has been demon- strated by the events of the past summer, to take advantage of the unpro- tected condition of the seal islands. In view of this fact, I believe that if it became known that vessels coming within 3 miles of the Pribilof Islands were liable to be tired upon, pelagic sealers would on all occasions 26 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. give those islands a wide berth. Further than this, it must be remem- bered that the vessels which frequent these waters are engaged at our very doors in a practice forbidden to our own citizens and frowned upon by our laws — that of pelagic sealing. I can see no reason why any special consideration should be shown them. Vessels engaged in legitimate business do not frequent these waters. No one goes there for pleas- ure, and commercial steamers never call, as the islands are more than 60 miles out of their course. It is also highly desirable that the Government agent in charge be furnished with a gasoline launch of sufficient size to permit of the mounting of a light gun. A vessel of this kind would be of material assistance in preventing the crews of poaching schooners from using firearms and killing seals in the water within the 3-mile limit. The agents on St. Paul Island should also be supplied with a team of horses and a light wagon, and the necessar}' equipment for main- taining the same. The native village is located on the southern extremity of the island at distances ranging from 3 to 14 miles from the various rookeries. Without means for rapidly transporting the agents and native guard from the village to these distant rookeries, it is entirely possible for a boat's crew to land and raid a rookery before the Government agents can reach the spot and stop their operations. MILITARY GUARD NOT NECESSARY. I do not believe it is either necessary or desirable to station a marine or military guard on the islands. If the Government agents and native guards are supplied with the necessary arms and ammunition, they will without doubt be able to meet any emergency which may arise. This was conclusively demonstrated by the events of the past summer. DUTIES OF CHIEF AGENT SHOULD BE EXTENDED. I also recommend that the chief agent, at least once each season, visit all of the seal islands, examine into the conditions, and make full report thereof in person to the Secretary of Commerce and Labor at the close of the season. He should also annually investigate and report on the catch of seals bv the coast Indians of Alaska. Under existing conditions it is impossible for the chief agent to do any of these things, and, in the regular course of events, he comes to Wash- ington only every other winter. This is due to the fact that the pres- ent force Consists of but one chief agent and three assistant agents. At least one assistant agent should be added to the force. The nature of the duties of these agents is such that at least two agents should be present on each island during the summer, and at least one agent during the remainder of the time. It is imperative that at least one agent be present continually on St, Paul and one on REPORT ON THE ALASKAN FUR-SEAL FISHERIES. • 27 St. George. Under these circumstances the chief agent, in addition to supervising and managing the fisheries, must discharge the duties of one of the assistant agents. It is therefore impossible for him to properly supervise the work on any island other than the one on which he is located. It is also impossible for him to report to and confer with the Department at Washington each year, which, in my judgment, is essential. I recommend, therefore, that an additional assistant agent be appointed, and that the duties of the chief agent be enlarged as above indicated. KILLING OF SEALS BY COAST INDIANS SHOULD BE REGULATED. Notwithstanding the fact that a large number of seals are killed an- nually by the coast Indians of Alaska, that branch of the sealing industry has received little attention at the hands of the Government. I recom- mend that it be investigated with a view to its regulation and supervi- sion. The Department should be advised of the niethods of killing and the disposition of the skins. In this connection I also suggest that the collectors and deputy collectors of customs in Alaska be directed to report annually in the fall to the Department such infor- mation with reference to the taking of seals as may come into their possession during the year. They should also furnish detailed infor- mation as to all shipments of skins. IMPORTANCE OF PREVIOUS RECOMMENDATIONS AS TO PELAGIC SEALING. In your last annual report you made the following statement and recommendation: "The decrease in seal life on the Pribilof Islands is directly attributable to pelagic sealing, and a strong effort should be made to secure international regulations which will stop it." The existing condition of the seal herd conclusively demonstrates the cor- rectness of your statement and the wisdom of 3"our recommendation. I am convinced, as a result of the stud}- I have given the subject and the investigation made during the past summer, that the total cessation of pelagic sealing is imperative in order to preserve the herd. DECREASE IN SEAL LIFE DUE SOLELY TO PELAGIC SEALING. That the decrease in seal life on the Pribilof Islands is due soleh^ to pelagic sealing can not seriously be questioned. "'Owing to the polyg- amous habit of fur seals," states the report of the eJordan Commis- sion, " the greater part of the male life born is supertluous for breeding purposes. For the 130,000 breeding cows found on the rookeries of St. Paul and 8t. George islands in the season of 1897, 4,418 bulls were adequate, or at least out of fully 10,000 bulls ready and willing to serve harems only this number were able to obtain them. Therefore, only 1 bull in 30 is absoluteh" necessary under present conditions. 28 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. That this limit could be materiall}' lowered without positive danger to the herd is conclusively shown by the history of the Russian herd on Bering- Island, where the observations of the past three years, as detailed by Doctor Stejneger, show that a male fur seal is capable of attending to the wants of between 100 and 200 cows."" There never has been a time since this Government came into con- trol of the herd when there were no idle bulls on the islands. It is nianifest, therefore, that the decrease in the herd is due- to the killing of females, which are taken only by pelagic sealers. The number of idle bulls present on the island is a matter which has alwa3^s been carefully watched. Three years ago, when it became apparent that there was a decrease in idle bulls, the Department established regula- tions whereby 2,000 choice 2 and 3 year old males were selected, branded, and dismissed from the herd for breeding purposes before the company commenced taking its quota for commercial pui"poses. This action was not due to an entire absence of idle bulls, but was taken solel}' because thejiwere decreasing in numbers. Furthermore, the result of the regulation is already apparent, and as soon as the seals thus reserved reach the breeding age the number of idle bulls on the island will have again reached a safe margin. UNNECESSARY AND INEXPEDIENT TO STOP LAND KILLING. Regardless of whether the Government concludes to again lease the sealing privilege oi- to itself conduct the sealing industry, it is mani- fest that the land killing of seals should not be stopped. It is neither necessary nor expedient. It is unnecessary for the reason that there is no abnormal shortage in male seals which are killed on land, and it is not expedient for the reason that if no Alaskan fur-seal skins are secured it will result in the substitution of something else. The two companies which have operated on the islands under lease from the Government have spent thousands of dollars in building up the seal-fur trade. The first company which secured this right was for some years unable to profitably dispose of its annual catch because there was no demand for fur-seal skins. Fur-seal skins are now, and have been for a number of years past, in demand because it is now and has been the fashion to wear them. The fashion controls the demand. With a view to determining the eti'ect of a rational land killing in the event of a total cessation of pelagic sealing, Mr. W. I. Lembkey, agent in charge and an expert in these matters, at my request prepared a table* which I believe is a very conservative estimate of the probable increase in the size of the herd. It is manifef-t from this table that if « Report of Fur-Seal Investigations, 1896-97, pt. 1, p. 119. ^Submitted herewith as Appendix B. REPORT ON THE ALASKAN FUR-SEAL FISHERIES. 29 pelagic sealing is stopped, a limited number of male seals may be killed on the islands each year in increasing numbers without impeding the natural increase of the herd. It is mj' judgment, therefore, in view of the foregoing, that the killing on land should not be stopped, but should be permitted to proceed on a rational basis. REDUCTION OF HERD TO A BREEDING NUCLEUS UNDESIRABLE. The suggestion not infrequently made in recent years that this Gov- ernment authorize the killing of all save a breeding nucleus of a few hundred seals as a means of stopping pelagic sealing is neither sensi- ble nor humane. In the iirst place, if left alone the pelagic sealers will accomplish this result in a very short time; and, in the second place, it would not settle the question. Just as soon as the herd increased to a size sufficient to make land killing permissible and profitable, pelagic sealing would be profitable, and the question would again be an open one, EXPERIMENTS WITH BRANDS AND TAGS SUGGESTED. In this connection permit me to suggest that in my judgment it would be practicable to brand or tag all of the seals born on the islands in the same way that the great herds of cattle which roam the western prairies are branded, and that action of this kind on the part of this Government would reduce the seals to its possession and justify it in protecting them on the high seas. The experience of recent years in annually branding 2,000 young male seals demonstrates: First, that a brand of a permanent nature can be placed on the seal without injury to the animal; and, second, that the branded animals return to the islands from year to year. In view of the foregoing, I recommend that the Department conduct experiments with brands and metal tags. I believe it would be entirely possible to attach to the young seals before the}^ leave the islands metal tags, on which might be stamped the words "Property of the United States." If this tag was uniformly fastened by means of a wire on the same part of the body of the seal, it would leave a mark on the inner side of the skin which would be sufficient to identity it in case the seal was killed, even if the tag had, in the meantime, been removed. STATISTICAL INFORMATION. For your further information I attach hereto, as Appendix A, certain statistical information with reference to the Pribilof fur seal herd, from the time of the discover}' of the Pribilof Islands to date, as follows: Table 1. — Number of seals killed on the Pribilof Islands, Alaska, from 1786 to 1906, inclusive. 30 EEPOET ON THE ALASKAN FUR-SEAL FISHEEIES. Table 2, — Pelagic and land catches from the Pribilof herd from 1868, when the Pribilof Islands came into the possession of the United States, to 1906; the revenue derived by the Government, and the aver- age prices obtained for the skins. Table 3. — Size of the Pribilof herd since its discovery in 1786. Table 4. — Annual quotas allowed lessees of the seal islands and the skins shipped thereunder from 1870 to 1905. Table 5. — Receipts and expenditures in connection with the admin- istration of the fur-seal fisheries. Very respectfully, Edwin W. Sims, Solicitor of the Department of Commerce and Labor. Hon. Victor H. Metcalf, Secretary of Cotrmierca and Labor. APPENDIX A. STATISTICS OF THE PRIBILOF FUR-SEAL HERD FROM THE DISCOVERY OF THE PRIBILOF ISLANDS, 1786, TO 1906, INCLUSIVE. 31 STATISTICS OF THE PRIBILOF FUR-SEAL HERD, 1786-1906. Table 1. — Seals Killed on Pkibilop Islands, Alaska, 1786-1906. [Compiled from the most trustworthy sources obtainable.] St. Paul. St. George. Total killed for both islands. Reserved Year. Gray pups. Bachelors. Total. Gray pups. Bache- \ ^ , , for breeding. 1786-1796 a 417, 758 b 844,890 c 60, 188 c 59, 856 c 52,224 c 50,220 44, 995 c 36,469 c 29, 873 c 25,400 c 30, 100 c 23,250 c 19,700 c 23, 228 e 20,811 c 18,034 16,034 c 16,440 c 16, 412 c 15, 751 c 6,580 6, 590 c 6, 802 / 6, 000 / 6, 000 / 8, 000 / 8,000 / 10, 370 / 11,240 / 11,924 / 13, 637 / 15, 070 / 17, 703 / 14, 650 / 21,450 / 6. 770 / 6, 564 / 6, 725 / 18,035 / 26, 146 1797-1816 1817 c 47,860 c 45, 932 c 40,300 c 39, 700 c 35,750 <-■ 28, 150 c 24,100 c 19,850 c 12,328 c 13,924 e 11,924 <• 10,520 9,245 c 8, 319 c 6,773 c 5,550 c 5,500 (rf) c 4, 778 c 3, 661 c 2 834 1818. .. 1819 1820 1821 . . : 1822 c 2, 700 c 6,000 c 2,500 1823 1824 . 1825 c 24,600 c 23,250 1826 1827 19,700 <■ 18,450 c 17,150 c- 15, 200 c 12,950 c 13,150 '■ 13,200 <■ 12, 700 e 4,052 e 4, 040 e 4, 220 e 4,030 e 5, 230 e 6,000 e 8,000 e 10,060 e 11, 344 '' 12, 782 <■ 12,978 e 15.503 e 17,008 e- 16, 970 e 13,350 e 6, 068 e 6,225 c 10,630 « 15, 690 e 35,261 1828 1829 1830 1831 c 3, 084 t' 3,296 c 3,212 c 3,051 c 2, 528 c 2,550 c 2,580 1832 1833 . 1834 1835 e 3, 9,52 e 2,840 e 2,020 e 1,380 e 230 e 650 e 91 rO e 1,260 e 1, 294 e 2, 632 e 3,428 e 3, 503 e 3, 258 « 3,370 e 3, 350 e 538 e 930 e ] . 250 e 1,700 e 1,400 e 100 e 1,200 e 2, 200 e 2, 6F0 e 5,000 e 5, 350 c 7, 100 e 8,800, e 10,050 e 10,150 e 9, 550 e 12,000 e 13, 750 e 13,600 e 10, 000 « 5, 330 e 5, 295 « 9,380 e 13,996 e 33,861 c 8,000 c 7,750 1836 1837 c 7 000 1838 1839 1840 1841 1842 1843 1844 1845 .'. 1846 1847 1848 1849 1850 1851 1852 1853 1854 a Berg's Chronological History, 1820, cited in Vol. I, Appendix to Case of United States, Paris Tri- bunal of Arbitration, reprint 1895, page 125. See also H. H. Bancroft, Vol. XXVIII, page 193, stating that 41 000 skins were .'■ecnrerl in 1786. '' Elliott's Monograph, reprnt "Seal and Salmon Fisheries," part 3, page 115, gives the number killed from 1797 to 1821 as 1.112,374. after deducting 5,000 annually for skins shipped from the Com- mander Islands. This number of 844,890 is obtained by deducting from the above number the num- ber stated by Veniaminof to have been killed during the years 1817 to 1821. The result probably represents not more than one-half the seals killed during this period, because of the great loss through wastefulness and crude methods of curing skins. <■ Veniaminof, " Notes on Lslands of Unalaska District," part 2, Table" 6, cited in Case of United States, Tribunal of Arbitration at Paris, reprint 1895, page 126. (A photographic copy of this table, taken from original publication, on file in Division of Seal Fisheries, year 1894.) rf Closed season. e Manuscript record of ShisenikofF. (Photographic copy in Division of Seal Fisheries, year 1894.) f Report of H. H. Mclutyre. 1869. (Hou.'e Fx. Doc. No. 36, 41st Cong., 2d sess.) The same figures also occur in Report of British Bering Sea Commissioners, par. 771, reprint 1895, vol. 6, " Proceedings of Paris Tiibuual," page 194. Mclntyre's figures evidently exclude pups killed, and relate appar- ently only to skins .shipped. The figures for the years 1838 to 1841, inclusive, are approximate. 33 H. Doc. 251, 59—2 3 34 EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. Table 1. — Seals Killed on Pribilof Islands, Alaska, 1786-1906 — Continued. St. Paul. St. George. Total killed for both islands. Reserved Year. Gray pups. Bachelors. Total. Gray pups. Bache- lors. Total. for breeding. 1855 a 8,585 1856 a 23, 550 a 21,082 a 31,810 « 22, 000 1857 ) 1868 lt,59 1860 ' 21,590 : 1861 6 29, 699 : 1)S62 1 ft 34,294 b 25, 000 b 26, 000 b 40,01.0 h 42,000 ft 75,000 h 242,000 lSJt)3 1 1864 1 1865 1866 ... .' 1867 1868 ' 1869 .... b 87,000 1870 c 2,800 c 2,877 r f, 191 c 12,514 1 c 15,314 c 77,926 1 c 81,803 (' 76,698 c 81,819 c 76,498 c 81,987 c 93, 242 c ys, 139 '■ 91,215 , (■ 94,960 (• 79, 199 1 c 83, 157 •■ 62, 803 1 c 67, 810 '-■ 83, 313 i c 88, 519 <• 83, 250 1 c 88, 321 c 80, 366 <:■ 84, 779 c 83, 774 ! c 83, 774 c 79,834 1 <-■ 79,8:54 c 60 313 '■ >^'^ '"'5 '■ 1,200 c 2, 090 f 2 000 c 7,25H c 8,459 c 19,067 ' c 21,157 (• % (1(1(1 e OT 00(1 23,773 1871 1872 102, 960 108,819 109. 177 110,585 106, 460 1873 <: 5 489 '■ 2, 190 1 c 25! '^00 i c Ti\ 190 <• 2,446 ; '• 10,000 1 <■ 12,446 <• 1,600 <-■ ID 11(10 1 c 11. .50(1 1874 1 c 4, 897 1875 1 '■ 3 745 1876 ' c 3 958 <■ 1,500 e 1,500 c 1, 500 '• 1,506 '• 1,330 '• 1,031 '•'i,"6o6" c 1,600 c 1,080 c 1, 286 f 1,356 h 978 c 1,071 d 1,104 (• 10,000 c 15,000 c 19.304 .. 20,684 c 12,609 c 20, 258 '^ 19, 978 c 15,214 c 15,073 c 16,064 c 15, 150 c 15,312 c 16,056 c 14, 154 c 5, 035 2,461 2, 502 1 . 896 c 11,600 c 16,500 c 20,804 c 22, 190 c 20, 939 c 21 , 289 c 19, 978 c 16,214 c 16,573 « 16, 144 c 16,436 e 16,668 c- 17, 034 c 15,225 e 6,139 e 2,461 <•■ 2, 502 e 1,896 e 2,972 e 2, 522 e 6, 137 e 2,207 94, 657 81,310 109, 323 110,511 106, 718 105, 063 99,812 79, 509 105,434 105, 024 104,521 105,760 103, 304 102, 617 e 28, 059 e 12, 040 e 7,611 e 7,396 « 16,270 e 14,846 e 30, 654 e 19,200 / 18, 032 g 17,189 h 22,114 h 23,291 h 22, 348 h 20, 126 h 11,724 ./ 15, 138 i 12,886 1877 : t- 5, 007 1S79 c 5 071 1881 1882 ' 1883 ' c 2 982 1884 i c 2 741 c 86, 120 <■• 86,092 c 86, 261 86,915 c 84, 092 c 85,112 c 19,556 9,579 5,009 5, 500 c 88, 861 c 88, 880 c 88,085 c 89, 092 c 86, 270 87, 392 e 21,920 e 9,579 e 5,009 e 5_5I)I» 1KS.T c •! 7nR 1886 ' c 2, 824 1889 1 <: 2*280 1890 1 d 2, 364 1891 1893 13, 2'.I8 e 13.29,S 2! 972 1895 . .. .j 12, 324 24, 517 16, 993 e 12,324 "■ 24, 517 e 16,993 2,522 6,137 2,207 1896 1S97 1898 I 1899 19C0 h 17,033 h 17,960 h 18, 872 h 17,025 li 9, 988 j 13,706 j 11, 186 h 17,033 /« 17, 960 h 18,872 /i 17,025 h 9, ^88 ./• 13,706 j 11,186 h 5,081 h 5 331 h 5,081 A 5, 331 h 3,476 A 3, 101 h 1,736 J 1,432 j 1,700 1901 1902 i '1 3,476 A 3, 101 /» 1, 736 J 1.432 3 1,700 1903 1904 i 2, 054 1905 k 2, 174 1906 2,238 Total 108, 803 1,946,445 2, 508, 414 29, 168 367, 771 518, 596 5, 055, 666 40,413 a See footnote / on page 34. b Report of British Commissioners, Fur-Seal Arbitration, reprint 1895, vol. 6, page 194. These fig- ures agree with those stated in Elliott's Monograph, "Seal and Salmon Fisheries," part 3, page 116, except for the years 1861 and 1862, for each of which Elliott gives 20,000, and tlie year 1867, for which Elliott gives 48",000. The authority of the Britisli commissioners for the latter year is "Allen's North American Pinnipeds," page 398, which was basi'd on a statement of Special Agent Bryant. c "Seal and Salmon Fisheries," vol. 2, pages 273-274. d " Seal and SiUmoii Fisheries," vol. 1, pages 272, 298. « "Report Fur Seal Investigation Commission, 1896-97," part 1, page 207. /Owing to the death of Agent Murray the seals actually killed this year were not reported. The number here given is the company's quota actually shipped. See manuscript report. a The ntnnber actually kiled this year can not be gathered from Agent Morton's report. The number here given was extracted from a table sent by this Department to the State Department in a letter dated January 14, 1905. h Manuscript reports. Division of Seal Fisheries. i Senate Document No. 98, Fiftv-ninth Congress, first session, pages 8-9. j Manuscript report The number for 1905 is inclusive of food killings in the fall of 1905. The number for 1906 is exclusive of food killings in the fall of 1906, which can net be ascertained until the spring of 1907. fc Senate Document No. 98, Fifty-ninth Congress, first session, page 65. EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 85 Table 2. — Pelagic and Land Catches from Pribilop Hekd, Revenue Derived BY Government, and Average Prices Obtained for Skins, from 186S, when THE Pribilof Islands came into the Possession of the United States, to 1906. Year. 1868. 1869- 1870. 1871. 1872. 1873. 1874. 1875. 18:6. 1877. 1878. 1879. 1880. 1881. 1882. 1883. 1884. 1885. 1886. 1887. 1890. 1891 1892. 1893. 1894. 1895. 1896. 1897. 1898. 1899. 1900. 1901. 1902. 1903. 1904. 1905. 1906. Land catch. Pelagic catch. Skins shipped from Pribilof Islands." St. Paul. <• 76, c 74 <■ 74, 89, c- 89, c 8l), c 60 «• 82 c 80, e SO. <-■ 79, e 80; <■ 60, c 85, c 84, c 85, <• 85: '• 85, c 85, 'J 16, li 10, J 4, '' ■">, 1 12, m 12, " 23' o 18, P 15, P 14, 23,040 '' 28,494 '' 30,628 '' 26, 189 '' 29.858 '' 40,814 b 59, 568 '' 46,642 ') 30, 812 b 61,838 '' 56,291 b 43,917 b 24,321 f 28, 552 / 34, 1H8 / 35, 191 f 24,0.50 f 22, .SI 2 / 27, 000 u 29. 006 " 25,320 369,302 I 2,464,248 i 9,311,054. 877, 381 Average price of skins sold. f 82. 40 / 2.40 / 8.50 f 9. 00 / 5. 25 / 8.62 f 13.00 / 14. 00 / 7.80 / 5.10 / 6.30 / 6.75 / 6.50 / 7.00 / 7.70 / 7.80 / 9.75 / 16.25 f 15. 75 / 17. 00 / 12. 50 f 8. 75 / 10. 25 / 8.00 / 6.50 / 6. 50 / 10.25 f 16. 00 / 15.25 / 19.25 / 18. 50 t 19.25 t 27. 35 n The stated number of skin.s shipped will not agree with the corresponding amount of revenue derived, for the reason that in former years the payments of revenue from seal skins were based upon the count of skins by the collector of customs at San FrancLsco, which count varied each year, slightly more or less, from the island count. In later years the island count has been accepted as the basis for jiayment. b •• Report Fnr-Seal Investigation Commission, 1896-97," Pt. I, p. 222. c " Seal and Salmon Fisheries," vol. 1, pp. 261-262. This shows the number of skins on which the annual divisions of natives' earnings were based. d Probably includes .skins taken before the date of the lea.se to the Alaska Commercial Company upon which a revenue of only f 1 per skin was paid. e Official records. Treasury Department. /Pamplilet, " Hearing before Ways and Means Committee, March 9 and 10, 1904," p. 76. 3 "Seal and Salmon Fisheries," vol. 1, p. 258. ft "Seal and Salmon Fisheries," vol. 1, p. 286. 'Of these, 1,231 were "stagey," and were made the subject of a special settlement. ("Seal and Salmon Fisheries," vol. 1, p. 272.) J "Seal and Salmon Fisheries," vol. 1, pp. 349-361. fc "Seal and Salmon Fisheries," vol 1, p. 442. ' "Seal and Salmon Fisheries," vol. 1, p. 471. »n " Seal and Salmon Fisheries," vol. 1, p. 488. n Crowley's manuscript report. o Murray's manuscript report. p Morton's manuscript report. 9 Judge's manuscript report. r Lembkey's manuscript report. s Senate Document No. 98, Fifty-ninth Congre.';s, first session, pp, 33-51. t Computed from catalogue of London trade sales. "Lampson & Co.'s catalogues, London sales of Northwest Coast seal skins for 1904 and 1905. f Senate Document No. 98, Fifty-ninth Congress, first session, pp, 65-66. 36 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. SIZE OF PRIBILOF ISLANDS HERD SINCE THEIR DISCOVERY IN 1786. Precise data as to the size of the entire herd of seals on the Fribilof Islands dui'iiig- the ,years preceding the American occupation is want- ing. No computation of the number in the whole herd is known to have been made. The only known factor of record during this period is the annual 3aeld of skins as contained in the statements of th(^ num- ber of skins annually shipped. The yield of skins from bachelors bears a direct relation to the num- ber of breeding cows, since it is the breeding herd that furnishes the surplus males from which these skins are obtained. It can be under- stood readily that the o-year-old bachelors of to-da}' were the pups of four summers ago, and that, from a knowledge of the number of 3-year-old skins in the present year's catch a fairly approximate idea can be obtained of the number of breeders four years ago — after proper deductions for natural mortalit3^ Precise information, however, as to the character of the skins taken by the Russians is not at hand. It is known that their catches of skins in certain years were composed of gray pups as well as bachelor seals. In years preceding 1835, at least, they took f-emales also. It was the killing of the latter on land, together with other causes, such as an unusual quantity of drift ice on the shores, deterring the gravid females from landing, that is supposed to have reduced the herd to the low-water mark in 1835. As no knowledge is had of the number of skins ol' any given class in the Russian catches it is necessaiy in attempting to compute the whole number of individuals in the herd in former years to proceed upon a somewhat different hypothesis. It may be accepted as an axiom that the Russians under ordinaiy circumstances took as many skins as the herd would afford. There were, of course, certain j^ears in which killing was restricted, such as the few years succeeding 1835, and for those years the catch of bachelors would form no criterion of the whole number. But in the main, accepting the annual catches as indicative of the annual yield, this annual yield would offer a fair idea of the size of the herd, provided some basis of estimation can be estal)lished. .To determine a relation between the catch and the entire herd we would have to seek years in which counts of the whole herd have been made and compare these counts with the catches of bachelors in those 3'^ears. Complete censuses of the whole herd, based on anything lik(> accu- rate counts, were made only during the years 1897, by Doctor Joi'dan, and in 1904 and 1905, by Agent Lembkey. We are obliged to disre- gard those based on acreage measurements made in 1872-1874 and in 1890 by Mr. H. W. Elliott, since this method, in the light of subse- quent investigation, is proven unreliable. The catch of bachelors and the whole estimated number composing the herd in the vears 1897, 1904, and 1905 follows: Year. Bachelors killed. Whole census. Bachelors released. Ratio of catch to whole herd. 1897 20, 766 13, 128 14,368 402, 850 243, 103 223,009 1-20 1 904 1905 2,054 2,174 1-it; 1-14 KEPORT ON THE ALASKAN" FUR-SEAL FISHERIES. 37 In the census made by Doctor Jordan in 1897 the take of skins rep- resents a ratio to the whole herd of about 1 to 20. In that made in 1904, by Agent Lembkey, the ratio of kiUables to the whole herd, including- the 2,051 bachelors branded and released, is 1 to 16, and in 1905, with a similar addition of the bachelors released that year, 1 to 14. In this way a relation is established between the catch and the whole herd upon which a rough estimate may be made of the herd in former years in which onW the catch is known. While it was not known until after this course of procedure had been adopted for the purpose in hand, proper acknowledgment must be made of the fact that this same method of estimation was used by Doctor Jordan in his criticism of Elliott's censuses of 1871 and 1890. As can be seen, a variation exists between the ratios given above. It must be determined, therefore, whether killing in 1897 was as close as in the later years. Doctor Jordan states that in 1897 there were turned awav 15,000 animals too small to kill. (Fur-Seal Investiga- tion Commission, pt. 1, p. 98.) These added to the 20,766 killed would make a total of 35,766 animals driven. The number dismissed, there- fore, was 11 per cent of the whole number driven. In 1901, with 13,128 skins taken, there were 10,1S1 rejections of small seals, or 11 per cent of the whole number driven. (8. Doc. 98, 59th Cong., 1st. sess., p. 13.) In 1905, 9,520 small dismissals occurred (including 3.199 from St. George), with a take of 11,368 skins, or dis- missals of 10 per cent of the whole number driven. (Idem, p. 67.) The percentage of animals killed in those three years is demonstrated to have been practically the same, while the ratios of killed to the whole herd vary from 1 to 20 in 1897 to 1 to 16 in 1901 and 1 to 14 in 1905. This variation must be caused by the differing methods of ap- proximation of the whole herd. Doctor Jordan's estimate of the herd for 1897 is frankly stated to be a mere approximation and is made in round numl^ers. Mr. Lembkey\s estimates for 1904 and 1905 are stated also to be nothing more than cai-eful approximations, but have the advantage of treating with a greatly diminished herd which could be more easily counted and, so far as relates to the bachelor seals, were based on counts of those appearing in the drives which Doctor Jordan did not make. Without any reflection on Doctor Jordan's work, therefore, it is believed that the adoption of the relation of the catch of skins to the whole herd of 1 to 15 — a mean of the ratios of 1904 and 1905 — more nearly represents the actual ratio than 1 to 20. The application of this rule will, of course, give a mere idea of the size of the herd in former years and nothing more. Varying con- ditions of the climate and of the market, differing policies of the managers, and other now unknown factors all contribute to vitiate the accuracy of such a computation. It will, however, give an idea, more or less inexact, of the size of the herd, and this is all that is claimed for it. •38 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. Table 3. — Take of Skins and Approximate Size of Seal Herds, 1786-1906. Year. 1786... 1787... 1788... 1789... 1790... 1791... 1792... 1793... 1794... 1795... 1796... 1797... 1798... 1799... 1800... 1801... 1802... 1803... 1804... 1805... 1806... 1807... 1808... 1809... 1810 .. 1811... 1812... 1813... 1814. . . 1815... 1816... 1817... 1818... 1819... 1820. . . 1821 . . 1822... 1823... 1824... 1825... 1826... 1827... Take of skins. 37, 978 37, 978 37, 978 37, 978 37,978 37,978 37, 978 37, 978 37, 978 37, 978 37, 978 42, 244 42, 244 42, 244 42, 244 42,244 42, 244 42,244 42, 244 42, 244 42, 244 42, 244 42, 244 42, 244 42, 244 42, 244 42, 244 42, 241 42,2i4 42,244 42, 254 60, 188 59, 856 .52, 224 50, 22!) 44, 995 36, 469 29, 873 25, 400 30, 100 23, 250 19, 700 Approxi- mate size of herd. 2, 500, 000 2, 000, 000 («) (") («) («) (a) (a) {«) («) («) («) («) («) (") (") (") (") («) ('0 (") 1,000,000 90^,820 897, 840 788. 360 753,300 674, 925 587. 536 538, 095 418, 500 451 , 500 409,750 355, 500 Year. 1828 1829 1830 1831 1832 1833 lfS34 1835 1836 1837 1838 1839 1840 1841 1842 1843 1844 1845 1S46 1847 1848 1849 1850 1851 1852 1N53 1854 1855 1^56 1>67 1858 1859 I860 1851 1862 1863 1864 1865 1866 1867 1868 1869 Take of skins. 23, 228 20, 811 18,034 16, 034 16, 446 16,412 15, 751 6,580 6,590 6,802 6,000 6,000 8,000 8,000 10, 370 11, 240 11, 924 13, 637 15, 070 17, 703 14,650 21, 450 6,770 6,564 6,726 18,035 26, 146 8, 685 23, .5.50 21, 082 31,810 22, 000 21,590 29, 699 34, 294 25, 000 26, 000 40, 000 42, 000 75, 000 24!, 000 87, 000 Approxi- mate size of herd. 348, 420 312, 165 270,510 240, 510 246, 690 246, 180 236, 265 222, 750 215, 100 207, 030 (f>) w C) (b) C) ('-) (") (f) (&) (b) (") (b) ('') C) (") {b) , 000, OGO Year. 1870. 1871. 1872. 1873. 1874. 1875. 1876. 1877. 1878. 1879. 1880. 1881. 1882. 1883. 1884. 1885. 1886. 1887. 1888. 1889. 1890. 1891. 1892. 1893. 1894. 1895. 1896. 18li7. 1898. 1899. 1900. 1901. i 1902. 1903. 1904. 1905. 1906. Take of skins. 23, 102, 108, 109, 110, 106, 94, 84, 109, 110, 105, 105, 99, 79, 105, 105, 104, 105, 103, 102, 28, 12, 7, 7, 16, 14, 30, 19, 18. 17, 22, 23, 22, 20, n, 15, 12, 773 960 819 177 585 460 657 ^0 323 .511 718 063 812 509 434 024 521 760 304 617 059 040 .511 396 270 846 654 200 032 189 114 291 318 126 724 138 886 Approxi- mate size of herd. 2,000,000 1, 500, 000 900, 000 5, 055, 666 489, 810 402, S50 3.50, 000 350, 000 243,103 223, 009 185,000 a Gradual decrease. 6 Gradual increase. ANALYSIS OF TABLE. The figures of the yearly catche.s are taken from Table i. The catch of skins for 178(3 to 1796 represents a yearly average of the total catch (417,758) given for that period. The application of the ratio of 1 to 15 for these years (1786 to 1706) gives a total herd of only 181), 890. This, of course, is simply al)sui-d. The ratio, at best, is merely an estimate, and the catch stated for these years represents but a fraction of the seals killed. Fi'om a knowledge of all the facts, it is believed that the hei'd, on the discovei-y of tlie islands, embraced at least 2,500,000 animals, and this number is adopted arbitrarily as its measure during the first 3'ears. It is also as arbitrarily reduced to 2,000,000 in the year 1796, as it is believed that at least that reduction occurred. The total catch recorded for the twenty years from 1797 to 1816, both inclusive, is 844,890. an average yearly catch of 42,244. Atl to 15 this w^ould show the whole herd to have been 667,005. From the recognized incompleteness of the figures showing the catch, w'e may assume that the herd was reduced to appi'oximately 1,000,000 animals. In 1817 occurs the first exact figures of the catch for any one year, given by Veniaminof. The application of the ratio of 1 to 15 gives the total stated for this and the succeeding 3'ears to 1821. In 1822, 2,700 young seals were "" reserved for breeding." They have been added to the catch in computing the total yield. EEPOET ON THE ALASKAN FUR-SEAL FISHERIES. 39 In 1823, 6,000 youno- seals were "reserved for breeding," and have been added in computing- the total yield. In 1821, 2,500 young seals were "reserved for breeding," and have been added in computing the total yield. An apparent increase is shown in 1S25. This is undoubtedh^ due solely to the arbitrary method of computation. It means no increase in the herd, but increased activity in taking seals. They probably killed, in this year, some of the seals reserved the preceding three years. The killing in 1826 to 1828 probably represents the normal vield of the herd and reduces the whole number materially from 1825. The period between 1829 and 1834: shows a steady decrease. The apparent fluctuation during this time is the result of more or less close killing. We have in 1831 a measure of the herd previous to the year 1835, when the lowest number is said to have been reached, and when the famous "Zapooski'' was put into effect. It is more probable that the preservative measures in 1835 were adopted as the result of the scarcity of seals observed in 1834. Our methods of computation can construct, at the best, only a series of systematic guesses, but enough of the ele- ments of accuracy are involved to dem.onstrate that the herd was not any nearer (if as near) annihilation in 1831 than it is at present. In 1835, while they took only 6,580 seals, of which, according to Veniaminof's tal)le, the greater number were gray pups, they also "reserved for breeding" 8,vl00 seals. As stringent regulations were adopted this year against the killing of females (Veniaminof) to insure the increase in the herd it is not to l)e believed that these seals reserved for breeders were females, as they would be reserved in any event as a matter of course. They undoubtedly were young killable bachelors, and have been added to the catch to form a basis for computation. In 1836. while 6,590 skins were secured, 7,750 seals were reserved for Ijreeding. In 1837. 6,802 skins were secured and 7,000 seals reserved for breed- ing. The catches for the N-ears 1838 to 1841 are approximations taken from the ta)>le prepared by II. H. Mclntyre. No attempt is made to compute therefrom the whole herd. From 1838 to 1867, owing to the restrictive measures exercised by the Russian managers, no correct idea of the actual yield can be had. We know from Veniaminof that the killing in each year after 1835 was of such moderate nature as to insure a surplus for breeding and an increase in the herd. A scrutiny of the catches during this period would show that the yearly quotas were arbitrarily increased or lowered without regard to the number that could be taken under normal conditions. For this reason an estimate of the herd at a ratio of 1 to 15, based on the annual yields, would be wholly misleading. We can see, however, by the gradually increasing catches, that the herd itself was undergoing a steady aug- mentation. This is shown l)y the fact that in the year 1864 the mana- ger on St. Paul was instructed by the chief manager at Sitka to increase that island's annual catch to 70,000. (Appendix to Case of the United States Fur-Seal Arbitration, No. 31, p. 89.) No authentic record of the catch for that year exists, the estimate made by Elliott showing only 26,000 skins for both islands. The year 186)7 is the last year of the Russian management. The two succeeding years — 1868 and 1869 — cover the so-called "inter- regnum," or the period between the relinquishment of the territory by the Russians and the establishment of a lessee on the seal islands. In 40 KEPORT ON THE ALASKAN FUR-SEAL FISHERIES. the last 3'ear of their tenure the RussiaiLs took 75,()0() skins. (Allen- North American Pinnipeds.) During- the two 3"ears of the interreg num the Americans took 242,000 and 87,000 skins, respectively, iiy averaginiy the catch of these three years, a fair idea of the normal catch might be obtained. By this method the yearly catch would average 135,000, and, at 1 to 15, would represent 2,025,000 animals in the whole herd, which is a fair estimate of its volume at the time of the grantingof the first lease to the Alaska C/Onnnercial Company, in 1870. From 1870 to 1884 it is admitted generally that the herd suffered no apparent decrease, and it is claiuied by some that an actual increase occurred. It is a well-known fact that prior to 1885 the herd would have yielded more skina than the lO) killing on St. Paul was carried on until July 31 (Seal and Salmon Fisheries, vol. 2, p. 2H8), and included all classes of skins down to 4^ poimds. (Report British Bering Sea Commission, ])ars. 830-831, vol. 6: Report I'ai'is Arl)itration, p. 204.) The fact of this uiuisually close killing leaves us no ground on which to compute the actual size of the herd during those years. It is safe to infer, however, that this unwonted activity necessary to secure the annual quota of 100,000 indicates a large falling off' in the herd. In 1890, the first year of the new lease, killing was stopped on Jul}^ 20 bv order of the Government agent (Seal and Salmon Fisheries, vol. ), p. 233) after the taking of 28,059 skins. While not officially of record, it is known that the lessee in 1890 confined killing to 3-yeai'-olds. This is substantiated by the fact that the skins of 1890 sold for $3().50 each (average), while in 1889, owing to the presence of small skins in the catch, they brought on an average onh^ $17 each. REPORT ON THE ALASKAN FUR-SEAL FISHERIES. 41 Had killing in 1890 been continued until the end of the season, and had it been as rigorous as it had been during the preceding four j^ears, it is more than probable that the quota of 60,000 would have been taken. Assuming that 60,000 could have been taken, the aggregate herd at 1 to 15 would have been 900,000. Mr. Elliott's estimate of the herd in 1890, on an acreage basis, was 959,393 "breeding seals and young, without any estimate of nonbreeders." The restrictions imposed on killing by the modus vivendi in 1891 to 1893 and by the regulations of the Department in 1894 and 1895 reduced the catches of those years to a number considerabl}^ below the annual ,yield, and leave us no basis on which to form an estimate of the whole herd. In 1896 the quota was increased by the Department to 30,000, and 30,654 skins were taken. This is probably a fair measure of the yield of the herd at that time. At the ratio of 1 to 15, the whole herd would have been 489,810. In 1897 a complete census of the whole hei"d was made by Doctor Jordan, showing a total of 402,850 lives. The catch of that year was 19,200, which at 1 to 15 would show only 288,000 in the herd, but, in deference to Doctor Jordan, his figures are given. In 1898 and 1899, although the quota allowed each year by the Department was 30,000, only 18,032 and 17,189 skins, respectively, of the grade then taken were secured. In those years they took nothing less than a 6 pound skin. At 1 to 15, this would show the whole herd to have been 270,480 and 257,835. The 1 to 15 ratio, however, was formed on the basis of a 5i-pound minimum weight of skin, and would hardly be applicable to the catches of years in which such small skins were not taken. A conservative estimate would fix the whole number of seals in those years at 350,000. During the years 1900 to 1903 the lessee lowered the standard of skins taken so as to include all 2-year-old skins. Skins as low even as 4^ pounds were taken. Under these circumstances it is impossible to estimate tlie number in the herd by the method heretofore adopted. In 1904, 1905, and 1906 the censuses made by Agent Lembkey are given. Table 4. — Annual Quotas Allowed Lessee of Seal Islands, and Skins Shipped Thereunder, 1 870-1906.^' Year. Quota allowed.') Skins shipped. Year. Quota allowed. 6 Skins Minimum. Maximum. Minimum. Maximum. shipped. 1870 OOOOOOOOOOOOOOOOOOOO OOOOOOOOOOOOOOOOOOOO 6,017 95, 211 99, 941 99, 485 99, 924 99, 687 • 90,000 75, 199 100,000 100, 000 100, 000 99, 905 100, 000 75,000 100, 000 99, 995 100, 000 100, 000 100, 000 100, 000 1890. . 60,000 60, 000 7, .500 7, 500 20, 000 1.5,000 sn nnn 20, 995 13, 482 7 549 1871 1891 1872 1892 1873 1893. 7 425 1874 1894 7, 500 7,500 16 031 1875 1895 1896 1897 1898 15 000 1876 30 000 1877 1.5,000 i 20,000 25,000 1 30,000 25,000 I 30,000 25,000 30,000 25,000 1 30,000 25,000 1 30,000 25,000 30,000 I 15 000 20 766 1878 ■ 18, 032 16,812 22, 470 1879 1899 1900 1901 1902 1903 1880 1881 22 672 1882 22 386 1883 19 292 1884 1904 1905 13 128 1885 15, 000 15, 000 14 368 1886 1906 14, 476 1887 Total . . 1888 2, 135, 248 1889 a The quotrt.s have been obtained from the manuscript records of the Treasury Department and the Department of Commerce and Labor. The statement of skins shipped is taken from Table 2. b From 1870 to 1889 the quota was fixed at 100,000 per annum by section 1962, Revised Statutes (amended by act March 24, 1874, 1 Supp. R. S., p. 6). 42 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. Table 5. -Receipt,s and Expenditures in Connection with the Administration op THE Fur-Seal Fisheries op Alaska. Receipts from royalties on sealskins. Expenses. Year. Salaries and expenses of agents. Supplies to natives. Miscella- neous, a 1868 $242, 000. 00 87, 000. 00 101,080.00 322, 863. 38 307, 181. 12 356, 610. 42 317, 494. 75 317, .584. 00 291,1.55.50 253, 255. 75 3 17, 447. .50 317, 400. 25 317, .594. ,50 316, 886. 76 317,295.25 251,875.00 317,400.25 318, 489. .50 317, 4.52. 76 317, 500. 00 317, .500. 00 317, 500. 00 214, 673. 88 46, 749. 23 23, 972. 60 96,159.82 163, 916. 97 1.53, 376. 00 306, 750. 00 212, 332. 35 184,377.20 224,476.47 229, 755. 75 231,821.20 286, 183. 40 197, 260. 70 131,233.80 146, 912. 80 148,017.10 1869 1870 1871 1872 1873 1874 1875 1876 $2, 7.52. 68 8, 080. 49 10, 892. 50 16, 381. 78 9, .571. 02 4, 248. 09 1.5,263.06 11,090.32 13,811.64 13, 102. 61 7, 937. 49 16,174.13 10, 181. .52 13, 027. 10 10,747.71 16, 396. 83 16,071.33 11,168.27 10, 9.53. 09 10,308.38 11,288.77 9, .591 . 50 14,115.92 14,841.58 11,473.41 5, 336. 26 15,719.95 10, .502. 45 10, 063. 26 7,418.75 J 11,9.50.00 1877 1878 1879 1880 1881 1882 1883 1884 '' $1,336.50 1885 <■ 6, 939. 81 1886 ct 641.04 1887 Ip 1.5,164.34 1888 '/ 41, 000. 31 1889 g 784.51 '1483, 842. 65 1891 ' 790.00 1892 1893 «ii,S37.32 18,319.44 25, .5(i3. 21 14,903.92 15, 005. 00 26, 372. ,56 17,930.94 19, 100. 38 14,9.50.47 22, 44ti. 20 19,686.20 15, 3S4. 45 13,6.51.40 J 19, 500. 00 1895 1897 1899 1901 1902 1903 1904 1905 1906 9,311,054.77 349, 464. 88 254,0.51.49 649,499.16 a There were, in addition, $183,808.62 expended in 1878 to 1888 for " Protection of sea otter and seal fisheries," and $20,940.68 for " Protection of seal and salmon fisheries" in 1892 to 1901. As the latter was expended for salmon fisheries protection entirely, and as the former, while its purpose is now unknown, had little or nothing to do with the seal i.slamis. they are not included in the column of misoellaneous expenses. b E.xpeusc of inspectors of pelagic sealskins, 1895-96. c Building's, seal islands, 1872. dPropusils, li'iiM' seal islands, 1891. estatistics nialivc to fur-seal industry, 1891-1894. /Scieutilic investigations of fur-seal fisheries, 189S-99. ffColIectiHg infiirinatiDn rcsjiectiug fur trade. 1875. Ii Bering Sea awards ainl (■(unmlssion, 1898-99. iCoal houses, seal islands, 1896. j Estimated. APPELNDIX B. PROBABLE INCREASE OF THE PRIBILOF FUR-SEAL HERD IN CASE THERE BE A TOTAL CESSATION OF PELAGIC SEALING AND A RATIONAL LAND KILLING, COMPUTATION BY WALTER L LEMBKEY. Chief Agent in Charge of the Seal Fisheries. 43 PROBABLE INCREASE OF THE PRIBILOF FUR-SEAL HERD IN CASE THERE BE A TOTAL CESSATION OF PELAGIC SEALING AND A RATIONAL LAND KILLING. Department of Commerce and Labor, Alaskan Fur-Seal Fisheries, Washmgton, April m. 1906. Sir: 1 haA^e respectfully to state that 1 have been requested orally to make a computation of the number of fur seals that would be present on the Pribilof Islands during the next few years, proA'ided a total cessation of pelagic sealing were accomplished; also the number of skins that might, under safe management, be taken therefrom for commercial purposes after an ample provision of young males had been made for breeders. In compliance with this request 1 have prepared a series of calcula- tions designed to show the effect of a cessation of pelagic sealing on all classes of animals composing the herd from the present time to 1915, and the number of bulls required during that time at a normal ratio to serve the cows. These calculations are in the form of tables, and consist of the following: Table 1. Number of females present in 1905 and prospective number each year from 1906 to 1915. Table 2. Number of cows to be supplied with bulls each year during this period. Table 3. Number of bulls necessary each year to supply these cows, at an esti- mated normal ratio of 1 to 30. Table 4. Number of bulls which would be present each year should no land kill- ing be allowed. Table 5. Number of bulls present each year, while allowing a rational land killing of bachelors. ONLY AN ESTIMATE. Before entering into details 1 desire to emphasize the fact that these tables are mere estimates, and are submitted as such and nothing more. Prognostications of future events are guesses at best, and are always subject to revision in the light of unforeseen conditions. In the case of the fur seals — animals absent in the vastness of the ocean for half the year, exposed to unknown enemies and unascertained conditions — it is next to impossible to gather enough knowledge of their surround- ings during their period of migration to ari'ive at a correct estimate of their increase or diminution. It is possible only to take such facts as have been ascertained by experience to have application while these animals are on land, and from these to construct an estimate as to their increase, or the contrarv. 45 46 REPORT ON THE ALASKAN FUR-SEAL FISHERIES, DEATH RATE. What the death rate aiiioiio- seals really is, under normal conditions^ is not known. We know what the decrease in seal life has l)een for years past under the combined influences of sea killino- and iiatural mortality, but it is obviously not susceptible of ascertainment what the death rate vvould have been with no pelagic sealino- and had the animals been exposed onl}- to those influences which would prey upon them in an absolute state of nature. By analogy we know that the death rate in large cities in the United States among- human beings is in the neighborhood of 2 per cent. W^e know also that among- seals the death rate must be greater, as their struggle for existence is much more severe, and as they are exposed to the full force of natural conditions not met with by civilized man. We know, further, by the recuperation of the seal herd on the Prib- ilofs after 183.5, and by the history of seal life on Robben Island, the Galapagos Islands, the islands near Cape Horn, and in other localities, that if seals are left undisturbed by man they will increase rapidly until they reach the point of natural equilibrium. From all this we must conclude that the normal death rate is far below the rate of natural increase. The exact measure of that rate, however, remains undetermined. For the purpose of compiling these tables, an arbitrar}- death rate of 10 per cent has been adopted for all seals above the class of new-born pups. While it is assured that the death rate among certain classes, notably adult bulls, must be greater than that among- the young and vigorous bachelors and half bulls, yet it would l)e manifestly impos- sible, in an effort of this kind, to differentiate between the various rates of death in the several classes. An average annual death rate of 10 per cent among seals 1 year of age and over has therefore been adopted, in the belief that it represents a fair average and is yet con- servative enough to relieve the following estimates of any charge that they are in error in allowing- a greater increase than might rationally be expected. DEATH RATE AMONG PUPS. As the result of observations on the islands during a num))er of 3'ears, it is believed that a much greater mortality occurs among new- born pups during their first migration from the islands than among all other classes of seals. This is due to their extreme youth, their imma- turity and lack of previous experience, and their inability at first to seek food in the water. A death rate of .50 per cent among this class, from the time they leave the islands as gray pups until they return the following N-ear as "yearlings," has been allowed by students of the question, and has, accordingly, been used in these computations. BREEDING FEMALES MEASURE THE INCREASE. The number of breeding females in the herd measures its producing capacity. Their increase, therefore, is the most important factor in the replenishing of the rookeries. Heretofore they have been pre^^ed upon by pelagic sealers as well as by their natural enemies, and their destruction, together with that of their young, by these agencies has resulted in the gradual lessening of the herd to its present attenuated REPORT ON THE ALASKAN FUR-SEAL FISHERIES. 4T form. A complete stoppa<^*o of deep-sea killing will relieve the females of their most potent enemy, and an increase in the herd will of necessity occur. In view of their importance, the matter of the increase of the females has been dealt with first. BASIS OF COMPUTATION. The basis of computation is the number of females ascertained, by the best methods obtainable, to be present on the islands in 1905. It must be observed that the female fur seal begins to breed in her second 3'ear, and annually thereafter brings forth one pup. As a barren female is a great rarity on the islands, it is conceded that practically all females above the age of 2 years bear young. Table 1, therefore, is constructed on the hypotheses that a 10 per cent death rate per annum occurs among females 1 3^ear old or over; that all females aboxe 2 years old produce one young annually; that these young are evenly divided as regards sex, and that a mortality of 50 per cent among these j^oung occurs during their tirst migration. NUMBER OF FEMALES IN 1906. In 1905 there were found to be on the islands approximately 78,000 adult breeding cows, 14,000 2-3"ear-old (virgin) cows, 18,000 3'earling cows, and o9,000 new-born female pups. Should pelagic sealing be abolished these animals would appear in 1906 w^ith a loss of 50 per cent among the pups and a 10 per cent loss among the other classae. The 2-3^ear-old cows, having been impreg- nated in 1905 for the first time, would have their first pups in 1906 and be then classed among the breeders. To determine the nund)er of breeding females in 1906, therefore, the 78,000 adult cows and the 14,000 2-year-old cows of 1905 are added together and a 10 per cent reduction made for mortalit}^ from natural causes. This computation gives us 82,800 breeding females for 1906. The 18,000 yearling cows of 1905, after allowing a 10 per cent mor- tality, would return to the i^^lands in 1906 as 2-year-okls to the number of 16,200. The 39,000 female pups of 1905, 'after suflering a 50 per cent mortality in their first migration, would furnish 19,500 yearling females in 1906. As there are 82,800 breeding females in 1906, there would also be the same numlier of pups, of which 41,400 would be females. NUMBER OF FEMALES, 1907 TO 1915. In 1907 the 82,800 adult females of 1906 added to the 16,200 2-year- old cows of that year would, with a 10 per cent mortality, give 89,100 adult cows in 1907. The 19,500 yearling cows of 1906, suffering a 10 per cent mortality, would give 17,550 2-year-old cows in 1907. The 41,400 female pups, after withstanding a mortality of 50 per cent, would give 20,700 yearling cows for 1907. In the year 1907 44,550 female pups would be born. In 1908, by the same methods of computation, allowing the same deductions for mortality, there would exist 95,985 adult cows, 18,630 2-year-old cows, 22,275 yearling cows, and 47,992 female pups. In 1909 there would be present 103,154 adult cows, 20,048 2-3^ear- old cows, 23,996 yearling cows, and 51,577 female pups. 48 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. In 1910 there would be present 110,882 adult cows, 21,596 2-year- old cows. 25,788 vearlinjj' cows, and 55,411 female pups. In 1911 there would be 119,231 adult cows, 23,210 2-year-old cows, 27,720 yearling- cows, and 59,()15 female pups. In 1912 there would be 128,197 adult cows, 24,948 2-year-old cows, 29,807 yearling- cows, and 64,098 female pups. In 1913 there would be 137,831 adult cows, 2«),827 2-year-old cows, 32,049 yearling cows, and 68,915 female pups. In 1914 there would be 148,193 adult cows, 28,845 2-year-old cows, 34,457 yearling cows, and 74,096 female pups. In 1915 there would be 159,335 adult cows, 31,012 2- year-old cows, 37,048 yearling- cows, and 79,667 female pups. B}^ the use of this method it can be seen that the breeding females, when suffering onl}^ from mortality from natural causes, will increase in the ten years covered by the period from 1905 to 1915 from 78,000 to 159,335, a gain of over 100 per cent. Indeed, having in mind the experience of the seals on Robben Island, where, after practical exter- mination in 1853-54, they are stated to have repleted their breeding grounds by 1869, during a period of onl}^ fourteen years of complete rest (Steineger-, Report Fur-Seal Investigation Commission, pt. 4, p. 73), it is believed that the foregoing estimate is too consei'vative to show the actual increase that would occur on the cessation of pelagic sealing. By erring in this matter, however, on the ground of too great conservatism, we at least make sure of the increase here claimed. The number of females to be supplied with bulls in any given year consists of the adult fenralcs, as well as the virgin or 2-year-old cows coming on the rookeries for their initial impregnation. Using the com- putations in Table 1 (p. 58) as a basis, the numbers of females requiring bulls each year during the period in question will be as follows: 1905 92,000 11909 123,202 11913 161,658 1906 99,000 11910 132,478 I 1914 177,038 1907 106,650 1911 142,44111915 190,347 1908 114, 615 I 1912 153,145 1 NUMBER OF BULLS KEQUIUED TO SERVE FEMALES. In the investigations of the Jordan Commission in 1896-97 the num- ber of bulls actually engaged with cows was found to bear the relation to the females of 1 to 30 — that is to say, each bull with cows was found to have on the average 30 cows in his harem. At that time there were thousands of idle and vicious bulls hanging around the mass of breed- ing cows unable to obtain consorts, but watching every chance to oust a harem master and take possession of his harem. An average harem, therefore, of 1 bull to 30 cows is considered a rational and natural allotment. Applying this ratio of 1 bull to 30 cows to the breeding cows which are shown by the foregoing estimate to be present on the islands dur- ing the next ten yeai's the number of bulls to be required for service will be as follows: . 1905 3, 066 1906 3,300 1907 3, 555 1908 3, 820 1909 4,1061 1913 5,488 1910 4,415|l914 5,901 1911 4, 748 1915 6,345 1912 5,104 I EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 49 NUMBER OF BULLS THAT WILL BE PRESENT. It will next be necessary to compute the number of bulls that will be present on the islands during the period in question in the case of an entire cessation of pelagic sealing. Should the latter object be accomplished it would result in a greatly increased number of cows on the islands, and measures would have to be taken to so regulate the killing of bachelors on land as to provide the necessary number of bulls for this additional number of females. It can be shown, however, that these measures can be put into effect without an entire cessation of land killing during any one year. It must be remembered that the effect of a reservation of .young males can not at once be realized in an increase in bulls. A bull must be at least 6 years old — and should be 7 years old — before he can establish a holding on a rookery and act as a fully equipped rookery male. Previous to that time, while it has the capacity to serve females, a male lacks the stamina and courage necessary to hold a position on a rookery against all comers. If, for example, a number of 3-year-oId males should be reserved for breeding purposes in 1906, at least three years, and probabl}^ four years, must elapse before their presence would be noted on the rookeries. The full effect of a reservation of males for breeding, therefore, can not be full}' felt until four years thereafter. The reservation, in 1904, of 1,000 2-year-old bachelors and 1,000 3-year-old bachelors will not be apparent on the rookeries until 1907, when the 1,000 S-^ear-olds released in the year mentioned will appear on the tianks of the breeding herd as B-j^ear-old half bulls. In 1908 they will be full-grown bulls, and those of them that have escaped the effects of pelagic sealing and mortality' from natural causes will in that year be active harem masters. The 2-year-olds, 1,000 in number, reserved in 1904, will be 6-3'ear-olds in 1908, and in the following year (1909) will become full rookery bulls. It is perfectly obvious that this increase can not be expedited by the immunizing from slaughter of a greater number of young males than would be required by the cows. If the herd's entire yield of young males were released in any given year, it would require from three to four years for them to mature, precisely as it would in the case of the reservation of a limited number. The entire yield of a year, if reserved, would result four years thereafter in flooding the rook- eries with a great mass of bulls, only a few of which would be required. The residue would represent merely economic waste, as their presence would be useless to the breeding females and their skins valueless for commercial purposes. They would be a source of danger alike to the herd and to its observers. The same object could be accomplished by the releasing of such number only as would be estimated to be required (with a safe margin for contingencies) and by killing the residue for skins at a time when such skins are commer- ciall}' valuable. In order to ascertain what effect a total cessation of killing on land for a period of ten years would have on the bachelor herd, I have constructed a table showing the approximate number of male seals of all ages, from pups to full-grown bulls, that would frequent the islands from 1905 to 1915, with no land killing whatsoever. H. Doc. 251, 59—2 4 50 EEPORT ON THE ALASKAN EUR-SEAL FISHERIES. It may as well be stated in advance that this table shows beyond doubt the folly of a total cessation of killinj^. While the increase in bulls from bachelors released in 1905 will not be felt until the year 1909, from that time on their numbers would increase so rajudly as to incumber tlio rookeries with thousands of belligerent bulls lor which there would be no cows. ESTIMAT?: OF BULLS WITH STOPPAGE OF LAND KILLING. In 1905 there were 1,899 adult bulls on the rookeries, with 1,535 half bulls between the ages of 4 and 7 3"ears. There were, in addi- tion, approximately 1,980 3-3^ear-olds, 7,200 2-year-olds, 18,896 year- ling bachelors, and 39,000 male new-born pups. The tables of iiicrease in male life are constructed upon this basis. It has been mentioned that an}' reservation of young male life will not reach the rookeries until the expiration of the period necessary for them to grow into adult males. With this understanding, it can be seen that a reservation of 3-vear-olds will not reach the rookeries until 1909. During this interval between 1905 and 1909 the bulls already on the rookeries could look for recruits only from the 1,535 half bulls of 1905 and from the 2,00() bachelors released for breeding purposes in 1904 and 1905 in the proportion of l,0()(i 3-year-olds and 1,(»0»» 2-year- olds in each year. The 3-year-olds of 1904 would reach the full adult stage in 1908, although, as stated, many of them undou))tedly would serve cows in 19o7. From these half bulls, and from the reservations of young males alread}'^ mentioned, we might expect, in the contingency of a cessation of deep-sea killing, to have th.e supply of adult bulls maintained at its present status, but not increased during the interval between 1905 and 1909. While a slight increase in bulls might occur during this interval as the result of the reservations for breeding, it is not wise to hope for more than a maintenance of the herd of ])ulls in its present numbers until 1909. With these preliminary statements it will be necessary to go })ack' to the year 1905 and trace, step by step, the bachelors of that and the succeeding years to their arrival at the stage of breeding bull.'^. Allowing a deduction for natural mortalit}', it can be readily seen that the 3-year-olds of 1905 will be the 4-year-olds of 1906, and so on in the cases of the 2-3'ear-olds, yearlings, and nursing pups. That mortality, as already stated, has been estimated at 10 per cent in the cases of all classes of animals except new-born pups, which are believed to suffer a mortality of 50 per cent during the migration preceding their return to the islands as yearlings. With the application of this death rate, the young males of 1905 would return in 1906 in the following numbers: Bulls 1,899 6-year-old males. . . 5-year-old males. . . 4-year-old males... 1,782 1 -year-old males. .. 19,500 3-year-old males. . . 6, 480 INlale pups 41, 400 2-year-old males. . . 17, 007 The birth I'ate for 1906 was previously determined at 82,800 pups, of which half, or 41,400, would be males. The l)irth rate for each year is added in these tables as it was found to exist in the table of breeding cows. KEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 51 The males of 1906 would appear in 1907 in the following numbers, with the application of the death rate mentioned: Bulls 1, 899 I 4-year-old males. . . 5, 832 1-year-old males. . . 20, 700 6-year-old males. . . [ 3-year-old males 15, 307 Male pups 44, 550 5-year-old males 1, 604 I 2-year-old males 17, 550 In 1908 there would be the following: Bulls 1, 899 i 4-year-old males. . . 13, 777 6-year-old males. . . 1, 444 I 3-year-old males. . . 15, 795 5-year-old males. . . 5, 249 | 2-year-old males. . . 18, 630 We can see that, up to this time, no accessions to the class of breed- ing bulls hav^e been received from the young males released in 1905. The next year (1909) will show the Hrst graduates into the adult male class. l-vear-old males. . . 22, 275 Male pups 47, 992 Bulls, old 1,899 Bulls, new 1,300 6-year-old males 4, 725 5-year-old males. . . 12,400 4-year-old males 14,216 3-vear-old males 16, 767 2-year-old males. . . 20, 048 1-year-old males. . . 23,996 Male pups 51, 577 In the " new bulls " of this year we see the 1,4-14: 6-year-olds of 1908. This is the 3-year-old class of 1905. The 4,725 6-3^ear-olds of this year were the 7,^00 2-}" ear-olds of 1905. From this point on the increase in bulls will be rapid, and so large as to make investigation of the rookeries a serious and dittieult matter. Following is shown the number of males that will be present in 1910: Bulls, old 2,790 Bulls, new 4,253 6-year-old males 11, 160 5-year-old males. . . 12, 795 4-year-old males. . . 15, 091 3-year-old males. .. 18,044 2-year-old males. . . 21, 597 1 -year-old males... 25,788 Male pups 55, 441 In 1911 there will be a much greater increase in breeding bulls, as will be shown bv the followinsf: Bulls, old 6,339 Bulls, new 10,044 6-year-old males 11,516 5-year-old males 13, 582 4-year-old males 16, 240 3-year-old males. . . 19, 438 2-year-old males. . . 23, 210 1 -year-old males... 27,720 Male pups 59, 615 In the new bulls of 1911, we find the new-born pups of 1905, w^hich have come up through successive stages without suffering any loss from land killing. The influx of over 10,000 bulls on the rookeries in one year changes the status of affairs there in that limited time from a practically normal condition to one of a large surplus of adult male life. From now on the increase in males will be all out of proportion to the needs of the herd. The number that will be present in 1912 follows: Bulls, old 14,734 Bulls, new 10,365 6-year-old males ... 12, 224 5-year-old males 14,616 4-vear-old males... 17,495 3-year-old males... 20,889 2-year-old males. . . 24, 948 1-year-old males. . . 29, 807 Male pups 64, 098 As shown by the above figures we have in 1912 over 25,000 bulls. A reference to the table of the increase in cows (Table 1, p. 58) shows that of these only 5,104 would be required. The difference, 20,000, would be a surplus. As these bulls w^ere killable 2-year-olds in 1907, this surplus represents a waste of male life which at once demonstrates the absurdity of a total cessation of killing in 1907. This number of bulls is further increased in the following three years to a number so absolutely out of proportion to the size of the herd of cows as to need no special comment. The surplus in these 52 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. years represents the killable 2-year-olds of 19<)8, 1909, and 1910, respectiveh^ Bulls, old Bulls, nevv 6-year-olcl males . . 5-year-old males . . 4-year-old males . . 1913 •22, 590 10, 002 13, 155 15,746 18, .SOI 1914 30, 233 11, 840 14, 172 16,921 20, 209 1915 38, 600 12, 755 15, 229 IS, 189 21,731 3-year-old males 2-year-old males 1-year-old males Male pups 1913 1914 22, 454 26, 827 32, 049 68, 915 24, 145 28, 845 34, 457 74,096 1915 25, 961 31,012 37,048 79, 667 The result of the suspension of killings on land during the years 1909, 1910, and 1911 is here seen b}' the presence on the rookeries in 1913, 1914, and 1915, respectively, of 32,592, 42,078, and ol,M55 bulls, an estimated proportion of bulls to cows of from 1 to 5 to 1 to 3. In actuality but a small percentage of these bulls will have cows, and the remainder would constitute a dense fringe of savage, idle bulls around the breeding mass, destructive alike to each other and to the cows and an absolute bar to careful enumeration of the herd. TRADE CONDITIONS AN ELEMENT. Unlike gold and gems, there is no intrinsic value in sealskins. Their present value is the result solely of their arbitrary selection by the makers of the world's fashions as the popular and correct fur. The persons who lix these fashions find their livelihood in the sale of the garments which the}^ make popular. It is obvious that no fur will be held popular if it is not produced in sufficient quantity to supply the •demands of the trade and to insure an adequate return for the trouble and expense necessary to place it in general demand. It is also obvious that should the supply of sealskins fail another fur would at once be popularized and the sealskin would be relegated to the class of cheap furs to which at one time it belonged. This contingency would have a direct bearing at once upon both the lessee and the lessor (the Government) of the sealing right. The lessee would be vitally affected by the great decrease in the market or selling price of its skins, in addition to suffering the loss incident to a total stoppage of its profits in the years during which it had no seal- skins to sell. The amount which the lessee now stands obligated to pay the Government for each skin ($10. 22^) is predicated entirely upon a high market value and the maintenance of that value during the period of the lease. To destro}' the supply of sealskins is to de- stroy the high market value which the sealskin now enjoys, and its destruction entails the inability of the lessee to pay the present royalty 'on each skin shipped when killing is resumed and when enough skins are again taken to supply the market. The lessee in this event could afford to ship no skins from the islands, and the Government would lose the amount of its royalties on the skins and be left with the skins on its hands. To prove that sealskins have no intrinsic value and were to be bought in foiTiier years for little or nothing, it is only necessary to state that in 1870, the opening year of the tirst lease, the skins brought only about $5 each. In the sixties they are stated to have brought in China only about 12.50. Their present average market value is about |37. EEPOET ON THE ALASKAN FUR-SEAL FISHERIES. 53 Previous to 1870 the world's suppl}^ of sealskins was precarious and irregular, and the fur occupied a minor position in fashionable use. After the lease in 1870 to the Alaska Commercial Company, by judi- cious manipulation and the assurance of a steady annual yield the fur was standardized as a fashionable article both in Europe and in this country, and has held that position since. TOTAL CESSATION OF LAND KILLING UNNECESSARY. Having shown the lack of wisdom in preserving all the males on the islands during any given period, and the injur}" which will be wrought, by a cessation of killing, to the market for sealskins, affecting alike the lessee and the Government, as well as to the herd itself, it can be demonstrated easily that more than an ample suppl}" of breeding bulls can be allowed the herd with a contemporaneous judicious killing of a certain number of surplus j^oung males. For this purpose another series of computations has been made, using, as heretofore, the num- ber of male seals of all classes found present in 1905, and following then year by year to 1915, allowing, as in former computations, a 50 per cent death rate in new-born pups and a 10 per cent death rate in all other classes of seals. NUMBER OF MALES IN 1905. In 1905, as stated before, there were found 1,980 3-year-old bach- elors, 7.200 2-year-old bachelors, 18,896 yearling bachelors, and 39,000 male pups, in addition to 1,899 bulls and 1,535 half bulls between the ages of 4 and 6 years. The problem is now to allow an ample supply of bulls without cutting off entirely the shipment of skins from the islands. It has been shown that any killable 3-year-olds released in 1905 would not mature into breeding bulls until 1909. 'This is inevitable. No amount of abstention from killing will hasten the maturity of these animals. When the males released in 1905, however, once reach the breeding grounds, they will come in such num- bers as to almost at once overstock the herd with bulls. By antici- pating the volume of this surplus, or, in other words, by ascertaining as near as possible how many more bulls than are necessar}' for the herd would mature from a given year should all be allowed to reach maturity, a safe idea may be obtained of the number that may be killed that 3'ear. NUMBER OF MALES IN 1906. The number of males in 1905, above stated, with no pelagic killing, will bring to the islands in 1906, by the methods of computation out- lined, the following numbers: Bulls . . . . 1,899 Half bulls 6-year-old8 5-vear-olds 4-vear-olds 1,782 3-year-olds 6,480 2-year-olds 17,007 1-year-olds 19,500 Male pups 41,400 The 1,980 3-year-olds of 1905 have passed into 1906 as 1,782 4-vear- olds. The 7,200 2-year-olds of 1905 have passed into 1906 as 6,480 3-year-olds. In view of the deficiency in breeding bulls already exist- ing, all of these 3-year-olds should go untouched by the- club to act in future as breeders. The 18,896 yearlings of 1905 would produce 17,007 54 EEPOET UN THE ALASKAN FUR-SEAL FISHERIES. 2-year-olcls, however, and from these 10,000 safely could be killed for skins, leaving 7,007 surviving-. It must be said, however, that this killino- must be conducted under strict regulation. To insui'e onh^ 2-year-olas being taken, the killings should be under the personal direction of the Government agents, and a prohibition enforced against the shipment from the islands of skins weighing more than 7 pounds or less than 5 pounds. NUMBER OF MALES IN 1907. With this killing of 10,000 2-year-olds in IDOH, and the application of the 10 per cent death rate to the remainder, there would be in 1907 the follow ino-; Bulls 1,889 6- year-olds 5-vear-olds 1 , 604 4-year-olds 5,832 3-year-olds 6,300 2-year-olds 17,550 1 -year-olds 20,000 Male pups 44, 450 Having allowed 6,480 3 -year-old males to escape in 1906 for breeders, which is more than a sufficient number to be released each year, it is practicable to kill, in 1907, from the 6,300 3-year-olds of that year, 2,500, leaving 3,800 to serve as breeders. This can be accomplished by the adoption of a regulation prohibiting the shipment from the islands of skins weighing over 8i pounds. From the 17,550 2-year-olds, 10,000 can safely be killed, leaving 7,650 to represent the 3-year-old class the following year. NUMBER OF MALES IN 1908. With the killing of 10,000 2-year-olds and 2,500 3-year-olds in 1907, the number that would appear in 1908 would be as follows: 4-year-olds 3, 420 3-year-olds 6, 750 5-year-olds 5, 249 2-year-olds 18, 630 From the 3-year-olds of this year 2,500 could be killed, leaving 4,250 to mature. From the 2-vear-olds 10,000 could be taken, leaving 8,630, a total killing of 12,500 'skins. NUMBER OF MALES IN 1909. Bulls 1,889 6-year-olds 1,444 1-vear-olds 22,225 Male pups 47,992 There would appear in 1909 the following males: Bulls, old 1, 889 I 5-year-olds 3, 078 Bulls, new 1, 300 4-year-olds 3, 725 2-year-olds 20,003 1 -year-olds 23,996 Male pups 51,577 6-year-olds 4, 725 \ 3-year-olds 7, 767 We see here the first accession of bulls from the 3 -year-olds remain- ing at the close of the season of 1905. The seals released under the first year of the so-called "new regulations," together with the stop- page of sea killing, are looked upon to at least preserve the herd of bulls without decrease. We have also in this year a splendid class of over 4,000 6-year-olds that will serve cows wherever they can obtain them. From the 3-year-olds of this 3'ear 2,500 can safel}' be killed, leaving 6,267 to pass this stage for breeders. From the 20,000 2-year-olds 11,000 may be killed, leaving 9,000 for the 3-ye;u--old class of the ye&.v following. This makes a total killing for this 3'ear of 13,500, an increase over the preceding year of 1,000. REPORT ON THE ALASKAN FUR-SEAL FISHERIES. 55 NUMBER OF MALES IN 1910. In 1010 we would have the followino': Bulls, old 2,790 Bulls, new 4,253 6-year-olds 2,771 5-year-olds 3,353 j 2-year-olds 21,597 4-year-olds 4,741 1 1-year-olds 25,788 3-year-olds 8,103 | Male pups 55,441 We have here an accession of over 4,000 bulls in one year. These are the 3-,y ear-olds of 1906. In this one year the number of bulls received are sufficient to place the rookeries at once in a stable and norn)al condition as regards the proportion of bulls to cows. From this time on, with rational management of the killing on land and the continued abstention from sea killing, no scarcity of bulls will be encountered. From the 8,100 3-year-olds present this year 3,500 may safely be killed, an increase of 1,000 in this class of skins over the preceding year. From the 21,500 2-year-olds 12,500 may be killed, an increase over the preceding vear of 1,500. This would allow^ a total killing of 16,000. NUMBER OF MALES IN 1911. In 1911 the number of male seals present on the islands would be as follows: Bulls, old 6,339 Bulls, new 2,494 6-year-olds 3,018 5-year-olds 4, 267 I 2-year-olds 23,210 4-year-olds 4, 143 ! 1-year-olds 27, 720 3-year-olds 8, 188 i Male pups 59, 615 In this year we w^ould have a surplus of 4,000 adult bulls above the number necessaiy to fertilize the cows at a normal ratio of 1 to 30. From the 8,000 3-year-olds we could kill 3,500, the same as in the pre- ceding year. From the 23,210 2-3^ear-olds we could kill 13,000, an increase of 500 over the previous j^ear. The quota of skins for this year would be 16,500. NUMBER OF MALES IN 1912. In 1912 the following number of seals would appear: Bulls, old 7, 950 Bulls, new 2,717 6-year-olds 3,841 5-vear-olds 3,729 4-year-olds 4,220 3-year-olds 9,189 2-vear-olds 24,948 1 -year-olds 29,807 Male pups 64, 098 From the 9,189 3-3^ear-olds of this j^ear we could afford to kill 4,000, an increase in this class of skins of 5u0 over the preceding 3"ear, while from the 24,948 2-year-olds we w^ould be justitied in killing 14,000, an inci'ease of l.OOO ykins of this class ovei' 1911. and a total quota of skins of 18,000. NUMBER OF MALES IN 1913. The number of seals which would appear in 1913 under this arrange- ment of killintir would be as follows: Bulls, old 9,601 Bulls, new .... 3, 457 6-year-olds 3,357 5-year-olds 3, 798 , 2-vear-olds 26, 827 4-year-olds 4, 671 [ 1-year-olds 32,049 3-year-olds 8, 854 j Male pups 68, 915 From these 3-3"ear-olds 4,000 could be killed, as in the preceding- year. From the 26,827 2-year-olds, however, 15,000 skins may be taken, an increase of 1,000 over the preceding vear, and a total quota of skins of 19,000. 56 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. NUMBER OF MALES IN 1914. 5-year-ol(ls 4,204 4-vear-olds 3,369 3-vear-olds 10,045 2-year-olds 28,845 1-year-olds 34,457 Male pups 74, 096 There, would appear in 11)14 the following number of male seals: Bulls, old 11,753 Bulls, new 3,022 6-year-olds 3,419 The killino^ of 8-year-olds in this year can be increased from 4,000 to 4,500, while that of tiie 2-year-olds can be raised to 16,500, an increase of 1,500. giving- a total quota of skins of i^l,000, NUMBER OF MALES IN 1915. In 1915, the last year covered by this computation, there would appear on the islands the following number of male seals: 5-year-olds 3, 0;33 4-year-olds 5, 531 3-year-olds 11,111 2-year-olds 31,012 1-year-olds :^.7, 048 IVIale pups 79, 667 Bulls, old 13,568 Bulls, new 3,078 6-year-olds 3,784 These final tigui'es show that, with a gradually increasing annual catch of l)achelors in the last ten 3'earS, during which a total of 16:4, OOO skins would have been taken, the number of active bulls on the islands would be raised to 16,646, of which only 6,800 would be required at the ratio of 1 to 30. This would demonstrate the futility of any abso- lute suspension of killing, and shows that with proper management enough skins can be taken to net a profit both to the Government and the lessee, while the herd at the same time can be supplied with thou- sands of bulls more than are necessary. The management of killing* along the lines indicated and the selection of the various classes of seals for killing are mere matters of detail and can be accomplished without ditticulty or friction. RATE OF INCREASE CONSERVATIVE. While the rate of increase shown by these computations insures a steady gain in the herd in the ten years in question, it is conservative enough to lead to the belief that, with pelagic sealing done away with, an even greater increase will be found. The history of Robben Island, in the Okhotsk Sea, shows that in the fourteen years from 1855 to 1869 that rookery, after practically having been wiped out In* raiders, had reestablished itself in its original numbers, (Stejneger, Report Fur- Seal Investigation Commission, pt. 4, p. 73.) During this period it was disturbed neither by land killing of any description nor by pelagic hunters. Our own Pribilof Islands furnish an instance of recuperation of their own, which, though lacking in actual details, is striking enough when one considers the net results. Owing to promiscuous and wanton killing on land in the years following the discovery of the islands, during which females as well as males are said to have been killed, the herd on the Pribilofs was reduced in 1885 to a number which analogy fixes very closely as the number apparent there at the present da3^ After that year (1835), however, closed seasons were enforced, reservations were made of males for breeders, and females were exempted from slaughter — at least by regulation, if not, in all cases, in actual practice. The result of these corrective measures, as shown by the incomplete records left by the Russians, was a gradual EEPORT ON THE ALASKAN FUR-SEAL FISHERIES. 57 increase in the number of skins taken until 1868. In the latter year alone, the first of the American occupation, over 248,000 skins were secured. The Pribilof Island rookeries, therefore, practically increased their numbers to the point of greatest expansion in thirty-three 3'ears under the uncertain management of the Russians. What it will be under rational management, in the light of the knowledge gained since the American occupation, remains to be shown. To sum up, it may be stated that the following main points are not susceptible of controversy: First. That seals will not increase until pelagic sealing is abolished. Second. That on the elimination of pelagic sealing they will increase at a comparatively rapid rate. Third. That during this period of increase, judicious killing of sur- pus bachelors on the islands not only will work no injur}' to tbe herd, but will be a positive benefit in restraining the increase of the non- productive class, the surplus of which will constitute only a detriment and a menace to the breeding females and will add no additional lives to the herd. Respectfully submitted. Walter I. Lembket, Agent in Charge of the Seal Fisheries. Hon, Edwin W. Sims, Solicitor of the Depai'tment of Commerce and Labor. 58 REPORT ON THE ALASKAN FUR-SEAL FISHERIES. H 9 S i ^ be W 3? tf ■-1 CL, «>4 P4 M P< 'C M iz; ^ S A S & P Oh 1 w H « HH -r< H H iC (N GOI> CO r-l ■^ to cooo to r-l t^ Ci iC CO-M -V 1-1 OO'OOOCTi i-Tto'^'oo CO (M CO to -QO[^«> 1 — • ocn »oooo r-(OOiC CO 1-1 ■N —I 04 C^ t^ to TT 30 tOl^ iC ^ 02 [^ ■-■ O OliO co'o'co'.-r 00 CO t^ t35 oooo O ut O lO rH tC. t* lO oooo 00 1-1 1-1 Tf oooo oooo o O (3 0) D

^ ^ c-1 oo t -M 00 CO to ^ Tf to oo'cf 15,2'. 18,1 J 21, 7i 25, 9f 31,0 37,0- 79, 6( coo OJOO CO tH '14, 172 16,921 20, 209 24, 145 28,845 34, 457 74,096 lO o 13, 155 15, 746 18, 8'Jl 22,454 26, 827 32, 049 68,915 ■*o~ 12, 224 14,610 . 17,495 20,889 24,948 29,807 64,098 01-* COTJf coo to'o" 11,516 13,582 16,240 19,438 23,210 27, 720 59,615 oco 11,160 12, 795 15,091 18,044 21, 597 25, 788 55, 441 ic o ^o i^ 00 lo r- .— ' o <-i CO rr Oi r^ t^ -rr z^ ir~ Oi lO ■^ c^T '*" o o co" r-T .— i-H .-1 c^ . lO O lO (N 'Tf Tt^ I-'- Oi CO t^ CI TT tM l> I> '-0 (N OS 1-t lO CO ic X cvi r^ -* (M I'- O O O O rOO iC O lO IX! OO OT lO t-- lO H iC' lO 1> O '^ QOOOOOO T-l O 1-- OS .-I 00 O OlO i) Q a) (U CI* aj d ci d !^ ^ ^ o csoooo oo 3 - '■J^ Ci ^ i^ u* t^ t-^ ^ :3 IT! c3 t>* >. >. t-. >. Ej^^ EEPORT ON THE ALASKAN FUR-SEAIi FISHERIES. 59 1-1 l> oTco 00 CO CO rH rH • (M 00 t^ rH ■* yD Co" CO iC i-H r-T l-^ ctT Oi -* Oi lO lC I^ CO I— I O X: -^ -r lO O^i Tji Ca CO -O 00 ^ O CO" ^^ CO" O" GC Tt<" '^*' <— I C^ CO c^ t^ OCi .-( '^ 1-^ Ol lO iC Ci t- lO (N -^ '-* OOt^ OQCQOO OS CO CO '^ OO" CD" CT 00 iH Oi O OS 00 r* 00 Tt< c^ r-1 GO 'S' o Oi oo i:^ n I-" Cft 00 o CO CO -:?< 0> "^ Cri -* CC t^COGO O O lO ,-H 'Xl -^ 00 ■-' CM r-l O CI i-H tH C^J 1-* to co""^Tr^oo co^o" oT i-H CO rH CO r-^ X T-H f* ic rr" o Oi x> Tf 1-- CO l~- -— lO I— -^ cT CO -rtl" od" i-T 1.0 ic lO GC lO t^ CO '-^ r^ CM I - CI yU O OS i-^ I> O I> l-- _J Oi lO ri* CO* CO* i> o" CO* i-T -f Oi O O O lO CM '^ -r c-1 lO CO --N Oi •rt' CI TT l> ^ CM Oi r-T iC" C O "^O 3D Cf t-^ '-f^CM OOOO O .C O iC' O lO CO GO CO lO l-^ -^ i-H lO CO i^ O ' CM o r-o o 00 --- o o ^ i> Tj* :::> .ct^ i-Tco i-^'oTi-T oocoo oo o o oo ic"go gaaaaa oo oo oo oo oo lOO mm OO OO OO ci'o" 2 SriHSSSS 2 S. o 5 ^ — .~ di (U o c i t. t. i:. " c£ ti oj Cj C) 5WtOiO'<35 =c oi a •g St-! D bj UJ OJ C OJ ^-» > a t~ g (S 0) j3 o ^J -^ 03 >- ■1^ .i, 1 ^S «^ a; O o i i! *j als 3 1- y fe 0) C S M -1^ K' C > a>— p. 43 £■",-. ■"•" '£^ .S 43 OJ - QiO o3r^ -3-— '-' 73 O O FAp '07