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Updated July 29, 2021
Wild Horse and Burro Management: Overview of Costs
Background
appropriations law (P.L. 116-260, Division G, §419)
The Wild Free-Roaming Horses and Burros Act of 1971
prohibited the use of funds for destruction of healthy
(the 1971 Act, 16 U.S.C. §§1331 et seq.) provides for
animals or for sales of animals that result in processing into
management and protection of wild horses and burros by
commercial products. Most appropriations laws since
the Bureau of Land Management (BLM, Department of the
FY1988 have contained similar prohibitions on BLM
Interior) and Forest Service (FS, Department of
funding.
Agriculture). Federal management of wild horses and
burros has generated controversy, proposals for change, and
Population
lawsuits for years. Issues for Congress include the adequacy
Achieving and maintaining the number of wild horses and
of authorities to achieve the “appropriate management
burros at the national AML has challenged BLM for
level” (AML) on the range, effectiveness of agency
decades. BLM has set the upper limit for AML for all wild
management, and sufficiency of funding.
horse and burro herds on its lands at 26,785 animals. As of
March 2021, the estimated number of animals on BLM
Overview of Authority
lands was 86,189, more than triple the AML. BLM
Under the 1971 Act, BLM and FS are to inventory horse and
manages wild horses and burros in 177 herd management
burro populations periodically to determine AMLs. The
areas (HMAs) in 10 western states. Nearly half of the
agencies are authorized to remove animals exceeding the
HMAs and more than half of the animals are located in
range’s carrying capacity to achieve AML. When the
Nevada. Four other states each have at least 5,000 animals:
pertinent Secretary determines that an overpopulation exists
California, Wyoming, Arizona, and Oregon.
and that it is necessary to remove excess animals, the law
requires specific actions (16 U.S.C. §1333(b)(2)). First, the
Thousands of additional animals —50,030 as of June
Secretary “shall order old, sick, or lame animals to be
2021—are being managed by BLM off-range. They were
destroyed in the most humane manner possible.” Second,
removed from rangelands exceeding the AML. Most are
the Secretary “shall cause ... excess ... horses and burros to
being cared for in long-term (pasture) holding facilities for
be humanely captured” for private adoption. Third, the
the remainder of their lives, although others are being
Secretary shall cause excess animals “to be destroyed in the
readied for adoption or sale in short-term (corral) facilities.
most humane and cost efficient manner possible.”
For FS lands, the AML is roughly 2,400 for 2021. The
Over the decades, laws have included additional authorities
number of wild horses and burros on FS lands—about
to reduce excess animals. In 2004, for instance, P.L. 108-
10,700—is more than four times the AML. The animals are
447, Section 142, authorized animal sales, including
on 34 active territories in seven states, with about two
provisions to
dozen of them managed jointly with BLM. Given the larger
populations on BLM lands, most of the public and
direct the agencies to sell, “without limitation,” excess
congressional focus has been on BLM management.
animals (or remains) that are more than 10 years old or
offered for adoption unsuccessfully at least 3 times;
Wild Horse and Burro Program Funding
It is unclear whether funding levels have been appropriate
remove a ban on sale of wild horses and burros and their to care for wild horses and burros. Program costs would
remains for processing into commercial products; and
vary based on the overall management strategy adopted and
the particular programs emphasized (e.g., off-range holding,
remove criminal penalties for processing the remains of
adoption, or population control). For instance, a 2018 BLM
a wild horse or burro into commercial products, if it is
report to Congress presented different options for wild
sold under the new authority.
horse and burro management with varying associated costs.
These changes have been supported by some as providing a
BLM Historical Appropriations: FY2000-FY2021
cost-effective way of helping achieve AML, improving the
For FY2021, the appropriation for BLM management of
health of the animals, protecting range resources, and
wild horses and burros was $115.7 million, a 14% increase
restoring a natural ecological balance on federal lands. The
from the FY2020 level ($101.6 million). FY2021 funding
changes have been opposed by others as potentially leading
was more than five times the amount for FY2000 ($20.4
to the destruction of healthy animals and limited by agency
million) and an 81% increase over FY2010 ($64.0 million),
policies and use of appropriated funds.
in nominal dollars. Figure 1 depicts BLM’s annual funding.
(FS appropriations are not separately identifiable.)
Since 1982, the agencies have not used their authority to
destroy healthy animals. Most recently, the FY2021 Interior
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Wild Horse and Burro Management: Overview of Costs
Since FY2000, appropriations laws have periodically
Figure 2. Expenditures for BLM Wild Horse and Burro
provided BLM with additional funding to achieve AML.
Management, FY2020
For example, BLM received a $14.1 million (69%) increase
(in millions of current dollars)
to $34.5 million in FY2001, the largest annual percentage
increase. The intent was to achieve AML over several years
and, by FY2010, to reduce budgetary needs below the
FY2001 level. These goals were not fully achieved,
although the on-range population declined and AML was
nearly reached in 2007. In FY2010, BLM received a $23.4
million (58%) increase to $64.0 million, the biggest annual
dollar increase. The increase was for activities (e.g.,
removal of animals, population control, and adoptions) to
achieve AML by 2013 (although this did not occur) and for
the escalating cost of animal care in long-term holding.
Figure 1. BLM Appropriations for Wild Horse and
Source: CRS; data from BLM and appropriations documents.
Burro Management, FY2000-FY2021
(in millions of current dollars)
Issues and Proposals Related to Costs
Concerns over increasing wild horse and burro populations
and program costs have prompted discussions, studies, and
proposals. For instance, in response to congressional
direction, BLM issued a report in May 2020 proposing
actions and funding to achieve AML over 15-18 years. The
report’s emphasis is on animal removals, placement into
private care, off-range holding, and fertility control and
includes costs of these actions. In the past, destruction of
healthy animals also has been discussed to achieve savings.
One funding question is how to reduce the average cost of
adoption. The cost to place an animal into private
Source: CRS; data from BLM and appropriations documents.
ownership generally exceeds the revenue. Per adoption,
BLM typically charges a minimum of $125 per trained
FY2020 Expenditures by Activity
animal and $25 per untrained animal, but the average cost
BLM uses wild horse and burro funding for a variety of
for BLM to complete an adoption (or sale) is approximately
activities. Expenditures can differ from appropriations in
$1,500. This cost includes activities to make the animals
part due to carryover and transfer of funds. For FY2020,
more marketable, such as training, advertising, and
expenditures totaled $91.2 million. Figure 2 shows FY2020
transporting. It does not include the $1,000 incentive BLM
expenditures by activity. Off-range holding accounted for
has paid individuals for each untrained animal they adopt
$57.0 million (62%) of expenditures, composed of $30.0
(since March 12, 2019). In any case, the cost of adoptions is
million for long-term care and $27.0 million for short-term
considerably less than the lifetime cost of off-range care;
care. The next-largest portion, $12.3 million (13%), was
BLM estimated savings of $24,000 per animal.
expended for program support and overhead. Placement
into private care, through adoptions and sales, was $9.8
Another question is whether animals can be moved more
million (11%). Another $7.0 million (8%) was used for
quickly from short-term corral facilities into long-term
gathering animals on the range. The remaining $5.1 million
pasture facilities to achieve program savings. Long-term
(6%) was expended for varied purposes (including <1% for
holding typically is used for older and other animals with
fertility control).
less potential for adoption or sale; the average cost is about
$2 per animal per day. By comparison, the cost of short-
term corral facilities is about $5 per day per animal. Short-
term facilities are more expensive due in part to hay costs,
veterinary services, and farrier services to prepare the
animals for adoption or sale and, in some cases, to the costs
of BLM salaried employees.
A third question is how to improve fertility control to reduce
herd sizes and costs. The most common method costs
roughly $2,500 per mare, including gathering, treatment,
and short-term holding. Under this treatment, an
immunocontraceptive agent—PZP—typically is applied
during periodic gathers to remove excess animals from the
range. Mares are captured, treated with PZP, and released to
the range. PZP generally is most effective for one year only.
To lower costs, areas of exploration include longer-lasting
fertility control and other options, such as sterilization.
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Wild Horse and Burro Management: Overview of Costs
A fourth question is whether BLM should sell excess
FY2021. Such proposals have been controversial and have
animals without limitations and/or destroy excess healthy
been rejected by some who oppose destruction or support
animals to reduce long-term program costs. In some past
alternative management methods.
budget proposals (e.g., FY2020), President Trump called
for using all authorities granted under the 1971 Act by
Carol Hardy Vincent, Specialist in Natural Resources
removing general agency sale limitations (intended in part
Policy
as safeguards against slaughter) and congressional
prohibitions on using funds to destroy healthy animals. As
IF11060
mentioned above, Congress retained these prohibitions for
Disclaimer
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https://crsreports.congress.gov | IF11060 · VERSION 4 · UPDATED