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The Greater Yellowstone Ecosystem Revisited: Law SJ Quinney College of Law, University of Utah Utah Law Digital Commons Utah Law Faculty Scholarship Utah Law Scholarship 2-2020 The Greater Yellowstone Ecosystem Revisited: Law. Science, and the Pursuit of Ecosystem Management in an Iconic Landscape Robert B. Keiter Follow this and additional works at: https://dc.law.utah.edu/scholarship Part of the Environmental Law Commons 7. KEITER_FINAL (DO NOT DELETE) 1/27/2020 6:16 PM UNIVERSITY OF COLORADO LAW REVIEW Volume 91, Issue 1 2020 THE GREATER YELLOWSTONE ECOSYSTEM REVISITED: LAW, SCIENCE, AND THE PURSUIT OF ECOSYSTEM MANAGEMENT IN AN ICONIC LANDSCAPE ROBERT B. KEITER* Thirty years ago, the Greater Yellowstone Ecosystem (GYE) concept and ecosystem management surfaced as key to pre- serving this legally fragmented region’s public lands and wildlife in the face of mounting development pressures. Yel- lowstone’s grizzly bears were in sharp decline and wolves were absent from the landscape, while bison and elk management issues festered. The GYE’s national forest lands were subject to extensive logging, energy leasing, and other commercial ac- tivities that cumulatively threatened the region’s ecological in- tegrity. In the face of extreme jurisdictional complexity and a strong commitment to agency discretion, a high-profile federal “Vision” effort to improve and better coordinate resource man- agement practices cratered under intense political pressures. Since then, however, much has changed in the GYE. * Wallace Stegner Professor of Law, University Distinguished Professor, and Director, Wallace Stegner Center for Land, Resources and the Environment, University of Utah S.J. Quinney College of Law. My sincere thanks to my Behle and Quinney Research Fellows: Ian Girard, Adam Duncan, Sydney Jo Sell, and Hannah Follender, all of whom have provided exceptional research assistance during their law student tenure. I am also indebted to the Quinney College of Law’s Albert and Elaine Borchard Fund for Faculty Excellence and to the numerous individuals noted in the Appendix who shared their time, expertise, and experience with me in a series of interviews over a two-year period. Thanks also to Jared Butler, University of Utah Department of Geography DIGIT Lab, and Professor Arthur Middleton, University of California, Berkeley. Electronic copy available at: https://ssrn.com/abstract=3529762 7. KEITER_FINAL (DO NOT DELETE) 1/27/2020 6:16 PM 2 UNIVERSITY OF COLORADO LAW REVIEW [Vol. 91 This article, drawing upon extensive personal interviews, official documents, and other materials, updates my 1989 study of the GYE and emergent ecosystem management concepts. After describing regional economic, social, and other changes, the article examines the principal resource man- agement issues confronting the GYE during the past thirty years, focusing on national park, national forest, and wildlife management controversies as well as the emerging role of private lands in regional conservation efforts. Although these issues have primarily been addressed piecemeal, intensive development activities have mostly been held at bay on the GYE national forests while most GYE wildlife populations are in better shape today than thirty years ago. The article analyzes how this has come to pass, highlighting the role of science, law, and advocacy in safeguarding the GYE’s natural heritage and promoting ecosystem management principles. It concludes that the GYE concept is now widely accepted, but related ecosystem management principles have yet to be fully embraced by the responsible agencies. Looking forward, the article identifies several difficult new problems confronting the GYE: escalating park visitation, mounting recreation pressures, private land development, chronic wasting disease, and climate change. To address these looming problems, GYE ecosystem management efforts must be expanded to a larger landscape scale, while federal resource management coordination efforts must be intensified and extended to include the three GYE states. The law— including state law—will continue playing a prominent role in GYE nature conservation efforts. Absent enhanced coordi- nation efforts, contested GYE natural resource management issues will continue to be addressed piecemeal in this legally complex environment. And the prospect of litigation and political intervention will lurk in the background, as has been the case during the past thirty years. INTRODUCTION .............................................................................. 4 I. GREATER YELLOWSTONE: AN INTACT YET CONTESTED LANDSCAPE ............................................................................ 7 A. The Natural Setting: An Ecological Wonderland .......... 8 B. The Human Element: Economy, Community, and Culture ........................................................................... 13 Electronic copy available at: https://ssrn.com/abstract=3529762 7. KEITER_FINAL (DO NOT DELETE) 1/27/2020 6:16 PM 2020] GREATER YELLOWSTONE ECOSYSTEM 3 C. The Legal-Policy Framework: Institutional Change Amidst Jurisdictional Complexity ............................... 21 D. Conservation Science: Coming of Age .......................... 31 II. REVISITING THE GREATER YELLOWSTONE ECOSYSTEM: A THIRTY-YEAR REVIEW ...................................................... 36 A. The National Parks: Keeping Resource Preservation Foremost ........................................................................ 36 1. Natural Regulation: Deferring to Nature ............. 37 2. Recreation Controversies: Snowmobiles and Beyond .................................................................... 39 3. Park Visitation: Dealing with Crowds .................. 44 4. The Grand Teton Jurisdictional Controversy: Who’s in Charge? ................................................... 46 B. Wildlife: The Relevance of Conventional Boundaries .................................................................... 48 1. Grizzly Bears: A Defining and Still Controversial Symbol ............................................ 49 a. Early Recovery Efforts ..................................... 49 b. Initial Delisting Effort ..................................... 52 c. The 2017 Delisting Decision ............................ 54 d. Grizzly Bear Recovery in Perspective .............. 60 2. Wolves: A Controversial Ecological Restoration Achievement ........................................................... 61 a. Bringing Wolves Back ...................................... 62 b. Wolf Delisting and the Courts ......................... 65 c. Congressional Intervention.............................. 67 d. State Wolf Management .................................. 68 3. Bison: Still Seeking Acceptance ............................ 70 a. Bison and Brucellosis ...................................... 70 b. The Interagency Bison Management Plan ...... 74 c. Bison Translocation and Native Americans ... 78 4. Migratory Ungulates: Redefining Ecosystem Boundaries ............................................................. 80 a. Yellowstone’s Northern Range Elk Herd......... 81 b. The National Elk Refuge ................................. 84 c. Wyoming Elk Feedgrounds and Chronic Wasting Disease ............................................... 88 d. Protecting Migration Routes............................ 92 C. The Multiple-Use Lands: New Priorities and Lingering Conflicts ....................................................... 96 1. Timber: Putting the Timber Wars to Rest ............ 97 2. Oil and Gas: The Wyoming Challenge ................ 105 Electronic copy available at: https://ssrn.com/abstract=3529762 7. KEITER_FINAL (DO NOT DELETE) 1/27/2020 6:16 PM 4 UNIVERSITY OF COLORADO LAW REVIEW [Vol. 91 3. Mining: Echoes from the Past ............................. 116 4. Wilderness and Recreation: The Debate over Access Intensifies ................................................. 124 D. The Private Lands Challenge: Ranches, Subdivisions, and Wildlife Habitat ........................... 137 1. Private Land Growth: Patterns and Problems ... 137 2. Ranchlands and Ranching: Changes Afoot ......... 140 3. Federal Law: A Limited Legal Tool .................... 143 4. State Law: Planning, Zoning, and Conservation Easements ..................................... 146 5. A Landscape Approach: The High Divide Initiative ............................................................... 150 6. Moving to the Next Level: Legal Reform and Financial Incentives............................................. 153 III. ECOSYSTEM MANAGEMENT IN THE GYE: PAST PROGRESS AND FUTURE CONCERNS .................................. 154 A. Ecosystem Conservation: A Mixed Success Story ...... 155 B. The Role of Law: Promoting Ecological Management ................................................................ 160 C. The Road Ahead: Landscape Conservation and Coordination Challenges ............................................ 169 CONCLUSION ............................................................................. 175 APPENDIX .................................................................................. 178 INTRODUCTION During the late 1980s, the concept of ecosystem manage- ment emerged in the Yellowstone region, captured in the allur- ing notion of the Greater Yellowstone Ecosystem (GYE). Focused largely on the region’s expansive federal public lands, the ecosystem management concept was promoted by conservation organizations concerned about the area’s wildlife populations, particularly the grizzly bear, and potential damage to the area’s iconic geothermal
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