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Multiple-Use Management of Western U.S. Rangelands: Wild Horses, Wildlife, and Livestock

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Multiple-Use Management of Western U.S. Rangelands: Wild Horses, Wildlife, and Livestock Human–Wildlife Interactions 12(1):5–17, Spring 2018 Synthesis Multiple-use management of western U.S. rangelands: wild horses, wildlife, and livestock R˒ˌ˔ E. Dˊ˗˟˒˛, Basin Wildlife Consulting, 4251 Donegal, Casper, WY 82609, USA [email protected] Abstract: Since 1959, the U.S. Congress has legislated the treatment and management of wild horses (Equus ferus caballus) and burros (E. asinus; WHB). While the legislation has ensured WHB a place as western rangeland icons, subsequent congressional actions, in response to public lobbying, have limited federal managers’ ability to manage WHB populations under the U.S. public land multiple-use doctrine. Federal land managers tasked with managing for multiple and competing interests on public lands of the western United States must not only consider WHB habitat requirements, but also wildlife species diversity and livestock grazing. Developing multiple-use management strategies while fulfi lling other mandates will require balancing rather than maximizing a single resource use or user. Grazing by wild and domestic animals can modify plant community composition and structure, and overabundant populations negatively impact rangeland–watershed function and wildlife habitats. Negative eff ects on wildlife may include avoidance of water sources by wildlife, forage loss and altered plant communities, altered bird communities, and impacts to soils and insects. Eff ective management for riparian and rangeland health includes managing both the abundance and the distribution of large grazers. Unless large grazers (including WHB) are managed, range condition and wildlife habitat are at risk. While livestock can be moved and removed, and big game can be hunted, the management and removal of WHB populations continues to face strong public opposition. The management of WHB under the federal land multiple-use doctrine will require implementing innovative, diverse, and tough management strategies founded in the biological and social sciences. This special issue of Human–Wildlife Interactions explores these issues in depth. This paper frames the context in which WHB management must be achieved under the U.S. public land multiple-use doctrine. Key words: burros, ecological impacts, Equus asinus, Equus ferus caballus, feral burros, feral horses, habitat, impacts, management, overabundance, populations, wildlife Wild or feral horses (Equus ferus caballus) Horse Annie”) and other concerned citizens and burros (E. asinus; WHB) have been a began raising public awareness regarding the part of the western U.S. landscape since their perceived inhumane capture and treatment of introduction, along with other domestic stock, free-ranging herds. In January 1959, in response by Spanish explorers 500 years ago (Haines 1938, to an organized and eff ective public relations Dobie 1952, Bureau of Land Management [BLM campaign, Nevada Congressman Walter 2017]). Early feral horse populations, derived Baring introduced a bill prohibiting the use of from Spanish bloodlines, were augmented motorized vehicles to hunt WHB on all public with intentional and unintentional releases of lands (BLM 2017). The House of Representatives domesticated draft and saddle horses by the unanimously passed the Hunting Wild Horses military and sett lers through the mid-twentieth and Burros on Public Lands Act (1959), also century (Dobie 1952, Young and Sparks 2002, known as the Wild Horse Annie Act. The bill BLM 2017). Before 1959, free-roaming WHB became Public Law 86-234 (htt ps://www.gpo. were largely unregulated. They were released, gov/fdsys/pkg/STATUTE-73/pdf/STATUTE- grazed, captured, killed, sold, and otherwise 73-Pg469.pdf) on September 8, 1959. However, used by the inhabitants of the region as they the law did not include recommendations that pleased (Dobie 1952, BLM 2017). Congress initiate a program to protect or manage In the 1950s, Velma Bronn Johnson (“Wild WHB. Subsequent eff orts to increase protection 6 Human–Wildlife Interactions 12(1) for wild horses included the establishment of the Nevada Wild Horse Range in 1962 within the Nellis Air Force Range, Nevada, USA (BLM 2017) and in 1968 the Pryor Mountain Wild Horse Range in Montana and Wyoming, USA (Massingham 2006). Congress extended management and protection measures to all free-ranging WHB by enacting the Wild Free-Roaming Horses and Burros Act (Act) of 1971 (BLM 1971). Congress declared that “wild free-roaming horses and burros shall be protected from capture, branding, harassment, or death; and to accomplish this they are to be considered in Figure 1. The Bureau of Land Management estimates 73,000 free-roaming feral horses (Equus ferus the area where presently found, as an integral caballus) currently inhabit public rangelands that part of the natural system of the public lands.” have a maximum Appropriate Management Level of <27,000 animals. This situation is contributing to The Act regulated the management, protection, rangeland deterioration (photo courtesy of R. Danvir). and study of “unbranded and unclaimed horses and burros on public lands in the United which amended the Act requiring BLM to sell States,” and directed the Secretaries of Interior excess animals >10 years old or which have and Agriculture (the Secretaries) to “maintain been off ered for adoption 3 times unsuccessfully thriving natural ecological balance on the (Congressional Record 2006). In response, the public lands.” “Rahall Amendment” was passed to limit implementation of the Burns Amendment by Act amendments preventing appropriated funds to be used to The Act has been amended several times facilitate the sale and slaughter of protected since 1971 (see Norris 2018). The Federal Land WHB (Congressional Record 2006). Since 2006, Policy and Management Act (FLPMA; 1976) nearly every federal Agriculture Appropriations amended the (WHB) Act, authorizing BLM Bill has contained language prohibiting the use use of helicopters to capture and motorized of federal funds to facilitate the inspection of vehicles to transport horses to corrals. The horse meat, eff ectively ending horse slaughter Public Rangelands Improvement Act of 1978 in the United States. (PRIA; Public Law 95–514) further amended the Act, providing authority to the Secretaries BLM compliance for the use of fertility control, removal, and From the time of the enactment of the Act adoption of excess animals, including the in 1971, the BLM and USFS have att empted humane destruction of old, sick, lame, and even to comply with confl icting Congressional healthy animals if deemed necessary to maintain directives to protect free-roaming WHB, remove rangeland health (BLM 2017). The PRIA (1978) and dispose of excess animals, and be fi scally called for the inventory and management of responsible, but without resorting to unrestricted WHB populations at Appropriate Management sales, slaughter, and processing of horses into Levels (AML) on BLM Horse Management Areas commercial products. In 2008, the Government (HMA) and U.S. Forest Service (USFS) Wild Accountability Offi ce (GAO) reported the BLM Horse and Burro Territories. However, eff orts was not in compliance with the 2004 Burns to remove and dispense of excess animals from Amendment because the BLM was limiting the the range faced persistent scrutiny, disapproval, sale of excess horses to comply with the Rahall and legal challenges by a public concerned with appropriations language eff ectively banning the fate of free-ranging herds and the treatment horse slaughter (GAO 2008). The GAO, however, of captured animals. conceded that the BLM had a dilemma, needing In 2004, Senator Conrad Burns of Montana to balance their directive to conserve wild horses att ached a rider to the Consolidated Appro- and burros with their directives to maintain AML priations Act of 2005 (the Burns Amendment), and fi scal responsibility. The GAO suggested the Multiple-use management • Danvir 7 Figure 2. As of October 2017, the Bureau of Land Management also was caring for an additional 45,500 animals (44,500 horses [Equus ferus caballus] and 1,000 burros [E. asinus]) in off -range pastures and holding facilities such as this one located near Delta, Utah at an estimated lifetime cost of $50,000 per animal (photo courtesy of E. Thacker). BLM “develop cost-eff ective alternatives to the (WHB) Program (NAS 2013). This excerpt process of caring for wild horses removed from from the preface of the report seems as the range in long-term holding facilities and seek applicable now as in 2013: “…it is clear that the legislative changes that may be necessary to the status quo of continually removing free- implement those alternatives” (GAO 2008). ranging horses and then maintaining them The WHB conservation eff orts of the BLM in long-term holding facilities, with no have been somewhat successful. Population foreseeable end in sight, is both economically surveys in the early 1970s indicated a free- unsustainable and discordant with public roaming population of about 17,000 wild horses expectations. It is equally evident that and 8,000 burros, as compared to the March the consequences of simply lett ing horse 2017 estimated free-roaming population of populations, which increase at a mean annual >59,000 horses and >13,000 burros (BLM 2017). rate approaching 20 percent, expand to the Unfortunately, these 73,000 free-roaming level of ‘self-limitation’—bringing suff ering WHB occur on range with a maximum AML and death due to disease, dehydration, and of <27,000 animals (BLM 2017; Figure 1). As starvation accompanied by degradation of October 2017, the BLM also was caring for of the land—are also unacceptable. Those an additional 45,500 animals (44,500 horses facts defi ne the point from which we must and 1,000 burros) in off -range pastures and begin the journey…” The inability of the holding facilities at an estimated lifetime cost BLM and the USFS to fully implement the of $50,000 per animal (BLM 2017; Figure 2). management activities authorized under the Given the annual cost of off -range WHB care, Act increasingly threatens rangeland health the current rate of adoptions (about 2,500/ (Davies et al.
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