224 ANNUAL EEPORTS OF DEPARTMENT OF AGRICULTURE. 



FURTHER ADJUSTMENT OF REGULATIONS NEEDED. 



Agricultural lands, the public domain, and the national forest 

 ranges are so interrelated that grazing administration of the latter 

 must of necessity take into account the conditions created by the 

 presence of lands of the other two classes. Little difficulty is expe- 

 rienced in adjusting the use of the forest ranges to agricultural devel- 

 opment, but the absence of any form of control of the public domain 

 creates a source of embarrassment and affords a prospect of disturb- 

 ance likely to prove prejudicial both to the live-stoclc industry and 

 to the public welfare. 



On July 1, 1921, there were approximately 189,729,492 acres of 

 unreserved unappropriated public domain, much of which has been 

 largely depleted of vegetation by unregulated use. Much of this 

 range adjoins or is in the vicinity of national forests. As its capacity 

 gradually decreases, with no resultant decrease in numbers of stock, 

 demands on forest range increase, administration becomes more 

 difficult in preventing trespass, operating expenses to the individuals 

 increase, and conflicts between owners result. In a word, the com- 

 petition for the use of the remaining public domain is becoming so 

 keen that a repetition of range wars and destruction of property can 

 be expected unless legislation is enacted by which the public grazing 

 lands outside the forests can be effectively administered. 



It has already been explained that depressed business conditions 

 necessitated leniency in requiring the removal of stock from ranges, 

 the use of which had become in excess of their permanent carrving 

 capacity. The problem involved presented the greatest difficulties 

 in regions where drought increased the demand for range on the 

 forests, lessened the production of forage, and made it impossible for 

 the stockmen, had they been required to cut down the number of 

 animals grazed on the forests, to find range elsewhere. The surplus 

 stock must be removed at the earliest opportunity. This is neces- 

 sary not only to maintain the productivity of the range but also to 

 stabilize the industry. It is vital to the live-stock industry itself in 

 these regions to have the carrying capacity of national forests fixed 

 with a reasonable margin of security against the frequent years. of 

 deficient rainfall, shortage of feed, and consequent heavy losses in 

 the herds of permittees. 



In connection with this readjustment of use, the time is opportune 

 to make some changes in the regulations which will aid materially 

 both in financial readjustments and in the stability of further use of 

 the range resource. 



The regulations call for payment of grazing fees in advance. 

 Stockmen usually meet operating expenses by borrowing, which 

 involves paying interest until the loans can be repaid from receipts 

 when stock is sold. Where yearlong range is used this may involve 

 paying interest on the amount of the grazing fees for more than a 

 year. All State and county taxes are payable in two installments, 

 and Federal income taxes may be paid on the installment plan. It 

 is believed equitable and advisable to adopt as a permanent policy 

 payment for the use of yearlong ranges in two installments. 



The present system of establishino; the fee to be charged for the 



f razing privilege is not conducive to the best interests of the industry, 

 t has not been based on a close scientific determination of the actual 



