T H E I S L A N D T R U S T C O N C E P T p r o p o s e d I n s t i t u t i o n a l A r r a n g e m e n t t o I m p l e m e n t a P o l o f C o n t r o l l e d D e v e l o p m e n t f o r t h e G u l f I s l a n d s o f B r i t i s h C o l u m b i a by JULIA MARY GLOVER B . S c , U n i v e r s i t y of T o r o n t o , 1 9 7 0 A THESIS SUBMITTED IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF SCIENCE In the Schoo 1 of COMMUNITY S REGIONAL PLANNING We a c c e p t t h i s t h e s i s as c o n f o r m i n g to the req u i red j f t ^ n d a f d THE UNIVERSITY OF BRITISH COLUMBIA M a y , 1974 In p r e s e n t i n g t h i s t h e s i s i n p a r t i a l f u l f i l m e n t o f the requirements f o r an advanced degree a t the U n i v e r s i t y o f B r i t i s h Columbia, T agree t h a t the L i b r a r y s h a l l make i t f r e e l y a v a i l a b l e f o r r e f e r e n c e and study. I f u r t h e r agree t h a t p e r m i s s i o n f o r e x t e n s i v e c o p y i n g o f t h i s t h e s i s f o r s c h o l a r l y purposes may be granted by the Head of my Department or by h i s r e p r e s e n t a t i v e s . I t i s understood t h a t c o p y i n g or p u b l i c a t i o n of t h i s t h e s i s f o r f i n a n c i a l g a i n s h a l l not be a llowed w ithout my w r i t t e n p e r m i s s i o n . D e p a r t m e n t o f ( \ . . . . . . The U n i v e r s i t y o f B r i t i s h Columbia Vancouver 8 , Canada A B S T R A C T The G u l f I s l a n d s i n the S t r a i t of Geor g i a are w i d e l y r e c o g n i z e d as having unique e c o l o g i c a l and c l i m a t i c c h a r a c -t e r i s t i c s and o u t s t a n d i n g n a t u r a l beauty. The high s h o r e l i n e to l a n d area r a t i o o f the i s l a n d s and the s h e l t e r e d waters of the S t r a i t p r o v i d e c o n s i d e r a b l e o p p o r t u n i t y f o r a v a r i e t y o f r e c r e a t i o n a l a c t i v i t i e s . However the s c e n i c and e s s e n t i a l l y r u r a l environment of the i s l a n d s i s c u r r e n t l y t h r e a t e n e d by the p r o l i f e r a t i o n of r e s i d e n t i a l s u b d i v i s i o n s . E x i s t i n g development c o n t r o l s a v a i l a b l e to the seven R e g i o n a l Baords having j u r i s d i c t i o n i n the G u l f I s l a n d s study a r e a , appear to be i n a d e q u a t e . The c e n t r a l t a s k of t h i s study t h e r e f o r e , i s to propose an i n s t i t u t i o n a l arrangement c a l l e d the G u l f I s l a n d s T r u s t , to implement a p o l i c y o f c o n t r o l l e d development f o r the i s l a n d s . The o b s e r v a t i o n s and recommendations of the P r o v i n c i a l L e g i s l a t u r e ' s Committee on M u n i c i p a l M a t t e r s which s t u d i e d the i s l a n d s d u r i n g 1973, were ac c e p t e d as the terms of r e f e r e n c e f o r t h i s s t u d y . The methodology i s as f o l l o w s : I. To document the background deve lopments l e a d i n g t o the f o r m a t i o n of p r o v i n c i a l p o l i c y f o r t h e i s l a n d s . i i 2 . To a n a l y z e e x i s t i n g s i m i l a r purpose land use l e g i s l a t i o n f o r i t s r e l e v a n c e t o t h e G u l f I s l a n d s . 3 . To p r e p a r e a model b i l l wh ich d e f i n e s t h e s t r u c t u r e and powers of the G u l f I s l a n d s T r u s t . F i v e p i e c e s of l e g i s l a t i o n are examined i n d e t a i l : 1. U . S . C o n g r e s s , N a n t u c k e t Sound I s l a n d s T r u s t B i l l , I 97-3. 2 . H a w a i i , Land Use Law of 1961, as amended 1970. 3 . Ve rmont , E n v i r o n m e n t a l C o n t r o l Law, 1970 ( A c t . No. 250 Vermont L a w s ) . 4 . O n t a r i o , N i a g a r a Escarpment P l a n n i n g and Development A c t , 1973. 5 . Wash ington S t a t e , S h o r e l i n e Management A c t of 19 7 1. These laws are a n a l y z e d on the b a s i s of s e v e r a l c r i t e r i a . From t h i s a n a l y s i s recommendations f o r an i n s t i t u t i o n a l a r r a n g e -ment are g i v e n which i n c o r p o r a t e those s t r u c t u r e s and powers thought n e c e s s a r y to c o n t r o l development a c t i v i t i e s on the i s l a n d s . At the same time the recommended p r o v i s i o n s attempt to a c h i e v e c e r t a i n o b j e c t i v e s c o n s i s t e n t w i t h the normative assumptions o f the author and p r o v i n c i a l p o l i c y . The recommendations are embodied i n a model b i l l f o r the G u l f I s l a n d s which d e s c r i b e s the proposed i n s t i t u t i o n a l arrangement i n terms o f c e r t a i n s t r u c t u r e s , powers, and f u n c t i o n s . The l a n d use laws a n a l y z e d i n t h i s study are c h a r a c -t e r i s t i c o f the tr e n d s towards i n c r e a s e d p r o v i n c i a l / s t a t e i i i c o n t r o l over r e g i o n a l l a n d use mat t e r s and the i n c r e a s e d d e l e -g a t i o n of powers to s p e c i a l purpose b o d i e s . Only some of the l e g i s l a t i o n a n a l y z e d s e r i o u s l y attempts to accommodate l o c a l c i t i z e n i n p u t to the d e c i s i o n - m a k i n g p r o c e s s . The model b i l l proposed i n t h i s study i n c l u d e s mechanisms to p r o t e c t the i s l a n d environment and a t the same time makes p r o v i s i o n f o r the p a r t i c i p a t i o n o f i n d i v i d u a l s i n the p o l i c y f o r m u l a t i o n , p l a n p r e p a r a t i o n , i m p l e m e n t a t i o n and m o n i t o r i n g s t a g e s of the p l a n n i n g p r o c e s s . i v TABLE OF CONTENTS Page A b s t r a c t i i L i s t of Tables: i x L i s t o f C h a r t s , F i g u r e s arid .Maps x Acknowledgements x i PART I: BACKGROUND TO THE STUDY Chapter 1 INTRODUCTION 1 1.1 D e f i ni t i o n s 2 1 . 2 O b j e c t i v e s 3 1.3 Methodology 4 2 BACKGROUND 9 2.1 P h y s i c a l D e s c r i p t i o n 9 2.2 H i s t o r i c a l P e r s p e c t i v e 11 2.3 S o c i o - p o l i t i c a l P e r s p e c t i v e 16 2.4 Recent P l a n n i n g A c t i v i t i e s 21 2.5 Development of P r o v i n c i a l P o l i c y 28 v Chapter Page 3 IDENTIFICATION OF THE PROBLEM 36 3.1 Overview of the Need f o r C o n t r o l s 36 3.2 C e n t r a l Research Task 46 3.3. O u t l i n e of M a t e r i a l f o r A n a l y s i s 49 PART II: EXAMINATION OF SIMILAR-PURPOSE LAND USE CONTROLS 4 EXAMINATION OF THE ISLAND TRUST CONCEPT IN PROPOSED LEGISLATION 55 4.1 Model I s l a n d T r u s t L e g i s l a t i o n 55 4.2 Nantucket Sound I s l a n d s T r u s t B i l l 59 4.3 H o u s a t o n i c R i v e r V a l l e y T r u s t B i l l 72 5 EXAMINATION OF SIMILAR-PURPOSE LEGISLATION FOR LAND USE CONTROL 75 5.1 H a w a i i , Land Use Law (1961) 75 5.2 Vermont, Environmental C o n t r o l Law (1970) 84 5.3 O n t a r i o , N i a g a r a Escarpment P l a n n i n g and Development A c t (1973) . . . . . . . . . . . 96 5.4 Washington S t a t e , S h o r e l i n e Management Act (1971) 106 6 A COMPARATIVE ANALYSIS OF EXISTING TRUST LEGISLATION AND SIMILAR PURPOSE LEGISLATION . . . 114 7 RELEVANCE OF EXISTING LAND USE LEGISLATION TO THE GULF ISLANDS PROPOSAL 122 7.1 Normative Assumptions 123 7.2 Rules of N a t u r a l J u s t i c e 123 7.3 Safeguards i n De l e g a t e d L e g i s l a t i o n . . . . . 123 v i Chapter Page PART III: SUGGESTED ISLANDS TRUST STRUCTURE AND LEGISLATION 8 RECOMMENDATIONS FOR A SUGGESTED STRUCTURE OF THE TRUST 128 8.1 Conceptual Framework 128 8.2 Suggested S t r u c t u r e of the I s l a n d s T r u s t 138 9 RECOMMENDATIONS FOR ISLANDS TRUST LEGISLATION 146 9.1 I n t e n t and Scope of Proposed L e g i s l a t i o n . 146 9.2 G u l f I s l a n d s T r u s t Model B i l l 147 9.3 Content A n a l y s i s of G u l f I s l a n d s T r u s t B i l l 175 10 IMPLICATIONS OF THE ESTABLISHMENT OF A GULF ISLANDS TRUST COMMISSION 178 10.1 Inadequacy of L o c a l Development C o n t r o l s 178 10.2 Trend to I n c r e a s e d P r o v i n c i a l / S t a t e R e s p o n s i b i l i t i e s i n L o c a l A f f a i r s 184 10.3 Trend to S p e c i a l Purpose Bodies 184 10.4 The R i g h t to P a r t i c i p a t e 188 10.5 C o n c l u d i n g Comments 191 BIBLIOGRAPHY 194 APPENDICES A "Report of the S e l e c t S t a n d i n g Committee on M u n i c i p a l M a t t e r s , " i n Votes and Pro-ceedings of the L e g i s l a t i v e Assembly of B r i t i s h Columbia, Monday, September 24, 1 974 207 v i i Appendices Page B "National Island Trusts Act" model b i l l in Bureau of Outdoor Recreation, U.S. Department of the In te r io r , Islands of America, 1 970 212 G Nantucket Sounds Islands Trust B i l l , Congressional Record s. 1929, Washington, May 31 , 1 973 217 D Hawaii, Land Use Law of 1961, Hawaii Rev. Stat. c. 205 (1968) as amended (1 969,1 970) 223 E Vermont, Act No. 250 Vermont Laws, Tenth Vermont Stat . Ann. c. 1 51 , 1 970 227 F Ontar io , Niagara Escarpment Planning and Development Act, Ont. c. 22-, E l i z . II , 1973 . . . . • 2 3 3 G Washington, Shoreline Management Act of 1971 , RCW 90.58 252 v i i i LIST OF TABLES Tab! e Page 1 Land Area and Permanent 1971 P o p u l a t i o n , G u l f I s l a n d s . 12 2 C u r r e n t S t a t u s of Community Pl a n s and Bylaws, G u l f I s l a n d s , 1 974 29 3 Comparative A n a l y s i s of I s l a n d T r u s t and S i m i l a r Purpose L e g i s l a t i o n 116 4 A n a l y s i s of Contents of G u l f I s l a n d s T r u s t Model B i l l 176 5 Comparison of F e a t u r e s of the Proposed G u l f I s l a n d s T r u s t to E x i s t i n g R e g i o n a l Boards . 182 LIST OF CHARTS, FIGURES AND MAPS Chart Page 1 Structure of the Vermont Environmental Protection System 91 2 Preparation of Shoreline Master Programs, Washington State 112 Figure 1 P o l i t i c a l and Planning Processes: Stage One 132 2 Po l i t i ca l and Planning Processes: Stage Two 1 34 3 Proposed Po l i t i ca l and Planning Frame-work, Gulf Islands 137 Map 1 Regional Setting: Gulf Islands 10 2 Regional D is t r i c t s : Gulf Islands 17 x A C K N O W L E D G E M E N T S The aut h o r would l i k e to express her g r a t i t u d e to B i l l Rees and Brahm Wiesman f o r t h e i r numerous h e l p f u l comments and a s s i s t a n c e d u r i n g the p r e p a r a t i o n of t h i s paper. Thanks a l s o to Al Lucas of the F a c u l t y of Law and B i l l Lane of the B.C. Land Commission who reviewed the model b i l l f o r the G u l f I s l a n d s T r u s t and who o f f e r e d many v a l u a b l e s u g g e s t i x i P A R T I BACKGROUND TO THE STUDY Chapter 1 INTRODUCTION The r e s e a r c h t a s k , as summarized i n t h i s paper, was c o n c e i v e d as an a n a l y s i s of a p a r t i c u l a r mechanism to implement a p o l i c y of c o n t r o l l e d development and c o n s e r v a t i o n f o r the i s l a n d s i n the S t r a i t of G e o r g i a . The a n a l y s i s i n c l u d e d the d e s i g n o f an i n s t i t u t i o n a l s t r u c t u r e to make and c a r r y out d e c i s i o n s , and recommendations f o r d r a f t l e g i s l a t i o n which would implement t h i s s t r u c t u r e . In o r d e r to emphasize the i m p l e m e n t a t i o n a s p e c t , a number of assumptions were t r e a t e d as u n d e r l y i n g premises of the s t u d y . These assumptions w i l l be f u r t h e r e l a b o r a t e d i n l a t e r c h a p t e r s , however s e v e r a l of the more fundamental i s s u e s are s t a t e d here: I . The i s l a n d s - are a unique s c e n i c , r e c r e a t i o n a l and n a t u r a l r e s o u r c e and are c u r r e n t l y t h r e a t e n e d by v a r i o u s forms of overdevelopment. 2. The i s l a n d s c o n s t i t u t e a v a l u a b l e a s s e t to the r e g i o n , the p r o v i n c e and the c o u n t r y . 1 2 3 . There i s a need t o t a k e measures t o p r e s e r v e t h e un ique a t t r i b u t e s of the i s l a n d s s i n c e e x i s t i n g i n s t i t u t i o n a l a r r a n g e m e n t s appear t o be i n a d e q u a t e i n c o n t r o l l i n g d e v e l o p m e n t . 4 . Any program u n d e r t a k e n t o p r o v i d e deve lopment c o n t r o l s on the i s l a n d s s h o u l d s t r i v e t o enhance s o c i a l o p p o r -t u n i t i e s by i n c r e a s i n g a l t e r n a t i v e uses t o as many i n d i v i d u a l s as p o s s i b l e , w h i l e a t t h e same t i m e m i n i m i z i n g e n v i r o n m e n t a l d e g r a d a t i o n . The purpose of t h i s e x e r c i s e i s t h e r e f o r e not to prepare a case as to why the G u l f I s l a n d s s h o u l d be c o n s e r v e d , but r a t h e r , g i v e n w i d e s p r e a d acceptance of the need f o r con-s e r v a t i o n , to determine how t h i s can be e f f e c t i v e l y c a r r i e d o u t . 1 . 1 O b j e c t i ves There are two major o b j e c t i v e s t o t h i s s t u d y : 1. To examine the a d m i n i s t r a t i v e s t r u c t u r e s and t h e e n a b l i n g l e g i s l a t i o n of e x i s t i n g i n s t i t u t i o n a l a r r a n g e m e n t s which have as t h e i r major o b j e c t i v e , p r e s e r v a t i o n of u n i q u e e n v i r o n m e n t s and c o n t r o l of d e v e l o p -ment , a n d , wherever p o s s i b l e , t o e v a l u a t e t h e i r e f f e c t i v e n e s s in c a r r y i n g out p o l i c y . 2. To d e v e l o p a s u g g e s t e d s t r u c t u r e f o r a ' G u l f I s l a n d s T r u s t ' t o implement a p o l i c y of c o n t r o l l e d deve lopment and c o n s e r v a t i o n on the G u l f I s l a n d s . The major assumption of t h i s s tudy i s the acceptance of the recommendation made by the S e l e c t S t a n d i n g Committee on M u n i c i p a l M a t t e r s to the P r o v i n c i a l l e g i s l a t u r e , September 24, 3 1973. T h i s Committee recommended the e s t a b l i s h m e n t of "an ' I s l a n d s T r u s t ' ( o r commission) as the most a p p r o p r i a t e body to be r e s p o n s i b l e f o r and to c o - o r d i n a t e the f u t u r e of each i s l a n d w i t h i n ( t h e P r o v i n c e ' s ) terms of r e f e r e n c e " (see Appendix A ) . The o b s e r v a t i o n s and recommendations i n c l u d e d i n the r e p o r t of t h i s Committee are t h e r e f o r e a c c e p t e d as an a c c u r a t e r e p r e s e n t a t i o n of the p r e s e n t s i t u a t i o n on the i s l a n d s . T h i s r e p o r t p r o v i d e s the terms of r e f e r e n c e f o r t h i s s tudy which proceeds to develop a suggested s t r u c t u r e f o r a G u l f I s l a n d s T r u s t . (The c o n t e n t s of the r e p o r t are d i s c u s s e d i n g r e a t e r d e t a i l i n P a r t I , Chapter 2 of t h i s s t u d y . ) 1.2 Methodology T h i s study i n c o r p o r a t e s two r e s e a r c h methods, namely b i b l i o g r a p h i c r e s e a r c h and p a r t i c i p a n t o b s e r v a t i o n of the p o l i c y p r o c e s s . The b i b l i o g r a p h i c r e s e a r c h i n c l u d e d a s e a r c h of e x i s t i n g l a n d use l e g i s l a t i o n which was c o n s i d e r e d to have r e l e v a n c e f o r the G u l f I s l a n d s . The second a s p e c t of the r e s e a r c h i n v o l v e d both p a r t i c i p a t i o n and o b s e r v a t i o n . P a r t i c i -p a t i o n i n the d e c i s i o n - m a k i n g p r o c e s s began i n J u l y 1973 when the a u t h o r p r e s e n t e d a b r i e f to the Committee on M u n i c i p a l M a t t e r s which was t o u r i n g the i s l a n d s at t h a t t i m e . The major recommendation c o n t a i n e d i n t h i s b r i e f was t h a t "an I s l a n d T r u s t Commission s h o u l d be s e t up to implement p r o v i n c i a l 4 p o l i c y on the i s l a n d s " (Bowen I s l a n d S t u d y, 1973). F o l l o w i n g the recommendations made by the Committee to the L e g i s l a t u r e , September 1973, the au t h o r met w i t h r e p r e s e n t a t i v e s o f the government d u r i n g which the s t r u c t u r e and r e s p o n s i b i 1 i t y of the T r u s t were d i s c u s s e d . T h i s i n c l u d e d a meeting w i t h the M i n i s t e r , Hon. J.G. L o r i m e r , h i s e x e c u t i v e a s s i s t a n t D. J a n t z e n , and the chairman of the Committee A. Nu n w e i l e r on October 16, 1973 and two meetings on February 11, 1974, one w i t h the M i n i s t e r and the o t h e r w i t h v a r i o u s s t a f f , members of the Department o f M u n i c i p a l A f f a i r s who were i n v o l v e d i n r e s e a r c h and the d r a f t i n g of the l e g i s l a t i o n to c r e a t e the 'Gulf I s l a n d s T r u s t . ' I t was through these meetings t h a t the au t h o r was a b l e t o c o n t r i b u t e her i d e a s and knowledge g a i n e d from r e s e a r c h to the proc e s s of d e f i n i n g the s t r u c t u r e and r e s p o n s i b i l i t i e s o f the T r u s t . At the same time the auth o r was a b l e to f o l l o w the p r o g r e s s of the d r a f t l e g i s l a t i o n . The r e s e a r c h docu-mented i n t h i s s tudy r e p r e s e n t s the a u t h o r ' s own work and the s u g g e s t i o n s f o r d r a f t l e g i s l a t i o n a r e based on t h i s r e s e a r c h , and on the a u t h o r ' s p e r c e p t i o n and development o f a p o s s i b l e a l t e r n a t i v e s o l u t i o n f o r the i s l a n d s . 1 . 3 D e f i n i t i o n s The s t u d y area i s d e f i n e d as the group o f f i f t e e n i s l a n d s i n the S t r a i t of Ge o r g i a between Vancouver I s l a n d and 5 the M a i n l a n d , which the S e l e c t S t a n d i n g Committee on M u n i c i p a l M a t t e r s t o u r e d i n May and J u l y 1973. These i n c l u d e the f o l l o w -i n g i s l a n d s : S a t u r n a , North Pender, South Pender, S a l t s p r i n g , G a l i a n o , Mayne, Bowen, Gambier, K e a t s , Denman, Hornby, L a s q u e t i , G a b r i o l a , Kuper and T h e t i s . The i s l a n d s are n:neluded i n seven R e g i o n a l D i s t r i c t s : C a p i t a l , G r e a t e r Vancouver, Sunshine C o a s t , Comox-Strathcona, Powell R i v e r , Nanaimo and Cowichan V a l l e y . These i s l a n d s are r e f e r r e d to i n t h i s s tudy as the G u l f I s l a n d s and, u n l e s s o t h e r w i s e s p e c i f i e d , i n c l u d e those i s l a n d s j u s t named. The G u l f I s l a n d s T r u s t i s d e f i n e d as the i n s t i t u t i o n a l arrangement to be s e t up by the P r o v i n c i a l government to implement a p o l i c y of c o n t r o l l e d development and c o n s e r v a t i o n f o r the G u l f I s l a n d s . The e n a b l i n g l e g i s l a t i o n to c r e a t e such a T r u s t w i l l l i k e l y be i n t r o d u c e d t o t h e P r o v i n c i a l L e g i s l a t u r e i n the S p r i n g or F a l l S e s s i o n s , 1974. The t r u s t concept r e q u i r e s f u r t h e r e l a b o r a t i o n . The d i c t i o n a r y d e f i n i t i o n s of ' t r u s t ' a p p r o p r i a t e to t h i s concept i n c l u d e : • a person or thing in whioh confidence is placed • a charge or duty imposed in f a i t h or confidence or as a condition of some r e l a t i o n s h i p • something committed or entrusted to one to be used or cared for in the i n t e r e s t of another :". dependence on something future or contingent (G.C. Merriam C., 1964) 6 The ' t r u s t c o n c ept' t h e r e f o r e suggests an a r r a n g e -ment wherein d e c i s i o n s p e r t i n e n t to the f u t u r e of an area or f i e l d of a c t i v i t y are e n t r u s t e d to a body which i s r e p r e s e n t a -t i v e of w i d e r i n t e r e s t s . I m p l i c i t i n the term ' c o n f i d e n c e ' i s the i d e a t h a t o b j e c t i v e s e x p r e s s e d by wide i n t e r e s t s w i l l be pursued, presumably f o r some common good. The term ' t r u s t ' a l s o i m p l i e s t h a t o b j e c t i v e s w i l l be d e f i n e d i n terms of long-term r a t h e r than s h o r t - t e r m e f f e c t s . ' T r u s t ' may then be i n t e r p r e t e d to mean c o n s i d e r a t i o n and p r o t e c t i o n o f f u t u r e as w e l l as p r e s e n t i n t e r e s t s . Land t r u s t s are most commonly e s t a b l i s h e d to hold l a n d i n ' t r u s t e e s h i p ' f o r the p u b l i c good. Land i s h e l d by the T r u s t under s p e c i f i c , l e g a l l y d e f i n e d c o n d i t i o n s and i s not n o r m a l l y a l l o w e d to be s o l d . The I n t e r n a t i o n a l Independence I n s t i t u t e (1972) d e f i n e s a community l a n d t r u s t as: a legal e n t i t y , a quasi-public body chartered to hold land in stewardship for a l l mankind present and future while protecting the legitimate use-rights of i t s residents. Examples of t h i s community a p p r o a c h t t o l a n d c o n t r o l are r e l a t i v e l y r a r e i n North America but s i m i l a r approaches have been u t i l i z e d , sometimes f o r hundreds of y e a r s , i n a number of c o u n t r i e s , n o t a b l y I n d i a , T a n z a n i a and Mexico ( I n t e r n a t i o n a l Independence I n s t i t u t e , 1972). The more common form o f l a n d o r p r o p e r t y t r u s t i n Western c o u n t r i e s i s the p r i v a t e t r u s t which has been developed 7 m a i n l y to p r o t e c t c o n s e r v a t i o n i n t e r e s t s i n l a n d . The be s t known o f the s e i s the N a t i o n a l T r u s t of Great B r i t a i n . T h i s p r i v a t e , n o n - p r o f i t o r g a n i z a t i o n was founded i n 1895 and i s now p r o t e c t e d by the N a t i o n a l T r u s t A c t s 1907 to 1953 (Nature Conservancy, 1964). The purpose of the T r u s t i s "promoting the permanent p r e s e r v a t i o n , f o r the b e n e f i t of the n a t i o n , o f lan d s and tenemants, of beauty or h i s t o r i c i n t e r e s t , and, as re g a r d s l a n d s , f o r the p r e s e r v a t i o n , of 9 their*; "natural a s p e c t f e a t u r e s and animal and p l a n t l i f e " ( N a t i o n a l T r u s t A c t 1 907 , S. 4 ( I - ) ) . The T r u s t i s su p p o r t e d by s u b s c r i p t i o n s of i t s members. In 1969 i t owned over two hundred h i s t o r i c b u i l d i n g s and about f o u r hundred thousand a c r e s o f l a n d i n Englan d , S c o t l a n d , Wales and No r t h e r n I r e l a n d ( W o r s k e t t , 1969). For the purposes of t h i s study the t r u s t concept is5di©f;in.edaashhavningtthiseeeeiliements: 1 . R e p r e s e n t a t i o n of wider i n t e r e s t s 2. long term o b j e c t i v e s 3. c o n s i d e r a t i o n of f u t u r e as w e l l as p r e s e n t i n t e r e s t s A major p o r t i o n of t h i s work d e a l s w i t h the d e s i g n of an i n s t i t u t i o n a l arrangement to implement a g i v e n p o l i c y of the p r o v i n c i a l government, as exp r e s s e d i n the r e p o r t of the Committee on M u n i c i p a l M a t t e r s . An i n s t i t u t i o n a l arrangement i s d e f i n e d as an i n t e r r e l a t e d s e t of r u l e s and e n t i t i e s ( Fox, 1971). Rules are d e f i n e d to i n c l u d e l a w s , r e g u l a t i o n s , 8 s u b s i d i e s , t a x e s , c h a r g e s , p e n a l t i e s and w e l l - e s t a b l i s h e d customs. E n t i t i e s are d e f i n e d as i n d i v i d u a l s , groups and f o r m a l o r g a n i z a t i o n s which are c a p a b l e of a c t i o n or being the r e c i p i e n t of a c t i o n by a n o ther e n t i t y (Fox, 1971). I m p l i c i t i n t h i s d e f i n i t i o n of an i n s t i t u t i o n a l arrangement i s t h a t , g i v e n an o b j e c t i v e , the i n s t i t u t i o n w i l l pursue s p e c i f i c a c t i o n s to a c h i e v e o b j e c t i v e s . In a d d i t i o n , the i n s t i t u t i o n a l a r r a n g e -ment must have some power to e n f o r c e r u l e s and r e g u l a t i o n s . P o l i c y i s d e f i n e d b r o a d l y as a c o u r s e of a c t i o n pursued by governments, r u l e r s , p o l i t i c a l p a r t i e s e t c . to a c h i e v e c e r t a i n o b j e c t i v e s . The f o r m u l a t i o n and i m p l e m e n t a t i o n of p o l i c y c o u l d be c o n s i d e r e d to be the c e n t r a l f u n c t i o n o f government i n t h a t p o l i c y most o f t e n d e a l s w i t h the a l l o c a t i o n t O f v a l u e s f o r s o c i e t y . A u s t i n Ranney (1968) has d e f i n e d p o l i c y as having the f o l l o w i n g main components: • a p a r t i c u l a r object ov set of objects ' a desired course of events • a selected l i n e of action • a declaration of intent • •• • an implementation of intent - the actions a c t u a l l y undertaken v i s - a - v i s the p a r t i c u l a r set of objects in pursuance of the choices and declaration. Chapter 2 BACKGROUND 2.1 P h y s i c a l D e s c r i p t i o n The G u l f I s l a n d s are l o c a t e d i n the S t r a i t of Georg i a which s e p a r a t e s Vancouver I s l a n d from the mainland of B r i t i s h Columbia (Map 1 ) . The S t r a i t i s p a r t of a s t r u c t u r a l t r o u g h which extends along the west c o a s t of North America i n a n o r t h w e s t e r l y d i r e c t i o n , from the G u l f of C a l i f o r n i a to A l a s k a . Thousands of y e a r s of marine and r a i n e r o s i o n have produced the r i d g e s , v a l l e y s and i n l e t s t y p i c a l of the i s l a n d s ( F a r l e y , 1973). The S t r a i t of Ge o r g i a area and the s o u t h e r n G u l f I s l a n d s i n p a r t i c u l a r , have a moderate c l i m a t e w i t h mean summer temperatures i n the 6 0 o , s F and mean w i n t e r temperatures above f r e e z i n g . R a i n f a l l i s low compared to o t h e r c o a s t a l areas i n the p r o v i n c e . The so u t h e r n G u l f I s l a n d s r e c e i v e between t h i r t y and f o r t y i n c h e s of r a i n a n n u a l l y (Rees and Ve r b u r g , 1973). In a d d i t i o n to a m i l d c l i m a t e , 9 M A P 1 R E G I O N A L S E T T I N G : G U L F I S L A N D S 11 the waters of the S t r a i t are w e l l p r o t e c t e d , making them i d e a l f o r s m a l l c r a f t b o a t i n g . The i s l a n d s have a t o t a l l a n d area of a p p r o x i m a t e l y 270 square m i l e s or l e s s than 1% of the t o t a l area of the p r o v i n c e . The l a r g e s t i s l a n d i s S a l t s p r i n g w i t h an area of 71 square m i l e s and the s m a l l e s t i s Keats w i t h an area of 2.5 square m i l e s . The p o p u l a t i o n of the area i n 1971 was a p p r o x i m a t e l y 7,300. The t o t a l p o p u l a t i o n i n c l u d i n g s e a s o n a l r e s i d e n t s p r o b a b l y ranges from two to t h r e e times t h i s number.^ Ta b l e 1 c o n t a i n s a breakdown of p o p u l a t i o n and la n d area by i s l a n d . 2.2 H i s t o r i c a l P e r s p e c t i v e The f i r s t known v i s i t o r s to the G u l f I s l a n d s were the Coast S a l i s h I n d i a n s which i n c l u d e d the Nanaimo, Chemainus, Cowichan, S a a n i c h and Songhee t r i b e s (B.C. H i s t o r i c a l A s s o c i a -t i o n , 1971). The i n d i a n s used the i s l a n d s f o r h u n t i n g and f i s h i n g grounds but a c c o r d i n g to a r c h e o l o g i c a l e v i d e n c e d i d not b u i l d permanent s e t t l e m e n t s t h e r e . (afthei'rl summer f i s h i n g camps were l o c a t e d on s i t e s on the i s l a n d s which were f l a t and near the s h o r e l i n e . T h i s i s based on v a r i o u s e s t i m a t e s of se a s o n a l p o p u l a t i o n s made by Reg i o n a l D i s t r i c t p l a n n e r s . For example, S a l t s p r i n g ' s s e a s o n a l p o p u l a t i o n i s e s t i m a t e d a t 1200 persons w h i l e Hornby's i s e s t i m a t e d a t over 500. 1 2 Table 1 Land Area and Permanent 1971 P o p u l a t i o n , G u l f I s l a n d s I s l a n d Area (square miles) P o p u l a t i on (1971 census) S a l t s p r i ng 71 .0 3,600 North Pender 10.5 South Pender 3.6 Mayne G a l i ano 8.9 23.0 1,700 Bowen 19.5 330 Gambier 26.8 67 Keats 2.5 5 Denman 19.2 250 Hornby 11.7 175 L a s q u e t i 25* 1 50 Gabr i o l a 27* 680 Kuper 3.8 200** T h e t i s 5* 150** 270 7,308 * e s t i m a t e d ** 1973 e s t i m a t e s SOURCE: P l a n n i n g Departments of the f o l l o w i n g R e g i o n a l D i s t r i c t s : C a p i t a l , G r e a t e r Vancouver, Sunshine C o a s t , Comox-S t r a t h c o n a , Powell R i v e r , Nanaimo, Cowichan V a l l e y , 1 974. 13 In 1792, C a p t a i n Vancouver s a i l e d around Vancouver I s l a n d , s e n t on a m i s s i o n by the B r i t i s h Government to s u r v e y t h a t area of the c o a s t . During h i s e x p l o r a t i o n he stopped o f f at Mayne I s l a n d and no doubt many o t h e r of the G u l f I s l a n d s ( H a m i l t o n , 1969). The r e s u l t s of C a p t a i n Vancouver's s u r v e y appeared i n 1798 i n a c h a r t which i n c l u d e d the s o u t h e r n G u l f I s l a n d s ( C a p i t a l R e g i o n a l D i s t r i c t , 1971). Vancouver named the G u l f of Geo r g i a a f t e r King George I I , and Howe Sound a f t e r E a r l Howe who d i s t i n g u i s h e d h i m s e l f i n a b a t t l e w i t h the French i n 1794, halfway round the w o r l d (Howard, 1973). The c o a s t was a l s o e x p l o r e d by the S p a n i s h around t h i s same t i m e , and i t was Jose M a r i a Narvaez who named Saturna I s l a n d ((Gorri g a l , 1 969). During the 1800's the f i r s t European s e t t l e m e n t s appeared i n the Lower F r a s e r V a l l e y on the m a i n l a n d . S e t t l e m e n t f o l l o w e d sometime a f t e r on the G u l f I s l a n d s . The f i r s t i s l a n d s to be s e t t l e d were those c l o s e s t to the m a i n l a n d , and to Vancouver I s l a n d : S a l t s p r i n g i n 1858, Mayne i n 1863 and Hornby i n 1862 ( W a l t e r , 1945; C o r r i g a l , 1969). The e a r l y s e t t l e r s pre-empted l a n d from the Crown i n the f e r t i l e v a l l e y s of the i s l a n d s and near the shores and s h e l t e r e d bays where boats c o u l d e a s i l y l a n d (Howard, 1973). T y p i c a l l y , these s e t t l e r s c l e a r e d the l a n d , s e l l i n g most of t h e i r t i m b e r w h i l e u s i n g p a r t of i t to b u i l d t h e i r homes. Many homesteaders worked a t lumbering and c o n s i d e r a b l e acreage 1 4 of v i r g i n f o r e s t was logged on the i s l a n d s d u r i n g the l a t e 1800's. Many s e t t l e r s c l e a r e d t h e i r l a n d to grow crops and r a i s e l i v e s t o c k to f e e d t h e i r own f a m i l i e s ; some e v e n t u a l l y e n l a r g e d t h e i r farms to grow v a r i o u s t ypes of produce f o r s a l e . There was an e a r l y f l o u r i s h of mining e x p l o r a t i o n , p a r t i c u l a r l y on Bowen and S a l t s p r i n g , but c o m m e r c i a l l y f e a s i b l e o p e r a t i o n s never m a t e r i a l i z e d . Logging c o n t i n u e d to be an i m p o r t a n t i n d u s t r y on the i s l a n d s and l o g g i n g companies o b t a i n e d c o n s i d e r a b l e acreage on some i s l a n d s such as G a l i a n o . In t i m e , l o g g i n g on the i s l a n d s became l e s s p r o f i t a b l e as more of the h i n t e r l a n d c o n t a i n i n g l a r g e t r a c t s of h i g h e r q u a l i t y f o r e s t l a n d s were opened up by roads and r a i l w a y s . E a r l y t r a n s p o r t a t i o n to the i s l a n d s was by p r i v a t e steamship companies whose boats p l y e d the waters of the S t r a i t , c a r r y i n g passengers and s u p p l i e s . In the e a r l y days t h e r e were no i s l a n d r o a d s ; the boats stopped o f f a t v a r i o u s p o i n t s around each i s l a n d . G r a d u a l l y the P r o v i n c i a l government took over the f u n c t i o n of f e r r y s e r v i c e to the i s l a n d s and i n the 1950's c a r f e r r i e s were i n t r o d u c e d on some of the r u n s . The government now o p e r a t e s a l l f e r r i e s under the B.C. F e r r y S e r v i c e w i t h the e x c e p t i o n of the f e r r y to L a s q u e t i I s l a n d . With the a r r i v a l of the a u t o m o b i l e o r r t h e i s l a n d s the s e t t l e -ment p a t t e r n was d r a s t i c a l l y a l t e r e d and p r e v i o u s l y i n a c c e s s i b l e areas were opened up to r e s i d e n t i a l development. R e s i d e n t i a l s e t t l e m e n t s h i f t e d from permanent to s e a s o n a l r e s i d e n t s . 15 The number of new homes b u i l t r o s e s t e a d i l y , p a r t i c u l a r l y i n the 1960 1 s when r i s i n g incomes and i n c r e a s e d l e i s u r e time meant t h a t g r e a t e r numbers of people c o u l d a f f o r d second homes. For example, on Hornby I s l a n d t h e r e were o n l y 44 s u b d i v i d e d s m a l l l o t s of l e s s than two a c r e s p r i o r to 1960; i n the p e r i o d to 1970, 400 s u b d i v i d e d r e s i d e n t i a l l o t s were c r e a t e d on t h a t i s l a n d (Comox-Strathcona R.D., 1971). S i m i l a r s u b d i v i s i o n a c t i v i t y has o c c u r r e d on most of the i s l a n d s i n the s o u t h e r n r e g i o n of the S t r a i t of G e o r g i a . The P r o v i n c i a l government imposed a f r e e z e on s u b d i v i s i o n s below a minimum of ten a c r e s i n October 1969, and c o n s e q u e n t l y t h i s type of development has been p r o h i b i t e d s i n c e t h a t t i m e . Today the p o p u l a t i o n c h a r a c t e r i s t i c s d i f f e r ^ g r e a t l y from i s l a n d to i s l a n d . Some i s l a n d s s u p p o r t a s i z e a b l e perma-nent p o p u l a t i o n ; on S a l t s p r i n g f o r example, 50 per cent of the p r o p e r t y owners are permanent r e s i d e n t s on the i s l a n d ( C a p i t a l R e g i o n a l D i s t r i c t , 1971). On G a b r i o l a the s e a s o n a l p o p u l a t i o n i s e s t i m a t e d to be s l i g h t l y l e s s than two times the permanent p o p u l a t i o n (Nanaimo R e g i o n a l D i s t r i c t , 1974). And on Keats I s l a n d o n l y f o u r per cent of the p r o p e r t y owners l i v e permanently on the i s l a n d (Sunshine Coast R e g i o n a l D i s t r i c t , 1974). 16 2.3 S o c i o - p o l i t i c a l P e r s p e c t i v e In 1965 the p r o v i n c i a l L e g i s l a t u r e passed l e g i s l a t i o n p r o v i d i n g f o r the e s t a b l i s h m e n t of R e g i o n a l D i s t r i c t s t h r ough-out the p r o v i n c e . S t a t u t o r y f u n c t i o n s were not a s s i g n e d to the R e g i o n a l D i s t r i c t s , but r a t h e r f u n c t i o n s c o u l d be a c q u i r e d i n c r e m e n t a l l y a c c o r d i n g to the needs and r e s o u r c e s o f the d i f f e r e n t a r e a s . The R e g i o n a l D i s t r i c t s were i n c o r p o r a t e d i n d i v i d u a l l y f o l l o w i n g passage of the l e g i s l a t i o n ; i t was not u n t i l 1968 t h a t a l l 28 R e g i o n a l D i s t r i c t s c o v e r i n g most of the p r o v i n c e had been formed ( C o l l i e r , 1972). T h i s r e g i o n a l l e v e l of government i s d i r e c t e d by a Re g i o n a l Board comprised of m u n i c i p a l members and members from n o n - m u n i c i p a l a r e a s . Non-municipal a r e a s , which i n c l u d e a l l the G u l f I s l a n d s , are r e p r e s e n t e d by members e l e c t e d d i r e c t l y from those a r e a s . These R e g i o n a l D i r e c t o r s , as they are c a l l e d , p a r t i c i p a t e i n the a c t i v i t i e s of the Board and have the same v o t i n g powers as the M u n i c i p a l D i r e c t o r s who r e p r e s e n t i n c o r -p o r a t e d m u n i c i p a l i t i e s . The non - m u n i c i p a l areas have been o r g a n i z e d i n t o E l e c t o r a l D i s t r i c t s f o r e l e c t i o n purposes. In the G u l f Islands t h e r e a re e i g h t E l e c t o r a l Areas which i n c l u d e one or more of the f i f t e e n i s l a n d s ; these E l e c t o r a l Areas f a l l w i t h i n seven d i f f e r e n t R e g i o n a l D i s t r i c t s (see Map 2 ) . Because f u n c t i o n s a re g r a n t e d i n d i v i d u a l l y t o the Reg i o n a l D i s t r i c t s , the seven R e g i o n a l D i s t r i c t s i n the S t r a i t of G e o r g i a area p r o v i d e v a r y i n g types and l e v e l s of s e r v i c e s M A P 2 R E G I O N A L D I S T R I C T S : G U L F I S L A N D S 18 to the i r member munic ipa l i t i es and E lectora l Areas. For example, Powell River provides some spec ia l i zed services such as ambulence service and garbage disposal to i t s members which include Lasqueti Is land. In many other Regional D i s t r i c t s th is type of serv ice would be supplied only by incorporated munic i -p a l i t i e s . Only some of the Regional D i s t r i c t s have assumed r e spons ib i l i t y for regional parks. In the case of the i s l ands , as for a l l unorganized areas, the Regional D i s t r i c t acts as the local government, handling local planning, issuance of bui ld ing permits, and other l imited funct ions . Most of the Regional D i s t r i c t s do not handle sewage treatment or water supply for the i s l ands ; the l a t t e r is carr ied out l o c a l l y through the operation of Water Improvement D i s t r i c t s , administered by the Province (Municipal A f f a i r s , 1973). Each Regional D i s t r i c t can assume new functions by a vote of i t s member areas, at the suggestion of the Provinc ia l government or by order of the Lieutenant-Governor in Counc i l . In unorganized t e r r i t o r i e s designated services are paid for through an addit ional levy on the real-property tax; the Minister of Finance d i rec ts that the amount added be paid to the Regional D i s t r i c t from the Provinc ia l Co l l ec tor (Municipal Act , R.S.B.C. 1960 C. 255, S. 775). E lectora l Areas can thus receive cer ta in services through the Regional D i s t r i c t without becoming incorporated. 1 9 The Regional D i s t r i c t s t r u c t u r e thus o f f e r s both advantages and disadvantages to the Gul f I s l a n d s . C e r t a i n b e n e f i t s are der i ved from the p r o v i s i o n of s p e c i f i c s e r v i c e s . On the other hand, communications with Regional Board members and r e g i o n a l s t a f f i s o f ten made d i f f i c u l t by the remoteness of some of the i s l a n d s . In some cases r e g i o n a l goals appear to be d i f f e r e n t from those of i s l a n d r e s i d e n t s ; f o r example property owners on Bowen Is land have had great d i f f i c u l t y in communicating t h e i r r u r a l p o i n t of view on the matter of minimum l o t s i z e s , to a predominately urban Board (Glover and Chataway, 1973) . And f i n a l l y , the f a c t that seven Regional Boards have j u r i s d i c t i o n over f i f t e e n Gul f I s lands means that p r a c t i c a l l y each i s l a n d i s r e c e i v i n g d i f f e r e n t types and l e v e l s of s e r v i c e s , and that good communication between i s l a n d s i n - d i f f e r e n t Regional D i s t r i c t s i s d i f f i c u l t to a c h i e v e . An a d d i t i o n a l problem i s c reated by the d e s i g n a t i o n of some i s l a n d s to p a r -t i c u l a r r e g i o n a l d i s t r i c t s . Lasquet i I s l a n d , f o r example, i s a member of the Powell Riiver Regional D i s t r i c t and ye t i t s on ly t r a n s p o r t a t i o n l i n k i s by f e r r y to P a r k s v i l l e on Vancouver I s l a n d . Although the Regional D i s t r i c t s have assumed c e r t a i n r e s p o n s i b i l i t i e s on the i s l a n d s , the M i n i s t e r of M u n i c i p a l A f f a i r s r e t a i n s many d i s c r e t i o n a r y powers i n these and other unorganized t e r r i t o r i e s in the P r o v i n c e . The Local S e r v i c e s Act ( R . S . B . C . 1960, C. 224) g ives the M i n i s t e r the a u t h o r i t y to 20 act as m a y o r - i n - c o u n c i 1 and the power to impose land use plans in these a r e a s . This power was e x e r c i s e d on October 3 1 , 1969 when the L ieutenant -Governor in C o u n c i l , upon the recommen-dat ion of the M i n i s t e r , dec la red the Gulf I s lands a ' l o c a l a r e a ' under t h i s a c t . At t h i s time the M i n i s t e r in t roduced a r e g u l a t i o n which prohibited s u b d i v i s i o n of land below a minimum of ten a c r e s . However the r e g u l a t i o n s a l lowed the submission of s u b d i v i s i o n a p p l i c a t i o n s up u n t i l March 3 1 , 1970 so as to not i n f r i n g e upon the r i g h t s of developers who where in the process of s u b d i v i d i n g l a n d . The i n t e r i m per iod from October to March caused a great rush in s u b d i v i s i o n a p p l i c a t i o n s ; the C a p i t a l Regional D i s t r i c t a lone processed plans f o r 1900 l o t s dur ing t h i s per iod (The Province, November 10, 1971) . On Hornby I s l a n d , over h a l f of the e x i s t i n g subd iv ided l o t s (396 of 736) were r e g i s t e r e d a f t e r the announcement of the 10 acre f reeze i n October 1969 (Comox-Strathcona Regional D i s t r i c t , 1971) . Under the Local S e r v i c e s A c t , the L ieutenant -Governor in C o u n c i l , upon the recommendation of the M i n i s t e r , has a l l the powers of a c o u n c i l in respec t to community p l a n s , the r e g u l a t i o n of z o n i n g , land use , s u b d i v i s i o n c o n t r o l and con -s t r u c t i o n of b u i l d i n g s or s t r u c t u r e s of any k i n d , in a d e s i g -nated ' l o c a l a r e a . ' This power i s e x e r c i s e d c h i e f l y by the M i n i s t e r of Mun ic ipa l A f f a i r s , a l though l e g a l l y the Cabinet has the f i n a l say on these m a t t e r s . S ince the e f f e c t i v e date of 21 the f r e e z e , March 31, 1970, l o c a l p l a n n i n g c o n t r o l on the i s l a n d s by the Re g i o n a l D i s t r i c t s has, i n e f f e c t , been s h i f t e d to the M i n i s t e r and the p r o v i n c i a l c a b i n e t . As a r e s u l t , new development on the i s l a n d s has been c o n f i n e d to l o t s s u b d i v i d e d p r i o r to t h i s d a t e , or to l o t s g r e a t e r than t en a c r e s i n a r e a . At the time the r e g u l a t i o n came i n t o f o r c e , the M i n i s t e r o f M u n i c i p a l A f f a i r s , Dan Campbell s t a t e d t h a t "the tend a c r e f r e e z e was i n s t i t u t e d to g i v e l o c a l a u t h o r i t i e s times to come up w i t h a p l a n " and t h a t "the r e g i o n a l d i s t r i c t concerned s h o u l d be the l o c a l agency through which the a d v i s o r y p l a n n i n g commissions i n these v a r i o u s i s l a n d s would g i v e e f f e c t to t h e i r i d e a s " { V i c t o r i a Daily Times. January 6, 1970). The P r o v i n c i a l government i s s u e d no o f f i c i a l d i r e c t i v e to the Re g i o n a l Boards to prepare p l a n s f o r the i s l a n d s . However the M i n i s t e r made h i s i n t e n t i o n s p u b l i c through the media i n the hopes t h a t the Reg i o n a l D i s t r i c t r e p r e s e n t a t i v e s would conform w i t h o u t e x p l i c i t r e g u l a t i o n . 2.4 Recent P l a n n i n g A c t i v i t i e s P r i o r to the f o r m a t i o n o f R e g i o n a l D i s t r i c t s , i s l a n d r e s i d e n t s and p r o p e r t y owners had l i t t l e say i n the d i r e c t i o n of development of t h e i r communities. However, s i n c e the Regi o n a l D i s t r i c t s a c q u i r e d the l o c a l p l a n n i n g f u n c t i o n on the i s l a n d s , and s i n c e the ten a c r e f r e e z e was imposed by the 22 P r o v i n c e , e f f o r t s have been made on some i s l a n d s , to draw up community pl a n s and bylaws w i t h the c o - o p e r a t i o n of i s l a n d r e s i d e n t s . The i n i t i a t i v e f o r the p r e p a r a t i o n of such p l a n s has u s u a l l y come from the R e g i o n a l D i r e c t o r f o r the a r e a , or from the i s l a n d e r s t h e m s e l v e s . The Re g i o n a l D i r e c t o r a p p o i n t s a f i v e member A d v i s o r y P l a n n i n g Commission to a s s i s t him i n mat t e r s r e l a t i n g to l o c a l p l a n n i n g on an i s l a n d or group of i s l a n d s . In one c a s e , G a b r i o l a I s l a n d , a P l a n n i n g Commission has been e l e c t e d . T h i s was made p o s s i b l e by the i n f o r m a l agreement of the Re g i o n a l D i r e c t o r f o r t h a t area and the Reg i o n a l Board; the Commission was e l e c t e d by a vote of i s l a n d p r o p e r t y owners and then ' a p p o i n t e d ' by the R e g i o n a l Board. Where i t i s a v a i l a b l e , t e c h n i c a l a s s i s t a n c e i s pro-v i d e d by the r e g i o n a l s t a f f , to the A d v i s o r y P l a n n i n g Commission and the R e g i o n a l D i r e c t o r . At the time of t h i s w r i t i n g Powell R i v e r R e g i o n a l D i s t r i c t i s the o n l y d i s t r i c t which does not have a s t a f f p l a n n e r ; L a s q u e t i I s l a n d must t h e r e f o r e r e q u e s t p l a n n i n g a s s i s t a n c e from the Department o f M u n i c i p a l A f f a i r s . Communicty p l a n s and z o n i n g bylaws are s u b m i t t e d to the R e g i o n a l Board f o r a p p r o v a l . Between f i r s t and second r e a d i n g s of a p l a n or bylaw, a p u b l i c h e a r i n g must be h e l d a c c o r d i n g to s t a t u t e ( M u n i c i p a l A c t R.S.B.C. 1960, C. 255, P a r t X X I ) . The Reg i o n a l Board votes to approve or d i s a p p r o v e 23 a bylaw a f t e r the t h i r d r e a d i n g . In the case of r e g u l a t o r y bylaws t h e r e must be an a f f i r m a t i v e vote of t w o - t h i r d s of the D i r e c t o r s whose areas p a r t i c i p a t e i n the r e g u l a t o r y f u n c t i o n p l u s an a f f i r m a t i v e vote of t w o - t h i r d s o f a l l the D i r e c t o r s on t h e Board ( M u n i c i p a l A c t R.S.B.C. 1960, C. 255, S. 778). F o l l o w i n g r e g i o n a l a p p r o v a l , the p l a n or bylaw i s s u b m i t t e d f o r a p p r o v a l and enactment by the L i e u t e n a n t - G o v e r n o r i n C o u n c i l , upon the recommendation of the M i n i s t e r o f M u n i c i p a l A f f a i r s . A few R e g i o n a l D i s t r i c t s had produced z o n i n g bylaws f o r the i s l a n d s p r i o r to September 1972 when the New Democratic P a r t y Government assumed power. Bylaws which had been prepared and approved by the P r o v i n c e i n c l u d e d those f o r Denman and Bowen I s l a n d s (Comox-Strathcona R e g i o n a l D i s t r i c t , 1972, G r e a t e r Vancouver R e g i o n a l D i s t r i c t , 1972). At t h i s time the N.D.P. Government d e c i d e d to review the problems o f the G u l f I s l a n d s which had l e a d to the i m p o s i t i o n of the ten a c r e f r e e z e by the former government i n 1969. I t became p o l i c y of the government to w i t h o l d a p p r o v a l of p l a n s and bylaws u n t i l a s t u d y of the i s l a n d s had been completed. The f o l l o w i n g i s a b r i e f r e v i e w of r e c e n t p l a n n i n g a c t i v i t i e s on the i s l a n d s , c a t e g o r i z e d by R e g i o n a l D i s t r i c t : 24 Capital Regional District (C.R.D.) The C a p i t a l R e g i o n a l D i s t r i c t has been v e r y a c t i v e i n p l a n n i n g on the so u t h e r n G u l f I s l a n d s . S i n c e 1971 work has been p r o c e e d i n g on the f i r s t p a r t of the r e g i o n a l p l a n f o r the d i s t r i c t to cover E l e c t o r a l Area G (Outer G u l f I s l a n d s ) and E l e c t o r a l Area F ( S a l t s p r i n g I s l a n d ) . In December 1971, the P l a n n i n g Department of the C a p i t a l R e g i o n a l D i s t r i c t c i r -c u l a t e d a p u b l i c a t i o n e n t i t l e d " G u l f I s l a n d s O p t i o n s " to the people of the a r e a . T h e i r aim was "to c h a l l e n g e and to s t i m u l a t e debate and response i n o r d e r t h a t the C.R.D. may shape a R e g i o n a l P l a n a c c o r d i n g to the d e s i r e s of the pe o p l e " ( C a p i t a l R e g i o n a l D i s t r i c t , 1971). In a d d i t i o n to c o n s i d e r a b l e f a c t u a l i n f o r -m a t i o n , the p u b l i c a t i o n p r e s e n t e d t h r e e o p t i o n s which d e s c r i b e d d i f f e r e n t development s c e n a r i o s on the i s l a n d s . A f o u r t h o p t i o n was l e f t blank f o r the rea d e r to submit h i s or her own i d e a s and a q u e s t i o n n a i r e was a l s o i n c l u d e d . The response r a t e f o r the q u e s t i o n n a i r e , up to A p r i l 15, 1972 was 8%. Using the r e s u l t s of t h i s survey and o t h e r s t u d i e s and s u r v e y s done on the i s l a n d s , the C.R.D. worked towards p r e p a r i n g a r e g i o n a l p l a n f o r the a r e a . L o c a l community groups o f t e n worked a c t i v e l y w i t h the R e g i o n a l D i r e c t o r and the A d v i s o r y P l a n n i n g Commission to prepare p l a n s f o r the i n d i v i d u a l i s l a n d s . The P l a n n i n g Department of the C.R.D. has s u p p l i e d c o n s i d e r a b l e t e c h n i c a l a s s i s t a n c e f o r t h i s work. 25 At the time of w r i t i n g community pla n s have been com-p l e t e d f o r South Pender, G a l i a n o and S a l t s p r i n g w h i l e those f o r North Pender, Mayne and Saturna are s t i l l i n p r e p a r a t i o n . Zoning bylaws f o r S a l t s p r i n g and the Outer G u l f I s l a n d s were enacted January 13, 1971 and June 27, 1972 r e s p e c t i v e l y but r e q u i r e u p d a t i n g to conform w i t h the new p l a n s . The P r o v i n c i a l c a b i n e t approved the plan s f o r South Pender and G a l i a n o J a nuary 1974, and S a l t s p r i n g , March 1974. Greater Vancouver Regional D i s t r i c t (G.V.R.D.) Bowen I s l a n d was i n c l u d e d i n the G.V.R.D. but the r e g i o n a l d i s t r i c t d i d not a c q u i r e the r e s p o n s i b i l i t y f o r l o c a l p l a n n i n g on the i s l a n d u n t i l A p r i l , 1971. P r i o r to t h i s the P r o v i n c i a l government had begun p r e p a r a t i o n of a zo n i n g bylaw which was not complete at the time of the t a k e o v e r . The c u r r e n t bylaw was prepared by the p l a n n i n g c o n s u l t a n t f o r the area (who i s h i r e d by the G.V.R.D.) and the Re g i o n a l D i r e c t o r f o r Bowen w i t h the p a r t i c i p a t i o n of the a p p o i n t e d A d v i s o r y P l a n n i n g Commission. The bylaw was passed by the Re g i o n a l Board and approved by the P r o v i n c i a l government on August 1, 1972. Work was not begun on a community p l a n u n t i l the f a l l of 1973 when the l o c a l r e s i d e n t s a s s o c i a t i o n took on the j o b v o l u n t a r i l y w i t h o u t formal r e c o g n i t i o n . A d r a f t of the 26 proposed p l a n was ready by February 1974 and was being c i r -c u l a t e d to i s l a n d r e s i d e n t s f o r t h e i r comments and recommendati Sunshine Coast Regional District There has been no o r g a n i z e d p l a n n i n g on Gambier and Keats I s l a n d s to d a t e . The Sunshine Coast R e g i o n a l D i s t r i c t i s c u r r e n t l y c o n s i d e r i n g a s p e c i a l study on the s e i s l a n d s but has n o t , a t the time of t h i s w r i t i n g , proceeded f a r enough to produce a d r a f t p l a n or zo n i n g bylaw f o r the i s l a n d s . Comox-Strathcona Regional District Comox-Strathcona R e g i o n a l D i s t r i c t has spent con-s i d e r a b l e time and e f f o r t i n the p r e p a r a t i o n of community p l a n s and bylaws f o r Hornby and Denman I s l a n d s . In t h i s r e g a r d , the i s l a n d e r s were g i v e n s i g n i f i c a n t o p p o r t u n i t y to p a r t i c i p a t e i n the p r e p a r a t i o n o f pla n s f o r t h e i r communities. In a d d i t i o n to community p l a n s , both z o n i n g and s u b d i v i s i o n bylaws have been prepared f o r the two i s l a n d s and approved by the R e g i o n a l Board. On August 21, 1972 the P r o v i n c i a l government approved the z o n i n g bylaw and s u b d i v i s i o n bylaw f o r Denman I s l a n d . To d a t e , f i n a l a p p r o v a l of the bylaws f o r Hornby I s l a n d has not been g i ven. 27 Powell River Regional P i s t r i c t At the time of t h i s w r i t i n g , t h i s r e g i o n a l d i s t r i c t i s w i t h o u t l o c a l or r e g i o n a l p l a n n e r s on i t s s t a f f . No p l a n s or bylaws have been prepared f o r any p a r t of t h i s r e g i o n , i n c l u d i n g L a s q u e t i I s l a n d . A p o l i c y statement adopted by the Board on February 28, 1974 i n c l u d e d statements on the encourage-ment of s l o w , r a t i o n a l growth i n the r e g i o n and p r o p o s a l s f o r e x t e n s i v e p u b l i c p a r t i c i p a t i o n i n p l a n n i n g (Powell R i v e r R e g i o n a l D i s t r i c t , February 28, 1974). ( A l t h o u g h Texada I s l a n d i s a member of t h i s d i s t r i c t , i t was not i n c l u d e d i n the r e c e n t p r o v i n c i a l s t u d y of the G u l f I s l a n d s and hence i s not p a r t of the study area f o r t h i s work.) Nanaimo Regional D i s t r i c t E l e c t o r a l Area A o f the Nanaimo R e g i o n a l D i s t r i c t was r e - o r g a n i z e d p r i o r to the November 1973 m u n i c i p a l and l o c a l e l e c t i o n s w i t h the r e s u l t t h a t G a b r i o l a I s l a n d now comprises one complete E l e c t o r a l Area and so e l e c t s i t s own R e g i o n a l D i r e c t o r to the R e g i o n a l Board. A community p l a n has been i n p r e p a r a t i o n f o r a number of months but a t the time o f t h i s w r i t i n g i s not y e t completed. The p l a n i s being prepared by an A d v i s o r y P l a n n i n g Committee which was e l e c t e d by i s l a n d v ote and s u b s e q u e n t l y ' a p p o i n t e d ' by the R e g i o n a l Board. A bylaw was enacted f o r G a b r i o l a i n 1971. 28 Cowichan Valley Regional District Kuper and T h e s t i s I s l a n d s comprise o n l y p a r t of E l e c t o r a l Area G of the Cowichan V a l l e y R e g i o n a l D i s t r i c t . A s u b d i v i s i o n bylaw i s being p r o c e s s e d by the Re g i o n a l D i s t r i c t a t the time of w r i t i n g . In a d d i t i o n , zoning r e g u l a t i o n s a re being d i s c u s s e d by the A d v i s o r y P l a n n i n g Commission and the community at l a r g e . To date t h e r e i s no o f f i c i a l p l a n or zo n i n g bylaw f o r Kuper or T h e t i s I s l a n d s . I t i s i m p o r t a n t to note t h a t 2300 of the 2400 a c r e s on Kuper I s l a n d are I n d i a n r e s e r v e lands and hence come under the j u r i s d i c t i o n of the F e d e r a l government. A d m i n i s t r a t i v e a s s i s t a n c e i s p r o v i d e d by the Department of I n d i a n A f f a i r s and N o r t h e r n Development. T a b l e 2 summarizes the c u r r e n t s t a t u s of community pl a n s and bylaws f o r the G u l f I s l a n d s . (The p r e c e e d i n g d i s -c u s s i o n was drawn from correspondence w i t h the r e g i o n a l p l a n n i n g d i r e c t o r s o f the seven R e g i o n a l D i s t H c t s which have i s l a n d s i n t h e i r j u r i s d i c t i o n . ) 2.5 Development of P r o v i n c i a l P o l i c y F o l l o w i n g the e l e c t i o n of the N.D.P. government i n August 1972, a s e l e c t s t a n d i n g committee of the L e g i s l a t u r e , the Committee on M u n i c i p a l M a t t e r s was formed. T h i s committee, 29 Table 2 C u r r e n t S t a t u s of Community Pla n s and Bylaws G u l f I s l a n d s R e g i o n a l D i s t r i c t I s l a n d Communi t y P l a n Zoni ng By 1 aw Capi t a l S a l t s p r i n g North Pender South Pender 0** P ** C c * * \ Mayne P \ * C / G a l i a n o ** C / Saturna p / G r e a t e r Vancouver Bowen p ** c Sunshine Coast Gambi er - -Comox-Strthcona Denman * c ** c Hornby * c * c Powell R i v e r L a s q u e t i - -Nanaimo G a b r i o l a p c * * Cowichan V a l l e y Kuper T h e t i s >p >p KEY: P - i n p r e p a r a t i o n C - complete •k C - comp l e t e , approved by R e g i o n a l Board C - comp l e t e , approved by R e g i o n a l Board, L i e u t e n a n t - G o v e r n o r i n C o u n c i l 30 c h a i r e d by Mr. A l f N u n w e i l e r , was comprised of e l e v e n M.L.A.'s i n c l u d i n g the M i n i s t e r of M u n i c i p a l A f f a i r s and r e p r e s e n t a t i v e s of a l l f o u r p o l i t i c a l p a r t i e s . The committee was i n s t r u c t e d to c a r r y out a study of the i s l a n d s i n the S t r a i t of Geo r g i a and to make recommendations to the L e g i s l a t u r e based on the r e s u l t s of t h i s s t u d y . The terms of r e f e r e n c e o u t l i n e d the f o l l o w i n g f u n c t i o n s of the Committee: To inquire into the question of the future development on the islands including the development of community plans and an examination of the existing sections of the Municipal Act and other acts affecting local governments and any orders under these acts with a view to recommending any changes considered appropriate which may have an effect on the future development of these islands. The Committee shall have the power to send for persons, papers, and records . and to hear representations from such organizations and individuals as may. in their discretion appear necessary3 visit and hold hearings on the islands, and shall report its find-ings and recommendations 'toi the House from time to time. (Department of M u n i c i p a l A f f a i r s , June 13, 1973) I n i t i a l l y t he Committee heard p r e s e n t a t i o n s from r e p r e s e n t a t i v e s of the v a r i o u s R e g i o n a l D i s t r i c t s having i s l a n d s w i t h i n r t h e i r j u r i s d i c t i o n (The Province. March 1, 1973). F o l l o w i n g these h e a r i n g s the Committee t o u r e d the i s l a n d s to observe the e x t e n t and q u a l i t y of development f i r s t h a n d and to hear p r e s e n t a t i o n s from i s l a n d r e s i d e n t s and i n t e r e s t e d i n d i v i d u a l s . 31 P u b l i c meetings were h e l d on almost every i s l a n d v i s i t e d . N o t i c e s were p l a c e d i n l o c a l newspapers and posted on the i s l a n d s p r i o r to the s e meetings and they were, on the whole, w e l l a t t e n d e d . In g e n e r a l , most p r e s e n t a t i o n s d e a l t w i t h l o c a l c oncerns on i n d i v i d u a l i s l a n d s . However, a number of problems common to a m a j o r i t y of the i s l a n d s , were c l a r i f i e d d u i r n g these meetings. The Committee met i n September 1973 to c o n s i d e r a l l s u b m i s s i o n s p r e s e n t e d to i t over the p r e c e d i n g few months. At t h i s time the Committee propared a r e p o r t which was p r e s e n t e d to the l e g i s l a t u r e September 21, 1973. The r e p o r t c o n t a i n e d a l i s t of o b s e r v a t i o n s based on the Committee's t o u r of the i s l a n d s and the s u b m i s s i o n s p r e s e n t e d to them. The o b s e r v a t i o n s were f o l l o w e d by f o u r recommendations (see Appendix A f o r the f u l l r e p o r t of the Gommi t t e e ) . The o b s e r v a t i o n s ranged w i d e l y from a r e c o g n i t i o n o f the unique c h a r a c t e r i s t i c s of the i s l a n d s to the problem of j u r i s d i c t i o n a l a u t h o r i t y over I n d i a n l a n d s . The o b s e r v a t i o n s of the Committee having i m p o r t a n t p o l i c y i m p l i c a t i o n s are summari zed beiow: 1. Large s u b d i v i s i o n s and o v e r - d e v e l o p m e n t were i d e n t i f i e d as t h e p r i o r i t y c o n c e r n . 2 . A need f o r i n c r e a s e d , s u p e r v i s e d p u b l i c space was c i t e d . 32 . 3. W a t e r t r a n s p o r t a t i o n t o t h e i s l a n d s w a s c o n s i d e r e d t o b e a k e y f a c t o r i n d e t e r m i n -i n g t h e e x t e n t o f f u t u r e g r o w t h o n t h e i s l a n d s . T h e C o m m i t t e e n o t e d t h a t c o n t r o l a n d c o - o r d i na t - i o n o f t h i s f u n c t i o n w a s t h e r e s p o n s i b i I i t y o f t h e p r o v i n c i a l r a t h e r t h a n t h e r e g i o n a l g o v e r n m e n t . T r a n s p o r t a t i o n o n t h e i s l a n d s w a s a l s o c o n s i d e r e d t o b e i m p o r t a n t a n d i n t h i s r e s p e c t t h e C o m m i t t e e s u g g e s t e d e m p h a s i s s h o u l d b e p l a c e d o n p e d e s t r i a n t r a n s i t . • 4. A s e r i o u s l a c k o f c o - o r d i n a t i o n b e t w e e n t h e v a r i o u s p r o v i n c i a l d e p a r t m e n t s a n d b e t w e e n t h e p r o v i n c e a n d t h e r e g i o n a l d i s t r i c t s w a s n o t e d . 5 . T h e e x i s t i n g r e g i o n a l d i s t r i c t b o u n d a r i e s - -• - w e r e c o n s i d e r e d t o b e i n a p p r o p r i a t e i n s o m e c a s e s a n d a s u g g e s t i o n w a s m a d e t o r e v i e w t h e b o u n d a r i e s . 6 . C o n c e r n i n g l a n d u s e o n t h e i s l a n d s , i t w a s s u g g e s t e d t h a t e m p h a s i s b e p l a c e d o n r e c r e a t i o n , m o d e r a t e r e s i d e n t i a l u s e a n d p r e s e r v a t i o n o f t h e rcural a t m o s p h e r e . 7. T h e s h o r t a g e o f p o t a b l e w a t e r w a s i d e n t i f i e d a s a p r i o r i t y i s s u e o n m o s t i s l a n d s . W a s t e a n d g a r b a g e d i s p o s a l w e r e a l s o c i t e d a s s e r i o u s p r o b l e m s . F o l l o w i n g these o b s e r v a t i o n s , f o u r major recommenda-t i o n s were made i n the r e p o r t of the Committee. These recom-mendations are as f o l l o w s : I. T h e C o m m i t t e e r e c o m m e n d s t h a t t h e R e g i o n a l D i s t r i c t b o u n d a r i e s b e r e v i e w e d a n d a d j u s t e d t o a s s u r e t h a t t h e r e s p e c t i v e i s l a n d s a r e i n t h e m o s t a p p r o p r i a t e R e g i o n a l - D i s t r i c t . 33 2. The Committee a l s o recommends t h a t t h e P r o v i n c i a l Government e s t a b l i s h an " I s l a n d s T r u s t " (o r Commiss ion ) as t h e most a p p r o p r i a t e body t o be r e s p o n s i b l e f o r and t o c o - o r d i n a t e the f u t u r e of each I s l a n d w i t h i n our terms of r e f e r e n c e . I t must be emphas i zed most s t r o n g l y t h a t the T r u s t i s t o assume p r i m a r y r e s p o n s i b i l i t y f o r a l l G u l f i.-.s l a n d s ' a f f a i r s w i t h i n Government j u r i s d i c t i o n , i n c l u d i n g land u s e ; f u t u r e growth p a t t e r n s ; c o n t r o l of d e v e l o p m e n t ; i n d u s t r i a l , r e c r e a t i o n a l and c o m m e r c i a l a c t i v i t y ; as w e l l as p a r k s and open space d e s i g n a t i o n s . I t i s e s s e n t i a l t h a t the T r u s t be f u l l y r e p r e s e n t a t i v e of a l l i n t e r e s t s - not o n l y on the I s l a n d s - but t h r o u g h o u t the P r o v i n c e as a w h o l e . W h i l e r e c o g n i z i n g the r i g h t s of t h e I s l a n d e r s , the Commit tee s u g g e s t s t h a t t h i s s e c t i o n of B r i t i s h C o l u m b i a i s d r a m a t i c a l l y a f f e c t e d by p r i v a t e and p u b l i c a c t i v i t y which does not have the same impact in o t h e r p a r t s of t h e P r o v i n c e . . . . Because i t i s r e c o n g i z e d t h a t a v a r i e t y of Government Depar tments and A g e n c i e s : H i g h w a y s , F e r r i e s , Lands and F o r e s t s , P a r k s e t c . , as w e l l as R e g i o n a l D i s t r i c t s and c i t i z e n g roups on the I s l a n d s , a l l have an i m p o r t a n t r o l e t o p l a y in t h i s r e s p e c t , we emphas i ze t h a t the p roposed T r u s t o r Commiss ion must not be a s e p a r a t e and/or remote a g e n c y , but ra th v er a f u l l y r e p r e s e n t a t i v e c o - o r d i n a t i n g body whose t a s k i t i s t o b r i n g t o g e t h e r each g r o u p , agency o r Department of Government and t o a c t in t h e b e s t i n t e r e s t s of t h e i s l a n d s and t h e i r r e s i d e n t s , w i t h due r e g a r d f o r the b r o a d e r and p r o v i n c e - w i d e i n t e r e s t . 3. The Committee a l s o recommends t h a t u n t i l t h e T r u s t o r Commiss ion i s e s t a b l i s h e d , no s u b d i v i s i o n s be p e r m i t t e d on any I s l a n d s s o u t h of and i n c l u d i n g Denman, Hornby and L a s q u e t i I s l a n d s , i . e . on any of the G u l f I s l a n d s in the S t r a i t of G e o r g i a . 34 4 . The Committee recommends t h a t the 10 a c r e f r e e z e be c o n t i n u e d on the n o r t h e r n G u l f I s l a n d s t h a t have not y e t been s t u d i e d by t h e C o m m i t t e e . The p o s s i b i l i t y of fo r m i n g one R e g i o n a l D i s t r i c t to encompass a l l the G u l f I s l a n d s was c o n s i d e r e d b r i e f l y by the Committee on M u n i c i p a l M a t t e r s and the a u t h o r . The advantages of such an approach are t h a t a new Re g i o n a l D i s t r i c t c o u l d be formed under e x i s t i n g l e g i s l a t i o n and t h e r e would be no need to c r e a t e an a d d i t i o n a l q u a s i - j u d i c i a l and a d m i n i s t r a t i v e body superimposed on the Re g i o n a l government s t r u c t u r e . In a d d i -t i o n , communications between i s l a n d s would i n c r e a s e . The d i s -advantages would be as f o l l o w s : 1. The a v a i l a b l e powers would s t i l l be l i m i t e d t o t h o s e o u t l i n e d in the M u n i c i p a l A c t u n l e s s amendments were made to i n c r e a s e the powers of a l l R e g i o n a l D i s t r i c t s " (which f rom t h e p r o v i n c i a l v i e w p o i n t i s l i k e l y t o be p o l i t i c a l l y u n d e s i r a b l e ) . 2 . The R e g i o n a l t a x base would be i n -adequate in p r o v i d i n g any f u n c t i o n s ove r and above r u d i m e n t a r y s e r v i c e s . If a s u b s i d y was p r o v i d e d t o the G u l f I s l a n d s R e g i o n a l D i s t r i c t t h e p rob lem of e q u i t y would be r a i s e d by t h e o t h e r R e g i o n a l D i s t r i c t s . 3 . The t e c h n i c a l c a p a b i l i t y w o u l d . b e l i m i t e d t o , r e g i o n a l s t a f f r a n d the T e c h n i c a l P l a n n i n g C o m m i t t e e . 4 . C o - o r d i n a t i o n w i t h p r o v i n c i a l d e p a r t -ments would l i k e l y not improve o v e r t h e e x i s t i n g s i t u a t i o n . 35 5 . P r o v i n c i a l i n t e r e s t s would not be d i r e c t l y r e p r e s e n t e d . 6 . Some s e r v i c e s such as h o s p i t a l s and ambulence s e r v i c e s c o u l d not be e f f i c i e n t l y p r o v i d e d by a G u l f I s l a n d s R e g i o n a l D i s t r i c t due t o e x i s t i n g t r a n s p o r t a t i o n r o u t e s . 7 . I t appears t h a t c o n s i d e r a b l y more t i m e would be r e q u i r e d to e s t a b l i s h a new R e g i o n a l D i s t r i c t than t o e s t a b l i s h a s p e c i a l purpose T r u s t C o m m i s s i o n . Time i s an i m p o r t a n t f a c t o r due t o t h e t e m -p o r a r y n a t u r e of the 10 a c r e f r e e z e and the i n c r e a s i n g demands f o r l o t s on t h e i s l a n d s . As a r e s u l t , the f o r m a t i o n of a s i n g l e R e g i o n a l D i s t r i c t to i n c l u d e a l l the G u l f I s l a n d s was not c o n s i d e r e d to be e c o n o m i c a l l y v i a b l e or s o c i a l l y d e s i r a b l e . The i n s t i t u -t i o n a l arrangement c o n s i d e r e d i n t h i s s tudy t h e r e f o r e , was l i m i t e d to a s p e c i a l purpose body or T r u s t Commission as recommended by the Committee on M u n i c i p a l M a t t e r s . Chapter 3 IDENTIFICATION OF THE PROBLEM 3.1 Overview o f the Need f o r C o n t r o l s The S t r a i t of G e o r g i a area has been d e s c r i b e d by the U.S. N a t i o n a l Park S e r v i c e and Parks Canada i n a r e c e n t r e p o r t (1973): (The S t r a i t of Georgia) 'inland sea' is considered one of the world's most beautiful3 diverse and e c o l o g i c a l l y . ' r i c h regions. I t s proximity to the larger populations of the P a c i f i c Northwest and southwestern B r i t i s h Columbia endow i t with outstanding recreational p o t e n t i a l s . It is worth noting that this r i c h island* type environment with i t s sheltered waters and equable climate has considerable t o u r i s t appeal and can be considered a unique con-t i n e n t a l resource. Such an environment has a t t r a c t e d many p e o p l e , s e e k i n g escape from the more h a r r i e d c i t y l i f e to the peace and s o l i t u d e of the i s l a n d s . During the 60's and 70's r i s i n g incomes and i n c r e a s e d l e i s u r e time have c r e a t e d a demand f o r r e c r e a t i o n a l and r e t i r e m e n t homes thro u g h o u t North America (Mosena, 1973). The problem of t h i s type of development i n r u r a l a r e a s , which 36 37 o f t e n do not have adequate development c o n t r o l s , i s p a r t i c u l a r l y a c u t e . By i t s very nature, recreational land develop-ment is attracted to beautiful and often e c o l o g i c a l l y f r a g i l e natural settings.- along lakeshores. streams, and seacoasts. and in mountains, deserts and wetlands. As national demands for outdoor recreation increase, these types of land resources w i l l become even more c r i t i c a l and scarce. Clearly there are some areas of the country in which no development of any type should occur. These areas should be preserved in t h e i r natural state for present and future generations. rather than divided up among those people with enough money to reserve them for t h e i r exclusive use. (Mosena, 1973) A s i m i l a r phenomenon i s o c c u r r i n g on the G u l f I s l a n d s . S i n c e the l a t e 1950's, i n c r e a s i n g numbers are s e e k i n g p r o p e r t y on the i s l a n d s , to b u i l d a second home f o r weekend and h o l i d a y v i s i t s and e v e n t u a l r e t i r e m e n t . The p r o c e s s of s u b d i v i d i n g l a r g e h o l d i n g s i n t o s m a l l l o t s i s o c c u r r i n g a t v a r y i n g r a t e s on the d i f f e r e n t i s l a n d s . Mayne i s one of the more h i g h l y developed i s l a n d s ; i t has 1360 s u b d i v i d e d l o t s and l e s s than o n e - t h i r d of these have been b u i l t upon {School of A r c h i t e c t u r e , 1972). Gambier on the o t h e r hand, has t h r e e times the area o f Mayne and y e t has o n l y 86 l o t s which have been b u i l t on (Sunshine Coast R e g i o n a l D i s t r i c t , 1974). I t appears t h a t the s o u t h e r n G u l f I s l a n d s have been more a t t r a c t i v e to r e c r e a -t i o n a l development due to t h e i r g r e a t e r a c c e s s i b i l i t y to the c e n t r e s o f p o p u l a t i o n . 38 F a m i l y h o l d i n g s ( e . g . Bowen^ I s l a n d ) or f o r e s t i n d u s t r y h o l d i n g s ( e . g . G a l i a n o I s l a n d ) have remained i n t a c t on some i s l a n d s , and l a r g e p o r t i o n s of the l a n d a r e , as y e t undeveloped. The amount of Crown l a n d r e m a i n i n g on the i s l a n d s v a r i e s c o n s i d e r a b l y , the s o u t h e r n G u l f I s l a n d s c o n t a i n a p p r o x i m a t e l y 4300 a c r e s of p r o v i n c i a l Crown la n d out of a t o t a l of 83,700 a c r e s , w h i l e Bowen I s l a n d has over one q u a r t e r of i t s l a n d area of 12,500 a c r e s under p r o v i n c i a l t i t l e (Rees and V e r b u r g , 1 973). I n c r e a s e d p o p u l a t i o n i n the r e g i o n and r i s i n g demands f o r outdoor r e c r e a t i o n and v a c a t i o n homes have p l a c e d added p r e s s u r e on the i s l a n d environment. During the l a t e 60's and e a r l y 70's concern over the d e t e r i o r a t i o n of the environment from u n c o n t r o l l e d development became i n c r e a s i n g l y common. Many exp r e s s e d the f e a r t h a t the p a r t i a l l y s e c l u d e d n a t u r e of the i s l a n d s was being eroded by i n c r e a s e d u r b a n i z a t i o n . Elma G a v i n , a member of the G u l f I s l a n d s Committee which r e p r e s e n t s the r e s i d e n t s of s e v e r a l s o u t h e r n i s l a n d s , commented as f o i l o w s : The present trend to f a c i l i t a t e automobile usage is r e s u l t i n g in the loss of more and more precious a g r i c u l t u r a l and recreational land for the b u i l d i n g of freeways3- bridges and tunnels. . . .Development of this kind on the islands w i l l result in the loss of a. rural way of l i f e which many people seek for permanent homes or for holiday recreation. . . . The ensuing rush for property within commuting distance of the c i t i e s could eventually lead to the destruction of the c l o s e l y linked Gulf Is lands. (Vancouver Sun, June 30, 1973) 39 P l e a s ^ s u c h as t h e s e , to l i m i t a c c e s s , slow growth and p r e s e r v e the a m e n i t i e s o f the i s l a n d s are becoming i n c r e a s i n g l y f r e q u e n t . The problem of the u n c o n t r o l l e d development of sub-d i v i s i o n s on the i s l a n d s appears to be the major concern of most people (Committee on M u n i c i p a l M a t t e r s , 1973). A number of very l a r g e developments were approved b e f o r e the P r o v i n c i a l government's f r e e z e on s u b d i v i s i o n s i n 1969. On North Pender, Magic Lake E s t a t e s has an e x i s t i n g development of 1300 l o t s (The Province. May 10, 1973). I f a l l these l o t s were s o l d and b u i l t on, the i s l a n d ' s p o p u l a t i o n c o u l d i n c r e a s e f i v e t i m e s . Mayne I s l a n d i s c u t up w i t h numerous s u b d i v i s i o n s and a g a i n , i f a l l l o t s were b u i l t on, the p o p u l a -t i o n would r e a c h upwards of 6000 persons (School o f A r c h i t e c t u r e , 1 972). S e v e r a l major s u b d i v i s i o n p r o p o s a l s have been de-f e a t e d , i n the l a s t few y e a r s , e i t h e r a t the r e g i o n a l or p r o v i n c i a l l e v e l . On G a l i a n o I s l a n d , M a c M i l l a n B l o e d e l which owns. 9000 a c r e s , proposed a l a r g e s u b d i v i s i o n i n 1 972 . F o l l o w -i n g announcement of the p r o p o s a l , l o c a l r e s i d e n t s o r g a n i z e d a p r o t e s t and a f t e r s e v e r a l stormy h e a r i n g s , the C a p i t a l R e g i o n a l D i s t r i c t r e j e c t e d the p l a n s f o r development of 1500 l o t s (Vancouver, Sun. May 1 5, 1 972). T h i s p r o t e s t however p r o v i d e d the impetus f o r the community to prepare a p l a n f o r the i s l a n d . In 1971 G a b r i o l a Wildwood E s t a t e s proposed a 550 l o t s u b d i v i s i o n f o r t h a t i s l a n d . In the s p r i n g of 1971 the 40 Nanaimo Reg i o n a l D i s t r i c t t u r n e d down the a p p l i c a t i o n f o r a l a n d use c o n t r a c t a f t e r p u b l i c h e a r i n g s r e q u i r e d by s t a t u t e i n d i c a t e d n e g a t i v e p u b l i c o p i n i o n . The development company appealed the d e c i s i o n to the M i n i s t e r of M u n i c i p a l A f f a i r s who h e l d a second h e a r i n g J u l y 12, 1972. At t h i s h e a r i n g over 200 r e s i d e n t s spoke out a g a i n s t the development p r o p o s a l . In August 1972 the C a b i n e t f i n a l l y r e j e c t e d the p r o p o s a l on the a d v i c e of the M i n i s t e r {Vancouver Sun, August 18, 1972). RF R e c r e a t i o n a l demands on the i s l a n d s have become i n -c r e a s i n g l y e v i d e n t as w e l l . In 1970 L i b e r a l Member of P a r l i a m e n t , David Anderson, proposed t h a t the G u l f I s l a n d s - S t r a i t of G e o r g i a area be made i n t o a n a t i o n a l marine park (Vancouver Sun, December 19, 1971). R e a c t i o n s to the p r o p o s a l were mixed. Many l o c a l people d i d not l i k e the idea of even l i m i t e d f e d e r a l j u r i s d i c t i o n over the area and some f e a r e d they would l o s e t h e i r p r o p e r t y through f e d e r a l e x p r o p r i a t i o n f o r p a r k l a n d . Concern was expressed over the i n c r e a s e d numbers of b o a t e r s who would be a t t r a c t e d to the area and the need f o r s u p e r v i s i o n of p u b l i c a r e a s . The p r o p o s a l d i d not r e c e i v e adequate s u p p o r t , and the p o s s i b i l i t y o f i t being r e a l i z e d , f a d e d . However, the F e d e r a l Department of the Environment and i n p a r t i c u l a r i t s Mi n i s t e C v - J a c k , D a v i s , s t i 11 . have d e s i g n s on the area f o r park as i n d i c a t e d i n r e c e n t statements to the press (Vancouver Sun, December 6, 1973). 41 International Park Proposal In October 1973, the I n t e r n a t i o n a l P o i n t Roberts Board which i s a committee of the I n t e r n a t i o n a l J o i n t Commission, p u b l i s h e d a r e p o r t "On S o l u t i o n s to the Problems F a c i n g the R e s i d e n t s of P o i n t R o b e r t s . " T h i s r e p o r t recommended t h a t an I n t e r n a t i o n a l Park be s e t up to i n c l u d e the G u l f I s l a n d s - San Juan a r c h i p e l a g o (as f a r n o r t h as G a b r i o l a I s l a n d ) . The major o b j e c t i v e of the park would be: . . . to preserve the existing attractive eharaoteristios of the island archipelago astride the border including the preserva-tion of marine and land-based wildlife, archaeological and historic resources, and the maintenance of water quality standards. ( I n t e r n a t i o n a l P o i n t Roberts Board, 1973) The p r o p o s a l e n v i s a g e d the park as an area of m u l t i p l e use to i n c l u d e e x i s t i n g and new park a r e a s , p o p u l a t e d areas and the s u r r o u n d i n g w a t e r s . Only some new lands would be a c q u i r e d f o r park p u r p o s e s ; these i n c l u d e d a number of s m a l l e r i s l a n d s such as P r e v o s t , S i d n e y , James, Samuel and P a r k e r I s l a n d s (U.S. N a t i o n a l Parks S e r v i c e , Parks Canada, 1973). The P o i n t Roberts Board proposed t h a t a b i - n a t i o n a l forum be e s t a b l i s h e d to reach agreement on recommendations f o r the a d m i n i s t r a t i o n of the park. The forum would make p o l i c y recommendations i n an e f f o r t to " b r i n g about b i n a t i o n a l l y agreed p r i n c i p l e s w i t h r e s p e c t to such m a t t e r s as water q u a l i t y maintenance, w i l d l i f e p r e s e r v a t i o n , l a n d use development, . . . t r a n s p o r t a t i o n 42 f a c i l i t i e s , s p o r t i n g f a c i l i t i e s and so on." The p r o p o s a l r e c o g n i z e d t h a t the b i - n a t i o n a l forum would have to "work c l o s e l y w i t h s t a t e p r o v i n c i a l and l o c a l a u t h o r i t i e s toward the achievement of the u l t i m a t e o b j e c t i v e s " ( I n t e r n a t i o n a l P o i n t Roberts Board, 1973). The I n t e r n a t i o n a l J o i n t Commission h e l d a s e r i e s of f i v e p u b l i c h e a r i n g s on the i n t e r n a t i o n a l park p r o p o s a l i n Washington S t a t e and B r i t i s h Columbia d u r i n g December, 1973. A number of c r i t i c i s m s of the proposed park system and p a r t i c u -l a r l y the i n c l u s i o n of the G u l f I s l a n d s i n the p a r k , were v o i c e d a t the Canadian h e a r i n g s . I t was p o i n t e d out t h a t the r e p o r t used the words ' r e c r e a t i o n ' and ' c o n s e r v a t i o n ' i n t e r c h a n g e d l y and t h e r e was c o n s i d e r a b l e c o n f u s i o n as to which o b j e c t i v e would be emphasized i n the f o r m a t i o n of a park. Many l o c a l p eople o b j e c t e d to the p r o p o s a l on the grounds t h a t the G u l f I s l a n d s were being used to s o l v e problems which were e s s e n t i a l l y c o n f i n e d to P o i n t R o b e r t s . (Ther terms of r e f e r e n c e of the P o i n t Roberts Board were to i n v e s t i g a t e the problem's of t h a t a r e a , i n c l u d i n g customs l a w s , employment r e g u l a t i o n s , h e a l t h and medical s e r v i c e s e t c . and to make recommendations to s o l v e these problems.) A number of b r i e f s p r e s e n t e d a t these h e a r i n g s c i t e d the l a c k of l o c a l p a r t i c i p a t i o n i n the f o r m u l a t i o n of the p r o p o s a l and t h e r e was an o f t e n e x p r e s s e d f e a r t h a t l o c a l r e s i -dents would have l i t t l e or no say i n the d i r e c t i o n and a d m i n i -s t r a t i o n of such an e x t e n s i v e park system (The Province. Vancouver 43 Sun, December 5, 6, 7, 8, 1973). F o l 1 o w i n g ~ t h e December hear-i n g s the I n t e r n a t i o n a l J o i n t Commission i s s u e d a s t a t e m e n t t h a t a d e c i s i o n would not be made on an I n t e r n a t i o n a l Park f o r t h i s area u n t i l f u r t h e r s t u d i e s were made. These s t u d i e s were expected to be completed e a r l y i n 1975. The p r e c e e d i n g examples i l l u s t r a t e the problems c r e a t e d by i n c r e a s i n g r e s i d e n t i a l and r e c r e a t i o n a l demands on the i s l a n d s and the sometimes c o n f l i c t i n g o b j e c t i v e s of d i f f e r e n t u s e r s . I t i s c l e a r t h a t t h e r e are a number of groups which p l a c e d i f f e r e n t k i n d s of demands on the i s l a n d environment. I t may be u s e f u l to c l a s s i f y t h e s e users i n t o a d i f f e r e n t c a t e g o r i e s a l t h o u g h any such c l a s s i f i c a t i o n i s bound to be somewhat a r t i f i c i a l and g e n e r a l i z a t i o n s about them, very a p p r o x i m a t e , T h i s d i s c u s s i o n i s based on the r e s u l t s of two r e s e a r c h p r o j e c t s undertaken on Bowen I s l a n d and G a b r i o l a I s l a n d d u r i n g the summer of 1973 ( G l o v e r et al., 1973 and T y h u r s t et al., 1973). With these l i m i t a t i o n s i n mind, the f o l l o w i n g c l i e n t groups 1 may be i d e n t i f i e d : Permanent r e s i d e n t s - These r e s i d e n t s l i v e permanently on the i s l a n d s and are g e n e r a l l y employed t h e r e . The more common forms of employment i n c l u d e s e r v i c e o c c u p a t i o n s and b u i l d i n g i n d u s t r y o c c u p a t i o n s ; o t h e r j o b s i n c l u d e highways and f e r r i e s work, f a r m i n g , l o g g i n g , c r a f t s and r e a l e s t a t e (School of A r c h i t e c t u r e , 1972). These people are a t l e a s t p a r t i a l l y 44 dependent on c o n t i n u e d growth on the i s l a n d s and t h e r e f o r e u s u a l l y s u p p o r t some degree of i n c r e a s e d development. S e a s o n a l r e s i d e n t s - These are the 'second home p e o p l e ' who a r r i v e on the i s l a n d s on weekends and f o r summer h o l i d a y s . These people appear to have a l a r g e s t a k e i n p r e s e r v i n g the e x i s t i n g r u r a l environment of the i s l a n d s and l i t t l e s t a k e i n t h e i r economic development. S i n c e t h i s group has grown con-s i d e r a b l y i n numbers over the past few y e a r s t h e i r concerns have been i n c r e a s i n g l y heard. Ret i red res i den ts - T h i s i s a l s o a r a p i d l y growing group i n c l u d i n g many c o u p l e s who f o r m e r l y v i s i t e d the i s l a n d s s e a s o n a l l y and who, upon r e t i r e m e n t , took up permanent r e s i d e n c e . T h i s group g e n e r a l l y has a high i n t e r e s t i n p r e s e r v i n g the a m e n i t i e s of the i s l a n d s but they a l s o f a v o u r improved s e r v i c e s which are sometimes f e a s i b l e o n l y w i t h l a r g e r p o p u l a t i o n s . V i s i t o r s - Th i s i s a l a r g e and d i v e r s e group w i t h v a r y i n g i n t e r e s t s . V i s i t o r s demand more r e c r e a t i o n a l s e r v i c e s i n the form of campgrounds, t o u r i s t l o d g i n g s and marine park f a c i l i t i e s . D e s p i t e the demand f o r some s e r v i c e s , v i s i t o r s g e n e r a l l y come to the i s l a n d s to 'get away from i t a l l ' and to enjoy the s l o w e r pace of l i f e ; a c t i v i t i e s they p r e f e r i n c l u d e w a l k i n g , h i k i n g and beachcombing ( C a p i t a l R e g i o n a l D i s t r i c t , 1971). 45 P o t e n t i a l v i s i t o r s and the p u b l i c i n g e n e r a l - T h i s i s an e x t r e m e l y l a r g e and amorphous group whose o b j e c t i v e s and v a l u e s are d i f f i c u l t to d e f i n e . In g e n e r a l , i t can be assumed t h a t they p l a c e some v a l u e i n p r e s e r v i n g the i s l a n d environment and p r e v e n t i n g i r r e v e r s i b l e changes on them, whether they are l i k e l y to use the i s l a n d s or not. C o n s i d e r i n g the wide v a r i e t y of users and t h e i r some-times c o n f l i c t i n g i n t e r e s t s , i t becomes i m p o r t a n t to b a l a n c e the d i f f e r e n t uses of the i s l a n d s w i t h the c a p a b i l i t y of the l a n d f o r these u s e s , which i s by no means an easy t a s k . The p r e s s u r e s f o r r e s i d e n t i a l and r e c r e a t i o n a l d e v e l o p -ment c o u n t e r e d by a s t r o n g , v o c a l r e s i d e n t o p i n i o n demonstrate the need f o r a w e l l developed and e x p l i c i t p o l i c y f o r ^ t h e i s l a n d s . In the p a s t , p r o v i n c i a l p o l i c y has been u n c l e a r , based l a r g e l y on s p o r a d i c and sometimes ad hoc d e c i s i o n s on i n d i v i d u a l p r o p o s a l s . The need f o r c o n t r o l s i s w e l l e s t a b l i s h e d ; the t a s k at hand i s to determine the optimum way of d e f i n i n g and im-p l e m e n t i n g these c o n t r o l s . The f i r s t s t e p of t h i s p r o c e s s i s the p r e p a r a t i o n of l e g i s l a t i o n to s e t up a mechanism to c o n t r o l development and to c o n s e r v e the environment of the i s l a n d s . T h i s t o p i c i s developed i n P a r t s I I and I I I of t h i s s t u d y . 46 3.2 C e n t r a l Research Task There appears to be a w i d e l y f e l t need to p r o t e c t the n a t u r a l , p h y s i c a l and s o c i a l environments of the G u l f I s l a n d s . P r o t e c t i o n of the i s l a n d s from overdevelopment i s the p r i o r i t y concern e x p r e s s e d by the Committee on M u n i c i p a l M a t t e r s i n i t s r e p o r t to the P r o v i n c i a l L e g i s l a t u r e , September, 1973. For the purposes of t h i s study the o b s e r v a t i o n s and recommenda-t i o n s of the Committee on M u n i c i p a l M a t t e r s were a c c e p t e d as the p o l i c y of the P r o v i n c i a l government. The need f o r c o n t r o l s on development was t h e r e f o r e c o n s i d e r e d to be e s t a b l i s h e d and hence the problems of the i s l a n d s which have c r e a t e d t h i s need were not the s u b j e c t o f i n v e s t i g a t i o n of t h i s r e s e a r c h . Given t h i s s i m p l i f i e d d e s c r i p t i o n of the b a s i c problem, i t i s apparent t h a t a d d i t i o n a l a s p e c t s s h o u l d be c l a r i f i e d . The c e n t r a l problem, t h a t of d e v i s i n g a mechanism to c o n t r o l development on the i s l a n d s , r a i s e s two q u e s t i o n s : 1 . To what e x t e n t s h o u l d t h e i s l a n d s be d e v e l o p e d ? T h i s would i n c l u d e both how much deve lopment and what k i n d of deve lopment to be a l l o w e d . 2 . How can a p o I i cy of c o n t r o l l e d d e v e l o p -ment be e f f e c t i v e l y implemented? The f i r s t q u e s t i o n r a i s e s the need f o r f u r t h e r p o l i c y r e f i n e m e n t . The r e p o r t of the Committee on M u n i c i p a l M a t t e r s p r o v i d e s some g u i d e l i n e s i n t h i s r e s p e c t . For example, the r e p o r t s t a t e s " t h e r e i s a need f o r an i n c r e a s e of s u p e r v i s e d 47 p u b l i c space" i m p l y i n g t h a t p o l i c y on the amount of p u b l i c space on the i s l a n d s i s i m p o r t a n t . Another p o l i c y area which the r e p o r t d i s c u s s e s i s t r a n s p o r t a t i o n ; the r e p o r t s t a t e s t h a t "emphasis s h o u l d be p l a c e d on p e d e s t r i a n t r a n s i t r a t h e r than v e h i c l e t r a n s i t and the use of the i s l a n d s s h o u l d thus be planned a c c o r d i n g l y . " I t i s c l e a r however t h a t f u r t h e r p o l i c y r e f i n e m e n t s are n e c e s s a r y . T h i s c o u l d be a c c o m p l i s h e d i n s e v e r a l ways. One a l t e r n a t i v e i s f o r p o l i c i e s p e r t a i n i n g to s p e c i f i c c a t e g o r i e s to be drawn up by the P r o v i n c i a l government (on the recommenda-t i o n of the M i n i s t e r of M u n i c i p a l A f f a i r s ) and r e f l e c t e d i n l e g i s l a t i o n f o r the i s l a n d s . A nother a l t e r n a t i v e would be f o r the P r o v i n c i a l government to d e l e g a t e a u t h o r i t y to a s p e c i a l body e n t r u s t e d w i t h s e v e r a l p o l i c y - m a k i n g and a d m i n i s t r a t i v e f u n c t i o n s f o r the i s l a n d s . In l i g h t of the recommendations made by the Committee, i t appears l i k e l y t h a t some c o m b i n a t i o n of these two a l t e r n a t i v e s w i l l be used. The second q u e s t i o n d e a l s w i t h i m p l e m e n t a t i o n of the p o l i c y . The r e p o r t of the Committee on M u n i c i p a l M a t t e r s speaks d i r e c t l y t o t h i s q u e s t i o n i n i t s recommendations. The Committee recommends " t h a t the P r o v i n c i a l Government e s t a b l i s h an I s l a n d s T r u s t ( o r Commission). . .to be r e s p o n s i b l e f o r and to co-o r d i n a t e the f u t u r e of each i s l a n d . . . (and) to assume the p r i m a r y r e s p o n s i b i l i t y f o r a l l G u l f I s l a n d s ' a f f a i r s w i t h i n Government j u r i s d i c t i o n . " The Committee does not e l a b o r a t e on the s t r u c t u r e or s p e c i f i c r e s p o n s i b i l i t i e s and f u n c t i o n s of 48 the proposed T r u s t . I t does note however, t h a t the T r u s t s h o u l d be " r e p r e s e n t a t i v e of a l l i n t e r e s t s . . . throughout the P r o v i n c e as a whole." I t i s q u i t e e v i d e n t a f t e r c o n s i d e r i n g the recommenda-t i o n s of the Committee, t h a t a mechanism f o r r e f i n i n g and im-plemen t i n g p o l i c y i s n e c e s s a r y to c o n t r o l development on the i s l a n d s . The c e n t r a l t a s k , and the one t h a t t h i s r e s e a r c h paper has addressed i t s e l f to s p e c i f i c a l l y , i s to develop a pr o p o s a l f o r an i n s t i t u t i o n a l arrangement w i t h the purpose of implementing a p o l i c y of c o n t r o l l e d development and c o n s e r v a -t i o n of the G u l f s i s 1ands. T h i s i n s t i t u t i o n a l arrangement i s c a l l e d the 'Gulf I s l a n d s T r u s t . ' B e f o r e o u t l i n i n g the approach taken t o c a r r y out t h i s t a s k i t i s i m p o r t a n t t h a t the a u t h o r ' s assumptions on d e c i s i o n -making p r o c e s s e s be made e x p l i c i t . In t h i s r e s p e c t , s e v e r a l n o r mative assumptions were f o l l o w e d throughout t h i s work: In accordance w i t h the p r i n c i p l e of p a r t i c i -p a t o r y democracy, p r o v i s i o n s h o u l d be made f o r p a r t i c i p a t i o n in d e c i s i o n - m a k i n g from the l o c a l i s l a n d l e v e l t o the l e v e l of the T r u s t a d m i n i s t r a t i o n . I t i s c o n s i d e r e d t h a t the most e f f e c t i v e d e c i s i o n - m a k i n g i n v o l v e s those who are most d i r e c t l y a f f e c t e d by the r e s u l t s of d e c i s i o n s . I n f o r m a t i o n s h o u l d be r e a d i l y a v a i l a b l e and shou l d be communicated in a manner which i s honest and e a s i l y understood i n o r d e r t h a t p a r t i c i p a n t s can e f f e c t i v e l y c o n t r i b u t e t o the d e c i s i o n - m a k i n g p r o c e s s . 49 D e c i s i o n - m a k i n g and d e c i s i o n i m p l e m e n t a -t i o n c o n s t i t u t e p a r t of a p r o c e s s which i s e v o l u t i o n a r y in n a t u r e . For t h i s r e a s o n t h e r e i s a need f o r c o n t i n u o u s i n f o r m a t i o n f l o w , f e e d - b a c k , r e f o r m u l a t i o n and e v a l u a t i o n of any p u b l i c p r o g r a m . 3.3 O u t l i n e of M a t e r i a l f o r A n a l y s i s There appears to be a t r e n d towards i n c r e a s e d g overn-ment c o n t r o l over l a n d use d u r i n g the l a s t few y e a r s i n Canada and the U n i t e d S t a t e s (Bosselman and C a l l i e s , 1971). L o c a l z o n i n g has proved i t s e l f i n a dequate i n d e a l i n g w i t h many problems, p a r t i c u l a r l y those i n v o l v i n g r e g i o n a l and even p r o v i n c e - w i d e i n t e r e s t s . C o n s e q u e n t l y i n some areas newiland use c o n t r o l s have been e s t a b l i s h e d through the enactment of l e g i s l a t i o n to c o n t r o l development f o r the b e n e f i t of the p u b l i c i n t e r e s t . In a n a l y z i n g the problem o f s u i t a b l e development c o n t r o l s f o r the G u l f I s l a n d s , r e c e n t l e g i s l a t i o n i n l a n d use c o n t r o l s , r a n g i n g from 1961 to the p r e s e n t , was s t u d i e d f o r i t s a p p l i c a b i l i t y to the s p e c i a l environment of the i s l a n d s , i t s r e c o g n i t i o n of the importance of e x i s t i n g s o c i a l c ommunities, and the need to p r e s e r v e the unique e c o l o g i c a l c h a r a c t e r i s t i c s of the area being l e g i s l a t e d f o r . An i n i t i a l s urvey of the l e g i s l a t i o n was made which i n c l u d e d the f o l l o w i n g s t a t u t e s and b i l l s : 50 CANADA 1. B r i t i s h C olumbia, Land Commission Act, 1973 - (R.S.B.C. 1973, C.46) 2. O n t a r i o , Niagara Escarpment•Planning and Development Act ( B i l l 1 29), 1973. 3. O n t a r i o , Planning and Development Act ( B i l l 128), 1973. UNITED STATES 4. C a l i f o r n i a , Coastal Zone Conservation Act, 1972 (S. 27000). 5. C o l o r a d o , Land Use Act, 1971. 6. F l o r i d a , Environmental Land and Water Management Act of 1972 ( F l o r i d a S t a t . Ann. C. 370 to 380, 1972). 7. H a w a i i , Land Use Law of 1961 (Hawaii Rev. S t a t . , C. 205 (1968) as amended (supp. 1 969). 8. Maine, Site Location of Development Act, 1970 ( r e v . 1971 , C. 571 , S. 2 ) . 9. Oregon, Land Use Act ( B i l l 1 0 0 ) , 1973. 10. Vermont, Act No. 250, Vermont Laws, 1970 (Tenth Ver. S t a t . Ann. C. 151). 111 . WWashiington ^Shor/eMneMManag-em'ent-tAety--1 971 (C. 286). 51 PROPOSED BILLS: 12. Washington, House B i l l 791 (Land Use P l a n n i n g ) , 1973. 13. U.S. Senate, Housatonio River Valley Trust Bill. S. 3633, 1972. 14. U.S. Senate, Nantucket Sound Islands Trust Bill. S. 3485, 1972; S. 1929, 1973. EUROPE 15. Denmark, Urban and Rural Zones Act. 1 9691.,. 16. Great B r i t a i n , Town and Country Planning A Act, 1962 (10 & 11, E l i z . 2., Ch. 3 8 ) . 17. Great B r i t a i n , National Trust Acts, 1907 to 1953. 18. S w i t z e r l a n d , Loi Federale sur la Protection de la Nature et du Pay sage, 1966. T h i s l e g i s l a t i o n was reviewed b r i e f l y and f i v e p i e c e s were s e l e c t e d f o r a more d e t a i l e d r e v i e w . T h i s s e l e c t i o n was based on s e v e r a l c r i t e r i a : 1. o b j e c t i v e s of the l e g i s l a t i o n ; were they a p p r o p r i a t e t o the p r o v i n c i a l p o l i c y of c o n t r o l l e d development and c o n s e r v a t i o n f o r the i s l a n d s ? -2 . e s t a b l i s h m e n t of a r e g i o n a l or p r o v i n c i a l ( s t a t e ) a u t h o r i t y ; d i d the l e g i s l a t i o n c r e a t e a s p e c i a l body or agency t o c a r r y out c e r t a i n s t a t u t o r y r e s p o n s i b i l i t i e s ? . 3. f u n c t i o n s of the r e g i o n a l o r p r o v i n c i a l a u t h o r i t y ; d i d the f u n c t i o n s of the s p e c i a l a u t h o r i t y i n c l u d e land use c o n t r o l 52 t h r o u g h t e c h n i q u e s such as z o n i n g or deve lopment p e r m i t s ? 4 . r e s p o n s i b i l i t i e s and f u n c t i o n s of l o c a l a u t h o r i t i e s ; were p r o v i s i o n s i n c l u d e d t o d e l e g a t e some r e s p o n s i b i l i t i e s t o I oca I a u t h o r i t i es? 5 . p r o v i s i o n f o r p u b l i c p a r t i c i p a t i o n ; were p r o v i s i o n s f o r p u b l i c h e a r i n g s and p r o c e d u r e s f o r a p p e a l s i n c l u d e d in the l e g i s l a t i o n ? On t h i s b a s i s the f o l l o w i n g f i v e p i e c e s o f l e g i s l a t i o n were s e l e c t e d f o r a n a l y s i s : 1. Nantucket Sound Islands Trust Act ( p ro posed b i l l ) , I 9.73 . 2 . Hawaiian Land Use Law, 1961. , 3 . Vermont Environmental Control Law, 1970. 4 . Washington Shoreline Management Act, 197 1. 5 . Niagara Escarpment Planning and Development Act, 1973. L e g i s l a t i o n p e r t a i n i n g s p e c i f i c a l l y to i s l a n d s has been proposed i n the U n i t e d S t a t e s Congress i n the form of two b i l l s , The f i r s t , i n t r o d u c e d by Se n a t o r Henry J a c k s o n , February 1972, proposed t h a t the U.S. Government adopt a n a t i o n a l i s l a n d p o l i c y to pwotect and conserve the n a t i o n ' s i s l a n d s . I n c l u d e d i n the l e g i s l a t i o n was a model ' N a t i o n a l I s l a n d s T r u s t ' b i l l . In A p r i l 1973, Senator Kennedy i n t r o d u c e d a b i l l i n the U.S. Congress p r o p o s i n g i s l a n d t r u s t s t a t u s f o r Martha's V i n e y a r d and the Nantucket Sound I s l a n d s which are l o c a t e d o f f 53 Cape Cod on the East c o a s t . The Nantucket Sound I s l a n d s T r u s t A c t , was chosen f o r the a n a l y s i s as i t appeared to d e a l w i t h problems which are most s i m i l a r to those f a c i n g the G u l f I s l a n d s . The Land Use A c t of Hawaii was s e l e c t e d because i t i s an example of e a r l y l e g i s l a t i o n w i t h p r o v i s i o n s f o r l a n d use c o n t r o l and hence i t s e f f e c t i v e n e s s can be e v a l u a t e d to some e x t e n t . S i n c e the s t a t e i s composed of a group of i s l a n d s , i t i s a l s o f a c e d w i t h a r e s t r i c t e d amount of l a n d and i n c r e a s i n g demands by r e c r e a t i o n a l u s e r s . The Vermont Environmental C o n t r o l Law (1970) was i n c l u d e d i n the a n a l y s i s as an example of a more r e c e n t l a n d use law having the o b j e c t i v e of e n v i r o n m e n t a l p r o t e c t i o n . Vermont i s a l s o c o n f r o n t e d w i t h the problem of a l a r g e i n f l u x of r e c r e a t i o n i s t s and people s e e k i n g second homes, and the S t a t e has attempted to deal w i t h t h i s through the i m p l e m e n t a t i o n of a number of development c o n t r o l s . The S t a t e of Washington's S h o r e l i n e Management A c t was examined, a g a i n because of the emphasis on e n v i r o n m e n t a l and p a r t i c u l a r l y s h o r e l i n e p r o t e c t i o n . T h i s A c t a f f e c t s the Puget Sound-San Juan .Islands . area., which shares many'of the p h y s i c a l c h a r a c t e r i s t i c s and development problems of the Canadian G u l f I s l a n d s . And f i n a l l y the P r o v i n c e of O n t a r i o ' s N i a g a r a E s c a r p -ment P l a n n i n g and Development Act was i n c l u d e d i n the a n a l y s i s as a Canadian example of iland use l e g i s l a t i o n f o r a p a r t i c u l a r 54 r e g i o n which has been d e s i g n a t e d as an area of unique e n v i r o n -ment worthy of s p e c i a l p r o t e c t i o n . These p i e c e s of l a n d use l e g i s l a t i o n have a number of c h a r a c t e r i s t i c s i n common. 1. They have as a majo r o b j e c t i v e , c o n t r o l of deve lopment and p r e s e r v a t i o n of t h e env i ronment . 2 . They a t t e m p t to s o l v e the j u r i s d i c t i o n a l p rob lems of l o c a l z o n i n g by e s t a b l i s h i n g a s i n g l e r e g i o n a l a u t h o r i t y . 3. They make p r o v i s i o n f o r the e s t a b l i s h m e n t of a s p e c i a l c o m m i s s i o n whose f u n c t i o n i s t o c o n t r o l deve lopment in the manner o u t -l i n e d in the l e g i s l a t i o n . These f i v e p i e c e s o f l e g i s l a t i o n are d e s c r i b e d i n P a r t I I and a com p a r a t i v e a n a l y s i s i s made of s e l e c t e d f e a t u r e s of these laws. From t h i s a n a l y s i s s p e c i f i c f e a t u r e s a p p r o p r i a t e to the G u l f I s l a n d s are i d e n t i f i e d . U s i n g t h i s a n a l y s i s as a b a s i s , P a r t I I I proceeds to develop s u g g e s t i o n s f o r l a n d use l e g i s l a t i o n f o r the G u l f I s ! a n d s . P A R T I I EXAMINATION OF SIMILAR PURPOSE LAND USE LEGISLATION Chapter 4 EXAMINATION OF T H f I S L A N D TRUST CONCEPT IN PROPOSED LEG ISLAT ION 4.1 Model I s l a n d T r u s t L e g i s l a t r i o n In 1970 the U.S. Department of the I n t e r i o r p u b l i s h e d the r e s u l t s of a comprehensive study e n t i t l e d Islands of America (Bureau of Outdoor R e c r e a t i o n , 1970). The study i n -c l u d e d an e x t e n s i v e i n v e n t o r y of the r e c r e a t i o n a l , s c e n i c and h i s t o r i c v a l u e s of America's c o a s t a l i s l a n d s . Twommajor g o a l s or p o l i c y o b j e c t i v e s were recommended by the r e p o r t : 1. p u b l i c c o n t r o l of r e p r e s e n t a t i v e i s l a n d a r e a s s u f f i c i e n t t o meet p u b l i c r e c r e a t i o n , s c e n i c , w i l d e r -n e s s , h i s t o r i c and s c i e n t i f i c n e e d s ; 2. r e s t o r a t i o n and m a i n t e n a n c e of t h e e n v i r o n m e n t a l q u a l i t y of a l l A m e r i c a n i s l a n d s . The study a l s o recommended a number of a c t i o n s to r e a l i z e these o b j e c t i v e s . The f i r s t recommendation proposed a n a t i o n a l system of I s l a n d T r u s t s . The o b j e c t i v e s and f u n c -t i o n s o f such a ' T r u s t ' arrangement were d e s c r i b e d as f o l l o w s : 55 This (Trust) concept was developed for islands where t r a d i t i o n a l techniques for the protection and enhancement of t h e i r unique q u a l i t i e s are not p r a c t i c a b l e . An Island Trust is made up of an island or group of islands with outstanding scenic, h i s t o r i c or recreational values. The Congress would authorize the Secretary of the I n t e r i o r to e s t a b l i s h these Trusts through .appropriate agreements with the States involved. Such agreements would provide fortthe establishment of Island Trust Commissions. A Commission to be successful must provide for the broadest possible involve-ment. It would generally be composed of a Federal member appointed by the Secretary of the I n t e r i o r ; a member appointed by the Governor of each p a r t i c i p a t i n g state; and a member appointed by each local governing body involved, with zoning authority. The composition of the commissions would be f l e x i b l e to meet the special conditions of each Island Trust. The • commissions would develop and main-t a i n comprehensive plans for the islands. The goals of such plans would be preserva-tion of the unique island environment, establishment of s u f f i c i e n t public areas to provide for recreation use, and orderly and compatible development of islands by public and private i n t e r e s t s . The commissions would encourage State and local governments to adopt and enforce adequate master plans and zoning ordinances to promote the use and development of p r i v a t e l y owned lands within the Island Trusts in a manner ^consistent with the comprehensive plans. They may also recommend a c q u i s i t i o n by such governments of p r i v a t e l y owned property. Land a c q u i s i t i o n would be l i m i t e d l a r g e l y to underdeveloped areas. Whenever less than fee a c q u i s i t i o n , such as scenic easements, can provide adequate protection or meet public needs, such a c q u i s i t i o n would be encouraged. A c q u i s i t i o n , development and management of areas within the Island Trusts would be coordinated A by the Commissions. If the State or local governments f a i l to take the 57 action recommended, the commissions would be empowered to assure that the comprehensive plans are carried out. In such cases the commissions would have the authority to adopt- and enforce adequate master plans or zoning ordinances, acquire land or f a c i l i t i e s , develop and administer the Island Trusts, and take a l l action necessary to f u l f i l l the purpose of the Island Trusts. The study proposed t h a t the Casco Bay I s l a n d s i n Maine s e r v e as the p i l o t p r o j e c t f o r the i s l a n d t r u s t c o n c e p t . In a d d i t i o n to the Casco Bay I s l a n d s the r e p o r t recommended a number of o t h e r i s l a n d groups to be f u t u r e components of the N a t i o n a l System of I s l a n d T r u s t s . A d r a f t b i l l f o r the e s t a b l i s h m e n t of a N a t i o n a l System of I s l a n d T r u s t s was i n c l u d e d i n the r e p o r t , to s e r v e as a model f o r l e g i s l a t i o n i n t h i s area (Appendix B ) . The major f e a t u r e s of t h i s model b i l l i n c l u d e the e s t a b l i s h m e n t of an I s l a n d T r u s t Commission to "develop and m a i n t a i n a comprehensive p l a n " f o r the i s l a n d s i n c l u d e d i n the T r u s t , and to encourage l o c a l governments to "adopt and e n f o r c e adequate master p l a n s and z o n i n g o r d i n a n c e s . " In a d d i t i o n , f e d e r a l l y a s s i s t e d p r o j e c t s on i s l a n d s i n the t r u s t system, which have " d i r e c t and adverse e f f e c t s " on the i s l a n d s ' environments are f o r b i d d e n . On F ebruary 14, 1972, S e n ator J a c k s o n i n t r o d u c e d to the Senate a b i l l "to d e c l a r e a n a t i o n a l p o l i c y to p r o t e c t and manage i s l a n d s of the N a t i o n which possess unique e n v i r o n -m e n t a l , r e c r e a t i o n a l , h i s t o r i c a l and c u l t u r a l v a l u e s " (U.S. 58 C o n g r e s s i o n a l Record, S. 1575, N a t i o n a l I s l a n d s C o n s e r v a t i o n and R e c r e a t i o n A c t , February 14, 1972). Because the Nixon a d m i n i s t r a t i o n had taken no a c t i o n on the model N a t i o n a l I s l a n d T r u s t s b i l l , S e n a t or J a c k s o n i n t r o d u c e d a new b i l l to p r o v i d e a w i d e r scope f o r f e d e r a l a c t i o n i n the p r e s e r v a t i o n of i s l a n d s . T h i s b i l l , the N a t i o n a l I s l a n d s C o n s e r v a t i o n and R e c r e a t i o n A c t , i n t e n d e d to e s t a b l i s h the f o l l o w i n g statementaas n a t i o n a l p o l i c y : To strengthen the environmental, recreational and c u l t u r a l well-being of the •people of the United States, the Congress declares that i t - -is the policy of the United States that islands or groups of islands of the Nation which possess unique environmental, recreational, h i s t o r i c a l or c u l t u r a l values which warrant preservation and enhancement should be protected and managed through the combined e f f o r t s of Federal, State and local governments and the private sector to insure that future generations shall have the opportunity to enjoy the Nation 's island heritage. (U.S. C o n g r e s s i o n a l Record , S. 1 575) The b i l l p r o v i d e s f o r a f u r t h e r study to make recom-mendations on those i s l a n d s to be i n c l u d e d i n N a t i o n a l P a r k , W i l d l i f e Refuge and F o r e s t Systems and i s l a n d s which s h o u l d be a c q u i r e d by the S t a t e s , w i t h F e d e r a l a s s i s t a n c e . P r i o r i t y f o r Fe d e r a l a s s i s t a n c e would be g i v e n to i s l a n d s which are a c c e s s -i b l e to urban r e g i o n s !and,are most t h r e a t e n e d by immediate development; and to s t a t e s which have demonstrated the capa-c i t y to ta k e s t e p s to p r o t e c t the i s l a n d s and have developed 59' l a n d use c o n t r o l s under S t a t e laws to p r o t e c t the i s l a n d s w i t h -out r e q u i r i n g purchase of i s l a n d l a n d s (U.S. C o n g r e s s i o n a l R ecord, S. 1575). The p r o p o s a l s of t h i s b i l l c o n s t i t u t e , e s s e n t i a l l y a f e d e r a l a s s i s t a n c e program to p r o v i d e funds to those s t a t e s t h a t are w i l l i n g and that have the c a p a c i t y to s e t up systems of l a n d use c o n t r o l s to p r o t e c t the s o c i a l and p h y s i c a l e n v i r o n -ments of the i s l a n d s . There are no recommendations as to what k i n d s of c o n t r o l s s h o u l d be u t i l i z e d nor i s t h e r e any s u g g e s t i o n of implementing i n n o v a t i v e approaches to s o l v i n g l a n d use problems f o r unique environmen t s . Money would be made a v a i l a b l e to the S t a t e s f o r p l a n n i n g and development of i s l a n d lands and f o r a c q u i s i t i o n of p r o p e r t y on i s l a n d s . There i s however, no mention of c o - o r d i n a t i o n between the v a r i o u s p l a n n i n g programs which might be developed a t the s t a t e l e v e l . The N a t i o n a l I s l a n d s C o n s e r v a t i o n and R e c r e a t i o n A c t was r e f e r r e d to the Committee on I n t e r i o r and I n s u l a r A f f a i r s , f o l l o w i n g i t s i n t r o d u c t i o n to the Congress. 4.2 Nantucket Sound I s l a n d s T r u s t B i l l 4.2.1 Background On A p r i l 11, 1972 S e n ator Edward Kennedy i n t r o d u c e d a b i l l i n t o Congress "to p r e s e r v e and c o n s e r v e " the Nantucket Sound I s l a n d s through the e s t a b l i s h m e n t of an I s l a n d s T r u s t 60 (U.S. C o n g r e s s i o n a l Record, S. 3485, Nantucket Sound I s l a n d s T r u s t A c t , A p r i l 1 1 , 1972) . 2 T h i s b i l l was amended i n J u l y 1972, a t h i r d v e r s i o n was i n t r o d u c e d to Congress May 1973, and a f o u r t h v e r s i o n i s , a t the time of t h i s w r i t i n g , b e i n g prepared f o r i n t r o d u c t i o n to the 94th Congress. A b r i e f d e s c r i p t i o n of the development of t h i s b i l l f o l l o w s i n o r d e r to i l l u m i n a t e those a s p e c t s of the p r o c e s s which might have r e l e v a n c e f o r the G u l f I s l a n d s . The b i l l i n t r o d u c e d A p r i l 11, 1972, p r o v i d e d f o r the e s t a b l i s h m e n t of a thirteen-member Commission to a d m i n i s t e r the T r u s t , the m a j o r i t y ,of the Commission'to b?e composed of members of the l o c a l town governments and the c o u n t y . The Commission would a c t to e s t a b l i s h p o l i c i e s and development s t a n d a r d s , to c o n s i d e r l a n d f o r a c q u i s i t i o n and to a d m i n i s t e r T r u s t owned l a n d s . In t h i s r e s p e c t the proposed T r u s t was s i m i l a r to the model N a t i o n a l I s l a n d T r u s t s b i l l recommended i n 1970 by the Department of the I n t e r i o r . - Kennedy's b i l l however d e p a r t e d markedly from the model i n i t s p r o p o s i t i o n to zone a l l l a n d on the i s l a n d s i n t o t h r e e broad c a t e g o r i e s (U.S. C o n g r e s s i o n a l Record, S. 3485): 1. Lands Forever Wild - those areas whose seenio or ecological or other values are so great that no development should be permitted on them3 or should ever The Nantucket Sound I s l a n d s i n c l u d e Nantucket I s l a n d , Martha's V i n e y a r d and the E l i z a b e t h I s l a n d s . 61 take place on them (this e l a s s i f i o a t i o n is to include a l l beach lands), 2. Scenic Preservation Lands - those areas in which the i n t e n s i t y of development r Ji.ausEoulid hot lberincr.eas.edrovertwhdt i t currently is, 3. Town and County Lands - those areas to which future development a c t i v i t y should be confined, and in which the town or country governments, as appropriate, w i l l have the authority and r e s p o n s i b i l i t y to plan for this development. In the t h i r d c a t e g o r y o f 'town planned l a n d s , ' w h i l e the l o c a l towns would have the a u t h o r i t y to prepare p l a n s and bylaws, the Commission would r e t a i n the power to approve or d i s a p p r o v e these p l a n s and bylaws. With the i n t r o d u c t i o n of the b i l l a l l development i n the f i r s t c a t e g o r y of l a n d was frozen,, pending passage and enactment of the l e g i s l a t i o n . C o n s i d e r a b l e debate was sparked by the i n t r o d u c t i o n of the b i l l . I s l a n d r e s i d e n t s o b j e c t e d to the l a c k of l o c a l i n v o l v e m e n t ; i s l a n d e r s has not hbeen p u b l i c a l l y c o n s u l t e d d u r i n g p r e p a r a t i o n of the b i l l . Many f e l t t h a t l o c a l i n t e r e s t s were not p r o v i d e d f o r and t h a t f e d e r a l i n t e r f e r e n c e i n the l o c a l a f f a i r s of the i s l a n d s was not w a r r a n t e d . The debate c e n t r e d around the b i l l s p r o c e s s of p r e p a r a t i o n and the^methods of im-p l e m e n t a t i o n ; the p r i m a r y o b j e c t i v e of c o n s e r v i n g the n a t u r a l environment was not i n d i s p u t e ( F i n k l e r , 1972). 62 However, the b i l l d i d have a p o l a r i z i n g e f f e c t on the i s l a n d e r s . Summer r e s i d e n t s many of them from the l a r g e r c i t i e s a l o n g the E a s t e r n seaboard s u p p o r t e d s t r o n g l y both the i n t e n t and the means of the proposed T r u s t . T h e i r i n t e r e s t s were i n p r e s e r v i n g the e x i s t i n g environment; d e s t r u c t i o n of the n a t u r a l and s c e n i c v a l u e s would destroy^.- t h e i r reasons f o r e s c a p i n g to the i s l a n d s . L o c a l r e s i d e n t s on the o t h e r hand o b j e c t e d to the 'no-growth' tone of the b i l l ; t h e i r l i v l i h o o d s i n many cases depended on f u r t h e r growth i n the b u i l d i n g i n d u s t r y and expansion of the t o u r i s t t r a d e . T h e i r major c o m p l a i n t s however were t h a t l o c a l people were c o m p l e t e l y bypassed i n the pre-p a r a t i o n of the b i l l and t h a t f e d e r a l z o n i n g amounted to a c u s t o d i a n s h i p o f the i s l a n d . C e r t a i n o b j e c t i o n s were made on the l e g a l i t y of f e d e r a l z o n i n g and the i m p o s i t i o n a o f • the f r e e z e on c o n s t r u c t i o n of "improvements" commencing on the'day the l e g i s l a t i o n was i n t r o -duced to the Senate. F u r t h e r c r i t i c i s m was made on the vague-ness of c e r t a i n p r o v i s i o n s w i t h i n the t e x t of the b i l l ( B e a t t y and M unson,1972). F o l l o w i n g i n t r o d u c t i o n of the b i l l a c o n g r e s s i o n a l committee h e l d s e v e r a l h e a r i n g s on the i s l a n d s . During d i s -c u s s i o n s the p o l a r o p i n i o n s f o r and a g a i n s t the b i l l were v e r y much i n e v i d e n c e . S e v e r a l major p o i n t s were r a i s e d d u r i n g the c o u r s e of these d i s c u s s i o n s and some of these were i n c o r p o r a t e d i n t o amendments p r e s e n t e d to the Senate, J u l y 27, 1972. One of the 63 more i m p o r t a n t changes i n the amended b i l l was t h a t the Commission would no l o n g e r have the r i g h t to approve p l a n s and z o n i n g i n the town planned l a n d s ; i n the amended v e r s i o n the Commission's power was reduced to commenting on such p l a n s and o r d i n a n c e s p r i o r to t h e i r a d o p t i o n . Another i m p o r t a n t change was the i n c l u s i o n of a s e c t i o n which would l i m i t a c c e s s to the i s l a n d s . The Commission i n t h i s amendment, would have the power to recommend " s p e c i f i c measures de s i g n e d to l i m i t the number of motor v e h i c l e s and passengers ( p u b l i c and p r i v a t e , water and a i r ) c a r r i e r s might o t h e r w i s e t r a n s p o r t to the Nantucket Sound I s l a n d s " (U.S. C o n g r e s s i o n a l Record, S. 3485, Amendment No. 1372, J u l y 27, 1972). Other changes i n the amended b i l l i n c l u d e d the pro-v i s i o n t h a t T r u s t owned l a n d s would pay t a x e s as i f p r i v a t e l y owned; t h a t some l i m i t e d development would be a l l o w e d i n s c e n i c p r e s e r v a t i o n l a n d s ; t h a t f a m i l y ownership of lands i n the f o r e v e r w i l d c a t e g o r y c o u l d be c o n t i n u e d ; and t h a t emphasis would be p l a c e d on c o n s e r v a t i o n r a t h e r than r e c r e a t i o n on the i s l a n d s . There was s t i l l a b i t t e r d i v i s i o n i n r e a c t i o n s to the amended b i l l . A government sponsored referendum h e l d on Martha's V i n e y a r d , November 1972, i n d i c a t e d t h a t 60% of the island&s'. 6500 permanent r e s i d e n t s were opposed to the new b i l l . S i n c e s e a s o n a l r e s i d e n t s d i d not have a v o t e , the outcome might have been markedly d i f f e r e n t i f the t o t a l p o p u l a t i o n had voted [Time, J u l y 30, 1973). 64 S i n c e the i n t r o d u c t i o n of the o r i g i n a l b i l l * c i t i z e n ' s committees have worked d i l i g e n t l y i n p r e p a r i n g s u b m i s s i o n s to the Senate Subcommittee on Parks and R e c r e a t i o n which was a u t h o r i z e d to ho l d h e a r i n g s and a c c e p t s u b m i s s i o n s on the pro-posed b i l l . Kennedy and h i s s t a f f a t t e n d e d a number of meetings on the i s l a n d s and made c o n s i d e r a b l e e f f o r t to i n c l u d e the most p r e s s i n g c l a i m s of the i s l a n d e r s i n the r e v i s e d b i l l . On May 31, 1973, Senator Kennedy i n t r o d u c e d the t h i r d v e r s i o n of the Nantucket Sound I s l a n d s T r u s t A c t to the Senate (U.S. C o n g r e s s i o n a l Record, S. 1929, May 31, 1973). T h i s r e v i s e d b i l l had been c i r c u l a t e d to a l l i s l a n d o f f i c i a l s and i n t e r e s t e d c i t i z e n s d u r i n g March 1973, and was p r i n t e d i n the l o c a l newspapers (Appendix C ) . 4.2.2 Commission The new b i l l p r o v i d e s f o r the e s t a b l i s h m e n t of t h r e e commissions, one each f o r N a n t u c k e t , Martha's V i n e y a r d and the E l i z a b e t h I s l a n d s . The m a j o r i t y of the Commissions' member-s h i p i s to be comprised of l o c a l people w i t h one F e d e r a l and one S t a t e R e p r e s e n t a t i v e . The purpose of the Commission i s to develop p o l i c i e s f o r the p r e s e r v a t i o n of the i s l a n d s and to implement these p o l i c i e s through the enforcement of a g e n e r a l l a n d use p l a n , the a c q u i s i t i o n of some p r i v a t e l a n d s , and co-o r d i n a t i o n of F e d e r a l and S t a t e a c t i v i t i e s on the i s l a n d s . The b i l l p r o v i d e s p o l i c y g u i d e l i n e s i n some areas and i t a l s o 65 e s t a b l i s h e s the t h r e e b a s i c c l a s s i f i c a t i o n s of use f o r d i f f e r -ent l a n d t y p e s . The Commission has the power to w r i t e and e n f o r c e r e g u l a t i o n s c o n c e r n i n g l a n d use on the f i r s t two c a t e g o r i e s ( f o r e v e r w i l d and s c e n i c p r e s e r v a t i o n ) . A p a i d p r o f e s s i o n a l s t a f f a l o n g w i t h s t a f f from the S t a t e and the Department of the I n t e r i o r i s to be made a v a i l a b l e to the Commission f o r t e c h n i c a l i n f o r m a t i o n and a d v i c e . In t h i s c u r r e n t v e r s i o n of the b i l l the Commissions are the " c e n t r a l management a u t h o r i t y f o r the i s l a n d s t r u s t " ; the Governor or S e c r e t a r y of the I n t e r i o r no l o n g e r have veto power over t h e i r d e c i s i o n s . The Commissions do not have the power to a c q u i r e l a n d from p r i v a t e c o n s e r v a t i o n o r g a n i z a t i o n s ; t h i s and o t h e r p r o v i s i o n s c o n c e r n i n g n o n - p r o f i t o r g a n i z a t i o n s are i n t e n d e d to encourage c o n s e r v a t i o n a c t i o n s by v o l u n t a r y p r i v a t e a c t i o n . As i n the p r e v i o u s amended v e r s i o n of the b i l l the Commissions can make recommendations on measures to l i m i t the number o f passengers and v e h i c l e s t r a n s p o r t e d to the i s l a n d s . In a d d i t i o n , a new c l a u s e p r o v i d e s a statement of n a t i o n a l p o l i c y which would p r e v e n t the c o n s t r u c t i o n of a b r i d g e , cause-way o r t u n n e l to the i s l a n d s . The b i l l a l s o p r o v i d e s a mechanism by which the Commissions and towns c an, i n e f f e c t , s u b s i d i z e the purchase of l a n d f o r homes, by permanent r e s i d e n t s a o f the i s l a n d . T h i s measure i s i n t e n d e d to p r o t e c t the a l l - y e a r r e s i d e n t s from 66 b e i n g f o r c e d out by high l a n d c o s t s and to p r o v i d e some measure of p r o t e c t i o n f o r the e x i s t i n g communities. Rather than making a l l beaches on the i s l a n d s p u b l i c as i n the e a r l i e r b i l l , p r i v a t e ownership i s to be c o n t i n u e d except t h a t a r i g h t - o f - p a s s a g e easement i s to be c r e a t e d a t the high water mark. The d r a f t e r s of the b i l l f e l t t h a t i f a l l beaches were p u b l i c , i t would be d i f f i c u l t to r e g u l a t e dune buggies and o t h e r v e h i c l e s . However to s a t i s f y p u b l i c demands f o r beach a c c e s s , two new p u b l i c beaches are to be a c q u i r e d on Martha 1 s Vi neyard . Measures f o r p o l l u t i o n and e r o s i o n c o n t r o l are c l a r i f i e d i n the c u r r e n t b i l l . S e c t i o n 14 c a l l s f o r the co-o p e r a t i o n of the Commissions w i t h l o c a l , S t a t e and F e d e r a l a g e n c i e s to p r o v i d e s a f e g u a r d s a g a i n s t p o l l u t i o n of waters i n the T r u s t a r e a . T h i s s e c t i o n a l s o c a l l s f o r a s u r v e y of ground water s u p p l y . In the m a t t e r of e r o s i o n c o n t r o l , s i m i l a r co-o p e r a t i v e e f f o r t s are c a l l e d f o r and any works c a r r i e d out must conform w i t h a p l a n approved by the Commissions, the Governor and the S e c r e t a r y of the I n t e r i o r . A program f o r dune and headland e r o s i o n c o n t r o l i s to be c a r r i e d out to r e s t o r e damage and to p r e v e n t f u r t h e r damage of these f r a g i l e a r e a s . Employment o p p o r t u n i t i e s i n a q u a c u l t u r e and a g r i c u l t u r e and i n any f i e l d s a p p r o p r i a t e to the purposes of the A c t are to be i n v e s t i g a t e d and developed by the Commissions w i t h the co-o p e r a t i o n of o t h e r government a g e n c i e s . Funds are to be made 67 a v a i l a b l e f o r t h i s purpose. In a d d i t i o n , a g r i c u l t u r a l uses are to be encouraged on T r u s t l a n d s . ( T h i s p r o v i s i o n was added a f t e r c r i t i c s o f the b i l l c l a i m e d the 'slow growth' p o l i c i e s would put i s l a n d e r s out of work.) The Commissions are a l s o g i v e n the a d d i t i o n a l powers to r e s t r i c t h u n t i n g , f i s h i n g and t r a p p i n g " f o r reasons of p u b l i c h e a l t h , p u b l i c s a f e t y , f i s h or w i l d l i f e management, a d m i n i s t r a -t i o n , or p u b l i c use and enjoyment." The major i n t e n t of the new b i l l i s to p l a c e p r i o r i t y on c o n s e r v a t i o n and p r e s e r v a t i o n of unique areas on the i s l a n d s r a t h e r than on r e c r e a t i o n . R e c r e a t i o n a l uses w i l l c o n t i n u e to be of some p r i o r i t y but such uses must not j e o p r a d i z e the o b j e c t i v e of p r e s e r v i n g the environment. The b i l l a l s o p l a c e s a heavy emphasis on l o c a l p a r t i c i p a t i o n i n p l a n n i n g . Senator Kennedy spoke on t h i s i s s u e i n h i s i n t r o d u c t i o n to the l e g i s l a t i o n : On each (commission)3 there is a majority of local island people - an important factor both in terms of local knowledge being brought to bear on the problems3 and also in terms of enhancing the ability of a locally based institution to exercise some high degree of control over the is lands. (U.S. C o n g r e s s i o n a l Record, S. 1929) However, Senator Kennedy emphasizes t h a t l o c a l govern-ments al o n e c o u l d not e f f e c t i v e l y a c c o m p l i s h the o b j e c t i v e s o u t l i n e d i n the b i l l . Rather than r e l y i n g on one l e v e l of govern-ment, Kennedy f e e l s t h a t c o - o p e r a t i o n between the t h r e e l e v e l s can produce the most d e s i r a b l e r e s u l t s . 68 The b i l l then, seeks to create a new kind of partnership between the Federal3 State, and the local governments involved. It recognizes at the outset that most of the decisionmaking as i t relates to the future of the islands, belongs in the hands of the local people themselves. But i t also recognizes r e a l i s t i c a l l y that both the powers and the funds a v a i l a b l e at the State and Federal level are absolutely essential if the islands are to be preserved for future generations. I am convinced that only with the partner-ship of the type represented by the island trust b i l l can preservation and conservation e f f o r t s by successful overthe long term. One of the key lessons of the discussions over the past 18 months about these preser-vation and conservation methods has been a s t e a d i l y growing awareness that the town governments and county governments do not have the tools at t h e i r disposal to control, in any meaningful way, the development pressures. . . . at the same time i t has become plain that Federal l e g i s l a t i o n , to be successful, must wherever possible be f i t t e d together with whatever State and local laws are a v a i l a b l e to the people of the islands, or. may become a v a i l a b l e in the future. (U.S. C o n g r e s s i o n a l Record, S. 1929) 4.2.3 L i mi t a t i o n s The most unusual f e a t u r e of the b i l l i s the d e s i g n a t i o n of d i f f e r e n t c l a s s i f i c a t i o n s of l a n d by the l e g i s l a t i o n , w h i c h , to a l l i n t e n t s and p u r p o s e s , amounts to f e d e r a l z o n i n g . However/, i f the owner of l a n d s d e s i g n a t e d 'fo r e v e r w i l d 1 or ' s c e n i c p r e s e r -v a t i o n ' demonstrates " h a r d s h i p " due to such d e s i g n a t i o n the S e c r e t a r y i s r e q u i r e d by the l e g i s l a t i o n to purchase those l a n d s a t " f a i r market v a l u e " (S. 1959, Sec. 7 ) . T h i s l a n d c o n t r o l 69 t e c h n i q u e has been termed "encouraged z o n i n g " and has been upheld i n a U.S. f e d e r a l c o u r t i n an analogous case i n the E v e r g l a d e s N a t i o n a l Park ( B e a t t y and Munson, 1972). In an e x h a u s t i v e l e g a l a n a l y s i s of the Kennedy b i l l B e a t t y and Munson., (1 972) attempted to a s c e r t a i n whether the f e d e r a l government had the r e q u i s i t e p o l i c e powers to r e g u l a t e z o n i n g . They concluded t h a t t h e r e may be some j u s t i f i c a t i o n f o r f e d e r a l z o n i n g of p r i v a t e l a n d s where such l a n d s b o r d e r on f e d e r a l l a n d s , and where the use of the p r i v a t e l a n d s a f f e c t s the v a l u e of the f e d e r a l lands f o r the purposes of con-s e r v a t i o n . However, where t h e r e i s l i t t l e f e d e r a l l y owned l a n d i t appears u n l i k e l y t h a t such powers would be c o n s t i t u t i o n a l l y a p p r o p r i a t e . I t i s i n t e r e s t i n g to note however, t h a t o t h e r c r i t i c s of the b i l l have not q u e s t i o n e d the c o n s t i t u t i o n a l i t y o f the f e d e r a l power to zone. The p r o v i s i o n whereby landowners who prove undue ha r d -s h i p can s e l l t h e i r l a n d to the f e d e r a l government, may c i r -cumvent t h i s q u e s t i o n of l e g a l i t y . In t h i s c a s e , the p r i m a r y t o o l f o r l a n d use c o n t r o l would be government a c q u i s i t i o n . 4.2.4 F u r t h e r Developments On J u l y 16, 1973, the Senate I n t e r i o r Subcommittee on Parks and R e c r e a t i o n h e l d h e a r i n g s on the i s l a n d s to d i s c u s s the r e v i s e d b i l l {Time, J u l y 30, 1973). Over 2000 people a t t e n d e d these meetings to v o i c e t h e i r o p i n i o n s . A l a r g e number 70 of speakers p r o t e s t e d " o f f - i s l a n d e r 1 s" i n t e r f e r e n c e i n l o c a l m a t t e r s and o b j e c t e d to the proposed F e d e r a l z o n i n g c o n t r o l s . I n c l u d e d i n the o p p o s i t i o n was M a s s a c h u s e t t s S e n a t o r , Edward Brooke. At the c l o s e of the meetings Senator Kennedy asked o f f i c i a l s and r e s i d e n t s to prepare and submit to him, t h e i r p r o p o s a l s f o r p r o t e c t i v e l e g i s l a t i o n f o r the i s l a n d s . The P l a n n i n g Commission f o r Dukes County (which encompasses the s i x towns on Martha's V i n e y a r d and one on the E l i z a b e t h I s l a n d s ) h e l d a number of meetings on the i s l a n d s ; under the d i r e c t i o n o f A l e x F i t t i n g h o f f , i t drew up a p r o p o s a l i n the form of a d i s c u s s i o n paper, e n t i t l e d "Martha's V i n e y a r d Resource Management Fund" (vineyard Gazette, December 21, 1973). The p r o p o s a l was p r i n t e d i n t o the C o n g r e s s i o n a l Record December 10th at the r e q u e s t of Senator Kennedy. The p r o p o s a l d e c l a r e s " c e r t a i n n a t i o n a l p o l i c i e s e s s e n t i a l to the p r e s e r v a t i o n a n d c o n s e r v a t i o n of the l a n d s and w a t e r s " i n the proposed area and s e t s up a s t a t e a p p o i n t e d commission which can e n t e r i n t o agreements w i t h the f e d e r a l government to e s t a b l i s h programs of c o n s e r v a t i o n and p r o t e c t i o n f o r the i s l a n d s . The p r o p o s a l p l a c e s a heavy emphasis on l o c a l p a r t i c i p a t i o n and i n t e r g o v e r n -mental c o - o p e r a t i o n . On December 19, 1973 a j o i n t meeting was h e l d between f e d e r a l and s t a t e o f f i c i a l s to d i s c u s s the I s l a n d s T r u s t b i l l . No d e f i n i t e agreement was reached except t h a t c o n t r o l of development on the i s l a n d s must be a j o i n t f e d e r a l - s t a t e - 1 o c a l 71 e f f o r t . A statement i s s u e d a f t e r the meeting i n d i c a t e d t h a t both the S t a t e o f f i c e of Senator Brooke and the F e d e r a l o f f i c e of S e n a t o r Kennedy would " c o n t i n u e to work t o g e t h e r on d r a f t i n g r e v i s i o n s f o r c i r c u l a t i o n to I s l a n d r e s i d e n t s f o r t h e i r r e v i e w and comment" [vineyard Gazette, December 21, 1973). N e g o t i a t i n g s e s s i o n s have s i n c e been h e l d i n Boston and Washington and the f o u r t h v e r s i o n of the r e v i s e d I s l a n d s T r u s t b i l l i s expected to be r e - i n t r o d u c e d to Congress sometime d u r i n g the s p r i n g of 1974 (vineyard Gazette, February 22, 1974). 4.2.5 Comments Such a l e n g t h y r e v i s i o n p rocess i s having s u b s t a n t i a l e f f e c t s on the l i k e l y outcome of the l e g i s l a t i o n f o r the Nantucket Sound I s l a n d s . Some of these changes might p r o v i d e u s e f u l i n s i g h t s f o r the d r a f t e r s of the G u l f I s l a n d s l e g i s l a t i o n . A number of the more i m p o r t a n t p o i n t s are summarized below: 1 . The i n t e n t of the l e g i s l a t i o n changed from p r e s e r v i n g the i s l a n d s f o r r e c r e a t i o n and c o n s e r v a t i o n to c o n s e r -v a t i o n as the primary o b j e c t i v e . 2 . A p r o v i s i o n was added to l i m i t a ccess t o the i s l a n d s as a means of c o n t r o l l i n g i s l a n d 'growth.' 3. P r o v i s i o n s were added which would, perhaps i n d i r e c t l y , attempt to p r e s e r v e the i s l a n d e r s ' l i f e s t y l e . These i n -clu d e d encouragement of a c t i v i t i e s which would p r o v i d e f o r l o c a l employ-ment and s u b s i d i z a t i o n of ' R e s i d e n t Home Si t e s ' t o ensure t h a t l o c a l r e s i -dents are not f o r c e d t o move of>f the 72 i s l a n d s due to r i s i n g land c o s t s . These two measures are intended t o p r o t e c t the v i a b i l i t y of e x i s t i n g i s l a n d communities. 4. R e v i s i o n s gave some powers back to l o c a l ©ea:;l ^ governments . For example, i n the t h i r d v e r s i o n of the b i l l t he Commission c o u l d o n l y review and comment on town bylaws and p l a n s r a t h e r than approve or d i s a p p r o v e them as i n e a r l i e r v e r s i o n s . 5. I t was r e c o g n i z e d t h a t a d m i n i s t r a t i o n of the T r u s t would r e q u i r e f u l l co-o p e r a t i o n between l o c a l and s e n i o r l e v e l s of government. 6. I t was r e c o g n i z e d t h a t l o c a l powers and l o c a l r e s o u r c e s were inadequate to c o n t r o l r e c r e a t i o n a l developments on the i s l a n d s and t h a t the a s s i s t a n c e of s e n i o r governments was necessary i f lands of high s c e n i c and e c o l o g i c a l v a l u e s were to be p r e s e r v e d . The debate on the Nantucket Sound I s l a n d s has l a r g e l y c e n t r e d around the means by which c o n s e r v a t i o n a n d p r e s e r v a t i o n o b j e c t i v e s can be a c h i e v e d ( F i n k l e r , 1972). S i n c e the goal of c o n s e r v a t i o n of s p e c i a l v a l u e s on the i s l a n d s i s not i s d i s p u t e i t appears l i k e l y t h a t c u r r e n t d i f f e r e n c e s of o p i n i o n s w i l l be r e s o l v e d sometime i n the near f u t u r e and p r o t e c t i v e l e g i s l a t i o n f o r the i s l a n d s w i l l be e n a c t e d . 4.3 H o u s a t o n i c R i v e r V a l l e y T r u s t B i l l The o n l y o t h e r p r o p o s a l of the f e d e r a l ' t r u s t ' concept to date has been to a n o n - i s l a n d a r e a , the H o u s a t o n i c R i v e r V a l l e y i n C o n n e c t i c u t . The r i v e r o r i g i n a t e s i n the B e r k s h i r e 73 H i l l s of Massac h u s e t t s and runs through C o n n e c t i c u t f o l l o w i n g the Western boundary o f the s t a t e . I t empties i n t o Long I s l a n d Sound j u s t west of New Haven. A b i l l to c r e a t e the H o u s a t o n i c R i v e r V a l l e y T r u s t was i n t r o d u c e d to Congress, May 23, 1972 by Senator Abraham R i b i c o f f (U.S. C o n g r e s s i o n a l Record, S. 3633, Housatonic R i v e r ; V a l l e y T r u s t A c t , May 23, 1972). In most r e s p e c t s , the b i l l i s ve r y s i m i l a r to the Nantucket Sound I s l a n d s T r u s t b i l l . The b i l l p r o v i d e s f o r the c r e a t i o n of a Commission to a d m i n i s t e r c o n t r o l over development i n the d e s i g n a t e d area and i t s membership would i n c l u d e town, S t a t e and F e d e r a l r e p r e s e n t a t i v e s . A g a i n , t h r e e c l a s s i f i c a t i o n s of l a n d would be e s t a b l i s h e d and d e s i g n a t e d by the l e g i s l a t i o n : l a n d s f o r e v e r w i l d , s c e n i c p r e s e r v a t i o n l a n d s and town l a n d s . P r o v i s i o n i s made i n the b i l l f o r a f r e e z e on d e v e l o p -ment b e g i n n i n g t h i r t y days a f t e r enactment of the law r a t h e r than on the date of i n t r o d u c t i o n of the b i l l as d i d Kennedy's proposed l e g i s l a t i o n . S e n a t or R i b i c o f f t r e a t e d the i n t r o d u c t i o n of t h i s p i e c e of l e g i s l a t i o n as a commencing p o i n t i n a d i a l o g u e between l o c a l people and the v a r i o u s l e v e l s of government. He exp r e s s e d h i s d e s i r e f o r p u b l i c d i s c u s s i o n of the p r o p o s a l s and s t a t e d t h a t he would w a i t u n t i l consensus was reached b e f o r e r e - i n t r o d u c i n g l e g i s l a t i o n which the r e s i d e n t s would be agreed on. The f o l l o w i n g p o i n t s were made i n h i s i n t r o d u c t o r y speech: Time is running out on many of our great natural resources including the Housatonic River Valley. But those interested in pre-serving the valley, which lies on the edge of a r a p i d l y urbanizing area, cannot simply wall out a l l future development. What is needed is a vehicle to channel the i n e v i t a b l e forces of development in such a way as to protect the c u l t u r a l and natural resources without disrupting the local economy and the residents1 l i f e s t y l e s . . . . we must begin a dialogue directed toward saving this- area before i t is polluted by uncontrolled progress. (U.S. C o n g r e s s i o n a l Record, S. 3633) Chapter 5 EXAMINATION OF SIMILAR PURPOSE LEGISLATION FOR LAND USE CONTROL 5.1 H a w a i i , Land Use Law (1961) 5.1.1 Background The S t a t e of Hawaii passed i t s l a n d Use Law i n 1961, the f i r s t s t a t e to implement s t a t e - w i d e z o n i n g c o n t r o l s (Bosselman and C a l l i e s , 1971). The l e g i s l a t i o n c a l l e d f o r the c r e a t i o n of a Land Use Commission and d i r e c t e d t h i s Commission to c l a s s i f y a l l l a n d under f o u r c a t e g o r i e s : urban, r u r a l , a g r i c u l t u r e and c o n s e r v a t i o n . The o r i g i n a l purpose of the A c t was to p r e s e r v e f a r m l a n d s i n c e o n l y a s m a l l p e r c e n t a g e of the l a n d area i n Hawaii i s s u i t a b l e f o r c r o p s . A secondary purpose was to r e s t r i c t the growth of H o n o l u l u , the S t a t e ' s l a r g e s t c i t y (Appendix D). Soon a f t e r the l e g i s l a t i o n was e n a c t e d , the Commission s e t to work d e f i n i n g the l a n d use a r e a s . Areas c l a s s i f i e d as urban i n c l u d e d the c u r r e n t urban area p l u s a ' r e s e r v e ' area 75 76 which would accommodate the e s t i m a t e d need of ten y e a r s growth. R u r a l areas i n c l u d e d n o n - a g r i c u l t u r a l l a n d s which c o n t a i n e d low d e n s i t y r e s i d e n t i a l uses. A g r i c u l t u r a l areas were comprised of crop and g r a z i n g l a n d s a l o n g w i t h i n d u s t r y a s s o c i a t e d w i t h a g r i c u l t u r e , p l u s any lands not f a l l i n g under the o t h e r t h r e e c a t e g o r i e s . T h e c c o n s e r v a t i o n zones i n c l u d e d i n 1961, a l l the e x i s t i n g F o r e s t and Water Reserve Zones which were state-owned. P r i v a t e lands were not i n c l u d e d i n t h i s c a t e g o r y u n t i l the bou n d a r i e s were r e v i s e d i n 1969. These c l a s s i f i c a t i o n s were i n c o r p o r a t e d i n t o a g e n e r a l l a n d use p l a n which was o f f i c i a l l y adopted i n 1964. 5.1.2 Commi s s i o n The nine-member commission a p p o i n t e d by the Governor i s made up of seven p r i v a t e c i t i z e n s and two government r e p r e -s e n t a t i v e s ( Hawaii Rev. S t a t . , Ch. 205, 1968). The government r e p r e s e n t a t i v e s i n c l u d e the D i r e c t o r of the Department of Land and N a t u r a l Resources and the D i r e c t o r of the Department of P l a n n i n g and Economic Development. The c i t i z e n s a r e a p p o i n t e d from each of the s i x s e n a t o r i a l d i s t r i c t s w i t h the e x c e p t i o n o f one who i s a p p o i n t e d a t l a r g e . There i s no compensation f o r s e r v i c e s except reimbursement f o r expenses. The Commission e l e c t s i t s chairman from among i t s members (Bosselman and C a l l i e s , 1971). 77 On the a v e r a g e , the Commission meets two to f o u r times a month a t v a r i o u s l o c a t i o n s around the s t a t e . Meetings are h e l d , p r i m a r i l y f o r the purpose of c o n s i d e r i n g p e t i t i o n s f o r changes i n z o n i n g . The s t a f f i n c l u d e s one e x e c u t i v e d i r e c t o r and one p l a n n e r . 5.1.3 A d m i n i s t r a t i o n A p e t i t i o n f o r a z o n i n g or boundary change i s r e f e r r e d to the a p p r o p r i a t e County P l a n n i n g Commission f o r i t s recommen-d a t i o n s . F o l l o w i n g t h i s a p u b l i c h e a r i n g i s h e l d i n the appro-p r i a t e County. When a l l views have been h e a r d , the Commission votes on the m a t t e r ; s i x out of n i n e votes c a r r i e s the m o t i o n . The m a j o r i t y of z o n i n g changes s i n c e 1964 have been to urban uses.(Chang, 1970). In i t s d e c i s i o n s the Commission has f a v o u r e d r e z o n i n g areas i m m e d i a t e l y a d j a c e n t to e x i s t i n g urban a r e a s . In these cases the Commission puts the onus on the a p p l i c a n t to prove why the development cannot t a k e p l a c e w i t h i n the a l r e a d y zoned urban a r e a . The s t a t u t e r e q u i r e s t h a t the d i s t r i c t b o u n d a r i e s be reviewed every f i v e y e a r s ; the f i r s t r e v i s i o n o c c u r r e d i n 1969. A group of c o n s u l t a n t s was h i r e d a t t h i s time to p r o v i d e a comprehensive overview of l a n d use i n the s t a t e and to i n -d i c a t e f u t u r e t r e n d s i n l a n d r e q u i r e m e n t s (Eckbo, et al.3 1969). 78 In 1970 the Legis la ture passed two major amendments to the Land Use Law. The f i r s t amendment made provis ion for the granting of permits by the Commission, to allow certa in "unusual and reasonable uses" within agr i cu l tu ra l and rural d i s t r i c t s , other than those uses already spec i f i ed (Hawaii Rev. S t a t . , C. 205 (1968) as amended (1970)). Hearings must be held before the approval of such permits. A second amendment dealt with shorel ine protect ion and empowered the Commission to make regulat ions for setbacks of between twenty and for ty feet from the high water mark. A number of uses are prohibi ted in the setback area and these include the removal of sand and rock, and any construct ion "not necessary for safety and the protect ion of property . " The regulat ions are to be administered and enforced by the planning departments of each county. 5.1.4 Legi s l a t i ve Limi tat ions The l eg i s l a t i on requires the Commission to c l a s s i f y a l l lands in the State into one of four categories and to make decis ions on appl icat ions for land use changes. The Commission is given no c lear d i rec t i ve on the p r i o r i t y of the four major land uses and in add i t ion , is not s p e c i f i c a l l y d i rected to estab l ish land use pol icy which would give p r i o r i t y to a set of goals . The Commission has, to date, been weak in i t s development of pol icy and consequently has not taken a hard l i ne in the preservation of farmland (Chang, 1970). Chang recommends 79 several a l te rnat ive remedies, one being to inser t a statement into the law proh.ibitng the conversion of prime agr i cu l tu ra l land to other uses. The minimum lo t s ize (1 acre) in ag r i cu l tu ra l d i s t r i c t s has been c r i t i c i z e d as being too small (Eckbo et al. 3 1969). Recommendations have been made to increase the minimum lo t s ize in these zones to f i ve acres. By s ta tu te , land use within the Conservation d i s t r i c t s is regulated by the Department of Land and Natural Resources and the Counties exercise no control in these areas. This provis ion has created a s i gn i f i c an t amount of f r i c t i o n between local planning agencies and the State agency (Chang, 1970). Recommendations have been made to allow special county-approved permits such as exist in the agr icu l ture and rural d i s t r i c t s (Eckbo et al. 3 1969). The Conservation d i s t r i c t s comprise 45% of the land area of Hawaii and consequently zoning within these areas is quite important. The l e g i s l a t i o n suggests that there should be areas within conservation zones for the protect ion of water-sheds, scenic and histor icaareas etc . However, some c r i t i c s feel that these d i s t r i c t s need to be further protected by the preparation of comprehensive general plans to include subzones re la t ing to spec i f i c resource categories (Eckbo et al.3 1969). There is a statutory requirement for publ ic hearings in the event of appl icat ions for d i s t r i c t boundary changes. However, hearings are not required when an app l i ca t ion is made 80 f o r a permit ted use in a conservat ion d i s t r i c t . The Eckbo repor t (1969) notes that the Department of Land and Natura l Resources has sometimes al lowed "non -permi t ted uses" wi thout a p u b l i c h e a r i n g ; the repor t suggests that the p u b l i c should be heard before d e c i s i o n s are made on uses permit ted in con -s e r v a t i o n d i s t r i c t s . The r e v i s e d General Plan f o r the State recommended " implementat ion procedures in the Land Use Law should be c l a r i f i e d and areas of c o n f l i c t between State and County respo s i b i l i t i e s e l i m i n a t e d " ( H a w a i i , 1967) . Both the General P lan R e v i s i o n Program and the Eckbo repor t recommended tha t the l e g i s l a t i o n should prov ide f o r g reate r p a r t i c i p a t i o n by the County in land use c o n t r o l programs (Chang, 1970) . A study requested by the s t a t e Senate and completed 1970 by the L e g i s l a t i v e Reference Bureau made a number of recommendations f o r l e g i s l a t i v e changes i n the Land Use Law (Chang, 1970) . The four major recommendations were: 1. i n c r e a s e membership of the Land Use Commiss ion ( a l t e r n a t i v e s range from e l e v e n t t o twenty p l u s members) 2 . r e t a i n pr ime a g r i c u l t u r a l land in a g r i c u l t u r a l use (and c l a r i f y goa l p r i o r i t i e s ) 3. adopt subzone c l a s s i f i c a t i o n s in c o n -s e r v a t i o n d i s t r i c t s (and reduce t h e u r b a n - t y p e uses c u r r e n t l y p e r m i t t e d in t h i s d i s t r i c t ) 4. adopt the c o n c e p t of i n c r e m e n t a l z o n i n g by s t a t u t e t o f o r c e c o m p l i a n c e w i t h o r i g i n a l deve lopment p l a n s ( i . e . approve z o n i n g changes f o r each deve lopment i ncrementa M y ) 81 In a d d i t i o n , the author of t h i s r e p o r t , Chang, quest ioned the usefu lness of r u r a l d i s t r i c t d e s i g n a t i o n s on the argument that these d i s t r i c t s appear to be e s s e n t i a l l y a g r i c u l -t u r a l or conservat ion and so could be r e c l a s s i f i e d to one or the other ca tegory . A f i n a l suggest ion by Chang was that S ta te agencies improve the a c c e s s i b i l i t y and o r g a n i z a t i o n of data r e l a t i n g to land use. 5 . 1 . 5 Comments One of the most common c r i t i c i s m s of the Hawaiian Land Use Commission i s the time requ i red to process rezoning a p p l i -c a t i o n ; t h i s v a r i e s from four and a h a l f months to one year (Bosseiman and C a l l i e s , 1971) . This i s due, at l e a s t i n p a r t , to the extremely small s t a f f and the low budget of the Commission. The Commission has r e c e n t l y begun to take an " i n c r e -mental approach" to approving rezoning a p p l i c a t i o n s f o l l o w i n g the recommendation of the L e g i s l a t i v e Reference Bureau (Chang, 1970) . The Commission grants only a smal l p o r t i o n of the rezoning at a time in order to ensure that the developer i n v e s t s h e a v i l y i n the i n i t i a l phases which u s u a l l y i n c l u d e i n s t a l l a t i o n of the s e r v i c e s f o r the p r o j e c t . In order to r e c e i v e the r e s t of the rezoning the developer must car ry out h is scheme i n the o r i g i n a l concept . Although t h i s approach has been c r i t i c i z e d by d e v e l o p e r s , i t i s g e n e r a l l y cons idered to prov ide an i n n o -v a t i v e mechanism to assure compliance to the o r i g i n a l , approved proposal (Eckbo, 1969; Chang, 1970) . 82 The f ive year review of zoning boundaries in 1969 drew some cr i t ic ism that inadequate public notice was given by the Commission (Bosselman and C a l l i e s , 1971). In some cases l i t i ga t ion was in i t iated against the Commission and the Commission has subsequently considered several appeals on the boundary changes. One of the major weaknesses in the administration of the Act has been the lack of specified procedure and resources for enforcement. The statute specifies that the County is responsible for enforcing the law but the Commission has neither the staff nor the time to ensure that this is being done. Charges of conf l ic t of interest were levied against some Commission members during the 1970 state election campaign. The resulting publicity damaged the reputation of the Commission (Bosselman and Ca l l i es , 1971, Meckler, 1973). No doubt the most serious weakness of the Commission has been i t s inab i l i t y to draw up clearly specified policy guidelines for future land use in the State. On the whole the Land Use Commission appears to have met with some success considering the limited resources i t has been provided with. There is general agreement that there has been increased co-ordination between state agencies where i t has been necessary to receive the approval of the Land Use Commission (Bosselman and Ca l l i es , 1971). Local administra-t ions, although often c r i t i c a l of the Commission, conceded that 83 they r e l y on the Commission and the Land Use Law to w i t h s t a n d l o c a l p o l i t i c a l p r e s s u r e s . Bosselman and C a l l i e s (1971) i n an e x t e n s i v e s t u d y of the Hawaiian Land Use Law i d e n t i f y a need f o r the c o - o r d i n a t i o n of e x i s t i n g tax p o l i c i e s w i t h l a n d use d e s i g n a t i o n s . In t h e i r c o n c l u s i o n s they r e p e a t the o p i n i o n of the Counsel of the Hawaii County C o r p o r a t i o n t h a t "the Commission needs b e t t e r a r t i c u l a t e d p l a n n i n g s t a n d a r d s and fewer ad hoc d e c i s i o n s . A s e r i e s of seminars sponsored by the G e o r g i a I n s t i t u t e r of Technology and h e l d between 1967 and 1971, examined o f f i c i a l s t a t e p l a n n i n g programs i n f i f t y American s t a t e s ( C a t a n e s e , 1972). The programs were a n a l y z e d f o r nin e elements on the b a s i s o f f o u r methods o f a n a l y s i s . E I e m e n t s : I. s t a t e d e v e l o p m e n t p l a n 2 . f u n c t i o n a l p l a n n i n g c o - o r d i n a t i o n 3. f u n c t i o n a l r e g i o n a l c o - o r d i n a t i o n 4. t e c h n i c a l a s s i s t a n c e 5 . i n f o r m a t i o n s y s t e m 6. b u d g e t 7. r e g u l a t o r y c o n t r o l s 8. r e s e a r c h c a p a c i t y 9 . c a p a c i t y f o r l o c a l p l a n n i n g s u p p o r t M e t h o d s : I. a n a l y s i s o f t h e p u b l i c a t i o n s , p l a n s e t c . o f t h e o f f i c i a l s t a t e p l a n n i n g a g e n c i e s 2 . o p i n i o n s u r v e y o f e l e c t e d a n d a p p o i n t e d o f f i c i a l s o u t s i d e t h e p l a n n i n g a g e n c i e s . 3 . i n t e r e s t s e x p r e s s e d by c h i e f p l a n n e r s i n s t a t e p l a n n i n g a g e n c i e s 4. a n a l y s i s o f t h e e f f e c t i v e n e s s o f e a c h o f f i c i a l s t a t e p l a n n i n g a g e n c y 84 For the nine elements of Hawaii's p l a n n i n g program, the S t a t e s c o r e d ' s i g n i f i c a n t ' on each, based on an aggregate measure of the f o u r methods. In t h i s survey Hawaii r e c e i v e d the h i g h e s t e v a l u a t i o n of a l l s t a t e p l a n n i n g programs. Other o b s e r v e r s have been more c r i t i c a l . A s t u d e n t study c a r r i e d out i n 1 9 7 3 a t the S t a t e U n i v e r s i t y of New York a n a l y z e d the General P l a n f o r Hawaii and the v o t i n g r e c o r d s of the Land Use Commission ( M e c k l e r , 1 9 7 3 ) . The stu d y c r i t i c i z e d the Commission f o r f o l l o w i n g the recommendations of t h e i r s t a f f o n l y 77 per cent of the time and f o r f o l l o w i n g the recommenda-t i o n s of the county o f f i c i a l s o n l y 76 per cent of the tim e . The d i f f e r e n c e s r e p r e s e n t e d m o s t l y a p p r o v a l s by the Commission where r e f u s a l s had been recommended. The stu d y a l s o c l a i m e d t h a t seven commissioners showed " b i a s to t h e i r home i s l a n d " i n t h e i r v o t i n g r e c o r d s . I t was M e c k l e r ' s o p i n i o n t h a t the Commission has not a c h i e v e d i t s o b j e c t i v e of p r e s e r v i n g a g r i -c u l t u r a l l a n d d u r i n g i t s t w e l v e y e a r s of o p e r a t i o n . 5 . 2 Vermonti Environmental ControUlaaw (f97>0) 5 . 2 . 1 Background In the past decade Vermont has r e c e i v e d a l a r g e i n f l u x o f v a c a t i o n home buyers and s k i - r e s o r t d e v e l o p e r s (Mosena, 1 9 7 3 ) . In response to t h i s p r e s s u r e , l e g i s l a t o r s i n 1 9 6 7 extended the a u t h o r i t y of l o c a l governments to c o n t r o l the use of l a n d 85 under t h e i r j u r i s d i c t i o n by i n c r e a s i n g the f l e x i b i l i t y of z o ning and p l a n n i n g commissions (Bosselman and C a l l i e s , 1971). Under the Vermont A d m i n i s t r a t i v e Procedures A c t , s t a t e a g e n c i e s were g i v e n broad a u t h o r i t y to adopt r e g u l a t i o n s w i t h i n t h e i r s t a t u t o r y area of competence (Vermont A c t No. 360, 1967). However, t h i s broadening of power appeared to be i n a d e q u a t e to the t a s k as demands f o r r e c r e a t i o n a l and r e s i d e n t i a l l a n d s c o n t i n u e d to i n c r e a s e a t a f a s t r a t e . In 1969 the Governor c r e a t e d a s p e c i a l Commission on E n v ironmental C o n t r o l to which both l e g i s l a t o r s and c i t i z e n s were a p p o i n t e d . The Commission was i n s t r u c t e d to hold h e a r i n g s and to submit a r e p o r t to the L e g i s l a t u r e . As an i n t e r i m measure the Commission recommended t h a t the H e a l t h Department adopt s u b d i v i s i o n r e g u l a t i o n s " c o n t r o l ! i hg water and sewage d i s p o s a l . In i t s f i n a l r e p o r t i t proposed a s t a t e - w i d e system of l a n d use p l a n n i n g w i t h the p r i m a r y o b j e c t i v e of e n s u r i n g e n v i r o n m e n t a l p r o t e c t i o n . The Commission s t a t e d i n i t s r e p o r t : A basic goal . . . should be the preparation of a comprehensive land use plan for the State of Vermont to be undertaken as soon as practical and completed within a period of one year. Secondly3 such a plan and its subsequent administration should be the responsibility of an effective administra-tive unit clearly charged with the respon-s i b i l i t y of protecting the environment. . . . (Vermont, 1970) 86 In 1970 the s t a t e l e g i s l a t u r e adopted A c t No. 250 known as the Envi r o n m e n t a l C o n t r o l Law which embodied the major recommendations made by the Governor's Commission ( A c t No. 250, Ch. 1515, 1970) (Appendix E ) . 5.2.2 Commission The A c t p r o v i d e s f o r the e s t a b l i s h m e n t of an E n v i r o n -mental Board a p p o i n t e d by the Governor. There are nin e members which s e r v e p a r t - t i m e on a per diem b a s i s . Members ser v e f o u r y e a r terms and t h e i r appointments are s t a g g e r e d ; the chairman s e r v e s two y e a r s . To date the members have been chosen to r e p r e s e n t a v a r i e t y of i n t e r e s t s i n c l u d i n g both development and c o n s e r v a t i o n i n t e r e s t s . The Board i s an independent r e g u l a t o r y body l o c a t e d w i t h i n the Agency of Envi r o n m e n t a l C o n s e r v a t i o n which i s a new u m b r e l l a agency f o r s t a f f and budget purposes but f o r o t h e r f u n c t i o n s i s independent. The Board has two major f u n c t i o n s : 1. a judgement function in the issuing of development and subdivision permits, 2. a planning function in the approval of a statewide comprehensive land use plan (Bosselman and C a l l i e s , 1971). The l e g i s l a t i o n a l s o c r e a t e d n i n e D i s t r i c t Commissions having t h r e e members each. The members s e r v e on a per diem b a s i s f o r a two y e a r term and are a p p o i n t e d from each d i s t r i c t 87 by the gov e r n o r . Members s e r v e on the av e r a g e , one day a week or one day b i w e e k l y . The chairman s e r v e s one year and, i n an a c t i v e D i s t r i c t , works v i r t u a l l y f u l l t i m e . 5.2.3 Admi ni s t r a t i on The major a d m i n i s t r a t i v e f u n c t i o n of the D i s t r i c t Commissions i s the i s s u a n c e of development p e r m i t s f o r both commercial and i n d u s t r i a l developments (ove r 10 a c r e s ) and r e s i d e n t i a l developments (over 10 a c r e s or 10 l o t s ) . In a d d i t i o n p e r m i t s are a l s o r e q u i r e d f o r any development by m u n i c i p a l or s t a t e a g e n c i e s and developments of any type above an e l e v a t i o n of 2500 f e e t above sea l e v e l . The D i s t r i c t Commissions hold h e a r i n g s on a p p l i c a t i o n s f o r p e r m i t s , i f a r e q u e s t i s made by a m u n i c i p a l i t y , m u n i c i p a l and r e g i o n a l p l a n n i n g commission, any s t a t e a g e n c i e s or a d j o i n i n g p r o p e r t y owners. These same i n d i v i d u a l s and groups have the s t a t u t o r y r i g h t to appear b e f o r e a Commission a t the p u b l i c h e a r i n g . The pr o c e s s f o r i s s u a n c e of a p e r m i t i s b r i e f l y de-s c r i b e d as f o l l o w s , based on t h e . s t u d y made by Bosselman and C a l l i e s ( 1 9 7 1 ) : The a p p l i c a n t f i l e s f i v e c o p i e s of the a p p l i c a -t i o n and s u p p o r t i n g e v i d e n c e w i t h the r e g i o n a l c o - o r d i n a t o r who a c c e p t s them f o r the D i s t r i c t Commission. P u b l i c n o t i c e of the a p p l i c a t i o n i s a l s o g i v e n and a t t h i s time p r o p e r t y owners may r e q u e s t p e r m i s s i o n to be heard. Two c o p i e s are forwarded 88 to the En v i r o n m e n t a l Board, one of which i s passed on to the Agency 250 Review Committee which i s a s p e c i a l i n t e r d e p a r t m e n t a l body to c o - o r d i n a t e s t a t e r e view of p e r m i t s . Another copy i s sen t to the l o c a l 'environmental a d v i s o r ' who makes an o n s i t e i n s p e c t i o n which he r e p o r t s to the S t a t e . A c h a l l e n g e by any p a r t y n e c e s s i t a t e s a h e a r i n g which i s n o r m a l l y h e l d w i t h i n twenty days of an a p p l i c a t i o n (so f a r h e a r i n g s have been h e l d on a l l a p p l i c a t i o n s as a matter of p o l i c y ) . A p p l i c a t i o n s are p r o c e s s e d by the P r o t e c t i o n D i v i s i o n of the Agency o f E n v i r o n -mental C o n s e r v a t i o n which i s r e s p o n s i b l e f o r s e e i n g t h a t a l l a p p r o p r i a t e s t a t e departments r e v i e w the a p p l i c a t i o n s . F o l l o w -i n g t h i s r e v i e w the D i v i s i o n summarizes a l l comments, prepares i t s own p o s i t i o n paper and submits both documents to. the Agency 250 Review Committee. The f i n a l Agency 250 p o s i t i o n paper i s p r e s e n t e d a t the p u b l i c h e a r i n g . The paper g e n e r a l l y does not recommend a fit a t d e n i a l or a p p r o v a l but r a t h e r l i s t s a number of c o n d i t i o n s which the s t a t e f e e l s s h o u l d be imposed upon the development. B e f o r e a D i s t r i c t Commission may g r a n t a p e r m i t , i t must f i n d t h a t the development: 1. Will not result in undue water or a i r poIlution. 2. Does have s u f f i c i e n t water a v a i l a b l e for the reasonably foreseeable needs of the subdivision or development. 3. Will not cause an unreasonable burden on an e x i s t i n g water supply i f one i s to be u t i l i z e d . 89 4. Will not cause unreasonable s o i l erosion or reduction in the capacity of the land to hold water so that a dangerous or unhealthy condition may r e s u l t . 5. Will not cause unreasonable highway con-gestion or unsafe conditions with respect to use of the highways e x i s t i n g or proposed. 6. Will not cause an unreasonable burden on the a b i l i t y of a municipality to provide educational services. 7. Will not place an unreasonable burden on the a b i l i t y of the local government to provide governmental services. 8. Will not have an undue adverse effect on the scenic or natural beauty of the area. 9. Is in conformance with a duly adopted development plan3 land use plan or land c a p a b i l i t y plan. 10. Is in conformance with any duly adopted local or regional plan. (Act No. 250, S. 6086) The burden of p r o o f i s on the a p p l i c a n t f o r c r i t e r i a numbered 1 to 4, 9, and 10, and on any opposing p a r t i e s f o r c r i t e r i a 5 through 8. In making i t s d e c i s i o n the Commission c o n s i d e r e d the e v i d e n c e p r e s e n t e d , c o n f o r m i t y of the a p p l i c a t i o n to l o c a l and r e g i o n a l p l a n s , and the ten s t a t u t o r y g u i d e l i n e s s e t out i n S e c t i o n 6086 of the Law. In t h e i r d e c i s i o n s the Commissions have a l s o i n c l u d e d a e s t h e t i c , h i s t o r i c a l and e c o l o g i c a l c o n s i d e r a t i o n s . The Envioronmental Board s e r v e s as the body of appeal f o r d e c i s i o n s made at the D i s t r i c t l e v e l . Only the a p p l i c a n t , 90 a s t a t e agency or the r e g i o n a l or m u n i c i p a l p l a n n i n g commissions can appeal such a d e c i s i o n . F u r t h e r appeal may be made to the Supreme Court (see Chart 1 f o r a summary of the p e r m i t r e v i e w s y s t e m ) . 5.2.4 P l a n n i ng I t i s a l s o the r e s p o n s i b i l i t y of the En v i r o n m e n t a l Board to adopt t h r e e s t a t e p l a n s . The f i r s t i s an " i n t e r i m l a n d c a p a b i l i t y arid development p l a n which w i l l d e s c r i b e the p r e s e n t use o f the l a n d and d e f i n e i n broad c a t e g o r i e s the c a p a b i l i t y of the l a n d f o r development and use based on e c o l o g i c a l c o n s i d e r a -t i o n s " (Act No. 250, S. 6041). The second, the l a n d c a p a b i l i t y and development p l a n has the ge n e r a l purpose of " g u i d i n g and a c c o m p l i s h i n g a c o - o r d i n a t e d , e f f i c i e n t and economic development of the s t a t e , which w i l l . . . bes t promote the h e a l t h , s a f e t y , o r d e r , c o n v e n i e n c e , p r o s p e r i t y and w e l l being of the i n h a b i t a n t s , as w e l l as e f f i c i e n c y and economy i n the proc e s s of development" (Ac t No. 250 , S. 604.2). The t h i r d p l a n i s a l a n d use p l a n based on the c a p a b i l i t y and development p l a n . I t i s to c o n t a i n a map of p r e s e n t and p r o j e c t e d l a n d uses i n the s t a t e and i s to be implemented by the enactment of s u b d i v i s i o n r e g u l a t i o n s and z o n i n g c o n t r o l l s at the l o c a l l e v e l . On J u l y 1, 1973 amendments to t h e " E n v i r o n m e n t a l C o n t r o l Law were made which i n c l u d e d t h e s o f f i ei'al cadopt j l o n t o f rtbe l a n d ' -c a p a b i l i t y p l a n as s t a t e p o l i c y . The t h i r d p l a n , t h e l a n d use pla n i s to be adopted i n 1974. The i n t e r i m l a n d c a p a b i l i t y CHART 1 91 STRUCTURE OF THE VERMONT ENVIRONMENTAL PROTECTION SYSTEM (not a l l i n c l u s i v e ) ACT 250 REVIEW PROCESS • LOCAL REVIEW PROCESS STRUCTURE OF TILE VERMONT ENVIRONMENTAL PROTECTION SYSTEM (not a l l inc lus ive) Partte» t o C t f t r i c t C o n c i s i o n Proceedings I . The S t a t e Review P r o c e s s T h i s i s the t r a d i t i o n a l s t r u c t u r e oi p o r n i t s and l i c e n s e s r e q u i r e d i n rr.ost s l a v e s . With i n c r e a s e s i n developmental p r e s s u r e , they have responded w i t h i n c r e a s -i n g l y d e t a i l e d r e g u l a t i o n in t h e i r r e s p e c t i v e a r e a s . The s t a t e i s b e i n g r e o r g a n i z e d i n c a b i n e t l e v e l super a g e n c i e s which nroup do pa r tnen ts fjnctt.or . 3 l l y . While n a t u r a l r e s o u r c e s are g e n e r a l l y r e p r e s e n t e d i n the Agency o f Env trc:\r cn t a 1 Cor. se c va t ton , note that o t h e r A g e n c i e s have departments w i t h a s i g n i f i c a n t r e l a t i o n s h i p t o e n v i r o n m e n t a l c o n c e r n s . I I . A c t 250 Review p r o c e s s W h i l e t h i s i s a c r e a t u r e o f the s t a t e government, i t i s the Agency 2S0 Co::rr.itt.ee t h a t p r o v i a c u a s t a t e r e v i e w l i a i s o n . The d i s t r i c t c m n i s s i o n i s a q u a s i -l o c a l body t h a t has the c a p a c i t y to d e a l w i t h a l l i n t e r -e s t e d l o c a l p a r t i e s . I I I . Loca I Review p r o c e s s In ir-ost coiTununi t i c s t h i s i s weak o r n o n e x i s t e n t . Where i t e x i s t s i t can be as po w e r f u l as the d i s t r i c t corcmiss i o n . Thus, w h i l e the d i s t r i c t c o m s s i o n may Open the eyes or" q u i e s c e n t I oca I p l a n n e r s , a s o p h i s t i -c a t e d l o c a l r e v i e w p r o c e s s w i l l p r o b a b l y j c p e r a t e i n d e -p e n d e n t l y . It is not u n u s u a l t o r l o c a l p e o p l e to d i s -approve p r o j e c t s approved by l o c a l d i s t r i c t , c o rnmissions. IV. The R e g i o n a l p l a n n i n g Cotsmi3sion T h i s corrjnission s i t s between l o c a l , 250, and a t a t e p l a n s and r e g u l a t i o n s . The 253 l e g i s l a t i o n e s -s e n t i a l l y b y passed i t . A l t h o u g h c o n f u s i n g l y s i m i l a r i n narr.e, the d i s t r i c t CCT-TISS i o n and the r e g i o n a l com-m i s s i o n are a d m i n i s t r a t i v e l y i n dir't'erent j u r i s d i c t i o n s , g e o g r a p h i c a l l y not co-ex t e n s i v e , ana e x e r c i s e v e r y d i f -f e r e n t f u n c t i o n s . However, the r e g i o n a l p l a n i s o t the s t a t u t o r y c r i t e r i a which must be met tot an A c t 250 p e r n i t . SOURCE: F. Bosselman, D. C a l l i e s , Land Use Control, 1971. The Quiet Revolution in 92 p l a n was i n e f f e c t between 1971 and J u l y 1, 1973 (Bureau of N a t i o n a l A f f a i r s I n c . , June 15, 1973). A l t h o u g h the E n v i r o n m e n t a l Board i s v e s t e d w i t h the a u t h o r i t y to approve the s t a t e p l a n s , p l a n n i n g remains an e x e c u t i v e f u n c t i o n of the Governor (Bosselman and C a l l i e s , 1971). A S t a t e P l a n n i n g Committee composed of the Governor, h i s c a b i n e t , and the chairman of the Environmental Board has.been c r e a t e d to s u p e r v i s e the s t a t e p l a n n i n g s t a f f s . In a d d i t i o n , r e g i o n a l t a s k f o r c e s have been c r e a t e d to c o - o r d i n a t e p l a n n i n g a c i t i v i t e s a t the l o c a l and r e g i o n a l l e v e l s . The S t a t e P l a n S t e e r i n g Committee r e c e i v e s r e p o r t s from the r e g i o n a l t a s k f o r c e s and c a r r i e s out the work of p l a n p r e p a r a t i o n . 5.2.4 L e g i s l a t i v e L i m i t a t i o n s Due to the s h o r t time t h i s s t a t e p l a n n i n g program has been i n o p e r a t i o n , weaknesses i n the s t r u c t u r e are d i f f i c u l t to s e p a r a t e from o p e r a t i n g problems which stem from i t s 'newness. 1 However, s e v e r a l l i m i t a t i o n s of the l e g i s l a t i o n have been noted by Bosselman and C a l l i e s (1971) a f t e r c o n d u c t i n g i n t e r v i e w s w i t h a number of people i n v o l v e d i n the p r e s e n t p l a n n i n g p r o c e s s . A l i m i t a t i o n i n the scope of development c o n t r o l a r i s e s from the number of exemptions a l l o w e d by the A c t . N o t a b l e among these are developments by p u b l i c u t i l i t i e s , f o r e s t r y and f a r m i n g r e l a t e d a c t i v i t i e s , and developments having p l a n s which e x i s t e d p r i o r to enactment of the l e g i s l a t i o n . The s t a t u t o r y d e f i n i t i o n of " s u b d i v i s i o n s " tends to encourage the development 93 of l a r g e l o t s over ten a c r e s ; such developments c o u l d p o t e n t i a l l y harm the environment as much as s m a l l e r l o t s u b d i v i s i o n s . There i s a s u b s t a n t i a l degree of s e p a r a t i o n of r e -s p o n s i b i l i t i e s between the E n v i r o n m e n t a l Board and the s t a t e p l a n n i n g process as the s t a t e p l a n n i n g committees and departments r e t a i n most of the c o n t r o l over the p r e p a r a t i o n of s t a t e l a n d use p l a n s . The d i s t r i c t commissions do not have any s t a t u t o r y r e s p o n s i b i l i t y to p r o v i d e i n p u t to these p l a n s a l t h o u g h t h e r e i s p r o v i s i o n f o r them to make comments. There appear to be v a r y i n g p e r c e p t i o n s between the p l a n n e r s who are implementing the law and both the Commission members and the d e v e l o p e r s (Bosselman and C a l l i e s , 1971). The former view the p l a n s as ' f l e x i b l e i n s t r u m e n t s ' to a s s i s t i n e s t a b l i s h i n g development p o l i c y , w h i l e the l a t t e r view them as z o n i n g . The view of s t a t e p l a n s as z o n i n g r a t h e r than p o l i c y p l a n s accounts f o r the c o m p l i c a t e d procedure which has b u i l t up around t h e i r a p p r o v a l . 5.2.5 Comments The Environmental C o n t r o l A c t of Vermont appears to have met w i t h a f a i r degree of i n i t i a l s u c c e s s i n c o n t r o l l i n g u n d e s i r a b l e development i n the o p i n i o n of Bosselman and C a l l i e s (1971). The d i s t r i c t commissions have a d j u s t e d procedures to l o c a l c o n d i t i o n s and thus seem to o f f e r a wide degree of f l e x i b i l i t y . Development p r o p o s a l s can a l s o be opposed by l o c a l p l a n n i n g commissions, r e g a r d l e s s o f the d i s t r i c t commission's d e c i s i o n and t h e i r r e f u s a l can be recommended to the l o c a l 94 c o u n c i l which p r o v i d e s an a d d i t i o n a l measure of c o n t r o l . In the o p i n i o n of Bosselman and C a l l i e s ( 1 9 7 1 ) , d i s t r i c t commissions are a p p l y i n g broad p o l i c y g u i d e l i n e s to t h e i r d e c i s i o n s and they are t a k i n g an e x p a n s i v e i n t e r p r e t a t i o n of the term " e n v i r o n -mental p r o t e c t i o n . " The o b j e c t i v e of p r o t e c t i n g areas of s t a t e - w i d e i n t e r e s t i s b e g i n n i n g to be f u l f i l l e d . As a g e n e r a l r u l e enforcement p r o c e e d i n g s have been s u c c e s s f u l and a s e r i o u s approach to enforcement has been taken which has no doubt d e t e r r e d many p o t e n t i a l r u l e - b r e a k e r s . The A c t has p r o v i d e d an impetus f o r the p r e p a r a t i o n of l o c a l p l a n s s i n c e the e x i s t e n c e of a town or r e g i o n a l p l a n i s one c r i t e r i o n f o r a p p r o v a l of a p p l i c a t i o n s . Vermont has had a s t r o n g t r a d i t i o n of l o c a l government as have many o t h e r areas i n New England. The A c t and the c u r r e n t p l a n n i n g program under i t have appeared to ensure l o c a l c o n t r o l over p l a n n i n g w h i l e p r o t e c t i n g s t a t e - w i d e g o a l s . I n t e r - a g e n c y c o - o r d i n a t i o n has been e f f e c t e d by the Agency 250 Review Committee as w e l l as t h e E n v i r o n m e n t a l Board. Ad hoc, piecemeal p l a n n i n g i s being -r e p l a c e d by an o r d e r l y system of p e r m i t a p p l i c a t i o n s approved o n l y when t h e r e i s c o n f o r m i t y w i t h l o c a l p l a n s and s t a t e -developed c r i t e r i a f o r development. D e s p i t e i t s s h o r t p e r i o d i n o p e r a t i o n , the Environmental C o n t r o l A c t appears to be a c h i e v i n g i t s * o b j e c t i v e s of en v i r o n m e n t a l p r o t e c t i o n w h i l e a t the same t i m e , e n s u r i n g l o c a l p a r t i c i p a t i o n i n p l a n n i n g . The Vermont law i s o f t e n c i t e d as an example of im-p o r t a n t and i n n o v a t i v e l e g i s l a t i o n i n the area of e n v i r o n m e n t a l 95 p r o t e c t i o n and l a n d use c o n t r o l ( H a s k e l l , 1973). An example of one of the i n n o v a t i v e f e a t u r e s i s the 'burden of p r o o f p r o v i s i o n which r e q u i r e s the a p p l i c a n t to submit p r o o f t h a t the development w i l l conform to a number of c r i t e r i a s p e c i f i e d i n the A c t . The l o n g range success of the law w i l l depend on the f a i r n e s s and e f f i c i e n c y of the p e r m i t p r o c e s s i n g system, and on the v a l u e of the c a p a b i l i t y p l a n s and the l a n d use p l a n to s e r v e as s t a t e p o l i c y to guide d e c i s i o n s i n those realms of a c t i v i t y which e f f e c t the environment. 96 5.3 O n t a r i o , N i a g a r a Escarpment P l a n n i n g and Development A c t 5.3.1 Background The p r i m a r y concern which l e a d to l e g i s l a t i v e a c t i o n i n the N i a g a r a Escarpment area of Southern O n t a r i o was the spread of u r b a n - l i k e development throughout the r i c h f a r m l a n d s of the N i a g a r a P e n i n s u l a and a l o n g the escarpment which runs n o r t h from N i a g a r a F a l l s to the Bruce P e n i n s u l a and G e o r g i a n Bay. I n c l u d e d i n t h i s development was the p r o l i f e r a t i o n of p i t s and q u a r r i e s along the escarpment. Oh March 10, 1967 the Premier o f O n t a r i o , John Robarts announced to the L e g i s l a t u r e a wide r a n g i n g study of the N i a g a r a Escarpment w i t h a view to p r e s e r v i n g i t s e n t i r e l e n g t h as a r e c r e a t i o n area f o r the people of O n t a r i o . L.O. G e r t l e r was commissioned to c a r r y out the study which was to f o c u s on s t r a t e g i e s to implement a c o n s e r v a t i o n p o l i c y f o r the a r e a . His r e p o r t which was s u b m i t t e d to the government June 1968, proposed a comprehensive p l a n n i n g program f o r the a r e a , an a r e a -wide park system, r e g u l a t i o n s f o r l a n d use w i t h s p e c i f i c c o n t r o l s over p i t s and q u a r r i e s , and j o i n t f u n d i n g by p r o v i n c i a l and m u n i c i p a l governments ( G e r t l e r , 1968). The r e p o r t a l s o recom-mended t h a t 55,000 a c r e s be brought under complete c o n t r o l by a c q u i s i t i o n , t h a t a f u r t h e r 35,000 a c r e s be a c q u i r e d s e l e c t i v e l y and t h a t 300,000 come under r e g u l a t o r y c o n t r o l . The r e p o r t was not i n t r o d u c e d to the L e g i s l a t u r e u n t i l l a t e 1969 ( L e g i s l a t u r e of O n t a r i o Debates, June ! 3 S 1973). 97 During January 1968 to October 1972, the P r o v i n c e bought 19,000 a c r e s of l a n d i n the v i c i n i t y of the escarpment f o r $6.8 m i l l i o n . On May 1, 1972 the government s e t up a t a s k f o r c e to a s c e r t a i n the o v e r a l l g o a l s and o b j e c t i v e s of government p o l i c y f o r the area and to make recommendations f o r an a p p r o p r i a t e p l a n n i n g program. T h i s r e p o r t which was completed December 1972, c o n t a i n e d a number of p r o p o s a l s , the m a j o r i t y of which were embodied i n the government's statement o f p o l i c y on the N i a g a r a Escarpment which was r e l e a s e d June 4, 1973. The f u n d a -mental goal f o r the a r e a , recommended by the t a s k f o r c e and a c c e p t e d as p o l i c y by the C o n s e r v a t i v e Government i s "to main-t a i n the N i a g a r a Escarpment as a c o n t i n u o u s n a t u r a l environment w h i l e s e e k i n g to accommodate demands c o m p a t i b l e w i t h t h a t environment" ( O n t a r i o , June 1973). A b i l l to " p r o v i d e f o r p l a n n i n g and development of the N i a g a r a Escarpment and i t s v i c i n i t y " was i n t r o d u c e d to the P r o v i n c i a l L e g i s l a t u r e June 4, 1973 and was passed June 22 ( O n t a r i o , N i a g a r a Escarpment P l a n n i n g and Development A c t , B i l l 129, 1973) (Appendix F ) . The a r e a c o v e r e d by the A c t i s a p p r o x i m a t e l y 2,000 square m i l e s . 5.3.2 Commi s s i on The l e g i s l a t i o n c a l l s f o r the e s t a b l i s h m e n t of a seventeen member Commission. The members are a p p o i n t e d by the L i e u t e n a n t - G o v e r n o r i n C o u n c i l and i n c l u d e e i g h t who a r e to be 98 r e p r e s e n t a t i v e of the p u b l i c a t l a r g e and e i g h t to be chosen from a l i s t of nominees from each of the e i g h t c o u n t i e s and r e g i o n s w i t h i n the p l a n n i n g a r e a . The term of o f f i c e and remu-n e r a t i o n are to be e s t a b l i s h e d by the L i e u t e n a n t - G o v e r n o r . The chairman i s a p p o i n t e d by the L i e u t e n a n t - G o v e r n o r from the group of members which r e p r e s e n t the p u b l i c . The h i r i n g of s t a f f i s l e f t to the d i s c r e t i o n of the Commission but the engagement of p r o f e s s i o n a l and t e c h n i c a l a s s i s t a n c e on a c o n s u l t a n t b a s i s must be approved by the M i n i s t e r of Economics and I n t e r g o v e r n m e n t a l A f f a i r s who i s r e s p o n s i b l e f o r i m p l e m e n t a t i o n of the A c t . The M i n i s t e r i s d i r e c t e d to e s t a b l i s h a t l e a s t two a d v i s o r y com-m i t t e e s , one to r e p r e s e n t the m u n i c i p a l i t i e s and c o u n t i e s and the o t h e r to be " b r o a d l y r e p r e s e n t a t i v e of people i n the p l a n n i n g a r e a . " The major f u n c t i o n of the Commission i s to pr e p a r e the Nia g a r a Escarpment P l a n as s e t f o r t h by the A c t . A second f u n c t i o n i s development c o n t r o l ; the Commission and t h e i r s t a f f have the r e s p o n s i b i l i t y to c o n s i d e r and approve development a p p l i c a t i o n s i n those areas d e s i g n a t e d as 'p l a n n i n g a r e a s ' by the M i n i s t e r . The M i n i s t e r has suggested t h a t the Commission s h o u l d d e l e g a t e t h i s second f u n c t i o n to the Chairman ( W h i t e , November, 1973). 5.3.3 A d m i n i s t r a t i o n The A c t s p e c i f i e s seven o b j e c t i v e s t o be f o l l o w e d by the Commission i n i t s p r e p a r a t i o n of the p l a n , the f i r s t o b j e c t i v e 99 b e i n g "to p r o t e c t unique e c o l o g i c and h i s t o r i c a r e a s . " In a d d i -t i o n the p l a n must c o n t a i n any pol i c i e s o r programs t h a t any m i n i s t e r or p r o v i n c i a l s e c r e t a r y i n the government wishes to be i n c l u d e d . A number of p r o v i s i o n s i n the A c t p e r t a i n to the pro-cedure to be f o l l o w e d d u r i n g the p r e p a r a t i o n of the p l a n . These i n c l u d e the p r o v i s i o n f o r p u b l i c h e a r i n g s to be h e l d p r i o r to f i n a l a d o p t i o n . Upon c o m p l e t i o n of the p l a n ( e x p e c t e d 1976), the Commission must p r o v i d e c o p i e s to each m u n i c i p a l i t y , county and r e g i o n a l m u n i c i p a l i t y w i t h i n the p l a n n i n g a r e a , and to a l l a d v i s o r y committees, and must p u b l i s h a n o t i c e i n the l o c a l newspapers n o t i f y i n g the p u b l i c of the p l a n sand where i t can be viewed. L o c a l governments and i n d i v i d u a l s a r e a l l o w e d t h r e e months to comment on the p l a n . F o l l o w i n g t h i s , o n e or more h e a r i n g s must be h e l d to p r e s e n t the p l a n to the p u b l i c and to hear r e p r e s e n -t a t i o n s . A f t e r c o n s i d e r i n g comments made at the h e a r i n g s the Commission must make recommendations to approve the p l a n and f o r w a r d i t to the M i n i s t e r f o r f i n a l a p p r o v a l and a d o p t i o n . The N i a g a r a Escarpment P l a n , so approved, i s l e g a l l y b i n d i n g on a l l m u n i c i p a l i t i e s and on a l l a g e n c i e s of the Pro-v i n c i a l Government. A l l l o c a l o f f i c i a l p l a n s and bylaws must be amended to conform w i t h the N i a g a r a Escarpment p l a n . M u n i c i p a l i t i e s , the p r o v i n c e or the p u b l i c can i n i t i a t e amendments to the p l a n a t any time and a s i m i l a r procedure on the a v a i l a b i l i t y of the amendment f o r comments and the h o l d i n g 1 00 of p u b l i c h e a r i n g s , must be f o l l o w e d . The l e g i s l a t i o n a l s o r e -q u i r e s t h a t the P l a n be reviewed every f i v e y e a r s . S e c t i o n 16 of the A c t g i v e s the M i n i s t e r the a u t h o r i t y to r e q u i r e any m u n i c i p a l i t y w i t h i n the P l a n n i n g Area to prepare and adopt a l o c a l p l a n and zoning bylaw. In S e c t i o n 18 the M i n i s t e r i s g i v e n the power to a c q u i r e l a n d by purchase or expropriation..; and to develop such l a n d f o r purposes which are not c l e a r l y s p e c i f i ed. The l e g i s l a t i o n i n t r o d u c e s the t e c h n i q u e of development c o n t r o l to c o n t r o l l a n d use both d u r i n g p r e p a r a t i o n of the p l a n and a f t e r . Using t h i s t e c h n i q u e the M i n i s t e r may d e s i g n a t e any area as a Development P l a n n i ng Area under l e g i s l a t i o n passed i n 1973 ( O n t a r i o , B i l l 129). Under t h i s A c t the p r o v i s i o n s of z o n i n g bylaws cease to have e f f e c t i n d e s i g n a t e d areas and the M i n i s t e r can make r e g u l a t i o n s p r o v i d i n g f o r the i s s u a n c e of development p e r m i t s . Under t h i s p r o c e s s each development i s c o n s i d e r e d i n d i v i d u a l l y a f t e r an a p p l i c a t i o n f o r a p e r m i t has been made. The M i n i s t e r may a t t a c h c o n d i t i o n s t o the p e r m i t to a s s u r e accordance w i t h the i n t e n t of the A c t . The M i n i s t e r a l s o has the power to d e l e g a t e or withdraw the a u t h o r i t y to i s s u e p e r m i t s t o the Commission or to l o c a l m u n i c i p a l i t i e s . Where the M i n i s t e r , the Commission or l o c a l governments i s s u e p e r m i t s , these bodies must s u p p l y a copy of each a p p l i c a t i o n to the M i n i s t e r and to a s s e s s e d owners w i t h i n 400 f e e t of the a p p l i c a n t ' s l a n d , who may make an appeal a g a i n s t the p e r m i t w i t h i n f o u r t e e n days. I f an appeal i s made, a p u b l i c h e a r i n g on the 101 i s s u a n c e of the pe r m i t must be h e l d , a f t e r which the M i n i s t e r makes a f i n a l d e c i s i o n . The government must make payments i n l i e u of taxes to those l o c a l governments i n whose j u r i s d i c t i o n s l a n d has been a c q u i r e d f o r the P l a n . Land w i l l be taxed a c c o r d i n g to the d e s i g n a t i o n of l a n d use p r o v i d e d f o r i n the P l a n ; i f l a n d i s used l e s s i n t e n s i v e l y than the d e s i g n a t i o n i m p l i e s , s p e c i a l a r r a n g e -ments can be made f o r a p a r t i a l d e f e r r a l of p r o p e r t y t a x e s . In a d d i t i o n , the p r o v i n c e can p r o v i d e g r a n t s to a i d some l o c a l m u n i c i p a l i t i e s i n the p r e p a r a t i o n of o f f i c i a l p l a n s and bylaws. 5.3.4 L e g i s l a t i v e L i m i t a t i o n s With no e f f e c t i v e r e c o r d to r e v i e w , the A c t must be examined i n l i g h t of what are f e l t to be l i m i t a t i o n s i n h e r e n t i n the l e g i s l a t i o n i t s e l f . One p r o b a b l y minor l i m i t a t i o n i s the s i z e of the Commission; a t seventeen members i t i s the l a r g e s t of any reviewed i n t h i s r e s e a r c h . More s e r i o u s l i m i t a t i o n s a r i s e out of what appears to be the major i n t e n t of the A c t - t h a t i s to prepare a Master Pla n f o r the Nia g a r a Escarpment A r e a . A l t h o u g h wide p u b l i c p a r t i c i p a t i o n i s c l a i m e d d u r i n g the p r e p a r a t i o n of the P l a n , i t i s l i k e l y to be f a i r l y l i m i t e d s i n c e comments are i n v i t e d o n l y i n the t h r e e month p e r i o d f o l l o w i n g the p r e s e n t a t i o n of the proposed p l a n . I t i s s o l e l y at the p u b l i c h e a r i n g t h a t " r e s e a r c h m a t e r i a l , r e p o r t s , p l a n s and the l i k e t h a t were used to p r e pare the p l a n " are r e q u i r e d to be made a v a i l a b l e to the 102 p u b l i c . Rather than being c a l l e d upon to p a r t i c i p a t e i n the i n i t i a l s t a g e s of the P l a n , both the p u b l i c and the l o c a l govern-ments are a l l o w e d o n l y to r e a c t to a completed, a l t h o u g h not f i n a l i z e d p l a n . There i s the very d i s t i n c t p o s s i b i l i t y t h a t such " r e a c t i v e " p a r t i c i p a t i o n w i l l have o n l y minimal e f f e c t on the outcome o f the f i n a l P l a n . Throughout the p r e p a r a t i o n of the p l a n the M i n i s t e r r e t a i n s s i g n i f i c a n t power. He can, a t any t i m e , r e q u i r e t h a t l o c a l m u n i c i p a l i t i e s prepare p l a n s or bylaws to conform w i t h the i n t e n t of the A c t . There i s however no i n d i c a t i o n i n the l e g i s l a -t i o n t h a t these l o c a l p l a n s w i l l p r o v i d e any i n p u t i n t o the pr o c e s s of p r e p a r i n g the Master P l a n . The M i n i s t e r a l s o has the power to d e s i g n a t e any area a 'development p l a n n i n g a r e a 1 and under such d e s i g n a t i o n the pro-v i s i o n s of any z o n i n g bylaw l o s e f o r c e . The M i n i s t e r then has the a u t h o r i t y to make r e g u l a t i o n s c o n c e r n i n g the c o n t r o l of development i n t h a t area and r e t a i n s the r i g h t to make a f i n a l d e c i s i o n on the i s s u a n c e of a development p e r m i t . The M i n i s t e r may, a t h i s d i s c r e t i o n , d e l e g a t e the a u t h o r i t y to re v i e w a p p l i c a -t i o n s f o r p e r m i t s to the Commission or to l o c a l governments but he i s not bound to do so by law. The i m p l e m e n t a t i o n of the A c t i s expected to c o s t the p r o v i n c e a s u b s t a n t i a l amount of money. Land a c q u i s i t i o n i s e s t i m a t e d to c o s t between $250 and $500 m i l l i o n and f u n d i n g of the Commission i s expected to be i n excess of $200,000 ( O n t a r i o , 1973). A d d i t i o n a l funds w i l l be needed to a s s i s t l o c a l governments 103 i n the p r e p a r a t i o n of p l a n s and b y l a w s , to make payments to governments i n l i e u of p r o p e r t y t a x e s on Crown l a n d , to r e l o c a t e p i t and q u a r r y o p e r a t o r s i n the r e s t r i c t i v e zones and o t h e r v a r i o u s c o s t s and expenses. There i s no s t a t u t o r y l i m i t a t i o n on the amount of money to be a p p r o p r i a t e d f o r the i m p l e m e n t a t i o n of t h i s A c t . 5.3.5 Comments The N i a g a r a Escarpment P l a n n i n g and Development Act was passed June 22, 1973 and the f i r s t meeting of the N i a g a r a Escarpment Commission was h e l d November 6, 1973. Due to the l a c k of i n f o r m a t i o n about the o p e r a t i o n of the'-Commi s s i o n the f o l l o w i n g comments are based on r e p o r t s i s s u e d by the M i n i s t r y of T r e a s u r y , Economics and I n t e r g o v e r n m e n t a l A f f a i r s and c o r r e -spondence w i t h the s t a f f of the M i n i s t r y and the d i r e c t o r of the Commission. When B i l l 129 was f i r s t i n t r o d u c e d to the l e g i s l a t u r e the o p p o s i t i o n took i s s u e w i t h what appeared to be e x c e s s i v e powers of the M i n i s t e r i n c o n t r o l l i n g the use of l a n d i n the escarpment area ( O n t a r i o , June 13, 1973). During the debate on the b i l l accusations were made t h a t the M i n i s t e r was b e i n g g i v e n a b s o l u t e power, t h a t l o c a l m u n i c i p a l i t i e s had not been con-s u l t e d d u r i n g p r e p a r a t i o n of the b i l l and t h a t t h e r e was no p r o v i s i o n f o r appeal of a d e c i s i o n to the O n t a r i o M u n i c i p a l Board, the c a b i n e t or the c o u r t s . The N.D.P. l e a d e r , Mr. L e w i s , 1 04 s t a t e d a t t h a t time t h a t the law g i v e s the m i n i s t e r the d i s -c r e t i o n a r y power to i s s u e development p e r m i t s i n d e s i g n a t e d areas w i t h no time l i m i t on the M i n i s t e r ' s enjoyment of t h i s power, a l t h o u g h he may d e l e g a t e i t to the m u n i c i p a l i t i e s i f he d e s i r e s . The D i r e c t o r of the Commission, J.W. G i l b e r t has responded to the q u e s t i o n of t h i s d i s c r e t i o n a r y power as f o l l o w s : Onn the faoe of it, such wide d i s c r e t i o n a r y •power appears disturbing to people outside of the Government, however, having been a c i v i l e servant for several years. . . .1 can see the need for t h i s type of l e g i s l a t i o n . The prime intent of this section was to allow for a delegation of the development control authority to those m u n i c i p a l i t i e s that could properly administer i t once an approved plan is established. ( G i l b e r t , February 13, 1974) A s t a f f member of the m i n i s t r y r e p o r t e d t h a t i n f a c t "the M i n i s t e r has not got i n t o the development p e r m i t b u s i n e s s " and t h a t the i s s u a n c e p r o c e s s i s "being c a r r i e d out by the Commission w i t h o u t r e f e r r a l to the P r o v i n c e " ( F i t z p a t r i c k , February 4, 1974). Another s u b j e c t area of c o n s i d e r a b l e debate has been the s t a t u t o r y p r o v i s i o n s f o r a p p e a l . Under the A c t , appeals on development p e r m i t s can o n l y be made to the M i n i s t e r a g a i n s t a d e c i s i o n of the Commission. J.W. G i l b e r t has answered c r i t i c i s m s on t h i s m a tter by s a y i n g t h a t appeals to the O n t a r i o M u n i c i p a l Board are u n s u i t a b l e because "the Board must r u l e on matters of law and cannot a c c e p t Government statements of p o l i c y 105 as s u f f i c i e n t j u s t i f i c a t i o n " and t h a t the c a b i n e t cannot take the time to hear m a t t e r s of such a mundane n a t u r e . I t i s G i l b e r t ' s o p i n i o n t h a t the M i n i s t e r i s "the l o g i c a l judge of appeals f o r the development c o n t r o l system" s i n c e the Commission r e p o r t s d i r e c t l y to the M i n i s t e r and the M i n i s t e r " i s the p r o v i n c i a l spokesman on la n d use p l a n n i n g p o l i c y " ( G i l b e r t , February 13, 1974). The h e a r i n g procedure has a l s o been c r i t i c i z e d . The p u b l i c h e a r i n g r e p r e s e n t s the o n l y p r o v i s i o n f o r a d m i n i s t r a t i v e r e v iew of the a c t and a l l h e a r i n g s are conducted by a h e a r i n g o f f i c e r who i s a p p o i n t e d by the M i n i s t e r . A l e g a l o p i n i o n has been g i v e n by J.A. Kennedy on the comparison of t h i s procedure to the r u l e of n a t u r a l j u s t i c e , ' t h a t a t r i b u n a l s h a l l be w i t h o u t b i a s . 1 The argument proceeds as f o l l o w s : It is the Minister's own program that is being reviewed (in a public hearing). So i t could notbe said that these hearing o f f i c e r s would be independent, or without bias. It might be argued however, that these hearing o f f i c e r s are not the tribunal because they do not decide, they only report to the Minister. If t h i s means that the Minister is the tribunal then i t is his program that is being reviewed and he could not be said to be without bias. Only if the hearing o f f i c e r and the Minister do not agree do these statutes provide for a decision by the cabinet. But in neither case is the decision made by 'the person who conducts the hearing. In the case of Mehr v. Law Society of Upper Canada . . . the Supreme Court of Canada held that i t is a breach of the rule of natural j u s t i c e if the decision is made by persons other than those who conducted the hearing. (J.A. Kennedy, December 17, 1973) 106 In c o n c l u s i o n i t appears t h a t the M i n i s t e r does have c o n s i d e r a b l e power, both under the Nia g a r a Escarpment A c t and the P l a n n i n g and Development A c t . The success of the l e g i s l a -t i o n t h e r e f o r e depends, i n p a r t , on the M i n i s t e r ' s use or abuse of these very wide powers. 5.4 Washington S t a t e , S h o r e l i n e Management A c t (1971) 5.4.1 Background The S h o r e l i n e Management A c t was passed i n 1971 by the Washington S t a t e L e g i s l a t u r e "to p r o t e c t the p u b l i c i n t e r e s t i n the S t a t e ' s s h o r e l i n e s and, a t the same t i m e , to r e c o g n i z e and p r o t e c t p r i v a t e p r o p e r t y r i g h t s c o n s i s t e n t w i t h the p u b l i c i n t e r e s t " (Washington, 1972). N a t u r a l systems covered by the Ac t i n c l u d e beaches and the s h o r e l i n e s of i s l a n d s , e s t u a r i e s , r i v e r s , l a k e s , streams and the P a c i f i c c o a s t l i n e of which almost 160 m i l e s a r e . w i t h i n t h e S t a t e ' s j u r i s d i c t i o n . The impetus f o r the l e g i s l a t i o n came w i t h the r e a l i z a -t i o n by the S t a t e t h a t Washington "possesses s h o r e l i n e areas whose uniqueness and d i v e r s i t y are u n e q u a l l e d i n the N a t i o n " (1972). In the i n t r o d u c t i o n to the G u i d e l i n e s f o r the S h o r e l i n e Management A c t , Governor Evans s t a t e d : Experiences in other parts of the country however, and i n c r e a s i n g l y in Washington, show that we cannot continue to take our shoreline resources for granted. Our shorelines are a l i m i t e d asset - we cannot 107 increase them3 but we can lose them if we f a i l to protect them through a sound, comprehensive management program. (Washington, 1972) 5.4.2 Commission The l e g i s l a t i o n e s t a b l i s h e s a S h o r e l i n e s H e a r i n g s Board which has a q u a s i - j u d i c i a l f u n c t i o n . Three members of t h i s six-member Board a l s o s i t on the S t a t e ' s P o l l u t i o n C o n t r o l Board. Two members are a p p o i n t e d , one each from the A s s o c i a t i o n of Washington C i t i e s and the A s s o c i a t i o n of County Commissioners. The s i x t h member i s the S t a t e Land Commissioner or h i s d e s i g n e e . The chairman of the P o l l u t i o n C o n t r o l Board i s a l s o a p p o i n t e d chairman of the S h o r e l i n e s Hearings Board. The major f u n c t i o n of the Board i s to hear appeals on the g r a n t i n g o f p e r m i t s f o r developments w i t h i n the d e s i g n a t e d s h o r e l i n e a r e a . The l o c a l government i s the body which g r a n t s p e r m i t s , the S t a t e Department of Ecology and the A t t o r n e y General r e c e i v e r e q u e s t s f o r appeals and the Hearings Board hears the a p p e a l s . The Board a l s o r e views the l o c a l programs of s h o r e l i n e r e g u l a t i o n . 5.4.3 Admi ni s t r a t i on The i n t e n t of the A c t i s to p r o t e c t a l l the s h o r e l i n e areas of the S t a t e from u n c o n t r o l l e d development. C e r t a i n f o r e s h o r e areas are d e s i g n a t e d by the Act 'areas of s t a t e w i d e 1 08 s i g n i f i c a n c e ' and i n c l u d e f i v e s p e c i f i c areas i n Puget Sound and the S t r a i t of Juan de Fuca p l u s a d j a c e n t s a l t waters ( i . e . from the l i n e of low t i d e to the j u r i s d i c t i o n a l b o u n d a r i e s ) . There are two mechanisms f o r development c o n t r o l : one a p e r m i t system f o r developments o f a c e r t a i n s i z e and type and two, a comprehensive p l a n n i n g program i n c l u d i n g use r e g u l a -t i o n s . The p e r m i t system r e q u i r e s t h a t a property-owner o b t a i n a p e r m i t f o r a s u b s t a n t i a l development (over $1,000) on the f o l l o w i n g s h o r e l i n e s : 1 . l a k e s l a r g e r t h a n 20 a c r e s 2 . s t r e a m s w i t h a mean annual f l o w g r e a t e r t h a n 20 c u b i c f e e t per s e c o n d . 3 . m a r i n e w a t e r a r e a s 4 . on land e x t e n d i n g 200 f e e t landward f rom the o r d i n a r y h igh wate r mark o r a s s o c i a t e d w e t l a n d s Uses exempt from the p e r m i t r e q u i r e m e n t i n c l u d e : 1 . - c o n s t r u c t i o n o r r e p a i r o f a s i n g l e -f a m i l y res i dence i f under 35 f e e t in h e i g h t , on the w e t l a n d s and i f f o r t h e o w n e r ' s use on I y 2 . c o n s t r u c t i o n of a barn o r s i m i l a r a g r i c u l t u r a l s t r u c t u r e i f under 35 f e e t in h e i g h t , on the w e t l a n d s . 3 . normal p r o t e c t i v e b u l k h e a d s f o r a s i n g l e - f a m i l y r e s i d e n c e 4 . c o n s t r u c t i o n or m o d i f i c a t i o n of n a v i -g a t i o n a l a i d s 109 5v m a i n t e n a n c e o r r e p a i r of an e x i s t i n g s t r u c t u r e 6 . emergency c o n s t r u c t i o n n e c e s s a r y t o p r o t e c t p r o p e r t y f rom damage by the e I e m e n t s c o n s t r u c t i o n of a d o c k , d e s i g n e d f o r p l e a s u r e cr?aft o n l y , f o r the p r i v a t e noncommerc ia l use of the owner , - l e s s e e , o r c o n t r a c t p u r c h a s e r of a s i n g l e f a m i l y r e s i d e n c e , t h e c o s t of wh ich does not exceed $2500. P e r m i t s are g r a n t e d by each l o c a l government f o r s h o r e l i n e s areas under t h e i r j u r i s d i c t i o n . The concept of ' s h o r e l i n e management' under the A c t i n c l u d e s the p r o v i s i o n f o r the p r e p a r a t i o n of a Master Program f o r the purpose of r e g u l a t i n g s h o r e l i n e uses. These programs are to be i n i t i a t e d and a d m i n i s t e r e d by l o c a l governments. The S t a t e f u n c t i o n i s to a c t i n a s u p p o r t i v e and r e v i e w c a p a c i t y , The S t a t e Department of Ecology i s r e s p o n s i b l e f o r implementing the A c t . In an a d v i s o r y c a p a c i t y , the Department i s r e q u i r e d by the l e g i s l a t i o n , to submit proposed g u i d e l i n e s f o r s h o r e l i n e programs, to a l l e f f e c t e d governments. The pr o -cedure s p e c i f i e d i n the A c t i s as f o l l o w s : W i t h i n s i x t y days of r e c e i p t o f the proposed g u i d e l i n e s , l o c a l governments must r e t u r n comments on these g u i d e l i n e s to the Department. A f t e r one hundreduand twenty days, the Department must r e - s u b m i t the f i n a l g u i d e l i n e s . A f t e r two p u b l i c h e a r i n g s are h e l d , the Department adopts the g u i d e l i n e s which are s u b s e q u e n t l y b i n d -ing on the l o c a l governments and the S t a t e . F o l l o w i n g enactment 110 of the l e g i s l a t i o n i n June 1971 t h i s procedure was f o l l o w e d and i n June 1972 the " F i n a l G u i d e l i n e s , S h o r e l i n e Mangement A c t " were o f f i c i a l l y adopted (Washington, 1972). L o c a l governments are a l s o r e q u i r e d by the l e g i s l a -t i o n to submit p r o p o s a l s f o r c o a s t a l i n v e n t o r i e s and s h o r e l i n e management programs w i t h i n s i x months of enactment of the law. In the absence of a c t i o n by the l o c a l governments, the Depart-ment has the a u t h o r i t y to proceed w i t h i t s own s t u d i e s and programs f o r these a r e a s . The i n v e n t o r i e s and programs f o r r e g u l a t i o n of s h o r e -l i n e uses are r e q u i r e d t o be completed by the l o c a l governments w i t h i n e i g h t e e n months. F o l l o w i n g a p u b l i c h e a r i n g , they are s u b m i t t e d to the Department o f E c o l o g y , al o n g w i t h a statement o u t l i n i n g the program o f c i t i z e n i n v o l v e m e n t f o l l o w e d by the l o c a l j u r i s d i c t i o n i n the p r e p a r a t i o n of the p o l i c i e s and programs. A f a i l u r e by the l o c a l government to encourage and u t i l i z e c i t i z e n i n v o l v e m e n t i s t r e a t e d as a f a i l u r e to comply w i t h the i n t e n t of the A c t , and the Department may r e t u r n the program w i t h o u t a p p r o v a l w i t h the d i r e c t i v e to e s t a b l i s h a c c e p t a b l e methods of c i t i z e n p a r t i c i p a t i o n (Washington, 1972). The l e g i s l a t i o n o u t l i n e s the f o l l o w i n g seven elements which may be i n c l u d e d i n the s h o r e l i n e program: 1 . economic deve lopment 2 . p u b l i c a c c e s s 3 . c i r c u l a t i o n 4 . r e c r e a t i o n 5 . s h o r e l i n e use 6 . c o n s e r v a t i on 7. h i s t o r i c a I / c u I t u r a I e l e m e n t 111 See Chart 2 f o r an o u t l i n e of the p r e p a r a t i o n of Master Programs. The A c t r e q u i r e s the Department of Ecology and the l o c a l governments to review the s h o r e l i n e management programs p e r i o d i c a l l y . As w e l l , a l l s t a t e a g e n c i e s must r e v i e w t h e i r management p o l i c i e s , p l a n s and bylaws which e f f e c t l a n d s a d j a c e n t to s h o r e l i n e s . The department may make recommendations to these a g e n c i e s which would b r i n g a d j a c e n t uses i n l i n e w i t h the S h o r e l i n e Management A c t . The Department of Ecology and the l o c a l governments h o l d most of the r e s p o n s i b i l i t y f o r i m p l e m e n t a t i o n of the A c t ; the S h o r e l i n e s Hearings B o a r d s a c t s m a i n l y as a r e v i e w and hear-i n g body. The Department and the l o c a l governments, i n a d d i t i o n to drawing up p o l i c i e s and p l a n n i n g programs, a l s o have the power to a c q u i r e l a n d and to a c c e p t g r a n t s and c o n t r i b u t i o n s of l a n d . They may a l s o a p p o i n t a d v i s o r y committees and c o n t r a c t f o r p r o f e s s i o n a l and t e c h n i c a l s e r v i c e s . The Department of Eco l o g y i s r e q u i r e d to r e p r e s e n t ' s h o r e l i n e i n t e r e s t s ' b e f o r e water r e s o u r c e r e g u l a t i o n bodies and f e d e r a l commissions. 5.4.4 L i mi t a t i ons T h e r e s t r i c t e d area of c o n t r o l ( i . e . s h o r e l i n e s ) i s a p o t e n t i a l l i m i t a t i o n to the e f f e c t i v e n e s s of t h i s A c t . However, s i n c e 1970 Washington S t a t e has passed s e v e r a l o t h e r a c t s aimed a t e n v i r o n m e n t a l p r o t e c t i o n which are s u p p o r t i v e of the purposes o f the-Shoreline-Management A c t . One a c t p r o v i d e s 112 PHASE X-PHASEH PHASE IE-E S T A B L I S H C I T I Z E N ADVISORY C O M M I T T E E D E V E L O P A R E A - WIDE G O A L S D E V E L O P S H O R E L I N E P O L I C Y S T A T E M E N T S D E F I N E E N V I R O N M E N T S O N A L L S H O R E L I N E S D E V E L O P S H O R E L I N E U S E R E G U L A T I O N S ~lkL E J^ Eii T§i - { U S E ^ A C T I V I T I E S ] 1 H VJ Rp N M E N T S ] R U S E A C T I V I T I E S 8n L E ^ V J R O N M E N J S j C O N D U C T D E T A I L E D S T U D I E S I E L E M E N T S a j tuSE _ A C T [ V I T I E S J CHART 2 PREPARATION OF SHORELINE MASTER PROGRAMS, WASHINGTON STATE SOURCE : D e p a r t m e n t o f E c o l o g y , Wash i n g t o n S t a t e . 11 3 f o r an e n v i r o n m e n t a l impact statement procedure s i m i l a r to t h a t r e q u i r e d by the N a t i o n a l E n v i r o n m e n t a l P o l i c y A c t of 1969 (Washington, Chapter 43, 21C, RCW 1971). A second p i e c e of l e g i s l a t i o n , to c o n t r o l l a n d use throughout the s t a t e was i n t r o d u c e d in-a.974 (Washington, Senate B i l l 3369 , 1 974). The e f f e c t i v e n e s s of the S h o r e l i n e Management Act may be reduced by the number of a l l o w a b l e exemptions from p e r m i t s . Some of the p o t e n t i a l l y damaging exemptions i n c l u d e developments or a c t i v i t i e s such as d r e d g i n g and removal of sand, which do not i n v o l v e the c o n s t r u c t i o n of b u i l d i n g s , and developments which are to be completed w i t h i n two y e a r s of the e f f e c t i v e date of the l e g i s l a t i o n . 5.4.5 Comments The A c t s t i p u l a t e s t h a t the major i n i t i a t i v e f o r the i m p l e m e n t a t i o n of management programs, i s to be p r o v i d e d by l o c a l governments. U l t i m a t e c o n t r o l over p o l i c y and programs of r e g u l a t i o n r e s t s w i t h the S t a t e r a t h e r than the a p p o i n t e d Board. C o n s i d e r a b l e a t t e n t i o n i s p a i d i n the l e g i s l a t i o n to the p r o c e d u r a l a s p e c t s of both the f o r m u l a t i o n of p o l i c y and the p r e p a r a t i o n and a d o p t i o n of p l a n s or programs. P u b l i c par-t i c i p a t i o n i s mandatory at a l l s t a g e s of the p r o c e s s r a t h e r than s o l e l y a t the l a t e r stage of program a d o p t i o n . Chapter 6 A COMPARATIVE ANALYSIS OF EXISTING ISLAND TRUST LEGISLATION AND SIMILAR PURPOSE LEGISLATION F i v e p i e c e s of l e g i s l a t i o n were s e l e c t e d f o r a com-p a r a t i v e a n a l y s i s . The Nantucket Sound I s l a n d s T r u s t A c t ( s . 1929) was chosen to r e p r e s e n t the v a r i o u s proposed p i e c e s o f i s l a n d t r u s . t - l e g i s l a t i o n . The b i l l s. 1929 , i n t r o d u c e d to the U.S. Senate May 29, 1973, i s the most r e c e n t p r o p o s a l f o r t h a t area to da t e . T h i s b i l l i s the o n l y U.S. f e d e r a l l e g i s l a t i o n i n c l u d e d i n the a n a l y s i s and the o n l y law which has y e t to be enac t e d . The o t h e r s i m i l a r purpose l e g i s l a t i o n i n c l u d e d i n the a n a l y s i s i s : 1. H a w a i i , Land Use Law of 1961, as amended 1970. 2. Vermont, Environmental C o n t r o l Law 1970 ( A c t No. 250 Vermont Laws) 3. O n t a r i o , N i a g a r a Escarpment P l a n n i n g and Development A c t 1973. 4. Washington, S h o r e l i n e Management Act of 1971'. The purpose of the a n a l y s i s was to compare the c h a r -a c t i v e r i s t i c s and c o n t e n t s o f the l e g i s l a t i o n r a t h e r than t o 114 115 e v a l u a t e the s t r u c t u r a l components e s t a b l i s h e d by the law, and t h e i r o p e r a t i o n . The f i r s t step i n the a n a l y s i s was to determine the i m p o r t a n t i n f o r m a t i o n a l components and s t a t u t o r y f u n c t i o n s p r e s e n t i n the s e l e c t e d p i e c e s of l e g i s l a t i o n . Nine c a t e g o r i e s o f c h a r a c t e r i s t i c s or elements of the l e g i s l a t i o n were chosen f o r the a n a l y s i s and a number of subelements were s e l e c t e d to d e s c r i b e v a r i o u s a s p e c t s of these elements. These elements arid sub-elements were s e l e c t e d f o r the purpose of comparing i n d i v i d u a l a s p e c t s of d i f f e r e n t l e g i s l a t i o n w i t h a view to drawing c o n c l u -s i o n s which might be u s e f u l i n the development of l e g i s l a t i o n f o r the G u l f I s l a n d s . A c h a r t format was used to convey t h i s i n f o r m a t i o n (Table 3). For the purpose of the a n a l y s i s the f o l l o w i n g d e f i n i -t i o n s were a c c e p t e d : r e c r e a t i o n - t h e r e f r e s h m e n t of mind and body t h r o u g h p l a y , s p o r t s , amusement and re I a x a t i o n . c o n s e r v a t i o n - the a c t of c o n s e r v i n g , p r e -s e r v i n g o r p r o t e c t i n g from l o s s , d e c a y , i n j u r y o r v i o l a t i o n . p r o t e c t i o n of f a r m l a n d - t h e a c t of p r o t e c t -ing land which i s s u i t a b l e f o r a g r i c u l t u r e , f rom n o n - a g r i c u l t u r a l u s e s . s h o r e l i n e management - the a c t of p l a n n i n g f o r r e a s o n a b l e and a p p r o p r i a t e uses a l o n g s h o r e l i n e s . deve lopment c o n t r o l - t h e a c t of r e s t r i c t -ing i n a p p r o p r i a t e uses of land and w a t e r . C o m p a r a t i v e A n a l y s i s o f I s l a n d T r u s t and S i m i l a r P u r p o s e L e g i s l a t i o n ' ( • • s i g n i f i c a n t e m p h a s i s , • e m p h a s i s , I m e n t i o n ) E l e m e n t o f L e g i s l a t i o n N a n t u c k e t Sound I s l a n d s 1 1973 •'. H a w a i i 1961 ( 1 9 7 0 ) '. Ve rmont 1970 N i a g a r a E s c a r p m e n t 1973 W a s h i n g t o n S h o r e l 1 n e 1971 OBJECTIVES FOR LAND USE CONTROL C o n s e r v a t i o n R e c r e a t i o n P r o t e c t i o n o f F a r m l a n d S h o r e l i n e Management D e v e l o p m e n t C o n t r o l . • • • • • • « • • © • • • © © • • • • • • © AREA OF CONTROL S t a t e o r P r o v i n c e - w i d e S p e c i a l R e g i o n s • • - • • COMMISSION STRUCTURE S i z e T e n u r e D e g r e e o f R e g i o n a l R e p r e s e n t a t i o n D i s t r i c t C o m m i s s i o n s A d v i s o r y C o m m i t t e e s 9 9 6 3 yrs - 4yrs -85 % 6 7 % 0 . * 4 7 % 3 3 % - - 9 - -1 + - - 2 1 + COMMISSION POWERS P o l i c y F o r m u l a t i o n Land use c o n t r o l s : z o n i n g Land u s e c o n t r o l s : p e r m i t s Land a c q u i s i t i o n by p u r c h a s e , g i f t s Land a c q u i s i t i o n by e x p r o p r i a t i o n P r e p a r a t i o n o f a M a s t e r P l a n • < o e • • • • • © O © © o © • • • • • • • CO-ORDINATING FUNCTION I n t e r d e p a r t m e n t a l S e n i o r - l o c a l g o v e r n m e n t c o - o r d i n a t i o n 4 • • • O o • • < 1 9 © TECHNICAL C A P A B I L I T Y H i r i n g o f S t a f f A c c e s s t o G o v e r n m e n t S t a f f H i r i n g o f C o n s u l t a n t s • • • • ' • • • . • • • b• CONTINUED T a b l e 3 ( C o n t i n u e d ) E l e m e n t o f L e g i s l a t i o n N a n t u c k e t . Sound I s l a n d 1 9 7 3 . H a w a i i 1961 1970 Vermont 1970 N i a g a r a E s c a r p m e n t 1973 \ W a s h l n g t o n S h o r e l i ne 1971 PUBLIC PART IC IPAT ION A v a i l a b i l i t y o f P l a n s t o P u b l i c 4 0 0 0 H e a r i n g s on P o l i c y F o r m u l a t i o n 4 0 0 H e a r i n g s on A d o p t i o n o f P l a n s • 0 • 0' • • 0 • H e a r i n g s on Z o n i n g Changes • • . . . # . . 4 ©" H e a r i n g s on P l a n R e v i s i o n s • 0' 08 H e a r i n g s on P e r m i t A p p l i c a t i o n s • 0 0 0 a B u r d e n o f P r o o f on A p p l i c a n t • o 0 ENFORCEMENT S e n i o r g o v e r n m e n t c o n t r o l • • 0 " 4 L o c a l . C o n t r o l 4 • 0 . 0 APPEAL PROCEDURES 1 P r o v i s i o n f o r A d m i n i s t r a t i v e A p p e a l 0 0 0 P r o v i s i o n f o r J u d i c i a l A p p e a l • • 0 P r o v i s i o n f o r P e r i o d i c R e v i s i o n o f P l a n s 0 0 *The N a n t u c k e t Sound I s l a n d s T r u s t A c t i s t h e o n l y f e d e r a l p i e c e o f l e g i s l a t i o n i n c l u d e d i n t h e a n a l y s i s . B i l l 1 3 6 , 1970 amended t h e Land Use Law g i v i n g t h e Land Use C o m m i s s i o n t h e mandate t o e s t a b l i s h s e t b a c k r e g u l a t i o n s o f 20 t o 40 f e e t f r o m t h e h i g h w a t e r m a r k . 3 The N a n t u c k e t Sound I s l a n d s T r u s t A c t e s t a b l i s h e s t h r e e C o m m i s s i o n s , one e a c h f o r M a r t h a ' s V i n e y a r d , N a n t u c k e t a n d t h e E l i z a b e t h s . -A S p e c i a l u s e s a r e g ranted u n d e r a p e r m i t i n A g r i c u l t u r a l and R u r a l D i s t r i c t s o n l y . ^The p r i m a r y c o - o r d i n a t i n g r o l e i s b e t w e e n f e d e r a l and l o c a l a g e n c i e s . ^ B e c a u s e t h e D e p a r t m e n t o f E c o l o g y p l a y s t h e l a r g e r r o l e i n i m p e l e m e n t a t i o n , s t a f f i s a t t a c h e d to t h i s a g e n c y r a t h e r t h a n t h e B o a r d . ' 'The M i n i s t e r c a n r e j e c t p l a n amendments w h i c h a r e ' f r i v o l o u s o r n o t 1n good f a i t h . ' 8 T h e S h o r e l i n e s H e a r i n g s B o a r d h o l d s q u a s i - j u d i c i a l h e a r i n g s on r e q u e s t . o n p e r m i t s , r u l e s , r e g u l a t i o n s , g u i d e l i n e s and m a s t e r p r o g r a m s . 9 In D e v e l o p m e n t P l a n n i n g A r e a s t h e M i n i s t e r c a n r e t a i n e n f o r c e m e n t a u t h r o i t y w h e r e a s i n a r e a s h a v i n g l o c a l p l a n s and b y l a w s , t h e l o c a l g o v e r n m e n t i s t h e e n f o r c e m e n t a u t h o r i t y . 118 The a n a l y s i s p o i n t s out a number of i n t e r e s t i n g a s p e c t s of r e c e n t l e g i s l a t i o n f o r l a n d use c o n t r o l . Not s u r p r i s i n g l y , the major o b j e c t i v e o f the m a j o r i t y o f l e g i s l a t i o n i s to c o n t r o l development over d e s i g n a t e d areas of l a n d , and i n some cases such as Washington, over water as w e l l . The Nantucket Sound I s l a n d s T r u s t B i l l p l a c e s the s t r o n g e s t emphasis on c o n s e r v a -t i o n as an o b j e c t i v e , w h i l e the o t h e r s t a t u t e s emphasize con-s e r v a t i o n a s p e c t s to a l e s s e r degree. The Hawaii and Vermont s t a t u t e s are the o n l y " s t a t u t u e s i n c l u d e d i n the a n a l y s i s which e s t a b l i s h a s t a t e - w i d e program of l a n d - u s e c o n t r o l . The number of Commission members v a r i e s from s i x f o r Washington's S h o r e l i n e s Hearings Board to seventeen f o r the N i a g a r a Escarpment Commission. Vermont makes no s p e c i f i c pro-v i s i o n f o r r e g i o n a l r e p r e s e n t a t i o n on i t s s t a t e l e v e l E n v i r o n -mental Board but i t does c r e a t e n i n e D i s t r i c t Commissions which are r e p r e s e n t a t i v e of each D i s t r i c t i n the S t a t e . The Martha's V i n e y a r d Commission has the h i g h e s t degree of l o c a l r e p r e s e n t a -t i o n w i t h t w e l v e l o c a l members, one S t a t e a p p o i n t e e and one F e d e r a l a p p o i n t e e . C o n s i d e r i n g the two t i e r commission s t r u c t u r e used i n Vermont, l o c a l or r e g i o n a l r e p r e s e n t a t i o n i s s i g n i f i c a n t i n a l l of the s t a t u t e s a n a l y z e d . The s t a t u t o r y r e q u i r e m e n t f o r a d v i s o r y committees i s p r e s e n t i n t h r e e of the a c t s . The Ni a g a r a Escarpment A c t r e -q u i r e s the appointment o f two l o c a l a d v i s o r y committees whereas the Nantucket and Washington b i l l s make the appointment of a d v i s o r y committees o p t i o n a l . 119 The powers of the Commissions vary w i d e l y . The S h o r e l i n e s Hearings Board of Washington i s e s s e n t i a l l y an a p p e a l s body and has l i t t l e power beyond h e a r i n g appeals an p e r m i t s , r e g u l a t i o n s or master programs. The N i a g a r a Escarpment Commission has c o n s i d e r a b l e a u t h o r i t y i n a l l areas d e s c r i b e d i n the a n a l y s i s , i n c l u d i n g major emphasis on the p r e p a r a t i o n o f a Master P l a n f o r the d e s i g n a t e d a r e a . However, the M i n i s t e r of Economics and I n t e r g o v e r n m e n t a l A f f a i r s f o r O n t a r i o r e t a i n s the power to make a f i n a l d e c i s i o n on the a d o p t i o n of both l o c a l p l a n s and the Master P l a n , and on the i s s u a n c e of p e r m i t s so 'that the a c t u a l power of the Commission i s somewhat l i m i t e d . Both Hawaii and Nantucket emphasize z o n i n g c o n t r o l s to a c h i e v e l a n d use o b j e c t i v e s ; i n f a c t the z o n i n g p l a n ; i t s e l f i s a major component of the l e g i s l a t i o n f o r the Nantucket Sound I s l a n d s . The Vermont A c t combines the use of development p e r m i t s and zoning to c o n t r o l development as does the O n t a r i o a c t . I n t e r - d e p a r t m e n t a l c o - o r d i n a t i o n i s mentioned i n a l l the s t a t u t e s s t u d i e d . C o - o p e r a t i o n between s e n i o r and l o c a l governments i s s p e c i f i c a l l y p r o v i d e d f o r i n the Nantucket Sound I s l a n d s T r u s t A c t and the S h o r e l i n e Management A c t . A l l the l e g i s l a t i o n p r o v i d e f o r the appointment of s t a f f d i r e c t l y to the commissions w i t h the e x c e p t i o n o f the Washington A c t . The d i s c r e t i o n a r y power to h i r e s p e c i a l con-s u l t a n t s i s s p e c i f i c a l l y mentioned i n o n l y two a c t s . 1 20 S t a t u t o r y p r o v i s i o n s f o r p u b l i c p a r t i c i p a t i o n i n the p l a n n i n g p r o c e s s vary somewhat. Vermont i s the o n l y government which does not s p e c i f i c a l l y p r o v i d e f o r the showing of p l a n s to the p u b l i c . The Washington and Vermont A c t s are the o n l y a c t s which p r o v i d e f o r p u b l i c p a r t i c i p a t i o n d u r i n g the p o l i c y f o r m u l a t i o n stage of p l a n n i n g ; i n Vermont i t i s d i s c r e t i o n a r y w h i l e i n Washington i t i s mandatory. A l l f i v e p i e c e s of l e g i s -l a t i o n p r o v i d e f o r h e a r i n g s on z o n i n g changes, g e n e r a l p l a n r e v i s i o n s and p e r m i t a p p l i c a t i o n s ( w i t h the e x c e p t i o n of the Nantucket b i l l which does not c r e a t e a p e r m i t s y s t e m ) . However the l e g i s l a t i o n d i f f e r s more w i d e l y i n the degree to which p u b l i c o p i n i o n "as expressed i n hearings, i s c o n s i d e r e d i n f i n a l d e c i s i o n s . In N a n t u c k e t , H a w a i i , and Vermont the major power r e s t s w i t h the Commission which makes d e c i s i o n s based, at l e a s t t h e o r e t i c a l l y , on the r e s u l t s of p u b l i c h e a r i n g s . In Washing-ton the Board hears appeals and makes a f i n a l d e c i s i o n which i s s u b m i t t e d to the Department of Ecology f o r i m p l e m e n t a t i o n . However, i n O n t a r i o the Commission makes recommendations to the M i n i s t e r who makes the f i n a l d e c i s i o n . The o n l y p i e c e of l e g i s -l a t i o n which makes e x p l i c i t the p a r t i c i p a t i o n of the p u b l i c and l o c a l governments i n the p r e l i m i n a r y p l a n or p o l i c y f o r m u l a t i o n stage i s the S h o r e l i n e Management Act of Washington. In Hawaii enforcement of the Land Use Law i s c a r r i e d out e n t i r e l y a t the l o c a l l e v e l of government. The o t h e r f o u r p i e c e s of l e g i s l a t i o n p r o v i d e f o r j o i n t programs of enforcement between s e n i o r and l o c a l governments. The b a l a n c e of power i n 1 21 enforcement appears to l i e w i t h the f e d e r a l government i n the I s l a n d s T r u s t l e g i s l a t i o n ( i . e . the S e c r e t a r y o f S t a t e who p r o v i d e s funds) and w i t h the Envi r o n m e n t a l Board i n the Vermont l e g i s l a t i o n . In Washington, l o c a l m u n i c i p a l i t i e s and c o u n t i e s e n f o r c e a l l l o c a l r e g u l a t i o n s and bylaws r e l a t i n g to s h o r e l i n e use, p r o v i d e d t h a t these r e g u l a t i o n s comply w i t h S t a t e g u i d e -l i n e s and are c o n s i s t e n t w i t h the S h o r e l i n e Management A c t . The appeals procedure v a r i e s w i d e l y i n the s t a t u t e s s t u d i e d . Appeals are made f i r s t to the government board or s p e c i a l commission i n the case of Washington and Vermont, or to the c o u r t s alone i n Nantucket and H a w a i i . In O n t a r i o a p p e a l s are made d i r e c t l y to the M i n i s t e r . Chapter 7 RELEVANCE OF EXISTING LAND USE LEGISLATION TO THE GULF ISLANDS PROPOSAL The p r e c e d i n g a n a l y s i s of l a n d use l e g i s l a t i o n brought to l i g h t a number of p r o v i s i o n s f o r c o n t r o l mechanisms which were thought to be p o t e n t i a l l y u s e f u l f o r a p r o p o s a l f o r G u l f I s l a n d s l e g i s l a t i o n . The s u i t a b i l i t y of the v a r i o u s l e g i s l a t i v e p r o v i s i o n s to the G u l f I s l a n d s ' proposed i n s t i t u t i o n a l s t r u c t u r e was con-s i d e r e d under t h r e e c a t e g o r i e s of c r i t e r i a . The f i r s t c a t e o g r y d e a l s w i t h the normative assumptions developed t h r o u g h o u t t h i s paper. Fox (1971) has i d e n t i f i e d the need to c o n s i d e r normative assumptions i n the d e s i g n or e v a l u a t i o n of i n s t i t u t i o n a l a r r a n g e -ments. The second c a t e g o r y d e a l s w i t h the r u l e s o f n a t u r a l j u s t i c e . The t h i r d c a t e g o r y i n c l u d e s s a f e g u a r d s i n l e g i s l a t i o n which d e l e g a t e s a u t h o r i t y to a n o n - e l e c t e d body. The importance of these s a f e g u a r d s has been s t r e s s e d by Ca r r (1970) i n a d i s -c u s s i o n of E n g l i s h a d m i n i s t r a t i v e law. The f o l l o w i n g l i s t r e p r e s e n t s the c r i t e r i a under which the v a r i o u s p r o v i s i o n s o f l a n d use l e g i s l a t i o n were c o n s i d e r e d 122 1 23 f o r t h e i r a p p r o p r i a t e n e s s to a p r o p o s a l f o r l e g i s l a t i o n f o r the G u l f I s l a n d s : 7.1 Normative Assumptions a. Elements embodied i n the t r u s t concept such as: r e p r e s e n t a t i o n o f w i d e r i n t e r e s t s ; l o n g - t e r m o b j e c t i v e s ; and c o n s i d e r a t i o n of f u t u r e as w e l l as p r e s e n t i n t e r e s t s . b. Acceptance of the l e g i t i m a c y of p a r t i c i p a t o r y democracy ( i . e . l o c a l r e s i d e n t s and users p a r t i c i p a t e i n p l a n n i n g d e c i s i o n s at the l o c a l ( l e v e l ) . c. Acceptance of the l e g i t i m a c y of r e p r e s e n t a t i v e democracy (n;.e. e l e c t i o n of r e p r e s e n t a t i v e s to p o s i t i o n s i n the d e c i s i o n - m a k i n g p r o c e s s ) . d. I n f o r m a t i o n s h o u l d be a v a i l a b l e i n a complete and comprehensive form. 7.2 Rules of N a t u r a l J u s t i c e a. Every t r i b u n a l s h a l l be w i t h o u t b i a s . b. Audi alteram partem; a l l s i d e s must be heard and c o n s i d e r e d . 7 . 3 Safeguards i n Delegated L e g i s l a t i o n a. D e l e g a t i o n s h o u l d be to a t r u s t w o r t h y a u t h o r i t y ( t h i s i s r e l a t e d to the type of r e p r e s e n t a t i o n on the Commission). 1 24 b. The e n a b l i n g a c t s h o u l d c o n t a i n the l i m i t s of d e l e g a t e d power i n c l e a r and p r e c i s e terms. c. A l l i n t e r e s t s s p e c i a l l y a f f e c t e d by the d e l e g a -t i o n of power s h o u l d be c o n s u l t e d p r i o r to the drawing up of l e g i s l a t i o n . d. Rules and r e g u l a t i o n s drawn up by the new a u t h o r i t y shouldbbe made p u b l i c ; t h i s ensures the r e a l i z a t i o n of the common law p r i n c i p l e of a s c e r t a i n a b i 1 i;ty. e. The e n a b l i n g l e g i s l a t i o n and i t s r e l a t e d r u l e s and r e g u l a t i o n s can be amended or revoked by the r e p r e s e n t a t i v e body. Using these c r i t e r i a s e v e r a l p r o v i s i o n s were s e l e c t e d from the f i v e p i e c e s of l e g i s l a t i o n f o r c o n s i d e r a t i o n i n a pr o p o s a l f o r G u l f I s l a n d s l e g i s l a t i o n . These p r o v i s i o n are summarized b r i e f l y and t h e i r s o u r c e s are noted i n b r a c k e t s as f o l 1 o w s : 1 . I t appears to be f e a s i b l e i n B.C. l e g i s l a t i o n to i n t r o d u c e the r a t i o n a l e f o r the l e g i s l a t i o n i n t o the o f f i c i a l r e c o r d , i n the form of a preamble. (A preamble to e s t a b l i s h the c o n t e x t i n which the l e g i s l a t i o n was being enacted was c h a r -a c t e r i s t i c of a l l the U.S. l e g i s l a t i o n . ) 125 2. The importance of d e c i s i o n - m a k i n g a t l o c a l l e v e l s s h o u l d be noted w h i l e at the same time r e c o g n i z i n g the need f o r the a d d i t i o n a l powers and r e s o u r c e s a v a i l a b l e a t h i g h e r l e v e l s of government (Nantucket Sound I s l a n d s ) . 3. S i g n i f i c a n t l o c a l r e p r e s e n t a t i o n on the Commission appears to be d e s i r a b l e due to the natu r e of l a n d use problems and the o b j e c t i v e of a l l o c a t i n g d e c i s i o n making powers to l o c a l people (Nantucket Sound I s l a n d s ) . 4. A t e c h n i c a l c a p a b i l i t y f o r the new a u t h o r i t y through p r o v i s i o n s f o r the h i r i n g of s t a f f and c o n s u l t a n t s appears to be an i m p o r t a n t requirement (Nantucket Sound I s l a n d s , H a w a i i , Vermont, O n t a r i o ) . 5. P r o v i s i o n f o r the p a r t i c i p a t i o n i n c i t i z e n s and l o c a l governments at an e a r l y stage i n the p l a n n i n g process through the e s t a b l i s h m e n t of a procedure to prepare p o l i c y g u i d e -l i n e s appears to be d e s i r a b l e ( Washington). 6. C o - o r d i n a t i o n o f the Commission w i t h o t h e r govern-ment departments and a g e n c i e s i s an i m p o r t a n t r e q u i r e m e n t ( a l l l e g i s l a t i o n ) . 126 7. The d e l e g a t i o n of power to l o c a l a u t h o r i t i e s to p repare p l a n s and bylaws appears to p r o v i d e a more e q u i t a b l e d i s t r i b u t i o n of d e c i s i o n m a k i n g powers (Vermont, O n t a r i o , Washi n g t o n ) . 8. P r o v i s i o n s to h o l d p u b l i c h e a r i n g s p r i o r to the a d o p t i o n of any p l a n s , programs or bylaws are i m p o r t a n t r e q u i r e ments to ensure o p p o r t u n i t y f o r p u b l i c p a r t i c i p a t i o n ( a l l l e g -i s l a t i o n ) . 9 . Where a l o c a l government f a i l s to p r e p a r e a p l a n or bylaw a c c o r d i n g to the terms of the l e g i s l a t i o n , p r o v i s i o n s which empower the S t a t e or P r o v i n c i a l body to c a r r y out t h i s f u n c t i o n appear to be necessary to ensure i m p l e m e n t a t i o n of government p o l i c y ( O n t a r i o , Washington). 10. The r e q u i r e m e n t t h a t an a p p l i c a n t f o r a d e v e l o p -ment p e r m i t must submit proof t h a t the proposed developed w i l l not cause undue harm to the environment, appears to p r o v i d e an a d d i t i o n a l measure o f c o n t r o l over the development p r o c e s s (Vermont). 11. A p e r i o d i c r e v i s i o n of l a n d use and management pl a n s i s an i m p o r t a n t r e q u i r e m e n t ( H a w a i i , O n t a r i o , Washington). 127 12. A procedure f o r appeals i s n e c e s s a r y i n o r d e r t h a t 'due p r o c e s s ' be r e a l i z e d ( a l l l e g i s l a t i o n ) . Chapter 8 RECOMMENDATIONS FOR A SUGGESTED INSTITUTIONAL STRUCTURE OF THE GULF ISLANDS TRUST 8 . 1 Conceptual Framework As o u t l i n e d i n P a r t I , the c e n t r a l t a s k of t h i s r e s e a r c h paper was to develop a p r o p o s a l f o r an i n s t i t u t i o n a l arrangement f o r the purpose o f implementing a p o l i c y of con-t r o l l e d development on the G u l f I s l a n d s . The approach f o l l o w e d was : 1. t o document the background d e v e l o p m e n t s l e a d i n g t o the e s t a b l i s h m e n t of a p r o -v i n c i a l p o l i c y f o r the i s l a n d s i n S e p t e m b e r , 1973. 2 . t o a n a l y z e e x i s t i n g , s i m i l a r p u r p o s e , land use l e g i s l a t i o n f o r i t s r e l e v a n c e t o t h e GuIf I s I a n d s . In P a r t I an attempt was made to un d e r s t a n d the s p e c i a l c h a r a c t e r i s t i c s and problems of the i s l a n d s through a d i s c u s s i o n of the s o c i a l and p o l i t i c a l p e r s p e c t i v e s o f the a r e a . In P a r t I I the a n a l y s i s was i n t e n d e d to p r o v i d e i n s i g h t s i n t o the attempts of o t h e r j u r i s d i c t i o n s to deal w i t h l a n d use and 1 28 1 29 e n v i r o n m e n t a l problems of a s i m i l a r n a t u r e . The l o g i c a l next s t e p and the i n t e n t of P a r t I I I i s (on the b a s i s o f the documen-t a t i o n of P a r t I and the a n a l y s i s of P a r t I I ) , t o develop a p r o p o s a l f o r an i n s t i t u t i o n a l arrangement to a c h i e v e p r o v i n c i a l o b j e c t i v e s f o r the i s l a n d s . A concept f o r such an i n s t i t u t i o n a l arrangement was de v e l o p e d , based on an a p p r e c i a t i o n of the h i s t o r i c a l r o u t e t h a t p l a n n i n g on the i s l a n d s has f o l l o w e d . I m p l i c i t i n t h i s approach i s the u n d e r s t a n d i n g t h a t any p r o p o s a l f o r the f u t u r e of the i s l a n d s must e v o l v e , to some e x t e n t , out of pa s t e x p e r i -ences and pa s t and p r e s e n t i n d i c a t i o n s o f change. The c o n c e p t u a l framework which f o l l o w s i n c o r p o r a t e s an h i s t o r i c a l p e r s p e c t i v e and l e a d s to a c o n c e p t u a l i z e d s t r u c t u r e which r e c o g n i z e s the e v o l u t i o n a r y c h a r a c t e r i s t i c s of s o c i a l and p o l i t i c a l p r o c e s s e s . For the purpose of c o n c e p t u a l i z a t i o n , p l a n n i n g and p o l i t i c a l p r o c e s s e s on the i s l a n d s were c o n s i d e r e d through two time p e r i o d s : 1. t h e p e r i o d p r i o r t o the f o r m a t i o n of R e g i o n a l D i s t r i c t s . 2. the p e r i o d under R e g i o n a l D i s t r i c t j u r i s d i c t i o n . The f i n a l c o n c e p t u a l framework proposes a system of i n s t i t u t i o n a l s t r u c t u r e s f o r the f u t u r e . P r i o r to the t a k e o v e r of i s l a n d p l a n n i n g f u n c t i o n s by the Reg i o n a l D i s t r i c t s , d e c i s i o n s r e l a t i n g t o l a n d use were c o n f i n e d to a few government departments. These i n c l u d e d the 1 30 Department of Highways which s t i l l c o n t i n u e s t o g r a n t . s u b d i v i s i o n a p p r o v a l s i n uno r g a n i z e d t e r r i t o r i e s and the P r o v i n c i a l H e a l t h Branch which c o n t i n u e s to approve the d e s i g n of sewage d i s p o s a l systems. D e c i s i o n s a f f e c t i n g the d i r e c t i o n of development on the i s l a n d s c o u l d t h e r e f o r e be typed a c c o r d i n g to t h r e e d i f f e r e n t groups of a c t o r s i n the p r o c e s s : 1. The e l e c t e d r e p r e s e n t a t i v e s of t h e P r o v i n c i a l government who p o s s e s s e d p o l i c y and d e c i s i o n -making powers f o r u n o r g a n i z e d t e r r i t o r i e s ( I n c l u d i n g the - ' power of t h e M i n i s t e r t o a c t as m a y o r - i n - c o u n c i I ) . 2 . The l i n e a g e n c i e s of the P r o v i n c i a l g o v e r n -ment ( i n c l u d i n g . t h e H e a l t h Branch and Department of H ighways) who e n f o r c e d r e g u -l a t i o n s r e l a t i n g t o land u s e . 3 . The p u b l i c and p r i v a t e s e c t o r s whose a c t i v i t i e s had d i r e c t and i n d i r e c t e f f e c t s on the e n v i r o n m e n t . During t h i s p e r i o d d e c i s i o n s tended to be made on an ad hoc b a s i s , l a r g e l y as a r e s u l t of p o l i t i c a l p r e s s u r e s from competing i n t e r e s t groups. No s p e c i f i c p o l i c y f o r the i s l a n d s had been a r t i c u l a t e d by the P r o v i n c i a l government. In some c a s e s , f o r example Bowen I s l a n d , P r o v i n c i a l p l a n n e r s had begun p r e p a r a t i o n of zo n i n g bylaws, based l a r g e l y on t h e i r s t a n d a r d bylaw format f o r unor g a n i z e d t e r r i t o r i e s , w i t h l i t t l e r e g a r d f o r the s p e c i a l c h a r a c t e r i s t i c s of the i s l a n d . A number of a c t i v i t i e s were a f f e c t i n g the i s l a n d environments but t h e r e was l i t t l e f o rmal r e c o g n i t i o n of the need f o r an e c o l o g i c a l b a s i s f o r l a n d use d e c i s i o n s . The c h a r a c t e r i s t i c s o f a p a r t i c u l a r 131 environment were taken i n t o c o n s i d e r a t i o n o n l y where they imposed s p e c i f i c c o n s t r a i n t s on proposed developments, and t h e n , o n l y to a l i m i t e d degree. Whatever p l a n n i n g o c c u r r e d , was o f a p i e c e m e a l , r e a c t i v e n a t u r e . F i g u r e 1 g i v e s a s y m b o l i c r e p r e -s e n t a t i o n o f t h i s i n i t i a l p l a n n i n g stage on the i s l a n d s . The c r e a t i o n of a r e g i o n a l l e v e l of government ex-panded the d e c i s i o n - m a k i n g and p l a n n i n g a c t i v i t i e s on the i s l a n d s . With i n c r e a s i n g p o p u l a t i o n - i n the r e g i o n and r i s i n g incomes c r e a t i n g a demand f o r v a c a t i o n homes, t h e r e was indeed a need f o r g r e a t e r governmental p a r t i c i p a t i o n i n i s l a n d a f f a i r s . At the same time i s l a n d r e s i d e n t s were demanding a g r e a t e r r o l e i n the p l a n n i n g p r o c e s s . The l a i s s e z - f a i r e a t t i t u d e s of e a r l i e r times were p r o v i n g to be inadequate to deal w i t h the s i t u a t i o n . The R e g i o n a l D i s t r i c t s assumed the p l a n n i n g f u n c t i o n s f o r the i s l a n d s . Competing groups made t h e i r i n t e r e s t s p u b l i c and demanded a say i n l o c a l p l a n n i n g on the i s l a n d s . As a r e s u l t some of the R e g i o n a l D i s t r i c t s developed e x t e n s i v e p r o v i s i o n s f o r p u b l i c p a r t i c i p a t i o n and i n the s e cases com-munity p l a n s were developed which p r o b a b l y came c l o s e to rep-r e s e n t i n g a concensus of v i e w s . In o t h e r cases p l a n s were prepared somewhat a r b i t r a r i l y under the d i r e c t i o n o f the r e g i o n a l r e p r e s e n t a t i v e . The p l a n n i n g f u n c t i o n was d e f i n i t e l y expandi ng. At the same time e n v i r o n m e n t a l concerns were b e i n g f e l t to a much g r e a t e r e x t e n t and p r o t e c t i o n of the environment came to be a v a l i d c r i t e r i o n f o r making d e c i s i o n s . Demands 1 32 F I G U R E 1 P O L I T I C A L & P L A N N I N G P R O C E S S E S : S T A G E O N E 1 33 f o r i n c r e a s e d e n v i r o n m e n t a l c o n t r o l s were ex p r e s s e d by l o c a l and s p e c i a l i n t e r e s t g roups, and a l s o by some departments w i t h i n the P r o v i n c i a l government such as the H e a l t h Branch. As t h e s e spheres of a c t i v i t y i n c r e a s e d i n scope* t h e i r f u n c t i o n s o v e r l a p p e d . L o c a l p l a n n i n g was becoming, from some p o i n t s of view the ' r i g h t ' of the i s l a n d e r s , w h i l e a t the same t i m e , the concern of the e l e c t e d members of government. Out of what might be c a l l e d ' c r e a t i v e c o n f l i c t ' over d i f f e r i n g o b j e c t i v e s a n d d i 1 1 - d e f i n e d r e s p o n s i b i l i t i e s t h e r e emerged a p o l i c y f o r the i s l a n d s , i n the form of the r e p o r t p r e p a r e d by the p r o v i n c i a l committee i n September, 1973. The p o l i c y of c o n t r o l l e d development and c o n s e r v a t i o n thus e v o l v e d out of the i n t e r a c t i o n s between d e c i s i o n - m a k e r s , p l a n n e r s , i s l a n d e r s and the environment. Figurem 2 i l l u s t r a t e s t h i s s t a g e of the proc e s s d u r i n g which a g e n e r a l p o l i c y f o r the i s l a n d s developed^ .eva 1 . The next stage i n the proc e s s of c o n c e p t u a l i z a t i o n was to synthsieze an a l t e r n a t i v e i n s t i t u t i o n a l framework t h a t might be developed to implement p r o v i n c i a l p o l i c y on the i s l a n d s . T h i s i s the problem o f a c t u a l i z i n g the o b j e c t i v e s c o n t a i n e d i n the p o l i c y . The approach taken was to l e g i t i m i z e to some e x t e n t the i n t e r e s t s of those p a r t i c i p a t i n g i n the a c t i v i t y spheres so f a r d e s c r i b e d . Such an approach r e c o g n i z e s the e v o l u t i o n a r y n a t u r e of s o c i a l and p o l i t i c a l p r o c e s s e s on the i s l a n d s and attempts to extend the spheres of i n f l u e n c e of these p r o c e s s e s by c r e a t i n g a system o f s t r u c t u r e s t o a c h i e v e R E G I O N A L S T A F F P R O V I N C I A L L I N E A G E N C I E S R E G I O N A L & P R O V I N C I A L R E P R E S E N T A T I V E S .POL ICY A D V I S O R Y P L A N N I N G C O M M I S S I O N S I N T E R E S T GROUPS F I G U R E 2 P O L I T I C A L & P L A N N I N G P R O C E S S E S : S T A G E T W O 135 s p e c i f i e d g o a l s . These s t r u c t u r e s or i n s t i t u t i o n s would be g i v e n the mandate to c a r r y out s p e c i f i c f u n c t i o n s , by the passage of l e g i s l a t i o n f o r the i s l a n d s . In t h i s c o n c e p t u a l i z a t i o n the group a c t i v i t i e s or f u n c t i o n s become i n s t i t u t i o n a l i z e d by the f o r m a t i o n of c o u n c i l s or committees endowed w i t h the r e s p o n s i b i l i t y of c a r r y i n g out a c t i o n s to a c h i e v e o b j e c t i v e s under g i v e n p o l i c y g u i d e l i n e s . A C o u n c i l might be e l e c t e d by i s l a n d r e s i d e n t s to c a r r y out the l o c a l p l a n n i n g f u n c t i o n on the i s l a n d s . T h i s i s a l o g i c a l ex-t e n s i o n of the e x i s t i n g A d v i s o r y P l a n n i n g Committees. P r o v i n c i a l i n t e r e s t s onthe i s l a n d s would be r e p r e s e n t e d by a 'Trust Com-m i s s i o n ' or s i m i l a r body which would have the power to s e t p o l i c y g u i d e l i n e s and to approve p l a n s and bylaws p r e p a r e d a t the l o c a l l e v e l . An i m p o r t a n t f u n c t i o n of the Commission would be to c o - o r d i n a t e among the v a r i o u s p r o v i n c i a l departments and agenci es. L e g i t i m i z i n g e n v i r o n m e n t a l i n t e r e s t s i s a much more d i f f i c u l t t a s k . In t h i s r e g a r d i t i s thought t h a t Environment Committees c o u l d be e s t a b l i s h e d on each i s l a n d , e i t h e r through e x i s t i n g r e s i d e n t ' s a s s o c i a t i o n s or i n d e p e n d e n t l y . The r o l e of such a committee might be to i n s t i t u t e e n v i r o n m e n t a l p r o t e c -t i o n measures, monitor changes i n the environment and educate r e s i d e n t s and v i s i t o r s on areas of e n v i r o n m e n t a l c o n c e r n . Outputs of such a system would a r i s e out of the j o i n t a reas of r e s p o n s i b i l i t y o f the v a r i o u s l e g i t i m i z e d i n t e r e s t s . The Commission, i n c o n s u l t a t i o n w i t h l o c a l i s ! a n d S o u n c i 1 s , 1 36 would develop p o l i c y g u i d e l i n e s and r e g u l a t i o n s f o r the c o n t r o l of development on the i s l a n d s . L o c a l C o u n c i l s w i t h the a d v i c e of e n v i r o n m e n t a l groups would prepare more s p e c i f i c r e g u l a t i o n s f o r such t h i n g s as the p r o t e c t i o n of watershed a r e a s . E n v i r o n -ment Committees would make r e p r e s e n t a t i o n s to the Commission, and through i t o t h e r p r o v i n c i a l a g e n c i e s to i n t r o d u c e c r i t e r i a f o r d e c i s i o n s based on " c o n s i d e r a t i o n of e c o l o g i c a l systems and the i s l a n d environment. These groups might a l s o lobby f o r improved l e g i s l a t i o n and r e g u l a t i o n s on c o n s e r v a t i o n measures. The r e s u l t i n g o u t p u t s would be dependent upon the a c t i v e par-t i c i p a t i o n of the v a r i o u s group members, the c o n t i n u o u s i n t e r -a c t i o n s of the groups and the l a r g e r community, and the a v a i l -a b i l i t y of i n f o r m a t i o n i n a u s e f u l form. I m p l i c i t i n t h i s i n s t i t u t i o n a l arrangement would be a high degree of i n t e r a c t i o n among p a r t i c i p a n t s w i t h i n and between groups. On more s p e c i f i c p o l i c i e s and programs t o t a l concensus i s not l i k e l y but the committee framework, emphasizing d i a l o g u e , c o u l d t u r n p o t e n t i a l c o n f l i c t i n t o c r e a t i v e d e c i s i o n -making (Friedman, 1973). The c o n c e p t u a l framwork of a s e t of s t r u c t u r e s to o p e r a t i o n a l i z e p r o v i n c i a l p o l i c y i s i l l u s t r a t e d i n F i g u r e 3. In a s s e s s i n g the d e c i s i o n p r o c e s s e s i m p l i c i t i n the c o n c e p t u a l framework, the f o l l o w i n g g e n e r a l normative c r i t e r i a s h o u l d be c o n s i d e r e d (Fox and P e t e r s o n , 1973): 1 37 F I G U R E . 3 P R O P O S E D P O L I T I C A L & P L A N N I N G F R A M E W O R K 1 38 1. The i n d i v i d u a 1 s h o u l d have r e a s o n a b l e a c c e s s t o i n f o r m a t i o n about t h e c o n s e -quences of a l t e r n a t i v e c o u r s e s of a c t i o n . 2 . The i n d i v i d u a l s h o u l d be a b l e t o communi -c a t e h i s p r e f e r e n c e s to t h o s e r e s p o n s i b l e t o r making t h e f i n a l d e c i s i o n on b e h a l f of soc i e t y . 3 . S i n c e t h e i n d i v i d u a l cannot hope t o be f u l l y i n fo rmed on a l l i s s u e s , he s h o u l d be a b l e to p e r m i t a group or a n o t h e r i n d i -v i d u a l w i t h whom he i d e n t i f i e s t o communi -c a t e h i s p r e f e r e n c e s . 4 . The i n d i v i d u a l , o r the group w i t h which he i d e n t i f i e s , s h o u l d have the o p p o r t u n i t y to communicate h i s v iews t o o t h e r s in an e f f o r t to s e c u r e a d h e r e n t s t o h i s own p r e f e r e n c e s . 5. A s o c i a l l y d e s i r a b l e s o l u t i o n i n v o l v e s com-pro-p r o rim ises "among i n d i v i d u a l s (or t h e i r l e g i t i m a t e r e p r e s e n t a t i v e s ) whereby l e s s e r p r e f e r e n c e s a r e f o r e g o n e in o r d e r t o s e c u r e a c c e p t a n c e of g r e a t e r p r e f e r e n c e s . D e c i s i o n - m a k i n g p r o -c e s s e s s h o u l d f a c i l i t a t e t h i s t y p e of t r a d i n g among p r e f e r e n c e s f o r d i f f e r e n t s o c i a l i s s u e s . 8.2 Suggested S t r u c t u r e of the I s l a n d s T r u s t The development of a c o n c e p t u a l framework suggests a s e t of s t r u c t u r e s or an i n s t i t u t i o n a l arrangement to o p e r a t i o n -a l i z e p r o v i n c i a l p o l i c y . T h i s i n s t i t u t i o n a l arrangement i s c a l l e d an I s l a n d s T r u s t . The pri m a r y s t r u c t u r e s recommended f o r the T r u s t a re the I s l a n d s T r u s t Commission and an e l e c t e d C o u n c i l f o r each i s l a n d . A secondary s t r u c t u r e i s the E n v i r o n -ment Committee,ca T o c a T ^ o r g a n i z a t i o n which would" „ work to promote e n v i r o n m e n t a l i n t e r e s t s . 139 8.2.1 Commi s s i o n The e s t a b l i s h m e n t of an I s l a n d s T r u s t Commission i s i n c l u d e d i n the recommendations made by the Committee on M u n i c i p a l M a t t e r s i n i t s r e p o r t to the l e g i s l a t u r e . In a d d i t i o n , a l l the s i m i l a r purpose l e g i s l a t i o n a n a l y z e d i n t h i s s t u d y p r o v i d e d f o r the e s t a b l i s h m e n t of a s i m i l a r commission or board to r e p r e -s e n t p r o v i n c i a l ( s t a t e ) and l o c a l i n t e r e s t s . The Commission i s i n t e n d e d to c o n s o l i d a t e d e c i s i o n - m a k i n g powers of the government which a r e c u r r e n t l y spread among v a r i o u s p r o v i n c i a l departments and r e g i o n a l a u t h o r i t i e s . At the same time the Commission s h o u l d be r e p r e s e n t a t i v e o f both l o c a l and p r o v i n c i a l i n t e r e s t s . An eleven-member Commission i s recommended to be composed of t h r e e members to r e p r e s e n t p r o v i n c i a l i n t e r e s t s and e i g h t members to r e p r e s e n t l o c a l i n t e r e s t s . The e i g h t members would be the e i g h t R e g i o n a l D i r e c t o r s who would assume t h i s f u n c t i o n i n a d d i t i o n to s e r v i n g on t h e i r r e s p e c t i v e R e g i o n a l Boards. Because an e l e v e n member Commission might be d i f f i c u l t to c a l l t o g e t h e r f r e q u e n t l y i t i s recommended t h a t an E x e c u t i v e Committee be formed to i n c l u d e two p r o v i n c i a l members and t h r e e l o c a l members i n c l u d i n g the chairman of the Commission. The E x e c u t i v e Committee would be r e s p o n s i b l e f o r d e a l i n g w i t h m a t t e r s p e r t a i n i n g to i n d i v i d u a l i s l a n d s . For example, the Committee c o u l d approve amendments to pla n s and bylaws and a p p l i c a t i o n s f o r l a n d use c o n t r a c t s f o r a p a r t i c u l a r i s l a n d . The r e p r e s e n t a t i v e o f the i s l a n d f o r which the amendment or a p p l i c a t i o n i s being c o n s i d e r e d s h o u l d s i t as a v o t i n g member of the E x e u c t i v e Committee f o r each case i n v o l v i n g t h a t i s l a n d . 140 The major goals of the Commission as out l ined by these recommendations would be: (1) to ensure that prov inc ia l po l i cy is being followed on the is lands through the exercise of various con t ro l s ; (2) to co-ordinate those programs of other prov inc ia l departments and agencies which e f fec t development on the i s l ands . The primary functions of the Commission would inc lude: 1 . p r e p a r a t i o n • a n d a d o p t i o n of p o l i c y g u i d e l i n e s f o r the i s l a n d s . 2 . a p p r o v a l of community p l a n s and b y l a w s . . 3. a p p r o v a l of amendments t o p l a n s and b y -laws and land use c o n t r a c t s ( i . e . a f u n c -t i o n of t h e E x e c u t i v e C o m m i t t e e ) . 4. a l l o c a t i o n of funds t o a s s i s t in t h e p r e p a r a t i o n of p l a n s and by laws on t h e i s l a n d s and t o c a r r y o u t s p e c i a l p r o j e c t s p roposed by i s l a n d g r o u p s . 5. p r e p a r a t i o n of model s u b d i v i s i o n r e g u l a t i o n s . 6 . co -o t id i nat i on of t h e p o l i c i e s and programs of o t h e r p r o v i n c i a l d e p a r t m e n t s h a v i n g j u r i s d i c t i o n on the i s l a n d s . 7. c o - o p e r a t i o n w i t h l o c a l and r e g i o n a l a u t h o r i t i e s . 8 . c o l l e c t i o n and d i s t r i b u t i o n of i n f o r m a t i o n n e c e s s a r y f o r t h e o p e r a t i o n of the T r u s t . 8.2.2 Island Councils The d i s t r i bu t i on of decision-making powers to those affected by decis ions on the is lands is one of the goals of this author 's proposal . Hence i t is recommended that elected 141 I s land Counc i l s be e s t a b l i s h e d on each i s l a n d . A p o s s i b l e mechanism f o r the c r e a t i o n of these c o u n c i l s would be the d e s i g -nat ion of each i s l a n d a 'deve lop ing community' under S e c t i o n 798 CA of the Mun ic ipa l A c t . Under t h i s d e s i g n a t i o n each i s l a n d would e l e c t a f i v e member Adv isory Counc i l to a s s i s t the Regional D i r e c t o r and to adv ise the Regional Board as does the e x i s t i n g Adv iso ry P lann ing Commission. The l e g i s l a t i o n would g ive the i s l a n d Adv isory Counc i l s a d d i t i o n a l f u n c t i o n s : 1. p r e p a r a t i o n of a community p l a n 2 . p r e p a r a t i o n of a z o n i n g bylaw which might i n c l u d e r e g u l a t i o n s f o r s u b d i v i s i o n s 3. a d m i n i s t r a t i o n of funds f o r t h e p r e p a r a t i o n of p l a n s and by laws 4 . c o - o r d i n a t i o n between i s l a n d r e s i d e n t s , the R e g i o n a l Board and the G u l f I s l a n d s T r u s t Comm i ss i on 5 . p r e p a r a t i o n and/or s u b m i s s i o n t o t h e Commiss ion of p r o p o s a l s f o r p r o j e c t s by e n v i r o n m e n t a l or community g roups on the i s l a n d s . In a d d i t i o n the I s land Counc i l s should be assured access to i n f o r m a t i o n from var ious departments , through the Commission. They should a l s o prov ide i n t p u t to the f o r m u l a t i o n of p o l i c y g u i d e l i n e s f o r the i s l a n d s i n g e n e r a l . 8 . 2 . 3 Environment Committees I t i s recommended that the fo rmat ion of Environment Committees be encouraged by the T rust Commission through the p r o v i s i o n of funds f o r environmental p r o t e c t i o n . This would 142 serve to l e g i t i m i z e environmental i n t e r e s t s which have up to now, been given l i t t l e formal r e c o g n i t i o n and have s u f f e r e d from lack of funding ( H a s k e l l , 1971) . I t would a l so serve as another avenue of p a r t i c i p a t i o n f o r l o c a l r e s i d e n t s . An a d d i t i o n a l and extremely important b e n e f i t might be the p r o v i s i o n of some measure of p r o t e c t i o n of the i s l a n d environment. The o r g a n i z a t i o n of Environment Committees should come about through the l o c a l i n i t i a t i v e of i s l a n d r e s i d e n t s . Such committees might develop as committees of e x i s t i n g r e s i d e n t ' s a s s o c i a t i o n s which are a l ready we l l organized on most i s l a n d s , or they might evolve independent l y . The i s l a n d Adv iso ry C o u n c i l s would submit proposals f o r funding of these groups , along wi th 3 t h e i r recommendations to the Commission f o r i t s a p p r o v a l . C r i t e r i a f o r judg ing proposals might i n c l u d e : 1. d e g r e e t o w h i c h p r o p o s a l s u p p o r t s e n v i r o n m e n t a l o b j e c t i v e s o f t h e T r u s t 2. p r o v i s i o n s f o r e n v i r o n m e n t a l p r o t e c t i o n w h i c h a r e n o t c u r r e n t l y b e i n g m e t 3. o p p o r t u n i t i e s f o r e n v i r o n m e n t a I e d u c a t i o n o f 'vj s I a n d r e s i d e n t s a n d v i s i t o r s 4* o p p o r t u n i t i e s f o r l o c a l p a r t i c i p a t i o n Examples of acceptab le p r o j e c t s might i n c l u d e a n t i -l i t t e r programs, the es tab l i shment of nature t r a i l s and 3 The procedure f o r funding might be s i m i l a r to that c u r r e n t l y used by the Federal Government i n i t s O p p o r t u n i t i e s f o r Youth Program. 1 43 observation areas, and the introduction of public school pro-grams on island ecosystems. An example of a project which is already underway on Denman and Hornby Islands is the protection of island beaches from o i l s p i l l s ; the community group on these islands has purchased peat moss to soak up o i l from the island beaches in emergency situations. The functions of such environmental projects might include: 1 . i m p l e m e n t a t i o n of v a r i o u s e n v i r o n m e n t a l e o n t r o I s ; 2 . e n v i r o n m e n t a l m o n i t o r i n g ; c o m m u n i c a t i o n of p o s s i b l e i n f r i n g e m e n t s of p o l l u t i o n c o n t r o l laws to t h e p r o p e r a u t h o r i t y ; 3 . e n v i r o n m e n t a l e d u c a t i o n ; 4 . i n p u t of t h e e n v i r o n m e n t a l p o i n t of v iew t o i s l a n d p l a n s and t o p o l i c y g u i deI i n e s ; 5. recommendat ions t o a p p r o p r i a t e b o d i e s f o r t h e e s t a b l i s h m e n t of w i l d l i f e and c o n s e r v a t i o n a r e a s and E c o l o g i c a l R e s e r v e s on the i s l a n d s ; 6. c o - o r d i n a t i o n w i t h E n v i r o n m e n t a l Commit tees on ocf/her i s l a n d s . These Environment Committees would be local ly organ-ized with voluntary membership and local ly proposed programs. The only contribution of the Trust Commission would be the pro-vision of funds for such groups to operate. The basic cr i ter ion for establishing funding of these groups would be compliance of their functions with the intent of the Islands Trust leg is -lation and provincial pol icy. 1 44 8.2.4 Procedure Procedures to be f o l l o w e d by the v a r i o u s bodies w i t h i n the T r u s t must be an i m p o r t a n t component of the l e g i s l a -t i o n i f the g o a l s expressed i n the p r e v i o u s c h a p t e r are to be r e a l i z e d . I t i s the a u t h o r ' s o p i n i o n t h a t p a r t i c i p a t i o n i n p l a n n i n g must come a t an e a r l y s t a g e i f i t i s to be t r u l y mean-i n g f u l . I t i s t h e r e f o r e recommended t h a t the Commission p r e p a r e p r o p o s a l s f o r p o l i c y g u i d e l i n e s f o r the i s l a n d s and t h a t t h e s e be adopted o n l y a f t e r t h e r e has been adequate o p p o r t u n i t y f o r i n d i v i d u a l s , I s l a n d C o u n c i l s and Re g i o n a l Boards to comment and make recommendations. S e v e r a l p u b l i c h e a r i n g s s h o u l d be h e l d on the i s l a n d s to a l l o w any i n d i v i d u a l s or groups to p r e s e n t t h e i r v i e w s . In t h i s r e s p e c t the proposed p o l i c y g u i d e l i n e s s h o u l d be w e l l p u b l i c i z e d and made r e a d i l y a v a i l a b l e to the p u b l i c . When the Commission f i n a l l y adopts p o l i c y g u i d e l i n e s , i t s h o u l d g i v e reasons f o r any changes and a l t e r a t i o n s which might have been made. The procedure f o r the a d o p t i o n of pla n s and bylaws as w e l l as amendments i s a l s o of extreme i m p o r t a n c e . I t i s recommended t h a t p l a n s , bylaws and amendments be approved by the I s l a n d Counci1 , the Re g i o n a l Board and the T r u s t Commission. A f t e r a p p r o v a l a t these t h r e e l e v e l s the p l a n or bylaw becomes e f f e c t i v e upon the ap p r o v a l o f the L i e u t e n a n t - G o v e r n o r i n C o u n c i l . I t i s a l s o recommended t h a t a p u b l i c h e a r i n g be h e l d by the Commission p r i o r to app r o v a l being g r a n t e d and t h a t adequate n o t i c e 145 of such h e a r i n g s be g i v e n and adequate o p p o r t u n i t i e s p r o v i d e d f o r i n d i v i d u a l s and groups to make r e p r e s e n t a t i o n s . I t i s f u r t h e r recommended t h a t the a p p l i c a n t f o r a bylaw amendment or a l a n d use c o n t r a c t be r e q u i r e d to submit p r o o f t h a t the proposed development conforms to a l i s t of r e q u i r e m e n t s s p e c i f i e d by the l e g i s l a t i o n or r e g u l a t i o n s o f the T r u s t . T h i s 'burden of p r o o f p r o v i s i o n which puts the r e v e r s e onus on the a p p l i c a n t , i s f e l t to be an i m p o r t a n t mechanism to ensure t h a t proper a t t e n t i o n i s g i v e n to p r o t e c t i o n of the i s l a n d e n v i ronment. F u r t h e r p r o c e d u r a l recommendations i n c l u d e p r o v i s i o n f o r p e r i o d i c r e v i s i o n of p o l i c y g u i d e l i n e s , p l a n s and b y l a w s , and p r o v i s i o n f o r appeals on d e c i s i o n s of the Commission to the Environmentaand Land Use Committee of the P r o v i n c i a l government. Chapter 9 RECOMMENDATIONS FOR LEG ISLAT ION FOR THE GULF ISLANDS TRUST 9.1 I n t e n t and Scope of Proposed L e g i s l a t i o n The i n t e n t of the l e g i s l a t i o n i s to implement c o n t r o l s which would o p e r a t i o n a l i z e the p o l i c y of c o n t r o l l e d development and c o n s e r v a t i o n on the i s l a n d s . Recommendations f o r l e g i s l a -t i o n have been made w i t h the g o a l s e x p r e s s e d i n Chapter 8 mn mind. The s u g g e s t i o n s f o r G u l f I s l a n d s l e g i s l a t i o n which f o l l o w are exp r e s s e d i n c o n s i d e r a b l e d e t a i l . They embody a number of id e a s which are not o r d i n a r i l y e x pressed i n l e g i s l a t i o n . T h i s i s p a r t i c u l a r l y t r u e f o r Canadian l e g i s l a t i o n which f o l l o w s the B r i t i s h t r a d i t i o n of being c o n c i s e and to the p o i n t as opposed to American l e g i s l a t i o n which i s more d e s c r i p t i v e . How-ever the suggested p r o v i s i o n s have been p r e s e n t e d i n t h i s manner to p r o v i d e a f u l l e r and more e x p l i c i t d e s c r i p t i o n of the l e g i s -l a t i v e and r e g u l a t i v e c o n t r o l s which are recommended f o r the i s l a n d s . I t i s a p p r e c i a t e d t h a t the a c t u a l l e g i s l a t i o n would l i k e l y be b r i e f e r and l e s s s p e c i f i c i n some a r e a s . 146 147 I t i s a l s o r e c o g n i z e d t h a t a number of p r o v i s i o n s con-t a i n e d i n the a u t h o r ' s s u g g e s t i o n s f o r l e g i s l a t i o n , might more r e a l i s t i c a l l y be i n c o r p o r a t e d i n t o r e g u l a t i o n s or o p e r a t i n g bylaws of the T r u s t Commission, f o l l o w i n g passage of the l e g i s l a -t i o n by the [ L e g i s l a t u r e . Moreover, the recommendations have not, i n any comprehensive way, i n c o r p o r a t e d the p o l i t i c a l l y -a r r i v e d at v a l u e s , n e c e s s a r y i n the p r e p a r a t i o n of any l e g i s l a -t i o n . The recommendations which f o l l o w t h e r e f o r e c o n s t i t u t e one a l t e r n a t i v e which might be c o n s i d e r e d by the l e g i s l a t o r s and the p u b l i c . The f o l l o w i n g recommendations to e s t a b l i s h a G u l f I s l a n d s T r u s t i n c l u d e a l l the p r o v i s i o n s recommended by the author as a r e s u l t of her r e s e a r c h on the s u b j e c t . For c l a r i t y and convenience a l e g i s l a t i v e format has been f o l l o w e d t h r o u g h o u t . 9.2 G u l f I s l a n d s T r u s t Model B i l l Preamble I t i s r e c o g n i z e d t h a t : ( I ) The G u l f I s l a n d s have un ique e c o l o g i c a l , s c e n i c and n a t u r a l v a l u e s . Both t h e i s l a n d r e s i d e n t s and t h e P r o v i n c e have a common i n t e r e s t i n c o n s e r v i n g t h e s e v a l u e s f o r p r e s e n t and f u t u r e g e n e r a t i o n s . 1 4 8 (2) These v a l u e s a r e c u r r e n t l y t h r e a t e n e d by u n -c o n t r o l l e d d e v e l o p m e n t . (3) E x i s t i n g i n s t i t u t i o n a l a r r a n g e m e n t s appear t o be i n a d e q u a t e t o deal w i t h t h i s s i t u a t i o n . ( 4 ) In o r d e r t o i n s u r e p r o t e c t i o n of the i s l a n d s t h e r e i s a need t o c o - o r d i n a t e a c t i o n between p r o v i n c i a l , r e g i o n a l and l o c a l a u t h o r i t i e s . ( 5 ) Such a c t i o n s h o u l d be c a r r i e d out in the i n t e r e s t of theepeppibewoftitrhePPtsoviince w h i l e m a i n t a i n i n g s p e c i a l emphas is on p r e s e r v a t i o n and enhancement of e x i s t i n g c o m m u n i t i e s . I . I n t e r p r e t a t i on - -" G u l f I s l a n d T r u s t A r e a " o r " G u l f I s l a n d s " means t h e f o l l o w i n g I s l a n d s : S a l t s p r i n g , Nor th P e n d e r , South P e n d e r , Mayne, G a l i a n o , S a t u r n a , K u p e r , T h e t i s , G a b r i o l a , Bowen, G a m b i e r , K e a t s , L a s q u e t i , Denman, Hornby and i n c l u d i n g s m a l l e r i s l a n d s in t h e s u r r o u n d i n g w a t e r s . 2 . P u r p o s e W h i l e i t i s r e c o g n i z e d t h a t most of t h e d e c i s i o n m a k i n g r e l a t i n g t o the f u t u r e of t h e i s l a n d s b e l o n g s in the hands of the l o c a l p e o p l e t h e m s e l v e s , i t i s a l s o r e c o g n i z e d t h a t t h e powers and funds a v a i l a b l e a t the p r o v i n c i a l l e v e l a r e e s s e n t i a l 149 t o c o n t r o l deve lopment of p u b l i c and p r i v a t e lands on t h e G u l f I s l a n d s . I t i s t h e r e f o r e t h e purpose of t h i s A c t t o p r e s e r v e the i s l a n d s f o r p r e s e n t and f u t u r e g e n e r a t i o n s and to i n c l u d e : ( 1 ) c o n s e r v a t i o n of t h o s e a r e a s of the i s l a n d s h a v i n g i m p o r t a n t s c e n i c , , h i s t o r i c , a r c h e o I o g i c a I and e c o l o g i c a l v a l u e s ; (2) land use p o l i c y which e m p h a s i z e s moderate r e s i -d e n t i a l u s e ; moderate r e c o r e a t i o n a I use and p r e s e r v a t i o n of t h e r u r a l a t m o s p h e r e ; . (3) land use p o l i c y which e m p h a s i z e s p e d e s t r i a n and b i c y c l e t r a n s i t on the i s l a n d s r a t h e r than v e h i c l e t r a n s i t ; (4) p r e s e r v a t i o n of the n a t u r a l c h a r a c t e r of t h e s h o r e l i n e and t h e e c o l o g i c a l c o m m u n i t i e s t h a t e x i s t t h e r e o n ; ( 5 ) m a i n t e n a n c e of h igh wate r q u a l i t y s t a n d a r d s in s u r r o u n d i n g w a t e r s ; ( 6 ) g u a r a n t e e of p u b l i c a c c e s s t o t h e f o r e s h o r e where adequate c o n t r o l s a r e p r o v i d e d ; ( 7 ) p r e s e r v a t i o n of the i n t e g r i t y and v i a b i l i t y of e x i s t i n g i s l a n d c o m m u n i t i e s . 1 50 3 . T r u s t Commission (The Commission i s ( I ) A commission s h a l l be e s t a b l i s h e d e s t a b I i shed) t o be known as the "G u l f I s l a n d s T r u s t Commission" t o c a r r y out d u t i e s i n the G u l f I s l a n d s T r u s t A r e a , h e r e a f t e r r e f e r r e d t o as the Gu l f I s l a n d s . ( 2 ) T h i s commission s h a l l be composed as f o l l o w s : (a) seven members t o r e p r e s e n t the i s l a n d s . These members would be the seven e l e c t e d i s l a n d R egional D i r e c t o r s from the e x i s t i n g Regional D i s t r i c t E l e c t o r a l Areas (Outer G u l f I s l a n d s ; S a l t S p r i n g ; Bowen; G a b r i o l a ; Gambler'and Keats; Kuper and T h e t i s ; L a s q u e t i ; Denman and Hornby). These r e p r e s e n t a t i v e s s h a l l be a p p o i n t e d to the Commission a t the same time as they are e l e c t e d t o the R e g i o n a l Board. 1 51 Comment Each I s l a n d o r group of I s l a n d s would t h e r e f o r e e I e c t one rep-r e s e n t a t i v e . T h i s person would s e r v e a dual purpose as member of both the Regional D i s t r i c t Board and T r u s t Commission. T h i s would r e q u i r e o n l y one e l e c t i o n f o r both p o s i t i o n s ; a c h i e v e co-o r d i n a t i o n between Regional D i s t r i c t programs and p o l i c i e s and those of the Commission; and ensure the i s l a n d e r s e l e c t e d r e p r e s e n t a t i o n on the Commission. (CCha i r p e r s o n ) (C.ompensa t i on ) E x e c u t i v e Committee (b) t h r e e members a p p o i n t e d by the L i e u t e n a n t - G o v e r n o r in C o u n c i l t o r e p r e s e n t broad p r o v i n c i a l i n t e r e s t s . ,(•3.) The L i e u t e n a n t - G o v e r n o r i n C o u n c i l s h a l l d e s i g n a t e one member t o c h a i r the Commission. T h i s member would work f u l l time f o r the Comm i ss i on. (4) Members of the Commission s h a l l r e c e i v e a s a l a r y p l u s expenses. ( E s t a b l i s h m e n t of an an E x e c u t i v e Comm. of the Commission) ( I ) A 5 person E x e c u t i v e Committee s h a l l be e s t a b l i s h e d t o be com-posed of members of the Commission Comment The purpose of t h i s group would be t o f u n c t i o n as the " c o r e " of the commission; i t would handle the main a d m i n i s t r a t i v e work load and meet more f r e q u e n t l y on a r e g u l a r b a s i s . 1 5 2 (Compos i t i on) (Power of the Execu-t i ve Comm i ss i oh) Comm i s s i o n S t a f f (EmpIoyees) ( P r o f e s s i ona I ) Cons u I t a n t s ) ( 2 ) The E x e c u t i v e Committee sha I I con-s i s t of 3 p r o v i n c i a l members i n -c l u d i n g the c h a i r p e r s o n of the commission, and 2 i s l a n d members. These members would be e l e c t e d by a m a j o r i t y vote of the whole comm i s s i o n . ( 3 ) The E x e c u t i v e Committee s h a l l have the power to a c t for: the commission on c e r t a i n m a t t e r s as s p e c i f i e d under s e c t i o n 6 of t h i s A c t . (1) The commission s h a l I be f r e e t o a p p o i n t an e x e c u t i v e o f f i c e r and o t h e r employees, i n c l u d i n g a d m i n i -s t r a t i v e and p l a n n i n g p e r s o n n e l , as i t f i n d s necessary t o c a r r y out. i t s d u t i e s . (2) The commission sha I I be f r e e t o engage such o t h e r p r o f e s s i o n a l s e r v i c e s as they may r e a s o n a b l y req u i re . 1 53 ( 3 ) The c o m m i s s i o n s h a l I make i t s s t a f f a v a i l a b l e t o t h e I s l a n d A d v i s o r y C o u n c i l s t o a s s i s t in t h e p r e p a r a t i o n of community p l a n s . ( 4 ) The c o m m i s s i o n s h a l l e s t a b l i s h an o f f i c e and m a i l i n g a d d r e s s . The o f f i c e s h o u l d be where the o r d i n a r y b u s i n e s s of t h e c o m m i s s i o n i s c o n d u c t e d and where p l a n s and r e c o r d s a re k e p t . 6 . By laws and R e s o l u t i o n s ( B y l a w s ) i The c o m m i s s i o n may make such by laws and pass such r e s o l u t i o n s as i t c o n s i d e r s n e c e s s a r y o r a d v i s a b l e f o r the c o n d u c t of t h e a f f a i r s of t h e c o m m i s s i o n ; and may make by laws and pass r e s o l u t i o n s w i t h r e s p e c t t o t h e t i m e and p l a c e of c a l l i n g and h o l d i n g m e e t i n g s , the p r o c e d u r e t o be f o l l o w e d a t t h e m e e t i n g s , and gene ra M y w i t h r e s p e c t t o t h e c o n d u c t of the a f f a i r s of t h e com-m i s s i o n ; and may r e p e a l , amend, o r r e - e n a c t them. (Ava i I a b I e s t a f f t o I s l a n d Adv i -s o r y Cou nc i I s ) ( O f f i c e and ma i i ng add r e s s ) 1 54 7 . Powers of the Commiss ion (The powers l i s t e d in t h i s s e c t i o n r e f e r t o the whole Com-m i s s i o n u n l e s s o t h e r w i s e s p e c i f i e d . ) (PoI i cy G u i d e -l i n e s ) ( I ) W i t h i n 120 days from the e f f e c t i v e date of t h i s A c t , t h e c o m m i s s i o n s h a l l s u b m i t t o the M i n i s t e r , t o I s l a n d A d v i s o r y C o u n c i l s , e f f e c t e d R e g i o n a l Boards and o t h e r i n t e r -e s t e d groups and i n d i v i d u a l s upon t h e i r r e q u e s t , p roposed p o l i c y g u i d e l i n e s c o n s i s t e n t w i t h t h e purpose of t h i s A c t w i t h r e s p e c t t o such t h i n g s a s : t r a n s p o r t a t i o n t o and f rom t h e i s l a n d s deve lopment of p a r k l a n d s , p u b l i c open space and r e c r e a t i o n a l f a c i l i t i e s which a r e c o m p a t i b l e w i t h • p r e s e r v i n g the e n v i r o n m e n t wate r q u a l i t y s t a n d a r d s f o r e s h o r e a c c e s s i b i l i t y and co nt ro I s e s t a b l i s h m e n t of a " f o r e v e r w i l d " c l a s s i f i c a t i o n f o r c e r t a i n un i que.-j:l:a'nds-tot-;be p r o t e c t e d from f u r t h e r deve lopment • 1 55 ( N o t i c e t o Loca A u t h o r i t i e s f o r comment) ( . K-Pub I tcHLlea M ings on P o l i c y Gu i deI i nes ) t h e c a p a c i t y of t h e i s l a n d s f o r f u t u r e growth (a) W i t h i n 60 days of t h e r e c e i p t of such proposed p o l i c y g u i d e l i n e s , A d v i s o r y C o u n c i l s , R e g i o n a l Boards and i n t e r e s t e d groups and i n d i -v i d u a l s s h a l l s u b m i t t o t h e com-m i s s i o n in w r i t i n g , comments on and s u g g e s t e d changes t o t h e p r o -posed g u i d e l i n e s . (b) W i t h i n 60 days of the s u b m i s s i o n of the p roposed g u i d e l i n e s t o A d v i s o r y C o u n c i l s , e t c . , p u b l i c h e a r i n g s s h a l l be h e l d by t h e c o m m i s s i o n on a t l e a s t f i v e of t h e e f f e c t e d i s l a n d s a t which i n t e r e s t e d p u b l i c and p r i v a t e p a r t i e s s h o u l d have t h e o p p o r t u n i t y t o p r e s e n t s t a t e m e n t s and v iews on t h e p roposed g u i d e l i n e s . N o t i c e of such h e a r i n g s s h o u l d be pub -l i s h e d and p o s t e d a t l e a s t t h r e e weeks i n a d v a n c e . 1 56 ( A d o p t i o n of Gu i deI i nes) ( A p p r o v a l of P l a n s and By Iaws ) ( A p p r o v a l of Amendments t o P l a n s , By laws and Land use C o n t r a c t s ) ( c ) W i t h i n , 30 days f o l l o w i n g the l a s t p u b l i c h e a r i n g t h e com-m i s s i o n s h a l l o f f i c i a l l y adopt a r e v i s e d s e t of p o l i c y g u i d e I i n e s . (2) The c o m m i s s i o n s h a l l , f o l l o w i n g a p u b l i c h e a r i n g as s p e c i f i e d under S e c t i o n 9 of t h i s A c t , approve community p l a n s and z o n i n g by laws f o r each of the G u l f I s l a n d s and s h a l l s u b m i t approved community p l a n s and z o n i n g by laws t o the L i e u t e n a n t - G o v e r n o r in C o u n c i l f o r t h e i r f i n a l a p p r o v a l . (3) The E x e c u t i v e Committee of the commiss ion on b e h a l f of the com-m i s s i o n s h a l l be r e s p o n s i b l e f o r a p p r o v i n g a l l amendments t o com-muni ty p l a n s ; z o n i n g by laws and land use c o n t r a c t s . Where an i s l a n d i s not d i r e c t l y r e p r e s e n t e d on the E x e c u t i v e C o m m i t t e e , t h e member f o r t h a t i s l a n d s h a l I be 1 57 c a l l e d t o s i t on the c o m m i t t e e f o r the p u r p o s e s of c o n s i d e r i n g t h a t a p p l i c a t i o n . (4) The c o m m i s s i o n s h a l I be empowered t o : (A I l o c a t i o n of Comm i s s i o n Funds) <) (a.) a l l o c a t e funds and/or s t a f f t o a s s i s t in the p r e p a r a t i o n of community p l a n s and z o n i n g b y l a w s . (b) a l l o c a t e funds t o s u p p o r t e n -v i r o n m e n t a l p r o j e c t s o r s t u d i e s whose aims a r e t o p r o t e c t t h e e n v i r o n m e n t and t o f u r t h e r promote t h e p u r -pose of t h i s A c t . (c ) a l l o c a t e funds o r t o r e - d i r e c t a p p l i c a t i o n s f o r funds f o r the deve lopment of l o c a l com-muni ty p r o j e c t s s u b j e c t t o t h e a p p r o v a l of the I s l a n d A d v i s o r y C o u n c i l s p r o v i d e d such p r o j e c t s a r e in k e e p i n g w i t h the i n t e n t of t h e A c t . 1 58 ( 5 ) The c o m m i s s i o n may p r e p a r e model s u b d i v i s i o n • r e g u I a t i o n s f o r t h e i s l a n d s . The A d v i s o r y C o u n c i l s may use the model s u b d i v i s i o n r e g u l a t i o n s in the p r e p a r a t i o n of z o n i n g b y l a w s . ( 6 ) The c o m m i s s i o n s h a l l endeavour t o c o - o r d i n a t e the programs of o t h e r p r o v i n c i a l d e p a r t m e n t s on the i s l a n d s so t h a t they comply w i t h t h e p u r p o s e s of t h i s A c t . ( A c q u i s i t i o n of Land under t h e Land Commiss ion ) (a) The c o m m i s s i o n s h a l l make recommendat ions t o t h e Land Commiss ion f o r the a c q u i s i -t i o n of land (g reen b e l t s , c o n s e r v a t i o n a r e a s , e t c . ) where such lands a r e t h o u g h t n e c e s s a r y f o r t h e p u r p o s e s of t h i s A c t . ( P a r k P l a n n i n g and C o - o r d i n a t i o n ) (b) The c o m m i s s i o n s h a l l , in c o -o p e r a t i o n w i t h the Depar tment of R e c r e a t i o n and C o n s e r v a -t i o n , c o - o r d i n a t e the p l a n n i n g of a sys tem of g reen b e l t s , 159 m a r i n e p r o t e c t o r a t e s and c o n -s e r v a t i o n a r e a s on the G u l f I s l a n d s . Where p a r k s and c o n s e r v a t i o n a r e a s a r e p l a n n e d , s t r i c t c o n t r o l s on u s e r s s h a l l be e n f o r c e d . Comment: Such a park sys tem s h o u l d be c o - o r d i n a t e d w i t h e x i s t i n g pI ans of t h e P a r k s Branch and a l s o w i t h l o c a l community p l a n s . S i n c e t h e Land Commiss ion a l r e a d y has the power t o a c q u i r e land f o r p a r k s , g r e e n b e l t s and c o n s e r v a t i o n a r e a s as does the Depar tment of R e c r e a t i o n and C o n s e r v a t i o n , a d u p l i c a t i o n of t h i s f u n c t i o n i s t h o u g h t t o be u n n e c e s s a r y . I t i s t h o u g h t t h a t t h e d o n a t i o n of land t o the Crown o r s a l e of . land a t l e s s t h a n market v a l u e s h o u l d be encouraged t h r o u g h t h e use of t a x i n c e n t i v e s and c o n -c e s s i o n s . Such a b a r g a i n i n g p o s i t i o n s h o u l d be made p u b l i c to a t t r a c t donors and s e l l e r s . ( A p p r o v a l of Crown L e a s e s ) (c ) The E x e c u t i v e Commit tee of t h e eommiss ion on b e h a l f of the c o m m i s s i o n s h a l l make recommendat ions t o the Lands Depar tment f o r t h e a p p r o v a l of a l I Crown l e a s e s on t h e G u l f I s l a n d s i n c l u d i n g f o r e s h o r e and wate r I o f I eases . ( P i t s and Q u a r r i e s ) (d.) The E x e c u t i v e Commit tee of the c o m m i s s i o n , on b e h a l f of t h e c o m m i s s i o n , 160 s h a l l make recommenda-t i o n s t o the Department of Highways re t h e s i t i n g of p i t s and q u a r r i e s o r re a l t e r n a t i v e s o u r c e s of g r a v e l s u p p l i e s f o r the purposes of road works on the i s l a n d s . ( B r i d g e s & Tunnels) (e) Because expanded access t o the i s l a n d s would be c o n t r a d i c t o r y t o the pur-poses of t h i s A c t , i t shal I be the pol i c y of the commission t o d i s -courage the c o n s t r u c t i o n of any b r i d g e , causeway, t u n n e l , o r o t h e r d i r e c t v e h i c u l a r access from the mainland to the G u l f I s l a n d s o r between the G u l f I s l a n d s . (Access to Fo r e s h o r e ) ( f ) I t s h a l l be the p o l i c y of the commission t o en-courage p u b l i c a c c e s s t o 161 ( C o - o p e r a t i o n w i t h Reg i onaI A u t h o r i t i e s ) (7) ( A c c e s s t o P r o v . D e p t . I n fo rmat i o n ) (8) I s l a n d A d v i s o r y C o u n c i l s ( D e s i g n a t i o n of G u l f I s l a n d s as D e v e l o p i n g Commun i t i es ( I ) t h e f o r e s h o r e a c c o r d i n g t o the p r o v i s i o n s of the Land R e g i s t r y A c t I 960 c . 2 0 8 s . 8 6 , where adequate c o n t r o l s can be p r o v i d e d . The c o m m i s s i o n s h a l l f a c i l i t a t e c l o s e c o - o p e r a t i o n w i t h l o c a l and r e g i o n a l a u t h o r i t i e s . The c o m m i s s i o n s h a l I have a c c e s s t h r o u g h the E n v i r o n m e n t & Land Use S e c r e t a r i a t , t o i n f o r m a t i o n of o t h e r p r o v i n c i a l d e p a r t m e n t s deemed n e c e s s a r y f o r t h e f u n c t i o n i n g of t h e comm i s s i o n . The M i n i s t e r s h a l l d e s i g n a t e each of the G u l f I s l a n d s as a ' d e v e l o p -ing communi ty ' under S e c t i o n 798CA of the M u n i c i p a l A c t . An I s l a n d A d v i s o r y C o u n c i l would then be e l e c t e d f o r each i s l a n d a c c o r d i n g t o t h e p r o c e d u r e s e t down i n 1 62 (Powers of A d v i s o r y Cou nc i Is) (Commu n i ty P l a n s ) (Zo n i ng B y l a w s ) ( I n f o r m a t i o n M e e t i n g s ) (Rece i p t & A d m i n i -s t r a t i o n of Funds) S u b s e c t i o n (3) of S e c t i o n 798CA of the M u n i c i p a l A c t . (2) In a d d i t i o n t o t h e powers s e t f o r t h f o r t h e A d v i s o r y C o u n c i l s in the M u n i c i p a l A c t t h e G u l f I s l a n d s A d v i s o r y C o u n c i l s s h a l l : (a) P r e p a r e a community p l a n as d e f i n e d under S e c t i o n s 695 t o 700 i n c l u s i v e of the M u n i c i p a l A c t , o r r e v i s e t h e e x i s t i n g p l a n f o r each i s l a n d t o comply w i t h the i n t e n t of t h i s A c t and o t h e r A c t s of the P r o v i n c e (b) P r e p a r e a z o n i n g bylaw which may i n c l u d e s u b d i v i s i o n r e g u -l a t i o n s t o implement t h e commun i t y p l a n . (c ) Hold one o r more p u b l i c i n -f o r m a t i o n m e e t i n g s d u r i n g t h e p r o c e s s of p r e p a r i n g the community p l a n and z o n i n g b y l a w . (d) R e c e i v e and a d m i n i s t e r funds f o r the p r e p a r a t i o n of p l a n s . 163 ( C o - o r d i nat i ng F u n c t i o n ) ( 3 ) Serve as an a d v i s o r y and c o -o r d i n a t i n g body between i s l a n d r e s i d e n t s , t h e R e g i o n a l D i s t r i c t and the c o m m i s s i o n . ( P r o p o s a l s f o r E n v i r o n m e n t a l & Com-muni ty P r o j e c t s ) ( f ) Deve lop and s u b m i t t o the com-m i s s i o n p r o p o s a l s f o r e n v i r o n -mental programs and community p r o j e c t s t h a t confo rm t o t h e i n t e n t of t h i s A c t . ( A c c e s s t o I n f o r m a t i o n ) ( 3 ) I s l a n d A d v i s o r y C o u n c i l s s h a l l be p r o v i d e d w i t h a c c e s s t o i n f o r m a t i o n and t e c h n i c a l a s s i s t a n c e from t h e R e g i o n a l D i s t r i c t and the c o m m i s s i o n and t h r o u g h i t , v a r i o u s p r o v i n c i a l d e p a r t m e n t s . The c o u n c i l s s h a l l a l s o a s s i s t the c o m m i s s i o n and p r o -v i n c i a l s t a f f in o b t a i n i n g i n f o r -mat ion on l o c a l i s l a n d m a t t e r s where needed and s h a l I be r e i m b u r s e d by t h e commiss ion f o r any s t u d i e s o r r e p o r t s so r e q u e s t e d . 164 P r o c e d u r e f o r A p p r o v a l of Community P l a n s and Z o n i n g By laws ( A p p r o v a l by Co unc i I & Reg i ona I Boa rd (I) No community p l a n o r z o n i n g bylaw s h a l l be adopted o r r e p e a l e d e x c e p t a f t e r a h e a r i n g under S e c t i o n 10, S u b s e c t i o n s (2) and (3) of t h i s A c t and e x c e p t upon a m a j o r i t y v o t e of the A d v i s o r y C o u n c i l and the Reg iona B o a r d . ( A p p r o v a l by Commiss ion & L i e u t e n a n t - G o v e r n o r in Cou nc i I ) (Ex i s t i ng Com-muni ty P l a n s ) (2) A p l a n o r bylaw adopted under S u b -s e c t i o n (I) does not come i n t o f o r c e and e f f e c t u n t i l i t has r e -c e i v e d a p p r o v a l by t h e c o m m i s s i o n under S e c t i o n 6 of t h i s A c t and u n t i l i t has r e c e i v e d t h e a p p r o v a l of t h e L i e u t e n a n t - G o v e r n o r in Counc i (3) Where a community p l a n has been approved by the R e g i o n a l Board p r i o r t o the e f f e c t i v e date of t h i s A c t , i t s h a l l be c o n s i d e r e d and approved by t h e commiss ion i f i t c o m p l i e s w i t h the g e n e r a l i n t e n t of t h i s A c t . 1 6 5 (By laws & P l a n s t o Conform) ( 4 ) Where in the o p i n i o n of t h e com-m i s s i o n any p l a n s o r by laws s u b -m i t t e d f o r a p p r o v a l under S u b s e c t i o n ( 2 ) do not conform t o e i t h e r t h e i n t e n t of t h e A c t or poI i c y g u i d e -l i n e s d e v e l o p e d under S e c t i o n ( 6 ) of t h e A c t , t h e c o m m i s s i o n s h a l l a d v i s e t h e A d v i s o r y C o u n c i l which adopted the p l a n o r pas'sett t h e z o n i n g bylaw of t h e p a r t i c u l a r s w h e r e i n the p l a n o r z o n i n g bylaw c o n f l i c t s w i t h the i n t e n t of the A c t and/or the e s t a b l i s h e d p o l i c y g u i d e l i n e s ; the commiss ion s h o u l d i n v i t e the A d v i s o r y C o u n c i l t o s u b m i t w i t h i n such t i m e as t h e M i n i s t e r s p e c i f i e s , p r o p o s a l s t o r e v i s e the p l a n o r bylaw t o c o n -form w i t h t h e i n t e n t of the A c t . ( R i g h t of Commiss ion t o p r e p a r e p l a n s ) (5) Where no community p l a n i s s u b m i t t e d t o t h e c o m m i s s i o n o r approved by t h e c o m m i s s i o n w i t h i n one y e a r of e n a c t -ment of t h i s l e g i s l a t i o n , the M i n i s t e r may d e l e g a t e the p r e p a r a t i o n of a 166 0 . commu.n i.ty p l a n and/or by I aw-.,to t h e comm i s s i o n . P r o c e d u r e f o r Amendments t o Community P l a n s and Z o n i n g By laws and A p p r o v a l s of Land Use C o n t r a c t s ( A p p l i c a t i o n f o r Amendments t o P l a n s & B y l a w s ) (Not i f i c a t i on of AppI i c a t i on) ( H e a r i n g on Appl i c a t i on) (1) A f t e r f i n a l a d o p t i o n of a community p l a n o r z o n i n g bylaw any depar tment o r agency of t h e P r o v i n c e , any a f f e c t e d R e g i o n a l D i s t r i c t o r any p r o p e r t y owner may a p p l y t o t h e c o m m i s s i o n f o r a change in the p l a n o r z o n i n g b y l a w . (2) W i t h i n 10 days of the r e c e i p t of an appI i c a t i o n f o r an amendment , the E x e c u t i v e C o m m i s s i o n , h e r e a f t e r r e f e r r e d t o as t h e commiss ion f o r t h e p u r p o s e s of t h i s S e c t i o n , s h a l l f o r w a r d a copy of t h e a p p l i c a t i o n t o the a f f e c t e d R e g i o n a l Board and A d v i s o r y C o u n c i l f o r comments and recommendat ions on t h e p roposed amendment. (3) A f t e r 60 days but w i t h i n 120 days of the o r i g i n a l r e c e i p t of the a p p l i c a -t i o n t h e c o m m i s s i o n s h a l l a d v e r t i s e 167 ( A p p l i c a t i o n f o r Land Use C o n t r a c t ) . ( H e a r i n g on Land Use C o n t r a c t ) ( S t a t u s of Land Use C o n t r a c t ) a p u b l i c h e a r i n g t o be h e l d on the a p p r o p r i a t e i s l a n d , by p o s t i n g n o t i c e of the h e a r i n g on t h a t i s l a n d and by p u b l i s h i n g n o t i c e of the h e a r i n g in the l o c a l newspaper . (4.) Any p r o p e r t y owner may make a p p l i c a -t i o n t o the c o m m i s s i o n f o r t h e d e s i g n a t i o n of a r e a s of land w i t h i n a zone as deve lopment a r e a s , and may make app I i c a t i o n to e n t e r i n t o a land use c o n t r a c t t o e s t a b l i s h terms and c o n d i t i o n s f o r t h e use and deve lopment of the land as may be m u t u a l l y agreed upon. ( 5 ) A land use c o n t r a c t s h a l I not be e n t e r e d i n t o by t h e c o m m i s s i o n u n t i l i t has h e l d a p u b l i c h e a r i n g . The P r o v i s i o n s of S u b s e c t i o n ( 2 ) and ( "3) a p p l y , w i t h t h e n e c e s s a r y changes and so f a r as a r e a p p l i c a b l e , t o a h e a r i n g under t h i s s e c t i o n . (6) A land use c o n t r a c t i s deemed t o be a z o n i n g bylaw f o r t h e purpose of t h e C o n t r o l l e d A c c e s s Highways A c t 1 68 197 1 c . 3 8 s . 5 2 ; 1972 c . 3 6 s . 2 8 . (Burden of P r o o f ) (7) Wi th r e s p e c t t o a p p l i c a t i o n s r e l a t i n g t o amendments t o community p l a n s and/or z o n i n g b y l a w s , o r the use o t land under a land use c o n t r a c t no change o r use s h a l l be approved by the c o m m i s s i o n u n l e s s the a p p l i c a n t has s u b m i t t e d p roo f t h a t : (a) t h e r e i s a need f o r the use p roposed (b) t h e land i s u s e a b l e and a d a p t -a b l e f o r t h e use p roposed (c) the l a n d i s c a p a b l e of s u s t a i n -ing the use p roposed (d) the use w i l l not r e s u l t in u n -due water o r a i r p o l l u t i o n in c o n s i d e r a t i o n of the land e l e v a t i o n above sea l e v e l ; t h e n a t u r e of the s o i l s t o a d e q u a t e l y s u p p o r t waste d i s p o s a l ; t h e s l o p e of the land and i t s e f f e c t on e f f l u e n t s . ; t h e a v a i l a b i l i t y of r e c e i v i n g w a t e r s f o r t h e d i s p o s a l of e f f l u e n t s ; t h e a p p l i -c a t i o n of- h e a l t h s t a n d a r d s and 169 r e q u i r e m e n t s under t h e PoI Iut ion C o n t r o 1 A c t (19 6 5 ) ; the impac ts of t h e d i s p o s a l of any wastes on the e n v i r o n m e n t and b i o l o g i c a l c o m m u n i t i e s in t h e a r e a . (e) There i s s u f f i c i e n t wate r a v a i l -a b l e f o r t h e r e a s o n a b l y f o r e -s e e a b l e needs of t h e d e v e l o p -ment and w i l l not cause u n r e a -s o n a b l e Burden on any e x i s t i n g wate r supp l i es . ( f ) The deve lopment w i l l not cause u n r e a s o n a b l e c o n g e s t i o n of p e o p l e o r v e h i c l e s which would be c o n -t r a r y t o t h e i n t e n t of t h i s A c t . (g) The deve lopment w i l l not have undue a d v e r s e e f f e c t on t h e s c e n i c o r n a t u r a l beauty of the a r e a . (Ava i Iab i I i t y of I n f o r m a t i o n at H e a r i n g s ) ( 8 ) The burden of p roo f r e q u i r e m e n t s under S u b s e c t i o n (7) s h a l l be made a v a i l a b l e by the c o m m i s s i o n to i n -t e r e s t e d g roups and i n d i v i d u a l s a t 1 70 t h e h e a r i n g and s h a l l be c o n s i d e r e d f o r d i s c u s s i o n a t t h a t h e a r i n g . ( D e c i s i o n ) (9) The c o m m i s s i o n s h a l l i s s u e the d e c i s i o n on a p p l i c a t i o n s f o r amend-ments t o p l a n s and by laws and a p p l i -c a t i o n s f o r land use c o n t r a c t s w i t h i n 30 days of the f i n a l p u b l i c h e a r i n g and s h a l l g i v e r e a s o n s f o r i t s d e c i s i o n s . P e r i o d i c Review of P l a n s and P o l i c i e s ( P e r i o d i c R e v i s i o n ) ( I ) The c o m m i s s i o n s h a l l r e v i e w i t s p o l i c y g u i d e l i n e s f o r the i s l a n d s every 5 y e a r s . (2) The c o m m i s s i o n s h a l l , in c o n j u n c t i o n w i t h t h e a p p r o p r i a t e I s l a n d A d v i s o r y C o u n c i l , r e v i e w t h e community p l a n s and z o n i n g by laws f o r each i s l a n d every 5 y e a r s , and the r e v i s e d p l a n s and by laws s h a l I not be adopted e x c e p t a f t e r a h e a r i n g under S e c t i o n 10, S u b s e c t i o n s (2) and (3) of t h i s A c t . 171 I 2 . A p p e a l s ( A p p e a l s on D e c i s i o n s of Commiss ion ) (I.) Any p e r s o n s , government o r a g e n c i e s d i r e c t l y a f f e c t e d and c o n s e q u e n t l y a g g r i e v e d by a d e c i s i o n of the com-m i s s i o n w i t h r e s p e c t t o : (a.) amendments t o community p l a n s (b) amendments t o z o n i n g by laws (c) a p p l i c a t i o n f o r land use c o n t r a c t s -• ( W r i t t e n S u b -m i s s i o n s ) (2 ) S u b j e c t t o t h e p r o c e d u r e p r e s c r i b e d by t h e r e g u l a t i o n s an a p p e a l under S u b s e c t i o n ' 0 1 ) s h a l l be a h e a r i n g and r e v i e w but the E n v i r o n m e n t and Land Use Committee may a c c e p t w r i t t e n s u b m i s s i o n s o r any o t h e r form of e v i d e n c e . ( C o s t s of H e a r i n g ) (3) The E n v i r o n m e n t and Land Use Com-m i t t e e may, a f t e r a h e a r i n g , a l l o w the appea l s u b j e c t t o such te rms and c o n d i t i o n s as i t may c o n s i d e r 1 72 a d v i s a b l e , or r e f u s e the a p p e a l ; and in the e v e n t the appea l i s r e f u s e d , may o r d e r t h a t any c o s t s of the h e a r i n g be p a i d by t h e appe I I e n t . ( R a r t y on H e a r i n g ) ( 4 ) The c o m m i s s i o n i s e n t i t l e d t o be a p a r t y on the h e a r i n g of the appea l and may t a k e p a r t in the p r o c e e d i n g s . (Appeal t o C o u r t s ) ( 5 ) A p p e a l s on a q u e s t i o n of law o r e x c e s s of j u r i s d i c t i o n o n l y , may be made to the Supreme C o u r t . I 3. L o c a l Employment O p p o r t u n i t i e s (-.Emp I oymeht O p p o r t u n i t i e s ) ( I ) The c o m m i s s i o n , when u n d e r t a k i n g any s t u d i e s o r programs on t h e i s l a n d s h a l l c o n s i d e r wherever p o s s i b l e , t h e o p p o r t u n i t i e s t o employ l o c a l i s l a n d r e s i d e n t s f o r the work n e c e s s a r y t o c a r r y o u t t h e s e s t u d i e s and prog rams. ( 2 ) The c o m m i s s i o n s h a l l examine the o p p o r t u n i t i e s f o r the deve lopment of a c t i v i t i e s on t h e i s l a n d s such as a q u a c u l t u r e and a g r i c u l t u r e , which would p r o v i d e o p p o r t u n i t i e s f o r l o c a l employment . 1 73 ( R e v i e w o f o t h e r Government P r o -g rams t o Comp I y w i t h A c t ) ( 2 ) A l l p r o v i n c i a l d e p a r t m e n t s , a g e n c i e s and r e g i o n a l d i s t r i c t s s h a l l r e v i e w a d m i n i s t r a t i v e p o l i c i e s , r e g u l a t i o n s , p l a n s and by laws r e l a t i n g t o jands under t h e i r r e s p e c t i v e j u r i s d i c t i o n s in the G u l f I s l a n d s t o e n s u r e com-p l i a n c e w i t h the i n t e n t of t h i s A c t . I 5 . E x p a n s i o n of G u l f I s l a n d s T r u s t Area (Add i t i o n of I s Iands t o G u l f I s l a n d T r u s t A rea ) ( I ) The L i e u t e n a n t - G o v e r n o r in C o u n c i l may a t the r e q u e s t of a R e g i o n a l B o a r d , t h e c o m m i s s i o n o r t h e M i n i s t e r , by o r d e r , d e s i g n a t e a d d i t i o n a l i s l a n d s o r a r e a s t o be i n c l u d e d in the G u l f I s l a n d s T r u s t Area and t h e p r o v i s i o n s of t h i s A c t w i l l a p p l y m u t a t i s m u t a n d i s . ( 2 ) The L i e u t e n a n t G o v e r n o r may by, an Order in C o u n c i l o r amendment t o t h i s A c t : (a) c r e a t e a n o t h e r s e p a r a t e T r u s t Commiss ion a r r a n g e m e n t f o r a group of i s l a n d s o t h e r t h a n t h e 1 74 G u l f I s I a n d s s u n d e r the terms of t h i s A c t . Comme n t : I t i s t h o u g h t t h a t because the ve ry p r e c i o u s and un ique c h a r a c -t e r i s t i c s of o t h e r i s l a n d g roups in B r i t i s h C o l u m b i a such as t h e queen C h a r l o t t e s , may in the near f u t u r e be t h r e a t e n e d by the same k i n d s of p r e s s u r e s now on the G u l f I s l a n d s , t h e government s h o u l d s e r i o u s l y c o n s i d e r and a l l o w f o r t h e p o s s i b i l i t y of c r e a t i n g o t h e r " T r u s t s " f o r such a r e a s . (b) d i v i d e t h e G u l f I s l a n d s T r u s t Commiss ion i n t o more than one T r u s t Commiss ion f o r s p e c i f i c a r e a s , each h a v i n g t h e same powers of the G u l f I s l a n d s T r u s t Commiss ion as s p e c i f i e d i n t h i s A c t . Comment: I t i s t h o u g h t t h a t a t some f u t u r e date t h e c o m m i s s i o n may f i n d i t more c o n v e n i e n t and/or e f f i c i e n t to e x e r c i s e i t s powers under the A c t by d i v i d i n g the G u l f I s l a n d s T r u s t Area i n t o s m a l l e r a r e a s of g roups of i s l a n d s . I 6 . Annua I R e p o r t (Annual R e p o r t ) T ^ s The c o m m i s s i o n s h a l I p r e p a r e and d i s t r i b u t e an annual r e p o r t o u t -l i n i n g i t s a c t i v i t i e s and e x p e n d i -t u r e s f o r t h a t y e a r and s u b m i t t h i s r e p o r t t o t h e M i n i s t e r . 1 75 I 7 . A p p r o p r i a t i o n of Funds (Ap p rop r i a t i on ) For the p u r p o s e s of t h i s A c t the M i n i s t e r of F i n a n c e s h a l l , f rom t i m e t o t i m e , as r e q u i r e d by t h e commis -sion pay out from g e n e r a l revenue funds an amount not t o exceed 9 . 3 Content A n a l y s i s of G u l f I s l a n d s T r u s t B i l l An a n a l y s i s of the c o n t e n t of the G u l f I s l a n d s T r u s t model b i l l was c a r r i e d out and the r e s u l t s appear i n Ta b l e 4 . The c o n t e n t o f the proposed l e g i s l a t i o n can be compared to the s i m i l a r purpose l e g i s l a t i o n a n a l y z e d i n t h i s study b y . r e f e r r i n g to T a b l e 3 . A comparison of Tab l e s 3 and 4 demonstrates the emphasis the proposed l e g i s l a t i o n p l a c e s on p u b l i c p a r t i c i p a t i o n . T a b l e 4 , . ' 176 A n a l y s i s of Contents o f G u l f I s l a n d s T r u s t Model B i l l G u l f I s l a n d s Element *of L e g i s l a t i o n T r u s t Model B i l l OBJECTIVES FOR LAND USE CONTROL C o n s e r v a t i o n R e c r e a t i o n P r o t e c t i o n of Farmland S h o r e l i n e Management Development C o n t r o l AREA OF CONTROL S t a t e or P r o v i n c e - w i d e S p e c i a l Regions COMMISSION STRUCTURE S i z e Tenure Degree of R e g i o n a l R e p r e s e n t a t i o n D i s t r i c t Commissions A d v i s o r y Committees COMMISSION POWERS 11 73 Q/o P o l i c y F o r m u l a t i o n Land use c o n t r o l s : Land use c o n t r o l s : Land a c q u i s i t i o n by Land a c q u i s i t i o n by z o n i ng permi t s p u r c h a s e , g i f t s e x p r o p r i a t i o n P r e p a r a t i o n of a Master P l a n CO-ORDINATING FUNCTION I n t e r d e p a r t m e n t a l S e n i o r - l o c a l government c o - o r d i n a t i o n TECHNICAL CAPABILITY H i r i n g of S t a f f Access to Government S t a f f H i r i n g of C o n s u l t a n t s CONTINUED 1 77 Table 4 ( C o n t i n u e d ) Element of L e g i s l a t i o n Hear ngs PUBLIC PARTICIPATION . A v a i l a b i l i t y o f P l a n s to P u b l i c on P o l i c y F o r m u l a t i o n on A d o p t i o n of P l a n s on Zoning Changes on P l a n R e v i s i o n s on P e r m i t A p p l i c a t i o n s H e a r i ngs Hear i Hear ngs ngs He a r i ngs Burden of Pr o o f on A p p l i c a n t G u l f I s l a n d s T r u s t Model B i l l ENFORCEMENT S e n i o r government c o n t r o l L o c a l C o n t r o l APPEAL PROCEDURES P r o v i s i o n f o r P r o v i s i o n f o r P r o v i s i o n f o r of P l a n s A d m i n i s t r a t i v e Appeal J u d i c i a l Appeal P e r i o d i c R e v i s i o n Chapter 10 IMPLICATIONS OF THE ESTABLISHMENT OF A GULF ISLANDS TRUST COMMISSION 10.1 Inadequacy of L o c a l Development C o n t r o l s The major impetus f o r i n c r e a s e d p r o v i n c i a l / s t a t e l e v e l c o n t r o l s over l a n d use appears to be the i n a b i l i t y of l o c a l governments to contend w i t h the p r e s s u r e s c r e a t e d by p r i v a t e i n t e r e s t s i n l a n d ( S t r o n g , 1963; Babcock, 1966; H a s k e l l , 1971). U n i n c o r p o r a t e d r u r a l areas o f t e n l a c k t h r e e i m p o r t a n t c o n d i t i o n s n e c e s s a r y f o r adequate l a n d use p l a n n i n g . The f i r s t c o n d i t i o n i s the e x i s t e n c e o f a s u i t a b l e o r g a n i z a t i o n a l s t r u c -t u r e to make d e c i s i o n s and c a r r y out p o l i c i e s and programs. For the G u l f I s l a n d s the Re g i o n a l Board c u r r e n t l y s e r v e s as the ' s u r r o g a t e ' c o u n c i l f o r u n o r g a n i z e d t e r r i t o r i e s . Under s p e c i a l c i r c u m s t a n c e s , such as the 10-acre f r e e z e , and on any q u e s t i o n of appeal from the Regi o n a l Board, the M i n i s t e r of M u n i c i p a l A f f a i r s a c t s as the M a y o r - i n - C o u n c i 1 . The P r o v i n c i a l l e g i s l a t u r e and the Re g i o n a l Boards are r e s p o n s i b l e f o r many r e g i o n a l and p r o v i n c i a l f u n c t i o n s and the a d m i n i s t r a t i o n of un o r g a n i z e d 1 78 179 t e r r i t o r i e s i s sometimes of low p r i o r i t y . In a d d i t i o n the l o c a t i o n of the r e g i o n a l o f f i c e s are u s u a l l y f a r removed p h y s i c a l l y from the i n d i v i d u a l i s l a n d s and communications have been poor p a r t l y as a r e s u l t . The second c o n d i t i o n f o r c o n t r o l l i n g l a n d use i n any area i s the e x i s t e n c e of adequate powers a t the l e v e l of r e g u l a -t i o n . In B r i t i s h Columbia the p r i n c i p l e a u t h o r i t y - d e l e g a t i n g l e g i s l a t i o n i s the M u n i c i p a l A c t . Under t h i s A c t the m u n i c i p a l -i t i e s are g i v e n the power to r e g u l a t e l a n d use through the enforcement of z o n i n g bylaws and s u b d i v i s i o n and b u i l d i n g regu-l a t i o n s . The A c t a l s o e s t a b l i s h e s the procedures by which amendments to pl a n s and bylaws must be a p p l i e d f o r and g r a n t e d . As lo n g as the a p p l i c a n t f o l l o w s the c o r r e c t l e g a l procedure and the C o u n c i l ( o r the R e g i o n a l Board i n the case of the i s l a n d s ) c o n s i d e r s "the promotion of h e a l t h , s a f e t y , convenience and w e l f a r e of the p u b l i c " i n i t s d e c i s i o n , the a p p l i c a t i o n f o r a zoning change or development p e r m i t must be approved ( M u n i c i p a l A c t , R.S.B.C V,'I 960, s. 702). The language of the M u n i c i p a l Act i s s u f f i c i e n t l y vague t h a t i t i s o f t e n d i f f i c u l t to prove t h a t a p r o p o s a l i s not i n keeping w i t h the p u b l i c h e a l t h and w e l f a r e . The problem i s compounded by the d i s c r e p a n c y between the r e s o u r c e s a v a i l a b l e to the d e v e l o p e r ( i n terms of ' e x p e r t ' con-s u l t a n t s ) and the r e s o u r c e s a v a i l a b l e to the p u b l i c . T h i s l e a d s us to the t h i r d p o i n t of the ' t e c h n i c a l c a p a b i l i t y ' of l o c a l governments. 180 The t h i r d c o n d i t i o n f o r s u c c e s s f u l p u b l i c r e g u l a t i o n o f l a n d i s the a v a i l a b i l i t y of adequate r e s o u r c e s . L o c a l m u n i c i -p a l i t i e s and u n o r g a n i z e d t e r r i t o r i e s are dependent on revenues from p r o p e r t y t a x e s . In the p a s t , t h e r e has been a g r e a t tendency f o r l o c a l governments to encourage development to i n c r e a s e the t a x base (Bosselman and C a l l i e s , 1971). I t i s o n l y r e c e n t l y t h a t some governments have begun to r e a l i z e t h a t the hidden c o s t s a s s o c i a t e d w i t h i n c r e a s e d development, o f t e n outweigh the b e n e f i t s d e r i v e d from h i g h e r tax revenues ( E h r l i c h s a n d E h r l i c h , 1970). A B.C. C a b i n e t M i n i s t e r has been r e p o r t e d as s a y i n g : Whatever the rewards to the developers . . . (the Minister) is concerned . . . with the cost-benefit r a t i o to the Province of large-scale developments on the islands. He believes there is no waytthis r a t i o can be a favourable one. The future costs . . . include services such as p o l i c e and f i r e protection, schools, hospitalssewers, road maintenance, parks and - above a l l - increased f e r r i e s . ( T y h u r s t , 1972) With the e x i s t i n g tax revenues on the i s l a n d s t h e r e are not enough funds a v a i l a b l e f o r comprehensive r e s o u r c e i n v e n -t o r i e s and p l a n n i n g programs. There are a l s o i nadequate funds and t e c h n i c a l s t a f f a v a i l a b l e to s u p p l y the n e c e s s a r y i n f o r m a t i o n i n the event of p r o p o s a l s f o r l a r g e - s c a l e development on the i s l a n d s . In c o n c l u s i o n , the c u r r e n t i n s t i t u t i o n a l s t r u c t u r e which r e g u l a t e s l a n d use on the i s l a n d s appears to p r e c l u d e a 1 8 1 s a t i s f a c t o r y system of development c o n t r o l based on the p u b l i c i n t e r e s t . T h i s i s due to t h r e e f a c t o r s : 1. The d e c i s i o n - m a k i n g p rocess , in the e x i s t i n g s t r u c t u r e i s c o m p r i s e d l a r g e l y of a number of d i f f e r e n t d e p a r t m e n t s and l e v e l s of government making i n d e p e n d e n t d e c i s i o n s w i t h o u t c o - o r d i n a t i o n and w i t h d i s r e g a r d , in some c a s e s , f o r t h e p r i n c i p l e of a c c o u n t a b i I i t y . 2 . The l a c k of power of l o c a l governments in g e n e r a l , and u n o r g a n i z e d t e r r i t o r i e s in p a r t i c u l a r t o make l e g i s l a t i o n f o r land use beyond t h e t r a d i t i o n a l , more l i m i t e d mechanisms of z o n i n g by laws and s u b d i v i s i o n reg uI a t i o n . 3 . The l i m i t e d t e c h n i c a l c a p a b i l i t i e s of l o c a l governments which a r e r e s t r i c t e d t o a revenue s o u r c e based on p r o p e r t y t a x e s . The proposed G u l f I s l a n d s T r u s t i s i n t e n d e d t o p r o v i d e an o r g a n i z a t i o n a l s t r u c t u r e : c a p a b l e of c o - o r d i n a t i o n w i t h o t h e r a d m i n i s t r a t i v e departments and l e v e l s o f government; w i t h the r e q u i s i t e powers s p e c i f i e d i n l e g i s l a t i o n to implement p r o v i n c i a l p o l i c y ; and w i t h an adequate t e c h n i c a l c a p a b i l i t y and r e s o u r c e s drawn from the p r o v i n c i a l t a x base. T a b l e 5 summarizes the p e r c e i v e d advantages of the proposed G u l f I s l a n d s T r u s t over the e x i s t i n g a d m i n i s t r a t i o n of seven R e g i o n a l Boards i n the G u l f I s l a n d s study a r e a . Table 5 Comparison of F e a t u r e s of the Proposed G u l f I s l a n d s T r u s t to E x i s t i n g Regional Boards I n s t i t u t i o n a l F e a t u r e s G u l f I s l a n d s T r u s t (proposed) Regional Boards ( e x i s t i n g ) Scope/obj e c t i ves s p e c i a l i z e d ; f o c u s e d on development c o n t r o l g e n e r a l i z e d ; p r o v i s i o n of a number of s e r v i c e s Powers s p e c i a l l y c r e a t e d by l e g i s l a t i o n l i m i t e d to d e l e g a t e d powers o u t -l i n e d i n M u n i c i p a l A c t F i n a n c i a l Resources drawn from g e n e r a l revenue funds based on p r o v i n c i a l tax base l i m i t e d to a p o r t i o n of the prop-e r t y taxes of a s p e c i f i c e l e c -t o r a l a r e a s ; p r o p e r t y t a x e s are r e g r e s s i v e i n nature T e c h n i c a l C a p a b i l i t y Commission s t a f f ; P r o v i n c i a l s t a f f ; c o n s u l t a n t s Regional s t a f f ; T e c h n i c a l P l a n n i n g Committee ( c a p a b i l i t y v a r i e s w i t h R.D.); P r o v i n c i a l S t a f f C o - o r d i n a t i ng F u n c t i o n Commission p l a y s c o - o r d i n a t i n g r o l e between p r o v i n c i a l departments p r o v i n c i a l departments have no s t a t u t o r y o b l i g a t i o n to heed r e g i o n ' s i n t e r e s t s R e p r e s e n t a t i o n l o c a l ; r e g i o n a l ; p r o v i n c i a l 1ocal ; r e g i o n a l CONTINUED CO ro Tab! e 5 ( C o n t i nuecl) lEhstditut-iional F e a t u r e s G u l f I s l a n d s T r u s t (proposed) Regional Boards ( e x i s t i n g ) L e v e l o f P l a n n i n g i s l a n d s may be added to or d e l e t e d from T r u s t d i f f i c u l t to expand any c o - r o d i n a -tionv.with 7 or more R.D.'s I n t e r - I s ! a n d Communication s u b s t a n t i a l negl i gdibl e Organi z a t i o n a l B e h a v i o u r tendency to be more h i g h l y m o t i v a t e d and i n n o v a t i v e lower l e v e l of m o t i v a t i o n i n regards to p l a n n i n g on the i s l a n d s 184 10.2 Trend to I n c r e a s e d P r o v i n c i a l / S t a t e R e s p o n s i b i l i t i e s i n L o c a l A f f a i r s T h i s study has documented i n some d e t a i l , s e v e r a l examples of s t a t e and p r o v i n c i a l l e g i s l a t i o n to p r o v i d e l a n d use r e g u l a t i o n s which had f o r m a l l y been the j u r i s d i c t i o n of l o c a l governments. There are c o u n t l e s s o t h e r examples. The S t a t e s of Maine, F l o r i d a , Washington and Oregon have each adopted a s t a t e w i d e r e g u l a t o r y system i n the l a s t f i v e y e a r s . Other s t a t e s have enacted l a n d use c o n t r o l s f o r " c r i t i c a l a r e a s " or areas of " s t a t e w i d e s i g n i f i c a n c e . " These i n c l u d e , among o t h e r s , Washington, W i s c o n s i n , M a s s a c h u s e t t s , Delaware and C a l i f o r n i a (Bosselman and C a l l i e s , 1971). Canada's P r o v i n c i a l l e g i s l a t u r e s have a l s o responded to the need f o r i n c r e a s e d p r o v i n c i a l c o n t r o l over l a n d use. The two n o t a b l e examples are the Land Commission A c t (R. S . B . C , 1973) of B r i t i s h Columbia to p r e s e r v e f a r m l a n d i n the p r o v i n c e and the P l a n n i n g and Development A c t (1973) of O n t a r i o . 10.3 Trend to S p e c i a l Purpose Bodies Many of the i n c r e a s e d r e s p o n s i b i l i t i e s of the S t a t e and P r o v i n c i a l governments have been d e l e g a t e d to s p e c i a l purpose bodies ( C r a w f o r d , 1954). The s p e c i a l bodies and commissions c r e a t e d by p r o v i n c i a l l e g i s l a t i o n are e n t r u s t e d w i t h implement-i n g p r o v i n c i a l p o l i c y . The f u n c t i o n s and powers of the com-m i s s i o n are g e n e r a l l y s p e l t out i n the l e g i s l a t i o n and an e l e c t e d 185 r e p r e s e n t a t i v e of the p e o p l e , u s u a l l y a M i n i s t e r , i s u l t i m a t e l y r e s p o n s i b l e f o r the i m p l e m e n t a t i o n of the A c t . G i v i n g a member of the l e g i s l a t u r e u l t i m a t e c o n t r o l over the commission makes the d e c i s i o n s of the commission a c c o u n t a b l e to the p u b l i c . A number of o b s e r v e r s such as Rogers, C o r r y and Fi n k l e m a n , have noted the t r e n d towards d e l e g a t i o n of powers to boards and commissions p a r t i a l l y independent of the e l e c t e d govern-ment body having c o n s t i t u t i o n a l j u r i s d i c t i o n (Lane, 1970). A number of reasons have been advanced to j u s t i f y t h i s t r e n d ; some of these are summarized as f o l l o w s : With t h e e x p a n s i o n of government a c t i v i t i e s , p a r l i a m e n t i s f a c e d w i t h a l i m i t a t i o n of t i m e . It a p p e a r s more i m p o r t a n t t h a t p a r l i a m e n t has t h e t i m e to devo te i t s e l f to the l e g i s l a t i v e r a t h e r t h a n t h e more d e -t a i l e d a d m i n i s t r a t i v e f u n c t i o n s . 2 . The s u b j e c t of leg i n c r e a s i ngIy t e c h n more d i f f i c u l t t o b i l l s . i sI a t i on i s beom i ng i caI and the r e f o r e i n c o r p o r a t e i nto 3 . More t e c h n i c a l p rob lems appear t o r e q u i r e g r e a t e r a d m i n i s t r a t i v e m a c h i n e r y which i s a l s o d i f f i c u l t to i n c o r p o r a t e i n t o b i l l s . In a d d i t i o n i t i s i m p o s s i b l e t o i n c l u d e p r o v i s i o n s f o r unknown c o n -t i n g e n c i e s . 4 . A s p e c i a l c o m m i s s i o n can be more f l e x i b l e and a d a p t a b l e t o c h a n g i n g c o n d i t i o n s . 5 . D e l e g a t e d b o d i e s can be more e x p e r i m e n t a l in n a t u r e and can p r o f i t f rom e x p e r i e n c e . 186 6. D e l e g a t e d b o d i e s can respond more q u i c k l y t o a sudden n e e d . (Committee on M i n i s t e r s ' Powers, 1932 i n Lane, 1970) The s e l e c t i o n of the a p p r o p r i a t e agency to e x e r c i s e the p r o v i n c e / s t a t e r o l e i n land use r e g u l a t i o n appears to vary w i d e l y . Bosselman and C a l l i e s (1971) i d e n t i f i e d t h r e e a l t e r -n a t i v e s i n the s t a t e l e g i s l a t i o n c o n s i d e r e d i n t h e i r r e c e n t s t u d y : 1. l i n e a g e n c i e s of s t a t e government 2. i n d e p e n d e n t s t a t e c o m m i s s i o n s . 3. s t a t e - c r e a t e d r e g i o n a l c o m m i s s i o n s S i n c e much of the r e c e n t l e g i s l a t i o n has d e a l t w i t h s t a t e - w i d e r e g u l a t i o n s , the f o r m a t i o n of an independent com-m i s s i o n appears to be a common approach. The B.C. Land Commission, the Vermont Envi r o n m e n t a l C o n t r o l Board and the Hawaiian Land Commission are examples of t h i s approach. The advantages of t h i s type of i n s t i t u t i o n a l arrangement l i e i n the g r e a t e r o b j e c t i v i t y of a s p e c i a l body which i s at l e a s t p a r t i a l l y i n -dependent of o t h e r government departments. In a d d i t i o n the tendency f o r more i n n o v a t i v e , l e s s t r a d i t i o n a l approaches to problems are o f t e n c h a r a c t e r i s t i c of new o r g a n i z a t i o n s (Gawthrop, 1969). The c r e a t i o n of a r e g i o n a l commission i s a p p r o p r i a t e where an area of s p e c i a l s i g n i f i c a n c e i s c o n s i d e r e d f o r p r o t e c -t i o n . Examples i n c l u d e the Nia g a r a Escarpment A c t , the San 187 F r a n c i s c o Bay Area C o n s e r v a t i o n D i s t r i c t and the Nantucket Sound I s l a n d s T r u s t B i l l . Independent r e g i o n a l commissions e s t a b l i s h e d by l e g i s l a t i o n tend to have the same advantages as s t a t e or p r o v i n c e - w i d e commissions. However the appointment of a s i g n i f i c a n t number of l o c a l r e s i d e n t s r a i s e s the p o s s i b i l i t y of a pro-development b i a s , e s p e c i a l l y where l o c a l p r o p e r t y taxes are the o n l y source of revenue and s u b s i d y by the s t a t e or p r o v i n c i a l governments i s not i n v o l v e d (Bosselman and C a l l i e s , 1971 ). The c r e a t i o n of a l i n e agency of the s t a t e or p r o -v i n c i a l government has been commonly used where the r e g u l a t i o n s focus on a s i n g l e purpose. These i n c l u d e the M a s s a c h u s e t t s Wetlands A c t and the Washington S h o r e ! i h e Management Program. Other s t a t e s have u t i l i z e d t h i s approach to a c h i e v e more com-p r e h e n s i v e o b j e c t i v e s , f o r example Minnesota's newly c r e a t e d Department of N a t u r a l Resources and New J e r s e y ' s Department of En v i r o n m e n t a l P r o t e c t i o n ( F u l l e r , 1971). Where the a u t h o r i t y to c o n t r o l l a n d use a t a p r o v i n c e or s t a t e - w i d e l e v e l i s g i v e n to an e x i s t i n g department or agency t h e r e i s the c r i t i c i s m t h a t these departments are too b i a s e d towards t h i e r r o w n programs to do a f a i r j o b on a new program of wide scope (Bosselman and C a l l i e s , 1971). T h i s t r e n d towards i n c r e a s e d p r o v i n c i a l / s t a t e a u t h o r i t y i s a t t r i b u t e d o n l y p a r t l y to the s t r u c t u r a l problems of l o c a l governments. I t i s a l s o p a r t i a l l y a r e s u l t of changing 188 c o n d i t i o n s which have c r e a t e d a need f o r l o n g e r - t e r m p l a n n i n g and i n c r e a s e d r e g i o n a l c o - o r d i n a t i o n . The growing l e v e l s of c o m p l e x i t y of urban and r e g i o n a l systems have made h i g h e r o r d e r r e g u l a t i o n s more n e c e s s a r y and d e s i r a b l e i n some c a s e s . 10.4 The R i g h t to P a r t i c i p a t e The r i g h t to p a r t i c i p a t e i n d e c i s i o n - m a k i n g m a n i f e s t s i t s e l f i n two ways. The f i r s t i s through the e l e c t i o n of a body of r e p r e s e n t a t i v e s by the community a t l a r g e to make d e c i s i o n s r e g a r d i n g l o c a l a f f a i r s . R e p r e s e n t a t i v e democracy i s thus d e f i n e d as the t a k i n g of d e c i s i o n s "by a body of r e p r e s e n -t a t i v e s e l e c t e d by the p o p u l a t i o n , and moreover, t h a t the r e p r e -s e n t a t i v e body s h o u l d c o n t r o l the i m p l e m e n t a t i o n of p o l i c i e s by the e x e c u t i v e " (Leemans, 1970). The second r o u t e to democracy i s through c i t i z e n par-t i c i p a t i o n which has been d e f i n e d as " p a r t i c i p a t i o n of the governed i n t h e i r government" ( A r n s t e i n , 1969). S e v e r a l forms of p a r t i c i p a t o r y democracy, r a n g i n g from token c o n s u l t a t i o n to c i t i z e n c o n t r o l have become i n c r e a s i n g l y common over the l a s t few y e a r s . While t h e r e has been a t r e n d towards i n c r e a s e d p r o v i n c i a l / s t a t e a c t i v i t y i n l o c a l a f f a i r s t h e r e has a l s o been a c o u n t e r v a i l i n g t r e n d to i n c r e a s e the r i g h t of i n d i v i d u a l s to p a r t i c i p a t e i n the proc e s s of d e c i s i o n - m a k i n g . The c r i t i c i a l i m p e r a t i v e then i s to f i n d the c o r r e c t b a l a n c e i n the d i s t r i b u -t i o n of d e c i s i o n - m a k i n g powers. 189 T h i s q u e s t i o n of an a c c e p t a b l e b a l a n c e of powers i s one t h a t has been f r e q u e n t l y r a i s e d d u r i n g the d r a f t i n g o f l e g i s l a t i o n f o r the Nantucket Sound I s l a n d s . Senator Kennedy, i n h i s speech to the Senate on the i n t r o d u c t i o n of the b i l l , spoke of the d e s i r a b i l i t y of l o c a l d e c i s i o n - m a k i n g on the one hand, and the l a c k of powers and r e s o u r c e s a t the l o c a l l e v e l on the o t h e r . The S t a t e of Washi ngton ' s'"Shore! i ne Management program has r e c o g n i z e d the importance of i n v o l v i n g c i t i z e n s d i r e c t l y i n the e a r l y stages of the d e c i s i o n - m a k i n g p r o c e s s . The A c t charges the s t a t e and l o c a l governments w i t h the r e -s p o n s i b i l i t y of i n f o r m i n g people about the program and a c t i v e l y e n c o u r a g i n g p a r t i c i p a t i o n by a l l p e r s o n s , groups and p r i v a t e e n t i t i e s , which have an i n t e r e s t i n s h o r e l i n e management (Washington, 1972). C o n s i d e r i n g the e x p e r i e n c e s of o t h e r j u r i s d i c t i o n s , i t appears l i k e l y t h a t any l e g i s l a t i o n and subsequent r e g u l a -t i o n s w i l l have a g r e a t e r chance of a c h i e v i n g the o b j e c t i v e of c o n t r o l l i n g development on the i s l a n d s , i f they have the su p p o r t and p a r t i c i p a t i o n of l o c a l people and the g e n e r a l p u b l i c . The matter of the bal a n c e of d e c i s i o n - m a k i n g powers between l o c a l and p r o v i n c i a l i n d i v i d u a l s and groups was con-s i d e r e d to be the key f a c t o r i n the d e s i g n of an i n s t i t u t i o n a l arrangement f o r the G u l f I s l a n d s . The c r e a t i o n of a T r u s t Commission by l e g i s l a t i o n was c o n s i d e r e d to be a d e s i r a b l e means to a c h i e v e t h i s end. A number of p r o v i s i o n s were i n c l u d e d i n 1 90 the recommendations f o r l e g i s l a t i o n i n an e f f o r t to a c h i e v e a r e a l i s t i c b a l a n c e of the d e c i s i o n - m a k i n g powers which would r e s u l t i n b e n e f i t s to both the i s l a n d r e s i d e n t s and the people of the P r o v i n c e . For example: 1. The l e g i s l a t i o n would e s t a b l i s h broad p r o v i n c i a l p o l i c y f o r t h e i s l a n d s . 2 . The C o m m i s s i o n , which r e p r e s e n t s l o c a l and p r o v i n c i a l i n t e r e s t s , would f o r m u l a t e p o l i c y g u i d e l i n e s . G u i d e l i n e s would not be adopted u n t i l s i g n i f i c a n t c o n s u l t a t i o n was had w i t h l o c a l a u t h o r i t i e s , g roups and i n d i v i d u a l s . The p r e p a r a t i o n of community p l a n s and z o n i n g by laws would be c a r r i e d out by l o c a l l y e l e c t e d c o u n c i l s on each i s l a n d . F u r t h e r avenues f o r p a r t i c i p a t ion -wouId be p r o v i d e d by t h e f u n d i n g of E n v i r o n m e n t Commit tees by t h e Commiss ion t o c a r r y o u t f u n c t i o n s r e l a t e d t o p r o t e c t i n g t h e env i ronment . To r e i t e r a t e , i t i s f e l t to be mandatory t h a t p a r t i c i -p a t i o n be p r o v i d e d f o r and encouraged throughout the e n t i r e p r o c e s s of p l a n n i n g f o r the i s l a n d s . B o l l e (1973) has d e f i n e d ' p a r t i c i p a t i o n 1 i n c o r p o r a t i n g t h i s meaning: P a r t i c i p a t i o n must mean f u l l p a r t i c i p a t i o n or else i t is no p a r t i c i p a t i o n in r e a l i t y . The word p a r t i c i p a t i o n does not lend i t s e l f very well to degrees. P a r t i c i p a t i o n implies action by those involved, not necessarily equal action but action and i n t e r a c t i o n of some kind by both and each. . . .The decision process3 which is fundamental to policy and program formulation, consists of several steps: problem i d e n t i f i c a t i o n , goal determination, 191 i d e n t i f i c a t i o n and analysis- of a l t e r n a t i v e s , decision, action, feedback, and re-analysis etc. The emphasis is on process. . .If there is p a r t i c i p a t i o n at a l l i t must be within a l l the process i t s e l f - a l l as.pects of the process or none. The recommendations f o r G u l f I s l a n d s l e g i s l a t i o n are i n t e n d e d to i n c o r p o r a t e the r i g h t to p a r t i c i p a t e i n the p o l i c y f o r m u l a t i o n , p l a n p r e p a r a t i o n and i m p l e m e n t a t i o n , and m o n i t o r i n g phases of the d e c i s i o n - m a k i n g p r o c e s s . L e g i s l a t i v e p r o v i s i o n s however are not enough; i t i s n e c e s s a r y f o r the p u b l i c to keep c o n s t a n t watch over the a c t i v i t i e s of t h e i r e l e c t e d r e p r e s e n -t a t i v e s and a d m i n i s t r a t o r s . 10.5 C o n c l u d i n g Comments The days of l a i s s e z - f a i r e are l o n g p a s t and a l l l e v e l s of government are paying i n c r e a s i n g a t t e n t i o n to the a l l o c a t i v e e f f e c t s of the d i s t r i b u t i o n of s o c i e t y ' s r e s o u r c e s . T h i s i n -c r e a s e d s o c i a l emphasis has been noted by numerous w r i t e r s . Dawson (1963) notes t h i s "growing c o n v i c t i o n — common thr o u g h -out the w o r l d —- t h a t governments sh o u l d a c t i v e l y i n t e r v e n e to promote s o c i a l and economic w e l f a r e . " The e f f e c t s of t h i s t r e n d i n Canada have been to i n c r e a s e p r o v i n c i a l power s i n c e items p e r t a i n i n g to s o c i a l good f a l l w i t h i n p r o v i n c i a l j u r i s d i c t i o n a c c o r d i n g to S e c t i o n 92 of the B r i t i s h North America Ac t ( R . S . C , 1867). Areas of i n c r e a s e d s o c i a l c o n c e r n , such as e d u c a t i o n , s o c i a l s e r v i c e s and l a n d use, have been l e g i s l a t e d 1 92 on by the P r o v i n c i a l governments. The proposed l e g i s l a t i o n to e s t a b l i s h an I s l a n d s T r u s t to a d m i n i s t e r p l a n n i n g f o r the G u l f I s l a n d s i s thus a good example of the t r e n d i n t h i s l a t t e r a r e a . The p r o v i n c e i s b e t t e r s u i t e d to deal w i t h s p e c i a l s o c i a l and e n v i r o n m e n t a l problems such as t h i s , because of the r e g i o n a l n a t u r e of the area and the a v a i l a b i l i t y of g r e a t e r r e s o u r c e s to the p r o v i n c e due to our p r e s e n t system of t a x a t i o n . S o c i e t y has p l a c e d a high v a l u e on the i s l a n d s because of t h e i r unique n a t u r a l and s c e n i c environments and t h i s v a l u e j u s t i f i e s a ' s u b s i d y ' on the p a r t of the P r o v i n c i a l government to p r e s e r v e the i s l a n d s f o r p r e s e n t and f u t u r e g e n e r a t i o n s . The d e l e g a t i o n of power to a commission may be c i t e d as a narrowing of the r u l e of law. Dawson (1963) notes " t h i s has tended to remove the a c t s of the o f f i c i a l s from j u d i c i a l s c r u t i n y . " To d i s c o u r a g e the abuse of d i s c r e t i o n a r y power i t i s t h e r e f o r e e x t r e m e l y n e c e s s a r y to b u i l d s a f e g u a r d s i n t o the l e g i s l a t i o n which c r e a t e s these s p e c i a l - p u r p o s e b o d i e s . The ' r i g h t of a p p e a l ' i s an i m p o r t a n t r e q u i r e m e n t i n such l e g i s l a -t i o n to p r o t e c t i n d i v i d u a l r i g h t s . The - 1 r i g h t • to be h e a r d 1 i s another i m p o r t a n t p r i n c i p l e and s h o u l d be p r o v i d e d f o r by s t a t u t e . With these p r o c e d u r a l s a f e g u a r d s made e x p l i c i t i n l e g i s l a t i o n i t appears t h a t the advantages wrought by the work of such commissions can f a r outweigh the d i s a d v a n t a g e s . I t i s hoped t h a t by the r e c o g n i t i o n of the r u l e s of n a t u r a l j u s t i c e , 193 by the c l e a r d e f i n i t i o n of o b j e c t s , powers and f u n c t i o n s by s t a t u t e and by the d e l e g a t i o n o f power to a knowledgable and t r u s t w o r t h y body, the I s l a n d s T r u s t can p r o g r e s s towards the o b j e c t i v e of c o n t r o l l e d development and c o n s e r v a t i o n f o r the G u l f I s l a n d s of B r i t i s h Columbia. A law is only as e f f e c t i v e as public consciousness allows i t to be and a s u f f i c i e n t number of [concerned people i n s i s t s that it-'-be-. (Burhenne and I r w i n , 1973) B I B L I O G R A P H Y NEWSPAPER ARTICLES The Province, October 31, 1969; November 10, 1971; March 1, 1973; May 10, 1973; December 6, 1973; December 8, 1973. The Vancouver Sun, October 29, 1969; December 7, 19, 1971; May 15, 1972; August 18, 1972; March 27, 1973; June 30, 1973; August 29, 1972; December 4, 5, 6 & 7, 1973 V i c t o r i a Daily Times, January 6, 1970. Vineyard Gazette (Martha's V i n e y a r d , Mass.), December 21, 1973. LEGISLATION B r i t i s h Columbia S t a t u t e s , Environment and Land Use Act, R.S.B.C. 1971, c. 17; Land Commission Act, R.S.B.C. 1973, C. 46; Land Registry Act, R.S.B.C. 1 960, c. 208; Local Services Act, R.S.B.C. 1960, c. 224; Municipal Act, R.S.B.C. 1960, c. 225; P o l l u t i o n Control Act, R.S.B.C. 1967, c. 34. C a l i f o r n i a S t a t u t e s , Coastal Zone Conservation Act of 1972, s. 27000, 1972. Denmark, Urban and Rural Zones. Apt, .1 972 . F l o r i d a S t a t u t e s , Environmental Land and Water Management Act of 1972, F l o r i d a S t a t . 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W o r s k e t t , Roy, The Character of Towns, An Approach to Conservation, London: The A r c h i t e c t u r a l P r e s s , 1969. 207 APPENDIX A "REPORT ON THE SELECT STANDING COMMITTEE ON MUNICIPAL MATTERS/' IN VOTES AND PROCEEDINGS OF THE LEGISLATIVE ASSEMBLY OF BRITISH COLUMBIA, MONDAY, SEPTEMBER 2 4 , 1974 LO? No. 8 VOTES AND PROCEEDINGS OF THE Legislative Assembly of British Columbia Monday, September 24, 1973 Two O'CLOCK P.M. Prayers by the Rev. W. B. Taylor. Order called for "Oral Questions by Members." Pursuant to Order, the House resumed the adjourned debate on the Address in reply to the Speech of His Honour the Lieutenant-Governor at the opening of the Session. During the debate, by leave of the House, the Hon. D. D. Stupich (Minister of Agriculture) presented An Economic Study of the Tree Fruit Industry in British Columbia, a report to the Minister of Agriculture by S. C. Hudson, Consulting Economist, Agricultural Consultant Services. The debate continued. On the motion of Mr. Nimweiler, the debate was adjourned to the next sitting of the House. Resolved, That the House, at its rising, do stand adjourned until 2 o'clock p.m. tomorrow. Mr. Nunweiler presented the Report of the Select Standing Committee on Municipal Matters, as follows: REPORT LEGISLATIVE COMMITTEE ROOM, September 21, 1973 Mr. Speaker: Your Select Standing Committee on Municipal matters, beg leave to report as follows: The Select Standing Committee on Municipal Matters examined the matters affecting islands in the Strait of Georgia and the adjacent waters. It visited and viewed the following islands: May 2, 3, 4, North Pender, South' Pender, Saltspring, Galiano, Mayne, Saturna; July 23-27, Bowen, Gambier, Keats, Denman, Hornby, Lasqueti, Gabriola, Kuper, Thetis. 2 SEPTEMBER 24 209 On July 23 the Committee experienced a most meaningful day at the UBC Resource Science Centre under the direction of Dr. Crawford Holling, who pre-sented a computer simulation that demonstrated the relationships between specu-lation thrust, peoples satisfaction, land prices, land values, environmental equality, etc. In its context, environmental quality was related to ease of transportation, water availability, nearness to a lake or ocean, slope of land, type of land, i.e., agriculture vs. rock, and the amount of open land and finally the diversity of tree cover. Public meetings were held on the islands, and the Committee was pleased and impressed with the interest and turnout by the local people who expressed a vital concern about the future of the islands. It is apparent to the Committee that the islands are of extreme importance to the Province of British Columbia, they are fragile, their location is crucial, being between the two largest cities in the Province, it is felt that people are entitled to use them and enjoy them to the capacity which they are able to serve. For the purpose of this report the Gulf Islands shall mean all islands in the Strait of Georgia and adjacent waters. Observations 1. These islands are different from each other and from the Mainland. How-ever, some Mainland areas, especially the Sunshine Coast because of difficult access, probably have some similar problems. 2. Apart from their natural insularity, isolation, and uniqueness, the islands have the problem of these "special interests": (a) Local residents, many of whom arc retired, and others who have to make their living locally; . (b) Large numbers of summer residents and (or) visitors; (c) Large landowners, usually absentee, often corporate and foreign; (d) A larger or "provincial" interest of the general public; (e) Land developers and speculators; (/) Tree-farm licence holders (TFL). 3. Existing boundaries of regional districts and means of representation and communication to and from some regional districts are causing considerable frus-tration. (Seven regional districts each have a portion of the islands within their boundaries). 4. A complete lack of jurisdiction by Provincial, regional, or municipal bodies over Indian lands because of exclusive Federal jurisdiction may cause increasing difficulty. 5. There are some existing subdivisions which appear attractive and rural in character but this is only due to the fact that many arc as little as 15 per cent developed. Of all the problems the Committee indentifics large subdivisions and over-development as the priority concern. 6. Requirements such as a 10-acre freeze or limiting subdivisions to larger parcels of similar size will not be sufficient in the long term, nor will such rules be as effective as other more sophisticated and imaginative planning techniques such as clusters, green belts, etc. 7. There is a need for an increase of supervised public space, beach access, hiking trails, picnic and (or) campgrounds, etc., on virtually every island. Most land adjoining the best beaches is privately owned. It is unfortunate that many of the'Howe Sound islands' most attractive bays and coves are spoiled for recre-ational use by log storage and booming grounds. 210 " SEPTEMBER 24 3 8. Water transportation to the islands is a key to the entire situation and needs careful control and co-ordination (but this is not within regional district jurisdiction). It is also evident that no one island or regional district canicontrol the frequency, cost, and type of transportation. Transportation on the islands is also an important related factor. Emphasis should be placed on pedestrian transit rather than vehicle transit, and the use of the islands should thus be planned accord-ingly. 9. One of the major problems encountered by the Committee in its tours, hearings, and public meetings is the fact that there has been, and remains, a very serious lack of co-ordination and communication. In many respects, the islands have fallen victim to ad hoc or "band-aid" activity. There is a need for a co-ordinated jurisdiction to be responsible for planning, zoning, control of land use, transportation, and related matters for all the islands and this jurisdiction would require sufficient funding over and above the current revenue source from local taxation. 10. Although regional districts arc not geared to carry out all the responsi-bilities expected of them relative to the future of the Coastal islands of British Columbia, they can well serve the islands for many administrative purposes in-cluding hospitals, schools, local improvements, special projects, health, building inspection, etc. Boundaries of regional districts need to be reviewed for possible transfer of some islands, based on natural lines of communication. Further, the means of representation and communication between some islands and its regional district needs to be studied. 11. Recognizing the need to ensure continued employment opportunities for some residents of the islands, strictly controlled limited commercial development, light industry, and agricultural activity compatible with the life style of the islands can continue, nonetheless, emphasis for the future development of the islands should be placed on recreation, moderate residential use, and preservation of a rural atmosphere. The Committee was impressed with some instances of desirable land use (by residences, summer camps, a few parks, endowments) but was alarmed at the possession or hoarding of land by resident and absentee owners for high capital gains purposes. It was also distressed by the evidence of considerable subdivision activity in the past, which was undertaken without full determination of its impact on the future of each island. Our belief is that the islands arc too important to the people of Canada to be left open to exploitation by real-estate developers and speculators. 12. Virtually without exception shortage or potential shortage of potable water is of major concern to practically all islands and to this Committee. 13. Waste and garbage disposal is another serious matter of major concern to this Committee. 14. A potential exists for conserving many arcrueological sites on the islands. Recommendations 1. The Committee recommends that the regional district boundaries be re-viewed and adjusted to assure that the respective islands are in the most appro-priate regional district. 2. The Committee also recommends that the Provincial Government es-tablish an "Islands Trust" (or commission), as the most appropriate body to be responsible for and to co-ordinate the future of each island within our terms of reference. It must be emphasized most strongly that the trust is to assume the primary responsibility for all Gulf Islands' affairs within Government jurisdiction, including land use, future growth patterns, control of development, industrial, 4 •SEPTEMBER 24 recreational, and commercial activity, as well as parks and open space designations. It is essential that the trust be fully representative of all interests, not only on the islands, but throughout the Province as a whole. While recognizing the rights of the islanders, the Committee suggests that this section of British Columbia is dra-matically affected by private and public activity which does not have the same impact in other parts of the Province. The Committee again refers to the fragile nature of these coastal units. Because it is recognized that a variety of Govern-ment departments and agencies: Highways, Health, Ferries, Lands and Forests, Parks, etc., as well as regional districts and citizen groups on the islands, all have an important role to play in this respect, we emphasize that the proposed trust or commission must not be a separate and (or) remote agency, but rather a fully representative co-ordinating body, whose task it is to bring together each group, agency, or department of Government and to act in the best interests of the islands and their residents, with due regard for the broader and Province-wide interest. 3. The Committee also recommends that until the trust or commission is established, no subdivisions be permitted on any islands south of and including Denman, Hornby, and Lasqueti Islands, i.e., on any of the Gulf Islands in the Strait of Georgia and any adjacent waters. 4. The Committee recommends the JO-acre freeze be continued on the north-ern Gulf Islands that have not yet been studied by the Committee. Conclusion The Committee appreciates that many months of hard work have gone into the planning process on some of the islands, and the Committee hopes that if the Government accepts these recommendations, that the trust be established and operative as soon as possible, so as not to prolong unduly the wait on these islands. A . A . NUNWEILER, Chairman By leave of the House, the report was taken as read and received. 212 APPENDIX B NATIONAL ISLAND TRUSTS ACT" MODEL B I L L IN BUREAU OF OUTDOOR RECREATION, U . S . DEPARTMENT OF THE INTERIOR, ISLANDS OF AMERICA, 1970 213 • A B I L L To designate a pilot program for the establishment of a national system of island trusts and for other purposes. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, SHORT TITLE SECTION 1. This Act may be cited as the "National Island Trusts Act." STATEMENT OF POLICY SEC. 2.(a) It is hereby declared to be the policy of the United States that certain islands or groups of islands of the Nation which possess outstanding natural, scenic, historic, or recreational values should be protected and man-aged by the joint efforts of all levels of government and the private sector in order to insure that future generations will have an opportunity to enjoy our island heritage. (b) The purpose of this Act is to implement this policy by designating a pilot program for the establishment of a national system cf island trusts and prescribing the method by which islands or groups of islands subsequently designated by the Congress may become part of the system. N A T I O N A L SYSTEM OF ISLAND TRUSTS SEC. 3.(a) The Casco Bay Islands of Maine, comprising 324 islands in Cumberland and Sagadahoc Counties, are hereby designated as eligible to become the initial component of the national system of island trusts. (b) The national system of island trusts shall comprise any other islands or groups of islands that are subsequently designated by Congress as eligible for inclusion in the system. Such islands shall— ( i ) possess outstanding natural, scenic* historic, or recreational values; . (2) be reasonably accessible to urban areas; and (3) be largely undeveloped. Such islands shall become part of the national system of island trusts upon the execution of agreements between the United States and the concerned States that are modeled after and substantially conform to the requirements of sections 4 through 9 of this Act. TRUST COMMISSIONS SEC. 4.(a) The Secretary of the Interior (hereinafter referred to as the "Secretary") is authorized, on behalf of the United States, to enter into an agreement with the State of Maine providing for the protection and manage-ment of the Casco Bay Islands as a national island trust after the Secretary is satisfied that State legislation exists to carry out the agreement. (b) The agreement shall provide for the establishment of a National Island Trust Commission (hereinafter referred to as the "Commission") composed of a Federal member appointed by the Secretary, a member appointed by Governor of Maine, and a member appointed by the govering body of c.ic" county and municipality involved. The agreement shall further provide that— (1) the Commission shall elecrannually a Chairman and a Vice Chairuu-'1 from among its members; 214 : (2) members of the Commission shall serve for six-year terms, except the i member appointed by the Secretary shall serve at his pleasure; > (3) vacancies on the Commission shall be filled in the same manner as the original appointment and for the balance of the unexpired term; (4) the Commission shall provide for its own organization and procedure and adopt rules and regulations governing its meetings and transac-tions, and all actions of the Commission shall require a favorable vote of a majority of its members; and (5) that Commission members shall be compensated at the rate of $100 • per diem while engaged in the performance of official duties and shall receive reimbursement for any necessary traveling and subsistence ex-penses incurred thereby. ; FUNCTIONS OF THE COMMISSION SEC. 5.(a) The agreement shall require the Commission to develop and maintain a comprehensive plan to preserve, restore, utilize, and develop the .natural, scenic, historic, and recreational values of the Casco Bay National Island Trust, which plan shall (1) set forth the needs of the public for enjoyment of such values and the availability of resources to meet such needs; (2) identify critical natural, scenic, historic, and recreational problems and recommend desirable remedial actions to be taken by the Federal, State, county, and local governments involved and private interests; and (3) be in accord with the comprehensive statewide outdoor recreation plan submitted by the State of Maine pursuant to the Land and Water Conservation Fund Act of 1965 (78 Stat. 897), as amended. The Secretary may agree, within the limits of available funds and manpower, to provide the Commission with technical assistance in die development of such plans. . (b) The agreement shall require the Chairman of the Commission, within one year after the establishment of the Commission, to transmit the initial plan to the Secretary, the Governor of Maine, and the governing body cf each county and municipality involved, and to transmit subsequent revisions of the plan to such persons as soon as practicable. If the plan recommends enactment of additional Federal legislation, the agreement shall require the Secretary to transmit the plan to the President of the Senate and the Speaker of the House of Representatives. (c) The agreement shall also require the Commission to (1) formulate uniform and coordinated policies for implementation of the plan by the Fed-eral, State, county, and local governments involved and by private interests; (2) to encourage the State, county, and local governments involved to adopt and enforce adequate master plans and zoning.ordinances which will promote the use and development of privately owned lands within the national island trust in a manner consistent with the Commission's plan; and (3) to issue guidelines prescribing standards for such plans and ordinances, and provide technical assistance in obtaining their adoption. POWERS OF THE COMMISSION SEC. 6.(a) The agreement shall provide that if the State of Maine or any of its political subdivisions has failed, at any time after the expiration of two years from the date of transmittal of the Commission's plan to (1) adopt and enforce master plans and zoning ordinances consistent with the Commission's plan, or (2) acquire any privately owned property or interests therein recom-- mended for acquisition by such governments in the Commission's plan, the Commission shall be empowered to— 215 (i) adopt and enforce such plans and ordinances by whatever means arc authorized under the constitution and laws of the State of Maine; (ii) acquire such property or interests therein by donation, negotiated pur-chase with donated or appropriated funds, or by condemnation in accord-ance with the provisions of the State condemnation law applicable to the properly involved or, in the absence of such law, in accordance with the provisions of Federal condemnation law. The agreement shall provide that any award of compensation in such condemnation proceedings shall be paid by the Commission, and neither the State nor Federal Government or any agencies thereof shall be liable for such award 'or compensation. (b) The heads of Federal agencies may transfer administrative jurisdiction over any Federal property located within the Casco Bay National Tsland Trust to the Commission without transfer of funds, and the Commission may, in turn, transfer jurisdiction over such property to the State of Maine or any of its political subdivisions. Any such transfers shall be exercised in a manner consistent with the comprehensive plan developed by the Commission. (c) The Commission shall have juridical personality and all powers and capacity necessary or appropriate for fulfilling its functions pursuant to the agreement between the United States and the State of Maine which shall include, but not be limited to, the powers and capacity— (1) to accept, use, and dispose of donations or services or property, real, personal, or mixed, tangible or intangible; (2) issue and enforce such rules and regulations as it deems necessary to regulate the use of any property under its jurisdiction in order to carry out the purposes of the agreement; (3) to enter into contracts; (4) to sue or be sued; (5) .to grant concessions, if deemed desirable; (6) to appoint its own employees, and to fix the terms and conditions of their employment and compensation; and (7) to adopt such rules of procedure as it deems desirable to enable it to perform the functions set forth in this agreement. T A X E X E M P T I O N SEC. 7. The Commission and any income or property received or owned by it, and all transactions relating to such income or property, shall be exempt from all Federal, State, and local taxation with respect thereto. ADMINISTRATIVE EXPENSES OF T H E COMMISSION SEC. 8.(a) The agreement shall provide that the expenses incurred by the Commission for each fiscal year in carrying out its planning, acquisition, ad-ministrative, and other functions shall be paid 50 per centum by the Secretary and 50 per centum by the State of Maine. The Federal payment shall be made from monies appropriated under section 12 of this Act. Such payments may be made in installments and in advance or by way of reimbursement with neces-sary adjustments on account of overpayments or underpayments. (b) The Commission shall submit a budget each fiscal year to the Secretary and the principal budget officer of each State involved in such manner as may be required under their respective budgetary procedures, and shall conduct its operations in accordance with such budget. SEC. 9. The agreement may contain such other terms and conditions as the parties thereto deem desirable. 216 SEC. 10(a). The Secretary is authorized on behalf of the United Stales to enter into agreements with the States in which are located the islands or groups of islands subsequently designated by Congress as.eligible for inclusion in the national island trust system that substantially conform to the require-ments of sections 4 through 9 of this Act: Provided, That the Secretary first determines that State legislation exists to carry out such agreements. (b) Nothing in the agreements authorized by this Act shall be construed to relinquish the functions, powers, or duties of the Congress with respect to the control of any navigable waters within any national island trust, nor shall any provision thereof be construed in derogation of any of the constitutional powers of Congress to regulate commerce among the States and with foreign nations. The power and right of Congress to withdraw the Federal Government as a party to each agreement by amendment, repeal, or modifica-tion of this Act is hereby expressly reserved. (c) Nothing in the agreements authorized by this Act shall be deemed to restrict the executive powers of the President in the event of a national emer-gency. RESTRICTIONS ON F E D E R A L L Y ASSISTED PROJECTS SEC. 11. No Federal department or agency shall assist by loan, grant, license, or otherwise in the construction of any water or land resources project that would have a direct and adverse effect, as determined by the Secretary, on the natural, scenic, historic, or recreational values of the Casco Bay National Island Trust, or any islands or group of islands that are subsequently included in the national island trust system. AUTHORIZATION OF APPROPRIATIONS SEC. 12. There are hereby authorized to be appropriated annually, through the Department of the Interior and related agencies Appropriation Acts, such sums as may be necessary to carry out the purposes of this Act. 217 APPENDIX C NANTUCKET SOUNDS ISLANDS TRUST B I L L CONGRESSIONAL RECORD S . 1 9 1 9 , WASHINGTON, MAY 3 1 , 1973 209 -6- 218 (b) There la a national Interest ln pre-serving and conserving these values for the present and future well-being of the Na-tion and for present and future generations: (c) Thcae values are being Irretrievably damaged and lost through Ill-planned de-velopment; (d) Present state and local Institutional arrangements for planning and regulating land and water uses to preserve and conserve these values are Inadequate; (e) The key to more effective preservation and conservation of the values of the Nan-tucket Sound Islands ls a program encour-aging coordinate action by Federal. State, and local governments ln partnership with pri-vate Individuals, groups, organizations, and associations for the purpose of administering sound policies and guidelines regulating il l-planned development; (f) Such a program can protect the nat-ural character and Bcenic beauty of the Nan-tucket Sound Islands consistent with main-tenance of sound local economies and pri-vate property values; and (g) Because expanded access to the Is-lands would seriously Impair them and be ln contravention to the purposes of this Act, It shall be national policy that no bridge, • causeway, tunnel or other direct vehicular access be constructed from the mainland to the Islands. N A N T U C K E T SOUND ISLANDS TRUST S E C . 2. In order to provide for the preserva-tion and conservation of the unique natural, scenic, ecological, scientific, cultural, historic, and other values of the Nantucket Sound Islands, there ls established In the Common-wealth of Massachusetts the Nantucket Sound Islands Trust (hereinafter referred . to as the "Trust") consisting of the area described ln section 4 herein. This Trust area shall be administered as hereinafter described through programs and polloiee de-signed to achieve wise use of the land and water resources of the area, giving full con-sideration to protection of the values of the area as well as to needs for (sound local economies. N A N T U C K E T SOUND ISLANDS TRUST COMMISSIONS S E C . 3. (a) There are hereby established the Nantucket Trust Commission, the Martha's Vineyard Trust Commission, and the Elizabeth Islands Trust Commission, to be known collectively as the Nantucket Sound Islands Trust Commissions (herein-after referred to as the "Commissions"). It shall be the purpose of the Commissions *o have principal management authority for the Nantucket Sound Islands Trust. . (b) The Nantucket Trust Commission shall have the responsibilities as established herein over the lands and waters In Nan-tucket County, and shall be composed of seven members serving three-year staggered terms which shall commence on the first Monday ln April. Members shall be selected as follows: (1) a member appointed by the Secretary of the Interior (hereinafter referred to as the "Secretary"); (2) a member appointed by the Governor of the Common wealth of Massachusetts ' (hereinafter referred to as the "Governor".); (3) two members appointed by the Board of Selectmen of the Town of Nantucket within two weeks after the annual • town meeting, one of whom shall be a seasonal resident property owner; (4) two members who shall be qualified • voters of the town and shall be elected at the annual election which ls a part of the annual town meeting; and (5) a member appointed by the Nan-tucket Planning Board within two weeks after the anual town meeting, who shall be a qualified voter of said town. Not more than one member of the Commission may serve simultaneously ln any elective Town or County office. (c> ine Martha's Vineyard Trust Com-mission shall have the responsibilities as established herein over the lands and waters ln Dukes County, excepting the Elizabeth Islands, and shall be composed of -thirteen members serving three-year staggered terms which shall commerce on the first Monday ln June. Members shall be selected as follows: (1) a member appointed by the Secretary; (2) a member appointed by the Governor; (3) a member elected by each town on Martha's Vineyard at the annual election which ls a part of the annual town meeting, each of whom shall be a qualified voter of the town; (4) a member appointed by the Dukes County Selectmen's Association: (5) a member appointed by private con-servation organisation on Martha's Vine-yard; (0) two members appointed by seasonal resident taxpayer associations, on Martha's Vineyard: and (7) a member elected by the senior class of the regional high school, who shall, not-withstanding other provisions of this sub-section, serve a one year term. Only the member selected under paragraph (4) of this subsection may hold elective Town or County office during his term of office as Commission member. (d) The Elizabeth Islands Trust Commis-sion shall have the responsibilities a3 estab-lished herein over the lands and waters of Hie Elizabeth Islands, and shall be. com-posed of seven members serving three-year staggered terms which shall commence on the first Monday in April. Members shall be selected as follows: (1) a member appointed by the Secretary-, (2) a member appointed by the Governor: (3) a'member elected at the annual "elec-tion which ls a part of the annual town meeting; (4) two members appointed by the Board of Selectmen to represent the Island of Cuttyhunk. one of whom shall be a per-manent resident of Cuttyhunk and one of whom shall be a seasonal resident of Cutty-hunk; and (5) two members appointed by the Board of Selectmen to represent the other Islands ln the Elizabeth Islands, one of whom shall be a permanent resident of one of such other islands and one of whom shall be a seasonal resident of one of such other Islands. (e) Each Commission shall have a Chair-man. The Chairmen of the Commissions shall each be olected by the membership thereof for a term of not to exceed two years. Any vacancy ln the Commissions shall be filled In the same manner ln which the original selection was made, except that interim ap-pointments may be made by the remaining members of the Commission. (f) All members of the Commission shall be paid at the rate of 850 per diem when actuary serving. The "Secretary— Is' authbr-lzedto pay the expenses reasonably incurred by the Commissions ln carrying out their responsibilities under this Act on the pre-sentation of vouchers signed by the Chair-men. (g) The Commissions shall publish and make available to the Secretary and to the public an annual report reviewing matters relating to the Trust, including acquisition of lands, progress toward accomplishment of the purposes of this Act, and administration, and shall make such recommendations thereto as they deem appropriate to the Secretary, the Governor, and the towns. (h) The Martha's Vineyard and Nantucket Commissions shall, and the Elizabeth la-lands Commission may. each have an Execu-. tive Director, and such other permanent or part-time professional, clerical, or other -7- 2 1 9 ;rsormel aa they find are required, and may igage such other professional services as ley may reasonably require a n d the Secre-xy shall approve. E a c h Commiss ion ail all ave an office and a mai l ing address at a cen-•al location In the area of its Jurisdiction, nd such office shall be where Its ordinary oslneas i3 conducted and Its maps and icords kept. (1) T h e Commissions shall each have the uthorlty to appoint Commiss ion Advisory ommlttees ln their -own discretion. Each ommtsslon shall designate three of Its [embers to serve on a coordinating commlt -se with members of the other Commissions > treat matters of common concern. (J) A t its first meeting each Commiss ion la l l adopt by-laws and rules of procedure, h l c h may Include dates of meetings, publ ic Istrlbutlon of Information relating; to C o m -dsslon activities, disclosure of ownership i n -srest ln trust lands by Commiss ion m e m -era, a n d any other matters normal to the Deration of such bodies and consistent with he purposes of this Act. T h e Commissions hall comply with the provisions of the Mas-kchusetts Open Meetings Law. and they shall e deemed to be "boards" wi th in the mean-i g of said law. (k) I n exercising their management and dmlnlstrat lve responsibilities under this A c t he Commissions shal l not adopt regulations rhlch are less restrictive than regulations i n >rco a n d effect l n tho Commonwealth of tassachusetts or the respective towns w l t h -a the T r u s t area. (I) Members of Commissions may serve Iso as members of any resources or land nanagement counci l heretofore or hereafter stabl lshed under the laws of the C o m m o n -wealth, of Massachusetts. . cv..:.; i " T R U S T A B E A S E C . 4. (a) T h e area of the T r u s t shal l e n -mpass the following lands a n d waters l n e Commonweal th of Massachusetts: (1) Nantucket Island, and the Island to tstward called variously Smith's Island or ther Island: ..... (2) T u c k e r n u c k Island; , (3) Muskeget Island: (4) Martha's Vineyard Island, a n d various ands appurtenant to it; (5) Noman's L a n d Island:. *„' (6) T h e El izabeth Islands, inc lud ing but it l imi ted to the Islands of C u t t y h u n k , jnamasset, Naushon, Pasque. Nashawena. acatena, Penlkese, and the Weepeckets; and (7) A n y other lands and waters l n N a n -cket C o u n t y and Dukes C o u n t y In the •mmonwealth of Massachusetts. (b) T h e area Included l n the T r u s t may • changed only by an amendment to this ;t adopted by the Congress a n d signed by te President, a n d only upon petit ion there-r by the Commissions wt ih the concur -nee of— . _ (1) T h e town or towns affected expressed r vote o f a town meeting or meetings; (2) T h e Governor; a n d (3) T h e Secretary. (c) Noman's L a n d . T h e lands and waters Noman's L a n d are hereby established as nat iona l wildlife refuge, ^ n d the Secretary directed to prepare and execute the nec-oary documentat ion for such establishment r thwl th . T o make Noman's L a n d suitable n such establishment, the Secretary a n d ie Secretary of Defense shall , w i th in twelve onthe after the date of enactment of this ct, survey Noman's L a n d for unexploded JUtary ordnance and render such ordnance, herever It may be found, harmless. C L A S S I F I C A T I O N O F T H U S T L A N D S S E C . 6. (a) Lands and waters wi th in the rust area shal l all be assigned to the clas-flcatlons established in subsection ( b ) . o f lis section. Upon the date of enactment of jls Ac t , such lands and waters shal l be as-gned to classifications according to the irms of section 6 of section 17 herein. (b) Classifications of T r u s t lands: (1) Class A : L a n d s Forever Wi ld . Lands and waters so classified shall remain forever free of Improvements, as defined hereinafter, of any k i n d except as provided herein. If Im-provements extst on any lands so classified . o n the data of enactment of this Act , then the Commissions and the Secretary shall permit a r ight of use and occupancy to the legal or beneficial owner or owners thereof, or their successors or assigns, for so long as such successors or assigns are member of the same family or families aa the legal or beneficial owner or owners. If. however, the legal or beneficial owner or owners seek to sell or otherwise convey the Improvement wi th or without the land thereunder to others t h a n legal or beneficial owners or . members of the same family or families as .the legal or beneficial owner or owners, then the Commissions and the Secretary shal l • have an exclusive option to purchase at f u l l a n d fair market value, which shal l be promptly determined, and such option shall exist for sixty days after such determina-t ion. If such opt ion is exercised, then the . improvement may be moved or removed: If such option is not exercised, then the sale or other conveyance may proceed in the ord i -nary course. F o r the purposes of this p&ra^ graph, family shall mean siblings of a legal or beneficial owner or owners, l ineal descend-ants natural or adopted, or relatives by m a r -riage. Access to and use of lands so classified under the terms of this A c t shall be deter-mined by the Commissions and thet Secre-tary, except that uses shall be l n a manner not less restrictive than permitted by gen-eral purpose local ordinances, by-laws a n d regulations f r o m time to time In effect. Owners of Improvements may make neces-eary repairs, and m a y make replacements or extensions. which sha l l n o t alter the basic :• character of the lands, with the approval of : the. Commissions a n d applicable T o w n or r C o u n t y agencies. (2) Class B : Scenic Preservation Lands . Lands a n d waters so classified shal l not be developed beyond their present Intensity of use, except as provided i n this paragraph. Owners of such lands, or of Improvements .thereon, or of both , may transfer, sell, assign, or demise such l a n d or Improvements, or : both . Reasonable replacement a n d extension : of Improvements shal l be permitted, under regulations Issued by the Commissions. D e -velopment on lands so classified beyond their present intensity of use shal l be permitted only under regulations consistent with the following guidelines: (1) T h e overall Intensity of use for lands so classified l n any town shall not be greater t h a n slxty-fivo improvements per square mile, inc lud ing Improvements existing' o n A p r i l 11, 1972; • (11) T h e aroa u p o n which intensity is ca l -culated shal l not Include' bodies of water •or wetlands classified as such under Massa -chusetts salt water or fresh water wetlands acts (Chapters 784 and 782 of tho Acts of 1972); (111) T h e overall Intensity guideline shall not be translated Into u n i f o r m lot sizes and applied to the land so classified, but shall bo applied with flexibility to encourage sound l a n d use p l a n n i n g respecting the varying n a t -ura l values • of the different geographical - areas of land; and • (lv) A n y development must take Into ac-count the capabil i ty of the land for such - development, which shal l include considera-t ion of existing land use. Intensity of uses l n the immediate vicinity, areawide water quality, soil condit ions, roadway ut i l izat ion, • a n d visual and topographic conditions. Regulations consistent with these guide-'• lines shal l be drawn up and published by each town and the appropriate Commiss ion , and shall become effective only after a p u b -lic hearing or hearings thereon a n d after approval by tho Governor a n d the Secretary. After such regulations have become effective, : the provisions of section 16 herein as they • apply to the lands covered by the regulations shal l no longer apply; and construct ion of Improvements shal l thereafter bo permitted so long as the appropriate Commiss ion has Issued a permit therefor indicat ing satisfac-(3) Class C : T o w n Planned Lands . Lands and waters so classified shall remain under the Jurisdiction of tho town in which located for purposes of p lann ing and zoning ord i -nances and other land use regulations: P r o -vided, T h a t such p lann ing and zoning o r d i -nances and other land use regulations shal l be reviewed and commented upon by the Commissions and the Secretary as to con-sistency with the purposes of this Act prior to the adoption of such ordinances or regu-lations or amendments thereto; and provided further, T h a t the Commissions may review a n d comment upon variances proposed to be granted pursuant to any local zoning o r d l -. nance. A S S I G N M E N T O F T R U S T L A N D S . S E C . 6. (a) Assignment of land3 a n d waters w i th in the T r u s t area to tho classifications established by section 5 herein shal l be as depicted on Nantucket C o u n t y a n d Dukes County Nantucket S o u n d Island T r u s t maps on file a n d available for publ ic Inspection In— (1) T h e offices of the Nat ional Park Serv-ice, Department of the Interior; (2) T h e offices of tho towns w i th in the T r u s t area; a n d (3) T h e offices of the Commissions. (b) Changes tn such assignments to classi-fications may be made by altering the loca -t ion of boundary lines between classifications i n the following manners^-(1) M i n o r corrective adjustments due to technical or clerical errors m a y be made w i t h i n one hundred and eighty days after the first official meeting of a Commiss ion by vote of such Commiss ion and with the con-currence of the Board of Selectmen of the town affected; (2) Thereafter, the locat ion of boundary lines between classifications may be changed only by a Commiss ion act ing pursuant to an affirmative vote thereon by a town meeting or meetings of the town or towns affected, wi th the concurrence of the Governor a n d the Secretary. (c) A n y changes l n the location of b o u n -dary lines between classifications shal l be recorded by the Commissions a n d the Secre-tary on the official maps wi th in seven days after such changes become effective. ' A C Q U I S I T I O N O F L A N D S S E C . 7. (a) G E N E R A L P R O V I S I O N S — " (1) W i t h i n the area of the T r u s t , the Sec-retary Is authorized to acquire by donat ion or transfer from any Federal agency, and, with the advice of the Commiss ion , by p u r -chase wi th donated or appropriated funds or transfer funds, or by exchange; lands a n d waters a n d Interests therein at fair market value for the purpose of this Act . (2) W i t h respect to that property which the Secretary Is authorized to acquire w i t h -out the consent of the owner under'the terms of this Act , the Secretary shall Initiate no proceedings therefor u n t i l after he has made every reasonable effort to acquire such prop-erty or Interest therein by negotiation and purchase at the fair market value prior to A p r i l 11, 1972. T h e certificate of the deter-_mlnat lon by the Secretary or his designated representative (which may be the C o m -missions) that there has been compliance with the provisions of this paragraph a n d of paragraph (3) of this subsection shal l bo p r i m a facie evidence of such compliance. (3) I n exercising authority to acquire property under the terms of this Act, the Secretary shall give Immediate and special consideration to any offer made by an owner or owners of unimproved Class A : Forever W i l d Lands or Class B : Scenic Preservation Lands wi th in the T r u s t area to sell such lands to the Secretary. A n owner or own-ers may notify the Secretary that the c o n -t inued ownership of those lands would re-sult l n hardship to such owner or owners, and the Secretary shal l Immediately con-sider such evidence and the recommenda-tions of the Commissions, if any, a n d shal l wi th in six months following the submission of such notice, a n d subject to the then current availabil ity of funds, purchase the lands offered at the fair market value prior to Anri l 11. 1972. -8- 220 (4) In exercising authority to acquire roperty under the terms of this Act, the ecretary shn.Il conform to the requirements f the Uniform Relocation Assistance and Leal Property Acquisition Policies Act of 970 (42 U.S.C. 4801). (5) The Secretary shall furnish to any nterested person requesting the same a cer-Ificate Indicating, with respect to any prop-rty which the Secretary has been prohlbit-d from acquiring without the consent of he owner In accordance with the provisions if this Act. that such authority ls prohlblt-d and the reasons therefor. (6) Nothing ln this Act shall be con- i trued to prohibit the use of eminent lomaln as a means of acquiring a clear and narketable title, free of any and ali encum->ra.nces. (7) In exercising his authority to acquire jroperty by exchange, the Secretary may icoept title to any non-Federal property lo-;ated within such area, and, with the advice >f the Commissions, convey to the grantor >f such property any federally owned prop-•ty under the Jurisdiction of the Secretory lthln such area. The properties so ex-langed shall be approximately equal In ilr market value: Provided, That the Sec-jtary may accept cash from or pay cash > the grantor ln 6uch an exchange ln order j equalize the values of the properties ^changed. (8) Any property or interests therein, wned by the Commonwealth of Massachu-jtts or any political subdivisions thereof, lay be acquired only by donation. Notwlth-tanding any other provision of law, any roperty owned by the United States on prll 11, 1972, located within the Trust area lay, with the concurrence of the agency hav-ig custody thereof, be transferred without onslderation to the administrative Jurlsdic-lon of the Secretary for use by him ln carry-ag out this Act. (b) TRANSFER TO COMMISSIONS— (1) Upon acquisition by him of any land r Interests therein, the Seoretary shall oncurrently or as scon as ls practicable hereafter transfer without consideration an tndivlded one-half Interest ln such land or aterest therein to the Commission within 7hose jurisdiction the land or Interest there-a lies. (2) Thereafter, such land or Interest there-Q shall be held by the appropriate Com-alsslon and the Secretary in a public trust. (3) The lands or interests therein so held n trust shall be administered as described n this Act, and the Secretary and the Com-nisslons may exchange any such lands or nterests so held in trust pursuant to the irovislons of this section. (c) T A X A T I O N — (1) Nothing ln this Act shall be construed x> exempt any real property or Interest there-n held by the Commissions and the Secrc-;ary under this Act from taxation by the Commonwealth of Massachusetts or any po-itlcal subdivision thereof to the same extent, iccording to its value, as other real property a taxed. (2) Nothing contained ln this Act shall be ;onstrued as prohibiting any governmental lurlsdlction ln the Commonwealth of Mas-sachusetts . from assessing taxes upon any Interest In Teal estate retained under the provisions of this Act to the nonexempt Dwner or owners of such Interest, nor from sstabllshlng and collecting fees ln lieu of taxes upon any nongovernmental use of lands acquired pursuant to this Act. LIMITATIONS S E C . 8. (a) Not later than one hundred and eighty days after the enactment of this Act, the Commissions and the Secretary shall notify an owner or owners of Class B: Scenic Preservation Lands, other than prop-erty designated for fee acquisition, of the minimum regulations on use and develop-ment of such property under which such property may be retained ln a manner com-patible with the purpose for which the Trust was established. If the owner or owners of any such lands agree to the use and develop-ment of the property in accordance with such regulations, the Secretary may not ac-quire, without the consent of such owner or owners, auch property or interests therein for so long as the property affected ls used ln accordance with such regulations, unless the Commissions and the Secretary determine that such property, or any part thereof is needed for other purposes as described in this Act. Such lands shall be Included ln the area upon which Intensity ls calculated for purposes of section 6(b)(2) herein. (b) The Secretary may not acquire im-proved property on Class B: Scenic Preserva-tion Lands without the consent of the owner or owners unless he shall have determined that acquisition of such property is necessary to carry out the requirements of this Act and unless the appropriate Commission shall have concurred therewith by a recorded affirmative vote. (c) As used herein, the terms "improved property" or "improvement" shall mean a detached, noncommercial residential one-family dwelling the construction of which was begun before April 11, 1972, or such a dwelling for which a certificate of need was voted pursuant to section 16(a) herein, to-gether with— (1) So much, of the land on which the dwelling is situated, the said land being In . the same ownership as the dwelling, as the Commissions and the Secretary shall deter-mine to be reasonably necessary for the enjoyment of the dwelling and land for noncommercial residential or agricultural purposes, and (2) Any structures accessory to the dwel-ling which are situated on such land. The amount of the land subject to determina-tion Class A: Forever Wild Lands and Class B: Scenic Preservation Lands shall in every • cose be at least three acres in area, or all of such lesser acreage as may be held ln the same ownership as the dwelling. In mak-ing such determinations the Commissions and the Secretary shall take into account the manner of noncommercial residential use ln which the dwelling and land have customarily been enjoyed: Provided, That the Commissions and the Secretary may ex-clude from the land subject to determination any beach lands, together with so much of the land adjoining such beach lands, as they may deem necessary for public access there-to. If they make such exclusion, an appro-priate buffer zone shall be provided between any dwelling and the public access or beach, (d) As used herein, the term "development" shall mean the construction of an improve-ment. (e) Should a commercial use ln existence prior to April 11, 1972, be Included as part of such a dwelling, it shall be considered a nonconforming use. (f) The Commissions, together with the Secretary and the towns, shall establish reg-ulations consistent with the purposes of this Act governing the status of boathouses, camps, piers, and other nonresidential structures. (g) The Secretary, after consultation with the Commissions and the Governor and within six months after the date of enact-ment of this Act, shall Issue proposed Com: pensable Land Use Regulations applicable to the Trust, and after due notice shall cause to be held public hearings on such regulations. Thereafter, he shall issue Com-pensable Land Use Regulations applicable to the Trust which s h a l l — (I) establish the manner ln which the fair market value of lands or waters af-fected by the classifications established ln sections 6(b)(1) and 5(b)(2) and by the right of passage in Section 10(c) shall be calculated where such classifications have caused a decrease in such value, and where the provisions of sections 7(a)(3), 8(a) or 13(a) do not apply; and (II) set forth the manner by which owner or owners may pursue a right of action ln the United States District Court. EEOSION CONTROL , 8EC. 9. (a) The Commissions, together with the Secretary, the Governor, and the Secretary of the Army, shall cooperate ln a study and shall formulate plans for beach and shoreline erosion control and restora-tion projects on the Nantucket Sound Islands, especially in those areas most im-mediately threatened. Any protective works. Including water resource developments and navigation Improvements, fcr such control undertaken by the Chief cf Engineers. De-partment of the Army, shall he carried out only ln accordance with a plan that ls mu-tually acceptable to the Commissions, the Governor, and the Secretary, and is con-sistent with both the purposes of this Act and the purposes of existing statutes deal-ing with water and related resource devel-opment. (b) The Commissions together with the Governor and the Secretary, shall under-take a program of dune and headland erosion control, beginning with those dunes and headlands most Immediately threatened and ln need thereof. Such dune and headland erosion may be that caused by natural wind and water action, by motor vehicle passage, or by other factors, and such programs may have the purposes of restoring past and pres-ent damage and of preventing further •damage. BEACHES SEC. 10. (a) All beach lands within the Trust area, with the exception of beach lands classified as Class C: Town Planned Lands, shall be classified as Class A: Forever Wild Lands, notwithstanding that such beach lands may be classified as Class B: Scenic Preservation Lands by other provisions of this Act. (b) As used in this Act, the term "beach lands" shall mean the wet and dry sand area lying between the mean low water line and the base of headlands or the visible line of upland vegetation, whichever shall be closer to the mean low water line, and shall In-clude dunes, rock beaches, wetlands, marshes, and estuarlne areas adjoining tidal waters. (c) There ls herewith established a non-vehicular right of passage— (1) In Class A: Forever Wild beach lands, at the high water line of sufficient width for a person to pass and repass; and (2) In Class C: Town Planned beach lands, at the high water line of sufficient width for a person to pass and repass, but only in those specified areas which each Commission shall, within six months after its first meeting, es-tablish as right of passage beach lands. The rights of owners of residential improvements on beach lands as of April 11, 1972, shall be respected: and the Commissioners shall not permit the right of passage created In para-graphs (1) and (2) of this subsection where such right would interfere with the use and enjoyment of such Improvements by the own-ers thereof.' (d) Upon agreement therefor by the Com-missions, the Governor, and the Secretary, the Secretary may acquire in any manner authorized by this Act. lands and waters In the Trust area for the purposes o f — (1) establishing public beaches open to public use and enjoyment; and (2) establishing access to such beaches. Such public beaches may or may not be enlargements of existing public beaches, but ln any case shall to as great an extent as possible be located so as to be consistent with the conservation and preservation pur-poses of thl3 Act. Access to such public beaches shall respect the rights of private property owners ln the Immediate vicinity, and shall be designed to protect the natural features of the land. The Commissions shall establish limitations on the number of vehi-cles to be parked at public beach areas. With-in twelve months after Its first meetine. the Martha's Vineyard Commission shall desig-nate two new public beaches on the south-ern or south-western shoreline of Martha's Vineyard: neither of such new areas shall, however, be enlargements of existing beaches open to public use. e) Six months after the first meeting of ;h Commission, motor vehicles, open fires. 1 camping shall be prohibited from beach ids within the area of Its Jurisdiction: yvidcd. That each Commission may deslg-te beach land areas open to such uses, i shall adopt regulation* specifying the idltlons of use within six months after first meeting. A D M I N I S T R A T I V E P R O V I S I O N S EC. 11. (a) The Trust shall be adminis-:d and protected by the Commissions with primary aim of preserving the natural >urce8 located within It and preserving area ln as nearly Its natural state and ditlon as possible. No development by Commissions shall be undertaken ln the ist area which would be incompatible h the overall lifestyle of residents of the i, with generally accepted ecological iclples, with the preservation of the slographlc conditions now prevailing, or i the preservation of historic sites or ictures. 3) The Trust shall be administered and tected by the Secretary, as to his respon-lltles. in accordance with the provisions ;hls Act and the Act of August 25. 1916 Stat. 535: 16 U.S.C. 1 et seq.). as amended supplemented, except that the Secretary r utilize any other statutory authority liable to him for the conservation, pres-ition, and management of natural re-rces to the extent he finds such authority further the purposes of this'Act. ;) The Commissions shall coordinate x administrative activities both with each ;r, and with those of other Federal, State, local government authorities and agen-operating ln the Trust area. 1) In the event that the laws of the imonwealth of Massachusetts either be-or after enactment of this Act provide the management by a regional agency ireas of critical planning concern, pur-it either to a special purpose act dealing ' with all or a part of Trust lands and ITS or to a general purpose state law, Commissions may, with the concurrence he Governor and the Secretary, suspend appllcaiton of all or part of the provl-s of this Act, except Section 2 which shall be suspended, for those lands and waters isged by such agency so long as the imlsslons, the Governor and the Secre-are satisfied that such management will insistent with the purposes of this Act. T R A N S P O R T A T I O N A N D C E N E R A L U S E S :c. 12. (a) The Commissions, together i the Governor, and the Secretary, shall :e an Immediate survey of public and ate water and air access to lands ln the it area, including that by the Woods >, Martha's Vineyard, and Nantucket •mstalp Authority and by other public private water and air carriers, shall make L recommendations to the appropriate j or bodies for legislative or admlnlstra-action as they deem consistent with the ervation and conservation purposes of Act. Such recommendations shall ln-e specific measures to limit the number lotor vehicles and passengers such car-r might otherwise transport to the Nan-: Sound Islands. Thereafter, regular and uent surveys of such access shall be e, and such recommendations shall bo e, as are deemed appropriate to maintain unique values of lands and waters ln tho >t area. i) No development or. plan for the con-ence of visitors to Trust lands or waters 1 bo undertaken which would be lncom-blo with the preservation and conserva-of the unique values thereof: Provided. t tho Commissions, the Governor, and Secretary may provide for the public en-lent and understanding of the values of Nantucket Sound Islands by establishing i public transportation systems, trails, clo paths, observation points, and cx-ts, and by providing such services as they deem desirable for such public enjoy-t and understanding, consistent with preservation and conservation oi such es. -9-(c) In any such provision for public en-joyment or understanding, tho Commissions, tho Governor, and the Secretory shall not unreasonably diminish for Its owners or occu-pants the value or enjoyment of any Im-proved property within the Trust lands. P R I V A T E N O N P R O F I T O R G A N I Z A T I O N S S E C . 13 (a) In order to encourage and provide an opportunity for the establishment of natural and scenic preserves by volun-tary private action of owners of lands and waters ln the Trust area, and notwith-standing any provision In this Act or ln any other provision of law. the Secretary's authority to acquire lands or interests therein without the consent of the owner shall bo suspended when: (I) lands or waters or Interests therein which are designated as being presently or from time to time needed to carry out the purposes of this Act are Irrevocably ln the ownership of private nonprofit conservation, preservation, historic, or other organizations or associations, and the restrictions against development of such lands meet the stand-ards referred to herein; or (II) land3 or waters or Interests therein which are designated as being presently or from time to time needed to carry out the purposes of this Act are, to the satisfaction of the Commissions, tho Governor, and tho Secretary and within twenty-four months after enactment of this Act, Irrevocably committed to be sold, donated, demised, or otherwise transferred to such organizations or associations. (b) Section 19 of this Act shall be sus-pended with respect to those lands and waters and Interests to which subsection (a) of this section applies; and section 10 of this Act shall be'similarly suspended whenever ln the Judgment of the Commisr sions its applicability will contravene the purposes of this Act or any provision of law of the Commonwealth of Massachusetts. (c) The provisions of this section shall be applied only to those organizations and asso-ciations which are determined to be bona fldo and general purpose. (d) All of the provisions of this Act, except Section 2. shall be suspended with respect to any lands, waters, or Interests therein so long as such lands, waters, or Interests there-in are within twenty-four months of the en-actment of this Act Irrevocably subject to a conservation restriction created, approved and recorded under sections 31 through 33 of chapter 184 of tho General Laws of Mas-sachusetts which forbids or in the Judgment of the Commissions and the Secretary, as evi-denced by their written approval of such re-striction, substantially limits all or a major-ity of the land uses referred to ln clauses (a) through (g) of the first paragraph of said section 31. (o) The Secretary is authorized to provide technical assistance to tho Commissions and tho towns, and to private organizations and associations, for the purpose of establishing sound land use planning and zoning bylaws to carry out the purposes of this Act. Such asslstanco may Include payments to tho Commissions and the towns for technical aid. pontmON S E C . 14. The Commissions, together with the Governor and the Secretary, shall cooperate with the appropriate Federal, Stat© and local agencies to provide safeguards against pol-lution of tho waters ln and around Trust lands. Such safeguards shall Include an Im-mediate survey of the quality of ground wa-ter conditions in all or any part of the area of the Trust, and the necessary funds there-for may bo drawn from tho appropriations authorized by section 20 herein. N E W E M P L O Y M E N T O P P O R T U N I T I E S S E C . 15. (a) Tho Secretary, together with tho Governor and the Secretaries of Com-merce and Labor, is directed to examine the Trust lands and waters forthwith for oppor-tunities to experiment with..and to oncour-221 age development of. aquaculture of all kinds. Including but not limited to, fish and shell-fish and other associated activities; and to examine other new employment opportuni-ties of any kind appropriate to tho purposes of this Act. Funds appropriated to the De-partment of Interior. Commerce and Labor under the authority of this or other laws of the United States may be used for this pur-poso without restriction. (b) The Commissions, the Governor and the Secretary shall to as great an extent as possible in tho development of any regu-lations pursuant to the provisions of this Act encourage the maintenance and com-mencement of agricultural uses of Trust lands. (c) The Secretary, ln consultation and co-operation with the Secretary of Labor, shall Investigate, and where appropriate establish, training and retraining programs' suitable for residents of Trust lands. F R E E Z E D A T E S E C. 16. (a) Beginning on April 11, 1972. no construction of any Improvement, whether for residential, commercial. Industrial, or any other purpose, shall be permitted to com-mence on any lands classified herein as "Forever Wild". Construction of improve- " ments shall be permitted on any lands classi-fied as "Town Planned Lands" only upon the granting of specific approval therefor by tho board of selectmen of the particular town, after a showing of the need therefor. Con-struction of improvements shall be permit-ted on any lands classified as "Scenic Pres-ervation Lands" only upon tho granting of specific approval therefor by the board of selectmen of the particular town, after a showing of the need therefor. Approvals granted by a vote of board of selectmen pur-suant to a finding of need therefore and pursuant to a statement of Justification therefor, shall subsequently be deemed valid by the Commissions and the Secretary. (b) In the case of any hardship caused by the provisions of subsection (a) of this section, tho Commissions and the Secretory shall, on the basis of rules and regulations developed and approved by the Commissions and the Secretary, make a valuation thereof and shall award fair recompense to any in-dividual for whom hardship 13 demonstrated. I N D I A N C O M M O N L A N D S S E C . 17. (a) The Martha's Vineyard Com-mission Is directed to establish forthwith an orderly program foj determining the precise extent of Indian Common Lands on Martha's Vineyard. The program shall Include a survey or surveys, and such other research or field work as may be necessary to establish the ownership and boundaries of the Indian Com-mon Lands known generally as the Cran-berry Bogs, the Clay Cliffs, and Herring Creek. Funds to carry out the program may bo drawn from those authorized to be appropri-ated by section 20 or section 13(c) herein. (b) Upon completion of this program, the Secretary Is directed to acquire the Indian Common Lands by any manner authorized by this Act: Provided, That such power of " acquisition is suspended for any such lands ln the ownership of a member or members of tho Wampanoag Indian Tribe of Gay Head. (c) The Martha's Vineyard Commission and tho Secretary shall thereafter hold ln trust such land acquired as established by section 7 herein. At such time as the Wampa-noag Indian Tribe of Gay Head la recognized officially by the United States of America, and subject to mutual agreement as to utilization of any land held ln trust, the Martha's Vine-yard Commission and tho Secretary shall transfer 6uch land to the Wampanoag Indian Tribe of Gay Head without consideration to be held ln tribal trust status. (d) Upon petition therefor by the Wampa-noag Tribal Council, the Secretary shall un-dertake such studies and begin ouch proceed-lngs as may be necessary to cause the Wampanoag Indian Tribe of Oay Head to be officially recognized by the United StatcB of America. R E S I D E N T H O M E S I T E S S E C . 18. (a) Upon petition therefor by any town, acting pursuant to a vote of a town meeting, the appropriate Commission shall, with the advice of the Governor and the Sec-retary and the Secretary of Housing and Ur-ban Development, prepare a Resident Home Site Plan. (b) A Resident Home Site plan shall — (1) State the reasons for the establishment of the plan; (2) Delineate the land area or land areas ln the town Intended to be utilized for carrying out the plan: (3) Define the criteria by which town resi-dents may avail themselves of the plan; (4) Project the total number of sites en-visioned by the plan; and (5) Establish the fair purchase value of such sites for qualified residents. nomic development for administration purposes, as provided for in :lion 26-35. The commission may encage employees necessary lo perform its lies, including administrative personnel and one or more field officers, ic field ollicer shall be named as ihe executive olficer of the commis-m. Field olliecrs shall be persons qualified in land use analysis. Dc-rtmcnts of the stale government shall make available lo the commis-m such data, facilities, and personnel as are necessary for it to pcr-•m its technical duties. The commission may receive and utilize gifts d any funds from ihc federal or other governmental agencies. It shall opt rules guiding its conduct, maintain a record of its activities, ac-mplishments. and recommendations to the governor and to the legis-ure through the governor. | L 1963, c 205. pt^of S2: Supp, S98H-II $205-2 Districting and classification of lands. There shall be four major nd use districts in which alt lands in the State shall be placed: urban, rural, 'ricullural. and conservation. The land use commission shall group contiguous nd areas suitable for inclusion in one of these four major districts. The com-lission shall set standards for determining the boundaries of each district, pro-dcdlhat: (1) In the establishment of boundaries of urban districts those lands that are now in urban use and a sufficient reserve area for foreseeable urban growth shall be included: (2) In the establishment of boundaries for rural districts, areas of land composed primarily of small farms mixed with very low density resi-dential lots, which may be shown by a minimum density of not more than one house per one-half acre and a minimum lot size of not less, than one-half acre shall be included: (3) In the establishment of the boundaries of agricultural districts the greatest possible protection shall be given to those lands with a high capacity for intensive cultivation; and (4) In the establishment of the boundaries of conservation districts, Ihe "forest and water reserve zones" provided in section 183-41 are re-named "conservation districts" and. effective as of July II, 1961. the boundaries of the forest and water reserve zones theretofore estab-lished pursuant to section I8J-4I. shall constitute the boundaries of the conservation districts: provided that thereafter the power to deter-mine the boundaries of the conservation districts shall be in the com-mission. In establishing the boundaries of the districts in each county, the commis-ion shall give consideration to the master plan or general plan of the county. Urban districts shall include activities or uses as provided by ordinances of emulations of the county within which the urban district is situated. Rural districts shail include activities or uses as char.icterir.ed by low den-ity residential lots of not more than one dwelling house per one-half acre in Teas where "city-like" concentration of people, structures, streets, and urban evel of services are absent, and where small farms are intermixed with the low lensity residential lots. These districts may include contiguous areas which arc lot suited lo low density residential lots or small farms by reason of topography, oils, and other related characteristics. Agricultural districts shall include activities or uses as charac'crizcd by Ihc lultivjtion of crops, orchaids. forage, and forestry; farming activities or unci ro-tated lo animal husbandry, and jauic and fish propagation; services and uses ac-cessory lo the above activities including but not limited to living quarters or dwellings, mills, storage facilities, processing facilities, and roadside stands for Ihc sale of products grown on the premises; and open area recreational facili-ties. These districts may include areas which are nol used for, or which are not suited to, agricultural and ancillary activities by reason of topography, soils, and other related characteristics. Conservation districts shall include areas necessary for protecting water-sheds and water sources: preserving scenic and historic areas; providing park lands, wilderness, and beach; conserving endemic plants, fish, and wildlife: pre-venting floods and soil erosion; forestry; open space areas whose existing open-ness, natural condition, or present state of use, if retained, would enhance the present or potential value of abutting or surrounding communities, or would maintain or enhance the conservation of natural or scenic resources; areas of value for recreational purposes: and other related activities: and other permitted uses not detrimental ton multiple use conservation concept. [L 1963, c 205, pt of J2;Supp.§98H-2; IMS §205-2; am L I969.C 182, §5] 5205-3 Adoption of district boundaries. The land use commission shall prepare district classification maps nol later than January I. 1964 showing all the proposed boundaries of conservation, agricultural, rural, and urban districts. A l least one public hearing shall be held in each county prior lo the linal adoption of the district boundaries for that county. Notice of the time and place of Ihe hearing shall be published in Ihe same manner as notices required for public hearings by the plan-ning commission of the appropriate county. If there is no. planning commission, then the notice shall be published at least twenty days prior to the hearing in a newspaper of general circulation within the county. The notice shall indicate the lime and place that the maps showing Ihe proposed district boundaries within the county mav be inspected prior to the hearing. Al the hearing, interested owners, lessees, officials, agencies, and individuals may appear and be heard. They shall further be allowed at least fifteen days following the final public hearing held in the county to tile with the commission a written protest or other comments or recommendations. The district boundaries within a county shall be adopted in linal form within a period of not more than ninety days and nol less than forty-five days from the lime of Ihc last hearing in the county; provided that district boundaries for all counties shall be adopted in final form no sooner than May I. 1964. nor later than July 1, 1964. The county concerned shall be furnished with copies ol" any written protest, comment, or recommendation. The commission shall prepare and furnish each county with copies of classification maps for thai county showing ihe districl boundaries adopted in linal form. IL 1963, c 205, pt of $2: Supp, S98H-3J §205-4 Amendments to district boundaries. Any department or agency of the State or county, or any property owner or lessee may petition the land use commission for a change in the boundary of any district. Within five days of receipt, the commission shall forward a copy of the petition to the planning commission of Ihc county wherein Ihe land is located. Within forty-five days after receipt of the petition by the county, the county planning commission shall forward the peti-tion, together with its comments and recommendations, to the commis-sion. Upon written request by the county planning commission, the commission may grant an extension of not more than fifteen days for the receipt of any comments and recommendations. The commission may also initiate changes in a districl boundary which shall be submit-ted lo the appropriate county planning agency for comments and rec-ommendations in the same manner as any other request for a bound-ary change. After sixty days but within one hundred and twenty days of the original receipt of a petition, the commission shall advertise a public hearing to be held on the appropriate island tu accordance with the requirements of section 205-3. The commission shall notify Ihc persons and agencies thai may have an intecest in ihc subject matter of the time mul place of Ihe hearing. Wiihin u period of not more than ninety days and nol less than forty-live days al'ler the hearing, the commission ahull act upon the petition lor change, Tho commission may approve 2 - 225 ihe change with six affirmative votes. N o change shall be approved unless the petitioner has submitted proof that the area is needed for a use other than that for which the district in which it is situated is clas-sified, and cither of the following requirements has been fulfilled: (1) The petitioner has submitted proof that the land is usable and adaptable for the use it is proposed to be classified, or (2) Conditions and trends of development have so changed since the adoption of the present classification, that the proposed classification is reasonable. |L 1963, c 205, pt of §2; am L 1965, c 32, §2; Supp, §98H-4] §205-5 Zoning, (a) Except as herein provided, the. powers granted to counties under section 46-4 shall govern the zoning within the districts, other than in conservation districts. Conservation districts shall be governed by the department of land and natural resources pursuant tosection 1SJ -41 . (b) Within agricultural districts, uses compatible to the activities de-scribed in section 205-2 as determined by the land use commission shall be per-mitted. Other uses may be allowed by special permits issued pursuant lo this chapter. The minimum lot size in agricultural districts shall be determined by each county through its zoning ordinance, subdivision ordinance or other lawful means, provided that in no event shall the minimum lot size for any agricultural use be less than one acre. (c) Unless authorized by special permit issued pursuant to this chapter, only the following uses shall be permitted within rural districts: (1) Low density residential uses; (2) Agricultural uses: and (3) Public, quasi-public, and public utility facilities. In addition, the minimum lot size for any low density residential use shall be one-half acre and there shall be but one dwelling house per one-half acre. [L .1963,c 205, pt of §2; Supp, $9SH-5; H R S §205-5; am L 1969, c 232, § 1 ] 8205-6 Special permit. The county planning commission and the zon-ing board of appeals of the city and county of Honolulu may permit certain unusual and reasonable uses within agricultural and rural districts other than those for which the district is classified. Any person who desires to use his land within an agricultural or rural district other than for an agricultural or rural use. as the ease may be. may petition the planning commission of the county within which his land is located or the zoning board of appeals in the ease of Ihe city and county of Honolulu for permission to use his land in the manner desired. The planning commission, or the zoning board of appeals as the case may be. shall conduct a hearing within a period of not less than thirty nor more than one hundred twenty days from the receipt of the petition. The planning commission or the zoning board of appeals shall notify the land use commission and such persons and agencies that may have an interest in the subject matter of the time and place of the hearing. The planning commission or zoning board of appeals may. under such protective restrictions as may be deemed necessary, permit the desired use, but only when the use would promote the effectiveness and objectives of this chapter. The planning commission or the zoning board of appeals shall act on the petition not earlier than fifteen days after the public hearing. A decision in favor of the applicant shall re-quire a majority vote of the total membership of the planning commis-sion or of the zoning board of appeals, which shall be subject lo the approval of ihe land use commission. A copy of the decision together with the findings shall be transmitted to the commission within ten o'ays after the decision is rendered. Within forty-five days after receipt of the county agency's decision, the commission shall act to approve or deny. A denial either by the county agency or by the commission, as the case may be. of ihe desired use shall be appealable to the circuit court of the circuit in which the land is situated and shall be made pursuant to the Hawaii Rules of of C i v i l Procedure. [L 1963. c 205, pt of §2: Supp. S9SH-6I Attorney General Opinions Special permits cannot be granted lo authorize uses which have etTcct of making boundary change or creating new district. All. tlcn. Op. 6J-37. §205-7 Adoption of regulations. The land use commission shall prepare regulations relating to matters within its jurisdiction. At least one public hearing shall be held in each county *in the manner provided in section 205-3 prior to the final adoption of its regulations. The final regulations for the State shall be adopted within a period of nol more than ninety and not less than forty-five days from the time of the final hearing in Ihe Stale provided that its regulations shall be adopted not later than July 1. 1964. IL 1963, c 205, pt of §2; Supp, S98H-7) Cross References Administrative procedure, sec chapter 91. §205-8 Nonconforming uses. The lawful use of land or buildings existing oh the date of establishment of any interim agricultural district and rural district in final form may be continued although the use. in-cluding lot size, does nol conform Io this chapter: provided lhat no nonconforming building shall be replaced, reconstructed, or enlarged or changed lo another nonconforming use and no nonconforming use of land shall be expanded or changed to another nonconforming use. ln addition, if any nonconforming use of land or building is discontinued or held in abeyance for a period of one year, the further continuation of such use shal l be p r o h i b i t e d . [L 1963 , c 2 0 5 , pt of §">• Supp §98H-8) §205-9 Amendments to regulations. By the same methods set forth in section 205-4. a petition may be submitted to change, or the land use commission may ini i ialc a change in its regulations. N o changes shall , however, be made, unless a hearing or hearings are held in each of the counties. Within not less than forty-five and not more than nine-ty days after the last of the hearings, the commission shall act to approve or deny the requested change in regulations. The petition for a change shall be based upon proof submitted thai conditions exist that were not present when the regulation was adopted or that the regula-tion does not serve the purposes of this chapter. [L 1963. c 205. pt of §2; Supp. 598H-9] §205-10 Use of field officers. Notwithstanding section 205-4 requir-ing a hearing by the full land use commission, if any application requir-ing a hearing is received which the commission in the course of its regular meetings shall not be able lo hear for more than sixty days, il may authorize a field officer to conduct the hearing and make a recom-mendation: provided all other necessary rules for hearings are adhered to. The recommendations of the field officer shall be submitted to the commission at its next meeting, and any recommendation, or rulings by the commission as a result of this recommendation, shall be subject to a review of the full commission at the next hearing date scheduled for the couniy in which the land concerned is located, if either the com-mission or the applicant notified the other party at least twenty days prior to this date. IL 1963. c 205. pt of §2: Supp, §98H-10| §205-11 Periodic review of districts. Irrespective of changes and adjustments that it may have made, the land use c o m m i s s i o n shall make a comprehensive review of the classification and districting of a l l lands and of the regulations at the end of each rive years fol louing the adoption thereof. The assistance of appropriate state and county depart-ments shall be secured in making this review and public hearings • s h a i l be held in each couniy in accordance with the requirements set forth for the adoption in final form of district boundaries and regulations under this chapter. |L 1963, c 205, pt of §2: Supp, § 9 X H - I I | §205-12 Knforceinent. The appropriate officer or agency charged with the administration of county zoning laws shall enforce within each county the use classification districts adopted by the land use commis-sion and shall report lo Ihe commission all violations.. [L 1963, e 205. pt of §2; Supp. s 9 S H I 2 | - 3 - 226 5205-13 Pena l ty l o r \ i n l u i i o n . A n y p e r s o n w h o v i o l a t e s a n y p r o v i - , sion of t h i s c h a p t e r , o r a n y r e g u l a t i o n e s t a b l i s h e d p u r s u a n t t o t h i s c h a p t e r , sha l l be l i n e d not m o r e than S 1.000. [I. 1 9 6 3 , e "'OS pt of V-S u p p . 59SH-I31 §205-14 A d j u s t m e n t s of assess ing p rac t i c es . U p o n the a d o p t i o n of d i s t r i c t b o u n d a r i e s , c e r t i f i ed c o p i e s o f the c l a s s i f i c a t i o n m a p s s h o w i n g the d i s t r i c t b o u n d a r i e s sha l l be ti led w i t h the d e p a r t m e n t o f t a x a t i o n . T h e r e a f t e r , ihe- d e p a r t m e n t o f t a x a t i o n s h a l l , w h e n m a k i n g a s s e s s m e n t s of p r o p e r l y w i t h i n a d i s t r i c t , g i v e c o n s i d e r a t i o n to the use o r uses that m a y be m a d e t h e r e o f as we l l as the u s e s to w h i c h it is then d e v o t e d . | L 1 9 6 3 , c 2 0 5 . pt o f § 2 ; S u p p . *9SH-I4| §205-15 C o n f l i c t . E x c e p t as s p e c i f i c a l l y p r o v i d e d b y this c h a p t e r a n d the r e g u l a t i o n s a d o p t e d ( he r e to , n e i t h e r the a u t h o r i t y l o r (he a d -m i n i s t r a t i o n o f t h e p r o v i s i o n s o f s e c t i o n 1 8 3 - 4 1 n o r t h e a u t h o r i t y v e s t e d in the c o u n t i e s u n d e r the p r o v i s i o n s o f s e c t i o n 46-4 sha l l b e a f f e c t e d . ( L 1 9 6 3 , c 2 0 5 . pt o f § 2 ; S u p p . S 9 8 H - I 5 ] APPENDIX E VERMONT/ ACT NO. 250 VERMONT LAWS, TENTH VERMONT STAT. ANN. C. 1 5 1 , 1970 NO. 250 of the Vermont Laws, 1970. 228 10 Vt, Stat. Ann. ch. 151, §§6001, e t . e c. set|. Vermont Envi r n n j ^ n f - n l Board Subchapter 1, General Provisions I 6001. Definitions When used in this chapter: (1) "Board" means the environmental board. (2) "Capability and development plan" means the plan prepared pursuant to section 6042 of this title. (3) "Development" means the construction of improvements on a tract or tracts of land, owned or controlled by a person, involving-more than 10 acres of land within a radius of five miles of any point on any involved land, for commercial, or industrial purposes, "Development" shall also mean the construction of improvements for commercial or industrial purposes on more than one acre of land within a municipality which has not adopted permanent zoning and subdivision bylaws. The word "development" shall mean the con-struction of housing- projects such as cooperatives, condominiums, or dwellings, or construction or maintenance of mobile homes or trailer parks, with 10 or more units, constructed or maintained on a tract or tracts of land, owned or controlled by a person, within a radius of five miles of any point on any involved land. The word "development" shall not include construction for farming log-gin? or forestry purposes below the elevation of 2500 feet. Tlx word "development" also means the construction of improvements on a tract of land involving- more than 10 acres which is to be used for municipal or state purposes. In computing; the amount of land involved, land shall be included which is incident to the use such as lawns, parking areas, roadways, leaching fields and accessory buildings. The word "development" shall not include an electric generation or transmission facility which requires a cer-tificate of public good under section 248 of Title 30. The word "development" shall also mean the construction of improvements for commercial, industrial or residential use above the elevation of 2500 feet. (4) "District commission" means the district environmental com-mission. (5) "Land use plan" means the plan prepared pursuant to sec-tion 6043 of this title. (6) "Lot" means any undivided interest in land of less than 10 acres, whether freehold or leasehold, including, but not limited to interests created by trusts, partnerships, corporations, cotenancies and contracts. (7) "Plat" means a map or chart of a subdivision with surveyed lot lines and dimensions (8) "Person" shall mean an individual, partnership, corporation, association, unincorporated organization, trust or any other legal • or commercial entity, including- a joint venture or arliliated owner-ship. The word "person" also means a municipality or state agency. (9) "Subdivision" means a tract or tracts of land, owned or con-trolled by a person, which have been partitioned or divided for the purpose of resale into 10 or more lots within a radius of five miles of any point on any lot, and within any continuous period of 10 years after the effective date of this chapter, ln determining- the number of lots, a lot shall be counted if any portion is within 5 miles.—19G9, No. 250 (Adj. Sess.), § 2, elT. April 4, 1970. Revlilon note. Reference to "leetion 246 of Title 30" vms changed to "wetiot 248 o f T i t l e 20" to conform reference to renumbering of »uch section. F ind ing* *nd declarat ion of intent. l'JO'J, N o . 250 ( A d j . Sesa.), { 1, « I . A p r i l 4, 1970, provided: "V" and lands — - „ v.,,. n i , n . i * m.iy uc destructive to the environment and wh ich are not suitable to the demands and needs of the people of the state of Vermont ; and Whereas, a comprehensive state capabi l i ty and development plan and land "Whereas , the unplanned, uncoordinated and uncontrolled use of the Uivis the environment of the state of Vermont has resulted in usaires ol thi inds and the environment which may bo destructive to the environment and fhich are not sui table to the demands and needs of the people of the state of 'ermont; and « aae p lan are necessary to provide guidelines fo r u t i l i za t ion of the land* and environment of the state of Vermont and to denne the coals to be achieved through land environmental use, p lanning and cont ro l ; and Whereas, it is necessary to es tabl ish an environmental board and district environmental commissions and vest them w i t h the author i ty to rce:u!a:e the nse of the lands and the environment of the state according to the irumrlinci and goals set fo r th i n the state comprehensive capabi l i ty ar.d development plan and to give these commiss ion ' the authori ty to enforce the regulations and controls; and Whereas, it is necessary to reerulate and control the u t i l i za t ion and usar/J of lands and tho environment to insure that, hereafter, the only usages wmch w i l l be permit ted are not unduly det r imenta l to the environment, wil l pinmwe the general welfare t h rouch o rce r ly g rowth and development and ore suiuuie to the demands and needs of the people of this state; N o w , therefore, tho legislature declares that in order to protect ano conservi the lands and the environment of the state and to injure that these bai ls an. environment are devoted to USPS wnich are not detr imental to the punne wel-fare and interests, the state shal l , in the interest of the public health, safely and welfare , exerci.^e i ts power by creat ine a state environmental hoai.l und distr ict environmental commissions conferr ing upon them the pouer to regulate the use of lands and to establish comprehensive state capability, development and land U :e (dans us hereinafter p i o m t e d . " Soparahi l i ty . I'JDO. K o . 250 ( A d j . Si-ss.), 5 2J. provided: " I f any piuwsmn of this net [chapter}, or the appl icat ion of such provision to am- prison or circumstances, shal l ho held inval id , the remainder of this oet [chapter], or the applicat ion of that provision to persons or circumstances o 'her than those as to which it is held inval id , shal l not he alfected thereby." Approp r i a t i on . lDi'.a, No . 250 ( A d j . Sess.) , * .11. provided: ' -mere is h'rebv appropria ted to tho executive oilice the sum of ?:;(i.uOu.ud for the purpo^s of this act. These funds shal l not revert but may be used un t i l June 30, 11»71." § 6002. Procedures The provisions of chapter 25 of Title 3 shall apply unless other-wise specifically stated.—1969, No. 250 (Adj. Sess.), § 26, eft*. April 4, 1970. § 6003. Penalties A violation of any provision of this chapter or the rules promul-gated hereunder is punishable by a fine of not more than $000.00 for each day of the violation or imprisonment for not more than two years, or both.—1909, No. 250 (Adj. Sess.), § 28, eff. April 4, 1970. g 6004. Enforcement In addition to the other penalties herein provided, the board may, in the name of the state of Vermont, institute any appropriate action, injunction, or other proceeding to prevent, restrain, correct or abate any violation hereof or of the rules promulgated hereunder. —1969, No. 250 (Adj. Sess.). § 29, efl. April 4, 1970. Subchapter 2. Administration § 6021. Board; vacancy; removal (a) An environmental board is created. The board shall consist of nine members appointed in the month of February by the governor, with the advice and consent of the senate, so that five appointments expire in each odd numbered year. Ei;;ut of the members shall be appointed for a term of four years. The chairman (ninth member) shall be appointed for a two year term. (b) Any vacancy occurntic; in the membership of the noard shall be fwMed by the governor for the unexpired portion of the term. (c) Members shall be removable lor cause only, except the chair-mnn, who shall serve at the pleasure of the governor.—1969, No. 250 (Adj. Sess.), § 3, efT. April 4, 1970. Temporary provisions. 19C9, No. 250 (Adj. Sess.), j 32(a), (c), off. April 4, 1970, provided: "(B ) On or rw-iore June I. 1970, the governor shall appoint four members to the board whose trrms shall expire January Ul, l'J71, four members whose terms shall expire January J l , 11173, and a chairman whose term shall expire January 31, 1071." "(c) The appointments to the board shall be made with the advice and consent of the senate for all appointments made during the present session of . the legislature, and for all appointments, not so made, whose terms expire ln 1973, by the senate of the general assembly convening January, 1971." § 6022. Personnel The board may appoint an executive officer and other em-ployees, including administrative personnel, as it finds necessary in carrying out its duties, unless the governor shall otherwise provide.—19G9, No. 250 (Adj. Sess.), § 4, eff. April 4, 1970. § 6023. Grants The board may apply for and receive grants from the federal government and from other sources.—1969, No. 250 (Adj. Sess.), § 4, eff. April 4,1970. § 6024. Intragovernmental cooperation Other departments and agencies of state government shall cooperate with the board and make available to it data, facilities and personnel as may be needed to assist the board in carrying out Its duties and functions.—1969, No. 250 (Adj. Sess.), § 4, eff. April 4, 1970. g 6025. Rules The board shall adopt rules to interpret and carry out the provisions of this chapter.—1969, No. 250 (Adj. Sess.), § 25, eff. April 4, 1970. g 6026. District commissioners (a) For the purposes of the administration of this chapter, the state is divided into nine districts. (1) District No. 1, comprising Franklin, Grand Isle and La-moille Counties. (2) District No. 2, comprising Orleans, Essex and Caledonia Counties. (3) District No. 3, comprising Chittenden County. (4) District No. 4, comprising- Addison County. (5) District No. 5, comprising Washington and Orange Coun-ties. (6) District No. 6, comprising Rutland County. (7) District No. 7, comprising Windham County. (8) District No. 8, comprising Bennington County. (9) District No. 9, comprising Windsor County. (b) A district environmental commission is created for each dis-trict. Each district commission shall consist of three members from that district appointed in the month of February by the governor so that two appointments expire in each odd numbered year. Two of the members shall be appointed for a term of four years, and the chairman (third member) of each district shall be appointed for a two-year term. (c) Members shall be removable for cause only, except the chair-man who shall serve at the pleasure of the governor. (d) Any vacancy shall be filled by the governor for the unexpired period of the term.—1969, No. 250 (Adj. Sess.), § 5, eff. April 4, . 1970. Temporary protiitons. 1969. No. 250 (Adj. Sess.), § 32(b), eff. April 4, 1970, provided: "(b) On or before June 1. 1970, the governor Khali appoint one member of each district commission whose term *hall expire January 31, 1971, one member «rhose term shall expire January 31, 1973, and a chairman vhoM term shall expire January 31, 1971." 2 -229 g 6027. Towers (a) The board nnd district commissions shall have the power to compel the attendance of witnesses, and require the production of evidence. (b) The powers granted to the board under this chapter are addi-tional to any other powers which may l>e granted to it by other legislation. • (c) The board may designate or establish such regional offices as it deems necessary to implement the provisions of this chapter and the rules adopted hereunder. The board may designate or require a regional planning commission to receive applications, provide administrative assistance, investigations, and make recommenda-tions. (d) The board, when it determines the workload in any district is such that unreasonable delays will result, may at the request of an overloaded district authorize the district commission of another district to sit in that district to consider applications. (e) The board may by rule allow joint hearings to be conducted with specified state agencies or specified municipalities.—1969, No. 250 (Adj. Sess.), § 25, eff. April 4, 1970. g 6028. Compensation Members of the board and district commissions shall receive a per diem pay of $25.00 and all necessary expenses.—1969, No. 250 (Adj. Sess.), § 31, eff. April 4, 1970. Subchapter S. Use and Development Plans § 6041. Interim capability plan Prior to the adoption of the capability and development plan, the board shall adopt an interim land capability and development plan which will describe the present use of the land and define in broad categories the capability of the land for development and use based on ecological considerations nnd which plan shall be in effect until the adoption of the land use plan, or until July 1, 1972, whichever first occurs.—1969, No. 250 (Adj. Sess.), § 18, efT. April 4, 1970. § 6042. Capability and development plan The board shall adopt a capability and development plan consist-ent with the interim land capability plan which shall be made with the general purpose of guiding and accomplishing a coordinated, efficient and economic development of the state, which will, in accordance with present and future needs and resources, best promote the health, safety, order, convenience, prosperity and wel-fare of the inhabitants, as well as efficiency and economy in the process of development, including but not limited to. such distribu-tion of population and of the uses of the land for urbanization, trade, industry, habitation, recreation, agriculture, forestry and other uses as will tend to create conditions favorable to transporta-tion, health, safety, civic activities and educational and cultural opportunities, reduce the wastes of financial and human resources which result from either excessive congestion or excessive scatter-ing of population and tend toward an efficient and economic utiliza-tion of drainage, sanitary and other facilities and resources and the conservation and production of the supply of food, water and miner-als. In addition, the plan may accomplish the purposes set forth in section 4302 of Title 24.—1969, No. 250 (Adj. Sess.), § 19, eff. April 4, 1970. g 6043. Land use plan After the adoption of a capability and development plan, the board shall adopt a land use plan based on the capability and de-velopment plan which shall consist of a map and statements of present and prospective land uses based on the capability and de-velopment plan, which determine in broad categories the proper use of the lands in the state whether for forestry, recreation, agriculture or urban purposes, the plans to be further implemented at the local level by authorized land use controls such as subdivi-sion regulations and zoning.—1960. No. 250 (Adj. Sess.), § 20, eff. April 4. 1970. § 6044. Public hearings (a) The board shall hold public hearings for the purpose of col-lecting information to be used in establishing the capability and development plan, land use plan, and interim land capability plan. •The public hearings may be held in an appropriate area or areas of the state and shall be conducted according to rules to be established and published by the board. (b) The board may, on its own motion or on petition of an in-terested agency of the state or any regional or local planning com-mission, hold such other hearings as it may deem necessary from time to time for the purpose of obtaining information necessary or helpful in the determination of its policies, the carrying out of its duties, or the formulation of its rules and regulations. (c) At least one public hearing shall be held in each district prior to adoption of a plan pursuant to sections 6042 and 6043 of this title. Notice of a hearing shall be furnished each municipality, and municipal and regional planning commission in the district where the hearing is to be held not less than fifteen days prior to the hearing. (d) The provisions of chapter 25 of Title 3 shall not apply to the hearings under this section.—1969, No. 250 (Adj. Sess.), § 21, eff. April 4, 1970. § 6045. Submission to planning commissions Prior to approval of a plan by the board the tentative plan shall be submitted to each municipal and regional planning commission, which shall forward its comments and recommendations, if any, to the board within 30 days. The board shall, prior to approval of the plan, consider all such comments and recommendations, make such changes in the plan as it deems appropriate, and convey its specific responses to the respective planning commissions from which the comments and recommendations originated.—1969, No. 250 (Adj. Sess.), § 22, eff. April 4.1970. § 6046. Approval of governor and legislature (a) Upon approval of a capability and development land use or interim land capability plan by the board, it shall submit the plan to the governorfor approval. The governor shall approve the plan, or disapprove the plan or any portion of a plan, within 30 days of receipt. If the governor fails to act, the plan shall be deemed approved by the governor. This section and section 6045 of this title shall also apply to any amendment of a plan. (b) After approval by the governor, plans pursuant to sections 6042 and 6043 of this title shall be submitted to the general assembly when next in session for approval by joint resolution. A plan shall be considered adopted for the purposes of section 6086(b) (9) of this title when the required final approval has been made.—19G9, No. 250 (Adj. Sess.), § 23, eff. April 4, 1970. Revision note. Undesignated pars, of this section were designated as lubiecs. "(a)" and "(b)" to conform section to V.S.A. style. § 6047. Changes in boundaries (a) After final adoption, any department or agency of the state or a municipality, or any property owner or lessee may petition the board for a change in the boundary of any district created under section 6013 of this title or the capability of land for a use under section C041 of this title. (b) Within 10 days of receipt, the board shall forward a copy of the petition to the district commission and regional planning agency for comments and recommendations. If no regional plan-ning commission exists, the copy shall be sent to the affected municipal planning commissions and municipalities. 230 (c) After 60 days but within 120 days of the original receipt of ft petition, the board shall advertise a public hearing to be held in the appropriate county. The board shall notify the persons and t agencies that have an interest in the change of the time and place of the hearing. (d) With respect to petitions relating to section 6043 of this title no change shall be approved unless the petitioner has submit-ted proof that the area is needed for a use other than that lor which the district in which it is situated is classified, and the following requirements have been fulfilled: (1) The petitioner has submitted proof that the land is usable and adaptable for the use for which it is proposed to be classified, and (2) Conditions and trends of development have so changed since the adoption of the present classification; that the proposed classification is reasonable. (e) With respect to petitions relating to section t>U4i of this title no change shall be allowed unless the, land is capable of sus-taining the use proposed. (f) The applicant, any person or municipality directly affected, who is aggrieved may appeal to the supreme court as in section 6089(b) of this title.—1969, No. 250 (Adj. Sess.), § 24, eff. April 4, 1970. Revision note. Undesignated par. was designated as subsec. -(b)" to con-form to V.S.A. style and remaining subsecs. redesignated as "(c)"-"(f Subchapter i. Permits § 6081. Permits required; exemptions (a) No person shall sell or offer for sale any interest in any sub-division located in this state, or commence construction on a sub-division or development, or commence development without a- per-mit. This section shall not prohibit the salo, mortgage or transfer of all, or an undivided interest in all, of a subdivision unless the sale, mortgage or transfer is accomplished to circumvent the purposes of this chapter. (b) Subsection (a) of this section shall not apply to a subdivi-sion exempt under the regulations of the department of health in effect on January 21, 1970 or any subdivision which has a permit issued prior to June 1, 1970 under the board of health regulations, or has pending a bona fide application for a permit under the regulations of the board of health on June 1, 1970, with respect to plats on file as of June 1, 1970 provided such permit is granted prior to August 1, 1970. Subsection (a) of this section shall not apply to development which is not also a subdivision, which has been commenced prior to June 1, 1970, if the construction will be completed by March 1, 1971. Subsection (a) of this section shall not apply to a state highway on which a hearing pursuant to sec-tion 222 of Title 19 has been held prior to June 1, 1970. Subsection (a) of this section shall apply to any substantial change in such excepted subdivision or development.—1969, No. 250 (Adj. Sess.), §§ 6, 7, subsec. (a), eff. June 1, 1970, subsec. (b), eff. April 4, 1970. § 6082. Approval by local governments and state agencies The permit required under section 6081 of this title shall not supersede or replace the requirements for a permit of any other state agency or municipal government.—1969, No. 250 (Adj. Sess.), § 27, eff. April 4, 1970. § 6083. Applications (a) An application for a permit shall be filed with the district commissioner as prescribed by the rules of the board and shall contain at least the following documents and information: (1) The applicant's name, address, and the address of each of the applicant's olliccs in this state, and, where the applicant is not an individual, municipality or state agency, the form, date and place of formation of the applicant. (2) Five copies of a plan of the proposed development or - 4 - 231 subdivision showing the intended use of the land, the proposed im-provements, the details of the project, and any other information required by this chapter, or the rules promulgated thereunder. (3) The fee prescribed by rule. (4) Certification of filing of notice as set forth in 6084 of this title. (b) The board and district commission may conduct such investigations, examinations, tests and site evaluations as they deem necessary to verily information contained in the application. An applicant shall grant the board or district commission, or their agents, permission to enter upon his land for these purposes.—1969, No. 250 (Adj. Sess.), §§ 8, 15, eff. April 4, 1970. § 6084. Notice (a) On or before the date of filing of application the applicant shall send notice and a copy of the application to a municipality, and municipal and regional planning commissions wherein the land is located; and any adjacent Vermont municipality, municipal or regional planning commission if the land is located on a boundary. The applicant shall furnish to the district commission the names of those furnished notice by allidavit, and shall post a copy of the notice in the town clerk's office of the town or towns wherein the land lies. (b) The district commission shall forward notice and a copy of the application to the board and any state agency directly affected, and any other municipality or state agency, or person the district commission or board deems appropriate. Notice shall also be pub-lished in a local newspaper generally circulating in the area where the land is tocated not more than 7 days after receipt of the applica-tion.—1969, No. 250 (Adj. Sess.), § 9, eff. April 4, 1970. § 6085. Hearings (a) Anyone required to receive notice by section 9 and any ad-joining property owner may request a hearing by filing a request within 15 days of receipt of notice. Upon receipt of notice the dis-trict commission shall treat the application pursuant to section 814 of Title 3. The district commission may order a hearing without a request within 20 days of receipt of the application. (b) The date for a heaving shall be set within 25 days of receipt of the application or notice of appeal filed under section 6088(a) of this title. The hearing shall be held within 40 days of receipt of the application or notice of appeal. The parties shall be given not less than 10 days notice. Notice shall also be published in a local newspaper generally circulating in the area where the land is located not less than 10 days before the hearing date. (c) Parties shall be those who have received notice, adjoining property owners who have requested a hearing, and such other persons as the board may allow by rule. For the purposes of appeal only the applicant, a state agency, the regional and municipal plan-ning commissions and the municipalities required to receive notice shall be considered parres. (d) If no hearing has been requested or ordered within the prescribed period no hearing need be held by the district commis-sion. In such an event a permit shall be granted or denied within 60 days of receipt; otherwise, it shall be deemed approved and a permit shall be issued.—19G9, No. 250 (Adj. Sess.), §§ 10, 11, eff. April 4, 1970. 8 6086. Issuance of permit; conditions (a) Before granting a permit the board or district commission shall find that the subdivision or development: (1) Will not result in undue water or air pollution. In making this determination it shall at least consider: the elevation of land above sea level; and in relation to the flood plains, the nature of soils and subsoils and their ability to adequately support waste dis-posal; the slope of the land and its effect on etlluents; the avail-ability of streams for disposal of etlluents; and the applicable health and water resources department regulations. (2) Does have sufficient water available for the reasonably foreseeable needs of the subdivision or development. (3) Will not cause an unreasonable burden on an existing water supply, if one is to be utilized. (4) Will not cause unreasonable Soil erosion or reduction in the capacity of the land to hold water so that a dangerous or unhealthy condition may result. (5) Will not cause unreasonable highway congestion or unsafe conditions with respect to use of the highways existing or proposed. (6) Will not cause an unreasonable burden on the abilitv of a municipality to provide educational services. (7) Will not place an unreasonable burden on the ability of the local governments to provide municipal or governmental services. (8) Will not have an undue adverse effect on the scenic or natural beauty of the area, aesthetics, historic sites or rare and. irreplaceable natural areas. ' (9) Is in conformance with a duly adopted development plan, land use plan or land capability plan. (10) Is in conformance with any duly adopted local or regional plan under chapter 91 of Title 24. (b) The board or district commission shall issue its findings and decision within 20 days of the final hearing day. (c) A permit may contain such requirements and conditions as are allowable within the proper exercise of the police power and which are appropriate with respect to (1) through (10) of subsec-tion (a), including but not limited to those set forth in sections 4407(4), (8) and (9), 4 111(a) (2). 4415, 4416 and 4117 of Title 24, the dedication of lands for public use, and the filing of bonds to insure compliance. The requirements and conditions incorporated from Title 24 may be applied whether or not a local plan has been adopted. General requirements and conditions may be established by rule. • (d) The board may by rule allow the acceptance of a permit or permits or approval of any state agency with respect to (1) through (5) of subsection (a) or a permit or permits of a specified municipal government with respect to (1) through (7) and (10) of subsection (a), or a combination of such permits or approvals, in lieu of evidence by the applicant. The acceptance of such approval, permit or permits shall create a presumption that the application is not detrimental to the public health and welfare with respect to the specific requirement for which it is accepted. Such a rule may be revoked or amended pursuant to the procedures set forth in section 803(b) of Title 3. The board shall not approve the acceptance of a permit or approval of such an agency or a permit of a municipal government unless it satisfies the appropriate re-quirements of subsection (a) of this section.—1969, No. 250 (Adj. Sess.), § 12, eff. April 4, 1970. § 6087. Denial of application (a) No application shall bo denied by the lioard or district com-mission unless it finds the proposed subdivision or development detrimental to the public health, safety or general welfare. (b) A permit may not be denied solely for the reasons set forth in (5), (6) and (7) of section 6086(a) of this title. However, reasonable conditions and requirements allowable in section 6086(c) of this title may be attached to alleviate the burdens created. (c) A denial of a permit shall contain the specific reasons for denial. A person mny, within 6 months, apply for reconsideration of his permit which application shall Include an affidavit to the dis-trict commission and nil parties of record that the deficiencies have been corrected. The district commission shall hold a new hearing upon 25 days notice to the parties. The hearing shall be held within 40 days of receipt of the request for reconsideration.—1969, No. 250 (Adj. Sess:), § 12, eff. April 4. 1970. g 6088. Burden of proof (a) The burden shall be on the applicant with respect to (1), (2), (3), (4), (9) and (10) of section 6086(a) of this title. (b) The burden shall be on any party opposing the applicant , with respect to (5) through (8) of section 6086(a) of this title to show an unreasonable or adverse effect.—1969, No. 250 (Adj. Sess.), § 13, eff. April 4, 1970. g 6089. Appeals (a) An appeal from the district commission shall be to the board. The board shall hold a de novo hearing on all findings requested by any party. Notice of appeal shall be filed with the board within 30 days. The board shall notify the parties set forth in section 6085(c) of this title. The board shall proceed as in section 6085(b) and (c) of this title and treat the applicant pursuant to section 814 of Title 3. (b) An appeal from a decision of the board under subsection (a) shall be to the supreme court by a party as set forth in section 6085(c) of this title. (c) No objection that has not been urged before the board may be considered by the court, unless the failure or neglect to urge such objection shall be excused because of extraordinary circum-stances. The findings of the board with respect to questions of fact, if supported by substantial evidence on the record as a whole, shall be conclusive. (d) An appeal from the board will be allowed for all usual reasons, including the unreasonableness or insufficiency of the condi-tions attached to a permit. An appeal from the district commission will be allowed for any reason except no appeal shall be allowed when an application has been granted and no preliminary hearing requested.—1969, No. 250 (Adj. Sess,), § 14, eff. April 4, 1970. g 6090. Duration and revocation of permits (a) Any permit granted under this chapter shall be for a specified period determined by the board in accordance with the rules adopted underthis chapter as a reasonable projection of the time during which the land will remain suitable for use if de-veloped or subdivided as contemplated in the application, and with due regard for the economic considerations attending the pro-posed development or subdivision. (b) A permit may be revoked by the board in the event of violation of any conditions attached to any permit or the terms of any application, or violation of any rules of the board.—1969, No. (250 (Adj. Sess.), § 16, eff. April 4,1970. g 6091. Renewals and nonuse (a) At the expiration of each permit, it may be renewed under the same procedure herein specified for an original application. (b) Nonuse of a permit for a period of one year following the date of issuance shall constitute an abandonment of the project and the permit shall be considered expired. (c) If the application is made for an extension prior to expiration the district commission may grant an extension and may waive the necessity of a hearing.—19G9, No. 250 (Adj. Sess.), § 17, eff. April 4, 1970. APPENDIX F ONTARIO/ NIAGARA ESCARPMENT PLANNING AND DEVELOPMENT ACT, ONT. C. 2 2 , E L I Z . I I , 1973 1 BILL 129 1973 An Act to provide for Planning and Development of the Niagara Escarpment and its Vicinity HE R M A J E S T Y , b y a n d w i t h the adv ice a n d consent of the L e g i s l a t i v e A s s e m b l y of the P r o v i n c e of O n t a r i o , enacts as f o l l o w s : 1 I n th is A c t Interpre-±. i n i m s m i , tation (a) " C o m m i s s i o n " means the N i a g a r a E s c a r p m e n t C o m -miss i on establ ished under this A c t ; (b) " l o c a l p l a n " means an official p l a n a p p r o v e d b y the M i n i s t e r or b y the O n t a r i o M u n i c i p a l B o a r d u n d e r The Planning Act; mo-(c) " M i n i s t e r " means the T r e a s u r e r of O n t a r i o a n d M i n i s t e r of E c o n o m i c s a n d I n t e r g o v e r n m e n t a l A f f a i r s ; (d) " m i n i s t r y " means a n y m i n i s t r y or secretariat of the G o v e r n m e n t of O n t a r i o a n d inc ludes a b o a r d , c o m -miss i on or agency of the G o v e r n m e n t ; (e) " N i a g a r a E s c a r p m e n t P l a n " means a p l a n , p o l i c y a n d p r o g r a m , or a n y part thereof, a p p r o v e d b y the L i e u -tenant G o v e r n o r i n C o u n c i l , c o v e r i n g the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , or a n y p a r t thereof defined i n the P l a n , designed to p r o m o t e the o p t i m u m economic , socia l , e n v i r o n m e n t a l a n d p h y s i c a l c o n -d i t i o n of the A r e a , a n d c o n s i s t i n g of the texts a n d maps descr ib ing the p r o g r a m a n d p o l i c y ; (/) " N i a g a r a E s c a r p m e n t P l a n n i n g A r e a " means the area of l a n d i n O n t a r i o des ignated as s u c h b y the M i n i s t e r under this A c t ; (g) " z o n i n g b y - l a w " means a b y - l a w passed u n d e r sec-t ion 35 of The Planning Act or a n y predecessor thereof a n d a p p r o v e d b y the O n t a r i o M u n i c i p a l B o a r d . 1 2 9 235. Purpose of Act 2. T h e purpose of this A c t is to p r o v i d e for the m a i n t e n a n c e of the N i a g a r a E s c a r p m e n t a n d l a n d i n its v i c i n i t y s u b s t a n -t i a l l y as a c o n t i n u o u s n a t u r a l e n v i r o n m e n t , a n d to ensure o n l y such d e v e l o p m e n t occurs as is c o m p a t i b l e w i t h that n a t u r a l e n v i r o n m e n t . Establish-ment of Niagara Escarpment Planning Area Direction by Minister to prepare Niagara Escarpment Plan Order to be laid before Assembly Advisory committees 3. -—(1) T h e M i n i s t e r m a y , b y order, establ ish as the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a the area of l a n d i n O n t a r i o def ined i n the order. (2) W h e r e the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a has been es tab l i shed u n d e r subsect ion 1, the M i n i s t e r s h a l l i n c l u d e i n the order a d i r e c t i o n to the C o m m i s s i o n t h a t it c a r r y out a n i n v e s t i g a t i o n a n d s u r v e y of the e n v i r o n m e n t a l , p h y s i c a l , socia l a n d economic c o n d i t i o n s i n r e l a t i o n to the deve lop-m e n t of the P l a n n i n g A r e a o r a n y p a r t thereof, a n d t h a t there be p r e p a r e d w i t h i n a p e r i o d of two years or such other p e r i o d of t i m e as the M i n i s t e r i n his order determines , a p l a n s u i t a b l e for a p p r o v a l as the N i a g a r a E s c a r p m e n t P l a n . (3) W h e r e a n y order is made u n d e r subsect ion 1, the M i n i s t e r s h a l l , on the d a y the order is m a d e , or as soon thereafter as is p r a c t i c a b l e , l a y the order before the A s s e m b l y if it is i n session or, if not , at the c o m m e n c e m e n t of the n e x t e n s u i n g session a n d the A s s e m b l y s h a l l , b y resolut ion, declare the order a p p r o v e d , r e v o k e d or v a r i e d . • 4. T h e M i n i s t e r s h a l l es tab l i sh two o r more a d v i s o r y c o m m i t t e e s , cons is t ing of such persons as the M i n i s t e r a p p o i n t s , one of w h i c h w i l l represent the m u n i c i p a l i t i e s i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a i n whole or i n p a r t a n d one of w h i c h w i l l be b r o a d l y representat ive of the people of the P l a n n i n g A r e a , to advise a n d m a k e r e c o m m e n d a t i o n s to the M i n i s t e r , t h r o u g h the C o m m i s s i o n , i n respect of the pre-p a r a t i o n a n d i m p l e m e n t a t i o n of the N i a g a r a E s c a r p m e n t P l a n a n d to p e r f o r m a n y o t h e r f u n c t i o n g i v e n to t h e m b y the M i n i s t e r . , Niagara 5 — ( i ) There is herebv establ ished a c o m m i s s i o n , to be Escarpment v ' - . . . , , commission k n o w n as the N i a g a r a E s c a r p m e n t C o m m i s s i o n , c o m p o s e d ot es a is e seventeen m e m b e r s a p p o i n t e d b y the L i e u t e n a n t G o v e r n o r i n C o u n c i l as fo l lows: 1. N i n e members shal l be a p p o i n t e d as representat ive of the p u b l i c at large. . 2. Of the eight r e m a i n i n g members , one s h a l l be ap-p o i n t e d f r o m a list c o n t a i n i n g the names of not less t h a n three persons s u b m i t t e d b y the c o u n t y c o u n c i l or regional c o u n c i l , as the case m a y be, of each 129 236 c o u n t y a n d regional m u n i c i p a l i t y whose j u r i s d i c t i o n inc ludes a n y part of the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a . (2) E a c h member of the C o m m i s s i o n s h a l l h o l d office for ^ ™ o t " such per iod of t i m e as the L i e u t e n a n t G o v e r n o r i n C o u n c i l determines . (3) N o person is e l igible to be i n c l u d e d i n a l ist of p e r s o n s E l i e i b i l i t ;y s u b m i t t e d under p a r a g r a p h 2 of subsect ion 1 unless he is a m e m b e r or employee of the c o u n c i l of a m u n i c i p a l i t y whose j u r i s d i c t i o n inc ludes a part of the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a . When mission (4) T h e C o m m i s s i o n shal l be deemed to be establ ished w h e n w 0 h ^' a m a j o r i t y of the n u m b e r of members has been a p p o i n t e d , deemed^ a n d it m a y then proceed to c a r r y out the funct ions conferred u p o n it under this A c t , n o t w i t h s t a n d i n g the r e m a i n i n g n u m b e r of members has not been a p p o i n t e d . (5) T h e L i e u t e n a n t G o v e r n o r i n C o u n c i l m a y designate 0 n e C h a i r m a n of the members a p p o i n t e d under p a r a g r a p h 1 of subsect ion 1 to be c h a i r m a n of the C o m m i s s i o n . (6) N i n e m e m b e r s of the C o m m i s s i o n c o n s t i t u t e a q u o r u m . Q u o r u m (7) M e m b e r s of the C o m m i s s i o n shal l receive such s a l a r y ^ ™ u n e r a " a n d other r e m u n e r a t i o n as the L i e u t e n a n t G o v e r n o r i n C o u n c i l f r o m t i m e to t i m e determines . (8) S u c h officers, c lerks a n d servants as are c o n s i d e r e d s t a f r necessary f r o m t i m e to t i m e for the purposes of the C o m m i s -s ion m a y be a p p o i n t e d under The Public Service Act. c'386' 1 9 ?°' (9) Subject to the a p p r o v a l of the M i n i s t e r , the C o m m i s s i o n ^ s t a n c e 1 * ' m a y engage persons to p r o v i d e professional , t e c h n i c a l or other assistance to the C o m m i s s i o n . (10) I n the per formance of its funct ions , the C o m m i s s i o n |taCfrto'"8 ° f m a y be assisted b y such persons i n the p u b l i c service o f C o m m i s s l o n O n t a r i o as the M i n i s t e r designates for the purpose. 6. A l l e x p e n d i t u r e s , costs, charges a n d expenses i n c u r r e d M o n e y s a n d p a y a b l e i n respect of the c a r r y i n g out b y the C o m m i s s i o n of its funct ions , i n c l u d i n g the salaries a n d expenses of the m e m b e r s of the C o m m i s s i o n a n d of the officers, c lerks a n d o t h e r employees thereof, s h a l l be p a i d out of the moneys a p p r o p r i a t e d therefor b y the L e g i s l a t u r e . 129 237 4 Consultation during preparation of plan Objectives 7. D u r i n g the course of the p r e p a r a t i o n of the N i a g a r a E s c a r p m e n t P l a n , the C o m m i s s i o n s h a l l consul t w i t h the m i n i s t e r , p r o v i n c i a l secretary o r other person h a v i n g charge of a n y affected m i n i s t r y a n d w i t h the c o u n c i l of each m u n i c i -p a l i t y w i t h i n or p a r t l y w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , w i t h respect to the p r o p o s e d contents of the P l a n . 8. In p r e p a r i n g the N i a g a r a E s c a r p m e n t P l a n , the objec-t ives to be sought b y the C o m m i s s i o n i n the N i a g a r a E s c a r p -ment P l a n n i n g A r e a shal l be, (a) to protect u n i q u e ecologic a n d h i s t o r i c areas; (b) ' to m a i n t a i n a n d enhance the q u a l i t y a n d c h a r a c t e r of n a t u r a l s treams a n d water s u p p l i e s ; R.S.0.1970, C.349 Contents of Plan (c) to p r o v i d e a d e q u a t e o p p o r t u n i t i e s for o u t d o o r recrea-t i o n ; (d) to m a i n t a i n a n d enhance the open landscape c h a r a c t e r of the N i a g a r a E s c a r p m e n t i n so far as possible, b y s u c h means as c o m p a t i b l e f a r m i n g or forestry a n d b y p r e s e r v i n g the n a t u r a l scenery; (e) to ensure that a l l new d e v e l o p m e n t is c o m p a t i b l e w i t h the purpose of this A c t as expressed i n sect ion 2; (/) to p r o v i d e for adequate p u b l i c access to the N i a g a r a E s c a r p m e n t ; a n d (g) to s u p p o r t m u n i c i p a l i t i e s w i t h i n the N i a g a r a E s c a r p -m e n t P l a n n i n g A r e a i n their exercise of the p l a n n i n g funct ions conferred u p o n t h e m b y The Planning Act. 9 . T h e N i a g a r a E s c a r p m e n t P l a n m a y c o n t a i n , (a) pol icies for the economic , social a n d p h y s i c a l deve lop-m e n t of the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a i n respect of, (i) the m a n a g e m e n t of l a n d a n d w a t e r resources, (ii) the general d i s t r i b u t i o n a n d d e n s i t y of p o p u -l a t i o n , (iii) the general l o c a t i o n of i n d u s t r y a n d c o m m e r c e , the i d e n t i f i c a t i o n of major l a n d use areas a n d the p r o v i s i o n of m a j o r p a r k s a n d open space a n d the policies i n regard to the a c q u i s i t i o n of lands , 129 238 5 (iv) the c o n t r o l of a l l forms of p o l l u t i o n of the n a t u r a l e n v i r o n m e n t , (v) . the general l o c a t i o n a n d d e v e l o p m e n t of m a j o r s e r v i c i n g , c o m m u n i c a t i o n a n d t r a n s p o r t a t i o n systems, (vi) the d e v e l o p m e n t a n d m a i n t e n a n c e of educa-t i o n a l , c u l t u r a l , r e c r e a t i o n a l , h e a l t h a n d other social faci l i t ies , a n d (vii) such other m a t t e r s as are, i n the o p i n i o n of the M i n i s t e r , a d v i s a b l e ; (b) pol icies r e l a t i n g to the f i n a n c i n g a n d p r o g r a m m i n g of p u b l i c d e v e l o p m e n t projects a n d c a p i t a l w o r k s ; (c) .pol icies to co-ordinate the p l a n n i n g a n d d e v e l o p m e n t p r o g r a m s of the var ious m i n i s t r i e s for the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a ; (^)^policies to co-ordinate p l a n n i n g a n d d e v e l o p m e n t a m o n g m u n i c i p a l i t i e s w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a ; (e) pol ic ies designed to ensure c o m p a t i b i l i t y of deve lop-m e n t b y the p r i v a t e sector ; a n d (/) s u c h other policies as are, i n the o p i n i o n of the M i n i s t e r , a d v i s a b l e for the i m p l e m e n t a t i o n of the P l a n , . a n d s h a l l c o n t a i n such p r o g r a m s a n d policies as each m i n i s t e r , p r o v i n c i a l secretary or other person h a v i n g charge of a m i n i s t r y desires to be i n c o r p o r a t e d i n the P l a n , i n so far as the C o m m i s -s ion considers it p r a c t i c a b l e . 10.—(1) D u r i n g the course of p r e p a r a t i o n of the N i a g a r a ^ pP*™"01 E s c a r p m e n t P l a n , the C o m m i s s i o n s h a l l , (a) f u r n i s h each l o c a l m u n i c i p a l i t y w i t h i n o r p a r t l y w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a w i t h a c o p y of the proposed P l a n a n d i n v i t e each s u c h m u n i c i p a l i t y to m a k e c o m m e n t s thereon to the c o u n c i l of the c o u n t y or regional m u n i c i p a l i t y w i t h i n w h i c h it is s i tuate w i t h i n such p e r i o d of t i m e , not be ing less t h a n three m o n t h s f rom the t i m e the P l a n is furnished to i t , as is speci f ied; (b) p u b l i s h a notice i n s u c h newspapers h a v i n g general c i r c u l a t i o n i n a n y area that is w i t h i n the N i a g a r a 129 2 3 9 E s c a r p m e n t P l a n n i n g A r e a as the C o m m i s s i o n considers a p p r o p r i a t e , n o t i f y i n g the p u b l i c of the. proposed P l a n , i n d i c a t i n g where a c o p y of the P l a n together w i t h the m a t e r i a l used i n the p r e p a r a t i o n thereof m e n t i o n e d i n subsect ion 5, can be e x a m i n e d a n d i n v i t i n g the s u b m i s s i o n of c o m m e n t s thereon w i t h i n such p e r i o d of t i m e , not be ing less t h a n three m o n t h s f r o m ' the t i m e the not ice is first p u b l i s h e d , as is speci f ied; Hearing officer (c) f u r n i s h copies of the proposed P l a n to a n y a d v i s o r y c o m m i t t e e a p p o i n t e d u n d e r sect ion 4 a n d i n v i t e a n y s u c h c o m m i t t e e to m a k e c o m m e n t s thereon w i t h i n such p e r i o d of t i m e , not be ing less t h a n three m o n t h s f r o m the t i m e the P l a n is f u r n i s h e d to i t as is speci f ied; a n d (d) f u r n i s h a c o p y of the proposed P l a n to each c o u n t y a n d regional m u n i c i p a l i t y w i t h i n or p a r t l y w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a a n d i n v i t e t h e m , after g i v i n g c o n s i d e r a t i o n to the c o m m e n t s rece ived f r o m the loca l m u n i c i p a l i t i e s u n d e r clause a, to m a k e c o m m e n t s on the proposed P l a n to the C o m m i s s i o n w i t h i n such p e r i o d of t i m e , not be ing less t h a n four m o n t h s f r o m the t i m e the P l a n is f u r n i s h e d to t h e m , as is specified. (2) A f t e r the e x p i r a t i o n of the t i m e for the m a k i n g of c o m m e n t s on the proposed P l a n , the C o m m i s s i o n s h a l l a p p o i n t one or more hear ing officers for the purpose of con-d u c t i n g one or more hearings, as the M i n i s t e r m a y d e t e r m i n e , w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a for the purpose of r e c e i v i n g representat ions respect ing the contents of the P l a n b y a n y person des i r ing to m a k e representat ions. Notice of hearing (3) T h e h e a r i n g officer s h a l l fix the t i m e a n d place for the h e a r i n g or hearings, as d e t e r m i n e d u n d e r subsect ion 2, a n d s h a l l p u b l i s h notice thereof i n such newspapers h a v i n g i n his o p i n i o n general c i r c u l a t i o n i n a n y area that is w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , as the h e a r i n g officer considers a p p r o p r i a t e . Time of hearing (4) T h e t i m e fixed for a n y h e a r i n g under subsect ion 3 shal l be not sooner t h a n three weeks after the first p u b l i c a t i o n of the not ice of the h e a r i n g . Procedure at hearing (5) A t a n y such h e a r i n g the C o m m i s s i o n s h a l l present the proposed p l a n a n d the j u s t i f i c a t i o n therefor a n d s h a l l m a k e a v a i l a b l e for p u b l i c inspect ion research m a t e r i a l , reports , p lans a n d the l ike that were used i n the p r e p a r a t i o n of such 129 240 p l a n a n d , subject to the rules of procedure a d o p t e d b y the h e a r i n g officer for the c o n d u c t of the h e a r i n g , the persons • present ing the p l a n m a y be quest ioned on a n y aspect of the p l a n b y a n y interested person. (6) N o t less t h a n three m o n t h s after the c o n c l u s i o n of the Report of v ' hearing h e a r i n g or of the last h e a r i n g if more hearings t h a n one are officer held or w i t h i n such e x t e n d e d t i m e as the C o m m i s s i o n prescribes, the h e a r i n g officer shal l report to the C o m m i s s i o n a s u m m a r y of the representat ions m a d e together w i t h a report s t a t i n g w h e t h e r the P l a n s h o u l d be accepted, rejected or m o d i f i e d , . g i v i n g his reasons therefor, a n d s h a l l at the same t i m e f u r n i s h the M i n i s t e r w i t h a c o p y of his report . (7) A f t e r g i v i n g c o n s i d e r a t i o n to the c o m m e n t s rece ived ofUpi™nto° n a n d the report of the h e a r i n g officer, the C o m m i s s i o n shal l Minister s u b m i t the proposed P l a n , w i t h its r e c o m m e n d a t i o n s thereon to the M i n i s t e r . (8) A c o p y of the proposed P l a n a n d the r e c o m m e n d a t i o n s o"proposed thereon as s u b m i t t e d to the M i n i s t e r , together w i t h a c o p y P l a n a n d ' ° r J report of the report of the hear ing officer, s h a l l be m a d e a v a i l a b l e i n the office of the M i n i s t e r , i n the office of the c lerk of each m u n i c i p a l i t y , the whole or a n y p a r t of w h i c h is w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , a n d i n such other offices a n d locat ions as the M i n i s t e r determines , for i n s p e c t i o n b y a n y person d e s i r i n g to do so.. (9) A f t e r h a v i n g received the proposed P l a n f r o m the f f l '^™ s t s * o n C o m m i s s i o n a n d after g i v i n g c o n s i d e r a t i o n to the r e c o m - Lieutenant 0 0 Governor in m e n d a t i o n s of the C o m m i s s i o n a n d the report of the h e a r i n g council officer, the M i n i s t e r shal l s u b m i t the proposed P l a n w i t h his r e c o m m e n d a t i o n s thereon to the L i e u t e n a n t G o v e r n o r i n C o u n c i l . (10) If the r e c o m m e n d a t i o n of the M i n i s t e r to the L i e u t e n a n t W h e n f • r- • report not G o v e r n o r in C o u n c i l is other t h a n that the report of the h e a r i n g approved officer be a p p r o v e d , then the M i n i s t e r shal l give p u b l i c not ice to this effect state, his i n t e n t i o n s a n d a p e r i o d of t w e n t y - o n e days a l l o w e d when representat ions in w r i t i n g can be made by-anyone concerned to the L i e u t e n a n t G o v e r n o r i n C o u n c i l . (11) T h e L i e u t e n a n t G o v e r n o r i n C o u n c i l m a y a p p r o v e the f ^ b p 1 1 o f P l a n or m a y a p p r o v e the P l a n w i t h such m o d i f i c a t i o n s as Lieutenant J r r Governor in the L i e u t e n a n t G o v e r n o r i n C o u n c i l considers desirable, a n d Council t h e r e u p o n the P l a n is the N i a g a r a E s c a r p m e n t P l a n for the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a . 11.—(1) A c o p y of the N i a g a r a E s c a r p m e n t P l a n a n d of pf a d , f n g o f every a m e n d m e n t or m o d i f i c a t i o n thereto cert i f ied b y the 129 2 4 8 M i n i s t e r shal l be lodged f o r t h w i t h w i t h the c lerk of each m u n i c i p a l i t y , a l l or part of w h i c h is w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a . idem ^ (2) A c o p y of the N i a g a r a E s c a r p m e n t P l a n a n d of e v e r y a m e n d m e n t or m o d i f i c a t i o n thereto cert i f ied b y the M i n i s t e r s h a l l be lodged f o r t h w i t h i n every l a n d regis try office of l a n d s w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , where it s h a l l be made a v a i l a b l e to the p u b l i c as a p r o d u c t i o n . Amendments j2.—(1) A n a m e n d m e n t to the N i a g a r a E s c a r p m e n t P l a n m a y be i n i t i a t e d b y the M i n i s t e r or b y the C o m m i s s i o n , a n d a p p l i c a t i o n m a y be m a d e to the C o m m i s s i o n b y a n y person, m i n i s t r y or m u n i c i p a l i t y request ing a n a m e n d m e n t to the P l a n . (2) W h e r e the M i n i s t e r o r the C o m m i s s i o n in i t ia tes a n a m e n d m e n t to the N i a g a r a E s c a r p m e n t P l a n or, subject to subsect ion 3, where the C o m m i s s i o n receives a n a p p l i c a t i o n r e q u e s t i n g a n a m e n d m e n t to the P l a n , the p r o v i s i o n s of this A c t r e l a t i n g to c o n s u l t a t i o n , the s u b m i s s i o n of c o m m e n t s a n d the h o l d i n g of hearings a p p l y , mutatis mutandis, to the c o n s i d e r a t i o n of the proposed a m e n d m e n t , f o l l o w i n g w h i c h the M i n i s t e r shal l s u b m i t the a m e n d m e n t w i t h his r e c o m -m e n d a t i o n s thereon to the L i e u t e n a n t G o v e r n o r i n C o u n c i l a n d the L i e u t e n a n t G o v e r n o r i n C o u n c i l m a y refuse to a p p r o v e the a m e n d m e n t o r m a y a p p r o v e i t or m a y a p p r o v e the a m e n d m e n t w i t h s u c h m o d i f i c a t i o n s as the L i e u t e n a n t G o v e r n o r i n C o u n c i l considers des irable , a n d i n the event an a m e n d m e n t is a p p r o v e d , the P l a n as so a m e n d e d is t h e r e u p o n the N i a g a r a E s c a r p m e n t P l a n for the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a . (3) W h e r e in the o p i n i o n of the C o m m i s s i o n an a p p l i c a t i o n for an a m e n d m e n t is not made i n good f a i t h , or is f r i v o l o u s or is m a d e o n l y for the purpose of de lay , the C o m m i s s i o n s h a l l i n f o r m the M i n i s t e r of i ts o p i n i o n a n d where the M i n i s t e r concurs i n that o p i n i o n the M i n i s t e r s h a l l i n f o r m the a p p l i c a n t i n w r i t i n g of his o p i n i o n a n d n o t i f y the a p p l i c a n t t h a t unless he makes w r i t t e n representat ions thereon to the M i n i s t e r w i t h i n such t i m e as the M i n i s t e r specifies in the not ice not being less t h a n fifteen days f r o m the t i m e the not ice is g i v e n , the p r o v i s i o n s of subsect ion 2 i n respect of the c o n -s i d e r a t i o n of the a m e n d m e n t s h a l l not a p p l y , a n d a p p r o v a l of the a m e n d m e n t shal l be deemed to be refused. Approval of amendment to Plan by Lieutenant Governor in Council Frivolous, etc., applications idem (4) W h e r e representat ions are made to the M i n i s t e r u n d e r subsect ion 3, the M i n i s t e r , after g i v i n g c o n s i d e r a t i o n thereto, shal l i n f o r m the a p p l i c a n t in w r i t i n g ei ther t h a t the M i n i s t e r ' s o p i n i o n is conf i rmed a n d that a p p r o v a l of the a m e n d m e n t 129 242 ' is deemed to be refused or that he has d i r e c t e d that c o n -s i d e r a t i o n of the a m e n d m e n t be proceeded w i t h i n accordance w i t h subsect ion 2. 13—(1) N o t w i t h s t a n d i n g a n y other general or special A c t , f^' c o a n %forn'° • when the N i a g a r a E s c a r p j n e n t P l a n is i n effect, to Plan (a) no m u n i c i p a l i t y or loca l b o a r d h a v i n g j u r i s d i c t i o n i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , or i n a n y part thereof, a n d no m i n i s t r y , sha l l u n d e r t a k e a n y i m p r o v e m e n t of a s t r u c t u r a l nature or a n y o t h e r u n d e r t a k i n g w i t h i n the A r e a ; a n d (b) no m u n i c i p a l i t y h a v i n g j u r i s d i c t i o n i n such A r e a s h a l l pass a b y - l a w for a n y purpose, that is i n conflict w i t h the N i a g a r a E s c a r p m e n t P l a n . (2) T h e M i n i s t e r , u p o n the a p p l i c a t i o n of the c o u n c i l of a teemoyr-iawy m u n i c i p a l i t y h a v i n g j u r i s d i c t i o n i n the N i a g a r a E s c a r p m e n t etc^conforms P l a n n i n g A r e a , or in any part thereof, m a y , i n w r i t i n g , declare that a b y - l a w , i m p r o v e m e n t or other u n d e r t a k i n g of such m u n i c i p a l i t y shal l be deemed not to confl ict w i t h the N i a g a r a E s c a r p m e n t P l a n , if the M i n i s t e r is of the o p i n i o n that the b y - l a w , i m p r o v e m e n t or u n d e r t a k i n g conforms w i t h the general i n t e n t a n d purpose of the P l a n . 1 4 . N o t w i t h s t a n d i n g a n y other general or special A c t , conflict where the N i a g a r a E s c a r p m e n t P l a n is i n effect a n d there is a conflict between a n y p r o v i s i o n of the P l a n a n d a n y p r o v i s i o n of a loca l p l a n or a n y p r o v i s i o n of a z o n i n g b y - l a w c o v e r i n g a n y part of the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , then the p r o v i s i o n of the N i a g a r a E s c a r p m e n t P l a n p r e v a i l s . 1 5 — ( 1 ) W h e r e i n the o p i n i o n of the M i n i s t e r a l o c a l Minister > ' r- may require p l a n or a z o n i n g b y - l a w that covers a n y p a r t of the N i a g a r a submission. E s c a r p m e n t P l a n n i n g A r e a is i n conflict w i t h the p r o v i s i o n s to resolve of the N i a g a r a E s c a r p m e n t P l a n , the M i n i s t e r shal l advise the c o u n c i l of the m u n i c i p a l i t y that a d o p t e d the loca l p l a n or that passed the z o n i n g b y - l a w of the p a r t i c u l a r s where in the local p l a n or zoning b y - l a w confl icts w i t h the N i a g a r a E s c a r p m e n t P l a n a n d shal l i n v i t e the m u n i c i p a l i t y to sub-m i t , w i t h i n such t ime as the M i n i s t e r specifies, proposals for the reso lut ion of the confl ict . (2) W h e r e the c o u n c i l of the m u n i c i p a l i t y fails to s u b m i t P i ° m " ° j proposals to resolve the conflict w i t h i n the t i m e specif iedJ^™*"^ b y the M i n i s t e r , or where after c o n s u l t a t i o n w i t h the M i n i s t e r on such proposals the conflict cannot be resolved, a n d the M i n i s t e r so notifies in w r i t i n g the c o u n c i l of the m u n i c i p a l i t y , 129 243 10 the M i n i s t e r , m a y b y order a m e n d the local p l a n so as to m a k e it c o n f o r m to the N i a g a r a E s c a r p m e n t P l a n , a n d the order when made shal l have the same effect as t h o u g h it were an a m e n d m e n t to the local p l a n made b y the c o u n c i l of the m u n i c i p a l i t y a n d a p p r o v e d b y the M i n i s t e r . Minister IQ W h e r e the N i a g a r a E s c a r p m e n t P l a n is i n effect in a may require . . ,. b focaPiti?an°f m u n i c l P a h t y or a n y part thereof and the m u n i c i p a l i t y does or passage of not have a local p l a n i n effect, or has not passed a z o n i n g zonmgby- aw b y _ i a v v o r b y - l a w s c o v e r i n g the m u n i c i p a l i t y or that p a r t of the m u n i c i p a l i t y covered b y the P l a n , the c o u n c i l of the m u n i c i -p a l i t y , u p o n being not i f ied in w r i t i n g b y the M i n i s t e r of t h a t fact, s h a l l , w i t h i n such t i m e as is specified i n the not ice , prepare a n d adopt a l o c a l p l a n or pass a z o n i n g b y - l a w or b y - l a w s that c o n f o r m to the N i a g a r a E s c a r p m e n t P l a n a n d sub-m i t to the M i n i s t e r the local p l a n for a p p r o v a l or s u b m i t to the O n t a r i o M u n i c i p a l B o a r d the z o n i n g b y - l a w or b y - l a w s for a p p r o v a l , as the case requires. Review of Plan 17.—(1) N o t later t h a n five years f r o m the d a y on w h i c h the N i a g a r a E s c a r p m e n t P l a n comes into effect, the M i n i s t e r s h a l l cause a rev iew of the P l a n to be u n d e r t a k e n , and the p r o v i s i o n s of this A c t r e l a t i n g to c o n s u l t a t i o n , the s u b m i s s i o n of c o m m e n t s a n d the h o l d i n g of hearings a p p l y , mutatis mutandis to the review, f o l l o w i n g w h i c h the M i n i s t e r s h a l l s u b m i t to the L i e u t e n a n t G o v e r n o r i n C o u n c i l a report on the rev iew of the P l a n w i t h his r e c o m m e n d a t i o n s thereon. Lieutenant (2) T h e L i e u t e n a n t G o v e r n o r in C o u n c i l m a v c o n f i r m the Governor in » / . r" . councii^^^ P l a n or m a y a p p r o v e the P l a n w i t h such m o d i f i c a t i o n s as the p i a n o r n i r m L i e u t e n a n t G o v e r n o r i n C o u n c i l considers desirable, a n d modTflVcations thereupon the conf i rmed P l a n or the m o d i f i e d P l a n is the N i a g a r a E s c a r p m e n t P l a n for the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a . Continuing review of Plan (3) Subsect ions 1 a n d 2 a p p l y mutatis mutandis to the conf i rmed or modif ied N i a g a r a E s c a r p m e n t P l a n , a n d so on at i n t e r v a l s of not greater t h a n five years, to the end that the P l a n shal l be subject to c o n t i n u i n g rev iew a n d if desirable , m o d i f i c a t i o n , at such periodic i n t e r v a l s . Power to acquire land R.S.0.1970, c. 154 18.—(1) F o r the purposes of d e v e l o p i n g a n y feature of the N i a g a r a E s c a r p m e n t P l a n , the M i n i s t e r m a y , for a n d i n the name of H e r Majesty , acquire b y purchase , lease or otherwise, or, subject to The Expropriations Act, w i t h o u t the consent of the owner , enter u p o n ; take a n d e x p r o p r i a t e a n d h o l d a n y l a n d or interest there in w i t h i n the N i a g a r a E s c a r p -m e n t P l a n n i n g A r e a a n d sel l , lease or otherwise dispose of a n y s u c h l a n d or interest therein. 129 244' 11 (2) T h e L i e u t e n a n t G o v e r n o r in C o u n c i l m a y designate p ° s w | n a \ f e d a n y m i n i s t e r of the C r o w n i n respect of a n y l a n d a c q u i r e d minister u n d e r subsect ion 1, a n d thereupon the m i n i s t e r so des ignated m a y , for the purpose of d e v e l o p i n g a n y feature of the N i a g a r a E s c a r p m e n t P l a n , (a) c lear, grade or otherwise prepare the l a n d for d e v e l o p m e n t or m a y c o n s t r u c t , r e p a i r o r i m p r o v e . b u i l d i n g s , w o r k s a n d faci l i t ies t h e r e o n ; or (b) se l l , lease or otherwise dispose of a n y of s u c h l a n d or interest there in . 19. W h e r e a m u n i c i p a l i t y is i n v i t e d to s u b m i t proposals G r a n t s to the M i n i s t e r under sect ion 15 to resolve a confl ict between a loca l p l a n or z o n i n g b y - l a w a n d the N i a g a r a E s c a r p m e n t P l a n or is r e q u i r e d u n d e r sect ion 16 to prepare a n d a d o p t a loca l p l a n or pass a z o n i n g b y - l a w or b y - l a w s , the M i n i s t e r m a y , out of the m o n e y s a p p r o p r i a t e d therefor b y the L e g i s l a t u r e , m a k e grants to a n y s u c h m u n i c i p a l i t y t o w a r d s the costs of p r e p a r i n g such proposals , p lans or b y - l a w s or t o w a r d s those expendi tures i n c u r r e d i n p r e p a r i n g l o c a l p lans a n d z o n i n g by- laws , w h i c h are rendered i n v a l i d b y the N i a g a r a E s c a r p m e n t P l a n . 20. W h e n the N i a g a r a E s c a r p m e n t P l a n is i n effect, Financial the M i n i s t e r m a y , out of the m o n e y s a p p r o p r i a t e d therefor b y the L e g i s l a t u r e , p r o v i d e f inanc ia l assistance to a n y person, o r g a n i z a t i o n or c o r p o r a t i o n , i n c l u d i n g a m u n i c i p a l c o r p o r a t i o n , u n d e r t a k i n g a n y p o l i c y or p r o g r a m that i m p l e m e n t s the P l a n . 21. — U ) W h e r e , i n the o p i n i o n of the L i e u t e n a n t G o v e r n o r Transfer of • r~ , xi- -K i-» i Commission i n C o u n c i l , the N i a g a r a E s c a r p m e n t P l a n has been sub-functions s t a n t i a l l y c o m p l e t e d for a n y p a r t of the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a , the L i e u t e n a n t G o v e r n o r in C o u n c i l m a y , b y order, a n d subject to such terms a n d c o n d i t i o n s as he con-siders a p p r o p r i a t e , transfer a n y of the funct ions of the C o m -m i s s i o n to the c o u n c i l of a regional m u n i c i p a l i t y or the c o u n c i l of a c o u n t y . (2) N o order shal l be m a d e u n d e r subsect ion 1 except Limitation u p o n a p p l i c a t i o n m a d e to the L i e u t e n a n t G o v e r n o r i n C o u n c i l b y the c o u n c i l of the regional m u n i c i p a l i t y or c o u n t y , a n d every such a p p l i c a t i o n s h a l l i n c l u d e a s t a t e m e n t of the a d m i n i s t r a t i v e procedures i n t e n d e d to be fo l lowed i n the exercise of such funct ions . 22. T h e M i n i s t e r m a y m a k e regulat ions , Regulations (a) d e s i g n a t i n g a n y area or areas of l a n d w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a as a n area of d e v e l o p m e n t c o n t r o l ; . 129 12 245 R.S.0.1970, c. 349 (b) providing that where an area of development con-trol is designated, such zoning by-laws and such orders of the Minister made under section 32 of The Planning Act, or any part thereof, as are designated in the regulation, cease to have effect in the area or in any defined part thereof; Development permits (c) providing for the issuance of development permits and prescribing terms and conditions of permits; (d) providing for the exemption of any class or classes of development within any development area from the requirement of obtaining a development permit; (e) prescribing the form of application for a develop-ment permit. 23.—(1) Notwithstanding any other general or special Act, where an area of development control is established by regulation made under section 22, no person shall undertake any development in the area unless such development is exempt under the regulations or he is the holder of a develop-ment permit Jsj>ued_J}y_JheJM^ or where the Minister has under section 24 delegated his authority to the Commission or to a county or to a regional municipality or to a city outside a regional municipality, issued by the Commission or by the county or regional municipality, or city, as the case may be. Jonditions (2) The Minister may, where he issues a development permit under subsection 1, attach such terms and conditions thereto as he considers desirable. Other permits (3) No building permit or other permit relating to develop-ment shall be issued in respect of any land, building or structure within an area of development control, unless a development permit has been issued under this Act relating to such land, building or structure, and no such building or other permit shall be issued that does not conform to the development permit. Offence (4) Every person who contravenes subsection 1 is guilty of an offence and on summary conviction is liable to a fine of not more than S 10,000. Order to demolish, etc. (5) Where any person undertakes any development that is in contravention of subsection 1, the Minister may order such person to demolish any building or structure erected in connection with the development or to restore the site to the condition it was in prior to the undertaking of the development, or both, within such time as the order specifies. 129 246 13 (6) Where a person to whom an order is directed under w°f.^of subsection 5 fails to comply with the order within the time specified in it, the Minister may cause the necessary work to be done and charge such person with the cost thereof, which cost may be recovered with costs, as a debt due to Her Majesty, in any court of competent jurisdiction. (7) Where the Minister has delegated his authority under ° f e a„t n o V°ty section 24, the body to which the authority is delegated has, in lieu of the Minister, all the powers and rights of the Minister under subsections 5 and 6. 24.—(1) Subject to subsection 2, the Minister may in Delegation to v ' J '. . i Commission, writing, and subject to such conditions as he considers etc. appropriate, delegate to the Commission, or to a county or regional municipality or to a city outside the Regional Munici-pality having jurisdiction in the Niagara Escarpment Planning Area, or any part thereof, authority to issue development permits. (2) No delegation shall be made under subsection 1 to a Limitation county or a regional municipality or a city except upon application made to the Minister by the council of the county or regional municipality or city, and every such application shall include a statement of the organizational structure to be' established and the administrative procedures intended to be followed. (3) The Minister may in writing withdraw any delegation withdrawal made under subsection 1 where, in his opinion, it is in the delegation public interest to do so. (4) Where the Minister has delegated his authority under etTpowe'r"1' subsection 1, the Commission or the council of the county or of decision regional municipality or city, as the case may be, on receiving an application for a development permit and, after giving consideration to the merits of the application, may make a decision to issue the development permit or to refuse to issue the permit or to issue the permit subject to such terms and conditions as it considers desirable. (5) The Commission, or a county or regional municipality c^ecSon11 or city to whom the Minister has delegated his authority under subsection 1, shall by regular or registered mail cause a copy of the decision made by it on any application for a develop-ment permit to be mailed to the Minister, to the applicant for the permit and to all assessed owners of land lying within 400 feet of the land that is the subject of the application and every copy of such decision shall include a notice specify-ing that any person receiving a copy of the decision, other 129 247 14 Hearing officer t h a n the M i n i s t e r , m a y , w i t h i n fourteen d a y s of the m a i l i n g of i t , appeal i n w r i t i n g to the M i n i s t e r against the dec is ion. (6) W h e r e the M i n i s t e r receives a c o p y of a decis ion u n d e r subsect ion 5 he m a y , w i t h i n fourteen days of the m a i l i n g of i t , request the L i e u t e n a n t G o v e r n o r i n C o u n c i l to a p p o i n t a n officer for the purpose of c o n d u c t i n g a h e a r i n g at w h i c h representat ions m a y be made respect ing the decis ion. Application (7) W h e r e the L i e u t e n a n t G o v e r n o r i n C o u n c i l a p p o i n t s a h e a r i n g officer at the request of the M i n i s t e r u n d e r sub-sect ion 6, the provis ions of subsect ions 10, 11 a n d 12 a p p l y mutatis mutandis a n d a n y reference i n those subsect ions to the M i n i s t e r shal l be deemed to be a reference to the L i e u t e n a n t G o v e r n o r i n C o u n c i l . officer!8 (8) W h e r e the M i n i s t e r receives one or more notices of byMinister 1 a P P e a ' under subsect ion 5 he shal l a p p o i n t an officer for the purpose of c o n d u c t i n g a h e a r i n g at w h i c h representat ions m a y be m a d e respect ing the decis ion. confirmation (9) Unless w i t h i n the t i m e specified i n subsect ion 5, the ofdecision v / . r . M i n i s t e r receives one or more notices of appeal or unless the M i n i s t e r has under subsect ion 6 requested the a p p o i n t m e n t of a h e a r i n g officer, the decis ion of the C o m m i s s i o n or of the c o u n c i l of the c o u n t y or regional m u n i c i p a l i t y or c i t y , as the case m a y be, s h a l l be deemed to be c o n f i r m e d . Time of hearing (10) T h e officer a p p o i n t e d to i n q u i r e u n d e r subsect ion 8 shal l fix a t i m e a n d place for a h e a r i n g a n d shal l send by-regular or registered m a i l w r i t t e n not ice thereof to each person to w h o m notice of the decis ion was sent u n d e r sub-sect ion 5. Report (11) A f t e r the conc lus ion of the h e a r i n g , the officer a p p o i n t e d s h a l l report to the M i n i s t e r a s u m m a r y of the representat ions made, together w i t h his o p i n i o n on the m e r i t s of the decis ion. Power of Minister to confirm, etc., decision (12) A f t e r g i v i n g cons iderat ion to the report of the officer, the M i n i s t e r m a y conf irm the decis ion or he m a y v a r y the decis ion or m a k e a n y other decis ion that i n his o p i n i o n ought to have been made a n d tire decis ion of the M i n i s t e r u n d e r this sect ion is f inal . Notice of application 25.—(1) W h e r e the M i n i s t e r has not delegated his a u t h o r i t y u n d e r sect ion 24 a n d he receives an a p p l i c a t i o n for a d e v e l -o p m e n t p e r m i t the M i n i s t e r s h a l l , b y personal service or b y regular or registered m a i l , cause a w r i t t e n not ice of the a p p l i c a t i o n , together w i t h a brief s tatement of the n a t u r e of the a p p l i c a t i o n , to be de l ivered or m a i l e d to a l l assessed 129 248 15 owners of land lying within 400 feet of the land that is the subject of the.application and every such notice shall specify the time within which any person receiving it may file with the Minister written notice of his objection to the issuance of a development permit. (2) Subject to subsection 7, unless within the time specified may'islSe. in the notice referred to in subsection 1 a notice objecting to etc.. permit the issuance of a development permit is filed with the Minister, he may issue the development permit or he may refuse to issue the permit or he may issue the permit subject to such terms and conditions as he considers advisable. (3) Where a notice of objection to the issuance of a devel- ^™? B opment permit is filed with the Minister within the time appointment r . _ , . , . . , . , . < i » « • • by Minister specified in the notice referred to in subsection 1, the Minister shall appoint an officer for the purpose of conducting a hearing at which representations may be made respecting the issuance of the development permit. (4) The officer appointed to inquire under subsection 3 bearing shall fix a time and place for a hearing and shall send by regular or registered mail written notice thereof to the applicant for the development permit and to each person to whom notice of the application was sent under subsection 1. (5) After the conclusion of the hearing, the officer appointed Report shall report to the Minister a summary of the representations made together with his opinion on the merits of the appli-cation for the development permit. (6) After giving consideration to the report of the officer ^ f^sSSo appointed to inquire into the matter, the Minister may issue etc., permit the development permit or he may refuse to issue the permit or he may issue the permit subject to such terms and conditions as he considers advisable. (7) The Minister where he considers it desirable may, and ^^Fere at the request of the applicant for the development permit gy Minister 1 made at the time of submitting his application to the Minister shall, appoint an officer for the purpose of conducting a hearing into the matter, and where the Minister does so the provisions of subsections 4, 5 and 6 apply mutatis mutandis. (8) The decision of the Minister made under this section ^ 5slon is final. 2C—(1) Every local municipality whose jurisdiction in- Ron6™1"*" eludes any part of the Niagara Escarpment Planning Area "cre^of °and shall annually, on or before the 1st day of February, determine grownby 129 2 4 9 16 a n d advise the M i n i s t e r of the n u m b e r of acres to the nearest whole acre of a l l l a n d i n such m u n i c i p a l i t y s i tuate w i t h i n the P l a n n i n g A r e a a n d owned on the next preceding 1st d a y of J a n u a r y b y H e r M a j e s t y i n r ight of O n t a r i o . Determina-tion by Minister (2) T h e M i n i s t e r m a y revise the n u m b e r of acres so deter-m i n e d b y a local m u n i c i p a l i t y a n d where he does so the deter-m i n a t i o n of the n u m b e r of acres b y the M i n i s t e r is , for the purposes of this sect ion, final. Payments (3) C o m m e n c i n g w i t h the year 1973, the M i n i s t e r m a y , - o u t of the moneys a p p r o p r i a t e d therefor b y the L e g i s l a t u r e , p a y i n each year to such m u n i c i p a l i t y , (a) $5 per acre for each of the first 100 acres of s u c h l a n d a n d $2 per acre for each acre i n excess of 100 acres u p to a m a x i m u m of 10,000 acres; or (b) $100, Deduction of moneys paid under 1971, c. 78 and R.S.0.1970, c. 292 Determina-tion for 1973 w h i c h e v e r is the greater. (4) N o t w i t h s t a n d i n g subsect ion 3, when an a m o u n t of m o n e y is p a y a b l e to a n y such l o c a l m u n i c i p a l i t y i n the same y e a r i n respect of a n y part of such l a n d u n d e r The Provincial Parks Municipal Tax Assistance Act, 1971 or u n d e r The Municipal Tax Assistance Act, no p a y m e n t shal l be m a d e under this sect ion i n respect of that l a n d . (5) T h e a n n u a l d e t e r m i n a t i o n r e q u i r e d u n d e r subsect ion 1 shal l -be made for the purposes of p a y m e n t s i n 1973 as soon as is p r a c t i c a b l e after the c o m i n g i n t o force of this A c t . deemed i e n t ^' ^he a s s e s s m e n t of a local m u n i c i p a l i t y that receives increased a p a y m e n t under sect ion 26 that is used for a p p o r t i o n i n g , R.S.0.1970, c.32 (a) a c o u n t y rate under sect ion 72 of The, Assessment Act; or (b) a regional l e v y under a n y A c t e s t a b l i s h i n g a regional m u n i c i p a l i t y , s h a l l be deemed to be increased b y an a m o u n t that w o u l d have p r o d u c e d the a m o u n t of p a y m e n t received b y the t a x a t i o n of real p r o p e r t y at the rate appl icab le to res ident ia l a n d f a r m p r o p e r t y i n the preceding year for a l l purposes other t h a n school purposes. Agreement for fixed assessment 2 8 . — ( 1 ) W h e r e the use of a n y l a n d w i t h i n the N i a g a r a E s c a r p m e n t P l a n n i n g A r e a is not in c o n f o r m i t y w i t h the use designated for such l a n d i n the N i a g a r a E s c a r p m e n t P l a n or 129 250 / 17 i n a n y loca l p l a n c o v e r i n g such l a n d , a n d the assessment of s u c h l a n d is increased because of such d e s i g n a t i o n , the l o c a l m u n i c i p a l i t y i n w h i c h the l a n d is s i tuate a n d the owner of the l a n d m a y , w i t h the a p p r o v a l of the M i n i s t e r , enter i n t o a n agreement p r o v i d i n g for a fixed assessment for the l a n d ref lect ing the use to w h i c h the l a n d is be ing p u t , to a p p l y to t a x a t i o n for general , school a n d special purposes, but not to a p p l y to t a x a t i o n for loca l i m p r o v e m e n t s . (2) E v e r y such agreement shal l be for such t e r m of years T | ™ m e n t not exceeding three as the M i n i s t e r approves a n d the M i n i s t e r m a y , in g r a n t i n g his a p p r o v a l , a t t a c h such terms a n d c o n d i t i o n s thereto as he considers a p p r o p r i a t e . (3) W h e r e a parce l of l a n d has a fixed assessment u n d e r P r o c e d u r e subsect ion 1, -(a) the l a n d shal l be assessed i n each year as i f it d i d n o t a s s e s s m e n t have a fixed assessment; (b) the treasurer of the l o c a l m u n i c i p a l i t y s h a l l c a l c u l a t e t a x e s each year what the taxes w o u l d h a v e been on the l a n d if it d i d not have a fixed assessment; (c) the treasurer s h a l l keep a r e c o r d of the d i f f e r e n c e r e o o r d between the taxes p a i d each year a n d the taxes that w o u l d h a v e been p a i d i f the l a n d d i d not h a v e a fixed assessment a n d shal l debi t the l a n d w i t h this a m o u n t each year d u r i n g the t e r m of the agreement a n d s h a l l a d d to s u c h debi t on the 1st d a y of J a n u a r y i n each year such interest as m a y be agreed u p o n on the aggregate a m o u n t of the debit on such date . (4) T h e M i n i s t e r m a y , out of the moneys appropr ia tedP^mentto^ therefor b y the L e g i s l a t u r e , p a y i n each year to a loca l m u n i c i p a l i t y i n respect of w h i c h a n agreement m a d e u n d e r subsect ion 1 is i n force, an a m o u n t of m o n e y equal to the difference i n the taxes p a i d p u r s u a n t to the agreement a n d the taxes t h a t w o u l d have been p a i d if the l a n d covered b y the agreement d i d not have a f ixed assessment. (5) W h e r e a loca l m u n i c i p a l i t y receives an a m o u n t of m o n e y Apportion-u n d e r subsect ion 4, the c o u n c i l of the loca l m u n i c i p a l i t y shal l a p p o r t i o n the a m o u n t to each b o d y in the same m a n n e r as taxes w o u l d have been a p p o r t i o n e d if taxes h a d been lev ied i n the n o r m a l m a n n e r on the assessment i n accordance w i t h clause a of subsect ion 3. (6) W h e r e the l a n d or a part thereof that is subject to an when . 1 i agreement agreement u n d e r subsect ion 1 ceases to be p u t to the use that terminated 129 251 tt was the basis for d e t e r m i n i n g the fixed assessment, the agreement is t h e r e u p o n t e r m i n a t e d w i t h respect to the l a n d or s u c h p a r t thereof. Registration of agreement R.S.0.1970, c. 409 (7) A n y agreement entered i n t o u n d e r subsect ion 1 m a y be registered against the l a n d affected b y the agreement a n d w h e n registered such agreement runs w i t h the l a n d a n d the p r o v i s i o n s thereof are b i n d i n g u p o n a n d enure to the benefit of the o w n e r of the l a n d a n d , subject to the p r o v i s i o n s of The Registry Act, a n y a n d a l l subsequent owners of the l a n d . lands Termination (8) W h e r e an agreement is for a n y reason t e r m i n a t e d i n of iiErrGGmGGfc as to an ' respect of the whole of the l a n d , the owner shal l p a y to the loca l m u n i c i p a l i t y the a m o u n t d e b i t e d against the l a n d , i n -c l u d i n g the a m o u n t s of interest d e b i t e d i n accordance w i t h clause c of subsect ion 3. ofiancis r t ^ W h e r e an agreement is for a n y reason t e r m i n a t e d i n respect of a p a r t of the l a n d , the owner shal l p a y to the loca l m u n i c i p a l i t y that p o r t i o n of the a m o u n t d e b i t e d against the l a n d , i n c l u d i n g the a m o u n t s of interest d e b i t e d i n accordance w i t h clause c of subsect ion 3, t h a t is a t t r i b u t a b l e to the p o r t i o n of the l a n d i n respect of w h i c h the agreement is t e r m i n a t e d . Paymentto (10) W h e r e a loca l m u n i c i p a l i t y receives a p a y m e n t u n d e r subsect ion 8 or 9, the treasurer of the m u n i c i p a l i t y shal l - f o r t h w i t h p a y the a m o u n t of m o n e y rece ived, i n c l u d i n g the a m o u n t of d e b i t e d interest , to the M i n i s t e r . ofagreement ( ^ ) ^ n agreement m a y be t e r m i n a t e d on the 31st d a y of by owner D e c e m b e r i n a n y year u p o n the owner of the l a n d t h a t is the subject of the agreement g i v i n g s ix m o n t h s not ice of s u c h . t e r m i n a t i o n i n w r i t i n g to the m u n i c i p a l i t y . Apportion- (12) F o r the purposes of an a p p o r t i o n m e n t r e q u i r e d u n d e r a n y A c t , the assessment used as the basis for s u c h a p p o r t i o n -m e n t s h a l l i n c l u d e the assessment d e t e r m i n e d u n d e r clause a of subsect ion 3. Commence-ment 29. T h i s A c t shal l be deemed to have come i n t o force on the 4 t h d a y of J u n e , 1973. short title 3 0 . T h i s A c t m a y be c i t e d as The Niagara Escarpment Planning and Development Act, 1973. 129 APPENDIX G WASHINGTON/ SHORELINE MANAGEMENT ACT OF 1 9 7 1 , RCW 9 0 . 5 8 253 C h a p t e r 90.58 RCW SHORELINE MANAGEMENT ACT OF 1971 As Amended by C h a p t e r 203 Laws o f 1973 RCW 90.58.010 SHORT TITLE. T h i s c h a p t e r s h a l l be known and may be c i t e d as the " S h o r e l i n e Management A c t o f 1971". [1971 1 s t e x . s . c 286 § 1.] 90.58.020 LEGISLATIVE FINDINGS—STATE POLICY ENUNCIATED — U S E PREFERENCE. The l e g i s l a t u r e f i n d s t h a t t h e s h o r e l i n e s o f t h e s t a t e a r e among the most v a l u a b l e , and f r a g i l e of i t s n a t u r a l r e s o u r c e s and t h a t t h e r e i s g r e a t c o n c e r n t h r o u g h o u t t h e s t a t e r e l a t i n g t o t h e i r u t i l i z a t i o n , p r o t e c t i o n , r e s t o r a t i o n , and p r e s e r v a t i o n . I n a d d i t i o n i t f i n d s t h a t e v e r i n c r e a s i n g p r e s -s u r e s o f a d d i t i o n a l uses a r e b e i n g p l a c e d on t h e s h o r e l i n e s n e c e s s i t a t i n g i n c r e a s e d c o o r d i n a t i o n i n t h e management and development o f t h e s h o r e l i n e s o f t h e s t a t e . The l e g i s l a t u r e f u r t h e r f i n d s t h a t much o f t h e s h o r e l i n e s o f t h e s t a t e and t h e u p l a n d s a d j a c e n t t h e r e t o a r e i n p r i v a t e o w n e r s h i p ; t h a t u n r e -s t r i c t e d c o n s t r u c t i o n on t h e p r i v a t e l y owned o r p u b l i c l y owned s h o r e l i n e s o f t h e s t a t e i s n o t i n t h e b e s t p u b l i c i n t e r e s t ; and t h e r e f o r e , c o o r d i n a t e d p l a n n i n g i s n e c e s s a r y i n o r d e r t o p r o t e c t t h e p u b l i c i n t e r e s t a s s o c i a t e d w i t h t h e s h o r e l i n e s o f t h e s t a t e w h i l e , a t t h e same t i m e , r e c o g n i z i n g and p r o t e c t i n g p r i v a t e p r o p e r t y r i g h t s c o n s i s t e n t w i t h t h e p u b l i c i n t e r e s t . There i s , t h e r e f o r e , a c l e a r and u r g e n t demand f o r a p l a n n e d , r a t i o n a l and c o n c e r t e d e f f o r t , j o i n t l y p e r f o r m e d by f e d e r a l , s t a t e , and l o c a l governments, t o p r e v e n t t h e i n h e r e n t harm i n an u n c o o r d i n -a t e d and p i e c e m e a l development o f t h e s t a t e ' s s h o r e l i n e s . I t i s t h e p o l i c y o f t h e s t a t e t o p r o v i d e f o r t h e manage-ment o f t h e s h o r e l i n e s o f t h e s t a t e by p l a n n i n g f o r and f o s -t e r i n g a l l r e a s o n a b l e and a p p r o p r i a t e u s e s . T h i s p o l i c y i s d e s i g n e d t o i n s u r e t h e development o f t h e s e s h o r e l i n e s i n a manner w h i c h , w h i l e a l l o w i n g f o r l i m i t e d r e d u c t i o n o f r i g h t s o f t h e p u b l i c i n t h e n a v i g a b l e w a t e r s , w i l l promote and enhance t h e p u b l i c i n t e r e s t . T h i s p o l i c y comtemplates p r o -t e c t i n g a g a i n s t a d v e r s e e f f e c t s t o t h e p u b l i c h e a l t h , t h e l a n d and i t s v e g e t a t i o n and w i l d l i f e , and t h e w a t e r s o f the s t a t e and t h e i r a q u a t i c l i f e , w h i l e p r o t e c t i n g g e n e r a l l y p u b l i c r i g h t s o f n a v i g a t i o n and c o r o l l a r y r i g h t s i n c i d e n t a l t h e r e t o . The l e g i s l a t u r e d e c l a r e s t h a t t h e i n t e r e s t o f a l l o f t h e p e o p l e s h a l l be paramount i n t h e management o f s h o r e l i n e s o f s t a t e - w i d e s i g n i f i c a n c e . The dep a r t m e n t , i n a d o p t i n g g u i d e -l i n e s f o r s h o r e l i n e s o f s t a t e - w i d e s i g n i f i c a n c e , and l o c a l government, i n d e v e l o p i n g master programs f o r s h o r e l i n e s o f s t a t e - w i d e s i g n i f i c a n c e , s h a l l g i v e p r e f e r e n c e t o use s i n t h e f o l l o w i n g o r d e r o f p r e f e r e n c e w h i c h : (1) R e c o g n i z e and p r o t e c t t h e s t a t e - w i d e i n t e r e s t o v e r l o c a l i n t e r e s t ; (2) P r e s e r v e t h e n a t u r a l c h a r a c t e r o f t h e s h o r e l i n e ; (3) R e s u l t i n l o n g t e rm o v e r s h o r t term b e n e f i t ; (4) P r o t e c t t h e r e s o u r c e s and e c o l o g y o f t h e s h o r e l i n e ; 1 254 (5) I n c r e a s e p u b l i c a c c e s s t o p u b l i c l y owned a r e a s o f t h e s h o r e l i n e s ; (6) I n c r e a s e r e c r e a t i o n a l o p p o r t u n i t i e s f o r the p u b l i c i n t he s h o r e l i n e ; (7) P r o v i d e f o r any o t h e r element as d e f i n e d i n RCW 90.58.100 deemed a p p r o p r i a t e o r n e c e s s a r y . I n t h e i m p l e m e n t a t i o n o f t h i s p o l i c y t h e p u b l i c ' s o p p o r -t u n i t y t o e n j o y the p h y s i c a l and a e s t h e t i c q u a l i t i e s o f n a t u r a l s h o r e l i n e s o f t h e s t a t e s h a l l be p r e s e r v e d t o t h e g r e a t e s t e x t e n t f e a s i b l e c o n s i s t e n t w i t h t h e o v e r a l l b e s t i n t e r e s t o f the s t a t e and t h e p e o p l e g e n e r a l l y . To t h i s end uses s h a l l be p r e f e r r e d w h i c h a r e c o n s i s t e n t w i t h c o n t r o l o f p o l l u t i o n and p r e v e n t i o n o f damage t o t h e n a t u r a l e n v i r o n m e n t o r a r e u n i q u e t o o r dependent upon use o f t h e s t a t e ' s s h o r e -l i n e . A l t e r a t i o n s o f t h e n a t u r a l c o n d i t i o n o f t h e s h o r e l i n e s o f t h e s t a t e , i n t h o s e l i m i t e d i n s t a n c e s when a u t h o r i z e d , s h a l l be g i v e n p r i o r i t y f o r s i n g l e f a m i l y r e s i d e n c e s , p o r t s , s h o r e -l i n e r e c r e a t i o n a l uses i n c l u d i n g b u t n o t l i m i t e d t o p a r k s , m a r i n a s , p i e r s , and o t h e r improvements f a c i l i t a t i n g p u b l i c a c c e s s t o s h o r e l i n e s o f t h e s t a t e , i n d u s t r i a l and c o m m e r c i a l developments w h i c h a r e p a r t i c u l a r l y dependent on t h e i r l o c a -t i o n on o r use o f t h e s h o r e l i n e s o f t h e s t a t e and o t h e r development t h a t w i l l p r o v i d e an o p p o r t u n i t y f o r s u b s t a n t i a l numbers o f t h e p e o p l e t o e n j o y the s h o r e l i n e s o f the s t a t e . P e r m i t t e d uses i n t h e s h o r e l i n e s o f t h e s t a t e s h a l l be d e s i g n e d and c o n d u c t e d i n a manner t o m i n i m i z e , i n s o f a r as p r a c t i c a l , any r e s u l t a n t damage t o t h e e c o l o g y and e n v i r o n m e n t o f the s h o r e l i n e a r e a and any i n t e r f e r e n c e w i t h the p u b l i c ' s use o f t h e w a t e r . [1971 1 s t e x . s . c 286 § 2.] R e v i s e r ' s n o t e : I n s u b s e c t i o n ( 7 ) , a l i t e r a l t r a n s l a t i o n o f t h e s e s s i o n law's r e f e r e n c e " . . . s e c t i o n 11 o f t h i s 1971 a c t . . . " would r e a d "RCW 90.58.110". The above r e f e r e n c e t o "RCW 90.58.100" w h i c h c o d i f i e s s e c t i o n 10 o f t h i s a c t i s b e l i e v e d p r o p e r i n t h a t (1) s e c t i o n 10 l i s t s t h e e l e m e n t s i n c l u d a b l e w i t h i n t h e m a s t e r programs w h i l e s e c t i o n 11 n e i t h e r d e f i n e s n o r me n t i o n s such e l e m e n t s , and (2) i n t h e c o u r s e o f passage o f t h e b i l l , s e c t i o n 7 was d e l e t e d c a u s i n g o l d s e c t i o n 11 t o be renumbered s e c t i o n 10, b u t t h e above r e f e r e n c e was n o t amended i n consonance w i t h t h e r e n u m b e r i n g . 90.58.030 DEFINITIONS AND CONCEPTS. As used i n t h i s c h a p t e r , u n l e s s t h e c o n t e x t o t h e r w i s e r e q u i r e s , t h e f o l l o w i n g d e f i n i t i o n s and c o n c e p t s a p p l y : (1) A d m i n i s t r a t i o n : (a) "Department" means the department o f e c o l o g y ; (b) " D i r e c t o r " means the d i r e c t o r o f t h e department o f e c o l o g y ; (c) " L o c a l government" means any c o u n t y , i n c o r p o r a t e d c i t y , o r town w h i c h c o n t a i n s w i t h i n i t s b o u n d a r i e s any l a n d s o r w a t e r s s u b j e c t t o t h i s c h a p t e r ; (d) " P e r s o n " means an i n d i v i d u a l , p a r t n e r s h i p , c o r p o -r a t i o n , a s s o c i a t i o n , o r g a n i z a t i o n , c o o p e r a t i v e , p u b l i c o r 2 255 municipal c o r p o r a t i o n , or agency of the s t a t e or l o c a l govern-mental u n i t however designated; (e) "Hearing board" means the s h o r e l i n e hearings board e s t a b l i s h e d by t h i s chapter. (2) Geographical: (a) "Extreme low t i d e " means the lowest l i n e on the land reached by a receding t i d e ; (b) "Ordinary high water mark" on a l l l a k e s , streams, and t i d a l water i s t h a t mark t h a t w i l l be found by examining the bed and banks and a s c e r t a i n i n g where the presence and a c t i o n of waters are so common and u s u a l , and so long con-t i n u e d i n a l l o r d i n a r y y e a r s , as to mark upon the s o i l a char-a c t e r d i s t i n c t from t h a t of the a b u t t i n g upland, i n respect to v e g e t a t i o n as t h a t c o n d i t i o n e x i s t s on June 1, 1971 or as i t may n a t u r a l l y change t h e r e a f t e r : P r o v i d e d , That i n any area where the o r d i n a r y high water mark cannot be found, the o r d i n a r y high water mark a d j o i n i n g s a l t water s h a l l be the l i n e of mean higher high t i d e and the o r d i n a r y high water mark a d j o i n i n g f r e s h water s h a l l be the l i n e of mean high water; (c) " S h o r e l i n e s of the s t a t e " are the t o t a l of a l l "shore-l i n e s " and " s h o r e l i n e s of state-wide s i g n i f i c a n c e " w i t h i n the s t a t e ; (d) " S h o r e l i n e s " means a l l of the water areas of the s t a t e , i n c l u d i n g r e s e r v o i r s , and t h e i r a s s o c i a t e d wetlands, together w i t h the lands u n d e r l y i n g them; except ( i ) s h o r e l i n e s of state-wide s i g n i f i c a n c e ; ( i i ) s h o r e l i n e s on segments of steams upstream of a p o i n t where the mean annual flow i s twenty cubic f e e t per second or l e s s and the wetlands a s s o c i -ated w i t h such upstream segments; and ( i i i ) s h o r e l i n e s on l a k e s l e s s than twenty acres i n s i z e and wetlands a s s o c i a t e d w i t h such s m a l l l a k e s ; (e) " S h o r e l i n e s of state-wide s i g n i f i c a n c e " means the f o l l o w i n g s h o r e l i n e s of the s t a t e : (i) The area between the o r d i n a r y high water mark and the western boundary of the s t a t e from Cape Disappointment on the south t o Cape F l a t t e r y on the n o r t h , i n c l u d i n g harbors, bays, e s t u a r i e s , and i n l e t s , -( i i ) Those areas of Puget Sound and adjacent s a l t waters and the S t r a i t of Juan de Fuca between the o r d i n a r y high water mark and the l i n e of extreme low t i d e as f o l l o w s : (A) N i s q u a l l y D e l t a — f r o m DeWolf Bigh t to T a t s o l o P o i n t , (B) B i r c h Bay--from P o i n t Whitehorn t o B i r c h P o i n t , (C) Hood C a n a l — f r o m T a l a P o i n t to Foulweather B l u f f , (D) S k a g i t Bay and adjacent a r e a — f r o m Brown P o i n t t o Yokeko P o i n t , and (E) P a d i l l a B a y — f r o m March P o i n t t o W i l l i a m P o i n t ; ( i i i ) Those areas of Puget Sound and the S t r a i t of Juan de Fuca and adjacent s a l t waters north to the Canadian l i n e and l y i n g seaward from the l i n e of extreme low t i d e ; (iv) Those l a k e s , whether n a t u r a l , a r t i f i c i a l or a combination t h e r e o f , w i t h a s u r f a c e acreage of one thousand acres or more measured at the o r d i n a r y high water mark; (v) Those n a t u r a l r i v e r s or segments thereof as f o l l o w s : (A) Any west of the c r e s t of the Cascade range down-3 256 stream of a p o i n t where the mean annual flow i s measured at one thousand cu b i c f e e t per second or more, (B) Any east of the c r e s t of the Cascade range down-stream of a p o i n t where the annual flow i s measured at two hundred c u b i c f e e t per second or more, or those p o r t i o n s of r i v e r s east of the c r e s t of the Cascade range downstream from the f i r s t three hundred square m i l e s of drainage area, whichever i s longer; (v i ) Those wetlands a s s o c i a t e d w i t h ( i ) , ( i i ) , ( i v ) , and (v) of t h i s s u b s e c t i o n (2) ( e ) ; (f) "Wetlands" or "wetland areas" means those lands exten-ding landward f o r two hundred f e e t i n a l l d i r e c t i o n s as mea-sured on a h o r i z o n t a l plane from the o r d i n a r y h i g h water mark; and a l l , marshes, bogs, swamps, floodways, r i v e r d e l t a s , and f l o o d p l a i n s a s s o c i a t e d w i t h the streams, lakes and t i d a l waters which are s u b j e c t to the p r o v i s i o n s of t h i s chapter; the same to be designated as to l o c a t i o n by the department of ecology. (3) P r o c e d u r a l terms: (a) " G u i d e l i n e s " means those standards adopted t o imple-ment the p o l i c y of t h i s chapter f o r r e g u l a t i o n of use of the s h o r e l i n e s of the s t a t e p r i o r to adoption of master programs. Such standards s h a l l a l s o provide c r i t e r i a t o l o c a l governments and the department i n developing master programs; (b) "Master program" s h a l l mean the comprehensive use plan f o r a d e s c r i b e d area, and the use r e g u l a t i o n s together w i t h maps, diagrams, charts or other d e s c r i p t i v e m a t e r i a l and t e x t , a statement, of d e s i r e d goals and standards developed i n accordance w i t h the p o l i c i e s enunciated i n RCW 90.58.020; (c) "State master program" i s the cumulative t o t a l of a l l master programs approved or adopted by the department of ecology; (d) "Development" means a use c o n s i s t i n g of the c o n s t r u c -t i o n or e x t e r i o r a l t e r a t i o n of s t r u c t u r e s ; dredging; d r i l l i n g ; dumping; f i l l i n g ; removal of any sand, g r a v e l or m i n e r a l s ; bulkheading; d r i v i n g of p i l i n g ; p l a c i n g of o b s t r u c t i o n s ; or any p r o j e c t of a permanent or temporary nature which i n t e r f e r e s w i t h the normal p u b l i c use of the surfa c e of the waters over-l y i n g lands s u b j e c t t o t h i s chapter at any s t a t e of water l e v e l ; (e) " S u b s t a n t i a l development" s h a l l mean any development of which the t o t a l cost or f a i r market value exceeds one thousand d o l l a r s , or any development which m a t e r i a l l y i n t e r -f e r e s w i t h the normal p u b l i c use of the water o r s h o r e l i n e s of the s t a t e ; except t h a t the f o l l o w i n g s h a l l not be considered s u b s t a n t i a l developments f o r the purpose of t h i s chapter: ( i ) Normal maintenance or r e p a i r of e x i s t i n g s t r u c t u r e s or developments, i n c l u d i n g damage by a c c i d e n t , f i r e or elements; ( i i ) C o n s t r u c t i o n of the normal p r o t e c t i v e bulkhead common to s i n g l e f a m i l y r e s i d e n c e s ; ( i i i ) Emergency c o n s t r u c t i o n necessary to p r o t e c t pro-p e r t y from damage by the elements; (iv) C o n s t r u c t i o n of a barn or s i m i l a r a g r i c u l t u r a l s t r u c t u r e on wetlands; (v) C o n s t r u c t i o n or m o d i f i c a t i o n of n a v i g a t i o n a l a i d s such as channel markers and anchor buoys; 4 257 ( v i ) C o n s t r u c t i o n on w e t l a n d s by an owner, l e s s e e o r c o n t r a c t p u r c h a s e r of a s i n g l e f a m i l y r e s i d e n c e f o r h i s own use or f o r the use of h i s f a m i l y , w h i c h r e s i d e n c e does n ot exceed a h e i g h t o f t h i r t y - f i v e f e e t above average grade l e v e l and w h i c h meets a l l r e q u i r e m e n t s o f t h e s t a t e agency o r l o c a l government h a v i n g j u r i s d i c t i o n t h e r e o f , o t h e r t h a n r e q u i r e m e n t s imposed p u r s u a n t t o t h i s c h a p t e r . ( v i i ) C o n s t r u c t i o n o f a dock, d e s i g n e d f o r p l e a s u r e c r a f t o n l y , f o r t h e p r i v a t e noncommercial use o f t h e owners, l e s s e e , o r c o n t r a c t p u r c h a s e r o f a s i n g l e f a m i l y r e s i d e n c e , t h e c o s t o f w h i c h does n o t exceed two thousand f i v e hundred d o l l a r s . [197 3 c 203 § 1; 1971 1 s t e x . s . c 286 § 3.] 90.5 8.040 PROGRAM APPLICABLE TO SHORELINES OF THE STATE. The s h o r e l i n e management program o f t h i s c h a p t e r s h a l l a p p l y t o the s h o r e l i n e s o f t h e s t a t e as d e f i n e d i n t h i s c h a p t e r . [1971 1 s t e x . s . c 286 § 4.] 90.58.050 PROGRAM AS COOPERATIVE BETWEEN LOCAL GOVERNMENT AND STATE—RESPONSIBILITIES DIFFERENTIATED . T h i s c h a p t e r e s t a b l i s h e s a c o o p e r a t i v e program o f s h o r e l i n e management between l o c a l government and t h e s t a t e . L o c a l government s h a l l have t h e p r i m a r y r e s p o n s i b i l i t y f o r i n i t i a t i n g and a d m i n i s t e r i n g the r e g u l a t o r y program o f t h i s c h a p t e r . The dep a r t m e n t s h a l l a c t p r i m a r i l y i n a s u p p o r t i v e and r e v i e w c a p a c i t y w i t h p r i m a r y emphasis on i n s u r i n g c o m p l i a n c e w i t h t h e p o l i c y and p r o v i s i o n s o f t h i s c h a p t e r . [1971 1 s t e x . s . c 286 § 5.] 90.58.060 TIMETABLE FOR ADOPTION OF I N I T I A L G U I D E L I N E S — PUBLIC HEARINGS, NOTICE OF. (1) W i t h i n one hundred twenty days from June 1, 1971, t h e department s h a l l s u b mit t o a l l l o c a l governments p r o p o s e d g u i d e l i n e s c o n s i s t e n t w i t h RCW 90.58.020 f o r : (a*) Development o f ma s t e r programs f o r r e g u l a t i o n s o f t h e uses o f s h o r e l i n e s ; and (b) Development o f ma s t e r programs f o r r e g u l a t i o n o f t h e uses o f s h o r e l i n e s o f s t a t e - w i d e s i g n i f i c a n c e . (2) W i t h i n s i x t y days from r e c e i p t o f such p r o p o s e d guide-l i n e s , l o c a l governments s h a l l submit t o the department i n w r i t i n g p r o p o s e d changes, i f any, and comments upon t h e p r o -posed g u i d e l i n e s . (3) T h e r e a f t e r and w i t h i n one hundred twenty days from the s u b m i s s i o n o f such p r o p o s e d g u i d e l i n e s t o l o c a l g o v e r n -ments, t h e de p a r t m e n t , a f t e r r e v i e w and c o n s i d e r a t i o n o f t h e comments and s u g g e s t i o n s s u b m i t t e d t o i t , s h a l l r e s u b m i t f i n a l p r o p o s e d g u i d e l i n e s . (4) W i t h i n s i x t y days t h e r e a f t e r p u b l i c h e a r i n g s s h a l l be h e l d by t h e department i n O l y m p i a and Spokane, a t w h i c h i n t e r e s t e d p u b l i c and p r i v a t e p a r t i e s s h a l l have t h e o p p o r -t u n i t y t o p r e s e n t s t a t e m e n t s and v i e w s on the p r o p o s e d g u i d e -l i n e s . N o t i c e o f such h e a r i n g s s h a l l be p u b l i s h e d a t l e a s t 5 I 258 once i n each of the three weeks immediately preceding the hearing i n one or more newspapers of general c i r c u l a t i o n i n each county of the state. (5) Within ninety days following such public hearings, the department at a public hearing to be held i n Olympia s h a l l adopt guidelines. [1971 1st ex.s. c 286 § 6.] 90.58.070 LOCAL GOVERNMENTS TO SUBMIT LETTERS OF INTENT —DEPARTMENT TO ACT UPON FAILURE TO LOCAL GOVERNMENT. (1) Local governments are directed with regard to shorelines of the state i n t h e i r various j u r i s d i c t i o n s to submit to the d i r e c t o r of the department, within six months from June 1, 1971, l e t t e r s s t a t i n g that they propose to complete an inventory and develop master programs for these shorelines as provided for i n RCW 90.58.0 80. (2) I f any l o c a l government f a i l s to submit a l e t t e r as provided i n subsection (1) of t h i s section, or f a i l s to adopt a master program for the shorelines of the state within i t s j u r i s d i c t i o n i n accordance with the time schedule provided i n t h i s chapter, the department s h a l l carry out the requirements of RCW 90.58.080 and adopt a master program f o r the shorelines of the state within the j u r i s d i c t i o n of the l o c a l government. [1971 1st ex.s. c 286 § 7.] 90.58.0 80 TIMETABLE FOR LOCAL GOVERNMENTS TO COMPLETE SHORELINE INVENTORIES AND MASTER PROGRAMS. Local governments are d i r e c t e d with regard to shorelines of the state within t h e i r various j u r i s d i c t i o n s as follows: (1) To complete within eighteen months a f t e r June 1, 1971, a comprehensive inventory of such shorelines. Such inventory s h a l l include but not be l i m i t e d to the general ownership patterns of the lands located therein i n terms of p u b l i c and private ownership, a survey of the general natural character-i s t i c s thereof, present uses conducted therein and i n i t i a l projected uses thereof; (2) To develop, within eighteen months a f t e r the adop-t i o n of guidelines as provided i n RCW 90.5 8.060, a master program for regulation of uses of the shorelines of the state consistent with the guidelines adopted. [1971 1st ex.s. c 286 §'8.] 90.58.090 APPROVAL OF MASTER PROGRAM OR SEGMENTS THEREOF, WHEN—DEPARTMENTAL ALTERNATIVES WHEN SHORELINES OF STATE-WIDE SIGNIFICANCE—LATER ADOPTION OF MASTER PROGRAMS SUPERSEDES DEPARTMENTAL PROGRAM. Master programs or segments thereof s h a l l become e f f e c t i v e when adopted or approved by the depart-ment as appropriate. Within the time period provided i n RCW 90.58.080, each l o c a l government s h a l l have submitted a master program, eith e r t o t a l l y or by segments, for a l l shore-l i n e s of the state within i t s j u r i s d i c t i o n to the department for review and approval. 6 259 (1) As t o t h o s e segments o f the maste r program r e l a t i n g t o s h o r e l i n e s , t h e y s h a l l be approved by the department u n l e s s i t d e t e r m i n e s t h a t the s u b m i t t e d segments a r e not c o n s i s t e n t w i t h the p o l i c y o f RCW 90.58.020 and the a p p l i c a b l e g u i d e l i n e s . I f a p p r o v a l i s d e n i e d , the department s h a l l s t a t e - w i t h i n n i n e t y days from the d a t e o f s u b m i s s i o n i n d e t a i l t h e p r e c i s e f a c t s upon w h i c h t h a t d e c i s i o n i s b a s e d , and s h a l l s u b m it t o the l o c a l government s u g g e s t e d m o d i f i c a t i o n s t o t h e program t o make i t c o n s i s t e n t w i t h s a i d p o l i c y and g u i d e l i n e s . The l o c a l government s h a l l have n i n e t y days a f t e r i t r e c e i v e s recommen-d a t i o n s from the department t o make m o d i f i c a t i o n s d e s i g n e d t o e l i m i n a t e the i n c o n s i s t e n c i e s and t o r e s u b m i t t h e program t o th e department f o r a p p r o v a l . Any r e s u b m i t t e d program s h a l l t a k e e f f e c t when and i n such form and c o n t e n t as i s approved by t h e department. (2) As t o t h o s e segments o f the master program r e l a t i n g t o s h o r e l i n e s o f s t a t e - w i d e s i g n i f i c a n c e t h e department s h a l l have f u l l a u t h o r i t y f o l l o w i n g r e v i e w and e v a l u a t i o n o f t h e s u b m i s s i o n by l o c a l government t o d e v e l o p and adopt an a l t e r -n a t i v e t o the l o c a l government's p r o p o s a l i f i n t h e d e p a r t -ment's o p i n i o n t h e program s u b m i t t e d does n o t p r o v i d e t h e optimum i m p l e m e n t a t i o n o f t h e p o l i c y o f t h i s c h a p t e r t o s a t i s f y t h e s t a t e - w i d e i n t e r e s t . I f the s u b m i s s i o n by l o c a l g o v e r n -ment i s n o t approved, t h e department s h a l l s u g g e s t m o d i f i c a -t i o n s t o the l o c a l government w i t h i n n i n e t y days from r e c e i p t of t h e s u b m i s s i o n . The l o c a l government s h a l l have n i n e t y days a f t e r i t r e c e i v e s s a i d m o d i f i c a t i o n s t o c o n s i d e r t h e same and r e s u b m i t a m a s t e r program t o t h e department. T h e r e a f t e r , the department s h a l l adopt the r e s u b m i t t e d program o r , i f t h e department d e t e r m i n e s t h a t s a i d program does n o t p r o v i d e f o r optimum i m p l e m e n t a t i o n , i t may d e v e l o p and adopt an a l t e r -n a t i v e as h e r e i n b e f o r e p r o v i d e d . (3) I n the e v e n t a l o c a l government has not c o m p l i e d w i t h the r e q u i r e m e n t s o f RCW 90.58.070 i t may t h e r e a f t e r upon w r i t t e n n o t i c e t o the department e l e c t t o adopt a maste r program f o r the s h o r e l i n e s w i t h i n i t s j u r i s d i c t i o n , i n w h i c h e v e n t i t s h a l l comply w i t h p r o v i s i o n s e s t a b l i s h e d by t h i s c h a p t e r f o r the a d o p t i o n o f a m a s t e r program f o r such s h o r e -l i n e s . 1 Upon a p p r o v a l of such m a s t e r program by the department i t s h a l l s u p e r s e d e such m a s t e r program as may have been adopted by t h e department f o r such s h o r e l i n e s . [1971 1 s t e x . s . c 2 86 § 9.) 90.58.100 PROGRAMS AS CONSTITUTING USE REGULATIONS DUTIES WHEN PREPARING PROGRAMS AND AMENDMENTS THERETO—PROGRAM CONTENTS. (1) The master programs p r o v i d e d f o r i n t h i s chap-t e r , when adopted and approved by the d e p a r t m e n t , as a p p r o p r i a t e , s h a l l c o n s t i t u t e use r e g u l a t i o n s f o r t h e v a r i o u s s h o r e l i n e s o f th e s t a t e . I n p r e p a r i n g t h e m a s t e r programs, and any amendments t h e r e t o , t h e department and l o c a l governments s h a l l t o t h e e x t e n t f e a s i b l e : 7 (a) U t i l i z e a systematic i n t e r d i s c i p l i n a r y approach which w i l l i n s u r e the i n t e g r a t e d use of the n a t u r a l and s o c i a l s c iences and the environmental design a r t s ; (b) Consult w i t h and o b t a i n the comments of any f e d e r a l , s t a t e , r e g i o n a l , or l o c a l agency having any s p e c i a l e x p e r t i s e w i t h respect to any environmental impact; (c) Consider a l l p l a n s , s t u d i e s , surveys, i n v e n t o r i e s , and systems of c l a s s i f i c a t i o n made or being made by f e d e r a l , s t a t e , r e g i o n a l , o r l o c a l agencies, by p r i v a t e i n d i v i d u a l s , o r by o r g a n i z a t i o n s d e a l i n g w i t h p e r t i n e n t s h o r e l i n e s of the, s t a t e ; (d) Conduct or support such f u r t h e r r e s e a r c h , s t u d i e s , surveys, and i n t e r v i e w s as are deemed necfessary; (e) U t i l i z e a l l a v a i l a b l e i n f o r m a t i o n regarding hydrology, geography, topography, ecology, economics, and other p e r t i n e n t data; (f) . Employ, when f e a s i b l e , a l l a p p r o p r i a t e , modern s c i e n t i f i c data p r o c e s s i n g and computer techniques t o s t o r e , index, analyze, and manage the i n f o r m a t i o n gathered. (2) The master programs s h a l l i n c l u d e , when a p p r o p r i a t e , the f o l l o w i n g : (a) An economic development element f o r the l o c a t i o n and design of i n d u s t r i e s , t r a n s p o r t i o n f a c i l i t i e s , p o r t f a c i l i t i e s , t o u r i s t f a c i l i t i e s , commerce and other developments t h a t are p a r t i c u l a r l y dependent on t h e i r l o c a t i o n on or use of the s h o r e l i n e s of the s t a t e ; (b) A p u b l i c access element making p r o v i s i o n f o r p u b l i c access to p u b l i c l y owned areas; (c) A r e c r e a t i o n a l element f o r the p r e s e r v a t i o n and enlargement of r e c r e a t i o n a l o p p o r t u n i t i e s , i n c l u d i n g but not l i m i t e d t o parks, t i d e l a n d s , beaches, and r e c r e a t i o n a l areas; (d) A c i r c u l a t i o n element c o n s i s t i n g of the general l o c a t i o n and extent of e x i s t i n g and proposed major thorough-f a r e s , t r a n s p o r t a t i o n r o u t e s , t e r m i n a l s , and other p u b l i c u t i l i t i e s and f a c i l i t i e s , a l l c o r r e l a t e d w i t h the s h o r e l i n e use element; (e) A use element which co n s i d e r s the proposed g e n e r a l d i s t r i b u t i o n and gene r a l l o c a t i o n and extent of the use on s h o r e l i n e s and adjacent land areas f o r housing, b u s i n e s s , i n d u s -t r y , t r a n s p o r t a t i o n , a g r i c u l t u r e , n a t u r a l r e s o u r c e s , r e c r e a t i o n , e ducation, p u b l i c b u i l d i n g s and grounds, and other c a t e g o r i e s of p u b l i c and p r i v a t e uses of the la n d ; (f) A co n s e r v a t i o n element f o r the p r e s e r v a t i o n of n a t u r a l r e s o u r c e s , i n c l u d i n g but not l i m i t e d t o s c e n i c v i s t a s , a e s t h e t i c s , and v i t a l e s t u a r i n e areas f o r f i s h e r i e s and w i l d -l i f e p r o t e c t i o n ; (g) An h i s t o r i c , c u l t u r a l , s c i e n t i f i c , and e d u c a t i o n a l element f o r the p r o t e c t i o n and r e s t o r a t i o n of b u i l d i n g s , s i t e s , and areas having h i s t o r i c , c u l t u r a l , s c i e n t i f i c , or e d u c a t i o n a l v a l u e s ; and (h) Any other element deemed ap p r o p r i a t e or necessary to e f f e c t u a t e the p o l i c y of t h i s chapter. ( 3 ) The master programs s h a l l i n c l u d e such map or maps, d e s c r i p t i v e t e x t , diagrams and c h a r t s , or other d e s c r i p t i v e m a t e r i a l as are necessary to provide f o r ease of understanding. 8 261 (4) M a s t e r programs w i l l r e f l e c t t h a t state-owned s h o r e -l i n e s o f the s t a t e are p a r t i c u l a r l y adapted t o p r o v i d i n g w i l -d e r n e s s beaches, e c o l o g i c a l s t u d y a r e a s , and o t h e r r e c r e a t i o n a l a c t i v i t i e s f o r the p u b l i c and w i l l g i v e a p p r o p r i a t e s p e c i a l c o n s i d e r a t i o n t o 3ame. ( 5 ) Each m a s t e r program s h a l l c o n t a i n p r o v i s i o n s t o a l l o w f o r t h e v a r y i n g o f the a p p l i c a t i o n of use r e g u l a t i o n s of the program, i n c l u d i n g p r o v i s i o n s f o r p e r m i t s f o r c o n d i t i o n a l uses and v a r i a n c e s , t o i n s u r e t h a t s t r i c t i m p l e m e n t a t i o n o f a p r o -gram w i l l n o t c r e a t e u n n e c e s s a r y h a r d s h i p s o r t h w a r t t h e p o l i c y enumerated i n RCW 90.58.020. Any such v a r y i n g s h a l l be a l l o w e d o n l y i f e x t r a o r d i n a r y c i r c u m s t a n c e s a r e shown and t h e p u b l i c i n t e r e s t s u f f e r s no s u b s t a n t i a l d e t r i m e n t a l e f f e c t . The con -c e p t of t h i s s u b s e c t i o n s h a l l be i n c o r p o r a t e d i n the r u l e s a d o p t e d by t h e department r e l a t i n g t o t h e e s t a b l i s h m e n t o f a p e r m i t system as p r o v i d e d i n RCW 90.58. 1 4 0 ( 3 ) . [1971 1 s t e x . s . c 286 § 10.] 90.58.110 DEVELOPMENT OF PROGRAM WITHIN TWO OR MORE ADJA-CENT LOCAL GOVERNMENT JURISDICTIONS—DEVELOPMENT OF PROGRAM IN SEGMENTS, WHEN. (1) Whenever i t s h a l l appear t o t h e d i r e c t o r t h a t a master program s h o u l d be d e v e l o p e d f o r a r e g i o n o f t h e s h o r e l i n e s o f t h e s t a t e w h i c h i n c l u d e s l a n d s and w a t e r s l o c a t e d i n two o r more a d j a c e n t l o c a l government j u r i s d i c t i o n s , t h e d i r e c t o r s h a l l d e s i g n a t e such r e g i o n and n o t i f i y t he a p p r o p r i a t e u n i t s o f l o c a l government t h e r e o f . I t s h a l l be the d u t y o f t h e n o t i f i e d u n i t s t o d e v e l o p c o o p e r a t i v e l y an i n v e n t o r y and m a s t e r program i n a c c o r d a n c e w i t h and w i t h i n t he t i m e p r o v i d e d i n RCW 90.5 8.0 80. (2) A t t h e d i s c r e t i o n o f t h e d e p a r t m e n t , a l o c a l g o v e r n -ment m a s t e r program may be adopted i n segments a p p l i c a b l e t o p a r t i c u l a r a r e a s so t h a t immediate a t t e n t i o n may be g i v e n t o th o s e a r e a s o f the s h o r e l i n e s o f t h e s t a t e i n most need o f a use r e g u l a t i o n . [1971 1 s t e x . s . c 286 § 11.] 90.58.120 ADOPTION OF RULES, PROGRAMS, ETC., SUBJECT TO RCW 34.0 4.025—PUBLIC HEARINGS, NOTICE O F — P U B L I C INSPECTION AFTER APPROVAL OR ADOPTION. A l l r u l e s and r e g u l a t i o n s , m a s t e r programs, d e s i g n a t i o n s and g u i d e l i n e s , s h a l l be adopted o r approved i n a c c o r d a n c e w i t h t he p r o v i s i o n s o f RCW 34.04.025 i n -s o f a r as such p r o v i s i o n s a r e n o t i n c o n s i s t e n t w i t h t h e p r o v i -s i o n s o f t h i s c h a p t e r . I n a d d i t i o n : (1) P r i o r t o t h e a p p r o v a l o r a d o p t i o n by t h e d e p a r t m e n t o f a m a s t e r program, o r p o r t i o n t h e r e o f , a t l e a s t one p u b l i c h e a r i n g s h a l l be h e l d i n each c o u n t y a f f e c t e d by a program o r p o r t i o n t h e r e o f f o r t h e purpose o f o b t a i n i n g t he v i e w s and comments of the p u b l i c . N o t i c e o f each such h e a r i n g s h a l l be p u b l i s h e d a t l e a s t once i n each of t h e t h r e e weeks i m m e d i a t e l y p r e c e d i n g t h e h e a r i n g i n one o r more newpapers o f g e n e r a l c i r c u l a t i o n i n t h e c o u n t y i n w h i c h the h e a r i n g i s t o be h e l d . (2) A l l g u i d e l i n e s , r e g u l a t i o n s , d e s i g n a t i o n s o r m a s t e r programs a d o p t e d o r approved under t h i s c h a p t e r s h a l l be 9 a v a i l a b l e f o r p u b l i c i n s p e c t i o n a t t h e o f f i c e o f the department o r t i f a p p r o p r i a t e c o u n t y a u d i t o r and c i t y c l e r k . The terms •adept" and "approve" f o r p u r p o s e s o f t h i s s e c t i o n , s h a l l I n c l u d e m o d i f i c a t i o n s and r e s c i s s i o n o f g u i d e l i n e s . [1971 1 s t i n e x . s . c 286 § 12.] 90.58.130 INVOLVEMENT OF ALL PERSONS AND ENTITIES HAVING INTEREST, MEANS. To i n s u r e t h a t a l l p e r s o n s and e n t i t i e s h a v i n g an i n t e r e s t i n t h e g u i d e l i n e s and m a s t e r programs d e v e l -oped under t h i s c h a p t e r a r e p r o v i d e d w i t h a f u l l o p p o r t u n i t y f o r i n v o l v e m e n t i n b o t h t h e i r development and i m p l e m e n t a t i o n , t h e department and l o c a l governments s h a l l : (1) Make r e a s o n a b l e e f f o r t s t o i n f o r m t h e p e o p l e o f t h e s t a t e about t h e s h o r e l i n e management program o f t h i s c h a p t e r and i n t h e p e r f o r m a n c e o f t h e r e s p o n s i b i l i t i e s p r o v i d e d i n t h i s c h a p t e r , s h a l l n o t o n l y i n v i t e b u t a c t i v e l y encourage p a r t i c i -p a t i o n by a l l p e r s o n s and p r i v a t e groups and e n t i t i e s showing an i n t e r e s t i n s h o r e l i n e management programs o f t h i s c h a p t e r ; and (2) I n v i t e and encourage p a r t i c i p a t i o n by a l l a g e n c i e s o f f e d e r a l , s t a t e , and l o c a l government, i n c l u d i n g m u n i c i p a l and p u b l i c c o r p o r a t i o n s , h a v i n g i n t e r e s t s o r r e s p o n s i b i l i t i e s r e l a t i n g t o t h e s h o r e l i n e s o f t h e s t a t e . S t a t e and l o c a l a g e n c i e s a r e d i r e c t e d t o p a r t i c i p a t e f u l l y t o i n s u r e t h a t t h e i r i n t e r e s t s a r e f u l l y c o n s i d e r e d by t h e department and l o c a l governments. [1971 1 s t e x . s . c 286 § 13.] ) 90.58.140 DEVELOPMENT PERMITS—GROUNDS FOR GRANTING — DEPARTMENTAL APPEAL ON ISSUANCE—ADMINISTRATION BY LOCAL GOVERNMENT, CONDITIONS—RESCISSION—WHEN PERMITS NOT REQUIRED— APPROVAL WHEN PERMIT FOR VARIANCE OR CONDITIONAL USE. (1) No development s h a l l be u n d e r t a k e n on t h e s h o r e l i n e s o f t h e s t a t e e x c e p t t h o s e w h i c h a r e c o n s i s t e n t w i t h t h e p o l i c y of t h i s c h a p t e r and, a f t e r a d o p t i o n o r a p p r o v a l , as a p p r o p r i a t e , t h e a p p l i c a b l e g u i d e l i n e s , r e g u l a t i o n s o r maste r program. (2) No s u b s t a n t i a l development s h a l l be u n d e r t a k e n on s h o r e l i n e s o f t h e s t a t e w i t h o u t f i r s t o b t a i n i n g a p e r m i t from t h e government e n t i t y h a v i n g a d m i n i s t r a t i v e j u r i s d i c t i o n under t h i s c h a p t e r . A p e r m i t s h a l l be g r a n t e d : (a) From June 1, 1971, u n t i l such t i m e as an a p p l i c a b l e m a s t e r program has become e f f e c t i v e , o n l y when t h e development p r o p o s e d i s c o n s i s t e n t w i t h : ( i ) The p o l i c y o f RCW 90.58.020; and ( i i ) a f t e r t h e i r a d o p t i o n , t h e g u i d e l i n e s and r e g u l a t i o n s o f t h e de p a r t m e n t ; and ( i i i ) so f a r as can be a s c e r t a i n e d , t h e m a s t e r program b e i n g d e v e l o p e d f o r t h e a r e a . I n t h e e v e n t t h e department i s o f the o p i n i o n t h a t any p e r m i t g r a n t e d under t h i s s u b s e c t i o n i s i n c o n s i s t e n t w i t h t h e p o l i c y d e c l a r e d i n RCW 90.58.020 o r i s o t h e r w i s e n o t a u t h o r i z e d by t h i s s e c t i o n , t h e d e p a r t m e n t may a p p e a l t h e i s s u a n c e o f such p e r m i t w i t h i n t h i r t y days t o t h e h e a r i n g s b o a r d upon w r i t t e n n o t i c e t o t h e l o c a l government and the p e r m i t t e e ; (b) A f t e r a d o p t i o n o r a p p r o v a l , as a p p r o p r i a t e , by t h e 10 263 department of an a p p l i c a b l e master program, only when the development proposed i s c o n s i s t e n t w i t h the a p p l i c a b l e master program and the p o l i c y of RCW 90.58.020. (3) L o c a l government s h a l l e s t a b l i s h a program, c o n s i s -tent w i t h r u l e s adopted by the department, f o r the admini-s t r a t i o n and enforcement of the permit system provided i n t h i s s e c t i o n . Any such system s h a l l i n c l u d e a requirement t h a t a l l a p p l i c a t i o n s and permits s h a l l be su b j e c t t o the same p u b l i c n o t i c e procedures as provided f o r a p p l i c a t i o n s f o r waste d i s p o s a l permits f o r new operations under RCW 90.48.170. The a d m i n i s t r a t i o n of the system so e s t a b l i s h e d s h a l l be performed e x c l u s i v e l y by l o c a l government. (4) Such system s h a l l i n c l u d e p r o v i s i o n s to assure t h a t c o n s t r u c t i o n pursuant t o a permit w i l l not begin or be author-i z e d u n t i l f o r t y - f i v e days from the date of f i n a l approval'by the l o c a l government o r , except i n the case of any permit i s s u e d to the s t a t e of Washington, department of highways, f o r the c o n s t r u c t i o n and m o d i f i c a t i o n of the SR 90 (1-90) b r i d g e s across Lake Washington, u n t i l a l l review proceedings are t e r -minated i f such proceedings were i n i t i a t e d w i t h i n f o r t y - f i v e days from the date of f i n a l approval by the l o c a l government. (5.) Any r u l i n g on an a p p l i c a t i o n f o r a permit under a u t h o r i t y of t h i s s e c t i o n , whether i t be an approval or a d e n i a l , s h a l l , c o n c u r r e n t l y w i t h the t r a n s m i t t a l of the r u l i n g t o the a p p l i c a n t , be f i l e d w i t h the department and the attorney g e n e r a l . (6) A p p l i c a n t s f o r permits under t h i s s e c t i o n s h a l l have the burden of proving t h a t a proposed s u b s t a n t i a l development i s c o n s i s t e n t w i t h the c r i t e r i a which must be met before a per-mit i s granted. In any review of the g r a n t i n g or d e n i a l of an a p p l i c a t i o n f o r a permit as provided i n RCW 90.58.160 ( 1 ) , the person r e q u e s t i n g the review s h a l l have the burden of proof. (7) Any permit may be re s c i n d e d by the i s s u i n g a u t h o r i t y upon the f i n d i n g t h a t a permittee has not complied w i t h con-d i t i o n s of a permit. In the event the department i s of the o p i n i o n that such noncompliance e x i s t s , the department may appeal w i t h i n t h i r t y days to the hearings board f o r a r e s c i s s i o n of such permit upon w r i t t e n n o t i c e to the l o c a l government and the pe r m i t t e e . ' (8) The hol d e r of a c e r t i f i c a t i o n from the governor pur-suant to chapter 80.50 RCW s h a l l not be r e q u i r e d to o b t a i n a permit under t h i s s e c t i o n . (9) No permit s h a l l be r e q u i r e d f o r any development on s h o r e l i n e s of the s t a t e i n c l u d e d w i t h i n a p r e l i m i n a r y o r f i n a l p l a t approved by the a p p l i c a b l e s t a t e agency or l o c a l govern-ment p r i o r to A p r i l 1, 1971, i f : (a) The f i n a l p l a t was approved a f t e r A p r i l 13, 1961, or the p r e l i m i n a r y p l a t was approved a f t e r A p r i l 30, 1969, or (b) Sales of l o t s to purchasers w i t h r e f e r e n c e t o the p l a t , or s u b s t a n t i a l development i n c i d e n t to p l a t t i n g or r e q u i r e d by the p l a t , occurred p r i o r to A p r i l 1, 1971, and (c) The development to be made without a permit meets a l l requirements of the a p p l i c a b l e s t a t e agency or l o c a l government, other than requirements imposed pursuant to t h i s chapter, and 11 (d) The development does not involve construction of bu i l d i n g s , or involves construction on wetlands of buildings to zr.rvc only as community s o c i a l or recreational f a c i l i t i e s for the use of owners of platted lots and the buildings do not exceed a height of t h i r t y - f i v e feet above average grade l e v e l , and (e) The development i s completed within two years a f t e r the e f f e c t i v e date of t h i s chapter. (10) The applicable state agency or l o c a l government i s authorized to approve a f i n a l p l a t with respect to shorelines of the state included within a preliminary p l a t approved a f t e r A p r i l 30, 1969, and p r i o r to A p r i l 1, 1971: Provided, That any s u b s t a n t i a l development within the p l a t t e d shorelines of the state i s authorized by a permit granted pursuant to t h i s sec-t i o n , or does not require a permit as provided i n subsection (9) of t h i s section, or does not require a permit because of s u b s t a n t i a l development occurred p r i o r to June 1, 1971. (11) Any permit for a variance or a c o n d i t i o n a l use by l o c a l government under approved master programs must be sub-mitted to the department for i t s approval or disapproval. [1971 1st ex.s. c 286 § 14.] 90.58.150 SELECTIVE COMMERICAL TIMBER CUTTING, WHEN. With respect to timber situated within two hundred feet abutting landward of the ordinary high water mark within shorelines of state-wide s i g n i f i c a n c e , the department^ or l o c a l government s h a l l allow only s e l e c t i v e commerical timber c u t t i n g , so that no more than t h i r t y percent of the merchantable trees may be har-vested i n any ten year period of time: Provided, That other timber harvesting methods may be permitted i n those l i m i t e d instances where the topography, s o i l conditions of s i l v i c u l t u r e practices necessary for regeneration render s e l e c t i v e logging e c o l o g i c a l l y detrimental: Provided further, That c l e a r c u t t i n g of timber which i s s o l e l y i n c i d e n t a l to the preparation of land for other uses authorized by t h i s chapter may be permitted. [1971 1st ex.s. c 286 S 15.] 90.58.160 PROHIBITION AGAINST SURFACE DRILLING FOR OIL OR GAS, WHERE. Surface d r i l l i n g for o i l or gas i s prohibited i n the'waters of Puget Sound north to the Canadian boundary and the S t r a i t of Juan de Fuca seaward from the ordinary high water mark and on a l l lands within one thousand feet landward from sa i d mark. [1971 1st ex.s. c 286 § 16.] 90.58.170 SHORELINES HEARINGS BOARD--ESTABLISHED-MEMBERS --CHAIRMAN—QUORUM FOR DECISION—ADMINISTRATIVE AND CLERICAL ASSISTANCE—EXPENSES OF MEMBERS. A shorelines hearings board s i t t i n g as a quasi j u d i c i a l body i s hereby established which s h a l l be made up of six members: Three members s h a l l be members of the p o l l u t i o n control hearings board; two members, one appointed by the association of Washington c i t i e s and one 1 2 , 265 a p p o i n t e d by the a s s o c i a t i o n of c o u n t y c o m m i s s i o n e r s , b o t h t o s e r v e a t the p l e a s u r e o f the a s s o c i a t i o n s ; and the s t a t e l a n d c o m m i s s i o n e r o r h i s d e s i g n e e . The chairman of the p o l l u t i o n c o n t r o l h e a r i n g s b o a r d s h a l l be t h e c h a i r m a n o f t h e s h o r e l i n e s h e a r i n g s b o a r d . A d e c i s i o n must be a g r e e d t o by a t l e a s t f o u r meinbers of the b o a r d t o be f i n a l . The p o l l u t i o n c o n t r o l h e a r i n g s b o a r d s h a l l p r o v i d e the s h o r e l i n e s a p p e a l s b o a r d such a d m i n i s t r a t i v e and c l e r i c a l a s s i s t a n c e as t h e l a t t e r may r e q u i r e . The members o f t h e s h o r e l i n e s a p p e a l s b o a r d s h a l l r e c e i v e t h e c o m p e n s a t i o n , t r a v e l , and s u b s i s t e n c e expenses as p r o v i d e d i n RCW 43.03.050 and 43.03.060. [1971 1 s t e x . s . c 286 § 17.] 90.58.180 APPEALS FROM GRANTING, DENYING OR RESCINDING PERMITS, PROCEDURE—BOARD TO ACT, WHEN—LOCAL GOVERNMENT APPEALS TO BOARD—GROUNDS FOR DECLARING MASTER PROGRAM INVALID—APPEALS TO COURT, PROCEDURE. (1) Any p e r s o n a g g r i e v e d by t h e g r a n t i n g o r d e n y i n g o f a p e r m i t on s h o r e l i n e s o f t h e s t a t e , o r r e s c i n d i n g a p e r m i t p u r s u a n t t o RCW 90.5 8.150 may seek r e v i e w from t h e s h o r e l i n e s h e a r i n g s b o a r d by f i l i n g a r e q u e s t f o r t h e same w i t h -i n t h i r t y days o f r e c e i p t o f t h e f i n a l o r d e r . C o n c u r r e n t l y w i t h the f i l i n g o f any r e q u e s t f o r r e v i e w w i t h t h e b o a r d as p r o v i d e d i n t h i s s e c t i o n p e r t a i n i n g t o a f i n a l o r d e r o f a l o c a l g o v e r n -ment, the r e q u e s t o r s h a l l f i l e a copy o f h i s r e q u e s t w i t h t h e department and t h e a t t o r n e y g e n e r a l . I f i t appears t o t h e d e p a r t -ment o r t h e a t t o r n e y g e n e r a l t h a t t h e r e q u e s t o r has v a l i d r e a s o n s t o seek r e v i e w , e i t h e r t h e d e partment o r t h e a t t o r n e y g e n e r a l may c e r t i f y t h e r e q u e s t w i t h i n t h i r t y days a f t e r i t s r e c e i p t t o t h e s h o r e l i n e s h e a r i n g s b o a r d f o l l o w i n g w h i c h t h e b o a r d s h a l l t h e n , b u t n o t o t h e r w i s e , r e v i e w t h e m a t t e r c o v e r e d by t h e r e q u e s t o r : P r o v i d e d , T h a t th e f a i l u r e t o o b t a i n such c e r t i f i c a t i o n s h a l l n o t p r e c l u d e t h e r e q u e s t o r from o b t a i n i n g a r e v i e w i n the s u p e r i o r c o u r t under any r i g h t t o r e v i e w o t h e r w i s e a v a i l a b l e t o t h e r e q u e s t o r . The d e partment and t h e a t t o r n e y g e n e r a l may i n t e r v e n e t o p r o t e c t t h e p u b l i c i n t e r e s t and i n s u r e t h a t the p r o v i s i o n s of t h i s c h a p t e r a r e c o m p l i e d w i t h a t any t i m e w i t h i n f o r t y - f i v e days from t h e d a t e o f t h e f i l i n g o f s a i d c o p i e s by t h e r e q u e s t o r . (2) The department o r t h e a t t o r n e y g e n e r a l may o b t a i n r e v i e w o f any f i n a l o r d e r g r a n t i n g a p e r m i t , o r g r a n t i n g o r d e n y i n g an a p p l i c a t i o n f o r a p e r m i t i s s u e d by a l o c a l government by f i l i n g a w r i t t e n r e q u e s t w i t h the s h o r e l i n e s a p p e a l s b o a r d and t h e a p p r o p r i a t e l o c a l government w i t h i n f o r t y - f i v e days from t h e d a t e t h e f i n a l o r d e r was f i l e d as p r o v i d e d i n s u b s e c -t i o n (5) o f RCW 90.58.140. (3) The r e v i e w p r o c e e d i n g s a u t h o r i z e d i n s u b s e c t i o n (1) and (2) o f t h i s s e c t i o n a r e s u b j e c t t o t h e p r o v i s i o n s o f c h a p t e r 34.04 RCW p e r t a i n i n g t o p r o c e d u r e s i n c o n t e s t e d c a s e s . J u d i c i a l r e v i e w o f such p r o c e e d i n g s o f t h e s h o r e l i n e s h e a r i n g s b o a r d may be had as p r o v i d e d i n c h a p t e r 34.04 RCW. (4) L o c a l government may a p p e a l t o t h e s h o r e l i n e s h e a r i n g s b o a r d any r u l e s , r e g u l a t i o n s , g u i d e l i n e s , d e s i g n a t i o n s o r m a s t e r programs f o r s h o r e l i n e s o f t h e s t a t e a d o p t e d o r a p p r o v e d 13 266 by the department within t h i r t y days of the date of the adop-ti o n or approval. The board s h a l l make a f i n a l decision within s i x t y days following the hearing held thereon. (a) In an appeal r e l a t i n g to a master program for shore-l i n e s , the board, after f u l l consideration of the positions of the l o c a l government and the department, s h a l l determine the v a l i d i t y of the master program. If the board determines that s a i d program: (i) i s c l e a r l y erroneous i n l i g h t of the p o l i c y of t h i s chapter; or ( i i ) constitutes an implementation of t h i s chapter i n v i o l a t i o n of c o n s t i t u t i o n a l or statutory provisions; or ( i i i ) i s a r b i t r a r y and capricious; or (iv) was developed without f u l l y considering and e v a l -uating a l l proposed master programs submitted to the department by the l o c a l government; or (v) was not adopted i n accordance with required procedures; the board s h a l l enter a f i n a l d e c i s i o n declaring the program i n v a l i d , remanding the master program to the department with a statement of the reasons i n support of the determination, and d i r e c t i n g the department to adopt, a f t e r a thorough consultation with the affected l o c a l government, a new master program. Unless the board makes one or more of the determinations as herein-before provided, the board s h a l l f i n d the master program to be v a l i d and enter a f i n a l decision to that e f f e c t . (b) In an appeal r e l a t i n g to a master program for shore-l i n e s of state-wide s i g n i f i c a n c e the board s h a l l approve the master program adopted by the department unless a l o c a l govern-ment s h a l l , by c l e a r and convincing evidence and argument, per-suade the board that the master program approved by the depart-ment i s inconsistent with the p o l i c y of RCW 90.58.020 and the applicable guidelines. (c) In an appeal r e l a t i n g to r u l e s , r e gulations, guide-l i n e s , master programs of state-wide s i g n i f i c a n c e and designa-t i o n s , the standard of review provided i n RCW 34.04.070 s h a l l apply. (5) Rules, regulations, designations, master programs and guidelines s h a l l be subject to review i n superior court, i f authorized pursuant to RCW 34.04.070: Provided, That no review s h a l l be granted by a superior court on p e t i t i o n from a l o c a l government unless the l o c a l government s h a l l f i r s t have obtained review under subsection (4) of t h i s section and the p e t i t i o n f o r court review i s f i l e d within three months af t e r the date of f i n a l d e c i s i o n by the shorelines hearings board. [1973 c 203 § 2; 1971 1st ex.s. c 286 § 18.] 90.58.190 REVIEW AND ADJUSTMENTS TO MASTER PROGRAMS. The department and each l o c a l government s h a l l p e r i o d i c a l l y review any master programs under i t s j u r i s d i c t i o n and make such a d j u s t ments t h e r e t o as are necessary. Each l o c a l government s h a l l submit any proposed adjustments, to the department as soon as they are completed. No such adjustment s h a l l become e f f e c t i v e 14 267 u n t i l i t has been approved by the department. (1971 1st ex.s. c 286 § 19.] 90.58.200 RULES AND REGULATIONS. The department and l o c a l governments are authorized to adopt such rules as are necessary and appropriate to carry out the provisions of t h i s chapter. [1971 1st ex.s. c 286 § 20.] 90.5 8.210 COURT ACTIONS TO INSURE AGAINST CONFLICTING USES AND TO ENFORCE. The attorney general or the attorney for the l o c a l government s h a l l bring such i n j u n c t i v e , declaratory, or other actions as are necessary to insure that no uses are made of the shorelines of the state i n c o n f l i c t with the pro-vis i o n s and programs of t h i s chapter, and to otherwise enforce the provisions of t h i s chapter. [1971 1st ex.s. c 286 § 21.] 90.58.220 GENERAL PENALTY. In addition to in c u r r i n g c i v i l l i a b i l i t y under RCW 90.58.210, any person found to have w i l f u l l y engaged i n a c t i v i t i e s on the shorelines of the state in v i o l a t i o n of the provisions of t h i s chapter or any of the master programs, r u l e s , or regulations adopted pursuant thereto s h a l l be g u i l t y of a gross misdemeanor, and s h a l l be punished by a f i n e of not less than twenty-five nor more than one thou-sand d o l l a r s or by imprisonment i n the county j a i l f or not more than ninety days, or by both such f i n e and imprisonment: Pro-vided, That the fine for the t h i r d and a l l subsequent v i o l a t i o n s in any five-year period s h a l l be not less than f i v e hundred nor more than ten thousand d o l l a r s . [1971 1st ex.s. c 286 § 22.] 90.58.230 VIOLATORS LIABLE FOR DAMAGES RESULTING FROM VIOLATION—ATTORNEY'S FEES AND COSTS. Any person subject to the regulatory program of t h i s chapter who v i o l a t e s any pro-v i s i o n of t h i s chapter or permit issued pursuant thereto s h a l l be l i a b l e for a l l damage to public or private property a r i s i n g from such v i o l a t i o n , including the cost of restoring the affected area to i t s condition p r i o r to v i o l a t i o n . The attorney general or l o c a l government attorney s h a l l bring s u i t f or dam-ages under t h i s section on behalf of the state or l o c a l govern-ments. Private persons s h a l l have the r i g h t to bring s u i t f o r damages under t h i s section on t h e i r own behalf and on the behalf of a l l persons s i m i l a r l y situated. If l i a b i l i t y has been estab-l i s h e d for the cost of restoring an area affected by a v i o l a t i o n the court s h a l l make provision to assure that r e s t o r a t i o n w i l l be accomplished within a reasonable time at the expense of the v i o l a t o r . In addition to such r e l i e f , including money damages, the court in i t s d i s c r e t i o n may award attorney's fees and costs of the s u i t to the p r e v a i l i n g party. [1971 1st ex.s. c 286 § 23.] 15 268 90.58.240 ADDITIONAL AUTHORITY GRANTED DEPARTMENT AND LOCAL GOVERNMENTS. I n a d d i t i o n t o any o t h e r powers g r a n t e d h e r e u n d e r , the department and l o c a l governments may: (1) A c q u i r e l a n d s and easements, w i t h i n s h o r e l i n e s o f t h e s t a t e by p u r c h a s e , l e a s e , o r g i f t , e i t h e r a l o n e o r i n c o n c e r t w i t h o t h e r g o v e r n m e n t a l e n t i t i e s , when n e c e s s a r y t o a c h i e v e i m p l e m e n t a t i o n o f master programs adopted h e r e u n d e r ; (2) A c c e p t g r a n t s , c o n t r i b u t i o n s , and a p p r o p r i a t i o n s from -any agency, p u b l i c o r p r i v a t e , o r i n d i v i d u a l f o r t h e p u r p o s e s o f t h i s c h a p t e r ; (3) A p p o i n t a d v i s o r y committees t o a s s i s t i n c a r r y i n g o u t t h e p u r p o s e s o f t h i s c h a p t e r ; (4) C o n t r a c t f o r p r o f e s s i o n a l o r t e c h n i c a l s e r v i c e s r e q u i r e d by i t w h i c h cannot be p e r f o r m e d by i t s employees. [1972 1 s t e x . s . 53 § 1; 1971 e x . s . c 286 § 24.] 90.58.250 DEPARTMENT TO COOPERATE WITH LOCAL GOVERNMENTS —GRANTS FOR DEVELOPMENT OF MASTER PROGRAMS. The department i s d i r e c t e d t o c o o p e r a t e f u l l y w i t h l o c a l governments i n d i s c h a r -g i n g t h e i r r e s p o n s i b i l i t i e s under t h i s c h a p t e r . Funds s h a l l be a v a i l a b l e f o r d i s t r i b u t i o n t o l o c a l governments on t h e b a s i s o f a p p l i c a t i o n s f o r p r e p a r a t i o n o f m a s t e r programs. Such a p p l i c a t i o n s s h a l l be s u b m i t t e d i n a c c o r d a n c e w i t h r e g u l a t i o n s d e v e l o p e d by t h e department. The department i s a u t h o r i z e d t o make and a d m i n i s t e r g r a n t s w i t h i n a p p r o p r i a t i o n s a u t h o r i z e d by the l e g i s l a t u r e t o any l o c a l government w i t h i n t h e s t a t e f o r t h e purpose o f d e v e l o p i n g a master s h o r e l i n e s program. No g r a n t s h a l l be made i n an amount i n e x c e s s o f t h e r e c i p i e n t ' s c o n t r i -b u t i o n t o the e s t i m a t e d c o s t o f such program. [1971 1st e x . s . c 286 § 25.] 90.58.260 STATE TO REPRESENT ITS INTEREST BEFORE FEDERAL AGENCIES, INTERSTATE AGENCIES AND COURTS. The state, through the department of ecology and the attorney general, s h a l l repre-sent i t s i n t e r e s t before water resource regulation management, development, and use agencies of the United States, including among others, the federal power commission, environmental pro-tecti o n agency, corps of engineers, department of i n t e r i o r , department of a g r i c u l t u r e and the atomic energy commission, before i n t e r s t a t e agencies and the courts with regard to a c t i v i -t i e s or uses of shorelines of the state and the program of t h i s chapter. Where federal or i n t e r s t a t e agency plans, a c t i v i t i e s , or procedures c o n f l i c t with state p o l i c i e s , a l l reasonable steps av a i l a b l e s h a l l be taken by the state to preserve the i n t e g r i t y of i t s p o l i c i e s . [1971 1st ex.s. c 286 § 26.] 90.58.270 NONAPPLICATION TO CERTAIN STRUCTURES, DOCKS, DEVELOPMENTS, ETC., PLACED IN NAVIGABLE WATERS--NONAPPLICATION TO CERTAIN RIGHTS OF ACTION, AUTHORITY. (1) Nothing i n t h i s s t a t u t e s h a l l c o n s t i t u t e a u t h o r i t y f o r r e q u i r i n g or o r d e r i n g the removal of any s t r u c t u r e s , improvements, docks, f i l l s , or 16 269 iir-v(.'Lopnii.-nts p l a c e d i n n a v i g a b l e w a t e r s p r i o r to December 4, I'XJ') , and the consent and a u t h o r i z a t i o n o f the s t a t e .of Washing-ton to the impairment of p u b l i c r i g h t s o f n a v i g a t i o n , and c o r o l l a r y r i g h t s i n c i d e n t a l t h e r e t o , caused by the r e t e n t i o n and maintenance o f s a i d s t r u c t u r e s , improvements, d o c k s , f i l l s or developments are hereby g r a n t e d : P r o v i d e d , That the c o n s e n t h e r e i n g i v e n s h a l l n o t r e l a t e t o any s t r u c t u r e s , i m p r o v e -ments, d o c k s , f i l l s , o r developments p l a c e d on t i d e l a n d s , s h o r e -l a n d s , o r beds u n d e r l y i n g s a i d w a t e r s w h i c h a r e i n t r e s p a s s o r i n v i o l a t i o n o f s t a t e s t a t u t e s . (2) N o t h i n g i n t h i s s e c t i o n s h a l l be c o n s t r u e d as a l t e r i n g o r a b r i d g i n g any p r i v a t e r i g h t o f a c t i o n , o t h e r t h a n a p r i v a t e r i g h t w h i c h i s based upon the i m p a i r m e n t o f p u b l i c r i g h t s c o n -s e n t e d t o i n s u b s e c t i o n (1) h e r e o f . (3) N o t h i n g i n t h i s s e c t i o n s h a l l be . c o n s t r u e d as a l t e r -i n g o r a b r i d g i n g the a u t h o r i t y of the s t a t e o r l o c a l governments to s u p p r e s s or abate n u i s a n c e s o r t o a b a te p o l l u t i o n . (4) S u b s e c t i o n (1) o f t h i s s e c t i o n s h a l l a p p l y t o any case p e n d i n g i n t h e c o u r t s o f t h i s s t a t e on June 1, 1971 r e l a t -i n g t o t h e r e m o v a l o f s t r u c t u r e s , improvements, d o c k s , f i l l s , o r d e v elopments based on t h e i m p a i r m e n t o f p u b l i c n a v i g a t i o n a l r i g h t s . [1971 1 s t e x . s . c 286 § 27.] 90.5 8.2 80 APPLICATIONS TO ALL STATE AGENCIES, COUNTIES, PUBLIC AND MUNICIPAL CORPORATIONS. The p r o v i s i o n s o f t h i s c h a p t e r s h a l l be a p p l i c a b l e t o a l l a g e n c i e s of s t a t e government, c o u n t i e s , and p u b l i c and m u n i c i p a l c o r p o r a t i o n s and t o a l l s h o r e l i n e s of t h e s t a t e owned o r a d m i n i s t e r e d by t h e n . [1971 1 s t e x . s . c 286 § 28.] 90.58.290 RESTRICTIONS AS AFFECTING FAIR MARKET VALUE OF PROPERTY. The r e s t r i c t i o n s imposed by t h i s c h a p t e r s h a l l be c o n s i d e r e d by the c o u n t y a s s e s s o r i n e s t a b l i s h i n g t h e f a i r m a r ket v a l u e o f t h e p r o p e r t y . [1971 1 s t e x . s . c 286 § 29.] 90.58.300 DEPARTMENT AS REGULATING STATE AGENCY—SPECIAL AUTHORITY. The department of e c o l o g y i s d e s i g n a t e d t h e s t a t e agency 1 r e s p o n s i b l e f o r t h e program o f r e g u l a t i o n o f t h e s h o r e -l i n e s o f t h e s t a t e , i n c l u d i n g c o a s t a l s h o r e l i n e s and t h e s h o r e -l i n e s o f the i n n e r t i d a l w a t e r s of t h e s t a t e , and i s a u t h o r i z e d t o c o o p e r a t e w i t h the f e d e r a l government and s i s t e r s t a t e s and t o r e c e i v e b e n e f i t s o f any s t a t u t e s o f t h e U n i t e d S t a t e s when-e v e r e n a c t e d w h i c h r e l a t e t o programs o f t h i s c h a p t e r . [1971 1 s t e x . s . c 286 § 30.] 90 58 310 DESIGNATION OF SHORELINES OF STATE-WIDE S I G N I -FICANCE BY LEGISLATURE—RECOMMENDATION BY DIRECTOR, PROCEDURE. A d d i t i o n a l s h o r e l i n e s of the s t a t e s h a l l be d e s i g n a t e d shore-l i n e s of s t a t e - w i d e s i g n i f i c a n c e o n l y by a f f i r m a t i v e a c t i o n of the l e g i s l a t u r e . 17 I 270 The d i r e c t o r of the department may, however, from time to time, recommend to the l e g i s l a t u r e areas of the s h o r e l i n e s of the s t a t e which have state-wide s i g n i f i c a n c e r e l a t i n g to s p e c i a l economic, e c o l o g i c a l , e d u c a t i o n a l , developmental, r e c r e a t i o n a l , or a e s t h e t i c values to be designated as s h o r e l i n e s of state-wide s i g n i f i c a n c e . P r i o r to making any such recommendation the d i r e c t o r s h a l l hold a p u b l i c hearing i n the county or counties where the shore-l i n e under c o n s i d e r a t i o n i s l o c a t e d . I t s h a l l be the duty of the county commissioners of each county where such a hearing i s conducted t o submit t h e i r views w i t h regard t o a proposed d e s i g -n a t i o n to the d i r e c t o r at such date as the d i r e c t o r determines but i n no event s h a l l the date be l a t e r than s i x t y days a f t e r the p u b l i c hearing i n the county. [1971 1st ex.s. 286 § 31.] 90.58.320 HEIGHT LIMITATION RESPECTING PERMITS. No per-mit s h a l l be i s s u e d pursuant to t h i s chapter f o r any new or expanded b u i l d i n g or s t r u c t u r e of more than t h i r t y - f i v e f e e t above average grade l e v e l on s h o r e l i n e s of the s t a t e t h a t w i l l o b s t r u c t the view of a s u b s t a n t i a l number of r e s i d e n c e s on areas a d j o i n i n g such s h o r e l i n e s except where a master program does not p r o h i b i t the same and then only when o v e r r i d i n g con-s i d e r a t i o n s of the p u b l i c i n t e r e s t w i l l be served. [1971 1 s t ex.s. c 286 § 32.] \ 90.58.330 STUDY OF SHORELINES OF CITIES AND TOWNS SUB-MITTED TO LEGISLATURE—SCOPE. The department of ecology, the attorney g e n e r a l , and the harbor l i n e commission are d i r e c t e d as a matter of high p r i o r i t y to undertake j o i n t l y a study of the l o c a t i o n s , uses and a c t i v i t i e s , both proposed and e x i s t i n g , r e l a t i n g t o the s h o r e l i n e s of the c i t i e s , and towns of the s t a t e and submit a r e p o r t which s h a l l i n c l u d e but not be l i m i t e d to the f o l l o w i n g : (1) Events l e a d i n g to the establishment of the v a r i o u s harbor l i n e s p e r t a i n i n g to c i t i e s of the s t a t e : (2) The l o c a t i o n of a l l such harbor l i n e s ; (3) The a u t h o r i t y f o r establishment and c r i t e r i a used i n l o c a t i o n of the same; (4) Present a c i t i v i t i e s and uses made w i t h i n harbors and t h e i r r e l a t i o n s h i p to harbor l i n e s ; (5) Legal aspects p e r t a i n i n g to any u n c e r t a i n t y and i n c o n -s i s t e n c y ; and (6) The r e l a t i o n s h i p of f e d e r a l , s t a t e and l o c a l govern-ments to r e g u l a t i o n of uses and a c t i v i t i e s p e r t a i n i n g t o the area of study. The r e p o r t s h a l l be submitted to the l e g i s l a t u r e not l a t e r than December 1, 1972. [1971 1st ex.s c 286 § 33.] 90.58.340 USE POLICIES FOR LAND ADJACENT TO SHORELINES, DEVELOPMENT OF. A l l s t a t e agencies, c o u n t i e s , and p u b l i c and m u n i c i p a l c o r p o r a t i o n s s h a l l review a d m i n i s t r a t i v e and manage-18 271 ment p o l i c i e s , r e g u l a t i o n s , p l a n s , and o r d i n a n c e s r e l a t i v e t o l a n d s under t h e i r r e s p e c t i v e j u r i s d i c t i o n s a d j a c e n t t o the s h o r e l i n e s o f the s t a t e so as t o [to] a c h i e v e a use p o l i c y on s a i d l a n d c o n s i s t e n t w i t h the p o l i c y o f t h i s c h a p t e r , the g u i d e l i n e s , and the master programs f o r the s h o r e l i n e s of the s t a t e . The department may d e v e l o p recommendations f o r l a n d use c o n t r o l f o r such l a n d s . L o c a l governments s h a l l , i n d e v e l o p i n g use r e g u l a t i o n s f o r such a r e a s , t a k e i n t o c o n s i d e r -a t i o n any recommendations d e v e l o p e d by the department as w e l l as any o t h e r s t a t e a g e n c i e s o r u n i t s o f l o c a l government. [1971 1 s t e x . s . c 286 § 34.] 90.58.350 NONAPPLICATION TO TREATY RIGHTS. N o t h i n g i n t h i s c h a p t e r s h a l l a f f e c t any r i g h t s e s t a b l i s h e d by t r e a t y t o w h i c h the U n i t e d S t a t e s i s a p a r t y [1971 1 s t e x . s . c 286 § 35.) [1971 1 s t e x . s . c 286 § 36.] 90.58.900 L I B E R A L CONSTRUCTION — 1 9 7 1 1 s t e x . s . c 286., >bj e x . s . c 286 § 37.] 90.58.910 SEVERABILITY--1971 1 s t e x . s . c 286. I f any p r o v i s i o n o f t h i s c h a p t e r , o r i t s a p p l i c a t i o n t o any p e r s o n o r l e g a l e n t i t y o r c i r c u m s t a n c e s , i s h e l d i n v a l i d , the r e m a i n d e r of the a c t , or the a p p l i c a t i o n of t h e p r o v i s i o n t o o t h e r p e r s o n s or l e g a l e n t i t i e s o r c i r c u m s t a n c e s , s h a l l n ot be a f f e c t e d . [1971 1 s t e x . s . c 286 § 40.] 90.58.920 EFFECTIVE DATE--1971 1 s t e x . s . c 286. T h i s c h a p t e r i s n e c e s s a r y f o r the immediate p r e s e r v a t i o n of the p u b l i c p e a c e , h e a l t h and s a f e t y , the s u p p o r t of the s t a t e government, and i t s e x i s t i n g i n s t i t u t i o n s . T h i s 1971 a c t s h a l l t a k e e f f e c t on June 1, 1971. The d i r e c t o r o f e c o l o g y i s a u t h o r -i z e d t o i m m e d i a t e l y t a k e such s t e p s as are n e c e s s a r y t o i n s u r e t h a t t h i s 1971 a c t i s implemented on i t s e f f e c t i v e d a t e . -[1971 1 s t e x . s . c 286 § 41.] 90.58.930 REFERENDUM TO THE PEOPLE—1971 ACT—DETERMIN-ING IF ACT CONTINUES IN FORCE AND EFFECT. T h i s 1 9 7 1 a c t con-s t i t u t e s an a l t e r n a t i v e t o I n i t i a t i v e 43. The s e c r e t a r y o f 19 272 s t a t e i s d i r e c t e d to p l a c e t h i s 1971 a c t on the b a l l o t i n con-j u n c t i o n w i t h I n i t i a t i v e 43 a t the next ensuing r e g u l a r e l e c -t i o n . T h i s 1971 a c t s h a l l c o ntinue i n f o r c e and e f f e c t u n t i l the s e c r e t a r y of s t a t e c e r t i f i e s the e l e c t i o n r e s u l t s on t h i s 1971 a c t . I f a f f i r m a t i v e l y approved a t the ensuing r e g u l a r g e n e r a l e l e c t i o n , the a c t s h a l l c o n t i n u e i n e f f e c t t h e r e a f t e r . [1971 1 s t e x . s . c 286 § 4 2 . ) NEW SECTION. (This s e c t i o n was not c o d i f i e d a t time of p r i n t i n g . ) The s h o r e l i n e s h e a r i n g s board may adopt r u l e s and r e g u l a t i o n s governing the a d m i n i s t r a t i v e p r a c t i c e and procedure i n and b e f o r e the board. [19 71 c 203 § 3 . ] 20