The National Elk Refuge is a Wildlife Refuge located in Jackson Hole in the U.S. state of Wyoming. It was created in 1912 to protect habitat and provide sanctuary for one of the largest elk (also known as wapiti) herds. With a total of , the refuge borders the town of Jackson, Wyoming on the southwest, Bridger-Teton National Forest on the east and Grand Teton National Park on the north. It is home to an average of 7,500 elk each winter. The refuge is managed by the U.S. Fish and Wildlife Service, an agency of the U.S. Department of the Interior. The refuge's elk migrate from as far away as southern Yellowstone National Park. Historically, they migrated to the present location of the refuge and further south into southwestern Wyoming during the fall, wintering on grassy plains that were both sheltered from weather and that maintained less snowfall or snow depth than surrounding lands. During the spring, the herd would follow the retreating snows and growing grasses back into the Yellowstone National Park region. The original size of the elk herd has been estimated to have been in excess of 25,000. By the end of the 19th century, the town of Jackson had developed on important winter range, blocking off some of the migration routes used by the elk. The elk herd was severely reduced in size due to the hostile climate and lack of food supply, in addition to hunting pressures by both homesteaders and surrounding Native American tribes (Bannock). A movement to protect the remaining herd and establish greater numbers was commenced in the early 1900s. When the Miller homestead was sold for $45,000 to the federal government, the refuge was established. The elk herd survives the hard winters of Jackson Hole through a supplementary feeding program and a lottery-based, permitted hunting program. The elk have antlers which are shed each year- the Boy Scouts of America have been collecting the antlers under permit since 1968 and selling them at auction, under agreement that 75% of the proceeds are returned to the refuge, where they are used for irrigation of the grasses to maintain maximum natural food supply. Ten to eleven thousand pounds (4,500 to 5,000 kg) of antlers are auctioned each year. The increase in value has resulted in a commensurate rise in antler theft, and the 2017 auction set a new record price of $18.79/lb. The