93d Congress, 2d Session House Document No. 93-403

PROPOSED ADDITIONS TO THE NATIONAL WILDERNESS PRESERVATION SYSTEM

COMMUNICATION FROM THE PRESIDENT OF THE TRANSMITTING

PROPOSALS FOR THIRTY-SEVEN ADDITIONS TO THE NATIONAL WILDERNESS PRESERVATION SYSTEM AND DEFERRAL OF ACTION ON FIVE AREAS SUITABLE FOR INCLUSION IN THE SYSTEM, AND RECOMMENDATIONS AGAINST THE INCLUSION OF FOUR OTHER AREAS STUDIED, PURSUANT TO SECTION 3 OF THE WILDER- NESS ACT OF 1964 [16 USC 1132]

PART 25

MEDICINE LAKE WILDERNESS MONTANA

DECEMBER 4, 1974.— Referred to the Committee on Interior and Insular Affairs and ordered to be printed with illustrations.

U.S. GOVERNMENT PRINTING OFFICE WASHINGTON : 1974 THE WHITE HOUSE

WAS HINGTO N

December 4, 1974

Dear Mr. Speaker: Pursuant to the Wilderness Act of September 3, 1964, I am pleased to transmit herewith proposals for thirty-seven additions to the National Wilderness Preservation System. As described in the Wilderness Message that I am con- currently sending to the Congress today, the proposed new wilderness areas cover a total of over nine million primeval acres. In addition, the Secretary of the Interior has recommended that Congressional action on five other areas which include surface lands suitable for wilderness be deferred for the reasons set forth below: A. Three areas which are open to mining might be needed in the future to provide vital minerals for the Nation, but these areas have not been adequately surveyed for mineral deposits. The areas are the Kofa Game Range, Arizona; Charles Sheldon Antelope Range, Nevada and Oregon; and, Charles M. Russell National Wildlife Range, Montana.

B. One area is subject to withdrawals for power purposes and additional study is needed of the West's potential energy needs before a wilderness decision can be made. This is Lake Mead National Recreation Area, located in Arizona and Nevada. C. Certain parts of one area are subject to selection by the village of Mekoryuk under the terms of the Alaska Native Claims Settlement Act and a wilderness recommenda- tion should be made only after the completion of the Native selection process. The area in question is the Nunivak National Wildlife Refuge in Alaska. Four other possibilities considered by the Secretary of the Interior in his review of roadless areas of 5,000 acres or more were found to be unsuitable for inclusion in the Wilderness System: Deer Flat National Wildlife Refuge, Oregon and Idaho; Blackwater National Wildlife Refuge, Maryland; Mammoth Cave National Park, Kentucky; and, Upper Mississippi River Wildlife and Fish Refuge, Minnesota, Wisconsin, Iowa and Illinois. I concur in this finding and in the other recommendations of the Secretaries of the Interior and Agriculture, all of which are transmitted herewith. Wilderness designation of both of these new wilderness areas and those already submitted that are pending be- fore the Congress would dramatically demonstrate our commitment to preserve America's irreplaceable heritage, and I urge the Congress to act promptly in this regard. Sincerely,

The Honorable Carl Albert Speaker of the House of Representatives Washington, D.C. 20515 United States Department of the Interior

OFFICE OF THE SECRETARY WASHINGTON, B.C. 20240

JUN 2 0 1974

Dear Mr. President:

It is with pleasure that I recommend the establishment of areas totaling approximately 11,366 acres in Medicine Lake National Wildlife Refuge as part of the National Wilderness Preservation System.

The recommendation stems from this Department's responsibility under the Wilderness Act (78 Stat. 390) to recommend to the President areas within its jurisdiction suitable for designation as wilderness. Having reviewed potential areas in Medicine Lake National Wildlife Refuge, we conclude that 11,366 of the refuge's 31,^57 acres should be designated wilderness.

Primarily a waterfowl production area, the Medicine Lake National Wildlife Refuge was established by Executive Order in 1936. It is located in northeastern Montana, along the Central Flyway. About ^0 percent of the refuge consists of lakes and ponds; about 57 percent is pasture and meadowland; and the remaining 3 percent is farmland. Waterfowl are most abundant on the refuge during the spring and fall migration periods: the peak fall population frequently exceeds a quarter of a million birds.

Varied management programs, all designed to encourage waterfowl production or create food and nesting habitat, are conducted on the refuge: these include intensive water management activities on nearly all refuge water areas. With the recant discontinuance of motorboat activity in Medicine Lake, however, we consider this area and the Sandhills Unit of the refuge suitable for wilderness designation. A mineral survey of the refuge has not been made.

In accordance with the requirements of the Wilderness Act, a public hearing on the recommendation was held at Medicine Lake, Montana, on March 16, 197^- Analyses of the hearing records and written expressions received, together with the letters received from other Federal agencies, are contained in the enclosed synopsis. Complete records have been compiled and are available for inspection by the public. Enclosed is a draft bill which, if enacted, would incorporate the recommended area of Medicine Lake National Wildlife Refuge into the National Wilderness Preservation System.

Sincerely yours,

Assistggt Secretary of the Interior

The President The White House Washington, D. C. 20500

Enclosure A B. I. L_ L_

To designate certain lands in the Medicine Lake National Wildlife Refuge, Sheridan and Roosevelt Counties, Montana, as wilderness.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That, in accordance with section 3(c) of the Wilderness Act of September 3, 196*1 (78 Stat.

890, 892; 16 U.S.C. 1132(-c)), certain lands in the Medicine Lake

National Wildlife Refuge, Montana, which comprise about 11,366 acres and which are depicted on a map entitled "Medicine Lake Wilderness

Proposal", dated November 1973, are hereby designated as wilderness.

SEC. 2. As soon as practicable after this Act takes effect, a map of the wilderness area and a description of its boundaries shall be filed with the Interior and Insular Affairs Committees of the United

States Senate and the House of Representatives, and such map and description shall have the same force and effect as if included in this

Act: Provided, however, That correction of clerical and typographical errors in such map and description may be made.

SEC. 3. The area designated by this Act as wilderness shall be known as the "Medicine Lake Wilderness" and shall be administered by the Secretary of the Interior in accordance with the applicable provisions of the Wilderness Act governing areas designated by that Act as wilderness areas, and where appropriate any reference in that Act to the Secretary of Agriculture shall be deemed to be a reference to the Secretary of the Interior. SEC. 4. Subject to all valid rights existing on the date of enactment of this Act, lands designated as wilderness by this I Act are hereby withdrawn from all forms of appropriation under the mining laws and from disposition under all laws pertaining to mineral leasing and all amendments thereto. PUBLIC HEARING ANALYSIS

MEDICINE LAKE NATIONAL WILDLIFE REFUGE

On March 16, 197^ pursuant to the requirements of the Wilderness Act, a public hearing was held in Medicine Lake, Montana to ascertain public views on the desirability to include the Medicine Lake National Wildlife Refuge in the National Wilderness Preservation System. This hearing record remained open until April 16, 197^ in order to allow sufficient time for interested agencies and' individuals to submit written statements for inclusion in the official record.

The public hearing was officially opened at 10 a.m. on March 16, 197** at the Medicine Lake High School, Medicine Lake, Montana. The hearing officer was Lotario D. Ortega, Field Solicitor, Albuquerque, Hew Mexico. Prepared statements were read by Mr. Ortega and Mr. Burton Rounds of the Billings Area Office. A slide presentation was given by Mr. Donald White, Refuge Manager of Medicine Lake NWR.

The proposal made by the Bureau of Sport Fisheries and Wildlife was as follows: "Approximately 11,366 acres of the Medicine Lake NWR are recommended for inclusion in the National Wilderness Preservation System. The remaining areas of the refuge were found not suitable."

A total of 62 individuals attended the hearing. Five individuals presented statements. Mr. Donald Aldrich represented the National Wilderness Society and the Montana Wildlife Federation. Mr. Aldrich spoke in favor of the Bureau's proposal. Mr. Henry Crohn, Dagmar, Montana, represented Friends of the Farth and the Montana Wilderness Society. He also favored the proposal. Mr. Mike Aderhold represented the Montana Fish and Game and read a position statement that endorsed the Bureau's proposal for wilder- ness. Mr. Ed Smith, Dagmar, Montana, represented the Medicine Lake Wild- life Refuge Policy Action Committee and himself as a rancher. Mr. Smith did not take a positive position approving or disapproving the proposal but asked several questions as to what affects wilderness would impose on the management and the users of the refuge. Donald R. Marble represented the Montana Wilderness Association and supported the Bureau's proposal for wilderness designation of 11,366 acres.

A question and answer session followed the presentation of formal state- ments. I terns such as future management of grazing, public use, and other economic uses as they relate to the wilderness units were discussed. No one opposed the designation( of wilderness as each of the items were discussed.

The entire proceedings lasted 95 minutes, whereupon the hearing officer announced that the record would remain open for 30 days and officially concluded the hearing at 11:35 a.m.

42-797 O - 75 - pt.25 - 2 ANALYSIS OF WRITTEN CORRESPONDENCE

MEDICINE LAKE NATIONAL WILDLIFE REFUGE

Communications From Elected Officials

Comments were received from the Governor of Montana and Montana Representative Harrison G. Fagg. The Governor supports designation of wilderness. Representative Fagg urges inclusion of Medicine Lake in the wilderness preservation system.

Communications From State and Local Departments and Officials

The Montana Fish and Game Commission endorsed the Bureau's proposal for wilderness. The Sheridan County Conservation District opposed the designation of wilderness.

Communications From Federal Departments jand_ Agencies_

Replies and comments were received from the following Federal agencies:

Office of the Assistant Secretary of Defense - no comment

Federal Power Commission - concurred with Bureau proposal

Department of the Interior Office of the Secretary - concurred, but mineral resources should be investigated Bureau of Mines - same as Secretary Geological Survey - same as Secretary

Department of Agriculture Forest-Service - suggest discontinuance of-all boat use.

Communications From Organizations

Twenty-seven letters came from organizations. Of these 26 supported the Bureau's proposal. The American Mining Congress will not favor wilderness designation until a mineral resource survey is taken and will then assess the proposed area.

Coi.iiP.unic at ions Fr om C i t iz ens

A total of 251 letters were received from private citizens - 240 supported the Bureau's proposal, 9 citizens were against the proposal (most of these were haying and grazing permittees), and 2 citizens did not express a position. WILDERNESS STUDY SUMMARY

MEDICINE LAKE NATIONAL WILDLIFE REFUGE MEDICINE LAKE, MONTANA

UNITED STATES DEPARTMENT OF THE INTERIOR BUREAU OF SPORT FISHERIES AND WILDLIFE CANADA

Minot U.S. Z

G (endive N. D. MONT. Bismarc&smo k Milgs City

WYO. S.JO. * Pierre UTC AT I 0 N MAP

This report was prepared pursuant to the Wilderness Act, Public Law 88-577. Publication of the findings and recom- mendations herein should not be construed as representing either the approval or disapproval of the Secretary of the Interior. The purpose of this report is to provide informa- tion and alternatives for further consideration by the Bureau of Sport Fisheries and Wildlife, Secretary of the Interior, and other Federal agencies. Preface

Approximately 11,850 acres within the Medicine Lake National Wildlife Refuge are proposed for addition to the National Wilderness Preserva- tion System. Included are two separate units — Medicine Lake and all islands within, and an upland area called the "Sandhill Area." This brochure explains the proposal and summarizes a study of the refuge by the Bureau of Sport Fisheries and Wildlife at the direction of the Secretary of the Interior. The Wilderness Act of September 3, 1964 (Public Law 88-577), re- quires that the Secretary of the Interior review every roadless area of 5,000 contiguous acres or more and every roadless island, regardless of size, within the National Wildlife Refuge system within ten years after the effective date of the Act, and report to the President of the United States his recommendations as to the suitability or nonsuitability of each such area or island for preservation as wilderness. A recommen- dation of the President for designation as wilderness does not become effective unless provided by an Act of Congress. In defining wilderness, the Act also included areas of less than 5,000 acres that are of sufficient size to make preservation and use in an unimpaired condition practicable.

Sections 4(a) and (b) of the Wilderness Act provide that: (1) The Act is to be within and supplemental to the purposes for which National Wildlife Refuges are established; and (2) Wilderness areas shall be ad- ministered so as to preserve their wilderness character and shall be devoted to the public purposes of recreational, scenic, scientific, educa- tional, conservation, and historical use insofar as primary refuge ob- jectives permit. Wilderness does not remove or alter an area's status as a National Wildlife Refuge. Introduction

Medicine Lake National Wildlife Refuge was established in 1935 by Executive Order No. 7148. The refuge contains 31,457 acres of water, marsh, and uplands and is located in Sheridan and Roosevelt Counties of northeastern Montana, within 30 miles of the Canadian border. It is in the central waterfowl fly way on the edge of the great prairie pothole duck production area. The area lies within the ancestral flight path of ducks, geese, swans, sandhill cranes, and often whooping cranes moving to and from northern breeding grounds. Although the refuge was established primarily as a breeding ground for migratory waterfowl, all wildlife and wildlands are an essential concern of management. While the original management goals still apply, they have been expanded to include the following responsibilities: (1) full protection of rare and endangered species; (2) promoting an under- standing of wildlife and the wildlands ecosystem for public enjoyment and educational purposes; (3) providing optimized levels of wildlife and wildlands oriented recreation; and (4) promoting and preserving diversity and healthy abundance of all wildlife on the refuge. History

According to writings of early historical researchers, the territories around Medicine Lake were occupied by Assiniboine Indians. Artifacts collected near Medicine Lake suggest this area was used by Indians for hunting and fishing. Explorers such as Jean-Baptiste Trudeau, Lewis and Clark, Alexander Culbertson, and Prince Maximillian all passed through or just south of the area in the late 1700's. Many avoided the area north of the Missouri River drainage mainly due to the fierce and warlike Indians found there. Northeastern Montana was opened to home steading in 1906. By 1910 nearly every 160-acre tract had a farm. Livestockmen, enjoying the open-range status of this area since 1880, had to give way to the homesteading era. Harsh winters, fires, and the drought of the 1930's thinned the number of homesteaders that remained as farmers. Recent census figures show that Sheridan County has declined in population steadily since 1910. Description

The refuge is located in the western portion of the northern prairie pothole country. The area is gently rolling to flat with elevations varying from 1,935 to 2,025 feet. Medicine Lake proper is located in one of the prehistoric beds of the Missouri River. Due to long-term erosion at the outlet portion of the lake, it was nec- essary to construct a water-control structure to restore the normal lake level. There are six watersheds surrounding Medicine Lake, all providing sufficient water for refuge impoundments comprising over 13,000 acres of water and marsh. Adjacent to the water areas are more than 17,400 acres of prairie grasslands and 884 acres of cropland. The entire area is intensively used as a breeding ground for waterfowl, shorebirds, and colonial nest- ing birds. The climate is typical of the northern plains with extreme temperatures of -57° to 117°. Average precipitation is 12 inches. Summer hailstorms and violent electrical storms are common. Resources

Nesting waterfowl and colonial birds are common during the spring. About 500 Canada geese and 15,000 ducks are produced annually. Spectacular spring and fall waterfowl concentrations often number over 100,000 birds. Whistling swans are common during the migration periods. Medicine Lake has been well-known for its large number of colonial nesting birds. Big Island and Bridgeman Point support colonies of white pelicans, great blue herons, double-crested cormorants, ringbilled and California gulls, and other associated species. The area has one of the largest white pelican colonies remaining in the United States. Over 200 bird species have been recorded on the refuge. Sharp-tailed grouse, ring-necked pheasant, and gray partridge are year-round resi- dents. Occasionally the endangered whooping crane stops during their spring and fall migration. A total of 44 species of mammals are found on the refuge. White-tailed deer were not present when the area was established, but through proper habitat management the herd is presently over 500 head. Both white-tailed deer and mule deer along with antelope are hunted on the refuge. Annual grazing is currently permitted. Haying was eliminated in 1973 to encourage maximum waterfowl nesting. Possible mineral deposits beneath the refuge surface include oil, gas, coal, sodium, potash, and gravel. However, no deposits of commercial significance are known to underlie the refuge. UNITED STATES DEPARTMENT OF THE INTERIOR FISH AND WILDLIFE SERVICE BUREAU OF SPORT FISHERIES AND WILDLIFE MEDICINE LAKE NATIONAL WILDLIFE REFUGE ROOSEVELT AND SHERIDAN COUNTIES, MONTANA

Glendive MONT. Miljs City

PROPOSED WILDERNESS LOCATION MAP PROPOSED WILDERNESS SHERIDAN CO. I EXCLUSION ROOSEVELT CQ Management development

Refuge management has historically emphasized waterfowl production. The area is within an area that is conducive to attracting nesting birds and serves as a stopover place for migrating birds. Over the years, management has recognized the needs of other species of wildlife such as nesting colonial birds, endangered species, and certain resident game species. Currently there are 14 dense nesting cover plots. These plots are strategically located to enhance waterfowl nesting sites. Future plans call for an additional seven sites — none of which will occur in the proposed wilderness area.

Aside from Medicine Lake proper, most watersheds and waterways are extensively developed with dams and water-control structures. Future plans include two water impoundments and a series of pothole develop- ments. The entire area contains over 13,000 acres of water and marsh.

About 800 acres of cropland are maintained to provide grain crops and browse for wildlife. Grazing is permitted on several upland areas. Canada geese are live trapped and banded annually on Medicine Lake. Periodically, a census of wildlife is taken to determine numbers and variety of wildlife using the area. These censuses are taken by vehicle on upland areas and by boat on the water areas.

Public use

Public use is confined to the summer and fall periods since severe weather conditions restrict most winter activities. Annual visitation amounts to 13,000 visitors. Most of the visitor use consists of wildlife observation, interpretation, and sightseeing. Vehicle use is restricted to designated roads. Off-road vehicles are not permitted due to wildlife disturbance and possible habitat destruction. A boat-launching site and picnic area are located on the west end of Medicine Lake. Sport fishing with motorized boats is permitted in a zoned area. Both white-tailed and mule deer along with antelope are hunted on the refuge. Waterfowl hunting is permitted on the east end of the refuge. Sport fishing and hunting will be offered in the proposed wilderness area, but motorized equipment will not be permitted.

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The refuge consists of 28,197 acres located in Sheridan County and 3,260 acres in Roosevelt County. Under the Revenue Sharing Act, over $10,000 is returned to Sheridan County and $1,000 to Roosevelt County. Situated in the extreme northeast corner of the state, the distance to the North Dakota border is only 20 miles and to Canada less than 40 miles.

Haying will not be permitted after 1973. This is necessary in order to protect valuable wildlife habitat for nesting wildlife. Livestock grazing is currently permitted but will be reevaluated to determine its need under present management objectives. The immediate area around Medicine Lake Refuge is predominantly rural and therefore exerts limited recreational demands. The elimina- tion of motorized watercraft for fishing will not markedly be felt. Under wilderness status, there will be little or no effect on the coopera- tive farming, grazing, or revenue sharing programs. Conclusions

About 11,850 acres of the Medicine Lake National Wildlife Refuge appear suitable for inclusion in the National Wilderness Preservation System.

The proposed wilderness will consist of two units — Medicine Lake and the Sandhills unit. The Medicine Lake unit will include the entire lake, all islands within the lake area, the Bridgeman Point, and grazing unit 7. The Sandhills unit is a grassland-shrub complex bounded by a county road on the north side and the refuge boundary on the other three sides. The remaining 19,600 acres of the refuge were found not suitable for wilderness status as they are intensively managed and developed to meet refuge objectives. An Environmental Statement has been prepared for this proposal and is available on request. List of Document Parts — House Document 93-403

PART

1. Wilderness, Mount Rainier National Park, Washington 2. Kenai Wilderness, Kenai National Moose Range, Alaska 3. Wilderness, Bighorn National Forest, Wyoming 4. Agassiz Wilderness, Agassiz National Wildlife Refuge, Minnesota 5. Sheldon Wilderness, Sheldon National Antelope Refuge, Nevada (and proposed deferral of action on portions of the Charles Sheldon Antelope Range, Nevada and Oregon) 6. Monarch Wilderness, Sequoia and Sierra National Forests, California 7. Santee Wilderness, Santee National Wildlife Refuge, South Carolina 8. Everglades Wilderness, Everglades National Park, Florida 9. Salmon River and Idaho Wildernesses, Boise, Challis, Payette, Salmon, Bitterroot, and Nezperce National Forests, Idaho 10. Parker River Wilderness, Parker River National Wildlife Refuge, Massa- chusetts 11. Hawaii Volcanoes Wilderness, Hawaii Volcanoes National Park, Hawaii 12. Big Lake Wilderness, Big Lake National Wildlife Refuge, Arkansas 13. Aleutian Islands Wilderness, Aleutian Islands National Wildlife Refuge, Alaska 14. Beartooth Wilderness, Custer and Gallatin National Forests, Montana 15. Dinosaur Wilderness, Dinosaur National Monument, Utah and 16. Lacassine Wilderness, Lacassine National Wildlife Refuge, Louisiana 17. Popo Agie Wilderness, Shoshone National Forest, Wyoming 18. Mattamuskeet Wilderness, Mattamuskeet National Wildlife Refuge, N. Car.; Swanquarter Wilderness, Swanquarter National Wildlife Refuge, N.Carolina; Cedar IslandWilderness, Cedar Island National Wildlife Refuge, N. Carolina; Pea Island Wilderness, Pea Island National Wildlife Refuge, North Carolina 19. Organ Pipe Cactus Wilderness, Organ Pipe Cactus National Monument, Arizona 20. J. N. "Ding" Darling Wilderness, J. N. "Ding" Darling National Wildlife Refuge, Florida 21. Trinity Alps Wilderness, Klamath, Shasta-Trinity, and Six Rivers National Forests, California 22. Assateague Island Wilderness, Chincoteague National Wildlife Refuge and Assateague Island National Seashore, Maryland and Virginia 23. Death Valley Wilderness, Death Valley National Monument, California arid Nevada 24. Fort Niobrara Wilderness, Fort Niobrara National Wildlife Refuge, Nebraska 25. Medicine Lake Wilderness, Medicine Lake National Wildlife Refuge, Montana 26. Great Smoky Wilderness, Great Smoky Mountains National Park, North Carolina and Tennessee 27. Big Blue, Courthouse , Dolores Peak, and Sneffels and Wildernesses, San Juan and Uncompaghre National Forests, Colorado 28. Lake Woodruff Wilderness, Lake Woodruff National Wildlife Refuge, Florida 29. Anaho Island Wilderness, Anaho Island National Wildlife Refuge, Nevada 30. Noxubee Wilderness, Noxubee National Wildlife Refuge, Mississippi 31. UL Bend Wilderness, UL Bend National Wildlife Refuge, Montana 32. Bombay Hook Wilderness, Bombay Hook National Wildlife Refuge, Delaware 33. Back Bay Wilderness, Back Bay National Wildlife Refuge, Virginia 34. Gila Wilderness, New Mexico (addition) 35. Proposed areas for which deferral of action is recommended: Kofa Game Range, Arizona Charles M. Russell National Wildlife Range, Montana Lake Mead National Recreation Area, Nevada and Arizona Nunivak National Wildlife Refuge, Alaska 36. Areas found unsuitable for inclusion in the System: Deer Flat National Wildlife Refuge, Oregon and Idaho Blackwater National Wildlife Refuge, Maryland Mammoth Cave National Park, Kentucky Upper Mississippi River Wildlife and Fish Refuge, Minnesota, Wisconsin, Iowa, and Illinois

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