The proposed Birds of Prey Conservation Area (BPCA) contains approximately 800,000 acres of mostly public land along the Snake River in southwestern Idaho. It is the most concentrated nesting site for birds of prey-or raptors-in North America, including prairie falcons and peregrine falcons, hawks, eagles, and owls. It also provides habitat for jackrabbits and ground squirrels, the raptors' principal prey, as well as forage for domestic livestock. In addition, the area has a potential use in irrigated agriculture. Bird protection, grazing, and irrigated agriculture came into direct conflict with each other in 1978 when the secretary of interior requested the Bureau of Land Management (BLM) to assess allocation of these acres as a reserved natural area. This conflict provided the impetus for our analysis. The federal Desert Land Act of 1877 and Carey Act of 1906 permit withdrawal of these lands from the public domain for agricultural development. Locally, withdrawal means irrigated production of primarily potatoes and sugar beets. These crops replace the natural vegetation and, therefore, compete with grazing. Irrigated agricultural development also destroys natural ground cover for rabbits and squirrels, thereby creating competition with bird protection. The result is an interesting and unusual, perhaps unique, political alliance. Raptor protectors and grazing interests are usually fierce opponents. The latter fear that the birds kill young livestock. In this case, however, the ranchers' usual opposition to the birds is subordinated to their fear of total loss. Meanwhile, their livestock keep the range vegetation short, enabling raptors to find prey more easily. As a result raptor protectors and livestock organizations readily united to confront their common opponent, irrigated agricultural development.' The analytical problem confronting BLM takes the classical form of two mutually exclusive alternatives, development (irrigated agriculture) versus preservation (grazing and raptor protection). The problem is complicated by the uncertain nature of irrigated agricultural development and by the nonmarket raptor protection values. We consider this problem, proceeding from a conceptual model to an empirical estimation to conclusions and policy implications.
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