Numerous management authorities governing the use of the public lands and their resources accumulated from the early 1800s to the mid-1900s — in fact, there were thousands of them. These disparate authorities often resulted in fragmented, inefficient, and sometimes inconsistent resource management. These laws applied not only to grazing and land disposal, but also to mineral leasing and mining, timber harvesting, homesteading, and other subjects. The result was rapid economic development of the growing nation, but also some very obvious waste of resources.
By the 1870s, enough perceived problems had emerged with land disposition that the first moves toward public land retention were enacted by Congress. There was a growing sense that many lands, because of either their great public value (as in the case of the lands that would become Yellowstone National Park) or their remoteness and apparent lack of value, should be held in the public trust. This shift in attitude was based on the notion that there was a legitimate national interest in the remaining unsettled lands, and that this interest would be best served by Federal ownership. The reservation of Yellowstone National Park in 1872, and the 1891 General Land Reform Act that created the forest reserves, formally marked this change in public and Congressional thinking. The next four decades saw reservation (by various means, from Acts of Congress to Presidential Orders) from private ownership of essentially all of the Federal lands now in existence in the lower 48 states.