49–006 

109TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 2d Session 109–429 

JAMES CAMPBELL NATIONAL WILDLIFE REFUGE 

EXPANSION ACT OF 2005 

APRIL 25, 2006.—Committed to the Committee of the Whole House on the State of 

the Union and ordered to be printed 

Mr. POMBO, from the Committee on Resources, 

submitted the following 

R E P O R T 

[To accompany S. 1165] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on Resources, to whom was referred the bill (S. 

1165) to provide for the expansion of the James Campbell National 

Wildlife Refuge, Honolulu County, Hawaii, having considered the 

same, report favorably thereon without amendment and recommend that the bill do pass. 

PURPOSE OF THE BILL

The purpose of S. 1165 is to provide for the expansion of the 

James Campbell National Wildlife Refuge, Honolulu County, Hawaii. 

BACKGROUND AND NEED FOR LEGISLATION

The James Campbell National Wildlife Refuge on the Hawaiian 

island of Oahu was administratively created on December 17, 1976, 

with the closure of the Kahuku Sugar Mill. Together with the 

Oahu Forest National Wildlife Refuge and the Pearl Harbor National Wildlife Refuge, they comprise the Oahu National Wildlife 

Refuge Complex which was created to protect Hawaii’s endangered 

waterbird populations. 

James Campbell was a 24-year old carpenter who arrived in 

Lahaina, Maui, in 1850 aboard a whaling vessel departed from 

New York. During the next fifty years he acquired a considerable 

amount of property on the islands of Hawaii, Maui and Oahu, established a number of highly successful sugar mills, commissioned 

the first artesian well in Hawaii and served in the Hawaiian State 


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Legislature. The Campbell estate family trust was established upon 

his death. Today, the estate is one of Hawaii’s largest private landowners. The trust arrangement which was established for his 

widow and four surviving daughters will terminate on January 20, 

2007. The pending termination has stimulated interest by the 

trustees to divest some land holdings. 

The James Campbell National Wildlife Refuge, located on the 

north shore of Oahu, is currently 260 acres of land that was purchased from the estate by the U.S. Fish and Wildlife Service. This 

land is divided into two non-contiguous segments known as the Kii 

and Punamano Pond units. It is comprised of a mix of naturally occurring spring-fed marshes, man-made ponds, freshwater springs 

and water impoundments. While there are approximately 75 endangered species of plants and animals residing within the Refuge, 

it was specifically established to protect four highly imperiled species of waterbirds: Hawaiian coot, Hawaiian duck, Hawaiian 

moorhen and Hawaiian stilt. The Service is currently negotiating 

with the Campbell estate to acquire additional high-value wetlands 

that would provide essential habitat for migratory birds, shore 

birds and other waterfowl. These lands are critical to the survival 

of these birds because nearly 90 percent of the wetlands on the island of Oahu have been destroyed. The Refuge is open to the public 

from August 1st to February 15th each year and is closed for the 

stilt breeding season. 

Under the terms of this legislation, the Refuge would be increased by approximately 800 acres of land. This target property is 

owned by the James Campbell estate which has indicated it is willing to sell this land to either a private conservation organization 

or the Fish and Wildlife Service. By purchasing this property, the 

Fish and Wildlife Service would connect the two existing units of 

the Refuge, historical wetland habitat would be restored, a new 

protected flyway would be created and the U.S. Army Corps of Engineers would have the opportunity to provide some badly needed 

flood protection for the neighboring town of Kahuku. In addition, 

this refuge expansion would protect the last remaining large scale 

coastal dune ecosystem on Oahu, preserve native strand plants, 

and protect coastal wildlife including threatened green sea turtles, 

migratory shorebirds and endangered Hawaiian monk seals. 

There are currently ten tenants who are involved in shrimp 

aquaculture activities within the proposed boundary expansion 

area. According to the Ko’olau Loa Agriculture Coalition, these farms represent about 50 jobs and more than $20 million in capital 

investments over a thirty-year period. Based on information provided to the Subcommittee on Fisheries and Oceans, three tenants 

are operating on month-to-month leases and the remaining seven 

tenants have existing leases that expire prior to 2014. In addition, 

all tenants were advised in 2001 that the Campbell estate was selling the property; the U.S. Fish and Wildlife Service has offered 

lease extensions to five tenants through 2023 contingent on federal 

acquisition of the property. 

COMMITTEE ACTION

S. 1165 was introduced on June 6, 2005, by Senators Daniel 

Inouye (D–HI). It was passed by the Senate by unanimous consent 

on December 16, 2005. The bill was referred to the Committee on 


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Resources, and within the Committee to the Subcommittee Fisheries and Oceans. On March 29, 2006, the Full Resources Committee met to consider the bill. The Subcommittee on Fisheries and 

Oceans was discharged from further consideration of the bill by 

unanimous consent. No amendments were offered and the bill was 

ordered favorably reported to the House of Representatives by 

unanimous consent. 

COMMITTEE OVERSIGHT FINDINGS AND RECOMMENDATIONS

Regarding clause 2(b)(1) of rule X and clause 3(c)(1) of rule XIII 

of the Rules of the House of Representatives, the Committee on Resources’ oversight findings and recommendations are reflected in 

the body of this report. 

CONSTITUTIONAL AUTHORITY STATEMENT

Article I, section 8 of the Constitution of the United States 

grants Congress the authority to enact this bill. 

COMPLIANCE WITH HOUSE RULE XIII

1. Cost of Legislation. Clause 3(d)(2) of rule XIII of the Rules of 

the House of Representatives requires an estimate and a comparison by the Committee of the costs which would be incurred in carrying out this bill. However, clause 3(d)(3)(B) of that Rule provides 

that this requirement does not apply when the Committee has included in its report a timely submitted cost estimate of the bill prepared by the Director of the Congressional Budget Office under section 402 of the Congressional Budget Act of 1974. 

2. Congressional Budget Act. As required by clause 3(c)(2) of rule 

XIII of the Rules of the House of Representatives and section 

308(a) of the Congressional Budget Act of 1974, this bill does not 

contain any new budget authority, spending authority, credit authority, or an increase or decrease in revenues or tax expenditures. 

3. General Performance Goals and Objectives. As required by 

clause 3(c)(4) of rule XIII, the general performance goal or objective 

of this bill is to provide for the expansion of the James Campbell 

National Wildlife Refuge, Honolulu County, Hawaii. 

4. Congressional Budget Office Cost Estimate. Under clause 

3(c)(3) of rule XIII of the Rules of the House of Representatives and 

section 403 of the Congressional Budget Act of 1974, the Committee has received the following cost estimate for this bill from the 

Director of the Congressional Budget Office: 

S. 1165—James Campbell National Wildlife Refuge Expansion Act 

of 2005 

S. 1165 would establish a statutory boundary for the James 

Campbell National Wildlife Refuge in Hawaii. CBO estimates that 

implementing the legislation would cost about $20 million over the 

next five years, assuming appropriation of the necessary amounts. 

Enacting S. 1165 would not affect direct spending or revenues. 

The legislation contains no intergovernmental or private-sector 

mandates as defined in the Unfunded Mandates Reform Act and 

would have no significant impact on the budgets of state, local, or 

tribal governments. 


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S. 1165 would expand the boundary of the James Campbell National Wildlife Refuge, which was established administratively in 

1976, to include a total of about 1,100 acres. The act would authorize the U.S. Fish and Wildlife Service (USFWS) to acquire land 

within the new boundary, subject to the availability of appropriated 

funds. Based on information provided by the USFWS and assuming 

appropriation of the necessary amounts, CBO estimates that the 

agency would spend $19 million over the next three years to purchase about 750 acres of land that would be added by the bill to 

the refuge’s administrative boundary. About half of this land, worth an estimated $7 million, is the subject of an existing agency 

proposal to expand the refuge administratively and might be purchased even in the absence of this legislation (but possibly not for 

several years). We estimate that the USFWS would spend about 

$500,000 a year to restore and manage the acreage added by the 

act once it has been acquired. 

On December 5, 2005, CBO transmitted a cost estimate for S. 

1165 as ordered reported by the Senate Committee on Environment 

and Public Works on November 17, 2005. The two versions of the 

legislation are the same as are the estimated costs. 

The CBO contact for this estimate is Deborah Reis, who can be 

reached at 226–2860. This estimate was approved by Peter H. 

Fontaine, Deputy Assistant Director for Budget Analysis. 

COMPLIANCE WITH PUBLIC LAW 104–4

This bill contains no unfunded mandates. 

PREEMPTION OF STATE, LOCAL OR TRIBAL LAW

This bill is not intended to preempt any State, local or tribal law. 

CHANGES IN EXISTING LAW

If enacted, this bill would make no changes in existing law. 

Æ 


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