net fishery of Europe or with the line fishery of the North Atlantic coast. The adoption of this apparatus is strongly opposed by the line fishermen of New England, and prohibitory legislation is advocated by them on the ground that the method is unnecessarily destructive. The Bureau of Fisheries took the position that the question presents too many phases to be summarily disposed of without careful consideration; that the necessary information on which Congress can act advisedly does not exist; and that authority should be given for an impartial inquiry. Attention was called to the fact that the matter has an international bearing, and that the cooperation of Canada, Newfoundland, France, and possibly other countries would be required to render effective any restrictive measures that might be decided on. The committee adopted this view, and submitted a favorable report on the joint resolution, with a recommendation for a special appropriation to meet the expenses of the investigation.

Numerous bills providing for new fish hatcheries throughout the country were introduced in Congress and considered by the appropriate committees. A number of the measures were favorably reported, and some of them passed one House, but none had been enacted into law by the end of the fiscal year. It is gratifying to note that the restrictions advocated by the Department in the establishment of fish hatcheries, as referred to in previous reports, have been accepted by committees of Congress and have been incorporated in practically every bill reported.

Protracted hearings have been held by the Senate Committee on Fisheries on a bill embodying amendments to the present laws affecting the fisheries of Alaska and the duties with which the Department is charged in connection therewith. This bill has been drawn because of the growing belief among the fishery interests, and also because of the experience of the Department, that the existing laws do not fully meet the present requirements and conditions. In the bill granting a territorial form of government to Alaska, which has been favorably considered by both Houses of Congress, the fisheries, fur seals, and other fur-bearing animals were expressly exempted from the list of subjects coming within the purview of the territorial legislature.

A bill introduced in the Senate April 17, 1912, and subsequently passed by that House, provided new regulations affecting the use of diving apparatus in the Florida sponge fishery. If this bill becomes a law, citizens of the United States will be prohibited from taking sponges by this means except between October 1 and July 1 of each year, in depths of 40 to 150 feet; and sponges less than 5 inches in diameter may not be taken under any circumstances. These measures were recommended by the Department as important for the conservation of the sponge industry.

Hearings on the fur-seal service, before the House Committee on Expenditures in the Department of Commerce and Labor, which

began in May, 1911, continued throughout the fiscal year 1912, and have not yet been concluded. Up to June 30, 1912, 29 hearings had been held, and the testimony was issued in 13 parts comprising 896 printed pages. The correspondence and documents supplied to the committee by the Department in response to the resolution comprise 1,232 printed pages.

During hearings on the bills providing for Federa. control over migratory birds, several arguments were presented by State officials and others favoring the assumption by Congress of jurisdiction over migratory fishes. The inability or failure of the States to afford adequate protection to the fishes in many interstate waters, and the grave condition now confronting some of the most valuable species, appeared to justify this appeal to Congress for relief.

INTERNATIONAL FISHERY AFFAIRS.

Reference has been made in previous reports to the invitation extended to the United States Government to join the Permanent International Council for the Exploration of the Sea. This council is composed of official representatives of most of the countries of western and northern Europe, and is engaged in biological, physical, and statistical studies in the interests of the commercial fisheries. The diplomatic and consular appropriation act for the fiscal year ending June 30, 1913, contains an item authorizing the participation of the United States in this work, by the appropriation of a sum for the pro rata share of this country in the administrative expenses of the council, and for other purposes, including the attendance "of an expert official representative at the annual meeting." The matter has been placed under the jurisdiction of this Department by the Department of State, and the necessary cooperative and independent investigations growing out of this affiliation will be conducted by the Bureau of Fisheries.

A bill giving effect to the convention between the United States, Great Britain, Russia, and Japan for the prevention of pelagic sealing in the North Pacific Ocean was passed by the House of Representatives on February 14, 1912. In addition to reaffirming the provisions of the treaty ratified by the Senate on July 7, 1911, and becoming effective on December 15, 1911, the bill contained clauses with specific provision as to the killing of seals on land.

A representative of the Department from the Bureau of Fisheries was again detailed to go to the so-called treaty coasts of Newfoundland for the purpose of keeping the Government advised regarding the operations of American vessels employed in the herring fishery. This detail was made at the request of the Department of State.

BUREAU OF LIGHTHOUSES.

REORGANIZATION OF LIGHTHOUSE SERVICE.

During the fiscal year 1912 the reorganization of the Lighthouse Service under the provisions of the act of Congress approved June 17, 1910, was practically completed. After two years of operation of the Service under this act it is believed that the efficiency of the Service has been greatly increased, and that the work is much more. economically performed.

All of the lighthouse districts, with the exception of the three river districts, are now in charge of civilian inspectors. The selection of thoroughly competent men for positions as lighthouse inspectors is necessary to the success of the plan of reorganization adopted by Congress. The positions are under the classified civil service, and must therefore be filled in accordance with civil-service rules. The desirable qualifications for an inspector, considering the work for which he is to be responsible, include a knowledge of nautical affairs and the needs of navigation; training in civil, mechanical, and marine engineering as required in connection with the construction and repair of lighthouses, docks, storehouses, fog-signal stations, and other structures connected with lighthouse work; a knowledge of marine affairs necessary for the maintenance and repair of light vessels, lighthouse tenders, and floating aids to navigation; business training essential for the administration of a lighthouse district, including the purchase of supplies and ability to judge and handle men. The appointments have been made from the men in the Lighthouse Service or in branches of the Government having similar work, by selecting in each case the best man available, depending solely on his record and his merits with respect to the proportion of these qualifications possessed.

Of the 17 appointments as lighthouse inspectors (including 1 inspector on general duty), 13 were by promotion of persons who had had from five to forty years' experience in the Lighthouse Service, the average length of service being eighteen years. The other 4 were by selection of persons who had had from eight to thirteen years' experience on other Government vessels. Each of the 4 had had command for from four to eleven years, and was engaged in hydrographic work in which he became familiar with the needs of the Lighthouse Service. Of those promoted in the Lighthouse Service.

7 had had from twelve to twenty-three years' experience on vessels of the Service, 5 of them having been masters of lighthouse tenders for from seven to twenty-one years; 5 others were promoted from positions as superintendents in the Service, having had from five to forty years' experience in the engineering and construction work of the Service and from four to twenty-two years in charge of responsible work; 1 was promoted from chief clerk in a lighthouse district, having had twelve years' experience in the Service. Thus, all but 6 of those appointed as inspectors had had extensive and responsible experience on Government vessels, and these 6 had had long experience on vessels in connection with other work of the Lighthouse Service.

On June 30, 1912, there were 5,534 persons employed in the Lighthouse Service, including 81 technical force, 140 clerical and office force, 51 depot keepers and assistants, 1,682 light keepers and assistants, 1,570 laborers in charge of post lights, 5 custodians of reservations, 1,516 on vessels, and 489 construction and repair force.

ADMINISTRATION METHODS AND ECONOMIES.

During the fiscal year systematic inspections were made in the various lighthouse districts by the general inspector as respects the technical work and vessels, and by the examiner as to business methods, property accounts, and clerical organization. The reports of these inspecting officers are made in a uniform manner for each district, and have been reviewed in the Bureau, such portions of them as call for action by the local inspectors in charge being subsequently referred to the various districts. The effects of this work have been of great value in maintaining the vessels and other equipment of the Service at a proper standard, improving and systematizing methods in the district organizations, auditing district property accounts, and examining records.

A standard method of cost keeping has been in effect throughout the fiscal year, having been introduced for the first time in the Lighthouse Service, and reports have been received from all the districts, in which itemized costs of each office, depot, light and fog-signal station, tender, and light vessel are shown separately. The costs of minor lights, daymarks, and lighted and unlighted buoys are shown in groups by various districts, each type of aid to navigation being accounted for separately. In all cases the costs are divided into main headings, "Maintenance" and "Repairs and improvements." The cost of maintenance includes what may be considered fixed charges, such as salaries, rations, fuel, and general expendable supplies. The items of repairs and improvements are further subdivided to show the cost of labor and materials separately for each principal object. By continuing to compile this information from year to year accurate

figures can be derived which will be useful in preparing estimates, planning work, effecting economies, and comparing the efficiency of different districts, vessels, apparatus, methods, etc.

A revision of the method of keeping accounts in the Bureau and district offices was made, whereby the condition of allotments under the various appropriations is reported monthly. It is believed that this will tend to eliminate bookkeeping errors and provide for judicious review and distribution of funds so as to attain the best results in the maintenance of the Service.

Arrangements were made to discontinue the use of hard coal on a number of vessels and at power plants and to substitute soft coal, effecting a saving of about $11,000 annually.

A saving in the purchase of mineral oil has been effected by making arrangements for delivery at several points, instead of only at the general depot, as heretofore. This will result in an economy of about $11,000 annually in freight charges and cost of oil.

To promote efficiency and friendly rivalry among lighthouse keepers, a system of efficiency stars and pennants has been established. Keepers who have been commended for efficiency at each quarterly inspection during the year are entitled to wear the inspector's star for the next year, and those who receive the inspector's star for three successive years will be entitled to wear the Commissioner's star. The efficiency pennant, being the regular lighthouse pennant, is awarded to the station in each district showing the highest efficiency for a year, and may be flown during the succeeding year.

Revised regulations for the Lighthouse Service were put into effect shortly after the beginning of the fiscal year and have proven a great convenience in the operations of the Service. In addition to the regulations, instructions for the personnel of light stations and vessels were issued.

Light lists published during the year have been prepared in a new form, based on a careful consideration of the needs of navigators and a comparison of foreign publications of the same kind. The important features are larger type, simplified descriptions, flat-opening pages, indication of the relative brilliancy of lights by giving candlepower, more systematic and complete introductory notes, and tabular arrangement of light and fog-signal periods.

A medical handbook for the use of lighthouse vessels and stations, which includes a list of medicines and articles to be supplied for medicine chests, has been published.

During the fiscal year a standard schedule of furniture, bedding, and cooking utensils to be furnished keepers at light and fog-signal stations was issued. This list includes stoves and accessories for keepers' quarters, and for all offshore and isolated land stations where families are not permitted to reside a small selection of general fur