OPINION
GOULD, Circuit Judge:
More than two-hundred years ago, the Upper Missouri River Breaks enchanted Lewis and Clark as they traveled westward through what is now north-central Montana. Proclamation No. 7398, 3 C.F.R. § 7398 (2002). The explorers marveled at the area's "most romantic appearance," with white sandstone bluffs that seemed "to rival the human art of masonry." Id. They admired the abundant wildlife and observed big-horn sheep...
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