ery", and authorizes the establishment of a Pribilof Islands Commission, to work on the problem of the Aleuts who would be put out of work, following enactment of the bill.

Mr. DINGELL. Our first witness this morning is Mr. Thomas L. Kimball, executive director, National Wildlife Federation, an old friend of the committee.

Mr. ROGERS. Mr. Chairman, if the chairman would permit, I would just like to say that unfortunately I have to chair a committee at 10 o'clock, so I cannot be here to hear all of the statements, but I will read them all.

I am very much interested in them, and particularly I am very much interested in porpoises, because I have noticed we have a problem developing there as well.

I think we do have a distinguished list of witnesses here and I regret that I cannot be here.

I want to make this statement, and I am most interested in the legislation.

Mr. DINGELL. Thank you, Mr. Rogers.

Mr. Kimball, we are happy to have you with us.

STATEMENT OF THOMAS L. KIMBALL, EXECUTIVE DIRECTOR, NATIONAL WILDLIFE FEDERATION

Mr. KIMBALL. Mr. Chairman, I might help you recoup some of this time, if I might have my statement inserted in full in the record at this point, and try to recapitulate it.

Mr. DINGELL. Without objection, so ordered.

(The full prepared statement of Mr. Kimball follows:)

STATEMENT OF THOMAS L. KIMBALL, ON BEHALF OF THE NATIONAL WILDLIFE

FEDERATION

Mr. Chairman, I am Thomas L. Kimball, Executive Director of the National Wildlife Federation which has national headquarters at 1412 Sixteenth Street, N.W., here in Washington, D.C.

Ours is a private organization which seeks to attain conservation goals through educational means. The Federation has independent affiliates in all 50 States and the Virgin Islands. These affiliates, in turn, are composed of local groups and individuals who, when combined with associate members and other supporters of the National Wildlife Federation, number an estimated three million persons.

We appreciate the invitation and opportunity to make these comments. The National Wildlife Federation does not support any legislation calling for complete protection by law of all ocean mammals. Since H.R. 6554 is completely unacceptable to the Federation, we will not comment on its specific content. Our opposition is based on the fact that not all ocean mammals need protection if we are to assume that the wildlife resource is to be managed for the use and benefit of man. It seems to me, Mr. Chairman, this Committee and then the Congress must determine whether or not it is in the overall public interest to manage, guide, or manipulate wildlife populations in general or marine mammals in particular in such a manner as to provide the public with the greatest possible variety of uses and benefits obtained from this valuable renewable resource. One alternative to management is to give total protection to all species by Federal law and in so doing preempt the professional wildlife scientists from applying his knowledge and judgments and otherwise exercising his dominion and stewardship over animal populations. The National Wildlife Federation is opposed to such an alternative preferring to support professional wildlife management whose ultimate objective is to maintain maximum variety and optimum numbers of wildlife for the many and varied uses of man--to observe, photograph, study, and to harvest the surplus for food and/or wearing apparel.

At this point, I want to make it perfectly clear that the National Wildlife Federation is not opposed to complete protection of wildlife as a proper management tool. However, and this is the key point, protection is simply one of several techniques used by the professional wildlife biologists. Harvesting of surplus wildlife populations is an equally important management tool if the continuing long-range well being of an animal population is the ultimate objective.

The point I am making, Mr. Chairman, is that any recommendation or decision concerning the proper handling of wildlife should be made within the framework of scientific management based upon factual research data and experience and on the restoratic and maintenance of proper wildlife habitat-not on the basis of emotional, philosophical or moral judgments.

The Federation feels that it is absolutely vital to world wildlife populations that we continue management efforts, as crude as they may be, that are built up on a solid foundation of scientific knowledge about the status and needs of wildlife. If we have inefficient data we all should direct our efforts towards filling in those gaps in our body of knowledge. We need all management tools at our disposal including both protection and harvest to solve the complexities of contemporary wildlife management. To do otherwise, in this enlightened age, would be an abrogation of our responsibilities to the fish and fauna of the world. No matter how much we may desire it, we cannot return to pristine natural conditions of the Stone Age. Modern man, approximately five billion in number, has so disrupted our plant and ecological systems, poisoned and polluted the environment, that the only hope for much of the world's wildlife is for man to utilize his great powers of reason, science, technology and persuasion to overcome or minimize the adverse impact of his own instrustions into the plant and animal ecosystems. The worst disservice we could perform to any form of wildlife would be to abandon the principle of sound management. Because man has so complicated and disrupted the animal habitats there is little semblance of the balance of nature. If populations are not kept at levels that are supported by adequate food supply and by living and breeding space of their natural habitat, they will die of starvation and disease as well as suffering a lack of procreation. In addition, the habitat must provide ample living space, not marginal subsistence, if healthy wildlife populations are to be maintained over extended periods of time. Recovery to a normal balanced population following a starvation dieoff is a slow, inhumane and unnecessary process. In our view, the methods employed in removing surplus populations whether carried out by individuals representing sporting or commercial interests should be left to regulation by professional wildlife management experts as long as control is exercised to protect the basic brood stocks and the harvest is carried out in the most humane manner.

I know that the record will clearly show that the National Wildlife Federation has always vigorously supported legislation designed to completely protect rare and endangered species. Also, the Federation endorses the existing legislation that provides Federal protection to certain species of birds. But again, the decisions that led to this legislation were made on a scientifically sound management basis.

And that is why, Mr. Chairman, the National Wildlife Federation can support H.R. 10420. While that bill contains-at least in our judgment-some deficiencies, it embraces the concept of resource management and sustained yield which is so vital to this issue. Accordingly, the Federation endorses H.R. 10420 subject to the following comments.

Section 2, Findings and Declaration, is a good statement. We especially endorse the thought contained in subsection (2) that species will be managed on a sustained yield basis. This point is pivotal to the entire bill. However, we feel that the statement would be more meaningful and less vulnerable to subjective interpretation if the word "optimum" were deleted from line 2, page 2.

Section 3, Definitions, appears to contain a loophole in (4) that could be exploited by commercial fishing interests. We recommend that everything following the word "Mammal" on line 8, page 3, be deleted from (4). Also, we recommend that the term "scientific wildlife management" be added as subsection (6) and defined substantially as expressed, in part, by Dr. Robert H. Giles, Jr., Associate Professor, Wildlife Management, Virginia Polytechnic Institute in his article entitled "Approach" in the 1969 edition of the book "Wildlife Management Techniques" published by the Wildlife Society. (The words in parentheses are additions of the National Wildlife Federation). “(Scientific) wildlife management is the science and art of changing the characteristics and interactions of habitats, wild animal populations, and man in order to achieve (a sustained yield) by means of the wildlife resource. (Techniques used to achieve

the sustained yield include, but are not limited to, humane harvesting and protection.)"

Section 101, Prohibitions, is satisfactory in its general thrust. However, it seems that Section 103 should be included on line 20, page 3 as an exception. Otherwise the issuance of permits becomes meaningless.

Under Section 107, Exceptions, subsection (a)(2), page 12 needs to be reworded or deleted to insure that Alaskan Indians, Aleuts, and Eskimos are permitted to continue the sale of native craftwork made from products of ocean mammals not listed as rare or endangered. At the same time, Section 107 (a) needs to specifically prohibit the sale of native fishing and hunting rights to safeguard against possible exploitation.

Section 108, International Program, should be revised to delete the word "protection" on lines 6-7, page 13 and substitute the phrase "scientific wildlife management including, but not limited to, protection and taking.”

The National Wildlife Federation heartily endorses the thrust of Section 109, Cooperation with States. However, we recommend that the words "conservation and protection" on lines 14-15, page 13 be deleted and in their place the words "scientific wildlife management" be substituted.

Under Section 110, North Pacific Fur Seal Convention, it appears that subsection (2) prejudges the outcome of the review that the Secretary of Interior is directed to make earlier in Section 110 and concludes that nine thousand fur seal skins each for Japan and Canada will not exceed the bounds of sound management. This subsection needs rewording to eliminate what could be a continued over-commitment of fur seal skins.

The concept of a Marine Mammal Commission as outlined in Title II, Sections 201, 202, 204, 205, 206, and 207 of H.R. 10420 is acceptable to the Federation. However, we recommend that the direction of the Commission be changed to provide that the Commission in cooperation with the State Department seek to work out international agreements covering the scientific management of all marine mammals. Ideally, these agreements should be based on the same philosophy as that underlying the North Pacific Fur Seal Treaty. We feel that the Commission should first conduct research and fact finding studies and then determine and set limits for the taking and protection of all ocean mammals.

The addition of a "Committee of Scientific Advisors on Marine Mammals" as described in Section 203, constitutes, in our judgment, excessive bureaucratic layering which could accomplish little of a constructive nature. We recommend deletion of Section 203.

Mr. Chairman, that completes my specific comments on the contents of H.R. 10420. We feel that from the bill can emerge a piece of sound legislation that will accomplish the goals we all seek.

In conclusion, we would point out that the greatest danger to wildlife in the world today is that opposition to hunting or commercial harvest of surplus animals will be erroneously interpreted and accepted by the uninformed as "conservation". As long as hunting or harvest is conducted on a sound biological basis, "killing", as deplorable as it is to some, is not a conservation issue. It is a philosophical issue or a moral question that each person must decide for himself, and the National Wildlife Federation respects all philosophical viewpoints of individuals whatever they may be. While sincere people on both sides of the philosophical question of to hunt or not to hunt or to harvest surplus or provide total protection, are preoccupied with quarreling over the moral issues involved, wildlife's real enemies-greed, avarice, environmental degradation, and loss of suitable habitat-will continue to accelerate.

The National Wildlife Federation is supported by representatives of the hunter and protectionist alike. We hope that these wildlife enthusiasts of different philosophical persuasions will unite in the continuing fight to conserve and enlarge wildlife habitat and to preserve the natural environment, the real key to wildlife abundance, while respecting each others right to moral judgments. Thank you for this opportunity to testify.

a. General:

BACKGROUND INFORMATION- -OCEAN MAMMALS

1. CURRENT STATUS (INCLUDING POPULATION)

The marine mammals are a varied group of animals representing four orders of the class Mammalia; Cetacea (the whales, dolphins and porpoises); Carnivora (the sea otter); Pinnipedia (the seals, seal lions and walruses); and Sirenia

(the dugongs and manatees). Most of the species are wide-ranging animals which travel extensively through international waters. Due to their extensive movements and distribution and their restriction to a marine environment, with many species breeding in the far north, research on this group has proven to be quite difficult. In recent years, however, there has been an intensification of research effort, with international cooperation in some cases, and man's knowledge of this group is now expanding.

Management needs of the marine mammals vary with the species concerned, as would be expected. In many cases, management is complicated by the animals extensive movements within international waters. With respect to these species, sound management, depends on international cooperation.

b. Fur seal:

The Pribilof Islands fur seal population is about 1.3 million which is near the number which produces the greatest yearly surplus. These seals are taken only on the Pribilof Islands under the direct supervision of the federal government. International treaty forbids the killing of fur seals on the high

seas.

The seal is a commercially valuable animal. Its furs are prized for coats; the meat is consumed both by humans and by animals. The annual fur seal harvest on the Pribilof Islands is virtually the sole source of gainful work for the 600 Aleuts who live in its two communities.

The seal herd of the Pribilofs today is thriving, its number estimated at 1% million animals. Its return from a dangerously low level of 200,000 in 1911 is a historic story in the annals of man's effort to conserve wildlife. (See Attach. 1).

c. Whales and other cetaceans:

Estimates of the population size of the commercially utilized species of whales indicate that the populations are low and that they are being taken at near or over the maximum sustainable level, mainly by countries other than the United States. Those previously utilized and which are now fully protected as endangered species are, of course, also at a low level. However, the federal government through the Departments of the Interior and Commerce has prohibited after December 1971, both the importing of products from whales and the taking of them by U.S. citizens. This is the ultimate unilateral protection possible by this nation. Additional protection must come from other countries.

Other cetaceans such as the dolphins, porpoises, killer whales, and belugas appear to be at about the optimum population size. They are little utilized by U.S. citizens. Small numbers are being taken mainly for live display in aquariums or research purposes. A few beluga and bowhead whales are taken for local use by the Eskimos in Alaska.

The approximate world population of whales, but based in some cases on limited data, are as follows:

Blue, 8,000; Fin, 100,000; Sei, 120,000; Humpback, 4,000; Right, 2,000; Bowhead, 1,000; Gray, 11,000; Sperm, several hundred thousand; Killer, 10,000.

The population size of dolphins and porpoises is not known but probably ranges from 10,000 to 1,000,000 for most species.

d. Elephant seal and sea lion:

The northern elephant seal is thought to number about 20,000 while the California sea lion population is about 50,000. Neither of these species is utilized except for the capture of a few sea lions for zoos and aquariums. The Steller sea lion numbers about 500,000 of which about 5,000 a year are taken by natives in Alaska for food and the hides. Sea lions are resident species under state jurisdiction.

e. Hair seals:

Pacific hair seal populations which include the ribbon, ringed, bearded, and harbor seal appear to have stable populations with the exception of the ribbon seal which has decreased in number through excessive kills by the seal fleet of the U.S.S.R. in the Chukchi Sea. Population estimates for these seals are: bearded-30,000, ringed-250,000, ribbon-150,000 harbor-200,000. It is estimated that about 25,000-30,000 hair seals are taken annually in Alaska for food and clothing and sale of pelts primarily by Eskimos, Indians, and Aleuts.

f. Sea otters:

In the early days of this century the sea otter population had been reduced by exploitation to scattered remnants (a few hundred) at a number of different islands. Under a policy of complete protection which began in 1911, the population spread and is today in a phase of rapid growth. Studies by the U.S. Fish and Wildlife Service in the 1950's and early 1960's showed that at that time they had increased to at least 25 to 30 thousand animals and were rapidly spreading into new areas. Aerial surveys have been continued by the State of Alaska, and today it is estimated that the population has grown to about 40 to 50 thousand animals. The rate of population growth in uncrowded areas as at least 10 percent per year. In crowded populations there is approximately a 4 percent rate of increase and at islands where the populations exceed carrying capacity of the habitat (i.e. more than 10 to 15 otters per suarqe mile of habitat) a population decrease has been observed. Scientists believe that stress mortality such as starvation, as well as emigration accounts for the declining populations in such cases. The annual rate of reproduction is about 14 percent. Modern population surveys are in accordance with these findings. For additional information on the Sea Otter see Attach. 2.

g. Walrus:

While it is impossible to make any firm estimate of warlus numbers because they are widely scattered, aerial surveys indicate that there are at least 60 to 100 thousand in the Bering Sea population. Walrus are not yet overpopulated, but present evidence indicates that the populations are growing and that the walrus are repopulating areas from which they were extirpated.

The Pacific walrus population occurs in international waters and in territorial waters of the U.S. and the U.S.S.R. There are an estimated 25,000 Atlantic walruses found principally in the East Arctic Atlantic. The Atlantic walrus is not found in territorial waters of the U.S. For additional information see Attach. 3. h. Hawaiian monk seal:

Monk seals are the only tropical-water seals in the world. In the 1,000 milelong chain of Pacific Islands on which it breeds (Kure Island to French-Frigate Shoals) the species was reduced by commercial exploitation in the mid-19th century to a very low level. The present population is not more than 1,50 animals. Since 1, when the Hawaiian Islands National Wildlife Refuge was created, the monk seal has been afforded protection by the Federal Government. The monk seal today breeds on only four islands; all within the confines of the refuge.

There are indications that the monk seal populations on the refuge are declining. Attrition by shark bite is quite high and this species will not tolerate human disturbance. Therefore, management consists of complete protection for this species, even to the exclusion of disturbances from visitors. The population is visited only about twice a year to determine current status. This species is presently classified as rare by the U.S. Department of the Interior.

i. Polar bear:

The distribution of the polar bear is circumpolar and coincides with the Arctic ice pack. This ice pack is in constant motion, circulating with the ocean currents and it is presumed that this motion affects movements of the bears. Due to the adverse climatic conditions present within the range of this species, research has been lacking. There has, however, been an intensification of investigations on this species in recent years.

A cooperative study of polar bears currently is being conducted by Canada, Denmark, Norway, the U.S.S.R. and the United States. This study was initiated following an international meeting held in Fairbanks, Alaska in 1965. Since then two working group meetings were held in Morges, Switzerland. Areas of needed research were outlined, agreements were reached on standardizing research methods and procedures and certain research problems assigned to individual specialists in attendance.

A review of harvest data reported by the involved countries indicates the arcticwide harvest of bears is now at least 1,250 annually. In 1969, the harvest by country included 128 for Greenland, 346 for Norway, 406 for Canada, 298 for the United States and a few for the U.S.S.R.. The harvest in Alaska is controlled by that State which restricts the number of permits issued to 300. It is illegal to harvest females with cubs. For additional information see Attach. 4.