Many assume that the conservation movement was a part of the population uprising against control by the business community—"the people" versus "the interests." Hays’s special perspective shows that it came about rather as an attempt by scientists and technicians to apply their skills to the development and use of natural resources. The resulting conflicts, far from being concerned with unequal distribution of wealth, were struggles for policy control among groups of resource users.

This book defines two conflicting political processes: the demand for an integrated, controlled development guided by an elite group of scientists and technicians and the demand for looser system allowing grassroots control through elected government representatives.