GULF ISLANDS WILDERNESS STUDY AREA

Gulf Island National Wildlife Refuges

Jackson County, Mississippi St. Bernard and Plaquemines Parishes, Louisiana

WILDERNESS STUDY REPORT

U. S. Department of the Interior

Fish and Wildlife Service

Bureau of Sport Fisheries and Wildlife TABLE OF CONTENTS

Chapter Page

1 Introduction 1

2 Objectives 2

3 History 3

4 Location 4

5 Physical Characteristics 5

6 Resources 6

Wildlife 6 Fish 8 Vegetation 9 Recreation 10 Minerals 11

7 Socio-Economic Consideration 11

8 Development 14

9 Management 15

Summary and Conclusions 18 CHAPTER 1

INTRODUCTION

The Gulf Island National Wildlife Refuges, lying along the Mississippi and Louisiana coasts, have historically been areas of vital importance to colonial nesting birds and wintering waterfowl. Three refuges --

Breton, Horn, and Petit Bois -- are included in the Gulf Island Refuge complex. Breton was established as the second National Wildlife Ref- uge in 1904. Petit Bois and Horn were added in 1913 and 1958 respec- tively. These island refuges play an important part in the national wildlife conservation effort. During the summer months many thousands of shorebirds, gulls, and terns nest on the sandy beaches and interior areas of the islands. In the winter, waterfowl rest and feed in bays and sounds bordering the islands as well as in the fresh and brackish interior ponds on some of the islands.

The refuges range in size from 749 acres on Petit Bois Island to 9,047 acres on the Breton Refuge. Horn Island Refuge contains 2,442 acres.

The Chandeleur Islands, which are 35 miles long and average less than a half mile in width, make up the greater part of Breton Refuge. The ref- uge lands on Horn and Petit Bois are divided by State or private holdings whereas on Breton Refuge only small acreages remain in State ownership.

The Bureau's acquisition program includes purchasing all privately-owned lands on Horn and Petit Bois islands.

The refuge islands have not been drastically altered by man and are among the few coastal barrier islands that remain in a near-natural condition. As roadless undeveloped islands in the national wildlife refuge system, these refuges meet the criteria for wilderness study as prescribed by the Wilderness Act.

CHAPTER 2

OBJECTIVES

The Wilderness Act of September 3, 1964 (Public Law 88-577) stipulates that the Secretary of Interior shall review every roadless island and every roadless area of 5,000 acres or more within the National Wildlife

Refuge System. The Secretary directed this Bureau to review every such area that (a) is reasonably compact, (b) is undeveloped, (c) possesses the general characteristics of a wilderness, and (d) has no improved roads suitable for public travel by conventional automobile. Each area and island must satisfy all of these elements.

The Act further provides that (1) wilderness areas are to be supplemental to the purposes for which national wildlife refuges are established; and

(2) wilderness areas shall be devoted to the public purposes of recreational, scenic, scientific, educational, conservation, and historical use, insofar as primary refuge objectives permit.

The purpose of this study of the Gulf Island Refuges is to determine if any or all of the islands should be recommended for inclusion in the National

Wilderness Preservation System. CHAPTER 3

HISTORY

The actual discoverer of the Mississippi Sound and River will probably never be known. However, Pineda in 1519 has been credited with this discovery. Also, Ponfilo de Narraes, a Spanish explorer, may have seen the river in 1519, and in 1527, de Narraes, with Cobega de Vasca under him, got lost and missed the rendezvous with his ships. Making horsehide boats, they followed the Gulf Coast west and reached the area of Chandeleur

Sound. In a storm, de Narraes perished, but the remainder of his men, under de Vaca, found refuge on a small island in the Mississippi Sound. Presumably this island was one of the following: Horn, Ship, or Cat. In 1539, Desoto explored from Pensacoula Bay west to the delta of the Mississippi River and probably saw some of the refuge islands. In the early 1700"s, Sieur Bienville, lieutenant to the King of France, explored the Pascagoula River and Bay in a bark canoe. Bienville was granted a royal patent giving him Horn Island as a reward for his services to the king, and, at that time Horn was referred to as Isle Bienville.

There is no mention made of Petit Bois in early literature, but it is commonly believed that Petit Bois was a part of Dauphin Island. Indians of the tribes of Biloxi, Pascagoula, and Mactobi occupied the mainland, but used the barrier islands very little. They did maintain a temple with a perpetual flame on

Dauphin according to some historical accounts. Early Literature of the Chandeleur Islands mentions the presence of trees and a much higher elevation than exists today. This is aLso true of

Breton IsLand which has changed greatLy since those days. In L9L5, Breton

Is Land had severaL famiLies and a school on it. ALL abandoned the is Land just prior to the hurricane of that year, and the entire settLement was destroyed and was never rebuiLt.

By Executive Order, President Theodore RooseveLt estabLished Breton in

1904, as the second National Wildlife Refuge. Public Land Orders set aside 749 acres on Petit Bois and 2,484 acres on Horn Island for refuge purposes in 1913 and 1958 respectively. These actions assured that at

least a portion of the historically valuable wild shores of the Gulf region would be preserved for future wildlife use.

CHAPTER 4

LOCATION

The Gulf Island Refuges extend along a 90 mile segment of the Mississippi and Louisiana coasts, Breton Refuge is located in Plaquemines and St. Bernard

Parishes, Louisiana, and is about 12 miles offshore from the Mississippi River

Delta. Petit Bois and Horn lie eight to ten miles from the mainland in Jackson

County, Mississippi. The wilderness study area includes all three refuges for a total of 12,238 acres. Two major metropolitan centers are within one hundred miles of the study area — New Orleans, Louisiana, to the west and Mobile,

Alabama to the east. Pascagoula, Biloxi, and Gulfport, Mississippi, are located on the mainland adjacent to the islands. CHAPTER 5

PHYSICAL CHARACTERISTICS

The islands are famous for their wide gently sloping beaches of unusually fine white sand. They are bordered on the Gulf side by clear blue water and on the Sound side many of the islands are bounded by a maze of ponds, inlets, and marshes. The flora and fauna and the dynamics of seacoast formation add an interest natural history dimension to the area and provide an attractive setting for wild shore recreational pursuits.

Geologically, the refuge islands are difficult to interpret. Accretion and erosion along the Atlantic and Gulf Coasts have been in progress since the

Cretaceous Period. Study of these processes demonstrates the evolution of barrier island from narrow peninsula and mainland ridges of sand. The Gulf

Islands do not necessarily follow this geological pattern but rather it is commonly believed that subsidence of the northern Gulf Basin during recent geological times formed the present coastal barrier islands. The Chandeleur and Breton Islands are still subsiding at a rate of approximately .03 inches per year, but the effects of longshore drift, river deposits and onshore waves have helped to rebuild some areas. The entire chain of islands, however,

is known to be moving westward and along with this movement is losing elevation.

Vegetative development, as with the geological processes, is far from being climax. The climax vegetation of the region is hammock forest of live oak and magnolia. Little of this type is found on the study area. Very small areas on the dunes on Horn Island do have a few hammock species such as magnolia, palmetto and live oak. The islands' land-forms, and vegetation, are

affected by violent storms that frequently pass through the area.

Elevation on the islands range from sea level in the interior waterfowl

ponds to nearly 20 feet at the highest dune. The average elevation is

four feet above mean low water. Low dunes parallel all of the Gulf

beaches. Devastating hurricanes are not uncommon. Local tradition has

it that the last "hundred year storm" tide was 13 feet above mean sea

level. Under such a storm only points of land would show above water on

Horn Island. In the study area the Chandeleurs are the lowest lying.

They are frequently awash even during minor storms.

The Gulf Region is characterized by warm temperatures and high humidity,

but summer heat is ameliorated by the waters of the Gulf Of Mexico.

Biloxi, Mississippi, averages only 55 days per year of temperature readings

of .90 degrees or above. "The winters are mild, with January minimum

temperatures averaging 42 to 56 degrees and maximums averaging over 60

degrees.

Precipitation averages about 63 inches per year through out the study area.

July, with an average rainfall of seven to eight inches, is the wettest month.

CHAPTER 6

RESOURCES

Wildlife

The wild shores of the Gulf Island Refuges are distinctive for their

teaming colonies of nesting shorebirds and wintering waterfowl. A total

6 of 128 species of birds have been recorded on the study area. A variety of gulls, terns, egrets, and herons can be seen throughout the year, but are more abundant during the summer. Peak shorebird, marsh and water bird, gull and tern populations numbered nearly 85,000 in a recent summer.

Twenty-three different species of these water and shorebirds are frequent users of the refuge and thirteen species nest on the various islands.

Breton and the Chandeleur Islands receive the greatest use. Here, annual peak numbers reach 36,000, with from 8,000 to 10,000 nests. Peak numbers on Petit Bois reach 7,000 with 1,500 nests and on Horn Island a peak of

4,000 shorebirds is not uncommon with from 100 to 500 nests. The most abundant species are royal terns (13,000), Caspian terns (3,000), black skimmers (4,000), laughing gulls (13,000), and magnificent frigate birds

(4,000). All of the above nest on the refuge except the magnificent frigate bird.

Peak waterfowl populations during the past few years have been : Redheads

(23,000), scaup (15,000), American widgeon (22,000), bufflehead (1,500), blue geese (200), and snow geese (35). Waterfowl use days for the combined

refuge areas annually amount to approximately 3,000,000. Redhead ducks

account for the majority of the annual use. These ducks use the shallows, marshes, and sounds adjacent to the islands for feeding and for protection during inclement weather. The interior ponds and marshes on Horn Island attract mallards, pintail, canvasback, scaup, blue and snow geese, and other species. The American osprey and the Eastern brown pelican, two species listed in the Bureau's Red Book in the category of "Status undetermined," are found on the refuge area. Ospreys have been observed on all the islands and have five nests on Horn Island. The Erstern brown pelican did, at one time, nest adjacent to the Chandeleurs; but, since 1960, when a small colony used an island just off the refuge, these birds have virtually disappeared from the Mississippi-Louisiana coast. The Chandeleurs could play an important part in the re-introduction of the pelican to this part of its former range. The only endangered species found on the refuges are the American alligator and southern bald eagle. Though small in number, the alligators are on the increase on Horn Island due to increased protection afforded through refuge administration of the island. The bald eagle is an occasional visitor to the islands.

Other wildlife found on the refuges include nutria, rabbit, raccoons, four species of amphibians, and sixteen species of reptiles. The refuge islands are important to loggerhead sea turtles which repair to their beaches for egg laying. The loggerhead is a prime candidate for the list of endangered species, and refuge protection here is vital.

Fish

The estuarine zone surrounding the refuge islands is rich in resources. The many species of salt water fish and shellfish sustain an active commercial and sport fishing industry. Some sixty species of fish are found in the

Mississippi Sound and the Gulf of Mexico. Fishing from the beaches of the refuge is popular. Among the more common kinds of fish taken are speckled trout or weakfish, silver trout, cobia or lemon fish, Spanish and king mackerel, bonita, and channel bass or redfish. Many of these are commercially valuable also. Crabs, shrimp, and oysters abound in the warm waters of the

Sound and Gulf, and all add to the commercial fisheries resources. Schools

of young fish provide food for the many shorebirds; and the plentiful supply

of aquatic plants and animal organisms in the shoal waters of the refuge

attract many wintering waterfowl. The Mississippi Sound is a valuable

ecological system for plants, and animals, and a rich nursery ground for

shrimp and fish. This ecosystem is of value to a much larger segment of

the southern American coast than just the study area.

Continuation of the benefits of this vast estuarine zone are contingent

upon keeping the waters of the Gulf free of pollution and in as near a

natural state as possible.

Vegetation

Breton and the Chandeleur Islands are partly covered by a low growth of

black mangrove and black rush, falling off into the sound side into shallow

saltwater marshes, ponds and inlets. Frequent flooding of the Chandeleurs

by high tides hinder the growth of many plants that are found on the other

refuge islands. Waters adjacent to the refuge support a lush growth of

shoalgrass, turtle grass and other marine plants and animal organisms that

supply ample food for the wintering waterfowl. Horn Island supports a

variety of plants. Slash pine, in association with saw palmetto, yaupon,

and groundsel tree grow on the higher elevations. Beach plants include

sedge, panic grass, goldenrod and sea oats. Towards the interior and around

the ponds on Horn are found the greatest variety of plants. These include

foxtail grass, apikerush, black rush, cattail, marsh fleabane, sawgrass, and

9 others. Vegetation on Petit Bois is similar to that on Horn and differs mainly by having far fewer pine trees and less interior water and marsh and their associated plant species.

Nearly 100 different plant species have been identified on the Gulf Island

Refuges. Many unique habitat types that are fast disappearing along the

Gulf Coast are preserved on the refuges. The plant life on the study area provides an opportunity for study and interpretation in the realm of plant succession as does the land formation in the realm of geology.

Recreation

In 1967, 7,900 visitors to the Gulf Island Refuges were reported. Over three-fourths of this use was by fishermen, and by far the greatest amount was adjacent to Breton and the Chandeleur Islands.

As long as man must depend upon boat transportation over the wide expanse of sometimes rough water, use by the average family group or passing tourist will remain low on the more isolated Breton Refuge. Shallow waters surround- ing the islands further discourage visitors and keep disturbance of nesting birds to a minimum. The Bureau has no control over the open water and fishermen and boaters occasionally come close enough to the islands to cause some disturbance to the nesting birds. Horn and Petit Bois Islands, being nearer to shore, will be subject to increased visitor use from fishermen, swimmers, beachcombers, birders, and photographers. With proper zoned areas and observation points, visitors may be permitted to observe nesting activities and photograph bird concentrations from a distance without undue disturbance.

10 Designation of the area as a wilderness is not likely to greatly increase

visitor numbers to the more remote islands. Visitor usage to Horn and

Petit Bois will probably increase considerably when planned access points

are developed. With proper controls, increased visitation will not

conflict with refuge and wilderness objectives.

Minerals

The refuge islands are made up almost entirely of two soil types -- coastal

beach sands and dune sands. These soils lie on top of a core of fairly

stiff sandy clay of the Citronelle formation. Heavy minerals in the beach

and dune sands may have some commercial value. Quartz is the most abundant

element and makes up from 92 to 98 percent of the beach and dune soils.

Twenty-six different species of heavy minerals have been identified on the

study area. Staurolite, kyanite, and tourmaline are the most abundant.

Magnetite, zircon, and rulite are present in very small amounts. Zircon is

the chief source of zirconium metal while others, such as staurolite and

kyanite are used for valuable refactory material. Extraction of these heavy

minerals from the more abundant quartz is believed to be uneconomical, however.

Numerous oil and gas wells are located in the Sound near Breton and Chandeleur

Islands. There is a distinct possibility that these resources are also

underneath most of the Gulf Coast Islands.

CHAPTER 7 SOCIO-ECONOMIC CONSIDERATION

The Mississippi Islands of Horn and Petit Bois are potentially valuable for

real estate and commercial development. Over the years, numerousv plans

11 and proposals have been under study to make these islands more accessible from the mainland. One of the most recent studies was conducted by a private firm for the Mississippi State Highway Commission. The study examined the feasibility of connecting Mississippi's offshore islands with the mainland via a bridge or causeway. Although possible from an engineering standpoint, the venture would be extremely expensive and would entail developing fully the islands for commercial and residential uses. Even then, the cost/benefit ratio of such an undertaking is questionable.

In the years since the establishment of the refuges, the marshes and beaches from the coast of Florida to Texas have been developed for cities, towns, and people. Where at one time there was abundant habitat for migratory birds, sea turtles, and other species of wildlife, now there are housing developments, motels, cabins, and marinas. The refuge islands, along with a few islands owned by the State of Louisiana or private individuals, constitute the bulk of the remaining undisturbed nesting habitat for shorebirds and turtles as well as wintering habitat for water- fowl along the Gulf coast. As the Gulf coast offshore islands become more accessible, either through improved over-water transportation or causeway construction, the role of the refuges will become increasingly more important to the wildlife resources.

Production of oil is an important economic consideration and a major industry along coastal Louisiana. There is one oil rig located just off refuge lands and to the north of Breton Island. The State has title to the

12 water bottoms adjacent to the refuges and it is highly likely that oil exploration and oil production will increase in the future.

Mississippi's comprehensive outdoor recreation plan, submitted to the Bureau of Outdoor Recreation for eligibility in the Land and Water

Conservation Program, recommends the implementation of the proposed

Gulf Island National Seashore. Such a seashore would extend from

Santa Rose Island, Florida, on the east to Breton Island, Louisiana,

on the west. There is much local support for a Gulf Islands National

Seashore.

A study entitled "A Report for Gulf Islands National Seashore" prepared

by the Bureau of Sport Fisheries and Wildlife, National Park Service, and

the Bureau of Outdoor Recreation proposes a national seashore. However,

the report states:

In addition to the Gulf Coast Islands' value for migratory

birds and other wildlife, they include about the only re-

maining examples of undisturbed natural coast and off-coast

islands along the entire northern Gulf. The Chandeleur

Island complex is a prime candidate for inclusion in the

National Wilderness Preservation System The Louisiana

and Mississippi islands, from the Chandeleurs through Petit

Bois, are of great value in the twin considerations of wild

shore preservation and conservation of wildlife.

There are many public and private recreational areas in the immediate vicinity of the refuge islands. On adjacent Ship Island, the Mississippi

Park Commission owns Ship Island State Park which presently is not developed.

13 to any extent, and the Gulfport American Legion Post leases Fort Massachusetts and a section of the west end of Ship Island. This recreational area attracted some 165,000 visitors in 1966, according to figures supplied by the concessioner. On the mainland numerous facilities are found which are available for public use. Picnic and camp sites, nature trails, and fishing opportunities are available on the Desota National Forest, twenty-five miles from Biloxi. Magnolia State Park, located near Ocean Springs, Mississippi, receives heavy use.

The Mississippi coast is a highly developed tourist area with some five million visitors each year. The Gulf Island Refuges enhance the vicinity by providing opportunity for the public to enjoy wild shore experiences unequalled in many other places.

CHAPTER 8

DEVELOPMENT

No major developments now exist, nor are any planned on any of the refuge islands except Horn. Petit Bois, the Chandeleurs and Breton Islands will be retained in their natural state for nesting shorebirds, and wintering water- fowl use, except for limited biological development planned on Petit Bois. On

Horn Island and the refuges' mainland headquarters site, facilities are planned to accommodate increased visitor usage. At the headquarters a wildlife interpretative center, boat launching facilities and refuge offices and service buildings are planned.

14 Developments on Horn Island will present the theme of multiple use, stressing the role of the refuge in preserving habitat for endangered species, waterfowl, shorebirds, and other wildlife. Planned nature trails will cover the principle vegetative cover types, waterfowl habitat management units, and other points of interest to visitors. Observation towers at vantage points adjacent to shorebird nesting sites on Petit Bois and Breton Refuges and near waterfowl management units on Horn will permit visitors to observe and photograph the bird life without undue disturbance.

Wildlife habitat development on Horn will consist of dune construction, erection of dikes for brackish water impoundments, and other measures that would serve to insure against salt water intrusion and conservation of fresh water for the island's wildlife. Construction of earthern dams with simple culvert structures and/or low fixed weirs are planned on the marsh areas of

Horn. Such simple structures are a possible means of improving unproductive salt water ponds by impounding water within marsh sloughs. Artesian wells are a source of supplemental water for planned impoundments.

Zoned areas on Horn Island will permit increased public use of portions of the beaches. Here sanitary facilities, a concession building, picnic shelters, and similar facilities will be developed for refuge visitors.

CHAPTER 9

MANAGEMENT

Management activities on the Gulf Island Refuges have been directed toward preserving rather than changing the natural condition on most of the islands.

15 Management will not be changed appreciably should the areas be included in the National Wilderness Preservation System.

Manipulation of habitat on Horn and Petit Bois is necessary if refuge objectives toward waterfowl, alligators, and other wildlife are to be accomplished. Impounding of a number of acres of salt marsh will serve to increase productivity of the marshes on these islands. Management of such impoundments will include maintaining desirable water levels through the use of artesian wells, rainfall and simple water control structures; introduction of aquatic plants of value to waterfowl; and control of undesirable species of plants. Pothole blasting, controlled burning of marsh areas, and maintenance of dunes and dikes are annual waterfowl management practices planned on Horn. The pattern of ownership is a serious drawback to management on both Horn and Petit Bois. Private lands must be acquired if planned management of a large portion of the marshes is to be effective and if public use facilities are properly developed.

Zoned usage of all the islands is imperative if wildlife management objec- tives are to be accomplished. Permitted recreational uses will remain essentially the same. Fishing, shell collecting, birdwatching, photography, boating and nature study will be encouraged in designated areas on most of the islands. Developed public use areas on Horn Island will accommodate more intensive uses such as picnicking, swimming and primitive camping. Facilities will be developed to help interpret better the fauna and flora of the refuge for a greater number of people. Managed nature trails, observation towers and

16 information signs are planned for this purpose. Access to these facilities must be made easier if any number of people are to enjoy the wild shore experience of the refuge islands. Transportation from the mainland headquarters to Horn Island can best be handled by a concessioner and such is planned. Daily trips to and from the island will permit visitors to observe first hand wildlife management activities.

With the exception of Horn Island, where primitive camping will be permitted, public use on the islands will be permitted during daylight hours only.

This restriction is necessary for public safety as well as wildlife protection. Nesting turtles and shorebirds would be unduly disturbed by overnight public use and refuge enforcement efforts would be hampered by night use on all the islands. Primitive camping is planned on portions of

Horn to facilitate enjoyment of the other wildlife-related activities. While public use must be kept to a minimum on the Chandeleurs, Breton, and Petit Bois during the summer when the shorebirds are nesting, fishing, birding, nature study and access to the beach will be permitted in designated areas. During winter, managed waterfowl hunts are planned in the Breton-Chandeleur area.

The above activities will not conflict with the wilderness character of the islands and properly managed, will not interfere with the refuge primary objectives.

The commercial fishing industry, sport fishing, and boating in the Mississippi

Sound and Gulf of Mexico would not be affected by wilderness designation of the

Gulf Island Refuges. Rather these activities would be enhanced through wilderness

17 designation. Wilderness status would insure against any future attempts to develop or commercialize the refuge areas with possible pollution of the estuarine zone and destruction of valuable marsh habitat.

SUMMARY AND CONCLUSIONS

The Gulf Island National Wildlife Refuges embrace a number of barrier islands that contain valuable wildlife habitat and wild shore recreational values not found elsewhere along the northern Gulf of Mexico. These

Mississippi-Louisiana refuge islands constitute a wildlife habitat complete of undisturbed mangrove, natural beaches, brackish and fresh water impound- ments, and vast expanses of marsh so vital to shorebirds, waterfowl, sea turtles, and numerous other species. The islands and the surrounding water areas constitute an intricate ecological system important to man, fish, birds, and other wildlife.

The main goal of refuge management has been the preservation and protection of natural conditions. Some habitat development has been carried out for the benefit of waterfowl and more is planned. The primary goals will remain essentially the same in the future with added emphasis being placed on programs to help rare and endangered species. Likewise, by improved facilities and new ideas, more meaningful programs will be developed to present the educational and scientific aspects of the refuges to the public.

Like most undeveloped seashore areas, Gulf Islands is a prime target for commercial development. This area will be subject to increased pressures in the future for development and other uses incompatible with refuge objectives.

18 Retention of the islands in their present natural condition is not only important from a wildlife standpoint but also will be increasingly more important economically, educationally, and scientifically. Wild shore values extend beyond the local or regional level; they are important nationally.

We recommend that all lands on Petit Bois, Breton, and the Chandeleur

Islands be included in a wilderness area. Horn Island is excluded from the recommended wilderness because of planned development and public use facilities. The proposed wilderness includes the private lands on Petit

Bois. Acquisition of Ihis holding is recommended.

In summary, the wilderness would consist of the following lands:

(1) The entire Breton Refuge including Breton and the chain of

Chandeleur Islands now under Bureau control. These islands contain 9,407 acres of public domain lands.

(2) The 749 acres of public domain land on Petit Bois Island, including

595 acres on the west end and 154 acres on the east end.

(3) The 717 acres of private land on Petit Bois Island would be added to the wilderness as acquisition is accomplished.

The recommended wilderness area includes a total of 12,955 acres; of this,

12,238 acres are within the Gulf Island Refuges, leaving only the 717 acres in one private holding on Petit Bois to be acquired.

The private acreage recommended for acquisition is essentially undeveloped and wild in character. Situated in the center of Petit Bois Island, this

19 private holding divides the refuge lands, hampering their effectiveness for protection and management of the wildlife resources. Preservation of the wild shore characteristics of Petit Bois would be enhanced by this acquisition. As they are acquired, these lands would become a part of the wilderness and be administered by the refuge for wildlife purposes and wild shore recreational pursuits.

The most popular forms of recreation in the vicinity of the refuge are boating, fishing, sightseeing, shell collecting, birdwatching, swimming, and photography. Since the majority of these uses take place in the waters surrounding the refuge islands, they may continue without con- flicting with refuge or wilderness purposes. There must be limited use of the islands proper to avoid disturbance to nesting birds and this can be accomplished by proper zoning and designated visitor use areas.

The refuge lands are presently subject to the Mineral Leasing Act of

February 25, 1920. Mineral development on the refuge islands would not be compatible with refuge and wilderness objectives. We recommend that the Gulf Islands be withdrawn from the mineral leasing laws.

March 1968

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GULF ISLANDS REFUGES

LOUISIANA AND MISSISSIPPI