1Rumors are circulating that the Bureau of Land Management (BLM) has plans to euthanize 44,000 wild horses. The rumor is partly true. An advisory board has authorized the BLM to do so; they have yet to make a decision as to whether they will. Even the possibility of such a widespread cull, though, has understandably sparked outrage. Yet the reality of the American mustang is not as simple as the love and admiration for these animals suggests.

Mustangs are powerful symbols of the American West. The modern mustang is the descendant of various breeds of horses worked by everyone from Spanish conquistadors to pioneers in wagon trains into the Western US. Some inevitably escaped over time and formed herds of feral horses. Wild herds in the east were generally either driven west or recaptured over time as the frontier moved ever westward (the wild ponies of Assateague Island off the coast of Virginia being a famous exception). Over time, they became inextricably entwined with perceptions of the West as still wild and free, not yet fully domesticated. The image of a herd of beautiful horses against a gorgeous but austere Western landscape is a striking one, perhaps something like this:

Flickr creative commons James Marvin Phelps.

So how do we get from that to these mustangs penned up in a pasture running after a feed truck in Oklahoma (a screenshot from the video below):

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It’s a complicated story involving conflicts surrounding federal land management, public attitudes toward mustangs, and unintended consequences of public policies.

Wild horses fall under the purview of the BLM because most live on public range (particularly in Nevada, California, and Idaho, as well as Washington, Wyoming, and other Western states). Mustangs have no natural predators in the West; mountain lions, bears, and wolves kill some horses each year, but their numbers simply aren’t large enough to be a systematic form of population control for wild horse herds, especially given that horses aren’t necessarily their first choice for a meal. So wild horse herds can grow fairly rapidly. Currently the BLM estimates there are about 67,000 wild horses and burros on public land in the West, 40,000 more than the BLM thinks the land can reasonably sustain.

Of course, managing wild horses is one small part of the BLM’s mission. The agency is tasked with balancing various uses of federal lands, including everything from resource extraction (such as mining and logging), recreational uses for the public, grazing range for cattle ranchers, wildlife habitat conservation, preservation of archaeological and historical sites, providing water for irrigation as well as residential use, and many, many more. And many of these uses conflict to some degree. Setting priorities among various potential uses of BLM land has, over time, become a very contentious process, as different groups battle, often through the courts, to have their preferred use of BLM land prioritized over others.

The important point here is that managing wild horse numbers is part, but only a small part, of the BLM’s job. They decide on the carrying capacity of rangeland — that is, how many wild horses it can sustainably handle — by taking into account competing uses, like how many cattle will be allowed on the same land, its use as wildlife habitat, possible logging or mining activities, and so on. And much of the time the BLM concludes that, given their balance of intended uses, there are too many horses.

So what does the BLM do when they’ve decided there are too many horses?

For many years, the BLM simply allowed them to be killed; private citizens had a more or less free pass to kill them. There wasn’t a lot of oversight regarding how many could be killed or the treatment of the horses during the process. Starting in the late 1950s, the BLM began to get negative press, and a movement to protect wild horses emerged. It culminated in the Wild Free-Roaming Horses and Burros Act, passed in 1971. The law didn’t ban killing wild horses, but it provided some protection for them and required the BLM to ensure humane treatment, guarantee the presence of wild horses on public lands, and encourage other methods of disposing of excess horses.

One such method is making such horses (and burros) available to the general public for adoption. The BLM holds periodic adoption events. However, currently the demand for these animals isn’t nearly large enough to absorb the supply. For instance, in 2010, 9,715 wild horses were removed from public lands, while 2,742 were adopted.

So, there aren’t enough people to adopt them and killing them has become increasingly unpopular. Controlling herd populations through some form of birth control hasn’t been widely implemented and has led to lawsuits. What to do?

One solution was for the federal government to pay private citizens to care for mustangs removed from public lands. Today there are 46,000 wild horses penned up on private lands, fed by feed trucks. Something for which the American taxpayer pays $49 million dollars a year. Holding wild horses has become a business. Here’s a news segment about one of these wild horse operations:

The ranch in video is owned by the Drummond family, a name that might ring a bell if you’re familiar with the incredibly popular website The Pioneer Woman, by Ree Drummond. They are just one of several ranching families in north central Oklahoma that have received contracts to care for wild horses.

In addition to the sheer cost involved, paying private citizens to hold wild horses brings a whole new set of controversies, as well as unintended consequences for the region. Federal payments for the wild horse and burro maintenance program are public information. A quick look at the federal contracts database shows that in just the first three financial quarters of 2009, for example, the Drummonds (a large, multi-generational ranching family) received over $1.6 million. Overall, two-thirds of the BLM budget for managing wild horses goes to paying for holding animals that have been removed from public lands, either in short-term situations before adoptions or in long-term contracts like the ones in Oklahoma.

This is very lucrative. Because prices are guaranteed in advance, holding wild horses isn’t as risky as raising cattle. And, if a horse dies, the BLM just gives the rancher a new one. But this income-generating opportunity isn’t available to everyone; generally only the very largest landowners get a chance. From the BLM’s perspective, it’s more efficient to contract with one operation to take 2,000 horses than to contract with 20 separate people to take 100 each. So almost all small and mid-size operations are shut out of the contracts. This has led to an inflow of federal money to operations that were already quite prosperous by local standards. These landowners then have a significant advantage when it comes to trying to buy or lease pastures that become available in the area; other ranchers have almost no chance of competing with the price they can pay. The result is more concentration of land ownership as small and medium-sized ranchers, or those hoping to start up a ranch from scratch, are priced out of the market. In other words, the wild horse holding program contributes to the wealth of the 1%, while everyone else’s economic opportunities are harmed.

This is why the BLM is considering a cull. Not because they love the idea of killing off mustangs, but because they’re caught between a dozen rocks and hard places, trying to figure out how to best manage a very complicated problem, with no resolution in sight.

Revised and updated; originally posted in 2011. Cross-posted at Scientopia and expanded for Contexts.

Gwen Sharp, PhD is a professor of sociology and the Associate Dean of liberal arts and sciences at Nevada State College.