HAWAIIAN ISLANDS WILDERNESS PROPOSAL PUBLIC HEARING STATEMENT BY JOHN D. FINDLAY BUREAU OF SPORT FISHERIES AND WILDLIFE REPRESENTATIVE

Aloha Ladies and Gentlemen: I am John D. Findlay, Regional Director,

Region 1, of the Bureau of Sport Fisheries and Wildlife. Our Regional

Office is in Portland, Oregon, It is with a great deal of pleasure that I welcome you to this hearing on a wilderness proposal of the islands of the Hawaiian Islands National Wildlife Refuge.

The Wilderness Act of 1964 directed the Secretary of the Interior to review all roadless areas of 5,000 acres or more and every roadless island within the National Wildlife Refuge System to determine their suitability or non-suitability as wilderness.

Further, regulations of the Secretary of the Interior published on

February 22, 1966, require this Bureau to review those areas qualifying for study under the Wilderness Act that are: (1) reasonably compact;

(2) undeveloped; (3) possessing general characteristics of wilderness; and (4) without improved roads suitable for public travel by conventional automobile.

The National Wildlife Refuge System consists of over 330 units containing nearly 30 million acres. Units of the system are found on lands reaching from the shores of the Arctic Ocean to Puerto Rico and from Maine to the islands of here in the Central Pacific. There are one or more national wildlife refuges in every one of the 17

major life zones of North America. Therefore, the ecology of each

national wildlife refuge differs—at least to some degree—from that of

any other refuge. Because of these differences, management objectives

of individual refuges are often quite different. About 90 national wild-

life refuges, containing nearly 25 million acres, qualify for study as

wilderness. These refuges are located in 32 different states.

As you can see, the wilderness review program in the Bureau of Sport

Fisheries and Wildlife, of which this proposal is a part, encompasses

a wide spectrum of lands within our national wildlife refuges. Only

through careful study and analysis can a proper determination be made

regarding whether a refuge, or a portion of a refuge, qualifies for con-

sideration by the Secretary of the Interior as wilderness. We are

presenting the results of our study of the Hawaiian Islands Refuge for your consideration today.

You have before you a copy of the summary of the study. Copies of the

complete study report are available for your scrutiny after the hearing.

We ask you to please leave them in the hearing room when you have finished with them because the number of copies is very limited. You should also have a copy of my statement for your information and use.

In 1786 the French explorer Comte de La Perouse on a voyage of discovery made landfall on a small island some 400 miles northwest of . He named it Necker in honor of the French Minister of Finance, Jacques

Necker. The Journal of La Perouse, written some nine years after Captain Cook's discovery of Hawaii, is our earliest account of lands

of the present-day Hawaiian Islands National Wildlife Refuge.

In the next 40 years other Captains, on other ships, pursuing other mis-

sions, gradually unrolled the map of the Northwestern or Leeward Hawaiian

Islands. But they were not the first to gain a knowledge of the Leewards-

early Polynesians proceeded them by perhaps a thousand years. Over 100

archeological sites on and Necker attest to Polynesian presence

on these islands over 700 years ago.

Early accounts of the Leewards noted the great abundance of bird life

and the immense rookeries of sea birds. In the late 19th century man

began exploiting what natural resources the islands' had to offer.

Sea birds died by the hundreds of thousands to supply feathers for the

millinery rage of the day. Finally, in 1909 after years of exploitation

and thoughtless destruction, President Theodore Roosevelt established

the Hawaiian Islands Reservation as a preserve and breeding ground for

native birds. About a year later a party of 23 "plume hunters" was

discovered on and Lisianski Islands. They were promptly arrested

by personnel of a revenue cutter and taken to for trial. Almost

260,000 bird wings and other plumage were seized at the time.

The Executive Order establishing the original refuge reflected that

era's incomplete knowledge of the region. The Order included one area

that apparently does not exist and another whose shallowest point is

50 feet below the ocean's surface. Today, the refuge consists of eight distinct islands, reefs and atolls extending over 800 miles within the

Hawaiian Archipelago. The refuge islands are a northwestern extension of the main Hawaiian Islands and are part of the chain commonly referred to as the Leewards. All are in the City and County of Honolulu.

The 1909 Executive Order was also vague in reference to the boundaries of the reservation. The Order implies that shallow waters associated with land masses were to be part of the reservation, but provides no guide to their extent. For practical management of the refuge, it has been necessary to establish a boundary for administration. We realize this boundary—shown in red on the maps of the individual units—is rather arbitrary and in need of more definite location. It is presented to you today only to indicate the area studied for suitability as wilder- ness and to indicate the area currently managed as part of the refuge.

The refuge includes a large variety of volcanic islands and rocks, sand and coral islands and islets, atolls and near atolls, and reefs and shoals. Each unit has its own individuality and supports its own eco- system differing in at least some degree from that of any other unit.

Nihos is the refuge's third largest island and the closest to the main

Hawaiian Islands. At 175 acres it is the largest of the lava islands.

Nihoa's most striking physical feature is a series of vertical cliffs encircling most of the island. From its heights, some 900 feet above the ocean, the entire island slopes inward into Adams Bay.

In variety of plant and animal life Nihoa is rivaled only by Laysan.

Twenty plant species have been identified on Nihoa, including four found nowhere else. One of these, a Loulu palm is the island's moat conspicuous plant. Nihoa is a popular nesting site for a variety of sea birds and shelters the entire x\rorld's populations of two small land birds—the Nihoa finch and Nihoa millerbird.

Necker Island is only 47 acres in size and supports proportionately smaller numbers and variety of life than Nihoa. Necker is long, narrow and rises steeply from its ocean base. Much of the island is exposed rock and low-growing vegetation is limited to the upper portions. Only five plant species have managed to survive on the island. None are unique to Necker. Sea birds make extensive use of the island but there are no land birds. Like the other volcanic islands, Necker is surrounded by only small amounts of coral reef. The submerged portions of these islands taper rapidly into deeper waters.

Gardner Pinnacles covers only 5 acres above the ocean. It consists of a main island and several small associated rocks. The Pinnacles is the most westerly volcanic island and may well represent the oldest piece of lava remaining above the ocean surface in the Hawaiian Chain. Only one species of plant is present—a low succulent, forming a sparse growth on the higher parts of the island. The extensive white fecal stains are evident from a distance and attest to its frequent use by sea birds.

French Frigate Shoals seems somewhat out-of-place among the other volcanic islands. The shoals is a typical atoll representing the last stages of degradation of a high island. A single small lava island, La Perouse

Pinnacle, is the only remaining remnant. All other land masses in the shoals are small coral-sand islets typical of an atoll. covers an area about 18 miles long and 10 miles wide. Within this area there are currently 11 small islets and the

Pinnacle. Collectively they total only 65 acres. Tern Island, the largest, is inhabited and contains an aircraft runway and a Loran navi- gational station.

The other small islets are sand and coral and subject to more or less constant shifting by currents and storm-driven wave action within the lagoon. Winter storms may at times cause complete inundation. The more stable islets support extensive vegetation and are important nesting sites for sea birds.

Coral heads are scattered throughout the lagoon—as they are on many of the other refuge units. Even in a small boat care must be taken to avoid corals which rise abruptly to within a few feet of the surface. At low tides emerging coral heads are evident—often over substantial areas of the lagoons.

Maro Reef is a near atoll which is entirely, although shallowly, sub- merged except for a single rock extending about 2 feet above high water.

It is a vast network of coral reefs covering an area of over 70 square miles. Reefs are exposed throughout the area at low tides and are interspersed with deep water channels 10 to 60 feet in depth.

Little is known about the ecology of this extensive reef formation, but our knowledge of similar areas in the Hawaiian Chain strongly suggests that it is rich in biological resources. It is an important feeding area for sea birds and may also play a significant role in the life cycle of seals and turtles. is an excellent example of a marine eco- system not associated with an island, and is, therefore, unlike any other unit of the refuge.

Laysan Island and are near atolls with low, elongated, centrally-located islands the dominant features. Both are similar physically and have a number of historical parallels.

Laysan is the refuge's largest land mass—1,020 acres. It is about 2 miles long and a mile wide. A large shallow, highly saline closed lagoon dominates the center of the island. Lisianski is about half the size of Laysan, and interestingly enough, also once had a lagoon in its center. Lisianski's lagoon apparently filled in prehistoric times.

Laysan supports the refuge's greatest numbers and diversity of plant and animal life. Originally, five plant varieties and five bird species were unique to the island. Three of the five birds are now extinct.

Lisianski apparently never possessed plants or animals unique to its shores.

Both islands came very close to complete devastation in the early part of this century. In 1890 both islands were leased from the Hawaiian

Kingdom for guano exploitation. Active guano digging lasted for about

10 years. During this time buildings were constructed on Laysan, a well dug, a narrow-gage track laid for transportation of guano fror. beds to, a loading dock, and burros imported to pull carts along the track. The manager of the guano digging operation introduced rabbits to Lisianski

and rabbits and guinea pigs to Laysan. Both multiplied rapidly and soon

virtually denuded both islands. By 1915 the only vegetation remaining

on Lisianski was a single tobacco patch, a remnant set out by the guano

manager, and two specimens of morning glory. A scientific party

visiting Lisianski in 1923 found all rabbits dead—apparently of starva-

tion. They also managed to eradicate those remaining on Laysan.

In the years to follow, vegetation slowly returned. Today, both islands

appear at least, to have recovered—but this recovery is probably still

occurring. We shall never know for certain the losses to unique plants

that may once have been present. However, we do know that three of the

five endemic birds of Laysan were lost.

Compounding the effects of this destruction was the advent of feather

collectors. Sea birds were killed by the hundreds of thousands. In

1902 an estimated 10 million birds were present on Laysan. By 1911 their numbers had dropped to a tenth of that. Innumerable sea birds also perished from the driving sandstorms that occurred once the protective vegetation had been removed.

The last unit of the refuge and the most remote from the main Hawaiian

Islands is Pearl and Hermes Reef. The reef is, like French Frigate

Shoals, a typical atoll. It is elliptical in outline and about 19 miles long by 10 miles wide. The barrier reef of coral is well defined and extends almost completely around the central lagoon. Pearl and Hermes contains six coral islets which lie close to the well-defined barrier reef.

8 Kure or Ocean Island deserves mention although it is not part of the wilderness proposal and is not presently administered as part of the

refuge. Kure was part of the original Executive Order of 1909, but was placed under the jurisdiction of the Secretary of the Navy in 1936.

After the Second World War President Truman transferred the island to

the Territory of Hawaii, apparently unaware of the original Executive

Order. Its true status needs clarification.

Some of the most remarkable sea bird colonies in the world occur on

the Hawaiian Islands Refuge. They, and their unique island ecosystems, constitute a resource of international importance—a resource our Nation has the privilege and responsibility of safeguarding.

For eons sea birds have converged upon the islands from vast areas of the

Pacific to nest and replace their kind. A total of 18 different species of marine birds nest on the refuge. Some are present year around, others

are there for one season and gone the next. Most of the world's popula- tion of Laysan and black-footed albatross—gooney birds—nest on the refuge. Laysan Island may support over 125,000 pairs and little South- east Island at Pearl and Hermes Reef may have over 50,000 albatross covering its 32 acres. Millions of terns, petrels, shearwaters, boobies, tropic-birds, noddies and frigate-birds join the albatrosses. The screams of these birds are almost deafening as they rise up in clouds before the intruder.

Other life is also dependent on these islands. Almost the entire world's surviving are found on the refuge. French Frigate Shoals is now considered the most important nesting area of

the in the Central Pacific. Exploited for its flesh

and eggs, the green sea turtle has been badly decimated in many parts

of the world.

With the devastation of Laysan, a substantial part of the island's

heritage of unique birds was lost. The Laysan millerbird became extinct

sometime between 1911 and 1923. The last of the flightless rails and

beautiful red honeycreepers perished in a sandstorm on Laysan in 1923.

Despite these losses, several endemic birds remain on Nihoa and Laysan,

all are endangered but with careful management—and a bit of luck—

they should survive for posterity. On Nihoa about 3,000 Nihoa finches

and about 600 Nihoa millerbirds survive. On Laysan some 8,000 Laysan

finches and about 100 Laysan teal are holding onto existence.

With populations this small, numbers fluctuate from year to year,

usually without apparent explanation. We have several long-term studies underway that may eventually provide the reasons for these fluctuations

and perhaps the means of reducing their severity.

Our management of the islands necessarily emphasizes preservation— preservation of the great sea bird colonies and preservation of the entire system of life that makes these islands so unique. For this reason, public use, as typically occurs on other units of the National

Wildlife Refuge System, is not appropriate. Accidental introductions of pest plants or insects in clothing, shoes or equipment is a definite threat. Too much human activity on the sandy islands could easily

10 destroy the underground burrows of nesting birds. In addition, the

islands are remote and access is difficult. Reefs, shoals and shallows

pose a hazard to boats and landing and disembarking is dangerous

especially on the volcanic islands. Sudden violent storms or continued

stiff winds of several weeks' duration are common.

Public use will continue to be limited to that by scientists on approved

and carefully regulated research. The refuge is admirably suited to

this use.

Most other resources of the refuge are of minor importance. The guano

phosphate beds are largely depleted. The shallow waters may be a pos-

sible source of sand to replenish the beaches of the main islands,

but this could seriously affect the nature of some of the refuge units

and is of questionable feasibility.

Waters of the refuge constitute less than 20 percent of the shallow

xraters of the Hawaiian Chain. Their fishery potential is largely

unknown in extent of resources and feasibility of exploiting those

resources. Investigations to date have focused on French Frigate

Shoals and Pearl and Hermes Reef. Commercial operations in refuge

waters would affect marine life and are naturally of great concern to

us.

While the land masses of the refuge are physically separated from their marine environments by the ocean's surface, the biological separation

is not well defined. The great sea bird rookeries—the monk seal—

the green sea turtle—are dependent upon sea life for their existence.

11 Also, the refuge waters are still in virtually pristine condition—

undisturbed and unpolluted. They offer opportunities for ecological

monitoring and research to further man's knowledge of the sea.

Any harvest of the fishery resources must carefully consider the impli-

cations of exploitation, lest we lose in the long run more than we gain.

The wilderness proposal includes all lands of the refuge above mean

high tide except Tern Island in French Frigate Shoals. Tern Island

has been grossly altered from its natural condition. The Coast Guard

maintains a Loran station on the island through cooperative agreement

and the Atomic Energy Commission operates a monitoring facility. In

the not too distant future, we hope to establish a small laboratory

on Tern Island as a. base for governmental and cooperating scientists

engaged in research on the refuge. Also, in the future is an inter-

pretive center in the Honolulu area. This center would provide the means of achieving the educational objectives of the refuge.

The Hawaiian Islands Refuge is administered from an office in Kailua on the island of . Travel to the refuge is by ship and aircraft provided through courtesy of the various military agencies operating in this part of the Pacific. Consequently, visits to the refuge are infrequent and have occurred on an opportunistic, irregularly-scheduled basis.

In the future we hope to improve our flexibility. Small motorized boats and helicopters are used fjor landings on the- islands. Helicop-

12 ters are the most effective and least hazardous means of transport.

Their use should continue in the interest of safety alone. Where landings must be made by rubber boat—such as on Nihoa and Necker— small landing ramps should be developed to reduce the high risks some- times encountered by personnel during landings. On the larger islands small rustic shelters are needed to protect personnel from the gales which occasionally lash the islands. At times these destroy camps and equipment. The need for these types of facilities would be reduced if the flexibility of transportation were improved.

The wilderness proposal includes only those refuge lands above mean high tide. A total of 1,741 acres of the refuge would be included in the wilderness.

An additional 302,462 acres are submerged refuge lands below mean high tide. Almost all of this area is equally undisturbed and in its own way an underwater wilderness. However, these lands are not included in the wilderness proposal. Waters surrounding the refuge islands are navigable waters. The needs of the State of Hawaii and other agencies having responsibilities in the area may require activities that would conflict with wilderness.

My preceding remarks have summarized the findings of a wilderness area study conducted by the Bureau of Sport Fisheries and Wildlife on the

Hawaiian Islands National Wildlife Refuge. It was an in-depth examina- tion of all factors mitigating for or against wilderness on the area.

13 We are indebted to a number of individuals and governmental agencies for aid and information essential to the study.

Our recommendations to the Director, Bureau of Sport Fisheries and

Wildlife, Washington, B.C., will be as follows:

Approximately 1,741 acres of the Hawaiian Islands National

Wildlife Refuge are suitable for inclusion in the National

Wilderness Preservation System. Included are all lands of

the refuge above mean high tide except Tern Island in French

Frigate Shoals.

The proposed Hawaiian Islands Wilderness would consist of eight

units coinciding with the eight refuge units.

The 302,462 acres of submerged lands below mean high tide

that are administered as part of the refuge are not suitable

for wilderness. While they are mostly undeveloped and undis-

turbed, they lie under havigable waters where the State of

Hawaii and other agencies have responsibilities that may con-

flict with wilderness.

Establishment of this wilderness would be entirely compatible

with the management objectives of the refuge. Indeed, it would

aid in achieving the major refuge objectives by providing greater

assurance that the islands and their wildlife will be preserved

in their present undisturbed condition.

14 It is further recommended that the status of Kure Island be

clarified and returned to the refuge if appropriate. If Kure

Island is deemed part of the refuge, it should also receive

consideration as wilderness.

The actual boundaries of the refuge are not well established

by Executive Order 1019 in the shallow waters associated with

the refuge land masses. These boundaries are presently being

re-examined with the aim of providing a more definite boundary

for the refuge.

Alternatives to the proposed action have been explored, and an environ- mental impact statement prepared for review by the Council of Environ-

mental Quality as required by the Environmental Quality Act of 1969

(Public Law 90-190).

I want to thank all of you who are here today for coming, and also those

who have expressed their views by letter. Your oral and written views will be carefully studied before final recommendations are submitted to

the Secretary of the Interior.

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