EXTENT OF PHYS’GAL PLANNING ACTIVITY BY
STATE AGENClES IN THE SMTE OF MICHIGAN
19:63

Thesis far the Degree of M. U. P.
Wigwam STATE UMVERSITY
DENMS C. MILLER
198.7

    
  
   

LIBRARY L

Michigan State I

mvcrsity

ifitb‘a

¢ 31m?

ABSTRACT

EXTENT OF PHYSICAL PLANNING ACTIVITY BY
STATE AGENCIES IN THE STATE OF MICHIGAN

1963

BY
Dennis G. Miller

Legislation introduced in the 70th Regular Session of the 1959
Michigan Legislature called for the creation of a Department of State
Planning. The Department of State Planning was to aid and assist
the governor and the state agencies in the furtherance of sound
development through a State Development Plan. The State Development
Plan was to coordinate the activities of the state agencies in
planning the physical development of land use, circulation, and

state facilities.

Every state is involved with problems dealing with highway
construction, education, water and mineral resources, conservation
and recreation, industrial development, agriculture, and any number
of other interests of statewide concern. All of these programs have
a definite bearing on each other and may no longer be treated as
separate entities. Unless the programs are coordinated, there is a
wasteful duplication of effort and the real possibility of a failure
to meet the needs and problems of the state. Because of these basic
interrelationships and the demand for competent action, state
government today requires more than ever before the ability and

capacity to plan on a comprehensive long-range basis.

The State of Michigan presently has no State Planning Department
charged with the function of preparing a State Development Plan. Yet
we learn of highways to be constructed, recreation land to be
acquired and developed, reservoirs to be built or universities to be
expanded. It can be assumed then that the individual state's agencies
are planning without a State Department of Planning and without
benefit of a State Development Plan to coordinate their planning

activities.

Eight state agencies were selected to determine to what extent
they were actually planning the physical development of the state.
The physical planning activities of these agencies were determined
on the basis of their administrative functions and then related to

the State Development Plan.

An analysis of these activities indicated that all eight state
agencies played an important and significant role in the physical
development of the state. The purpose of the State Development Plan
is to coordinate the activities of these single purpose state
agencies in the development of land use, circulation, and state
facilities. Legislation calling for the creation of a Department
of State Planning appears essential if this degree of coordination is

to be achieved.

EXTENT OF PHYSICAL PLANNING ACTIVITY BY
STATE AGENCIES IN THE STATE OF MICHIGAN

1963

by

Dennis G. Miller

A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER IN URBAN PLANNING

School of Urban Planning and Landscape Architecture

1967

ACKNOWLEDGMENTS

The author wishes to express his sincere appreciation to those
who, in one way or another, assisted in the preparation of this
thesis. Special appreciation is extended to Professor Stewart D.
Marquis, whose in depth understanding of state planning, provided
valuable comments and criticisms as my thesis advisor; to
Rose M. Harsh, who did the impossible; and to Barbee, Pam, and Jeb
for their patience and understanding during this erstwhile

adventure.

ii

TABLE OF CONTENTS

ACMWIJEMDENTS 000000....0..00.. ..... C.........0.. 00000

MRODUCTION 00.00..0.00.000000.00....00000000000.0.0.0.

CHAPTER

I. NEED FOR STATE PLANNING ......................
II. PHYSICAL PLANNING DETERMINANTS ....... ........
III. STATE DEVELOPMENT PLAN .......................
IV. EXTENT OF PHYSICAL PLANNING ACTIVITY .........
A. Department of Administration .......

B. Department of Agriculture ......... .

C. Department of Conservation .........

D. Department of Economic Expansion ...

E. Department of Health ...............

F. State Highway Department ... ..... ...

G. Department of Public Instruction ...

H. Water Resources Commission .... .....

V. ANALYSIS OF PHYSICAL PLANNING
ACTIVITIES BY STATE AGENCIES ...... ...........

VI. CONCLUSIONS 0000.00.00.0000....0.....0..0000.0

BIBLIOGRAPHY ..... ....... .... ......... ...... ............

iii

ii

10

14

19

20

26

29

37

40

52

58

61

67

75

78

INTRODUCTION

In the Michigan 70th Legislature, Regular Session of 1959, House
Bill Number 255 was introduced. The bill was to create, establish,
and define the duties and powers of a Department of State Planning,
providing for the orderly and sound development of the physical and
human resources of the state, the provisions of which are deemed
necessary for protecting and promoting the health, safety,

convenience, and prosperity of the citizens of the state.1

The Department of State Planning was to aid and assist the
governor and the state agencies in the furtherance of sound
development through a Comprehensive State Development Plan designed
to coordinate their activities. The State Development Plan was to
embody recommendations for physical and economic development of the
state, programs of capital facilities required to implement the State
Development Plan and recommendations on administrative and legislative
policies based upon studies and investigations of the resources and
facilities of the state and of existing problems of land use,
circulation, and state facilities as they affect the development of

the state.2

The State of Michigan presently has no State Planning Department

 

1House Bill Number 255, Michigan 70th Legislature, Regular
Session, 1959.

21bid.

charged with the function of preparing a State Development Plan. The
plan would coordinate the activities of the state agencies in the
development of physical and human resources by dealing with the
problems of highway construction, education, water and mineral
resources, conservation and recreation, industrial development,

agriculture, and other problems of statewide concern.

Nonetheless, we learn of highways to be constructed, recreation
land to be acquired and developed, reservoirs to be built,
universities to be expanded, and conservation practices to be used.
It would thus appear that state agencies in the State of Michigan
are indeed planning the physical development of the state without

coordinating their activities through a State Development Plan.

The purpose of this thesis is to determine to what extent state
agencies in the State of Michigan are planning the physical develop-
ment of the state without benefit of a State Development Plan to
coordinate their activities in planning land use, circulation, and

state facilities.

CHAPTER I

NEED FOR STATE PLANNING

Legislatures throughout the states have recognized that the need
for more and better services from state government has increased
rapidly in recent years. The problem of providing these services is
not only more complex but also the relationship of state and local

responsibilities for them is more evident.

With the increase and change in distribution of population, the
advances in technology and the advent of faster means of transportation
and communication, significant changes have occurred and are occurring
in our society. Many development problems which formerly could be
handled on a local basis or were of no serious concern now far
outstrip the capabilities of local jurisdiction and require state

action.

Every state is involved with problems dealing with highway
construction, education, water and mineral resources, conservation
and recreation, industrial development, agriculture, and any number
of other interests of statewide concern. All these programs have a
definite bearing on each other and may no longer be treated as
separate entities. Unless these programs are coordinated and
geared in the same direction at the executive level, there is a wasteful
duplication of effort and the real possibility of failure to meet the

needs and problems of the state. Because of these basic interrelation-

ships and the demand for competent action, state government today
requires more than ever before the ability and capacity to plan on

a comprehensive long range basis.3

Nelson A. Rockefeller, in an excerpt from "The Future of
Federalism", states that "The problems of urbanism have outrun
individual local government boundaries, legal powers, and fiscal
resources. And the national government is too remote to sense and
to act responsibly on the widely varying local or regional concerns
and aspirations. The states - through their relations with local
governments, their greater resources and power, and their closeness
to the people and problems - can and should serve as the leaders in
planning and the catalysts in developing cooperative action at

local-state-federal levels."4

In a Study by the Council of State Governments, "Planning
Services for State Government, A Summary of the Need and Suggestions
for Organization", the need for state planning is emphasized as a
result of the complex problems of recent decades which have thrust
vast responsibility upon state governments greatly increasing the

breadth and variety of their services and functions. This growing

 

3Committee on State Planning, American Institute of Planners,
State Planning: ,Its Function and Organization, A.I.P. Journal,
Volume 25, Number 4, Page 209, November 1959.

4Office for Regional Development, Albany, 1964, Change/Challenge/
Response, A Development Policy for New York State, Page 121.

 

scope of government indicates clearly the need is the state's for
planning services: for a systematic formulation of state goals, for
a comprehensive inventory of present and emerging problems, and for
advice and recommendations on meeting them as effectively,

economically, and democratically as possible.5

The State of Wisconsin, of whose situation undoubtedly describes
many states, is in a period of massive transition. Since the turn of
the century, the state has undergone a major reorientation from a
rural way of life to highly industrialized and urban modes of living.
With these changes have come a number of problems and opportunities

of statewide significance:

- a closer integration of Wisconsin's economy with.world,
national, and midwestern markets, creating unprecedented
possibilities for growth or decline in various industry

groups in the state

- vast changes in raw materials, technology, and consumer
preferences, shifting the relative advantages of
resources, forms of transportation and industrial
locations, and creating pockets of economic distress in

the midst of general prosperity

 

5The Council of State Governments, Planning Services for State
Government, 1956, Page 1.

 

 

rapid increases in population and shifts in the
p0pulation's age composition, multiplying the demands on
educational, welfare, recreation, and transportation

facilities

rising levels of personal income, mobility, and leisure
time, magnifying the needs for public facilities beyond
the levels which would result from population changes

alone

the rural to urban population migration, swelling the
cities, changing the economic functions of rural
communities, and creating major problems of social and

economic readjustment

a haphazard dispersion of population on the fringes of
cities, along the state's major highways, and in remote
places on the shores of lakes and streams, complicating
tax and service problems and destroying not only prime
agricultural soils but also the usefulness of public

transportation and recreation resources

the growth of traffic congestion, parking problems, and

building decay at the core of cities, causing the decline
of trade, property values and population in central areas,
and forcing the dispersion of urban functions that should

be centralized

- extensive soil erosion and water pollution, lowering the

quality of natural resources

- overintensive agricultural problems and too intensive use
of recreational resources, reducing the state's funds of
wildlife habitat and outdoor recreation resources in

areas where they are in greatest demand6

These problems and opportunities must be met by a combination
of efforts by all levels of government, with the state playing a
pivotal role. Local governmental units have important responsibilities
for the provision of municipal services and the orderly development
of neighborhoods and communities but they depend upon regional, state,
and federal agencies for solutions to problems that overlap or extend

beyond political boundaries.

For its part, state government is eminently capable of meeting
this need. It covers a broad but not excessively large geographic
area. It has extensive powers to legislate and to implement its
policies and political weight to gain favorable consideration of
its advice and requests vis-a-vis other levels of government. The
state needs, however, an overall framework of policies to guide the

activities of state operating agencies where they affect matters of

 

6State of Wisconsin, Department of Resource Development, A
Plan for Wisconsin, 1963, Page 4.

regional or statewide concern.7

To focus this responsibility at the state level, the Wisconsin
legislature created the Department of Resource Development in 1959
and authorized it "to promote development and the maximum wise use
of natural and human resources of the state so as to provide a
balanced and dynamic economy." The legislature further provided
that the department "make and coordinate plans with federal,
regional, local, and other state agencies for the efficient
development of the state's human and natural resources" and
"coordinate the activities of and give assistance to state and
local private organizations and committees interested in obtaining

new economic enterprises."8

Governor John B. Swainson expressed concern for state planning
in Michigan in "An Abstract of the Grant Application Made to the
U.S. Housing and Home Finance Agency" in their request for funds to

undertake "A State Resource Development Planning Program.for Michigan."

Both the Michigan State Highway Department and the Michigan
Conservation Department have developed a long range plan. It has
become apparent, however, that present planning operations are

insufficient to meet rapidly changing economic conditions,

 

7State of Wisconsin, Department of Resource Development, A Plan
for Wisconsin, 1963, Page 4.

 

81bid.

population growth, changing and expanding needs in recreation, mental
health facilities, college and university future needs, the
transportation system, agriculture, and the many processes which are

leading into rapidly increasing urbanization of the state.

There are many unique influences which affected the character of
this change, ranging from the intense automation of industry to the
extreme stresses placed upon many of the northern Michigan cities and
villages wherein the population fluctuates as much as eight-fold

during the course of a year.

These and other similar phenomena of the past two decades make
it imperative that a comprehensive analysis and plan be undertaken
at this time to develop the state's resources in order to realize
the opportunities ahead. With a population growth of over 22% in
the last decade, the future state system.and facilities must be
planned and integrated with the federal and municipal development

programs.9

 

9John B. Swainson, Governor, State of Michigan, A State Resource
Development Planning Program for Michigan.

 

CHAPTER II

PHYSICAL PLANNING DETERMINANTS

In order to determine the extent of physical planning activities
by state agencies, it is first necessary to determine what is meant
by the term "physical planning" as compared to "non-physical
planning." It has been stated that the objective of state planning
is to provide for the orderly and sound development of the physical

and human resources of the state.

The New York State Planning Council, in its Annual Report for 1936,

defined the scope of state planning as follows:

Theoretically, the scope of state planning is as broad

as the purpose for which government itself is instituted,
that is, the promotion of the general welfare of the
people. Anything that affects the general welfare of the
people, may, at some time, become an appropriate subject
for the application of the planning or policy formulating

process.

But the council added:

Practically, however, the scope of state planning at any
particular period will be limited to those physical,
social, and governmental sectors in which statewide

developments or change are taking place, or in which

10

11

maladjustments are believed to exist. These maladjustments

call for a reappraisal of past policies and methods.

There has been considerable discussion on the issues of whether
the state planning should be limited to "physical" planning or
expanded to include types of "social" planning. If state planning
is to be comprehensive planning, it must certainly include planning
affecting both the physical environment and "non-physical" matters.
Nevertheless, for the immediate future, the major emphasis of state
planning will tend to be on those types of state activity which
affect the physical environment. Land, water, and public works
ramify into every activity of the state government; however, too
prolonged concentration of attention on "physical" matters is likely

to defeat the end of overall planning.

The fact should not be forgotten that there can be

- 10 year plans for the reduction of infant mortality

as well as 6 year public works programs

- 15 year plans for the elimination of illiteracy as

well 10 year programs of forest land acquisition

- 20 year plans for the reduction of juvenile deliquency

as well as 10 year highway programs

- 15 year programs for the reduction of industrial
accidents as well as 10 year plans for water

conservation

12

These welfare plans are directed toward the conservation of
human resources while plans for public works, forest land
acquisition, highway programs, and plans for water conservation are
directed toward the conservation of natural resources so as to

provide a balanced and dynamic economy.

Physical planning must avoid certain dangers, however. The
criteria of planning are social and economic as well as engineering;
physical plans must be based upon an understanding of the social and
economic needs of the state. In a Land Use Plan, for example, the
demarcation of submarginal areas does not depend solely on the
characteristics of the soil but on proximity to markets, the type
and costs of transportation available, the price and prospective
prices of products, the price of fertilizer, competition of industry,
and its effect on farm wage rates, and a confusing variety of

factors.

In turn, a program for the utilization of submarginal land must
consider the value to the public of alternative uses; forests for
timber as against game refuges or parks. And each possible use
opens up other questions, such as: how much lumber could the area
produce, what would it cost, what would it be worth, and what can
be done to ameliorate the lot of the people in the area.
Reforestation is not for the purpose simply of growing more trees
but to conserve the soil, to furnish recreational areas, to control
floods, to provide needed lumber, or for some other social or

economic end. It is these ends, plus the technical feasibility of

13

the undertaking, which must govern physical planning.10

There is no sharp line between the spheres of "physical" and
"non-physical" planning; they interact and are related; however, in
determining the extent of physical planning activity in the State of
Michigan, it is deemed advisable at this time to concentrate on those
activities which concern themselves with the development of physical
environment. Examples of the physical environment include
conservation and recreation, educational facilities or water and

mineral resources.

 

10The States and Planning, National Resources Committee,
July 1938, Page 11.

 

CHAPTER III

STATE DEVELOPMENT PLAN

The State of California has recently adopted legislation
establishing the State Office of Planning which describes the
function of this office as "preparing, maintaining, regularly
reviewing, and revising a comprehensive long range, general plan

for the physical growth and development of the state."11

The plan for the State of California shall include findings of
fact and delineate physical growth and development problems and
potentialities of the state, a statement of the major objectives and
principles, a summary of the proposals expressed in the plan, and
recommendations for the most desirable general pattern of land use
and circulation within the state, and for the most desirable use
and development of land resources of the state, all considered in

respect to:

- present and future growth and trends and forecasts

thereof

- climate, water resources, and other relevant natural or

11Comment on the A.I.P. State Planning Committee's Report,
Journal of the American Institute of Planners, XXV, November 1959,
Page 216.

14

15

environmental factors

- the need to conserve and develop special types of land
and water resources of statewide significance including
but not limited to areas especially suited for agriculture,

forestry, mining, recreation, and fish and wildlife

- all other factors and conditions deemed to be relevant by

the State Office of Planning

Recommendations concerning the need for and the proposed general
purpose of major public and private works and facilities, which works
or facilities, or reservations of land or water therefore, by reason
of their function, size, extent, legal status, or for any other
cause, are of state concern; or the authorization, location or
construction of which are legally within the province or jurisdiction
of state agencies or officials, or which for any other cause are

appropriate subjects for inclusion in the State Development Plan.12

The Council of State Governments, in a Policy Statement on
State Planning, states that the bulk of a State Development Plan
consists of a series of integrated plans for land use, circulation,

and public facilities.13

12Comment on the A.I.P. State Planning Committee's Report,
Journal of the American Institute of Planners, XXV, November 1959,
Page 216.

 

13The Council of State Governments, State Planning, A Poligy
Statement, 1962, Page 14.

16

Similarly, the American Institute of Planners' Proposed
Position Statement on the State Responsibilities for Urban
Development states that the State Development Plan would,
depending on individual state needs, contain such elements as the

following:

- General Land Use Plan with breakdown by major land
use categories, such as urban development, agriculture,
mineral extraction, forests, and other types of open

space

- Circulation Plan setting forth state policy for the
balanced development of highway and public

transportation facilities

- State Facilities Plan projecting the future needs
for such statewide facilities as headquarters and
district state office buildings, state colleges and
universities, state health and welfare, and

correctional institutions

- Recreation and Open Spaces Plan for state and major
local facilities as well as federal recreation

areas

- Natural Resources Development Plan containing an

 

inventory and appraisal of the state's natural

resources and setting forth state policy for their

17

prudent exploitation, conservation, and replenishment

where appropriate and feasible14

Michigan House Bill Number 255 called for the State Development
Plan to contain recommendations for the physical development of the
state, based upon studies and investigations of land use, circulation,

and state facilities as they affect the development of the state.

The extent of physical planning activity by state agencies in
the State of Michigan is limited to those activities by state
agencies which affect the physical development of the state through
the planning of land use, circulation or state facilities. These

elements of the State Development Plan are shown in Illustration 1.

 

14Richard May, Jr., State Responsibilities for Urban Development,
a paper submitted at the 1963 Government Relations and Planning Policy
Conference, A.I.P.

18

 

 

ILLUSTRATION 1

CHAPTER IV

EXTENT OF PHYSICAL PLANNING ACTIVITY

Obviously, not all state agencies in the performance of their

administrative functions would necessarily become involved in

providing for the orderly and sound physical development of the

state 0

Michigan House Bill 255, in creating a Department of State

Planning, also provided for a State Planning Commission to coordinate

and formulate the State Development Plan. Those agencies which were

to be represented on the

- Department
- Department
- Department
- Department

- Department

of

of

of

of

of

- State Highway

- Department

of

State Planning Commission included the:

Administration
Agriculture
Conservation
Economic Expansion
Health

Department

Public Instruction

- Water Resources Commission

Because of the intended relationship of the State Planning

Commission and the State Development Plan, the extent of physical

planning activity by state agencies in the State of Michigan has

been limited to those agencies which were to be included in the

19

20

State Planning Commission. Physical planning activities were
determined by analyzing the functions of each agency and determining

their relationship to the State Development Plan and the plan

elements.

A. DEPARTMENT OF ADMINISTRATION

Located within the Department of Administration are the Budget
Division and the Building Division, both of which perform functions
related to the physical development of the state and the State

Development Plan.

The Budget Division prepares the State Budget, translating
gubernatorial policies into dollar terms through its recommended
expenditures as well as through the sources of revenue to finance
them. The State Budget is described as "a systematic plan of
ascertaining and meeting the financial needs of the several
departments, institutions, boards, commissions, and offices of the

state government and of the controlling state funds."15

The functions of the Budget Division are divided into four

sections:

 

15Report of the Department of Administration, November 1, 1962,
Page 7.

21

Administrative
Examining
Research

Operations

The Administrative Section provides overall direction of
the division and stenographic-clerical service to all

sections. In addition, the processing of administrative
reports and analyses of legislation submitted by agencies

is coordinated through this section.

The Examining Section includes a staff of budget examiners,

each assigned to one or more of the functional areas:

- Mental Health

- Public Welfare

- Education

- Public Safety

- Defense

- Adult Corrections

- Public Health

- Regulatory Services
- Conservation

- Recreation and Agriculture
- General Government

- Highways, etc.

They serve as liaison between the agencies of their

22

jurisdiction and the Department of Administration, the
Executive Office, and other agencies. The examiner
prepares budget recommendations, within policy limits,
and serves as agency advisor in administrative and fiscal
areas. He is called on to prepare for the governor, the
controller or the legislature, analyses of specific
activities of his assigned agencies. It is usual
procedure for the budget examiner to attend meetings of
legislative appropriation committees and of special
committees of administrative officials considering

programs or activities.

Primary responsibility of the Research Section is
estimating revenue. To provide estimates of accepted
accuracy, the section engages in analyses and projections
of economic activity. It prepares special reports and
statistical analyses for the governor, controller, and
other interested groups. It provides technical advice
and assistance to the Examining Section in the areas of
statistics, management and fiscal research, and automatic

data processing.

The Operations Section executes procedural aspects of
budgeting throughout the year. It checks the
mathematical accuracy of all agency budget requests. It
prepares "final copy" of the several budget documents and

checks for accuracy before submitting to the printer.

23

During the legislative session, the section prepares
appropriation bills to enact the governor's budget;
follows the course of appropriation bills through the
legislative process; and, when apprOpriation bills are
enacted into law, the section prepares and issues
allotment request forms to the several agencies. The
allotment forms, returned by the agencies, are checked
for appropriation and procedural compliance and, after
review by the budget examiners, are prepared for
submission to the Administrative Board. The Operations
Section also maintains the central records for the
Budget Division, which includes recording allotment
adjustments, allocations for capital outlay, the checking
of budgetary control reports, and coordination with

central accounting records throughout the fiscal year.16

Included in the functions of the Budget Division is the
preparation of the "Long Range Capital Outlay Needs" as requested by
state agencies. This study summarizes the requests for public health,
education, mental health, public welfare, defense, correctional

institutions and conservation, and recreational facilities.

The relationship of physical planning activities by the Budget

 

16Report of the Department of Administration, November 1, 1962,
Page 19.

 

24

Division to the State Development Plan is shown in Illustration 2.

The budgeting of expenditures by the Budget Division for state
facilities, such as public health, education or recreation, and for
additional land requirements for these facilities, has a direct
relationship to how the land is used and the development of state

facilities.

  

O

    

Conserva son

  

IACILITIES
PLAN

ILLUSTRATION 2

The Buildinngivision gives general supervisory control to
state properties representing a replacement cost investment of

approximately a billion and one-half dollars. This includes 1,600

25

buildings at some 40 state institutions and the equipment which is
required for their operation. It includes, also, the 25,000 acres

on which these buildings are situated.

Normal deterioration and obsolescence necessitate continuing
repair programs. An expanding Michigan population which requires a
comparable expansion of state services presents the need for new

physical facilities which must be designed and built.17

The division is responsible for developing and approving plans
and specifications for the construction and repair of all state
owned buildings and utilities.» It approves the appointment of
qualified architects and engineers, recommends the award of contracts
for construction, alteration and repair of facilities, and supervises
the conduct of authorized work projects. To further these tasks, the
division furnishes technical advice to agencies and establishes and

maintains an inventory of all state owned land and buildings.18

The Building Division also plays an important role in planning
the state's capital outlay program. It also provides technical
assistance to state agencies and the Budget Division in estimating

the cost of proposed construction for state facilities. It assists

17§epgrt of the Department of Administration, November 1, 1962,
Page 20.

18A Manual of State Government in Michigan, Bureau of
Government, University of Michigan, 1949, Page 22.

26

in determining the need and scope of special maintenance and
remodeling projects and in estimating operating costs of newly

constructed facilities.19

I

  

Publi
I.structi.n_

’udge
D visio

ILLUSTRATION 3

B. DEPARTMENT OF AGRICULTURE

The main activity of the Department of Agriculture is to foster

 

19Report of the Department of Administration, op. cit., Page 20.

27

and promote the agricultural interests of the state.20 In addition
to providing information on soil conservation, the department
determines lands suitable for agriculture and participates in water

management districts.

Physical planning activity by the Department of Agriculture is
limited to the drain section of the Agricultural Industry Division
which aids the legislative service bureau in the task of codifying
the drain laws, consults with counties on inter-county drain problems,
and may make recommendations as to the practicability or necessity of
county drains when applications are signed by the State Highway
Commissioner. Other functions of the division include cooperation
with the United States Department of Agriculture in the collection
and publication of information on agricultural production and

resources of‘Michigan.21

The extent of physical planning activities by the Department of

Agriculture is shown in Illustration 4.

 

20A Manual of State Government in'Michigan, op. cit., Page 22.

21Curtis 0. Baker, A Guide to the WOrk of Executive Agencies in
Michigan, Papers in Public Administration, Number 34, Institute of
Public Administration, University of Michigan, 1959, Page 78.

28

A r cultural
Highwa g. dust
visi'n

 

ILLUSTRATION 4

Through activities in conservation of agricultural land or
practices and water drainage management, the department has
influence on land use patterns in the State Development Plan by
designating land most suitable for agricultural use. Similarly,
recommendations by the Agricultural Industry Division concerning

drainage problems may have affect on the Circulation Plan.

29

C. DEPARTMENT OF CONSERVATION

The activities of the Department of Conservation provide for
the protection and conservation of the state's natural resources, the
development of outdoor recreation facilities, and establishing rules

and regulations concerning the use of land under its control.22

These activities are performed by the Fish, Forestry, Game,
Geological Survey, Land, and Parks and Recreation Divisions within

the Department of Conservation.

- The major activities of the Fish Division includes the

 

acquisition, development, and maintenance of public
fishing sites. The division has at the present time
over 850 sites of which only 50% are improved. There
is no overall statewide plan for additional land
acquisition. These sites were selected largely on the
basis of available land, needs of the fisherman, local
conservation officers, and in some instances, political
pressures. Land acquisition in the Capital Outlay
Program includes a minor amount for providing access to
fishing sites or for the purchase of additional land

adjacent to existing sites.

 

22A Manual of State Government in Michigan, op. cit.,
Page 42.

     
 

30

A policy agreement between the Fish Division, Game
Division, and the Forest Division on the development of
sites requires coordination of these divisions. The
coordination with the Land Division is essential since
the Land Division serves as a service agency on land
acquisition for all divisions within the Department of

Conservation.

The relationship of these activities to the State

Development Plan is shown in the illustration following:

 

STATE
FACILITIE‘
PLAN -

ILLUSTRATION 5

31

Through the activities of acquisition and development of
fishing sites, the Fish Division affects the physical
development of the state by recommending land use
patterns and developing state facilities. The division
maintains a coordinating role with the Game Division,
Forestry Division, and the Lands Division on the

development of sites for multi-purpose use.

The Department of Conservation also maintains a
coordinating role with the Department of Administration
in the preparation of a Capital Improvements Program for

land acquisition and site improvement.

The Forestry Division is responsible for sales, use

 

permits, reforestation, cultural operations, and
recreation use and development. At the present time
there are 3,700,000 acres of land owned by the State of
Michigan which has been classified according to
appropriate land use categories, i.e., primary use, game

use, good forest use, and high recreation use.

Development of this land into recreational use is

determined by local conservation agents. The Capital

Outlay Program for this division is not for land acquisition
but rather for site improvement to meet local needs.

Private clubs now own approximately 1,700,000 acres of

land within the State of Michigan.

32

Illustration 6, as shown below, indicates the extent of

the physical planning activity by the Forestry Division:

    

FACILITIE‘
PLAN

ILLUSTRATION 6

Land use recommendations for land currently owned by the
State of MHchigan have already been determined by the
Forest Division. Similarly, land has been determined

for high recreation use and site improvement for recreation
facilities. Site improvement funds necessitate a degree of
coordination with the Department of Administration for

capital outlay. The Department of Public Instruction,

33

has, on occasions, coordinated their activities with the
Department of Conservation in establishing school sites

as learning laboratories in the biological sciences.

The Game Division plans acquisition and development of
land for public hunting and cooPerates with farm owners

to improve private game habitats.

Activities of the Game Division are concerned with land

use patterns and state facilities of the State DevelOpment

Plan as shown in Illustration 7:

    

FACILITIE‘

ILLUSTRATION 7

34

A policy agreement between the Game, Land, Fish, and
Forestry Divisions on the development of sites requires
coordination to insure proper overall development
considerations. The Forestry Division, in coordination
with the Game Division, for example, determines which

lands owned by the state are best suited for game use.

Recommended land acquisition and development of game
areas requires the coordination with the Department of

Administration.

The Geological Survey Division studies rock formations
to determine mineral content, assessed valuations, and
favorable oil and gas exploration areas to assist the

director in enforcing the oil and gas conservation laws.

These activities affect the Land Use Patterns of the
State Development Plan by determining areas of natural
resource potential. This relationship is shown in

Illustration 8:

 

ILLUSTRATION 8

35

This division does not acquire land for natural resource
development and therefore does not coordinate its

activities with the Department of Administration.

The‘Lands Division administers all those state owned

 

lands under the jurisdiction of the Conservation
Department. It maintains all records pertaining to the
acquisition, disposition, sale, exchange of state lands,

the leasing of oil, gas, and mineral interests.

As a service agency, this division does not make any
policy decisions but rather handles the legal devices
necessary in performing its function. These activities
do not affect the overall physical development of the

state.

The Parks and Recreation Division is responsible for
acquiring, developing, maintaining, and making available
for the use of the public, open spaces, both land and
water, for recreation. The division promotes and
administers a group camping and outdoor education
program. It is responsible for the design, planning, and
development of state parks and recreation areas, prepares
drawings and specifications for construction of park
buildings, and supervises the construction and planning

of all improvements.

The division also determines recreation needs and develops

36

an overall plan for site acquisition and improvement.

 

ILLUSTRATION 9

The activities of the division concerned with the land

use development of the state for parks and recreation, the
construction of state recreation facilities, and the
location of highways to adequately serve and develop

these areas link the Department of Conservation to all
elements of the State Development Plan as shown in

Illustration 9.

37

D. DEPARTMENT OF ECONOMIC EXPANSION

This agency, reorganized on May 10, 1963, formerly called the

Department of Economic Development, is responsible for directing

and carrying out an economic expansion program for the state. The

activities of the Department of Economic Development, which will

probably be similar in the Department of Economic Expansion, are

performed by several divisions.

The'Ipdustrial Development Division, through personal
contacts, tries to bring new firms to Michigan and, in
an effort to keep existing plants in the state, aids
those industries which contemplate plant expansion or
relocation. The division maintains a file of available

industrial buildings which are suitable for occupancy.

The Area Development and Industry Service Division assists
communities and areas in their efforts to promote industry.
It advises and assists localities by forming community
industrial development organizations, making industrial
surveys, forming industrial districts, and establishing
industrial development corporations. It also helps small
'Michigan firms to find business opportunities and informs
them of sources of assistance on government procurement,

financial, marketing, and similar technical problems.

The Research Division prepares specialized brochures on

 

38

the state's industrial location advantages for use with
industrial prospects. It performs service research for
other divisions of the department, other state agencies,
organizations, and individuals. The division also

collects economic data on Michigan and records movement

of industry in the state.

- The lpformation Division publicizes Michigan's industrial

 

location advantages through newspapers, magazines, radio,

and television.

- The Administrative Division handles budget, personnel,

 

and office service functions and maintains liaison with
state and federal agencies. It is responsible for the
department's legislative program and provides staff
services for the State Economic Development Commission
and its advisory committees. The division also reviews,

for approval, all county zoning ordinances.23

The activities of the Department of Economic Expansion, which
are primarily service-oriented for industries and communities, obtain
information concerning the State Development Plan, such as
transportation and public facilities for purposes of promoting

economic advantages in the State of Michigan. The Administrative

 

23A Manual of State Government in Michigan, op. cit.,
Page 43.

39

Division, in the review of county zoning ordinances and advising
planning agencies, may affect the Land Use Plan with respect to
industrial sites. Similarly, such a review could influence the

location of highways in an effort to develop industrial sites.

The relationship of these activities and the State Development

Plan is illustrated below:

 

ILLUSTRATION 10

40

E. DEPARTMENT OF HEALTH

0f the many divisions in the Michigan Department of Health,
only one, the Division of Engineering, with sections in Water Supply,
Sewerage, and Sewage Treatment, and Environmental Sanitation, performs
functions directly associated with the elements of the State Develop-

ment Plan through physical planning activities.

- The Section of Water Supply has the responsibility for
the execution of the division activity in respect to
water supply. In the exercise of this responsibility,
it examines plans for all public water supplies or
extensions and, if approved, issues permits for their
construction. It inspects sites for proposed well
installations. It functions through the entire
development of such projects, beginning with the
preliminary educational work necessary to initiating
such programs, on through its planning, construction,
and operation phases. It determines the need for
treatment of the water and supervises the operation of

such works.

A considerable amount of attention is given to the
adequacy of sources of supply, both as it relates to
quality and quantity. The increasing load from sewage

and industrial waste treatment plants on our lakes and

41

streams makes this problem more complex. A critical
evaluation is given to locations of new water works

intakes and to existing intakes.

The problems of water supply in the fringe areas
contiguous to the larger metr0politan centers have been
multiplying. In the light of probable economic develop-
ments in Michigan, this problem is not likely to diminish
in the near future. The complexity and magnitude of these
problems dictate that sound, long-range, and timely
planning be undertaken. Section activity in this has
increased tremendously and, in many cases, section
engineers function more or less as catalysts so to speak,
during such planning phases, if not actually providing

the impetus behind such planning.24

The Section of Water Supply, in performing its function
of examining all public water supplies, influences the
Land Use Plan within the state by approving and issuing
permits for construction. This function includes the
examination and approval of public water supplies with
respect to state facilities, thereby affecting the

location and future planning of statewide facilities.

 

24Program Plan, Division of Engineering, Michigan Department of
Health, Page 2.

 

42

Examining water supplies necessitates research as to the
adequacy of water sources and locations. In respect to
this function, the Division of Engineering compiles and
publishes information on public water supplies in

Michigan.

The Water Supply Section also provides valuable
assistance in the planning phases to all agencies

concerned with water supply.

The extent of physical planning activity in the Water
Supply Section is shown in relation to the State

Development Plan in Illustration ll.

 

ILLUSTRATION 11

43

The Section of Sewerage and Sewage Treatment has the
responsibility in the matter of supervisory control of
sewerage systems serving the public similar to that of

the Section of Water Supply in that field. Section
responsibility extends likewise from the planning

through to the operation of the completed project.
Treatment works constitute the phase of the work
receiving greatest publicity. The work of the section

is necessarily closely integrated with the activities

of the Water Resources Commission. Whether a specific
project for waste treatment results from local initiation,
from commission activity, or from other inspiration, the
results so far as section activity is concerned, is not
greatly different in magnitude. In any case, the section
staff is called upon to explain projects to groups; to
review the specific problem with the consultant and
governing body of the community; to examine the basis of
design and the plans and specifications; and when approved,
to issue permits for construction of the work; to suggest
methods of financing; and finally to supervise operations;

all to the end of preventing unlawful pollution.

The section may, under department regulation and
following a plan developed under the guidance of the
Attorney General, suggest and issue special form and

conditions of construction permits for sewer extensions

44

where devices for treatment of sewage are not immediately
available. It consults with the staff of and is often
called upon by the Water Resources Commission for advice
in specific problems and matters of general policy. It

is frequently called upon for assistance by county drain
commissioners or inter-county drainage boards. Its

advice and assistance is sought by industries, designers,
manufacturers of equipment for waste treatment, sportsmen's
groups, civic organizations, engineers, financial
consultants, attorneys, local health services, educational
institutions, as well as governmental agencies at every

level.25

Similar to the Section of Water Supply, the Section of

Sewerage and Sewer Treatment, in performing supervisory
control of sewerage systems serving the public, affects
the Land Use Patterns of the state through the exercise
of its control. The application of this control applies
to state facilities and therefore has a bearing on their

location.

 

25Program Plan, Division of Engineering, Michigan Department of
Health, Page 3.

 

45

    
 

- . of
~erage and
Sew r Tre tment

' esourc ‘ 3

ILLUSTRATION 12

The nature of sewerage control necessitates a degree of
coordination with the Water Resources Commission and

their concern on Pollution Abatement Control.

A significant amount of assistance is provided by this
section to various groups, drain commissions, inter-county
drainage boards, industries, clubs, attorneys, educational

institutions, and governmental agencies at every level.

46

The extent of physical planning activity in the Sewerage
and Sewer Treatment Section is shown in relation to the

State Development Plan Elements in Illustration 12.

The Section of Environmental Health has a diversified
program serving primarily as a consulting agency to
local health agencies. The activities of this section

can be best described in the following manner:

- Trailer Coach Parks
Plan review, inspection, licensing, operations,
conferences, enforcement. Cooperative with
local agencies and direct service. Formulation

and revision of forms, standards, etc.

- Report Sanitation
A general resort sanitation program. Consultant
to local departments and direct service.
Preparation of pamphlets, recommend standards,
record forms, advisory to resort associations,

educational institutions.

- Septic Tank Cleaners
An inspection and licensing operation.
Consultant to local health departments and

direct service.

- Housing

47

Housing
Chiefly a consultant service to other governmental
agencies and state departments. Some inspection,
some plan review, conference. Direct service on

FHA and VA housing in some areas.

Milk Sanitation
A cooperative program.with Department of
Agriculture and local health departments. Some

inspection, consultation, and certification.

Food Sanitation
Almost exclusively a consultant service to
local health departments; chiefly an educational

program.

Interstate Carrier - Food, Milk
Chiefly a cooperative program with USPHS for
railroads, bus terminals, vessels, and airports.

Some field inspection, some report review.

School Sanitation
Chiefly a cooperative and consultant program
with Department of Public Instruction and local
health departments. Some field inspection, plan
review, conference with architects and school

officials.

48

- Water Supply and Sewage for Homes, Schools,
Semi-Public Installations, etc.
Chiefly a consultant service to local health
departments. Some direct services. Field
inspections, plan review. Sample collection

and reporting.

- Hospitals, Maternity Homes, Boarding Homes,
Sanitarium, etc., Sanitation
Chiefly a cooperative and consultant service
to other state and governmental agencies.
Field inspection, plan review, conferences with
management, architects, and builders,

preparation of standards are involved.

- Nuisance Investigations
Chiefly a consultant service to local health
departments and law enforcing agencies. Some
direct services. Field investigations,
reporting, occasionally enforcement
proceedings are undertaken. Referral of
complaints and processing of petitions. Office

consultations.

- Mattress Sanitation (Labeling and Sterilization)
Chiefly answering out-state inquiries relative

to state law requirements and approval of labels.

49

Close working relationship with Detroit City

Ordinance.

- Garbage Disposal
This activity is closely allied to nuisance,
insect, and rodent control programs. Largely
a consultant and educational program. Recent

legislation was creating abnormal activity in

this program item.

- Training and Recruitment
A cooperative activity undertaken to secure
and maintain adequate and properly trained
sanitation personnel. Involves a great amount

of conference type activity.

- Consultation Services to Local Health Services
Frequent reference through the listed items
indicates the great extent to which this
section's activities are involved in

consultation with local health units.

There are a great number of program items that could
properly be included in a complete environmental program.
Department policy and budgetary limitations determines
how, when, and if they are to be undertaken. Home
safety, air pollution, smoke abatement, noise abatement,

mosquito control, and weed control are illustrative of

50

such items. The matter of land subdividing is not
presently subject to any direct supervision by health
authorities, yet the extent and manner of platting has
very great effect upon sanitation facilities. Substantial
interest in regional planning and administration of many
types of sanitation facilities is developing and is

demanding more and more division attention.26

The Section of Environmental Health, as just described,
encompasses a great range of activities. Many of these
concerns, such as those with trailer coach parks, resort,
sanitation, housing, school sanitation, hospitals,
maternity homes, boarding homes, and sanitariums,

comprise the Land Use Plan within the state. Any activity
this section performs in which their location is dependent

on their approval, is affecting the Land Use Plan.

In performing the activities of the Section of
Environmental Health, there is constant assistance
provided to all levels of government and to all concerned
with any of their activities. The Department of Public
Instruction coordinates its activity in school sanitation

with this section and local health departments.

 

26Program Plan, Division of Engineering, Michigan Department of
Health, Page 6.

 

51

The extent of physical planning activity in the Section
of Environmental Health is shown in relation to the State

Development Plan in Illustration l3.

   

     
   
 

STATE

FACILITIE.
PLAN

ILLUSTRATION 13

The Division of Engineering of the Michigan Department of
Health has prepared Suggested Procedures for Land Development,
dealing directly with the environmental health problems as related
to future subdivisions. The Section of Environmental Health also
issues Planning Guides on Environmental Health prepared by the

U.S. Department of Health, Education, and Welfare in an attempt to

52

correct environmental health problems.

F. STATE HIGHWAY DEPARTMENT

The State Highway Department undertakes duties to construct,
improve, and maintain trunk line and federal aid roads and necessary
bridges and grade separations, to operate and control state ferries,
to administer traffic control and establish rules and regulations in
conjunction with the state police, and to advise local governmental
units on all problems of road and street construction, improvement,

and maintenance.

The Office of Planning in the State Highway Department reviews
arterial street plans with local officials, aids in the formulation
of arterial systems and the adoption of one-way street operations,
and coordinates procedures for trunk line changes brought about by
current planning. These activities are performed in the following

divisions:

- The Planning Division determines, selects, and justifies
highway, road, and street systems on the basis of
functional classifications. It establishes procedures
for allocation of routes to the various systems and
prepares data for those agencies which must approve
routes and systems. It determines general locations for

new routes on interstate and trunk line systems and makes

53

field investigations. If, as a result of new routes,
certain roads are no longer needed in the state system,
this division initiates the transfer of such roads to
local authorities. It keeps current the delineation of
urban areas as required for the administration of federal
aid systems. The division interprets planning data for
purposes of expressway development and formulates state
plans for trunkline business route loops and land use
development controls. In cooperation with local
governments and planning agencies, the division deve10ps
urban and regional trunk line plans which are consistent
with overall patterns. Using data such as traffic studies,
the division draws up comprehensive trunk line development

plans for cities and urban areas.27

As shown in the following illustration, the activities of
the division directly affect all phases of the State

Development Plan.

 

27Baker, op. cit., Page 94.

54

 

ILLUSTRATION 14

The Programming Division determines highway needs on the
basis of information concerning such matters as road
conditions, alignment, capacity, land uses, population,

and density. It determines priority ratings for each
system, correlates the need and priority ratings, and

then sets up a long range construction or betterment
program for each highway system. Needs are reviewed

with engineering committees of the County Road Association
and the Michigan Municipal League for the establishment of
uniform procedures and policies, standards of construction,

maintenance, and operation. The division estimates

55

construction costs for all highway systems and streets
and draws up lists of needed projects by counties. It
also prepares a yearly recapitulation of contracts let.
This summary points up agency participation and system
distribution of funds, by highway systems, for each
district. The division analyzes and interprets data on
the economic impact of the various types of systems and
cooperates with the research centers at the University

of Michigan and Michigan State University.28

The relationship of the Programming Division to the
State Development Plan is shown in Illustration 15. The
primary activities of the division are those concerned
with the need and priority in setting up a long range
construction program.which is a part of the Circulation

Plan for the state.

 

28Baker, op. cit., Page 94.

56

  
    

IRCULATIO
PLAN

ILLUSTRATION 15

The Route Location Division prepares, catalogs, and
analyzes aerial photo maps for use in route location
planning. It reviews general location with the Planning
and Programming Division with a view to traffic desires
and design factors. Field investigations are made to
establish the best possible location, taking into

account such factors as topographic features, soil
conditions, and design features. Conferences are held
with local officials to evaluate the impact of a proposed
route; conferences are also held with the Traffic

Division, Office of Engineering, on questions of

57

operations and requirements in terms of anticipated use.
The division then prepares an engineering report which
gives the reasons and indicates various requirements, cost
estimates, and anticipated requirements in the distant
future. It must also prepare necessary agreements

dealing with road closures, service roads, and design

characteristics for approval of local officials.29

The activities of the division are primarily those of
implementing activities of the Planning and Programming
Divisions. Its relationship to the State Development

Plan is shown below:

 

ILLUSTRATION 16

 

29Baker, op. cit., Page 95.

58

G. DEPARTMENT OF PUBLIC INSTRUCTION

The Superintendent of Public Instruction shall have general
supervision of general instruction in all public schools and in all

state institutions that are educational in their character.30

- The Administrative Services Division of the

 

Department of Public Instruction must approve the plans
and specifications of all school buildings, including
private ones, with regard to location, adequacy, and
educational use. Such approval authority extends to
reconstruction or repair of existing buildings. It
assists school districts in school planning, publishes
bulletins on school building, passes on requests for
qualification of school district bonds, and administers
the school bond loan fund. It advises on
reorganization, annexation, and consolidation of school
districts and consults with counties in county area
studies. In the field of transportation, the division
advises school districts on the establishment and
administration of transportation systems and receives

reports from county school superintendents and each

 

3OMichigan Statutes Annotated, Chapter 9, The Superintendent of
Public Instruction, 349.1 Section 1.

59

school district on the operation of its transportation
system. It determines the amount of state aid to be

allotted school districts for transportation.31

The activities of the division include working in a
consulting capacity in the planning of school facilities
on a district-wide base. Studies of the division involve
an evaluation of existing facilities, a projection of
anticipated enrollments, evaluation of proposed school
sites and plans, and an investigation as to the methods

available for financing of such projects.

The relationship of these activities with State

Development Planning is indicated in Illustration 17:

 

3lMichigan Statutes Annotated, Chapter 9, The Superintendent of
Public Instruction, 349.1 Section 1.

60

    

LIRCULATIO

ILLUSTRATION 17

The approval required by the Department of Public
Instruction with regard to location and evaluation of
sites directly affects the Land Use Plan of a State
Development Plan, particularly in light of past trends

to coordinate school sites with park or recreation
development. In these instances, the Department of
Public Instruction has consulted with the Department

of Conservation. Also in conjunction with the Department
of Conservation, the department is developing school
sites as learning laboratories in the biological

sciences.

61

In the location of new schools, the department confers
with the State Highway Department regarding the possible
location of new major traffic arteries and the Health

Department on school sanitation.

H. WATER RESOURCES COMMISSION

The functions of the Water Resources Commission lie within two

divisions:

- Hydrology and Flood Control Division

- Pollution Abatement Division

Both divisions, through the performance of their activities, are

associated with elements of the Physical Development Plan.

- The Pollution Abatement Division carries on field
investigations to secure basic information about
pollution problems and is responsible for the
administration and enforcement of pollution abatement.
The division receives and processes statements of new
and expanded uses of water for waste disposal purposes,
makes regular inspection and performance surveys on
existing facilities for waste control, provides advice
on pollution abatement methods and uses of water, and

reviews plans for industrial waste control facilities.

62

In addition to these duties, the division has certain
responsibilities under Public Law 660 of 1956, for in
accordance with its terms, the Surgeon General of the
United States has designated the commission as the
state's agency which is to assist the federal government.
The division prepares and keeps current the State Plan
for water pollution control and defines procedures which
govern administration of the state's part in the federal
sewage treatment works construction grant program. The
division services requests for applications for federal
sewage treatment works construction grants and submits
recommendations for the commission, as to the priority of
one eligible project over another, on the basis of
financial as well as water pollution control need. The
division therefore serves as an intermediary between the
United States Public Health Service and recipients of

federal sewage treatment works construction grants.32

These activities and their relationship to that of the

State Development Plan are shown in Illustration 18:

 

32Public and Local Acts of the Legislature, State of Michigan,
Passed at the Regular Session of 1949, Page 120, P.A. Number 117.

63

 

ILLUSTRATION 18

Through the review of water uses for waste disposal
purposes, including applications for federal sewage
treatment work construction, and the review of plans
for industrial waste control facilities, the division

affects land use patterns in the state.

The division consults with the Department of
Conservation in determining pollution problems and the
Health Department on public water supply and public

health.

The Hydrology and Flood Control Division conducts field

 

64

studies and prepares reports relating to:

- local, regional, and statewide water use
- river basin water resources conditions and use

- local flooding conditions

It collects basic hydrologic data independently and in
cooperation with other governmental agencies and,
following analyses of such data, furnishes advice on
specific water uses or conditions. The division serves
in an advisory capacity to any flood control district
authorized by the legislature. It provides information
and advice to the general public on problems dealing with
flood control, beach erosion, water use, water rights
principles, and water conditions. In addition, it
supplies information concerning the success of erosion

control structures.

The relationship of the division activities with state

development planning is shown in Illustration l9:

65

 

ILLUSTRATION 19

Studies of how much water is being used, in what
quantities and at what places, and how rapidly the

uses are increasing, is necessary so that plans can be
made to meet future as well as present needs. Some of

the planning will result in voluntary decisions, as for
instance the locating of a new industry. Other planning
will result in laws regulating how and where large water
uses can be made or what areas cannot be used for building
homes and other structures. Studies have been completed
of water resources uses and conditions for six large

river drainage basins. Included in these studies is an

66

inventory of all power dams, and a study of irrigation

water usage.33

Through the activities of the division, areas subject
to flooding are determined and attempts are made to
discourage the development of these areas without an
adequate flood control project. Similarly these

activities direct land use patterns in the state.

Information developed by the Division of Hydrology and
Flood Control provides assistance to the Department of
Conservation in establishing recreational water use
facilities and resource conservation, to the Highway
Department in the construction of highways and bridges,
and to the Department of Agriculture in agricultural

water use, flood control, and drainage.

 

33Pub1ic and Local Acts of the Legislature, State of Michigan,
Passed at the Regular Session of 1949, Page 120, P.A. Number 117.

CHAPTER V

ANALYSIS OF PHYSICAL PLANNING ACTIVITY
BY STATE AGENCIES

In determining the extent of physical planning activity by state
agencies, it was found that all the agencies as shown in Illustration
20, contributed to the State Development Plan as set forth in the

1959 House Bill 255.

Water
'-source'

 

Highway

 

ILLUSTRATION 20

68

While all state agencies selected for analysis had an effect
on the physical development of the state, not all agencies affected

all elements of the State Development Plan.

Only those agencies shown in Illustration 21, for example,
were determined to have an effect on the State Facilities Plan of

the State Development Plan.

COI n

An . ion Highwa

 

Water
'esource:

ILLUSTRATION 21

The effect on the State Facilities Plan by these agencies was
generally of two categories. Agencies such as the Department of

Conservation, Department of Public Instruction, and the State Highway

69

Department were determined to be agencies directly concerned with the
need and proposed general location of state facilities while the
other agencies (the Department of Administration, the Health
Department, and the Department of Water Resources) provide

assistance in budgeting for new construction, approval of water and
sewerage facilities or the location of facilities requiring water
resources. Of significant importance, however, is the fact that of
the eight state agencies selected for analysis, six agencies actually
undertake activities which are either involved in the construction of

state facilities or influence their location.

In determining the extent of physical planning activity in the
development of a Circulation Plan, it was found that only the Highway
Department was involved in formulating plans for future highway
facilities. Other agencies, as shown in Illustration 22, from time
to time, provide assistance to the department regarding information
on hydrology and flood control by the Department of water Resources
in the construction of highways and bridges or information concerning

the necessity of county drains by the Department of Agriculture.

70

    
 

'IRCULATION

ILLUSTRATION 22

Both the Department of Economic Expansion and the Department of
Public Instruction rely upon the State Highway Department for
information regarding location of highways in an effort to develop

industrial sites or evaluate future sites for school location.

All of the agencies, as shown in Illustration 23, were found to
have some effect upon land use patterns in the state, either through
the development of state facilities or through their administrative

functions.

The Department of Administration, through the preparation of

the Long Range Capital Outlay Needs, as requested by the state

 

agencies, has a direct relationship to the Land Use Plan for the state

by budgeting expenditures for state facilities.

Water Adminis ration
'esource:

LAND USE

Economi
sxpansio

ILLUSTRATION 23

Included are requests by the Department of Administration for
state building construction, Department of Public Instruction for
Junior and Community Colleges, Department of Health, Department of

Conservation, and the State Highway Department.

The Department of Conservation undertakes land acquisition and
development for fishing, hunting, and recreation, all of which

contribute to the development of the state. The department also

72

determines recreation needs and has developed an overall plan for

site acquisition and improvement for parks and recreation.

Similarly, the Forestry Division has classified land owned by
the state according to game use, forest use, and high recreation

use, setting policies for future development.

The Department of Economic Expansion, while primarily a
service agency, designed to attract industry to locate within the
state, does require a review of all county zoning ordinances for
purposes of developing industrial sites. Through this review, it
is important that the department be familiar with highway proposals,
recreation areas, and developable land with water and sewer
facilities and may, on the basis of this information, suggest

additional industrial areas as part of a State Development Plan.

The administrative functions of the Health Department, in
approving public water and sewerage systems, greatly influences the

location of future development in the state.

Through the development of urban and regional trunk line plans,
the State Highway Department must be familiar with both existing and
future land use patterns in order to adequately develop a Comprehensive
Circulation Plan. These plans naturally have an impact on where future

development is located.

The Department of Public Instruction, while providing services

to local school districts, must also approve the plans of all school

 

 

 

73

buildings with regard to location. Similar to the Department of
Economic Expansion, the department may also influence the future

development of the state by approving location of schools.

The State Plan for Water Pollution and Flood Control,
prepared by the Department of Water Resources, calls for a local,
regional, and statewide water use plan on the basis of river basin
resources and use. Such a plan is of particular value in the

consideration of industrial location and recreational water use.

Illustration 24 indicates the relationship of the state
agencies to the State Development Plan and the plan elements, land
use, circulation, and state facilities. Of the eight state agencies
analyzed, four were determined as having an effect on all elements
of the State Development Plan. These four agencies, the Department
of Conservation, the State Highway Department, the Department of
Public Instruction, and the Department of Water Resources, all
perform activities which affect the land use, location of highways,

or the need and location of state facilities.

74

Water
Aesource:

As
I vn

:tration

LAND USE
PLAN

 

 

w
Ael -
@ STATE A ‘ ”0“
DEVELOPMENT c .1 . n

Water [L N
R-source
IRCULATIO.
PLAN
'conom
.ighway rxpansio

 

1%.

ILLUSTRATION 24

CHAPTER VI

CONCLUSIONS

It was evidenced in the analysis of physical planning activity
by state agencies, that the physical deve10pment of the state is
presently an uncoordinated effort. All agencies analyzed, for
example, have a definite bearing on how the future land use in the
state is to be developed. Similarly, a number of state agencies
are involved or concerned in the development of a State Circulation
Plan or the location and construction of statewide facilities such

as highways, education, recreation, and health facilities.

It is apparent that state agencies within.the State of Michigan
are involved in the physical development of the state through their
various activities affecting land use, circulation or state
facilities. Presently there is no State Planning Department
specifically charged with the function of preparing a State
Development Plan to coordinate these activities in dealing with the

state's physical problems and needs.

In view of the number of state agencies involved in the
physical development of the state, House Bill 255 appears justified
in calling for the creation of a Department of State Planning and
the preparation of a State Development Plan. The primary function
of the State Development Plan is to coordinate the activities of the

state agencies in dealing with the problems of highway construction,

75

76

education, water and mineral resources, conservation and recreation,
industrial development, agriculture, and other problems of statewide

concern 0

The functions of the Department of State Planning as set forth
in the legislation would aid and assist the governor and the state
agencies in the furtherance of sound develOpment of the state through
a State Development Plan. Presently, activities in all of the state
agencies analyzed are concerned with the furtherance of sound
development of the state. Only through such an agency can the
broad activities of each agency be coordinated into a State

Development Plan.

In addition to the preparation of a State Development Plan,
the functions of the Department of State Planning should be expanded
to include those of developing a Capital Improvements Program,
providing local planning assistance and coordination, and to provide

planning assistance to state agencies.

The Capital Improvement Program, based on the State Development
Plan, establishes priorities of specific facility projects in
accordance with the plan and the state's financial resources. The
Capital Improvement Program is the basic vehicle for implementing
the plan and is now prepared by the Department of Administration.
The Department of Planning should assist in the preparation of the

annual capital budget recommending public facility expenditures.

Local planning assistance and coordination involving

 

77

municipalities and counties would permit the Department of Planning
to advise local Planning Commissions on statewide objectives,
policies, and programs. Similarly, local planning coordination
would enable the Department of Planning to assess the effects of
proposed statewide policies on the development of individual

communities.

Planning assistance to other state agencies would include
assistance in the identification of program goals and the
Iidentification of the implications of their programs regarding

public facility needs.

Only by creating a State Department of Planning can these goals
be achieved. With a population growth of over 22% in the last
decade, the future state system and facilities must be planned and

integrated with the federal and municipal development programs.

 

BIBLIOGRAPHY

Andrews, Elton R., Comment on the A.I.P. State Planning Committee's
Report, Journal of the American Institute of Planners, VOlume
25, Number 4, 1959.

 

Baker, Curtis 0., A Guide to the Work of Executive Agencies in
Michigan, Papers in Public Administration, Number 34, Institute
of Public Administration, University of Michigan, 1959.

Bureau of Government, University of Muchigan, A Manual of State
Government in Michigan, 1949.

 

 

Committee on State Planning, American Institute of Planners, State
Planning: Its Function and Organization, Journal of the
American Institute of Planners, Volume 25, Number 4, 1959.

Council of State Governments, Planning Services for State Government,
1956.

Council of State Governments, State Planning, A Policy Statement,
1962.

Department of Resource Development, State of Wisconsin, A Plan for
Wisconsin, 1963.

Division of Engineering, Michigan Department of Health, Program Plan,
1963, mimeographed. ‘

House Bill Number 255, Michigan, 70th Legislature, Regular Session,
1959.

May, Richard, Jr., State Responsibilities for Urban Development,
a paper submitted at the 1963 Government Relations and Planning
Policy Conference, American Institute of Planners.

National Resources Committee, The States and Planning, 1938.

Office for Regional Development, State of New York, Change/Challenge/
Response, A Development Policy for New York State, 1964.

Swainson, John B., Governor, State of Michigan, A State Resource
Development Planning Program.for Michigpp, 1963, mimeographed.

78

:1HIUWWHIHIuwmmmw

177 5046