responsible for a periodic decimation of certain important game species. This general cycle of variation from abundance to scarcity is common to our upland game birds. Studies are in progress to determine the cause of these periodic disappearances of our valuable birds. The research thus far conducted gives promise that methods may be developed for reducing the losses among game birds from disease epizootics.

Examinations, surveys, and acquisition of refuge land.-Migratory wildlife on the American continent continues to diminish at a rate which, from all reports received to date, is more alarming than ever and calls for increased determined effort to provide refuge areas required to protect the birds. The continued decrease in the number of birds is caused by extreme water shortage and the encroachment of ill-advised agriculture on breeding and nesting grounds, as well as overshooting due in part to the greater accessibility to concentration points by reason of improved transportation facilities. Nationwide investigations of refuge possibilities have been made and should be continued. Under the Migratory Bird Conservation Act more than 4,000,000 acres in 141 proposed refuge sites have been examined and ownership records compiled.

During the past two fiscal years the Division of Land Acquisition under emergency funds has been engaged in examining, appraising, and negotiating for areas in the Mississippi flyway. There are still many areas to be examined in the other pricnipal flyways of migratory waterfowl in order to successfully carry out the purpose of the act.

The cadastral branch of the division will be occupied in compiling essential map data resulting from refuge boundary surveys conducted under emergency funds and will also be engaged in the demarcation of boundaries on established refuges and those in the process of establishment. It will also be necessary to continue topographical studies in connection with the development, impoundment, and conservation of water on established refuges and those being established during the coming fiscal year.

BIRD DISEASE INVESTIGATIONS

Mr. CANNON. Under this item there appears to be an increase of $14,100 for investigations of diseases of birds. Just how is this work handled, and what increases have you had in it under previous appropriations that would justify this increase?

Mr. GABRIELSON. Our aim is to give as much public service as possible and to cooperate with the State agencies and private game breeders. Each year there is an increase in the number that take advantage of this. When severe outbreaks of disease occur it is necessary that detailed field and laboratory studies be made before methods of control or treatment can be prescribed. With the increased interest in conservation there has come a public demand that more efforts be made to check the disease losses in our wildlife resources. The accomplishment of this is limited by the fact that the regular staff is comprised of only three men trained in this field. Probably the most successful thing that we have accomplished on the diseases of migratory birds has been the discovery of the cause of the so-called duck sickness in the big alkaline wastes of the West, which annually destroyed many thousands of birds when the conditions were right. After we knew the cause, we found that such losses could be prevented where the water levels could be controlled. It is necessary that equally effective methods be developed for areas where it is not economically possible to control the water levels.

Botulism or duck sickness is a type of ptomaine poisoning such as people sometimes get from eating improperly canned vegetables. The bacterium that causes botulism is wide-spread in nature and it is able to maintain itself in a resistant spore stage under the most adverse conditions. It grows best and produces a potent toxin in the absence of air under alkaline condition. The decay of animal

and vegetable matter that follows the drop in the water levels of the shallow alkaline lakes provide perfect conditions for the development of the botulinus organism. A small amount of toxin picked up by the birds while feeding may cause death or complete prostration. The accumulation of toxin can be prevented by maintaining the water levels of the lakes and draining the shallow pools.

Within the last few weeks we have found the organism that causes ulcerative enteritis, or quail disease. This disease, which affects most of our game birds, wipes out great numbers of quail and grouse. We are now working toward the practical application of our findings. Mr. THURSTON. In what areas is that disease most prevalent?

Mr. GABRIELSON. The disease is not confined to any one section. of the country, but may occur wherever there is a concentration of birds. Although we find the disease in our wild birds, we are more familiar with the havoc that it plays on game farms. It is similar, if not actually identical, with the famous grouse disease that causes. such wide-spread decimation of the grouse on the moors of Scotland. Mr. CANNON. Is it in the nature of a contagion?

Mr. GABRIELSON. Yes. It is a bacterial disease of high mortality that is easily spread from one bird to another.

Mr. CANNON. Having discovered the organism that produces it, are you in a position to combat it?

Mr. GABRIELSON. We believe that it may be possible to develop a prophylactic as well as a curative treatment. Our studies previous to the isolation of the causitive organism enabled us to recommend methods for prevention and control. This was instrumental in reducing the game farm losses from this disease to a minimum.

MIGRATORY BIRD CONSERVATION FUND

Mr. CANNON. On this item for migratory bird conservation fund you are asking for the same appropriation given you last year? Mr. GABRIELSON. I would like to present the following for the record:

Estimated receipts, 1936.
Budget estimate, 1937...

1 $750, 000 750,000

Receipts from sale of Federal waterfowl hunting stamps for fiscal year 1936 and belance from fiscal year 1935 are available for 1936.

It is estimated that $750,000 will be collected from the sale of migratory 'bird hunting stamps during each of the fiscal years 1936 and 1937. Of this amount, $50,000 will be used for the enforcement of the various acts for the protection of migratory birds and $25,000 for the expenses of the Post Office Department incident to the engraving, printing, issuing, and accounting for stamps and funds thereunder. A vigorous enforcement campaign in all the States to see that this revenue producing statute is obeyed is of prime importance.

NEW LANGUAGE

Section 4 (b) (29) of the act approved June 26, 1934, entitled "An act providing that permanent appropriations be subject to annual consideration and appropriation by Congress and for other purposes" (Public, No. 473, 73d Cong.), provides that after June 30, 1936 receipts of the character theretofore credited to the Migratory Bird Conservation fund shall be deposited in the Treasury as miscellaneous receipts and that amounts equal thereto are authorized to be appropriated annually from the general fund of the Treasury for the same purposes for which such receipts are now appropriated.

WORK DONE UNDER THIS APPROPRIATION

General. The Migratory Waterfowl Hunting Stamp Act (48 Stat., 451) provides that every hunter of migratory waterfowl must have in his possession a Federal hunting stamp. The stamps are sold by post offices at a cost of $1 each. The funds provided by the sale of these stamps are to be used for wildlife conservation, being expended on the basis of 90 percent for acquiring, restoring, and administering potential waterfowl habitats as inviolate refuges, and 10 percent for the enforcement of the various acts for the protection of migratory birds and the expenses of the Post Office Department for engraving, issuing, an accounting for stamps.

This act was passed because of the appalling reduction of migratory waterfowl during the protracted drought period which has existed in the heart of the migratory waterfowl breeding grounds in the interval between the summers of 1930 and 1935. During these 5 years the migratory flocks became so reduced in numbers that sportsmen and conservationists alike were alarmed at the apparent extinction facing this valuable recreational and economic resource. This concern for migratory wildlife spread to all walks of American life, and public opinion and demand became so mobilized, when the numbers of the birds continued to diminish, that Congress enacted the Migratory Bird Hunting Stamp Act to provide funds for the conservation of migratory water.owl as a definite and recognizedly important section of our national wildlife resources.

The maintenance of the refuge areas with the proper biological conditions necessary for the survival of the migratory waterfowl is one of the most important duties now performed by the Biological Survey. This is a task of increasing difficulty due to the drastic reductions in the natural habitat of these birds in their former wide range and, moreover, is accentuated because of the fact that the economic progress of the Nation has in the past dictated pursuits which are directly inimical to the welfare of these birds.

The Biological Survey is faced with the task of restoring acres ruined for wildlife by unprofitable drainage and irrigation ventures, which reduced former excellent waterfowl migratory-bird habitates to a condition of tragic and wildlife barrenness. This calls for a high degree of scientific development and maintenance, inasmuch as each acre of live marsh must now be made to afford sanctuary facilities for more than the former natural carrying capacity.

In the fiscal year 1937 the Biological Survey will be administering over 3,000,000 acres of refuge land, involving more than 150 migratory bird and waterfowl refuges scattered from Alaska to Puerto Rico and from the Atlantic coast to the Hawaiian Islands. These refuges involve important public-relation problems, important local industry problems such as lumbering, grazing, and haying, from which the Government will derive a considerable income, and above all else, of course, wil involve constant application of research and endeavor to accomplish the biological rehabi itation of the refuge properties for the needs of migratory birds. This program, too, is in furtherance of a treaty between the United States and Canada for the purpose of preserving the migratory bird species of the North American continent.

Migratory waterfowl, the species of migratory birds which have great recreational importance at this time and whose numbers are critically reduced by adverse economic and natural circumstances, supply the basis for a large share of the annual recreational business of the United States by virtue of the equipment and time our citizens spend in pursuit of these birds, and possess tremendous aesthetic value as an animate part of the outdoor landscape. It is the duty of the Biological Survey to protect and serve these birds. In some instances the refuges which have been acquired will be the last remaining sections of natural or recreated habitat within our borders suitable for the needs of these birds.

Acquisition, development, and maintenance of magratory bird refuges.-The migratory bird conservation fund will be used to administer not only the refuges created under the fund but, in the future, also the 32 large-scale waterfowl nesting and wintering refuges which were restored to the use of migratory waterfowl under the emergency appropriations made available for this purpose during the fiscal year 1935.

The acquisition and administration of refuges under the migratory bird conservation fund very naturally divides itself into three main phases of operationreconnaissance and habitat improvement, restoration and development, and maintenance and patrol.

Under reconnaissance and habitat improvement are the scientific, biological rehabilitation of the areas which were acquired in the form of defunct and unsuccessful drainage and irrigation ventures, submarginal marsh and swamp

lands, coastal marshes, Mississippi Valley bottom lands, etc., which must be worked over and made acceptable to the waterfowl by careful selection and planning of the proper food and cover plants, trees, and other vegetation; the careful collection and preservation of aquatic duck-food seeds, especially annuals, and their careful replanting in the following spring; control of waterfowl disease epidemics; manipulation of water levels in the most advantageous way; reforestation and erosion control; census taking of waterfowl numbers (which is becoming increasingly important in controlling the annual kill); creation and seeding of nesting islands, embankments, dikes, etc.; range management; and all things leading to wildlife production from the area. The personnel engaged in this work are highly trained waterfowl biologists who make exploratory surveys along the main flyways of our migratory waterfowl and select areas for acquisition and development which show the best potentialities for wildlife and waterfowl sanctuary purposes. As it is necessary at the present time to use a large portion of the migratory bird conservation fund for development and maintenance purposes, acquisition of additional areas under this appropriation is being subordinated to restoration, development, maintenance, and patrol activities.

Restoration and development activities comprise the hydraulic engineering and architectural developments on the refuge areas. There are very few natural waterfowl habitats of any great size left. Because of this situation it becomes most urgent that we restore former natural areas which have been unsuccessfully drained or otherwise have had their original suitability for waterfowl changed. Almost every area requires extensive impounding and stabilization of water levels in order to secure a safe and permanent water supply for the refuge. In order to accomplish this, an adequate force of trained hydraulic engineers and engineering aides must be available. Since human life is at stake in many of these impoundment undertakings this personnel must be of the highest order. A suitable architectural force is required to design and supervise construction of typical refuge headquarters layouts, including residences and service buildings which the Bureau has recently adopted and standardized. Inasmuch as these areas will be greatly used as local recreation centers for boating, picknicking, and allied sports, it is necessary that some landscaping be done. On many of the new refuges now coming under the administration of this fund it is necessary that suitable topographic maps be made of the areas as an aid to their further development and that the construction of roads, trails, bridges, etc., be undertaken.

Maintenance and patrol work involve the actual patrol and maintenance of the new refuges created by the emergency funds and those in the process of completion under migratory bird hunting stamp funds. Expert refuge managers personnel is being selected and trained and will be in residences on the property, which represents an average investment value of $300,000 and an average acreage of 28,000 acres per refuge. The completion of the 1936 program will being the total acreage of migratory waterfowl refuges up to some 3,000,000 acres.

In order to make those refuge areas as effective as humanly possible in the conservation of migratory waterfowl, this work will result in the reduction of predators, removal of fire hazards, laying-out and maintenance of fire lines, posting and erecting stock-proof fences on the refuge boundaries, patrolling and protecting the area from vandalism, enforcement of the migratory bird refuge laws on the refuge and vicinity, supervising the sale of excess products from the refuges such as hay, timber, forage, etc., performing the actual mechanics of raising considerable amounts of small grains as a supplement to the natural waterfowl foods occurring on the refuge, repairing the water impoundment stabilization system and maintaining the water levels, supervising the recreation centers, and performing all other administrative duties and labor incident to and necessary for the maintenance of established refuges at the highest possible level of productivity and serviceability to migratory birds.

Administration_and enforcement of Migratory Waterfowl Hunting Stamp and Migratory Bird Treaty Acts.-Under the Migratory Bird Hunting Stamp Act, there is authorized to be expended for enforcing this act, the Migratory Bird Conservation Act, Migratory Bird Treaty Act, and any other act for the protection of migratory birds not more than 10 percent of all funds collected from the sale of duck stamps, including the necessary costs to the Post Office Department for engraving, printing, issuing, selling, and accounting for migratory-bird hunting stamps and moneys received from the sale thereof.

RECEIPTS FROM SALE OF HUNTING STAMPS LESS THAN ESTIMATED

Mr. GABRIELSON. That is the duck-stamp money. was about $650,000.

Last year it

These estimates were made in June and early July, and this year the sale of stamps was estimated as $750,000; and the item was put in on that basis.

Ninety percent of this duck-stamp money must be used for the acquisition, development, and administration of refuges, and 10 percent for administration of the law and enforcement of the Migratory Bird Treaty Act, However, Congress passed a law eliminating all continuing appropriations; so that we have to come here and estimate and receive the appropriations for the duck-stamp money. This estimate of $750,000 was made last summer.

Mr. CANNON. I notice it has been revised to $1,208,668.

Mr. GABRIELSON. That includes the balance of $458,668 that was carried forward from last year.

This estimate of $750,000 is greater than the receipts from the sale of stamps will probably be. The reports of sales of duck stamps so far this year would indicate that the receipts will be much less than $750,000. Our estimate for 1937 was based on the number of stamps which we thought would be sold this year, and we assumed that the same number would be sold next year. Since we sold 635,344 stamps during the fiscal year 1935 we thought the sales would be increased by at least 100,000. However, such has not been the case.

Mr. CANNON. You have some new language here on page 364 of the bill which has some significance, especially in view of the statement just made by Mr. Gabrielson. Under the former law it would have permitted you to expend that $750,000 provided it came in from the sale of stamps?

Mr. GABRIELSON. Yes.

Mr. CANNON. And in the event the sale of stamps failed to aggregate $750,000, you could use only the amount of money derived from the sale of stamps?

Mr. GABRIELSON. Yes, sir. That was under the old Migratory Bird Hunting Stamp Act.

Mr. CANNON. Under the language which you now suggest, in the event of a failure of the sale of stamps to bring in $750,000 the deficit would have to be made up by the Treasury?

Mr. GABRIELSON. Yes. That is why I am telling you that I don't think the receipts will amount to $750,000 this year, nor next year either.

Mr. CANNON. Then there is a very present likelihood we will have to make up a deficit from the Treasury if we enact the language suggested here in this bill. What would you say the deficit would be?

Mr. GABRIELSON. From the reports that we have received on the sales of stamps from the major post offices, my guess would be hat that item would be nearer $500,000 than it would be $750,000.

Mr. CANNON. How do you account for the mistake in the estimate? Mr. GABRIELSON. Under the hunting regulations that we have in force this year there were many less hunters bought stamps and hunted ducks.

Mr. CANNON. What was the actual number of stamps sold last year?