Note that the bubble circumferences don't show detail leading one to suspect developer. Indeed it does appear likely there is insufficient solution in the tank. Was the bottom portion of the image at the top of the tank? It looks very much like you have gotten, as you say, foam near the edge of your reel. Agitation could bring some froth to the top of tank but only if the tank is not filled properly. Did you pre-wet the film? Also, when you agitate do you use a correct tilt and twist motion? If you tilt the tank while twirling then you certainly should cover the film completely even if you are a little shy on the fluid volume. For Nikkor tanks and reels, I fill the tank with solution, replace the cap, and then tilt and twirl continuously for the first 20 seconds or so, and thereafter tilt and twirl three or four times every 30 seconds. With this technique a pre-wet isn't normally needed, at least in my experience it is not.