DUCK STAMPS

AND
WILDLIFE REFUGES

UNITED STATES DEPARTMENT OF THE INTERIOR

FISH AND WILDLIFE SERVICE
CIRCULAR 37

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UNITED STATES DEPARTMENT OF THE INTERIOR, Douglas McKay, Secretary
FISH AND WILDLIFE SERVICE, JOHN L. FARLEY, Director <«- «<- «<-

UNITED STATES GOVERNMENT PRINTING OFFICE • WASHINGTON : 1955
FOR SALE BY THE SUPERINTENDENT OF DOCUMENTS, WASHINGTON 25, D. C. • PRICE 20 CENTS

WILDLIFE REFUGES

By John L. Farley

Tin Fish and Wildlife Service has receivi d many inquiries about the ust of funds from
Migratory Bird Hunting Stumps, or "/>uck Statu />s," in the national migratory waterfowl
refuge program. This circular has been prepared to answer such inquiries. Tru circular is
taht n laiiji ly from a report by the Director of the Fish and Wildlife Servii e to t/u Subcommit-
tee on Public Lands of the House Committee on Inti rior ami Insular Affairs. July 30, !'■>',].
with si, mi additions of later information. This is the story of the importance of /hick Stain ps
in the di Vt lopm, nf anil miiinti nance of national waterfowl refuges, and of the importance of
these refuges in the preset-ration of waterfowl hunting in this country.

Like many other worthwhile movements in the
United States, the wildlife refuge program was
conceived by a small group of people. Toward
the end of the last century a few persons were
intensely interested in protecting for the future
the bird and animal life that was fast disappear-
ing from the face of the continent.

One very active organization was the American
Ornithologists' Union, which had its inception in
lss.'S. Composed of a small hand of professional
ornithologists, the A. O. I', aroused official interest
that led to the establishment of the first national
bii'd reservation: on March 14, 1903, an Executive
order of President Theodore Roosevelt provided
protection for tiny Pelican Island in the Indian
River, on the Florida east coast. This little 3-acre
reef held rookeries of colonial birds that were
being slaughtered for their plumage, which was
sold to the millinery trade. Establishment of
this Federal refuge put a stop to the killing of
the birds and the robbing of their nests, with the
A. (). I", supplying warden service.

This was the beginning of a series of Executive
orders. By 1906, three more refuges of the same
type in various parts of the country were set aside.
These areas 'also were patrolled through the use
of private funds, largely supplied by the National

Audubon Society, an organization allied to the
Ornithologists' Union, and with similar ideals.

In 1908, 36 more of these small islands primarily
for protection of colonial birds were set aside.
Several of these were in Alaska.

Following this small beginning, interest grew
until in June 1924 Congress authorized the appro-
priation of $1,500,000 for the. purchase of bottom
lands along the upper Mississippi River, to estab-
lish what has become one of the very important
waterfowl and wildlife refuges in the country.
In 1928, an appropriation of $350,000 was made
to establish the Bear River Migratory Bird Refuge
on the salt marshes at the mouth of Bear River,
on Great Salt Lake in Utah.

Also during this period, the first refuges were
established on reclamation reservoirs or drainage
sumps. From 1908 to 19.">o, Executive orders
established such waterfowl units as Malheur and
Upper Klamath Lakes in Oregon, Tule and Ixjwer
Klamath in California, and Deer Flat and Mini-
doka in Idaho.

A few big-game refuges were brought under
Federal protection during this period, either by
special acts of Congress or through donations by
conservation organizations. In this category was
the National Elk Refuge in Jackson Hole, Wyo. ;

Cover: Design for the first Duck Stamp. Opposite: Waterfowl on a National Wildlife Refuge.

Many early refuge areas were to protect colonial
birds like these egrets from plume hunters.

the Izaak Walton League raised funds to acquire
lands on which to feed the elk, which normally
starved by the thousands during the severe Wyo-
ming winters. The National Audubon Society
and the Boone and Crockett Club raised funds to
acquire the first unit of the Charles Sheldon An-
telope Refuge in northern Nevada.

By 1929, public interest in the preservation and
conservation of waterfowl resulted in the first real
Federal legislative authority for a broad program
of refuge acquisition and development. This act,
based on the Migratory Bird Treaty with Great
Britain (signed in 1916), was known as the
Nbrbeck-Andresen Migratory Bird Conservation
Act. Its declared purpose was —

in more effectively meet the obligations of the United
States under the migratory bird treaty with Great Brit-
ain by lessening the dangers threatening migratory game
birds from drainage and other causes, by the acquisition
of areas of land and of water to furnish in perpetuity
reservations for the adequate protection of such birds:
and authorizing appropriations for the establishment of
sucb areas, their maintenance and improvement, and
for other purposes

Section 12 of this act enlarges upon its intended
purposes to include —

the acquisition ... of suitable areas of laud, water . . .
for use as migratory bird reservations . . . and for the
administration, maintenance, and development of such
areas and other preserves, reservations, or breeding
grounds frequented by migratory game birds . . . includ-
ing the construction of dams, dikes, ditches, flumes, spill-
ways, buildings, and other necessary improvements, and
for the elimination of the loss of migratory birds from
alkali poisoning, oil pollution of waters, or other causes,
for cooperation with local authorities in wildlife con-
servation, for investigations and publications relating
to North American birds, for personal service, printing,
engraving, and issuance of circulars, posters, and other
necessary matter and for the enforcement of the pro-
visions of this act . . .

To carry out the acquisition of lands in a busi-
nesslike fashion, and to ensure close cooperation
between the executive and the legislative branches
of the Government, this act established the Mi-
gratory Bird Conservation Commission, composed
of the Secretaries of Agriculture, Commerce, and
Interior, and two Members each from the Senate
and the House. The Commission has since that
time passed upon all purchases of hind made
under the provisions of the act. The Biological
Survey, a predecessor of the Fish and Wildlife
Service, immediately started surveys of areas
throughout the 48 States in an effort to locate
lands suitable for purchase under the newly ac-
quired authority of the Conservation Act.

During the next year, Congress passed a special
bill which authorized $250,000 for the purchase
of the Cheyenne Bottoms Refuge in Kansas, a
project never completed by the Federal Govern-
ment because of a subsequent inflation in land
prices due to an oil boom. This fine project has
now been restored by the State of Kansas through
the expenditure of $1,741,000 of Pittman-Robert-
son funds. There also followed shortly the pur-
chase of St. Marks Refuge in Florida. Salton Sea
in California, Swanquarter in North Carolina,
and Crescent Lake in Nebraska. By 1932, several
other areas were added to the system, some by
purchase, some by withdrawal of public lands, and
one by gift.

The Frenzied Thirties

Then came the early thirties, with the great
drought at its height. Water from prairie pot-
holes, ponds, and marshes had disappeared; dust-
storms raged, and farmers throughout the Dust

fa

Snow geese at Sacramento Refuge.

Howl were panic stricken and in poverty. Water-
fowl had reached the lowest point in their history.
Severe restrictions on the take were ordered, but
control of the hunter kill was far from the answer
to the basic problem of where the birds would
find suitable nesting cover, food, and protection.
The refuge program, which had seen an auspi-
cious beginning with the passage of the Norbeck-
Andresen Act. was also withering. Funds to im-
plement the act were unavailable during the
depression, and many conservationists predicted
early extinction of the Nation's ducks and geese.
Then in January 1934, President Franklin D.
Roosevelt appointed a special waterfowd commit-
tee consisting of Jay N. (Ding) Darling, famous
cartoonist; Thomas Beck, magazine editor and
avid duck hunter; and Aldo Leopold, one of the
Nation's foremost biologists. This committee im-
mediately set a goal of s.">() million for the purchase
ami restoration of submarginal and other lands
for wildlife, with special emphasis on migratory
waterfowl. Such breadth of imagination brought
a public gasp, yet it fired the enthusiasm of con-
servationists everywhere. Ding Darling came in
as Chief of the Biological Survey and changed
the course of refuge history. More than any other
single individual in conservation history he pro-
claimed the plight of drought-stricken and over-
shot ducks with his eloquent tongue, his facile
pen. and his pungent cartoons.

In a short time. $8,500,000 of emergency funds
were obtained to buy lands and construct fences,
dikes, dams, and necessary buildings, as follows:
A special fund of $1,000,000 was set aside by the
President for the purchase of migratory water-
fowl refuges: $1,500,000 was allocated from the
submarginal land retirement fund: $3,500,000 was
allocated from drought-relief funds, for purchase
and development of lands within drought stricken
areas: $2,500,000 was allotted from WPA funds.
for engineering operations, to construct water-
level controls and to improve the refuges

It was in this setting of excited interest among
sportsmen and conservationists that the Duck
Stamp Act. formally known as the Migratory Bird
Hunting Stamp Act, came into being; its purpose
was —

to supplement and support the Migratory Bird Conserva-
tion Act by providing funds for the acquisition of areas
for use as migratory-bird sanctuaries, refuges, and breed-
ing grounds, for developing and administering such areas,
for the protection of certain migratory birds, for the en-
forcement of the Migratory Bird Treaty Act and regula-
tions thereunder, and for other purposes.

Ding Darling drew the design for the first Duck
Stamp. During the first year, its -ale added al-
most *000.000 to the funds available for the
national program.

Frsnzied activity among the small staff of the
Biological Survey under Darling's leadership, full

Water-control gate at Bear River Refuge.

cooperation of State conservation directors, and
active participation by many sportsmen's groups
lii'ought astonishing results. Land negotiators,
surveyors, engineers, draftsmen, biologists, and
other skilled help were hastily recruited. Surveys
and negotiations for lands went forward at a dizzy
pace. Buildings, dikes, dams, and other structures
were rushed to the construction stage. Many were
aided by WPA labor, others through the use of
workers in the Civilian Conservation Corps.
Between duly 1. 1934, and March 31, 1935, some
653,000 acres of land were optioned in time for
letting construction contracts amounting to $892,-
(

Chautauqua Refuge in Illinois, Seney in Michi-
gan, Squaw ('reek in Missouri, Arrowwood, Des
Lacs. Lost wood, and Upper and Lower Souris
Refuges in North Dakota, and Sand Lake, La-
creek, and Waubay in South Dakota, all came into
being. Several areas were expanded by the addi-
tion of suitable lands. By June 30, 1935, 22 CCC
camps were working on refuges where land pur-
chase had gone forward far enough to warrant
development.

By the end of L935, White Liver Refuge in
Arkansas, Sacramento in California. Delta, La-
cassine, and Sabine in Louisiana, Mud and Rice
Lakes in Minnesota, Medicine and Red Rock Lakes
in Montana. Valentine in Nebraska, Mattamuskeet
in North Carolina. Muleshoe in Texas, Turnbull

in Washington, and the Great P Ranch as an
adjunct to Lake Malheur in Oregon, all fell into
place on the national refuge map.

Later, Darling, with the aid of Senator Norbeck
of South Dakota and other ardent conservation-
ists in Congress, obtained another $6 million for
the waterfowl restoration program.

By the end of 1937, acquisition was in progress
on 62 different refuges, old and new; construction
of dikes, dams, and other facilities was proceeding
on the newly purchased areas as rapidly as title
passed to the Government. In the important
breeding areas of North Dakota and Montana,
landowners were cooperating wholeheartedly by
granting perpetual easements for the flooding of
their dried-up potholes, with the Government pro-
viding labor to construct dams designed to catch
and hold the waters which were bound to return
with a change in the water cycle.

During those years, increasing CCC. WPA, and
other relief labor was available for the develop-
ment program, but there was a dire shortage of
Federal funds for the purchase of supplies and
materia] to take advantage of the abundant supply
of relief labor. Here the Duck Stamp funds were
used to great advantage for purchasing fencing
material, steel, cement, water-control gates, and
other necessary items. These funds, though small
in amount, became the key to the use of relief
labor for the development of the thousands of
acres of lands purchased with other funds.
During succeeding years, as WPA workers re-
turned to private industry and CCC camps were
disbanded, the Duck Stamp funds and the all-
too-inadequate regular annual appropriations be-
came the sole source of support for the waterfowl
refuge program.

Duck Stamp receipts in those early years, how-
ever, were only a drop in the bucket compared with
the emergency funds that Darling was able to
obtain. In the fiscal year 1935, Duck Stamp
receipts were $635,000; the next year they dropped
to $448,000. In 1937 they rose to $604,000, and
in 1938 to $783,000. It was not until 1939 that
they hit the $1 million mark. Had it been neces-
sary to depend entirely on such funds for land
purchase, (lie Service's waterfowl refuges would
be far short of the present 31 j million acres.

As a part of the relief endeavor during the
early thirl ies. the Government embarked on a pur-
chase program to retire submarginal lands in

Malheur Refuge in Oregon.

communities which were unable to maintain a
living standard from their abused and wornout
soils. In 1939 that policy changed, and areas
acquired by the Resettlement and Farm Security
Administrations were turned over to other agen-
cies of the Government for administration. Five
such units, totaling more than 200,000 acres, were
transferred to the Service: The Carolina Sand-
hills in South Carolina, Little Fend Oreille in
Washington, Piedmont in Georgia, Moosehorn in
Maine, and Kentucky Woodlands in Kentucky.
All were generally suited for wildlife and upland
game, while the 40,000-acre Necedah in "Wiscon-
sin, and a 65,000-acre addition to the St. Marks
Refuge in Florida were important additions to
the waterfowl program.

By 1939, all appropriated and emergency funds
for the purchase of lands were obligated, and the
Migratory Waterfowl Stamp receipts became the
only funds available for land purchase. They also
constituted a large pari of the money available
for development, operation, and maintenance of
refuges previously acquired. The land-purchase
program by necessity resolved itself into one of
purchasing key tracts, either in areas where new-

refuges were sorely needed, or to round out and
complete refuges that had been partly acquired
during the burst of activity in earlier days of
refuge expansion.

Refuge Acquisition Since 1940

Since 1940 there has been little in the way of
congressional appropriations specifically for the
acquisition and development of lands for migra-
tory birds. The principal exception has been in
California. Here agricultural depredations were
severe, and to meet a specific problem in the win-
tering grounds at the lower end of the Pacific
Flyway, Congress in 1948 passed what is known
as the Lea Act. The need was for croplands on
which the birds' might feed instead of raiding the
fanners' rice and barley fields. The Lea Act.
therefore, authorized the acquisition of wildlife-
management areas on which feed could be grown.
It also included a special provision permitting
hunting at the discretion of the Secretary of the
Interior. This plan proceeded regularly for a
5-year period, with congressional appropriations
of $250,000 annually to acquire, develop, and

Building a pump house at Colusa, in California.

manage specific waterfowl-management areas.
Four separate units — Colusa. Sutter, Merced, and
Salton Sea — a total <>)' 6,927 acres, were acquired
with those Lea Act moneys.

Congress also appropriated a total of $450,000,
spread over a 3-year period from 195] to L953,
to supplement Duck Stamp funds for the restora-
tion of water-control dikes on the Tule Lake-
l.ower Klamath Refuges in northern California.
These dikes are essential to the proper manage-
ment and control of waters to reduce the heavy
botulism losses that had regularly occurred in
this very valuable duck and goose concentration
area.

Also, a special act of Congress in 1947 trans-
ferred to the Service jurisdiction of the ('rah
Orchard Ordnance Plant and adjoining Federal

lands in southern Illinois. Part of this ! 1.000-
ai re area had been acquired by the Government
as a step toward improving a very unsatisfactory
economic situation in the vicinity of the Herrin
coalfields, and the balance as an addition to the
ordnance plant. These lands formerly ^vere under
the jurisdiction of four separate Government
agencies. The Fish and Wildlife Service was
interested in acquiring a part of the area for
waterfowl management, but before the bill passed
the Congress it was amended to include all of the
lands in the project, thus making one Federal
agency responsible for its administration. At the
time the Service took it over, it had practically no
wildlife value. Today it is one of the finest wild-
life refuges in the United States. Indicative of
the phenomenal success of the development and

8

management program is this comparison: At the

time of the transfer there was no waterfowl use
of the area; in the fall of L953, more than 48,000
Canada geese made Crab Orchard their head-
quarters. Incidentally, this area also has become
the center for some of the Nation's most famous
hunting-dog field trials.

Although there has been little in the way of
special appropriations for the acquisition and de-
velopment of new refuge areas since 1940. the
Service has continued to make great strides in ex-
panding the refuge system. This has been possible
largely through the use of suitable areas acquired
by other Government agencies for other public
purposes.

Basic authority for Fish and Wildlife Service
use of areas impounded by other agencies of the
Government was first conceived in 1!>:54 through
what is known as the Coordination Act. This was
greatly strengthened and improved in 1946 and
has become an important element in refuge devel-
opment. The act provides that —

Whenever the Federal Government through the I'.ureau
of Reclamation or otherwise, impounds water for any use,
opportunity shall lie given to the Fish and Wildlife Service
to make such uses of the impounded waters for fish-culture
stations and migratory-bird resting and nesting areas as
an- not inconsistent with the primary use of the waters . . .

ruder this authority some excellent areas have
been made available to the Service without cost
for land. Duck Stamp funds have been used for
their development and for operation and mainte-
nance. A few examples are worthy of specific
mention.

When Denison Dam was constructed across the
Red River, boundary between Texas and Okla-
homa, it flooded several shallow bays with excel-
lent waterfowl potentials. Two Federal refuges
\\ ere created : Tishomingo, of about 13,500 acres in
Oklahoma, and Hagerman, of about 11,500 acres
in Texas. Subsequent farming and other develop-
ments tor waterfowl have brought large numbers
of wintering ducks and geese into the Keel River
Valley for the first time within the memory of
local residents, and excellent shooting has resulted
over a wide adjacent area.

The Santee Refuge on the Santee and Cooper
Rivers in South Carolina is a similar area, made
available to the Service for wildlife purposes as
a part of the Santee-Cooper Hood-control and
hydroelectric project.

Two of the finest refuges in the South were
developed on lands acquired and flooded by the
Tennessee Valley Authority. The Wheeler Ref-
uge of some 35,000 acres in northern Alabama

National Field Trials at Crab Orchard, in Illinois.

Stillwater Refuge in Nevada.

and the Tennessee Refuge of about 50,000 acres in
h estern Tennessee have become two of the Nation's
finest waterfowl wintering areas through the
proper management of food and cover.

Below Boulder Dam on the Colorado River, two
other refuge areas have been set aside on Reclama-
tion projects — Havasu, of approximately 45,000
acres, and Imperial, about the same size. These
refuge areas are the chief wintering grounds for
the Great Basin Canada geese, and accommodate
thousands of ducks which find this to be the only
suitable marshland in the midst of desert that
stretches in endless miles in all directions.

One of the finest areas in the entire refuge
system was secured recently with only a small
amount of Duck Stamp money needed to provide
a few critical tracts. The bulk of the refuge —
140,000 acres — was made available at no cost by
the central and south Florida flood-control dis-
trict. Known as the Loxahatchee Waterfowl
Management Area, it is just west of Palm Beach,
Fla. A few hundred acres outside the dike have
been acquired or are being acquired with Duck
Slump funds, to provide farmland for waterfowl-
food production and a headquarters site.

The Salt Plains Refuge in north-central Okla-
homa, originally established on public-domain
land by Executive order, is another good example

of this cooperative approach. Shortly before
World War II, the Corps of Engineers became
interested in the salt flats as a flood-control
project. Agreement was reached with the corps,
whereby the salt flats were used for a flood-
control impoundment and the additional lands
acquired for the project were transferred to the
Fish and Wildlife Service for operation as part
of the Salt Plains Refuge. Duck Stamp funds
were used to acquire some 1,029 acres needed to
round out the refuge. A diversion structure
and ditch to supply water for a series of sub-
impoundments, have been financed from Duck
Stamp funds. The 31,000-acre Salt Plains
Refuge is now one of the outstanding refuges of
the south-central plains wintering area.

Mud Lake Refuge in Minnesota, an excellent
waterfowl-breeding area of more than 60,000
acres, also came to the Service at practically no
cost —a few acres had to be purchased to round
out boundaries. These lands were originally ac-
quired by the Resettlement Administration.
This is one of the few Federal refuges on which
moose are found: about 100 head make Mud Lake
t heir home.

In Nevada the famous Carson Sink-Stillwaf er
Slough area of almost 200,000 acres, known to
western duck hunters since the beginning of irri-

10

"Multiple use" at Wichita Mountains Wildlife Refuge.

gation in Nevada, is now being extensively de-
veloped through a joint program by the State,
with Pittman-Robertson funds, and the Fish and
"Wildlife Service, with Duck Stamp money. All
the lands in this project are provided by the
Truckee-C&rson irrigation district. Draglines
and dirt-moving equipment are creating new and
improved pools and ditches and water-control
structures for better water distribution, all of
which will guarantee a perpetuation of the sport
of duck hunting in one of the finest areas in the
West.

Under the authority of the Coordination Act.
and through cooperation between the Service and
other agencies, the Service has had transferred
to its administration a total of 2,167,926 acres of
land suitable for waterfowl management since
the Duck Stamp Act was passed. This, plus 209,-
:'.l".» acres acquired with Duck Stamp funds,
16,815 acres leased with those funds, and 11,835
acres now under contract for purchase, makes a
total of 2,405,905 acres added, in part by Duck-
Stamp expenditures, to the national waterfowl
refuge system. The costs of surveying, title clear-
ance, administration, and all other expenditures
incident thereto, have amounted to $5,367,125 of
Duck Stamp funds. These acquisitions, in addi-
tion to the lands acquired before the enactment

of the Duck Stamp law, bring the Service's pres
ent migratory-waterfowl refuge holdings to
3,269,549 acres*.

Duck Stamp Price Increased in 1949

From 1935 through the fiscal year 19.".:;, some
$8,500,000 of Duck Stamp funds were used for
refuge development, and slightly more than $10
million for operational maintenance. This course
has been dictated by necessity. Over the years.
as new areas came under administration, the
Service has endeavored to secure funds for the
development, operation, and maintenance of the
new projects. The requirements for economy
have resulted in reduced requests and appropria-
tions, making necessary the use id' Duck Stamp
funds instead of regular appropriations.

This has forced the Service to take steps that
have resulted in the present waterfowl program
being carried practically in its entirety with Duck
Stamp revenues and refuge receipts, and rever-
sions of unexpended Pittman-Robertson funds.
which are also available for carrying out the pur-
poses of the Migratory Bird Conservation Act.
Pracl ically all of the regularly appropriated funds
now available to the Service through the annual
appropriations for refuge purposes are used for

11

the maintenance of hi<r game and upland areas for
which Duck Stamp funds cannot be used.

The situation became so desperate, owing to
mounting costs and inadequate revenues, that by
1948 the Service was approaching the point of
abandoning areas in order to stay within fiscal
hounds. When this situation was understood by
the sportsmen of America, they urged that Con-
gress remedy it and on August 12, 1949, the price
of the Duck Stamp was doubled — from $1 to $2.
Concurrent with this increase, the Congress au-
thorized the opening to public shooting of not to
exceed 25 percent of certain refuge areas, at the
discretion of the Secretary. A subsequent action,
dated October 20, 1951, increased from 10 percent
to l."i percent the amount of money available for
administration, which includes law enforcement.

With the additional funds available, the Service
expanded its land-purchase program, and the fol-
lowing sums have since been expended for that
purpose: Fiscal year 1950, $302,352; 1951, $309,-
689; 1952, $481,156; L953, $757,792; 1954, $1,125,-
'Hiii; 1955, $1,250,000. New areas have been ac-
quired as rapidly as options could be taken and
the purchases cleared through the Migratory Bird
( 'onservat ion ( lommission.

It must be kept in mind that the high prices
of land that plague the home buyer and business-
man today are just as much of a problem to the
Federal Government's agencies engaged in any

kind of land purchase. The market price for land
suitable for refuges lias increased many times over
in the past 15 or 20 years, and less becomes avail-
able each year. Many potential refuge areas have
been bought up by private gun clubs. In addition,
the Service's criterion for suitable refuge lands
has changed during the years. In the early days
of the waterfowl refuge program, the accent was
on the acquisition of marshlands; today the Serv-
ice finds it necessary also to acquire adjacent farm-
lands on which to produce supplemental feeds.

Development a Necessary Part of the
Refuge Program

Purchase of land is merely the initial step in the
establishment of a public waterfowl refuge.
Ducks and geese, like pigs and cattle, must have
food — lots of it — as well as fresh water and other
items, such as gravel, to meet their special living
requirements.

Each area selected for a refuge presents different
problems, but basically all require the provisions
of water, food, protective cover, and headquarters
buildings to ensure effective administration. De-
velopment must be directed toward providing the
habitat that will make the refuges of maximum
value to the greatest number of species, particu-
larly during emergency periods. Very few of the

Restored marsh for waterfowl, Horicon Refuge in Wisconsin.

1

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12

areas are in condition to be of maximum service
to wildlife without considerable development.

This was especially true of those acquired under
the submarginal land retirement act : all of those
lands required restoration of water and vegetation
for wildlife food and cover. Each area must lie
carefully studied to determine its peculiar defi-
ciencies and the special measures needed to over-
come them. Along the eastern coast where salt
water is predominant, fresh-water ponds are de-
veloped to provide diversified habitat and to in-
crease the utility of the refuges. In coastal
marshes, water levels are stabilized to permit the
growth of more desirable vegetation; in dry areas
of the West, reservoirs are constructed to hold the
spring runoff for maintenance of nesting and
feeding marshes.

The development of the Souris Refuges in North
I )akota provides a fine example of the steps needed
to build a refuge literally from the ground up.
By the early 1930's, when drought struck the
Prairie States, practically all of the historic
waterfowl marshes of the Souris River loop had
been drained. The potholes scattered over the
surrounding prairies which produced and cared
for hundreds of thousands of waterfowl lost their
lifegiving waters, and without the Souris River
marshes the birds had no place to go.

The Souris area was selected as the first major
waterfowl restoration project in Ding Darling's
program, and restoration of the valley marshes
was the initial step. CCC camps were moved into
the area, and a series of dikes and water-control
structures, five in all. were constructed across the
valley floor to impound the river and form shal-
low-water pools and wide marshes. Waterfowl
food plants were shipped in from Other areas and
planted by hand. The area was fenced. Aban-
doned farmlands were rehabilitated.

Bui this was not enough. A study of the stream-
flow records of the Souris River showed that in
some years the spring runoff was negligible, and
that by late summer the river ceased to flow.
These records indicated that such conditions had
previously occurred for periods of two or more
consecutive years. The answer was evident.
Water storage must be provided above the marshes
which were to he restored to their former produc-
tivity. So a high dam was constructed across tin-
valley north of the shallow impoundments, and
i he needed storage was thus provided. This res-
ervoir, since named Lake Darling, has a capacity

Burning the tops of brush to expose green shoots
for geese at Mattamuskeet in North Carolina.

of 117,(100 acre-feet, and the Service attempts to
maintain a minimum of 90,000 acre-feet of water
in storage. This will maintain the pools below
the reservoir through -1 years of water shortage on
the basis of a 45,000-acre-foot annual water re-
quirement.

The Souris River refuges were acquired with
emergency funds provided under the drought-
relief program. Development costs of more than
$1,500,000 came partly from emergency funds
and partly from Duck Stamp funds. The result
was the most important waterfowl nesting and
feeding concentration point in the Prairie States.

Another example : The famous 50,000-acre Mat-
tamuskeet National Wildlife Refuge in North
Carolina looks like a natural area. An abandoned
drainage project reverted to its former stadi-
as a lake, is one's first impression. The real story
is far from being that simple. Old outlet ditches
had to be deepened and new ones dug to permit
the lowering of water levels m summer to get in-
creased growth of shoreline vegetation. In these
moist shoreline flats, willow and other shrub
growth had to be eliminated with bulldozers and
disks to allow three-square bulrush, a top duck and

13

Clearing a field at Mattamuskeet to plant food crops for waterfowl.

goose food, to come in. And the disking lias to
be repeated every year or so to keep the willows
from again taking over. Carp had so infested
the lake that they had destroyed practically all
of the aquatic food plants. Millions of these
rough fish were trapped or seined, and sold, with
the result that aquatics are coming back beyond
the greatest expectations.

Mattamuskeet is now one of the most famous
waterfowl wintering areas of the Atlantic coast.
Here from 60,000 to 80,000 Canada geese, 80,000
to 150,000 pintails, mallards, black ducks, and
teal trade back and forth to adjacent Pamlico
Sound and Swanquarter Refuge while hundreds
of stately whistling swans — rigidly protected—
fly unconcernedly overhead.

About 10,000 acres of the 50,000-acre refuge
have always been open to public shooting and
hunters normally bag from 3,500 to 5,000 Canadas
and a like number of ducks from blinds managed
by the Conservation Department of the State of
North Carolina. Hunters on farms surrounding
Mattamuskeet account for
more.

as many geese, or

The Service's 205 refuges and management
a leas are used at some time of the season by about
•20 percent of the continental population of water-
fowl. Some use them as feeding and resting
places during migration, some as winter homes,
and some as suitable homes to bring off their
broods of downy young.

To provide the food essential for this extensive
use of the refuges, the Fish and Wildlife Service
has become one of the Nation's largest farmers,
and certainly it holds a record for diversification.
Refuge personnel are now cultivating more than
17,000 acres, which produce such varied crops as
rice, wheat, corn, clovers, barley, millets, buck-
wheat, and maize. In addition, they supervise
sharecropping on 48,000 acres of refuge farmland,
in which practically all of the Government's share
is left in the fields for waterfowl. The total is
more than 65,000 acres of highly developed crop-
land.

The totals of some of the refuge improvements
are impressive: 1,136 miles of dikes, equivalent
to a dike stretching from Washington, D. C, to
New Orleans, La.: 1,657 miles of ditches and

14

ItfSfc*

Alfalfa, corn, and rye at Horicon.

canals, which would make a continuous canal from
Washington to Denver, Colo.; more than 4,400
miles of fence, enough to stretch across the inter-
national boundaries between the United States
and both Mexico and Canada (exclusive of the
Great Lakes) : more than 3,700 miles of access
and patrol roads, equivalent to the mileage from
Seattle, Wash., to Key West, Fla. ; while telephone
and power lines of 574 miles would provide a line
from Washington to Indianapolis, Ind.

As a landowner, the Fish and Wildlife Service
faces the same problems of mounting costs as the
farmer does. Wages are higher, and equipment
costs have skyrocketed. The problem facing the
Nation today of finding funds to finance a system
of adequate transcontinental highways to take
care of the country's growing population and
transportation needs is paralleled, in a lesser de-
gree, by the problem the Service has of providing
adequate access and patrol roads for the refuges.

Here are some examples of equipment costs.
The Service operates 54 draglines on its refuge
areas. In 1935 this equipment cost an average of
less than $10,000 a unit. The current average re-
placement value is $'25,000 a unit. One hundred
and forty-nine construction type tractors are now
in operation. In 1935 they cost approximately
$6,000 a unit. Today they cost $13,000. A pickup
t ruck — the basic refuge vehicle — cost $575 in 1935 ;
today it costs more than $1,700.

Waterfowl-refuge activities do not stop when
the construction work is completed and water im-
poundments filled. Marsh habitat never remains

stable; continual conditioning is a necessity. Cat-
tail, maidencane, and other pest plants will con-
tinue to invade marsh areas. These invasions
must be fought with herbicides, water manipula-
tion, disking, and replanting with beneficial
species. The maintenance of dikes and water-
control structures, trails, buildings, and equip-

Heavy equipment.

15

Red Rock Lakes in Montana helped save the
trumpeter swan from extinction.

merit is a problem that is always present. Fire
protection is a major activity on most refuges.

Across the continent, flyway by flyway, ade-
quate development can easily be demonstrated as
the key to successful refuge management.
Through the years the Congress has made very
few direct appropriations for development of the
refuge areas. The only major appropriation for
this purpose was for the construction work needed
to restore Lower Klamath National Wildlife Ref-
uge in California, and even this had to be supple-
mented with Duck Stamp funds. Practically all
of the development work has had to be financed
either from emergency relief funds, which pro-
vided labor, or from Duck Stamp money supple-
mented in a small way by the use of refuge receipts
and levelled Pittman -Robertson funds. Such
Duck Stamp revenues as have been available for
development of waterfowl refuges have been well
spent.

The Future

The eventual late of waterfowl on the North
American Continent is uncertain, mure so in fact
than for any other game species. Despite all that
has been done over the years, waterfowl find their
needs in ever-growing competition with the re-
quirements of an expanding human population.
The draining of marshes for agricultural improve-
ment, tor metropolitan and community growth,
for the construction of airports, landing strips,
and new highways yes. even for disposal dumps
for refuse from our cities and towns, pose prob-
lem-lh:it will lie most ditlicult to solve.

Today and for years past we have watched
marshes and ponds disappear as agriculture has
ex] landed. In the black prairie-pothole region of
western and southern Minnesota and eastern
North and South Dakota, agricultural drainage
removed, in each of the years 1949 and 19o0, about
22,000 potholes, amounting to some (53,000 acres.
These areas were the most productive waterfowl
lands in the United States, fully equal to the best
producing areas in Canada. Similar drainage is
occurring in many coastal sections, which are most
important to the birds as wintering grounds.
Most of the great natural marshes of the Gulf are
being ruined or seriously damaged for waterfowl
use by salt-water intrusion as a result of the Intra-
coastal and connecting canals, and by exploration
for sulfur and oil. Waterfowl of the Pacific
Flyway are rapidly approaching a crisis because
the lush marshes which once supported myriads
of birds wintering in California and northern
Mexico are being turned into cotton and rice fields,
orchards, and urban developments.

Thus we see waterfowl facing a precarious and
uncertain future, and in years to come the major
reliance will probably have to be on lands dedi-
cated to their needs — lands in the ownership of
the Federal Government, the States, and private
clubs. At the same time, acquisition of such lands
will increasingly be in competition with other
human uses, and therefore only at competitive
prices. The need for an accelerated acquisition
and development program faces us now.

There has been outlined the program of the
Fish and Wildlife Service during the past years.
To this must be added the work of the State fish
and game departments, largely made possible by
Pittman-Robertson funds. The history of State
acquisition for waterfowl purposes parallels that
of the Service in that, with a few exceptions, little
was done before the late thirties, but after passage
of the P.-R. Act in 1937, when appropriations
became available for wildlife restoration, the
States began to take an active interest. Since that
time 4ti States have acquired more than 410,000
acres of land costing $9,336,000, specifically for
waterfowl. The States have invested an addi-
tional $1.'5,5()().0(H) to develop those areas, and in
fact have been sufficiently interested in the water
fowl program to invest 21 percent of their total
Pittman-Robertson cash in this line of endeavor.

Much has been accomplished, lint much more
needs to be accomplished in the future if wild-

16

*#***

Bulrush ready for geese.

fowling is to be tin' sport of our sons and our
grandsons that it has been of the present genera-
tion.

From the foregoing, then, we have seen the
effort and funds which went into the establish-
ment of the Nation's present 205 waterfowl refuge
areas, totaling 3,269,549 acres.

In 1934 a careful study of our waterfowl re-
source showed that originally we had approxi-
mately 120 million acres of marsh and wetlands.
Fewer than -'50 million acres of habitat of good
quality for waterfowl remain today. In 1934,
on the lia.-is of the existing waterfowl population
and future requirements of the waterfowl resource,
it was felt that the Federal Government should
own and develop r,500,000 acres. That estimate
has stood the test of time. We are almost halfway
to that goal now. We still need about 4 million
acres, and we need them very soon because of the
greatly accelerated destruction of waterfowl
habitat and the great increase in the number of
waterfowl hunters.

Counting the restoration work that could be
done by the States, a total of 12,500,000 acres of
land managed primarily for waterfowl is con-
sidered the minimum acreage which will carry
the present waterfowl population and permit its
reasonable increase to a point where the waterfowl

IB!

The same area after geese have fed.

hunters of the future can be accommodated on a
practical basis. It is expected that the States,
through the opportunities provided by the Pitt-
man-Robertson program, will be able to preserve
not less than 5 million acres of waterfowl habitat.
While the States will place a different emphasis
on this restoration — with hunting the chief ob-
jective— still the waterfowl areas of the States
will carry many waterfowl in the nonhunting sea-
son. It is only recently that the States have given
more emphasis to waterfowl restoration work, and
it is expected that this phase of State game admin-
istration will continue to receive popular support.
We already have, as a result of -JO years of water-
fowl reconnaissance and the recent wetland survey
of the Service, a knowledge of where these strategic
areas are. In each of these areas there is a water-
fowl management problem requiring Federal
ownership to provide additional breeding grounds,
wintering grounds, intermediate Byway refuges,
endemic waterfowl disease abatement, and crop
depredation reduction. There are generally one
or more possible sites that can be acquired in each

problem area. A number of these areas would be

established jointly with States. More and more
we are teaming up on this type id' management,
which we hold most desirable. Often the overall
problem of land acquisition and development is

17

m

5 -

TC-

& - ?3& ■

^1'

K^r

1

J""^J" •■ -«5**

Pinioned birds have helped attract wild geese to Crab Orchard Refuge.

so costly that only by pooling our resources, State
and Federal, can the project, be undertaken. A
noble example of this is the new Shiawassee proj-
ect in Michigan now being jointly restored by
the State of Michigan and the Service.

It is estimated, then, that the Federal Govern-
ment should acquire and develop 4 million acres
of the remaining waterfowl-management goal and
the States collectively should acquire and develop
a minimum of ."> million acres. It is entirely pos-
sible that the States may be able to do more than

18

that, but they, even more than the Service, are
limited by the future maintenance problem. It is
estimated that this land will average $40 an acre
in cost, or a total of $1(>0 million for the entire
Federal program. This includes averaging in the
use of Federal reservoir lands where they are suit-
able and available, as well as future <^ifts and State
lands at a nominal lease or on a cooperative basis.
In view of past experience, the future development
will cost $20 an acre, or a total of $K0 million for
tin' I million acres (cost of developing the present

waterfowl acreage of 3,269,549 acres, averaged $10
an acre, including the relatively low development
costs of the I930's).

In addition to the continental United States
program, because of the increasing importance of
Alaska as a breeding ground for the Pacific Fly-
way, approximately 25,000 square miles of public
lands in Alaska should be designated for this pur-
pose. This would be done in such a manner as
not to prevent hunting, fishing, taking of furs, and
development of minerals and other natural prod-
ucts from these lands for economic use and devel-
opment, but would give the Service a voice in
seeing that they did not lose their utility for
waterfowl breeding.

It is all too evident that the Duck Stamp income
alone would not be sufficient to complete this
program. It is felt that the Congress should
supplement the Duck Stamp funds by direct
appropriations for an accelerated land-purchase
program so that basic waterfowl-management,
lands necessary for the preservation of the re-

source can U' acquired and developed within the
next :.'."> years. This is most urgent because many
of the areas now proposed for purchase and de-
velopment will not be available if not obtained
during the next 25 years, in view of the great
destruction of waterfowl habitat by competing
forces in our Nation's economic life. Further-
more, with rapid drainage of existing habitat,
replacement habitat should be bought and de-
veloped as soon as possible.

Obviously the portion of the Duck Stamp in-
come that can be allotted for land purchase in the
future will not begin to carry such a program.
Such a 25-year program would require $6,400,000
annually for land purchase and $3,200,000 for de-
velopment. Moreover, at the present time, of the
205 waterfowl refuges developed to date, the basic
maintenance of 203 is entirely on Duck Stamp
funds, totaling $2,800,000. Further, it must be
realized that if this future program is consum-
mated in the next l'."> years, the ultimate annua]
maintenance cost will be about $ti million.

I n the fiscal year ending June SO, 1955, the Migratory Bird ( 'ons< rvation < Commission ap-

proved purchase of 30,189 acres of hind for refuges, <it a cost of st;y,jHHi. /he l,ir</< ■*/ c.rpcmli-
ture of duck .stamp funds for acquisition since 1945. Eight new Federal refuges hare hem
established in tin last thru- years, and three inon refuges are in tin process of /nine/ estab-
lished. For tlw last fiscal year, wildlife refuges rea. ir, d $6,614^00 for acquisition, develop-
ment, and maintenance. Sales of Puck Stamps of the 1954.-55 issue added $4.^363,698 to the
thick Stamp fund.

19

APPENDIX

Table 3. — Acreage of refuge lands under jurisdiction of
Fish and Wildlife Service

Table t — Total expenditures from Dud: Stamp funds, by
activities, fiscal year 1935 through fiscal year 1955

Activity: Amount

1-ost Office Department $745,027

Acquisition of hmd 6,061,928

Enforcement and surveys 4,934,972

investigations and research 2,042,384

Development and maintenance1 23, 905, sl"j

Engineering 520, 944

Administration 1, 3S7. 867

River basin studies 466,100

Total 40,071,044

As of June 30 —

In Alaska

1 Includes development of waterfowl refuses acquired by gift,
by reservation of public domain, l>v transfer from other Govern-
ment ag< ocies, and by purchase with Duck stamp funds and other
funds available for such purposes.

Table 2. — Expenditures by the Brunch of Wildlife Refuges,

\5-55

For fiscal year —

From regular
appropria-
tions >

From Duck
Stamp
funds -

1935

$125, 536
136, 194
283, 172
172, 943
530, 200
652, 71)0
669, 700
• 856, 250
582, 015
665, 334
662, 17.")
648, 900
810, ooo

895, 500

l. 260, 500
1, 707, 426
I, H3, 602
1, 528, 663
1. 532, KM
1, 582, 164
836.1100

$23, 386

1936

428, ooo

L937 -

260. 121

1938 - ..

237, 3 1 1

1939

437. 145

1940

614,855

1941

721 i, ISO

L942

482, 478

L943

484, ISO

1944

640, 509

Hi:.

577, 006

1946

1, 070, 371

1947

1,288, 111

1948

1, 434, 172

1949

1, 450, 110

1950

1, 102,720

1951

2, 322, 177

1952

2,201, US

1953

1, 655, 070

L954

2, 295, 974

1. Ill, 580

1 For maintenance "f mammal and btrd resen al

' For refuge development and operation; does not Include engineering or
administratis

1903

1904

1905

1906

1907

1908

1000

1910

1911

1912

1913

ion

1915

1916

1917

1918

1919

1920

1921

1922

1923

1924

1925

1926

1927

I02S

1929

1930

1931

1932

1933

1934

1935

1936

1037

10HS

1939

1910

19 1 I
19 12

1943

1011

1945

1946

1917

1948
1949
1950
1951
1952
1953

50, 519
50, 519
50, 519
50,519
951, 262
951, 262
954, 262
954, 202
954, 20.2
954, 262
954, 202
954, 262
954, 262
954, 262
954, 262
954, 262
954, 262
954, 262
907, 482
967, 482
078, IS2
078, 183
078, 182
087, 102
0S7. 402
087, 402
OS7, 407
us:, 408
287, los
294, 208
29 1. 20S
29 1. 202
29 1. 202

975, 707
986. 23-1
940, 597
940, 597
983, 037
9S3. 270
982, 19!
985, 260
985, 200

970. 090
970. 097

936, 203

In conti-
nental
United

States

Total

3
3

985

1,304

I. 304

21,504

383, 774

383, 77 1

383, 771

383, 771

427, 106

127, 406

129, 735

135, 355

410, 712

440, 712

440, 742

441, 251
446, 206
446, 866
446, 906
451, 565
151,565
466, 577
576, 957
539, 065
678, 943
744, 291
835, S03
915, 111

l, 625, 619
1. 702, 804
2,012,613
5, 656, 615
7, 111,966
7,356, 150
9, 235, 952
9, 341, 163
9, 440, 102
9, 035, 915
9. 368, 053
9. 397. 970
9, 35 1. 828
9, 5 111. 350
10. 310. 188
10, 220. 723
9, 299. 021
9, 191. 733
9, 277. 002
9. 275. 571
9, 288, 599

3

3

985

1,304

!. 301

21, 59 1

134, 293

13 1, 293

134, 293

13!. 293

3, 381, 368

. 668

'■''7

3, 389. 617

3, 395, 001

3. 395, 001

3, 395, 004

3, 395, 513

3, 400. I0S

3, 101. 128

3, 101. 168

.:. ni5. 827

3. 105, 827

:;. 120, 839

3. 544, 439

3, 500. 547

757. 125

S22. 777

91 1. 3 15

002. 543

713.021

5, 850, 206

6, 100, 020
9, 744, 023

11. 132. 371
11, 050, 35S
13, 530, 100
13, 035, 365
13. 740
17, 01 1. 712
17, 354, 2S7
17, 33S. 573
17, 295. 125

17, 52:;. 987
is. 299 158
is, 203, 214
17. 2S1. ssl
17, 179 993
17, 254, 35S
17, 252, 268
17,224,802

20

Table 4. — Waterfowl refuges

Arrin

Alabama : Wheeler 34,044

Alaska: Hazen Bay 6,800

Arizona :

Havasu Lake (also Id California) 4."i, T< '. 1

Imperial (also in California) 46,791

Salt River 21,060

Arkansas :

His Lake 9,522

White River 116,390

California :

Clear Lake 34,616

Colusa 3, 480

Lower Klamath (also in Oregon) __ 22,800

Merced 2, 562

Sacramento 10, 776

Salton Sea 38,887

Sutter 1, 27s

Tule Lake 37.337

Colorado: .Monte Vista 4,378

Delaware: Bombay Hook 13,810

Florida :

( 'hassahowitzka 11, 016

Loxahatebee 141, 336

Sanibel 2. 474

St. Murks 65. 100

Georgia :

Blackbeard Island 5,618

Savannah (also in South Carolina) 12,685

Wolf Island 538

Idaho :

Camas 10, 535

Deer Flat 10,267

Minidoka 22, 123

Snake River 355

Illinois :

Batchtown 4, 140

< 'alhoun 3, 565

Chautauqua 4,471

Crab Orchard 44,00(1

Flannigan Island 668

Henderson 352

Keithsburg 1,448

Iowa :

Louisa 3, 890

Union Slough 2,075

Kentucky: Kentucky Woodlands 64,820

Louisiana :

Delta 48, 789

Lacassine 31, 125

Sabine 142,717

Maine: Moosehorn 22 526

Maryland :

Blackwater H. 216

Susquehanna 1(5, 410

Massachusetts :

Great Meadows 210

Monomoy o 946

Parker River 6,117

Michigan: ,,,,.

Lake St. Clair 4,200

Seney 93,835

Shiwassee 494

Minnesota :

Mud Lake 60,744

Rice Lake if,, 240

Tamarac 29,108

Upper Mississippi (also in Illinois, Iowa.

and Wisconsin) 117.27:;

Missouri :

Mingo 21,609

Squaw Creek 6, 809

Swan Lake 10, 675

Montana :

Benton Lake 12,235

Black Coulee 1,480

Bowdoin 15,437

Hewitt Lake 1,360

Medicine Lake 31,457

Nine-Pipe 2,020

Pablo 2,868

Pishkun 8, 195

Red Rock Lakes 40,008

Willow Creek 3,119

Nebraska :

Crescent Lake 46, 54<)

North Platte 5, 107

Valentine 70,401

Nevada :

Fallon 17,902

Ruby Lake 35,618

Stillwater 204, 633

Winnemucca 9,806

New Jersey :

Brigantine 12,094

Killcohook (also in Delaware) 1,485

New Mexico :

Hitter Lake 23, '.(2::

Bosque del Apache 57. 101

Hurford Lake 1,845

New York :

Montezuma 6, 174

Wertheim 1,700

North Carolina :

Mattamuskeet 50, 178

Pea Island 5,880

Swanquarter 15, 501

North Dakota :

Arrowwood 15,934

Chase Lake 375

Des Lacs is. sn

Kellys Slough 1,620

Lake Ho 3,139

Long Lake 22,732

Lostwood 26, 107

Lower Souris 58,571

Slade 3,000

Tewaukon 4,710

Upper Souris 32. 045

21

Table t. Waterfold refuges Continued

Oklahoma: Arrr»

Salt Plains 31,12!)

Tishomingo 13,449

Oregon :

Cold Springs 2- 618

Malheur 165,276

McKay Creek *> 813

Upper Klamath 8,140

South Carolina :

Cape Romain 34.016

Santee 78,364

South Dakota:

Belle Fourche 13, 680

Laereek "•

Lake Andes 443

Sand Lake 21,451

Waubay 4>C51

Tennessee :

Lake Isom 1,850

Reelfoot 9. 273

Tennessee 49,510

Texas :

Aransas 47,261

Hagerman 11,429

Laguna Atascosa 38, 759

Muleshoe 5> 809

Utah :

Bear River 64,899

Locomotive Springs 1, 031

Strawberry Valley 14,080

Vermont: Missisquoi 1,941

Virginia: '"'-

Back Bay 4,589

Chincoteague (also in Maryland) 8,922

Presenile L 250

Washington :

Columbia 9. 761

Columbia River 8

Conconully 933

Dungeness 235

Lenore Lake 6.201

Smith Island 65

Turnbull 15. 964

Willapa 7, 123

Wisconsin :

Horicon 20, 683

Long Tail Point 103

Necedah 39, 672

Trempealeau 707

Wyoming:

Bamforth 1, 166

Hutton Lake 1,969

Pathfinder 46,341

The 137 waterfowl refuges listed are in most in-
stances under active administration with permanent
personnel assigned. In addition, there are 68 refuges on
lands on which easements have been granted to the
Service for use in protecting wildlife. Of these, 6, totaling
19,230 acres, are in Montana ; (10. totaling 78,0(57 acres,
are in North Dakota: 1. with 436 acres, is in South
Dakota ; and 1, with 360 acres, is in Wyoming.
Summary: yumber Acre»

Waterfowl refuges 137 3,171. 156

Eastment refuges 68 98,093

Total 205 3,269,549

22

, ^.-t*. - Serials

5 WHSE 00100

U. i. GOVERNMENT PRINTING OFFICE:1956 O -347622