The National Grasslands: Past, Present and Future Land Management Issues Leslie Aileen Duram
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36 RANGELANDS 17(2), April 1995 The National Grasslands: Past, Present and Future Land Management Issues Leslie Aileen Duram PartI: HistoricalDevelopment of the most management sensitive and one Federal Involvement the National Grasslands of the least productive soils in the world. With large numbers of farm failures on Climate in the Great Plains is character- homesteaded land, the Looking Back government ized by low annual and highly variable reacquired some land in the plains Publicland use decisions are of grow- precipitation, and large seasonal temper- region. Poor farmland was taken out of as has become ing importance, society ature variations. Overall, this is a region production by government increasinglyconcerned about these programs of extremesin terms of temperature vari- which were established to land lands. To understand the of purchase importance ations,precipitation, and soils. and relocate the farm families. the current it is beneficial to first issues, Because of these physicalcharacteris- the National Resources look back. While the of our Specifically, history tics, drought has been a recurrent phe- Board to land which National Parks and Forests are more began purchase nomenon on the plains. Documentation was in such poor condition that commonly known, the National "nothing of climatic data began only in the late is in storefor the inhabitants but extreme Grasslands are often overlooked. nineteenth century, but records show poverty and wretchedness" (National Understandingthe historical develop- periodic droughts with the Dust Bowl a Resources Board 1934). ment of the National Grasslands could severe example (Figure 1). As soil scien- The National Industrial Act help us developbetter currentland man- Recovery tist Hugh Bennett noted, the dust storms of 1933and the Emergency Relief Act of agementpolicies. "blotted out the sun over the nation's 1935 increased the government pur- Movement West capital, drove grit between the teeth of chases of these "submarginal" farm- Movement of Americans from the New Yorkers, and scattered dust on the lands. These purchases became known Eastern to the Western United States decks of ships 200 miles out to sea" as the Land Utilization (L-U) Projects. This gained intensity following the California (Bennett 1940). captured the atten- Between 1934 and 1938 many different Gold Rush of 1848. Settlement of the tion of the eastern publicand led to gov- agencies were responsible for adminis- vast interior, the Great Plains, was ernment intervention. tration of the L-U Lands: the Resettle- encouraged by the Homestead Act of 1862 and later legislation. This resulted in the transfer of public land to private ownership. Much of this land was mar- ginal and should not have been plowed. Even the largest homesteads were based upon land use practices in the humid Eastern United States, and did not adequately consider the aridity of the West. The physical environment west of the 100th Meridian is drastically different from the Eastern United States. Soils, climate, and vegetation vary from condi- tions in the East. Most Great Plains soils can be productive with appropriate agri- cultural techniques, good rainfall, and adequate soil-water storage. With less favorable conditions, these soil types are highly erodible and unproductive for farming. Along the Westernboundary of the Plains, the soils are Aridisols, among The author is with the of Department Geography, 1. The effects the Dustbowl Southern (Itinos University, Carbondate, tL 62901- Fig. of Droughts on the Great Plains. Eastern Colorado, 1935. 4514 Source: Colorado HistoricalSociety. RANGELANDS 17(2), April 1995 37 ment Administration, the Farm Security Administration,the Agricultural Adjust- ment Administration, the Land Policy Section of the United StatesDepartment of Agriculture, and the Bureau of Agricultural Economics. The Bankhead-Jones Farm Tenant Act (1937) was the first legislation to official- ly recognize and describethe acquisition of L-U projects. Title Ill of the Act states: "The Secretary [of Agriculture is autho- rized and directed to developa program of land conservation and land utilization, in order thereby to correct maladjust- ments in land use, and thus assist in controlling soil erosion, reforestation, preservingnatural resources In effect the Act consolidated the pur- chased lands, so that by 1938 there were eleven million acres of L-U Project Lands under the administration of the Soil Conservation Service (SCS)* in the Department of Agriculture. Although the most logical land managementagency would have been the Federal Grazing Fig. 2. Location ofU.S.F.S. National Grasslands. Service (which became the Bureau of Land Management), the LU Project tance in developing management plans. intermingled with other land already Lands were not transferred. The Grazing This was not called a "fee" as on other under their in California, Service was in the of management Department public lands. This is only in Texas, Utah and Montana. These areas while the L-U Lands had significant Interior, always the sense that more emphasis was became grazing districts or wildlife been administered the Department of by placed on local managementand less refuges. Some land was given to state or Agriculture (USDA). Departmental rivalry on the Federal role as landlord. local and thirteen tree covered made it that the USDA would agency's agencies unlikely The Grazing Association admitted areas were assigned National Forest relinquish management power over the members with three qualifications: first, status. Overall, the Forest Service kept L-U Lands (Wallach 1991). they must prove prior use to the lands; only approximately 4 million acres, which UnderSCS management, many areas second,they must prove "dependency" were designatedas National Grasslands were reseeded with crested wheatgrass of the public land in addition to their own in 1960 (Custer National Forest 1989) from Russia, which livestock can graze private lands; third, they must have (Figure 2). The National Grasslands are in the and fall. The SCS spring manage- lands as "commensura- distributed Great Plains and ment tore down fences and built stock enough private among bility" to supplement the public land Western States, with North and South to even out the distribu- watering ponds In areasestablished as L- Dakota the most acreage tion of animals and the grazing. many having (Figure grazing protect U Lands, conflict grew between the 3). areas. Most the riparian importantly, ranchers and the government. The SCS The Forest Service tightened rules and SCS extended grazing privilegesto pri- was not traditionally a land management central control,which led to more conflict vate land owners. agency, and rather than remain involved between the government and ranchers. Grazing Associations in the conflict, they stepped down. Basic management policies remained Private users were actively included in Management of the eleven million acres the same, however, and the Grazing the management of grazing practices on of L-U Land was transferred within the Associations continue to play an impor- the L-U lands. Local Grazing Department of Agriculture to the Forest tant role in the organizational structure of Associations were established. There Service in 1953(Dana 1956). grazing management. They continue to was a value" which ranchers pay the "grazing value" for rangeland, "grazing ForestService Management paid to the Association, and the which is figured differently than the graz- The Forest Service conducted a land fees in the Forests. Association then paid the SCS for assis- in ing use study of the lands the 1950s, On the Grasslands, the charge was which concluded in massive land trans- initially based on a scale, established by Editor's Note: The nameof the Soil Conservation fers. The BLM and the U.S. Fish and Service was recently changed to the National the Public Rangelands Improvement Act Resource Conservation Service (NRCS) Wildlife Service received land that was of 1978 and then revised in accordance 38 RANGELANDS 17(2), April 1995 North Dakota National Resources Board. 1934. Report on National Planning and South Dakota Public Works in Relation to National Resources and Including Land Co'orado Use and Water Resources with Findings and Recommendations. Wyomrng Washington DC: Government PrintingOffice. New Mexico Wallach, B. 1991. At Odds With Progress: Americans and Texas — Conservation. Tucson: University of Arizona, Tucson, Ariz. 1985. The Kaneae Wallach, B. Return of the Prairie. Landscape. 28(3):1-5. Oregon Nebraeka . Idaho I Oklahoma I Part II: A Case Study of Pawnee National Calitorna -- _________ Grassland 0 200 400 600 800 1000 1200 1400 Introduction to the Pawnee Acres (thoueands) There are 20 National Grasslands in the U.S., located pri- FIg. 3. National Grasslands bystate. marily in the Great Plains region. The National Grasslands are within the Forest Service, so each Grassland is administered with the Executive Order 12548 in 1986. Methods for figuring by the nearest National Forest (Argow 1962). The Pawnee the fee are based on Animal Unit Months: a base price, multi- National Grassland is located in northeastern Colorado, about plied by the Forage Value Index, and added to the Combined 75 miles from Denver and 25 miles east of Fort Collins Index(Cattle Price Indexminus the Price PaidIndex) (Coggins (Rhoads 1986) (Figure 4). and Wilkinson 1987). Indexes may vary between the Within a 30 mile by 60 mile rectangular area of Weld County Grasslands and the Forests, and thus the charge on the in northeastern Colorado, Federal, State, and private lands are Grasslands is sometimes higher than the fees for grazing in intermixed. Historical township-range land surveying and set- the National Forests. Currently 50% of this "value," must go to tlement patterns established the one mile by one mile square the Federal Treasury, but in the past as much as 90% of the sections which form an obvious grid even today. The Pawnee receipts were spent by the local Grazing Associations which National Grassland is a checkerboard of federal land that then forwarded 10% to the federal government(Fairfax and includes 193,060 acresspread out over two vast non-contigu- Yale 1987).