TENURE AND USE OF ARID GRAZING LANDS. 59 
encouragement to weaker or less fortunately placed individuals. In 
operation it automatically makes for the gradual reduction in size 
of the excessively large holdings that in the early stages of develop- 
ment are necessary, without disturbing the production of the area 
and without injustice to the equities of the large holders. The 
attitude of rational constructiveness is a basic factor of the system. 
Any other plan that has been proposed merely fixes the status of 
the lands. None of them anticipates a development of the industry 
or the improvement of the range. The permit plan would immedi- 
ately put into effect a system of control that would meet the present 
requirements of the industry and would keep in view the future 
development of the business as well as the conservation of the range 
upon which the industry depends. 
It may be said in further support and recommendation of this plan 
that an expression of it has been in increasingly successful and satis- 
factory operation on the national forests for a number of years. In 
building up the system, the Forest Service has met and solved many of 
the difficult problems that have arisen, and now has a force of trained 
men who are capable of applying the system and of training others 
to apply it. It does not of necessity follow that all the details of 
their adaptation of the plan should be slavishly copied, but their 
experience and judgment as expressed in their practices should 
certainly receive careful consideration. 18 
w For those who are not acquainted with the principal features of the system as applied, the following 
note is appended (The details of the rulings may be found in the latest Use Book, issued by the Forest 
Service): 
The method of handling the National Forest ranges for the grazing of live stock is based upon the permit, 
rather than the acreage system, as being more flexible and satisfactory. Permits are issued upon applica- 
tions which give full information as to the owner's status as a stockman. He must own the stock absolutely 
in his own name. He must own land on which forage is produced for the feeding of the animals under 
permit, when off the forest ranges. Leased lands are not considered as a basis for a permit. Permits are 
issued for periods of from one to five years and are not transferable. If a permittee desires to sell his stock 
and the lands connected with their use, the purchaser can obtain from the seller a waiver to the United 
States of his grazing preference, which entitles the purchaser to a renewal of the permit for the rest of the 
grazing season. If the purchaser is properly qualified a permit will be issued to him personally the next 
season. The signer of a waiver can not again obtain a permit for a period of three years unless there is surplus 
range not needed by other applicants. With each permit sufficient range is allotted to graze the number 
of animals allowed. 
With cattle, the ranges are generally used in common. With sheep, each permittee receives a definite 
allotment upon which his sheep must be held. Cattle, not being under control of herders, can not be kept 
closely upon their allotted ranges, but, as far as possible, this is required by the terms of the permit. 
If owners have ranges on the public domain adjoining the forests and their stock can not well be restrained 
from finding their way upon the forests, "On and off" permits are issued which cover the whole number 
of animals that may, at any one time, be upon the forest, but payment is required for only the average 
number that graze. 
Drift fences are allowed at points where they seem advisable in order to restrain cattle from drifting 
away from their proper ranges. Pastures of reasonable size are granted permittees for the purpose of holding 
steers and stock for sale, .holding saddle and work horses, and for use in breeding and weaning. Drift 
fences are not charged for, but individual pastures are, the charge being by the acre and based upon the value 
of the lands for such uses. 
To prevent monopoly of the ranges, certain maximum limits are established for each forest above which 
no individual firm or corporation may receive a permit. Protective limits are also established below 
which no permit will be reduced to make room for new men. 
