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Interagency Bison Management Plan

State and Federal Agencies Predict Busy Winter for Bison Management


By David Nolt, 12-06-07

Above: A bison in Yellowstone National Park. photo courtesy of National Park Service. Below: Yellowstone National Park Superintendent Suzanne Lewis looks over a map of the Gallatin National Forest surrounding part of the park. photo by David Nolt

Bison are powerful American icons and stir deep emotions in many different people. The Interagency Bison Management Plan (IBMP) meeting in Bozeman last Tuesday night was testament to this; dreadlocks and cowboy hats commingled as officials from federal and state agencies presented an update on the IBMP and answered an array of questions on what they predicted the coming winter would hold for Yellowstone’s bison.

In panel discussions and public discussion sessions with the IBMP’s five signatory agencies, officials had one overarching message: all agencies would be fully implementing the IBMP this winter, including – if necessary – the costly and controversial practices of hazing and slaughtering bison who wander out of the park.

Bison, elk and many other mammals carry the disease brucellosis, which showed up in a Montana cattle herd this summer. Though the Department of Livestock (DOL) says the transmission likely came from elk, if another cattle herd tests positive before May 2009 Montana will lose its brucellosis free status, and the DOL will not be taking any chances with bison.

In 2000 the Yellowstone National Park Service, Montana Fish, Wildlife & Parks, the Animal and Plant Health Inspection Service, the Gallatin National Forest Service and the Montana Department of Livestock formed the IBMP to “Preserve a viable, wild population of Yellowstone bison, address the management of bison when they leave Yellowstone National Park, reduce the risk of transmission of brucellosis from bison to cattle, maintain Montana’s brucellosis-free status” while protecting private property. The five agencies updated the IBMP operating procedures on November 16, 2007.

Almost 200 people gathered at the Holiday Inn in Bozeman as experts stood on hand during an open house to answer information on the brucellosis outbreak, brucellosis vaccination, bison population, the bison hunt, the Royal Teton Ranch lease north of Gardiner and a quarantine feasibility study.

Though the DOL is the lead agency for managing bison outside the park, there is significant pressure on the Yellowstone National Park Service to take a larger role in controlling the park’s bison, which reached a near-record population of 4,700 this summer. Glenn Plump of YNP talked about vaccinating bison within the park. No case of transmission of brucellosis from bison to cattle has ever been proven, and when asked about how the Park Service could vaccinate bison without vaccinating elk, Plumb responded, “The argument that it can’t happen because it hasn’t happened is in some ways a flawed argument.”

The Park Service outlined three vaccination alternatives: Vaccinate by direct handling of bison using a syringe vaccine at management zone capture facilities; expand the program to include remote vaccination of young bison throughout their range; or expand the program to include remote vaccination of all female age groups throughout their range.

When asked about vaccinating elk, Jack Rhyan of YNP admitted the sheer numbers of elk in the park would make vaccination very difficult, adding – even though the transmission of brucellosis to the Morgan cattle herd likely came from elk – elk calving is “not nearly the transmission event, except in feedlots, as in bison.”

Still, information on the Yellowstone National Park website states, “Outside the park wild bison from the Yellowstone population have not been known to transmit brucellosis to a visitor or to domestic livestock…the risk of Yellowstone bison transmitting brucellosis to nearby livestock is very low.”

At a panel discussion, Yellowstone National Park Superintendent Suzanne Lewis spoke toward the difficulty of managing bison.

“Just when you think you can predict bison management, they’re going to probably make you look pretty silly in trying to do that,” Lewis explained.

Montana DOL State Veterinarian Dr. Martin Zaluski said the IBMP agencies are anticipating an active winter because of the high number of bison in the park and deteriorating range conditions due to drought. Zaluski said the DOL would be working with ranchers on new “producer-led initiatives” like vaccinating cattle and increasing the surveillance of cow abortions.

Zaluski also briefly discussed a situation with new landowners on Horse Butte Peninsula, a historical bison migration corridor along the Madison Valley’s Hebgen Lake. The landowners removed all cattle from the peninsula, which they say removes any need for the DOL to enter their property to haze bison. The DOL is maintaining their statutory right to enter the property to haze “as a last resort.” The DOL has requested a meeting with the property owners who have refused.

“It opens up potential for some increased tolerance [of bison],” Zaluski explained, “but that tolerance needs to be looked at through a risk prism. There is still a residual risk.”

Pat Flowers of the MFWP said, although his agency fully intends to implement the IBMP, “We will broaden our vision of how we want to manage bison in the entire state as we do with all other wildlife” in the coming year.

The work will not be easy, however, Flowers emphasized.

“This is about as complicated a resource management issue as I have ever run into,” Flowers said, pointing to the varied public and private interests involved.

A discussion on “Bison Operations on the Ground” for the 2007-2008 winter became heated at times as members of the public grilled agency representatives – particularly the DOL – on everything from the DOL’s sympathies towards bison to an assessment on the logic and success of the IBMP.

Tim Reid, YNP Deputy Chief Ranger said he thought the IBMP was providing a springboard to progress, but noted the “scale and scope” of the issue could mean “success” might not come for 20 to 30 years.

Department of Livestock representative Rob Tierney defended his agency’s actions, saying Montana’s ranching economy hangs in the balance. If the state loses its brucellosis-free status, producers would be prevented from shipping cattle out of the state without stringent and expensive testing.

“One more hit and, boy, we’re in huge trouble,” Tierney explained.

As agriculture profits continue to dwindle, ranchers attending the meeting left uncertain awaiting a Fall 2007 brucellosis testing, which will wrap up on December 7, 2007. Those who attended the meeting looking to hear a change of direction for the IBMP left disappointed as all five agencies reasserted their duty to implement the plan in what could be another busy and controversial winter around Yellowstone National Park.



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