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1 1 (December 31, 2018)

handle is hein.crs/govyxd0001 and id is 1 raw text is: Conresioa Reeac Seric December 31, 2018 Wild Horse and Burro Management: Overview of Costs Background The Wild Free-Roaming Horses and Burros Act of 1971 (the 1971 Act, 16 U.S.C. §§ 1331 et seq.) provides for management and protection of wild horses and burros on Bureau of Land Management (BLM) and Forest Service (FS) lands. Federal management of wild horses and burros has generated controversy, proposals for change, and lawsuits for years. Issues for Congress have included the adequacy of authorities to achieve the appropriate management level (AML) on the range, the effectiveness of agency management, and sufficiency of funding. Overview of Authority Under the 1971 Act, BLM and FS are to periodically inventory horse and burro populations to determine AMLs. The agencies are authorized to remove animals exceeding the range's carrying capacity to achieve AML. When the pertinent Secretary determines that an overpopulation exists and that it is necessary to remove excess animals, the law requires the following actions to be taken (16 U.S.C. § 1333(b)(2)). First, the Secretary shall order old, sick, or lame animals to be destroyed in the most humane manner possible. Second, the Secretary is directed to remove healthy animals for private adoption. Third, the Secretary shall cause excess animals to be destroyed in the most humane and cost efficient manner possible. However, since 1982 the agencies have not used this authority to destroy healthy animals, and for FY2018, and most of the past 30 years, appropriations laws have prohibited use of BLM funds to do so. Over the decades, Congress has provided additional authorities to reduce excess wild horses and burros. In 2004, for instance, 1971 Act amendments (P.L. 108-447, § 142) authorized animal sales, including to: * direct the agencies to sell, without limitation, excess animals (or remains) that are more than 10 years old or offered for adoption unsuccessfully at least three times; * remove a ban on sale of wild horses and burros and their remains for processing into commercial products; and * remove criminal penalties for processing the remains of a wild horse or burro into commercial products, if it is sold under the new authority. These changes have been supported by some as providing a cost-effective way of helping achieve AML, improving the health of the animals, protecting range resources, and restoring a natural ecological balance on federal lands. The changes have been opposed by others as potentially leading to the destruction of healthy animals. Population Achieving and maintaining the number of wild horses and burros at the national AML has challenged BLM for decades. As of March 1, 2018, BLM had set the upper limit for AML for all wild horse and burro herds on its lands at 26,690. The number of animals on BLM lands significantly exceeded this figure-81,951, or more than triple the AML. BLM manages wild horses and burros in 177 herd management areas (HMAs) in 10 western states. Nearly half of all the HMAs and more than half of the animals are located in Nevada. Four other states each have at least 5,000 animals: California, Wyoming, Arizona, and Utah. Thousands of additional animals-50,873 as of November 2018-are being managed by BLM off-range. They were removed from rangelands exceeding the AML. Most are being cared for in long-term (pasture) holding facilities for the remainder of their lives, although others are being readied for adoption or sale in short-term (corral) facilities. For FS lands, the AML was roughly 2,300 for 2018. The number of animals on FS lands-9,300-was approximately four times the AML. The animals are on 34 active territories in seven states, with about two dozen of them managed jointly with BLM. Given the larger horse and burro populations on BLM lands, most of the public and congressional focus has been on BLM management. Wild Horse and Burro Program Costs Whether funding levels have been appropriate to care for wild horses and burros, reach AML, and reduce long-term budgetary needs has been unclear. Program costs would vary based on the overall management strategy adopted and the particular programs emphasized. For instance, a BLM report to Congress in 2018 presented different options with varying associated costs. Because FS appropriations for wild horse and burro management are not separately identifiable, this analysis focuses on BLM appropriations. BLM Historical Appropriations: FY2000-FY20 18 For FY2018, the appropriation for BLM management of wild horses and burros was $75.0 million, a reduction from the FY2017 level ($80.6 million). FY2018 funding was nearly quadruple the amount for FY2000 ($20.4 million) and nearly double the amount for FY2009 ($40.6 million), in nominal dollars. Figure 1 depicts the annual funding. Since FY2000, Congress has periodically provided BLM with additional resources to achieve AML. For example, BLM received a $14.1 million (69%) increase to $34.5 million in FY2001, the largest annual percentage increase. The intent was to achieve AML over several years and, by FY2010, reduce budgetary needs below the FY2001 level. These goals were not fully achieved, although the on-range https:I/crsreports.congress~gc 0

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