FOREST SERVICE. 237 



Forest officers are instructed to aid in the creation of new associa- 

 tions of this character and the upbuilding and support of those 

 already in existence. 



Grazing fees. — On February 1, 1917, the Secretarj^ of Agriculture 

 announced that grazing fees would be based upon the real value of the 

 forage utilized. Valuation studies in the western range districts were 

 undertaken, and on March 1, 1919, the grazing fees fornierly in eti'ect 

 were approximately doubled. The fees then established by the Secre- 

 tary of Agriculture, which greatly increased the receipts from the 

 National Forests, represented the best judgment of the department 

 as to the actual value of the ranges under market conditions prioi- to 

 that time, taking into account the restrictions placed upon their use 

 by Forest Service regulations. 



This increase in grazing fees, Avhile a definite step in business 

 management, failed to take into account many differences in range 

 values. The fees charged on diflt'erent National Forests vary some- 

 what in accordance with the quality and accessibility of their ranges; 

 but on each Forest the same fee has been charged for the same trrazinor 

 season, notwithstanding marked differences in tiie value of the pas- 

 tures. It was not possible in 1918 to consider all of these factors. 

 While the general standard of grazing fees has been below what the 

 abnormal live-stock and forage values in 1919 miy-ht have lustified, 

 the charges for some of the relatively inferior ranges are fulW equal 

 to their fair value. It is particularly important to recognize this 

 in view of the fact that general business conditions are operating to 

 reduce values in the industry. 



To determine the grazing fees in full justice to the stockmen and 

 the public, the National Forest ranges must be classified by smaller 

 units and the charges fixed in accordance with the grazing value of 

 each unit. This involves quality and accessibility of forage, ade- 

 quacy of water, unavoidable losses in handling stock on account of 

 topography or the existence of poisonous plants, and the like. Such 

 a classification will require a deal of careful study on the ground, 

 but is fundamental to a businesslike handling of the National Forest 

 ranges in the future. A field appraisal will be made and the ranges 

 classified during the ensuing two years. A schedule of grazing fees 

 based on the fair commercial value of each class of range will be 

 prepared by 1923 and submitted to the live-stock associations, in 

 order that errors may be corrected and ample opportunity given for 

 a hearing before the charges are approved. The new fees should 

 become effective in the grazing season of 1924, 



Under authority from the Secretary of Agriculture, a large num- 

 ber of permits were issued in 1919 granting the use of National 

 Forest ranges for a period of five years. These permits were issued 

 with an understanding between the Government and the western 

 settlers and stock growers that grazing fees would not be increased 

 during the five-year period. That understanding should not be re- 

 pudiated by the Government. Such a course would be a breach of 

 good faith and a serious injury to the live-stock industr}' over a 

 considerable region witliin which its stability depends to a large 

 degree upon the fairness of National Forest rules and the dependence 

 which can be placed upon their enforcement. While the infiated 



