Chapter 6
Science and the Struggle for Bureaucratic
Power: The Leopold Era, 19631981 (continued)
Grizzly Bears
Management of Yellowstone's grizzly bear populationanother
major move toward reestablishing natural conditions in the
parkssparked an angry dispute and again revealed the Service's
ambivalence toward scientifically based management. The grizzly bear
controversy began in the late 1960s, when Yellowstone superintendent
Jack Anderson, backed by his lead biologist, Glen Cole, decided to close
the park's garbage dumps, a reliable source of food for the grizzlies
since the 1880s, virtually since tourists began coming to the park. This
plan was intended to put the bears on a more natural regimen, where they
would not depend on food supplies at the dumps and would disperse across
the park seeking natural sources of food. As with the ending of elk
reduction, the Service claimed that its new grizzly bear management was
in accord with the Leopold Report. [122]
However, focused more on ungulates, the report had not analyzed bear
management in detail, leaving it essentially open-ended as to
manipulation or natural regulation. The decision to close the dumps
brought the Service into conflict with the recommendations of John and
Frank Craighead, biologists (and twin brothers) who had been studying
Yellowstone's grizzlies intensively since 1959 and were recognized as
the world's leading experts on this species.
The Craigheads (who were not Park Service scientists) believed that
if certain precautions were not taken, closure of the dumps would
threaten the grizzlies' survival in the park. They judged that since
late in the previous century, when garbage dumps had first attracted
grizzlies, development and use of once-primitive lands in and adjacent
to the park had possibly reduced the bears' natural food supplies below
what was necessary to support a viable grizzly population. But the Park
Service overrode this argument. Although it had no systematic population
survey of its own, it asserted that the Craigheads had underestimated
the number of grizzlies in the park, and that the bears had survived in
the area for millennia and could continue to do so. [123]
The dispute narrowed to whether the dumps should be closed suddenly
or gradually. The Craigheads argued that a gradual, monitored closing
would give the grizzlies time to adjust and thus have less impact on
their population. Entwined with this concern was the factor of human
safety whether the dispersal of bears seeking food after a sudden
closing would be a greater threat to campers and hikers than after a
gradual closing. All parties were keenly aware of the August 1967
incidents in Glacier National Park when, on a single night and in widely
separated areas, two women were mauled to death by grizzlies. These
remarkably coincidental killings had brought pressure on the Service to
reevaluate its bear management. After first trying gradual closing,
Superintendent Anderson concluded that a quick closing was safer for
both humans and bears. In the fall of 1970, he abruptly announced that
the last big dumpat Trout Creek, south of Canyon
Villagewould be shut down. [124]
Following this decision, the controversy shifted to a kind of grim,
competitive watch, with both sides counting population figures year to
year to see how well the grizzlies survived.
Underlying the disagreements was the question of scientific research
to enable the park to make informed management decisions on the
grizzlies. Since Stephen Mather's time, the Service had used the
availability of outside scientists as a rationale for not strengthening
its own research capability an attitude still pervasive in the
late 1950s when the Craigheads began their studies. Indeed, their
research funds (ultimately more than a million dollars) came from a
variety of sources, including the National Science Foundation, National
Geographic Society, Philco Corporation, and Bureau of Sport Fisheries
and Wildlife. The Park Service did not support the Craigheads
substantially, covering only a small fraction of the cost, much of it in
the form of staff and logistical support. Work space in an unused mess
hall was provided by the park concessionaire. [125] Operating with limited Service support,
the Craigheads' studies became what was at that time the most in-depth
natural-history research ever conducted in a national park.
Still, an acrimonious debate arose over the Craigheads' progress in
publishing their research and whether the information they made
available was adequate to determine the effects that dump closure would
have on the grizzlies. Rejecting the Craigheads' recommendations and
asserting that their research did not address the specific concerns at
hand, Superintendent Anderson closed the last dump. As had happened for
decades including the termination of the elk reduction
programthe Park Service made a key management decision with little
scientific information of its own. [126]
The disagreements intensified the fractious professional and
personal differences that had arisen between the Craigheads and certain
park staff. Early in the research project, the relations had seemed
cordial and supportive. But in Frank Craighead's opinion, after
Anderson's and Glen Cole's arrival in the park in 1967, the situation
became increasingly "characterized by mistrust, suspicion, and . . .
hostility." Part of the problem stemmed from the Craigheads' use of the
public media. Even before beginning their Yellowstone research, the
brothers were well-known naturalistsa "glamour family within the
wildlife establishment," as one writer put it. Their grizzly bear
studies attracted even greater attention, giving them a public platform
from which they at times criticized park management. [127]
Park management's attitude toward research (and toward the
Craigheads themselves) was clearly revealed when the Craigheads
requested permission to continue monitoring the dispersal of the
grizzlies following final closure of the dumps. This involved tracking
the animals by means of multicolored tags, which the researchers had
attached to a large number of bears (as well as some elk) for
identification and tracking purposes. Their request, coming at the
height of acrimony between the two sides, was rejected by Superintendent
Anderson, who characterized the colored tags as an unwanted intrusion
into the natural scene. Supported by biologist Cole, Anderson rejected
the Craigheads' request and ordered that the tags be removed from any
bears captured by park rangers for management purposes, thereby
thwarting research use of the tags. [128]
The superintendent asserted that the public had complained about the
colored tags, pointing out to John Craighead that there had been a
"great deal of comment from the park visitor attempting to photograph
the wildlife in their native habitat." Anderson believed that the
tagging had "reached the point where it detracts from the scenic and
esthetic values," and he wanted as many tags as possible removed by the
time of the Yellowstone centennial, to be celebrated in the park in the
summer of 1972. Thus, the park's excuse for obstructing this final
aspect of the Craigheads' research was based on the claim that the tags,
in effect, decreased public enjoyment of Yellowstone. The National
Academy's 1963 report had specifically recommended that the Service
"avoid interference with independent research which has been authorized
within the parks," citing problems that had occurred in Mammoth Cave and
Shenandoah. Chaired by Starker Leopold, a science advisory committee
that met in the park in September 1969 had urged that the "response of
[the bears] to the elimination of garbage" be studied. Yet to Anderson
and Cole, the colored ear tags on an elusive animal rarely seen by the
public were an intrusion on the natural scene and had to go. The park
had effectively blocked the bear dispersal research. [129]
Anger and discord surrounded this celebrated conflict over the
grizzlies, and a cloud of uncertainty and distrust still remains.
Reflecting on the controversy more than a decade after its onset,
Nathaniel Reed, who as assistant secretary of the interior had been a
close observer of the dispute, voiced his opinion that "mistakes have
been made" and "neither the Craigheads nor the Park Service have a
perfect record." The Service's actions were, however, more crucial than
those of the Craigheads, because it had the legal responsibility and
decisionmaking authority to safeguard the public trust through ensuring
survival of Yellowstone's grizzlies. [130]
In making its decisions, the Service rejected the advice of
internationally recognized experts who had studied the bears for more
than a decade. The Craigheads estimated the grizzly population to be
fewer than two hundred and believed that the dump closure increased the
risk that the bears would become extinct in the park. During the first
two years after closure, approximately eighty-eight grizzlies were
killed in or near Yellowstone, mainly to ensure human safety. Even with
this number slain, the grizzlies survived; but in Frank Craighead's
opinion, there had been "very little margin for error." Indeed, in 1975,
shortly after what had been by far the most intensive killing of
grizzlies in the park's history, the grizzly was placed on the list of
threatened species, pursuant to the Endangered Species Act. [131]
In the push toward natural regulation and in a concern for safety,
the Park Service had been in a sudden hurry with grizzly bear
management. It seemed compelled to change a feeding policy that had
existed for nearly a century, during which time it had had ample
opportunity to conduct its own research on the bears but had neglected
to do so.
The Service began to expand its knowledge of the grizzlies in 1973
with the initiation of a bear monitoring program. That same year the
Interagency Grizzly Bear Study Team was created to undertake long-term
scientific studies; it included biologists from the Park Service, the
U.S. Fish and Wildlife Service, the U.S. Forest Service, and the state
governments of Wyoming, Idaho, and Montana. The 1975 listing of the
grizzly as a threatened species triggered a close evaluation of the
bears' critical habitat and the development of a "recovery plan" for the
species. [132] Grizzly habitat had already
been recognized as including expansive tracts of lands surrounding the
park, an area constituting the central portion of what came to be called
the Greater Yellowstone Ecosystem. The Craighead studies and the grizzly
bear controversy helped spawn a coordinated approach to management of
this species by federal and state agencies. Although the disagreement
and controversy did not end, through extensive research the new approach
sought to improve understanding of the grizzly and how it might best be
managed.
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