?£3^: H State of Wisconsin Coastal Management Program and Draft Environmental Impact Statement U.S. Department of Commerce National Oceanic and Atmospheric Adminis tratio n Office of Coastal Zone Management % % *X ^, «<> / * r ATES O* h INFORMATION FOR READERS PURPOSE: This document is both a draft environmental impact statement (DEIS) and a program document on the Wisconsin Coastal Manage- ment Program. It is being circulated by the U.S. Department of Commerce for public and government agency review and comment . Comments received by the U.S. Department of Commerce will be considered in revising this document and will be included as an appendix in the final environmental impact statement (FEIS) to be cir- culated in early 1978. At this time it is not anticipated that public review of this document will require more than forty-five (45) days. Concurrent and overlapping reviews of other proposed coastal management program approvals will make it difficult to grant an extension of the comment period for the Wisconsin DEIS under Section 1500.9 of guidelines issued pursuant to the National Environmental Policy Act. The U.S. Department of Commerce will hold public hearings on the DEIS during November, 1977 in Wisconsin. HOW TO Readers who are not familiar with the EIS standard format for USE THIS coastal management program will want to examine the following DOCUMENT: pages as aids to the reader: Table of Contents - page v. Table cross-referencing requirements of the Coastal Zone Manage- ment Act with sections of this document - page 4 Table cross-referencing National Environmental Policy Act (NEPA) and the Wisconsin Environmental Policy Act (WEPA) requirements with sections of this document - page 6 Summary of Wisconsin's proposed program - page 7 Summary Table of Wisconsin Coastal Management Program - page 46 Glossary of Terms - page 201 Map of Wisconsin - page 158 Please save this copy of the DEIS as the appendices will not be included in the FEIS unless a substantial change to an appendix is made. WHERE TO ASK QUESTIONS ABOUT THIS DOCUMENT: Informational questions can be handled in Washington by Eileen Mulaney, Great Lakes States Regional Manager of the Office of Coastal Zone Management (202/634-4237) and in Wisconsin by Allen H. Miller, Program Manager, Wisconsin Coastal Management Program (608/266-3687). A list of persons who participated in developing the Wisconsin program is found in Appendix C; these people can also provide helpful information. i UNITED STATES DEPARTMENT OF COMMERCE The Assistant Secretary for Science and Technology Washington. DC. 20230 In accordance with the provisions of Section 102(2)(C) of the National Environmental Policy Act of 1969, we are enclosing for your review and consideration the draft environmental impact statement prepared by the Office of Coastal Zone Management, National Oceanic and Atmospheric Administration, Department of Commerce, on the proposed Wisconsin Coastal Zone Management Program. Any written comments you may have should be submitted in duplicate to the parties listed below by December 5, 1977. If you have any questions about the enclosed statement, please feel free to contact: Eileen Mulaney Office of Coastal Zone Management 3300 Whitehaven Street, N.W. Washington, D. C. 20235 Telephone: 202/634-4237 Thank you for your cooperation in this matter. / A, 'M JL.< Sidney R. Galler Deputy Assistant Secretary for Environmental Affairs Enclosure k UNITED STATES DEPARTMENT OF COMMERCE DRAFT ENVIRONMENTAL IMPACT STATEMENT PROPOSED COASTAL MANAGEMENT PROGRAM FOR THE STATE OF WISCONSIN Prepared by: Office of Coastal Zone Management National Oceanic and Atmospheric Administration Department of Commerce 3300 Whitehaven Street, N.W. Washington, D.C. 20235 and Wisconsin Coastal Management Program Office of State Planning and Energy 1 West Wilson Street Madison, Wisconsin 53702 Digitized by the Internet Archive in 2012 with funding from LYRASIS Members and Sloan Foundation http://www.archive.org/details/draftenvironmentOOwisc Summary (X) Draft Environmental Impact Statement ( ) Final Environmental Impact Statement Circulated by the U.S. Department of Commerce, in compliance with the National and Wisconsin Environmental Policy Acts. For additional infor- mation about this proposed action or this environmental impact state- ment, please contact: Office of Coastal Zone Management National Oceanic and Atmospheric Administration Attn: Eileen Mulaney 3300 Whitehaven Street, N.W. Washington, D. C. 20235 Phone: 202/634-4237 1. Proposed Federal approval of the Wisconsin Coastal Management Program (X) Administrative ( ) Legislative 2. It is proposed that the Secretary of Commerce approve the Coastal Management Program application of the State of Wisconsin pursuant to the Coastal Zone Management Act, P. L. 92-583. Approval would permit im- plementation of the proposed program, allowing program administration grants to be awarded to the State, and require that Federal actions be consistent with the program. 3. Approval and implementation of the program will only restrict certain land and water uses in parts of the Lake Superior and Lake Michigan coasts of Wisconsin while promoting and encouraging development and use activities in other parts. This program, like any expression of public policy, may provide an improved decision-making process for determining coastal land and water uses and siting of facilities of national interest and will lead to increased long-term protection of and benefit for the State's coastal resources. 4. Alternatives considered: All alternatives would involve a decision by the Secretary of Commerce to delay or deny approval of the Wisconsin Coastal Management Program. Delay or denial of approval of the Program could come under the following conditions (1) If State authorities proposed to implement the program are not broad enough to address the full range of concerns expressed in Sections 302 and 303 of the Coastal Zone Management Act. (2) If the State lacks the organizational arrangements and authorities necessary to enforce the State Program policies and resolve conflict. (3) If the State has not completed an inventory and designation of areas of particular concern (GAPC's) within the coastal zone as well as establish broad guidelines on priorities of uses within those areas. The State options center on responding to the conditions for delay or denial. The State, therefore, could: (1) withdraw approval application and continue to manage the coastal area under existing State laws and management systems, (2) amend its management program to overcome the deficiencies for Federal approval. ii . 5. List of all Federal, State and local agencies and other parties from which comments have been requested. Federal Agencies Advisory Council on Historic Preservation Department of Agriculture: Forest Service Soil Conservation Service Department of Commerce: Economic Development Administration Maritime Administration National Oceanic and Atmospheric Administration Department of Defense: Department of the Air Force Department of the Army: Army Corps of Engineers Natural Resources Branch Department of the Navy Department of Health, Education and Welfare: Office of Assistant Secretary for Administration and Management Office of Planning Systems Department of Housing and Urban Development: Office of Community Planning and Programs Office of Environmental Quality State and Regional Agencies and Local Governments in Wisconsin and the Great Lakes Department of the Interior: Bureau of Land Management Office of Policy Analysis Department of Justice: Marine Resources Division Pollution Control Section Department of Labor Department of Transportation Department of the Treasury Energy Research and Development Administration: Assistant Administrator for Environment and Safety Division of Biomedical and Environment Research Environmental Protection Agency: Marine Protection Branch Office of Federal Activities Federal Energy Administration Federal Highway Administration Federal Power Commission General Services Administration Nuclear Regulatory Commission Department of Administration Department of Agriculture Department of Business Development Department of Health & Social Services Department of Local Affairs & Development Department of Military Affairs Department of Natural Resources Department of Revenue Department of Transportation Educational Communications Board Historical Society Investment Board Public Service Commission Board of Regents - University of Wisconsin Board of Soil and Water Conservation Districts Board of Vocational, Technical, and Adult Education Wisconsin Congressional Delegation Each of the coastal state legislators Each of the 104 coastal towns, villages, cities and counties State Depository Libraries Legislative Reference Bureau iii Local Public Libraries located in the 15 coastal counties Members of the Coastal Manage- ment Council Members of the Coastal Citizens Advisory Committee Members of the Coastal Program Regional Task Forces Bay-Lake Regional Planning Commission Northwest Regional Planning Commission Southeastern Wisconsin Regional Planning Commission Green Bay/Brown County Planning Commission Coastal Program Administrators in the Great Lakes states Great Lakes Basin Commission National Special Interest Groups (*means also sent to Wisconsin chapter) American Association of Port Authorities American Farm Bureau Federation American Fisheries Society American Institute of Architects * American Institute of Planners* American Littorial Society American Mining Congress American National Cattlemen's Association American Petroleum Institute American Right of Way Institute American Shore and Beach Protection American Society of Planning Officials American Waterways Operators Atlantic States Marine Fisheries Institute Atomic Industrial Forum Boating Industry Association Chamber of Commerce of the U.S.* Coastal Society Coastal States Organization Conservation Foundation Council of State Planning Agencies Cousteau Society Edison Electric Institute Environmental Defense Fund, Inc. Environmental Policy Center Friends of the Earth* Izaak Walton League* Lake Michigan Federation League of Women Voters of the U.S.* Marine Mannal Commission Marine Technology Society Mortgage Bankers Association of America National Association of Conservation Districts National Association of Counties National Association of Electric Companies National Association of Engine & Boat Manufacturers National Association of Home Builders National Association of Realtors National Association of Regional Councils National Association of State Boating Law Administrators National Audubon Society* National Boating Federation National Canners Association National Coalition for Marine Conservation, Inc. National Commission on Marine Policy National Conference of State Legislators National Environmental Development Association National Farmers Union IV. National Federation of Fishermen National Fisheries Institute National Forest Products National Governors Conference National League of Cities National Ocean Industries Association National Parks and Conservation Association National Recreation and Parks Association National Science Foundation National Science Teachers Association National Waterways Conference National Wildlife Federation* National Resources Defense Council Nature Conservancy* Sierra Club* Society of Real Estate Appraisers Soil Conservation Society of America Sport Fishing Institute United Brotherhood of Carpenters and Joiners of America U.S. Conference of Mayors Western Oil and Gas Association Wilderness Society Wildlife Society Wildlife Management Institute World Dredging Association Wisconsin Special Interest Groups (names on file at the Council for Environmental Quality; the following received notice of DEIS avail- ability) All registrants at May- June 1977 Wisconsin public hearings Wisconsin coastal port directors and ferry operators Coastal Soil and Water Conservation District chairmen 37 industrial development corporations in coastal counties 10 realtors associations in coastal counties 38 sport trollers-random sample from 76 DNR licenses 23 county and local historical societies 205 associations listed in the Wisconsin Blue Book (mostly business, special interest, and professional) 20 farm bureaus in coastal counties 27 local Chambers of Commerce 166 sportsmens clubs in Wisconsin coastal counties 20 members of the Conservation Congress 71 commercial fishermen picked by random sample from DNR licenses 34 local and statewide environmental and public interest groups 10 hospitality industry groups 77 coastal clubs of the Federation of Women's Clubs of Wisconsin 19 League of Women Voters in each coastal county League of Suburban Municipalities Wisconsin Suburban League Common Cause of Wisconsin Native American Studies Program, UW-Milwaukee Institute for Environmental Studies, UW-Madison Members of DNR Environmental Advisory Committee Members of DNR Wild Resources Advisory Council Former Members of the Wisconsin Environmental Council University of Minnesota-Duluth Sea Grant City Management Association Wisconsin Alliance of Cities, Inc. 6. This draft environmental impact statement was transmitted to the Council on Environmental Quality, and notice of availability to the public was pub- lished in the Federal Register on October 21, 19 77. TABLE OF CONTENTS Page INTRODUCTION FOR READERS Inside Cover SUMMARY i TABLE OF CONTENTS v LIST OF TABLES AND FIGURES v iii GOVERNOR' S SUBMITTAL LETTER i x PART I INTRODUCTION A. The Federal Coastal Zone Management Program . 1 B. OCZM Requirements for Section 306 Program Approval 4 C. National Environmental Policy Act of 1969 Requirements 6 D. Summary of Wisconsin's Coastal Management Program 7 PART II DESCRIPTION OF THE PROPOSED ACTION (The Wisconsin Coastal Management Program to be Approved) Chapter I. Coastal Issues and Policies and the Coastal Management Program 11 A. Introduction 11 B. Coastal Management Goal and Program Objectives 13 C. Coastal Issues and State Coastal Policies 19 1. Coastal water and air quality ^0 2. Coastal natural areas, wildlife habitat and fisheries 24 3. Coastal erosion and flood hazard areas 29 4. Community development 32 5 . Economic development 36 6. Government interrelationships 41 7 . Public involvement 44 Chapter II. Implementing a Coastal Management Pro- gram in Wisconsin 73 A . Overview 73 B. Managing Key Coastal Resources and Development Activities 77 1. Geographic areas of management concern 77 2. Land and water uses of management concern 87 3. Program boundaries . 104 VI. Page C. Organization for Implementation of the Coastal Management Program 105 1 . Overview 105 2. New functions to be address at the state level 106 3. A new Wisconsin Coastal Manage- ment Council 108 4. Roles of existing governmental agencies 117 5. Conflict resolution 117 6. Public participation in imple- mentation of the program 121 D. Program Funding 125 1 . Overview 125 2 . Funding sources 128 3. Eligible funded activities and recipients 130 4. Standards for project funding 135 5. Application review process 136 6. Reporting and evaluation 139 Chapter III. Federal Government Activities in the Coastal Area A. Overview 141 B. The National Interest in the Wisconsin Coastal Area 142 C. Federal Consistency — Federal Activities, Development Projects, Grants and Financial Assistance 149 D. Federal Consistency — Issuing Licenses and Permits 150 E. Reviewing Federal Plans 152 F. Tribal Governments 153 G. Summary 154 Chapter IV. Conclusions 155 PART III ENVIRONMENTAL IMPACTS A. Description of the Proposed Action 157 B. Description of the Environment Affected .... 157 C. Probable Impacts of the Proposed Action .... 164 D. Alternatives to the Proposed Action 183 E. Probable Adverse Environmental and Economic Effects of the Program Which Cannot be Avoided 192 F. The Relationship Between Local, Short- term Uses of the Environment and the Maintenance and Enhancement of Long- term Productivity 194 G. Irretrievable or Irreversible Commitments of Resources from the Proposed Action 194 H. Consultation and Coordination on the Program and the EIS 195 PART IV APPENDICES Vll Page Appendix A. Appendix B. Appendix C. Appendix D. Appendix E. Appendix F. Appendix G. Appendix H. Appendix I. Glossary of Terms 201 Constitutional Provisions, Statutes, Codes, Executive Orders, Attorney General Opinions and Cases Cited in Program Proposal 207 Lists of Participants 233 History of Program Development .... 243 Public Participation in Program Development 249 Regional Coastal Problem Statements 315 Bibliography 327 Legal Authority for Implementation 339 Federal Consultation 465 VX11. LIST OF TABLES AND FIGURES Page Table 1 OCZM Requirements for Section 306 Program Approval and the Wisconsin Program Proposal 4 Table 2 National Environmental Policy Act of 1969 Requirements 6 Table 3 Coastal Issues, Policies, and Related GAMC's and Managed Uses ^6 Table 4 Council Make-up and Method of Selection *-■*-•> Table 5 Constitutional Provisions, Statutes, Codes Executive Orders, Attorney General Opinions and Cases Cited in Program Proposal 207 Table 6 Information on Local Land Use Programs in the Coastal Area 395 Table 7 Processes to Assure Consistency of Managed Uses through WEPA and Other Reviews 197 Figure 1 Map Wisconsin Coastal Counties -»-" STATK OF WISCONSIN i* OFFICK OF i in; (iOYKKNOK MADISON. ."W702 MARTIN J. H IIUKIIU.lt August 12, 1977 Dr. Robert W. Knecht Acting Associate Administrator for Coastal Zone Management National Oceanic and Atmospheric Administration U.S. Department of Commerce 3300 Whitehaven Street, N.W Washington, D.C. 20235 Dear Dr. Knecht I am pleased to transmit, under separate cover, forty copies of the State of Wisconsin's coastal management program. This document reflects the current status of coastal management in the State of Wisconsin and projects future endeavors in this field. The program relies heavily on existing strong management programs for implementation and reflects the state's outstanding tradition of natural resource management. The thrust of this proposal is to improve the existing comprehensive system of coastal management in Wisconsin through improved coordination, more efficient and effective implementation, increased public participation and public education, strengthened local capabilities, and a new advo- cacy of the unique concerns of our coastal environment. The enthusiasm and commitment brought to the development of this proposal has been extraordinarily high. A Coastal Coordinating and Advisory Council appointed in 1974 served with distinction in preparing recommendations for my consideration. The level of participation by state agencies, local governments, regional planning commissions, Tribal governments, and the public has been exemplary. This proposal clearly reflects a broad consensus as to what will be best for the future of coastal management efforts in Wisconsin. We firmly believe that this document represents a process which meets and exceeds the programmatic requirements for states under the Coastal Zone Management Act of 1972. I, therefore, request that you examine this document and grant approval under the terms of Section 306 of the Coastal Zone Management Act. Dr. Robert W. Knecht -2- August 12, 1977 X, I have reviewed the Wisconsin coastal management program, and, as Governor, approve the program and certify the following: 1. The state has the required authorities and is presently implementing the coastal management program; 2. The state will establish and operate, prior to your formal approval, the necessary organizational structure to fully implement the coastal zone management program, as is more particularly described in the submittal document; 3. The Office of State Planning and Energy, Department of Administration, is the single designated agency to receive and administer grants for implementing the coastal manage- ment program, and is hereby designated as the lead agency for the implementation of the coastal management program; 4. The state, in concert with local governments, has the authority to control land and water uses, control develop- ment, and resolve conflicts among competing uses; 5. The state presently uses the methods listed in Section 306(e)(1) of the Coastal Zone Management Act for controlling land and water uses in the coastal zone, including: (a) direct state management authority for those uses and activities which directly and significantly impact upon the coastal environ- ment; (b) state criteria and standards for local shoreland and floodplain zoning, with state administrative review and enforcement capabilities; (c) direct state management of geographic areas of statewide management concern; and (d) state administrative review of local management of other designated areas of management concern; 6. The state has sufficient pov/ers to acquire lands, should that become desirable or necessary under elements of the coastal management program; 7. Those state laws cited in the program have been passed by the legislature and enacted into law; administrative regula- tions required to implement the laws have been formally adopted by the responsible state agencies; and the executive order establishing the Coastal Management Council will be duly issued by this office prior to your formal approval; 8. The state's air and water pollution control programs, established pursuant to the Federal Water Pollution Control Act of 1972 and the Federal Clean Air Act, insofar as those programs pertain to the coastal area, are hereby made a part of the state's coastal management program. The regula- tions appurtenant to the air and water programs are in- corporated into this program and shall become the air and Dr. Robert W. Knecht 3- August 12, 1977 XI water pollution control requirements applicable to the state's coastal management program. Further, any additional requirements and amendments to air and water pollution programs shall also become part of the state's coastal management program; and 9. I further certify that the Wisconsin coastal management program is now an official program of the State of Wisconsin and the state, acting by and through its several instrumental- ities, will strive to meet the intent of the Coastal Zone Management Act of 19 72, and the state's corollary laws; and to do so in a uniform, cooperative and aggressive spirit. We trust that you will approve our program in an expeditious manner, and we will gladly assist in whatever way we can during your review procedure. We look forward to a continued cooperative relationship through the administration of the coastal zone management program. Please contact Mr. Allen II. Miller, Program Administrator, Office of State Planning and Energy if you have any questions or need any assistance . Yours very truly, MARTIN SCIIREIBER MJS: jdo Xll. INTRODUCTION COASTAL MANAGEMENT PART I INTRODUCTION A. The Federal Coastal Zone Management Program In response to the intense pressures upon, and because of the importance of the coastal zone of the United States, Congress passed the Coastal Zone Management Act (P. L. 92-583) which was signed into law on October 27, 1972. The Act authorized a Federal grant-in-aid program to be ad- ministered by the Secretary of Commerce, who in turn delegated this responsibility to the National Oceanic and Atmospheric Administration's (NOAA) Office of Coastal Zone Management (OCZM) . The Coastal Zone Management Act of 1972 developed from a series of studies on the coastal zone and its resources. National interest can be traced from the Committee on Oceanography of the National Academy of Sciences (NASCO) 12-volume report "Oceanography 1960-1970" (1959), to the report of the Commission on Marine Science, Engineering and Resources (1969) , which proposed a Coastal Management Act that would "provide policy ob- jectives for the coastal zone and authorize Federal grant-in-aid to facilitate the establishment of State Coastal Zone Authorities empowered to manage the coastal waters and adjacent land." The National Estuarine Pollution Study (1969), authorized by the Clean Water Restoration Act of 1966 and the National Estuary Study authorized by the Estuarine Areas Study Act of 1968 further documented the importance of and the conflicting demands upon our Nation's coast. These reports stressed the need to pro- tect and wisely use the important national resources contained in the coastal zone and concurred that a program designed to promote the rational protection and management of our coastal zone was necessary. The Coastal Zone Management Act of 1972 was substantially amended on July 26, 1976 (P. L. 94-370). The Act and the 1976 amendments will be referred to in this statement as the CZMA. The CZMA affirms a national interest in the effective protection and development of the coastal zone, by providing assistance and encouragement to coastal States to develop and implement rational programs for managing their coastal zones. The CZMA opens by stating "(t)here is a national interest in the effective management, beneficial use, protection, and development of the coastal zone" (Section 302(a)). The statement of Congressional findings goes on to describe how competition for the utilization of coastal resources, brought on by the increased demands of population growth and economic expansion, has led to the degradation of the coastal environment, including the "loss of living marine resources, wildlife, nutrient-rich areas, permanent and adverse changes to ecolog- ical systems, decreasing open space for public use, and shoreline ero- sion." The CZMA then states "(t)he key to more effective protection and use of the land and water resources of the coastal zone is to en- courage states to exercise their full authority over the land and waters in the coastal zone by assisting states... in developing land and water use programs. . .for dealing with (coastal) land and water use decisions of more than local significance" (Section 302(h)). While local governments and Federal agencies are required to cooperate and participate in the development of management programs, the State level of government is given the central role and responsibility for this process. Financial assistance grants are authorized by the CZMA to provide States with the means of achieving these objectives and policies. Under Section 305, thirty coastal States which border on the Atlantic or Pacific Oceans, Gulf of Mexico, and the Great Lakes, and four U.S. territories are eligible to receive grants from NOAA for 80 percent of the costs of developing coastal management programs. Broad guidelines and the basic requirements of the CZMA provide the necessary direction for developing these programs. The updated guide- lines defining the procedures by which States can qualify to receive development grants under Section 305 of the CZMA, and the policies for development of a State management program, were published on April 29, 1977 (15 CFR Part 920, Federal Register 42 (83): 22036-22053). For example, during the program development, each State must address speci- fic issues such as the boundaries of its coastal zone; geographic areas of particular concern; permissible and priority land and water uses including specifically those that are undesirable or of lower priority; and areas for preservation or restoration. During the planning process the State is directed to consult with local governments, regional agencies and relevant Federal agencies, as well as the general public. Federal support can be provided to States for up to four years for this program development phase. After developing a management program, the State may submit its coastal management program to the Secretary of Commerce for approval; if approved, the State is then eligible for annual grants under Section 306 to ad- minister its management program. If a program has deficiencies which can be remedied or has not received Secretarial approval by the time the Section 305 grant has expired, the State is eligible for additional funding under Section 305(d). On January 9, 1975, OCZM published criteria to be used for approving State coastal management programs and guidelines for program admin- istrative grants (15 CFR Part 923, Federal Register 40 (6): 1683-1695). These criteria and guidelines set forth (a) the standards to be utilized by the Secretary of Commerce in reviewing and approving coastal manage- ment programs developed and submitted by coastal States for approval (see Section B, Part I), (b) procedures by which coastal States may qualify to receive program administrative grants, and (c) policies for the administration by coastal States of approved coastal management programs. Section 308 establishes a coastal impact assistance program consisting of: - Annual formula grants (100% Federal share) to coastal States, based upon specific outer Continental Shelf (OCS) energy activity criteria (Section 308(b)). - Planning grants (80% Federal share) to study and plan for economic, social, and environmental consequences resulting from new or expanded energy facilities (Section 308(c)). - Loans or bond guarantees to States and local governments improved public facilities and services required as a result of new or expanded coastal energy activity (Sections 308(d)(1) and (d) (2)). - Grants to coastal States or local governments if they are unable to meet obligations under a loan or guarantee because the energy activity and associated employment and population do not generate sufficient tax revenues (Section 308(d)(3)). - Grants to coastal States if such States' coastal zone suffers any unavoidable loss of valuable environmental or recreational resources which results from coastal energy activity (Section 308(b) and (d) (4)). In order to be eligible for assistance under Section 308, coastal States must be receiving Section 305 or 306 grants, or, in the Secretary's view be developing a management program consistent with the policies and ob- jectives contained in Section 303 of the CZMA. Section 309 allows the Secretary to make grants (90% Federal share) to States to coordinate, study, plan, and implement interstate coastal management programs . Section 310 allows the Secretary to conduct a program of research, study, and training to support State management programs. The Secretary may also make grants (80% Federal share) to States to carry out research studies and training required to support their programs. Section 315 authorizes grants (50% Federal share) to States to acquire lands for access to beaches and other public coastal areas of environ- mental, recreational, historical, aesthetic, ecological, or cultural value, and for the preservation of islands, in addition to the estuarine sanctuary program to preserve a representative series of undisturbed estuarine areas for long-term scientific and educational purposes. Besides the financial assistance incentive for State participation, CZMA stipulates that Federal activities affecting the coastal zone shall be, to the maximum extent practicable, consistent with approved State management programs (the "Federal consistency" requirement, Section 307(c)(1) and (2)). Section 307 further provides for mediation by the Secretary of Commerce when serious disagreement arises between a Federal agency and a State with respect to the administration of a State's program and shall re- quire public hearings in concerned locality. 3 > cd o X Pi 4-» Pm Si O 4-J rH CO > e> O o hJ 5h tm <£ a Ph CX) a o CO vD PM O o b CO Pi CO Ph 5h 53 00 o /— N s o H rH cr o O 0) u • 2 e PQ The following table relates the OCZ Wisconsin coastal management progra CO CD CO Ph > X H -H +J 3 5h CD co a Pm O- 4J u CO Pm 3 o •H 4-) CJ CD CX) CO ■U #t s CO 0) CM e CJs 0) u 4-1 •H 5h 3 CO CT Ph CD Pi Pi Ph S o N CJ m o H Pm H m m CO m\ Ln |-» CM ^D CN m CN st <* i— i t— i ex) r^ r-. .-M r*» CTi pq • M • rH < Pd M M #\ o Pd CO CN .—l i-M • • • « • < PQ PQ PQ PQ • • • • • H M M rH M M M M M M 1-4 o m I— 1 m o- CO #t m o o OA i— i vO X < PQ PQ • • • • M H r-4 M M M rH CD CD CD M M Pd Pd e 6 e PC Pd 5-1 •H •H •H CD 4-1 4-) 4-) 4-> CO CO CO CD •H •H •H r- 1 ,3 rC 42 4-1 +J 4J rH CO 4_l 4-1 4J 4-1 CO CO CO +J -3 T3 T3 *y CD CD CD ■8 u 5-i 5-1 • •H •H •H • CO CD 3 3 3 TJ • • cr cr cr • i-H CM CD u • • 4-) 4-1 4-1 • • • H rH o O o M M IH rH rH S3 53 53 M M M 3 CO CO 3 4-1 O £ •H CD a CD •H cO UH u M 4J e cd CO 4-1 > O 4J >^ CJ CO s c p •H 5-1 3 o 4J CJ CD CO r-l cn CD CO 00 O CO 3 •n CD cu CU IH CO CD 3 u CD CD Xi CO X O o CD CD CO •H 00 CO CD B 00 o CO id X u P 3 3 CD P 5m cO •H 0} B P 3 M CO 3 O 3 IH CO o 3 CXI 4J CX) CD H CJ Pm CD O •H O CD CD >■» •H •H T3 3 3 5M •H 5m •H 4J •H 3 CJ •U CO 4-» 3 rH CD MM CO rH CD 4-1 3 CD 4-1 cO 4-1 CD CJ •H o 5-i cO cfl B O CO CO •M u O 4-1 CO CO 5-4 CO PQ < rH 5m CD 3 CD M 4-J cO CO 3 CD 3 O rH •H W X X> O 00 3 id CO E2 Pm CO rH •H 00 4-1 3 rH 4-J O W 3 •H CO O VI CD CD CD 4J •H CO 00 CO 3 CO CD cO 4-J 3 •H CO g •H T3 MM 3 rH •H CO CD CD 3 o Pm 3 <4M ►J CO cO 4-> e 3 u (d O •H CO rH CD Pi Pi O 5m •H O N S CO CD o CO CO rH 3 •H P •H Mm s*. rH 5m •H 3 rH u -a CO CD O CJ 13 rH CO CD 00 CD CO CD 3 CD 00 X •H 3 T3 CO T3 •H CO cO 3 cO CD 5-i 5m 5m 3 > cO m3 •H O > 3 C CD •H 4-J Pm CD cO CJ Pi O CD O cO O 00 4-1 CO 5m c O cO U 3 CO 5m o rC 3 r3 CD 5m CD Pm w PQ hJ < O 53 < rJ C/J W C/3 S O P XI i— i CM CO •o- m v£> r-~ CX) C^ O ^M CM CO - vO o m r-n CM #\ LT) CO r- c^ CO ■— I CM i— i CM X •H CO CM X SB PC PO M M o w PQ rH M >-i (1) 4-> 4-J 0) • H H H H H CO • • 4-J CM A B • • * rQ H H M 3 H M rH CO o CO 3 CU o •H e T3 •H T3 T3 CO 3 4-J IC o M rH cfl 4-> •H CO pa bO CO CO (C CO O > 4-t M3 CU •H n3 4-1 5-1 o 5-i 3 a e 3 3 3 Ph 3 >-i cu CU cO P. cr cO CO O P. 4-1 g rJ O CJ ►J > 4-1 •H P CO CU rH <3 cu 3 4-1 -t CU 14-4 H cu CO •H >> O CU g 3 -a TJ 3 4-1 CU co 4-1 erf CU •H 3 3 cr CO p 4-1 *-4 rH 00 'O cO CO cu •H o CU o ^ cO 5-4 60 Pi 3 rH •H P. rH ,Q 3 O 3 £ u •H O rH o 4-J cO O •H CU •H rH e u <4-l u 3 a S CJ 3 •H 5-4 < a O cj •H M-l T3 cO cu 14-1 4-J o c_> u 4-1 O 3 rH CO PS O 3 o u o J-l CO CO Ph 00 O 4-1 cu 14-1 o P 3 3 rH >-, O A > 4h CO •H O 3 5h •H cO 4-J CO cu tH CO cu a •H O CU 1-4 •H •H 3 CU CO O CU co co •H 4-1 •H Xi CO 5-1 rH O •H 3D CO •H cu i=> 4-1 p. 4-t 4-> CU O •H «H 4-» CU 4-J 3 5-i o CO o CC 4-1 X 4-) •H J-i Pi •H cr 5h CO TJ 4-) CO CO 3 U CU 5h •H cu Ph < rH .3 a 3 O rH O 4-1 TJ O (C 4-1 3 4-1 •H 5-i •H rH X! CO c .a rC CO rH 3 CO •H H CU rH O 4-1 J3f CO 4-1 o & rH •H 3 > rQ XI P. Ph 3 3 cu 3 O 3 3 ^ Ph O <3 CO m CO CO CM m CM m m C. National Environmental Policy Act of 1969 Requirements On January 1, 1970, the President signed into law the National Environ- mental Policy Act (NEPA) which required each Federal agency to prepare a statement of environmental impact in advance of each major action that may significantly affect the quality of the human environment. An environmental impact statement (EIS) must assess potential environ- mental impacts of such action. To comply with NEPA's requirement of preparing an EIS, OCZM has com- bined the State's coastal management program (federal approval of which is the proposed action) with a discussion of the environmental impacts. The CZMA is based upon the premise that the environmental aspects of the coastal management program should receive significant consideration in the development of State programs. Therefore, as you read this EIS, you should be aware that the State coastal manage- ment program is the core document included in its entirety supple- mented by the requirements of NEPA, Section 102(2) (c). For reviewers more familiar with the NEPA requirement for contents of an EIS, below is an index of where you will find this information. TABLE 2 Description of the proposed action 11-156 Description of the environment affected 157 Relationship of the proposed action to land use plans, policies, and controls for the affected area 19-71, 196 Probable impact of the proposed action on the environment -*-"^ Alternatives to the proposed action 1°3 Probable adverse environmental effects which cannot be avoided 192 Relationship between local short-term uses of man's environment and the maintenance and enhancement of long-term productivity -^ Irreversible and irretrievable commitments of resources that would be involved in the pro- posed action should it be implemented ^°^ An indication of what other interests and considerations of Federal policy are thought to offset the adverse environmental effects of the proposed action 17 , 142-149 As provided in the Revised Guidelines for the Implementation of the Wisconsin Environmental Act of 1972, issued by Wisconsin Executive Order No. 26, only one draft and one final environmental impact statement will be prepared to comply with the National and Wisconsin Environmental Policy Acts (NEPA and WEPA) . D. SUMMARY OF WISCONSIN'S COASTAL MANAGEMENT PROGRAM COASTAL ISSUES Wisconsin borders two of the largest bodies of freshwater in the world — Lake Michigan and Lake Superior. The 620 miles of shoreline and the 6.5 million acres of Great Lakes in the state carry not only advantages, but responsibilities and problems as well. The coastal issues facing citizens and their state and local govern- ment are many and diverse: - Water quality - Lake level regulation - Shore erosion - Great Lakes fisheries - Protection of - Urban shore uses natural areas - Economic development - Public recrea- - Power plant siting tional access - Shoreland blight - Port development - Air quality The Great Lakes are important to all Wisconsin citizens. The 43% of the state's population that lives adjacent to the Great Lakes especially looks to them for food, fresh water, transportation, industry, jobs, and recreation. No single state or local group looks at the coasts and the Great Lakes and provides a clear overall policy direction for their future. No existing agency coordinates the many programs which address the many Great Lakes coastal issues. OBJECTIVES The Coastal Management Program is based on the following concepts: - The Great Lakes are a major local, state, and federal resource - Improved management and coordination are the most important needs - Existing laws provide adequate authority to manage the resource - No new regulatory agency is needed. The overall goal of the Wisconsin Coastal Management Program is: To preserve, protect, develop and where possible, to restore or en- hance the resources of Wisconsin's coastal area for this and suc- ceeding generations , with governmental coordination and public in- volvement, giving due consideration to the linkages and impacts to resources of inland areas. Five objectives are proposed for the program: - Provide a strong voice to advocate the wise and balanced use of the coastal environment - Increase public awareness and opportunities for citizens to participate in decisions - Improve the coordination of existing policies and activities - Improve the implementation and enforcement of existing management policies - Strengthen local government capabilities to initiate or continue effec- tive coastal management. 8 IMPLEMENTATIO N The Coastal Program will focus management attention on key geographic areas and land and water uses. The program's efforts to improve coor- dination, implementation and local capabilities will be focused on these key areas and uses. The Coastal Management Program includes a process for identifying and designating key areas and uses and for providing program funding to improve their management. While this assistance will be made available to both state agencies and localities, participation by localities is voluntary. Working through existing agencies, the Coastal Management Program will stimulate improved management by providing technical and financial assistance. It should be emphasized that this is more than a planning program, al- though it is not a construction program. It is designed to aid and improve management activities, be it in a harbor, a park, an industrial area, an erosion hazard area, an historical site, or in or under lakes. ORGANIZATION To provide for a balance of the diverse interests involved, a new state level group will be established to make basic coastal program decisions. The 29-member Coastal Management Council will be composed of: - State legislators - Citizens - Local officials - Tribal governments - State agency representatives The Coastal Management Council will perform the specific functions of: - Policy development and recommendation of state coastal goals - Continued coastal advocacy and public education - Designation of key coastal areas and uses - Oversight of state agency implementation - Oversight of financial assistance - Oversight of technical assistance - Approval of program budget A separate, independently-staffed, 27-member Citizens Advisory Committee will be established with representation from a variety of coastal in- terests along the entire shoreline. Specific areas of concern for this group would include: - Monitoring initial implementation of a program - Public education and participation The role of the Council and the Committee will be annually evaluated to assess their continued value and need. FEDERAL ACTIVITIES In passing the Coastal Zone Management Act of 1972, Congress stated that the activities of federal agencies in the coastal area must to the maximum extent practicable be consistent with a state's approved coastal management program. This federal consistency provision offers two advantages should a Wisconsin program be approved: - State and federal governmental activities would be streamlined to offer greater clarity of various state and federal agency require- ments. - The state would have a greater voice in the activities of the federal government . CONCLUSION The Wisconsin Coastal Management Program Proposal has been developed after 3 years of public discussion. - It incorporates the public's desire for better use of existing laws and against the creation of a new regulatory agency. - It responds to the concerns of local officials who want to retain local decision-making as well as those who have local coastal problems that need assistance for resolution. - It provides a voice to express the issues that affect the state's Lake Superior and Lake Michigan coastal areas. - It provides much needed coordination of various government agencies. - It provides incentives to improve management of the coasts by state and local government. - It also provides citizens with an opportunity to be involved in decisions which affect the Great Lakes. 10 PART II DESCRIPTION OF THE PROPOSED ACTION ui o QL U (A < O o :.sr ' PART II: DESCRIPTION OF PROPOSED ACTION (The Wisconsin Coastal Management Program) Chapter, I. Coastal Issues and Policies and the Coastal Management Program A. Introduction Did you know that access to the Great Lakes is so limited that some vacationers wait two-three hours to launch their boats? That erosion is so severe in some areas that 50 feet of shore- line disappear in a single year? That in one city bordering the largest body of fresh water in the world, residents get their drinking water in bottles from the local store? These are the kinds of public issues that have been raised to dramatize the urgency of improving the management of our Great Lakes and their coasts. Not all problems are quite as dramatic as those cited above, but the public has expressed concern that there is no comprehensive approach taken in addressing Great Lakes issues. Citizens, local and state governments will con- tinue to work at cross purposes unless the future health of the Great Lakes is given a higher priority. Based on the public concern over a wide range of issues, this proposed program has been prepared as a means to improve manage- ment of coastal areas (land and water) having: special natural, recreational, scientific or historic value; areas especially suited for water-related economic development; or areas subject to erosion or flood hazard. The proposed program also addresses the need to give additional attention to the management of key uses which may have a direct and significant impact on the Great Lakes. 11 This chapter begins by setting out the state's overall coastal manage- ment goal and the five program objectives for reaching that goal (Sec- tion I.B.). The second section of this chapter sets out specific coastal issues in Wisconsin and the state's general policy, specific statements of state policy and coastal program activities on each of these issues (Section I.C.). Table 3, located immediately following this second section, summarizes the relationships between coastal issues, state policy, and program activities. 12 CO UJ > O HI CO o < DC O o cc a < O UJ 5 in O < < I- C0 < o o B. OVERALL COASTAL MANAGEMENT GOAL AND COASTAL MANAGEMENT PROGRAM OBJECTIVES 13 COASTAL MANAGEMENT GOAL To preserve, protect, develop and where possible, to restore or enhance, the resources of Wisconsin 's coastal area for this and succeeding generations, with governmental coordination and public involve- ment, giving due consideration to the linkages and impacts to resources of inland areas. This Coastal Management Goal is a statement of the overall purpose of the program proposed in this document. It expresses the beliefs of the Coordinating and Advisory Council that: (1) a balance must be achieved between conservation and development in Wisconsin's coastal areas; (2) this balance must consider coastal areas and inland areas as well, when those areas affect or are affected by the coasts; and (3) government and citizens must work together if such a balance is to be successfully achieved. COASTAL MANAGEMENT OBJECTIVES • To provide a strong voice to advocate the wise and balanced use of the coastal environment and the recognition in federal, state, and local policies of the uniqueness of the coastal environment; • To increase public awareness and opportunity for citizens to participate in decisions affecting the Great Lakes resources; • To improve the coordination of existing policies and activities of governmental units and planning agencies on matters affecting key coastal uses and areas; • To improve the imp lementation and enforcement of existing state regulatory and management policies and programs affecting key coastal uses and areas; • To strengthen local governmental capabilities to initiate and continue effective coastal management. 14 These five major objectives represent how the Coastal Management Program will seek to improve existing management of the Wiscon- sin coastal resources. The Coastal Management Council will care- fully select projects which solve specific coastal problems over the short term and which address gaps or weak points in existing management programs. The Coastal Management Council will thus seek to use limited federal and state funds to bring about improvements which do not impose long-term fiscal commitments on state or local government. This program should be viewed as complementary to existing state and federal programs, not as a substitute for them. The following paragraphs elaborate on the five Coastal Manage- ment Program objectives. Section C. explains how the Coastal Management Program, working through existing state and local management policies, will address the coastal issues of concern to Wisconsin. c COASTAL ADVOCACY D A state-level Coastal Management Council is proposed to provide a forum for discussion of coastal issues, addressing the need for human activity to be in harmony with the natural environment. This Council can use its advocacy role to focus attention of legislative bodies and managing agencies, whether federal, state, or local government, on coastal issues. It can become a voice for the greater common interest. Though many existing laws and programs treat them as such, the Great Lakes are not just any two of Wisconsin's 10,000 lakes. The Council can advocate that the Great Lakes are unique and deserve special attention in the allocation of finite state and federal resources. Such attention can take the form of policy recognition, improved enforcement of regulations, or closer scrutiny of those plans and programs which might have significant impacts on the coastal environment. ID INCREASE PUBLIC AWARENESS AND PARTICIPATION Perhaps the most valuable and long-lasting functions of this coastal management proposal would be to educate citizens and officials about Great Lakes issues and create an appreciation for the need to guide development to minimize future coastal problems. There is a need for a better understanding of the limits of the resource so that future options are seen in the light of that knowledge. Increased opportunities for citizen involvement early in the policy and decision-making process are equally important. Several such mechanisms are described in Section II. C, Organization, of this Proposal. | IMPROVE COORDINATION J The Coastal Management Program will provide mechanisms for improving coordination of existing state, regional, and local programs and policies that affect the Great Lakes resource. Coordination will take place through Coastal Management Council discussion, technical staff activities, and review and comment through state and regional clearinghouse processes and the National and Wisconsin Environmental Policy Acts. Additional mechanisms discussed in Section II. C. of this Proposal will provide oversight of state agency compliance and federal agency consistency with state coastal goals and policies. [ IMPROVE IMPLEMENTATION J The Coastal Management Program will focus on improvement of coastal management through better application of existing laws and programs. This will include identifying overlapping or conflicting agency functions, streamlining of regulatory pro- cesses, improved training of personnel, and providing other technical and financial assistance. Key geographic areas and key land and water uses will receive special efforts to improve management through a process of identification, designation, and development and implementation of specific management policies. This process can be initiated by state agencies, local units of government, and citizens through their local unit of government. Once designated, these areas and uses are eligible for program funding. 16 Several years from now, if existing regulatory programs — working at peak efficiency — still are not adequate to solve problems occurring along the Great Lakes, the Coastal Management Council might advocate new regulatory authority to the Wisconsin Legis- lature. c STRENGTHEN LOCAL CAPABILITIES ) The Coastal Management Program recognizes both state and local governmental roles in determining the future of the coastal area. While state government has a number of basic responsibilities such as stewardship of the public's interests in the waters of the state, local governments also have important responsibilities for the detailed management and planning of the coastal areas. This sharing of responsibilities suggests the need for a strength- ened state-local partnership for coastal management. Through a program of technical and financial assistance, the ability of local governments to address local coastal concerns can be enhanced. 17 The thrust of the goals and objectives of this proposal is to improve the quality of decision-making related to Wisconsin's Great Lakes resources. These goals are similar to the Congressional findings and policy of the Coastal Zone Management Act of 1972. As stated in Sec. 303 of the Act as amended, Congress set forth the following national policy: (a) to preserve, protect, develop, and where possible, to restore or enhance, the resources of the Nation's coastal zone for this and succeeding generations, (b) to encourage and assist the states to exercise effectively their responsibilities in the coastal zone through the develop- ment and implementation of management programs to achieve wise use of the land and water resources of the coastal zone giving full consideration to ecological, cultural, historic, and esthetic values as well as to needs for economic development, (c) for all Federal agencies engaged in programs affecting the coastal zone to cooperate and participate with state and local governments and regional agencies in effectuating the purpose of this title, and (d) to encourage the participation of the public, of Federal, state and local governments and of regional agencies in the development of coastal zone management programs. With respect to implementation of such management programs, it is the national policy to encourage cooperation among the various state and regional agencies, including establishment of inter- state and regional agreements, cooperative procedures, and joint action particularly regarding environmental programs. Congress further declared that in reaching this goal: The key to more effective protection and use of the land and water resources of the coastal zone is to encourage the states to exercise their full authority over the lands and waters in the coastal zone by assisting the states, in cooperation with Federal and local governments and other vitally affected in- terests, in developing land and water use programs for the coastal zone, including unified policies, criteria, standards, methods, and processes for dealing with land and water use decisions of more than local significance. Wisconsin's proposed coastal program seeks to assist the attainment of these goals in the Great Lakes region. The Great Lakes coastal area of Wisconsin is a valuable ecological, economic and aesthetic state resource, and Lakes Superior and Michigan and Green Bay are recognized as vast water resource reservoirs which benefit the state. There exists a need to understand the balance of the inherent potentials and natural limitations of these resources with the needs of society. There is a public and private need to maintain and revitalize the economic, ecological, historical and visual qualities of the coastal area. The responsibility for developing and maintaining this balance between developmental and conservation interests is shared by state and local elected and appointed officials, private citizens, business/industry and agriculture and public interest groups. To develop a well-balanced coastal management program, participation of these various interests must be assured. 18 en LU o o Q. CO < o o LU £ CO CO LU CO CO CO < o o 19 COASTAL ISSUES AND STATE COASTAL POLICIES This section examines coastal issues in Wisconsin, sets out state coastal policies, and indicates what the state's Coastal Management Program activities will be in that issue area. This discussion is grouped into seven general issue areas: (1) coastal water and air quality; (2) coastal natural areas, wildlife habitat, and fisheries; (3) erosion and flood hazard areas; (4) community development; (5) economic development; (6) govern- mental interrelationships; and (7) public involvement. There is a four part discussion for each of these seven issue areas. First there is a summary discussion of the issues and problems facing Wisconsin relative to that issue area. More detailed information on these points may be found in Part III A and Appendices E and F, as well as in numerous publications of the program (see Appendix G for a bibliography). Second , there is a general statement of state policy relative to that issue area. The third section sets out more specific state policies on the issues. It is important to remember that these policies are based on existing state policies and programs. Therefore, the reader should examine the sections of this pro- posal, particularly the sections on managed uses and "areas of management concern" in Chapter II that are cross-referenced following each specific policy statement. In Chapter II the reader will find specific statutory language, with precise definitions, qualifications and subtleties that may be lacking with these generalized policy statements. An even more detailed discussion of these points may be found in Appendix H, Part II. The fourth section of the discussion for each of the seven issue areas is very important. It sets out what the focus of the efforts of the Coastal Management Program will be. It states, generally in terms of the five program objectives set out in the previous section, what this program will add to existing state coastal programs. 20 I. COASTAL WATER AND AIR QUALITY a. Issues and Problems The Great Lakes are an extremely important and valuable natural resource. They contain approximately 20% of the world's fresh water. Lake Superior has the highest water quality of all the Great Lakes. With the exception of heavy pollution in the near shore area of its southern end, Lake Michigan also has very high water quality. Maintenance of this water quality is of very high concern to Wisconsin residents. Wisconsin's air quality, rel- ative to that of some parts of the country, is very good. Maintenance of this quality and improvement in certain areas is of concern to Wisconsin citizens. Specific water and air quality issues and problems include: 1. The Great Lakes are used for the disposal of industrial, shipping and municipal wastes. There is an increasing industrialization and urbanization of the coastal area. When pollution from non-point sources is added — such as agricultural runoff, runnoff from construction sites, sedimentation and shore erosion — future water quality becomes an even more acute problem. 2. More specifically, a serious water quality problem has emerged as toxic substances are increasingly showing up in the Great Lakes; consumption of lake trout is already restricted due to high PCB concentrations. The presence of DDT and heavy metals may also pose serious health hazards. 3. Another water quality problem is caused by inadequate or malfunctioning private waste disposal systems. Heavy residential use of septic systems has caused localized public health problems, leading to a need for careful location of private facilities. 4. A number of coastal communities rely on the Great Lakes for water supply. Poor water quality can make the water unsafe for consumption (as happened in part of the Minnesota area of Lake Superior with the Reserve Mining situation) . Increasing urbanization and industrialization threatens municipal water supplies. 5. The Great Lakes are also a significant recreational resource. High water quality, including its aesthetic qualities, must be maintained to allow recreational use of the waters to continue. Increased pollution and, in some areas, erosion and siltation have created problems in this regard. Note: Also see Issue Area 3, where shore erosion is dis- cussed and Issue Area 4 where shoreland alteration and shoreline recreation activities are discussed. 21 6. Wisconsin's primary air quality problem is interstate summer- time ozone concentrations along southern Lake Michigan. As industries and utilities switch from natural gas to petroleum or coal, additional problems with sulfur emissions are anticipated. (Also see Issue Area 5, Economic Development, for discussion of energy policies) . 7. A principal statewide air quality problem is the level of particulates suspended in the air. Localized air quality problems include excessive dust from gravel roads, agri- cultural or construction areas and fumes from traffic and some industries. 8. Another issue is the degree of interrelationship between air and water quality. It is estimated that up to 25% of the particles in the air will settle out or be washed by rain into the Great Lakes. Also, the relationship between noise and the natural, cultural and social environment needs to be examined . b. General Policy Statement 1.0 The state's policy on coastal water quality is to improve the quality and management of the waters of the coastal area; to restore the chemical, physical and biological integrity of its waters; to protect public health, safeguard aquatic life and scenic and ecological values; and to enhance the domestic, municipal, recreational, industrial, agricultural and other uses of water. The state policy on coastal air quality is be to improve the quality of the air resource through restricting any new air contaminant source and restricting the discharge of hazardous pollutants. c. Specific Policies 1.1 The elimination of the discharge of pollutants to water is the long-range goal of the state. (See Federal Water Pollution Control Act Amendments of 1972, P.L. 92-500 and Wis. Stats. Section 147 .01(1) (a)) . 1.2 An interim goal is the protection and propagation of fish and wildlife and the maintenance of water quality to allow re- creation in and on the water to be achieved by 1983. (See Wis. Stats. Section 147 .01(1) (b) ) . 1.3 Discharges of effluents, including industrial, municipal and agricultural wastes, into any waters of the state shall not be allowed if they exceed federal and state water quality standards. (See managed use #1 h, Wis. Stats. Sections 147.015(3) and 147.02. For effluent standards and limitations see Wis. Admin. Code NR 221 to 297). 1.4 Disposal in the waters of the state of the following defined pollutants shall be restricted: dredged spoil, solid waste, incinerator residue, sewage, garbage, refuse, radioactive sub- stance, wrecked or discarded equipment, rock, sand and cellar dirt. (See managed use #1 h and i, Wis. Stats. Sections 147.015(3), 147.02(1), 29.288 and 29.29). 22 1.5 Because of the importance of Lakes Superior and Michigan and Green Bay as vast water resource reservoirs, water quality standards for rivers emptying into these waters shall be as high as is practicable. (See managed use #1 h and Wis. Stats. Section 144.025). 1.6 Municipalities shall provide at a minimum, secondary treatment and effluent disinfection. (See managed use #2 d, 1972 P.L. 92-500 and Wis Stats. Section 147.04(3) (a) and Wis. Admin. Code NR 102.04). 1.7 Phosphorus removal from sewage shall be required in municipalities with 2,500 people or more that discharge treated water into Lakes Michigan and Superior and their tributaries. (See managed use #1 h and Wis. Admin. Code NR 102.04). 1.8 Sewer extensions shall be allowed only where adequate treatment capacity exists. (See managed use #2 d and Wis. Admin. Code NR 110.05). 1.9 Thermal discharges shall not raise the receiving water temper- atures more than 3 F above the existing natural temperature at the boundary of mixing zones. (See managed use #1 h and Wis. Admin. Code NR 102.05). 1.10 The discharge of toxic pollutants in toxic amounts shall be prohibited. (See managed use #1 h and Wis. Stats. Section 147.01(1) (c)). 1.11 Discharge of inorganic mercury compounds and metallic mercury to the waters of the state shall not exceed the background level by more than 0.05 pound per 1,000,000 gallons of effluent discharged. The maximum discharge shall be limited to 0.15 pound of mercury per day over a 30-day period and not more than 0.5 pound in any one day. (See managed use #1 h, Wis. Stats. Section 144.423 and Wis. Admin. Code NR 100.02). 1.12 The sale, distribution, storage, use and disposal of pesticides shall be regulated to protect the public from injury and wild animals from serious hazard. (See managed use #2 p, Wis. Stats. Sections 94.69 and 29.29(4)). 1.13 Lots not served by public sewer shall have a minimum average width of 100 ft. and a minimum area of 20,000 sq. ft. and, based on soil tests, area for one sewage absorption field and area for one replacement system. Septic tanks shall not be placed within 50 ft. of the ordinary highwater mark and 90% of the minimum lot area shall be above the regional flood elevation. (See managed use #2 e and 1, Wis. Stats. Chapter 236 and Wis. Admin. Code H622.20, and H65 and NR 115). 1.14 The state will establish, administer and maintain a safe drinking water program no less stringent than the requirements of the safe drinking water act of 1974, P.L. 93-523, 88 Stat. 1660. (See managed use #1 j and 2 o and Wis. Stats. Section 144.025(2)). 23 1.15 No new air contaminant source shall be permitted to be constructed, installed or established which directly or indirectly emits air contaminants that make the air injurious to health, harmful for commercial or recreational use or deleterious to fish, bird, animal or plant life, without complying with federal and state air quality standards. (Wisconsin Stats. Section 144.30 and .39 and Wis. Admin. Code NR 154 and 155). 1.16 Hazardous pollutants (including, but not limited to asbestos, beryllium, cadmium, chromium, chlorine, fluorine, lead, mercury, pesticides or radioactive material) shall not be discharged into the ambient air in such quantity, concentration or duration as to be injurious to human health and plant or animal life (unless the purpose of the emission is for the control of plant or animal life). (See managed use #2 n and Wis. Admin. Code NR 154 and 155). Coastal Program Activities 1.17 The Wisconsin Coastal Management Program will perform advocacy functions in monitoring and reviewing changes and additions in water and air quality programs and regulations which impact on coastal resources and people. 1.18 The Wisconsin Coastal Management Program will support public awareness and research of: (a) factors affecting Great Lakes water quality and supply, with emphasis on the trans-lake ship- ment of oil and other energy resources; (b) the unique climatic characteristics and limitations of coastal air resources; (c) air as a transmitter of pollutants to Great Lake waters", and (d) the impact of noise on the natural, cultural, and social environment. 1.19 The Wisconsin Coastal Management Program will encourage consider- ation of water, air and noise pollution in the development of plans and proposals for Coastal Program funding. 1.20 The Wisconsin Coastal Management Program will provide financial assistance to improve implementation and enforcement of existing water and air quality programs where gaps or weaknesses are identified, with emphasis on (a) on-site waste disposal; (b) disposal of hazardous substances; (c) disposal of dredge spoils; and (d) coordination and air quality monitoring. Note: As required by Section 307(f) of the Coastal Zone Manage- ment Act of 1972, the state's programs under the Federal Water Pollution Control Act, as amended, and the Clean Air Act, as amended, are incorporated into and made a part of this proposal. 24 II. COASTAL NATURAL AREAS, WILDLIFE HABITAT AND FISHERIES a. Issues and Problems 1. Coastal natural areas, which include forests, lakes, streams, swamps, bogs, and marshlands, are in an increasingly tenuous position. These areas, which also frequently serve as wild- life habitat, provide important benefits in and of themselves. The problem is particularly acute on Lake Michigan, where residential development and other intensive uses threaten to invade the few extensive natural areas left*. While relative to other coastal states, Wisconsin has few coastal wetlands, those that do exist face increasing pressures. The same pressures threaten some of the state's coastal farmlands. 2. Coastal vegetation and estuaries provide wildlife habitats that are increasingly threatened by similar pressures. 3. Great Lakes fisheries are also endangered. The presence of toxic substances such as PCB's in the water has already cur- tailed sport and commercial fishing. Control of sea lamprey, reintroduction of species, and establishment of a salmon stock are other important needs. Finally, protection of spawning areas for natural reproduction is necessary to assure the health and size of the fisheries. Note: The description of the coastal environmental resources and growth pressure is in Part III A. 25 b. General Policy Statement 2.0 The policy of the state is to conserve and enhance the natural land and water resources of the State by: a. Designating and managing special areas of the State, including scientific areas, state parks, state forests, and state wild- life areas, so as to protect and enhance fish and wildlife habitat, forest resources, lakes and streams, recreation resources, and endangered plant and animal species. b. Providing special management attention to the conservation and enhancement of Great Lakes fisheries resources, by con- ducting fish rearing, fish stocking, and fisheries research programs; by regulating sport and commercial fishing; by designating certain portions of the Great Lakes as fish habitat protection areas. (Also see Issues Area 1, where coastal water quality is discussed and Issue Area 4, where recreation is discussed.) c. Ensuring that the following activities that are engaged in or are subject to regulation by state agencies are conducted so as to minimize the destruction or degradation of coastal wetlands and to preserve the natural and beneficial values of coastal wetlands and the public interest therein. These activities include: 1) the acquisition, management and disposition of state lands and facilities; 2) construction activities assisted by or directly undertaken by state agencies; and 3) regulation of land and water uses in coastal wetland areas. c. Specific Policies 2.1 State scientific areas shall be designated for the purposes of scientific research, the teaching of conservation and natural history, and preservation of native plant and animal communities or individual members of these communities and archeological sites for the use of future generations. These areas shall be disturbed as little as possible and only in accordance with adopted standards. (See GAMC #1 and #5 and Wis. Stats. Section 23.27 and Wis. Admin. Code NR 45.23). 2.2 State parks are to be established for the public recreation and education. An area may qualify by reason of the area's scenery, its plants and wildlife or its historical, archeological or geological interest. These parks will be managed to protect these values and their most logical employment and greatest use- fulness. (See GAMC #1 and Wis. Stats. Section 27.01(1) and (2). Also see Issue Area 4, where the topic of recreational access is discussed) . 26 2.3 State forests shall be primarily used for silviculture and growing of recurring forest crops. Recognizing the value of multiple use, they can be designated also for preservation with natural areas receiving a high degree of protection or for recreation with appropriate facilities. (See GAMC #1 and #5 and Wis. Stats. Section 28.04). 2.4 Taxation of agricultural land and undeveloped land need not be uniform. Farmland shall be eligible for tax credits through an approved farmland preservation agreement between an owner and the Department of Agriculture, Trade and Consumer Protection if there is local adoption of approved farmland preservation plans and/or approved exclusive agricultural zoning ordinances meeting state standards. (See Article VIII, Sec. 1 of the Wis. Con- stitution, Wis. Stats. Section 71.09(11), and Chapter 91). 2.5 Hunting shall be prohibited in all state parks except for selective game management of deer. (See GAMC #1 and Wis. Admin. Code 10.27) 2.6 State wildlife areas shall be managed for wildlife habitat and public hunting. Fishery, forestry, wild resources and non- consumptive recreational objectives will be accommodated only when they do not detract significantly from the primary objectives of wildlife habitat and public hunting. (See GAMC #1 and #5 and Wis. Stats. Section 23.09(2) (d) (3) . 2.7 The sale, processing and distribution of fish, wildlife and plant life designated by the state and/or the U.S. as endangered, native and foreign species is prohibited. (See GAMC //l and #5, managed use #1 h and Wis. Admin. Code NR 27). 2.8 The state shall designate state trout streams and in these streams: (a) effluents and temperature changes shall not adversely affect trout populations and must meet dissolved oxygen levels and pH ranges. (b) dams, channel relocation and structures which impound water are prohibited. (c) bank stabilization to reduce erosion or siltation is supported. (See GAMC #1 and #5, Wis. Stats. Section 30.19 and Wis. Admin. Code NR 102). 2.9 State fish management areas shall be designated and managed to assure protection and perpetuation of all species, foster and promote the preservation of required habitat for all species, contribute to public health, safety and welfare, to assure the costs of management are borne by the primary beneficiaries, and to provide public access. (See GAMC #1 and #5 and Wis. Admin. Code NR 1.01). 27 2.10 State fish management easements shall provide public access for public fishing. The property owner retains the right to use the stream and land for domestic purposes (including stock watering, but only dumping incidental to normal agricultural or horti- cultural purposes) . A permit will be required in these areas for removal of trees, shrubs, altering topography and erecting new structures. (See GAMC #1 and #5 and Wis. Stats. Section 23.09(2) (d)). 2.11 The state shall create and maintain a sport fishery through pro- grams of fish breeding, rearing, and stocking, and resource research. (Wis. Stats. Section 23.09 and Wis. Admin. Code NR 1.01). 2.12 Sport and commercial fishing shall be regulated and commercial fishing shall be prohibited in designated state fish refuges. (See GAMC #1 and #5, managed use #1 k, Wis. Stats. Section 29.085, 29.14, 29.145, 29.166, 29.30, 29.33, and 29.36 and Wis Admin. Code NR 26.23) . 2.13 All counties shall adopt and administer shoreland management pro- grams for all unincorporated lands within 1,000 feet of a lake and 300 feet of a stream. At a minimum these programs shall include the following provisions. (1) All those shorelands shall be zoned and placed in appropriate districts. Land designated on U.S.G.S. quadrangle maps as swamps or marshes should be placed in conservancy districts. In these districts development should generally be limited to non- structural uses. Other limited activities may be allowed by special permit, but only if they are not contrary to main- tenance of safe and healthful conditions, prevention of water pollution, protection of fish spawning grounds and aquatic life and preservation of shore cover and natural beauty. (2) In all districts, tree cutting shall be limited in that area within 35 feet of the high water mark so that no more than 30 feet in any 100 feet are clear cut. (See managed use #2 m and Wis. Admin. Code NR 115). (3) In all districts, filling, grading, lagooning and dredging shall be permitted only in accord with state law and where protection against erosion, sedimentation and impairment of fish and aquatic life has been assured. (See managed use // 2 m and Wis. Admin Code NR 115). (4) Minimum lot sizes and building setbacks shall also be required. (See managed use #2 m and Wis. Admin. Code NR 115). d. Coastal Program Activities 2.14 The Wisconsin Coastal Management Program will support public awareness and education efforts tied to areas of significant natural and scientific value. 2.15 The Wisconsin Coastal Management Program will support the accelerated collection of data on soils, geology, hydrology, topography, and others where needed for coastal management decisions. 2.16 The Wisconsin Coastal Management Program will support local and state agency efforts to identify and designate areas of sig- nificant natural or scientific value and develop specific management policies for each area. 2.17 The Wisconsin Coastal Management Program will provide finan- cial and technical assistance to state and local agencies to implement the specific management policies for these desig- nated areas. 2.18 The Wisconsin Coastal Management Program will provide finan- cial assistance to improve the implementation and enforcement of existing programs which manage uses with a significant impact on the coastal environment where gaps or weaknesses are identified. (See II. B. 2). Particular attention would be given to Great Lakes fisheries resources, coastal wetlands, and other natural and scientific values. 29 III. COASTAL EROSION AND FLOOD HAZARD AREAS a. Issues and Problems Shore erosion has been a primary concern of many shoreline residents and governmental bodies owning property on the immediate shore- line, particularly during the recent period of high lake levels. There are also localized areas subject to serious flooding. Specific issues and problems include: 1. Wisconsin faces serious property damages due to shore erosion, particularly along southern Lake Michigan. A number of shore properties have suffered and are facing severe property damage. 2. Shore erosion and sedimentation can damage lake aesthetics, may damage fish habitat and may increase water treatment, and maintenance dredging costs. 3. Flooding is a serious concern along the west and south shores of Green Bay. In the past serious flooding has caused localized hazards to safety as well as property damage. Spring ice damage is of concern to shore property owners, particularly in Green Bay, who believe it causes property damage. Others advocate increased ice breaking to extend winter navigation. 4. Fluctuating lake levels remains a key concern of many Wisconsin coastal residents. While control of lake levels is beyond the reach of any state program (and can only be addressed in a limited sense by international bodies) , increased erosion during the recent period of high water was one of Wisconsin's most visible coastal problems. b. General Policy Statement 3.0 It is the state's policy to mitigate risks to public health and safety and risks of property damage in areas subject to natural hazards by: a. Providing that all development in areas subject to serious flooding will not materially alter the natural capacity of the lake or river so as to intensify the magnitude of floods., expose citizens to hazards, or cause future public expendi- tures for flood disaster relief. b. Regulating those earth moving, devegetation, and construction activities now reviewed by State agencies so as not to accelerate the rate of shoreline erosion or bluff recession. 30 c. Specific Policies 3.1 Counties, cities and villages shall adopt reasonable and effective flood plain zoning ordinances for those parts of their jurisdiction subject to serious flood damage. These ordinances shall provide that no buildings be constructed in floodways and that inconsistent development be prohibited in flood plains. (See managed use #2 b, Wis. Stats. Section 87.30 and Wis. Admin. Code NR 116). 3.2 Within unincorporated areas a setback of 75 ft. from the ordinary high water mark shall be required, unless an existing development pattern exists. (See managed use #2 b and m, Wis. Stats. Sec- tions 59.971 and 144.26, and Wis. Admin Code NR 115). 3.3 Solid waste disposal sites and facilities are prohibited in floodplains and within the jurisdiction of shoreland regulations. (See managed use #2 b, Wis. Stats. Section 144.045 and Wis. Admin. Code NR 115). 3.4 All new subdivision plats, buildings, structures, roads, sanitary or other facilities which are reviewed by state agencies and which are in existing and potential flood hazard areas shall be prevented from exposing citizens to unnecessary hazards or cause future pub- lic expenditures for flood disaster relief. (See managed uses #2 b and Executive Order No. 67). 3.5 Rip rap or other similar material for protecting stream banks or lake shore from erosion shall not materially impair navigation or damage fish and game habitat. (See managed uses #1 g and 2 b and Wis. Stats. Section 30.12(2) (b) ) . d. Coastal Program Activities 3.6 The Coastal Management Program will advocate and coordinate Wisconsin concerns about flood and erosion hazards with the Flood Insurance Administration of the U.S. Department of Housing and Urban Development and the U.S. Army Corps of Engineers. The Program will also examine and coordinate the study of the winter navigation issue. 3.7 The Coastal Management Program shall support research and public education on the dangers associated with these hazards in the form of technical analysis of data, and recommendations for structural and non-structral alternatives to alleviate erosion impacts, coordinating fully with the UW-Sea Grant College Program, the Wisconsin Geologic and Natural History Survey, the Department of Natural Resources, and Soil and Water Conservation Districts. 31 3.8 The Coastal Management Program will support local and state efforts to identify and designate hazard areas as areas of special management concern and develop specific management policies for each and will provide financial and technical assistance to local and state agencies to implement those policies for designated areas. 32 IV. COMMUNITY DEVELOPMENT a. Issues and Problems 1. Many communities along the Great Lakes are experiencing consid- erable growth. There is a need for balanced community growth to reduce wasteful sprawl development, assure the adequate pro- vision of community services and protect aesthetic values. The need is particularly strong in rural, largely undeveloped areas. 2. Many of the state's historic and cultural resources are located in the coastal area, the site of Native American settlement and much of the early exploration and settlement by Europeans. The increasing economic and physical development of the coastal area is threatening to alter or destroy areas of historic and archeo- logical significance; still other areas face continued decay as a result of neglect. 3. In some communities the waterfront suffers from safety hazards and blight due to obsolescent structures or waterfront deterior- ation. Flooding, storms, surface water pollution, and shoreland structures too costly to maintain contribute to this condition. Rarely are funds available for restoration of such areas. 4. Wisconsin's shoreline is increasingly used for recreation at unprecedented levels due to close proximity of population centers and to overcrowding of some inland lakes. Yet the Lakes Michigan and Superior coastlines are ill-prepared to handle this increase. The demand for public access to the lakes has outstripped the supply, especially in urban areas. There is a need for expanded and improved recreational facilities and services. 5. Community development frequently requires shoreland alteration, including dredging, filling, placement of structures (piers, erosion protection structures, etc.), grading of banks, and constructing canals, lagoons, lakes or the like. If not properly carried out, the activities can disturb water quality, disrupt fish and wildlife habitat, obstruct navigation, increase shore erosion rates, or contribute to increased flooding. b. General Policy Statement 4.0 The state's policy on coastal community development shall be to ensure the orderly and balanced development of coastal communities, giving full consideration to economic, ecological, human resource, cultural historic, recreational, and aesthetic values, and existing and future needs by: a. Requiring local ordinances that ensure the efficient use, conser- vation, development and protection of the state's coastal resoures in rural areas; 33 b. Ensuring that subdivisions are laid out in an orderly fashion, are properly surveyed, and make adequate, provision of public access to coastal waters; c. Ensuring that the state's significant historic, architectural and archeological resources are identified, recognized and pro- tected in all state activities and that efforts are undertaken to ameliorate any potential adverse effects caused by state action. d. Designating and aiding in the restoration of blighted waterfront areas so as to protect and enhance public safety, aesthetics, and economic well-being; e. Acquiring additional recreational lands in heavily populated areas of the state; and f. Ensuring that shoreland alterations are not detrimental to fish and wildlife habitat, navigation, flood flow capacity or the public interest . c. Specific Policies 4.1 All coastal counties shall adopt and enforce management programs for all unincorporated coastal shorelands. These programs shall: main- tain safe and healthful conditions; prevent and control water pollution; protect fish and aquatic life, particularly spawning grounds; control land uses, placement of structures, and building sites; reserve and protect shore cover; and protect natural beauty. (See managed use //2 m, Wis. Stats. Sections 59.971 and 144.26, and Wis. Admin. Code NR 115). 4.2 All subdivisions creating five or more lots of one and one-half acres or less within a five year period shall meet state standards on sur- veying, lot size and street width and connections and shall provide public access at not less than one-half mile intervals. (See managed use //2 1, Wis. Stats. Chapter 236, and Wis. Admin. Codes LAD 1, 2, H65, and Hy 33). 4.3 Grading or exposing top soil in excess of 10,000 sq. feet on the banks of any body of navigable water shall not be permitted if it contaminates or renders unclean or impure the air, land or waters of the state or makes the same injurious to public health or harmful for commercial or recreational use, is deleterious to fish, bird, animal or plant life or habitat, or materially injures the rights of riparian owners. (See managed use #2 a and Wis. Stats. Sections 30.19 and 144.30(a)). 4.4 The State Historical Society shall engage in a comprehensive program of historic preservation for the education, inspiration and enrichment of citizens. This program shall include preparation of a -state ■ historical plan, provision of technical assistance to local govern- ments, and conduct of a survey to identify and document historic prop- erties. (See GAMC's #1,5, and 6 and Wis. Stats. Section 44.22). 34 4.5 The state long-range public building program shall recognize the importance of historic properties and may include a program of preservation and restoration of those historic properties under state control. (See GAMC #1,5 and 6, managed use #2 f and Wis. Stats. Section 44.22). 4.6 The State Historical Society shall review and comment upon the actions of any state agency that may have an adverse effect upon historic properties, and shall seek the amelioration of any adverse effects. (See GAMC's #1, 5, 6 and Wis. Stats. Sections 1.11 and 44.22). 4.7 State aesthetic resources shall be protected and enhanced through the regulation of billboards, the screening of junkyards, the purchase of scenic easements, the development of parkways, and the establishment and operation of a Rustic Roads program. (See GAMC #6, managed use # 2 q, Wis. Stats. Sections 83.42, 84.09, 84.105, 84.30, and 84.31). 4.8 Public access of at least 60 feet in width shall be provided at not less than one-half mile intervals by all subdivisions abutting navigable lakes or streams. Once provided, public access to navigable waters shall not be discontinued without state approval. (See managed use // 2 1 and Wis. Stats. 80.41 and 236.16(3)). 4.9 The state shall establish a state park system and shall give principal emphasis to the acquisition of recreational lands in the heavily pop- ulated areas of the state and in places readily accessible to such areas. (See GAMC #1 and Wis. Stats. Sections 23.09 and 27.01 and Wis. Admin. Code NR 1.40. Also see Issue Area 2 for other discussion of state parks). 4.10 Local communities shall be encouraged to provide local recreational and educational opportunities through provision of state aids. (See GAMC #1 and Wis. Stats. Section 2 3.30). 4.11 Dredging, filling, placing structures upon, and removing materials from the bed of navigable waters shall not be allowed if it damages the public interest, is deleterious to fish or game habitat, materially obstructs navigation or reduces effective flood flow capacity. (See GAMC #2, managed uses la, b, f, and g and Wis. Stats. Sections 30.12 and 30.20). 4.12 Enlarging the course of a navigable water, constructing an artificial waterway, canal, ditch, lagoon, pond, lake or similar waterway or connecting an artificial waterway with an existing body of navigable water shall not be allowed if it damages the public's interest in the waters, is deleterious to fish or game habitat, materially obstructs navigation, or reduces effective flood flow capacity. (See managed uses #lc, d, and e and Wis. Stats. Section 30.19). 35 d. Coastal Program Activities Public preference, as measured in the fall 19 76 questionnaire ( Coastal Survey , 19 77) was that a major emphasis be placed on assist- ing local communities to resolve local coastal problems and evaluate coastal development. In this regard, the Coastal Management Program will focus on the objectives of public education, improving implemen- tation by a special designation of areas and uses, and assistance to local governments. 4.13 The Wisconsin Coastal Management Program will support public aware- ness and involvement in resolving local community coastal problems, with emphasis on the special needs of, or barriers to, low- income, elderly, handicapped, and minority groups in coastal plans and proposals 4.14 The Wisconsin Coastal Management Program will support local govern- mental efforts to identify and designate areas of significant natural, recreational, scientific, cultural, or historic value and develop specific management, preservation, or restoration policies for each area, with emphasis on recreation access and blight. This effort will be coordinated with the program referenced in policy 4.4. 4.15 The Wisconsin Coastal Management Program will provide financial assistance to local governments to implement the specific management policies of designated areas. 4.16 The Wisconsin Coastal Management Program will provide financial and technical assistance to local governments to improve their coastal management capabilities, with emphasis on staff training, ordinance revision, data collection and analysis, and county shoreland zoning. 36 V. ECONOMIC DEVELOPMENT a. Issues and Problems Economic conditions vary widely along Wisconsin's Great Lakes coasts. Despite an apparent recent upturn the Lake Superior area has generally been economically depressed, while economic growth has characterized the state's southern Lake Michigan area. The use of the Great Lakes as a transportation medium and as a recreational resource has a significant impact on the Wisconsin economy. (See Issue Area 4 for a discussion of the recreational access topic; also see Issue Area 2 for a discussion of sport and commercial fishing) . Specific economic development issues and problems include: 1. The counties bordering Lake Superior, characterized by high unemployment, low median incomes, and higher than state average median age population, need balanced and increased economic growth. Presently the region depends on employment in retail trade, governmental services, and resource-based manufacturing. New job opportunities and the provision of local public services are needed to attract businesses, diversify the economy, and revitalize declining communities. Economic development throughout the coastal area must be compatible with the local environment, the labor force, local economic needs, and existing facilities. 2. Competition for shore property can exclude those uses that can only be sited at the water's edge. The relatively few areas which meet the special needs of commercial harbors and marinas have seldom been set aside for these uses. While few shoreland uses are exclusive, many are incompatible with sur- rounding uses and with the capability of the land, air, and water to support them. There is also a need to consider the impact of losing unique agricultural, mining, and forestry lands and conversion of areas especially suited to outdoor recreation to other uses. 3. Ports are important to the economic well-being of Wisconsin, both for the provision of jobs and the provision of a competitive mode of transportation that generally lowers shipping rates. However, a number of the state's ports and harbors have been declining or stagnating. For continued operation, ports and harbors must be maintained to adequate depths to allow oceangoing and lake vessels access to shore facilities. There needs to be enough cargo passing through them to maintain favorable rates and profitable operation. There is a need for some modernization to keep pace with cargo handling technologies. 37 4. A more specific transportation problem relates to potential discontinuation of cross-lake ferry service. The loss of this service would increase shipping rates and reduce tourism, both to the economic detriment of the Wisconsin coastal area. 5. The shoreline is attractive for power plant sites because of the easy access to cooling waters and existing trans- portation facilities. The local impact of power plant locations can be significant, both during construction and thereafter. New demands are placed on community services and some adverse environmental impact is almost inevitable. (Also see Issue Area 1 for discussion of water and air quality topics) b. General Policy Statement 5.0 The state's policy on economic development shall be to stimulate desirable economic development that broadens the coastal area economy and to encourage the designation and reservation of areas of significance to activities requiring a coastal location by: a. Providing special planning, management and promotional attention to Great Lakes port and transportation issues; b. Coordinating, stimulating and promoting the orderly and environmentally sound provision of business and tourism facilities; and c. Managing the planning for and siting of electrical generating and transmission facilities so as to ensure protection of water quality, public and riparian rights and orderly land use. c. Specific Policies 5.1 The state shall promote business and industrial development so as to broaden and strengthen the state's economy. (See GAMC #2 and Wis. Stats. Sections 560.03 and 560.23). 5.2 The state shall locate and maintain information on prime in- dustrial sites. (See GAMC #2 and Wis. Stats. Section 560.23). 5.3 The state shall promote a balanced transportation system that includes highway, rail, water travel and other facilities adequate to meet public needs. (See managed uses #2 h, i, j, k and Wis. Stats. Sections 85.02, 194.02, 195.199, and Chapter 196). 5.4 The state shall promote travel to Wisconsin's scenic, historic, natural, agricultural, educational, and recreational attractions. (See GAMC #1 and Wis. Stats. Section 560.23). 5.5 The orderly and ecologically sound development of commercial tourist facilities shall be coordinated and stimulated by the state. (See GAMC #2 and Wis. Stats. Section 560.23(1) (f) ) . 5.6 The state shall protect forests from destruction and premature cutting through planned development and sound forestry practice, giving full recognition to the concept of multiple use to assure maximum public benefits. (Wis. Stats. Section 28.04, 28.11 and 77.01). 38 5.7 The state shall provide tax relief to those agricultural areas subject to approved local exclusive agricultural zoning or sub- ject to farmland preservation contracts. (See Wis. Stats. Section 71.09(11) and Chapter 91). 5.8 The state shall formulate and coordinate a program of port planning, promotion, protection and development. (See GAMC #2 and Wis. Stats. Sections 560.03 and 560.04). 5.9 Buoys and beacons necessary for free navigation shall not be un- lawfully disturbed or interfered with. (See Wis. Stats. Section 30.15 and 30.17). 5.10 The state shall require advance planning for and shall regulate the siting of electrical generating and transmission facilities. (See GAMC #4, managed use #2 c, Wis. Stats. Sections 30.025 and 196.491 and Wis. Admin. Code PSC 111). This process shall in- clude the following elements and provisions: a. Such a facility can be located adjacent to a waterway only if it does not unduly affect: (1) public rights and interests in navigable waterways; (2) the effective flood flow capacity of a stream; (3) the rights of riparian owners; or (4) water quality. b. The design and location or route of such a facility must be found to be in the public interest, considering alternative sources of supply, alternative locations or routes, indiv- idual hardships, engineering, economic, safety, reliability and environmental factors. c. Such a facility shall not have an undue adverse impact on other environmental values such as, but not limited to, ecological balance, public health and welfare, historic sites, geological formations, the aesthetics of land and water and recreational use. d. Such a facility shall not unreasonably interfere with the orderly land use and development plans for the area involved. e. Electric utilities shall biennially file a plan with the Public Service Commission which shall include such things as general location, size, and type of facilities which are owned or operated by the utility or the construction of which is expected to commence within the next ten years; practical alternates to the general location, fuel type and method of generation of proposed electric generating facilities; the projected demand for electric energy, etc. f. The Public Service Commission shall approve the plan upon a determination that the advance plan: 39 (1) will provide a reasonably adequate supply of electrical energy to meet the needs of the public during the planning period; (2) is in the public interest when considering engineering, economic, health, safety, reliability, efficiency and environmental factors and alternate methods of generation or sources of supply; (3) is reasonably coordinated with long-range plans and policies of other agencies or that a reasonable effort has been made to coordinate with such plans and policies; and (4) provides for programs which discourage inefficient and excessive power use. g. No facility shall be approved it if is not in substantial compliance with the most recent advance plan filed, except where the Public Service Commission finds that the need for the facilities or lines could not have been reasonably foreseen by the utility at the time of the filing. 5.11 Once a state permit for construction of electrical generating or transmission facilities has been issued, local ordinances shall not preclude or inhibit the installation or utilization of the facility. (See GAMC #4, managed use #2 c, and Wis. Stats. Sec- tion 196.491). 5.12 The state shall prepare and maintain contingency plans for re- sponding to critical energy shortages so that when the shortages occur, they can be dealt with quickly and effectively. (See Wis. Stats. Section 16.95). I d. Coastal Program Activities 5.13 The Wisconsin Coastal Management Program will support research and public education about the economic base of coastal areas. 5.14 The Coastal Management Program will seek to improve the coord- ination of policies which affect the economies of coastal areas. 5.15 The Coastal Management Program will seek to improve the im- plementation and enforcement of existing state regulatory and management programs which influence the economic well-being of citizens along the Great Lakes. 5.16 The Wisconsin Coastal Management Program will provide financial assistance to state and local agencies to implement the specific management policies of designated economic areas and improve the implementation of existing programs to broaden the economic base of communities with desirable diversifications of industry and to effectively manage coastal land and water resources which influence community development. 40 5.17 The Wisconsin Coastal Management Program will support local government efforts that consider in their coastal plans and programs the concept that waterfront locations be kept available for activities which need such locations and that unnecessary development not consume coastal resources particularly suited to other uses. 5.18 The Wisconsin Coastal Management Program will support local government efforts to locate new coastal development adjacent to existing areas which can provide adequate public services. 5.19 The Wisconsin Coastal Management Program will advocate the role of the Great Lakes ports both within the state and at the national level. 5.20 The Wisconsin Coastal Management Program will support state and local government efforts to (a) identify and designate areas especially suited for water-related economic development and power plant sites approved through the power plant siting process of the Public Service Commission and (b) develop specific manage- ment policies for each. 41 VI. GOVERNMENTAL INTERRELATIONSHIPS a. Issues and Problems 1. There are many programs and laws, spread among many agencies and levels of government, that apply to the coastal area. There is a strong need for improved coordination and com- munication on specific programs and projects. While more difficult, the need for improved coordination is even stronger at the policy level. 2. More specifically, there is a strong concern about the paper- work and time-consuming procedures that accompany many government programs. A need has been suggested for stream- lined procedures and a clearinghouse for information on regulatory programs. 3. Given Wisconsin's home-rule status, citizens and local governments are concerned in maintaining a degree of local control in governmental decision-making. Even citizens who favor a strong state coastal management program are concerned that actual implementation takes place as close to the local level as possible. 4. The Great Lakes remain an under-represented "national coast" at the federal level. The Great Lakes were added as an afterthought in the final stages of passage of the 1972 federal Coastal Zone Management Act. b. General Policy Statement 6.0 The state policy on government interrelationships shall be to ensure intergovernmental communication, cooperation and coord- ination in all aspects of coastal management through: a. Creating and operating an interagency, intergovernmental Coastal Management Council with representation from all directly affected agencies and levels of government and citizens within the state; b. Creating and maintaining technical/citizen committees to ensure coordination of specific projects and programs; c. Maintaining a workable system of interagency reviews and comments on coastal program activities; and d. Requiring state and federal agencies to consult with and obtain the comments of other agencies with respect to any significant environmental impact involved in their major actions. 42 c. Specific Policies 6.1 A Wisconsin Coastal Management Council will be created with representation from state agencies, local governments, tribal governments, the University System and the public to oversee program operations and activities. (See Chapter II, Organiz- ation for Program Implementation) . 6.2 The state shall evaluate the plans of all state agencies, identify both duplication and program gaps in the plans and measure the agency plans with the state goals enacted by the Governor and the legislature. (See Wis. Stats. Section 16.95). 6.3 Structural reorganization of state government shall be a con- tinuing process, with the goals of assuring responsiveness to popular control, improved public understanding of government, and efficient and effective administration -of state policies, including improved management and coordination of state services and elimin- ation of overlapping activities. (See Wis. Stats. Section 15.001 and 16.001). 6.4 All state agencies shall prepare detailed statements on the environmental and economic impacts of all major actions signif- icantly affecting the quality of the human environment. Prior to making such statements, the agency shall consult with any other agency that has jurisdiction or special expertise with respect to any environmental impact involved. (See Wis. Stats. Section 1.11). 6.5 All agencies shall study, develop and describe appropriate alternatives to their actions referenced in policy 6.4 that in- volve unresolved conflicts concerning alternative uses of available resources. (See Wis. Stats. Section 1.11). 6.6 The state shall foster closer cooperation and coordination between state and local government and encourage a pattern of state-local relationships that facilitates effective development and utilization of state and local resources in meeting citizen needs. (See Wis. Stats. Section 22.03). 6.7 State agencies and localities shall mutually cooperate to enhance the quality, management and protection of the state's air, land, and water resources. (See Wis. Stats. Section 144.31). d. Program Activities 6.8 The Coastal Management Program will use existing review processes (A-95, NEPA, and WEPA) to ensure coordination of federal, state, and local policies and programs. 6.9 The Coastal Management Program will support tribal governments in their efforts in coastal management. 6.10 The Coastal Management Program will improve coordination with adjacent Great Lakes states and federal agencies with con- tinuing programs affecting Lakes Michigan and Superior. 6.11 The Coastal Management Program will improve information flow and coordination of policies related to key coastal areas and uses and with emphasis on streamlining procedures and eliminating duplication or conflicting efforts. 6.12 The Coastal Management Program will perform advocacy functions in seeking increased policy recognition of the Great Lakes in policy by all levels of government, with emphasis on the federal level. 44 VII. PUBLIC INVOLVEMENT a. Issues and Problems 1. There is a need for increased public awareness and under- standing of coastal issues. There is also a need for provision of adequate information on the scope of coastal issues and options for addressing those issues. 2. There is a need for increasing and improving the opportunities of citizens and public interest groups to effectively participate in governmental decision-making on coastal issues. b. General Policy Statement 7.0 The state's policy on public involvement shall be to provide citizens with full opportunities for early and continuous involvement in coastal management through effective commun- ication and participation. c. Specific Policies 7.1 The public shall be entitled to the fullest and most complete information regarding the affairs of government, compatible with the conduct of government business. To this end, all meetings of all state and local governments shall be preceded by public notice, shall be open to the public, and shall be held in places reasonably accessible to members of the public. (See Wis. Stats. Sections 19.81 and 19.83). 7.2 Any person may, with proper care, examine and copy any official property and records. (See Wis. Stats. Section 19.21). 7.3 The state shall establish a citizens environmental council to educate and advise the general public for the purpose of facilitating effective public awareness on environmental ac- tivities. (See Wis. Stats. Section 144.76). 7.4 The Department of Natural Resources shall, upon the verified complaint of six or more citizens, hold a public hearing re- lating to any alleged or potential environmental pollution. The alleged or potential polluter shall be served with notice of the hearing and the department shall, within 90 days after the hearing, issue findings of fact, conclusions of law and an order. (See Wis. Stats. Section 144.537). 7.5 The state shall establish and provide for a "public intervenor" in the Department of Justice with responsibility and authority to intervene in proceedings where necessary to protect public rights in waters or other natural resources. (See Wis. Stats. Section 165.07 and Part IV, Appendix H of this proposal). 45 d. Coastal Program Activities 7.6 The Coastal Management Program shall support public education and awareness of coastal issues and broadly disseminate program materials . 7.7 The Coastal Management Program shall create a broad State Citizens Advisory Committee, with independent staffing, to monitor program implementation and to develop, recommend and sponsor public in- formation, education, and participation programs (see Section II. C. Organization for further discussion) . 7.8 The Coastal Management Program shall create regional coastal task forces to facilitate full participation in the program on a continuing basis by interested local parties (see Section II. C. Organization for further discussion) . 7.9 The Coastal Management Program shall provide appropriate forums to involve and educate citizens on projects and programs which have a significant or controversial impact on coastal resources; subject those projects and programs to public scrutiny and dis- cussion; and make recommendations concerning such projects and programs to appropriate governmental agencies. 7.10 The Coastal Management Program shall encourage Program partic- ipants (defined in Glossary) to hold public informational meetings and involve citizens and technical members in issue study, problem identification, proposal development and decision-making. .17''/ 46 CO w CO p w <1 CO o P W H < P a >H p H H § ■5 33 »> o- CO erf H < O H p P O ^ P erf tJ r< H CO < W ^£ P T CO <: CO H H co < p O cj p c_j U-l 4-i a «> T3 CJ u • 3 rt o a cu CO cu LO < o o •H U a 3 01 ."S CJ U-l 0) • P 3 co rH rH 4J QJ S 00 QJ -H s: U-H co S •H O O o rH « • CO " rH 3 CM a 4J •H C • TJ tO 4J • S • < ID CO CO r-^ •H CO CM UH • CO CJ -3 o CO ^ 3 -H cn CO QJ co 4J 4-1 c tO QJ 3 TJ CO CO •H CO rH 3 3 CO erf p CO O CM CO CM CO 3 4J O 3 PQ to B O r-l -d- 53 w M X • O Q •H cO •H co 3 to co . o- j-l u • O 3 QJ u o co # M rH * > d) I cu h K u « 00 "O UH 0) 4-1 -H 1 ■h 1 rC CO -H 1 -H O Si CO rH 1 cu 3 QJ 1 0) >, to c -H I £ •«fl O rl -i cjct-hcu CO, cO O •> TJ 5 •H TJ CO O TJ • CM O ^ o B 4J 3 S-i 3 -H 3 CJ TJ 4-1 V-i CO r-l CU CN 3 T3 O QJ 4-1 3 CO 3 3 CO O • oj to cj a* TJrtrtO4-irt0J33Q)cj 3 cw 1 r-> cO 3 rH X> CJ •H 3 3 •H • • 01 0) r-^ ^i cu 3 4-1 rt >-i rt O ,3 -H TJ O O to U Os o cfl rH 0) rH 2N/-. u r3 iH >, iJd!-i cu o 4-1 4-1 O QJ 4-1 3 cfl CO 3 rH <3\ 4J rH o> QJ ,0 • 4J >-, j-iCJCOnJOJi— IqJCJQJCO cfl to rH CO Uh CJ •H UH o • •H M rt r-l CM CO rH 3 CM > CO CO CO " 4-1 CO -H r-i DcOM-rl>CUCUN M S O CU 4-J -n 4-1 U CO TJ 3 CO QJ • TJ rt o • •HH 4J H 3 -inJUH'OHftSHOhUn) CO CU CO rH QJ 4-1 3 4-1 TJ co 3 O 0) St -H o\ U rH Ct) Z HO^tJ^lS^UOtJ >-i ,3 X. 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IMPLEMENTING A COASTAL MANAGEMENT PROGRAM IN WISCONSIN A. OVERVIEW 1. Underlying concerns and assumptions This program proposal is based on the premises that Wisconsin's coastal resource is valuable and worth saving for future gen- erations; that there is a strong public concern about the wise use of this delicate and increasingly threatened resource; and that existing management of the Wisconsin coastal resource can and should be improved. There are coastal areas that, because of their unique or vul- nerable nature, need special management attention. Likewise, there are certain uses of coastal lands and waters that, because of the significant impact these uses have on the coastal environment, need special management attention. The state should assure that these key areas and uses are properly managed. In designing a management program to meet these concerns, it must be recognized that both state and local governments play important roles in determining the future of the coastal area. State government has a number of basic responsibilities, such as stewardship of the public's interests in the waters of the state. Local governments also have important responsibilities for the detailed management of their coastal areas. This suggests the need for a strengthened state-local partnership for coastal management. The state, through a coastal manage- ment program, can improve its ability to address state-level interests in the management of key geographic areas and key land and water uses. Through a strong program of technical and financial assistance, the ability of local governments to address local coastal concerns can also be enhanced. Another basic assumption used in program design is that strong public participation is essential to effective coastal manage- ment. A program designed without fully considering citizen concerns is quite unlikely to be successful. Furthermore, beyond the question of program success, this proposal is based on the belief that the public has a right to participate in the making of governmental decisions that affect their lives, A final assumption of this program proposal is that the emphasis should be upon making existing management tools work better , not upon creating a new set of rules, regulations, and bureaucracies. Until government does an adequate job of meeting its existing responsibilities, it should not seek new ones. The pressing needs now are for improved coordination, better enforcement, and a strong advocacy of the wise and balanced use of the coastal environment. 74 2. Focus state attention on key coastal areas and uses In designing a coastal management program proposal, the Coastal Coordinating and Advisory Council determined that state govern- ment should focus its attention on the management of key coastal areas and uses. Areas of significant natural, recreational, scientific or his- torical value, areas especially suited for water related economic development, areas that are hazardous for development, and approved power plant sites should be carefully managed. To assist this management, key areas will be specifically designated as being of management concern to the state, either for general management or as suitable for preservation or restoration. State-level management concern should also be focused on those land and water uses that have a "direct and significant " impact upon the coastal environment. The purpose of identifying these key uses is to ensure that those activities which have the greatest influence on the future condition of Wisconsin coasts are thoughtfully located and managed. To further assist in focusing the program, the coastal manage- ment program area will be limited to the state's water areas of Lake Michigan, Lake Superior, Green Bay and the land area of the fifteen adjacent counties. 3. A new Wisconsin Coastal Management Council A new Coastal Management Council will be established to direct this program. This new Coastal Management Council will not take over existing agency programs, will issue no permits, and will own no land. It will provide coordination, assistance to state agencies to improve their implementing responsibilities, and assistance to localities to help improve their local management capabilities. Perhaps most importantly it will also provide a strong voice that considers the coastal resource in its entirety and advocates its wise and balanced use. The membership of this new Coastal Management Council will contain state government, local government, and publicly oriented members. In addition, to promote full cooperation and coordination, representatives of Wisconsin's two coastal Indian Tribal governments will be invited to participate as full Council members. 75 4. Roles of existing governmental agencies Under this program proposal, existing state agencies will continue to carry out their individual coastal management responsibilities. However, in so doing, they will be directed to act in a consistent and coordinated fashion . Local governments will continue their role of local coastal planning and management. There will be no state take-over of local concerns. The program will make technical and financial assistance available to those communities desiring such assistance. 5. Public involvement in a management program Strong public participation must be an essential element of the coastal management program proposal. To facilitate this involvement, a state Citizens Advisory Committee with independent staffing will be established to monitor initial program implementation and develop public education and public participation programs. In addition, regional coastal task forces will be established to facili- tate full participation in the program on an on-going basis by interested local parties. 76 c/> o K LU > Q LU * Q Z o < z o < z < 77 B. MANAGING COASTAL RESOURCES AND DEVELOPMENT 1 . Geographic Areas of Management Concern a. Overview As noted above, a primary emphasis for a coastal manage- ment program in Wisconsin will be to focus new atten- tion on certain key geographic areas. Because of their unique, scarce, fragile, or vulnerable character, the program will single them out for special attention. A broad public nomination process will be established to identify potential geographic areas of management concern, Thereafter the coastal management program will work with the state agencies and localities who will be managing the areas to specifically define the geographic bounds of the areas and lay out definite management policies for them. After designation the coastal management program will provide technical and financial assistance to the managing bodies to aid their implementation of the set management policies. b . Standards for areas of management concern As noted above, this program proposal envisions formal designation of areas of management concern. In de- termining what types of areas should be eligible, the Coordinating and Advisory Council conducted a number of inventories (see Bibliography) and fully considered the criteria set forth in 15 C.F.R. 920.13. This par- ticular section addresses the questions of: (1) what types of areas may be designated; (2) where these areas can be located; (3) what type of management policies must be devised for the areas; and, (4) what the duration of designation is. Types of areas There are six basic categories of areas proposed: (1) Areas of significant natural, recreational, sci- entific, or historic value. Examples include state and local parks, forests, scientific an d natural areas, and properties listed in or eligible for the National Register of Historic Places (see Appendix H, II. A.). 78 In natural and scientific areas, uses of the high- est priority will be non-structural, non-intensive uses that are water dependent. Uses of the lowest priority would include those non-water dependent, non-water enhanced activities which would result in an irretrievable commitment of coastal resources. In recreational and historic areas, use of the high- est priority will be those water dependent uses con- sistent with those values. Specific allowable uses within the GAMCs under this category would be gov- erned by the statutes and administrative codes ap- plicable to state and local parks, forests, etc.. In state recreation areas use zones may be estab- lished to regulate the type and intensity of ac- tivities within each zone. (2) Areas especially suited for water related economic development. Examples include marina, port, water- intake and shipbuilding facilities. Uses of the highest priority shall be water depen- dent economic activities. The lowest priority will be placed on those activities that are non-water related and result in irretrievable commitments of coastal resources. (3) Hazard areas, which are those areas prone to severe erosion and/or flooding that may impose danger to public use or immediate or future substantial public costs . The highest use priority in these areas would be as- signed to those activities that do not impose immed- iate or future substantial costs due to geologic, soil, or flood conditions. Any development should be so constructed as to avoid creating new hazards or increasing existing hazards. Uses of the lowest priority includes those activities that are non- water dependent or non-water enhanced, create new or increase existing hazards and result in irretriev- able losses of coastal resources. 79 (4) Specific areas within the Coastal Management Program area identified as future power plant sites in Advance Plans approved by the Public Service Commission pur- suant to the Wisconsin Power Plant Siting Act. Nom- ination of such future power plant sites as GAMCs would be automatic upon approval of an Advance Plan specifically identifying and analyzing such sites pursuant to Stat. 196.491(2) and PSC 111.24. Uses receiving the highest priority would be bulk electric generating facilities. Once GAMC has been approved as a power plant site all other incompatible uses would be precluded from locating on that site. (5) Those natural, scientific, historic, and cultural areas whose unique value warrants preservation, would be termed Areas for Preservation . The cri- teria of the Scientific Areas Preservation Council could be used as a guide for some areas, and areas of historic or cultural value should be assessed against the National Register "Criteria for Eval- uation". In Areas for Preservation, protection of the integrity of those elements that make the area significant would be paramount. Although preserva- tion strategies will be developed on a case by case basis, in many cases protection will require purchase of these areas by the state and local government. The program is sensitive to the potential adverse impacts on local tax bases and revenue raising capa- bilities that might be created by public acquisitions of land. These impacts will be further studied and, where appropriate, measures considered to compensate localities . In these natural and scientific areas, uses of the highest priority will be non-structural, non- inten- sive uses that are water dependent and maintain nat- ural functions. Uses of the lowest priority would include those non-water dependent , non-water en- hanced activities which would result in an irretriev- able commitment of coastal resources. In historic and cultural areas, uses of the highest priority shall be those uses that preserve historic/cultural values. (6) Those areas that should be restored to an earlier or improved condition (such as a blighted waterfront) . These areas would be Areas for Restoration and would receive special program attention. Uses of the highest priority are those uses that are water dependent. Uses of the lowest priority would include those non-water dependent, non-water enhanced activities which would result in an irretrievable commitment of coastal resources. 80 As is discussed in more detail in the next section, once an area is designated, program funds would be available to assist in proper management of that area. The specific management of the area will continue to be undertaken by the existing responsible agencies (for example, DNR will continue to own and manage state parks in the coastal area even after they are designated) . .*• '»«.'• ' >i>-\ - •" ''*'"' Jh Wilt' "' ft # • • » Location of areas Designated areas of management concern must have a direct relationship to the Great Lakes, This relationship can be of a physical, social, or economic nature. However, before the designation can be made, the applicant must demonstrate to the Coastal Management Council that this required direct relationship exists. As a general rule, proposed areas should be within coastal townships or within six miles of the Great Lakes shore- line. Preference will be given to those areas located on the immediate shore. In all cases designated areas must be located within the coastal management program area — the state's water area of Lake Michigan, Lake Superior and Green Bay and the land area of the fifteen counties adjacent to these waters. 81 Management policies for the areas Nominations for designation must contain clear statements on the proposed management policy for the area. For example, if a water-front park is being nominated as a recreational area of management concern by the DNR or a local government, the formal nomination should spell out the specific way that park will be managed.* These proposed management policies must be consistent with the coastal program's adopted goals and policies. To aid the Coastal Management Council's review on this point, nominations should show how designation would further the program objectives set out in section I-C of this proposal. Finally, nominations should show that the proposed man- aging body for that area has the ability to adequately manage the area (to implement the proposed management policies) and will make a commitment to do so. Duration of the designation Nominations for areas of management concern should pro- pose a set duration of the designation ranging from one to three years. This will allow both the managing body and the Coastal Management Council to periodically review each area's designation, management policies, and imple- mentation activities. Following such a review the designation can be dropped or the area can be nominated for redesignation. c. Implications of designation The implications of designating an area as an "area of management concern" need to be made clear at the outset. What must a state agency or local government agree to do in a management sense after designation? What can the coastal program provide in the way of management assis- tance for these areas? While detailed answers to these questions, particularly the latter one, are set out in other sections of this proposal,** it is useful to summarize the answers in this section. What the managing body must do In order to have an area designated, the managing body, be it a state agency or local government, must do four things: (1) define the geographic bounds of the area; *See Appendix H for examples of general management policies. :*See sections I-C, I-D, and II-C2 of this proposal. 82 2) define a clear management policy for the area that is consistent with adopted coastal program goals; (3) show that it has the ability or authority to carry out those management policies; and (4) agree to carry out the stated policies. What the coastal management program can do The purpose of designating these areas is to improve their management. A principal mechanism for doing this will be a new grant program administered by the Coastal Management Council. This Council, upon application from the managing agency, will make grants to the managing bodies to further their implementation of approved management policies of the designated areas. That is, once the managing body does the four things outlined in the previous paragraph, coastal program financial and technical assistance would be made available to assist that managing body in the management of the designated area. Example For example, Community A could nominate a specific lake- front park it owns or manages as an "area of management concern," with a specific management policy of increased public usage and lake access. Community A proposes to achieve this through improved law enforcement , park maintenance, surveying user desires and redesigning the park facilities to meet these desires. Community A agrees that if designation is made and coastal program funds are received, it will carry out these activities. This would satisfy the four requirements set out above for the managing body. So, if this park were designated, the proposed activities would be eligible for program funding. Community A could then hire a park patrolman (keeping in mind the duration of federal funding currently authorized), procure the necessary equipment needed by the patrolman, add a part-time person to clean up the park on weekends, hire a consultant to conduct a survey of the desires of park users, redesign park facilities based on the user survey and conduct a cost analysis of upgrading the park to better meet these desires. The new facilities themselves could not be built with Program funds. However, the survey, design and cost estimate may place Community A in a better position to seek other funds or to fund the pro- ject locally. The example is only illustrative. The community could as well nominate an area for increased economic development or for preservation or restoration. 83 d. Process for designation 1 . Initial Areas The process for designating initial "areas of manage- ment concern" will be undertaken in the July 1977-January 1978 period and will be as follows: (a) There will be an active program to solicit nominations for "areas of management concern." The first step in this process will be the production and dissemination of information. This includes carefully defined and explained criteria for eligibility, the benefits and obligations flowing from designation, and a standard nomination form. Those making nom- inations are asked to identify the potential area and propose an appropriate management program for that area. The "preliminary" nomination form also asks how the proposed area is directly related to the Great Lakes. Per- sonal contact and assistance are made available where requested to assist in making the nom- inations. The distribution of nomination forms began in July, 1977. (b) Public nomination of potential areas and proposed management policies then follows. Nominations can be made by state agencies, local governments, interest groups, and private citizens. The initial nomination is a "preliminary" one on a short, easy to use form. After an initial screening for eligibility, a more detailed formal nomination would be prepared for those areas meeting the basic guidelines. The formal nomination will have to be made by the body that will actually manage the area and would include information on the four points discussed in the previous Section (II-Blc) . This more detailed nomination will include a brief assessment of the environmental and economic impact of designation. Program staff will assist in preparing the formal nominations where requested. The deadline for "preliminary" nomination will be October 1, 1977. A list of potentially eligible areas, for which formal nominations may be made, is printed in Appendix H. Formal nomination must be made by November 11, 197 7. (c) A Coastal Management Council committee then reviews the nominations. The review will be in terms of (1) whether the proposed area meets criteria for designation, and (2) whether an adequate and ap- propriate management policy has been or can be designed for that area. Any designation would have to be in the public interest. 84 (d) This committee will make preliminary decisions on the nominations. These decisions will be submitted for review by the State Citizens Advisory Committee, the regional citizens and technical advisory committees, the appropriate regional clearinghouse, state agencies, local governments, federal contacts, and citizens and interest groups. The committee will hold public meetings on their recommendations in the affected areas, with meeting conduct and procedures to be formally established by the Coastal Management Council. The regional clearinghouses will coordinate local government responses. If no localities object with- in the 30 day review process, the clearinghouse so notifies the Coastal Management Council. If a locality disagrees, the clearinghouse will notify the Coastal Management Council and set up a negotiation process among the parties. At the end of a three month period the nomination would be forwarded to the Council Committee as modified during the negotiation process; if no compromise is reached, the nomination may be withdrawn by the managing agency or forwarded to the Council committee with the negative comments attached. (e) Following this review procedure, this committee will make its recommendations to the full Coastal Manage- ment Council on the establishment of the designated areas and their management policies. A summary of all comments received will be attached for each pro- posal, as will an environmental and economic impact assessment. This committee decision will be made in January 1978. (f) Then the Coastal Management Council will review the recommendation of its committee and take action on the designation proposals. This action is scheduled for January 1978. As was noted earlier, it should be emphasized that the Coastal Management Council designates the areas and approves a management policy for them . Actual management of the areas is undertaken by existing managing agencies (state and local) . (g) At this point, if it has not been done concurrently with the nomination/designation process, the man- aging agency and Coastal Management Council will develop a proposed work program for the implementa- tion of the set management policies. It is antici- pated, however, that since the initial GAMC designa- tion process is being undertaken concurrently with the preparation of the initial 306 budget, any budget requests (with associated work plans) will be developed concurrently with the formal GAMC nomination. 85 (h) Following this, the Coastal Management Council will submit an application to the federal Office of Coastal Zone Management for funds to implement the work programs for the designated areas. 2. Additional Areas Additional "areas of management concern" will be established on a regular basis, so non-participation by an agency or locality in the initial designation process set out above would in no way jeopardize their ability to nominate areas at a later date. It is anticipated that the Coastal Management Council would sponsor a nomination process similar to the one set out above on an annual basis. 3. Priority for designations In the fall of 1976 the Coordinating and Advisory Council sponsored a series of public meetings and distributed a questionnaire to find out what the public thought a Wisconsin Coastal management pro- gram should be doing. In order of priority, the citizens responding indicated their concerns were: - improvement of water quality* - abatement of damage from shore erosion - management of natural areas - public recreation and access (historic, cul- tural) - port management - urban shore uses - other issues This priority list will be followed by the Coastal Management Council in the designation of "areas of management concern." In reviewing nominations, the following additional factors will be used in setting priorities for designation: y Urgency or immediacy of need Geographic distribution of the proposals - Presence of matching funds Ability and willingness of applicant to maintain the area - Designation as such in local coastal plans Transferability of findings of the project *Water quality was the principal concern; however, due to the major public commitment to water quality, program funds should be used only after all other sources have been exhausted. See Appendix E for more details on the questionnaire. 86 Vulnerability of the area to change Size of the area Cost of the project and availability of compli- mentary funds from other state or federal sources Existence of alternative means for preserving/ restoring the area 101 87 2. Land and water uses of management concern a. Overview In addition to the key areas discussed above, state-level management concern would also be focused on those land and water uses that have a "direct and significant" impact upon the coastal environment. The purpose of identifying these key uses is to ensure that those activities which have the greatest influence on the future condition of Wisconsin coasts are thoughtfully located and managed. Therefore, the coastal program terms these uses "managed uses" . The basic concept of management for a potential coastal program in Wisconsin is that existing statutory auth- orities are adequate to manage these uses. As with areas of management concern, "management" is defined broadly and will be undertaken by the existing responsible agencies. Management will be accomplished through: 1) State enforcement of existing state regulatory responsibilities ; 2) Direct management in areas owned by the state; 3) Coordination of existing state, federal and local authorities; 4) Local shoreland and floodplain regulation under state guidelines; 5) Provision of technical assistance and analysis to localities; 6) Provision of financial assistance to localities; and 7) Education . Once a use is determined to have a "direct and significant impact" on the coastal environment, it will come within the purview of the program. This means that program funds will be available to assist in improving the manage- ment of that activity. It does not mean that new rules, regulations, or permits would necessarily be created to further manage that use. It should be emphasized that the attention of the program will focus on proposed new "direct and significant" uses. Existing uses (except where subject to existing continuing regulation) would not be subject to attention of the program unless continuing operation poses a threat to the integrity of the coastal environment or to the public health, safety, or general welfare. It should further be emphasized that with existing programs no land or water uses are automatically totally excluded from locating in the coastal area. Rather, standards for use acceptability are generally based on the impact the proposed use would haye on the coastal environment. 88 b. Process for identifying "managed uses" The key for being able to identify "managed uses" is to define what a "direct and significant impact" on the coastal environment is. Rather than produce an elaborate scientific definition that is both incomprehensible to most Wisconsin citizens and creates a false sense of "scientific" objectivity and pre- cision, the following definition of "direct and significant" impacts is being used. A use or activity has a "significant" impact when it has any of the following characteristics: 1) Alters the quality of or affects the access to a public resource for which the state is trustee (here meant to include navigable waters and state owned lands such as parks); or 2) Locates in a designated Geographic Area of Man- agement Concern; or 3) There has been an expression of state-level concern for its management by the Legislature. A use or activity has a "direct" impact when it creates a direct outflow into or otherwise directly affects the waters of the Great Lakes or a designated geographic area of management concern. This includes those activities that discharge into one of the Lakes or that are located on or adjacent to one of the Lakes or areas of management concern. In this respect it should be noted the coastal management program would be coordinated with and supportive of water quality control programs. The initial work on developing a process for determing managed uses was done by a University of Wisconsin Faculty Task Group. The Task Group, composed of scientists, policy analysts, and legal scholars was established in 1975 to investigate the processes required to determine permissible uses of resources in the coastal area. The Faculty Group's Report recommended that for use in evaluating whether a particular resource use has a "direct and significant im- pact on coastal waters," the word "direct" implies a causal relationship and the word "significant" refers to environ- mental impact. The Report also recommended that the defin- ition of "direct and significant" be correlated with the location of the land, relative to the shoreline, on which the use is to take place. The Report went on to recommend a list of priorities of land uses in the coastal area. The report envisioned a management program in which a state- level authority would review all major development projects to be constructed in the coastal area and would apply the use priority list in deciding whether to approve the pro- ject. 89 In January, 1976, the Wisconsin Coastal Coordinating and Advisory Council appointed a Subcommittee for Boundaries, Areas and Uses. One of the subcommittee's tasks was to recommend a process for identifying land and water uses that would be subject to a state Coastal Management pro- gram. The group first addressed the problem of defining "direct and significant." Using the Faculty Task Group's recommendations as a starting point, the subcommittee de- fined an impact as "direct" if it involved an "immediate" causal relationship" between an activity and a resource. Criteria for determining the "significance" of impacts were largely based on the State's Guidelines for Implementation of the Wisconsin Environmental Policy Act (Wis. Stats., Section 1.11). Seven factors were used in determing "sig- nificance." These criteria included irreversibility of impact, degree of constraint on higher priority uses, incompatibility with existing uses, controversial nature of the use, cummulative impacts, impacts on areas of management concern, and consistency with state coastal policies. These were selected as general factors to aid in determining whether a particular use would have a sig- nificant impact. The subcommittee then developed a com- prehensive list of land and water uses which could have a potential impact on coastal land or water resources. The criteria were applied to each use, and the subcommittee determined whether that use would always, sometimes, or never have a significant impact in the coastal area. After dropping those uses deemed never to have a significant im- pact, the Coordinating and Advisory Council, following public and technical review and discussion, adopted by consensus a list of uses with significant impacts on the coastal environment. c. Identification of proposed initial "managed uses" The following list of activities, if they take place with- in the coastal management area, are uses that are deemed t have "direct and significant" impacts on the coastal environ ment. Therefore these are the coastal program's "managed uses" — those activities that the state will assure their proper location and operation. The list of uses is divided into two parts. The first includes activities taking place primarily on or within coastal waters, or on the beds of coastal waters. The second includes activities taking place primarily on the land portion of the coastal management area. (1) Water based a) Removing materials from the bed of a Great Lakes or other navigable coastal water b) Mining of metallic minerals o 90 c) Enlarging the course of a Great Lake or other navigable coastal water d) Constructing an artificial waterway within 500 ft. of a Great Lake or other navigable coastal water. e) Connecting an artificial waterway to a Great Lake or other navigable coastal water f) Depositing any materials in the Great Lakes or other navigable coastal water g) Placing any structures upon the bed of the Great Lakes or other navigable coastal water h) Discharging of effluents into coastal water i) Placing refuse in coastal waters j) Obtaining drinking water k) Harvesting fish for commerce or sport 1) Boating in coastal waters (2) Land Based a) Grading or removing top soil which disturbs 10,000 sq. ft. or more of the banks of the Great Lakes or other navigable coastal water b) Placing structures in flood prone areas c) Siting electrical generating and high voltage transmission facilities d) Constructing sewer and water utility facilities e) Using private waste treatment and disposal systems (including locating and installing these systems) f) Developing state owned facilities g) Developing county and municipal facilities funded by non-formula state aids h) Laying out, altering, or discontinuing highways i) Disturbing bridges j) Abandoning any rail line or service k) Constructing or establishing a new airport 1) Platting subdivisions that create five or more lots of 1 1/2 acres or less within a five year period m) Using rural shorelands (defined as any unincor- porated area within 1000 feet of a navigable lake or within 300 feet of navigable river or stream) n) Emitting air pollutants from point sources o) Obtaining drinking water p) Using pesticides q) Using outdoor advertising r) Mining of metallic minerals d. Summary of techniques for managing the uses All of the activities listed above are controlled by the state, either through regulations or by direct state action. In some instances the regulations take the form of standards, some involve permits or contracts, and others involve state review and approval. 91 A summary of how each use is managed is set out below, with a more detailed discussion appearing in Appendix H. The general format used in these summaries is to note who man- ages the activity, what management technique is used, the basic decision-making standard, and the basis for including the activity in the management program. 1. Water based a. Removing materials from the bed of the Great Lakes or other coastal waters This activity is regulated by the DNR. If a navigable lake is involved, DNR must issue a contract before the activity commences (a permit is required for streams and non-navigable lakes) . The decision-making standard is whether the contract or permit would be consistent with "public rights" or the "public interest," respec- tively. Removing materials is managed because the activity could potentially damage fish and game habitat and alter the quality of coastal waters. b. Mining of metallic minerals This activity is primarily regulated by the DNR. Mine operators must secure prospecting permits and mining permits, submit operator's bonds and certificates of insurance, and secure DNR approval of their environ- mental impact records and mining and reclamation plans. The DNR has detailed standards for these requirements, based on protecting air, land, water, fish, plant and wildlife resources. The Department of Industry, Labor, and Human Relations is also involved through regulating blasting and mine safety. Mining of metallic minerals is subject to the program because of its potentially harmful environmental effects on fish, aquatic plant life, and the quality of coastal air and water resources. c. Enlarging the course of a Great Lake or other navi- gable coastal water Engaging in this activity requires a permit from the DNR. The permits are issued if the DNR finds the project will not injure public rights or interests, cause environmental pollution, or materially injure riparian rights. Enlarg- ing a navigable waterway is included in the program be- cause of its potential to destroy fish and game habitat, affect navigation, and alter the quality of a resource for which the state is a trustee. 92 d. Constructing an artificial waterway within 500 feet of a Great Lake or other navigable coastal water This activity also requires a DNR permit, with the same decision-making standard as item (c) above. This activity is included in the program for the same reasons as item (c) above. e. Connecting an artificial waterway to a Great Lake or other navigable coastal water This activity also requires a DNR permit, with the same decision-making standard as item (c) above. This activity is subject to the management program for the same reasons as item (c) above. f . Depositing any materials in the Great Lakes or other navigable coastal waters This activity requires a DNR permit unless the material is deposited behind a lawfully established bulkhead line. Permits are issued after DNR inspections and a finding that the activity will not "materially impair navigation or be detrimental to the public interest." There is a limited exception to the state permitting program for solely fed- eral projects. Bulkhead lines are established by munici- pal ordinance and must be "in the public interest" and be approved by the DNR. Depositing materials in navigable coastal waters is included in the program because of the potential obstruction of navigation, reduction of effec- tive flood flow capacity in streams, harmful effect on fish and game habitat, and pollution of a resource held in trust by the state. g. Placing any structures upon the bed of the Great Lakes or other navigable coastal waters This activity also requires a DNR permit, unless the structure is behind a lawfully established bulkhead line. Permits are granted if the DNR finds the structure "does not materially obstruct navigation or reduce the effective flood flow capacity of a stream and is not detrimental to the public interest." This activity is subject to state- level management because of the possibility for obstruction of navigation, reduction of effective flood flow capacity, and potential impacts on shore erosion. h. Discharges of effluents into coastal waters This activity is regulated by the DNR. Some discharges are totally prohibited and all other pollutant discharges require DNR permits. The DNR has detailed water quality, performance, and effluent standards for these permits. Discharge of effluents is regulated under the state manage- ment program because of detrimental effects on fish and 93 game habitat, effect on the suitability of a public re- source for recreational purposes, and alteration of the quality of a resource held in trust by the state. i. Placing refuse in coastal waters State law makes it unlawful to place any refuse or solid wastes in the waters of the states. Also, any substance deleterious to fish or aquatic life can only be deposited in accordance with plans approved by the DNR. This acti- vity is subject to the state management program for the same reasons as item (h) above. j . Obtaining drinking water This activity is regulated by the DNR and the PSC. DNR permits are required for the construction, installation, or operation of high capacity wells and DNR approvals are required for water plants and systems and extensions thereof. There are detailed standards for these require- ments, which are designed to protect the public health and provide an adequate water supply. Water utilities are also subject to the supervision and regulation by the PSC relative to rates and adequacy of service. Obtaining drinking water is included in the state management program because there has been an expression of state-level con- cern by the Legislature for the management of this resource in the interest of public health. k. Harvesting fish for commerce or sport This activity is subject to detailed regulation by the DNR. Licenses are required for sport fishing, use of nets or set lines, and commercial fishing. Commercial fishing may be limited or prohibited in areas where necessary to protect the fishery resource. This activity is included in the program in order to protect the fishery resource while maintaining the economic viability of the activity. 1. Boating in coastal waters Boats over 12 feet in length must be registered with the DNR. There are also numerous boating safety requirements enforced by the DNR. Boating is regulated by the state to protect public safety, control access to a public resource in a safe manner and to maintain water quality. 94 2. Land Based a. Grading or removing top soil which disturbs 10,000 square feet or more of the banks of the Great Lakes or other navigable coastal water This activity requires a permit from the DNR. Permits are issued if the project does not injure public rights or interests, cause environmental pollution, or materially injure public rights. Removing top soil or grading is included in the management program because of the potential detrimental impact of this activity on fish and game habi- tat, access to a public resource, and quality of coastal waters. b. Placing structures in flood prone areas State statutes require localities to adopt flood plain zoning ordinances, meeting state standards, for those parts of their jurisdictions where serious flood damage may occur. If localities do not adopt reasonable and effective ordinances, the DNR is required to adopt an ordinance for the jurisdiction. Also, the availability of federal flood insurance is tied to the existence of adequate local flood plain regulation. The placement or maintenance of any structure, fill, or development in violation of a flood plain zoning ordi- nance is declared to be a public nuisance and may be enjoined or abated at suit of any municipality, the state, or any citizen of the state. Solid waste disposal sites and facilities are prohibited within areas under the jurisdiction of flood plain zoning regulation, unless they are licensed by the DNR. This activity is subject to the management program because of its potential for reduction of effective flood flow capacity that could cause increased damage to coastal resources during a flood. c. Siting electrical generating and high voltage transmission facilities This activity is primarily regulated by the PSC. Con- struction cannot be commenced without first obtaining a certificate of public convenience and necessity from the PSC. Such certificates are issued upon a finding that the facility is necessary, its design and location are in the public interest, it will not have undue adverse im- pacts on environmental values, and it will not interfere with orderly land use and development plans. There is also a mandatory advance planning requirement for this 95 activity, including requirements for identification of general plant sites ten years in advance of construction and alternative specific sites three years in advance of construction. There is also a consolidated permitting process whereby related DNR permits can be obtained in a single proceeding. This activity is included in the management program because of the effects of power plant location on water quality (thermal discharges), public rights in navigable waters, and the effective flood flow capacity of streams on an adequate supply of energy, and on community development patterns. d. Constructing water and sewer utility facilities DNR approval must be obtained for this activity and the department has detailed standards on planning, construc- ting and operating these facilities. These activities are included in the program because of their potential impacts on coastal water quality and on the nature and rate of urban development in the coastal management area, which will have spillover impacts on coastal air and water resources. e. Using private waste treatment and disposal systems This activity is primarily regulated by the DHSS. The department has detailed standards on testing for soil suitability, location, construction, and maintenance. Major enforcement activities are handled by local sani- tarians. The DNR licenses and regulates persons servicing septic tanks and has the authority, when private systems are inadequate, to order public town systems. These activities are included because of their potential impacts on coastal water quality and their effects on the location of development within the coastal area. f. Developing state owned facilities The State Building Commission is generally in charge of the state's building program. The DOA's Bureau of Facilities Management supervises the state building program and building policies and priorities. This activity is included in the management program because of the potential impact of the location of major state facilities on other uses and development patterns in the coastal area. 96 g. Developing county and municipal facilities funded by non-formula state aids When the state makes non-formula grants to localities, conditions may be placed on the grants such as requiring sewer systems to be constructed in a manner to facilitate future interconnections. This activity is included in the program for the same reasons as item 2(d) above. h. Laying out, altering, or discontinuing highways The state DOT has charge of all matters pertaining to expenditure of state and federal highway funds. The DOT prepares the state highway plan. The DNR receives notice of the lay out, alteration, and discontinuance of county and town highways by county boards; further, town or county discontinuance of access by road to a navigable lake or stream is not effective unless approved by the DNR and the access required to be dedicated for shoreline plats may not be vacated without circuit court approval. These activities are included in the management program because of their potential impact on access to public resources (such as navigable waters, beaches, or state- owned parks) and their impact on community development patterns. i. Disturbing bridges This activity requires a permit from the highway autho- rity maintaining the bridge. Bridges over navigable waters are also subject to regu- lation by the DNR to prevent obstruction to navigation, protect human life and health, and minimize property damage and economic loss. Disturbing highway bridges is included in the management program because of the potential impact on navigable coastal waters, including obstruction to navigation, effects on flood control, and community development patterns. j . Abandoning any rail line or service This activity generally requires the approval of the fed- eral Interstate Commerce Commission. The state Public Ser- vice Commission plays an active role in these decisions, appearing and testifying before the ICC. The state Depart- ment of Transportation may also become involved. This activity is included in the program because of potential significant impacts of rail abandonment or economic devel- opment in the coastal management area, with particular reference to the economic well-being of the state's ports and the cross-lake ferries. The potential recreational use of abandoned rail lines is also an important consideration. 97 k. Constructing or establishing an airport DOT approval is required for this activity. DOT's certi- ficate of approval may be issued if the proposed airport is compatible with existing and planned transportation facilities. DOT also prepares the state airport plan. This activity is included because of significant impacts on economic development in the coastal management area and potential impacts on coastal natural resources (such as vulnerable habitats) and on community develop- ment patterns. 1. Platting subdivisions that create five or more lots of 1^ acres or less within a five year period These subdivisions must be approved by several state agencies, as well as by localities with subdivision ordinances. The DLAD reviews, and must approve, plats for compliance with surveying, layout (including mandatory public access requirements for plats abutting navigable waters), and engineering requirements. The DOT reviews, and must approve, plats abutting state highways for com- pliance with safety requirements. The DHSS reviews, and must approve, unsewered plats for compliance with lot size, elevation, and soil percolation requirements. The DNR reviews plats within 500 feet of navigable waters for prevention of pollution to waters. It should be noted that subdivisions creating fewer or smaller lots are frequently subject to local review and approval. This activity is included within the coastal management program because of the potential environmental impact of subdivi- sion construction, increased generation of sewage on coastal waters, the potential increased demand for public access to coastal recreational resources, and a concern for orderly development. m. Using rural shorelands Each county is required by state law to regulate the use of shorelands in unincorporated areas. DNR minimum standards require the ordinances to protect human health, aquatic life, and natural beauty and control land uses. If county ordinances are found to be inadequate, the DNR can adopt an ordinance for the county. (Note: All rele- vant coastal counties have DNR approved shoreland zoning ordinances.) Shoreland use is subject to management con- trol because of potential impacts of various activities in these largely undeveloped areas on coastal water quality, fish spawning areas, fish and aquatic life and the natural beauty of the land and water resources. 98 n. Emitting air pollutants from point sources This activity is regulated on the state level by the DNR. Plans for construction of air contaminant sources are submitted to the DNR, which thereafter issues an order approving or prohibiting the project. Discharge of air pollutants is subject to the management program because of the adverse effects on air quality in the coastal area, which can be injurious to plant, animal, and human life and can make the coastal area less desirable for recreational, residential, or commercial use. In addition, air pollution can have an adverse impact on the quality of coastal waters, as air pollutants are transmitted to Great Lakes waters. o. Obtaining drinking water See 1 ( j ) above. p. Using pesticides The use of pesticides is regulated by the DNR, the Depart- ment of Agriculture, and the pesticides review board of the DHSS. The DNR has a regulatory program for pesticides that pose a serious threat to wild animals. DAg regulates pesticide use practices. The pesticide review board approves the above regulations. The use and sale of DDT is prohibited except where the pesticide review board finds it is necessary to control a serious epidemic. Pesticide use is subject to state regulation because of its potential for extremely serious effects on human health and fish and wildlife resources and on the quality of coastal waters. q. Using outdoor advertising This activity is regulated at the state level by the state highway commission. In non-business areas, no advertising signs may be erected that are visible from interstate or federal-aid primary highways (excepting limited on-premise advertising) . Persons engaging in the outdoor advertising business must be licensed by the highway commission. Out- door advertising is included in the state management program because of the potential adverse aesthetic impacts on scenic coastal resources. r. Mining of metallic minerals See 1(b) above. 99 e. Activities of regional benefit (1) Definitions To secure federal approval of a coastal management program proposal, the program must have a method for assuring that local regulations do not unrea- sonably or arbitrarily restrict or exclude land and water uses of regional benefit . A use or activity is of regional benefit when it both is a "direct and significant" coastal use , and has a multi-county environmental, economic, social, or cultural impact (exclusive of boundary situations). Local restriction or exclusion of an activity of regional benefit is "unreasonable" when it is arbitrary or capricious and is of detriment to the region . This implies a situation where the local decision to exclude the activity is made without a rational basis — that is, not based upon legitimate legal factors. (2) Dealing with unreasonable local exclusions There are several methods that will be used to deal with unreasonable local exclusion of activities with regional benefit. In some cases the regional and state-wide potential benefit is such that a direct state action* or an override of the local decision is called for. In other cases state standards and local decision-making, with a potential appeal to the state, is more appropriate. In still other cases the most appropriate state role would be participation in local hearings, thereby assuring that a greater-than- local perspective is presented to local decision- makers, but leaving the final decision in local hands. Finally, recourse to the courts may be had to challenge arbitrary or capricious local exclusions.* * See, for example, the Section of Appendix H dealing with state powers to acquire interests in land and the general discussion of the applicability of local regulations to state actions ** See the discussion in Appendix H of enforcement of state coastal policies. 100 When occurring within the coastal management area, the following are deemed to be uses or activities of regional benefit, with the state roles as indi- cated to assure that unreasonable local exclusion does not take place. They are "direct and signi- ficant" coastal uses and have multi-county envir- onmental, economic, social, or cultural impacts. However, this listing is not final or exclusive. Other "managed uses" may be included in the future if their inclusion is warranted as necessary. a. Power plants and transmission lines. Under Sec. 196.491(2), Wisconsin Statutes, electric utilities are required to biannually file an ad- vance plan with the Public Service Commission (PSC) which shall include: the general location, size, and type of facilities which are owned or operated by the utility or the construction of which is expected to commence within the next ten years ; the identification of practical alternatives; the impacts of the proposed and alternative generating facilities on the environment, etc. Copies of the advance plan shall be filed for review and comment with the Departments of Administration, Business Development, Health and Social Services, Justice, Local Affairs and Development, Natural Resources, and Transportation, the regional planning commis- sion and county and municipal planners and/or clerks having jurisdiction in those areas where the facility is proposed to be located. Public hearing on the advance plan shall be held. With considera- tion of the comments, the PSC shall prepare a sin- gle environmental assessment of the plan. The PSC shall approve the advance plan under the criteria established in Sec. 196.491 (2) (i) . Any portion of a plan that is not approved by the PSC may be resub- mitted by the utility and shall then be reviewed in the same manner as a new advance plan. Sec. 196.491(3) (a) requires that no person may commence the construction of a facility unless such person has applied for (18 months prior to construc- tion) and received a certificate of public conve- nience and necessity from the PSC. Copies of the application shall be sent to the clerk of each muni- cipality and town in which the proposed facility is to be located. The applicant must also apply for any permits or approvals required by DNR. The PSC and DNR will then hold public hearings on the appli- cation in the affected areas. Under Sec. 196 . 491 (3) (d) , the PSC will approve an application for a certificate of public approval if the PSC determines that the proposed facility is: A) in substantial compliance 101 with the most recent advance plan filed and approved by the Commission, unless it finds that the need for the facilities or lines could not have been reasonably foreseen by the utility at the time of its most recent advance plan; B) necessary to satisfy the reasonable needs of the public; C) in the public interest consi- dering alternatives; D) will not have undue adverse impact on other environmental values; E) complies with the criteria under Sec. 196.49(4) if the application is by a public utility as defined in Sec. 196.01; and F) will not unreasonably interfere with the orderly land use and development plans for the area involved. Section 30.025(3) requires that DNR shall grant the necessary permits if it finds that the application has shown the proposal: A) complies with environmental standards administered by the department and federal environmental standards; and B) does not unduly affect public rights and interests in navigable waterways; the effective flood flow capacity of a stream; the rights of riparian owners, or water quality. Finally, Sec. 196.491(3) (i) states that if installation or utilization of a facility for which a certificate of convenience and necessity has been granted is precluded or inhibited by a local ordinance, the installation and utilization of the facility may nevertheless proceed. That is, once the above described process has been com- pleted, development of generating facilities and major transmission lines may not be precluded by local regu- lation. (For a discussion in greater detail, see managed use 2 c in Appendix H) . b. Use and development of rural shorelands. Sec. 144.26(1), Wisconsin Statutes, declares the purpose of regulations relating to land abutting or under navigable waters to be "to further the mainten- ance of safe and healthful conditions; prevent and control water pollution; protect spawning grounds, fish and aquatic life; control building sites, place- ment of structures and land uses and reserve shore cover and natural beauty." In addition to the above purposes, the purpose of shorelands zoning is to "promote the public health, safety and general wel- fare" under Sec. 59.971(1). Counties are required to adopt zoning ordinances applying to all their shorelands in their unincorpo- rated areas. Sec. 59.971(1) defines shorelands as 1,000 feet from the normal highwater elevation of navigable lakes (including the Great Lakes) , ponds or flowage, and 300 feet of navigable rivers or 102 streams or to the landward side of the flood plain, whichever distance is greater. County ordinances must meet Department of Natural Resources' standards and criteria. These standards are now part of the Wisconsin Administrative Code as Chapter NR 115. NR 115.04(2) (a) states that "compliance with the requirements of Sec. 59.971 will be determined by- comparing the county shoreland regulations with the state minimum standards for shoreland protection as contained in NR 115.03." Included in the criteria the DNR employs is an examination of the overall appropriateness of the uses permitted under the county program and their relationship to the need for uses and the capability of the land to support such uses. Counties that have enacted regulations that meet the minimum standards are considered to be in compliance with Sec. 59.971. All coastal counties have shoreland programs that have been certified by DNR as meeting state standards. As part of a continuing review process, NR 115.04(2) (b) states that compliance status must be maintained by the county during subsequent reevaluation of the regu- lations to ascertain their effectiveness in maintain- ing the quality of Wisconsin water. Counties are required to keep their programs current, effective and workable to retain their statuses of compliance. There- fore, DNR receives copies of all applications and timely notice of hearings on amendments, variances and special exceptions to assure that appropriate conditions are required and enforced. As is discussed in more detail in Appendix H, the state can participate in local hear- ings on amendments, variances and special exceptions as an affected party, may appeal decisions to the judiciary, and, if a pattern of non-compliance with state standards emerges, may revoke its certification of the county program. If the DNR determines, after notice and hearing, that a county has failed to adopt an ordinance meeting DNR standards and criteria, or if the county has failed to keep an ordinance current, effective and workable, section 59.971(6) provides that the DNR shall adopt such an ordinance. Also, given both its role as man- dated by these statutes and its role under the public trust doctrine, the DNR would certainly be an "affected party" and could challenge a local decision judicially. (See managed use 2 m in Appendix H for more details) . 103 c. Recreational sites of state level significance Sec. 27.01(1), Wisconsin Statutes, declares the pur- pose of state parks is "to provide areas for public recreation and for public education in conservation and nature study." The Department of Natural Resources has the responsibility for the selection of a balanced system of state parks, and for the acquisition, development and administration of state parks. Sec. 27.01(2) (a) allows DNR to "acquire by purchase, lease or agreement, lands and waters suit- able for state park purposes and may acquire such lands and waters by condemnation after obtaining approval of the senate and assembly committees on natural resources." Inherent in this clause is the authorization that local regulations may not preclude acquisition or development of designated state parks. Sec. 27.01(2) (1) sanctions DNR to make investigations of sites that have potential value as state parks. Sec. 27.01(2) (b) allows DNR to "classify state park areas as to their most logical employment and great- est usefulness." Sec. 27.01(2) (j) authorizes DNR to "make such rules and regulations as may be necessary to govern the conduct of state park visitors, and for the protection of state park property, or the use of the facilities." These rules and regulations are con- tained in Chapter NR 45, Wisconsin Administrative Code 104 3. Program Boundaries The federal Coastal Zone Management Act requires states to identify "the boundaries of the coastal zone subject to the management program." The boundary is to extend inland "to the extent necessary to control shorelands, the uses of which have a direct and significant impact on the coastal waters." In the development of Wisconsin's program proposal, several alternative "boundaries" were considered (see, for example, Working Paper 1: Subject Matter and Boundaries , pp. 11-14, Nov. 1976, and "Minutes: Wisconsin Coastal Coordinating and Advisory Council," April 1, 1976). Inventories were made of land uses, ownership, and zoning, federally excluded lands, natural areas, fish and wildlife habitat, historic structures, and erosion hazard areas. Based on these inventories and discussions and considering the above decisions on the "areas" and "uses" questions and the decision to use existing programs for implementation, the formal program boundary for sec. 305 (b) (1) purposes is as follows: on the waterward side — the state boundary; on the landward side — the inland boundary of the 15 counties with frontage on Lake Superior, Lake Michigan, or Green Bay. Within this area, the state will manage those uses listed in the preceding section that directly and significantly impact on the coastal environment; similarly, areas of man- agement concern will be designated following the procedures set forth in earlier sections of this proposal and will re- ceive special management attention. Wisconsin has consulted with neighboring states during program development in an effort to ensure compatible boundaries, UJ LU DC O LL z o < N < O 00 O 105 C. ORGANIZATION FOR IMPLEMENTATION OF THE PROPOSED MANAGEMENT PROGRAM 1 . Overview After extensive examination of coastal issues, problems, and programs in Wisconsin, it has been concluded that coastal management in the state can be improved through use of a new organizational structure. The central drawback to effective coastal management in the state is not a lack of rules, regulations, and statutory authority to control development in the coastal area, but the failure of government to assign a high enough priority to its coastal resource. This failure is reflected in the lack of coordination of the many governmental programs affecting the coastal environment, the lack of consistent and adequate enforcement of the many laws regulating activity in the coastal area, and the lack of a single strong voice to advocate a sound and sensible future for this valuable resource that belongs to all of the people of Wisconsin. For that reason this program proposal does not recommend a comprehensive set of new regulations or a new governmental super-agency to regulate the coastal area. It does recommend a new interagency, intergovernmental coastal management council to direct an overall coastal management program. Rather than taking over and administering existing state and local programs or establishing new permitting require- ments, this council's initial purpose will be to make those management techniques and institutions we already have work better. This will be accomplished by the new coastal management council's provision of coordination, provision of assistance to agencies to improve their implementing responsi- bilities, provision of assistance to localities to help improve their local management capabilities, and perhaps most impor- tantly, provision of a strong voice that looks at the coastal resource in its entirety — its environmental, economic, social, and cultural attributes — and advocates its wise and balanced use. The initial coastal management program will rely on existing state programs for implementation. Comprehensive coastal legislation will not be sought at this point. Rather, the focus will be on improving and coordinating the existing management system while studying the need for longer term reforms. 106 State government, using existing management techniques, will address those coastal issues of state-level concerns the management of the key geographic areas and key land and water uses discussed above. In order to improve local capabilities to address local coastal issues, this coastal management council will also establish a strong program of technical and financial assistance for coastal localities. In sum, the following conclusions were made relative to the organizational issue: - At the outset, program implementation will rely on existing statutory authority; - The program will focus on improvement of state-level management through better use of existing state pro- grams; that improvement will be accomplished by: (a) better coordination, (b) better implementation, (c) provision of incentives, (d) development of new policy direction, and (e) coastal advocacy. - Provision of additional financial and technical assis- tance to help local governments address their local coastal concerns is both desirable and necessary, 2. New functions to be addressed at the state level The Wisconsin Coastal Management Program will rely on existing legislation and programs for implementation — no new body will be created to administer regulations, issue permits or purchase land. All specific implementing responsibilities will continue to be handled by the existing agencies that currently handle them . There are a number of specific functions that will be assigned to the new coastal management council. These functions include: (a) Policy development. The first function is the collection and ratification of a set of overall state coastal goals, These goals will cover topics such as areas of manage- ment concern, managed uses, intergovernmental coord- ination and public participation. The initial version of these state coastal policies is set out in Section I of this program proposal. Certain goals may conflict and will require resolution through compromise. This balancing of interests will be a responsibility of the Coastal Management Council (see the discussion of conflict resolution later in the chapter) . 107 (b) Designation of key areas and uses. A second function relates to the identification of both key geographic areas and key land and water uses . Standards for Geographic Areas of Management Concern and a specific process for formal designation of specific areas are set out in the previous section of this chapter. Designation of land and water uses having "direct and significant" impacts on the coastal environment is also made in the previous section. Finally, a mechanism for preventing potential unreasonable local exclusion of activities of regional benefit is also set out above. The details are set out in Section II B of this pro- gram proposal. (c) Oversight of state agency implementation and compliance. A third function will be oversight of state agency compliance with the adopted state coastal policies. All state agencies will (by executive order, supplemented by interagency agreements) be directed to cooperate with and, insofar as their statutory responsibilities allow, to act consistently with the adopted state coastal policies. Should any current legislation or administrative rules preclude full agency compliance, that agency is requested to notify the Coastal Management Council. To aid this function, the Coastal Management Council will review and comment (under A-95, NEPA and WEPA) on state and federal projects located in the coastal area in terms of their consistency with the adopted state coastal policies. (d) Coastal advocacy. A fourth function would be a contin - uing coastal advocacy and public awareness /education role . The Coastal Management Council will evaluate and assert coastal interests before the public, government officials, and local, federal, and state agencies, in- cluding seeking any legislative or administrative rule changes necessary for effective coastal management. Any proposals to modify existing state authorities wi -h regard to coastal management will receive adequate notice Opportunity for extensive review and comment through exis- ting mechanisms, supplemented by additional efforts of the Coastal Management Council, will be provided to affected local governments, citizens, and regional and state agencies. (e) Oversight of provision of financial assistance. A fifth function will be the establishment and operation of a program of financial assistance to coastal localities for use in local coastal management efforts consistent with adopted coastal goals. The Coastal Management Council will also oversee a program of financial assistanc e to state agencies and Tribal governments to improve coastal management implementation. 108 (f) Oversight of provision of t^chnlcjtLas^istance to state agencies, localities and Tribal governments. (g) Oversight of a program of demonstration grants. (h) Coordination of all of the above functions. (i) State and local bodies may request that the Coastal Management Council review, comment on, and/or endorse their coastal management plans and projects. (j) Adoption of program budget . (k) Such other responsibilities and functions as may be as- signed by the Governor. 3. A new Wisconsin Coastal Management Council (a) State level organizational options considered While there are an infinite number of organizational options available to states for program implementation, the Coordinating and Advisory Council concentrated on developing three basic options in some detail. A fourth basic option, use of comprehensive legisla- tion to establish a broad new program, was also con- sidered by the Council. After considerable delibera- tion this option was rejected by the Council for several reasons: there was no demonstrated current need for such a radical change in the existing management system; such a large change needs considerably more study; and even if it were desirable, such comprehensive legislative changes could not be made for some time. A fifth basic option, that of doing nothing new in terms of coastal management, was also considered and rejected; the Coordinating and Advisory Council felt real improvements in the existing management system could be gained through participation in the program. 109 The first option explored in detail here is assigning the functions listed above to an existing state agency. A second alternative is to assign these functions to an existing agency, but create an advisory committee for the program. Finally, the third alternative con- sidered (and the one eventually recommended) is to create a new independent decision-making Coastal Manage- ment Council with staffing from an existing state agency. These alternatives reflect a range of options for place- ment of basic program responsibility going from a single agency to a new decision-making body. Agency Function with No Council This organizational option would involve assigning the functions discussed above to a single state govern- mental agency. There would be no formal advisory groups established. If this "agency function" option were chosen, an existing agency would be designated to fulfill those functions set out in the above section. This could be an existing functional line agency (such as DNR, DOT, or PSC) or an existing general staff agency (such as DLAD or DOA's Office of State Planning and Energy). The major benefit of this approach is its simplicity. No new bodies are formed, no new major institutional arrangements are needed. However, it lacks the inter- agency and intergovernmental dimension that may be necessary for a successful program. Agency Function with Advisory Committee A second basic option is to assign all the functions to a single agency, as discussed above, but add an interagency and intergovernmental advisory committee. This option has been adopted by several other states' coastal programs and is being used in several other Wisconsin programs. The advisory group set up under this option could be small, large or even regionally based. One suggestion was for a 12 member group — four citizens, four persons with technical expertise, and four governmental officials, These slots could be filled with people from various governmental levels and regions to provide additional balance and breadth. 110 The functions of such an advisory group would center on providing advice on and review of state agencies' implementation and a monitoring of the local assis- tance programs. However, actual decision-making power would remain with the state agency. The group created would provide advice, not make decisions . A separate Citizens Committee might or might not be useful with this option. Decision-Making Council with Agency Staffing A third basic option is to assign the functions dis- cussed previously to a new decision-making council. This council would be responsible for setting the program's policies and making major program decisions. There are a number of issues that must be resolved before setting up a decision-making council — who sits on such a body, how are they chosen, and what voting arrangements are set up. These issues are summarized below: - Representation on the council . This is the question of who sits on the council. Possibilities include state agencies (DNR, DLAD, DOT, DBD, DAg, PSC, Dept. of Justice, and DOA) , UW (Sea Grant, UWEX) , legis- lators, local officials, regional planning commis- sions, tribal governments, interest groups and citizens. - Criteria for selection . Potential criteria for selection include: assuring a state-local balance; assuring each region of the state is equitably represented; having broad enough representation to assure adequate coordination; having representation from all parties necessary to implement the manage- ment program; having visible, responsive, and accountable decision-makers. - Method of appointment . Several options are avail- able: all appointments could be made unilaterally by the Governor; some of the Governor's appointments could be made based upon nomination by other parties (such as the local governments, local government associations, or the RPC's); some appointments could be made directly by the Governor, others directly by other parties (e.g., the Governor appointing state agency representatives, the RPC's appointing RPC representatives, the Speaker and President Pro Tern appointing legislators, and so forth); or some other combination. ill Voting arrangements . All council members could have equal voting powers or some could have only ex officio non-voting status. Some people suggested the state agency members be made non-voting members in order to avoid state agency domination of the council; one reaction to this proposal was that since a coastal management program will be relying on state agencies for implementation, those agencies should have a full vote on the Council (and that since the agencies have such disparate interests they are unlikely to vote as a bloc). *c^Q. (b) Criteria used for selecting an option There are a number of factors that could be used to evaluate various organizational options. While there was no attempt made to rank these factors in order of importance (it being recognized that the importance of a particular factor is a value choice that will vary with each reviewer of this proposal) , there was general consensus on the part of the Co- ordinating and Advisory Council as to what factors should be considered and also consensus as to which of these factors are particularly important. 112 The twelve general factors thought to be important in reviewing the organizational options are: (1) Visibility of decision-makers . How easy is it to identify who is making program decisions? (2) Responsiveness . Are the decision-makers likely to be responsive to the public's coastal concerns? (3) Accountability . How accountable to the public are the decision-makers? Are they directly elected? High level "political" appointees? Professional bureaucrats? Who are they responsible to? (4) State-local balance . Is there a sharing of decision- making power between state and local interests? (5) Regional balance . Is there a sharing of decision- making power between the various regions of the state? Are the decision-makers likely to be aware of and sensitive to the regional variations in coastal problems and possible solutions? (6) Ability to coordinate state agency activities . Since the program will be implemented in large part by several existing state agencies, how well does the option facilitate the coordination of these state agency activities? How likely is it to be able to secure agency compliance with coastal goals and policies? (7) Complexity . How complex is the option? How easy is it for the public to understand the arrangement used? (8) Compatibility . Would the option be compatible with existing state agencies, institutions, statutes, and political realities? (9) Cost . How much would it cost to administer the option? (10) Efficiency . How efficient would coastal decision- making be with the option? How many steps would be required to make a decision? How many review points? How many interests could veto a proposal? (11) Special interest domination . How likely is it that a single special interest would be able to dominate the decision-making? (12) Approvability . How does the option affect the ability to structure a program that could be approved by the Office of Coastal Zone Management for program implementation grants? 113 Of these twelve factors, there was general consensus that the first six above are particularly important: As far as possible, the option chosen should have visible decision-makers who are responsive and acccountable to the public; there must be a state-local and regional balance to decision-making; and there is a strong need to be able to coordinate state agency imple- menting activities. (c) The option chosen After reviewing the options laid out above, the Coord- inating and Advisory Council recommended adoption of an organizational option that has a decision-making council with a separate citizens advisory committee . They believed this option had the highest visibility of decision-makers and was most likely to be responsive and accountable to the public. It had the highest degree of state-local power sharing. This option also rated high on the ability to coordinate state agency activities and the regional balance factors. While this option is more complicated, more expensive, and less "efficient" in the short run than some of the other options, the Coordinating and Advisory Council felt its strong points outweighed its weaknesses. This proposal accepts this reasoning and adopts the recommendation of a decision-making council. The option of relying on a single agency for program direction was rejected for a number of reasons: there would be no local voice in program decisions; it lacks a regional perspective in decision-making; decision- makers would not be very visible and were likely to be less responsive and accountable; and there was the stronger possibility of special interest domination. So while this "agency function" option would be the least complicated, least expensive, and most "efficient" option, it was rejected. Even though the addition of an advisory committee would ease some of these difficulties, it does not go far enough in addressing the state-local balance, vis- ibility, responsiveness, and accountability factors. Therefore, the option of making the program an agency function with an advisory committee was rejected. Finally, after considerable discussion, the option of a decision-making council with the state agencies having no vote was also rejected. Since the management program will rely on state agency action for implementation, state agencies should have a full voice in program direction. Removing their vote destroys the state- local power balance and adversely impacts on the ability of 114 the group to coordinate state agency activities. Strong representation on the decision-making council by local and public interests minimize the possibility of any state agency domination. Also, it should be noted that state agencies, as well as all other Council members, will not be allowed to vote on funding de- cisions that directly affect their agency or interest. This decision-making council will be assigned all of the functions discussed in the previous section of this program proposal: (1 (2 (3 (4 (5 (6 (7 (8 (9 (10 (11 Policy development Designation of key areas and uses Oversight of state agency implementation and compliance Coastal advocacy Oversight of provision of financial assistance Oversight of provision of technical assistance Oversight of demonstration grant program Coordination of all above functions Review of coastal management plans and projects Adoption of program budget Others, as directed by Governor In order to adequately perform these functions and best meet the review criteria, it is necessary to create a broad Coastal Management Council with some members having a state government oriented perspective, some having a local government oriented perspective, and some a publicly oriented perspective. While this results in a rather large group, the Council can work effectively and effi- ciently through the use of committees and strong staff support. Further, full consideration will be given to inclusion of women and minorities on this council. As tribal governments control a significant portion of the Wisconsin Lake Superior shoreline, tribal governments should also be invited to participate fully in this program, The Wisconsin Coastal Management Council will have 29 members and have the make-up and method of selection as detailed in Table 1 on the following page. While all these appointments would be formally made by the Governor, 25 of the 29 participants would be non- discretionary appointments. It is suggested that ap- pointments be for two year terms (or the nominee's term in office), with the possibility of reappointment. Also, the terms should be staggered, with one possible way of doing this being to make either the locally or publicly oriented appointments a one year initial term. 115 TABLE FOUR COUNCIL MAKE-UP AND METHOD OF SELECTION State government oriented members Body (10) A. Department of Natural Resources B. Public Service Commission C. Department of Transportation D. Department of Business Development E. Department of Administration F. Dept. of Local Affairs and Development G. Department of Agriculture, Trade and Consumer Protection H. Assembly I. Senate Number Method of Selection 1 (Secretary or designee) 1 (Chairman or designee) 1 (Secretary or designee) 1 (Secretary or designee) 1 (Secretary or designee) 1 (Secretary or designee) 1 (Secretary or designee) 2 (By leadership) 1 (By leadership) 3 (see note) 3 (see note) 3 (see note) 1 (By mayor) II. Local government oriented members (10) A. Northwest area B. Bay Lake area C. Southeast area D. City of Milwaukee Note on locally oriented member selection: Each coastal regional planning commis- sion would submit three names for the council members from their area. The names would be selected by the Commission's Executive Committees. The nominations would have to come from the following four categories, with no more than one from any single category: (1) Regional planning commission; (2) counties; (3) cities; and (4) village and towns. At least two of the three nominees of each area must be elected officials. Also, each nominee must be from a different county, and the nominees should reside in coastal counties. III. Publicly oriented members (7) A. Citizens Committee B. UW (Sea Grant) C. UW-Extension D. Inland advocates E. Coastal citizens (Superior and Michigan) 1 1 1 2 2 (Chair) (By President) (By Chancellor) (By Governor) (By Governor) Note: The Governor's selection of these four citizens would be based on the recommendations of program staff (who would consult fully with the regional planning commissions and interests with state-wide contacts and perspectives, such as UWEX, the League of Women Voters, the Conservation Congress, etc.). IV. Tribal governments A. Red Cliff B. Bad River (2) 1 1 (By tribal council) (By tribal council) Note: Wisconsin's two tribes with coastal lands would be invited to participate in the council as full members in order to promote full cooperation and coordination of the Wisconsin coastal management program and tribal coastal management efforts. 116 In order to maintain an effective program, this Coastal Management Council will, on a regular basis, reevaluate its structure, roles, functions, and the need for its continued existence. This reevaluation will be in addi- tion to and independent of required fiscal and OCZM pro- gram review. d. Staff for the proposed Coastal Management Council The Office of State Planning and Energy, Department of Administration, will be the lead agency to solicit, receive, and administer federal funds for the coastal management program. This agency will house a small central staff for the decision-making council. A number of other state agencies will continue to be actively involved in the coastal program. For example, as a major implementor of coastal programs, the Depart- ment of Natural Resources might likely receive grants to improve its coastal management abilities and acquire additional lands (or interests in lands) of state-wide recreational or natural importance; the Public Service Commission might receive grants to better deal with the issues of siting energy facilities in coastal areas; the Department of Transportation might receive grants to provide technical assistance in port development; the Department of Local Affairs and Development might receive grants to provide technical assistance to localities undertaking coastal management efforts; and so on. It is also anticipated that the coastal regional planning commissions will provide staff support for the program in a variety of ways, including, for example: staffing regional task forces; providing technical assistance to localities; coordinating the provision of technical and financial assistance in their areas; undertaking tech- nical studies to supply information for the program; technical review of program reports and proposals; assisting in public information and education programs; assisting in public participation programs; etc. e. Establishment of the proposed Wisconsin Coastal Manage- ment Council In order for program implementation to begin and federal funds for coastal management to be secured as soon as possible, the Coastal Management Council will be initially established by gubernatorial executive order. This pro- cedure does not foreclose legislative creation of the Coastal Management Council at some later point, but recognizes the fact that the legislative process is long and complex and that waiting for legislation before starting a program could seriously delay recommended improvement of Wisconsin's system of coastal management. 117 Also, it should be noted that there would be legislative review of any program proposal submitted to the federal government and legislative approval of any state funding of the program. Interagency agreements will be used to detail specific interagency relationships. See Appendix H for a detailed discussion of these mechanisms. 4. Roles of existing governmental agencies As has been noted several times in this program pro- posal, existing state agencies will continue to carry out their individual coastal management activities. The Department of Natural Resources will continue to purchase and operate state parks, carry out its fish and wildlife management functions, carry out its water and air quality duties, and regulate shore alteration activities. The Public Service Commission will con- tinue to regulate power plant and transmission line planning and siting decisions. The Department of Transportation will continue its highway and port assistance activities, transportation planning, and its scenic easement purchases. The Department of Local Affairs and Development will continue to pro- vide technical planning assistance to localities. The Department of Business Development will continue its tourism and business promotion activities. The Wisconsin Coastal Management Council will take over none of these specific coastal management activities. It will issue no permits and purchase no land. It will make funds available to the above state agencies to improve their management cap- abilities. It will coordinate the activities of these agencies so that a consistent coastal management program will be carried out in the state. With this proposal, local governments will continue their role of local coastal planning and management. There would be no state take-over of local concerns — local planning and regulation would continue to be handled at the local level. Where the state is currently involved in these matters, as with standards for shoreland and floodplain zoning, the coastal program will look to improving both the state standards and the local capabilities to fully meet those standards. Otherwise, the purpose of the proposed program will be, where requested by localities, to provide technical and financial assistance for the local resolution of local coastal problems. 118 To assure full consultation and coordination with local governments, major program decisions will be submitted to localities for review as stated below. These program decisions include the designation of GAMC's, the annual work program/budget, and any changes in management policies or practices set forth in agency administrative rules. The GAMC designation process provides for notice to localities through the regional clearinghouse, with a 30-day comment period; the annual budhet undergoes a standard A-95 review; and changes in administrative rules are published in the state's official register of the administrative code at least one month prior to their effective date. Other important actors in this proposed coastal management program are the three coastal regional planning commission s. As noted above, the program will fund their efforts that support the coastal program's public participation, technical assistance, and governmental coordination efforts. 119 5. Conflict Resolution The ability to resolve conflicts among competing uses is important for insuring a consistent coastal manage- ment program on the part of local governments, state government and federal agencies. The Wisconsin program recognizes the Governor's role in the coordination and management of the executive branch as central to any conflict resolution process. The Governor's authority to assure that a consistent and coordinated coastal program is executed through executive orders is discussed in detail in Appendix H. The Governor's principal responsibility is insuring compliance and promoting consistency among established policies. Interagency agreements, also discussed in detail in Appendix H, will be used as a means of formalizing compliance by state agencies in executing program goals and policies. There are a number of mechanisms currently in use that will be used to help resolve potential conflicts. These are discussed in some detail in Appendix H and include: a. Administrative review process b. A-95 review and comment c. Wisconsin Environmental Policy Act d. Office of State Planning and Energy e. The budget process f. Interagency committees g. Judicial review h. The National Environmental Policy Act of 1967 Most of the above techniques do not resolve conflicts in themselves. They are often of an informational nature, whereby the provision of a better understanding of the features of an issue leads to preliminary avoidance of intergovernmental conflicts. The Wisconsin Coastal Management Program will introduce into this present system of conflict resolution the new elements of the Coastal Management Council (CMC), the Citizens Advisory Council (CAC), the establishment of specific management policies for designated areas of management concern, and the requirement of federal consistency with the policies of the Wisconsin manage- ment program. All of these elements are discussed in more detail elsewhere in this proposal. 120 Being composed of members representing diverse interests, the CMC would attempt to resolve those conflicts before they would normally advance to the Governor's office. The Council will use existing vehicles, such as A-95 review and comment, to improve coordination and assure a consistent management program. Coastal management concerns would be inserted into such reviews by the CMC, taking into consideration the program objectives and state policies. The CMC would become part of the adminis- trative review process, could become involved in judicial appeals, and has decision-making authority for those issues involving program operation. One of the functions of the CAC will be to monitor the imple- mentation of the program. This could include identifying impending conflicts and bringing them to the attention of the involved parties or the CMC. A second function, that of spon- soring public participation and public education programs, can also serve to identify potential conflicts and facilitate early resolution. With the GAMC process, specific policies for specific areas are proposed by the managing agency. These proposals are reviewed by local, state, and federal agencies, and the public. A specific mediation process is set up for conflicts. With the federal consistency provisions, specific procedures are set forth for improving the coordination of state and federal man- agement programs . 121 6. Public participation in implementation of the proposed program . The development of a coastal management program in Wisconsin has been undertaken with a strong, aggressive program of public participation.* The importance of continued active public participation in the program is recognized and is reflected in the program activities listed in the first chapter of this proposal. Two formal mechanisms to assist the program in meeting its public participation responsibilities are: (1) creation of a state citizens advisory committee; and (2) creation of regional advisory committees. a. State Citizens Advisory Committee A broad State Citizens Advisory Committee, with independent staffing, will be established to monitor program implementation and to de- velop, recommend, and sponsor public in- formation, education, and participation pro- grams. Further, to provide citizens with a direct role in coastal program decision-making, the chair of the State Citizens Advisory Committee will be an ex-officio member of the Coastal Management Council with full voting rights. These conclusions led to this decision: - There is a valid citizens monitoring function to be performed during initial program implementation, the time when broad policies will be specified into detailed operational guidelines; *See Appendix E for details 122 - There is a valid education and participation function to be performed, as the program will need citizen support and involvement (along with intergovernmental participation) for successful implementation; - Only an advisory citizens group composed of a broad spectrum of publics can monitor and evaluate program implementation and identify emerging conflicts from the citizen's perspective; Representation on the Coastal Management Council is necessary to legitimize an advisory role; - Independent staffing is required to guarantee inde- pendent thought and involvement. In setting the membership of the State Citizens Advisory Committee, the following general criteria for membership will be used: - Achieve representation from the whole spectrum of public interests concerned with coastal resources; - Achieve a balance between representation based on population and representation based on geography, giving full consideration to urban, suburban, and rural interests; Achieve a balance of interests from the three regions, and a representative of inland perspectives; Achieve strong representation from those interests which will be affected (positively and negatively) by coastal management; - Achieve strong representation from groups con- cerned with the general public welfare; - Achieve equitable representation of women and minorities . To achieve this, the group should have 27 members selected as follows: - Develop nomination lists through consultation with; 1) Regional Planning Commissions 2) County planning agencies or Extension agents 3) State and local organizations - Document the selection process - Select likely candidates (Council) - Offer positions - Formal appointment by Council and public notification 123 On two key points, geographic and interest group repre- sentation, more specific criteria for membership are set forth: - Geographic balance Six from the Northwest RPC area, nine from Bay Lake RPC area, 11 from Southeast RPC area, one from inland. More specifically, an attempt would be made to secure the following county representation: 2 - Douglas 2 - Bayfield 2 - Ashland and Iron 1 - Marinette 1 - Oconto 2 - Brown 2 - Door 1 - Kewaunee 1 - Manitowoc 1 - Sheboygan 1 - Ozaukee 6 - Milwaukee 2 - Racine 2 - Kenosha 1 - Inland - Interest area balance Representation from the following public interest areas should be considered (but not limited to): Agriculture Manufacturing Real Estate Shipping and Ports Utilities (electric) Other General Commerce Commercial Fishing Recreation Services (hotel/motel, marina, boats and motors) Recreational Boating Other Recreational Users Sportsmen/ Fishermen Environmental Concerns Scientific Areas Preservation Historic Preservation Public Interest Groups (League of Women Voters, educators, etc.) Shore Property Owners 124 The specific functions of the State Citizens Advisory Committee will be as follows: - Monitor initial implementation of program 1) Serve as sounding board for Council 2) Serve as advance warning system to alert Council to emerging public concerns 3) Serve as forum for citizen evaluation of program implementation to insure that citizen value preferences are expressed and considered by the Council. - Public Education and Participation 1) Develop and recommend policies and programs for broad public information and education 2) Initiate and co-sponsor public participation efforts 3) Monitor and evaluate public education and involvement efforts In addition, the need for such a citizens group to tend toward self-destruction instead of self-perpetuation was considered. State level committees have a tendency to lose their purpose and function after the rules of op- eration become routine. As a result, this Committee will annually initiate a reevaluation of its role, functions, and need for continued existence. b. Regional Task Forces Regional coastal task forces, to be staffed by the regional planning commissions, will also be established. The basic purpose of the task forces will be to facilitate fuller participation in the program on an on-going basis by interested local parties. To insure full communication, the members of the decision-making coastal management council and state citizens advisory committee from that region will be members of the regional task forces. The membership and operating procedures for each regional task force should be set by the individual regional planning commissions. While regional variation will take place, each commission will make opportunities for participation fully available to local citizens, elected officials, and technical personnel. The regional commissions will be appropriately funded by the coastal management program to staff these task forces. o z o < cc O O cc a. ; 125 D. PROGRAM FUNDING 1. Overview a. Introduction Funding assistance through the federal Coastal Zone Management Act offers an opportunity to make manage- ment programs work better, to address specific Great Lakes issues and to develop an awareness and advocacy of the importance of the Great Lakes to the environ- mental, social and economic well being of the State. The assistance provides an incentive to states to look at their coasts and to develop policies and programs as necessary to improve the management of them. It must be noted, however, that federal funds are currently authorized for only a fixed period of time (generally until 1980) . Congress could find that it is in the national interest to extend the duration of the Act's authorizations at some future date. The duration of the current authorization would suggest that the wise use of federal funds would be to direct those funds towards the solving of specific coastal problems over the short term and addressing "short-term" implementation activities in lieu of developing solely additional staff capabilities which necessitates a long term committment. Should a Coastal Management Program proposal be approved, the Coastal Management Council will need to be vigilant in reviewing proposals to preclude placing a heavy financial burden on either state or local governments if federal funding assistance terminates. Funds authorized and appropriated should be viewed as com- plimentary to existing state and federal programs not as a substitute for them. The following sections on funding activities encourage the use of program funds in conjunction with other sources to achieve program ovject ivies. Con- sidering the miles of Great Lakes shoreline in Wisconsin and the amount of funding potentially available, as noted by several local officials, "it doesn't add up to much per mile." It could however make the difference between almost having enough to begin a project on a coastal problem and having enough. Projects in Superior, Racine County and Milwaukee over the past few years have proven that a relatively small amount of assistance can often make the difference. 126 b. Program Coverage Financial and technical resources available through this program are limited to the fifteen coastal counties, less the area managed by the federal government. The program funds will be used to achieve the program objectives identified earlier: o advocacy of the wise and balanced use of the coastal environment . o increased public awareness and opportunities of citizen participation in decision making, o coordination of existing policies and activities, o improvement of implementation and enforcement of existing policies and programs affecting designated key coastal uses and areas , o strengthening of local government capabilities to indicate or continue effective coastal management. c. Accountability The Coastal Management Council (section II C) , among other things, is charged with the functions of: (1) oversight of financial assistance to local governments and state agencies. (2) oversight of a program of demonstration grants. (3) approval of the program budget. The Council is composed of members from local governments, the state legislature, state agencies and citizens. This composition provides a balance amongst governmental functions. If further provides for members who are readily accountable to the public. The Coastal Management Program as a whole will be accountable to the Governor, the legislature, the general public, the federal Office of Coastal Zone Management, and the Council membership itself. d. Estimated fiscal benefits/costs There is a problem with identifying potential federal funds and state matching requirements, before a state program is approved, as conditions and requirements can change. There is, however, an equal concern that 127 these fiscal costs and benefits be made public in order that citizens and officials have a clear idea of the program. The following dis- cussion is the best understanding of this issue at the time of pre- paring this proposal. It should be kept in mind that the figures used are estimates, not firm or fixed figures. Federal funds available The best estimate of potential federal funds available to Wisconsin under the basic elements of the Act (306) is approximately 1.5 million dollars a year over a five year period. The actual amount of finding is determined through a yearly grant application process. In estimating the federal assistance available there are several other factors to keep in mind. 1) The first variable deals with the number of states participating in the national program. Congress has authorized a fixed limit to the total amount of funds available. If fewer states par- ticipate than expected, the amount available to each state would be proportionately higher. If Wisconsin chooses not to pursue a program, additional funding would be available to other states that do participate. 2) A second factor relates to Congressional support for coastal management. The 1976 amendments to the Act, amongst other things, sought to continue the program, increase the federal share and increase the federal authorization. The amendment passed both houses of Congress by overwhelming majorities (House — 370 to 14; Senate — 73 to 15). From the enactment of the initial Act in 1972, Congressional support of the program has been strong. Considering such recent events as the numerous major oil spills, the extension of territorial waters to 200 miles and the efforts to obtain energy resources from the outer continental shelf, there is reason to assume that Congressional support will remain and the program funding authorizations will, in the normal budgetary process, be extended beyond 1980. 128 State match required States are required to match the federal funds at a ratio of one state dollar for each four federal dollars. This match can occur as either dollars or matching services and activities. With an estimate of 1.5 million dollars annually, Wisconsin would be expected to contribute $375,000 dollars as money or in-kind services. Since the Wisconsin program is based on existing programs, much of the required match would be as in-kind activities. Any additional state dollars would have to be reviewed and approved by the state legislature. As a general rule, this match requirement will be met by each individual applicant. 2. Funding Sources for a Coastal Management Program The federal Coastal Zone Management Act provides for assistance in a variety of areas from program development to beach and island acquisition. The following is a brief synopsis of the types of assistance available to states that are voluntarily participating in the program. The relevant section of the Act is shown in parenthesis. - Management Program Development (Section 305) Congress has authorized $20 million annually through 1979 for states to develop management programs. The current efforts in Wisconsin are funded under this provision of the Act. Management Program Implementation (Section 306) Once a state has a Management Program meeting its needs and consistent with the guidelines of the federal Act, funds are authorized ($50,000,000 annually, currently authorized through 1980) to assist states in implementing their program. Coastal Energy Impact Program (Section 308) Eight hundred million dollars are authorized through 1984 (no annual limit) "to meet the needs of coastal states and local governments in such states resulting from specified activities involving energy develop- ment." The provision provides for grants or loans to: plan for energy related activities; assist in providing new or improved public facility needs and/or to recover from unavoidable loss of a valu- able environmental or recreational resource. 129 Interstate Grants (Section 309) To encourage coordination between states and to study, plan and implement multi-state coastal policies, the Act provides an authorization of $5,000,000 annually (currently authorized through 1980). Research and Technical Assistance (Section 310) Grants to states may be made under this section of the Act to carry out research, studies and training required with respect to coastal management. Federal assistance authorized is $10,000,000 annually (currently authorized through 1980). - Estuarine Sanctuaries and Beach Access (Section 315) This is the only section of the Act which allows for the acquisition of public lands. Six million dollars are authorized annually for acquiring, developing or operating natural field laboratories. Twenty-five million dollars are authorized for acquiring lands to provide for access to public beaches or other coastal areas of public value (environmental, recreational, historical or cultural) and for the preservation of islands. There is a total of $31,000,000 annually (currently authorized through 1980) authorized for these programs. All the sections identified above are contingent upon the state's voluntary participation in the basic parts of the Act, that of developing or implementing a Management Pro- gram. While states are the recipients of funding in most cases, the Act does not preclude the passage of funds to local units of government. Wisconsin's approach of a state/local partnership is consistent with the Act and opens the door for supporting local efforts in any or all of the areas listed above. The sources listed above are available types of financial assistance through the Coastal Zone Management Act of 1972. In all cases states must make application for these funds by submitting specific proposals . This should be kept in mind while reviewing this section. Wisconsin will not have discretionary funds but must make application for assistance with relatively specific proposals to the Office of Coastal Zone Management. (See Section 5 below — Application and Review Process) 130 3. Eligible Funded Activites and Recipients As stated above, a state's accessibility to the $166,000,000 annually in nation program authorizations is predicated on participation in the federal program either in developing or implementing an overall Coastal Management Program. The following section outlines the basic activities to be funded in Wisconsin's Program. Coastal Management Council members may not vote on funding decisions directly affecting their constituency or agency. This section parallels the program objectives identified in Section I of this proposal. To provide a strong voice to advocate the wise and balanced use of the coastal environment and promote the recognition in federal, state and local policies of the uniqueness of the coastal environment. - This objective will be primarily achieved through the Coastal Management Council, Citizen Advisory Committee and the program staff. Other activities could also aid in achieving this objective and proposals would be considered. b. Eligible Recipients - principally the lead agency; general purpose units of government. ( To increase public awareness and opportunities of citizen participation in decisions affecting the Great Lakes resources. Eligible Activities - can be grouped into two areas — public awareness and citizen participation. Public awareness activities will take full advantage of existing services provided through the Sea Grant College Program, University of Wisconsin-Extension, and others. Activities could include preparation and distribution of informational materials on coastal issues, such as hazards of oil spills, shore erosion, the unique climatic effects along the lakes, air transport of hazardous substances, etc. Citizen participation activities could consist of: the development of innovative approaches to enhance public participation in decision-making; ombudsman to investigate citizen concerns over coastal manage- ment; the logistical and staff support of a separate state-level Citizens Committee representing the various interests affected by the program; or others. 131 Eligible recipients ; (a) State agencies (b) City, Village and Town agencies (c) County agencies (d) Regional Planning Commissions (e) Universities, colleges, public technical schools, and public schools i* ' ■ To improve the coordination of existing policies and activities of governmental units and planning agencies on matters affecting key coastal uses and areas. ^V (1) Program Administration Eligible activities include the fiscal and managerial administration of projects funded through the program and the logistical and staff support of a state-level council to direct the program. Recipient : the lead agency for the state program. (2) Research and Technical Assistance One of the primary purposes of a continuing coastal management program in Wisconsin is to provide both funding and technical skills to those units and agencies of government having jurisdiction on the water and shoreland areas in the study of and planning for resolution of problems in the coastal management area. Several agencies of government have the technical staff capability to assist the state and local coastal units and agencies of government in the preparation of special studies or plans related to the coastal management area as well as the preparation of coastal management implementation measures . It is incumbent upon those agencies of government having technical expertise to make it available to units of government which wish to carry out the established objectives of the coastal management program. Eligible activities include those issues which are regional or statewide in nature and where technical assistance is either non-existence or insufficient. Assistance should be provided to projects addressing specific current coastal problems, e.g., shore erosion. Specific guidelines will be established by the Coastal Management Council. There are several types of Tech- nical Assistance that could be provided. Forms of direct assistance may include: 132 (a) The organization of a coastal area study, management, or planning program. (b) The selection of other technical data or assistance providers. (c) The coordination of work efforts. (d) Data collection and analysis. (e) The preparation and review of alternative and final plans. (f) The preparation and review of technical studies and reports. (g) The preparation of specific ordinances or regulatory devices. (h) The provision of staff training programs and courses . Forms of indirect assistance may include: (a) The preparation and dissemination of planning guides related to coastal management projects. (b) The preparation and dissemination of specific work handbooks or manuals. (c) The preparation of model codes, ordinances, and other implementation devices. (d) The provision of training courses and seminars related to coastal management programs, projects and implementation. Eligible recipients : (a) Federal agencies (b) State agencies (c) City, village, and town agencies (d) County agencies (e) Regional Planning Commissions (f) Universities, colleges, and public technical schools (g) Tribal governments Coordination of technical assistance to local units of government will be conducted through the respective regional planning commissions. Adherence to this procedure will aid in minimizing confusion and dupli- cation of effort. 133 (3) Interstate Grants Financial assistance is available for study and resolution of coastal management problems reaching across state boundaries. Eligible recipients ; general purpose governments having jurisdiction and sharing a boundary with a neighboring state (state and local) and regional planning commissions. To improve the implementation and enforcement of existing regulatory and management policies and programs affecting key coastal uses and areas . Eligible Activities (1) Uses of state management concern* - Assistance is available for improved state management of those key uses which have a direct impact on the Great Lakes . (2) Areas of state management concern* - financial and technical assistance is available for key areas designated by the Coastal Management Council as being of management concern. (3) Coastal energy impacts - financial assistance is available to assist state and local governments to meet their needs resulting from specific activities involving energy development. Such assistance in- cludes grants to plan for the consequences of existing, expanded or new coastal energy facilities; loans to assist in providing new public facilities or services required as a result of coastal energy activity and guarantees on bonds issued for the purpose of new or improved public facilities or services required as a result of coastal energy activity. (4) Estuarine sanctuaries and beach access - Financial assistance for the acquisition of public lands as: a) natural field laboratories; b) to provide public access to public beaches or other coastal areas ^Projects must be an outgrowth of the specific policies to manage key uses (section II b.2.) and key areas (section II B.l.) 134 of environmental, recreational, historical, esthetic, ecological or cultural value, or c) for the preser- vation of islands. Eligible recipients : general purpose governments (state and local); University of Wisconsin; Tribal governments . :. J To strengthen local government capabilities to initiated I or continue effective coastal management. I (1) Demonstration Projects The Wisconsin Coastal Management Program should encourage new approaches to improve management of the limited Great Lakes shoreline. In order to assist governments with management within their jurisdictions, the coastal program will provide funds for innovative approaches to coastal problems. Eligible activities . The purpose of demonstration project funding is to encourage unique and innovative projects. The range of eligible projects should re- main as broad as possible. To ensure the greatest possible flexibility in evaluating projects, any project which meets the following guidelines will be eligible for consideration. The guidelines for project eligibility include: (a) Projects should deal with an issue or problem of substantial interest to others in the coastal area, and results should be applicable to other coastal locations in Wisconsin (or the nation) . (b) Projects should not duplicate other projects in Wisconsin which are in process or which have already been completed. However, projects which result from or build upon previous projects would be acceptable. (c) Projects must be consistent with the adopted plans of local units of government and areawide agencies. Eligible Applicants : Applications for demonstration project funding would be accepted only from coastal towns, villages, cities or counties. Other local units or agencies of government or private bodies interested in potential demonstration projects would be required to obtain the sponsorship of the local unit of government and the clearance of the unit in which the project is located. The local governmental unit could act as sponsor for projects; could contract with others to complete projects; or could undertake projects on its own. 135 (2) Regional Technical and Administrative Support The Wisconsin Coastal Management Program is directed at improved communication and coordination between units of government. Eligible activities for which financial assistance within this element is available: 1) assisting regional clearinghouses to facilitate coordi- nation and avoid duplication; 2) providing administrative support to local governments in seeking financial or technical support through this program; and 3) pro- viding readily available general technical support to local governments in addressing coastal problems; 4) providing technical assistance coordination; 5) staffing regional technical and citizens advisory committees. Eligible recipients : Regional Planning Commissions. (3) Local Government Technical Assistance The intent of this coastal program local assistance is to aid local units of government in developing a capability to manage their shoreline. Requests for funding under this category generally should fall within the following descriptions of eligible projects: Eligible activities (a) Planning and Management Program Development - Organization of study or planning program - Staff development (b) Conduct of a Planning and Management Program - Development of alternative or final plans - Data collection and analysis - Review of technical studies and reports - Preparation or revision of implementing ordinances - Staff training programs and courses (c) Specific management activities Assistance for the implementation of a manage- ment program would be obtained through partici- pation in the designated area/use program dis- cussed in section 3.d immediately above. Eligible Recipients : General purpose governments, University of Wisconsin, regional planning commissions. 4. Standards for Project Funding In order to ensure that the best possible use is made of the available funds, applications for coastal program financial assistance must meet several funding guidelines. 136 a. General Guidelines (1) Applicants must state that a reasonable investi- gation of alternative sources of funding has been made. (2) The project must begin within 90 days of the approval of funding by the Coastal Management Council, and the project must be complete in two years or less. (3) Project funding may be combined with other local, state or federal funds (or projects) to achieve coastal management objectives. (Combining of funds is both appropriate and encouraged) . (4) Proposal may make applicant eligible for, or increase applicant's priority for funds, from other state or federal programs. (5) Applicants must have a clearly-defined means of public participation in the proposed project. (6) Applicant must comply with standard limitations on the use of federal funds (e.g., equal opportunity hiring) . b. Specific Guidelines for Funding (1) A single project may involve no more than 10% of the current budget year coastal funds. Total funding from the coastal program may not exceed 80% of the total cost of the proposed project. The applicant's share may be in matching funds or in-kind contributions. (2) Applicants for local assistance funds must be engaged in, or be in the process of creating or initiating, a local planning program that includes preparation and adoption of comprehensive coastal plan or plan component (s) . 5. Application and Review Process (a) Proposals for financial assistance will originate with appropriate eligible recipients. Project proposals and funding requests will then be sub- mitted to the Coastal Management Program. Assis- tance in preparing an application will be available from the regional clearinghouses and the lead agency. 137 (b) The program staff* would conduct an initial review of project eligibility. If it is determined that the proposal is clearly not eligible, a recommendation to that effect would be transmitted to the Council and to the applicant. (c) If the proposal appears to be eligible, the staff would transmit the project proposal to the appropriate regional clearinghouse for formal review. At the same time the proposal would be transmitted to a standing committee on financial assistance to be established by the Coastal Management Council. Where appropriate, the state clearinghouse will also be notified. (d) The state and regional clearinghouses will utilize their existing review process to solicit comments. (e) The state and regional clearinghouses will provide any comments to the Coastal Management Council's Financial Assistance committee within a 30-day period. (f) Following the formal review, this committee will meet to make its final recommendation to the Coastal Management Council. (g) The Council will make a final decision on project funding and notify the applicants of the decision. (h) The Council will then make application for the necessary funding from the federal Office of Coastal Zone Management. ^Program staff consist of representative of the major participating agencies, e.g., OSPE, BLRPC, NWRPC, SEWRPC, DNR, DOT, DLAD and others . 138 TIME TABLE FOR GRANT APPLICATION AND REVIEW 9 months before grant begins 7 months before grant begins - Call for proposals from eligible recipients. Information will be widely disseminated to local govern- ments, state agencies, regional planning commissions and others as appropriate. Due date for all proposals. Proposals will be referred to a standing com- mittee of the Council (Financial Assistance) for an initial screening of eligibility. 6 months before grant begins Eligible proposals submitted to Regional Clearinghouses for review and comment. Technical review conducted simultaneous^ 5 months before grant begins Due date for Regional Clearinghouse and Technical review. Standing committee prepares application and coordinates with the federal Office of Coastal Zone Management on budget and proposed projects. 4 months before grant begins Council review and approval of pro- posed application. Final application prepared. 3 months before grant begins - Formal submission of Grant Application to the State A-95 Clearinghouse pro- cess for review and comment. 2 months before grant begins - 1 month before grant begins Formal submission of Grant Application to the federal Office of Coastal Zone Management for review and approval. Formal notification of approved Grant Application by the federal Office of Coastal Zone Management. Note: Applications for the demonstration projects would continue to be accepted and reviewed at any time, following the initial period, but would be processed and evaluated on a first-come, first-served basis. 139 6. Reporting and Evaluation Each recipient will be informed that periodic reports will be required for all funded projects. In addition to the regular progress report, each recipient will be required to prepare a final report on the project as well as an evalu- ation of the project. It is recommended that a small staff technical committee be established to advise the Financial Assistance committee on progress and quality of projects. The Financial Assistance committee would also prepare an evaluation and final report to the Council for each funded project. The committee would provide a recommendation concerning further dissemination of information and reports concerning financial assistance. 140 |jg0Hag3S2Mai -?==^^ Ill UJ Ld Ul III. FEDERAL GOVERNMENT ACTIVITIES IN THE COASTAL AREA A. OVERVIEW One of the basic underlying concepts in Wisconsin's program proposal is to make government work better through a strength- ened relationship between state and local government. The Coastal Zone Management Act of 19 72 requires that the state- federal relationship also be strengthened by requiring fed- eral agency activities to be "consistent with the state program, to the maximum extent practicable." Wisconsin has requested federal agencies to identify their in- terest in the Wisconsin coast and has provided full opportunity for formal review of all program documents. (see Appendix I). Additionally several specific coastal issues have been addressed with excellent support from federal agencies, specifically shore erosion and the analysis of lake level regulation. Land owned by the federal government will not be included within the coastal management area of the Wisconsin Coastal Management Program. However, actions conducted on federally owned lands which have a spillover effect on air, lands or waters in the coastal management area must generally be in conformance with the Wisconsin Coastal Management Program. The exception to excluded federal lands are the Bad River and Red Cliff Reserva- tions, which are eligible for program assistance as defined in Chapter II. A list of federally excluded lands is reprinted in Appendix I. Continued coordination with federal agencies will ensure that national interests are adequately considered in the management of the program. Coordination has and must continue to occur not only formally but on a working level as well. The listing of those coastal related federal activities in which Wisconsin has an expressed interest can be found in Appendix I. The following sections set out in more detail the questions of 1. the national interest in the Wisconsin coastal area and its relation to the program; and 2. the question of consistency of federal actions with the Wisconsin program. 141 142 B. THE NATIONAL INTEREST IN THE WISCONSIN COASTAL AREA This program proposal recognizes that the Great Lakes are an important national, as well as state and local, resource. The natural, recreational, commercial shipping, and other benefits of Lakes Superior and Michigan extend beyond the boundaries of Wisconsin. The Coastal Zone Management Act of 1972 requires that a "management program provides for adequate consideration of the national interest involved in planning for, and in the siting of, facilities (including energy facilities in, or which significantly affect, such state's coastal zone) which are nec- essary to meet requirements which are other than local nature." This section describes how Wisconsin has fulfilled the spirit and intent of this requirement in the development of its coastal management program, and describes the process that the program will employ to consider the national interest in the siting of such facilities during program implementation. 1. The National Interest in the Wisconsin Coastal Area a. Commercial Navigation There is a national interest in maintaining and enhancing the level of commercial navigation on the Great Lakes. The five Great Lakes and their connecting waterways and canals form a water highway 2,342 miles long from the heart of the North American continent to the Atlantic Ocean via the St. Lawrence River. The area served by Great Lakes ports contains 35 percent of the nation's population, and provides 44 percent of the gross na- tional product. The dispersion of mineral resources, population, and industry, and the Region's lack of large sources of energy contribute to the great need for a complete and efficient transportation system. Continued regional growth and development is dependent on such a system. The Great Lakes-St. Lawrence River commercial navi- gation system is a low-cost transportation facility that is essential to the economic vitality of the Great Lakes Region, and an important contributor to the national economy. Waterborne transportation re- quires less energy per ton-mile than any other form of transportation and creates little noise and air pollution. It also provides efficient means of trans- porting energy sources such as coal. This navigation system is presently under used. There is a national interest in improving the efficiency of the present Great Lakes navigation system, including the facilities which are necessary to accommodate Great Lakes commerce . 143 A number of Wisconsin's ports and harbors have been declining or stagnating. For continued efficient operation, ports and harbors should be maintained to adequate depths both to allow oceangoing and lake vessels access to shore facilities and to allow ef- ficient shipping capacities. In order to maintain a high volume of traffic passing through Wisconsin's Great Lakes ports and harbors, the transportation system and facilities must be highly efficient and economical. There is a need for some modernization to keep pace with cargo handling technologies. Other considerations include seaway tolls, competition from railroads, and the level of attention given Great Lakes concerns by the Maritime Administration. The Duluth-Superior harbor is one of the most impor- tant in the Great Lakes and in the nation, shipping substantial amounts of iron ore, grain, and also scrap iron, coal, limestone, salt, steel products, and other products in both domestic and international trade. Federal expenditures at Duluth-Superior, particularly for maintenance dredging, have been high. The Wisconsin and Michigan coastal programs sponsored funding of an assessment of how to manage the twin ports in a compre- hensive manner. Priorities for this area include ex- tension of the navigation season, accommodation of supercarrier traffic, and disposal of dredge spoils in an environmentally safe manner. Other major harbors in Wisconsin include Milwaukee, Green Bay, Kewaunee, and Manitowoc. Needs in these harbors include continuation of cross-lake car ferries, attraction of sufficient or additional traffic, and dredging to maintain adequate depths in an environ- mentally sound manner. b . Energy There is a national interest in the siting of certain energy facilities that are necessary to meet require- ments that are other than local in nature in Wisconsin. Energy needs in the Great Lakes are closely related to the improvement of commercial navigation facilities, discussed above. Wisconsin has no known or projected production or reserves of oil, natural gas or coal. Coal is the major fuel for the generation for elec- tricity in Wisconsin, as it is for the entire Great Lakes basin, and virtually all of the coal used in Wisconsin must be imported by rail or water. Recent federal legislation and the President's Energy Plan have expressed a national policy supporting the in- creased use of coal for energy production. The im- 144 proveraent and expansion of facilities in Wisconsin to carry out this policy are in the national interest. Low sulphur western coal is presently increasing its share of the coal movement on the Great Lakes . Al- though shipments of eastern coal from the major coal ports of Lake Erie have declined within the last decade, electric utility demands for western coal spurred the completion in 1976 of a major coal trans- shipment facility in Superior. Reported to be the largest bulk handling facility in terms of cargo handled per unit time, the Superior facility is de- signed for an eventual transshipment capacity of 20 million tons per year. This facility could double the coal traffic moved on the Great Lakes . However the extent to which western coal traffic will increase depends upon the degree of conversion of existing facilities to western coal and the construction of new facilities for use of western coal. Wisconsin has a limited refinery capacity (a small refinery in Superior) and no expansion is antici- pated. One factor which might influence refinery development in the Midwest would be the piping of excess Alaskan crude oil to the region. There is a rather limited possibility that these pipelines could eventually bring between 700,000 to 1,000,000 bbl of oil daily into Minnesota. While such a development might necessitate the building of new refineries, it is more likely that the crude oil would either be piped to existing refineries operating below capacity or existing refineries would be expanded. Neither possibility is likely to have major implications for the Wisconsin coastal area in the foreseeable future. c. Defense Facilities There are no major defense facilities located in the Wisconsin coastal area (see list of federally excluded lands in Appendix I) ; in fact Wisconsin currently has the lowest per capita level of defense spending in the U.S. Any new defense facility would be evaluated in terms of its national and state importance. d. Other Facilities in Which There May Be A National Interest Although commercial navigation, energy and defense facilities are considered to be the most important categories of facilities in which there may be a national interest in Wisconsin, there may be a 145 national interest in the siting of certain recrea- tional facilities or regional sewage treatment plants in the future. The only federal recreation area in the state's coastal area is the Apostle Island National Lakeshore. There are currently no sewage treatment plants serving multi-county areas; however, recent court decisions indicate that treatment levels for the Milwaukee metropolitan area may have to be more stringent than nearly all other cities in the Lake Michigan watershed. e. National Interest in Coastal Resource Conservation and Protection The requirements of the CZMA to consider adequately the national interest in the planning for and siting of facilities which are necessary to meet other than local requirements must be met within the context of bal- ancing a national interest in these facilities with other national interests related to coastal resource conservation and protection. In the Great Lakes, water quality is of paramount national and regional concern. The Great Lakes contain approximately 20% of the world's fresh water. Both Lakes Michigan and Superior have very high water quality, with the exception of heavy pollu- tion in the near shore area of the southern end of Lake Michigan. Great Lakes water quality problems have received national attention under provisions of the Federal Water Pollution Control Act of 19 72, and recent efforts in Congress to amend the 1972 Act would strengthen the Federal effort to ensure protection and enhancement of Great Lakes water quality. The national interest in planning and siting of energy facilities, facilities to improve commercial navigation, and other facilities in Wisconsin must be balanced against the national interest in preserving and enhancing the Great Lakes as national resources important for fish and wildlife habitat, re- creation, commercial fishing and drinking water supply. 2 . Consideration of the National Interest During Program Development The Wisconsin Coastal Management Program has solicited state- ments of national interest from all relevant Federal agencies during program development, and these were fully considered in the formulation of this program proposal. The program initiated interaction with Federal agencies in early 1975 to delineate their specific programmatic responsibilities and authorities, and to solicit their comments on the de- veloping program. Contacts with at least 25 federal agencies have been established on a formal and/or working level. Federal agencies that conduct their activities with one or more state agencies (e.g. EPA-DNR) have also been consulted through the state agencies . Federal agencies have received 146 copies of management program reports and budget requests, questionnaires and any additional materials they have requested for their review and comment. (See Appendix I). All substantive federal comments received relative to the coastal program to date have been given consideration and have been integrated wherever possible. Wisconsin also participates in various interstate, regional and international bodies to consider problems common to the Great Lakes region which also have national interest impli- cations. For instance, Wisconsin is represented on the Great Lakes Basin Commission, and actively participates on the GLBC's Standing Committee on Coastal Zone Management. Federal agencies are also represented on the GLBC and on the Standing Committee. Wisconsin participates either formally or informally in several other bodies dealing with national or international issues. These include the International Joint Commission, the Upper Great Lakes Regional Commission, the Great Lakes Commission, and the Winter Navigation Board (particularly the Environmental Planning Task Force) . The state also participates in federal agency ad hoc groups, such as the forthcoming Maritime Administration Great Lakes Cooperative Port Planning Study. The Wisconsin coastal policies reflect the program's con- sideration of the national interest in the siting of facilities that are other than local in nature. Coastal policies on community development and economic development support orderly and balanced coastal development that is in the national interest by guiding the regulatory decision making on the siting of such facilities and by promoting balanced development through a variety of incentives, programs and technical assistance efforts. Commercial navi- gation, port development and improvement, and power plant or transmission line siting are among the key concerns of these policies (see pps . 30-37). The Wisconsin Coastal Management Program also ensures that resources that are in the national interest are adequately protected in these planning and siting decisions, and this concern is reflected in coastal policies on Coastal Water & Air Quality; Coastal Natural Areas; Wild- life Habitat and Fisheries; and Coastal Erosion and Flood Hazard Areas (see pps. 18-29). Although the Wisconsin Coastal Management Program is not a physical siting program, the national interest has also been accommodated in that none of the facilities listed by OCZM as being other than local in nature and possessing characteristics in which there may be a clear national interest are unreasonably or arbitrarily restricted from locating or continuing present operations in the coastal area. The program has already identified power production and transmission lines, rural shoreland development, and major recreational sites as being activities of particular state concern and of regional benefit. Various methods will 147 be employed by the program to assure that these uses of regional benefit will not be arbitrarily or unreasonably restricted from locating in the Wisconsin coastal manage- ment area. (See discussion of activities of regional bene- fit in Chapter II. B. 2.) With specific reference to planning for the siting of energy facilities, Wisconsin is actively engaged in meeting the re- quirements of section 305(b)(8) of the Coastal Zone Manage- ment Act. The state's planning and siting decision-making process for new generating plants and transmission lines is set out in some detail in Appendix H (managed use number 2c) . There is a ten year advance planning require- ment for utilities and standards are set forth for Public Service Commission and Department of Natural Resources approval of applications for plant and transmission line construction. Of course, both the state and national environmental policy acts' provisions apply. There are no interstate energy plans applicable to Wisconsin that involve state government. Staff work is currently underway to ana- lyze utility advance plans and their impacts on the coastal area, as well as looking at the impacts and adequacy of management of any other coastal enerev facilities. This effort will specifically examine the national interest in energy (specifically examining federal laws and regulations, plans, policy statements and the coastal program's federal contacts' statements of national interest) and its relation to the Wisconsin program. Meeting national and regional needs requires a commitment to acknowledging national values and needs in the coastal area. Federal agencies will have review and comment opportunities to express their agency concerns in the designation of geo- graphic areas of management concern. Among the areas which are eligible for designation as GAMC's are those suited for water related economic development, future power plant sites, and areas of significant recreational value. The Wisconsin program will consider the national interest in designating these areas for special management attention and in providing financial and technical assistance to these designated areas. Other areas eligible for GAMC designation reflect the Wiscon- sin program's consideration of the national interest in re- source conservation and protection, such as areas of signi- ficant natural, scientific or historic value, hazard areas, areas for preservation, and areas for restoration. The GAMC approach will enable Wisconsin to achieve a balanced consideration of the national interest in facility siting and in resource protection and conservation. 148 3. Process for Continuing Consideration of the National Interest During Program Implementation During program implementation, the Wisconsin program will continue to consult with all relevant federal agencies and regional bodies and consider the national interest in making program decisions. In addition to this ongoing consultation process, the Wisconsin program will look to the following sources of information on federal policy that will be taken into account in implementing program responsibilities : (1) Policy statements from the President, as for example the National Energy Plan; the National Environmental Message and associated executive orders on wetlands and floodplains; the National Outdoor Recreation Plan; (2) Federal laws and legislation; (3) Statements from Federal agencies regarding national interests, including such statements as may be provided by NOAA; (4) Plans, reports and studies from Federal, State, interstate agencies or from interstate groups, as for example interstate energy plans; (5) Testimony from public hearings or other public input . The Coastal Management Council will play a key role in estab- lishing and maintaining a continuing consideration of the national interest in the planning and siting of facilities that are other than local in nature . The Council will have the ability to develop coastal policies on issues which involve the national interest. Through the provision of financial and technical assistance to state agencies and local governments, the Council will support projects or activities that meet both state criteria and address issues of national concern. As noted previously, GAMC categories have been established which reflect national interests in both facility siting and in resource conservation and pro- tection. Council designation and financial assistance to these GAMC areas will carry out both state and federal objectives. The Council will also serve as a forum for informal resolution of conflicts among state agencies, or between one or more federal and state agencies. In its review of coastal plans and projects, the Council will evaluate these activities for compliance with the manage- ment program, including the requirement for adequate con- sideration of the national interest. 149 The program will also utilize several other ongoing pro- cesses to ensure consideration of the national interest during program implementation. The Wisconsin Environmental Policy Act, which is very similar to the National Environ- mental Act, requires the preparation of environmental and economic impact statements before a decision is made to conduct any major state action with a significant environ- mental or economic impact . State agencies are required to consult with and obtain the comments of any agency including a federal agency which has jurisdiction or special expertise with respect to the impacts involved, and a public hearing must be held to solicit further views. In addition, OSPE works with the DNR to review and comment on federal EIS's developed pursuant to the National Environmental Policy Act. State review and comment of other federal actions is required under the A-95 process and the Fish and Wildlife Coordination Act. (See Appendix H, III A. 4) Federal con- sistency review by the Wisconsin Coastal Management Program will also provide an important opportunity for consideration of the national interest in the planning and siting of fac- llities . C FEDERAL CONSISTENCY-FEDERAL ACTIVITIES, DEVELOPMENT PROJECTS GRANTS AND FINANCIAL ASSISTANCE 1. PROCEDURE In an effort to avoid creating a new mechanism for review of 150 federal activities, development projects or grants and financial assistance programs that directly affect or result in a direct effect in the coastal management area will be reviewed through existing state and regional clearinghouse procedures (0MB Cir- cular-A-95) . Federal agencies are requested to notify the State Clearinghouse of a proposed action affecting the coastal management area (15 coastal counties and Great Lakes waters) and provide a determination that such is consistent with the state program, to the maximum extent practicable. The State Clearinghouse will in turn notify the Coastal Management Council, affected state agency (ies) and regional clearinghouse (s) . A 60-day review period will follow, starting from receipt of notice by the State Clearinghouse, resulting in one of the following actions: 1) Concurring with the determination. 2) Disagreement with the determination. 3) no response-presumed concurrence 2. Criteria Evaluation of consistency with the Coastal Management program will be based upon the following criteria: 1) Is the activity consistent with state coastal policies (set forth in Chapter 1)? 2) Is the activity consistent with specific management policies for designated state managed GAMCs? 3) Does the activity allow for an opportunity for full public participation? D. FEDERAL CONSISTENCY-ISSUING LICENSES AND PERMITS The federal consistency provisions of the Coastal Zone Manage- ment Act extend also to the issuance of licenses and permits and a requirement that they be certified by the state as con- sistent. The following licenses and permits affecting the Coastal Management area will be subject to certification by the Wisconsin Coastal Management Program. Department of Agriculture a) 16 USC 522, 523 Permits for water easements on National U.S. Forest Service lands (Forest Ser- vice) b) 16 USC 497 Permits for construction on U.S. Forest Service Lands (Forest Service) 151 US Army Corps, of Engineers a) 33 USC 403-404 Excavation and fill permits, construction in navigable waters (state permit required) b) 33 USC 1344 Dredge and fill permits (state permit re- quired) Environmental Protection Agency a) 33 USC 1251 Water Pollution Control (state permit required) b) 33 USC 1857 Clear Air (state permit required) Federal Power Commission a) 43 USC 717 Construction and operation of inter- state gas pipelines and storage facil- ities (state permit required) b) Hydroelectric Projects (state permit required) c) Power planting siting and transmission lines (state permits required) Department of Interior a) 16 USC 3 Construction of Visitor facilities on National Park Service land (NPS) b) 16 USC 5 Rights-of-way for electrical trans- mission lines on National Park Service land (NPS) Interstate Commerce Commission a) 49 USC 1(18-26) Railroad and Service Abandonment (State permit required for service abandonment) Nuclear Regulatory Commission a) Siting and operation of nuclear power plants (State permits required) Department of Transportation a) 33 USC 401 Construction and modification of bridges, causeways in navigable waters (US Coast Guard) (State permit required) b) 33 USC 419 Hazardous substances and materials (US Coast Guard) (State permit required) c) Construction of Airports (State permit required) 152 This listing is intentionally limited to those permits where the federal licenses may significantly affect the coastal manage- ment area. If it is found that the issuance of other permits and licenses cause significant impacts on the coastal resource, the consistency requirements will be applied by administratively add- ing them to the list above. If no state agency issues a corres- ponding state permit the Coastal Management program will conduct the review. An applicant for a federal permit will be required to demon- strate to the federal agency that he has applied for and, be- fore federal approval, received the necessary local and state approvals. The key to assuring that federal permits are con- sistent is to require that permits from local governments and state agencies are granted prior to the issuance of the federal permit. It is reasonable to assume that federal review will be concurrent with state review. Public notification and, if necessary, a public hearing will be the responsibility of the state agency or local government granting the comparable permit. Certification of consistency with the Coastal Management Pro- gram can be presumed upon receipt of the corresponding state or local permit. However, certification of consistency with the coastal management program will be issued by the Coastal Management Council to the federal agency when no other state agency issues a corresponding permit or license. The criteria in section III B. above will be used in such cases. E. FEDERAL CONSISTENCY - REVIEW FEDERAL PLANS Federal plans directly affecting land, air and water in the coastal management area will be submitted to the coastal man- agement Program for review. The plan must be accompanied by a statement that each proposed activity, project or develop- ment which is described in the plan and affects the coastal management area is consistent with the Coastal Management Program, e.g. oil spill cleanup, U.S. Coast Guard. The state- ment should be accompanied by necessary data and information to support the agency's consistency determination. The Coastal Management Program will use the same evaluation criteria and certification process described above when review- ing the federal plans. If a plan is found to be inconsistent with the Coastal Management Program, OCZM and the federal de- partment will be notified of the conflict. 153 F. TRIBAL GOVERNMENTS There are two reservations in Wisconsin with shorelands located on the Great Lakes. The lands of the Bad River and Red Cliff Tribes make up 27% of the Lake Superior shoreline. These Tribal governments play an important role in the management of the state's coastal areas. Providing for Tribal governments' full participation in the coastal management program follows a national trend toward full involvement and self determination for Indians in all federal programs. In 1975, Con- gress passed the Indian Self Determination and Education Assistance Act, which provided for transition from federal domination of programs for, and services to, Indians to the effective and meaningful participation by Indian people in the planning, conduct, and administration of those programs and services. In February 1977, the Red Cliff Tribal Council formally requested full participation in the Coastal Management Program. As a result, the Wisconsin Coastal Coordinating and Advisory Council wrote the Office of Coastal Zone Management (OCZM) seeking changes to the federal Coastal Zone Management Act to enable full participation by Tribal governments. Recognizing the treaty relationships between tribes, as sovereign nations, and the federal government, the Council supported an effort to amend the federal Act (P.L. 92-583) to allow tribal governments to seek assistance directly from OCZM in the development and implementation of a Coastal MAnagement Program. OCZM policy with regard to Tribal governments has evolved in the follow- ing manner. Initially, OCZM policy provided that Indian tribes could be considered "local governments" and thus eligible to receive Section 305 (planning) and Section 306 (management) grants through state coastal man- agement programs. However, the Coastal Zone Management Act Amendments of 1976 clearly defined "local government" in a way which excluded tribal governments. In an attempt to find ways to fund coastal management efforts in tribal areas, OCZM proposed a new policy in April 1977. This policy was to read the Act to permit a state to recognize a Tribal government as a "regional agency" and pass through funds on that basis. According to the Act, lands owned by the federal government are considered "excluded fed- eral lands" and would not be covered by the coastal management program. Tribal lands held in-trust by the federal government would be considered "excluded federal lands" but would be eligible to receive both Section 305 and Section 306 funds for tribal program development efforts and/or for specific management projects. The legal jurisdictional questions are a matter for the courts and not the state coastal management program. The objective of the Wisconsin Coastal Management Program is to improve coastal management, coordination, and capabilities. Therefore, the Wisconsin Coastal Management Program encourages full participation of Tribal governments in three areas: coor- dination, technical assistance, and implementation of Tribal management policies. More specifically: • Coordination among state agencies and with local and Tribal governments will be achieved through the Coastal Management Council. The two Wisconsin Indian tribes with reservations in the coastal area will be invited to send representatives to the Coastal Management Council. 15 A • Technical assistance will be provided to the Tribal governments in the same manner it is provided to other governments. • Funds for implementation of the management policies on the reser- vations will depend on designation of lands within the reserva- tion boundaries as geographic areas of management concern (GAMCs) , The Tribal Council will follow the same procedures for nominating GAMCs as any other nominating agency of government. The entire reservation or a portion of the reservation can be nominated as an area of management concern. Then, just as other applicants, the Tribal Council must define a clear management policy for the area that is consistent with adopted coastal program goals, show that it has the ability or authority to carry out those manage- ment policies, and agree to carry out the policies. G. SUMMARY Upon approval of its Coastal Management Program, the Wisconsin Coastal Management Program will initiate a memoranda of under- standing with federal agencies with regard to any comprehensive plans, activities and developments within the coastal manage- ment area. This memoranda of understanding would be utilized for institutionalizing policies and procedure for ensuring consistency between federal agencies and the coastal management program. The Great Lakes Basin Commission Standing Committee on Coastal Zone Management will provide an additional mechanism for early identification of any federal activities, developments or plans that would affect the coastal management area. z o o o I 155 IV. CONCLUSIONS For three years the Coastal Coordinating and Advisory Council looked, listened and inquired into citizen concerns on Great Lakes issues and about government. In addition to the changing of the location of Council meetings, three rounds of special meet- ings with local officials and citizens were conducted along the Great Lakes shoreline. The Council, by its own composition con- sidered, the viewpoints of local officials, of state legislators and of state resource managers. The viewpoints of various coastal interests were continually fed in through an active Citizens Ad- visory Committee and regional citizens and technical advisory committees. Throughout this period the Council sought opinions on what Wisconsin should be doing to better manage its Great Lakes resources. This program proposal reflects a broad consensus as to the best approach for Wisconsin in improving coastal management. In general, existing state laws are adequate to manage the Great Lakes resource. The real needs are to make these laws work bet- ter; to coordinate the separate actions of federal and state a- gencies; to assist developing local capabilities to solve local coastal problems; and to develop a public awareness and strong advocacy for Great Lakes concerns . To achieve these ends the state will create a new state-level body to guide these efforts, composed of state agencies' rep- resentatives, state legislators, a strong voice from local gov- ernments, a number of publicly oriented members and representa- tives of Tribal governments. Advised by a Citizens Committee, this body will use the financial assistance available through the federal act to improve coastal management. Coastal management is not only the responsibility of state govern- ment but local governments as well. The program proposal recog- nizes the need for a strengthened partnership between state and local governments, identifying as a state responsibility the need to assist local government in developing capabilities to address local coastal concerns. What has been put together in this proposal is a program that is best for Wisconsin. Like the Great Lakes, the citizens of Wisconsin are unique as well. They are an independent lot, sometimes even stubborn; they are very concerned about the natural resources of the state, and they are concerned about "big government". During the past few years the Council continually heard statements against "another super agency" and in favor of "resolving coastal problems" and "advocating coastal concerns". This proposal has responded to these concerns and reflects the type of program that would work in Wisconsin. 156 The proposal is consistent with the interest of Congress in recog- nizing the unique and special character of the Great Lakes; in co- ordinating the state, local and federal effort, and in increasing the role of citizens in the decision making process. While Wis- consin's program is designed first for Wisconsin — its citizens and its resources — it also meets the spirit and letter of the federal coastal management act. With the support of federal and state funding, implementation of this program will improve Wis- consin's coastal management, a step that will benefit residents of Wisconsin and the nation. PART III ENVIRONMENTAL IMPACT STATEMENT 157 PART III ENVIRONMENTAL IMPACT STATEMENT A. DESCRIPTION OF PROPOSED ACTION This full document is both a draft environmental impact statement and a program document on the Wisconsin Coastal Management Program. The proposed action is approval of the Wisconsin Coastal Management Program which is explained in Part II. Part III completes the NEPA/ WEPA requirements concerning the environment affected, probable im- pacts of the action and alternatives. A table cross-referencing NEPA/WEPA requirements with sections of this document may be found on Page 6 (Part I. C.) B. DESCRIPTION OF THE ENVIRONMENT AFFECTED Wisconsin has 156 miles of mainland coastline along Lake Superior and approximately 464 miles forming the western shore of Lake Michigan. Although only 15 of Wisconsin's 72 counties are coastal, (Figure 1), 43 percent of the state's population lives and works in these few counties. Millions of Wisconsin, Illinois and Minnesota residents annually enjoy the numerous recreational opportunities offered within these coastal counties. The following section out- lines the natural environment of Wisconsin's coastal area and the importance this area has for Wisconsin and Midwest residents. 1. The Natural Environment During the Ice Age a succession of glaciers ebbed and flowed across the Upper Midwest. The most recent glacial period, the Wisconsin, further deepened Lakes Michigan and Superior and left a series of unconsolidated deposits which comprise nearly all of Wisconsin's shoreline. Except on the Bayfield Peninsula and Door County where sandstone or limestone com- prise the shore, the shoreline consists of highly erodible glacial till overlaying lacustrine deposits. a. Wisconsin's Lake Superior Coast Along the four Lake Superior counties, Douglas, Bayfield, Ashland, and Iron, the shoreline is a uniform 30-100 foot highly erodible bluff, varied only by small river and stream mouths, the broad, low Chequamegon Bay, the Kakagon slough, and the Bayfield peninsula. Twenty- two largely uninhabited islands extend from the peninsula and comprise the Apostle Islands. Most of the Lake Superior shoreline is covered with spruce, fir and northern hardwood forests, providing approximately 370,000 acres of wildlife habitat in the coastal town- ships . Nearshore waters are relatively unpolluted except near urban areas and where shore and stream erosion of red- clay create high turbidity. An estimated 8,400 acres 158 FIGURE 1 • ME.fisw^aiTjwBKron wgmsc . - 3«;Jax t= a aces *~ aexW ^B»«r ■■■*»•< 159 of fish habitat borders the Lake Superior shore. Al- louez Bay at Lake Superior's western end, Bark Bay near Cornucopia, Fish Creek slough in Chequamegon Bay, and the Kakagon and Bad River slough provide approxi- mately 12,000 acres of wetland habitat. Extensive in- ventories and assessments of Wisconsin's coastal wet- lands, fish and wildlife habitat, and state designated and/or managed natural areas have been conducted as background for the Coastal Management Program. Shoreline erosion and one of its causal factors, higher lake levels, have been primary concerns of citizens in the Lake Superior coastal area. Although nearly 25 miles of the shoreline (including islands) are subject to erosion or flooding, most of the property damages occur in the Duluth-Superior area. An estimated $250,000 in erosion damages occurred along the Douglas County shoreline between 1972-1974, and property owners spent an estimated $1.44 million for protective mea- sures during that period. Lake Superior levels have fluctuated within a 3.8' historical range because of climatic changes. This oscillation has major impacts on the amount of dredging which is required, and the extent of shore erosion and flood damage. Exploratory drilling has identified deposits of copper, nickel, gold, and silver under Lake Superior. Mining these minerals is currently not economically feasible. b. Wisconsin's Lake Michigan Coast Wisconsin's Lake Michigan shoreline extends from Mari- nette in the north to Kenosha in the south, and in be- tween, the most notable feature is the Green Bay. The Fox and the Menominee Rivers empty into the bay, the former being the major cause of pollution in the bay. The Green Bay-Door County area has extensive wildlife and fish habitat, 304,000 acres and 5,700 acres re- spectively. Peshtigo harbor, the Ridges Sanctuary, and the Oconto Marsh are unique wildlife areas visited annually by over 30,000 people. Except for the west side of Door County which is com- posed of Niagara limestone, the Lake Michigan shoreline is eroding, at some places 5 feet or more a year. Ur- banized Racine County suffered an estimated $2,580,000 in erosion damages in 1972-1974. Even greater losses, $7,139,000, occurred from flooding in Brown County. Such losses have encouraged further investments in shoreline protection measures. Construction of sea- walls, groins, and revetments, however, may encourage more homes and commercial buildings to be built in the hazardous area. Although in Door County the limestone bedrock reduces erosion damages, the inadequate soil 160 cover over this bedrock results in numerous septic tank failures — a problem compounded by the county's increasing number of second home owners. Agricultural, urban, and forested lands comprise the Lake Michigan shore. Between the Illinois state line and Milwaukee the immediate coastal area is heavily urbanized. North of Milwaukee County agriculture is the predominant land use. Milwaukee and Green Bay are the largest of Wisconsin's twelve Lake Michigan cargo ports, in terms of commodity tonnages. Because the Lake Michigan and Green Bay area is the industrial- commercial center of the state, the coastal counties witness significant conflicts between transportation, recreation, residential, and agricultural land uses. 2. Socio-economic Aspects of the Coastal Area a. Lake Superior With less than 2% of the state's population, Wisconsin's Lake Superior coastal counties experience seasonal em- ployment patterns and lower than average per capita incomes and property valuation. Logging and mining booms decades ago granted the region bursts of prosperity, but now the region emphasizes its potential for recreational activities. Aside from Superior, a major port for grain, coal and taconite shipments, the other local economies rely upon tourism, government employment, and some man- ufacturing, particularly of wood products. Fishing has not recovered from the damaging effects of the lamprey, over harvesting, and now trace metals and chemicals. With few locational advantages, except for their recre- ation potential, the four coastal counties have experi- enced declining populations. Although the area's annual unemployment rate still exceeds 10%, since 1970 rapid population growth has occurred in several smaller coastal communities. Expansion in tourism and recreational home developments, small manufacturing firms, and the health care industry, have improved the region's economy. The demand for coastal recreation takes many forms — shoreline cottages, condominiums, marinas, hiking trails, and others. Seven harbors containing nine marinas on Lake Superior provide less than half of the estimated number of boat slips needed by 1980. This demand for boating facilities occurs not only around the Apostle Islands National Lakeshore but in the Duluth-Superior harbor and elsewhere. Greater demand for public access to the coastal environment is evidenced by the 95% increase in visitation to Big Bay State Park, the Apostle Islands, and the Brule River State Forest between 1970-1975. The 161 State and local governments are deciding whether more public recreation facilities in the coastal area should be provided. Only 8.6 miles of mainland shoreline (6%) are publicly owned, and another 48 miles of shoreline are within the Bad River and Red Cliff Indian reservations. Conflicts over multiple uses of public access facilities, the tax impacts of removing lands from local tax rolls, and the effects of future developments have and will increase. These problems and many others are related to planning economic development which is compatible with protecting the unique natural resources of the region. b . Lake Michigan The eleven counties bordering Lake Michigan are both urban and rural. Providing adequate public access opportunities, protecting significant historic sites, planning shoreline developments, improving water quality, erosion, and utility plant siting are issues facing Lake Michigan coastal residents. Although about 41% of the state's population resides in these eleven counties, important population and economic shifts are occurring within the coastal counties. Popu- lation growth in the entire southeastern part of the state has slowed dramatically, and out-migration exceeded in- migration during 1970-1976. The cities of Racine, Kenosha, and Green Bay gained population during the early 1970' s, but their metropolitan areas grew faster. In the City of Milwaukee the population declined by about 63,000 over the same period as businesses left the central city for the metropolitan area. Wisconsin cities bordering Lake Mich- igan all confront, to some degree, the issues of maintaining and increasing employment opportunities in the central city areas. Subsequently, there are good reasons for using land near the shore for commercial or industrial purposes. Port modernization and maintenance of the cross-lake rail and passenger car ferries are two additional issues related to coastal areas of Wisconsin cities. Recreational related pressures on the coastal zone will be a source of conflict between different user groups. Coastal communities interested in enhancing the local economies through recreation and tourism will attempt to increase the likelihood that the visitor will spend money and time in the region. Increasing the number of establishments serving tourists and opening these accommodations to winter recre- ationists would enhance local economies but bring additional pressures on local water supplies, sewers, and roads. Pro- viding housing and adequate roads for greater numbers of tourists involves satisfying local ordinances and state re- quirements, and either may pose unforeseen difficulties. 162 Attaining rights for the public's access to the shore is expensive and controversial. Shoreland property along Lake Michigan costs from $30-100 a front foot. Such prices can make the public purchase of either title or access rights to coastal properties prohibitively ex- pensive. Inland areas may be acquired more cheaply. Seventy-five miles (16%) of the Wisconsin Lake Michigan shoreline already are publicly owned. Public ownership of additional shore property often is assumed to raise local property taxes by reducing the local tax base. Recent studies of state-local fiscal relationships in Wisconsin indicate that this assumption usually is not justified particularly if eventual service costs for the land's improvements are considered. Other problems, such as increased noise, litter, and traffic, also may accompany development of more opportunities for public access to the shore. c . Summary Although coastal features vary among the counties, issues are often similar. Planning for and managing the local impacts of tourism and recreation, conflicts between shore- property owners and those seeking access to the lakes, erosion, and poor water quality are issues affecting most coastal communities. 3. The Institutional Setting In Wisconsin, federal, state, county, town, and municipal govern- ments all influence the use of the coastal area. On particular immediate issues coordination and communication between different governmental units occur readily, but some issues rarely have been addressed, such as erosion hazard area zoning. In addition, the policies of different levels of government may conflict with each other and lead to litigation — the Wisconsin Department of Natural Resources (DNR) and the U.S. Army Corps of Engineers disagreement over dredge spoil disposal is a ready example. Coordination be- tween levels of government is not totally lacking, rather the problem is how to improve that process where necessary. Coastal lands in Wisconsin fall within several state and sub- state jurisdictions. The thirty- three incorporated municipalities which adjoin Lakes Michigan and Superior have considerable home- rule authority to adopt zoning ordinances or alter the shoreline profile. Between the incorporated areas, coastal counties exer- cise the state mandated shoreland and floodplain zoning authority, general zoning authority, or sanitary codes. Unincorporated towns along the coast can veto the county's general zoning ordinances, but not the requirements imposed under the shoreland and flood- plain zoning statutes. Although towns have the least home-rule authority, town boards have a major impact upon the type of coastal development which occurs through their adoption of town ordinances, review of individual plat decisions, and provision of public services. 163 Except for Ozaukee and Milwaukee counties the coastal counties have some county level land-use controls over unincorporated areas.* These controls generally consist of general zoning, shoreland or floodplain zoning, subdivision regulations, or sanitary ordinances. Appendix H identifies the status of these regulations. Under the Water Resources Act of 1966 the state required all counties to have a planning and zoning committee, a board of appeals, and a professional staff. This staff generally enforces the range of sanitary and zoning ordinances in the county, and can provide general planning assistance. Three regional planning commissions provide technical assis- tance to county and local governments and represent local governments in selected state and federal policy deliberations. The Northwest Wisconsin Regional Planning Commission, the Bay- Lake Regional Planning Commission, and the Southeastern Wisconsin Regional Planning Commission assist counties and local governments with housing, transportation, land and water resources, and economic development planning activities. While the commissions are only advisory, their technical expertise, A-95 clearinghouse functions,** and interaction with state and federal agencies can provide valuable services to state and local governments. The roles of existing state agencies are discussed in Chapter II B of Part II. Federal government activities affecting the coastal area also are described in the previous section. *Milwaukee County has no unincorporated areas and Ozaukee County uses sanitary codes to guide development. **For the counties of Sheboygan, Manitowoc, Kewaunee, Door, Oconto, and Marinette the Office of State Planning and Energy coordinates the A-95 review procedures. Brown County is a separate A-95 clearinghouse. 164 C. PROBABLE IMPACTS OF THE WISCONSIN COASTAL MANAGEMENT PROGRAM 1 . Introduction Wisconsin's proposed Coastal Management Program is not a specific physical project. Rather, the objective of the proposed program is to improve the way coastal resources are managed. This impact assessment identifies selected impacts of the Coastal Management Program policies on: air and water quality; natural areas, wild- life habitat and fisheries; coastal erosion and flood hazard areas; community development; economic development; government inter- relationships; and public involvement. Each of these policy areas will be examined separately and for each issue the current situa- tion, the estimated result of the Coastal Management Program, and the probable impacts of the program will be discussed. For a more extensive discussion of the issues and existing state policies, refer to Part II, Chapter I.C. The Coastal Coordinating and Advisory Council has incorporated concerns addressed by the Wisconsin and National Environmental Policy Acts (WEPA and NEPA) into the program proposal as policies to judge actions by and as procedures for designating GAMCs and making budget decisions. Environmental, social, economic, and institutional concerns have been incorporated into the program proposal goals and statements of policy in Part II, Chapter I. The Council believes that existing WEPA and OMB Circular A-95 review processes plus review by the proposed Coastal Management Council of coastal related funding requests and agency policies can fully include WEPA and NEPA concerns in the Coastal Manage- ment Program. As the proposal indicates, the program will rely partly on current activities of Wisconsin state agencies to address concerns expressed in NEPA and WEPA (see Table 7, printed at the end of Part III). 2. Impact of the Proposed Program on Water and Air Quality The generally good water quality of Lakes Michigan and Superior is impaired by isolated discharges of municipal and industrial wastes and nutrients, plus inorganic compounds in the surface runoff. Air quality in the coastal area is also generally good, but precipitation remains a major source of the water pollutant polychlorinated biphenyls (PCBs) . Wisconsin and neighboring states are pursuing programs to reduce the inflow to the lakes of nutrients and toxic chemicals, particularly those that are concentrated by organisms, but considerable work remains in all phases of these pollution abatement programs. To complement the ongoing effort on these issues, the Wisconsin Coastal Man- agement Program will undertake the four program activities identified on page 2 3. Impacts of three of these activities are addressed below: a. (1.17) The Wisconsin Coastal Management Program will perform advocacy functions in monitoring and reviewing changes and additions in water and air quality programs and regulations which impact on coastal resources or people. 165 Currently, there are numerous issues for which a single voice at the local, state, or federal level will encourage faster resolution of the problem. Examples of such issues include: the level of federal funding for non-point pollu- tion control efforts, a possible ban on phosphorus laundry detergents in the Great Lakes Basin, research into the Great Lakes littoral drift patterns, and ozone concentra- tions along the southern shore of Lake Michigan. Such issues now are being addressed to a limited extent by state or federal agencies, the State Legislature, or Congress. The objective of the program's advocacy role is to heighten the awareness of the public and governmental officials to the uniqueness of Great Lakes resources as compared with Wiscon- sin's 10,000 other lakes. This uniqueness is reason to encourage more prompt attention to coastal issues. It is difficult to separate the impact of the Coastal Manage- ment Program's advocacy role from that of others. The effec- tiveness of such advocacy depends upon the timing and merit of the program's expression of concern. For example, the program could identify at an early date why a potential source of air pollution should meet certain emission standards (Policy 1.15). This assessment concludes that the net impact of the Coastal Management Program's advocacy role toward air and water qua- lity issues will be an increased awareness by federal or state agencies and the public that certain coastal issues are impor- tant to Wisconsin and deserve more prompt, thorough, or cir- cumspect resolution. b. (1.18) The Wisconsin Coastal Management Program will support public awareness and research of (1) factors affecting Great Lakes water quality and supply, with emphasis on the translake shipment of oil and other energy resources; (2) the unique climatic characteris- tics and limitations of coastal air resources; (3) air as a transmitter of pollutants to Great Lakes waters; and (4) the impact of noise on the natural, cultural, and social environment. As authorized under the federal Water Pollution Control Act Amendments of 1972, P.L. 92-500, and the Safe Drinking Water Act of 1974, P.L 93-523, the Wisconsin DNR and the U.S. EPA currently are addressing statewide water supply and water quality issues. These programs have not yet addressed the impact on Great Lakes water quality of possible oil spills occurring during transfer or shipment. Existing state and federal air quality management programs have given insuffi- cient attention to the uniqueness of the coastal air resources. Knowledge about the interactions between land and water air masses is extremely limited, but important if the state is to implement the Clean Air Act of 1970. Another issue which is currently receiving insufficient state and federal attention 166 is the role precipitation plays in water pollution. An estimated 25-50% of the PCBs entering the lakes may have precipitated from the air. These examples illustrate how existing resource management programs and the public's awareness could benefit from additional basic information. One objective of the Wisconsin Coastal Management Program is to support research into such air and water quality issues and publicly distribute the results. For example, a specific objective of the Coastal Management Program may be the iden- tification of the role precipitation plays in water pollution or the effects of interacting land and water air masses on coastal air quality. Another specific objective could be to help the Wisconsin DNR identify the sources and impacts of pollutants discharged by tributary streams. Such research could encourage government water pollution control programs to more effectively control the burning or discharge of potential air and water pollutants, as noted in Policies 1.5 and 1.16 (pp. 2 2-3). The program could also help assess the amounts of phosphorus reaching the lakes from urban stormwater which furthers the state's phosphorus dis- charge control program (Policy 1.7, p. 22). Subsequent dis- tribution of such research would improve the public's under- standing of environmental protection programs. In summary, the Coastal Management Program's support of additional research and emphasis on public awareness of coastal issues could improve the management of air and water resources by strength- ening existing regulatory programs. c. (1.20) The Wisconsin Coastal Management Program will provide financial assistance to improve implementation and enforcement of existing water and air quality pro- grams where gaps or weaknesses are identified, with emphasis on (1) on-site waste disposal; (2) disposal of hazardous substances; (3) disposal of dredge spoils; and (4) coordination and air quality monitoring. Currently, state agencies and citizens have identified gaps and weaknesses in Wisconsin's existing air and water quality management programs specifically relating to the use of on- site waste disposal systems and the disposal of hazardous substances and dredge spoils. For example, scientists have developed improved methods of on-site waste disposal which do not require a traditional septic tank and leaching field system. Many septic tank systems are currently inadequate because of poor soil or geologic conditions and improper maintenance. The new methods of on-site waste disposal could effectively remove the de facto growth control measures pro- vided by local sanitary codes. Because of poor soils for septic tanks, the coastal area is a prime target for devel- opers using the new on-site waste disposal systems. 167 Currently, the disposal of hazardous substances, particularly industrial waste, is too often performed without adequate knowledge of subsoil conditions and the potential for leach- ate to drain into the Great Lakes. The issue of dredge spoil disposal exemplifies the differing approaches of state and federal agencies in the management of the coastal region. The State of Wisconsin bans open-lake disposal of any dredge spoil based on the state statute's definition of dredge material as a pollutant. Subsequently, communities must find suitable on- land disposal sites for the dredged materials. Alternatively, the federal government contends that dredge spoil is not polluted unless concentrations of certain elements exceed pre- scribed limits. The Corps of Engineers believes that the open- lake disposal of unpolluted (as defined by federal standards) dredge spoil is permissible. This is an example of where informational gaps and differing analyses have caused a problem. If harbors are not dredged, their commercial use is limited. At the same time, the EPA admits that there is inadequate information on how to classify the pollutant levels within dredge spoils and the relative costs of on-land and open-lake disposal methods. Objective 1.20 of the Coastal Management Program is to assist state, local, and federal officials to resolve such issues by funding research on selected problems. Program funds could monitor the issuance of on-site waste disposal permits in the coastal area or aid communities to identify suitable on-land sites or alternative uses of dredged materials. The impacts of monitoring permits for on-site waste disposal systems could enable local governments to revise their sani- tary codes to ensure proper operation and maintenance of such systems. This is entirely consistent with the state policy on siting of disposal fields near waterways (Policy 1.13, p. 22). The net effect of the Coastal Management Program's involvement in the dredge disposal issue could be the development of a process through which dredging may occur with minimal adverse effects on the environment and incur the least cost to all concerned (Policy 1.4, p. 21 )• Commercial shipping through Wisconsin harbors could remain profitable and the port economies made more viable by the program's activity. 3. Impact of the Wisconsin Coastal Management Program on Coastal Natural Areas, Wildlife Habitat and Fisheries Of the five program activities related to natural areas, wildlife and fisheries, impacts of the following four are discussed: (1) the accelerated collection of data on soils, geologic conditions, hydrology, etc. (2.15); (2) identification and designation of areas of significant natural or scientific value (2.16); (3) the imple- mentation of specific policies for the designated areas (2.17); and (4) improved implementation and enforcement of existing pro- grams where gaps or weaknesses have been identified (2.18). 168 a. (2.15) The Wisconsin Coastal Management Program will support the accelerated collection of data on soils, geology, hydrology, aerial photography, and other topics where needed for coastal management decisions. Resource management issues, the range of management options, and possible results of such decisions cannot be completely identified unless data are available and analyses are con- ducted. Currently, Wisconsin lacks aerial photography to thoroughly assess coastal wildlife, funds to define fish- eries' boundaries, and soil surveys for zoning decisions per- taining to natural areas. The objective of this program activity is to provide the technical information necessary to make resource management decisions. Because the type of management proposed for a natural area or wildlife habitat frequently limits the options of other potential users, the credibility of any management program requires adequate baseline information. The Coastal Management Program is continuing its accelerated data collec- tion on: (1) the distribution and relative abundance of fish species in Lakes Superior and Michigan, (2) the fish and wild- life of Superior's harbor, (3) aerial photography for habitat assessments and recession rate measurements, and (4) soil mapping in the four Lake Superior counties. The program's funding of research on fisheries could further the state policy of maintaining the fisheries (Policy 2.11, p. 27) by improving information on fish stocking practices, daily catch limits, and lamprey eel control measures. The Coastal Management Program's funding of accelerated data gathering by the State Scientific Areas Preservation Council already has enabled this group to accelerate its identifica- tion and designation of such coastal sites (Policy 2.1, page 25) . Past support of soil surveys and topographic mapping have already augmented local decision making. In summary, the net effect of this program activity will be incremental improvements in such state policies toward natural areas and habitat. b. (2.16) The Wisconsin Coastal Management Program will support local and state agency efforts to identify and designate areas of significant natural or scientific value and develop specific management policies for each area. and (2.17) The Wisconsin Coastal Management Program will provide financial and technical assistance to state and local agencies to implement the specific management policies for these designated areas. 169 Because the identification of geographic areas of management concern (GAMCs) entails not only their identification and designation but also a provision of sufficient technical and financial assistance to develop management programs for these areas, these two activities are considered jointly. The state currently designates and controls uses within selected sites which have particular value as scientific areas (Policy 2.1). In addition, the state establishes state parks based upon criteria for an area's value as a public recreation or educational site (Policy 2.2). Certain wild- life areas, trout streams, and forests also are managed by the state (Policies 2.6, 2.8, and 2.3). At the local level communities identify certain areas as unique resources and manage them as local recreational or natural areas. Presently coastal areas must compete with other locations for the pub- lic's resources, and certain issues related to natural areas remain unresolved. Management programs for the Great Lakes fisheries have not resolved controversies between sport and commercial fishermen. Public access to the shoreline some- times has been limited by local government decisions and actions of private property owners. Through activities 2.17 and 2.18 the Coastal Management Program intends to fund local and state efforts to identify and manage geographic areas of management concern. The program's objec- tive is to encourage communities or agencies to designate and manage certain areas for their wildlife habitat, archeological value, uniqueness as a recreational area, or other unique features. A specific example of the Coastal Management Program's potential impact would be to encourage the state to place higher priority on locating state parks near urban areas. This would increase the number of state parks near the urbanized coastal area and is entirely consistent with the state policy on parks (Policy 2.2, p. 25). Emphasizing the identification and improved management of GAMCs will likely lead to the improved management of state designated trout streams (Policy 2.8, p. 26). Already the Bad River Indian Reservation has requested desig- nation of the Bad River area as a GAMC. Such designation and subsequent funding by the program would enable the tribal government to improve the management of the tribe's fishery. One possible problem to be considered is if the Coastal Manage- ment Council should decide to support such activity by the tribal government, whether this may further antagonism between the tribe and sport or commercial fishermen. Designation of such areas will help to ensure that the local or state managing agency has developed visible guidelines for the area's use. The Coastal Management Program's emphasis on improving the management of select coastal areas will reduce the chance that significant coastal resources are irretrievably lost because of poor or nonexistent management policies. 170 c. (2.18) The Wisconsin Coastal Management Program will provide financial assistance to improve the implementa- tion and enforcement of existing programs which manage uses with a significant impact on the coastal environ- ment where gaps or weaknesses are identified. (See II. B.2). Particular attention would be given to Great Lakes fisheries resources, coastal wetlands, and other natural and scientific values. Although Wisconsin has numerous state and county programs which address the development of wildlife habitat or fisheries and the preservation of coastal areas, information is lacking on fish habitat and fish populations and the value for wild- life of certain coastal wetlands such as the Bark Bay area along Lake Superior. Because existing state and federal programs inventory natural areas and design management pro- grams throughout the entire state, the management of certain coastal resources has received less priority. This problem has meant, in certain cases, that the public's interest in a coastal wildlife or natural area has not been defined. Al- though the state instituted a model shoreland and floodplain zoning program a decade ago, in some instances local enforce- ment efforts have been thwarted because of inadequate assess- ments of the resource base or a limited amount of technical assistance from the state to the localities. The end product of the Coastal Management Program's funding to improve existing programs is a better definition of the public's interest in certain key natural areas. Funds from the Coastal Management Program will permit greater emphasis on coastal issues without detracting from inland concerns. The net effect of Coastal Management Program funding will be the improved implementation and enforcement of existing pro- grams. For example, coastal program funding of enforcement personnel and equipment could assist the state in regulating fishing in state fish refuges (Policy 2.12, p. 27). 4. Impact of the Wisconsin Coastal Management Program on Issues Related to Coastal Erosion and Flood Hazards Shoreline residents in Wisconsin have identified coastal erosion as a major issue which the state's Coastal Management Program should address. Loss of land, buildings, roads, and historical sites, increased turbidity and sedimentation, and periodic flood damages in low lying areas have been identified as issues of public concern. The Coastal Management Program has identified three means of addressing these problems: (1) advocate the state's concern at the federal level with respect to programs of the Flood Insurance Administration and the U.S. Army Corps of Engineers, (2) support research and public education on hazard areas, and (3) assist local and state efforts to identify hazard areas and develop management programs with them. The latter two program activities probably will have the most significant impact on the environment. 171 a. (3.7) The Wisconsin Coastal Management Program shall support research and public education on the dangers associated with these hazards in the form of technical analyses of data and recommendations for structural and nonstructural alternatives to alleviate erosion impacts, coordinating fully with the UW-Sea Grant College Program, the Wisconsin Geological and Natural History Survey, the Department of Natural Resources, and Soil and Water Conservation Districts. Currently, Wisconsin lacks information on recession rates on Lake Superior, the processes of slope failure, and the role of littoral drift in supplying sand to particular reaches of the coast. For many years the Wisconsin Department of Natural Resources in conjunction with the U.S. Army Corps of Engineers has regulated the location, size, and type of shore protection measures property owners could install below the ordinary high watermark. Communities seeking to identify hazardous coastal areas and guide the development that occurred in these areas have not had the technical information on recession rates, flood stages, and bluff stability with which to implement non- structural erosion control measures. Counties and communities have expressed an interest in having more information on the type of structural measures best suited to a particular area. Even when the Corps of Engineers provided such information, local governments frequently have not used this data. The objective of the Coastal Management Program's funding of recession rate studies, the economic and technical feasibility of alternative structural erosion control measures, and moni- toring bluff stability at selected locations, is to abate injury and damage caused by shore erosion. If this additional information is used in platting subdivisions and locating structures and roads, property losses attributable to coastal erosion and flooding could be reduced, which is entirely con- sistent with state policy 3.4 (p. 30). Provision of more com- plete or reach-specific information on the type of structural measures to retard erosion could further the state policy of regulating the materials used for shore protection (Policy 3.4, p. 30). To the extent the Coastal Management Program provides technical information otherwise available to shore property owners only through a private consultant, the program increases the incomes of shoreline residents. b. (3.8) The Wisconsin Coastal Management Program shall support local and state efforts to identify and designate hazard areas as areas of special management concern and develop specific management policies for each and shall provide financial and technical assistance to local and state agencies to implement those policies for designated areas. 172 As noted above, Wisconsin currently lacks effective programs to reduce the property losses, shoreline debris, and degradation of the shore's aesthetic value resulting from coastal erosion and flooding. The shoreland or floodplain zoning programs have not been applied effectively to the coastal erosion issue. A lack of technical information and assistance to local governments has further limited the extent to which communities have designed erosion and flood damage prevention programs. In only a few localities do local ordinances specifically seek to reduce erosion and flooding losses. The Coastal Management Program's efforts to improve the local and state management of hazard areas should reduce property losses, the accumulation of debris on the shoreline, and protect certain recreational access points and beaches. This activity of the program could encourage local governments or the state to better incorporate hazard area management into either the shoreland and floodplain zoning ordinances or other regulations (Policies 3.1 and 3.2, p. 30). If the program's activity reduces the amount of development occurring in hazardous areas, it will contribute to an increase in property values in non-erodible areas. Alter- natively, if a community determines that the value of the hazardous area warrants the cost of structural shore protection measures, property values in hazardous areas could increase. In summary, the Coastal Management Program's support for the improved manage- ment of hazardous areas will result in a more thorough definition of the state's interest in the coastal erosion and flooding issue. 5. Impacts of the Wisconsin Coastal Management Program's Activities Relating to Community Development The state's concern for community development includes a wide range of issues — guiding growth in coastal communities, restoring blighted areas, and providing opportunities for public access and use of the coastal area (Part II, Chapter I.C., pp. 32-5). Currently, many state programs address community development issues. The shoreland zoning program, state restrictions on the creation of subdivisions, and the community assistance and housing programs of the Department of Local Affairs and Development address some of the concerns of coastal com- munities. Although these programs have been partially effective, respondents to the Coastal Management Program's public opinion surveys have identified the need for additional community assistance in order to address coastal issues. The Coastal Management Program has identi- fied four ways of meeting some of these concerns, and the impacts from three of these activities are discussed below. a. (4.14) The Wisconsin Coastal Management Program will support local governmental efforts to identify and designate areas of significant natural, recreational, scientific, cul- tural, or historic value and develop specific management, preservation, or restoration policies for each area with emphasis on recreation access and blight. This effort will be coordinated with the program referenced in Policy 4.4 and 173 (4.15) The Wisconsin Coastal Management Program will provide financial assistance to local governments to implement the specific management policies of designated areas. Currently, local governments on their own initiative may identify and designate areas of significant local concern. As funding and staffing permits, the three coastal regional planning commissions, county planning and assistance groups, and various state agencies may assist local governments in developing general land use, economic development, and housing programs. Wisconsin's Coastal Management Program would not replace these existing institutions. Rather, the program seeks to increase the likelihood that local governments will address problems of the coastal area by designating certain coastal areas as geographic areas of management concern. The net impact of the Coastal Manage- ment Program's attention to community development concerns probably will be selected improvements in local management capabilities for the areas. The program's funding of the State Historical Society to identify and inventory the architectural, archeological, and other historic features of the coastal area has provided informa- tion which was not scheduled for collection until the 1980 's (Policy 4.6, p. 34). Local designation of certain scenic areas as GAMCs and subsequent funding from the Coastal Management Program may enhance the state's aesthetic resources, particularly along state-designated Rustic Roads (Policy 4.7, p. 34). The program's encouragement of GAMC designation for areas of local or state con- cern could improve the chances that these areas will be eventually included into the state parks system (Policy 4.9, p. 34). In short, the program seeks to increase the priority of improving the way coastal resources are used. Within selected harbors, Superior, Green Bay, and Milwaukee, certain areas have been discussed as potential GAMCs because improved land use plans could establish priorities for how scarce and valuable waterfront land should be used. Designation of GAMCs may heighten the priority which local govern- ments assign to coastal issues, but could lessen the attention the local government gives to other areas. The availability of Coastal Management Program funds may improve the chances that the desig- nated area receives the attention of other funding programs, for example from the Economic Development Administration, the Depart- ment of Interior, or regional planning commissions. Program fund- ing could provide the added leverage necessary to obtain various intergovernmental grants or services. This emphasis on a coastal area may de-emphasize inland community development issues. Because intergovernmental grants frequently only provide a portion of a project's funding and because each funding agency tends to seek additional sponsors for a project, state and federal officials will be responsible for ensuring that non-coastal areas receive adequate attention. 174 b. (4.16) The Wisconsin Coastal Management Program will provide financial and technical assistance to local governments to improve their coastal management capa- bilities, with emphasis on staff training, ordinance revision, data collection and analysis and county shoreland zoning. As discussed above, many coastal communities have lacked the technical information on certain coastal issues to revise local ordinances and to provide additional staff training. The limited resources of local governments frequently are not sufficient to meet all community development concerns. Zoning administrators have expressed interest in more state assistance for ordinance revision and additional information on selected technical issues such as soils, hazard areas, and the environ- mental values of certain coastal wetlands. The potential impact of this program activity will be to develop the capabilities of local zoning administrators, resource personnel, and elected officials. For example, during the 305 (d) grant period from October 1977- March 1978, the program will continue to fund the preparation of technical brochures and manuals pertaining to coastal issues for zoning administrators and appeals board members. 6 . The Effect of Wisconsin's Coastal Management Program on Economic Development in the Coastal Area In a 1976 study, Business Prospects Under Coastal Zone Management , the Real Estate Research Corporation identified the following categories of interest groups potentially affected by the coastal management program: 1. owners of affected properties 2. neighboring property owners 3. other property owners whose interests may be affected by the advantages or disadvantages conferred upon coastal area property owners by the program. 4. government bodies 5. the general public Suggested accounting perspectives can incorporate a wide range of specific impacts such as — the generation of income from coastal resources, costs of providing roads, sewers, and other public services in the coastal area, employment opportunities, property values, and government costs and revenues. These impacts are important to consider, and the Wisconsin Coastal Management Program contends that the process developed to monitor coastal program activities through the WEPA process, A-95 review, and the Coastal 175 Management Council will enable such impact analyses to occur. Within this context the Coastal Management Program has identified eight potential activities through which it could influence economic development patterns in the coastal area (Part II, Chapter I, pp. 39-40). Of these eight activities, the potential impacts of five will be addressed. a. (5.14) The Coastal Management Program will seek to improve the coordination of policies which affect the economies of coastal areas. and (5.15) The Coastal Management Program will seek to improve the implementation and enforcement of existing state regulatory and management programs which influence the economic well-being of citizens along the Great Lakes . Current economic development patterns in the coastal area, as in other regions of the state, primarily reflect private in- vestment decisions and the general tenor of the state and national economy. At the federal level there is little ability to fully coordinate the policies of all government levels which affect the coastal area. The Departments of Commerce; Housing and Urban Development; Transportation, and Energy in- dividually exert some influence over the investments and policy decisions made by other agencies. At the state level, the Governor's Office is responsible for coordinating the business development, taxation, and public investment policies for the entire state. Local governments can use public services provision and zoning decisions to influence the type of economic activity which they desire. Practically, however, the private sector usually initiates investment, and local governments in the state react to rather than predetermine the economic activity of the coastal area. With respect to the siting of electrical generating and trans- mission facilities the state has a power plant siting process which ensures the public of up to ten years prior notification and justification for new facilities. For other energy siting facilities, such as coal terminals, the state currently has less of a planning and coordination policy. Within this context the potential end-result of the Wisconsin Coastal Management Program mainly will be to selectively coord- inate and advise upon government policies affecting the coastal area. This coordinative activity will occur as the occasion warrants and use the federal consistency provisions of the Coastal Zone Management Act (Sec. 307). Over the past two years of program development the Coastal Management Council or staff have addressed such issues as state policies for the ports, location of electricity generating facilities in the coastal area, and recreation's impact on the coastal area. 176 Coordinating policies and improving the implementation of existing state management programs are designed to (1) identify and minimize the adverse impacts of private invest- ment decisions, (2) design state programs which are consistent with state goals for higher incomes and lower unemployment, and (3) advise local governments or other interests of the statewide impacts of local, state, or federal policies. The net impact of such coordination by the Coastal Management Program will be to increase the chances that business devel- opment policies for the coastal area are consistent with state tax programs and the provision of public services. The program's attention to providing recreational facilities in the coastal area, (Policy 5.4) and addressing port revitalization and competing land uses within harbors (Policy 5.8) could enhance the economic position of certain interest groups. Because there has been little evidence that the program will adversely affect incomes, property values, and employment opportunities, the public has not been concerned about these issues during the program development period. The public has identified a need for better coordination on the siting of energy facilities, particularly fossil fuel depots, and state promotional programs for recreation access and business development. Coastal Manage- ment Program funding to improve existing state management programs could help the Public Service Commission identify potential im- pacts of a coastal energy facility (Policies 5.10 and 5.12). The program's emphasis upon developing economically viable ports will further the state's multi-modal transportation planning (Policy 5.3, p. 37). b. (5.16) The Wisconsin Coastal Management Program will provide financial assistance to state and local agencies to implement the specific management policies of designated economic areas and improve the implementation of existing programs to broaden the economic base of communities with desirable diversifications of industry and to effectively manage coastal land and water resources which influence community development. This broad program activity addresses the need for funding the development of management programs for CAMCs and to improve state programs related to specific uses of the coastal area. As outlined above and in Part II, Chapter I. C. (pp. 37-39), the state has specific and general policies relating to particu- lar coastal areas and types of activities. Despite the ex- pressed intent of the policies outlined in Part II. Chapter I.C. (pp. 37-39), the state lacks a consistent port policy, sufficient technical assistance to small businesses, and a set of mutually consistent economic development goals and programs. This current situation partly reflects a hesitancy upon the part of state government to alter a stable and pro- ductive economy. Nevertheless, certain local and state issues relating to the ports and local planning efforts to promote 177 business development, economic diversification, and public works investments have been identified as areas for which added funding is warranted. The objective of the Coastal Management Program's funding of such local or state activities in GAMC's hopefully is to create more stable and diversified local economies, more jobs, higher personal incomes, and increased local fiscal capacity. The program's incremental effect is the higher priority given to coastal issues. For example, under its 305 (d) grant, the Wisconsin Coastal Management Program will fund a demonstration project by the Bay-Lake Regional Planning Commission to de- termine ways the interests of the Coastal Management Program can be integrated with the local overall economic development planning committee. The program will also partly fund an assessment of on-shore facility needs for continued commercial use of Milwaukee's inner harbor (Policy 5.3, p. 37). This work could lead to the eventual designation of the inner-harbor as a GAMC. Less local opposition may arise concerning a particular private or public investment if the coastal manage- ment, employment, and community development aspects of the project are jointly considered. c. (5.17) The Wisconsin Coastal Management Program will support local government efforts that consider in their coastal plans and programs the concept that waterfront locations be kept available for activities which need such locations and that unnecessary development not consume coastal resources particularly suited to other uses. Currently, local planning programs do not specifically address the need to keep certain coastal areas available for business or recreational activities which require a coastal location. Land use patterns in many coastal communities exhibit instances where anticipated harbor facilities and in some instances res- idential buildings occupy lands more suitable for use as marinas or modern cargo handling facilities. Inadequate attention to guiding development so that lake access sites are reserved for water dependent activities can impair the expansion or divers- ification of the local economic base. Harbor frontage is a limited resource which warrants careful management by local governments. The objective of the coastal management program's attention to reserving waterfront sites is the preservation of more flex- ibility for future use of the coastal area. Managing the coastline in such a manner may increase or decrease property values or incomes for those interests currently occupying the site. Rental potentials or purchase prices for inland site locations may be altered, and a potential redistribution 178 of income may be made from those currently using waterfront locations to those who can convince the local government that their use is dependent on a waterfront location and in the interest of the community. Preservation of waterfront loca- tions is primarily a means of giving the community time to assess how its coastal area should develop. Other merits of such planning include lower prices for goods using the port and diversification of the local economy. Such local planning is consistent with the state's promotion of business and industrial development (Policy 5.1, p. 37). d. (5.20) The Wisconsin Coastal Management Program will support state and local government efforts to (1) identify and designate areas especially suited for water-related economic development and power plant sites approved through the power plant siting process of the Public Service Commission and (2) develop specific management policies for each. As noted in the discussion of 5.17 local governments and the state do not have programs to predesignate areas for water- related economic development or power plant sites. The state, however, does require utilities to file advance plans as much as 10 years in advance of the construction of a generating plant. Local governments and the state are not designating certain areas for their potential use for power plants, grain elevators, coal handling facilities, etc. 7. The Effect of the Coastal Program on Governmental Relationships The many and diverse interests of citizens and units of government suggest consideration and assessment of the Coastal Management Program's role in promoting communication, cooperation and coor- dination. Integrating various concerns is important at all levels of the management process, from goals to objectives, to policies, to programs. At the same time, attention must be given to simplify- ing regulatory processes, time spent on such processes, and avoiding duplicative efforts. The impact of these coastal management policies and programs must be evaluated with regard to Wisconsin state agen- cies, other Great Lakes states, local and tribal governments, and the federal government. In an attempt to measure the effect of the Coastal Management Program upon these relationships, the current situation and the expected outcome must be considered. a. (6.8) The Coastal Management Program will use existing review processes (A-95, NEPA, and WEPA) to ensure coord- ination of federal, state, and local policies and programs. Currently, the A-95, NEPA, and WEPA processes seek to ensure that federal, state, and local policies are consistent with each other. Intergovernmental working relationships seek to resolve policy differences, but disagreements on certain issues such as dredging and tax policies remain. 179 The Coastal Management Program intends to create a Coastal Management Council composed of state and local officials. For federal-state relations the program will use the federal con- sistency provisions discussed on pp. 149-54. The most important impact of the Coastal Management Program on government relationships will be to serve as a forum for address- ing intergovernmental coastal issues. For example, the state is interested in promoting the recreation and tourism industry, but many local governments seek methods of determining what types of recreational development would be most suitable for the area. The dredging issue is another example of how the Coastal Manage- ment Program could serve as a forum for analyzing the state, federal, and local costs of alternative dredge spoil disposal methods. This would be entirely consistent with the state policy 6.7 (p. 42). Although several officials have expressed their beliefs that adequate coordination currently exists, state, local, and regional officials have remained involved in the program. b. (6.9) The Coastal Management Program will support tribal governments in their efforts in coastal management. With respect to coastal management programs, the current status of tribal governments as proposed by OCZM in an April 1977 policy, (Section III. E, p. 152 ) is that of a "regional agency." On this basis, tribes are eligible to receive Section 305 and Section 306 funds for efforts related to program de- velopment and for coastal management projects. Within the Wisconsin Coastal Management Program, the Bad River and Red Cliffs Tribes are encouraged to engage in coordination, assis- tance, and management activities. Specifically, Tribal govern- ments are invited to send representatives to the Coastal Manage- ment Council, request technical assistance, and seek funds to implement management policies by applying for geographic areas of management concern status. One of the intended results of supporting tribal governments in their coastal management efforts is to incorporate them in the decision-making process, where they have at times not been consulted. Including the Tribal governments in this process should facilitate the exchange of interests and ideas as well as increase mutual assistance among different levels of govern- ment. Another intention of the program is to promote the identification of tribal concerns and the implementation of their coastal management programs. Offering support to these governments for technical assistance and funds should enable the state to discover tribal needs, advise the tribes of similar management efforts, suggest factors which may be desired for the tribes' management plans and blend tribal and state management efforts to a more cohesive management of the coastal resources. 180 Potential effects upon governmental relationships of promoting the coastal management efforts of tribal governments may be greater than the intended results. Expanding the number of governments involved may reduce the time needed to resolve conflicts. One possible impact is that the idea of providing a forum for state agencies, tribal governments, and substate governments to discuss their common interests as well as their conflicts might be adopted for other programs, hence further increasing communication and coordination between non-coastal tribes and government officials. c. (6.10) The Coastal Management Program will improve coord- ination with adjacent Great Lakes states and federal agencies with continuing programs affecting Lakes Michigan and Superior. Currently, Wisconsin's working relationships with the federal government and Great Lakes states consists primarily of formal and informal interaction between administrative agencies. The Great Lakes Basin Commission, a state-federal coordinating body , charged with broad-range planning in the basin, has additionally served to coordinate federal and interstate activities. Wisconsin and the neighboring states of Michigan, Illinois, and Minnesota have at times worked independently in addressing Great Lakes issues. The Coastal Management Program intends to improve the coord- ination between Wisconsin and neighboring states and the federal government. This would be accomplished by supporting the role of the Great Lakes Basin Commission and developing better working arrangements with adjourning states on common coastal issues and projects. Federal consistency requirements of the Coastal Zone Manage- ment Act additionally require that federal activities relating to the state's coastal areas be consistent with the state's program. Common issues include fish management, erosion, shipping, car ferries, port development and others. The net effect of the Coastal Management Program might include the selective additional support of the state's participation in various federal studies addressing Great Lakes' issues, such as the Federal Maritime Administration's study of Great Lakes port issues. It could also include multi-state efforts at addressing common issues such as those indicated above, and an increased exchange of information between states and with federal agencies. Such interstate coordination on coastal issues may not have occurred in the absence of the program. 181 d. (6.12) The Wisconsin Coastal Management Program will perform advocacy functions in seeking increased policy- recognition of the Great Lakes in policy by all levels of governments with emphasis on the federal level. The Great Lakes sometimes lack the full recognition of their importance to the nation. Because the Lakes are totally within states' boundaries, they are often given a secondary importance in some federal programs. While comprising over 90% of the surface fresh water in the U.S., only 2% of the federal water quality funds address Great Lake water quality problems. Wisconsin is blessed with 10,000 clear fresh-water inland lakes which are highly used by citizens and vacationers. As a result, public attention is directed to them for recreational and eco- nomic reasons. The recent increase in excellent sport fishing in Lakes Michigan and Superior has drawn some increased citizen attention to the Great Lakes. Heightening the priority given to Great Lakes issues at local, state, and federal levels is the objective of the advocacy function of this program. The intended result is to gain strengthened local, state, and federal support to address and better manage the Great Lakes resources. The impact of such an advocacy activity could be a shifting of priorities at each of the governmental levels. Given a relatively fixed amount of manpower and dollars, a greater emphasis on the Great Lakes could mean a shift away from other governmental pro- grams . 8. The Effects of the Wisconsin Coastal Management Program on Public Involvement in Coastal Resource Management Decisions The Wisconsin Coastal Management Program has identified the need for (1) increasing public awareness and information on coastal issues and (2) improving and increasing the opportunities for citizens and interest groups to effectively participate in governmental decision- making on coastal issues. To these ends the Coastal Management Council has identified the need to pursue five activities (Part II, Chapter I.C.); this discussion addresses the impacts of three of these activities. a. (7.6) The Wisconsin Coastal Management Program will support public education and awareness of coastal issues and broadly disseminate program materials. Currently, there are several state agencies, educational institutions, or sub-state agencies which support public education and awareness of coastal issues. The Wisconsin Department of Natural Resources, University of Wisconsin- Extension, the University of Wisconsin Sea Grant College Program, and the coastal regional planning commissions all provide to a varying degree information on coastal issues. Sea Grant and the University Extension are the major clear- inghouses for research and technical information relating 182 to the Great Lakes. The DNR prepares technical reports on wildlife, fish habitat, and the environmental quality. The regional planning commissions provide a forum for information on local government issues and state policies affecting the coastal area. The Coastal Management Program will seek to support the public education programs of existing agencies and distribute infor- mation and technical studies which the program itself prepares. The net effect of this activity will be not only a greater a- mount of technical and general information but also the wider or more thorough distribution of information. The public's interest in erosion hazards, economic activities and potentials of the coastal area, and in preparing better local management programs indicates that information on such issues is useful. This program activity has provided information on coastal recreation economics, lake level regulations, and coastal historical sites that probably would not have been otherwise provided (Policy 7.1, p. 44). b. (7.7) The Coastal Management Program shall create a broad State Citizens Advisory Committee, with independent staffing, to monitor program implementation and to develop, recommend and sponsor public information, education, and participation programs (see Section II C. Organization for further discussion) . As repeatedly emphasized in Part II of this document, the Coastal Management Program provides a forum for public in- volvement in coastal resource decision-making. While citizens can present their views to governmental officials, it is dif- ficult to develop an ongoing program which keeps many interest groups informed of the many state, federal, or international activities affecting the coastal area. In the absence of an organization which addresses the interests of diverse public groups (environmental preservation advocates, fishermen, in- land residents who use the coasts for recreation, local officials, port promoters, and coastal business interests), each interest group must individually address coastal issues as they develop and circumspection about related concerns is limited. Although some interests will gain access to decision-makers regardless of the role of a Citizens Advisory Committee, the group's impact depends upon how well the group understands government processes. In its own right the Citizens Advisory Committee is designed to be a highly visible organization which provides information to interest groups and the general public and advises the Coastal Management Council. £0A 183 The impact of a Citizen Advisory Committee of diverse interests is greater visibility of coastal issues to the general public and probable specific actions by individual groups to promote their special interests in the Great Lakes. Over the long term increased public awareness and involvement will lead to improved coastal management. c. (7.9) The Coastal Management Program shall provide ap- propriate forums to involve and educate citizens on pro- jects and programs which have a significant or controversial impact on coastal resources; subject those projects and programs to public scrutiny and discussion; and make recommendations concerning such projects and programs to appropriate governmental agencies. As previously emphasized, there is not a single mechanism in the state which specifically seeks to involve and educate citizens on programs or issues which affect coastal resources. The objective of the Coastal Management Program is to assist in providing forums for such involvement. One example of how this activity can improve public awareness of a resource issue is the program's support for the dissemina- tion of materials of an existing technical committee on coastal zone management of Racine County. This committee has prepared and distributed technical reports on bluff recession and period- ically reports to the Racine County Board. Through the efforts of this group, Racine County is adjusting county regulations which better consider coastal erosion. The Coastal Management Program will also fund the preparation of training materials on dealing with coastal issues for the members of the local plan commission and zoning board of appeals. This information previously has not been available. D. ALTERNATIVES TO THE PROPOSED ACTION Civen the nature of the proposed action, approval of the Wisconsin Coastal Management Program, all alternatives would involve a decision to delay or deny approval. Delay or denial of approval could be based on failure of the Wisconsin Program to meet any of the requirements of the Federal Coastal Zone Management Act (CZMA) . In approving a CZM program, affirmative findings must be made by the Associate Admin- istrator for Coastal Zone Management on over twenty such requirements. In the course of development of the Wisconsin program, several poten- tial deficiencies were identified. These deficiencies have now been corrected to the satisfaction of the Associate Administrator, who has made an initial determination that Wisconsin has meet the requirements for approval under Section 306 of the CZMA. In order to elicit public and agency comment and assure that the Associate Administrator's initial determination is correct, this section identifies three areas where deficiencies were found and considers alternatives of delay or 184 denial based upon each. Before examining the three alternatives, the following section identifies the generalized impacts that would result from delay or denial on any basis. The generalized impacts of delay or denial of approval of the Wiscon- sin Coastal Management Program, regardless of the basis of delay or denial, are as follows: (1) Loss of Federal monies to administer the program. Under Section 306, Wisconsin would receive approxi- mately $1.2 million per year to administer its coastal management program. Most basis to a loss of Federal funds will be inability of the state to pursue the basic overall program objectives that Wisconsin has laid out in Part II, Chapter l.B, and the coastal issues and policies in Chapter l.C. Loss of these monies would mean that existing state management programs would not be funded at increased levels to improve their operation, that problems in Lake Superior and Lake Michigan may continue due to neglect or lack of funds to address them, and that local governments in need of financial and technical assistance to deal with problems such as coastal hazards will not receive such help. More detailed identification of the differential between existing funding levels of these problems and new levels re- sulting from CZM program approval, as well as the environmental impacts of these differentials are contained in Part III, Section C. Delay or denial of program approval will also make it difficult for Wisconsin to access funds available from other sections of the CZMA. This includes funds for beach access, interstate projects, research and technical assistance, and coastal energy impact assistance. (2) Loss of consistency of Federal actions with the coastal policies of Wisconsin. Program approval would mean that Federal actions, in or affecting the Wisconsin coastal area would have to be consistent with the state's management program, under Section 307(c) of the CZMA. At this time, the state believes such au- thority would be useful in a number of areas, including (1) meeting stricter state standards for dredge spoil disposal; (2) assuring that Corps of Engineers and Federal Insurance Administration actions are in line with state erosion policies; and (3) achieving a uni- form definition of the high water mark based on vege- tation to meet state conservation policies. (3) Loss of adequate consideration of the national interest in the siting of facilities which are other than local in nature. Section 306(c)(8) of the CZMA requires that the management program provide for such adequate consideration. By delaying or denying program approval, 185 states and local governments could arbitrarily exclude uses determined to be in the national interest from siting in the coastal area in the absence of Federal preemptive legislation to the contrary. This may re- sult in loss of public benefit that such uses may pro- vide. For example, failure to allow expansion of port facilities in the national interest to accommodate trans- shipment of coal for energy production may result in the need to use a different energy source. This may add to higher energy costs to the public. However, the national interest also encompasses a concern for the protection of resources such as water, air, wetlands, and wildlife. Consideration of the need for the national interest in facilities must take into account the impacts of facil- ities on these key resources. In the Great Lakes, water quality is of paramount national, as well as regional and state concern. Program approval would mean that the state could undertake increased technical assistance to local governments and improved implementation of existing state programs. This would give the state and local governments an opportunity to give balanced consideration to both fa- cilities and resources in the national interest. Lacking program approval these considerations affecting resources in the national interest might not be made. The specific possible deficiencies which might serve as the basis for delay or denial of approval of the Wisconsin program are: Alternative 1 - The Associate Administrator could delay or deny approval because state authorities proposed to imple- ment the program may not be broad enough to address the full range of concerns expressed in Sections 302 and 303 of the Coastal Zone Management Act . Sections 302 and 303 of the CZMA address the need to manage coastal resources brought on by the requirements of many competing uses and the need to give full consideration to ecological, cultural, historic, and esthetic values as well as the need for economic development for activities occurring in the coastal area. Regulations for approval of state management programs emphasize the ability of the state to manage coastal land and water resources based on the full range of these considerations. In determining if the uses subject to management and their management are sufficiently broad, the Secretary of Commerce will rely primarily on whether major coastal- related issues raised by the public and by governmental entities during the course of program development have been addressed. In the case of the Wisconsin program, concerns were expressed that enforceable poli- cies were lacking or weak with respect to beach access, erosion, energy, wetlands, and urban areas. Beach access, erosion, and energy policies based on existing state authorities have been considerably expanded as a result. In the case of wetlands, the state has worked new policies around existing authorities over shorelands, fish and wildlife, scien- 186 tific areas, and flood plains. These coastal policies are based upon existing statutory authority, and are made binding upon state agencies by means of an Executive Order. Finally, the state has decided not to attempt to amend its Shorelands Management Act to include incorporated areas; instead, it will use existing state authorities to control major uses of state concern in such areas. Because of the controversy and questions early in program review on the acceptability of some of the policies relied upon to address the concerns listed above, the Associate Administrator could delay or deny program approval. There would then be three basic options available to the state: (1) do nothing, (2) enact administrative changes through rulemaking to fill the gaps in the scope of the program, (3) enact legislation to fill the gaps. Under the first option, the impacts would be those generalized impacts identified above for delay or denial of program approval. Under the second option, the state could probably expand existing authorities to better control erosion in particular. The state, however, prefers to avoid the delay involved in seeking rule changes if it can safely rely on the Executive Order/Interagency Agreement structure and still meet CZMA requirements. In the case of the approach which Wisconsin has applied, some reviewers may argue that the Program policies are not broad enough to deal with the problems and issues identified by the Program. For example, these people may claim that because poli- cies on erosion are extracted from existing state authorities, none of which specifically cover erosion, greater adverse impacts may re- sult. This, they may claim, would be true in the case of activities which may exacerbate erosion. In the judgment of OCZM, however, it is felt that the policies are broad and specific enough to address the concerns expressed in Sections 302 and 303 of the CZMA. Under the third option, program approval would likely be assured. Given the state of current authorities being relied upon, the major change from such a legislative approach would be to give the state increased control over the siting and performance of uses and acti- vities in urban and otherwise incorporated areas of the Wisconsin coastal zone, and in the state's coastal wetlands. This would add predictability and reduce speculation in decisions on the siting of facilities and development, and on the protection of wetland resources and thereby improve the management of land and water uses. However, there is no assurance that such legislation could be easily or quickly enacted; in the interim, the adverse generalized impacts listed above would occur. In addition, it should be noted that Wisconsin is not seeking approval of its erosion, beach access, and energy planning elements at this time; the CZMA gives states until October 1, 1978, to meet these requirements in Section 305(b) (7), (8) and (9). 187 Alternative II - The Associated Administrator could delay or deny approval of the Program because the state may lack the organizational arrangements and authorities necessary to en- force the state Program policies and resolve conflict . Wisconsin proposes to use a combination of two methods of control to implement its Program. This control will be on the basis of direct state control and on the basis of state review and approval of local ordinances on the basis of state minimum standards and criteria. Section 306(d)(1) requires that the state have the authority to " ... control development in order to ensure compliance with the management program, and to resolve conflicts among competing uses." (a) Each state agency which exercises statutory authority that is to be incorporated into the management program must be legally bound to exercise its authority in conformance with the state's coastal policies. This can be achieved through executive order or interagency agreement (including memoranda of understanding or agreement) , provided that such order or agreement binds the affected parties to conformance with relevant man- agement program policies. Enforcement of compliance is considered assured if any of the following can bring suit : the state agency designated pursuant to sub- section 306(c)(5) of the Act, the state's Attorney General, another state agency, a local government, or a citizen. In order for interagency agreements to be considered binding, states should include the following: (i) a description of how the networked agency, in implementing or enforcing its particular authorities, will operate those authorities in conformance with the management program's policies; (ii) a discussion of procedures to be followed to resolve conflicts between agency activities and management program policies or conflicts between agencies regarding what constitutes conformance with the policies; During the final stages of program development, OCZM was concerned with two major issues regarding the enforce- ability of the Wisconsin Program. They were: a) the adequacy of the Executive Order/Interagency Agreement (EO/IAA) structure for establishing the Coastal Manage- ment Council and binding other key state agencies to act consistently with the coastal Program policies; and b) the adequacy of the means presently available to the Coastal Management Program and to citizens to challenge a failure to comply with the coastal Program. 188 OCZM has made the initial determination that the pro- posed organization of the Program is sufficient to enforce state Program policies and resolve conflict. This determination was made upon review of legal docu- mentation and analysis provided by the state which des- cribed the basis of the Governor's authority to establish the Coastal Management Council, to adopt coastal policies, and to require state agency compliance with the coastal Program through an Executive Order. Wisconsin has docu- mented provisions in the Wisconsin statutes for judicial review of administrative decisions and rules. These could be used by the Coastal Management Council, citizens, and other parties to enforce compliance with the Wisconsin Coastal Management Program. Some reviewers may question the workability, effectiveness, and enforceability of the proposed organization structure. Admittedly, this is a new and relatively untested institu- tional arrangement. Case law in Wisconsin regarding the extent to which state agencies can be bound to abide by the terms of the Executive Order and/or Interagency Agree- ment is virtually nonexistent. These people may feel Federal approval should be delayed until there is evidence that Wisconsin has tried this arrangement independently. Future judicial tests of this organizational structure could conceivably indicate a weakness in the ability of executive orders and interagency agreements to bind state agencies. OCZM feels the legal research indicates that the Wisconsin Coastal Management Program can be approved with the proposed organization structure. Reconsideration of the effectiveness, workability, and enforceability of the proposed structure is a matter for Section 312, program evaluation. In the event Wisconsin and OCZM could not have reached a mutually acceptable resolution to this alternative to delay or deny approval of the program, the state would have had the following options: (1) do nothing. (2) take legislative action to establish the Coastal Management Council and to adopt binding coastal policies. (3) institute administrative rule changes by all key state agencies which bind these agencies to abide by the coastal policies. Under the first option, the impacts would be those gener- alized impacts resulting from Federal delay or denial of the Program on any basis. It is likely that by following 189 the second or third option, the Program would receive approval. Therefore, the impacts would be those listed and described in Part III, Section C. The second option would provide a legislative mandate to the Coastal Management Council, a single state agency, or group of state agencies, to carry out the coastal Program and policies. New legislation probably would be inter- preted by the public to mean additional regulation in the coastal area, and might generate opposition from some state agencies which see no need to clarify what they already interpret to be enforceable state policies. The result might be no approved Coastal Management Program. Impacts would be those generalized impacts discussed above in this section. However, this second option would probably ensure Federal approval of the Program. This would result in the impacts identified in Part III, Section B. In addition, following this option would add increased predictability to siting and performance of activities in the coastal area. It would reduce speculation as to the outcome of state and local decision-making on activities and resources of the Wisconsin coastal area. The third option would provide additional certainty to the enforceability of the Program, but at considerable cost to the state in terms of money and time. Rule changes to incorporate and refine coastal policies are among the state's highest priorities for the use of Section 306 grant funds. Most of the coastal policies are contained presently in state administrative regulations. All coastal policies are an expression of existing state policy and interpre- tation of state legislative authority, in addition to being incorporated into the Executive Order. With respect to program policies on coastal erosion hazards and wetlands, however, the state would like to use Section 306 funds to further delineate and refine its mandate under the Executive Order and existing statutory authority by formulating more specific criteria for state agency decision-making where wetlands and erosion are at issue. (b) With respect to the issue of conflict resolution, the ini- tial concern of OCZM centered on the need to identify the processes and entities that would be utilized in resolving conflicts amoung competing uses such as the Coastal Man- agement Council, the Governor, or some other mechanism (s) . In addition, the inclusion of more specific policies would assist in the resolution of conflicts by providing guidance to decision-makers in the face of conflicting demands. The state's method of conflict resolution rests ultimately with the Governor. However, the Wisconsin Coastal Program will 190 use a number of other mechanisms to help resolve conflicts. These are discussed in Part II, Chapter II C.5 of this document . Some reviewers may feel that the methods of conflict re- solution do not cover a wide enough spectrum of use conflicts, or that the Council should have the authority to resolve con- flicts in addition to its role as a forum for voluntary con- sideration and informal conflict resolution. Many of the methods the state has identified may not be easily accessible to shoreline users or property owners because they are methods to resolve interagency conflicts or resort to the courts if necessary. OCZM, of course, feels the methods of conflict resolution and conflict avoidance described in the program are sufficient to approve the Program. Any reconsideration of this would be resolved, in the opinion of the Associate Administrator, in Section 312 review, program evaluation. In the event Wisconsin and OCZM could not have reached a mutually acceptable resolution to this alternative to delay or deny approval of the program, the state would have had the following options: (1) do nothing, (2) take legislative action to establish an organi- zational structure with clear lines of authority and ability to resolve conflict. Under the first option, the impacts would be those gener- alized impacts resulting from Federal delay or denial of the Program on any basis. It is likely that by following the second option, the Program would receive approval. Therefore, the impacts would be those listed and described in Part III, Section B. In addition, by following this option, the process of conflict resolution should be streamlined. This should provide for a more timely re- sponse from public agencies on the siting and performance of activities in the Wisconsin coastal area. It may also help to avoid lengthy delays caused by legal proceedings regarding conflicts between public and private interests. Alternative III - The Associate Administrator could delay or deny approval of the Program because the state may not have completed an inventory and designation of areas of particular concern (GAPCs) within the coastal area as well as establish broad guidelines on priority of uses within those areas . Section 305(b)(3) of the CZMA requires that the management program for each coastal state shall include an inventory and designation of areas of particular concern within the coastal area. 191 In order to meet this requirement, states must: (1) designate geographic areas that are of particular con- cern, on a generic or site-specific basis or both; (2) indicate the nature of the concern and the basis on which designations are made; (3) describe how the management program applies enforceable policies and authorities to the designated areas; and (4) provide guidelines regarding priorities of uses in these areas, including guidelines on uses of lowest priority. Once designated, GAPCs must be identified by location (if site specific) or category of coastal resources (if generic) in sufficient detail that affected landowners, governmental entities and the public can determine with reasonable certainty if a given area is or is not designated. OCZM encouraged Wisconsin to designate site specific GAPCs (Wisconsin chooses to refer to them as geographic areas of management concern - GAMCs) prior to formal program submittal and review. However, the state could have designated only state-owned areas at the time. This would have meant that no site specific areas nominated by the public or local and regional agencies would have been designated at the time of formal review. Wisconsin did, however, accelerate its timetable for designation of GAPCs by generic type. By formally adopting the Program, the Governor has acted to designate the generic type of GAPCs identified in Part II, Chapter II. B. of this document. In addition, site specific designations will be made by February, 1978, shortly before projected program approval. While OCZM feels that this meets the requirements of the CZMA, some reviewers may feel that the generic designations are not specific enough. Some may also feel that the guidelines on priorities of uses assigned to the generic GAPCs are too broad and general to guide the management agencies, property owners, and others who may undertake projects which affect GAPCs. By not designating site specific GAPCs until shortly before program approval, it conceivably could be argued that the public and state agencies would not be able to determine how state priorities and criteria for designation of sites as GAPCs would be applied. Prior to Federal approval of the Wisconsin Program by the Associate Administrator, the Wisconsin Coastal Management Council will act to formally designate specific GAPCs. These specific sites will be in- cluded in the Final Environmental Impact Statement on the Wisconsin Program. In the event Wisconsin and OCZM could not have reached a mutually acceptable resolution to this alternative to delay or deny approval of the Program, the state would have had the following options: 192 (1) do nothing, (2) designate site specific GAPCs at the time of Program submission for formal Federal review, (3) designate more specific generic types of GAPCs at the time of Program submission for formal Federal review. Under the first option the impacts would be those generalized impacts resulting from Federal delay or denial of approval of the Wisconsin Program. By following the second option, Wisconsin would have demonstrated to reviewers how it will apply its priority concerns and additional selection criteria for GAPC designation. Under this option the Program would, in all likelihood, receive Federal approval. The impacts would be those discussed in Part III, Section C. In addition, this option would provide more specific management criteria for determination of Federal consistency for activities affecting these GAPCs. This would most likely provide for increased environmental protection in GAPCs designed for natural, scenic, historic, and scientific values. It would also provide more certainty of where Federal development acti- vities could be conducted in a way consistent with the Wisconsin Program. The final option would result in a greater number of generic type GAPCs. This option, also, would most likely result in program approval. The impacts would be those discussed in Part III, Section C. Other impacts as a result of following this option would be that management policies would be more focused to apply to a certain type of GAPC. Specific areas that may have multiple values for GAPC selection may be selected for one but not multiple types of GAPCs. This would result in better, more intensive management for those areas whether they are conservation or development oriented GAPCs. E. PROBABLE ADVERSE ENVIRONMENTAL EFFECTS OF THE PROGRAM WHICH CANNOT BE AVOIDED At this stage in designing a Wisconsin Coastal Management Program, there appear to be no unavoidable adverse environmental impacts from instituting the proposed program. The Coastal Coordinating and Ad- visory Council has designed the proposed coastal program so that each investment will be reviewed for its environmental and economic impacts. The Coastal Management Program would not proceed with a project which had a disproportionate share of adverse impacts which could not be mitigated. Responses from the Coastal Program's public survey and concerns ex- pressed by Council members and the Citizens Advisory Committee suggest that some of the Program's impacts could be viewed as detrimental by some people. These issues and the ways the Coastal Program intends to address them are discussed below: 193 Issue (1) : The coastal program intends to fund improved manage- ment of local services; this is a responsibility of local govern- ments which the coastal program should not support. The coastal program would provide financial and technical assistance to local governments to improve their capabilities for managing coastal resources. Training of zoning administration staff, ord- inances revision, planning for the orderly development of the coastal area, and numerous other projects could be financed wholly or partly by the coastal program (Part II, Chapters I C, II B-D) . Funding assistance would be limited to a two year period, and the local government would then have to determine whether and how to continue the project. Issue (2) : The proposed Coastal Management Council, Citizens Advisory Committee, and clearinghouse functions in the regional planning commissions will be expensive and inefficient. As discussed in Chapter II. C. of the previous Part, the Coastal Co- ordinating and Advisory Council decided that the advantages of having a body with visible decision-makers and composed of state, local and regional representatives outweigh any inefficiencies that might result. The proposed creation of the regional coastal task forces would ensure that local interests have the opportunities to participate in the pro- gram. Staffing for these three task forces would be through existing regional planning commissions. Expenses incurred by the program are for partial staff support and logistical expenses for 4-5 people. In addition, the State provides $1 for every $4 provided by the federal government. This state contribution is either cash or existing ser- vices from State government. The proposed Coastal Management Council and Citizens Advisory Committee are not compensated for their time, but they are reimbursed for program related expenses in most cases. Issue (3) : The proposed coastal program infringes on the rights of property owners. The U.S. and Wisconsin Constitutions protect property owners against the taking of property without just compensation. The proposed coastal program is designed to assist local governments and state agencies to more effectively carry out existing laws. Property owners do not have to justify a proposed use of the land to the proposed Coastal Manage- ment Council because the coastal program will use existing laws and governmental bodies to implement the program. Although the proposed coastal program can and will not violate the rights of private property owners, the program may affect the expec- tations that some people have about using their land. For example, if the coastal program assisted in identifying erosion hazard areas and encouraged state or local agencies to regulate development in such areas, some property owners may lose the option of selling their land for residential or commercial uses. In a similar manner, actions by the proposed Coastal Management Council which seek to limit coastal development to only those land uses which require a coastal location may constrain the future options of coastal property owners. Many social and political factors affect one's land-use 194 options, but governments at any level do not have to guarantee a financial return from private investments in lakefront pro- perty or anything else. Issue (4) : The coastal program will lead to greater demands for inland waterfront property, because the program will seek to focus the public's and government agencies' attention on the types and locations of coastal development. There is no question that the proposed coastal program en- courages Wisconsin to consider the Great Lakes as unique resources. To the extent that the coastal program changes the way local and state governments address the environmental, social, and economic impacts of coastal activities, inland resources may receive more or less pressure. The grants offered by the coastal program will reduce the amount of federal and state resources diverted from other programs by greater emphasis upon the Great Lakes. Unlike the California program, for example, Wisconsin's proposal does not require the receipt of development permits from the coastal management program. Even if the attention of state, local, and federal governments is diverted to coastal problems, the value of this new information and experimentation with resource management techniques will assist in managing inland resources. F. THE RELATIONSHIP BETWEEN LOCAL, SHORT-TERM USES OF THE ENVIRONMENT AND THE MAINTENANCE AND ENHANCEMENT OF LONG-TERM PRODUCTIVITY As discussed in the previous sections, Wisconsin's Coastal Management Program identified five ways to attain certain broad coastal manage- ment objectives. These activities are intended to promote and enhance the coastal area's long-term productivity. Indeed, the proposed acti- vities are designed specifically to help remedy deficiencies in public awareness, intergovernmental coordination, and local management capa- bilities in public awareness, intergovernmental coordination, and local management capabilities which encourage local, short-term uses of the environment. Several environmental groups have expressed the concern that the pro- gram should have more funding and greater authority to regulate the use of coastal land and water resources. The program proposal, however, represents a compromise between the preferences of different interest groups and the limitations imposed by existing state and federal statutes. G. IRRETRIEVABLE OR IRREVERSIBLE COMMITMENTS OF RESOURCES FROM THE PROPOSED ACTION The five activities of the coastal program represent investments in improving existing state and local management capabilities. At any time the expenditure of labor and funds to seek an objective is an irreversible decision. The essence of the NEPA and WEPA concern for such commitments stems from instances of past neglect for the full 195 value of certain resources. Public funds are the major irretriev- able resource expended by this proposed activity. Any impacts on the physical, social, or economic environment that are generated by this proposed action will be carefully reviewed through the pro- cesses discussed above. H. CONSULTATION AND COORDINATION ON THE PROGRAM AND EIS Extensive consultation, coordination, and input has been received in developing the Wisconsin Coastal Management Program and likewise this draft EIS. In discussing the Wisconsin natural and human environment, many program alternatives were explored, discussed and revised to pro- duce this document. This process satisfied two requirements. The Office of Coastal Zone Management requires that a State conduct an environmental impact assessment on the coastal management program prior to any approval of the program. This assessment is then used in developing the draft EIS for circulation nationally under NEPA. Additionally, the Wisconsin Coastal Program had to respond to WEPA requirements that state decision-makers and the public give full con- sideration to impacts and alternatives before taking a major state action. These responsibilities were fulfilled through the institu- tional arrangements (the Coordinating and Advisory Council, Citizens Advisory Committee, three Regional Task Forces and federal contacts) and the extensive procedures to develop this proposal. This is docu- mented in: 1. Appendix D - History of Wisconsin Coastal Program Development 2. Appendix E - Public Participation in Program Development 3. Appendix F - Regional Coastal Problem Statements 4. Appendix I - Federal Consultation 5. Additional documentation exists at OCZM and the Wisconsin lead agency dealing with Federal, State and local government participation and public involvement. Relevant highlights of the past three years of program development are: The first objective of the Coastal Management Development Program was to establish an organizational structure to provide for maximum intergovernmental and citizen involve- ment. A gubernatorially-appointed Coastal Coordinating and Advisory Council was established and first met in January, 1975, to guide program development and to make basic program deci- sions. Members included local elected officials, state legislators, state and regional agencies, the University System and citizens. A Citizens Advisory Committee was also created and first met in April, 1975, to represent the broad range of public inter- ests in the coastal area and to advise the Coastal Coordinating and Advisory Council in public concerns. 196 Regional agency staff and the University of Wisconsin - Extension conducted various public information campaigns to broaden public awareness of coastal issues. Interested citizens were invited to participate on regional task forces. Each region established technical committees to provide regular coordination with local governments, planning and zoning agencies and some federal agencies. Formal and working contacts were established with other Great Lakes states' coastal programs and with affected federal agencies. By January 1976, the Coastal Coordinating and Advisory Council agreed that there were significant problems along the coasts and began to explore the nature of a potential Coastal Management Program in early 1976. In the summer and fall of 1976 meetings were held with local citizens and officials to determine public thought on coastal issues. Regional Task Forces also prepared summaries of regional coastal issues. From those meetings, the Coordinating and Advisory Council developed a framework statement and four working papers for discussion and review in fall-winter. Several federal agencies, many local governments, each regional task force and the Citizens Advisory Committee prepared detailed com- ments for Council consideration. On February 25, 1977, the Coordinating and Advisory Council adopted the preliminary Program Proposal that was made available through extensive distribution for public review on April 11. Eleven public hearings were held during May. No agency has found the Program policies and objectives inconsistent with adopted plans and policies. The Citizens Advisory Committee and the Coordinating and Advisory Council made some changes and on June 24, 1977 recommended to the Governor that the Program Proposal be submitted for federal approval to the Department of Commerce. Thirty federal agencies met with Program staff on June 30, 1977 to discuss their concerns. On August 12, 1977 Governor Martin J. Schreiber submitted the Program which received preliminary approval under Section 305(b) by OCZM on September 12, 1977. Coordination will remain a key component of the Wisconsin Coastal Man- agement Program, both as an objective of the Program Part II, Chapter I.B and through organization structures, Part II, Chapter II. C, and federal consistency, Part II, Chapter III. 197 TABLE 7 Managed Uses Jater based activities i. removing materials from the bed of a Great Lake or other navigable coastal water Processes to assure consistence of managed uses through WEPA and other reviews Table 7 shows how existing review processes assure consistent implementation of water and land based activities (left column) identified as managed uses (Part II. Chapter II. B.). Column 1 indicates Wisconsin Environmental Policy Act (WEPA) procedures, Column 2 indicates relevant state coastal policies and Column 3 lists mechanisms for consistency and review in other state, regional and local plans and ordinances. (1) (2) (3) Consistency and review with WEPA Review State Coastal other state, regional and Procedures * Policies local plans and ordinances WEPA Type II 4.11 Local harbor plans (4) Public Hearing ( ) - Optional (X) ). mining of metallic minerals :. enlarging of a Great Lake or other navigable coastal water WEPA Type II WEPA Type II 4.11 4.12 Some local ordinances Local harbor plans (X) (X) constructing an art- ificial waterway with- in 500 ft. of a Great Lake or other navig- able coastal water WEPA Type II 4.12 NA (X) connecting an artific- ial waterway to a Great Lake or other navigable coastal water WEPA Type II 4.12 NA (X) f. depositing any mat- erials in the Great Lakes or other nav- igable coastal water WEPA Type II 4.11 Local harbor plans (X) placing any structures upon the bed of the Great Lakes or other navi- gable coastal water discharging of effluents into coastal water L. placing refuse in coastal waters ]. obtaining drinking water It. harvesting fish for commerce or sport 1. boating in coastal waters WEPA Type II Standards-WEPA Type II Standards-WEPA Type II Standards-WEPA Type II . Permits-WEPA Type III Standards-WEPA Type II. Permits-WEPA Type III Standards-WEPA Type II. Permits-WEPA Type III 3.5, 4.11 1.3, 1.4, 1.5, 1.7, 1.9, 1.10, 1.11, 2.7 1.2, 1.4 1.14 2.12 NONE Local harbor plans International agreements on Great Lakes'; Local ordinances Local sewage and storm water runoff plans Local ordinances Local ordinances Local municipal water system plans Local ordinances Local ordinances (X) (X) (X) (X) (X) (X) 198 (i) WEPA Review Procedures* (2) State Coastal Policies (3) Consistency and review with other state, regional and local plans and ordinances (4 Publ Hea r ( ) 2. Land based activities a. grading or removing top soil which dis- turbs 10,000 sq. ft. or more of the banks of the Great Lakes of other navigable coastal water Standards-WEPA Type II. Perraits-WEPA Type III 4.3 Local ordinances Local land use plans <*■! placing structures in flood prone areas siting electrical generation and high voltage transmission fac- ilities constructing sewer and water utility facilities using private waste treatment and disposal systems (including locating and installing these systems) developing state owned facilities developing county and municipal fac- ilities funded by non-formula state aids laying out, altering, or discontinuing highways i. disturbing bridges Standards-WEPA Type II WEPA Type I or II depends on size WEPA-DNR Type II WEPA-PSC Type III Standards-WEPA Type II. Permits-WEPA Type III WEPA Type I, II, III WEPA Type I or II WEPA Type II 3.1, 3.2, 3.3, 3. A 1.9, 5.10, 5.11 1.6, 1.8 1.13 4.5 NONE 5.3 5.3 HUD flood plain zoning standards. Local flood plain zoning. Local land use plans. Building inspection Overall economic development plans Future state and regional 208 water quality plans. Local and regional land use and public service plans. Overall economic development plans Local ordinances. Local land use plans. Overall economic development plans Biennial State Building Com- mission Capital Improvement Plan. Local ordinances. Over- all economic development plan Local land use plan Overall economic development plan State Highway Plan of 1972 (future raulti model transportation plan) . Local and regional land use and transportation plans DOT Priority Bridge Needs List Overall economic development plan (x: (x: (X). (X) (X) (X) 199 (i) WEPA Review Procedures* (2) State Coastal Policies (3) Consistency and review with other state, regional and local plans and ordinances (4) Public Hearing ( ) = Optional abandoning any rail line or service constructing or establishing a new airport platting subdivisions that create five or more plots of l*j acres or less within a five year period using rural shorelands emitting air pol- lutants from point sources WEPA Type III WEPA Type I WEPA Type II DNR state guidelines and variance review WEPA Type II 5.3 5.3 1.13, 4.2, 4.8 2.13, 3.2, 4.1 1.16 State Rail Plan, 4R Act Abandon- ment Projections. Overall economic development plan State Airport Plan (future multi- modal transportation plan) Local approving authority Local land use plan (X) County ordinance, use plan Local land State Air Quality Implementation Plan. Local and regional land use/transportation plan (X) (X) obtaining drinking water using pesticides using outdoor advertising mining of metallic metals Standards-WEPA Type II. Permits-WEPA Type III Policy-WEPA Type II H&SS, DoAg, DNR Policy-WEPA Type II Acquisition-WEPA Type III WEPA Type II 1.14 1.12 4.7 4.11 Future ground water plan. Local and regional public service plans. Overall economic devel- opment plans Local ordinances Local ordinances Local and regional land use plans. Overall economic de- velopment plans. (X) (X) (X) (X) *A11 state agencies have categorized their actions to more easily and uniformly comply th WEPA (Section 1.11, Wisconsin Statutes). Type I actions are those which always require eparation of an environmental impact statement (EIS) . Type II actions are those which y or may not require an EIS. Type III actions never require an EIS. Agency Action Lists e updated at least every two years with opportunity for public and other agency comment, visions are submitted to the Governor's Office for review. 200 THE STATE HISTORICAL SOCIETY OF WISCONSIN 816 STATE STREET / MADISON, WISCONSIN 53706 September 19, 1977 Mr. Allen H. Miller Program Administrator Wisconsin Coastal Management Program B-130, One West Wilson Street Madison, Wisconsin 53702 SHTW: 0321-77 Dear Mr. Miller: We have examined the State of Wisconsin Coastal Management Program and Draft Environmental Impact Statement submitted for our review. We were pleased to note that our comments on the Draft Management Program were taken into consideration in formulating the final program. We feel you have done an admirable job of incorporating the concerns of historic preservation existing under both federal and state statutes into the general program of coastal zone resource management . We look forward to continued cooperation with you and your staff in the implementation of this program in Wisconsin's coastal area. Sincerely, U\ajJmxmuA (f Richard A. Erney State Historic Preservation/Officer RAE : rdd PART IV APPENDICES < CO o o < >< o z HI Q. 0. < 201 APPENDIX A GLOSSARY OF TERMS A-95 : A procedure for securing intergovernmental review of many federally funded projects; funding applications are circulated to governmental agencies and interested parties for review and comment by state and area-wide clearinghouses; the procedure is required by 0MB Circular A-95, thus the name. Activity of Regional Benefit : A significant use of coastal land or water that has a multi-county environmental, economic, social or cultural impact. Administrative Code : When state agencies make administrative rules, they are published in the state's official administrative code. Administrative Rules : State laws frequently contain general policies, with the state agencies being allowed to set more specific standards or to interpret the statute by issuing administrative rules; when properly issued and specifically authorized by the state law, these administrative rules have the force of law. Advisory Council : A term sometimes used for the Coastal Coordinating and Advisory Council, the body responsible for developing a pro- gram proposal. Advocacy : One of the functions of the new Coastal Management Council; to promote the interests of the Great Lakes; to promote the wise and balanced use of the coastal environment. Areas for Preservation or Restoration (APRs) : A category of "areas of management concern;" those specific natural, scientific, historic or cultural areas whose unique value warrants preservation will be designated by the Coastal Management Council as Areas for Preservation; similarly, areas that should be restored to an earlier or improved condition will be designated as Areas for Restoration; after designation, program funds would be available for preservation or restor- ation. Areas of Management Concern : see "geographic areas of management concern." Area-wide Clearinghouses: Multi-county or area-wide bodies that review and comment upon applications for federal funds under the A-95 process; in Wisconsin, regional planning commissions usually perform this function. Authority : The legal basis giving government the power to do something. Bay-Lake Regional Planning Commission (BLRPC) : A regional planning commission for Sheboygan, Manitowoc, Kewaunee, Door, Oconto, Marinette and Florence counties; its main office is in Green Bay Boundary : see "coastal management program area". 202 Citizens Advisory Committee ; A proposed group of 27 persons, with wide geographic and interest group balance, to monitor the program implementation and sponsor public education and public partici- pation programs; a State Citizens Advisory Committee has been in existence for the past two years to review program development. Coastal : That area of Wisconsin related to the Great Lakes and the Green Bay, including the water area within Wisconsin's borders and the adjacent shor elands. Coastal Coordinating and Advisory Council : The 27 member group appointed by Governor Lucey in 1974 to study coastal issues and prepare coastal management proposals. Coastal Management Council : The 29 member group that will direct the Wisconsin coastal management program; it will contain state government, local government, tribal government and publicly oriented members. Coastal Management Program : The entirety of activities proposed to be undertaken in Wisconsin to improve coastal management; the program would be directed by the proposed Coastal Management Council. Coastal Management Program Area : That part of Wisconsin eligible to parti- cipate in the coastal management program; it includes the water area of Lakes Michigan and Superior and the 15 adjacent counties. Coastal Zone Management Act (CZMA) : A law passed by the U.S. Congress in 1972, extensively amended in 1976; it provides federal funding for voluntary state coastal management programs. Corps of Engineers : The U.S. Army Corps of Engineers; responsible for federal review of projects affecting navigable waters and plan- ning, design, construction, operation and maintenance of feder- ally authorized flood, navigation, shore erosion control and multiple purpose works. DBD : The Wisconsin Department of Business Development; involved in tourism and economic development activities. DLAD: The Wisconsin Department of Local Affairs and Development; responsible for providing technical assistance to local govern- ments and advocating their interests; also provides some sup- port for regional planning commissions. DNR : The Wisconsin Department of Natural Resources; responsible for state water quality, air quality, wildlife, fish, park, forest and other natural resource programs. DOA : The Wisconsin Department of Administration; provides staff sup- port for the executive branch of state government; houses the Office of State Planning and Energy. DOT : The Wisconsin Department of Transportation; involved in the full range of transportation issues, including highway, airport, rail and port activities. 203 Dependent Use : An activity that requires proximity to water, such as marina , port or shipbuilding facilities . Direct and Significant Uses : Those activities that have major impacts upon the coastal waters. Easement : Partial ownership of land, such as a right to fish on the land (a fishing easement) , to cross over the land (an access ease- ment) , or to prevent development that would mar a view (a scenic easement) . Environmental and Economic Impact Assessment (EE1A) : A statement high- lighting the potential environmental, economic, social and cultural impacts of a proposed governmental action. Erosion Hazard Area : Areas of active shore erosion or bluff instability where the probability of property damage is high. Erosion protection structure : Physical structures designed to retard shore erosion (such as groins, jetties, breakwaters, bulkheads, etc.). Excluded federal lands : Lands owned by the federal government would not be covered by the state coastal management program. Executive Order : An official proclamation issued by the Governor; within appropriate limits, it may have the force of law. Expressed interest : Federal activities in the coastal management area that the state has an "expressed interest" in must, to the maximum extent practicable, be carried out consistently with the state program, once the state program is approved. Federal consistency : The requirement of the Coastal Zone Management Act that federal activities in the coastal area be consistent with approved state programs. Fee Simple Interest : Full ownership of a parcel of land; generally if an individual holds a fee simple interest in the land, there are no outstanding easements or partial interests (e.g., a life estate) barring that individual's full use of the property; also, a fee simple interest is not bound by time — it lasts forever. Geographic Area of Management Concern(GAMC) : Those areas adjacent to, near or in the Great Lakes which are of special importance because of natural, scientific, economic, cultural or historic concerns. These key areas will be designated by the Council, have a specific management policy, and will be eligible for funds to improve their management. Areas managed by either state or local governments may be designated as "Areas of management concern." Goal: Broad statement of intent or desired condition. 204 Great Lakes ; Lakes Superior and Michigan, Green Bay and the adjacent transitional shorelands. Great Lakes Basin Commission (GLBC) ; A federal-state commission established by the President in 1967; it is a planning and coordinating agency, not a regulatory body. Hazard Area ; An area subject to serious damange from flooding or erosion. Historic Site ; An area of significant state or local historical interest. Lead Agency ; The agency financially and programatically responsible for administration of the coastal management program; this pro- gram assigns this role to the Office of State Planning and Energy. Local government ; Cities, villages, towns and counties; does not include special purpose governments (e.g. sewage districts, harbor commissions) . Managed uses ; Those uses of coastal land or water that, because of their direct and significant impact on the coastal environment, should be managed. Management : Governmental attempts to influence what happens in the coastal area; techniques for management range from land acquisition and regulation to research and education. Management Council : A term sometimes used for the Wisconsin Coastal Management Council. National Environmental Policy Act (NEPA) : A federal law enacted by Congress in 1969 ; requires federal agencies to consider environmental factors in their decision-making; requires environmental im- pact statements for major federal actions that significantly affect the environment. Navigable waters : A lake or stream is "navigable" if it can be traversed by a shallow draft recreational craft (e.g. a canoe); nav- igable waters are subject to extensive public rights and regulations; the DNR is the principal state agency charged with administrative supervision of the public rights to these waters. National Oceanic and Atmospheric Administration (NOAA) : A division of the federal Department of Commerce that houses the Office of Coastal Zone Management. Northwest Regional Planning Commission (NWRPC) : A regional planning commission for Douglas, Ashland, Bayfield, Iron and six other non-coastal counties in the northwestern portion of the state; its main office is in Spooner, with area office in Ashland. 205 Office of Coastal Zone Management (OCZM) : The federal agency responsible for administering the federal Coastal Zone Management Act; it is housed in the National Oceanic and Atmospheric Administration of the U.S. Department of Commerce. Office of State Planning and Energy (OSPE) : The state agency administering the development of Wisconsin's coastal management program; it is part of the state Department of Administration. Ordinary High Water Mark (OHWM) : The boundary between publicly owned navigable waters and upland areas; in Wisconsin, this line is defined by reference to natural factors (the point on the shore where the presence of the water leaves a distinct mark) . Policy ; A statement of management direction, more specific than a goal. Program Objectives ; Those five things the coastal program will do to improve Wisconsin coastal management, including advocating wise use of the coastal area, increasing public awareness and participation, improving coordination and implementation of existing management activities and strengthening local capabilities to address coastal concerns. Program participants; All those receiving funding from the coastal manage- ment program activities; will include state agencies, the university, regional planning commissions and those localities choosing to participate. Program Staff : Representatives from participating organizations. Includes the lead agency (OSPE), Citizens Committee staff (UWEX) , the three coastal regional planning commissions, the departments of Natural Resources, Transportation, Business Development, Local Affairs and Development, and the U.W. Sea Grant College Program. Public access : The way the public gets to waters that are subject to public use. Public trust : The state owns certain resources, such as the waters of the state, and holds these resources for the use and benefit of all of the people of the state; these resources are said to be held by the state in trust for the state's citizens. Public Service Commission (PSC) : The state agency responsible for utility regulation, including railroads, motor carriers, electric and natural gas utilities. Regional clearinghouses : see "area-wide clearinghouses." Regional planning commissions (RPCs) : Bodies created by the governor, upon the petition by and consent of local governments, to perform studies, prepare plans, provide advisory services and act as a coordinating agency; in the coastal area there are three RPCs — the Southeastern Wisconsin, Bay-Lake and Northwest RPCs. 206 Riparian owner : Generally used to describe one who owns land along the bank of a river or a lake. Session law : The body of laws enacted by the legislature at one of its biennial sessions (e.g. the laws of 1973 or the laws of 1975), as distinguished from the "statutes," which is a compilation by subject matter of all the laws in effect; session law includes both general laws (permanent laws affecting the entire state) and special laws (laws of limited application, such as a specific lake bed grant) . Southeastern Wisconsin Regional Planning Commission (SEWRPC) : A regional planning commission for Racine, Kenosha, Milwaukee, Ozaukee, Walworth, Waukesha and Washington counties; its main office is in Waukesha. Staff : See "program staff." State concern : Of state level interest or concern, as opposed to local or regional concern; for example, recreational areas may be of state concern (a state park) or local concern (a city park) . Statutes : The official general laws of the state, as enacted by the legislature and approved by the governor; they are arranged by subject matter, with biennial publication. Technical assistance : The provision of information and services, as opposed to money, to agencies responsible for coastal management. UWEX : University of Wisconsin Extension. Wetlands : Lands with wet soil and aquatic type vegetation; often called marshes, swamps, estuaries, bogs, wet meadow, thickets, sloughs and fens. Wisconsin Environmental Policy Act (WEPA ) : A state law that requires state agencies to consider environmental concerns in their decisions and to prepare environmental impact statements on major actions significantly affecting the quality of the human environment. (0 < H O < CD 111 I CD X a z OJ o. Q. < 207 APPENDIX B TABLE OF CONTENTS I. Wisconsin Constitution 208 II. Wisconsin Statutes 208 III. Wisconsin Administrative Codes 222 IV. Executive Orders 230 V. 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X 2 •H 4J •u r^ CO ^ > •H CO co CU o rH U H d iH A <: w 2 ^ CU CO H •H ca CO CO >. N rH M CO •H 4J a a 5 u 4-1 • • • •H 3 3 > M 0) cu rH •H CU rH rH rH 2 cO CO C CU P P •H CO P CU P CU CU >-l CU • IS IH w fe • • > • O c a > > • > • > • > CU CU X (U c > cu •H CO •H co ^ H o r4 60 e a QJ CU c CU CU CU CU CU CO CU CO o o X 4-1 H 4-1 4-1 4-J 4-1 4-» a X rH o CJ 0) 3 3 CO CO cO CO CO CU >•, rH CO CO IS 2 232 < Q. O < Ql LL O (/) 233 The WISCONSIN COASTAL COORDINATING AND ADVISORY COUNCIL was the decision-making body for program development. Members: - Represent state and local agencies and units of government and citizens which have an interest in coastal management - Are appointed by the Governor - Are charged to advise the Governor on the need for a coastal program for Wisconsin Members of the Council as of June, 1977 were: Mr. Stephen M. Born, Co-chairman State Planning Office (Madison) Mr. Ted Lauf Dept. of Natural Resources (Madison) Mr. Harvey Grass e, Co-chairman Door County Resident (Ellison Bay) Rep. Sharon K. Metz District // 90 (Green Bay) Mr. Marvin Beatty UW-Extension (Madison) Mr. Lewis T. Mittness Public Service Commission (Madison) Mr. George Berteau Southeastern Wisconsin Regional Planning Commission (Racine) Mr. Michael R. Monfils, Mayor (Green Bay) DESIGNEE: Dale Preston Rep. Marcel Dandeneau District // 63 (Racine) Ms. Ella Opitz Ozaukee County Board (Saukville) Ms. Jeanne DeRose Inland Resident (Madison) Mr. Robert Ragotzkie UW Sea Grant College (Madison) Mr. Robert Dusenbery Northest Regional Planning Commission (Ashland) Mr. Harout 0. Sanasarian Milwaukee County Board (Milwaukee) DESIGNEE: Joanna Rody Mr. Rufus Entringer Kewaunee County Board (Algoma) Ms. Dorothy Sanders Milwaukee County Resident (Milwaukee) Mr. Arne Gausmann Dept. of Transportation (Madison) Ms. Nancy Z. Schreiber State Citizens Advisory Committee (Sheboygan) Mr. Richard Gurnoe Red Cliff Tribal Council (Bayfield) DESIGNEE: Mr. Henry Buffalo Mr. Bruce Hagen, Mayor (Superior) DESIGNEE: Ms. Marie Sladky Mr. Ted Seaver Rep. of Mayor's Office (Milwaukee) Mr. Charles Tollander Northwest Regional Planning Commission (Webster) Mr. George James Dept. of Local Affairs and Development (Madison) Mr. John Wroblewski Bayfield County Resident (Washburn) Mr. John Kerski Bay-Lake Regional Planning Commission (Marinette) Pending: State Senator Mr. Arthur Kurtz Dept. of Agriculture (Madison) Pending: Dept. of Business Development (Madison) 234 The STATE CITIZENS ADVISORY COMMITTEE The Citizens Advisory Committee grew out of an especial concern that public views and opinions on a Wisconsin Coastal Management Program be actively solicited and considered. MEMBERS: - Form a state-level body of citizens representing broad public interests in coastal counties. - Are appointed by the Co-Chairmen of the Council. - Are charged to advise the Council by monitoring and evaluating the development of a Coastal Management Program Proposal. - Have access to independent staff through the University of Wisconsin - Extension. Members of the Citizens Advisory Committee as of June, 1977 were: Ms. Nancy Z. Schreiber, Chairperson (Sheboygan) Ms. Mary Bailey (Ashland) Mr. Frank R. Boucher (Glendale) Alternate: Lewis R. Dixon Mr. David D. Legg, Sr. (Milwaukee) Ms. Alayne Lockett (Milwaukee) Ms. Eileen Mershart (Superior) Mr. Lyell M. Cowley (Iron River) Ms. Florence K. Dickinson (Sturgeon Bay) Mr. Patrick Doyle (Milwaukee) Mr. Don Dumman (Algoma) Mr. Richard Eichler (Kenosha) Ms. Louise Erickson (Racine) Mr. George Evenson (Sturgeon Bay) Mr. D. David Johnson (Milwaukee) Mr. Walter Pomeroy (Bayfield) Alternate: Mr. Rocky Barker: Mr. Charles Rice (Racine) Mr. John H. Saemann (Marinette) Mr. Phil Sanders (Kenosha) Mr. John A. Seefeldt (Milwaukee) Mr. Jack E. Severson (Manitowoc) Ms. Cora Stencil (Green Bay) 235 THE WISCONSIN COASTAL MANAGEMENT PROGRAM STAFF, composed of state agency and regional planning commission staffs, provides technical support for the policy-making Council. Lead Agency OFFICE OF STATE PLANNING & ENERGY Allen Miller ^Administrator David Owens *Planning Analyst /Attorney Caryl Terrell *Environmental Specialist Vacant ^Planning Analyst Helen Ledin *Secretary Participating Agencies BAY LAKE REGIONAL PLANNING COMMISSION Robert Fisher Executive Director Vacant *CMDP Administrator DEPARTMENT OF BUSINESS DEVELOPMENT Ray Mueller Commercial Recreation Development Specialist DEPARTMENT OF LOCAL AFFAIRS & DEVELOPMENT Don Pokorski Acting Chief James Mohrbacher Planning Analyst DEPARTMENT OF NATURAL RESOURCES Ted Lauf *Staff Liaison NORTHWEST REGIONAL PLANNING COMMISSION John Post Executive Director Dennis VanHoof *CMDP Administrator DEPARTMENT OF TRANSPORTATION Philip Winkel Chief, Planning Section SOUTHEASTERN WISCONSIN REGIONAL PLANNING COMMISSION Harlan Clinkenbeard Deputy Director Don Reed *CMDP Administrator + UNIVERSITY OF WISCONSIN-EXTENSION, ENVIRONMENTAL RESOURCES UNIT Jim Purinton *Coastal Specialist UNIVERSITY OF WISCONSIN-EXTENSION, GEOLOGICAL AND NATURAL HISTORY SURVEY Meredith Ostrom State Geologist UNIVERSITY OF WISCONSIN-SEA GRANT COLLEGE PROGRAM Louie Echols Associate Director * Indicates positions funded through the program. + Independent staffing for Citizens Advisory Committee. 236 Bay-Lake Regional Citizens' Task Force on the Coastal Program BROWN COUNTY Carmella Blecha, Green Bay Hank Bredael, Green Bay James Maricque, Green Bay Carol Schmitz, Suamico Merle Emond, Green Bay * Cora Stencil, Green Bay Mrs. Norman Gerondale, Green Bay William Thomasma, De Pere Keith M. Hawks, Green Bay Sue Whittemore, Green Bay DOOR COUNTY Laurence Daubner, Sister Bay Fred Peterson, Sturgeon Bay * Florence Dickinson, Sturgeon Bay Edgar Rudolph, Sturgeon Bay Howard Erickson, Fish Creek Bill Skadden, Sturgeon Bay * George Evenson, Sturgeon Bay Bernice Wingers, Ellison Bay Lawrence Johnson, Algoma KEWAUNEE COUNTY Delbert Charles, Kewaunee Gerald Haegele, Algoma * Donald Dumman, Algoma David Mueller, Kewaunee MANITOWOC COUNTY Bernard N. Brouchoud, Manitowoc Winnifred Smith, Two Rivers Herman Draheim, Manitowoc Marilyn Sontag, Manitowoc Joseph A. Muench, Manitowoc Dr. Ted Taylor, Manitowoc Dr. David Pfaffenbach, Manitowoc Sister Julia Van Denack, Manitowoc Roy Radandt, Manitowoc Darlene Wellner, Two Rivers Dale Schmook, Two Rivers Gerome Wojta, Two Rivers Katie Schuette, Cleveland Mike Zielke, Two Rivers * Jack Sever son, Manitowoc 237 MARINETTE COUNTY Robert Angwall, Marinette * John Saemann, Marinette Mrs. J. W. Boren, Jr., Marinette Walter Stepniak, Marinette Mrs. Robert DeWitt, Marinette OCONTO COUNTY Willard Allen, Little Suamico Dean Swaer, Oconto Robert Gilles, Oconto Adeline Trask, Little Suamico Robert LeTourneau, Oconto SHEBOYGAN COUNTY Eldon Born, Sheboygan Robert Ruloff, Cedar Grove Carol Gross, Sheboygan * Nancy Z. Schreiber, Sheboygan Timothy Lorenz, Sheboygan Hilmer Wagner, Cleveland Michael Marcheske, Sheboygan * Persons are also members of state-wide Citizens Advisory Committee. 238 Bay-Lake Technical Advisory Committee on the Coastal Program Mr. William Bennett Mr. Thomas Capelle Mr. Larry Decker Mr. Stanley DeBoer Mr. Ernest Ehrbahr UWEX-Marinette County, Chairman Northeastern Wis. Community Action Agency Area Conservationist, Soil Conservation Sere Wisconsin Department of Natural Resources, Green Bay UWEX-Brown County, Chairman Mr. Ron Fassbender Mr. Robert Florence Mr. Erich Franz Mr. Thomas Greenwood Mr. Scott R. Hendrickson Mr. Richard Hoppe Mr. Jerry Kirchner Mr. Mark J. Leider Mr. Anthony Marini Mr. Robert Mundelius Mr. Frank Paquette Mr. Bud Paruleski Mr. Dennis A. Peterson Mr. Charles Ryan N. D. Schachtner Wisconsin Department of Natural Resources Green Bay County Planning Director, Door County Lake Michigan Area Agency on Aging City Planning Director, Manitowoc UWEX-Manitowoc County U.S. Fish and Wildlife Service Planning Director, Manitowoc County Planning & Park Commission City Planning Director, Sheboygan County Planning Department U.S. Soil Conservation Service, Green Bay U.S. Army Corps of Engineers, Kewaunee Project Office Director of City Development, Sheboygan Executive Director, Green Bay /Brown County Planning Commission Zoning Administrator, Florence County Wisconsin Department of Transportation Green Bay UWEX-Door County, Chairman 239 Mr. Mike Spranger UWEX- Resource Agent, Oconto County Mr. George Vellella City Engineer, Marinette Mr. Paul J. Wolske UWEX-Kewaunee County Executive Director Northeast Wisconsin Health Systems Agency 240 TECHNICAL AND CITIZEN ADVISORY COMMITTEE ON COASTAL MANAGEMENT IN SOUTHEASTERN WISCONSIN George C. Berteau Acting Chairman Hubert J. Albert William J. Blong Robert J. Borchardt Josephine H. Boucher Thomas H. Buestrin SEWRPC Chairman, County of Racine City of Port Washington Yacht Club Manager, Village of Fox Point Chief Engineer and General Manager Metropolitan Sewerage Commission North Shore League of Women Voters SEWRPC Commissioner, Ozaukee County Sol Burstein Lewis R. Dixon (alternate) Executive Vice President Wisconsin Electric Power Company Senior Land Use Planner Col. Benjamin Chap la Herbert A. Goetsch Donald Hoeppner (alternate) Wayne E. Koessl Thomas A. Kroehn Bernard Schultz (alternate) Health Officer, Town of Caledonia Commissioner of Public Works City of Milwaukee Special Studies Engineer Supervisor, Town of Pleasant Prairie District Director, Wisconsin Department of Natural Resources Regional Engineer Dr. Norman P. Lasca Elwin G. Leet Associate Professor, UW-Milwaukee Department of Geological Sciences UWEX- Racine County, Chairman Mayor Thomas P. Leisle Thomas Lisota Anthony L. Luljak Dr. Harold Mayer R. Michael Mett Robert J. Mikula City of Mequon Alderman, City of Cudahy Alderman, City of Cudahy Professor, UW-Milwaukee Department of Geography Supervisor, County of Milwaukee General Manager, County of Milwaukee Park Commission 241 Dr. William G. Murphy Professor, Soil Mechanics, College of Engineering, Marquette University Mrs. Mary C. Nelson Shoreline Property Owner; Alderman, City of South Milwaukee William Nelson Great Lakes Sport Fisherman Club William T. Painter President, Foundation Engineering Inc. Francis J. Pitts SEWRPC Commissioner, County of Kenosha Fred R. Rehm Milwaukee County Director of Environmental Services, Air Pollution Control Director Ronald Rutkowski Director of Public Works, Cudahy Phil Sander Executive Secretary, Southeastern Wisconsin Sportsmen's Federation John A. Seefeldt Port Director, City of Milwaukee Harbor Commission Mayor James R. Stacker City of Port Washington Norbert S. Theine Administrator, City of South Milwaukee 242 Northwestern Wisconsin Regional Planning Commission Coastal Area Intergovernmental Technical Advisory Council Mr. Robert Dusenbery Committee Chairman NWRPC Commissioner Mr. Kenneth Andrews Red Cliff Tribal Council Mr. Stephen Andrews Project Director, Red Clay Project Mr. Paul Brown Douglas County Board Supervisor Mayor Bruce Hagen City of Superior Mr. Jacob Heinlein Bayfield County Zoning Administrator and Sanitary Inspector Mayor Bruce Hendrickson City of Ashland Mr. Larry Hildebrandt Zoning Administrator, Ashland County Mr. Marvin Innes Iron County Board Supervisor Mr. Herb Kinney UWEX-Iron County, Chairman Mr. Peter Kuchan Ashland County Zoning Commission Mr. William Lehman Planning Director, City of Superior Mr. William Lontz UW-Extension Areawide Land Use Agent Mr. Harry Lowe UWEX-Bayfield County, Chairman Mr. Ray Maday Bad River Tribal Council Mayor Edith Merila City of Washburn Mr. Harold Olson Zoning Administrator, Douglas County Mr. John Post Executive Director, NWRPC Mr. Ray Polzin UWEX- Douglas County, Chairman Mr. Edwin Renoos Chairman, Bayfield County Zoning Commissi Mr. John Sola Zoning Administrator, Iron County Mr. Dwaine Traeder UWEX- Ashland County, Chairman Mayor Lawrence Wachsmuth City of Bayfield Ill 5 o. O > LU Q < CC O o CC Q- LL o CC o H 0) i 243 APPENDIX D. History of Wisconsin Coastal Program Development 1. Introduction Wisconsin used to good advantage the Coastal Zone Management Act to carefully examine our Great Lakes resource. Through the help of citizens and experts, the Wisconsin Coastal Program has gained an understanding of conditions in our coastal areas and has found many problems and opportunities for potential coastal management. This appendix reviews activities undertaken since 1974 under shared state and federal funding and leading up to the public discussion of this proposal for improving coastal management. 2. Why did Wisconsin seek this federal funding? In Wisconsin, coastal management revolves around shoreland issues of the Great Lakes. Because the Lakes mean recreation, jobs, security, and beauty to coastal citizens, many coastal residents have taken an aggressive role in making sure that public sentiment is reflected in the coastal management program. Public concern led Wisconsin to pioneer with shoreland management legislation in 1965. This program now pertains to unincorporated coastal land within 1,000 feet of the shorelines of the Great Lakes, as well as inland lakes. Furthermore, several local communities have done a splendid job of planning their economic, recreational, and residential development to make the best use of their coastal locations . In spite of a number of laudable efforts, some serious economic and environmental problems still exist along the Wisconsin coast. These include the highly erodible red clay soils , unplanned land development, jeopardized port facilities, water quality problems, expensive erosion damage to public and private shoreline, and the uneven distribution of a limited amount of public recreational access to the lakes . Wisconsin voluntarily chose to apply for federal assistance to ac- quire better factual information about coastal resources, to en- courage broad public awareness and discussion of coastal issues and to provide a forum for discussion of the future of these coast- al resources. The first grant application was developed on behalf of the Governor through the cooperative efforts of state agencies, regional planning commissions and the University of Wisconsin sys- tem over the period September 19 73-April 19 74. 3. Brief Overview of Three Annual Grants for Program Development Wisconsin received an initial federal grant of $208,000 matched by $146,000 state effort for the year beginning June 1, 1974. First year grant activities included: a. Establishment of intergovernmental arrangements to ensure coordination between various governmental agencies; 244 b. Initiation of baseline inventories of coastal resources; c. Initiation of public participatory programs to aid in the development and evaluation of a management program; d. Analysis of major coastal issues leading to alternative public policies for future public discussion; e. Conduct of technical background studies to provide information for decision-making; and f. Program grant administration. Wisconsin received a second annual federal grant of $340,000 matched by $171,700 of state funds for the year June 1, 1975 to May 31, 1976 Work efforts related to: a. Continuation of intergovernmental arrangements, including sup- port of the Coordinating and Advisory Council; b. Completion of data base; c. Continuation of public awareness and participation activities, including support of a State Citizens Advisory Committee and three regional technical and citizen advisory committees; d. Public review and revision of draft policy studies; e. Development of supporting technical studies; and f. Program grant administration. Near the end of the second grant, Wisconsin requested and received a four-month supplement of $219,800, matched by $112,000 of state effort. In the period from June 1st through September 30th, the Program concentrated on developing a framework for a coastal man- agement program and encouraging public discussion of the future of the Great Lakes during the gubernatorially proclaimed Great Lakes Awareness Month, September 1976. The third annual grant for Wisconsin was for the period from Oc- tober 1, 1976 to September 30, 1977. The federal grant of $502,000, matched by $125,500 of state effort, concentrated on: a. Development of working papers on the major parts of the Proposal (Framework for a Potential Wisconsin Coastal Management Program and Working Papers: //l Subject matter and boundaries, #2 State level organization for program implementation, #3 Program goals and //4 Program funding) during fall-winter 1976-77 preliminary to Council adoption in February 19 77 of a proposal for public review; 245 b. Public involvement and consultation, including support of the various committee's review of the working papers and the eleven public hearings in May- June 1977 on the Proposal; c. Joint Coordinating and Advisory Council and Citizens Advisory Committee evaluation of public comment on the Proposal, revision and recommendation to the Governor in June 1977; d. Improving coastal management by initiating a few demonstration projects on how to improve governmental effectiveness and coor- dination; and e. Program grant administration. Wisconsin requested and received a Section 305(d) federal grant of $413,556 matched by $103,389 of state effort to cover the six to eight months of NEPA review of the Wisconsin Coastal Management Program. Work efforts relate to: a. Establishment of the new Coastal Management Council by Executive Order, appointment of the new Citizens Advisory Committee and refinement of interagency agreements to conduct the management program; b. Complete the nomination, public review and formal designation of specific geographic areas of management concern; c. Participate in the federal review process; and conduct comp- lementary public information activities in Wisconsin; d. Improve coastal management by initiating six-month projects related to pressing coastal issues; and e. Program grant administration. The details of work effort accomplished under these various grants are found in quarterly performance reports which are available upon request. The annual grant applications receive Council approval and A-95 review prior to submission to the federal Office of Coast- al Zone Management. 4. Concern for Public and Intergovernmental Involvement Wisconsin is a home-rule state, one whose citizens are sensitive about their right to be an integral part of government. So a central part of structuring a Wisconsin coastal management plan has been public involvement. Public involvement was built into the program from the outset. Governor Patrick J. Lucey appointed a 26-member Coastal Coordinating and Advisory Council in 1974. In the three years since its inception, Wisconsin's coastal program has grown into an effort actively involv- ing more than 250 citizens, local officials, state officials, special interest group representatives, and agency representatives. 246 The Coastal Management Program is administered through the Office of State Planning and Energy. The program is tied to the gover- nor's office through a staff agency rather than through a line agency. This assures that coastal management is not singularly focused on environmental issues, transportation concerns, econ- omic development, or regulatory concerns, but rather maintains a more comprehensive perspective. The Coastal Coordinating and Advisory Council guided the state's development and evaluation of the program and was similar to the new Coastal Management Council which will guide the Management Program under S.306. The early Council was co-chaired by a state agency official and a representative of regional and local con- cerns. The membership will continue to include representatives of county, city, and village governments, regional planning com- missions, the state legislature, and state agencies. Close ties are maintained with the nationally recognized Sea Grant College Program and the active University Extension program, in the form of membership on the Council. Early efforts to involve the two coastal Tribal governments has lead to voting seats for the Red Cliff and Bad River Tribal governments on the Council. Working side by side with the Council was a Citizens Advisory Committee made up entirely of coastal citizens. The members of this committee were selected with great care in order to provide a diverse forum where business, environmental, public interest, farmer, and other groups would have an opportunity to discuss coastal issues, identify conflicting views, and provide advice to the Council. The group had its own staff and a free rein to draw its own role and responsibilities in coastal management work. Under 306 this arrangement will continue. The Wisconsin coastal area includes three regional planning com- mission jurisdictions. On Lake Superior the Northwest Regional Planning Commission has a long history of involvement in economic development and resource protection. Green Bay and northern Lake Michigan are in the Bay-Lake Regional Planning Commission area, and the southern stretch of Lake Michigan, the most highly urban- ized and industrialized section of our coast, falls within the Southeastern Wisconsin Regional Planning Commission area. In each of these regions a citizen and technical advisory committee was established to advise the regional planning commission on appropriate activities for participation in the coastal program. These regional bodies will continue to provide a regional perspec- tive on policy issues and review and comment on Council actions. In addition to this network, the Council conducted a meeting "travelogue." Over the first year and a half, until it became deeply involved in technical working sessions , the Council held its meetings in coastal communities, listening to elected officials and residents talk about local problems, and gathering firsthand experience of the coast. In becoming more familiar with Wisconsin's total coastal resource, Council members broadened their outlook from that of a specific interest or area to a regional and even statewide perspective. 247 When an extra push was necessary in public involvement, the Coastal Management Program launched its own media and public awareness cam- paign. In fall 1976, in conjunction with a round of 14 public meet- ings (documented in Coastal Concerns, May 1977), a four-page news- paper supplement and questionnaire (documented in Coastal Survey , April 1977 and included in Appendix E) was used, asking people to express their personal feelings about the issues and problems re- lated to Lake Michigan and Lake Superior. In addition, staff at- tempted to focus media attention on the meetings of the Coordinat- ing and Advisory Council, the publication of coastal program docu- ments and special projects. The Council discussion of alternatives and public concerns through- out 1976 lead to development and circulation of a series of work- ing papers (see Bibliography Appendix G) on state options for com- ment in fall-winter 19 76. Comments provided the Council with an adequate understanding of citizen and government viewpoints to pull together one proposal and adopt in February 25, 1977, a preliminary program proposal for public review. The Proposal with environmental and economic impact assessment as an appendix was widely distributed in April. Eleven public hearings were held in Wisconsin in May and June prior to a joint meeting of the Coordinating and Advisory Coun- cil and the Citizens Advisory Committee, June 23-24, 1977. No agency found the Program policies and objectives inconsistent with adopted plans and policies. See Table 7 for relevant state, regional and local plans and ordinances. These comments, documented in Response to Coastal Management Program Proposal June 1977, were discussed and individual sections were revised as necessary before formal adoption. The Council then presented its recommendation to the Governor on June 24th, to pro- ceed to seek Section 306 CZMA approval of the Program. On June 30, 1977, the Coastal Program staff met with 16 federal agency contacts to discuss at length their concerns about federal-state coordination and suggestions for improving the clarity of the document. After incorporating these additional materials, the Governor approved sub- mittal in mid-summer 1977. The Wisconsin Program was accepted by the Secretary of Commerce in mid-September 1977 and is now receiving NEPA review. 5. Coastal Issue Studies Wisconsin's coastal program began to perform a role of public educa- tion and serious analysis for state and local government by assem- bling a description of the situation in issue areas — such as erosion, ports, public access, and the recreation economy — and laying out the basic alternatives available to individuals and government for deal- ing with them. Take erosion as an example. This issue is considered by many coas- tal residents to be the most pressing problem on the lakes. The Coastal Management Program compiled existing research and aerial photography and has undertaken a set of field and research studies needed to develop structural and nonstructural alternative measures 248 for coping with lakeshore erosion. The work has had immediate value. The studies have improved Wisconsin's ability to take part in dredge and fill permit processes on the Great Lakes. In the future, they will form the basis for technical assistance to local officials and private property owners who must deal with erosion. Other policy reports have also been put to immediate use. The ports study has been used by the bi-state committee on the future of Duluth-Superior . The various studies on recreation are being used by state agencies, local communities and private consulting firms . Demonstration projects stemmed largely from Coastal Management Program policy studies. For instance, our concern for providing adequate data for local erosion and zoning decisions prompted the Council to fund a county topographical mapping project in southeast Wisconsin. Concern about the future of the Superior Port area prompted the Council to fund a small but necessary work effort related to the development of recreational activities on Barker's Island. The policy issue of recreational public access, especially in highly urbanized areas, led the coastal program to assist com- munity organizations in the Milwaukee area in gaining special fed- eral funding for a demonstration project for a Milwaukee sailing club, opening up the coastal recreational resource to more people. These projects are often one-shot funding opportunities for the coastal program, but they provide the catalyst for local discus- sion of coastal issues and provide a demonstration of actual programs as examples or models for transfer to other coastal com- munities. Additional efforts are now underway under the Section 305(d) grant. LLI o. O LU > LU D < DC o o cc Q. < Q. O cc < a O m a. 249 Appendix E: Public Participation in Program Development Introduction This Appendix tries to answer the question: "Did public participation affect the development of the Wisconsin Coastal Management Program?" The answer is provided through: Page 1. Summary statement of citizen comments, August 1975 250 2. Excerpts from Evaluation of Public Participation in the Wisconsin Coastal Management Program 1974 to May 1976 252 3. Coastal survey: An analysis of Public Comments on the Coastal Management Questionnaire , conducted in fall 1976 255 4. Excerpts from Coastal Concerns: Summary of Public Comments on Coastal Management Issues , public meetings August 31, 1976 - October 21, 1976 274 5. Summary of comments received on the initial framework and four working papers of the Council from October 1976 to February 1977 276 6. Minutes of the February 24-25, 1977 joint meeting of the Coastal Coordinating and Advisory Council and the Citizens Advisory Committee 290 7. Minutes of the June 23-24, 1977 joint meeting of the Coastal Coordinating and Advisory Council and the Citizens Advisory Committee 302 250 w >. 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U-. X e 10 C M 3 8 h4 c 01 c •f< •-* sn •*4 f; c 41 c 4-» •B b IB < 01 " • o ■o >H U 3- c A-l o E o • -4 b rx TJ h M 4-1 to 8 < «-• «N u •H c cn c O CO • -4 E to 44 ■3 • ft 10 to to ■o 01 ■ IB f b 41 4J E 2 41 3 2 4-* IB c to o •H Ol s ■o ID ^H c 41 X 3 X ■H O 8 S » b — « U> a. CJ Ci. H 44 O rx 44 ex 3 ex O ing approved air pollution control programs to review and approve plans and specifications of air contaminant sources being constructed within the jurisdiction of said counties. A county, after consultation with incorporated units of local government, may establish and administer an air pollution control program within its jurisdiction, including incorpor- ated areas, pursuant to sec. 144.41. Such a program shall provide by ordinance for "requirements compatible with or stricter or more extensive than those imposed by sections 144.30 to 140.46 and rules issued thereunder" (sec. 144.41(1) (a)) . Local programs must be compatible with the department's regu- lations and implementation plan, avoid duplication, and satisfy the specific standards in NR 154.07. It is the policy of the department "to seek reasonable uniformity among local air pollution control ordinances in order to make the statewide comprehensive program more effective and less complicated for all persons concerned" (Foreward to chapter NR 154) . 389 Sec. 144.36 directs the department to prepare and implement "one or more comprehensive plans for the prevention, abate- ment and control of air pollution in this state." As a result, Administrative Code Chapter NR 154 was established "to main- tain standards of air quality at a level which will provide adequate protection to public health and welfare, and to prevent detrimental effect on property and our environment" (Foreward to chapter NR 154) . Chapter NR 154 includes the following subject matter: registration of new sources (NR 154.03), a list of types of new air contaminant sources which require the filing of a notice of intent (NR 154.04), pro- cedures for acting on such notices and standards for approving or prohibiting proposed sources (NR 154.05), departmental access to information and inspection of sources (NR 154.06), standards for county and regional programs (NR 154.07), limi- tations on open burning (NR 154.10), enforcement procedures and penalties (NR 15^.08), and types of emergency action which can be taken and when they can be taken. Chapter NR 154 also con- tains specific limitations for emissions of particulates, sulfur, sulfur compounds, organic compounds, carbon monoxide, nitrogen compounds, emissions from motor vehicles, and malodorous emissions (NR 154.11 to NR 154.18). Chapter NR 155 was created to establish ambient air quality standards in order to be consistent with national ambient air standards adopted by the EPA. The foreward in chapter NR 155 states that these standards are "... objectives to be achieved by these and other rules of the department, by regional imple- mentation plans, and by enforcement programs of both state and local governments as population, industrial activity, and land use changes." Section NR 155.03 sets forth the primary and secondary standards for sulfur oxides, suspended particulate matter, carbon monoxide, photochemical oxidants, hydrocarbons, and nitrogen dioxide. No local programs may grant variances or permits in conflict with the department's implementation plan for that region (NR 155.06(1)). Where air quality is better than secondary standards but the department determines that a new source or sources will cause "significant degra- dation" of air quality, the department shall hold a hearing in the affected area to assess the public attitude on permitting such a source (NR 155.06(4)). The department may order any person to reduce emissions below limits established in an implementation plan or by air pollu- tion control rules, if the emissions cause or substantially contribute to exceeding an air standard in a localized area (NR 155.06(2)). If the secretary of the department finds that a generalized condition of air pollution exists and creates an emergency requiring immediate action to protect human health or safety the secretary shall order persons causing or contrib- uting to the air pollution to reduce or discontinue immediately the emission of contaminants. A hearing shall be held within 24 hours following the issuance of such an order, after which the natural resource board shall affirm, modify, or set aside 390 the order of the secretary (sec. 144.40(1)). In the absence of a generalized condition of pollution of this type, if the secretary finds that emissions from the operation of one or more sources cause imminent danger to human health and safety, the secretary may order the persons responsible for the oper- ations in question to reduce or discontinue emissions immedi- ately. A hearing shall be held as described above (sec. 144.40(2)) (o) Obtaining drinking water [see l(i) above] (p) Using pesticides A pesticide review board in the department of health and social services was created pursuant to sec. 15.195(1). This board has the responsibility of collecting, analyzing and inter- preting information, as well as making recommendations to and coordinating the regulatory and informational responsibilities of state agencies, on matters relating to the use of pesticides. Pesticide rules authorized by sections 29.29(4) and 94.69 are not effective until approved by the review board (sec. 140.77). Sec. 29.29(4) authorized the DNR to adopt rules governing the use of any pesticide that it finds is a serious hazard to wild animals other than those it is intended to control. These rules are contained in chapter NR 80. NR 80.02(1) provides that, except as noted in NR 80.03, any person desiring to apply a "limited use pesticide" outdoors shall obtain a permit from the secretary of the department or his designated agent who will act after recommendation of the pesticide review board. "Limited use pesticides" are listed in NR 80.01(4). NR 80.03 states a number of exemptions to the permit requirement. One of the exemptions is for treatments made for aqatic nuisance control in waters of the state pursuant to sec. 144.025(2) (i) . Such treatments require permits from the department under chapter NR 107. Chapter NR 107 requires that the sponsors of chemical aquatic nuisance control projects on waters of the state must obtain a permit from the DNR, except for treatments of swimming pools, waste holding tanks, etc. (NR 107.01 and 107.08). The rules in this chapter provide the conditions for permits, including requirements for the posting of areas of public use (NR 107.05), conditions under which onsite supervision by the department may be waived (NR 107.04), and requirements for the issuance of field evaluation use permits (NR 107.06). Sec. 94.69 authorizes the department of agriculture to adopt rules for the regulation of pesticides. Chapter Ag 29, adopted pursuant to this statute, includes: a classification of pesticides and restrictions on each class (Ag 29.02); re- quirements for the registration of commercial applicators and sellers (Ag 29.06); restrictions on storage (Ag 29.07), sale and display (Ag 29.08), application, use and disposal 391 (Ag 29.10); conditions when the department may direct the removal from sale of pesticides (Ag 29.09); and conditions when the department may issue emergency use permits for purposes otherwise prohibited under the rules (Ag 29.03). Sec. 134.67 prohibits the distribution, sale and use of DDT, except where the pesticide review board finds that there is a serious epidemic disease of humans, animals, or plants which can only be effectively controlled by the use of DDT. (q) Using outdoor advertising Outdoor advertising in areas adjacent to interstate highways is regulated by sec. 84.30. This section provides that, with certain specified exceptions, no sign may be erected or main- tained if it is visible from the main-traveled way of any interstate or federal-aid highway. One of the more significant exceptions is for signs in a business area. This is an area which is zoned for business, industrial or commercial activities under the authority of the laws of the state, or which constitutes an unzoned commer- cial or industrial area, as defined in sec. 84.30(2) (k). Signs in business areas may be regulated by a bona fide county or local zoning authority, if it has made a determination of customary use, as to size, lighting and spacing. In all other business areas signs are subject to the detailed criteria provided in sec. 84.30(4). Signs which are not in conformity with sec. 84.30 may be re- moved or relocated by the highway commission (sec. 84.30(5) and (11)). If these signs were lawfully erected, just compensation is required (sec. 84.30(6)). Sec. 84.30(10) provides that no person shall engage in the business of outdoor advertising in areas subject to this section without first obtaining a license from the highway commission. The license shall not be granted unless the applicant either resides in the state or files with the high- way commission a bond payable to the state and with a surety approved by the attorney general, in the sum of $5,000 con- ditioned upon the licensee observing and fulfilling all applicable provisions of sec. 84.30. Although sec. 84.30 applies only to interstate highways, sections 86.19 and 86.191 apply to all public highways. Sec. 86.19(1) provides that no sign shall be placed within the limits of any street or highway except such as are necessary for the guidance or warning of traffic or as provided by sec. 66.046. Sec. 86.191 states that: No person shall erect or cause to be erected any adver- tising, direction, guide, warning or other sign or 392 marker within any public highway within a distance of 1,000 feet from the intersection of any two or more highways, when such intersection is beyond the corporate limits of any city or village, unless permission is first obtained from the officials charged with the main- tenance of such highways. (r) Mining of metallic minerals In 1973 the Legislature passed the "Metallic Mining Recla- mation Act" (sec. 144.80 through 144.94 of the statutes), the purpose of which is to: ...provide that the air, lands, waters, fish and wildlife affected by prospecting or mining in this state will receive the greatest practicable degree of protection and recla- mation, "(sec. 144.80) The Act gave the DNR the primary responsibility for ensuring that this goal is carried out. The Act also created a mine reclamation council (sec. 15.347(8)), which is directed to "work as a liason between the department and the metallic mining industry" and to "advise the department on matters re- lating to reclamation of mined land..." (sec. 144.815) The first requirement that may be faced by mining operators is obtaining a prospecting permit from the DNR (sec. 144.84). However, the definition of "prospecting" is limited to explor- ation which disturbs 3 tons or more for each acre of surface area located within 300 feet of the ordinary high-water mark of a navigable stream or 1,000 feet from a lake, or 100 tons or more for each acre of surface area located beyond these 300 and 1,000 feet limits (sec. 144.81(12)). The department shall deny a prospecting permit if it finds that the operation will not comply with the minimum standards in Wisconsin Administrative Code sec. NR 130.05 (which includes requirements for a recla- mation plan) or with the provisions of sections 144.80 to 144.94, Wisconsin Statutes. The department shall also deny the permit if the applicant has previously failed and continues to fail to comply with sections 144.80 to 144.94, or has within the previous five years forfeited any bond posted pursuant to mining activities within the state (NR 130.09). The applicant must have insurance covering all its prospecting operations in the state and "affording personal injury and property damage protection in a total amount deemed adequate by the department but not less than $50,000." (NR 130.08). A prospecting permit shall be subject to the following conditions: (1) Requisite corrective measures to insure compliance with this chapter. (2) Environmental rehabilitation techniques to the employed. 393 (3) Other conditions which the department deems necessary to safeguard the natural resources of this state during and after the prospecting operation. (NR 130.07) Although exploration which disturbs less than the tonnage amounts discussed above does not fall within the statutory definition of "prospecting" and, therefore, does not require a permit, NR 130.02 requires mining companies to file a notice of intent to drill any drillhole. This section of the Admin- istrative Code states that because of the similarity between drillholes intended for mineral exploration and those con- structed to serve as water wells, "it is the department's policy to require such exploration drillholes to be permanently or temporarily abandoned in a manner similar to the procedures outlined in Wisconsin Administrative Code Chapter NR 112," which applies to water wells. Sec. 144.85 requires that the operator of a new or existing mine must apply for and receive a mining permit. The appli- cation for a mining permit shall include: a description and detailed map of the proposed project site; a detailed mining and reclamation plan; evidence that the mining and reclamation plan conform with all applicable zoning ordinances and that the operator has applied for the necessary approval, licenses or permits required under other sections of the statutes; and such other pertinent information as the department requires (sec. 144.85(3)). Reclamation is defined as the rehabilitation of the project site, including the "establishment of vegetative cover, stabilization of soil conditions, prevention of water pollution and where practicable, restoration of fish, plant and wildlife" (sec. 144.81(15)). The department can also require a comprehensive long-term plan for the entire area which may be affected by the mine and which is owned, leased or under option for purchase or lease by the operator at the time of application (sec. 144.85(4) ( b) ) . Within 60 days of the receipt of an application, the department shall hold a hearing which may cover all required approvals, licenses, permits, environmental impact statements and other matters under the jurisdiction of the department (sec. 144.85 (4m)). The department shall issue the permit, if after consul- tation with the mine reclamation council it finds that the proposed mining and reclamation plan is reasonably certain to result in reclamation of the project site consistent with the statutes and chapter NR 131. (sec. 144.85(5)). A permit approval may include conditions or requirements deemed necessary by the department to insure mining and reclamation in a manner consist- ent with NR 131.07 (NR 131.07 (3) (i) ) . After approval of a permit, but prior to the commencement of mining, the operator must file with the department a bond conditioned upon faithful performance of the mining and recla- mation plan and a certificate of liability insurance. The 394 total amount of the bond shall equal the cost of reclamation, as calculated by the department. Upon approval of the opera- tor's bond, application and certificate of insurance, the department shall issue written authorization to commence mining in accordance with the approved mining and reclamation plans (sec. 144.86). If the department finds a violation of law at a project site, including unapproved deviation from the mining and reclamation plan, it shall order the operator to comply within a specified period of time. The department shall cancel the mining permit for a project site held by an operator who fails to comply with the order (sec. 144.91(1)). Any person holding a prospect- ing or mining permit who violates the Metallic Mining Recla- mation Act, the department's rules (chapters NR 130 and NR 131), or any order, shall be fined not less than $10 and not more than $5,000 for each day of violation (sec. 144.93(3)). The removal of minerals from beneath the beds of navigable waters also requires a contract from the department under sec. 30.20(2). 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C x> ■— o t C 01-r 3 ro ■!- i- XJ i-t- (U£ x: >> Cc co io ra 3 ro < COCO 3 i-CMfO«f T3 0) ■4-> TO cu 1- -C CO o *-> 01 n. -X c- c ro c> () —1 o c; in +-> •— • TO ro CO CU 2 CO rO O c • r— c uo rr t^« fC cn r— r— O- +-> 3 ra CD +-> 3 00 < 397 C. Powers to Acquire Interests in Land 1. Public Acquisition in General Governmental bodies can acquire interests in land either by voluntary grant (negotiated purchase, gift, or grant) or by involuntary sales (condemnation) . Such interests in land are of two general types - "fee" interests and "less than fee" interests (such as easements). Of course, in Wisconsin there is generally no need for public acquisition of interests in submerged lands, because submerged lands under navigable lakes are held by the state in trust for the public. However, some lands underlying the Great Lakes, usually in harbors, were conveyed into municipal ownership by the state in earlier times, notwithstanding the public trust doctrine. (See the program's report Lake Bed Grants for more details). The power of state and local units of government to acquire interests in land derives from the sovereignty of the state (Ferguson v. Kenosha , 5 Wis. 2d 556, 93 N.W.2d 460 (1959); State ex rel. Evjue v. Sey berth 9 Wis. 2d 274, 101 N.W.2d 118 (1.960)), as well as from the following grant of authority in article XI, sec. 3a of the Wisconsin Constitution: Acquisition of lands by state and subdlvl- and usefulness of such public works. If the slons; sale of excess. Section 3a. [As created governing body of a county, city, town or village Nov. 1912 and amended Apr. 3, 1956] Thestate elects to accept a gift or dedication of land made or any of its counties, cities, towns or villages on condition that the land be devoted to a special may acquire by gift, dedication, purchase, or purpose and the condition subsequently becomes condemnation lands for establishing, laying out, impossible or impracticable, such governing widening, enlarging, extending, and maintaining body may by resolution or ordinance enacted by memorial grounds, streets, highways, squares, a two-thirds vote of its members elect either to parkways, boulevards, parks, playgrounds, sites grant the land back to the donor or dedicator or for public buildings, and reservations in and his heirs or accept from the donor or dedicator or about and along and leading to any or all of the his heirs a grant relieving the county, city, town same; and after the establishment, layout, and or village of the condition; however, if the donor completion of such improvements, may convey or dedicator or his heirs are unknown or cannot any such real estate thus acquired and not be found, such resolution or ordinance may necessary for such improvements, with reserva- provide for the commencement of proceedings in tions concerning the future use and occupation of the manner and in the courts as the legislature such real estate, so as to protect such public shall designate for the purpose of relieving the works and improvements, and their environs, county, city, town or village from the condition of and to preserve the view, appearance, light, air, the gift or dedication. 398 This constitutional provision was considered in Ferguson v. Kenosha (supra ) . The plaintiff in this case argued that sec. 3a of article XI prohibited both the state and the city from exercising the power of emminent domain to acquire land for airport purposes, because such purpose was not enumerated. The Wisconsin Supreme Court rejected this argument, stating that: The right of eminent domain is inherent in sovereignty and exists in a sovereign state without any recognition in its constitutiion. Therefore, it does not depend for its existence on a specific grant in the constitution. Muscoda Bridge Co. v. Worden-Allen Co. (1928), 196 Wis. 76, 86, 219 N.W. 428. .. .Because airports are not listed among the specifically enumerated purposes stated in such section, it is argued that the rule of construc- tion of "expressio unius est exclusio alterius" is applicable. We do not deem such rule of construction should be invoked where the result will be to limit the plenary power of the legislature by implication.... We hold that sec. 3a. art. XI, Const., is not a limitation upon the state's inherent power of eminent domain. There- fore, the legislature has it within its power to authorize any state agency or political subdivision to condemn lands, or interests therein, for any public purpose. The court's reasoning would apply with equal force to acquisition by negotiated purchase. 2. Acquisition of Land by the State In Ferguson , discussed above, the Wisconsin Supreme Court ruled that the state legislature may authorize any state agency or political subdivision to condemn lands for any public purpose. The statute in question in that case, sec. 114.33, is just one of many sections of the Wisconsin Statutes which give a state body the power to aquire lands or interests in lands. This particular section establishes a procedure by which the Department of Transportation or any county, city, village or town may initiate and sponsor an airport develop- ment project. If any lands or interests therein needed for the project cannot be purchased expeditiously for a price deemed reasonable by the secretary of transportation, they may be condemned, as provided in sec. 32.05, by the secretary (sec. 114.33(7)) or by a sponsoring municipality (sec. 114.33(e) (a)). 399 The broadest grant of condemnation power in the Wisconsin Statutes is in sec. 32.02. This section provides that municipalities, public boards and commissions, and var- ious corporations can exercise condemnation power "for any lawful purpose." (sec. 32.02(1)). The state-level bodies included in the specified governmental units are "public boards and commissions" and the Department of Health and Social Services. In 1977 the statute was amended to include "departments" in this list. The 1977 amendments also created sec. 32.02(15), allowing the transportation department to exercise condemnation powers for the acquisition of abandoned railroad and utility property, and sec. 32. 02 0-6), granting the Department of Natural Resources condemnation powers for acquisition of lands and waters, subject to the approval of the appropriate legislative standing committees. The Wisconsin solid waste recycling authority is also given general condem- nation powers (sec. 32.02 0-4)). The rules for condemnation of property are set forth in Chapter 32 (sec. 32.04, et seq .) . Sec. 32.04 provides that these rules apply to "all acquisition of property in this state by condemnation," rather than just the types authorized in sec. 32.02. In addition to the stat- utory and common law rule that condemnation must be for a public use or purpose, sec. 32.07 requires that a necessity be shown. The right to declare what consti- tutes a public purpose and when condemnation is necessary is vested in the legislative body (Schurn v. Milwaukee County , 258 Wis. 256, 45 N.W.2d 673 0-951); Swenson v. Milwaukee County , 266, Wis. 129, 63 N.W.2d 103 0953)). The courts will not overturn such a legislative deter- mination unless it is manifestly arbitrary or unreason- able (David Jaffrey Co. v. Milwaukee , 267 Wis. 559, 579, 66 N.W.2d 362 0954)). Sec 32.09 (9) sets out rules for determining just compensation. The DNR is granted acquisition authority in many sections of the statutes, including sec. 32.02(1). Although that section does not specifically mention the DNR, it does include "public boards and commissions." In Martineau v. State Conservation Commission , 46 Wis. 2d 443, 175 N.W.2d 206 (1970), the Wisconsin Supreme Court indicated that the natural resource board of the DNR has general condemnation power under that section. However, the court held in that case that the natural resource board did not have power by condemnation to acquire lands lying within the boundaries of an established state forest, but rather was limited to grants, devises, gifts, or purchases of such property. 400 The court reasoned tnat sec. 23.02(2), which only authorized the voluntary acquisition of state forest lands, repealed by implication those parts of sec. 23.09 (discussed below) and sec. 32.02(1) which seemingly authorized the condemnation of state forests. Sec. 28.02(2) was amended in 1977, however, to allow tne DNR to condemn lands for state forest purposes, if the department first obtains approval from the appropriate standing committee of each house of the legislature. Sec. 23.09(2) (d) provides that the department may acquire by purchase, lease, agreement, gift, or with the approval of the appropriate standing committees in each house, by condemnation, lands or waters suitable for the following purposes: 1) state forests, 2) state parks, 3) public hunting, trapping or fishing, 4) fish hatcheries and game farms, 5) forest nurseries and experimental stations, and 6) the preservation of endangered species. Sec. 27.01(2) (a) also authorizes condemnation of land and water by the DNR for state park purposes, contingent on the approval of the senate and assembly committees on natural resources. Chapter 29, Laws of 1977 created sec. 23.091, which allows DNR to acquire lands and waters for state recreation areas. Sec. 30.18(8) provides that when the department determines that it is necessary to raise the water level in any navigable stream or lake it may acquire any lands which will be damaged. This section authorizes condemnation pursuant to Chapter 32, if the department cannot acquire the right to flow such lands by agreement with the owner. Newly created sec. 23.14 requires that prior to the initial acquisition of any lands by DNR for any new facility or project, the proposed acquis- ition shall be subject to gubernatorial approval. Created in 1977, sec. 195.199 states that the Department of Transportation shall have the first right to acquire, for present or future transportational, recreational or scenic purposes, any abandoned railroad property through gift, purchase or condemnation. The Department of Transportation is authorized by sec. 84.105 to acquire rights of way and easements necessary for the proposed national parkway develop- ment by gift, purchase, "or by exercising the right of eminent domain in any manner that may be provided by law for the acquirement of lands for public purposes" (sec. 84.105(6)). Sec. 84.09 gives the Department power to acquire by gift, devise, purchase, or condemnation any lands for laying out, widening, enlarging, constructing, reconstructing, improving and maintaining highways and roadside parks. In Kamrowski v. State , 31 Wis. 2d 256, 142 N.W.2d 793 (1966), the Wisconsin Supreme Court upheld the authority of the High- way Commission to condemn scenic easements. The DNR also has the authority to "acquire any and all easements in the further- ance of public rights . . . which may be lawfully acquired for the benefit of the public" (sec. 23.09(10)). This grant of authority does not explicitly include the power to condemn property. 401 3. Acquisition of Land by Local Units of Government Sec. 32.02(1), discussed above, provides that any county, town, village, city, soil and water conservation district, or school district may acquire real estate by condemnation for any public purpose. This same subsection also gives condemnation power to public boards and commissions, but provides that in tne case of city and village boards or commissions, the approval of the governing body is required. Subsection CL1) of this section grants condemnation power to any municipal housing authority created under sees. 66.40 to 66.404, any redevelopment authority created under sec. 66.431, and any commnity development authority created under sec. 66.4325. Sec. 32.02 also provides that utilities, including locally owned corporations, have condemnation powers. For example, sec. 32.02 C8) grants condemnation authority to "any Wisconsin corporation organized to furnish water or light to any city or village or the inhabitants thereof, for the construction and maintenance of its plant." In addition to the general grant of condemnation power in sec. 32.02, cities, villages, and towns are given the authority to acquire interests in land for any pub- lic purpose (sees. 61.34(3), & (3m), 62.22(1) & (lm) , 60.18(12) & (14), respectively). Included in the acquisition authority of these three local units of government is the power to condemn scenic easements. For cities, sec. 62.23(17) specifically provides authority to acquire by gift, lease, purchase or condemnation any lands within their corporate limits for the purposes of establishing, enlarging, extending and maintaining memorial grounds, streets, squares, parks, playgrounds and sites for public buildings. Municipalities are also specifically authorized to condemn land in order to make harbor improvements, (sees. 30.30(5) and 30.31(4)) or to construct and maintain dams (sec. 31.38(3)). Chapter 27 of the Wisconsin Statutes deals specifically with public parks and recreation, including the purchase, lease or condemnation of park areas. Park areas may be acquired by these methods not only by the DNR (sec. 27.01(2) (a), discussed briefly above) but also by a county park commission (.sec. 27.05(3)), a county board (sees. 27.015(10) and 27.065), a city park board (sec. 27.08(2) (b) & (c)), a city board of public land commis- sioners (.sec. 27.11 (4) (Jo)) , a town, or a village (sec. 27.13). 402 Public access to navigable bodies of water can be acquired by several methods in addition to the park powers noted above. Under sec. 23.09(9) any county, town, city, or village may apply for state funds to acquire land pro- viding public access to a navigable lake or stream. In addition to negotiated purchases, cities, towns, and villages can also acquire easements for access to navi- gable bodies of water under their general condemnation powers, discussed above. In addition, sec. 60.18(15) provides that town boards may acquire by condemnation sufficient tracts of land for the reservation for public use of lake shores and river fronts. Another means of providing public access to navigable bodies of water is by subdivision dedication. Sec. 236.16(3) provides that all subdivisions abutting navi- gable lakes and streams must provide public access to the water. Unless otherwise agreed, the subdivider must pro- vide access that is at least 60 feet wide and connected to existing roads at intervals of not more than one-half mile. Under sec. 236.29, a municipality may require a subdivider to dedicate to the public a part of his Platted land in order to meet demands on the municipality which are created by the influx of people into the commu- nity to occupy the subdivision lots (Jordan v. Menominee Falls , 28 Wis. 2d 608, 620, 137 N.W.2d 442 (1965)). Sec. 80.41 provides that a town or county board or a committee thereof can not discontinue any highway, street, alley, or right of way which provides public access to any navigable lake or stream, without the approval of DNR. Until a city or village actually acquires an interest in land, it may reserve the land for streets, highways, park- ways, parks, playgrounds (sees, 61.35 and 62.23(6)). Once such a facility is properly shown on the official map of the city or village, no building may be constructed within the mapped area without a permit. If no permit is obtained, no compensation is made for the building when the highway or park is acquired. Several non- general purpose units of government also have land acquisition powers. This includes, for example, school districts (sec. 66.24(4)). Another example of a special purpose unit having condemnation authority is a flood control board. These boards, which are appointed by the governor, have the power to condemn lands as necessary for the construction of improvements in flood control (sec. 87.12(6)). 403 D. Applicability of Local Regulations to the State 1. Section 13.48 As a general rule local regulations or restrictions "do not apply to the state or any of its subdivisions or agencies , unless the legislature has clearly mani- fested a contrary intent" (8 McQuillin, Municipal Corporations (3rd), sec. 25.15 at 45). In Wisconsin the legislature has indicated such a "contrary intent" in one area - zoning. In 19 73 the Wisconsin legislature amended sec. 13.48 (13) to read as follows: (13) EXEMPTION FROM LOCAL ORDINANCES AND REGULATIONS. Where any building, structure or facility is constructed for the benefit of or use of the state or any state agency, board, commission or department, such construction shall be in compliance with all applicable state laws, codes and regulations but such construc- tion shall not be subject to the ordinances or regulations of the municipality in which the construction takes place except zoning , includ- ing without limitation because of enumeration, ordinances or regulations relating to materials used, permits, supervision of construction or installation, payment of permit fees, or other restrictions of any nature whatsoever. This subsection applies to any construction hereafter commenced. (Emphasis added) Prior to the 1973 amendment, which added "except zoning", this subsection was a codification of the common law principle (discussed in detail below) that the state and its agencies are not subject to local regulations. This subsection supersedes the common law rule solely with respect to the zoning of buildings, structures or faci- lities constructed since 1973. It should be noted that this amended "exemption from local ordinances and regulations" applies to any con- struction "for the benefit or use of the state..." (sec. 13.48 (13)), regardless of whether the construction is by the state or by a private building corporation. In a 1970 opinion the Attorney General stated that "it is immaterial that the project is being constructed by the private corporation rather than the state for it is in all respects a state building devoted to govern- mental functions." (59 OAG 62,66) 404 Section 13.48 does not apply to roads and bridges which are part of the state highway commissions transportation program. According to sec. 13.48 (10), "This section applies to the highway commission only in respect to buildings, structures and facilities to be used for administrative, laboratory, residential, storage and public exhibition functions." The highway commission (which is part of the Department of Trans- portation) has taken the position that it will co- operate with local units of government as much as possible in meeting the letter and spirit of local zoning ordinances, including shoreland zoning, but that it is under no legal obligation to obtain a local permit. 2 . Common Law a. Applicability When a state project does not involve the con- struction of a "building, structure, or facility", sec. 13.48 (13) is inapplicable and the common law takes force. An example of such a situation is the question considered by the Attorney General's Office shortly after the 1973 amendment of sec. 13.48 (13) (63 OAG 34). The issue was whether foster homes are immune from local zoning ordinances . The Attorney General concluded that "foster homes owned, operated or contracted for by the Department of Health and Social Services or a county agency are immune from local zoning ordinances", but that foster homes owned, operated or contracted for by licensed child welfare agencies are not immune. The Attorney General reasoned that sec. 13.48 (13) would apply to the construction of any new foster home facilities by the department or a county agency, but does not apply to the use of existing buildings. (63 OAG 34,38-39). b. The traditional theory of state immunity from local regulation The Attorney General's opinion regarding the appli- cation of zoning regulations to foster homes is based to a large extent on the "well-established principle that the state and its agencies are not subject to general statutes or municipal ordinances unless a statute specifically provides otherwise." (63 OAG 34, 36) . This principle was first applied in Milwaukee v. McGregor, (1909), 140 Wis. 35, 121 N.W. 642, in which the court held that City of 405 Milwaukee's building code was not applicable to a building being constructed by tbe State Board of Normal School Regents. The court stated that "general prohibitions, either express or implied, apply to all private parties, but 'are not rules for the conduct of the state'." (140 Wis. 35,37) The McGregor decision has been relied on by a number of subsequent decisions, including at least one zoning case, Green County v. Monroe (1958), 3 W. 2d 196, 87 N.W. 2d 827. In this case the Wisconsin Supreme Court held that a county, required by sec. 59.68 to provide a jail at the county seat, is not subject to the city's zoning ordinance in the location and construction of a proposed new jail. The court concluded that the principle of state immunity was applicable to the county in this situation because the county was acting as an agent of the state. It should be noted, however, that the decision would be different today under the amendment to section 13.48 (13) which makes local zoning applicable to all new construction. Two 1970 Attorney General's opinions also concluded that local regulations do not apply to the state and its agencies or instrumentalities. First, the Attorney General concluded that the dispensing or serving of fermented malt beverages on the campus of a state university would not be subject to local regulation under sec. 66.054, which authorizes municipalities to license and zone establishments selling such beverages. (59 OAG 55) Second, the Attorney General concluded that "state building projects that necessitate construction of utility services, sidewalks, driveway entrances, etc. are not subject to municipal control or regulation whether such construction is done directly by the state or for the state by the building corporation of the state." (59 OAG 62) c. Recent decisions Although the decisions discussed above and many others affirmed and expanded the McGregor principle of state immunity from local regulation, this principle was modified in a 19 71 case, Hartford Union High School v. City of Hartford , 51 W. 2d 591, 187 N.W. 2d 849. This case held that con- struction of an addition to a public high school by the school district was subject to the provisions of a municipal building code. 406 The court discussed the traditional theory of sovereign immunity from local regulation, but stated that: The more modern approach to the problem admits the building of public schools is a part of education and may be a state function but recognizes immunity of the school district, not because of sovereignty but because the state has affirmatively acted in such a comprehensive manner as to preempt the area and thus exclude any appli- cation of policy power... (187 N.W. 2d 849,850). The court applied this test and concluded that : While this building code is quite detailed and specifically covers public and private schools , nevertheless , it was promulgated as minimum standards of performance for the design, construction, and alteration of buildings and expressly does not purport to preempt the field. (187 N.W. 2d 849,852) The court was influenced by the fact that sec. 101.101 (4) in the state building code for public buildings requires the Department of Industry, Labor and Human Relations to accept the inspection of buildings by authorized building inspectors employed by cities of the first, second and third classes. The court also emphasized a section in the Administrative Code which provides that the building code "shall not limit the power of cities, villages and towns to make, or enforce, additional or more stringent regulations" (Ind. 50.04, Wis. Admin. Code, quoted at 187 N.W. 2d 849,852). One might have argued at the time that Hartford all but overruled the McGregor doctrine of state immunity from local regulation, but subsequent decisions do not seem to support such a conclusion. In a 1976 decision, State ex rel. Wisconsin Dept. of Public Instruction v. Wisc o nsin Dept. of Industry, Labor and Human Relations , 68 Wis. 2d 677, 229 N.W. 2d 591, (hereinafter referred to as DPI v. DILHR ) the court held that the state and its agencies are not included within the terms of the Fair Employment Act making it unlawful for an employer, labor organi- zation, licensing agency or person to refuse to hire or employ an individual because of six. The court based this ruling largely on the fact that the state was not explicitly included in the definition of 407 "employer ". The court "urgently suggested" that the legislature should amend the Act so as to include the state, but nevertheless concluded that since the Act did not explicitly include the state in its coverage the court's hands were tied. (229 N.W. 2d 591, 593) The direction of modern decisions is summarized by McQuillin (8 Municipal Corporations (3rd ed.), sec. 25.15 at 38): The current tendency of the court is to avoid precise formulae or ritualistic criteria and to determine the issue of immunity based upon the broad test of the legislative intent with respect to the particular governmental agency or function involved. This statement is an accurate description of the trend in Wisconsin cases, illustrated by Hartford , however, it should also be added that if the intent of the legislature is not clear there is a strong presumption in Wisconsin that the state is immune from the general statute or ordinance. As DPI v. DILHR illustrates, failure of the legislature to explicitly include the state in the scope of a statute must be interpreted, in light of the long- standing principle of state immunity, to mean that the legislature did not intend to include the state in the statute's coverage. The Attorney General's "foster home opinion" (63 OAG 34), discussed above, is an example of a situation where the competing interests of state immunity and the local exercise of power under the zoning enabling statutes had to be balanced. Surprisingly, this opinion barely mentions the Hartford decision and does not specifically dis- cuss "legislative intent". However, the decision that foster homes owned, operated or contracted for by the state are immune from local zoning can be reconciled with Hartford's emphasis on legislative intent by looking at the Attorney General's summary of the problem: The group foster home program is being thwarted, however, by local zoning ordi- nances which, if applicable, restrict them to areas zoned for boarding house, hotel or commercial use. Such areas are generally inappropriate for foster homes. (63 OAG 34,35). 408 Thus, implicit in the opinion in the view that the legislature's program would be thwarted by subjecting foster homes to local zoning ordi- nances adopted under the zoning enabling statutes. Limitations upon state immunity Two limitations upon the theory of state immunity from local zoning should be briefly discussed. First, as mentioned above, the Attorney General concluded in the "foster home opinion" that homes owned, operated or contracted for by child welfare agencies licensed by DILHR are not immune from local zoning. The Attorney General stated: Privately owned facilities .. .Issuance of a license to private individuals allowing them to care for foster children in their home cannot be construed as a franchise or agency agreement vesting the licensee with sovereign prerogatives. (63 OAG 34,38), This reasoning would also apply to other types of activities requiring licenses from the state. For example, the fact that a metallic mineral mine re- quires a permit and is subject to extensive state regulation is not sufficient to immunize it from local zoning requirements. According to Metzenbaum (2 Law of Zoning (2d ed.) p. 1289), quoted in Green County , 3 Wis. 2d 196, 198-199, another limitation on the theory of state immunity from local zoning regulation is the re- quirement that "the buildings are used for 'govern- mental' and not merely for 'proprietary' uses". This particular point was discussed in a 1969 Attorney General's Opinion (58 OAG 91) which considered the question of whether a county zoning ordinance applied to lands held by the United States in trust for the Winnebago Indian Tribe and used by the Indians for private souvenir stands. The Attorney General con- cluded that "the operation of private souvenir stands on trust lands is not the type of federal "governmental function" which would make such use exempt from the zoning laws" (58 OAG 91, 96). According to this opinion, parking meters, state office buildings, schools, court- houses, fire departments, and waterworks were the types of governmental functions which could not be prohibited by local zoning ordinances. Of course, this was prior to the 1973 amendment of sec. 13.48 (13) which autho- rizes local zoning of new construction by the state and its agencies. 409 The 1969 Winnebago opinion was withdrawn by a 1976 Attorney General's Opinion which concluded that "the state does not have jurisdiction to require the application of the Wisconsin Admini- strative Code to the construction of buildings on Oneida Reservation trust land" (65 OAG 276,282). This conclusion was based on the principle of internal tribal sovereignty and on the ruling in Bryan v. Itasca County (1976), 96 S. Ct. 2102, that P.L. 280 does not confer general state regulatory control over Indian reservations. Although the reasoning in the 1969 opinion that "proprietary" uses of land are not immune from regulation is no longer valid with respect to Indian trust lands, this reasoning should still apply with respect to local regulation of state projects. 410 III. Assuring Coordinated Implementation A. State Agency Cooperation and Consistency 1. Executive Order a. The role of an executive order The executive order is potentially an important tool for setting up the framework of Wisconsin's proposed coastal management program. Regardless of the type of state level body that is created or how it is created, an additional measure or measures will still probably be necessary to ensure that state agencies cooperate with this body (which will frequently be referred to as the "Coastal Council" or simply the "Council"). One possible measure, which has frequently been suggested as a means of fulfilling this function, is the issuance of an executive order directing state agencies to cooperate with the Council and to act consistently with state coastal policies. An executive order for the implementation of a management program might also have a number of functions, such as: (1) Creating the Coastal Management Council, assigning it functions; and setting its membership; (2) Designation of an agency to administer the program; (3) Establishing a program of financial and technical assistance to state agencies, local governments desiring assistance, regional planning commissions, and tribal governments; (4) Mandating public participation, creating a Citizens Advisory Committee and assigning it functions; and (5) Establishing a program boundary. Most of these functions can be carried out by executive order without raising significant problems from a legal perspective. However, creating the Coastal Council and its duties and directing state agencies to cooperate with it, do raise some rather complex legal issues and will be considered in detail. This is particularly true should there be a need to bind agencies to policies not grounded in existing state law. But before discussing the adequacy of using an executive order for directing state agencies to cooperate or for creating the "Council" (see part B, below), an examination of the general scope of executive authority is needed. 411 b. Executive Orders Generally An executive order is a declaration promulgated by either a president or governor to implement powers delegated to his office by constitution or statute. Such declarations gen- erally require government officials or private citizens to act in a given way. [Favoriti, "Executive Orders - Has Illinois a Strong Governor Concept?", Loyola University Law Journal 295, 1976] In some states, sometimes referred to as "strong governor" jurisdictions, provisions vesting or delegating the "execu- tive power" in the governor are, in themselves, general grants of executive power. Specific grants of constitutional power appearing thereafter are merely directions or mandates as to the manner in which the general grants of power are to be exercised. Thus, in such jurisdictions, the general provisions alone would authorize the governor's promulgation of an executive order. [Favoriti, at pp. 297-298]. In many states, however, constitutional provisions concerning the distribution of powers, or vesting the executive power in the governor, are viewed as declaratory and do not con- fer any specific power. [16 C.J.S. 845 , Constitutional Law, § 167. For a general discussion on these points see Note, "Gubernatorial Executive Orders As Devices for Administrative Direction and Control," Iowa L. Rev . 78 (1964).] c. Executive Authority in Wisconsin Article V, section 1, of the Wisconsin Constitution provides that "[t]he executive power shall be vested in a governor". Section 4 of Article V sets forth more specific powers and duties of the governor. Among these is the provision that the governor shall: ...transact all necessary business with the officers of the government, civil and military. He shall expedite all such measures as may be resolved upon by the legislature, and shall take care that the laws be faithfully executed. Section 14.01, Wis. Stats., provides that "[tjhere is created an executive office under the direction and super- vision of the governor." The specific statutory responsi- bilities of the executive office are listed at length in section 14.011. The Wisconsin courts have never resolved the issue of whether Wisconsin is a "strong" or "weak" governor state. Arguments could be made on both sides, but the answer is probably academic in view of the express grant of power to the governor in section 16.54, considered at length below. 412 d. Section 16.54 Section 16.54 of the Wisconsin Statutes provides perhaps the most far-reaching and comprehensive source of autho- rity for an executive order to implement Wisconsin's management program. This section reads as follows: 16.54 Acceptance of fedoral funds. (I) DV ,hc department of tlic federal government Whenever the United Slates government shrill makingsuch fiindsavailablc. make available fund"; for the education, the (5) Whenever any agency of the federal promotion of health, the relief of indigency, the government shall require that as a condition to promotion of agriculture or for any other obtaining federal aid the state agency entrusted purpose other than the administration of the with the administration of such aid shall submit tribal or any individual funds of Wisconsin a budget, plan, application, or other project Indians, the governor on behalf of the state is proposal, then the budget, plan, application or authoriz.cd toacccpt the fundssomadcavailablc. proposal shall, before it is submitted to (he In exercising the authority herein conferred, the federal authorities for approval, first be arv govcrnor may stipulate as a condition of the proved by the governor and reported to the joint acceptance of the act of congress by this state committee on finance while the legislature is in such conditions as in his discretion mav be session and at other times to the board on necessary to safeguard the interests ofthis slate. government operations. (2) Whenever funds shall be made available (6) The governor may accept for the state the to this state through an act of congress and provisions of any act of congress whereby funds acceptance thereof as provided in sub. ( l ), the or other benefits are made available to the state, governor shall designate the stale board, its political subdivisions, or its citizens, so far as commission or department lo administer any of the governor deems such provisions to be in the . M M * U ., jiu, i-OimiiiSSiun or puDiiv. niitiuSi; 3fiu iO liiis Ciiu mc governor fliSy department so designated by the governor is lake or cause to be taken all necessary acts authorized and directed to administer such fund including (without limitation because of enu- for the purpose designated b> thcact of congress mcration) the making of leases or other makingan appropriation of such funds, or by the contracts with the federal government; the department of the United Stales government preparation, adoption and execution cf plans, makingsuch funds available to I his stale. methods, and acrccmcnts. and the designation of (4) Any board, commission or department of state, municipal or other agencies lo perform the stale government designated to administer specific duties. any such fund, shall, in the administration of (7) The governor may accept for the state at such fund, comply with the requirement of the nil times the provisions of any act of congress act of congress making such appropriation and whereby funds arc made available to the stale for wiih the rules and regulations which may be any purpose whatsoever, including the school prescribed by the United States government or health program under the social security act, and perform all other acts necessary to comply with and otherwise obtain, facilitate, expedite, and- carry out the required provisions of such acts of congress. (8) The governor, through the secretary. shall notify the board on government operations at least quarterly of any federal funds received or positions created, pursuant to this section, in excess of those approved in the biennial budget or budget review process. 413 Although sec. 16.54 has never been considered in the Wisconsin courts, it has been the subject of numerous attorney general opinions, starting with an opinion in 1946 (35 OAG 465). The issue considered in that opinion was whether the industrial commission had authority to under- take administration in Wisconsin of a system of public employment offices predicated upon a federal law which amended and substantially changed the Wagner Peyser Act referred to under sec. 101.37, Wisconsin Statutues. At that time, the acceptance of federal funds was governed primarily by sec. 101.34(1) Stats., which empowered the governor "to accept for the state the provisions of any act of congress whereby funds or other benefits are made avail- able to the state, its political subdivisions, or its citizens, so far as the governor may deem such provisions to be in the public interest" and to "take or cause to be taken all necessary acts including. .. the preparation, adoption and execution of plans, methods, and agreements, and the designation of state. . .agencies to perform specific duties." The attorney general concluded that sec. 101.37, Stats, only authorized the industrial commission to administer the provi- sions of the original act, approved by congress in 1933, and did not authorize the commission to administer the amendments. It is our opinion that the industrial commission would not have such authority without further action by the state legislature or by the governor, but that such authority could be granted the commission by the governor under sec. 101.34, Wis. Stats. (35 OAG 135) In essence then, sec. 101.34, Stats., constitutes a legislative delegation to the governor of the power to grant state agencies the authority to administer federal programs. The attorney general also noted, however, that this power is not unlimited. There are no doubt consitutional limitations on the power of the governor under sec. 101.34, such as that he could not accept conditions which would violate or be inconsistent with positive provisions or the spirit of any legislative enactments. Assuming that the conditions imposed by the congress for coopera- tion between the state and federal governments are not inconsistent with other state statutes, we believe that the governor might accept the conditions imposed by congress and authorize the industrial commission to operate under those conditions. (35 OAG 135, 136) 414 A specific constitutional limitation on the power delegated to the governor by sec. 16.54, Stats., was first considered in an attorney general's opinion in 1964 (53 OAG 60). The issue was whether under sec. 16.54 the governor could create a commission (by executive order) to accept and administer the benefits made available to public and private institutions of higher learning under the Higher Education Facilities Act of 1963. The attorney general found two difficulties in using sec. 16.54 as a source of authority for an executive order creating a new commission to accept and administer the benefits of the federal act. The first problem was with the word "designate" in that part of 16.54(2) which provides that "the governor shall designate the state board, commission or department to administer any of such funds." The attorney general concluded that "[t]he word designate is not synonymous with the word 'create'." (53 OAG 60, 63) The second and more significant reason for ruling that the governor could not use 16.54 as a source of authority for creating a commission was the conclusion that to so construe the statute "might be invalid as an attempted delegation of legislative power to the governor." (emphasis added) Although the construction of the statute may be of some significance for the governor's administration of Wisconsin's Coastal Zone Management Program, the more important point to note is simply that there are constitu- tional limitations on the governor's authority under 16.54. These consitutional restraints apply to the construction of 16.54 itself, as well as to the construc- tion or delineation of the powers which the state agencies may exercise under the federal programs. The constitutional restraints imposed on the Department of Public Instruction by Art. I, sec. 18 of the Wisconsin Constitution have been the subject of a number of attorney general's opinions, including a 1974 opinion (63 OAG 473). The basic question presented was whether the department could implement the school lunch program and special service plan for children (under the School Lunch Act) in secular and sectarian private schools and child care institutions. The attorney general concluded that the department, if so authorized under sec. 16.54, Stats., could implement the program. He stated: 415 I therefore conclude, notwithstanding the ever present possibility that a consitutional infirmity could arise in implementation of the Act , that neither the United States nor Wisconsin Constitutions prohibit your agency from administering the National School Lunch Act in parochial schools. (63 OAG 473, 484) (emphasis added) Here again, it is very important to note that the attorney general found that the department could implement the program under sec. 16.54, despite the fact that it might not have had such authority under any other statute: A persuasive argument can be made that the authority provided by sec. 115.34(1), Stats., is limited to con- tracting with public schools. We need not consider whether the section is so limited since the governor has, pursuant to sec. 16.54(1) and (2) Stats., authority to accept federal funds and designate the agency to administer such funds. (63 OAG 473, 475) The attorney general went on to say that the program was to be administered under the federal rules and regulations and that the department was empowered by sec. 16.54(2), "to do whatever is necessary to administer the program within the previously discussed confines of the United States and Wisconsin Constitution." (p. 488) Section 16.54 was also considered in another 1974 attorney general opinion (63 OAG 453), which is discussed in somewhat more detail below with respect to creation of the "Coastal Council." This opinion concerned a Tri-County Comprehensive Employment and Training Act Consortium which was proposed to be formed for the purpose of receiving federal funds for manpower training and education. The attorney general concluded that the counties would not have the power to form such a Consortium under other statutes, but that the governor could grant them this power under § 16.54: Under subsec. (6), the Governor could designate counties as agencies to carry out the provisions of the federal act within their respective areas. Counties could then enter into agreements with other counties or with municipalities to qualify as prime sponsors. The provisions of sec. 16.54 (6), Stat., are presumed constitutional and the legislature intended that the Governor have such power with respect to federal legislation enacted after sec. 16.54, Stats., became law. (63 OAG 453, 464) 416 It appears that no one has ever challenged sec. 16.54 (or actions taken thereunder) as an unconstitutional delega- tion of legislative power, but it is very unlikely that such a challenge would be sustained. One reason for this conclusion is subsection (5) of 16.54 which provides that: (5) Whenever any agency of the federal government shall require that as a condition to obtaining federal aid the state agency entrusted with the administration of such aid shall submit a budget, plan, application, or other project proposal, then the budget, plan, application or proposal shall, before it is submitted to the federal authorities for approval, first be approved by the governor and reported to the joint committee on finance while the legislature is in session and at other times to the board on government operations. The fact that the state agency administering federal funds must first be designated by the governor and then is subject to review by the state legislature is likely to be a sufficient check on the administration of the funds to make the delegation of authority valid constitutionally. One might also argue in favor of the constitutionality of sec. 16.54 on the grounds that it is not a complete delegation of legislative authority to the governor, but only a delegation of authority necessary to implement federally enacted legislation. Thus, since the power given the governor under 16.54 is limited, and since the legislation he implements under sec. 16.54 already has a national mandate, this delegation of authority by the Wisconsin Legislature may not be subject to as strict a standard of review as other delegations of legislative power. This argument has not been addressed directly in this state; however, the issue of authority flowing from federal legislation was touched on in the "Consortium" opinion. The attorney general stated that: Only the Wisconsin Legislature can confer powers on county boards. Such powers cannot be conferred by the congress except where the legislature has autho- rized counties to act pursuant to federally enacted legislation. (63 OAG 453, 462) The attorney general concluded that designation of a county to accept federal funds pursuant to sec. 16,54 would constitute such an authorization. 417 The argument that the Wisconsin Legislature can delegate the authority to implement federal legislation raises the issue of how much discretion the governor may exercise under sec 16.54. Subsections (4), (6) and (7) make it clear that the governor can perform any acts that are required by the federal legislation or regulations. Subsections (6) and (7) go even further however. Sub- section (7), for example, not only provides that the governor may accept the provisions of any act of con- gress making funds available to the state, but also states the governor may "perform all other acts necessary to comply with and otherwise obtain, facilitate, expedite, and carry out the required provisions of such acts of congress." How much discretion this subsection gives to the governor is not altogether clear. It might be argued that the governor can perform all acts that are absolutely necessary to meet the requirements of the act and regula- tions, but that any exercise of discretion beyond this should be left to the legislature. Such an interpreta- tion of sec. 16.54 could present a serious obstacle to gubernatorial implementation of an act, such as the Coastal Zone Management Act, which gives each state a great deal of discretion in developing its program. Here again this issue has not been considered directly, but was touched on in the "Consortium" opinion. The Comprehensive Employment and Training Act [§ 812(a)(1)(b)] provides that a prime sponsor of the act can be a local unit of government, or combination of local units, having a population of 100,000. A "unit of general local govern- ment" is defined as "any city, municipality, county, town, township, parish, village, or other general purpose political subdivision..." [§ 981 (a) (10)]. Thus the act left the states and local units of government with a greal of discretion in determining who would administer the funds. Despite this fact, and despite the fact that counties would not other wise have had the power to form a Con- sortium for the purpose of administering the funds, the attorney general concluded that the governor could grant the counties such power, pursuant to sec. 16.54. One other interesting point to note about this opinion is the last sentence. The attorney generay stated that: An alternate avenue would be for the legislature to specifically provide for county participation under the full terms of the Comprehensive Employment and Training Act of 1973. (63 OAG 453, 464) 418 Thus, even though an option was open for the legislature to determine how the act should be implemented and to provide for such implementation, the governor was not precluded from expanding the powers of the counties pursuant to sec. 16.54. e. Constitutional Limits on Executive Authority - Separation of Powers The function of the executive department is to administer and enforce the laws as written by the legislature and interpreted by the courts. Although executive officers may exercise some discretion in the performance of this function, they may not act without legislative authority or beyond the limits established by the legislature. Administrative officers and agencies of the government belong to the executive department, but they cannot exercise executive powers specifically delegated to the governor. Acts which are deemed to be acts of adminis- tration, and among those powers properly assigned to the executive department, are those which are necessary to be done to carry out legislative policies and purposes already declared by the legislative body, or such powers as may be authorized by the organic law of its existency. (16 C.J.S. pp. 844-846, Constitutional Law, § 167) The primary limitation on the authority of the executive is the doctrine of separation of powers. The executive may not encroach on the authority of the legislative and judicial branches. Since the powers to determine policy and to make laws are within the province of the legisla- tive branch, these powers may not be exercised, inter- ferred with, or limited by the executive branch. To quote from 16 C.J.S. , Constitutional Law § 169: ...executive officers may not, by means of construc- tion, rules and regulations, orders, or otherwise, extend, alter, repeal, or ordinarily, set at naught or disregard, laws enacted by the legislature. Although it is well established that the executive branch may not determine matters of public policy or change the policy laid down by the legislature, it is equally well settled that executive officers may exercise discretion in the administration of their authority. Similarly, questions of fact may be determined by executive officers as an incident to the administration of a statute. Furthermore, the legislature can delegate its policy-making authority to an administrative agency or unit of an agency, provided that the legislature establishes adequate standards or safeguards to prevent against administrative abuse of this legislative power. Thus, although executive and adminis- trative officers cannot determine policy in the sense that 419 the legislature does so, they can make what are frequently referred to as "policy" decisions within the confines of their statutory and constitutional authority. Although the issue of executive encroachment on legis- lative authority has never been considered in Wisconsin, a few general conclusions can be reached on the basis of the law in other states. What these general principles indicate is that the governor can direct state agencies to act in accordance with legislative policy and procedural mandates. In doing so the governor not only can but must exercise a certain amount of discretion in determining how the law should be executed. However, the governor is limited in two ways. First, he cannot direct an agency to act contrary to any particular legislative mandate. Second, he cannot direct an agency to act contrary to duly promulgated administrative rules and regulations. f. Directing State Agencies to Cooperate with the "Council" and to Comply with "Council" Policies (1) Requiring cooperation Ideally, an executive order to implement the Wisconsin program would direct state agencies to cooperate with the Council and to carry on their activities in a manner consistent with the goals and guidelines of the Council. Simply requiring state units of government to cooperate and coordinate their activities (without actually requiring that those activities always be consistent) should not be too great a problem. A number of sections of the Wisconsin Statutes, particularly sections 14.03, 15.001, 16.001, 20.901, and 22.03, provide for inter-agency coordination and cooperation. The Coastal Zone Management Act and regulations also require interagency cooperation. These provisions, together with the governor's authority under sec. 16.54(6) and (7) (which includes the authority to accept the provisions of any act of Congress making funds available to the state and to perform all acts necessary to comply with, facilitate, and carry out the required provisions of such acts), in all likeli- hood constitute a sufficient legal basis to require state agencies to cooperate. Yet assuming this is correct, a more difficult question is whether the authority to require an agency to "cooperate" with the Council includes the authority to mandate that it carry on all its activities in a manner consistent with the Council's goals and objectives. It could be argued that there are many 420 types of cooperation which fall short of mandatory compliance with an agency's policy decisions, so mandatory compliance is one of the largest legal difficulties in implementing Wisconsin's management program. (2) Does a state agency have the legal authority to comply with "Council" goals and objectives The problem of requiring agency compliance with the "Council's" goals and objectives can be broken into two issues: (1) whether a state agency has the legal authority to comply with the regulations or policies of another agency; and (2) assuming the agency has the legal authority to comply, can it be required to do so. The first issue does not represent a significant obstacle, but it is definitely a question that needs to be considered and dealt with carefully. An example of how the issue arises is presented by a recent Attorney General's Opinion (64 OAG 146, 1975) concerning plat approval by the Department of Local Affairs and Development (DLAD) . The question presented was whether DLAD was required by an executive order (Executive Order 7 v /67, relating to flood plain and shoreland management) to object to a subdivision plat on the basis of information supplied by the DNR that the plat was not in conformance with DNR regulations. The Attorney General concluded that DLAD was not required to object to the plat on that basis. He stated the DLAD ...is limited by statute to an examination of plats to determine compliance only with sees. 236.15, 236.16, 236.20, and 236.21(1) and (2), Stats. Executive Order No. 67 cannot compel agencies to do that which is not permitted by law and, by its terms, it does not purport to do so. (64 OAG 146, 151) (emphasis added). Although this opinion was a slight setback for the use of executive orders to coordinate the work of state agencies, the impact of the decision is not particularly significant. The decision was based on the fact that the language of the statute expressly limited the grounds upon which DLAD could object to a plat. Thus, the opinion stands for the proposition that an agency cannot be required to do that which it is not permitted to do. The opinion does not speak to the issue of the power of the governor to require an agency to do an act where the agency is not prohi- bited by statute from doing so. 421 Statutes which explicitly preclude an agency from con- sidering other statutes and regulations are relatively rare. Generally speaking, agencies have broad discretion in what they can consider before making a regulatory decision. Thus, in the usual situation an executive order requiring an agency to comply with statutes or regulations which apply to another agency will not present any statutory or constitutional problems. The opinion with respect to DLAD does illustrate, however, that in certain circumstances a particular agency may be limited in terms of the considerations it can include in its decision making process . In addition to the fact that these limitations are the exception rather than the rule, there are several other reasons why such situations should not present a serious obstacle to the implementation of Wisconsin's coastal management program. First, it is not neces- sary in executing the "Council's" goals and objectives that every state agency have the legal capacity to raise every objection that the "Council" might have. If a particular project is not in accord with the "Council's" policies, only one agency needs the authority to reject the project. Thus, if it is essential for the execution of the management program that a particular DNR regulation be enforced, it is not necessary for DLAD to have the capacity to act in compliance with the regulation, so long as the DNR is able to enforce it. In this regard, it must be kept in mind that the existing Coastal Advisory Council has concluded that existing state law and programs, with few exceptions, provide adequate legal authority and opportunity to address those coastal management issues that are of state-level concern. Therefore, to the extent that this conclusion is accurate, it is not necessary to expand agencies' existing powers, but rather to coordinate these powers and ensure that they can be used to execute the "Council's" goals. A second argument that could be made with respect to the DLAD opinion is that the executive order considered in that opinion was not based on sec, 16.54. As we have seen, sec, 16,54 is a delegation of authority to the governor to grant powers and obligations under federal programs to state agencies. One could make a strong argument that the governor's authority under this section includes the power to grant state agencies 422 additional latitude in what they may consider in their decision-making process. Of course, for the constitu- tional reasons that were already discussed, this argu- ment could only hold water if the limitations on the factors that an agency could consider were not imposed explicitly by statute. Finally, the Wisconsin Environmental Policy Act (sec. 1.11) may well broaden the grounds for agency decision-making, as the policies and goals set forth in that law are "supplementary to those set forth in existing authori- zations of agencies". (sec. 1.11(5)). (3) Can a state agency be required to comply The second and more difficult issue is, assuming an agency has the legal authority to comply with the "Council's" goals, can it be required to do so? Even if it is assumed that the governor can not only give the "Council" the authority to issue advisory goals and guidelines, but, pursuant to sec. 16.54, can give those goals and guidelines the force of regulations, it still does not necessarily follow that the governor can require a state agency to comply with those regu- lations. Essentially the issue is whether the gover- nor can impose any regulations, be they the "Council's" goals or the currently existing regulations of a state agency, on an agency such as the DNR. As we have seen, the governor is in charge of the execution of state laws. This authority includes the exercise of a certain amount of discretion in deter- mining how statutes, including legislative policy statements, are to be administered. Similarly, the governor's authority generally includes the power to direct state agencies to act in accordance with legislative policy and procedural mandates. In Wisconsin, however, not all state agencies are directly subservient to the governor. In several agencies, including the DNR, the Secretary is appointed by a part-time board and serves at the pleasure of the board. Board members are appointed by the governor, but serve staggered terms of fixed duration. Thus, the Secretary of such an agency is insulated from the governor's influence. One could argue that the institutional arrangements of Wisconsin are such that the governor is weak and that several state agencies are free to carry out their legislative mandates without direct control by the governor. This argument is founded on the view that, although the legislature cannot encroach on the power of the executive branch to execute the law, 423 the legislature can decide where to delegate certain authority within the executive branch. On the other hand, one might argue that the legislature can choose where to delegate legislative functions, but that the legislature cannot interfere with the governor's constitutional authority to "take care that the laws be faithfully executed" (Art. Vs. 4). It seems that the legislature can properly remove state agencies from complete control by the governor. Since the role of administrative agencies derive from legislatively enacted statutes rather than from the con- stitution, the legislature can delegate to these agencies a free hand in administering their duties. If an agency fails to apply the law, the governor could probably step in, but when it comes to the quiestion of determining how a statute is to be applied, the legislature can give an agency supe- rior authority to make this decision. It is far from clear, however, that the legislature intended to remove control over administrative agencies from the governor's office. The goals of the 1967 reorganization of the executive branch are set forth in sec. 15.001(2): (2) GOALS OF EXECUTIVE BRANCH ORGANIZATION. (a) As the chief administrative officer of the state, the governor should be provided with the administrative facilities and the authority to carry out the functions of his office efficiently and effectively within the policy limits established by the legislature. (b) The administrative agencies which comprise the executive branch should be consolidated into a reasonable number of departments and independent agencies consistent with executive capacity to administer effectively at all levels. (c) The integration of the agencies in the executive branch should be on a functional basis, so that programs can be co-ordinated. (d) Each agency in the executive branch should be assigned a name commensurate with the scope of its program responsibilities, and should be integrated into one of the departments or independent agencies of the executive branch as closely as the conflicting goals of adminis- trative integration and responsiveness to the legislature will permit. 424 Subsection (3) of 15.001 provides that the reorgani- zation of the executive branch should be a continuing process and sets out goals for this process: (3) GOALS OF CONTINUING REORGANIZATION. Struc- tural reorganization should be a continuing process through careful executive and legisla- tive appraisal of the placement of proposed new programs and the co-ordination of existing programs in response to changing emphasis or public needs, and should be consistent with the following goals: (a) The organization of state government should assure its responsiveness to popular control. It is the goal of reorganization to improve legislative policy-making capability and to im- prove the administrative capability of the execu- tive to carry out these policies. (b) The organization of state government should facilitate communication between citizens and government. It is the goal of reorganization through co-ordination of related programs in function-oriented departments to improve public understanding of goverment programs and policies and to improve the relationships between citizens and administrative agencies. (c) The organization of state government shall assure efficient and effective administration of the policies established by the legislature. It is the goal of reorganization to promote efficiency. It would certainly seem that this statute, particularly 15. 001 (2) (a) , recognizes the need for gubenatorial con- trol over administrative agencies. It might also be argued that the statute supports the coordination of existing management programs through the use of a body such as a "Coastal Council." On the other hand, one might argue that to give a committee created by the governor more than simply advisory status would be a matter of "continuing reorganization" that would require legislative as well as executive action. A final and perhaps in this situation controlling, argu- ment that might be made in favor of the position that the governor can require all state agencies to comply with the "Council's" goals is that such authority stems from sec. 16.54. This section constitutes a 425 legislative delegation of authority to the executive to "perform all acts necessary to comply with and other- wise obtain, facilitate, expedite, and carry out the required provisions" of acts of Congress making funds available to the state (16.54(7)). The governor's authority includes "the preparation, adoption and execution of plans, methods, and agree- ments, and the designation of state, municipal or other agencies to perform specific duties" (16.54(6). Since the governor can designate agencies to perform specific duties, and since, as we have seen above, these duties can include powers an agency would not otherwise have the statutory authority to exercise, it is possible that the governor can direct state agencies to perform their existing duties in a manner consistent with the "Council's" goals. Of course, as the Attorney General's opinions indicate, the governor's authority under 16.54 is subject to con- stitutional and statutory limitations. However, in view of the policy statements in sections 15.001 and 16.001, one might argue that an executive order re- quiring agency compliance with the Council's goals and guidelines would not run afoul of these limitations. In conclusion, there are obviously many unresolved questions about the governor's authority to require state agencies to comply with the "Council's" goals and objectives. At this point it can be concluded that an executive order, standing alone, might well not be sufficient to bind agencies to new policies adopted by the "Council". Interagency agreements, and perhaps legislation, should be carefully con- sidered as means to supplement the executive order as a technique of assuring interagency consistency relative to such policies. 2. Interagency Agreements a. The Role of Interagency Agreements As discussed above, the biggest shortcoming of using an executive order to implement Wisconsin's management program is the problem of compelling state agencies to comply with the "Council's" goals. One means of circumventing this problem which might be employed in lieu of or in addition to an executive order is the interagency agreement. This method of executing the "Council's" policies is termed "voluntary compliance" by OCZM and is described as follows: 426 Here an agency would voluntarily prepare guidance to carry out the unified policies. This method clearly has many pitfalls, although it presents the potential for fostering strong interagency ties in support of the management program. ...The language of the guidance must be specific and spell out the procedures that the agency will follow, the criteria it will use in exercising such authority it administers in the management program and the methods it will use to report on its decisions. (Threshold Papers #6 and 7, p. 12). According to OCZM, voluntary compliance can take three forms. The first of these is agency guidance which would be completed and reviewed prior to program approval. This would require the "Council's" adoption of goals well before program approval in order to allow state agencies to "prepare guidance to carry out the unified policies" and allow sufficient time for review of such guidance. The second and third forms of voluntary compliance both involve agreements by state agencies to complete the guidance by a particular date, which could be after program approval. The second form requires that the agency also agrees to abide by decisions of the body that reviews the guidance for compliance with the state's (Council's) unified policies. The third form requires the agency to agree to "a definite procedure. . .adopted prior to approval whereby individual decisions of that state agency may be appealed to another state agency, upon completion of the guidance, for review and final decision." (Threshold Papers #6 and 7, p. 13). b. Legal Authority There is almost no law pertaining directly to interagency agreements. Because of the nature of such agreements, it is not surprising that no case law exists on the subject. The statutes are not much more helpful. A number of sections of the Wisconsin Statutes, including ss. 14.03, 15.001, 20.901, 22.03, and 22.05 provide for inter-agency cooperation and coordination. All of these sections are very general and, although they are probably sufficient authority for an agency to enter into a voluntary agreement with another agency, none of these sections either explicitly provide for such interagency agreements or puts any limitations on such agreements. 427 Section 144.26(f) also does not provide explicitly for interagency agreements, but does provide that munici- palities and state agencies shall mutually cooperate to accomplish the objectives of this section (the "navigable waters protection law"). These objectives, which include many of the proposed objectives of the "Council", are stated in sec. 144.26(1): To aid in the fulfillment of the state's role as trustee of its navigable waters and to promote public health, safety, convenience and general welfare, it is declared to be in the public interest to make studies, establish policies, make plans and authorize municipal shoreland zoning regulations for the efficient use, conservation, development and protection of this state's water resources. The regulations shall relate to lands under, abutting or lying close to navigable waters. The purposes of the regulations shall be to further the maintenance of safe and healthful conditions; prevent and control water pollution; protect spawning grounds, fish and aquatic life; control building sites, placement of structure and land uses and reserve shore cover and natural beauty. Chapter 16 of the Wisconsin Statutes, pertaining to the Department of Administration, is another possible source of authority for interagency agreements. Section 16.001(1) sets forth the purposes of this chapter, which include the conservation of the state's resources by the coordination of management services. Subsection (2) provides that, "Statutes applicable to the Department of Administration shall be construed liberally in aid of the purposes declared in sub, (1)." As discussed in detail above, Section 16,54 of Chapter 16 governs the acceptance of federal funds. The most helpful provisions are in subsections (6) and (7): (6) The governor may accept for the state the provisions of any act of congress whereby funds or other benefits are made available to the state, its political subdivisions, or its citizens, so far as the governor deems such provisions to be in the public interest; and to this end the governor may take or cause to be taken all necessary acts including (without limitation because of enumeration) 428 the making of leases or other contracts with the federal government; the preparation, adoption and execution of plan, methods, and agreements , and the designation of state, municipal or other agencies to perform specific duties. (7) The governor may accept for the state at all times the provisions of any act of congress whereby funds are made available to the state for any purpose whatsoever, including the school health program under the social security act, and perform all other acts necessary to comply with and other- wise obtain, facilitate, expedite, and carry out the required provisions of such acts of congress , (emphasis added). Section 16.95 (11) provides that the DOA shall: Administer federal planning grants for state planning, when so designated by the governor pursuant to s. 16.54. The department may contract with other state agencies for the preparation of all or part of a facet of the state plan which is financed in whole or in part by federal planning grants. (emphasis added) Both these sections should be read in conjunction with section 16.001, which provides that statutes applicable to the DOA should be liberally construed in aid of the purpose of coordinating management services, etc. These statutes are clear authority for the DOA and the "Council" to enter into the types of interagency agreements discussed in Threshold Papers #6 and 7. On the other hand, these sections contain little, if any, indication of what may be done by such agreements. c. Substantive limitations In the absence of any law dealing specifically with inter- agency agreements, it would seem reasonable to conclude that such agreements are subject to the same limitations as are contracts. Although an interagency agreement can prob- ably be written as merely a "letter of understanding" or in such other form that it would not constitute a formal con- tract, principles of contract law are applicable at least by way of analogy, if not directly, A contract is illegal if it is contrary to constitutional or statutory provisions or public policy (17 C,J,S. Contracts, s 190). The law on contracts in violation of statutes is summarized in 17 C.J.S. Contracts s 201, pp 1003-1004; 429 The rule that a contract is invalid if it conflicts with a statute is not an inflexible one. The true rule seems to be that the question is one of legislative intent. Each statute must be construed with the view of ascertaining the legislative intent. The courts will always look to the language of the statute, the subject matter, the wrong or evil which it seeks to remedy or prevent, and the purpose sought in its manifest that it was not intended to imply a prohi- bition or to render the prohibited act void, the courts will so hold and construe the statute accordingly. What this boils down to is that an agency can not enter into an agreement to do an act which would exceed the powers which the legislature intended to grant to the agency, or which would violate constitutional requirements of sepa- ration of powers. Essentially then we come back to the same conclusion that was reached with respect to executive orders — an agency can not be required (either by the governor or by agreements it has voluntarily entered into) to do an act which it does not have the legal authority to do. This limitation should not be much of a problem. As noted above, it has already been concluded that "[ejxisting state law and programs, with few exceptions, provides adequate legal authority and opportunity to address those coastal management issues that are of state-level concern." (Coastal Council Paper on "State Level Organization for Program Implementation", p. 2). Thus it is not necessary to expand agencies' powers, but rather to coordinate them. Agreements between the Council and other agencies should be able to fulfill this function. d. Procedural limitations In addition to the "substantive" limitations on what an agency has the legal authority to do (and consequently on what it can agree to do or to consider), the agency is also limited "procedurally" by the requirements of due pro- cess and the Administrative Procedure Act (Chapter 227). An agency can not make a binding agreement to promulgate rules or regulations or to automatically apply another agency's standards. It can agree to consider those standards (assuming that it is not statutorily prohibited from doing so) and it can also make an agreement to submit its own proposed rules, regulations or plans to another body for review and comment. An agency could also agree to hold hearings on standards developed by another body, but to make a binding commitment to enforce or adopt those standards without first holding a hearing, would probably be a violation of due process and the Administrative Procedure Act. 430 3. Enforcement of Interagency Agreements and Existing Policies a. Introduction The question as to the legal effect of an interagency agree- ment is one that can not be answered with certainty. The state's Administrative Procedures Act (chapter 227) provides a framework for reviewing agency administrative decisions and rules, both administratively and judicially. Other statutes, such as the nuisance and public intervenor provisions, provide additional avenues for securing review of these decisions. Finally, the court decisions on standing play an important part in determining who can initiate these reviews. The following sections examine these questions in some detail. b . General There is virtually no case law concerning the use of inter- agency agreements. There are no Wisconsin cases or other legal sources indicating that compliance with an interagency agreement can be enforced directly on the weight of the agree- ment itself; similarly, there are no cases or materials that indicate that it can not be directly enforced. However, it should be noted that in any event interagency agreements can certainly be enforced to the extent that their provisions are also embodied in state statutes and regulations. In this respect the conclusion that Wisconsin has adequate statutory and regulatory authority to implement a workable and accept- able coastal management program is important. Although interagency agreements may add little to the en- forceability of existing law, they do have a number of ad- vantages. First, they can clarify how existing statutory and regulatory authority, which is spread between a number of different agencies and covers all the state, will be coor- dinated and enforced in coastal areas. Second, an agency is not apt to violate an interagency agreement that it has en- tered into voluntarily. Third, in the event that an agency did act contrary to an executive order or interagency agree- ment, the existence of either or both of these could help increase public and political pressure on the agency. Finally, by drawing more attention to the agency's actions or inaction, an interagency agreement or executive order would probably assist in getting judicial review. It can be difficult to convince a court to review the decision of an agency not to take action in a particular type of area, but where such failure to act is contrary to an interagency agreement and/or executive order the probability of getting judicial review under sections 227.15 and 227.16 of the Administrative Pro- cedure Act should be increased substantially (see part 3(d) (2)below) . 431 c. Administrative Remedies 1. What they are Before discussing judicial review of administrative decisions and other types of judicial enforcement, a brief examination of possible administrative mechanisms for seeking relief will be made. Two sections of the Wisconsin Administrative Procedure Act provide for hearings before a particular agency on the applicability of rules or statutes enforced by the agency. Section 227.06 states, that, on petition by any interested person, an agency may "issue a declaratory ruling with respect to the applicability to any person, property or state of facts of any rule or statute en- forced by it." Full opportunity for hearings must be afforded to interested parties. Thus, any interested party wanting the agency to enforce its rules or statu- tory responsibility with respect to a particular factual situation could seek a declaratory ruling. However, one disadvantage with this section, at least from the per- spective of someone who seeks agency action, is that it is discretionary as to whether the agency will issue a declaratory ruling [Wisconsin Fertilizer Association v. Karns , 158 N.W. 2d 294, 39 Wis. 2d 95 (1968)]. Where the agency does issue a ruling, it is subject to circuit court review in the manner provided for the review of administrative decisions (see sections 227.15 and 227.16) A decision not to issue a declaratory ruling would also be subject to review under the same sections. Section 227.075 provides for mandatory hearings, but these are available only in limited circumstances. Subsection (1) states that: In addition to any other right provided by law, any person filing a written request with an agency for hearing shall have the right to a hearing which shall be treated as a contested case if: (a) A substantial interest of the person is injured in fact or threatened with injury by agency action or inaction; (b) There is no evidence of legislative intent that the interest is not to be protected; 432 (c) The injury to the person requesting a hearing is different in kind or degree from injury to the general public caused by the agency action or inaction; and (d) There is a dispute of material fact. It should be noted that administrative hearings are independently required (or in some circumstances dis- cretionary hearings are authorized) in many situations, either with respect to permits or in response to citizen complaints. Typical examples of such statutory pro- visions are sections 30.12 and 30.14. The former section requires a hearing on an application for a permit to deposit any material or place any structure upon the bed of any navigable water. The latter section provides that the DNR shall hold a hearing upon complaint by any person that any proposed or existing wharf, pier, or other structure in navigable water violates or will violate sections 30.12 and 30.13, An even more important section providing for adminis- trative hearings is section 144.537. This section states that: The department (of natural resources) shall hold a public hearing relating to alleged or potential environmental pollution upon the verified complaint of 6 or more citizens filed with the department ... Any situation, project or activity which upon continuance or implementation would cause, beyond reasonable doubt, a degree of pollution that normally would require clean-up action if it already existed, shall be considered potential environmental pollution. Although action or inaction of an agency contrary to its interagency agreement would not generally constitute "environmental pollution" within the meaning of this section, this statute provides one mechanism for com- pelling the DNR to carry out its statutory responsi- bility. Orders, conclusions of law, and findings of fact from hearings held pursuant to this section are subject to review under chapter 227. Where hearings authorized by statute are discretionary, the agency's exercise of its discretion is not to be 433 affected by section 227.075 (see 227.075(3)). The legis- lature's purpose in enacting this section in its recent amendments to chapter 227 was to effectuate the following "affirmative proposal" by Professor Kenneth Davis: A person whose legitimate interest is injured in fact or imminently threatened with injury by governmental action should have standing to challenge that action in the absence of legislative intent that the interest is not to be protected. [Administrative Law Text , 322.08, p,438] So where there is no independent statutory provision for a hearing, one can be had under section 227.075, but where the legislature has already determined that a hearing is in an agency's discretion the new section does not alter that determination. A rehearing may be granted by an agency in contested cases, either on its own motion or upon petition by an aggrieved party (section 227.12). A rehearing will be granted only on the basis of some material error of fact or law, or the discovery of new evidence which is suf- ficiently strong to reverse or modify the order and which could not have previously been discovered by due dili- gence. Under the recent amendments to section 227.12, a petition for rehearing is no longer a prerequisite for appeal or review. In some circumstances it may be pre- ferable to seek judicial review of an agency decision rather than a rehearing because a petition for judicial review may be amended pursuant to section 227.19(3). If an application for rehearing is filed under section 227.12, the person filing the application may not ini- tiate a proceeding in a reviewing court based on any ground not set forth in the application, unless good cause is shown to the court for failure to present the ground to the agency in the petition for rehearing. 2. Who may trigger The answer to the question of who may invoke these ad- ministrative remedies varys with the statute establishing the remedy. For example, section 144.537 provides that the hearing shall be held upon the complaint of "6 or more citizens." Section 227.06 provides that an agency may issue a declaratory ruling on petition by any "inter- ested person." This phrase is not defined in chapter 227. However, the term person is defined in section 990.01(26) as including "all partnerships, associations, 434 and bodies politic and corporate." It has been held that this phrase does not include the state and its agencies (State ex rel. Wis. Dept. of Public Instruction v, Wis. DILHR, 68 Wis. 2d 677, 229 N.W. 2d 591, (1975)), Thus it appears that a state agency can not petition another agency for a declaratory ruling. The meaning of the term "interested" is not explicitly defined, but this does not seem to be a very difficult requirement to satisfy in view of the fact that the phrase "interested person" is the same phrase that is used in reference to those who are entitled to testify at hearings on proposed administrative rules (section 227.022(1)). At the very least, any person who would have standing to obtain judicial review of an adminis- trative decision would be an interested person for the purposes of section 227.06. As is discussed below [see part (e) ] , standing requirements are not very stringent in Wisconsin. For example, members of the public have standing to protect their "public trust" interest in navigable waters and the land underlying naviagable waters [Muench v. Public Service Commission 53 N.W. 2d 514 (1952)]. Under section 227.075(1), on the other hand, a hearing shall be provided only if the injured party suffers or is threatened with an injury to a "substantial interest", and such injury must be "different in kind or degree from injury to the general public." Thus under this section, unlike section 227.06, a person who was injured or threatened with injuring merely in his or her capacity as a beneficiary of the public trust would be unable to obtain a hearing. d. Judicial review 1. Review of administrative rules a) How administrative rules are adopted Section 227.02 requires that an agency shall precede all its rule making with notice and public hearing, unless the proposed rule falls within certain limited exceptions, such as emergency rules (see section 227.027) and rules which are procedural rather than substantive. Hearings on proposed rules must be in compliance with section 227.02. A "rule" is defined by section 227.01 (9) and (10) as follows: 435 (9) "Rule" means a regulation, standard, statement of policy or general order (including the amend- ment or repeal of any of the fore- going) , of general application and having the effect of law, issued by an agency to implement, interpret or make specific legis- lation enforced or administered by such agency or to govern the organization or procedure of such agency. (10) Every statement of general policy and every interpretation of a statute specifically adopted by an agency to govern its enforce- ment or administration of legis- lation shall be issued by it and filed as a rule. . . Subsection (11) contains a number of exceptions to the definition of a "rule", the most significant of which is agency action or inaction which covers the internal management of the agency and does not affect private rights or interests, or which is a decision or order in a contested case. Section 227.015(1) provides that any municipality, corporation or any 5 or more persons having an interest in a rule may petition an agency requesting the adopton, amendment or repeal of such rule, unless the right to petition for a particular type of rule is restricted by statute to a designated group or to a particular form of procedure. Within a reasonable time after receiving a petition for rule making, an agency shall either proceed with the requested rule making or deny the petition in writing with a brief statement of its reasons for the denial. Although, as noted above, formal public hearings are generally required, an agency may also use informal conferences and consultations as means of obtaining the viewpoints and advice of interested persons with respect to contemplated rule making. An agency is required to notify members of appropriate standing committees of the legislature when rules and re- visions or repeals thereof are in final draft form. Within 30 days after receiving the notice and a brief summary of the draft, the committee may direct the agency to meet with it to review the draft and the final rule may not be issued during this 30 days (section 227.018(2)). 436 Also, section 13.56 establishes a joint legislative committee for review of administrative rules. Sub- section (2) of this section says that by majority vote, this committee may, after public hearing, suspend any administrative rule or portion thereof. Upon such a suspension the committee is to place a bill before the legislature to repeal the suspended rule. If this bill is not enacted, the rule stands and may not be suspended again. If this bill becomes law, the rule is repealed and may not be repromulgated unless specifically authorized by the legislature. However, the Attorney General has ruled that 13.56 (2) to the contrary, this committee cannot constitutionally suspend an otherwise valid administrative rule (63 OAG 168 (1974)); see 63 OAG 159 (1974) for an extensive discussion of the status of administrative rules in Wisconsin. b) How they are reviewed If an agency adopts a rule that relates to its authority in managing coastal resources, the va- lidity of the rule could be challenged under section 227.05. The section provides that: The exclusive means of judicial review of the validity of a rule shall be an action for declaratory judgment as to the validity of such rule brought in the circuit court for Dane county . . . The court shall render a declaratory judgment in such action only when it appears from the complaint and the supporting evidence that the rule or its threatened appli- cation interferes with or im- pairs, or threatens to interfere with or impair, the legal rights and privileges of the plaintiff. Someone who believed that the agency's rule was inadequate would have to show that the application of the rule would interfere with or impair his or her legal rights and privileges. "Rules" that may be reviewed include agency policies of general applicability, even though they have not been for- mally adopted as rules ( Frankenthal v. Wisconsin Real Estate Brokers Board 89 N.W. 2d 825, 3 Wis. 2d 249 (1958)) . The statute also provides that a declaratory judg- ment may be rendered in court whether or not the plaintiff has just requested the agency to pass upon the validity of the rule in question. 437 2. Review of administrative decisions Administrative decisions (whether they involve a rule or not) are reviewable under sections 227,15 and 227.16. The former section states what decisions are reviewable and the latter provides how they can be reviewed. According to section 227.15: Administrative decisions, which adversely affect the substantial interests of any person, whether by action or inaction, whether affirmative or negative in form . . , shall be subject to judicial review as provided in this chapter. 438 The phrase "administrative decisions "is not defined in the statutes. It is reasonable to assume that this term would be construed broadly in view of the 1976 amendments to section 227.15 which provide that an action for ju- dicial review may arise upon an agency's inaction as well as its action. There is still some question, however, regarding the type of agency inaction that can be re- viewed. The phrase referring to inaction could be read to contemplate inaction on a specific matter, such as a permit application, or it could be read to also apply to a broad pattern of inaction through which an agency had failed to carry out coastal management objectives. An agency's failure to carry out coastal management ob- jectives will be accentuated if the agency is acting in conflict with provisions of an interagency agreement or executive order. In such a case the courts might well find that the agency's inaction constitutes an "adminis- trative decision." Thus, regardless of the extent to which an interagency agreement or executive order can be independently binding against an agency, it should at least get a plaintiff into court to make the argument that the agency is not complying with its statutory responsibility . e. Standing 1. State governmental units a) Lead agency or council A state agency which might be designated the lead agency of the coastal program may obtain judicial review of a decision of another agency under section 227.16. This section provides that "any person aggrieved" by a decision specified in 227.15 shall be entitled to judicial review. The phrase "person aggrieved" is defined in section 227.01(8) or "any person or agency whose substantial interests are adversely affected by a determination of an agency." Thus, assuming the "substantial interests" of an agency are adversely affected by the decision of another agency, it has standing to obtain review of that decision. [For a discussion of when substan- tial interests are adversely affected see part b. (1) below.] Whether a council, such as the proposed coastal council, has standing to invoke judicial review under section 227.16 is less clear. A council would not fall within the definition of "person". This 439 term is defined in section 990.01 (26) as including "all partnerships, associations and bodies politic and corporate." It was held in State ex rel. Wis . Dept. of Public Instruction v. Wis. DILHR , 68 Wis. 2d 677, 229 N.W. 2d 591, (1975) that the phrase "bodies politic and corporate" in conjunctive and, therefore, the state and its agencies are not within the definition of "person." Yet not withstanding the fact that a council is not a "person", it can still qualify as a "person aggrieved" by falling within the definition of "agency". This term is defined in section 227.01(1) as "any board, com- mission, committee, department or officer in the state government, except the governor or any military or judicial officer of this state." A council would probably qualify for standing under this section, assuming, of course, that it was "aggrieved" by the agency decision that it seeks to have reviewed. b) Attorney general The attorney general has standing in several ca- pacities. The most obvious and important of these sources of standing is the attorney general's authority, as head of the department of justice, to represent the state. Section 165.25(1) directs the department of justice to: Appear for the state and prosecute or defend all actions and proceed- ings, civil or criminal, in the supreme court, in which the state is interested or a party, and attend to and prosecute or defend all civil cases sent or remanded by the supreme court to any cir- cuit court in which the state is a party; and, when requested by the governor or either branch of the legislature, appear for the state and prosecute or defend in any court or before any offi- cer, any cause or matter civil or criminal, in which the state or the people thereof may be in anywise interested. Although it might be argued on the basis of DPI v. DILHR , supra, that the attorney general is not a "person" within the meaning of section 227.16, the state supreme court held in Muench v Public Service Commission (1952) 261 W. 442, 53 N.W. 2d 514, that the attorney general has standing to participate in review 440 proceedings in order to protect the public interest. The most important public interest in Wisconsin relative to coastal managment purposes is the public trust in navigable waters and the lands underlying them. The public trust originally related only to the public's navigational interests, but as the court stated in the rehearing of the Muench case (55 N.W. 2d 40,45), "the trust doctrine has been ex- panded to include fishing, hunting, and other public rights in the recreational enjoyment of the navigable waters of the state." In Just v. Marinette County (1972), 56 Wis. 2d 7, 201 N.W. 2d 543, the public trust was expanded even further to support shoreland zoning regulation. The affirmative role of the state in protecting and promoting the public trust is illustrated by Muench : When public rights to the re- creational enjoyment of the navigable waters of the state may be violated by the issuance of a permit to erect a dam, it is clearly the duty (emphasis added) of the state to appear in behalf of the public in the proceeding pending before the Public Service Commission on the application for the permit. (53 N.W. 2d 514, 523) The state's standing under the trust doctrine is also explained in the more recent decision, State v. Deetz (1974), 66 W. 2d 1, 224 N.W. 2d 407: In effect, the state has the usual powers of a trustee. A trustee, by virtue of such position, has standing to take legal action on behalf of the trust where some grievance recognized by the law gives rise to a cause of action. Another source of "standing" and authority for the attorney general is the public nuisance statute, section 823.02. This section provides that an action to enjoin a public nuisance may be brought in the name of the state by: (1) the attorney general 441 upon his own information, (2) upon relation of a private individual, who has obtained leave from the court, or (3) upon relation of a sewerage commission or a county, with leave from the court. Other sections of the statutes specify many acti- vities that constitute public nuisances including, for example, violation of an order prohibiting pollution (section 144.536), obstructions or de- posits in navigable waters (section 30.15(4)), and fish and game devices (section 29.03). Although public nuisances are often declared to be such by statute or ordinance, this is not always the case. Acts in violation of penal statutes, if in fact constituting a public nuisance, may be abated whether or not they are declared nuisances by statute, Every place where a public statute is openly, pub- licly, repeatedly, continuously, persistently and intentionally violated is a public nuisance, [State ex rel. Abbott House of Vision-Belgard-Spero, Inc. (1951), 259 Wis. 87, 47 N.W. 2d 321]. However, a nuisance need not be a violation of a specific statute. To quote from the "interpretive commentary" in 35 Wisconsin Statutes Annotated, p. 225: The act or omission which is the basis of either a public or private nuisance may be: (1) an intentional tort, (2) negligence, or (3) an act or omission for which there is absolute liability. A public nuisance is an offense against the state, while a private nuisance is a tort to a private person. The same act may con- stitute both a private and a public nuisance. An example of a nuisance action brought by the attorney general is State v. Dairyland Power Co-op (1971), 52 Wis. 2d 45, 197 N.W. 2d 878. In this case the supreme court of Wisconsin held that the attorney general could bring an action (without leave of the court) to abate a public nuisance allegedly caused by the operation of a power plant. The court reached this conclusion notwithstanding 442 the fact that additions to chapter 144 conferred on the DNR broad authority to deal with water and air pollution. The court held that the doctrine of exhaustion of administrative remedies did not re- quire the attorney general to first seek issuance of an abatement order by the DNR since no administra- tive action had been commenced, and since such procedure would cause needless circuity and ir- reperable harm in the interim period. c) Public Intervenor Another potential mechanism for instituting judicial action or for obtaining representation in adminis- trative proceedings is to seek the assistance of the public intervenor. The public intervenor is an assistant attorney general appointed by the attorney general, yet autonomous from the rest of the justice department. Section 165.07 of the statutes assigns him the responsibility of intervening in proceedings under chapters 30, 31, 144, and 147 when he is requested to do so by an administrator of a divison primarily assigned the department functions under chapters 29 or 144. He also has the discretion of intervening in such proceedings, on his own initiative or upon request of any committee of the legislature, "where such intervention is needed for the pro- tection of 'public rights' in water and other natural resources, as provided in chapters 30 and 31 and defined by the supreme court" (section 165.07), The memo from the current public intervenor, reprinted at the end of this section, sets out the guidelines for intervention. The public intervenor may also "appeal from adminis- trative rulings to the courts" (section 165.07), In a recent circuit court case, Peshek v. DN R (1977, Dane Co. Cir. Ct., No. 153-281), the DNR~hallenged the public intervener's standing. On a motion to dismiss the appeal from a DNR hearing decision, the department contended that the public intervenor could not obtain judicial review of the decision because he had not intervened in the hearing itself and because he was not a "person aggrieved" within the meaning of section 227.16. The circuit court rejected both of these arguments, It concluded that the public intervenor was a "per- son aggrieved" under sections 227.15 and 227.16, without discussing the possibility that the public intervenor, as an agent for the state, was not a "person" within the definition of section 990.01(26). The court then concluded that section 165.07 should be construed to allow the public intervenor to make 75 443 DEPARTMENTAL CORRESPONDENCE Date: September 29, 1976 To: The Citizen Advisory Committee to the Public Intervenor, Bronson C. La Follette, David J. Hanson, Theodore Priebe, William H. Wilker, Steve Derene, Thomas J. Dawson, and Mark Gibbens From: Peter A. Peshek Subject: Guidelines for Intervention by the Public Intervenor Adopted by the Citizen Advisory Committee to the Public Intervenor on September 28, 1976 1. Does the Public Intervenor have Jurisdiction to Intervene ? The jurisdiction of the Public Intervenor is governed by Stats., sec. 165.07. Naturally, the Public Intervener's juris- dictional bounds are subject to various interpretations of the statute, depending upon the interest offering its interpretation. Still, jurisdictional criteria for intervention are provided by sec. 165.07. They are as follows: a. Mandatory Intervention - The Public Intervenor may be required to intervene in Chs. 30", 31, 144 and 147 proceedings when requested to do so by an administrator of a division primarily assigned the departmental functions under Chs. 29 or 144. b. Discretionary Intervention - The Public Intervenor may, on his own initiative or upon request of any committee of the legislature, intervene in Chs. 30, 31, 144 and 147 proceedings where such intervention is needed for the protection of "public rights" in water and other natural resources, as provided in Chs. 30 and 31, and defined by the supreme court. In addition, the Attorney General has authorized the Public Intervenor to exercise any other powers of an Assistant Attorney General necessary to protect the public's interest in water and other natural resources. For example, the Public Intervenor should be able to commence public nuisance actions pursuant to sec. 280.02, Stats., to protect public rights. 2. Is Intervention Consistent with MBO's Established for the Public Intervenor ? These are criteria that best relate to the Public Intervener's resources and ability to effectively alter the course of environ- mentally objectionable actions or practices. a. Necessity - Does there exist in the case adequate environ- mental advocacy already, or will the Public Intervenor be the major defender of public rights in the environment? 444 September 29 , 1976 Page Two b. Public Intervenor Resources - Does the Public Intervenor have, or can he muster, the resources necessary to effectively intervene and to change the course of a particular case? What experts are available to him? How much time is there to prepare an effective intervention? c. What is the likelihood of success upon intervention? d. In what forum (i.e., agency or court) will the interven- tion need to occur? 3. What are the Environmental Considerations ? a. Does the hearing involve a situation that is representa- tive of a general or statewide problem? b. Would intervention result in control and elimination of a significant source of environmental degradation? c. Is there an opportunity to establish a legal or admin- istrative, precedent favorable to the public rights? d. Does the hearing involve an irrevocable threat to an important or rare natural resource? e. Does the hearing involve a proposed state agency rule or policy which will significantly affect the public rights? f. Does a problem indicate that a state policy should be adopted? b. Does the proposal involve or threaten a cold water eco-system? 4. Does the Hearing Involve a Six-Citizen Complaint Under Sec. 144.537 ? Six-citizen complaints are generally indications that govern- ment has failed to deal adequately with a particular problem. Also, DNR's authority to act may actually be broader under sec. 144.537 than under other, more specific statutes. Complainants in six-citizen hearings are playing the role often referred to as "private attorneys-general." We should do everything we can to help if their complaint is a valid one. 5. Does the Citizens Advisory Committee Recommend Intervention? PAP:klh 445 appeals from administrative proceedings in which he had not formally intervened, "because such a con- struction would further the legislative purpose of protecting public rights in water and other natural resources." The court also noted that to require the public intervenor to intervene in the hearing in order to appeal a decision "would merely duplicate the efforts of other individuals and groups and waste tax dollars." An appeal from the circuit court decision was dismissed by the state supreme court. 2. Citizens a) Judicial review under chapter 227 As discussed above with respect to the standing of units of government, standing to obtain judicial review of administrative decisions is restricted to "any person aggrieved" by a decision specified in section 227.15. A "person aggrieved" is a "person or agency whose substantial interests are adversely affected by a determination of an agency" (section 227.01(8)). The best explanation of when citizens have standing under these requirements of chapter 227 can be found in Wisconsin Environmental Decade v. Public Service Commission (1975), 69 W.2d 1, 230 N.W.2d 243 (here- inafter referred to as WED v. PSC ) . This case involved a petition by the Wisconsin Environmental Decade, Inc. (WED), a nonprofit citizen's organiza- tion, for review of a PSC order which established a priority system for the allocation of natural gas. The Wisconsin supreme court stated that the sole issue before it was whether the petition for review by the WED "states facts that show it is aggrieved and directly affected by the decision of the res- pondent" (69 W.2d 1, 4). [Note that the issue is phrased in terms of the standing requirement as it existed prior to slight modification in the 1975 amendments to chapter 227, which will be discussed below. ] The court in WED v. PSC quoted Greenfield v. Joint County School Commission (1955), 271 W. 442, 447, 73 N.W.2d 580, for the settled rule that a person aggrieved is "one having an interest recognized by law in the subject matter which is injuriously affected by the judgement." The court stated that this rule of standing: 446 envisions a two-step analysis con- ceptually similar to the analysis required by the federal rule. The first step under the Wisconsin rule is to ascertain whether the decision of the agency directly causes injury to the interest of the petitioner. The second step is to determine whether the interest asserted is recognized by law. (WED v. PSC , 69 W.2d 1, ID Taking the first step, a court must consider the injuries alleged by the petition. As the court recognized in WED v. PSC : "The question of whether the injury alleged will result from the agency action in fact is a question to be determined on the merits, not on a motion to dismiss for lack of standing." (WED v. PSC , 69 W.2d 1, 14) The WED alleged that the priority system ordered by the PSC would result in the premature consumption of natural gas reserves and would induce lower priority customers to rely on more environmentally damaging sources of fuel. The PSC argued that these alleged injuries were speculative and remote and could not be construed as being directly caused by the order in question. However, the court agreed with WED's contention that the "directly affected" test "includes injuries that are brought about because of a series of events initiated by the agency action in question and that the injuries alleged here qualify." (ID. at 14) As for the second step of the analysis — whether the interest asserted is recognized by law- — WED argued that it had an interest in the conservation of natural gas that was legally recognized under various provisions of the public utilities law, chapter 196, The court agreed that the protective purposes of this law were sufficient to confer standing on WED. The court stated that "the power to regulate so that the rules and practices of the utilities do not render service inadequate or insufficient raises by fair implication the power to regulate so that 447 service will remain as reasonably adequate and sufficient in the future as is practicable." Thus, the court held that "WED's members, who are cus- tomers in the area affected by the PSC's order in this case have a sufficient interest under the cited sections of ch. 196, Stats, in the future adequacy of their service ... to challenge the PSC's failure to consider conservation alternatives" ( Id. at 16- 17). On this second step of the standing analysis, the court also accepted WED's assertion that it had an interest in the protection of the environment from the harmful effects of burning fuels other than natural gas, which interest was legally recognized under the Wisconsin Environmental Protection Act (WEPA; Sec. 1.11, Wisconsin Statutes). The court stated that: It is our conclusion that WEPA, while not creating a public trust analogous to the public trust in the navigable waters of the state, does, similar to NEPA, recognize an interest sufficient to give a person standing to question compliance with its conditions where it is alleged that the agency's action will harm the environment in the area where the person resides. (Id at 19). The court did not accept WED's argument that its interest in preventing the use of environmentally dirty fuels was also legally recognized under the public trust doctrine. The court rejected this contention, because the petition failed to "assert an interest with regard to the preservation or protection of navigable waters or any related in- terest which has been previously recognized by the court: (Id. at 14). However, the court did recognize the fact that the trust doctrine was a potential source of citizen standing if injury to navigable waters is alleged. The trust doctrine has, in fact, been an important source of standing to protect public rights. An illustration of this fact is the Muench decision, discussed above with respect to the standing of the 448 attorney general. In this case the court found that there was standing (to review a PSC decision) not only in the attorney general, but also in an in- dividual citizen, Muench. The court rejected the PSC's contention that "Muench is not directly af- fected by the Commission's decision because he has no direct pecuniary interest which would be jeopar- dized by the issuance of a permit to erect the dam", stating that: The right of the citizens of our state to enjoy our navigable streams for recreational purposes, including the enjoyment of scenic beauty is a legal right that is entitled to all the protection which is given fi- nancial rights. (Muench , 53 N.W. 2d 514, 522) The court held that: any citizen who has appeared at a hearing of the PSC, held under section 31.06 with respect to an application to erect a dam in a navigable stream, is "aggrieved" and "directly affected" by a decision of the commission finding that public rights will not be violated so as to entitle him to petition for review under section 227.15, Stats. (Id_ at 523) Another important question concerning the standing of citizens, which is resolved in WED v. PSC ., is whether a citizen's organization has standing to represent the interests of its individual members. The court concluded that: an organization devoted to the protection and preservation of the environment has standing to use in its own name if it alleges facts sufficient to show that a member of the organization would have stand- ing to bring the action in its own name. (WED v. PSC , 69 Wis. 2d 1, 20) To this point our discussion of the law of standing under chapter 227 (and the cases interpreting that chapter) has concerned the chapter as it existed prior 449 to the 1975 amendments. These amendments were intended to be consistent with the court's con- clusion in WED v. PSC that "the law of standing is not to be construed narrowly or restrictively" (Id at 13). Throughout the revision of chapter 227, the words "legal rights, duties or privileges" were replaced with the words "substantial interests". According to the Judicial Council's explanatory notes, which accompanied the text of the bill: The use of the words "substantial interests" is intended to broaden, not lessen, the definition of "con- tested case" and other phrases to which the "substantial interests" language relates. Another modification with respect to standing re- quirements was the substitution of the word "ad- versely" (i.e. "adversely affects") in section 227.15 for the word "directly." This change was intended to avoid any semantic argument over stand- ing through public interest groups. [Judicial Council explanatory notes, note to section 19] . Under the case law and these subsequent modifi- cations of chapter 227, it appears that the standing requirement should not be a significant obstacle to individual citizens or public interest groups seek- ing review of administrative decisions. b) Nuisance actions In addition to bringing actions for review of ad- ministrative decisions, citizens can take direct action to protect their interests in coastal re- sources. One important mechanism for doing so is the statutory and common law of nuisance. Citizens can bring actions to abate both private nuisances (section 844.01) and public nuisances (section 823.01). According to section 823.01: Any person, county, city, village or town may maintain an action to recover damages or to abate a public nuisance from which injuries peculiar to the complainant are suffered, so far as necessary to protect the complainant's rights 450 and to obtain an injunction to prevent the same. If a nuisance does not injure an individual in a manner different than it affects members of the public in general, it is a public nuisance and an action to abate it must be brought under section 8 23.02. Such actions can be brought in the name of the state upon relation to the attorney general, but require leave of the court (as discussed in part e 1 (b) above) . On the other hand, a public nuisance which causes a particular injury to an individual different in kind and degree suffered by the public also constitutes a "private nuisance". Yet a private nuisance to an individual may also be a private nuisance to other individuals, if it affects them other than in their capacity as members of the public. The test is not the number of persons injured, but rather the character of the injury. Costas v. City of Fond Du Lac (1964), 129 N.W. 2d 217, 24 Wis. 2d 409) Bringing an action as a private nuisance (whether or not it is also a public nuisance) has the ad- vantages that leave of the court is not required and monetary damages may be awarded. c) 6 - Citizen Complaints Another type of citizen action which bears an im- portant relationship to the. issue of standing is the 6 - citizen complaint procedure. As discussed briefly above (part 3. a.), the verified complaint of 6 or more citizens relating to alleged or potential environmental pollution compells the DNR to hold a public hearing, The department disposition of the complaint would generally be reviewable under sections 227.15 and 227.16. Thus, this statutory procedure is an important mechanism for enabling citizens to force the DNR to fulfill its legal responsibilities with respect to environmental pollution. 451 4. The Conflict Resolution Process a. Introduction The ability to resolve conflicts among competing uses is of importance to efficient and effective governmental coordi- nation in the Coastal Management Program. Conflict resolution is important for ensuring a consistent management program on the part of local governments, state government, and federal agencies. Therefore, a conflict resolution process should be set forth to promote expediency and surety. It should be reiterated that the Wisconsin Coastal Management Program does not dictate or recommend a comprehensive set of new regulations. Through its agencies, the state already has the capacity to control those uses recognized as having a "direct and significant" impact on the coastal environment. The Coastal Management Council will, as one of its five major objectives, emphasize coordination of these regulations and restrictions. Coastal policies, which are set out in the first chapter of the Program Proposal, have been adopted in the state and are being constantly revised and updated. Central to any conflict resolution process is the recognition of the Governor's role in coordinating and managing the diverse elements of the executive branch in Wisconsin government. An analysis of the constitutional limits to gubernatorial authority is given earlier in Appendix H. The use of an executive order is one method of promoting coop- eration and compliance among agencies implementing the coastal management program. The purpose of the executive order is to formally set the Governor's authority behind the objective of assuring that a coordinated and consistent coastal program is carried out in Wisconsin. Several statutes, which are discussed in more detail earlier in Appendix H, speak to the Governor's authority in this regard. These include Sections 15.001 and 16.54. Interagency agreements, also discussed in detail earlier in Appendix H, will be used as a means of formalizing voluntary compliance by state agencies in executing the program's goals and policies. 452 b. Present Methods of Conflict Resolution There are a number of mechanisms currently in use to help resolve potential conflicts. The following offers a description of how these mechanisms are used among the different levels at which conflict might occur. It should be acknowledged that many of the techniques in use do not resolve conflicts in themselves. Rather, they are often of an informational nature, whereby the provision of a better understanding of the features of an issue leads to preliminary avoidance of intergovernmental conflicts. (1). Administrative review process Government agencies should negotiate or discuss differences in an attempt to resolve conflicts or potential conflicts before seeking judicial recourse. Sections 14.03, 15,001, 16.001, 20.901, and 22,03, Wisconsin Statutes, provide for interagency coordination and cooperation in the interest of governmental efficiency. However, a formalized and unqualified conflict resolution process in Wisconsin does not exist. If a reso- lution is unachievable through negotiation by the parties in- volved, the Governor may be asked to intervene to set forth and advocate the state's official position on an issue. OSPE and other agencies may be asked by the Governor to provide staff support in the determination of the gubernatorial position. It should be mentioned that although state agencies may be compelled to be consistent in their actions with federal policies and regulations, the Governor cannot generally compel a federal agency to be consistent with state policies and regulations. With the latter case, the ultimate resolution point is located within the judicial system. An example of a conflict undergoing an administrative review process and involving a federal agency occurred with the pro- posed Port Washington recreational boat harbor. The dispute principally involved the Wisconsin Department of Natural Resources (DNR) and the U.S. Army Corps of Engineers (COE) , and centered on the method of disposal for dredged spoils. EPA testing of the harbor bottom indicated that dredged spoils would not, according to federal standards, be polluted. Thus, the COE maintained that it would not be contrary to federal policy to dump dredged spoils into Lake Michigan. On the other hand, DNR maintained that the spoils are pollutants and that open water disposal of dredged spoil would be a direct violation of Wisconsin law. All parties were in favor of the project. DNR maintained that a land disposal site would have to be found, and the COE maintained that a land disposal site would warrant another Environmental Impact Statement. The Governor was asked to intervene by the parties. After deliberations and meetings, the Governor decided to uphold DNR's position, 453 although he did encourage the COE to continue its planning, since DNR and Port Washington were working to find a suit- able land disposal site. Presently, the controversy is still not resolved, and may delay similar projects. Since all private interests and local governments must comply with all applicable state regulations and guidelines, another example could be illustrated with shoreland zoning (which is discussed in detail in the "managed uses" section of this appendix). Here, all counties are required by state statute to adopt shoreland zoning programs in unincorporated areas which meet the Department of Natural Resources' standards and criteria. DNR district offices are to receive copies of all applications and timely notice of hearings on amendments, variances, and special exceptions. There is frequent informal contact made with all counties so that DNR is usually aware of possible problems far ahead of the notice review. DNR district staffs also have review appeals for special exceptions, mainly to assure that appropriate conditions are required and enforced. (2) . A-95 review and comment The regulations promulgated under OMB Circular No. A-95 are aimed at promoting more effective coordination of planning and development activities carried on or assisted by the Federal Government. An applicant desiring federal assistance for a project sends a notice of intent to file to the clearinghouse . The coastal regional planning commissions and the Office of State Planning and Energy (OSPE) serve as the respective regional and state clearinghouses. One exception is in the Northeast, where Bay Lake RPC is not a regional clearinghouse. The clearinghouse reviews and secures views of state agencies, local governments, and interested non-governmental entities which might have programs affected by the proposed project. If the reviewers do not raise any questions or problems, the clearinghouse will either send supportive comments to the applicant or may defer comments and request a completed ap- plication for review. Clearinghouse comments are based on the extent of conformance a project would have with respect to locally adopted regional plans or state plans and policies. If there are issues which need resolution, arrangements are made for negotiating their resolution. After the initial 30- day period for reviewing the notice of intent, the clearing- house may, if necessary, request an additional 30 days for review of the application. If the first submittal is the application itself, the clearinghouse has 60 days to review the application. The application and comments are forwarded to the applicant, who then submits them to the federal funding agency. Federal agencies are directed to return applications that do not carry evidence of fulfilling the A-95 requirements, which include either attached comments from the clearinghouse or a certifi- cation by the applicant that he has provided the clearinghouse 454 with the appropriate opportunity to review his application and has received no comments. The funding agency considers the application and comments and informs the clearinghouse of the action taken thereon. Where funding agencies approve an application contrary to the recom- mendations of a clearinghouse, they are required to explain in writing to the clearinghouse why its recommendation was not accepted. A new requirement states that where a clearinghouse has pointed out a proposed project may conflict with or dupli- cate an activity funded by another federal agency, the funding agency must consult with that agency prior to approving the proposed project. Although A-95 requirements state that a federal agency must take the recommendations of a clearinghouse into consideration, the requirements do not obligate a federal agency to act or refrain from acting contingent upon those recommendations . (3). Wisconsin Environmental Policy Act (Sec. 1.11, Wisconsin Statutes) . Applying to all state agencies, the act requires that all pro- posals and recommendations for legislation and other major activities have a detailed environmental and economic impact statement prepared before a decision is made, if the potential impact is deemed sufficiently important. The statement explains how the environment is affected and substantially follows the guidelines of the National Environmental Policy Act. Prior to finalizing any detailed statement, agencies are required to consult with and obtain the comments of any agency which has jurisdiction or special expertise with respect to any environmental impact involved. Such comments and reviews are made available to the Governor, DNR, and the public. Every proposal, other than legislative, is also given a public hearing before a final decision is made (Sec. 1.11(2) (d)) . Sec. 1.11(2) (e) mandates the study, development, and description of appropriate alter- natives to recommended courses of action in any proposal in- volving unresolved conflicts. However, Sec. 1.11(4) (c) does not obligate any agency to act or refrain from acting contingent upon the recommendations or certification of any other state agency. Of course, in addition to the requirements of WEPA, state actions and proposals must be in conformance with state environ- mental regulations and policies. (4) . Office of State Planning and Energy The Office of State Planning and Energy (OSPE) has been the lead agency in the development of the coastal management program. Sec. 16.95, Wisconsin Statutes, directs the Department of Ad- ministration to promote and coordinate a comprehensive system of state planning. This function has been assigned to OSPE. Specifically, Sec. 16.95(5) mandates state planning to advise 1 455 and assist state agencies in their development and maintenance of comprehensive plans, and to advise them of the impact of related plans of other state agencies. Sec. 16.95(7) requires the identification of both duplication and program gaps in the plans and the measurement of the agency plans with the state goals enacted by the Governor and the Legislature. Thus, OSPE has the statutory responsibility to interrelate and coordinate the planning activities of other state agencies with respect to state goals, policies, and plans established by the Governor and the Legislature. OSPE has been designated by the Governor as the state A-95 Clearinghouse, and as the central coordinating agency for interagency implementation of the Wisconsin Environ- mental Policy Act. OSPE co-chairs, with the Department of Natural Resources, the interagency committee on WEPA. Specific coordinating committees on land use and on economic development have been established at the directive of the Governor. Along with the Department of Local Affairs and Development, OSPE is also responsible for the development of the State's Comprehensive Planning Assistance Grant (701) Application. Close programmatic working relation- ships have been established with several state agencies, the three coastal regional planning commissions, and coastal local units of government. OSPE will continue to be the lead agency to solicit, receive, and administer federal funds for the coastal management program. The agency would house a small central staff for the Coastal Manage- ment Council, and, based on the statutory and program respon- sibilities noted above, would play a central role in the coastal program's coordinative activities. (5) . The Budget Process The state budget process has increasingly become a primary mechanism through which interagency conflicts are resolved. It is objective and program oriented. The process directly in- volves state agencies, the Governor, and the Legislature. The Governor is responsible for proposing and carrying out policies and the Legislature determines what policies and programs will be authorized by law. The budget process begins with each agency submitting its budget request to the Department of Administration (DOA) . Sec. 16.42(1) (a) requires all departments to give a clear statement of the purpose and goal of each program and subprogram. This is achieved through the policy issue paper, which is designed to identify significant program or policy issues, assess alternatives and recommend a course of action which addresses the program or policy issue. Policy issue papers are prepared both by state agencies and DOA. DOA also identifies other issues which it believes agencies should address, as well as any program overlaps, as the Governor can initiate and require agencies to respond to identified policy areas. 456 Budget analysts, assigned to review specific agency requests keep in close touch with their respective agencies to resolve discrepancies. OSPE is also selectively involved in the budget process through development and review of policy issue papers so as to follow through gubernatorial initiatives. The Governor selects from among the various agency budget requests those which will go forward to the Legislature. Documentation furnished by the agencies, individual meetings with the agencies, and analyses performed by DOA and OSPE all help to provide a basis for dis- cretionary gubernatorial recommendations to the Legislature. In the Legislature, proposals are subject to public hearings and reviews with agencies by the Joint Committee on Finance. After the budget is enacted by the Legislature, it becomes sub- ject to the approval of the Governor. Under Article V, Section 10 of the Wisconsin Constitution, appropriation bills may be approved in whole or in part by the Governor, with the part approved becoming law. Vetoed items are reviewed by the Leg- islature and may be passed into law by a vote of two-thirds of both houses. (6) . Interagency Committees Interagency committees are another technique for helping to re- solve conflicts. An example would be the Environmental Liaison Committee, established by the Department of Transportation and the Department of Natural Resources. The Committee meets per- iodically to discuss the forthcoming activities of the two agencies. For example, bridges in or over navigable waters are subject to the jurisdiction of both departments. The purpose of Chapter NR 320, of the Administrative Code, is to provide uniform clearance and flood flow standards for DNR's review and approval of such bridges. DOT prepares the state highway plan, which includes the designation of sites and alternative sites for bridges. Therefore, the Committee primarily serves as an informational forum through which knowledge of each agency's plans and regulations help to avoid conflicts. (7) . Judicial Review The state administrative procedures act generally sets the frame- work for judicial review of agency actions and decisions (this topic is discussed in more detail in a preceding section of Appendix H) . Sec. 227.15 defines what administrative decisions are reviewable by the judiciary. These include any decision which adversely affects the substantial interests of any person, whether by action or inaction, and whether they are alternative or negative. Sec. 227.16 provide that "any person aggrieved" by a decision specified in 227.15 shall be entitled to judicial review. The phrase "person aggrieved" is defined in Sec. 227.01(8 as any person or agency whose substantial interests are adversely affected by a determination of an agency. The attorney general also has standing to initiate judicial review, since as the head of the Department of Justice he is charged with representing the state and protecting the public interest. The most important public interest in Wisconsin relative to coastal management purposes is the public trust in 457 navigable waters and the lands underlying them. The public intervenor, as an assistant attorney general autonomous from the rest of the justice department, also has standing under Sec. 165.07. Finally, under the case law and Chapter 227, the standing requirement would not be a significant obstacle to individual citizens or public interest groups seeking review of administrative decisions. (8) . The National Environmental Policy Act of 1969 The Act requires federal agencies to prepare an Environmental Impact Statement (EIS) for any proposed major federal actions that may significantly affect the environment. Sec. 102(2) (e) of the Act calls for inputs into the development and evaluation of EIS's by state and local agencies authorized to develop and enforce environmental standards. Affected or interested state agencies, local governments and citizens are also provided the opportunity to interject reviews and comments. In Wisconsin, DNR is the designated lead agency to develop, review, and comment upon EIS's, while OSPE is the designated coordinating agency. Although federal agencies should take the evaluations and reviews of other agencies, federal, state or local, into consideration in their decision-making, as with the A-95 process they are not obligated to act or refrain from acting contingent upon these reviews and recommendations. c. Conflict Resolution Under the Coastal Management Program For the most part, the formal decision-making process with issues concerning the coastal management program will remain as it is, except as noted below. This is because all specific implementing responsibilities will continue to be handled by the agencies having jurisdiction over these issues. However, several important new elements will be introduced into the present system of conflict resolution. These elements include the Coastal Management Council (CMC) , the Citizens Advisory Council (CAC) , the establishment of specific management policies for designated geographic areas of management concern, and the requirement of federal consistency to the policies of the fed- erally approved management program. The role of the CMC in the conflict resolution process will be significant. It would attempt to resolve those conflicts be- fore they would normally advance to the Governor's office. Being composed of members representing state government, local governments, regional planning commissions, the public, and tribal governments, it would serve as the logical forum for this purpose. The Council will use existing vehicles, such as A-95 review and comment , NEPA review and comment , and WEPA review and comment, to improve coordination and assure a consistent management program in the state. For example, the coastal management program provides the needed policy basis for A-95 reviews of projects affecting the coastal area. The CMC would insert coastal management concerns into such reviews, taking into consideration the program objectives and state coastal policies. The CMC would become part of the administrative 458 appeals process, could become involved in judicial appeals, and has decision-making authority for those issues involving program operation (such as approving the budget, designating areas of management concern, etc.)* Since the CMC will function on a committee structure, it is conceivable that a special com- mittee may be established to specifically address the resolution of conflicts. One of the functions of the CAC will be to monitor the implementatic of the program. This could include identifying impending con- flicts, and bringing them to the attention of the involved parties or the CMC. A second function, that of sponsoring public partic- ipation and public education programs, can also serve to identify potential conflicts and facilitate early resolution. Two other functions of the program in the GAMC process and the federal consistency provisions also can aid in the conflict resolution process (these functions are described in detail in the main body of this proposal — the GAMC process at section IIBl and federal consistency at Section III). With the GAMC process, policies for specific areas are proposed by the managing agency. These proposals are reviewed by local, state, and federal agencies, and the public. A specific mediation process is set up for conflicts. With the federal consistency provisions, specific procedures are set forth for improving the coordination of state and federal management programs. B. Creating the "Council" 1. Introduction - Option Up to this point it has frequently been stated that the new state level body which will coordinate the proposed management program will be the "Coastal Council". However, the creation of a council is only one of several options which still need to be considered. Both the type of body that is created and the authority it can exercise depend to a very large extent on how it is created. One alternative for creating the body that has already been rejected is comprehensive legislation. It has been concluded that rather than seeking comprehensive legislation at this time, the focus of the program should be on improving and coordinating the existing management system while studying the need for longer tern reforms. Yet, short of comprehensive legislation, there are still a number of possible methods for setting up a new state level body. The possibilities for the exact nature and role of this body are almost limitless, but they be broken down into three general categories. The simplest approach politically and the least com- prehensive would be the creation of a committee by executive order, pursuant to section 14,019 of the Wisconsin Statutes. Another option is to create an "advisory council" by legislation, A third alternative is the creation of a policy-making board. 459 How each of these options might be implemented and some of the advantages and disadvantages of each option will be discussed. Which of these alternatives is chosen will depend on a careful balancing of a number of factors, particularly political con- siderations and the desired role of the new body. 2. Creation of a Committee by Executive Order Section 14.019(1), Wis. Stats., provides that "the governor may, by executive order, create nonstatutory committees in such manner and with such membership as he desires, to conduct such studies and to advise him in such matters as he directs." Having created a coastal committee, pursuant to section 14.019, the governor might then grant it additional powers for the implementation of a federally funded program under section 16.54 (discussed in part A above) . An executive order is probably the simplest method, at least from a political perspective, of creating a state level body; however, there are a number of drawbacks. One possible objection to the establishment of a committee pursuant to section 14.019 and 16.54 is the argument, raised in a 1964 attorney general's opinion, that the governor could not create a commission or committee under section 16.54. The specific issue considered in that opinion (53 OAG 60) was whether, under the authority of sec. 16.54, the governor could create a commission (by executive order) to accept and administer the benefits made availabel to public and private institutions of higher learning under the Higher Education Facilities Act of 1963. The attorney general found two difficulties in using sec, 16.54 as a source of authority for an executive order creating a new commission to accept and administer the benefits of the federal act. The first problem was with the word "designate" in that part of 16.54(2) which provides that "the governot shall designate the state board, commission or department to administer any of such funds." The attorney general concluded that "[t]the word designate is not synonymous with the word 'create'." (53 OAG 60, 63) The second and more significant reason for ruling that the governor could not use 16.54 as a source of authority for creating a com- mission was the conclusion that to so construe the statute " might be invalid as an attempted delegation of legislative power to the governor." (53 OAG 60,64, emphasis added) This opinion can be distinguished on several grounds. For one thing it is probable that the DOA, rather than the "coastal committee", would be designated the lead agency to accept and administer the federal funds. Yet even if the committee is appointed to accept and administer the funds, it must be kept in mind that subsequent to the attorney general's opinion the legislature enacted section 14.019, which explicitly provides that 460 the governor may create "nonstatutory committees" by executive order. Furthermore, it should also be noted that the opinion only concluded that the power to create the proposed commission "might" be invalid on constitutional grounds. Sec. 14.019 pro- vides for the length of time that committee shall serve and makes reference to funding, thus eliminating some of the attorney general's problems with using sec. 16.54 as the source of authority for creating a new body. Although a number of non- statutory committees have been created pursuant to sec. 14.019, the constitutionality of these committees and of the section itself have not been challenged. Thus, it is reasonable to assume that a "coastal committee" could be established by executive order sec. 14.019. A more significant issue, however, is whether such a committee would have sufficient legal authority to implement the proposed Wisconsin management program (and to satisfy the federal Act's requirement for program approval) . A committee has relatively little statutory authority. Sec. 14.019(1) merely gives a non- statutory committee the authority to "conduct such studies and to advise him [the governor] in such matters as he directs." "Committee" is also defined in section 15.01(f), as follows; "Committee" means a part-time body appointed to study a specific problem and to recommend a solution or policy alternative with respect to that problem, and intended to terminate on the completion of its assignment. Because of their temporary nature, committees shall be created by session law rather than by statute. This definition applies explicitly only to Chapter 15, but there is no apparent reason to believe that a different definition would apply to the term as it is used in sec. 14.019. In any event, both 14.019 and 15,01 makes it clear that a committee's role is only temporary. When the committee is established by executive order it not only may be abolished at the governor's pleasure (14.019 (1) (a)) , but it also expires at the end of his term of office unless the new governor provides for its con- tinued existence (14.019 (1) (b) ) . Even if the fact that the committee's role is only temporary is acceptable, there is the additional problem that its statutory role is merely advisory (sees. 14.019 and 15.01(f)). It is questionable whether a committee's limited advisory power would be sufficient to implement Wisconsin's proposed management program. It can be argued, however, that even though a committee's statutory defined functions are narrow, its authority can be expanded by executive order issued pursuant to section 16.54, A number of attorney general's opinions, discussed above with respect to executive orders and sec, 16,54 clearly support this argument. 461 Yet the limits on the governor's power to increase an agency's or a committee's authority in this manner are hardly clear. It would appear, however, that the governor can at least give the "coastal committee" the authority to coordinate Wisconsin's management program. The conclusion that the governor can not only create a new body but can also grant it executive power for the coordination of the coastal management program is supported by a recent opinion interpreting sec. 16.54 (63 OAG 453). This 1974 Attorney General's Opinion concerned an agreement entered into by Kenosha, Racine, and Walworth counties to form a Tri-County Comprehensive Employment and Training Act Consortium. The purpose of the pro- posed Consortium was to accept and administer federal funds for manpower training and education. The Attorney General concluded that the counties did not have the authority under the Wisconsin statutes and the existing facts to form the Consortium or to carry out the provisions of the federal act. However, he concluded that the councies could have been granted such authority under sec. 16.54(6): Under subsec. (6), the Governor could designate counties as agencies to carry out the provisions of the federal act within their respective areas. Counties could then enter into agreements with other counties or with munici- palities to qualify as prime sponsors. The provisions of sec. 16.54(6), Stats., are presumed constitutional and the legislature intended that the Governor have such power with respect to federal legislation enacted after sec. 16.54, Stats., became law. (63 OAG 453,464) If such a consortium can be created and given the authority to accept and administer federal funds, pursuant to sec. 16.54, then it seems reasonable to assume that the governor could give a new "coastal committee" the power to coordinate the Wisconsin management program in cooperation with existing state agencies. On the other hand, as discussed above, it is doubtful that the governor can require state agencies to comply with policies or guidelines adopted by the committee. What the governor can not do by executive order might be accomplished by interagency agreements, but, as we have seen, there are also limits on this mechanism for ensuring compliance. Just how much can be done by executive order and interagency agreements is still being discussed with the attorney general's office. Of course, the answer to this question also depends on what agencies such as the DNR and PSC are willing to agree to. Suffice it to say that at this point it is still unclear whether a committee set up by executive order under sections 14.019 and 16.54 would have sufficient authority to implement an effective management program and/or to get OCZM approval. 462 3. Legislative Creation of a Council A second general option is to seek legislative creation of a council. This alternative has a number of advantages. First, the creation of a "council" gets around the problem that a committee is only a temporary body. The definition of a council provides that it is "appointed fo function on a continuing basis.., (15.01(6)). As far as definitions go, however, a council serves essentially the same role as a committee in that its function is "the study and recommendations of solutions and policy alter- natives..." (15.01(6)). Section 15.01(5) elaborates on this definition slightly, and provides that a council "shall advise the head of the department or independent agency in which it is created. . . ". Although the statutory definition of a council is much the same as that of a committee, going the legislative route has the advantage of adding flexibility in the type of body that is created and where it is placed. One possible option would be to create a council and place it in an existing state agency. Most state agencies have several councils. The Department of Adminis- tration, for example, contains the council on administrative policy and procedures; the council on printing, and the council on population estimates (15.107). Another option is to place the council in the executive office. Among the councils which are already in the executive office are the council on highway safety and the council on alcohol and other drug abuse (14.017). Creating the council by legislation also has the advantage of providing a logical opportunity for the legislature to define its function. Because a council's role is defined by statute as advisory it might still face many of the problems discussed above with respect to a nonstatutory committee. But since the council is established by the legislature, the legislature can also resolve these problems. For example, the legislature could provide that the council will cooperate with other agnecies and coordinated their activities in the coastal zone. An explicit delegation of such function by the legislature would obviate the need to determine whether an executive order could vest those functions in the state level body. Since a council is defined as an advisory body, a question might arise as to whether the legislature can create a "council" which has policy-making functions. On the basis of the definitions set forth in sec. 15.01, one might surmise that only boards or bodies higher than boards can functions as policy-making units, but in at least two cases the legislature has at least come very close to assigning the function of determining policy to councils in the executive office. Section 14.24(3) (c) provides that the council on alcohol and other drug abuse may "define responsibility 463 among state agencies for various alcohol and other drug abuse prevention and control program and direct cooperation between state agencies." The human services coordinating council is directed not only to "advise the governor, the legislature and state agencies" bat also to "develop policy statements that focus on comprehensive delivery of services" (14.26(1)). The sections of the statutes establishing the functions of these two councils provide a good example of the types of provisions that might be pursued if legislation were sought to establish a state level body for the coastal program. These sections should be examined carefully to see if they far enough in providing the type of authority which would be necessary for a "coastal council". With respect to whether a particular legislative grant of autho- rity to a council gives it policy-making power, if the grant were ambiguous the court could look at the definitions in sec. 15.01 and conclude that the council did not have such power. On the other hand, if the legislature clearly and explicitly gives a council the authority to determine policy, a court would give the explicit grant of authority more weight than the general defini- tion. Of course, whether the legislative council would support and the legislature would adopt a bill that created a policy- making body but called it a council is another question. One obvious and significant drawback of establishing a new state level body by legislation and attempting to have the legislature give it broad authority is the risk of failure. The more autho- rity that is sought for the new body the larger this risk becomes. Furthermore, to rely on legislative support of a bill could make rejection of that bill months from now a significant blow to the chances of putting together an acceptable management program. Yet, as discussed above with respect to requiring cooperation and compliance, if the continguency that a bill does not pass is accepted and planned for, it would be possible to fall back on use of an executive order and interagency agreements. In such case relatively little would be lost by attempting unseccessf ully to have the legislature create the council. A more significant drawback to using legislation is the desire to avoid creating a new governmental bureaucracy and to avoid new governmental restrictions on citizens. Rather than setting up a new super-agency, the approach taken in developing the Wisconsin program has been to coordinate and improve existing programs before adding new ones, 4. Legislative Creation of a Board The major advantage of the creation of a board as the new state level body should be apparent by now - boards, rather than councils, are the usual governmental units to make policy. Section 15,01(5) (a) defines a board as a " "part-time body functioning as the policy-making unit for a department or independent agency or a part-time body with policy-making or quasi-judicial powers." 464 Since a primary function of the proposed level body is the pre- paration of goals and guidelines, the creation of a board is clearly a more logical and more desirable option than the creation of a council. Yet since it is a stronger option, it would also probably be more controversial, and the risk of failure is, therefore, greater. Of course, if a bill creating a board were not approved, the bill could still possibly be amended for the creation of a council. Another, less significant, advantage of a board is that under sec. 15.03 it can be attached to a department or independent agency and yet still be relatively autonomous from that body. Section 15.03 states that: Any division, commission or baord attached under this section to a department or independent agency or a specified division thereof shall be a distinct unit of that department, independent agency or specified division. Any division, commission or board so attached shall exercise its powers, duties and func- tions prescribed by law, including rule-making, licensing and regulation, and operational planning within the area or program responsibility of the division, commission or board, independently of the head of the department or independent agency, but budgeting, program co-ordination and related manage- ment functions shall be performed under the direction and supervision of the head of the department of independent agency. This option is not available for councils. The autonomy which can be provided under this section might be an asset for the proposed state level body. < Z o o < UJ Q LU LL Introduction 465 This Appendix is in two parts. The first section identifies federally excluded lands in Wisconsin. The second section, which is the bulk of this Appendix, details the Wisconsin program's consultation with federal agencies in program de- velopment. The section is arranged alphabetically by feder- al agency. There are four parts to the discussion for each agency: (1) a contact person; (2) a statement of the agency's national interest in the coastal area; (3) a listing of the agency's activities to which the consistency provisions apply; and (4) a log of contacts with the agency. Note: The log contains entries through September 1, 1977; it is currently being updated. 466 I. FEDERAL EXCLUDED LANDS IN WISCONSIN Department of the Air Force - Air National Guard General Mitchell Field - owned in fee - 100 acres; 64 acres under lease National Forest Chequamegon Islands Apostle Islands National Lakeshore (excluding Madeline and Long Islands) Spider Island, Gravel Island, Hog Island Naval Reserve Training Centers Racine - 212 Hamilton Street and selected areas of Lake Michigan Milwaukee - 2401 S. Lincoln Memorial Drive Sheboygan - 905 S. 8th Street Green Bay - Foot of Hubbard Street Coast Guard (as reported by Coast Guard on September 19, 1977) Property City Count y Acres Algoma Pierhead LtSta Baileys Harbor Range Lt . Bayfield Moorings Boyer Bluff Light Cana Island Lt . Chambers Island Lt . Chequamegon Point Lt . Devils Island Light Station Dunlap Reef Light Eagle Bluff Light Fox River ANT Station Green Bay Hbr. Ent . LtSta Green Island Light Gull Island Light Kenosha CG Station Kewaunee Pierhead LS La Point e LS Res. Manitowoc Brkwtr. LtSta Michigan Island Light Milwaukee Breakwater LS Milwaukee CG Base Milwaukee CG Station (INDIAN OCCUPIED) North Point Light Outer Island LtSta Algoma Kewaunee .4 Baileys Door 4.4 Bayfield Bayfield .5 .1 .1 on Washington Island Door Bailey's Harbor Door 8.7 on Chambers Island Door 900 SF Ashland 1.8 Bayfield Bayfield 24 Marinette .2 Near Fish Creek Door 1.02 Menasha Winnebago 0.126 Green Bay Brown Off Shore in Green Bay Marinette 0.8 La Pointe Ashland 3.4 Kenosha Kenosha 1.0 Kewaunee Kewaunee .7 Ashland Ashland .7 Manitowoc Manitowoc 0.2 Bayfield 0.23 Milwaukee Milwaukee Off Shore Milwaukee Milwaukee Permit Milwaukee Milwaukee 1.2 Milwaukee Milwaukee 1. 6est . Bayfield Ashland .021 467 Peshtigo Reef Light Pilot Island Light Station Plum Island CG Station Port Washington LtSta Pottawatomie Light Rasberry Island Light Rawley Point Lt Station Sand Island Light Station Sheboygan CG Station Sherwood Point LtSta Sturgeon Bay Range Lts. Sturgeon Bay Canal Station Tail Point Light 24 Two Rivers CG Station Wind Point Lt. Oconto Off Shore Door 3.7 Washington Washington 325 Port Washington Owaukee .3 Door 400 SF Bayfield Bayfield .021 Two Rivers Manitowoc 9.2 Sand Island Bayfield 1.03 Sheboygan Sheboygan 4.8 Sturgeon Bay Door 1.3 Door 0.074 Sturgeon Bay Door 1.3 Brown 36' x 36' Two Rivers Manitowoc 1.22 Racine Racine 2.226 Indian Reservations * Bad River Reservation Red Cliff Reservation Federal Mineral Ownership Outside National Forests The following counties have substantial parcels of land with federal mineral ownership within the coastal management area: Douglas Bayfield Iron Oconto Ashland Door Marinette Brown Kewaunee Racine Kenosha Sheboygan Manitowoc * The State recognizes the unique sovereign status of tribal government and will provide assistance to address coastal issues (see policy on Tribal governments in Chapter III, Section E, of the program proposal). 468 D D O cc o < U. O H z UJ 5 H K < 0. 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CO c CO c CO CO CO ■H •H a, ■H 01 ■H 3 •H 2 •H S3 > > < & « S "J & IS CTi "< rC u SO a. oo Q* r*. r» ■• r* r* r^ •• r>» r>». o\ Ov r~. r*. o\ i-l rH r^ CJ\ i-4 o »H ft ■ «H ■i o vO ft co r-4 CM n co o\ CN| 4J 4-1 4J m CO CO 0) >» 3 3 3 c r-l oo 60 60 3 3 3 3 3 ^ •■3 < < < • • • • . o O r-4 CM CI tH CS| CM CM CM 15003L80009-77 INFORMATION FOR READERS PENN STATE UNIVERSITY LIBRARIES IHVVIIIIIIH PURPOSE: This document is both a draft environmental impact statement (DEIS) and a program document on the Wisconsin Coastal Manage- ment Program. It is being circulated by the U.S. Department of Commerce for public and government agency review and comment . Comments received by the U.S. Department of Commerce will be considered in revising this document and will be included as an appendix in the final environmental impact statement (FEIS) to be cir- culated in early 1978. At this time it is not anticipated that public review of this document will require more than forty-five (45) days. Concurrent and overlapping reviews of other proposed coastal management program approvals will make it difficult to grant an extension of the comment period for the Wisconsin DEIS under Section 1500.9 of guidelines issued pursuant to the National Environmental Policy Act. The U.S. Department of Commerce will hold public hearings on the DEIS during November, 1977 in Wisconsin. HOW TO USE THIS DOCUMENT : WHERE TO ASK QUESTIONS ABOUT THIS DOCUMENT: Readers who are not familiar with the EIS standard format for coastal management program will want to examine the following pages as aids to the reader: Table of Contents - page v. Table cross-referencing requirements of the Coastal Zone Manage- ment Act with sections of this document - page 4 Table cross-referencing National Environmental Policy Act (NEPA) and the Wisconsin Environmental Policy Act (WEPA) requirements with sections of this document - page 6 Summary of Wisconsin's proposed program - page 7 Summary Table of Wisconsin Coastal Management Program - page 46 Glossary of Terms - page 201 Map of Wisconsin - page 158 Please save this copy of the DEIS as the appendices will not be included in the FEIS unless a substantial change to an appendix is made. Informational questions can be handled in Washington by Eileen Mulaney, Great Lakes States Regional Manager of the Office of Coastal Zone Management (202/634-4237) and in Wisconsin by Allen H. Miller, Program Manager, Wisconsin Coastal Management Program (608/266-3687). A list of persons who participated in developing the Wisconsin program is found in Appendix C; these people can also provide helpful information.