Regulations and contracts written in disappearing ink, with new rules made up on the spot depending on whose cash flow was being tapped for the moment.
Golden Rule - them who has the gold makes the rules. Keeping them enforced, however, may take more gold than is easily available.
An evolving arrangement, mutating as we look at it.
By the way, the desert tortoise was never for a moment in any danger from cattle grazing. However, there may be considerable natural gas and petroleum beneath the surface lands, in a formation that can be opened up by hydraulic fracturing, “Fracking”. This alone is enough to set the enviro-weenies and greenies over the edge, that somebody might be able to extract huge supplies of energy and thus make this area into a boom growth location.
Or lotsa Pb, W & depleted U.