Brucellosis Progress in the Greater Yellowstone Area

By Dr. Clarence Siroky
State Veterinarian
Montana Department of Agriculture

There is a long history of the efforts made by USDA, state animal health officials and the livestock industry to gain cooperation from NPS in addressing the problems of brucellosis in wildlife in Yellowstone National Park and the Greater Yellowstone Area. These efforts began in the 1930’s and are still going on. During the last eight years these efforts have included meetings with all affected agencies, funding of research, and the implementation of a memorandum of understanding for cooperative actions among several state and federal agencies.

In the last 18 months, several significant steps have been taken. Montana sued and settled with the National Park Service and APHIS, as the one agency was refusing to manage their infected bison and the other agency was threatening to downgrade Montana’s brucellosis-free status because of it. Wyoming is reviewing their brucellosis control program in cattle and wildlife. The Greater Yellowstone Brucellosis Committee has had several accomplishments.

However, at the present time, we are not much closer to solutions than we were five years ago. We know what needs to be done, the expertise is available to get the job done, and sufficient tools are available to begin the process of controlling and eventually eradicating brucellosis. There is only one item missing; that being the full cooperation of USDI and NPS. Every roadblock available has been employed to slow or prevent real progress. Many of us who have been involved in this process for years believe the ultimate solution lies in congressional passage of legislation.

In August of 1995, Montana and the federal government settled their lawsuit out of court. This settlement only affects the movement of bison that leave Yellowstone National Park and enter Montana. However, other states were also extremely interested in the outcome of this lawsuit. Wyoming needed a basis for negotiations with the Yellowstone and Grand Teton National Parks and with federal and state wildlife agencies and in reevaluation of their overall brucellosis program. Some states receiving Montana cattle were unwilling to accept the risk posed by wandering bison and had imposed additional testing requirements, but in response to the settlement, most states have removed the test requirements on Montana cattle.

Settlement of the lawsuit involved two major parts. An interim policy to manage bison that are potentially going to leave the Park or have left the Park; referred to as the 1996 Bison Interim Management Plan, and a long term plan for bison management on the Yellowstone-Montana political boundary called the Environmental Impact Study for Long Term Management of Yellowstone Bison in Montana.

The Bison Interim Management Plan will include procedures to provide for a site-specific management strategy that will be appropriate for each of the locations to which bison traditionally migrate from YNP into Montana. Live capture and slaughter will be used, rather than shooting, as the primary method to prevent bison from migrating from YNP onto the Royal Teton Ranch in the vicinity of the Reese Creek boundary. Live capture also will be used in the vicinity of West Yellowstone to remove bison that have a higher potential for transmitting brucellosis, while allowing bison with a low potential for transmitting brucellosis to occupy public lands adjacent to YNP during the cattle-free period of November 1 through April 30. No actions will be taken to remove bison that migrate to and remain in the Eagle Creek/Bear Creek area; the area north of Grayling Creek/Fir Ridge in the Lee Metcalf Wilderness; the Cabin Creek Wildlife Management Area; and the Hellroaring Creek and Slough Creek drainages in the Absaroka-Beartooth Wilderness.

Near Reese Creek, Yellowstone Park borders private land where cattle graze or are fed year around. There will be no tolerance for bison on private land. Portable capture and handling facilities will be maintained within the park at the Reese Creek boundary by Yellowstone National Park. Cooperating agencies will operate the facilities to capture all migrant bison at this location. Bison will be processed at a mobile slaughter facility (if available) in the vicinity of the capture facility or will be transported to a permanent slaughter facility. Bison that evade the capture facilities and move onto private land will immediately be removed, either by hazing back to the capture facility or shooting by agency personnel.

The West Yellowstone area is a composite of private and public land. Transient cattle from both Idaho and Montana graze on leased ground during the summer months with many of the tenants changing on a year by year basis. Capture and handling facilities will be operated at various locations near the YNP boundary in the West Yellowstone area. Bison will be blood-tested for the presence of Brucella antibodies. All seropositive bison and all seronegative, pregnant females will be slaughtered, either in a mobile facility near the capture site or at a permanent slaughter facility. All seronegative males and seronegative, nonpregnant females will be identified with an unobtrusive visual marker and released. Bison with visual markers will be permitted to occupy public lands in the West Yellowstone area during the November 1 through April 30 period. Bison that evade capture will be shot and the meat will be utilized by various volunteer Native American groups.

Vaccination of seronegative males and seronegative, nonpregnant females would be desirable. However, an appropriate vaccine is not currently available. If preliminary studies on the use of RB51 in bison suggest that this vaccine is safe and effective, field studies may be initiated during the winter of 1996-97, using bison that are released in the West Yellowstone area.

Eagle Creek represents an area that does not have land grazed by cattle, has been specifically set aside for winter wildlife use, and is geographically limiting in that bison usually enter and leave the area via the Park. Bison that leave YNP in the Eagle Creek/Bear Creek area will be monitored. No other action will be taken with these bison unless they threatened to move across the Little Trail Creek-Maiden Basin hydrographic divide. Bison that move beyond the specified area will immediately be shot by agency personnel. Bison that move into the Hellroaring Creek, Slough Creek and north of the Grayling Creek/Fir Ridge areas also will be monitored. Although unlikely, bison that move beyond the specified areas also will be shot by agency personnel.

The National Biological Service, in cooperation with APHIS, will continue to investigate the disease with a variety of research projects using Yellowstone bison. Currently, tissue samples are being taken from harvested bison in an attempt to correlate culture results with seropositive blood samples. An additional research project involves tranquilizing live bison within the Park and obtaining blood and tissue biopsy samples, collaring the bison with radiotelemetry devices and inserting vaginal monitors for detection of abortions and calving. Other research projects will be identified in an attempt to understand the nature of the brucellosis in wild bison.

The majority of the bison heads, hides, and carcasses that result from bison management will be sold through public auction. The revenue from these sales will be shared among the agencies to offset some of their costs for bison management.

The Wyoming Livestock Board and Wyoming Game and Fish Department are currently negotiating with APHIS and the National Park Service to develop an approach for brucellosis control and eradication in bison and elk. Wyoming’s problem is more complex than Montana’s. Both bison and elk are involved; there are more land managers and more people directly impacted; cattle are allowed on the Grand Teton National Park; a higher concern regarding intraspecies transmission exists; and there is a practice of artificially feeding elk during the winter. All of these factors must be considered when a herd plan is developed for brucellosis control and eradication.

Northern Wyoming’s interaction with Yellowstone Park has bison leaving the Park in the Shoshone River drainage. A very low percentage of elk have been shown to be positive to brucellosis in this area. Small numbers of bison have left the Park. A solution similar to Montana’s settlement is being proposed. Only 15 bull bison will be allowed to remain in this wilderness area next to the Park which is not used for cattle grazing purposes. Bison in excess of this number and all females will be shot by hunters.

The Grand Teton National Park and surrounding state lands have elk that have shown a 40% seropositive rate. Three cattle ranchers graze cattle on, and three ranchers trail cattle through, the Grand Teton National Park - in the same general area that 250 bison use. The infection rate of these bison has been nearly 50%. The number of bison has increased from 50 to the 250 head in recent years, increasing the risk of intraspecies transmission. The National Elk refuge of nearly 7000 elk is also in the area. Additionally, the state operates 22 winter feed grounds with movement of elk between the feed grounds further enhancing the transmission of brucellosis. There have been 7 cases of brucellosis in Wyoming cattle herds epidemiologically linked to wildlife.

The Greater Yellowstone Interagency Committee (GYIBC) was formed to address the brucellosis problem in the Greater Yellowstone Area and is composed of representatives from the National Park Service; U.S. Forest Service; Bureau of Land Management; APHIS-Veterinary Services; U.S. Fish and Wildlife Service; and the Departments of Wildlife, Livestock, and Agriculture in the states of Montana, Idaho and Wyoming. Many agencies have had face to face encounters discussing philosophies, management styles, and various individal agency missions and included input from the participating public. In spite of just less than acrimonious discussions, in the last 18 months, the GYIBC has produced several major accomplishments.

1. September 1994 – The National Brucellosis Symposium was held in Jackson, Wyoming. About 250 interested persons attended and heard 34 speakers discuss the importance of the disease to livestock, wildlife and humans. Speakers also covered the economic and political importance of brucellosis in the region and the continent. Proceedings of the symposium are in the process of being published.

 

2. September 1994 – At their first meeting, the GYIBC strongly recommended that because of the role it plays in promoting brucellosis, winter elk feeding should be discouraged and that no additional wildlife feed grounds should be established in the GYA. The statement also discouraged the establishment of emergency or permanent feed grounds for other species.

 

3. May 1995 – The GYIBC unanimously adopted a Bison Quarantine Protocol for the GYA. This protocol offers "common sense" procedures, which are scientifically and medically based, for member agencies to use in the capture, testing and removal of reactors. With this protocol in place, the agencies involved can also better compare and evaluate one another’s data.

 

4. July 1995 – The Memorandum of Understanding which formally established they GYIBC was signed by the five principal parties to the agreement – State of Wyoming, State of Idaho, State of Montana, U.S. Department of Interior, and U.S. Department of Agriculture. In addition to outlining the membership and scope of work of the Executive Cdommittee, and stating the goal, mission and objectives of the BYIBC; the memorandum also created a Technical Subcommittee and an Information and Education Subcommittee to assist the Executive Committee in its deliberations.

 

5. August 1995 – The GYIBC formally adopted an informational report entitled "Risk of Transmission of Brucellosis from Infected Bull Bison to Cattle". It had been prepared by an Interagency Task Group of scientists, at the request of the GYIBC, to provide an answer to this delicate, and often-asked question.

 

6. December 1995 – The Institute for Environment and Natural Resource Research and Policy at the University of Wyoming selected the brucellosis problem in the GYA as a case study. This relatively new group, chaired by William Ruckelshaus, investigated strategies for conflict resolution among the various agencies involved in brucellosis management and provided a series of reommendations to the GYIBC Executive Committee aimed at enhancing its chances at achieving its goal, mission and objectives.

 

7. February 1996 – The GYIBC voted to move forward with its plan to do a large scale study to analyze how brucellosis in the GYA can be managed – and potentially eliminated. The Wyoming Game and Fish Department agreed to coordinate preparation of the programmatic enviromental impact statement, dependent upon securing the necessary funding. The EIS will take approximately four years to complete and cost about $1.7 million.

8. March 1996 - Art Reese, Wyoming Game and Fish Department, was asked to present testimony on S745. He represented Governor Geringer of Wyoming and the GYIBC in his testimony on this legislation. He offered a proposal for congressional consideration that would fund the entire programmatic EIS process, plus provide an annual appropriation in the amount of $400,000 for operational expenses for the GYIBC and also allow them to implement interim strategies to address the brucellosis issue.

As a result of several conferences during the winter of 1995 between the National Park Service, APHIS-Veterinary Services, and Montana’s Senator Conrad Burns, a bill was introduced to the Senate Committee on Energy, Natural Resources and Parks by Senator Burns. This bill asked for the National Park Service to capture, test, vaccinate, and quarantine bison within the Park. SB 745 does define the need to eradicate brucellosis from Yellowstone National Park; however, we feel that the following provisions need to be included within this bill:

1. Provide authority for USDA/APHIS/VS to perform all duties and activities necessary to control and eradicate brucellosis from all species of animals that are susceptible to Brucella abortus on all National Park, National Refuge and Wilderness lands administered by USDI.

In the GYA such lands include YNP, GTNP, National Elk Refuge (NER) and some wilderness areas. Activities shall include but not be limited to: gathering, corralling, darting, immobilizing, identifying, testing, vaccinating, quarantining, moving, conducting research on, destroying or slaughtering brucellosis infected or exposed animals.

2. Require all agencies of the USDI to cooperate fully with USDA/APHIS/VS in the performance of disease control and eradication responsibilities.

Such cooperation shall include but not be limited to: providing logistical, personnel, and materials support; construction of handling and holding facilities on lands administered by NPS and Fish and Wildlife Service (FWS); corralling, darting, immobilizing, handling, and restraining animals; maintaining the integrity of holding and quarantine facilities; and aid in the disposal or distribution of animals, as directed by USDA.

3. Provide authority for the control and eradication of brucellosis in bison and elk, on lands not administered by NPS or FWS, to USDA; provide for state animal health and fish and game officials to have the lead role in disease control and eradication activities for elk on all lands not administered by NPS or FWS; require USDI and USDA to fully cooperate with state animal health and fish and game agencies in disease control and eradication activities for elk.

Brucellosis control and eradication procedures for elk will be different from control and eradication procedures for bison. This difference must be recognized. In addition, elk outside the National Parks and NER are under the jurisdiction of the states. This jurisdictional authority must be preserved. The federal agencies must provide technical, logistical and manpower support to achieve goals of control and eradication of brucellosis, in a manner similar to the support currently provided by USDA to the states in the cattle brucellosis eradication program.

4. Require USDA and USDI to fully cooperate with and coordinate disease control and eradication activities with animal health officials and fish and game officials of the states of Idaho, Montana, and Wyoming.

Such cooperation and coordination shall include but not be limited to: Prevention of movement of brucellosis infected and exposed bison and elk from NPS and NER lands to state or private lands, or if movement cannot be prevented, cooperate with state officials in management, removal, restraint, confinement, quarantine, testing, vaccination or destruction of the offending animals.

5. Provide authority for the GYIBC to serve as the coordinating body through which management plans, research projects, disease control activities and all other necessary activities can be developed, coordinated and implemented.

The GYIBC membership includes representation from all state and federal agencies that have jurisdictional authority over lands or animals in the GYA. This committee is established and functioning. It should provide the best forum for development and implementation of management plans, disease control activities and coordination of efforts related to brucellosis in wildlife of the GYA. In addition, the GYIBC is a formally recognized committee that has in place a Goal, Mission and Objectives which effectively addresses all the major factors related to resolution of the wildlife brucellosis problem in the GYA.

6. Require NPS to engage the services of a team of independent Range Management specialists to determine the optimum populations of bison, elk and other ungulates that the lands and forages of YNP and GTNP can sustain and require NPS to maintain populations of these animals below this optimum level.

The current populations of bison and elk in YNP and GTNP far exceed the carrying capacity of lands in these Parks. The USDI is perpetuating a double standard. Populations of animals and forage utilization standards are scrupulously enforced on all USDI administered lands that are utilized by livestock for grazing while at the same time NPS refuses to control either animal numbers or employ forage utilization standards in the National Parks. Both must be utilized if the National Parks are to be returned to the splendor and glory American citizens expect.

7. Require the agencies of USDI and USDA to develop, maintain, and utilize; or cooperate with the state animal health officials of Idaho, Montana and Wyoming in the development, maintenance, and utilization of; quarantine facilities in YNP, GTNP, NER and Wilderness areas, or in any of the states adjacent to the National Parks. Require NPS and other agencies of USDI to capture surplus bison and confine the surplus bison in quarantine facilities.

USDA is in the process of approving procedures for the development, maintenance and security of quarantine facilities. Quarantine facilities on NPS and FWS lands must be maintained under quarantine by the state animal health official of the state in which the facility is located.

8. Provide authority to USDA to determine, in cooperation with state animal health officials, the number and kinds of tests to be performed on bison in quarantine facilities and determine the standards quarantined bison must meet in order to be declared Brucellosis Free. Provide authority to USDA, in cooperation with the state animal health officials, to release Brucellosis Free bison to Native American Tribes or to dispose of Brucellosis Free bison to any interested association, group or individual who shall pay a reasonable price for the Brucellosis Free animals. Provide that the proceeds from any sale of Brucellosis Free bison shall be utilized in the GYA disease control and eradication efforts. Provide authority to USDA to prohibit the sale or movement of brucellosis infected or exposed bison other than directly to an approved quarantine facility or directly to an approved slaughter establishment.

The GYIBC has developed a draft protocol for quarantine, testing and eventual release of bison captured in the GYA, which are proven to be Brucellosis Free. This draft protocol has been endorsed by USAHA and other groups and has been submitted to USDA for inclusion in the UM&R. This protocol will specify the procedure for quarantine, handling, testing, isolation and eventual release of bison that are Brucellosis Free. If enacted, this procedure will provide a mechanism to transfer Brucellosis Free YNP bison to Native American Tribes and other interested parties and individuals.

9. Appropriate, to USDA and USDI, such funds as are necessary to administer, conduct and enforce Brucellosis control and eradication activities in the GYA and make such funds available annually until such time as brucellosis is eradicated from all wildlife of the GYA.

There must be an appropriation specifically earmarked to address brucellosis in the GYA. The problem of brucellosis in wildlife of the GYA will not be resolved by 1998, even under the most severe approaches to brucellosis eradication. Sufficient funding must be provided to assure the job can be completed.

10. Stipulate that bison and elk Brucellosis control and eradication activities be initiated no later than July 1, 1996 and further stipulate that such activities not cease until brucellosis is eradicated from the GYA.

11. Provide a mandate to USDA and USDI to continually maintain provisions for grazing of domestic livestock on public lands of the GYA.

Such mandate must assure that public and private lands currently utilized for the grazing of domestic livestock not be preempted for utilization solely be wildlife. Such action is essential to the viability of the livestock industry of the GYA.

12. Exempt all activities related to the control and eradication of brucellosis, and all activities related to the management of bison and elk population numbers in the GYA from the requirements of NEPA.

We recognize and appreciate the national heritage represented by elk and bison in Yellowstone National Park, Grand Teton National Park and the National Elk Refuge. Our concern is brucellosis. We must eliminate brucellosis from the wildlife of the Greater Yellowstone Area.