Wild Horse and Burro Management: Overview of Costs
link to page 2 
Updated July 13, 2022
Wild Horse and Burro Management: Overview of Costs
Background
Population
The Wild Free-Roaming Horses and Burros Act of 1971
Achieving and maintaining the number of wild horses and
(the 1971 Act, 16 U.S.C. §§1331 et seq.) provides for
burros at the national AML has challenged BLM for
management and protection of wild horses and burros by
decades. BLM has set the upper limit for the AML for all
the Bureau of Land Management (BLM) and Forest Service
wild horse and burro herds on its lands at 26,785 animals.
(FS). Federal management of wild horses and burros has
As of March 2022, there were an estimated 82,384 animals
generated controversy, proposals for change, and lawsuits
on BLM lands—more than triple the current AML—and
for years. Issues for Congress include the adequacy of
more than double the 40,605 on-range estimate from 2013.
authorities to achieve the “appropriate management level”
However, the 2022 on-range estimate is 13% less than the
(AML) on the range, effectiveness of agency management,
2020 high of 95,114 animals, due to increased removals and
and sufficiency of funding.
fertility control, as well as other factors.
Overview of Authority
BLM manages wild horses and burros in 177 herd
Under the 1971 Act, BLM and FS are to inventory horse and
management areas (HMAs) in 10 western states. Nearly half
burro populations periodically to determine the AMLs.
(83) of the HMAs are in Nevada; Wyoming, Oregon, Utah,
When the pertinent Secretary determines that an
and California each have between 16 and 21 HMAs.
overpopulation exists and that it is necessary to remove
excess animals, the law requires specific actions (16 U.S.C.
BLM manages thousands of additional animals—58,314 as
§1333(b)(2)). First, the Secretary “shall order old, sick, or
of May 2022—off range. These animals were removed
lame animals to be destroyed in the most humane manner
from rangelands exceeding the AML. Most are being cared
possible.” Second, the Secretary “shall cause ... excess ...
for in long-term (pasture) holding facilities for the
horses and burros to be humanely captured” for private
remainder of their lives, although others are being readied
adoption. Third, the Secretary shall cause excess animals
for adoption or sale in short-term (corral) facilities.
“to be destroyed in the most humane and cost efficient
manner possible.”
For FS lands, the AML is roughly 2,400 (in 2022). The
number of wild horses and burros on FS lands—about
Over the decades, laws have included additional authorities
11,460—is more than four times the AML. The animals are
to reduce excess animals. In 2004, for instance, P.L. 108-
on 34 active territories in seven states, with about two
447, §142, authorized animal sales, with provisions to (1)
dozen managed jointly with BLM. Most of the public and
direct the agencies to sell, “without limitation,” excess
congressional focus has been on BLM management, given
animals (or remains) that are more than 10 years old or
the larger populations on BLM lands.
offered for adoption unsuccessfully at least 3 times; (2)
remove a ban on sale of wild horses and burros (and
Wild Horse and Burro Program Funding
remains) for processing into commercial products; and (3)
It is unclear whether funding levels have been appropriate
remove criminal penalties for processing the remains of a
to care for wild horses and burros. Program costs would
sold wild horse or burro into commercial products. Some
vary based on the overall management strategy adopted and
support these changes as providing a cost-effective way of
the particular programs emphasized (e.g., off-range holding,
helping achieve the AML, improving animal health,
adoption, or population control). For instance, a 2018 BLM
protecting range resources, and restoring a natural
report to Congress presented different options for wild
ecological balance on federal lands. Others oppose these
horse and burro management with varying associated costs.
changes as potentially leading to the destruction of healthy
animals and as limited by agency policies and use of
BLM Historical Appropriations: FY2000-FY2022
appropriated funds.
For FY2022, the appropriation for BLM management of
wild horses and burros was $137.1 million, 18% higher
Since 1982, the agencies have not used their authority to
than FY2021 ($115.7 million). The increase was intended
destroy healthy animals. Most recently, the FY2022 Interior
to support “an aggressive, non-lethal population control
appropriations law (P.L. 117-103, Division G, §417(e))
strategy” as set out in a May 2020 BLM report, according
prohibited the use of funds for destruction of healthy
to the explanatory statement on the FY2022 appropriations
animals or for sales of animals that result in processing into
law. This strategy includes increased removals, long-term
commercial products. Most appropriations laws since
holding, and fertility control. FY2022 funding was more
FY1988 have contained similar prohibitions for BLM.
than six times the FY2000 amount ($20.4 million) and more
than double the FY2010 amount ($64.0 million), in nominal
dollars. Figure 1 depicts BLM’s annual funding. (FS
appropriations are not separately identifiable.)
https://crsreports.congress.gov
link to page 2
Wild Horse and Burro Management: Overview of Costs
Since FY2000, appropriations laws periodically have
actions and funding to achieve the AML over 15-18 years.
provided BLM with additional funding to achieve the
The report’s emphasis is on animal removals, off-range
AML. For example, in FY2010, BLM received a $23.4
holding, placement into private care, and fertility control
million (58%) increase to $64.0 million, the biggest annual
and includes costs of these actions. In the past, destruction
dollar increase. The increase was for activities (e.g.,
of healthy animals also has been discussed to achieve
removal of animals, population control, and adoptions) to
savings.
achieve the AML by 2013 (although this did not occur) and
for the escalating cost of animal care in long-term holding.
One funding question is how to reduce the average cost of
placing an animal into private ownership. That cost
Figure 1. BLM Appropriations for Wild Horse and
generally exceeds the revenue. Per adoption, BLM typically
Burro Management, FY2000-FY2022
charges a minimum of $125 per trained animal and $25 per
(in millions of current dol ars)
untrained animal, but the average cost for BLM to complete
an adoption (or sale) was estimated in 2020 at about $1,500.
This cost includes activities to make the animals more
marketable, such as training, advertising, and transporting.
It does not include the $1,000 incentive BLM has paid
individuals for each untrained animal they adopt (since
March 12, 2019). The cost of adoptions was considerably
less than the lifetime cost of off-range care; in 2020, BLM
estimated savings of $24,000 per animal.
Another question is whether animals can be moved more
quickly from short-term corral facilities into long-term
Source: CRS; data from BLM and appropriations documents.
pasture facilities to achieve program savings. Long-term
holding typically is used for older and other animals with
FY2021 Expenditures by Activity
less potential for adoption or sale; the average cost was
BLM uses wild horse and burro funding for a variety of
estimated in 2020 at about $2 per animal per day. By
activities. Expenditures can differ from appropriations in
comparison, the cost of short-term corral facilities was
part due to carryover and transfer of funds. For FY2021,
about $5 per animal per day. Short-term facilities are more
expenditures totaled $122.2 million. Figure 2 shows
expensive due in part to hay costs, veterinary services, and
FY2021 expenditures by activity. Off-range holding
farrier services to prepare the animals for adoption or sale
accounted for $77.7 million (64%) of expenditures,
and, in some cases, to the costs of BLM salaried employees.
composed of $35.0 million for long-term care and $42.7
million for short-term care. The next-largest portion, $15.1
A third question is how to improve fertility control to reduce
million (12%), was expended for program support and
herd sizes and costs. The most common method was
overhead. Placement into private care, through adoptions
estimated (in 2020) to cost roughly $2,500 per mare,
and sales, was $14.7 million (12%). Another $8.5 million
including gathering, treatment, and short-term holding.
(7%) was used for gathering animals on the range. The
Under this treatment, an immunocontraceptive agent—
remaining $6.2 million (5%) was expended for varied
Porcine Zona Pellucida (PZP)—typically is applied during
purposes (including <1% for fertility control).
periodic gathers to remove excess animals from the range.
Mares are captured, treated with PZP, and released to the
Figure 2. Expenditures for BLM Wild Horse and Burro
range. PZP generally is most effective for one year only. To
Management, FY2021
lower costs, areas of exploration have included longer-
(in millions of current dol ars)
lasting fertility control and sterilization.
A fourth question is whether BLM should sell excess
animals without limitations and/or destroy excess healthy
animals to reduce long-term program costs. For instance, as
recently as FY2020, the BLM budget justification called for
using all authorities granted under the 1971 Act by
removing general agency sale limitations (intended in part
as safeguards against slaughter) and congressional
prohibitions on using funds to destroy healthy animals. As
mentioned above, Congress retained these prohibitions for
FY2022. Such proposals have been controversial and have
been rejected by some who oppose destruction or support
Source: CRS; data from BLM and appropriations documents.
alternative management methods.
Issues and Proposals Related to Costs
Carol Hardy Vincent, Specialist in Natural Resources
Concerns over increasing wild horse and burro populations
Policy
and program costs have prompted discussions, studies, and
proposals. For instance, in response to congressional
IF11060
direction, BLM issued a report in May 2020 proposing
https://crsreports.congress.gov
Wild Horse and Burro Management: Overview of Costs
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11060 · VERSION 5 · UPDATED
Updated July 13, 2022
Wild Horse and Burro Management: Overview of Costs
Background
Population
The Wild Free-Roaming Horses and Burros Act of 1971
Achieving and maintaining the number of wild horses and
(the 1971 Act, 16 U.S.C. §§1331 et seq.) provides for
burros at the national AML has challenged BLM for
management and protection of wild horses and burros by
decades. BLM has set the upper limit for the AML for all
the Bureau of Land Management (BLM) and Forest Service
wild horse and burro herds on its lands at 26,785 animals.
(FS). Federal management of wild horses and burros has
As of March 2022, there were an estimated 82,384 animals
generated controversy, proposals for change, and lawsuits
on BLM lands—more than triple the current AML—and
for years. Issues for Congress include the adequacy of
more than double the 40,605 on-range estimate from 2013.
authorities to achieve the “appropriate management level”
However, the 2022 on-range estimate is 13% less than the
(AML) on the range, effectiveness of agency management,
2020 high of 95,114 animals, due to increased removals and
and sufficiency of funding.
fertility control, as well as other factors.
Overview of Authority
BLM manages wild horses and burros in 177 herd
Under the 1971 Act, BLM and FS are to inventory horse and
management areas (HMAs) in 10 western states. Nearly half
burro populations periodically to determine the AMLs.
(83) of the HMAs are in Nevada; Wyoming, Oregon, Utah,
When the pertinent Secretary determines that an
and California each have between 16 and 21 HMAs.
overpopulation exists and that it is necessary to remove
excess animals, the law requires specific actions (16 U.S.C.
BLM manages thousands of additional animals—58,314 as
§1333(b)(2)). First, the Secretary “shall order old, sick, or
of May 2022—off range. These animals were removed
lame animals to be destroyed in the most humane manner
from rangelands exceeding the AML. Most are being cared
possible.” Second, the Secretary “shall cause ... excess ...
for in long-term (pasture) holding facilities for the
horses and burros to be humanely captured” for private
remainder of their lives, although others are being readied
adoption. Third, the Secretary shall cause excess animals
for adoption or sale in short-term (corral) facilities.
“to be destroyed in the most humane and cost efficient
manner possible.”
For FS lands, the AML is roughly 2,400 (in 2022). The
number of wild horses and burros on FS lands—about
Over the decades, laws have included additional authorities
11,460—is more than four times the AML. The animals are
to reduce excess animals. In 2004, for instance, P.L. 108-
on 34 active territories in seven states, with about two
447, §142, authorized animal sales, with provisions to (1)
dozen managed jointly with BLM. Most of the public and
direct the agencies to sell, “without limitation,” excess
congressional focus has been on BLM management, given
animals (or remains) that are more than 10 years old or
the larger populations on BLM lands.
offered for adoption unsuccessfully at least 3 times; (2)
remove a ban on sale of wild horses and burros (and
Wild Horse and Burro Program Funding
remains) for processing into commercial products; and (3)
It is unclear whether funding levels have been appropriate
remove criminal penalties for processing the remains of a
to care for wild horses and burros. Program costs would
sold wild horse or burro into commercial products. Some
vary based on the overall management strategy adopted and
support these changes as providing a cost-effective way of
the particular programs emphasized (e.g., off-range holding,
helping achieve the AML, improving animal health,
adoption, or population control). For instance, a 2018 BLM
protecting range resources, and restoring a natural
report to Congress presented different options for wild
ecological balance on federal lands. Others oppose these
horse and burro management with varying associated costs.
changes as potentially leading to the destruction of healthy
animals and as limited by agency policies and use of
BLM Historical Appropriations: FY2000-FY2022
appropriated funds.
For FY2022, the appropriation for BLM management of
wild horses and burros was $137.1 million, 18% higher
Since 1982, the agencies have not used their authority to
than FY2021 ($115.7 million). The increase was intended
destroy healthy animals. Most recently, the FY2022 Interior
to support “an aggressive, non-lethal population control
appropriations law (P.L. 117-103, Division G, §417(e))
strategy” as set out in a May 2020 BLM report, according
prohibited the use of funds for destruction of healthy
to the explanatory statement on the FY2022 appropriations
animals or for sales of animals that result in processing into
law. This strategy includes increased removals, long-term
commercial products. Most appropriations laws since
holding, and fertility control. FY2022 funding was more
FY1988 have contained similar prohibitions for BLM.
than six times the FY2000 amount ($20.4 million) and more
than double the FY2010 amount ($64.0 million), in nominal
dollars. Figure 1 depicts BLM’s annual funding. (FS
appropriations are not separately identifiable.)
https://crsreports.congress.gov
link to page 2
Wild Horse and Burro Management: Overview of Costs
Since FY2000, appropriations laws periodically have
actions and funding to achieve the AML over 15-18 years.
provided BLM with additional funding to achieve the
The report’s emphasis is on animal removals, off-range
AML. For example, in FY2010, BLM received a $23.4
holding, placement into private care, and fertility control
million (58%) increase to $64.0 million, the biggest annual
and includes costs of these actions. In the past, destruction
dollar increase. The increase was for activities (e.g.,
of healthy animals also has been discussed to achieve
removal of animals, population control, and adoptions) to
savings.
achieve the AML by 2013 (although this did not occur) and
for the escalating cost of animal care in long-term holding.
One funding question is how to reduce the average cost of
placing an animal into private ownership. That cost
Figure 1. BLM Appropriations for Wild Horse and
generally exceeds the revenue. Per adoption, BLM typically
Burro Management, FY2000-FY2022
charges a minimum of $125 per trained animal and $25 per
(in millions of current dol ars)
untrained animal, but the average cost for BLM to complete
an adoption (or sale) was estimated in 2020 at about $1,500.
This cost includes activities to make the animals more
marketable, such as training, advertising, and transporting.
It does not include the $1,000 incentive BLM has paid
individuals for each untrained animal they adopt (since
March 12, 2019). The cost of adoptions was considerably
less than the lifetime cost of off-range care; in 2020, BLM
estimated savings of $24,000 per animal.
Another question is whether animals can be moved more
quickly from short-term corral facilities into long-term
Source: CRS; data from BLM and appropriations documents.
pasture facilities to achieve program savings. Long-term
holding typically is used for older and other animals with
FY2021 Expenditures by Activity
less potential for adoption or sale; the average cost was
BLM uses wild horse and burro funding for a variety of
estimated in 2020 at about $2 per animal per day. By
activities. Expenditures can differ from appropriations in
comparison, the cost of short-term corral facilities was
part due to carryover and transfer of funds. For FY2021,
about $5 per animal per day. Short-term facilities are more
expenditures totaled $122.2 million. Figure 2 shows
expensive due in part to hay costs, veterinary services, and
FY2021 expenditures by activity. Off-range holding
farrier services to prepare the animals for adoption or sale
accounted for $77.7 million (64%) of expenditures,
and, in some cases, to the costs of BLM salaried employees.
composed of $35.0 million for long-term care and $42.7
million for short-term care. The next-largest portion, $15.1
A third question is how to improve fertility control to reduce
million (12%), was expended for program support and
herd sizes and costs. The most common method was
overhead. Placement into private care, through adoptions
estimated (in 2020) to cost roughly $2,500 per mare,
and sales, was $14.7 million (12%). Another $8.5 million
including gathering, treatment, and short-term holding.
(7%) was used for gathering animals on the range. The
Under this treatment, an immunocontraceptive agent—
remaining $6.2 million (5%) was expended for varied
Porcine Zona Pellucida (PZP)—typically is applied during
purposes (including <1% for fertility control).
periodic gathers to remove excess animals from the range.
Mares are captured, treated with PZP, and released to the
Figure 2. Expenditures for BLM Wild Horse and Burro
range. PZP generally is most effective for one year only. To
Management, FY2021
lower costs, areas of exploration have included longer-
(in millions of current dol ars)
lasting fertility control and sterilization.
A fourth question is whether BLM should sell excess
animals without limitations and/or destroy excess healthy
animals to reduce long-term program costs. For instance, as
recently as FY2020, the BLM budget justification called for
using all authorities granted under the 1971 Act by
removing general agency sale limitations (intended in part
as safeguards against slaughter) and congressional
prohibitions on using funds to destroy healthy animals. As
mentioned above, Congress retained these prohibitions for
FY2022. Such proposals have been controversial and have
been rejected by some who oppose destruction or support
Source: CRS; data from BLM and appropriations documents.
alternative management methods.
Issues and Proposals Related to Costs
Carol Hardy Vincent, Specialist in Natural Resources
Concerns over increasing wild horse and burro populations
Policy
and program costs have prompted discussions, studies, and
proposals. For instance, in response to congressional
IF11060
direction, BLM issued a report in May 2020 proposing
https://crsreports.congress.gov
Wild Horse and Burro Management: Overview of Costs
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11060 · VERSION 5 · UPDATED