The President Oe the United States Transmitting

.v.'ll,

93d Congress, 2d Session House Document No. 93-319

PROPOSALS FOR THE ADDITION OF FIFTEEN NEW AREAS TO THE NATIONAL WILDERNESS PRESERVATION SYSTEM

MESSAGE FROM THE PRESIDENT OE THE UNITED STATES TRANSMITTING

PROPOSALS FOR THE ADDITION OF FIFTEEN NEW AR- EAS TO THE NATIONAL WILDERNESS PRESERVATION SYSTEM, THE AUGMENTATION OF TWO PREVIOUSLY- SUBMITTED PROPOSALS, AND RECOMMENDATIONS AGAINST INCLUSION IN THE SYSTEM OF SEVEN ROAD- LESS AREAS STUDIED, PURSUANT TO SECTION 3 OF THE WILDERNESS ACT OF 1964 [16 USC 1132]

PART 4

HAWAIIAN ISLANDS NATIONAL WILDLIFE REFUGE HAWAII

JUNE 13, 1974.-Message and accompanying papers referred to the Committee on Interior and Insular Affairs and ordered to be printed with illustrations

U.S. GOVERNMENT PRINTING OFFICE WASHINGTON : 1974 34-893 O LETTER OF TRANSMITTAL

To the Congress of the United States: There is no greater challenge facing America today than the discovery and development of new energy resources. As we move toward national self-sufficiency in energy, however, we must be diligent in protecting and preserving our natural heritage of unspoiled wilderness areas and the ecosystems which they support. With this goal in mind, and pursuant to the Wilderness Act of 1964, I am today proposing 15 new additions to our National Wilderness Pres- ervation System. These additions comprise more than 6 million acres and would nearly double existing wilderness acreage. I would also like to take this opportunity to urge once again that Congress enact the eastern wilderness legislation I recently submitted, now embodied in legislation labeled S. 2487 and H.R. 10469. On May 31, the Senate passed a bill which would designate certain wilderness areas in the Eastern United States. The Senate bill, I believe, is inadequate. I urge the House to give early and favorable consideration to wilderness legislation incorporating the Administration proposal, and I urge the Congress to adopt it as the most balanced approach to studying and designating wilderness areas in the Eastern United States. Briefly described, the additions I am proposing today are: (1) Crater Lake National Park, Oregon-122,400 acres. Crater Lake is the deepest lake in the country and, in its ancient caldera setting, one of the most beautiful. The lake is surrounded by rugged and varied ter- rain, most of which is recommended for wilderness designation. (2) Havasu National Wildlife Refuge, California—2,510 acres of Sonoran desert land. Located in one of the hottest and driest areas of the country—rainfall averages only 4.73 inches per year—this refuge is the home of such rare or endangered species as the Yuma clapper rail, the Gila monster, and the peregrine falcon. (3) Semidi National Wildlife Refuge, Alaska-256,000 acres com- prising nine islands and surrounding submerged lands in the western Gulf of Alaska. The refuge's fragile estaurine system is a breeding ground for vast colonies of sea birds and other forms of wildlife. (4) Hawaiian Islands National Wildlife Refuge, Hawaii—1,742 acres on various islets and reefs distributed among some 800 miles of ocean between the main Hawaiian Islands and Midway Island. Among the rare forms of wildlife found within this refuge are the Laysan teal, found only on Laysan Island; the Hawaiian monk seal; and the green sea turtle. (5) Crab Orchard National Wildlife Refuge, Illinois —4,050 acres. This refuge is a haven for such migratory waterfowl as Canada geese, snow and blue geese, and mallard ducks. (6) Zion National Park, Utah —120,620 acres. This park is a superla- tive example of the effect of erosion on an uplifted plateau. The great bulk of its towering peaks and pinnacles, arches, and natural bridges are recommended for wilderness designation. (7) Katmai National Monument, Alaska—2,603,547 acres. Situated near the base of the Alaskan Peninsula, this massive area comprises three entirely different ecosystems: a coastal area dotted with fjord- like bays; a mountainous area atop ancient volcanic basement rocks; and a plain crisscrossed by lakes of glacial origin. (8) Rice Lake and Mille Lacs National Wildlife Refuges, Minne- sota—1,407 acres. Consisting largely of bog, forest, and lakes, Rice Lake National Wildlife Refuge supports a variety of birds, notably the ring- necked duck. Both of the islands which constitute the small, nearby Mille Lacs National Wildlife Refuge are also included in this recommendation. (9) Glacier National Park, Montana—927,550 acres. Located in the Rocky Mountains of Montana, this park—nearly all of which is suitable for wilderness designation —contains some 50 small glaciers and 200 lakes. (10) Red Rock Lakes National Wildlife Refuge, Montana-32,350 acres. Although it harbors a multitude of ducks, as well as such mam- mals as moose, elk, deer, and antelope, the primary purpose of this refuge is to protect the once-rare trumpeter swan, largest of all Amer- ican waterfowl. (11) Olympic National Park, Washington —862,139 acres. The home of more than 50 wildlife species, this landscape of rain forests and sea- shore lies in the wettest winter climate in the lower 49 States. (12) Tamarac National Wildlife Refuge, Minnesota —2,138 acres. One of the most important sanctuaries along the Mississippi Flyway, this area hosts thousands of pairs of ducks during the annual nesting season. (13) Rocky Mountain National Park, Colorado —239,835 acres char- acterized by massive peaks, Alpine lakes, and mountain forests. Among the wildlife found here are wapiti, mule deer, and bighorn sheep. (14) Missisquoi National Wildlife Refuge, Vermont —620 acres. Lo- cated less than a mile from the Canadian border, this refuge supports primarily waterfowl but also a population of 100 whitetail deer, a species which was all but nonexistent in this area 30 years ago. (15) Unimak Island (Aleutian Islands National Wildlife Refuge), Alaska —973,000 acres. A rich diversity of wildlife, including the Alaskan brown bear and the one-rare sea otter, inhabit this island. Its scenic coastline, rugged mountains, and volcanic remnants make the island ideal for the study of interrelated marine and terrestrial ecosystems. In addition, two proposals which have been previously submitted — Pinnacles National Monument and Sequoia-Kings Canyon National Parks, all in California—have been augmented by sufficient acreage to warrant resubmission to the Congress. The enlargements, which are attributable to revised management philosophy and plans and the recent acquisition of private inholdings, amount to 5,970 acres in the case of Pinnacles and 68,800 acres in the case of Sequoia-Kings Canyon. Three other areas —previously proposed —Cabeza Prieta Game Range, Arizona; Desert National Wildlife Range, Nevada; and Glacier Bay National Monument, Alaska—contain surface lands suitable for wilderness designation. However, because two of these areas are open to mining, and all three may contain minerals vital to the national interest and have not been subjected to adequate mineral surveys, I am recommending that action on these proposals be deferred pending the completion of such surveys. After a review of roadless areas of 5,000 acres or more and roadless islands, the Secretary of the Interior has concluded that seven areas are not suitable for preservation as part of the National Wilderness Preservation System. These are: Savannah National Wildlife Refuge, Georgia; Little Pend Oreille National Wildlife Refuge and Turnbull Na- tional Wildlife Refuge, Washington; Bowdoin National Wildlife Refuge and the National Bison Range, Montana; National Elk Refuge, Wyo- ming; and Horicon National Wildlife Refuge, Wisconsin. In addition to this message, I am transmitting herewith to the Congress letters and reports from the Secretary of the Interior regard- ing these wilderness proposals. I concur with the recommendation of the Secretary in each case, and I urge the Congress to give early and favorable consideration to all of these proposals. RICHARD NIXON. THE WHITE HOUSE, June is, 1974. United States Department of the Interior OFFICE OF THE SECRETARY WASHINGTON, D.C. 20240

Dear Mr. President:

It is with pleasure that I recommend the establishment of areas totaling approximately 1,7^2 acres in Hawaiian Islands 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. 890) to recommend to the President areas within its jurisdiction suitable for designation as wilderness. Having reviewed potential areas in Hawaiian Islands National Wildlife Refuge, we conclude that 1,742 of the refuge's 1,769 acres should be designated wilderness.

Established by an Executive Order of President Theodore Roosevelt in 1909* the refuge comprises several units distributed among some 800 miles of ocean that lie between the main Hawaiian Islands and Midway Island. These units vary from volcanic rocks jutting above the ocean surface, to large atolls of sand and coral, to reefs and islets. Each of them has its own unique ecosystem. Taken together, they constitute the nesting grounds for some of the world' s most remarkable sea birds. Five forms of wildlife threatened with extinction can.be found within the refuge. Included are three small land birds which exist only within the refuge, as well as the world's rarest duck — the Laysan teal, found only on Laysan Island. The refuge is also home for almost all of the world's surviving Hawaiian monk seal. And these islands are the most important nesting area for the remaining green sea turtles which inhabit our waters and the North Pacific.

We consider all of the refuge except Tern Island to be ecologically appropriate for inclusion in the National Wilderness Preservation System. However, we believe that there is an ambiguity as to the precise extent of the refuge's legal boundaries in the order which established it. Essentially, the ambiguity centers on the question as to whether or not certain reefs were included in that order and serve as a boundary to the refuge. All of the area encompassed by these reefs would be suitable for wilderness designation if determined to be owned by the United States. At present this issue is the subject of discussion among the Departments of Interior, State, and Justice and the State of Hawaii. We believe that the proper manner to proceed is to propose immediate wilderness designation of the undisputed emergent lands in the refuge and to revise this proposal if it should ultimately be determined that the United States has title to additional acreage . The islands have immense value as sites for scientific investigation, tut they are extremely vulnerable to disturbance. Accidental introduction of pest plants or animals is a constant threat. Section 6 of the attached proposed bill authorizes the taking of steps to counter- act any such occurrence. Public use of the refuge has been and will continue to be limited to that necessary for carefully regulated research. Sections 5 and 6 of the bill authorize the continued use of helicopters and small motorized boats as the only means of access to the area and the improvement of landing facilities in the area. The islands are considered to be without mineral value. Section k of the bill would close them to mining and mineral leasing.

In accordance with the requirements of the Wilderness Act, a public hearing on the recommendation was held at Honolulu, Hawaii, on April iky 19T3. Analysis 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 Hawaiian Islands National Wildlife Refuge into the National Wilderness Preservation System. Sincerely yours,

tary of the Interior The President The White House Washington, D. C. 20500 Enclosure To designate certain lands in the Hawaiian Islands National Wildlife Refuge, city and county of Honolulu, Hawaii, 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, 196U (78 Stat.

890, 892); 16 U.S.C. 1132(c)), certain lands in the Hawaiian Islands

National Wildlife Refuge, Hawaii, which comprise about 1,7^2 acres and which are depicted on a map entitled "Hawaiian Islands Wilderness Proposal", dated August 1973, and revised June 197^» are hereby designated as wilderness. Dae map shall be on file and available for public inspection in the offices of the Bureau of Sport Fisheries and Wildlife, Department of the Interior.

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 description and map may be made. SBC. 3. The wilderness area designated by this Act shall be known as the "Hawaiian Islands 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 any reference in that Act to the Secretary of Agriculture shall be deemed to be a reference to the Secretary of the Interior.

SBC. k. Subject to all valid rights existing on the date of enactment of this Act, lands designated as wilderness by this 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.

SEC. 5« In order to afford continued access to the area designated as wilderness by this Act, nothing in this Act shall be interpreted to prohibit the use of helicopters and small motorized boats in the area.

SEC. 6. In order to correct the hazardous landing conditions obtaining in parts of the area designated as wilderness by this Act, such improvements of landing facilities as are necessary, including the erection of small rustic shelters for personnel and equipment to be employed in making such improvements, are hereby authorized.

SEC. 7. Nothing in this Act shall be interpreted to prohibit the employment of such measures as may be necessary to meet emergencies involving threatened species, accidental introductions of pest plants or animals, or other jeopardies to the fragile ecosystem of the area designated as wilderness by this Act. SEC. 8. Nothing in this Act shall be construed to diminish

the authority of the Coast Guard, pursuant to lU U.S.C. 2 and 81 and title 1 of the Ports and Waterways Safety Act of 1972 (33 U.S.C. 1221) or the Federal Aviation Administration to use the area designated wilderness by this Act for navigational and maritime and

aviation safety purposes.

34-893 O - 74 - pt. 4 -- 2 SYNOPSIS HAWAIIAN ISLANDS WILDERNESS PROPOSAL

A. Background The Hawaiian Islands National Wildlife Refuge encompasses a series of eight islands, reefs and shoals in the Central Pacific Ocean, almost 3,000 miles southwest of San Francisco. The refuge extends over 800 miles, in a chain known as the Northwestern or Leeward Hawaiian Islands, between Midway and the main Hawaiian Islands. The proposed wilderness includes almost the entire refuge. The refuge was established by Executive Order in 1909 after a long period of careless destruction and commercial exploitation of the island's resources. The refuge was set aside as a sanctuary and breeding ground for sea birds—sea bird rookeries on the refuge are among the world's largest. Today, the refuge is managed for those objectives of the National Wildlife Refuge System consistent with the island's unique ecosystem. The Executive Order establishing the refuge reflect that era's incomplete knowledge of this region. The various islands, reefs, and shoals were withdrawn by name only, with indications on a map of the location and extent of the unit. Exact boundaries have never been determined and are further compli- cated by a complex legal history from discovery to the present day. In today's world, a more definable boundary is needed for adequate management. The boundary question is currently under nego- tiation between the State of Hawaii and the Federal Government. The wilderness proposal reflects the present boundary as agreed upon by both parties at this time. The proposed wilderness would include the entire Hawaii Islands Refuge except Tern Island and immediately adjacent disturbed submerged lands and a ship channel to the island. Immense numbers of sea birds depend upon the islands as a nesting area. Hundreds of thousands of albatrosses which have been roaming the North Pacific from North America to Asia return to the islands to nest. Each year a million or more sooty terns nest on Laysan Island and many hundreds of thousands more on other islands. Esti- mates of burrowing species—shearwaters and petrels—place daytime populations on Nihoa Island at half a million birds. Since most of these birds are nocturnal and spend the daylight hours fishing at sea, numbers present on the island at night are beyond guess. Some 18 different sea birds nest on the refuge, taking their turns throughout the year—for all could not find nesting room at the same time. The more notable include: Laysan and black-footed albatrosses; gray-backed and sooty terns; wedge-tailed and'Christmas Island shearwaters; Bulwer's and Bonin Island petrels; common and Hawaiian noddies; three species of boobies; frigate birds and tropic birds; and the small white fairy tern. Several birds are found only on islands of the refuge. Several other endemic birds are now extinct. The entire world population of Laysan teal--about 175 birds—remains on Laysan Islands. The Laysan finch, population 10,000, is found only on their native Laysan and on Southeast Island in Pearl and Hermes Reef, where they were introduced. About 3,500 Nihoa finches and 600 Nihoa millerbirds "survive on Nihoa Island. Three land birds—all once found on Laysan only—are extinct. They include a millerbird, a red honey creeper, and a flightless rail. Almost the entire world population of the Hawaiian monk seal — about 1,000—live and breed on the refuge. And, French Frigate Shoals is the most important nesting area for the green sea turtle remaining in the North Central Pacific and in the Nation. No changes in management will be necessary under wilderness. Present management emphasizes protection and restoration of natural environmental qualities and the extension of man's knowledge of the islands' ecosystems. Public use of the refuge islands is limited to investigators engaged in authorized and carefully regulated research. No recreational use is permitted. The islands are remote and access is difficult. Careless or uninformed visitors could be very destructive to the rookeries. Accidental introductions of pest plants or insects in clothing or equipment is a definite threat. Under wilderness, no changes in public use will be made. The proposed wilderness includes all lands both emergent and submerged in the refuge except Tern Island in French Frigate Shoals. Military development on Tern Island during the Second Horld War permanently altered the island's character. Today, the island looks much like a giant aircraft carrier. The U.S. Coast Guard maintains a manned LORAN Station on the island under a cooperative agreement. These facilities are carefully regulated to prevent disruption of other islands or lagoon waters of the shoals. Tern Island is also used as a refuge "subheadquarters" where equipment is housed. Also, a small refuge research facility is under construction on the island. The proposed wilderness totals about 255,878 acres. About 1,742 acres are emerged lands above mean high tide. The remainder are submerged lands below the level of mean high tide. The proposed wilderness does not include the waters overlying the submerged lands. These waters are navigable and not under the sole jurisdiction of the refuge.

B. Description The refuge and proposed wilderness encompasses a series of eight islands, reefs and shoals, almost 800 miles from end to end. Geologically, the islands are part of a chain of huge underwater peaks marking the summits of extinct submarine volcanoes. Over the eons the direction of volcanic activity in the chains has progressed from northwest to southeast, with the Island of Hawaii typifying the younger volcanic stage and atolls, like Midway, the ancient eroded stage at the opposite end of the spectrum. The various islands and reefs of the refuge are remnants of this past and perhaps were once as large or larger than today's main Hawaii Island. Rising about 900 feet above the sea, Nihoa is the second largest, nearest to the main islands, and presumably youngest of the refuge islands. The most striking feature of its 174 acres is a series of irregular vertical cliffs forming the island's edge on three sides. Like its neighboring volcanic islands—-Necker and Gardner Pinnacles-- it lacks beaches and fringing reefs. Landing on the islands is extremely hazardous. Nihoa is rivaled only by Laysan Island in animal and plant variety. West of Nihoa is Necker Island at 47 acres and shaped like a giant fishhook. The island is predominantly exposed volcanic rock with low-growing vegetation limited to its upper portions. The third unit in the chain is French Frigate Shoals, an atoll with low sandy islets in an incomplete fringing reef. The reef is about 18 miles tip to tip and>10 miles wide. Coral heads are scattered throughout the lagoon, many rising abruptly to within a few feet of the surface. There are currently 11 coral-sand islets within the lagoon. Tern Island is the largest at 27 acres. Some islands are subject to constantly changing shape with storms and shifting currents. French Frigate Shoals is the largest refuge unit, but only 65 of its 106,100 acres rise above mean high tide. Gardner Pinnacles, the fourth unit, is the westernmost lava island. It may well be the oldest piece of lava remaining above the ocean in the Hawaiian chain. The main island and satellite rocks total about 5 acres and are almost completely devoid of vegetation. Near the midpoint of the refuge is Maro Reef. Maro is a vast network of coral reefs covering over 70 square miles. At high water it is entirely submerged except for a single coral head extending about 2 feet above the surface. At low tide, reefs are exposed throughout the area and are interspersed with channels up to 10 fathoms deep. The reef is an excellent example of a marine ecosystem not associated with an island and is, therefore, unlike any other refuge unit. The reef is rich in biological resources and is an important area for feeding sea birds. Laysan and Lisianski--the fifth and sixth units—are low, elongated islands associated with extensive reefs and shallow waters. Laysan, at 1,020 acres, is the largest refuge island. It is about a mile wide and 2 miles long, rising about 35 feet above sea level. A slight fringing reef exists close inshore along parts of the island. Lisianski has no fringing reef, but there is an extensive shallow water area associated with the island. Both islands are remarkably similar. A shallow, highly saline closed lagoon about a mile long and half a mile wide exists in the center of Laysan. A lagoon also once existed on Lisianski but it filled in prehistoric times. Gradual addition of organic materials to the parent soil has created a fertile soil supporting dense, low growing vegetation over both islands. Plant and animal life are abundant, but Lisianski cannot rival Laysan in variety. Rabbits reduced both islands literally to sandy wastes in the early 1900's. Today, they have recovered in appearance but recovery is probably still occurring. Pearl and Hermes Reef, the westernmost of the refuge units, is a typical atoll. It is elliptical in outline, about 19 miles long and 10 miles wide, and almost completely enclosed by a barrier reef. The atoll contains seven islets, the largest of which is Southeast Island at 31 acres. Pearl and Hermes Reef and French Frigate Shoals exhibit many similarities. Each of the refuge units is different—different in character of the topography, different in biological resources, and different in problems to be coped with. Proper management of the refuge is management of each refuge unit as an entity in itself and as one ecosystem of both emergent and submergent lands and resources. Therefore, the refuge boundary has, where possible, been established to account for each area's peculiarities. Nihoa, Necker, Gardner Pinnacles, and Lisianski are distinct islands with no definable reef. The refuge on these islands extends to the line of mean lower low tide around the land masses.

4 On Laysan, the refuge encompasses the land mass and extends to the outer edge of the fringing reef, where it exists, to mean lower low tide. f On Maro Reef the refuge includes all lands, within an. area, defined by straight lines, from the outer edges of reef headland to reef headland. Points on the outer headlands are those at mean lower low tide. The configuration of the refuge is trapazoidal. On French Frigate Shoals the boundary extends around the outer edge of the barrier reef, where it exists, along the line of mean lower low tide. Where the reef is indistinct, the boundary proceeds from point to point again at the line of mean lower low tide. On Pearl and Hermes Reef, the boundary follows the outer edge of the barrier reef at mean lower low tide almost completely around the atoll. The boundary of the proposed wilderness is identical with that of the refuge except for the omission of Tern Island and adjacent submerged lands in French Frigate Shoals (Table 1). Table 1 Refuge Lands Suitable and Non-Suitable for Wilderness I/ Acres Suitable Acres Non-Suitable Refuge Unit Emergent 2/ Submergent 3/ Emergent Submergent Nihoa 174 1 Necker 47 8 French Frigate Shoals 38 105,795 27 240 Gardner Pinnacles 5 4/ Maro Reef I/ 52,000 Laysan Island 1,020 795 Lisianski Island 383 32 Pearl & Hermes Reef 75 95,505 SUB TOTAL: 1,742 254,136 27 240 GRAND TOTAL: 255,878 267

I/ all acreages are rough estimates by planimeter on nautical charts 27 all lands above the line of mean high tide 3/ all lands below the line of mean high tide 3/ less than 1 acre In the absence of a definitive boundary prior to the public hearing, an arbitrary refuge boundary was used. The arbitrary boundary included both emergent and submerged lands within the 15-fathom contour of Nihoa; the 10-fathom contour of Necker, Gardner Pinnacles, Maro Reef, Laysan and Lisianski; and the barrier reefs of Pearl and Hermes Reef, and French Frigate Shoals. Differences between these two sets of boundaries are reflected in Table 2. Table 2 Area Proposed for Wilderness - At Public Hearing and Current !_/ Total Acres Proposed for Wilderness 2/ Refuge Unit At Public Hearing Current Proposal Nihoa 800 175 Necker 580 55 French Frigate Shoals 107,505 105,833 Gardner Pinnacles 90 5 Maro Reef 44,893 52,000 Laysan Island 7,104 1,815 Lisianski Island 47,383 415 Pearl & Hermes Reef 95,581 95,580 TOTAL: 303,936 255,878 !_/ all differences involve submerged lands only; i.e., those lands below the line of mean high tide. All acreages are rough estimates by planimeter on nautical charts. 2_/ Includes both emergent and submerged lands. Current boundaries on Pearl and Hermes Reef and French Frigate Shoals are very similar to those proposed at the hearing. Small differences exist on Nihoa, Necker, Gardner Pinnacles, and Maro Reef. The greatest difference is. on Lisianski. Due to the sensitive nature of refuge boundary questions and possible international implications, reference to the boundary question was held to a minimum. The tentative nature of the proposal boundaries, as presented at the public hearing, was not emphasized to as great a degree as would otherwise be desirable. Since the public hearing, the State of Hawaii and the Department of the Interior have reached agreement on a mutually acceptable refuge boundary. This boundary has also been adopted as the proposed wilderness boundary. C. Management Management of the refuge, with or without wilderness, will be virtually identical. Management emphasizes protection and.restoration of natural environments and the extension of knowledge through research. These activities as presently carried out and as planned in the future, will be completely compatible with wilderness. The refuge is administrated from an office in Kailua on the island of Oahu. Periodic visits are made to the refuge for wildlife population inventories, special scientific studies and general surveillance. Travel is by ship and aircraft through the courtesy of the U.S. Coast Guard and U.S. Navy. In recent years, only about three trips to the refuge have been made annually; even then, not all islands were visited. Trips have occurred on an opportunistic irregularly-scheduled basis as transportation has become available. More frequent visits and more flexibility in timing is badly needed. Landings on the islands are by small boat and by helicopter. Both systems of transportation are the only feasible means of landing and must continue under wilderness. Beyond refuge signs, no refuge development has occurred on the area proposed for wilderness and no significant developments are planned. There is a need to create safer landing sites at some of the islands and to provide rustic shelter for ground parties. These types of developments will be minimal but are most desirable for the safety of management personnel and refuge visitors. Landing on some of the islands is extremely hazardous. There are no commercial uses presently being made of refuge resources. It is possible that some potential for commercial fishing exists, particularly in lagoon waters of French Frigate Shoals and Pearl and Hermes Reef. Since the waters of the refuge are not included in the proposed wilderness, there would be no direct conflict between such uses and wilderness. However, it is noted that if any such use does occur in the future, it must be carefully regulated to prevent unauthorized and unsupervised landings on the islands proper, and to insure that the natural values of undersea resources and ecosystems are not damaged.

D. Wilderness Public Hearing Record A public hearing announcement was published in the FEDERAL REGISTER on February 21, 1973. Written notification of the hearing and information about the proposal were sent to Governor JOHN A. BURNS of Hawaii, and 61 members of the Hawaii State Legislature; U.S. Senators HIRAM L. FONG and DANIEL K. INOUYE, and Representatives SPARK M. MATSUNAGA"arJcT PATSY T. MINK; the respective Chairmen of the Senate and House Committees on Interior and Insular Affairs; 5 Hawaii State Officials and agencies; 18 Federal agencies and departments; about 280 citizen organizations; and about 900 individuals. Each was sent

34-893 O - 74 - pt. 4 — : a public hearing announcement and brochure summarizing the wilderness study and proposal. The hearing was held in Honolulu, Hawaii, on April 14. 1973. Mr. CHARLES R. RENDA, Regional Solicitor, Sacramento Region, U.S. Department of the Interior, was the hearing officer. The Bureau of Sport Fisheries and Wildlife was represented by Mr. JOHN D. FINDLAY. Regional Director, Portland, Oregon. There were 53 people in attend- ance (besides the Bureau personnel). 1. The Public Hearing A total of 16 statements was presented at the hearing by persons other than the hearing officer and Bureau representatives. In addition, 3 statements for the record were received, but not presented orally. Of the 19 statements for the record, 10 supported the proposal as presented by the Bureau; 7 supported the proposal with the addition to the proposed wilderness; and 2 were opposed to the proposal in part. No statements were made in complete opposition. Mr. SUNAO KIDO, Chairman of the Department of Land and Natural Resources, represented Governor JOHN A. BURNS, and the State of Hawaii. He expressed the State's opposition to include submerged lands until the question of refuge boundaries has been settled. "We . . . concur with the inclusion of the land masses above the ocean in the proposed wilderness; we question the inclusion of the submerged lands because the question of the refuge boundary still remains unresolved." The State expressed interest in the "potential for diversified commercial fishing operations as well as possible recreational use." The State advocates proper management and the setting aside of "representative marine reserve areas and development of fishery potential." Robert Way, Planning Director for the City and County of Honolulu, represented the Mayor and quoted the Mayor's letter for the record. "I would like to add my full support for the proposal . . .". The Mayor expressed "a personal interest ... as the refuge lies completely within the boundaries of the City and County of Honolulu." The Mayor urged that the refuge's marine environment be preserved intact. In a statement received for the record, Mr. GERALD HASHIMOTO. representing the Tuna Boat Owners Association (Honolulu) opposed the inclusion of submerged lands on the basis that wilderness would prevent their use of the fishery. The Association is interested in the refuge islands principally as a source of bait fish for the skip- jack fishery.

8 Mr. Erfc Laysan Schlemmer spoke in favor of the vrilderness Mr. Schlemmer was born on Laysan Island (March 22, 1903). The Environmental Committee of Hawaiian Botanical Society, Citizens for Hawaii, Wilderness Society, Hawaiian Entomological Society, Department of Anthropology of the Bishop Museum, Department of Entomology, Hawaiian Chapter of the Wildlife Society, and two individuals supported the proposal as presented by the Bureau. Seven statements were in favor of the proposal with additions to the proposed wilderness. The Confederation of Western Outdoor Clubs, National Organization of Western Outdoor Clubs, National Organization of Friends of the Earth, and Honolulu office of Friends of the Earth, urged that offshore undersea lands and waters to 3 miles offshore of every island be included in the wilderness. The Hawaiian Audubon Society, Honolulu Chapter of Zero Population Growth and one individual said the wilderness should include refuge waters as well as their underlying submerged lands. Two of the above statements urged that the status of Kure be clarified. One felt that those parts of Kure island and Midway, not occupied by the military should be added to wilderness. Life of the Land, a Hawaiian based organization, urged that no commercial use of the marine biota be permitted, while the Honolulu office of Friends of the Earth agreed with the "proposed" fishing on refuge waters. The Environmental Committee of the Hawaiian Botanical Society said that exact landing sites proposed for improvement should be located more precisely, while the Department of Anthropology, Bishop Museum, was opposed to ramps and rustic shelters as open invitations to trespass. Several statements pointed out the tremendous value of the refuge for scientific purposes and urged continued safeguards against unauthorized entry and contamination of the islands. The Hawaiian Entomological Society and Dr. John Beardsley of the University of Hawaii emphasized the unique insect life of the islands. Almost 50 species of insects are endemic to the refuge and are found nowhere else. At least 7 became extinct on Laysan as a result of human disturbance. The Department of Anthropology, Bishop Museum, advocates limited excavation of some archaeological sites on Nihoa and Meeker, and a survey of other islands. Excavational methods would be consistent with wilderness. One speaker noted the role of sea bird colonies in the distri- buter) of viral disease—a potentially valuable research opportunity. No immediate human health threat, however, exists. 2. Communications from elected public officials Letters were received from 3 elected officials. One opposed the proposal in part and 2 supported the proposal as presented. A letter was received from Governor JOHN A. BURNS of Hawaii prior to the hearing. He said "while I endorse the general concept of classifying portions of the Hawaiian Islands National Wildlife Refuge as wilderness, I question the inclusion of the 302,400 acres of submerged lands in the proposal." He also noted the refuge boundary problems and indicated that further contact will be through Mr. SUNAO KIDQ. Mr. Kido expressed the same position at the public hearing. Mr. DANIEL K. INOUYE, United States Senator from Hawaii, supported the proposal saying "... the proposal for an addition of 303,936 acres of the Northwestern Hawaiian Islands to the National Wilderness Preservation System is to be fully supported. To support this proposal is to advance the interest of future generations as well as the inter- ests of science of the sea. Let us all commit ourselves to those ends." Prior to the hearing, a letter was received from Mr. SPARK MATSUMAGA. U.S. Representative, 1st district, Hawaii, indicating he intended to make a statement. His statement, received after the hearing, said "I wish to express my complete support for the proposal to designate as wilderness, under the terms of the Wilderness Act of 1964, the islands and submerged lands constituting the Hawaiian Islands National Wildlife Refuge." He further expressed concern over population growth leading to an altered character of the Hawaiian Islands. The limited opportunities for wilderness in Hawaii were also noted. The letter fully supported strict control of access to the islands. 3. Communications from State and Local Officials and State Departments and Agencies" A statement was received from ROBERT R. WAY, Planning Director, City and County of Honolulu, in reference to the Environmental Im- pact Statement, expressing "no objections to the proposal." Mr. Way subsequently made a statement for the Mayor favoring the proposal at the public hearing.

10 The Director, Department of Natural Resources, State of Michigan, supported the proposal. 4. Communications from Federal Officials, Departments and Agencies Seven letters were received in this category. Five took no position, one favored the proposal, and one opposed with "mixed emotion." GEORGE D. LEA, Acting Assistant, Bureau of Land Management, expressed opposition. He supported the idea of protection but questioned the applicability of the Wilderness Act for the action. He said "Addition of these 'islands to the Wilderness System could result in a more liberal interpretation of the Act than has heretofore been expressed." Acting Regional Director, Bureau of Outdoor Recreation, favored the proposal, stating, "We fully concur with your report findings concerning wilderness status for . . . Refuge." A letter from the Deputy Assistant Secretary of the Interior noted that no mineral survey has been made by the Geological Survey or Bureau of Mines. He further stated, "However, the reported minor mineral resources of phosphate and sand would seem to be of little significance relative to the value of adding this refuge to the Wilder- ness System." A letter from the Acting Director, Geological Survey, also took no position and noted no mineral survey. BENJAMIN 0. DAVIS JR., Assistant Secretary for Environment, Safety and Consumer Office of the Office of Secretary of Transpor- tation, said the proposal would be forwarded to the Coast Guard for comment. No comments were received from the Coast Guard. The Deputy Chief, U.S. Forest Service, has "no comments to offer." BETSY ANKER - JOHNSON, Assistant Secretary for Sciences and Technology, Secretary of Commerce, had "no comments to offer." A letter was received from P.H. KUTSCHENREUTER, Director, Pacific Region, National Weather Service, Department of Commerce. He took no position on the proposal but stated his Service's desire to in- stall remote sensing meteorological stations on several islands of the refuge. Mr. Kutschenreuter noted that approval of the station installations is related to the wilderness proposal.

11 5. Communications from Organizations A total of 35 letters was received from citizen organizations. The Bureau's proposal was supported by 29; three favored wilderness, but said that the waters of the refuge should also be included in wilderness. Two opposed the proposal outright, and one was opposed in part. The American Mining Congress was opposed "until such time as a thorough mineral survey has been completed." The WUN (Wyoming-Utah- Nevada) Chapter of Outdoors Unlimited, Inc., was also totally opposed. They said, "All the protection the refuge and its wildlife resources require, or should have, can be provided under the Refuge System." They were also concerned that wilderness would attract people to the refuge islands. s The Tuna Boat Owners Association (Hawaii) was opposed in part. They supported wilderness on lands above the high water mark, . . .". However, this action should definitely exclude the reefs and submerged lands up to high water mark on the respective islands." They feel the area has potential for the harvest of bait fish for tuna fishing. The Hawaii Chapter of the Sierra Club expressed concern over the future of Tern Island. They agreed it should not be wilderness, but ". . . favored the idea that some provision be placed into this basic proposal which would limit future uses of Tern Island, so as not to endanger this fragile area." 6. Communications from Citizens A total of 359 letters was received from individuals for the record. Some 349 letters from 390 individuals supported the Bureau's proposal. One individual supplied a petition with 137 names; two individuals supplied lists of 161 names that they were purportedly representing. Seven letters from 9 individuals favored wilderness but recommended it also include waters of the refuge. Two of these suggested adding Kure Island. One letter was opposed to wilderness. The position of two letters could not be determined. The only statement opposed to wilderness was received from a fishing boat owner (Hawaii). He stated no position with respect to the land area, but he said "The commercial fishermen have explored and fished the entire Leeward Area and plan to expand the existing fisheries there. By placing this area off limits to our fishermen, you will deal a serious blow to Hawaiian economy and squelch our potential for growth." Letters from individuals and organizations were received from 42 states and the District of Columbia. About 38 percent were from California, 8 percent from New York, 6 percent from Hawaii, and 5 percent each from Washington and Oregon. 12 A large number of letters was received from the academic community. Several were from individuals who had visited the islands. Statements were made by individuals from and/or representing about 40.col leges, universities, and scientific organizations in about 17 states. 7. Summary and Analysis A total of 425 statements was received for the record from all sources. Some 392 favored the proposal as presented by the Bureau; 17 favored the proposal with additions, 4 opposed the proposal; 4 opposed the proposal in part; and 8 took no position or their position could not be determined. Of the 4 opposed, one felt the Wilderness Act did not apply in this case; one felt refuge status alone provided sufficient protection; one was opposed until a mineral survey was made, and one opposed because he felt (erroneously) that it would prohibit commercial fishing. All of the 4 opposed in part objected to the inclusion of submerged lands. All expressed support for the inclusion of the land areas in wilderness. The major theme for this opposition was concern for the development of a commercial fishery on overlying waters. The State of Hawaii objection, based on the lack of agreement as to refuge boundaries, has since been mollified with an agreement over the boundaries between the State and the Department of the Interior. The wilderness proposal, however, has not been changed with respect to the exclusion of waters from the wilderness. The State and the Bureau of Sport Fisheries and Wildlife will join in a cooperative agreement on future management of these waters. Wilderness per se will not eliminate the possibility of commercial fishing. Of the 17 favoring additional area in the proposal, 10 wanted the overlying waters included in wilderness; 3 wanted the refuge boundary to extend to 3 miles from each island; 3 wanted Kure added to the refuge and wilderness, and one wanted parts of Kure and Midway added. Since most of the waters of the refuge are probably navigable waters, they are not within the sole jurisdiction of the Bureau. These waters would be subject to activities that conflict with wilderness. Extension of the refuge boundary to 3 miles off shore is not consistent with the objectives of the refuge. The status of Kure has apparently been resolved. Kure is controlled by the State of Hawaii. Midway is controlled by another agency of the Federal Government.

13 Of the 409 statements made favoring wilderness as proposed by the Bureau or modified with additions, many expressed enthusiasm for the "irreplaceable" resources and unique ecosystems. One called them a "little Galapagos.11 Many expressed support for limiting access and public use. None suggested public recreation as a possible or desirable use. Many urged support for inclusion of the submerged lands. It seems likely that many persons did not realize that waters overlying submerged lands were not proposed as wilderness. Only 6 specified directly that commercial fishing should not be allowed and only 4 specified that commercial fishing should be permitted. Most of these comments came from Hawaii. Three statements said that proposed landing "ramps" (and shelters) should not be constructed since this would encourage unauthorized landings. This danger is recognized and will be considered in light of the circumstances of each individual island. Wherever possible, landings will be made by helicopters to minimize safety hazards. Where helicopter landing is impossible, however, necessary landings must be by boat and may be hazardous. In these cases, safety of personnel must take precedence over the possible danger of unauthorized landings. The National Weather Service desires to locate remote sensing meteorological stations (RAMOS) on several refuge islands. The stations would be quite small and unobtrusive with an antenna mast up to 20 feet high. They could be installed at obscure locations or at the same site as the refuge signs. They would require maintenance at 6-month intervals. The Weather Service asserts that these stations are needed to adequately forecast weather conditions affecting the Hawaiian Chain. There would also be benefits to the refuge from the climatic information. The refuge has a number of studies in progress on life histories and population dynamics of the islands' endangered species. Naturally occurring environmental conditions—such as weather—are apparently responsible for the severe population fluctuations occasionally noted. A RAMOS station on certain islands could provide data on several climatic characters and shed light on the causes of population changes. Establishment of these stations is believed consistent with the Wilderness Act. However, the question of their installation on proposed wilderness was not discussed at the public hearing and con- tributors to the wilderness record had no opportunity to comment. Therefore, final approval of RAMOS stations on the proposed wilderness will not be made until Congress has had the opportunity to comment. A number of other comments were made in statements for the record. Some were relative to wilderness, some to refuge management,

14 and some only remotely related to either. One suggested future management not include changes in original distribution of native organisms from island to island. Several noted the very limited opportunity to establish wilderness in the Hawaiian Islands. Others were concerned over the population growth of Hawaii leading to altered character of the islands. One noted the refuge is now listed as one of the prime areas to be included in the National System of Ecological Reserves (Research Natural Areas). In summary, the only change made in the wilderness proposal was to relocate the boundary to conform to the refuge boundary as agreed upon by the State of Hawaii and the Department of the Interior.

34-893 O - 74 - pt. 4 -- 4 HAWAIIAN ISLANDS WILDERNESS PROPOSAL

NM1OML WILDLIfG R€KJCe CITY AND COUNTY OF HONOLULU, HAWAII

UNITED STATES DEPARTMENT OF THE INTERIOR BUREAU OF SPORT FISHERIES AND WILDLIFE .NO*

pacific ocean

MARIANAS - . ISLANDS ' '-",:'• MARSHALL' ISLANDS HhWdlldM ISWMD9 NATIONAL WILDLIFE REFUGE

This report was prepared pursuant to the Wilderness Act, Public Law 88-577. Publication of the findings and recommendations 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 information and alternatives for further consideration by the Bureau of Sport Fisheries and Wildlife, Secretary of the Interior, and other Federal agencies. preface

Eight islands, shoals and reefs totaling 303,936 acres of the Northwestern Hawaiian Islands are proposed for addition to the National Wilderness Preservation System. Included is the entire Hawaiian Islands National Wildlife Refuge except Tern Island in the French Frigate Shoals. This brochure explains the proposal and summarizes a study of the Hawaiian Islands 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) requires 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 non-suitability of each such area or island for preservation as wilderness. A recommendation 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 provided that: (I) the Act is to be within and supplemental to the purposes for which National Wildlife Refuges are established; and (2) wilderness areas shall be administered so os to preserve their wilderness character and shall be devoted to the public purposes of recreational, scenic, scientific, educational, conservation and historical use insofar as primary refuge objectives permit. Wilderness designation does not remove or alter an area's status as a National Wildlife Refuge. -rl ^

ISLAND OF NIHOA introduction

The Hawaiian Islands is one of the world's most interesting archipelagos. Here, perhaps more than anywhere else on earth, is exemplified the role that isolation has played in the evolution of biological systems. About 95 percent of the native Hawaiian plants and animals occur nowhere else. A surprisingly varied native flora has developed from a mere handful of plant families. Many large and conspicuous plant groups, including the .conifers, were unable to span the vast oceanic distances and reach the islands in prehuman times. The islands' diversity of native land birds developed from only five families that managed the crossing.

Isolation has created this unique web of life, but isolation has also set the stage for its demise. Island ecosystems are notoriously susceptible to disruption by outside influences. History is liberally sprinkled with accounts of extinctions and massive biological changes on islands following human contact. The bird life of the Hawaiian Islands is a case in point. When Captain Cook came to Hawaii in 1778, there were 69 kinds of birds found nowhere else.Today, 23 exist no more and 27 others are in danger of extinction.

The establishment of the Hawaiian Islands National Wildlife Refuge in 1909 was one of our Nation's earliest attempts to save this unique resource. Refuge establishment followed a long period of careless destruction and commercial exploitation in the Northwestern Hawaiian Islands. Three species of birds and several plants unique to them were lost to man.

Today, these tiny bits of land and large oceanic reefs and shoals are world famous as a nesting area for vast numbers of sea birds that assemble there annually from the far reaches of the Central Pacific. Most of the world's population of the Laysan and black-footed albatross nest on the refuge. It is our Nation's last major nesting site for the green sea turtle, and is home to about 95 percent of the world's rare Hawaiian monk seal. Three species of endemic land birds and the entire world's population of Laysan teal occur on its islands—all exist on the verge of extinction.

The shallow waters of the reefs and shoals are a productive source of food for the islands' wildlife, but apart from this value is their great potential as undisturbed natural laboratories. Marine life exists here as undisturbed by man as is possible in the modern world—a great opportunity to extend our knowledge of the sea. When the refuge was created over half a century ago, the survival of the sea bird colonies was the prime consideration. In the intervening years it has become evident that perpetuation of an island's entire biological system rather than bits and pieces of that system is the proper objective of the refuge. The sea bird colonies remain a major concern but present-day management also reflects the broadened goals of the National Wildlife Refuge System. Administration of the Hawaiian Islands Refuge emphasizes preservation and, where possible, restoration of the natural environment. Management objectives include:

(1) Assure the survival of threatened native wildlife.

(2) Maintain all elements of the native flora and fauna in as natural a state as possible.

(3) Allow the physical and biological processes to proceed naturally to the extent possible without loss to the native flora and fauna.

(4) Expand man's understanding and appreciation of wildlife, wildlands and his role within this environment.

(5) Communicate to the public an understanding of the values and benefits of the Hawaiian Islands Refuge.

(6) Establish selected areas within the refuge for environmental reference, observation and scientific study.

(7) Seek out, identify and preserve historic and archaeological sites and objects for appropriate scientific study.

Over 304,200 acres of islands and submerged lands in the Northwestern Hawaiian Islands are administered as the Hawaiian Islands National Wildlife Refuge. About 1,800 acres are lands above the line of mean high tide. The remaining 302,400 acres are submerged lands on the associated shallow reefs and shoals of the refuge.

All but 267 acres of the refuge are considered suitable for inclusion in the National Wilderness Preservation System. Suitable lands are distributed throughout all eight units of the refuge as follows: Laysan Island, 7, 104 acres; Lisianski Island, 47,383 acres; Nihoa Island, 800 acres; Pearl and Hermes Reef, 95,581 acres; French Frigate Shoals, 107,505 acres; Necker Island, 580 acres, Gardner Island, 90 acres; and Maro Reef, 44,893 acres. LAYSAN IS THE LARGEST REFUGE ISLAND.

The wilderness proposal includes all refuge lands both above and below the ocean's surface except Tern Island and adjacent waters in the French Frigate Shoals. Tern Island contains Coast Guard and refuge facilities as well as a dredged ship channel and seaplane landing area.

Although the submerged refuge lands are included in the proposal, the overlying waters are navigable and not within the refuge's sole jurisdiction. ONE OF THE ELEVEN SMALL ISLETS OF FRENCH FRIGATE SHOALS history

The coming of Captain James Cook in 1778 marked the beginning of western contact with the Polynesian civilization of the Hawaiian archipelago—a civilization perhaps as old as the birth of Christ. Where the Hawaiian people originated is not known. The best evidence would suggest they came from southern Asia by way of the Malay Peninsula and Java, island hopping in huge sailing canoes. Cultures of Tahiti or the Marquesas seem to bear the closest resemblance.

The early Hawaiians left their mark on Nihoa and Necker Islands. The remains of garden terraces, house sites, crude shelters and primitive temples closely resembling the "Maraes" of Tahiti are numerous. A small population, probably less than 150 souls, may have existed on Nihoa as long ago as 700 years. A lack of water was probably the chief cause of abandonment. Evidence, including several unusual stone images, suggests that Necker Island may have been a sacred island visited only periodically, perhaps by Polynesians from Nihoa.

Discovery of the islands of the refuge by European explorers spanned about 50 years in the late 18th and early 19th centuries. Nihoa was first reported by Captain Douglas of the ship, Iphigenia, in 1789, during the reign of King Kamehameha the Great. A party of 200 led by Princess Liliuokalani--later Queen and last of the Hawaiian monarchs—landed there in 1885. Their stay was brief because someone carelessly set fire to the island and all had to leave in a hurry.

Necker Island and French Frigate Shoals were discovered by the French explorer La Perouse in 1786. French Frigate Shoals has been more or less occupied by various branches of the military since 1942, with installations established first on East Island and later on Tern Island.

Maro Reef and Gardner Pinnacles were first reported by Captain Allen of the whaler, Maro, in 1820. Pearl and Hermes Reef was discovered in 1822 when the British whalers Pearl and Hermes wrecked on the reef on the same night within 10 miles of each other. The crews subsequently built a small vessel out of the wreckage and sailed it back to Honolulu.

Lisianski Island, discovered by Captain Lisiansky of the Russian ship Neva in 1805 and Laysan Island, reported by Captain Stanikowitch of the Moller in 1828, have similar histories. Both were leased in 1890 for guano fertilizer exploitation. About 1903, the guano diggers introduced rabbits to Lisianski and both rabbits and guinea pigs to Laysan. In a few short years, both islands were virtually denuded of vegetation. In 1891 an observer described Lisianski as "... a little paradise . . . ", by 1915 it was "... dreary and desolate." The Tanager Expedition of 1923 and 1924 found all rabbits on Lisianski dead—apparently from starvation. They also managed to eradicate those remaining on Laysan. TERN ISLAND IN FRENCH FRIGATE SHOALS

In 1902 the bird population on Laysan was estimated at 10 million. By 1911 bird numbers had dropped to a tenth of that. Innumerable sea birds perished on both islands from the sandstorms that occurred once the protective vegetation was gone, Three land birds found only on Laysan became extinct by 1923 along with several plants unique to the island.

The house fly now so extremely abundant on Laysan and Lisianski was also introduced--probably by the guano diggers. Swarms of this persistent insect con- centrate about the head and face of human visitors and the Hawaiian monk seal during daylight hours of the summer months.

Feather collectors began operating in the area early in the 20th century. They slaughtered hundreds of thousands of Laysan albatross and other birds for their plumage. Reports of these activities stimulated public interest in bird protection, and ultimately led to establishment of the refuge in 1909. Thus, when a party of 23 "plume hunters" were discovered on Laysan and Lisianski in 1910, they were promptly arrested and taken to Honolulu for trial—along with 259,000 bird wings and other plumage seized at the time. The Second World War took its toll. A military radio station and a Loran station were established on East Island and later moved to nearby Tern Island of the French Frigate Shoals. Tern Island was intensively developed, complete with airfield. Today, Tern Island is a grossly and permanently disfigured casualty of war. Dud bombs and spent machine gun bullets testify to the use of Necker Island as a practice target. Bomb craters have been found in the middle of several of the centuries-old Polynesian temples. Kure Island was originally part of the refuge, but was placed under jurisdiction of the Navy in 1936. It was never restored to the refuge.

Following its establishment, the refuge underwent a long period of neglect during which it received a minimum of administrative attention or scientific scrutiny. In 1951, the U. S. Fish and Wildlife Service through an agreement granted the Territory of Hawaii authority to administer and manage the refuge. The Territory and later the State continued its assistance until 1968 when the Bureau of Sport Fisheries and Wildlife assumed full-time administration. Preservation of the islands and their resources during this period is due in very large part to the efforts of the State of Hawaii.

THIS SPECIES OF LOULU PALM IS FOUND ONLY ON NIHOA. physical description

The Hawaiian Islands National Wildlife Refuge encompasses a series of eight islands, reefs and shoals in the Hawaiian archipelago of the Central Pacific Ocean—almost 3,000 miles southwest of San Francisco. The refuge extends over 800 miles between the main Hawaiian Islands and Midway. The refuge islands are part of the chain known as the "Leewards" or Northwestern Hawaiian Islands.

The islands of the Hawaiian archipelago can be divided into three major groups according to the type of island found in each. The southeast group includes large volcanic islands and associated islets. This segment includes all of the inhabited main Hawaiian islands. Hawaii is the largest and southeasternmost island of the group and has the only active volcanoes. None of the refuge islands are in this segment. The middle group includes several shoals, in addition to small islands, on which volcanic rock is exposed. All of the islands and major shoals of this segment are within the refuge. The northwest group extends over a greater distance than the other two and includes a dozen or more shoals and reefs. No volcanic rocks are exposed in this segment.

Geologically, the islands are part of a chain of huge underwater peaks, marking the summits of submarine volcanoes and extend over 1,900 miles in a southeasterly direction. Geologists believe that throughout the ages successive flows of molten lava flowed out of a long fissure in the earth's mantle and formed the peaks. The ocean floor on both sides of the chain averages about 3 miles in depth. The chain is very old, beginning its history at sea level over 20 million years ago, and has nearly every stage of volcanic development represented within it. The direction of volcanic activity is progressing from northwest to southeast, with the island of Hawaii typifying the younger volcanic stage, and atolls, like Midway, the ancient eroded stage at the opposite end of the spectrum. The various islands and reefs of the Refuge are remnants of this past and some were perhaps once as large or larger than today's inhabited islands of Hawaii.

Rising almost 900 feet above the sea, Nihoa is the largest and presumably youngest of the refuge islands. The most striking feature of its 174 acres is a series of irregular, vertical cliffs forming the northern, western and eastern edges. Like its neighboring volcanic islands—Necker and Gardner Pinnacles—it lacks beaches and fringing reefs. The island's submerged lands drop rapidly into the ocean's depths. Of the refuge islands, Nihoa is rivaled only by Laysan in animal and plant variety. CORAL REEFS ARE LITERALLY LIVING ROCK. Necker Island at 47 acres is shaped like a giant fishhook—narrow and about 1,300 yards long. The island is predominantly exposed rock, with low-growing vegetation limited to the upper portions. Shark Bay, formed by the island's curve, is appropriately named. Over 40 sharks have been observed in the bay at one time, apparently attracted by the hundreds of immature sea birds which perish in the sea during the nesting seasons.

Gardner Pinnacle's is the westernmost lava island. It may well be the oldest piece of lava remaining above the ocean surface in the Hawaiian chain. The main island and satellite rocks total about 5 acres and are almost completely devoid of vegetation. Only one species of plant, a succulent, has been able to retain a foothold.

French Frigate Shoals lies between Necker Island and Gardner Pinnacles. La Perouse Pinnacle ?n the shoals resembles Gardner Pinnacles, but apart from this exception the shoals are similar to the remaining refuge units—Maro Reef, Laysan Island, Lisianski Island and Pearl and Hermes Reef. All are emerged coral atolls or near atolls, composed principally of coralline algae.

French Frigate Shoals is an atoll with low sandy islets within a fringing reef. It is double crescent-shaped, about 18 miles from tip to tip and 10 miles wide. Coral heads are scattered throughout the lagoon, many rising abruptly to within a few feet of the surface. There are currently II coral-sand islets within the lagoon. The largest is Tern Island at 27 acres. Islets such as Disappearing Island are formed from light material and are subject to more or less constant changing shape. French Frigate Shoals is the largest unit of the refuge, but only 65 of its 108,000 acres rise above mean high tide. Pearl and Hermes Reef, the westernmost refuge unit, is a typical atoll. It is roughly elliptical in outline, and about 19 miles long by 10 miles wide. The atoll contains seven islets which lie close to the well-defined part of the barrier reef. Southeast Island, the largest, is 31 acres. The reef is literally alive and while the sea is constantly battering off pieces, the reef is continually renewed by the vigorous coral growth.

Maro Reef is a vast network of coral reefs covering over 70 square miles. It is entirely submerged except for a single rock extending about 2 feet above high water. At extreme low tides reefs are exposed throughout the area and are interspersed with deep water channels up to 60 feet in depth. The reef is an excellent example of a marine ecosystem not associated with an island and is, therefore, unlike any other refuge unit. The reef is rich in biological resources and is an important feeding area for sea birds. It may also play a role in the life cycle of seals and turtles.

Laysan and Lisianski are low, elongated islands associated with an extensive network of reefs and shallow waters. Laysan at 1,020 acres is the largest refuge island. It is about a mile wide and 2 miles long, rising about 35 feet above sea level. Fringing reefs around Laysan cover only about 6,000 acres, quite small in comparison to the other atoll units. Lisianski Island is similar to Laysan but only about half as large. However, the shallow submerged lands cover about 47,000 acres. The islands are remarkably similar. A shallow, highly saline closed lagoon about a mile long and half-mile wide exists within Laysan. A lagoon also once existed on Lisianski but it filled in prehistoric times.

BLUE-FACED BOOBY AND BOOBLET PRELIMINARY - SUBJECT TO CHANGE

165' 170' h H

KURE, 4. MIDWAY ISLANDS

LISIANSKI I. V LAYSAN 100 200 I. • ^m S CALE IN MILES MARO , REEF APPROXIMATE STATUTE MILES

^GARDNER I- PINNACLES H

TERN I,.

PACIFIC OCEAN iKAUAl NIIHAUj REFUGE BOUNDARY: THE EIGHT REFUGE UNITS INCLUDE THE LAND MASSES RISING ABOVE THE OCEAN AND SUBMERGED KAULA LANDS ASSOCIATED WITH THESE ISLANDS. ON PEARL AND MOLOKAI

HERMES REEF AND FRENCH FRIGATE SHOALS THE REFUGE MAUI BOUNDARY FOLLOWS THE BARRIER REEF SURROUNDING THE LANAI LAGOON WATERS. THE BOUNDARY OF NIHOA ISLAND COINCIDES WITH THE 15 FATHOM CONTOUR. ON THE REMAINING UNITS THE h 10 FATHOM CONTOUR IS THE REFUGE BOUNDARY. •H

NOTE: THE ENTIRE HAWAIIAN ISLANDS NATIONAL WILDLIFE REFUGE EXCEPT TERN ISLAND AND ADJACENT SUBMERGED LANDS ARE PROPOSED FOR WILDERNESS. HAWAIIAN ISLANDS WILDERNESS PROPOSAL HAWAIIAN ISLANDS NATIONAL WILDLIFE REFUGE

JOHNSTON City and County of Honolulu, Hawaii ATOLL

(JOHNSTON ISLAND NATIONAL WILDLIFE REFUGE) H

155' I LAYSAN ALBATROSS COLONY AT PEARL AND HERMES REEF

The gradual addition of organic materials to the parent soil on Laysan and Lisianski has resulted in a highly fertile soil supporting a dense, low vegetative cover over most of the two islands. Plant and animal life on both islands is abundant, but Lisianski cannot rival Laysan in variety. Rabbits reduced both islands literally to sandy wastes in the early 1900's. In appearance they have recovered, but this recovery is probably still occurring.

Temperatures in the Leewards are mild and vary little from day to night and season to season. Sunny days and moderate but steady northeast trade winds are the rule, but sudden squalls can quickly generate churning seas. Violent winter storms batter the islands and tremendous surf can inundate the low islands or completely sweep over the small islets. resources FAIRY TERN

Some of the most remarkable sea bird nesting colonies on earth occur on the refuge. For eons such birds have converged on the islands from the vast Pacific to renew their kind. Since all cannot find space to nest at the same time, each species secures room at its appointed time.

In the fall, hundreds of thousands of albatross which have been roaming the North Pacific from North America to Asia begin returning to these tiny islands. Over 125,000 nesting pairs may be present on Laysan,and Southeast Island at Pearl and Hermes Reef may have over 50,000 crowded into its 32 acres.

In early spring hordes of terns, petrels, shearwaters and other species begin arriving and the islands become a bedlam of shrieking, swirling birds. Almost a million sooty terns may nest on Laysan and many hundreds of thousands more on the other islands.

Several species of shearwaters and petrels dig nesting burrows on sandy islands or use cavities under rocks on such islands as Nihoa. Conservative estimates place peak daytime populations on Nihoa alone at half a million birds. Since most of the birds spend daylight hours fishing at sea, the numbers present on the island at night are beyond guess. Some 18 different sea birds nest on the refuge. The more notable include: Laysan and black-footed albatrosses; gray-backed and sooty terns; wedge-tailed and Christmas Island shearwaters; Bulwers and Bonin Island petrels; common and Hawaiian noddies; various kinds of boobies; frigate birds and tropic birds; and the small white fairy tern often considered the most beautiful sea bird of the Pacific.

Special interest centers on the remaining endemic birds. The entire world population of Laysan teal—about 175 birds—maintains a tenuous hold on existence on Laysan Island. The Laysan finch is somewhat better off with a population of about 10,500 on Laysan and Southeast Island in Pearl and Hermes Reef. The Nihoa finch and Nihoa millerbird are confined to Nihoa. About 600 millerbirds and about 3,500 finches survive today. Three other land birds were not so fortunate. All three were found only on Laysan and became extinct as a result of man's activities in the early I900's. The Laysan millerbird was lost between 1911 and 1923 and the last of the flightless rails and beautiful red honeycreepers perished in a sandstorm in 1923.

Almost the entire world population of Hawaiian monk seal--about 1,000—is found on the refuge. This rare mammal breeds only on Laysan, Lisianski, Kure, Midway, Pearl and Hermes Reef and French Frigate Shoals. Porpoises are occasionally seen in refuge waters.

The green sea turtle was once common in waters off the main Hawaiian Islands. Exploitation drastically reduced their numbers both on the main islands and on the refuge. Today, French Frigate Shoals is the most important nesting area remaining in the North Central Pacific for this animal.

The shallow wafers of the refuge are quite productive. However, marine life is apparently less diversified than around the Main Islands. Fishes such as the wrasses, ulua, moi and parrotfishes are abundant. Parts of the refuge support bait-fish populations of some size, but investigations have not been sufficient to adequately assess either the composition or extent of marine resources of refuge waters.

Apart from the role of rocks, reefs and soils in supporting the biological productivity of the area there are no significant mineral resources. Phosphate in the form of guano deposits on Laysan and Lisianski is largely depleted. Sand, rapidly becoming an important commodity for resort beaches, is present in unknown quantities but removal would be detrimental to refuge objectives and probably not economically feasible. There is interest in marine specimens and curiosities for the tourist trade but the relative scarcity of sea shells and the isolation of the refuge islands makes collection infeasible. THE REFUGE OFFERS GREAT OPPORTUNITIES FOR SCIENTIFIC RESEARCH. public use

Opportunities for recreation are very limited. The islands are remote and access difficult. Numerous reefs and coral heads at some of the refuge units make near approaches by boat very hazardous. Surf, pounding against the steeper islands, such as Nihoa, make landings dangerous.

Once on the island care must be exercised to avoid stepping on nests and young birds or breaking through the roofs of underground burrows. Accidental introductions of pest plants or insects in clothing, shoes or equipment is a definite threat.

Public use will continue to be limited to scientific investigators engaged in authorized and carefully regulated research. The islands' unique biological systems and the undisturbed nature of the reefs and shoals offer great opportunities in this field. Interpretive and educational goals of the refuge will be met at a future administrative complex planned for the Honolulu area.

All islands of the refuge are designated as Federal Research Natural Areas, as part of our Nation's contribution to the International Biological Program.

Research natural areas on national wildlife refuges are created by administrative action of the Director of the Bureau of Sport Fisheries and Wildlife. They are areas where natural processes are allowed to predominate and are reserved for the primary purposes of research and education. management and development

Management of the Hawaiian Islands Refuge emphasizes protection and restoration of natural environmental qualities and the extension of man's knowledge of the unique island ecosystems.

The refuge is administered from an office in Kailua on the island of Oahu. Periodic visits are made to the refuge islands for wildlife population inventories, special scientific studies and general surveillance. Travel is by ship and aircraft provided through the courtesy of the various military agencies operating in this part of the Pacific. In recent years only about three trips to the refuge have been made each year. These have occurred on an opportunistic, irregularly-scheduled basis as transportation has become available. More frequent visits and more flexibility in timing is desirable.

Small boats or helicopters are used for landing on the islands proper. All supplies required to support a field party are landed at this time and removed when field work is completed. Currently, there are eight formal refuge studies in progress. They deal with the islands' rare and endangered wildlife, diseases and parasites,and habitat. These studies are in addition to routine inventories, monitoring activities and informal investigations. Research by qualified individuals and institutions both inside and outside government is encouraged. Present research is severely limited by the availability of transport to the islands.

Existing development is confined to East and Tern Islands in French Frigate Shoals. The remains of the abandoned Loran station on East Island are currently being removed by the Coast Guard. Removal of this debris will restore much of the island's original character.

Development on Tern Island during the Second World War permanently altered the island's character. A 12,000-foot channel, 200 feet wide and 20 feet deep was dredged to the island and a seaplane runway 8,000 feet long and 1,000 feet wide was cleared adjacent to the island. Dredged coral was dumped on the island to construct a 3,100-foot landing field. Today, the island looks much like a giant aircraft carrier.

Through a cooperative agreement, the U. S. Coast Guard operates a Loran station on Tern Island. The runway and facilities remaining from World War II are used to maintain the manned station. Also, under agreement, the U. S. Atomic Energy Commission used Tern Island as a monitoring station from 1969 to 1972. This agreement has now expired. These facilities are carefully regulated to prevent disruption of the other islands or lagoon waters of the shoals.

With the exception of Tern Island, no future developments are planned on the refuge, On Tern Island a simple but permanent research facility is under construction for extended research by Bureau and cooperating scientists.

Maintenance of necessary signs and management of the islands for their primary objectives can be accomplished by methods completely compatible with wilderness. Landings by motorized boats and by helicopter must continue. Helicopters signif- icantly reduce the landing hazards on some of the islands and their use should continue in the interest of safety. THE GREAT FRIGATE BIRD, ONE OF THE MORE SPECTACULAR SEA BIRDS social and economic considerations There can be little doubt that the refuge's chief value to man lies in its great bird rookeries and its unique and undisturbed biological systems. These are the resources we must pass on to future generations.

The main Hawaiian Islands have lost much of their original uniqueness. Many elements of the native flora and fauna have given way to exotics and civilized man. More losses will undoubtedly occur as population continues to increase and intensify demands on the islands' resources.

The lands and waters of the refuge will become increasingly important simply because they retain relatively undisturbed conditions—conditions necessary to unravel nature's mysteries and to detect and arrest undesirable changes in the human environment.

Apart from their biological resources, the islands themselves have no other resources of significance. A few of the islands could provide location for technological installations, if the need were great enough and alternative locations unsuitable. Underwater lands may be a possible source of sand to replenish resoj-t beaches of the inhabited islands. The economic feasibility of mining this sand is unknown and its removal could seriously disrupt marine life and perhaps the stability of islets in the atoll units.

The marine resources of refuge waters are significant. They are an important link in the food chain supporting life on the islands. They may also represent a potentially exploitable fishery resource. Shortly after World War II commercial fishermen began operating in French Frigate Shoals. Fishery continued intermittently through 1959, but profits were small. Interest in the fishing potential, especially around Midway and French Frigate Shoals, continues.

Unfortunately, information is insufficient to adequately evaluate the marine resources of the refuge. Our knowledge is particularly deficient in assessing the possible consequences of exploiting this resource. Extreme caution must be exercised to avoid losing more than would be gained. THE REFUGE IS HOME FOR MOST OF THE WORLD'S HAWAIIAN MONK SEAL. conclusions

About 303,936 acres of the Hawaiian Islands National Wildlife Refuge are suitable for inclusion in the National Wilderness Preservation System. The proposed Hawaiian Islands Wilderness would include the land masses of the islands as well as associated submerged lands.

The wilderness would encompass the entire refuge except 267 acres on Tern Island and adjacent submerged lands in the French Frigate Shoals. The island and its submerged lands have been grossly disturbed by man.

Waters overlying the submerged lands are navigable and not within the sole jurisdiction of the refuge . These waters will not be part of the wilderness.

Wilderness designation will extend legislative recognition to both the islands and surrounding submerged lands—recognition that will aid the continued survival of the island's unique ecosystems. This is appropriate since the islands do not exist in isolation from their surrounding waters and the well being of the refuge's wildlife is greatly dependent on man's future care of the submerged lands. HAWAIIAN ISLANDS

CHANGES SUBSEQUENT TO THE PUBLIC HEARING

The entire refuge, except Tern Island and its adjacent ship channel, is suitable for inclusion in the National Wilderness Preservation System; however, there is an ambiguity in the Executive order which established the refuge. Essentially the ambiguity centers on the question as to whether or not certain reefs were included in the order and serve as a boundary for the refuge. All of the area encompassed by the reefs are suitable for wilderness status, if they are determined to be owned by the United States.

At present this issue is being discussed among the Departments of the Interior, State and Justice, and the State of Hawaii. Therefore, the undisputed emergent lands in the refuge (less Tern Island), encompassing 1,742 acres are recommended for wilderness and if it is ultimately determined that additional lands belong to the United States they also will be recommended for wilderness status. LAYSAN TEAL

Persons desiring additional information on the Hawaiian Islands Wilderness Proposal are encouraged to contact the Wildlife Administrator, Hawaiian Islands Nationa-l Wildlife Refuge, 337 Uluniu Street, Kailua, Hawaii 96734, or the Regional Director, Bureau of Sport Fisheries and Wildlife, P. O. Box 3737, Portland, Oregon 97208. List of Document Parts - House Document 93-319

PART

1. CRATER LAKE NATIONAL PARK, OREGON ?. HAVASU NATIONAL WILDLIFE REFUGE, ARIZONA AND CALIFORNIA (and additions to previously submitted proposals: PINNACLES NATIONAL MONUMENT and SEQUOIA-KINGS CANYON NATIONAL PARK, CALIFORNIA) 3. SEMIDI NATIONAL WILDLIFE REFUGE, ALASKA 4. HAWAIIAN ISLANDS NATIONAL WILDLIFE REFUGE 5. CRAB ORCHARD NATIONAL WILDLIFE REFUGE, ILLINOIS 6. ZION NATIONAL PARK, UTAH 7. KATMAI NATIONAL MONUMENT, ALASKA 8. MILLE LACS AND RICE LA.KE NATIONAL WILDLIFE REFUGES, MINNESOTA 9. GLACIER NATIONAL PARK, MONTANA 10. RED ROCK LAKES NATIONAL WILDLIFE REFUGE, MONTANA 11. OLYMPIC NATIONAL PARK, WASHINGTON 12. TAMARAC NATIONAL WILDLIFE REFUGE, MINNESOTA 13. ROCKY MOUNTAIN NATIONAL PARK, COLORADA 14. MISSISQUOI NATIONAL WILDLIFE REFUGE, VERMONT 15. UNIMAK ISLAND (ALEUTIAN ISLANDS NATIONAL WILDLIFE REFUGE), ALASKA 16. Deferred areas: CABE2A P^IETA GAME RANGE, ARIZONA; DESERT NATIONAL WILDLIFE RANGE, NEVADA; and GLACIER BAY NATIONAL MONUMENT, ALASKA 17. Unsuitable roadless areas; SAVANNAH NATIONAL WILDLIFE REFUGE, GEORGIA AND SOUTH CAROLINA; LITTLE PEND ORIELLE and TURNBULL NATIONAL WILDLIFE REFUGES, WASHINGTON; BOWDOIN NATIONAL WILDLIFE REFUGE and NATIONAL BISON RANGE, MONTANA; NATIONAL ELK REFUGE, WYOMING; and HORICON NATIONAL WILDLIFE REFUGE, WISCONSIN