The Bureau of Land Management faced a crisis this spring.
The agency protects and manages herds of wild horses that still roam the American West, rounding up thousands of them each year to keep populations stable.
But by March, government pens and pastures were nearly full. Efforts to find new storage space had fallen flat. So had most attempts to persuade members of the public to adopt horses. Without a way to relieve the pressure, the agency faced a gridlock that would invite lawsuits and potentially cause long-term damage to the range.
So the BLM did something it has done increasingly over the last few years. It turned to a little-known Colorado livestock hauler named Tom Davis who was willing to buy hundreds of horses at a time, sight unseen, for $10 a head.
The BLM has sold Davis at least 1,700 wild horses and burros since 2009, agency records show  -- 70 percent of the animals purchased through its sale program.
Like all buyers, Davis signs contracts promising that animals bought from the program will not be slaughtered and insists he finds them good homes.
But Davis is a longtime advocate of horse slaughter. By his own account, he has ducked Colorado law to move animals across state lines and will not say where they end up. He continues to buy wild horses for slaughter from Indian reservations, which are not protected by the same laws. And since 2010, he has been seeking investors for a slaughterhouse of his own.
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