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Unless we meant to delete copyrighted materials that should not have been filmed, you will find a good image of the page in the adjacent frame. 3. When a map, drawing or chart, etc., is part of the material being photo­ graphed the photographer has followed a definite method in “sectioning” the material. It is customary to begin filming at the upper left hand com er o f a large sheet and to continue from left to right in equal sections with small overlaps. If necessary, sectioning is continued again—beginning below the first row and continuing on until complete. 4. F or any illustrations that cannot be reproduced satisfactorily by xerography, photographic prints can be purchased at additional cost and tipped into your xerographic copy. Requests can be made to our Dissertations Customer Services Department. 5. Some pages in any document may have indistinct print. In all cases we have filmed the best available copy. University Micrdrilrns International 3 0 0 N Z E E B R O A D . A N N A R B O R , Ml 4 8 1 0 6 18 B E D F O R D R O W . L O N D O N W C 1 R 4 E J , E N G L A N D 7921157 HOSFORD , KARL REYNOLD F V O L U T I O N OF THE O R G A N I Z A T I O N A L AND LAND RESOURCE R E S P O N S I B 1 L I T DEPARTMENT OF NATURAL RESOURCES 1 7 8 5 TO 1 9 7 8 . MICHIGAN ST ATE UNIVERSITY, University Microfilms International 3 0 0 N Z E E B R O A D , AN N A R B O R . Ml 4810G PH.D ST RUC T UR I N G ES OF THE IN MICHIGAN, • 1979 EVOLUTION OF THE ORGANIZATIONAL STRUCTURING AND LAND RESOURCE RESPONSIBILITIES OF THE DEPARTMENT OF NATURAL RESOURCES IN MICHIGAN 1785 t o 1978 By Karl Reynold Hosford A DISSERTATION S u b m i tte d t o Michigan S t a t e U n i v e r s i t y i n p a r t i a l f u l f i l l m e n t o f th e r e q u i r e m e n t s fo r the degree of DOCTOR OF PHILOSOPHY D ep ar tm en t o f Res our ce Development 1978 EVOLUTION OF THE ORGANIZATIONAL STRUCTURING AND LAND RESOURCE RESPONSIBILITIES OF THE DEPARTMENT OF NATURAL RESOURCES IN MICHIGAN 1785 t o 1978 By Karl Reynold Hosford AN ABSTRACT OF A DISSERTATION S u b m it te d t o Michigan S t a t e U n i v e r s i t y in p a r t i a l f u l f i l l m e n t o f the requirem ents f o r the degree o f DOCTOR OF PHILOSOPHY Dep ar tm en t o f Re sou rce Development 1978 ABSTRACT EVOLUTION OF THE ORGANIZATIONAL STRUCTURING AND LAND RESOURCE RESPONSIBILITIES OF THE DEPARTMENT OF NATURAL RESOURCES IN MICHIGAN 1785 t o 1978 By Karl Reynold Hosford The l a s t d ec ad e has w i t n e s s e d a major awakening in t h e c o n c e r n o f c i t i z e n s f o r t h e manner i n which p u b l i c i n s t i t u t i o n s a f f e c t t h e use o f t h e la n d and r e l a t e d r e s o u r c e s o f t h i s c o u n t r y . I n c r e a s i n g l y , e n v i r o n m e n t a l i s t s and o t h e r p u b l i c s a r e q u e s t i o n i n g program d e c i s i o n s on t h e u s e s , d i s t r i b u t i o n , c o n s e r v a t i o n and a l l o c a t i o n o f o u r la n d based r e s o u r c e s . In M ichiga n, t h e one i n s t i t u t i o n which s t a n d s above a l l o t h e r s f o r p u b l i c a c c o u n t a b l i t y in t h e a r e n a o f l a n d r e s o u r c e s management, i s t h e Department o f N a t u r a l R e s o u r c e s . This Department which was o n l y f o r m a l l y cha r g e d w it h assumin g t h e S t a t e la n d p l a n n i n g and management r e s p o n s i b i l i t y i n 1973, has in r e a l i t y been t h e S t a t e ' s r e p o s i t o r y f o r such programs f o r well o v e r a century. As a p r o d u c t o f h i s t o r y , t h e D ep ar tm en t, i n a d d i t i o n to b e i n g i n t h e vanguar d o f la n d r e s o u r c e s management, i s a l s o th e c a p tiv e of p a st a c tio n s . T h is s im p le f a c t , i s c r u c i a l . For t h e l a n d program r e s p o n s i b i l i t e s o f t h e Department o f N a tu r a l R e s o u r c e s , Karl Reynold Hosford b e i n g a p r o d u c t o f e v o l u t i o n a r y change must o p e r a t e w i t h i n t h e p a r a ­ m e t e r s o f p a s t a c t i o n s and o r g a n i z a t i o n a l d e c i s i o n s . There i s no s i n g l e r e c e p t a c l e where t h e deve lopm en t o f t h e D e p a r t m e n t ' s la n d management r e s p o n s i b i l i t i e s and i t s o r g a n i z a t i o n a l r e a c t i o n s t o such develo pm ent can be t r a c e d . There i s no one r e p o s i t o r y where t h e e v o l u t i o n and i n t e r a c t i o n among Depar tm en tal l a n d r e s p o n s i b i l i t i e s can be t r a c e d . There i s no one s o u r c e t h a t can be used t o e v a l u a t e how t h e o r g a n i z a t i o n a l e f f o r t s o f t h e p a s t shaped s t r u c t u r a l p a t t e r n s o r a c t i o n s f o r t h e f u t u r e . In e f f e c t , t h e h i s t o r i c a l e v o l u t i o n o f t h e l a n d r e s o u r c e s program r e s p o n s i b i l i ­ t i e s o f t h i s Department and i t s o r g a n i z a t i o n a l r e a c t i o n s t o ch an ging ti m e s has n e v e r been f u l l y r e c o r d e d . In r e c o g n i t i o n o f t h i s void in Michigan la n d r e s o u r c e s h i s t o r y , t h i s s tu d y i n v e s t i g a t e d t h e manner i n which one ag e n c y , t h e Michigan Department o f N a tu r a l R e s o u r c e s , has h i s t o r i c a l l y r e c e i v e d and o r g a n i z a t i o n a l l y r e a c t e d t o a s s i g n e d la n d r e s o u r c e management enactm ents. In p u r s u i n g t h i s o b j e c t i v e , e x p l o r a t o r y r e s e a r c h was u n d e r ­ t a k e n a s t o t h e h i s t o r i c a l s t r u c t u r i n g s o f t h e D ep ar tm en t; t h e c h r o n o l o g i c a l and c a t e g o r i c a l l a n d r e s o u r c e programs and e n a c tm e n ts mandated t o t h a t ag ency; a n d , o f t h o s e e a r l y l a n d g r a n t d e c i s i o n s which f o r g e d t h e b a s i s o f t h e p r e s e n t day p a t t e r n o f p u b l i c o w n e r s h i p and land program a c t i v i t i e s . A m u lti-m e th o d a p pro ach t o d a t a c o l l e c t i o n was employed which i n c l u d e d p e r s o n a l interview s. Respo ndents were agency Karl Reynold Hosford members o f i n s t i t u t i o n s w ith which t h e agency i n t e r a c t s , i n c l u d i n g t h e e x e c u t i v e b r a n c h , t h e L e g i s l a t u r e and a v a r i e t y o f i n t e r e s t e d personnel. Agency documents such a s Commission p r o c e e d i n g s , b i e n n i a l r e p o r t s , programs p u b l i c a t i o n s and h i s t o r i c a l r e c o r d s were s c r u t i n i z e d . In a d d i t i o n , e x t e n s i v e l e g a l r e s e a r c h was c o n d u c t e d and numerous h i s t o r i c a l p u b l i c a t i o n s were r e v i e w e d . G r a p h i c a l d e p i c t i o n s o f p e r t i n e n t s e q u e n t i a l and c a t e g o r i c a l o c c u r r e n c e s were a l s o d e v e lo p e d . Major f i n d i n g s i l l u s t r a t e t h a t Michigan land r e s o u r c e p h i l o s o p h i e s a s viewed t h r o u g h t h e c h a r g e s t o t h i s Departm ent a r e r e f l e c t i v e o f t h e m a t u r a t i o n p r o c e s s o f t h e s t a t e a s a wh ole. D e f i n i t e e r a ' s t r a n s c e n d i n g from promotion t o p r o p a g a t i o n t o i n d i v i d u a l r e s o u r c e p r o t e c t i o n and f i n a l l y to t o t a l e n v i r o n m e n ta l p r o t e c t i o n can be i d e n t i f i e d . O r g a n i z a t i o n a l r e s p o n s e s can s i m i l a r l y be documented f o r each such e r a . The r e f i n e m e n t , r e s o u r c e c o n c e r n s , and knowledge can be t r a c e d t h r o u g h t h e s o p h i s t i c a t i o n o f l e g i s l a t i v e enactm ents. F i n a l l y , and p e r h a p s most i m p o r t a n t l y , t h e many f ra g m e n te d p a r t i c l e s o f t h e D e p a r t m e n t 's la n d r e s o u r c e a u t h o r ­ i t i e s and o r g a n i z a t i o n a l r e s p o n s e s t h e r e t o ha ve, f o r t h e f i r s t t i m e , been c o h e s i v e l y t i e d t o g e t h e r i n a c h r o n o l o g i c a l h i s t o r y t o p e r h a p s e n t i c e a d d i t i o n a l r e s e a r c h e r s i n t o t h e many f a s c i n a t i n g a r e a s o f th e D epartm ent's h i s t o r y . ACKNOWLEDGEMENTS To Dr. M il t o n H. S t e i n m u e l l e r I e x p r e s s my s i n c e r e a p p r e ­ c i a t i o n f o r s e r v i n g a s both chairman o f my guidance com mittee and d is s e rta tio n advisor. His i n s i g h t and generous co unsel were i n v a l u a b l e a i d s t h r o u g h o u t n\y g r a d u a t e program. S p e c i a l r e c o g n i t i o n goes t o my w i f e , Mary, and o u r two s u p e r k i d s , Amy and M ich a el. and s a c r i f i c e s , W ithout t h e i r s u p p o r t , e n c o u r a g e m e n t , I ' d n e v e r have made i t . Dad's coming home! ii Love ya a l l and l o o k o u t , TABLE OF CONTENTS Page ACKNOWLEDGEMENTS ........................................................................................................ LIST OF FIGURES . . ii ' .............................................................................................v i i Chapter I. II. INTRODUCTION ................................................................................................. 1 Problem A r e a ........................................................................................ 2 O b j e c t i v e s o f t h e S t u d y .............................................................2 S o u r ces and L i m i t a t i o n s o f I n f o r m a t i o n Used . . . O r g a n i z a t i o n .......................................................................................... 3 4 LAND DISPOSITION - - THE EARLY Y E A R S ........................................ 6 I n t r o d u c t i o n .......................................................................................... 6 N o r th w e st T e r r i t o r y t o S ta t e h o o d .......................................... 7 The O r d in a n c e s o f 1785 and 1787 8 A c q u i s i t i o n o f I n d ia n Land T i t l e s ................................... 9 Michigan T e r r i t o r y ..................................................................... 10 E a r l y Land C l a i m s ................................................................... 11 The R e c t a n g u l a r Land S u r v e y .............................................. 13 E a r l y S e t t l e m e n t o f t h e Michigan T e r r i t o r y . . . 14 The Ohio- Michigan Boundary D ispute ........................... 15 D is p o sa l o f F e d e r a l Lands t o P r i v a t e I n d i v i d u a l s . . 18 ..................................................................... 21 M i l i t a r y B o u n tie s Act o f 1820 and E a r l y Pre em ptio n Acts . . . . 22 The G r a d u a t i o n A c t ...................................................................23 The Homestead A c t ...................................................................24 The Timber and Stone A c t ..................................................... 24 T o ta l A creage o f F e d e r a l Land Disp osed o f in M i c h i g a n .................................................................................25 F e d e r a l Land G r a n t s t o Michigan .......................................... 25 G r a n t s f o r School Purpose s ............................................... 26 G r a n ts f o r t h e U n i v e r s i t y ..................................................... 27 G r a n ts f o r P u b l i c B u i l d i n g s ............................................... 27 G r a n t s o f S a l t S p r in g L a n d s .....................................................28 G r a n ts f o r I n t e r n a l Improvements .................................. 28 G r a n t s o f Swamp Lands ............................................................. 29 Grant f o r th e S ta te A g ric u ltu ra l College . . . 30 G r a n t s f o r R a i l r o a d s .............................................................31 i ii Page C h ap ter G r a n t s f o r Wagon Roads ....................................................... 32 G r a n t s f o r C a n a l s .......................................................................... 33 S u i r e n a t i o n .........................................................................................35 D is po sal o f F e d e r a l Land G r ants byt h e S t a t e . . . 35 S a l e o f I n t e r n a l Improvement Lands ................... 36 S a l e o f Swamp L a n d s ................................................................... 38 S a l e o f A g r i c u l t u r a l C o l l e g e Lands ............................ 39 S a l e o f S a l t S p r i n g L a n d s ......................................................AO D is p o s a l o f School and U n i v e r s i t y Lands . . . 41 S u m m a t i o n ........................................................................................ 42 The Land Boom--Tax Homestead Lands ................................... 43 The Land B o o m ................................................................................. 44 Tax Homestead L a n d s ................................................................... 45 III. ORGANIZING FOR PROPAGATION AND PROTECTION ............................ 49 Introduction ................................................................................... 49 The G e o l o g i c a l Surv ey .............................................................. 50 The Second S u r v e y .......................................................................... 52 The T h i r d S u r v e y ...........................................................................53 F o r e s t r y Commission E s t a b l i s h e d ........................................ 58 S t a t e Board o f F i s h C o m m i s s i o n e r s .......................................62 The S t a t e Game, F i s h and F o r e s t r y Wardens . . . . 65 I n t r o d u c t i o n and P r o p a g a t i o n o f New Game S p e c i e s .........................................................................................66 Mackinaw I s l a n d S t a t e Park Commission ............................ 67 I n t e r l o c h e n S t a t e Park ....................................................... 68 The Michigan S t a t e Park Commission ................................... 68 The P u b l i c Domain Commission ................................................. 69 I n m i g r a t i o n .........................................................................................70 R e s e r v a t i o n o f M i n e r a l , C o a l , Oil and Gas R i g h t s ........................................................................................ 72 Exchange o f Lands and T a x a t i o n P o l i c y . . . . 72 IV. RESOURCE PROPAGATION AND PROTECTION .......................................... 76 Introduction ................................................................................... 76 The Department o f C o n s e r v a t i o n — 1921-1930 . . . . 77 Act 17, P.A. 1921 and I t s Amendments . . . . 78 Departm ent O r g a n i z a t i o n .............................................................. 83 D i v i s i o n o f Game P r o t e c t i o n and P r o p a g a t i o n . . 83 Law D i v i s i o n ..................................................................................85 D i v i s i o n o f G a m e ...........................................................................86 P o l l u t i o n C o n t r o l D i v i s i o n ................................................ 86 S t re a m C o ntrol Commission ................................................. 89 F ish D i v i s i o n ..................................................................................90 F o r e s t F i r e C o n tr o l D i v i s i o n .......................................... 91 Lands D i v i s i o n ..................................................................................91 iv Page C h ap ter Lands D i v i s i o n R e organized ................................................ 100 F o r e s t r y D i v i s i o n ..................................................................... 100 Parks D i v i s i o n ............................................................................... 103 G e o lo g ic a l Survey D i v i s i o n ................................................ 104 Land Economic Survey D i v i s i o n ............................................. 108 The D e p r e s s i o n Yea rs— The 1 9 3 0 1s ..................................... I l l O v e r v i e w ............................................................................................. I l l Department O r g a n i z a t i o n a l A c t i o n s ............................ 113 Major Land Management R e l a t e d A c t i o n s . . . .1 1 4 The P e r io d o f World War I I and Rec overy--The 1 9 4 0 's 128 O v e r v i e w ............................................................................................. 128 D ep ar tm en t O r g a n i z a t i o n a l A c t i o n s ............................ 130 Major Land Management R e l a t e d A c t i o n s . . . .135 The 1 9 5 0 ' s ............................................................................................. 148 O v e r v i e w ............................................................................................. 148 Department O r g a n i z a t i o n a l A c t i o n s . . . . .151 Major Land Management R e l a t e d A c t i o n s . . . .1 5 2 V. ENVIRONMENTAL PROTECTION .............................................................. 162 Introduction ................................................................................... 162 The 1 9 6 0 ' s ............................................................................................. 162 O v e r v i e w ............................................................................................. 162 Department O r g a n i z a t i o n a l A c t i o n s ............................ 166 Major Land Management R e l a t e d A c t i o n s . . . .1 7 3 The 1 9 7 0 ' s ............................................................................................. 194 O v e r v i e w ............................................................................................. 194 D ep ar tm en t O r g a n i z a t i o n a l A c t i o n s ............................ 196 Major Land Management R e l a t e d A c t i o n s . . . .213 VI. THE DEPARTMENT'S RESPONSE TO THE LAND USE ISSUE . . .2 3 2 Introduction ................................................................................... 232 E x e c u tiv e Order 1973-2 232 O f f i c e o f Land U s e .........................................................................234 A P h i l o s o p h y f o r Michigan Land Resource P l a n n i n g ...................................................................................... 235 The G o a l ............................................................................................. 236 P l a n n i n g P r i n c i p l e s ..................................................................237 I d e n t i f i c a t i o n o f t h e Michigan Land Use P r o g r a m .......................................................................................238 D i v i s i o n o f Land Res ource Programs ................................... 240 VI I. SUMMARY AND CONCLUSIONS......................................................................... 243 S u m m a r y .....................................................................................................243 C o n c l u s i o n s ..............................................................................................249 v Page C h ap ter VIII. RECOMMENDATIONS...................................................................................... 258 Introduction ................................................................................... 258 O r g a n i z a t i o n a l Recommendations D i v i s i o n o f Land Resource Programs ..................................................................... 259 The Program Development and Local S e r v i c e s S e c t i o n ................................................................................259 G r e a t Lakes S h o r e la n d s S e c t i o n ................................... 263 The S p e c i a l Land Programs S e c t i o n ............................ 266 The Land-Lake and Stream P r o t e c t i o n S e c t i o n . . 269 F i e l d O r g a n i z a t i o n ...........................................................272 Immediate A c ti o n Program Recommendations . . . . 278 Land Re source Base I n f o r m a t i o n Needs . . . . 279 P o l i c y A c tio n and A s s i s t a n c e Needs ............................ 284 BIBLIOGRAPHY ............................................................................................................... APPENDIX A ..................................................................................................................305 300 LIST OF FIGURES Figure Page 1 Department o f N a tu r a l Resour ces O r g a n i z a t i o n . 2 Major L e g i s l a t i v e A ction C i t e d - C a t e g o r i c a l . 246 3 O r g a n i z a t i o n a l Evolvement—Michigan Department o f N a t u r a l R es o u r ces ............................................................................ 247 T r a n s i t i o n E r a ' s o f Land Res our ce Mandates— Michigan Dep ar tm en t o f N a t u r a l Resour ce s ............................ 250 D i v i s i o n o f Land Resource Programs 275 4 5 v ii . . . Grouping 212 ........................................... CHAPTER I INTRODUCTION For a l m o s t two decades now we have been w i t n e s s i n g t h e d e v e lo p m e n t o f a b r o a d - s c a l e s o c i e t a l c o n c e r n f o r t h e manner in which p u b l i c i n s t i t u t i o n s r e g u l a t e , manage, and i n f l u e n c e lan d and w a t e r r e s o u r c e u s e in Michigan. A ls o , i n c r e a s i n g l y , s o c i e t a l members a r e c o n t r i b u t i n g t o th e form ation of p o lic y surrounding th ese r e s o u r c e s by p a r t i c i p a t i n g i n p u b l i c h e a r i n g s , c o n t r i b u t i n g time and money t o e n v i r o n m e n ta l gr oups o f a l l k i n d s , and by d i r e c t i n f l u e n c e on p o l i c y m a k e r s . In many ways, Michigan i s a l e a d e r among s t a t e s i n t h e f o r ­ m u l a t i o n and e n a c t m e n t o f numerous s t a t u t e s and in t h e r e n d e r i n g o f p o l i c y d e c i s i o n s f a v o r a b l e t o t h e s c i e n t i f i c management o f our resources. However, i t i s a l s o e v i d e n t t h a t many o f t h e s e s t a t u t e s and d e c i s i o n s came i n t o e x i s t e n c e o v e r a lo n g p e r i o d o f tim e and t o d a y t h e r e may w ell be i n c o n s i s t e n c i e s and s u r e l y t h e r e i s a l a c k o f knowledge on t h e p a r t o f b o th program a d m i n i s t r a t o r s and c i t i z e n s a b o u t t h e sco pe o f t h e a u t h o r i t y i n t h e p u b l i c a g e n c i e s . I f incon­ s i s t e n c i e s do e x i s t o r i f l a c k o f knowledge a b o u t a u t h o r i t y does e x i s t , p u b l i c a d m i n i s t r a t o r s may well a c t to o s l o w l y t o c o r r e c t p r o b l e m s , view to o n a r r o w l y t o r e c o g n i z e p r o b le m s , o r o v e r r e a c t t o i m p r o p e r l y p e r c e i v e d problems and o p p o r t u n i t i e s . 1 2 Problem Area One d e p a r t m e n t in Michigan S t a t e Government, t h e Department o f N a t u r a l R e s o u r c e s , i s t h e " r e p o s i t o r y " f o r most o f t h e s t a t u t e s and p o l i c i e s t h a t r e l a t e t o t h e developmen t and management o f t h e N a tu r a l Res ource s in t h e s t a t e . W it hin t h a t Dep artm ent, t h e D i v i s i o n o f Land Resource Programs has th e a u t h o r i t y f o r t h e g r e a t b u lk o f t h o s e p o l i c i e s and s t a t u t e s . Th is D i v i s i o n f i n d s i t s e l f bound by p a s t a c t i o n s , p a s t p o l i c i e s and p a s t o r g a n i z a t i o n a l p h i l o s o p h i e s a s well as by p r e s e n t i m p e r f e c t l y d e s i g n e d s t a t u t e s and p o l i c i e s . Because so much has happened so r a p i d l y in t h e p a s t two dec ad es t h e r e has been l i t t l e o p p o r t u n i t y t o mesh t h e p r e s e n t w i t h t h e p a s t , t o e x p l o r e f o r i n c o n ­ s i s t e n c i e s , and t o e v a l u a t e f u t u r e a l t e r n a t i v e d e r i v a t i v e s . There has n e v e r been a c o m prehensive a t t e m p t t o c o h e s i v e l y and c h r o n o l o g i ­ c a l l y r e c o r d t h e p a s t d e c i s i o n s , mandates and p h i l o s o p h i e s i n a manner t h a t would r e v e a l j u s t where we a r e to d a y and where t h i s m ig ht be t a k i n g u s . I f t h i s c o u ld be a c c o m p l i s h e d , we would have a b e t t e r p e r s p e c t i v e o f t h e p r e s e n t and h o p e f u l l y , t h e b a s i s f o r r e s tr u c tu r in g fo r the fu tu re . O b j e c t i v e s o f t h e Study In a l l s t u d i e s a m u l t i t u d e o f o b j e c t i v e s e x i s t s . never s ta t e d . T h i s i s t r u e in t h i s i n s t a n c e a s w e l l . Most a r e However, t h e g u i d i n g o b j e c t i v e s a g a i n s t which p e rfo rm ance can be measured a r e as follow s: 3 1. To s y s t e m a t i c a l l y s e t f o r t h t h e r e l e v a n t p a s t s t a t u t e s and p o l i c i e s d e c i s i o n s t h a t to d a y i n f l u e n c e , con­ s t r i c t , e n l a r g e , and o t h e r w i s e a f f e c t t h e a c t i o n s t h a t a r e o r can be t a k e n by t h e C h ie f o f t h e D i v i s i o n o f Land Resource Programs in t h e Michigan Department o f N atural Resources. 2. To e v a l u a t e t h e r e l e v a n c e o f t h e i r p a s t s t a t u t e s and p o l i c y a c t i o n s t o t o d a y ' s problems and opportuni t i e s . 3. To s u g g e s t m o d i f i c a t i o n s o f p r e s e n t l y e x i s t i n g s t a t u t e s and p o l i c i e s t o b e t t e r s e r v e t h e g o a l s t h a t p e o p l e o f t h e S t a t e have f o r t h e i r n a t u r a l r e s o u r c e h eritage. S o u r ces and L i m i t a t i o n s o f I n f o r m a t i o n Used E s s e n t i a l l y th r e e sources o f inform ation e x i s t f o r a study o f t h i s kind. F i r s t , a r e t h e o f f i c i a l documents t h a t a r e in t h e f i l e s o f t h e Michigan S t a t e Law L i b r a r y and t h e Department o f Natural Resources. Sec on d, a r e t h e " u n o f f i c i a l " documents t h a t e x i s t i n t h e form o f u n f i n i s h e d m a n u s c r i p t s , l e t t e r s , memoranda, and o t h e r w r i t t e n m a t e r i a l c o n t a i n e d in f i l e s o f t h e Department o f Natural Resources. T h ird , a r e th e personal r e c o l l e c t i o n s o f r e t i r e d and p r e s e n t l y employed p e r s o n n e l o f t h e Department. The voluminous q u a n t i t y o f t h e o f f i c i a l h i s t o r i c a l docu­ ments does c r e a t e a pro blem i n t h e s en se t h a t w h il e t h e r e i s much d u p l i c a t i o n and r e p e t i t i o n o f i n f o r m a t i o n , t h e r e v e r y well might be b i t s o f i n f o r m a t i o n h e r e and t h e r e t h a t a r e e x t r e m e l y c r i t i c a l to th e o b je c tiv e s o f t h i s study. p o s s i b i l i t y , there w ill When t h i s i s t h o u g h t t o be a be no s u b s t i t u t e f o r a thoro u gh r e v i e w o f a l l o f t h e i n f o r m a t i o n a v a i l a b l e on t h a t p a r t i c u l a r t o p i c . 4 The " u n o f f i c i a l " documents a c t u a l l y p r e s e n t t h e r e s e a r c h e r w i t h a more d i f f i c u l t and c h a l l e n g i n g problem. The v e r i f i c a t i o n o f t h e v a l i d i t y o f t h e u n r e f e r e e d i n f o r m a t i o n r e q u i r e s t h e utmost a b s e n c e o f b i a s on t h e p a r t o f t h e r e s e a r c h . When t h e r e a r e u n r e s o l v e d q u e s t i o n s o f i n t e r p r e t a t i o n , t h e y w i l l be d i s c u s s e d in fo otnotes. Personal r e c o l l e c t i o n s o f r e t i r e d or p re s e n t p ro fe ssio n a l c a r e e r people w ill be used s p a r i n g l y . While t h i s s o u r c e o f i n f o r ­ m a tio n i s v e r y i m p o r t a n t , o f t h e t h r e e s o u r c e s u t i l i z e d in t h i s study, a p a r a lle l s t u d y i n v e s t i g a t i n g t h e q u a l i t a t i v e di m ensions o f t h e i n f o r m a t i o n a n a l y z e d i n t h i s s tu d y would be s i g n i f i c a n t l y d e p e n d e n t on p e r s o n a l r e c o l l e c t i o n s . O rganization P r e s e n ta tio n o f th i s research e f f o r t is divided in to four main c h a p t e r s t o d e p i c t h i s t o r i c a l tran sitions. C hapter I I i s d e v o t e d t o t h o s e e a r l y lan d g r a n t a c t i o n s by t h e f e d e r a l government c o n c e r n i n g t h e T e r r i t o r y now c o m p r is i n g M ichigan, and t o s i m i l a r a c t i o n s by t h e s t a t e s u b s e q u e n t t o i t s r e c e i v i n g s t a t e h o o d s t a t u s . C h a p t e r I I I r e c o r d s t h o s e e n t i t i e s e s t a b l i s h e d in t h e r e a l m o f n a t u r a l r e s o u r c e s management which had m ajor la n d r e s p o n s i b i l i t e s and which s e r v e d a s t h e f o r e r u n n e r o f th e Michigan Department o f Conservation. A b r i e f s y n o p s i s o f t h e s e o r g a n i z a t i o n s and t h e i r f u n c t i o n a l c h a r g e s and h a p p e n in g s i s a l s o summarized. C h a p t e r s IV and V c o n c e r n t h e m s e l v e s w i t h t r a c i n g t h e e v o l u t i o n o f t h e D ep ar tm en t o f C o n s e r v a t i o n ’s la n d r e l a t e d r e s o u r c e 5 management a u t h o r i t i e s a s th e y p r o g r e s s e d t h r o u g h e r a s o f major o r g a n i z a t i o n a l ch an ge and program e m p h a s is . The f o r m a t i o n o f t h e e a r l y d e p a r t m e n t a l d i v i s i o n s t r u c t u r e a r e a l s o re v ie w e d . Organ­ i z a t i o n a l and program c h a r g e s a r e p r e s e n t e d c h r o n o l o g i c a l l y by decades f o r ease o f t r a c k i n g . Overview comments a r e p r e s e n t e d f o r each d e c a d e . C h a p t e r VI, t h e l a s t C h a p te r i n t h e main body o f t h e r e p o r t , re v i e w s t h e r e s p o n s e s o f t h e Department a t t h a t p o i n t i n time when la n d program em ph as is awakened and began s h i f t i n g toward c o n s i d e r ­ a t i o n o f t h e f r a g i l i t y , u n i q u e n e s s and v u l n e r a b i l i t y o f our l i m i t e d r e s o u r c e s f o r t o t a l e n v i r o n m e n t a l program c o o r d i n a t i o n . Final C h a p t e r s on Summary and C o n c l u s i o n s and on Recommendations have been d e v e l o p e d to p r e s e n t t h o s e o b s e r v a t i o n s g l e a n e d from a revie w o f t h e p a s t and t o s u g g e s t recommendations f o r f u t u r e o r g a n i z a ­ t i o n a l and program management a r e a s . CHAPTER I I LAND DISPOSITION — THE EARLY YEARS1 Introduction To b e g i n t o g a i n an u n d e r s t a n d i n g o f t h e e v o l u t i o n o f t h e lan d management programs t h a t now r e s i d e in t h e Michigan Department o f N atu r a l R e s o u r c e s , a f a m i l i a r i t y w i t h t h e h i s t o r i c and lan d p h i l o s o p h i e s and a c t i o n s which s e r v e d t o f o r g e i t s e x i s t e n c e must be d e v e l o p e d . It is highly p e rtin e n t to th is h is to r ic a l investi­ g a t i o n t o le n d an a c c o u n t o f t h o s e e a r l y l a n d g r a n t a c t i o n s o f t h e T e r r i t o r y now c o m p r is i n g Michigan p r i o r t o and im m e d ia te l y a f t e r becoming a s t a t e . T h is i s p a r t i c u l a r l y t r u e s i n c e what o c c u r r e d i n t h i s p e r i o d s e t t h e s t a g e f o r t h e e s t a b l i s h m e n t by t h e L e g i s ­ l a t u r e o f v a r i o u s a g e n c i e s d e a l i n g w i t h la n d r e l a t e d r e s o u r c e d i s p o s i t i o n s , p r o p a g a t i o n and p r o t e c t i o n , and e v e n t u a l l y f o r t h e g a t h e r i n g o f t h e s e a g e n c i e s i n t o o n e , t o be known as t h e Department o f N a tu r a l R e s o u r c e s . M i c h i g a n ' s e a r l y h i s t o r y c o n t a i n s many e x c i t i n g and i n f o r m a t i v e works c o n c e r n i n g t h e s t r u g g l e s between t h e F r e n c h , B r i t i s h and I n d i a n s f o r c o n t r o l o f t h e l u c r a t i v e r e s o u r c e s o f t h e ^ u c h o f t h e i n f o r m a t i o n and d i s p o s i t i o n f i g u r e s p r e s e n t e d i n t h i s C h a p t e r were o b t a i n e d from anonymous u n p u b l i s h e d p a p e r s , n o t e s , f i l e s and t h e a r c h i v e s o f t h e Michigan Dep ar tm en t o f N a tu r a l R e s o u r c e s . 6 7 Michigan p e n i n s u l a s . The coming o f t h e e a r l y French marked t h e establishm ent of the highly lu c r a tiv e fu r tra d e indu stry fo r the m a r k e ts o f Europe. The a r r i v a l o f t h e B r i t i s h saw a s t r u g g l e f o r d o m in a ti o n o f t h e f u r t r a d e and was a v i t a l f a c t o r i n t h e i n t e r ­ m i t t e n t f i g h t i n g between t h e French and B r i t i s h and t h e i r r e s p e c t i v e I n d i a n a l l i e s f o r t e r r i t o r i a l c o n t r o l i n North America. C o ntro l o f t h e f u r t r a d e a l s o c o n t r i b u t e d t o t h e s t r u g g l e o f t h e American c o l o n i s t s w i t h t h e B r i t i s h f o r i n d e p e n d e n c e , a f t e r t h e B r i t i s h had d e f e a t e d t h e F r en ch . N orthw est T e r r i t o r y t o S t a t e h o o d Of t h e t h i r t e e n o r i g i n a l c o l o n i e s , New York, M a s s a c h u s e t t s , C o n n e c t i c u t , South C a r o l i n a , North C a r o l i n a , G e o r g i a , and V i r g i n i a had c h a r t e r c l a i m s beyond t h e i r o r i g i n a l b o u n d a r i e s t o t h e West. Led by M arlan d , t h e o t h e r s i x s t a t e s (which had no such c l a i m s ) c o n t e n d e d t h a t a l l o f t h e c o l o n i e s had made common c a u s e in w r e s t i n g t h e w e s t e r n l a n d s from England and t h e r e f o r e t h e s e c la im e d l a n d s s h o u ld become common p r o p e r t y u nder C o n g r e s s i o n a l c o n t r o l . la n d 's refusal Mary­ to s ig n th e A r t i c l e s o f C onfederation u n t i l th e s t a t e s with claim s to th e w estern lands r e lin q u is h e d t h e i r claims d e l a y e d t h e e s t a b l i s h m e n t o f t h e Union u n t i l i t s w estern lands t o t h e Congress. New York i n 1780 ceded New Y o r k 's l e a d was f o l l o w e d by V i r g i n i a i n 1783 (which i n c l u d e d t h e Michigan T e r r i t o r y ) , M a s s a c h u s e t t s i n 1785 and C o n n e c t i c u t i n 1786. C e s s io n o f c l a i m s by t h e o t h e r s t a t e s f o l l o w e d a t l a t e r d a t e s , t h e l a s t b e in g Georgia i n 1802. 8 The O r d in a n c e s o f 1785 and 1787 C o n g r e s s , h a v i n g g a in e d t i t l e t o t h e w e s t e r n l a n d s , p r o ceed ed t o make p r o v i s i o n f o r a t e r r i t o r i a l government f o r t h e N o r t h w e st T e r r i t o r y , t h a t a r e a l y i n g South o f t h e G r e a t Lake s, North o f t h e Ohio R i v e r and E a s t o f t h e M i s s i s s i p p i R i v e r . This a r e a co m p r is e d t h e p r e s e n t s t a t e s o f Ohio, I n d i a n a , I l l i n o i s , M ich igan , Wisc onsin and M in n es o ta. The Ord inance o f 1785 p r o v i d e d f o r t h e p u r c h a s e o f I n d ia n la n d t i t l e s ; s u r v e y o f t h e t e r r i t o r i a l l a n d s ; s a l e o f l a n d s by p u b l i c a u c t i o n ; and r e s e r v a t i o n o f c e r t a i n lands f o r p u b lic s c h o o ls . territo ria l The O r d in a n c e o f 1787 p r o v i d e d f o r a government and f o r t h e d i v i s i o n o f t h e t e r r i t o r y i n t o s t a t e s , t h e new s t a t e s t o remain f o r e v e r a p a r t o f t h e U nited S tates. Because o f i t s i n a b i l i t y t o l e g i s l a t e f o r t h e c o u n t r y as a w hole, and i n o r d e r t o p r o v i d e f o r t h e e n f o r c i n g o f i t s d e c i s i o n s , Congr ess convened i n F e b r u a ry o f 1787 f o r t h e p u r p o s e o f d r a f t i n g a new C o n s t i t u t i o n . T h i s was co m p le te d and s ig n e d by t h e d e l e ­ g a t e s p r e s e n t on September 17, 1787, and s e n t t o t h e s t a t e s f o r ratificatio n . On r a t i f i c a t i o n by New Hampshire on Ju ne 21, 1788, t h e n e c e s s a r y t w o - t h i r d s m a j o r i t y was o b t a i n e d and t h e C o n s t i t u t i o n became e f f e c t i v e in 1789. S e c t i o n 3 o f A r t i c l e IV o f t h e C o n s t i t u t i o n s t a t e s : The Congress s h a l l have t h e power t o d i s p o s e o f and t o make a l l n e e d f u l r u l e s and r e g u l a t i o n s r e s p e c t i n g t h e t e r r i t o r y o r o t h e r p r o p e r t y b e l o n g i n g t o t h e U n ite d S t a t e s . 9 H e r e , t h e n , was t h e c o n s t i t u t i o n a l a u t h o r i t y f o r d i s p o s a l and and a d m i n i s t r a t i o n o f t h e p u b l i c domain. I t s h o u ld be n o t e d , ho w ever, t h a t t h e Congress o f t h e C o n f e d e r a t i o n had d i s p o s e d o f N o r t h w e s t T e r r i t o r i a l la n d s p r i o r t o 1789, w i t h a g r a n t t o Ohio i n 1787. A c q u i s i t i o n o f I n d ia n Land T i t l e s The d e f e a t o f t h e I n d i a n s by General Wayne a t t h e b a t t l e o f F a l l e n Timbers in Ohio in 1794 l e d in 1795 t o t h e T r e a t y o f G r e n v i l l e which p r o v id e d f o r t h e c e s s i o n by t h e I n d i a n s o f some 2 5 , 0 0 0 s q u a r e m i l e s i n th e Nor thwest T e r r i t o r y . By t h e terms o f t h i s t r e a t y t h e I n d i a n s r e l i n q u i s h e d t i t l e t o a s t r i p o f l a n d s i x m i l e s in d e p t h a d j o i n i n g t h e West s i d e o f t h e D e t r o i t Rive r and e x t e n d i n g from t h e R a i s i n R i v e r t o Lake S t . C l a i r . At t h e S t r a i t s o f Mackinac t h e y conveyed t i t l e t o I s l a n d de Bois B l a n c , t h e l a n d s o f Mi chi 1 im ackinac I s l a n d on which t h e f o r t s t a n d s , t o g e t h e r w i t h a s t r i p o f land t h r e e m i l e s deep and s i x m i l e s lo ng upon t h e n o r t h s h o r e J F o l l o w i n g t h e T r e a t y o f G r e n v i l l e , t e n o t h e r t r e a t i e s were c o n clu d ed w ith th e Indians: D e t r o i t — 1807; Maumee— 1817; Saginaw— 1819; S a u l t S t e . M arie— 1820; C h i c a g o - - 1 8 2 1 ; Carey M i s s i o n - - 1 8 2 6 ; C h i c a g o — 1833; W ashin gto n--1836 ; Cedar P o i n t — 1836; L a P o i n t e — 1842. The t r e a t i e s o f Saginaw, S a u l t S t e . M a r i e s , Chicago and Carey M i s s i o n were c o n c lu d e d by General Lewis Cass who s e r v e d a s T erritorial Governor o f Michigan from 1813 t o 1831. L. R. Schoenmann, " P u b l i c Lands i n M ic h i g a n , " F i f t y - t h i r d Annual R e p o r t o f t h e Michigan Academy o f L i t e r a t u r e , S c i e n c e , and t h e A r t s ( 1 9 5 2 ) , p. 20. 10 F u r t h e r i n f o r m a t i o n o f t h e s e t r e a t i e s was r e c e n t l y s u p p l i e d by G r e f f e n i u s : In a d d i t i o n t o s t i p u l a t i n g c e s s i o n o f la n d s t o t h e U nited S t a t e s , t h e t r e a t i e s a l s o p r o v id e d f o r t h e U nited S t a t e s Government t o s u p p ly c a p i t a l o u t l a y s , a n n u i t i e s , t r i b a l r e s e r v a t i o n s , l a n d g r a n t s , la n d s u r v e y s , and many forms o f a s s i s t a n c e ( s c h o o l i n g , eq u ip m e n t, m i s s i o n s , e t c . ) t o t h e I n d i a n s . C o n t r a r y t o p o p u l a r b e l i e f , t h e I n d i a n s in M ichigan , a l t h o u g h a d m i t t e d l y e x p l o i t e d i n many i n s t a n c e s , were r e i m b u r s e d f o r t h e i r l a n d s in an amount e s t i m a t e d to be 2 - 1 / 2 t o 3 m i l l i o n d o l l a r s . Michigan T e r r i t o r y On J a n u a r y 11, 1805, P r e s i d e n t J e f f e r s o n s i g n e d an a c t to d i v i d e t h e I n d ia n a T e r r i t o r y i n t o two s e p a r a t e go vernm ents . A fter June 30, 1805, t h a t p a r t o f In dian a T e r r i t o r y l y i n g North o f th e E a s t - W e s t l i n e t h r o u g h t h e s o u th e r n t i p o f Lake Michigan and E a s t o f a l i n e drawn down t h e c e n t e r o f Lake Michigan would f o r th e p u r p o s e o f tem pora ry government c o n s t i t u t e a s e p a r a t e T e r r i t o r y and be c a l l e d Michigan. Michigan was a d m i n i s t e r e d f o r a ti m e by an a p p o i n t e d go v e r n o r and j u d g e s ; t h e people had no v o i c e t h r o u g h r e p r e s e n t a t i o n o f t h e i r own c h o o s in g i n t h e L e g i s l a t u r e o r c o u r t s . President J e f f e r s o n a p p o i n t e d t h e f i r s t t e r r i t o r i a l o f f i c i a l s and ch os e General W illiam H u l l , who had been an o f f i c e r i n W a s h i n g to n ' s army, as Governor. T erritorial l e g i s l a t u r e s w ere, however, l a t e r e l e c t e d by t h e p e o p l e . ^Ruben S. E. G r e f f e n i u s , "Development o f Michigan Land P o l i c y " (Ph.D. d i s s e r t a t i o n , U n i v e r s i t y o f M ichiga n, 1 9 6 8 ) , pp. 7374. 11 D e t r o i t , which had been i n c o r p o r a t e d by a c t o f t h e L e g i s ­ l a t u r e o f t h e N o r th w e st T e r r i t o r y i n June o f 1802 a s t h e "Town o f D e t r o i t , " was made t h e s e a t o f government o f t h e Michigan T e r r i t o r y . On Ju ne 7, 1805, D e t r o i t was d e v a s t a t e d by f i r e . E a r l y Land Claims The r e b u i l d i n g o f D e t r o i t c o n f r o n t e d t h e l o c a l a u t h o r i t i e s w i t h t h e problem o f la n d t i t l e s . Judge Woodward, i n a l e t t e r t o t h e Chairman o f t h e United S t a t e s Committee o f t h e T e r r i t o r y o f M ichigan, unde r d a t e o f March 12, 1806, a d v i s e d t h a t t h e r e were in t h e e n t i r e T e r r ito r y only e ig h t legal t i t l e s J The problem o f t i t l e s r e l a t e d t o t h e occupancy o f t h e t e r r i t o r y in t u r n by France and th e n G r e a t B r i t a i n . I t was n o t t h e E n g l i s h p o l i c y t o s e l l o r g r a n t l a n d s , and n e i t h e r t h e French nor t h e English recognized Indian c la im s. On t h e o t h e r hand, t i t l e to lan d o c c u p i e d by t h e French was t a k e n i n t h e name o f t h e King who p l a c e d t h e r i g h t o f d i s p o s a l o f t h e la n d in t h e hands o f t h e g o v e r n o r o r i n t e n d a n t o f t h e French f o r t s o r p o s t s . G r a n ts o f l a n d made by any g o v e r n o r , however, were s u b j e c t t o c o n f i r m a t i o n by t h e King. Com­ p l i c a t i n g t h e French g r a n t s was t h e f a c t t h a t many g r a n t e e s f a i l e d t o c om plete t i t l e by g a i n i n g such c o n f i r m a t i o n . The new o f f i c e r s o f t h e t e r r i t o r i a l gover nmen t, t h e n , had t h o s e c l a i m s t o c o n s i d e r which d a t e d back to French occ u p a n c y , a few l e s s ^D. B. R e y n o ld s , E a r l y Land Claims in Michigan ( L a n s i n g , MI: Lands D i v i s i o n , Michigan Department o f C o n s e r v a t i o n , r e p r i n t o f Michigan C o n s e r v a t i o n s e r i e s o f J a n u a r y t h r o u g h J u l y , 1 9 2 2 ) , p. 3. 12 v a l i d c l a i m s which o r i g i n a t e d w it h t h e E n g l i s h and t h o s e o f p e r s o n s , who had p o s s e s s e d p r o p e r t y in t h e f i r e - d e v a s t a t e d town and who r e s i d e d t h e r e when t h e new government was e s t a b l i s h e d . There were r e c o r d s o f s e v e r a l g r a n t s o f l a n d , g iv e n by de La Monthe C a d i l l a c i n t h e name o f t h e French King, which were r e c o g ­ n i z e d by t h e American a u t h o r i t i e s . Fee t i t l e was conveyed to h o l d e r s by t h e U n ite d S t a t e s government. Once t h e s e c l a i m s were r e c o g n i z e d , t h e g o v e r n o r and c o u r t s t u r n e d t o t h e c l a i m s o f t h e t o w n s p e o p le and o f t h o s e who had c l e a r e d farms in t h e t e r r i t o r y . Cong re ss was n o t i f i e d and a t e n t a t i v e p l a n o f lan d r e g i s t r y was s e t up. The a d m i n i s t r a t o r s n o t i n g t h a t most o f th e s e t t l e m e n t s f r o n t e d on s t r e a m s o r l a k e s , t h e n t h e p r i n c i p a l r o u t e s o f t r a v e l , f o c u s e d c o n c e r n on r e t a i n i n g r i p a r i a n ow ner sh ip in l e g a l form. P r o c e d u r e s t i p u l a t e d by t h e g o v e r n o r and j u d g e s i n d e t e r ­ m in ing e x i s t i n g c l a i m s i n t h e new Michigan T e r r i t o r y i n c l u d e d , a s a f i r s t s t e p , t h e a c t u a l s u r v e y i n g o f c l a i m s by d u ly a u t h o r i z e d an d c o m p e t e n t s u r v e y o r s . The n e x t s t e p was f o r t h e c l a i m a n t t o a p p e a r b e f o r e a commission w i th h i s w i t n e s s e s , o r armed w i t h any documents which might h e l p in s u b s t a n ­ t i a t i n g h i s c l a i m . These docu men ts, b e i n g d u ly examined and c o n s i d e r e d , were f o rw ar d ed t o t h e T r e a s u r y Department i n Washington w i t h t h e recommendation o f t h e commission. B as ing ju d g e m e n t on t h e r e p o r t , a p a t e n t c o u l d be i s s u e d . I t was q u i c k l y d i s c o v e r e d t h a t a l a c k o f l a n d e x i s t e d in t h e v i c i n i t y o f t h e town, a l a c k r e s u l t i n g from t h e c u s t o ­ mary p r o c e d u r e o f t h o s e h o l d i n g ' f r o n t * c l a i m s - - o n w a t e r - i n d e p e n d i n g upon t h e lan d ' b a c k ' o f t h e i r l a n d s f o r fue l and p a s t u r e . These c l a i m s were l i k e w i s e c o n s i d e r e d , t h e same p r o c e d u r e b e i n g f o i l o w e d J ^I b i d . , p. 4. 13 I f one exam ines p r e s e n t day o w n e r sh ip maps o f Wayne and Monroe c o u n t i e s , t h e " c r a z y q u i l t " p a t t e r n i s im m ed ia tely n o t i c e a b l e . These c l a i m s , a hodgepodge o f r e c t a n g u l a r b l o c k i n g s , f o ll o w s t h e l a n d c l a i m s o f p e r s o n s who were once c i t i z e n s o f France o r Eng land, b u t whose t i t l e s came from t h e United S t a t e s . The R e c t a n g u l a r Land Survey The b a s i c p r i n c i p l e s o f t h e la n d s u r v e y , by which a lm o s t a l l o f t h e p u b l i c l a n d s i n t h e United S t a t e s have been mapped a r e s e t f o r t h i n t h e O r d in a n c e o f 1785 and t h e Act o f Congress o f May 1796. The l a n d was t o be l a i d o u t i n t o t o w n s h ip s c o n t a i n i n g 36 s e c t i o n s o f 640 a c r e s e a c h . Townships were t o be d e s i g n a t e d by numbers r e l a t i v e t o t h e i r p o s i t i o n E a s t o r West o f a m e r i d i a n and North o r South o f a b a s e l i n e . For t h e M ichigan T e r r i t o r y , t h e e a r l i e s t p u b l i c la n d s u r ­ v e y i n g was done by A l e x a n d e r Holmes who, in t h e f a l l o f 1815, was commissioned t o l a y o u t a b ase 1 i n e from D e t r o i t West t o t h e I n d i a n a b o u n d a r y ; i n t h e same y e a r a c o n t r a c t was l e t t o Benjamin Hough t o run a m e r i d i a n l i n e from F o r t D e f i a n c e a t t h e mouth o f A u g l a i z e R iv e r N orth t o t h e b a s e l i n e . All p u b l i c la n d s u r v e y s in Michigan were made u n d e r c o n t r a c t and payment f o r t h e s u r v e y s was made by t h e m i l e J One o f t h e f i r s t s u r v e y s was c o n t r a c t e d t o T i f f i n , who, b e c a u s e o f numerous e n c o u n t e r s w i t h marshes and swamps d u r i n g t h e ^ I b i d . , p. 5. 14 s u r v e y , r e p o r t e d t h e i n t e r i o r o f Michigan to be a huge swamp unsuited to se ttle m e n t. Governor Cass o f t h e Michigan T e r r i t o r y s t r o n g l y p r o t e s t e d t h e r e p o r t and ur ge d t h e c o m p le t io n o f t h e land surveys. 1824. Under h i s u r g i n g n e a r l y 4 m i l l i o n a c r e s were s urv eyed by By 1840, t h e w e s t e r n p o r t i o n o f t h e Upper P e n i n s u l a and a l l b u t 23 t o w n s h ip s i n t h e Lower P e n i n s u l a had been s u r v e y e d , and by 1853, t h e s u r v e y was c o m p le te d .^ E a r l y S e t t l e m e n t o f t h e Michigan Terri tory A p r i m a r y r o u t e t o t h e Michigan T e r r i t o r y f o r s e t t l e r s was o v e r l a n d t o P i t t s b u r g h and down t h e Ohio R iv er by r a f t . As a c o n s e q u e n c e , e a r l y s e t t l e m e n t was a l o n g t h e banks o f t h e Ohio R iv e r o r i n l a n d i n t o Ohio T e r r i t o r y . By 1802, Ohio had o b t a i n e d th e r e q u i r e d p o p u l a t i o n ( 6 0 ,0 0 0 ) t o p e t i t i o n f o r s t a t e h o o d , which i t a c q u i r e d i n 1803 ( t h e N o r th w e s t O rdina nc e r e q u i r e d a p o p u l a t i o n o f 5,000 f o r t e r r i t o r i a l s t a t e s and 60 ,0 0 0 f o r s t a t e h o o d ) . There i s a l s o l i t t l e d o u b t t h a t t h e T i f f i n r e p o r t had much t o do w it h d e t e r i n g t h e e a r l y s e t t l e m e n t i n Michigan. In 1830 when t h e popu­ l a t i o n o f t h e Michigan T e r r i t o r y was j u s t o v e r 3 0 , 0 0 0 , t h a t o f t h e s t a t e o f Ohio was n e a r l y a m i l l i o n . McKee o b s e r v e d : For n o r t h e r n im m ig ra nts a f t e r 1815 t h e way West l a y a l o n g two main r o u t e s . They c o u l d go o v e r l a n d t o P i t t s b u r g h and ^Copies o f t h e o r i g i n a l n o t e s o f t h e s u r v e y o r s may be found t o d a y i n t h e f i l e s o f t h e Lands D i v i s i o n o f t h e Department o f N a tu r a l R e s o u r c e s . 15 r a f t down t h e Ohio R i v e r , o r t h e y c o u l d book p a s s a g e a t B u f f a l o and t r a v e l on a G r e a t Lakes p a c k e t t o D e t r o i t , C l e v e l a n d , o r even Ch icag o. The l a t t e r r o u t e soon proved most p o p u l a r . A p a r t from t h e Ohio R iv e r and t h e G r e a t L akes , t r a v e l r o u t e s t o new l a n d s were l i m i t e d . Roads o v e r l a n d were seldom more t h a n narrow r u t s w in d in g t h r o u g h t h e f o r e s t . Creeks were f o r d e d , and r i v e r s f e r r i e d - - w h e n a f e r r y b o a t happened t o be a v a i l a b l e and t h e t r a v e l e r s c o u l d pay t h e p r i c e o f o p e r a t i o n . Swamps, l i k e w i s e , were n e g o t i a t e d on t h e i r own t e r m s , be ing r e a s o n a b l e in d r y w eath er and o u t r a g e o u s in wet. Thus any w a t e r t r a n s p o r t a t i o n was a t t r a c t i v e . 2 The y e a r 1817 saw t h e s t a r t o f t h e c o n s t r u c t i o n o f t h e E r ie Canal which was t o p r o v i d e an a l l - w a t e r r o u t e from t h e Hudson River t o B u f f a l o and t o t h e West. F i n i s h e d in 1825, i t n o t o n ly g r e a t l y s p u r r e d t h e m i g r a t i o n o f s e t t l e r s from t h e n o r t h e a s t e r n s t a t e s , but a l s o t h e t r a n s p o r t a t i o n o f goods t o t h e w e s t and farm produce t o t h e east. Most o f t h e e a r l y Michigan s e t t l e m e n t was i n t h e v i c i n i t y o f D etroit. However, a s s e t t l e r s pushed westward t h e y found r i c h s o i l f o r farm ing. The main ro ad West o f D e t r o i t f o ll o w e d an o l d I n d ia n t r a i l which became known a s t h e Chicago r a o d . In September o f 1833, t h e f i r s t s t a g e c o a c h made t h e run from D e t r o i t t o Chicago; by 1837 r e g u l a r s t a g e c o a c h s c h e d u l e s were e s t a b l i s h e d , t h e run between t h e two towns b e i n g a c c o m p lis h e d i n f o u r and o n e - h a l f d a y s . The Ohio- Michiga n Boundary D is p u te Helen W a l l i n , a well-k no wn Michigan h i s t o r i a n n o t e d : 2 R u s s e l l McKee, G r e a t Lakes Country (New York: C r o w e l l , 1 9 6 6 ) , p. 164. Thomas Y. 16 The o r d i n a n c e o f 1787 i n e s t a b l i s h i n g t h e N orthwes t T e r r i t o r y , p r o v id e d i n A r t i c l e 5 t h a t ' t h e r e s h a l l be formed in t h e s a i d t e r r i t o r y n o t l e s s t h a n t h r e e nor more than f i v e s t a t e s ' and d e f i n e d t h e b o u n d a r i e s o f t h e t h r e e proposed s t a t e s ; p r o ­ v i d i n g t h a t . . . when any o f t h e s t a t e s s h a l l be e s t a b l i s h e d , t h e n o r t h e r n b o u n d a r i e s o f O hio, I n d i a n a , and I l l i n o i s were to be d e f i n i t e l y marked a c c o r d i n g t o t h e terms o f t h e o r d i n a n c e . . . t h e E a s t and West l i n e s s e p a r a t i n g t h e one or two s t a t e s from t h e t h r e e s o u t h e r n s t a t e s (now Ohio, In d ia n a and I l l i n o i s ) s h o u l d be drawn s t r a i g h t E a s t from t h e s o u t h e r l y bend o r e x t r e m i t y o f Lake M ic h i g a n . ' This s t a t e m e n t formed t h e b a s i s f o r M i c h i g a n ' s c l a i m t o t h e 'T oled o S t r i p . ' When Ohio d e s i r e d s t a t e h o o d in 1802, i t became n e c e s s a r y to l o c a t e th e northern boundary. I t was t h e n t h a t Ohio became aware t h a t Lake Michigan e x t e n d e d much f u r t h e r South th a n shown on t h e map and t h a t a l i n e drawn E a s t from i t s s o u t h e r n e x t r e m i t y would a t t a c h an a r e a i n c l u d i n g F o r t Lawrence (now Toled o) t o Michig an. In view o f t h i s f a c t , Ohio i n c l u d e d in i t s p e t i t i o n f o r s t a t e h o o d a p r o v i s o which d e s c r i b e d i t s n o r t h e r n boundary in such a way a s to i n c l u d e t h e a r e a which was t o become known a s t h e "Toledo S t r i p . " On F eb ruar y 10, 1803, Co ng re ss a d m i t t e d Ohio i n t o t h e Union w i t h o u t mention o f t h e p r o v i s o ; Ohio, how ev er , assumed t h a t t h e p r o v i s o had been a c c e p t e d by C o n g r e s s . In th e mea ntim e, Michigan was becoming a m b i t i o u s f o r an i n d e p e n d e n t T e r r i t o r i a l Government and i n J a n u a r y 1805, t h i s a m b i t i o n was a c h i e v e d by t h e c r e a t i o n o f t h e T e r r i ­ t o r y o f Michigan w i t h a l l b o u n d a r i e s d e f i n e d — t h e s o u t h e r n boundary a s e s t a b l i s h e d by t h e Ord inance o f 1 7 8 7 . 2 ^ e l e n W a l l i n , " M i c h i g a n ’ s L o s t P e n i n s u l a , " Michigan H e r i ­ t a g e , S p r i n g 1961, p . 122. 2Ibid., p. 124. 17 From t h a t tim e o n , t h e boundary was i n c o n s t a n t d i s p u t e , each s i d e t a k i n g such a c t i o n s a s would forw ar d i t s c a u s e . To b r i n g a b o u t a s e t t l e m e n t C o n g r e s s, in 1812, a c t e d t o p r o v i d e f o r a s u r v e y o f O h io 's n o rth e rn boundary. A fter a s e rie s o f congressionally c o m m i s s i o n e d s u r v e y s , Congress f i n a l l y a c c e p t e d a boundary l i n e s u r v e y run by C a p t a i n Andrew T a l c o t t o f t h e United S t a t e Arn\y. This s u r v e y was c o m plete d i n December 1835 and i t gave t h e "Toledo S t r i p " t o Ohio. In 1833, Michigan T e r r i t o r y p r e s e n t e d i t s f i r s t p e t i t i o n f o r a d m i s s i o n t o t h e Union; however, Congress f a i l e d t o a c t on th e petition. for action. A second p e t i t i o n was p r e s e n t e d in 1834— i t a l s o f a i l e d In t h e l a t t e r y e a r a c e n s u s was o r d e r e d t a k e n - - i t showed a p o p u l a t i o n o f 8 5 , 8 5 6 , much g r e a t e r th a n t h e 60,0 0 0 needed f o r adm ission. I t s h o u l d be n o te d t h a t M i c h i g a n ' s a d m i s s i o n was a p p a r e n t l y h eld up by a C o n g r e s s i o n a l p o l i c y o f b a l a n c i n g one s l a v e s t a t e and one f r e e s t a t e i n a d m i s s i o n s . Michigan was made t o w a i t f o r Arkansas t o q u a l i f y f o r a d m i t t a n c e . When t h e second a t t e m p t t o s e c u r e p e r m i s s i o n t o form a s t a t e f a i l e d , t h e p e o p l e o f Michigan d e te r m in e d t o go on w i t h o u t p e r m i s s i o n and i n J a n u a r y 1835, t h e L e g i s l a t i v e Council c a l l e d a c o n v e n t i o n t o meet t h e f o l l o w i n g May t o form ' f o r t h e m s e l v e s a c o n s t i t u t i o n and s t a t e government a c c o r d i n g t o t h e p r o v i s i o n s f o t h e O rdinan ce o f 1787' and a c c o r d i n g l y ad o p t e d a c o n s t i t u t i o n and e l e c t e d a c o m p l e t e s e t o f s t a t e o f f i c e r s w i t h S t e v e n s T. Mason, t h e n t w e n t y - f i v e y e a r s o f a ge, as Governor.1 ^ I b i d . , p. 122. 18 To r e s o l v e t h e m a t t e r , Congress on Ju ne 15, 1836, p as sed an Act which p r o v id e d f o r t h e a d m i s s i o n o f Michigan i n t o t h e Union and e s t a ­ b l i s h e d t h e n o r t h e r n boundary o f Ohio a t t h e " T a l c o t t " l i n e . The a c t re q u ire d the a s s e n t o f a convention o f d e le g a te s e le c te d fo r t h a t p u r p o s e by t h e p e o p l e o f Michigan T e r r i t o r y . The f i r s t c o n v e n t i o n o f A s se n t met in Ann A r b o r, in September o f 1836— i t r e j e c t e d t h e c o n d i t i o n o f t h e a c t r e q u i r i n g Michigan t o g iv e t h e "Toledo S t r i p " t o Ohio. The second Convention o f A s s e n t , m eeting i n Ann Arbor in December o f t h e same y e a r , gave i t s c o n s e n t .to t h e c o n d i t i o n . By Act o f Congress on J a n u a r y 27, 1837 M i c h i g a n ' s a d m i s s i o n t o t h e Union was a p p r o v e d . Thus th e f i n a l outcome o f t h e boundary d i s p u t e was t h e s u r r e n d e r by Michigan o f t h e "Toledo S t r i p . " I r o n i c a l l y e nough, Michigan was give n a s c o m p en s atio n t h e Upper P e n i n s u l a - - a t t h a t tim e no one knew o f t h e v a l u a b l e d e p o s i t s o f co p p e r and i r o n in that a re a . D i s p o sa l o f F ederal Lands t o P r i v a t e Individuals The g e n e r a l s e t t i n g f o r M i c h i g a n ' s e a r l y p u b l i c land d i s p o s a l p o l i c i e s was p r o v id e d in l a r g e measure by t h e p o l i c i e s d e v i s e d by Congress between 1796 and t h e m i d - 1 8 0 0 ' s . Major p o l i ­ c i e s were d e v e lo p e d d u r i n g t h i s p e r i o d a f f e c t i n g l a n d p r i c e s , use o f c r e d i t , e l i g i b i l i t y f o r p u r c h a s e , minimum s i z e o f p u r c h a s e and l o c a t i o n o f land s a l e s o f f i c e s . A r e l a t e d f e a t u r e , evolving f e d e r a l p o l i c i e s on l a n d g r a n t s (and M i c h i g a n ' s s u b s e q u e n t g r a n t s 19 t o c e r t a i n dev e lo p m e n t i n t e r e s t s ) , can be r e l a t e d to t h e f r o n t i e r demand f o r i n t e r n a l im provem ents. In a book o f t e n used a s a t e x t in U n i v e r s i t y c o u r s e s , Dana states: What t o do w i t h t h e p u b l i c l a n d s was one o f t h e most d i f f i ­ c u l t and most p e r s i s t e n t o f t h e many t h o r n y problems f a c e d by t h e young n a t i o n . For y e a r s i t was t h e o c c a s i o n f o r more o r a t o r y an d more l e g i s l a t i o n t h a n any o t h e r s i n g l e s u b j e c t . On one p o i n t o n l y t h e r e was g e n e r a l a g r e e m e n t - t h a t t i t l e t o t h e l a n d s s h o u ld n o t be r e t a i n e d p e r m a n e n t ly by t h e F e d e r a l Government b u t s h o u ld be p a s s e d t o s t a t e s and t o p r i v a t e owners as r a p i d l y a s was c o n s i s t e n t w ith t h e i r o rd e rly developm entJ Having made t h e d e c i s i o n t o d i s p o s e o f p u b l i c l a n d s , Congress n e x t t u r n e d t o t h e manner o f d i s p o s a l —w h e t h e r t h e la n d sh o u ld be g iv e n f r e e t o e n c o u r a g e s e t t l e m e n t o r s o l d t o p r o v i d e r e v e n u e ; i f s o l d , w h e t h e r f o r c a s h o r f o r c r e d i t , a t what p r i c e , and how much t o e a c h i n d i v i d u a l . The f i r s t d e c i s i o n made by Congress r e l a t i v e t o t h e s e m a t t e r s i s found in t h e O rdinan ce o f 1785. Having p r o v i d e d f o r t h e r e c t a n g u l a r s u rv e y o f p u b l i c l a n d s i n t o to w n s h ip s o f 36 s e c t i o n s o f 640 a c r e s e a c h , t h e Ord inance s t i p u l a t e d t h a t a f t e r b e i n g s u r v e y e d , t h e l a n d s would be s o l d a t p u b l i c a u c t i o n to t h e h i g h e s t b i d d e r f o r c a s h a t n o t l e s s th a n $1.0 0 per a c re . H a l f o f t h e t o w n s h ip s were t o be s o l d i n e n t i r e t y , t h e r e s t in s e c t i o n s . S e c t i o n 16 was r e s e r v e d f o r school p u r p o s e s and f o u r o t h e r s e c t i o n s were r e s e r v e d f o r l a t e r s a l e . Adm inistration was p l a c e d i n t h e Board o f T r e a s u r y . ^Samuel T r a s k Dana, F o r e s t and Range P o l i c y (New York; McGraw-Hill Book C o . , 1 9 5 6 ) , pp. 2 0 - 2 1 . 20 S a l e s u n d e r t h e p r o v i s i o n s o f t h e Ordinan ce were slow a s few s e t t l e r s a p p a r e n t l y had t h e $640.00 in c a s h needed f o r t h e minimum p u r c h a s e . ( I n f a c t , Dr. R a l e i g h Barlowe n o te d i n commenting upon t h i s p a p e r t h a t o n l y one s a l e i n 1787, t o t a l i n g o n l y 72,974 a c r e s , was e v e r a c t u a l l y s o l d t o i n d i v i d u a l s . ) The Ord inan ce o f 1787 r e l a x e d t h e s a l e te rms somewhat by p r o v i d i n g f o r payment o f o n e - t h i r d o f t h e s a l e p r i c e i n c a s h and t h e b a l a n c e i n t h r e e months. T h i s , howe ver , d i d l i t t l e t o promote s a l e s . Rather, the r e s u l t of t h e s a l e s p r o v i s i o n s under t h e two O r d in a n c e s was t h a t l a r g e numbers o f t h e e a r l y im m ig r a n t s " s q u a t t e d " on t h e la n d w i t h o u t payment d e s p it e p r o h i b i t i o n a g a in s t the p r a c t i c e . A c t s p a s s e d by Congress in 1796, 1800 and 1804 r a i s e d t h e minimum p r i c e p e r a c r e t o $ 2 . 0 0 , red u c e d t h e minimum a r e a t o 160 a c r e s , and p r o v i d e d f o r t h e payment o f t h e p u r c h a s e p r i c e i n i n s t a l l ­ ments o v e r a f o u r - y e a r p e r i o d . While t h e s e a c t s i n c r e a s e d s a l e s , they a lso in c re a se d d i f f i c u l t i e s , inasmuch a s d e l i n q u e n c y i n pay ing t h e i n s t a l l m e n t s was t h e r u l e r a t h e r th a n t h e e x c e p t i o n . C redit s a l e s were f i n a l l y a b o l i s h e d by Act o f Congress o f A pril 1 8 2 0 . ^ G reffen iu s observed t h a t : Land s a l e s i n Michigan by t h e f e d e r a l government commenced i n 1818, two y e a r s b e f o r e t h e c r e d i t s y st e m was a b o l i s h e d . Of t h e 6 7 , 3 6 2 a c r e s s o l d in t h e n e x t t w o - y e a r p e r i o d o v e r 3 7 , 0 0 0 a c r e s were r e l i n q u i s h e d , n o t o n l y b e c a u s e o f t h e p a n i c o f 1819, b u t b e c a u s e o f t h e hi g h p r i c e s induced by t h e T h i s s i g n i f i c a n t p e r i o d i n Michigan la n d h i s t o r y i s e x t e n ­ s i v e l y t r a t e d i n t h e H i s t o r y o f P u b l i c Land P o l i c i e s , by Benjamin H. Hibbar d ( t h e MacMillan Company, New York). 21 s p e c u l a t i v e e l e m e n t i n v o l v e d i n t h e s e s a l e s o f Michigan lan d sJ The f i r s t f e d e r a l lan d o f f i c e a s s i g n e d t o h a n d le t h e s e t r a n s a c t i o n s , was e s t a b l i s h e d i n D e t r o i t in 1814. L ater, other l a n d branch o f f i c e s were e s t a b l i s h e d a t Monroe, Kalamazoo, F l i n t and Io n ia. M i l i t a r y B o u n tie s M i l i t a r y b o u n t i e s d a t e back t o 1778 when l a n d s were f i r s t o f f e r e d t o s o l d i e r s i n t h e B r i t i s h Army t o in d u ce d e s e r t i o n and t o Amer icans t o e n c o u r a g e e n l i s t m e n t i n t h e C o n t i n e n t a l Army. and a g a i n i n 1783, C o n g r e s s , a l t h o u g h s t i l l In 1780 l a n d l e s s , made a d d i ­ t i o n a l p r o m is es i n c o n n e c t i o n w i t h war s e r v i c e s . Bounty l a n d s were f u r t h e r o f f e r e d f o r s e r v i c e s i n t h e War o f 1812 and by l e g i s l a t i v e a c t i o n in 1847, l a n d s were a g a i n o f f e r e d t o s o l d i e r s i n re wa rd f o r s e r v i c e s in t h e Mexican War. T h is l a t t e r a c t a l s o i n c l u d e d an o p t i o n o f s c r i p f o r $100.00 which t h e government would a c c e p t a s 2 payment f o r l a n d . A s e r i e s o f a c t s b e g i n n i n g i n 1850 p u t t h e la n d boun ty on a d if f e r e n t footing. Be for e t h a t tim e t h e r e had been a s t r o n g t e n d e n c y t o keep l a n d g r a t u i t i e s t o s o l d i e r s t o a minimum. became t h e p l a n t o be l i b e r a l . I t then Bounty l a n d s were o f f e r e d t o men o f e v e r y r a n k , i n e v e r y br a n c h o f t h e s e r v i c e , and t h e a c t was made t o ^ G r e f f e n i u s , pp. 73 -74. 2 I b i d . , p. 129. 22 a p p l y t o s u b s t a n t i a l l y a l l war v e t e r a n s from 1790 t o and i n c l u d i n g t h e Mexican War ( 1 8 4 7 ) J Congress i n 1852 made m i l i t a r y bounty w a r r a n t s a s s i g n a b l e and g r e a t l y enhanced t h e flow o f l a n d s from t h e f e d e r a l government t o p r i v a t e o w n e r s h ip . The o r i g i n a l Act, which p r o v id e d f o r a bounty o f 160 a c r e s , was l a t e r amended i n 1855 and 1856 t o i n c l u d e any s o l d i e r , o r h i s h e i r s , who, up t o t h a t ti m e had s e r v e d in any war i n c l u d i n g t h e R e v o l u t i o n a r y War. These a c t i o n s gave s o l d i e r s who d i d n o t wish t o use t h e i r w a r r a n t s t o a c q u i r e l a n d t h e o p p o r t u n i t y t o d i s p o s e o f i t t o s p e c u l a t o r s i n t o whose hands many o f t h e w a r r a n t s f in a lly located. The y e a r s between 1848 and 1858 marked t h e high p o i n t i n m i l i t a r y bounty l o c a t i o n s . No C i v i l War v e t e r a n s were g r a n t e d m i l i t a r y bounty w a r r a n t s inasmuch a s f r e e la n d was a v a i l a b l e u n d e r t h e Homestead Act o f 1862. In Michigan , a t o t a l o f 3 , 8 8 9 ,5 7 3 a c r e s were d i s p o s e d o f t o p r i v a t e i n d i v i d u a l s p r i m a r i l y in th e s o u t h e r n 1 / 3 o f t h e s t a t e , by means o f m i l i t a r y b o u n t i e s - - 2 , 7 8 5 ,303 by th e y e a r 1869.^ Act o f 1820 and E a r l y P r ee mption Acts C o n g r e s s i o n a l a c t i o n in 1820 p r o v id e d t h e g e n e r a l s a l e s p o l i c y i n a p p r o x i m a t e l y i t s f i n a l form. Public la n d s, t h e r e a f t e r , were t o be s o l d t o t h e h i g h e s t b i d d e r i n h a l f - q u a r t e r s e c t i o n s o f ^Benjamin Horace H ibbar d, H i s t o r y o f t h e P u b l i c Land P o l i c i e s (New York: MacMillan C o., 1 9 3 7 ) , pp. 120-121. 2 G r e f f e n i u s , p. 131. 23 80 a c r e s f o r n o t l e s s than $ 1.25 p e r a c r e w ith f u l l payment a t tim e o f s a l e . During t h e p e r i o d 1820 t o 1830, la n d d i s p o s a l s in Michigan un der t h i s p o l i c y t o t a l e d l e s s th a n a h a l f m i l l i o n a c r e s . With t h e i n c r e a s e i n s e t t l e m e n t a f t e r 1830, however, s a l e s i n c r e a s e d a p p r e c i a b l y , p e a k in g 1836. t o an a l l tim e hig h o f o v e r 4 m i l l i o n a c r e s in After th a t y e a r, sale s f e l l o ff sharply. A movement i n Congress t o p r o v i d e f r e e land f o r s e t t l e r s r e s u l t e d i n t h e p a s s a g e of a number o f p reem ptio n a c t s , t h e most i m p o r t a n t o f w hich, p r i o r t o t h e g e n e r a l Preem pti on Act o f 1841, was t h e Act o f 1830. This p r o v i d e d f o r p r e e m p tio n o f n o t t o exceed 160 a c r e s o f la n d a t $1.25 p e r a c r e by a s e t t l e r who had o c c u p i e d and c u l t i v a t e d h i s la n d d u r in g t h e p r e c e d i n g y e a r . was h a r d l y a g i f t t o the s e t t l e r , i t did give the r i g h t o f f i r s t p u r c h a s e and sav ed him from t h e c o m p e t i t i o n auction s a le s . While t h i s of speculators a t In Michigan , l e s s th a n 50, 000 a c r e s o f la n d were c la im e d un der t h e p r eem p tio n a c t s from 1830 t o 1838 however. The g e n e r a l P r eem p ti o n Act was r e p e a l e d by Congress in 1891. The G r a d u a t i o n Act Th is Act o f Congress in 1854 p r o v id e d f o r t h e d i s p o s a l o f u n s o l d l a n d s as f o l l o w s : a f t e r b e in g on t h e m a r k e t f o r t e n y e a r s , t h e la n d was to be s o l d a t $ 1 . 0 0 p e r a c r e ; a f t e r f i f t e e n y e a r s , a t 75ttM * #*»•«."*• A t 'H U A t .’Rl . PA 1 H I A t i | ' . * a is r s LAND RELATED WATER ACTIVITIES AGRICULTURE ENVIRONMENTAL PROTECTION V I A tv*; A • •«* P A ISA' 1w w rrit 'r r A |fp»«r»t |IP4, I 1 , * \l I * i 1■VIPS |l*Ae. l i n t j , | 1 ‘ i n l i n ) | \ l IMP) 1 rrm M(V kp\(. • *1 ' f ISA* ' (•»**» 11 A t . Pt S*l ' I , ' tlit» J IlSAA) * ,» ,s I r.lp -I »•..» V . tlM-V’ ‘ • * • 1' i i r i •«* A »v’\ i I 'iv ■i S4AI a • , . p ; i Ms * r* j\ i P i ' M t i * P.il'1* I'SAS, A. I . '< . f A IN I RECREATION PUBLIC LANDS A I v| A 1 S’ 1 A ISM A l I/I PA 111’ IS S O -t iv t , i . .v p t i>m A l WS PA ISO) A. 1 P A 1WOI 111 IS A O -v A, 1 ,’ l t . 1 A IfSS A, 1 . NO. P A 14U4 a, t <91. r a I« n A.I S,’ » A ISIS A*t I I ) . PA ISII 4(1 / * . r INSI 4(1 J.-fc. PA ISM I t l P . P I ISII M i i n . r a ism All JM . P A 1Ml r A,' ISS. P A 14.'! 1 * ( o p \p i( a e > ii I I I ) !■ A t 1 1. P A ISIS A t .-II. I A I t i l A t 1 » '. P A 1S tS Ar t JM). P A IMS A.I .01. P * Ait :*■. p a 1VS i%/e A t IV*. r A l«I* Ail H I , 1 A I8SS a f n; iv. < A t ?%/ A l m . p A H I) A.I 17 P * 1 "Wl ' l« V IM I S P A t ISA. P 1 lvA< A- t /I S . P A IMS Al /i. I 1 A t ns. <■ A 1S»« a * 'p » » v t A i i ’i f ■?*>%*< !'%4Al t t * . r F n t.,» I r v i W v l )*M1 i.im Neeetxg *esi«s m sm i 0«*sA.*» 0*III>»V P n lt.p A*Mtp* i ISAM A t II*. PA is m At A, t At Al Inn* ; on! Mu* ■ V n p if u ie Rees P*t*ered MS*/) t* * st M ( a M " i i i P** |# tt MS**1 "P *#tt fo re st M l " e K r ; (14/01 UP*** f O ttllf * Pros IIS 'S I M y S A tiw iA l (S m te i PtevesM H 4 /I) f >\PWPt*4 Pol 1, » > | f | fl«%J] S(l*t 'PL P o l tr , I I P / ' (*mno* I n tm e w H M V /i P t'.v « p Iw tet N#*itAi (is* 4 i I ♦»* f*e»t e p re x p p I ts * /) CflRo IvtrM utP d I14MI la m M*npgMe*t PI «• (IS4S) fre*»*M **JvSI Prvv (ISM ) Op*r Am IPS to r N *eit*t 1 A q A t 17*. PA 1S/4 A t /O J. P A 147* A l 17), P A 1ST* A l 14*. P 4 1ST* t i o PM I'V* iw * A « I Bends (19*0) Art .S s . P A ISM St*t* t i»Pi Proq (IM S ' 'V tM nr «p, p<«* (144)) A t l/A, P A ISM PI AR-S.'I PI pt . L*S A t II*. P A IS*S Art ,T)I. * A ISM A t L’%. p A ISM A t 17 . * A 1447 A t /S I, P A m s A t S7. P A 14*« A t (7 . P A 14*7 A t ). P A ISM A t I/S . P A ) * /) * t r « P it* Pre* L l/M . M 147% SiQB in i lie * e#tp**tt«» 4*m* *» 1 IW II l n*t i iSnt in* Stvdv |1tS4) . Pi * s% :» i issa j » i'tie * 4 v**b'p» p* w »*p s ts t« * t A t i l l . ‘ A IASI A1 1• PA l*V Ai n >» ms A, t Tiv. p A is s : iv*/ 1 1 7 0 -1 A t I-*/. > A IVLS i An »r'%n**4 MVS ij L * l" . M 1SS> 4 . 1 / 1 ', PA m s A t **. * A ITS* A l IS. I A IVSl I 1V41 1 1 M 0 -I dSSAi A t IM . • 1 141) A M *0 Pi s.- S00 A t "M, P A I4«S l" tP M tjt« - W ^ m te A t It* . P A 14*4 A l MS. P A I4M A 1 /S I. * A IBM S/ P A I/I . P A /*U. p * /? /. p A II* IV/. ISIS 1ST* u r n . P 's e li" * , 4 C e a * (11711 6 » ie iU "* s A t K» . P » 14/0 A I M , f t 147% A t » . P * 147/ StwMeres A t 11%. P A )*/* i a 1VI P A IS i: •< » .1 I» i D i - I n . |i fA S A l Mp P I l«S4 Al At At At A t, 1 1 *". * A . 'v . F A /NR. P A IMS 1VA<. 1S4S I'M' ( • e tu tiv e ( • r r .t i v # U e iv d v e A t <7*. P Op NP' 1471-/ Urser IS /I-/* Oreer 14/9.1? A 1471 A t 1*7. P A ISM A I m . • A 147* A 1 /tie. P A ISSN A l W . f A IMS At II. t i 144* O 'f it# «« P e n t , up* t t t (i*/%) » tt /s s . p a is / o Art 7)1. * * 14/0 A t )*». f a is / ? A t -a;. * a is / ? A 4.--SBJ A t <#. p a t o n A t /o n . p a 14/n A t iso r a 14/0 A t ? * i. p a i s / / III* a l i* * e Ops Pp*s 1st J Organizational Evolvamant . . Michigan Departm ent ot Natural Resources Figure 3 V ia tel **4 O lU e 1MI Departm ent at I nn^efvttu)* M o* InhCom m FwWk Ownem (.orwn Oft Sure Came frthA INJ MtiOr ViA Muiiin iin e I m l f * |i n Art Mw* W.w l n w .r . >.*»~ i •Water I n w i n ( OKM'll'*'!! (l»«f l| . aret a I wAhtiwe *iwpi fmud ot I iM#« •»- Pull <<■ ■t«M *a«r ■‘V <*#»•»■ *W ( WWW '■(iani u t»p» '■! • low v> o o m i iit ^ to t r a o N UW 0 O e w ai# a k e loteut* «*e«H K » « n * • * * • » • Baeer t**»ste*« fc»s a .i * * . » a hit t t O rtruil 1I W ) la W " . a * '» * ’ *" ’*** C'««t« l^ c io f'ie l W *e» i i « j ? -< i t t a 'i e t t *»i a ;. • • M > |J. f t i *i i i Ml | hi m .M 1«1 '<■* *r*esr 1st** (M il) ISII h i .a u . a a Ho* fc t ? t> . t * ism a.< /• « , r a ieci t*/» fc t i) . » a t«U * t M , l l till .* • * . , „r ’ - Pro-1900 I rin .M an in , a * E n w o n m g r i t u S O T tJiis* ft R «ft4C «il4tion S o a c ifie A n o w r c * O tio n f o ltt n •to rrlll M H IM , a ,i /« i a i**t a.1 I .a . i a i* n i**« Leeati »*r i» 'e e n M » w r * \ Environmental Protection 4 hi a. r e » 1 a. i / o i . > a <«;« M N I I 1S.A a « i M . i t i».’* 4. | M l. 1- 1 I* I a .t • ! > .'• » n . '1 m i /a s . > a t*;* i hi m a V t i.**,. r a Mii • ’t h i ia a s a t >v.\ r a n ,» if, 1901 to 1920 11 * 1v 1 hi t i i * » a h i ir . » a a. t -a . * j h.i ;« v » i 1921 to 1930 an. iv i i *•■* h t i s t . * a t**> a, i ,'is . * a tees j m Si a a tw t ■ I ll . t —-\ , ***** tSS/l h l . U . I I IM Be' 1 ’ re* ■*<* Je<«a ( ist* Sail ! « » < • .•••■' i\«*a ts ts i f o 'r t l '«'<«* (!***) 250 1931 to 1940 i*i* h lti.M M .’ **•*•» U*r», *t t i IS*a | ( i* ll reater* ( - i t 1 M ill Mitae*. *•**-<*«» ............... . h i a s ;, a a i« ii Sci /a t . r a t«.* 1941 to 1950 ............1 ■ l„. (M( Met . If.Jr l-e l ••• I t*V!l a. i m i * * tea* a<** e*i i r 1•* a* as-ta* an \. » a i s v ' • ' . * ( » t*-e ***>r*t » ••* a .t *rt hi at a . • a 'r / i r, . r * l*sI * i. r a i* v >*#. a a its* to 1900 f a « a t, r i * rl It* r a ISM M l' U ISM •.a n • * • » » * •*•*> la # • m 11 *• .>• r ~ '* * h i IM : i t. 1 1 ... » a in .; «v> a*1-.* 1 i*s, i V ' . n ta ti ISII Min a.-, m s. . a »* a* s ’ * mm h 1 .« i '* 4 a r* H S J • * .• •^ r * t d tn — hi A t 1 * . » • ’• * * |l MS. » t r ’t •* '. i* ’ •* i t ’ll a •« > V I S ', e a ita e v r i; s . « ferns fc t • ’ a t h i *4. , ms a ■*;« '«> .<«*** o* iti a** h i " ‘ . * 1 1*1 hi U i a V • X* * a * itv Iiac rtt* * Orta* ts n .i," ** **"i i* /i i* ;r 1901 to Present L • . i. a i *.ia*M*kn a, * .t* » * v • i t a a .1 ». sm a.1 ’* i ** •»i** w*i sie—r i** es-.’ l*) h • *ts, • a ism J 251 p r o t e c t i o n and r e h a b i l i t a t i o n . general I t can be surm ized t h a t t h e s e ( a l t h o u g h o v e r l a p p i n g ) e r a s o f emphasis a r e r e f l e c t i v e o f s o c i e t a l a t t i t u d e s , economic c o n d i t i o n s and growth p r e s s u r e i n t e n s i i t e s of the tim es. A d d i t i o n a l c o n c l u s i o n s which can be g e n e r a l i z e d from a r e v i e w o f t h e i n v e s t i g a t i v e l i t e r a t u r e and t h e i l l u s t r a t i v e f i g u r e s include: - - P r o g r a m r e s p o n s i b i l i t i e s o f t h e Department have grown o f t e n w i t h o u t p l a n i n r e s p o n s e to t h e s p e c i f i c problems o r s o c i e t a l nee ds o f t h e t i m e s . - -T h e Department has o r g a n i z a t i o n a l l y grown in a p r a g m a t i c add-o n f a s h i o n u n t i l such t im e as i t becomes u n w i e ld y , and th en i t r e s t r u c t u r e s i t s e l f , p r i m a r i l y b ecau s e o f e x t e r n a l p r e s s u r e s , f o r i n c r e a s e d management e f f i c i e n c y and p u b l i c a c c e p t a n c e . — The e a r l y l a n d g r a n t p h i l o s o p h i e s and a c t i o n s o f t h e f e d e r a l government and t h e s t a t e remain o b s t a c l e s t o c e r t a i n land program a r e a s such a s G r e a t Lakes b o tto m la n d management. — The Department has o n ly v e r y r e c e n t l y s t r u c t u r e d i t s e l f o r g a n i z a t i o n a l l y t o o p e r a t e a s a u n i f i e d r e s o u r c e management u n i t r a t h e r t h a n a c o l l a g e o f u n c o o r d i n a t e d , in d e p e n d e n t e n t i t i e s . - - T h e D e p a r tm e n t, th r o u g h i t s u n i f i c a t i o n p r o c e s s , w ith l e g i s l a t i v e and e x e c u t i v e a c c e p t a n c e t h e r e o f , i s r e f l e c t i v e o f s o c i e t y ' s r e c o g n itio n o f the interdependency o f o u r lan d , a i r and w a t e r r e s o u r c e s a s a t o t a l e c o l o g i c a l s y s te m . 252 — S o c i e t y ' s r e c o g n i t i o n and s u p p o r t o f e n v ir o n m e n ta l manage­ ment programs can be c o r r e l a t e d w i t h t h e a c c e l e r a t i o n o f i n d i v i d u a l economic p r o s p e r i t y and i n c r e a s e d e d u c a t i o n a l l e v e l s . — Although t h e Departm ent has t a k e n s i g n i f i c a n t s t r i d e s fo rw a r d i n c o o r d i n a t i n g i t s i n t e r n a l program r e s p o n s i b i l i t i e s , th e re is l i t t l e l e g i s l a t i v e o r p o lic y d i r e c t i o n in e x iste n c e fo r i n c r e a s i n g e x t e r n a l l a n d management and use im pac t p r o g ra m s , i . e . , highway c o n s t r u c t i o n , economic e x p a n s i o n , p u b l i c w a t e r s u p p l i e s , etc. — Department program d i r e c t i o n o v e r i t s long h i s t o r y has emph as ized t h e r e g u l a t o r y w i t h l i t t l e r e a d i l y i d e n t i f i a b l e c r e ­ dence g iv e n t o t h e powers o f t a x a t i o n , s p e n d i n g , o w nership and e d u c a t i o n which government p o s s e s s e s f o r a c h i e v i n g i t s management objectives. — Review o f t h e p r o c e e d i n g s and b i e n n i a l r e p o r t s o f t h e Commission and t h e Department s i n c e i t s i n c e p t i o n i n 1921, e v i ­ d e n c e s l i t t l e l o n g - r a n g e p l a n n i n g f o r most r e s o u r c e management p r o g ram s , o u t s i d e o f t h e f o r e s t r y a r e n a . This o b s e r v a tio n lead s one t o c o n c l u d e t h a t t h e Department most f r e q u e n t l y f i n d s i t s e l f i n a r e a c t i o n a r y r a t h e r t h a n a l e a d e r s h i p p o s t u r e i n most program areas. A lthough much can be l e a r n e d from a s t u d y o f t h e r e s o u r c e management h i s t o r y o f t h e D epartm en t, by a d m i n i s t r a t o r and c i t i z e n a l i k e , t o a i d i n s h a p in g f u t u r e program e f f o r t s and o r g a n i z a t i o n a l s t r a t e g i e s , perhaps the g r e a t e s t b e n e f i t s o f t h i s re se a rc h e x e r c i s e a r e t h e av e n u e s o f e x p l o r a t i o n i t opens f o r f u t u r e 253 investigation. Numerous i n t r i g u i n g q u e s t i o n s emerge which beg o b jectiv e analy sis, i f we a r e t o o p t i m i z e t h e lan d r e s o u r c e manage­ ment o b j e c t i v e s o f Michigan. Q u e s t i o n s r a i s e d and p o t e n t i a l t o p i c s surfaced include: — To what e x t e n t a r e t h e e a r l y land g r a n t s t o i n d i v i d u a l s and c o r p o r a t i o n s o b s t r u c t i n g c u r r e n t r e s o u r c e managment o b j e c t i v e s and wh at a l t e r n a t i v e s o l u t i o n s a r e a v a i l a b l e and a t what c o s t s ? - - A r e c e r t a i n s e c t o r s , such a s t h e m i n e r a l s i n d u s t r y , r e c e i v i n g p u b l i c c o n c e s s i o n s beyond t h o s e o f f e r e d t o o t h e r l e g i t i ­ mate e n t e r p r i s e s , a t what c o s t t o s o c i e t y ; a n d , what programmatic so lu tio n s are av ailab le fo r correction? - - W i t h 20 p e r c e n t o f t h e s t a t e a l r e a d y i n p u b l i c owner­ s h i p ( p r i m a r i l y th r o u g h t a x r e v e r s i o n ) , what a r e t h e economic a d v a n t a g e s and d i s a d v a n t a g e s o f a d d i t i o n a l p u b l i c o w n e r s h ip ; what lan d c a t e g o r i e s a r e i n t h e most need o f a c q u i s i t i o n ; and what c a t e g o r i e s o f l a n d s s h o u ld be p l a c e d i n p r i v a t e o w n e r s h ip , i f a n y , and t o what e x t e n t and g e o g r a p h i c l o c a t i o n ? — Have t h e broad powers o f Act 17, P.A. 1921, been used to th e ir po ten tial by t h e Department i n i t s 50 p l u s y e a r s o f existence? — Has t h e Water Resources Commission been r e m i s s in c a r r y i n g o u t i t s mandate r e s p o n s i b i l i t i e s f o r w a t e r p o l l u t i o n a b a t e m e n t , i . e . , w a t e r q u a l i t y s t a n d a r d s were a u t h o r i z e d in 1929, y e t were n o t d e v e lo p e d u n t i l n e a r l y 40 y e a r s l a t e r . 25 4 — Is c o n s o l i d a t i o n o f t h e s t a t e ' s env ir o n m e n ta l programs u n d e r a s i n g l e s u p e r c i t i z e n commission t h e b e s t a l t e r n a t i v e f o r c o o r d i n a t i n g r e s o u r c e management and u t i l i z a t i o n ? — P r i o r t o s p e c i e s i n t r o d u c t i o n , does t h e f i s h e r i e s p l a n t i n g program o f t h e Department a d e q u a t e l y t a k e i n t o c o n s i d e r a t i o n t h e la n d u s e im pac ts t h a t may o c c u r . — What e f f e c t s have th e D e p a r t m e n t 's t r a d i t i o n a l game and f i s h management e f f o r t s had on t h e c r e d i b i l i t y o f t h e Department w i t h t h e p u b l i c - a t - l a r g e and t o what e x t e n t have such e f f o r t s impeded o r s u p p o r t e d emerging e n v i r o n m e n ta l program e f f o r t s ? What p u b l i c r e l a t i o n o r in volvem ent improvements c o u l d be made in t h e D e p a r t m e n t 's methods o f r e s o u r c e program o p e r a t i o n s ? - - H a s t h e Department d e v e l o p e d s u f f i c i e n t p r o c e d u r e s t o p r o t e c t p u b l i c t r u s t i n t e r e s t s i n i t s l a n d exchange and use program e f f o r t s , i n c l u d i n g t h e f i l l i n g o f G r e a t Lakes b o t t o m l a n d s ? . — I s t h e s t a t e ' s Commercial F o r e s t P r e s e r v a t i o n Act adequate in p ro te c tin g public t r u s t i n t e r e s t s w ithout provisions f o r b e s t management p r a c t i c e s ? — Was t h e Land Economic Survey b e n e f i c i a l and s h o u ld such e f f o r t be a g a i n employed on a s t a t e w i d e b a s i s f o r r e s o u r c e i n v e n ­ t o r y and improved l o c a l in v o lv e m e n t i n s t a t e management d e c i s i o n s ? - - V a r i o u s s t a t u t e s have conveyed p u b l i c l a n d s t o commun­ i t i e s and school d i s t r i c t s f o r u s e s such a s m u n ic i p a l f o r e s t , w i t h r e v e r te d c la u s e s to the s t a t e f o r misuse. Have t h e s e l a n d s been p r o p e r l y used o r abused and what i s t h e s t a t u s i f r e v e r s i o n i s indicated. 255 — The c o m p l e t e h i s t o r y o f CCC s h o u ld be documented soon w h i l e r e s o u r c e p e r s o n s remain and e v a l u a t e d a s to t h e p o t e n t i a l b e n e f i t s o f r e a c t i v a t i n g such e f f o r t . F u r t h e r , would such a c o o r d i n a t e d y e a r a r o u n d program b e t t e r s e r v e t h e p u b l i c i n t e r e s t th a n t h e s h o r t - t e r m e l e c t i o n y e a r y o u th employment programs o f to d a y ? - - C o u l d t h e D e p a r t m e n t ' s Ralph A. MacMullan Confe re nce C e n t e r a t H ig g in s Lake be b e t t e r employed f o r c o n s e r v a t i o n e n v i r o n m e n t a l - e d u c a t i o n a l b e n e f i t s , and by what mechanisms? — Is t h e s y s te m o f d i v i d e d s t a t e l a n d s management between F o r e s t r y i n t h e n o r t h and W i l d l i f e in t h e s o u t h t h e most e f f e c t i v e s y s t e m o f c o o r d i n a t e d p u b l i c la n d management a v a i l a b l e t o t h e state? — Shou ld t h e program o f improved Department o f N a tu r a l Resources-E xtension Service c o o p eratio n via personnel t r a n s f e r s be r e a c t i v a t e d f o r improved c o o r d i n a t i o n and c o o p e r a t i o n between t h e D ep ar tm en t and t h e a g r i c u l t u r a l community and what f o r m a t c o u l d s u ch programs b e s t e v o l v e ? --Document h i s t o r y o f p r i v a t e b o t to m l a n d p a t e n t s and t h e s e p a r a t e body o f law d e a l i n g w i t h t h e S t . C l a i r F l a t s and d e l i n e a t e a l t e r n a t i v e s o l u t i o n s t o t h e problems t h e s e s i t u a t i o n s p r e s e n t f o r o v e r a l l G r e a t Lakes b o t t o m l a n d s management. — Conduct a d e t a i l e d r e v i e w o f a l l ities Department r e s p o n s i b i l ­ i n one o r a l l o f t h e f i v e a r e a s o f l a n d use c o n c e r n : a g r i c u l t u r a l , m i n e r a l s , f o r e s t s , s p e c i a l e n v i r o n m e n ts ( i n c l u d i n g 256 r e c r e a t i o n ) , and d e v e lo p m e n t a l a s t o program v o i d s , gaps and pr oblems i n o r g a n i z a t i o n a l s t r u c t u r i n g and recorrenended a l t e r n a t i v e solutions th ereto . — E v a l u a t e t h e s t a t e ' s w a t e r q u a l i t y s t a n d a r d s and t h e i r e f f e c t s on and c o o r d i n a t i o n w ith a d j a c e n t l a n d use program potentials. - - E v a l u a t e l i n e - s t a f f o r g a n i z a t i o n a l p a t t e r n s and s u g g e s t a l t e r n a t i v e Dep ar tm en t a l i g n m e n t s . — Conduct economic e v a l u a t i o n s o f s p e c i f i c d e p a r t m e n t a l e n v i o r n m e n ta l programs and d e t e r m i n e i f economic a s well as b i o l g o i c a l and p o l i t i c a l p a r a m e t e r s a r e e n t e r e d i n t o t h e d e c i s i o n making p r o c e s s . — E xp lo re t h e f u t u r e r o l e o f t h e Department in u r b a n u r b a n i z i n g s e t t i n g s and d e l i n e a t e a r e a s o f p o t e n t i a l s h i f t s in program em phasis f o r improved p u b l i c s e r v i c e , i . e . , urba n f i s h e r i e s , m u l t i p l e use o f s e d im e n t b a s i n s , urba n f o r e s t r y , e t c . — D e f in e p o t e n t i a l u n e x p l o r e d program l i n k s f o r i n c r e a s e d attainm ent of public b e n e fit o b je c tiv e s , i . e . , w ilderness areas and e n d a n g e r e d s p e c i e s c o o r d i n a t i o n / f a r m l a n d program and h u n t e r a c c e s s program c o o r d i n a t i o n . The above q u e s t i o n s and i d e n t i f i e d a r e a s o f f u t u r e i n v e s t i g a t i o n s h o u l d n o t be i n t e r p r e t e d a s d i m i n i s h i n g t h e v a l u e of the research e f f o r t undertaken. Q uite to th e c o n t r a r y , f o r , in t h e o p i n i o n o f t h i s a u t h o r , such q u e s t i o n s en hance p r e s e n t e d re se a rc h values i f placed in the proper p e rsp e c tiv e . I f the 257 initial c h r o n o l o g i c a l l a n d c a t e g o r i c a l c a p i t u l a t i o n e f f o r t had n o t o c c u r r e d , t h e o v e r a l l r e s o u r c e management p e r s p e c t i v e would n o t be p r e s e n t t o e n a b l e one t o deduce t h o s e a r e a s o f f u t u r e r e s e a r c h n e e d - a ma j o r o b j e c t i v e o f t h e i n i t i a l investigative effort. Several a c t i o n o r ie n t e d c o nc lu s io ns , in a d d i t i o n to those p r e s e n t e d in t h i s s e c t i o n , can be o b s e r ve d from a r e v i e w o f t h i s research e f fo r t. These c o n c l u d i n g o b s e r v a t i o n s , bei ng w i t h i n t h e p o t e n t i a l realm of s h o r t- te r m r e a l i z a t i o n a r e , t h e r e f o r e , presented i n t h e f i n a l c h a p t e r on Recommendations. CHAPTER VIII RECOMMENDATIONS Introduction To p r o p e r l y c o n c l u d e t h i s r e s e a r c h e f f o r t , program and o r g a n i z a t i o n a l a c t i o n s which c o u l d be e f f e c t i v e l y i mpl ement ed i n c o n j u n c t i o n w i t h t h e r e s e a r c h e f f o r t s p r e v i o u s l y me nt i oned and which c o u l d v a s t l y improve t h e D e p a r t m e n t ' s l a n d r e s o u r c e manage­ ment program e f f o r t s m e r i t s d i s c u s s i o n . Such d i s c u s s i o n a d d r e s s e s t h e recommended s t r u c t u r i n g o f t h e newly c r e a t e d D i v i s i o n o f Land Resour ce Pr ograms, t h e f o c a l p o i n t f o r Depart ment l a n d programs and recommend pr ogram n eeds which have been i d e n t i f i e d a s e s s e n t i a l components n e c e s s a r y t o s u pp l ement c u r r e n t l and management program responsibilities. As bot h t h e a u t h o r o f t h i s p a p e r , and a s t h e i n d i v i d u a l w i t h i n t h e Depar t ment c h a r g e d w i t h t h e r e s p o n s i b i l i t y f o r a d d r e s s i n g such i mmedi at e c o n c e r n s , I f i n d t h i s f i n a l Ch a p t e r most i n v i t i n g and c h a l l e n g i n g . O r g a n i z a t i o n a l Recommendations ^ D i v i s i o n o f Land Resource Programs As a g g r e g a t e d , i t i s recommended t h a t t h e D i v i s i o n o f Land Resource Programs be composed o f t h r e e Lansi ng bas ed s t a f f s e c t i o n s H h i s C h a p t e r has s u b s e q u e n t l y been s u b m i t t e d t o t h e Execu­ t i v e O f f i c e , DNR, by t h i s a u t h o r a s t h e pr op o s ed o r g a n i z a t i o n a l scheme f o r t h e D i v i s i o n o f Land Resource Programs. 25 8 259 one s e r v i c e s e c t i o n and t h r e e l i n e f i e l d - s t a f f component s. Each s e c t i o n would be composed o f s e v e r a l u n i t s , each wi t h c l o s e l y a l l i e d r e s o u r c e s management and p l a n n i n g r e s p o n s i b i l i t i e s . Field s t a f f would be p l a c e d i n e a c h o f t h e t h r e e Depart ment g e o g r a p h i c r e g i o n s o f t h e s t a t e and f u n c t i o n t o s e r v e t h e f i e l d needs o f t h e e n t i r e Division. S e c t i o n s pr oposed i n c l u d e t h e Program Development and Local S e r v i c e s S e c t i o n ; t h e G r e a t Lakes S h o r e l a n d s S e c t i o n ; t h e S p e c i a l Land Programs S e c t i o n ; t h e Land-Lake and St ream P r o t e c t i o n S e c t i o n ; and Region I , I I and I I I f i e l d component s. A functional d e s c r i p t i v e o u t l i n e o f t h e p r op o s e d D i v i s i o n o r g a n i z a t i o n a l s tru ctu rin g is presented. The Program Development and Local Services Section Thi s S e c t i o n i s pr oposed t o be o r g a n i z e d i n t o t h r e e functionally related units. Pl an Development Un i t T h i s Un i t would be c h a r g e d t o d e v e l o p and m a i n t a i n l i a i s o n wi t h t h e many s t a t e , f e d e r a l , and l o c a l a g e n c i e s cha r ge d wi t h l and p l a n n i n g and management r e s p o n s i b i l i t i e s . These would i n c l u d e a c t i v i t i e s o f t h e Envi r onment al P r o t e c t i o n Agency i n a r e a s o f a i r and w a t e r q u a l i t y p l a n n i n g and s o l i d was t e d i s p o a l ; U.S. Depart ment o f T ransportation planning a c t i v i t i e s ; Depar t ment o f Housing and Urban Development p l a n n i n g ; Depar t ment o f I n t e r i o r ; U.S. Depart ment o f A g r i c u l t u r e and o t h e r s w i t h f u n c t i o n a l p l a n n i n g r e l a t e d t o l a n d use. T h i s a c t i v i t y would e n t a i l s i m i l a r r e s p o n s i b i l i t i e s a t the 260 s t a t e , r e g i o n a l and l o c a l l e v e l s o f gover nment . I t would be t hr ough t h e s e a c t i v i t i e s t h a t t h e components n e c e s s a r y t o d e v e l o p a s t a t e l a n d u s e p l a n would e v o l v e . A second r e s p o n s i b i l i t y would be t h e d eve l o p me n t o f p l a n n i n g g u i d e l i n e s and s t a n d a r d s , d e s i g n e d t o implement r e l a t e d s t a t e p o l i c i e s . P l a n n i n g and Zoning Ad vi s or y S er vic es Unit T h i s Un i t would p r o v i d e t e c h n i c a l s e r v i c e s t o t h e o t h e r U n i t s o f t h e D i v i s i o n , t h e Bureau, t h e Depart ment and o t h e r l and p l a n n i n g and management e n t i t i e s o f t h e s t a t e . T h i s f u n c t i o n and s e r v i c e would be p r o v i d e d i n s u p p o r t o f t h e D i v i s i o n ' s p r o gr a ms , t h e Bur eau, t h e Depart ment and t o o t h e r l and p l a n n i n g and management e n t i t i t e s . A p r i ma r y o b l i g a t i o n would be t o p r o v i d e c o u n t i e s w i t h p l a n n i n g and zoni ng a s s i s t a n c e as r e q u i r e d by t h e County Rural Zoning Ena bl i ng Ac t , Act 183, P.A. 1943. T y p i c a l l y , t h i s would i n v o l v e p r o f e s s i o n a l on z o n i n g and r e l a t e d m a t t e r s . planning advice I t i s e n v i s i o n e d a s a somewhat b r o a d e r f u n c t i o n , however, i n t h a t i t would i n v o l v e t h e c o o r d i n a t i o n of e f f o r t s o f the e n t i r e Division in providing s t a f f a s s i s t a n c e to gover nment a l a g e n c i e s w i t h pr obl ems i n s p e c i f i c a r e a s such as s o i l e r o s i o n , i n l a n d l a k e s management, r i v e r s and c o a s t a l zone i s s u e s . The p r o v i s i o n s o f t e c h n i c a l s e r v i c e would u t i l i z e t h e m a t e r i a l g e n e r a t e d i n s p e c i f i c program a r e a s such a s g u i d e l i n e s f o r agricultural zoning, zoning a d m i n i s t r a t i o n , s o i l e r o si on contr ol g u i d e l i n e s , and so on. P a r t i c u l a r l y , t h i s s e r v i c e would be p r o v i d e d t o l o c a l u n i t s o f gover nment i n r e c o g n i t i o n o f t h e s t a t e ' s 261 r e s p o n s i b i l i t y to a s s i s t local u n i t s develop t h e i r land planning and management p o t e n t i a l . Res our ce Dat a, I n t e r p r e t a t i o n and Communi cat i ons Un i t T h i s U n i t would: a. Develop and m a i n t a i n a l an d r e s o u r c e d a t a i n f o r m a t i o n a n a l y s i s and d e l i v e r y s y s t e m. b. Improve t h e communi cat i ons a s p e c t i n s u p p o r t o f each o f t h e D i v i s i o n ' s pr og r ams , and t o o t h e r d e p a r t m e n t a l f u n c t i o n s upon r e q u e s t and w i t h i n t i me c o n s t r a i n t s . c. P r o v i d e and promot e s t a n d a r d i z a t i o n o f l a n d us e d a t a , mappi ng, and i n t e r p r e t a t i o n . T y p i c a l d u t i e s and f u n c t i o n s a s n o t e d above a r e : 1. O r g a n i z a t i o n and e s t a b l i s h m e n t o f c o u n t y l a n d / r e s o u r c e i n f o r m a t i o n f i l e s i n c l u d i n g t opo maps, h y d r o l o g y , c o v e r , u s e , m e t e r o l o g y , a i r p h o t o , s o i l s , and r e l a t e d r e s o u r c e i n f o r m a t i o n . The r e s o u r c e a n a l y s i s c a p a b i l i t y would e v o l v e and be i mproved as t h e components o f t h e d a t a s y s t e m were a s s e m b l e d , p o s s i b l y t h r o u g h a s y s t e m o f map o v e r l a y s showing r e l a t i o n s h i p s o f p h y s i c a l r e s o u r c e f a c t o r s c o u p l e d w i t h e x i s t i n g u s e s , o w n e r s h i p s , s p e c i f i c program i n f o r m a t i o n , p o l i c i e s and so on. T h i s e l e m e n t would e n t a i l the coop eration o f o th er agencies in assembling the d es ir ed information on f l o o d p l a i n s , hi ghway r o u t e s , m i n e r a l s , sewer and w a t e r p l a n s , etc. Long r a n g e needs w i l l l i k e l y d i c t a t e t h e use o f e l e c t r o n i c / me chani cal means f o r h a n d ! i n g t h e r e s o u r c e i n f o r m a t i o n . 262 2. The need f o r improved communi cat i ons and i t s i mp or t a n c e is recognized. While t h e l ong r a n g e s o l u t i o n t o t h i s problem may l i e i n t h e devel opment o f a f i e l d s t a f f , t h e r e a r e s h o r t t erm a i d s i n c l u d i n g such i t ems a s news l e t t e r s , s l i d e / v i d e o / t a p e p r o ­ gr ams, c o o p e r a t i v e a gr e e me n t s w i t h a g e n c i e s such a s E x t e n s i o n S e r v i c e , and o t h e r means t o mi ni mize e x i s t i n g communi cat i ons pr o bl e ms . The i mp or t a n c e o f t h i s f u n c t i o n c a n n o t be o v e r s t a t e d when r evi e wed i n l i g h t o f t h e p u b l i c ' s r i g h t t o know and t h e many p r o g r a ms , bot h s t a t e and f e d e r a l , r e q u i r i n g a c t i v e c i t i z e n i n v o l v e ­ ment. 3. The s t a n d a r d i z a t i o n o f a l and use d a t a c o v e r and c l a s s i f i c a t i o n s y s t e m must be i mpl ement ed. In r e c o g n i t i o n o f t h e pr o bl e m, t h e N a t u r a l Res our ces Commission, i n May 1977, ad o p t e d a s p o l i c y , t h e Michi gan Land Cover/ Use C l a s s i f i c a t i o n Sys t em, f o r us e by t h e Depar t ment and f u r t h e r r e s o l v e d t o promote i t s use by o t h e r gover nment al and p r i v a t e p l a n n i n g a g e n c i e s . Had t h i s syst em been i n us e by l and p l a n n i n g and management a g e n c i e s as l i t t l e as t h r e e y e a r s ago , t h e r e would be a v a i l a b l e t o d a y a u s e a b l e d a t a b a s e on M i c h i g a n ' s l a n d c o v e r and u s e s . There would p r o b a b l y be no need t o c o n d u c t a s t a t e dunes i n v e n t o r y , a w e t l a n d s i n v e n t o r y , and so on. S t a n d a r d i z a t i o n o f l a n d use d a t a and mapping i s a p r e r e q u i s i t e t o s t a t e w i d e a n a l y s i s and i n t e r p r e t a t i o n o f l and resource data. 4. The a c q u i s i t i o n and a p p l i c a t i o n o f r e m o t e l y s e n s e d ( a i r p h o t o s and s a t e l l i t e imagery) i magery t o r e s o u r c e management 263 programs i s an i m p o r t a n t f u n c t i o n a l e l e me n t which must be i n t e g r a t e a s a Depar t ment a c t i v i t y . Next t o an a c t u a l f i e l d i n s p e c t i o n , a i r ph ot os p r o v i d e t h e b e s t means f o r o b t a i n i n g g e n e r a l r e s o u r c e i n f o r ­ mat i on on s p e c i f i c g e o g r a p h i c a r e a s . S t a f f shoul d become i n s t r u ­ mental i n f or mi ng a c o a l i t i o n o f government al a g e n c i e s and p r i v a t e i n d u s t r i e s t o f i n a n c e and a c q u i r e s t a t e w i d e a e r i a l p ho t o gr a ph s in bot h b l a c k and w h i t e and c o l o r i n f r a - r e d f o r m a t s . The p h o t o g r a p h i c p r o d u c t s s ho u l d be housed i n t h e D i v i s i o n and s t a f f s houl d p r o v i d e a s e r v i c e f u n c t i o n f o r t h e use and p u r c h a s e o f t h e p r o d u c t s t o user agencies, professional i n t e r p r e t i v e and e d u c a t i o n a l s e r v i c e s and ma i n t e n a n c e o f t h e program t hr ou g h s u b s e q u e n t r e f l i g h t s o f t h e s t a t e a s needed. Statutory Authorities 1. E x e c u t i v e Order 1973-2 ( c h a r g i n g t h e Depart ment t o assume c o mp l e t e r e s p o n s i b i l i t y f o r t h e devel opment o f a s t a t e l and us e pr ogr am) . 2. Act 183, P.A. 1943, t h e County Zoning En a b l i n g Act. 3. T i t l e I I I o f PL 89- 8 0 (Water and r e l a t e d l a n d r e s o u r c e s planning co r p o ratio n . 4. Act 200, P.A. 1957, and Act 253, P.A. 1964, Wat er ­ shed P l a n n i n g Program. 5. S e c t i o n 701, PL 9 3 - 3 8 3 , Housing and Community Develop­ ment Ac t . G r e a t Lakes Sho r el a nd S e c t i o n Thi s S e c t i o n i s pr o p os ed t o be o r g a n i z e d i n t o t h r e e f u n c ­ tionally related units: 264 S h o r e ! a n d s Management Un i t T h i s U n i t ' s ma j o r f u n c t i o n would be t h e i mp l e me n t a t i o n and a d m i n i s t r a t i o n o f t h e S h o r e l a n d s P r o t e c t i o n and Management Act , Act 245, P.A. 1970. A d d i t i o n a l l y , t h i s Uni t would: (1) r e v i e w f e d e r a l p r o j e c t s , e n v i r o n me n t a l i mpact s t a t e m e n t s , e t c . , f o r p o s s i b l e i m p a c t s on d e s i g n a t e d s h o r e l a n d s a r e a s ; (2) p r o v i d e 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 on s h o r e l i n e e r o s i o n and f l o o d i n g p r o b l e ms ; ( 3) s u p e r v i s e t h e m o n i t o r i n g o f p r e v i o u s l y c o n s t r u c t e d e r o s i o n c o n t r o l d e m o n s t r a t i o n p r o j e c t s ; and (4) a s s i s t i n i n v e n ­ t o r y i n g and c a t a l o g i n g d a t a on s h o r e l a n d r e s o u r c e s and pr obl e ms . T h i s U n i t s h o u l d assume r e s p o n s i b i l i t y f o r c o n d u c t i n g t h e N a t i o n a l Wet l ands I n v e n t o r y f o r Michigan under c o n t r a c t wi t h t h e U.S. F i s h and W i l d l i f e S e r v i c e . Thi s i n v e n t o r y e f f o r t would i d e n t i f y , map and c l a s s i f y a l l Michigan w e t l a n d s . I t would a l s o p r o v i d e d e t a i l e d management i n f o r m a t i o n f o r us e by l o c a l u n i t s o f g ov e r n me nt . I mp l e m e n t a t i o n o f t h e i n v e n t o r y would r e q u i r e c l o s e c o o r d i n a t i o n bet ween t h i s agency and f e d e r a l and l o c a l a g e n c i e s . M i c h i g a n ' s De m o n s t r a t i o n E r o s i o n Cont r ol Program s houl d a l s o be a d m i n i s t e r e d by t h i s U n i t . s i v e knowledge o f c o a s t a l Thi s program r e q u i r e s e x t e n ­ p r o c e s s e s and c l o s e c o o r d i n a t i o n wi t h l o c a l and o t h e r a g e n c i e s t o a s s u r e c o m p a t i b i l i t y between p h y s i c a l , s o c i a l and s t r u c t u r a l needs f o r a p a r t i c u l a r p r o j e c t . 265 C o a s t a l Program U n i t T h i s U n i t ' s maj o r f u n c t i o n would be t h e 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 o f a c o a s t a l zone management program p u r s u a n t t o t h e N a t i o n a l C o a s t a l Zone Management Act (PL 9 2 - 5 8 3 ) . G r e a t Lakes Submerged Lands Un i t T h i s U n i t would a d m i n i s t e r t h r e e G r e a t Lakes Submerged Lands Act s which a r e c o n c e r n e d wi t h t h e u s e , l e a s e , s a l e , d r e d g i n g , f i l l i n g and e x t r a c t i o n o f m i n e r a l s from s t a t e - o w n e d Gr e a t Lakes bottomlands. all federal T h i s U n i t s h o u l d a l s o c o o r d i n a t e S t a t e i n t e r e s t in p r o j e c t s and t h o s e p r i v a t e p r o j e c t s r e q u i r i n g f e d e r a l approval. All t h r e e p r op os e d Un i t s o f t h e G r e a t Lakes S h o r e l a n d s S e c t i o n have c l o s e f u n c t i o n a l a s well a s g e o g r a p h i c t i e s . The S h o r e l a n d s Management Un i t and t h e Gr e a t Lakes Submerged Lands Un i t would b o t h i n v o l v e r e g u l a t o r y f u n c t i o n s . Both would be d e e p l y i n v o l v e d i n a c t i v i t i e s r e l a t e d t o e r o s i o n and f l o o d c o n t r o l . In e s s e n c e , one Un i t s h o u l d deal w i t h Gr e a t Lake b o t t o ml a n d s and t h e o t h e r U n i t w i t h t h e upl and s h o r e s . Often, individual p r o j e c t s w i l l r e q u i r e c o n s i d e r a t i o n by bot h U n i t s . The C o a s t a l Program U n i t would be e s s e n t i a l l y c on cer ned with a l l phases o f shoreland planning. I t c o u l d a s s i s t and be a s s i s t e d by t h e p e r s o n n e l o f t h e S h o r e l a n d s Management and Submerged Lands U n i t s . A d d i t i o n a l l y , f e d e r a l f u n d s t h a t become a v a i l a b l e i n t h e i m p l e m e n t a t i o n phas e o f t h e c o a s t a l management program c o u l d 266 h e l p s u p p o r t e x i s t i n g r e g u l a t o r y and t e c h n i c a l a s s i s t a n c e programs o f t h e o t h e r two U n i t s . Statutory Authorities 1. S h o r e l a n d s P r o t e c t i o n and Management Act o f 1970, Act 245, P.A. 1970, a s amended. 2. G r e a t Lakes Submerged Lands Act 247, P.A. 1955, as amended. 3. N a t i o n a l Co a s t a l Zone Management Act o f 1972, PL 92- 583. 4. Act 165, P.A. 1976. ( Exe mpt s e r o s i o n c o n t r o l s t r u c ­ t u r e s from p r o p e r t y t a x l e v y ; DNR a s s i s t s i n d e t e r m i n i n g eligible structures.) 5. Act 326, P.A. 1913, and Act 10, P.A. 1953. 6. Act 14, P.A. 1973 ( a u t h o r i z a t i o n t o c o n s t r u c t and m o n i t o r l o w - c o s t s h o r e e r o s i o n p r o t e c t i v e wo r k s ) . The S p e c i a l Land Programs S e c t i o n T h i s S e c t i o n would i n c o r p o r a t e t h e Farmland and Open Space P r e s e r v a t i o n Program, t h e Na t u r a l Ri v e r s Program, t h e W i l d e r ­ n e s s and Na t ur a l Ar eas Program and t h e N a t u r a l Beauty Roads Program. I n d i v i d u a l l y , t h e s e programs a r e c o n c e r n e d w i t h t h e l o n g r a n g e p r o t e c t i o n o f c r i t i c a l and u ni que n a t u r a l r e s o u r c e s o f "state-wide" s ig n ifican ce. C o l l e c t i v e l y , t h e s e programs form a s u b s t a n t i a l p o r t i o n o f an i mp l e m e n t a t i o n e f f o r t f o r a compr ehensi ve Michigan l a n d management pr ogram. These programs a r e i n t e r r e l a t e d i n t h a t a s i n g l e l a n d a r e a may meet t h e c r i t e r i a f o r two o r more o f t h e s e s p e c i a l pr og r ams , t h u s making a s t r o n g e r c a s e f o r a f f i r m a t i v e and c o o r d i n a t e d management between programs. 267 All o f t h e programs r e q u i r e a c o n c e n t r a t e d l o c a l government al i nv o l v e me nt i n o r d e r f o r t h e program t o f u n c t i o n e f f e c t i v e l y . Thi s t hen r e q u i r e s a l a r g e d e g r e e o f i n v o l v e me n t between t h e s t a t e agency a d m i n i s t e r i n g t h e programs and l o c a l governmental u n i t s t o p r o v i d e them w i t h e x t e n s i v e t e c h n i c a l a s s i s t a n c e and 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 a d m i n i s t r a t i o n o f t h e programs a t a l l gover nment . levels of In g r o u p i n g t h e s e pr ograms t o g e t h e r , i t would p e r m i t t h e head o f t h e s e c t i o n t o c o o r d i n a t e t h i s i m p o r t a n t f u n c t i o n more e f f e c t i v e l y and e f f i c i e n t l y . Farmland and Open Space P r e s e r v a t i o n T h i s Act p r o v i d e s f o r t h e v o l u n t a r y p r o t e c t i o n o f a c t i v e a g r i c u l t u r a l l a n d s and c e r t a i n open s p a c e l a n d s b y p r i v a t e l a n do wne r s . By e n r o l l i n g t h e i r l a n d s i n t o t h e pr ogr am, t h e l andowner a g r e e s n o t t o d e v e l o p t h e l a n d i n a more i n t e n s i v e use f o r a 10 y e a r p e r i o d o r l o n g e r i n r e t u r n f o r whi cn t h e s t a t e a g r e e s t o p r o v i d e c e r t a i n t a x b e n e f i t s t o t h e l a n d o wn e r s . Na t u r a l Ri v e r s T h i s pr ogram p r o v i d e s f o r t h e p r o t e c t i o n o f one o f M i c h i g a n ' s most i m p o r t a n t n a t u r a l r e s o u r c e s , i t s r i v e r s and s t r e a m s and t h e i r adjoining lands. The Act r e q u i r e s t h a t a s t a t e w i d e syst em o f r i v e r s be i d e n t i f i e d and p r o t e c t e d t h r o u g h formal d e s i g n a t i o n by t h e N a t u r a l Res our ces Commission. Because o f i t s i mp a c t upon p r i ­ v a t e o wn er s hi p and t h e p r o t e c t i o n o f p u b l i c l y owned n a t u r a l r e s o u r c e s , t h e pr ogram must m a i n t a i n hi gh v i s i b i l i t y in t h e minds o f t h e 268 g e n e r a l p u b l i c , p r i v a t e r i v e r f r o n t s l andowner s and l o c a l g o v e r n ­ mental o f f i c i a l s . P r o t e c t i o n o f t h e r i v e r s and a d j o i n i n g l a n d s i s a c h i e v e d by t h e i m p l e m e n t a t i o n o f l o c a l z oni ng o r d i n a n c e s o r t h r o u g h s t a t e z o n i n g u n de r t h e A d m i n i s t r a t i v e P r o c e d u r e s Act o f 1969, as mended. Wi l d e r n e s s and N a t u r a l Areas Th i s Act p r o v i d e s f o r a l e g a l method t o p r o t e c t c e r t a i n w i l d e r n e s s , w i l d and n a t u r a l a r e a s on s t a t e owned l a n d s . Thi s p r o t e c t i o n o f t h e s e t y p e s o f l a n d i s a c h i e v e d t h r o u g h formal d e d i ­ c a t i o n by t h e N a t u r a l Re s o u r c e s Commission and a d m i n i s t r a t i v e r u l e u n d e r t h e A d m i n i s t r a t i v e P r o c e d u r e s Act o f 1969, a s amended. The Act a l s o c r e a t e d a 7 member g u b e r n a t o r i a l l y a p p o i n t e d a d v i s o r y b oar d t o r e v i e w p r o p o s e d a r e a s f o r d e d i c a t i o n and recommend manage­ ment p l a n s f o r such a r e a s . N a t u r a l Beauty Roads The N a t u r a l Bea ut y Roads Act a f f o r d s l o c a l c i t i z e n s wi t h an o p p o r t u n i t y t o i d e n t i f y and p r o t e c t l o c a l roadways i n a n a t u r a l , e s s e n t i a l l y u n d i s t u r b e d c o n d i t i o n havi ng unus ual o r outstanding natural other natural b e a u t y by v i r t u e o f n a t i v e v e g e t a t i o n o r features. These f e a t u r e s a r e u s u a l l y l o c a t e d w i t h i n o r a s s o c i a t e d w i t h t h e r i g h t - o f - w a y o f t h e r oad f o r use and en j o yme n t o f l o c a l r e s i d e n t s and t h e g e n e r a l p u b l i c . Roads can be d e s i g n a t e d by t h e c o u n t y r o a d commi ssi ons f o l l o w i n g t h e receipt of a p e t i t i o n s i g n e d by t o wn s h i p r e s i d e n t s . The 269 Depa r t me nt p r o v i d e s a c l e a r i n g h o u s e o f i n f o r m a t i o n on t h e pr ogram t o t h e g e n e r a l p u b l i c and t o c o u n t y r o a d commi s s i ons . Statutory Authorities 1. Act 116, P.A. t i o n Ac t . 1974, Farmland and Open Space P r e s e r v a ­ 2. Ac t 231, P.A. 1970, Na t u r a l R i v e r s Act . 3. Act 2 4 1 , P.A. 1972, Wi l d e r n e s s and Na t u r a l Areas Act . 4. Ac t 150, P.A. 1970, Na t u r a l Beauty Roads Act. The Land-Lake and St ream P r o t e c t i o n S e c t i o n T h i s S e c t i o n o f Land Res our ce Programs would assume r e s p o n s i b i l i t y for the adm inistration of several a l l i e d s ta tu te s and pr ogr ams which d e a l d i r e c t l y w i t h t h e i mpact o f ma n ' s l and o r i e n t e d a c t i v i t i e s upon t h e w a t e r s o f t h i s s t a t e . I t s h o u l d be r e a f f i r m e d t h a t t h e c o n c e r n l i e s w i t h t h e i mpact o f l an d on w a t e r r a t h e r t h a n w a t e r on l a n d . Two s t a t u t e s , Act 346, P.A. 1972, which r e g u l a t e s d r e d g i n g and f i l l i n g i n t o i n l a n d w a t e r s , and Act 347, P.A. 1972, which p r o t e c t s s t a t e ' s w a t e r s from a d j o i n i n g l a n d us e a c t i v i t i e s (earth c h a n g e s i n p a r t i c u l a r ) whi ch c a u s e o r may c a u s e damage from e r o s i o n and i t s r e s u l t i n g s e d i m e n t a t i o n t o l a k e s and s t r e a m s a r e companion l e g i s l a t i v e a c t i o n s . In t o t a l , t h e s e s t a t u t e s a r e d e s i g n e d t o p r o v i d e a u n i f i e d e n v i r o n m e n t a l p r o t e c t i o n package f o r l a k e and s t r e a m e n v i r o n m e n t s . I n l a n d Lake Management e f f o r t s s h o u l d c o n c e n t r a t e on two pr ogr am a r e a s : (1) i n l a n d l a k e p r o t e c t i o n and r e h a b i l i t a t i o n ; 27 0 and (2) a q u a t i c n u i s a n c e c o n t r o l . I n c r e a s i n g p r e s s u r e s on our i n l a n d l a k e s a r e r e s u l t i n g from t h e emphas i s on r e c r e a t i o n ; i n c r e a s i n g p o p u l a t i o n , and t h e i n c r e a s i n g a f f l u e n c e and m o b i l i t y of our populace. The r e s u l t i n g p a t t e r n emer gi ng t h r o u g h t h e e f f e c t o f t h e economic m a r k e t i s one c h a r a c t e r i z e d by i n f l a t e d s h o r e l i n e p r o p e r t y v a l u e s , more i n t e n s i v e and hi g h d e n s i t y d e v e l o p ­ ment , i n c r e a s i n g c o n f l i c t s between p u b l i c v e r s u s p r i v a t e u t i l i z a ­ t i o n , and a r e s u l t i n g g e n e r a l r e d u c t i o n i n t h e o v e r a l l q u a l i t y o f many o f o u r l a k e s . The i n l a n d l a k e p r o t e c t i o n and r e h a b i l i t a t i o n pr ogram would d e t e r m i n e t h e c o n d i t i o n o f Michi gan l a k e s ( as man­ d a t e d by f e d e r a l law) and d e t e r m i n e i f t h e y r e q u i r e p r o t e c t i o n o r rehabilitation. T h i s pr ogram w i l l e n a b l e t h e s t a t e o r l o c a l u n i t s o f gover nment t o a p p l y f o r f e d e r a l f un ds a v a i l a b l e f o r l a k e rehabilitation. The S e c t i o n would a l s o a d m i n i s t e r t h o s e a c t s e s t a b l i s h e d t o p r o v i d e a means o f s e t t i n g up s p e c i a l a s s e s s m e n t d i s t r i c t s t o i mprove l a k e s . Having t h e s e c t i o n i n v o l v e d i n t h e c l a s s i f i c a t i o n o f l a k e s , r e v i e w o f g r a n t a p p l i c a t i o n s and r e p r e ­ s e n t i n g t h e Dep ar t ment on l a k e i mprovement a s s e s s m e n t d i s t r i c t s would a s s u r e a c o s t e f f e c t i v e , e n v i r o n m e n t a l l y sound a p p r o a c h t o lake clean-up. Al t hough a q u a t i c n u i s a n c e c o n t r o l management and r e h a b i l i t a t i o n , w a r r a n t s s p e c i a l mention. i s a pha s e o f l a k e t h e i mp o r t a n c e o f t h e pr ogram T h i s S e c t i o n would a d m i n i s t e r t h e p e r m i t pr ogr am f o r t h e c o n t r o l o f swimmers' it c h , nuisance aquatic p l a n t s and a u t h o r i t y o f Act 8 6 , P.A. 1977 and Act 41 , P.A. 1955. In t h i s way, t h e S e c t i o n would be a b l e t o r e g u l a t e t h e us e o f 271 h e r b i c i d e s by i n d i v i d u a l r i p a r i a n s , l a k e a s s o c i a t i o n s and l i c e n s e d commerci al a p p l i c a t o r s . Through t h i s pr ogram t h e D i v i s i o n would be a b l e t o s e r v e t h e p u b l i c and p r o t e c t t h e w a t e r s o f t h e s t a t e by r e q u i r i n g t h a t o n l y r e g i s t e r e d h e r b i c i d e s a r e a p p l i e d t o i n l a n d l a k e s a t t h e p r o p e r r a t e and f o r t h e c o n t r o l o f t h e a p p r o ­ p r i a t e t a r g e t o r g a n i s m. When h e r b i c i d e t r e a t m e n t o c c u r s w i t h o u t Depar t ment s u p e r v i s i o n o r a p e r m i t , t h e p u b l i c h e a l t h and s a f e t y a r e f r e q u e n t l y p l a c e d i n j e o p a r d y be c a us e t r e a t e d w a t e r s may n o t be p o s t e d a d e q u a t e l y t o p r o t e c t p o t e n t i a l users. The s u s p e c t e d h e r b i c i d e p o i s o n i n g o f swimmers and t h e t h r e a t o f u s i n g h e r b i c i d e c o n t a m i n a t e d w a t e r f o r a g r i c u l t u r a l and d o m e s t i c us es combined w i t h a p r e d i c t e d i n c r e a s e i n bo t h h e r b i c i d e s u s e and r e c r e a t i o n a l use w i l l p l a c e i n c r e a s i n g demands on t h i s pr ogram. Statutory Authorities 1. 2. 3. S e c t i o n 314 o f PL 95- 21 7, Lake C l a s s i f i c a t i o n and Rehabilitation. Act 86, P.A. 1977, A q u a t i c Nu i s ance Program. Act 347, P.A. 1972, Soi l E r o s i o n and S e d i m e n t a t i o n Control. 4. Act 346, P.A. 1974, I n l a n d Lakes and St reams Act . 5. Act 41, P.A. 1955, A q u a t i c Weed C o n t r o l . 6. Act 345, P.A. 1966, I n l a n d Lakes Improvement Act . 7. PL 9 2 - 5 1 6 , F e d e r a l Envi r onment al P e s t i c i d e Co n t r o l Act . 8. S e c t i o n 4 0 4, PL 95- 2 17 , Feder al Cl e a n Waters Act . 272 Field Organization T r a i n i n g and A d m i n i s t r a t i o n In r e s p o n s e t o an i d e n t i f i e d need f o r i n c r e a s e d communica­ t i o n s and a more e f f e c t i v e d e l i v e r y o f pr ogram s e r v i c e s , proposed t h a t th e D ivisi on e s t a b l i s h a f i e l d s t a f f . i t is The f o l l o w i n g i s i n t e n d e d t o o u t l i n e t h e maj or a s p e c t s o f t h e f i e l d s t a f f and t o s e r v e a s an i mp l e m e n t a t i o n gu i d e i n e s t a b l i s h i n g the f i e l d p o sitio n s. Individual C h a r a c te r is tic s F i e l d p o s i t i o n s r e p r e s e n t a v e h i c l e and an o p p o r t u n i t y t o e s t a b l i s h a key l i n k bet ween t h e o f f i c i a l s o f s u b s t a t e u n i t s o f g o v e r n me n t , i n t e r e s t g r o u p s , e d u c a t i o n a l i n s t i t u t i o n s , t h e p u b l i c and t h e D i v i s i o n o f Land Res our ce Programs. As such t h e s e p o s i t i o n s r e q u i r e a g g r e s s i v e n e s s w i t h t a c t ; s a l e s m a n s h i p ; a g e n e r a l knowledge o f Dep a r t me n t a l f u n c t i o n s w i t h an i n d e p t h u n d e r s t a n d i n g o f D i v i s i o n pr ogr ams and t e c h n i c a l compet ence i n a m a j o r i t y o f t h e D i v i s i o n ' s p r ogr am r e s p o n s i b i l i t i e s . E d u c a t i o n and E x p e r i e n c e A f o u r - y e a r d e g r e e a s a minimum w i t h p h y s i c a l s c i e n c e and r e s o u r c e management backg r o un d i s s t r e s s e d . e x p e r i e n c e w i t h s t a t e o r l o c a l gover nment . P r e f e r a b l e t o have Upon h i r i n g , t h e p e r s o n s h o u l d be g i v e n an i n t e n s i v e s h o r t c o u r s e t r a i n i n g on t h e Depar t ment and D i v i s i o n ' s pr ogr ams and a c t i v i t i e s . 273 A d m i n i s t r a t i v e / P r o g r a m Li n e s o f Aut hor i t y D i r e c t pr o gr am s u p e r i v s i o n s h o u l d r emai n w i t h i n t h e D i v i s i o n o f Land Re s o u r c e Pr ograms. Administrative supervision to be p r o v i d e d by e a c h o f t h e DNR Regi ons and would i n c l u d e c l e r i c a l , t r a v e l , o f f i c e s p a c e , t i me and a t t e n d a n c e s u p e r v i s i o n , and t h e supervision of assigned tasks. Duties The p r o v i s i o n o f two-way communi cat i ons between t h e Depar t ment and t h e D i v i s i o n o f Land Res our ce Programs and t h e c l i e n t e l e s e r v e d , s h o u l d be a ma j o r a c t i v i t y . Th i s would i n c l u d e e d u c a t i o n a l pr og r am s e r v i c e s , t e c h n i c a l s e r v i c e s i n a r e a ( s ) o f competence, r e f e r r a l s e r v i c e s as a p p r o p r i a t e , permit pr oce ss ing, t r o u b l e s h o o t i n g f o r t h e v a r i o u s D i v i s i o n p r og r a ms , l i a i s o n wi t h o t h e r DNR f i e l d s t a f f , and t h e p r o v i d i n g o f omnibusman s e r v i c e s a s wel l a s t h e d e l i v e r y o f pr ogram p o l i c i e s . 1. More s p e c i f i c a l l y : I d e n t i f y and m a i n t a i n c o n t a c t and l i a i s o n w i t h key gr o up s and p u b l i c b o d i e s a f f e c t e d by o r i n t e r e s t e d i n D i v i s i o n programs, i . e . , l o c a l l e g i s l a t i v e and p l a n n i n g b o d i e s , e x t e n s i o n p e r s o n n e l , s e r v i c e c l u b s , and o t h e r s . 2. T e c h n i c a l s e r v i c e t o above as a p p r o p r i a t e and as compet ence p e r m i t s . 3. E d u c a t i o n a l s e r v i c e s - - u t i l i z i n g La ns i ng s t a f f and prepared a u d i o - v i s u a l m a t e r i a l s as a p p r o p r i a t e in the D i v i s i o n ' s several pr ogr am a r e a s . 274 4. P r o v i d e r e f e r r a l s e r v i c e s t o t h e D i v i s i o n (and D e p a r t ­ ment a s a p p r o p r i a t e ) . 5. Ser ve a s D i v i s i o n ' s t r o u b l e s h o o t e r i n s p e c i f i c problem 6. P e r m i t i s s u a n c e and compl i a nc e e f f o r t s f o r D i v i s i o n areas. programs. 7. P a r t i c i p a t e in e d u c a t i o n / t r a i n i n g s e s s i o n s sponsored by o t h e r s a s a p p r o p r i a t e . 8. A s s i s t , t h r o u g h Law Enf or cement D i v i s i o n , i n o b t a i n i n g c o mp l i a n c e w i t h t h e D i v i s i o n ' s s e v e r a l r e g u l a t o r pr ogr ams . 9. P r e p a r e w i t h g u i d a n c e from La n s i n g s t a f f , annual work pr ogram f o r f i e l d s t a f f a c t i v i t i e s and r e p o r t p e r i o d i c a l l y upon progress/problems. I t would be e x p e c t e d t h a t program p r i o r i t i e s would v a r y w i t h i n t h e DNR Regi ons. 10. At t e n d i n - s e r v i c e t r a i n i n g programs as a p p r o p r i a t e t o keep c u r r e n t and p r o f i c i e n t i n j o b a s s i g n m e n t s . 11. M a i n t a i n l i n k w i t h Regi onal I n f o r m a t i o n and Ed u c a t i o n s t a f f t o r e p o r t t h r o u g h them s i g n i f i c a n t a c c omp l i s hme n t s a s t h e D i v i s i o n ' s communi t y-bas ed s t a f f . 12. S o l i c i t and pr ogram in advance t h e Lansi ng s t a f f needed f o r pr ogram s u p p o r t and t e c h n i c a l a s s i s t a n c e . i m p l i e s t h a t La n s i n g s t a f f w i l l ( Thi s p r o v i d e t h e n e c e s s a r y program backup s u p p o r t . ) 13. As t h e s i t u a t i o n and j udgment d i c t a t e s , t h e p o s i t i o n must have s u f f i c i e n t a u t h o r i t y t o s peak i n b e h a l f o f t h e D i v i s i o n ' s programs. 275 r -------- F ig u re 5 DIVISION OF LAND RESOURCE PROGRAMS Chief ---------^ Program Development and Services Section Great Lakes S h o reland s Section 1 Land, Lake and S tream Protection Section S pecial Land Program Section Sho relands M anagem ent Agriculture and Open S p a c e A c t 245. PA 1970 A c t 165. PA 1976 A c t 14, PA 1973 A c t 116, PA 1974 Soil Erosion and S ed im en tation Control A c t 347, PA 1973 Inland Lakes M anagem ent Natural Rivers < C oastal Program A d 86, PA 1 977 A c t 41, PA 1955 A c t 345, PA 1966 S e c t i o n 314, PL 92-500 PL 92-516 A d 231, PA 1970 PL 92-583 S ubm erged Lands W ilderness Areas an d Beauty R oads _________________ _ V Inland W aters A c t 241, PA 1972 A c t 150, PA 1970 A c t 247, PA 1955 A c t 326, PA 1913 A c t 10, PA 1953 Region I Field O p eratio ns Title III, PL 89-80 A c t 200, PA 195 7 A c t 253, PA 1964 A d 183, PA 1943 S e c t i o n 701, PL 93-383 E x e c u t i v e O r d e r 1973-2 A c t 346, PA 1972 S e c t i o n 404, PL 95-2 17 Region II Field O pe rations Region III Field O p e ratio ns 276 PROGRAM RESPONSIBILITIES OF DIVISION OF LAND RESOURCE PROGRAMS (A SYNOPSIS) E x e c u t i v e O rd er 1 9 7 3 - 2 T r a n s f e r and c o n s o l i d a t i o n o f e n v i r o n me n t a l f u n c t i o n s w i t h i n t h e Depar t ment o f Na t u r a l Re­ s o u r c e s ( Dep ar t men t g i v e n r e s ­ p o n s i b i l i t y to develop s t a t e l a n d use p r o g r a m) . Act 183, P.A. 1943 The County Rural Zoning En a b l i n g Act ( s t a t e c h a r g e d w i t h r e v i e w and a p p r o v a l a u t h o r i t y ) . T i t l e I I I o f PL 89- 80 The Water Re s our ces P l a n n i n g Act . T i t l e I II is e n t i t l e d Financial A s s i s ta n c e to the s t a t e s f o r Comprehensive P l a n n i n g Gr ant Au t h o r i z a t i o n s . Act 200, P.A. 1957 E s t a b l i s h m e n t o f a Wat ershed Counci l A u t h o r i t y . Act 253, P.A. 1964 Local R i v e r Management Act . S e c t i o n 7 01, PL 93-383 Housing Act o f 1954, a s amended by t h e Housing and Community Development Act o f 1974. P.A. 245, 1970 S h o r e l a n d s P r o t e c t i o n and Manage­ ment Act . Act 247, P.A. 1955 G r e a t Lakes Submerged Lands Act . PL 92- 583 Co a s t a l Zone Management Act o f 1972. P.A. 165, 1976 An a c t a u t h o r i z i n g p r o p e r t y t a x r e l i e f for e r o s i o n control s t r u c t u r e s - - r e q u i r e s s t a t e review and c e r t i f i c a t i o n . Act 3 26, An Act t o p r o v i d e f o r t h e l e a s i n g , c o n t r o l and t a x a t i o n o f c e r t a i n l a n d s owned and c o n t r o l l e d by t h e s t a t e , and t h e improvement s t h e r e ­ on; p r o v i d i n g p e n a l i t i e s f o r t h e v io la tio n of c e r t a in provisions t h e r e o f ; and r e p e a l i n g Act No. 215 o f t h e P u b l i c Act s o f 1909, and a ll other acts or parts of acts in c o n sis te n t herewith. 1913 277 Act 10, P.A. 1953 An Act t o a u t h o r i z e t h e C o n s e r v a ­ t i o n Commission t o g r a n t ea s e me n t s f o r t h e e r e c t i n g , l a y i n g , ma i n ­ t a i n i n g and o p e r a t i n g o f p i p e l i n e s , e l e c t r i c , t e l e p h o n e and t e l e g r a p h l i n e s on c e r t a i n s t a t e l a n d s and on u n p a t e n t e d o v e r f l o w e d l a n d s and l a k e bot t om l a n d s . P.A. 14, 1973 An Act t o make a p p r o p r i a t i o n s and m o n i t o r i n g f o r d e m o n s t r a t i o n e r o s i o n work p r o j e c t s . P.A. 116, 1974 Farmland and Open Space P r e s e r v a ­ t i o n Act . P.A. 231, 1970 N a t u r a l R i v e r Act o f 1970. P.A. 241, 1972 Wi l d e r n e s s and Na t u r a l Areas Act . P.A. 150, 1970 An Act t o d e s i g n a t e c e r t a i n r o a d s a s Michi gan Na t u r a l Beauty Roads. S e c t i o n 314, PL 92- 500 Feder al Water P o l l u t i o n Co nt r o l Act . Act 86, P.A. 1977 Amendments t o t h e A q u a t i c Nui ­ sance Cont r ol A c t , P.A. 58 o f 1959. P.A. 347, 1972 Soi l Er os i o n and S e d i m e n t a t i o n Co nt r ol Ac t . Act 346, P.A. 1972 I n l a n d Lakes and St r e ams Act . Act 4 1, P.A. 1955 An Act t o a u t h o r i z e Township Boards t o c o n t r o l weeds i n i n l a n d lakes. P.A. 345, 1966 I n l a n d Lake Improvement Ac t . PL 92-516 Fe d e r a l Envi r onment al P e s t i c i d e Co n t r o l Act o f 1972 ( a c t u a l l y amended Fed er al I n s e c t i c i d e , F u n g i c i d e and R o d e n t i c i d e A c t ) . PL 9 5 - 2 1 7 , 1 977 Cl ean Water Act o f 1977, S e c t i o n 67 amends S e c t i o n 404 o f 9 2 - 5 0 0 . P e r m i t s f o r dr edged o r f i l l m aterial. 278 Immedi at e Ac t i o n Program Recommendations In f u r t h e r a n c e o f mandated r e s p o n s i b i l i t e s f o r t h e d e v e l o p ­ ment o f a p l a n f o r p r e s e r v i n g open s p a c e l a n d s , a g r i c u l t u r a l and horticultural l a n d s , un i qu e o r c r i t i c a l land a r e a s , r e c r e a t i o n a l and h i s t o r i c l a n d s , and o t h e r e s s e n t i a l r e s o u r c e s , a p r o c e s s and pr ogram i s n e c e s s a r y t o e f f e c t i v e l y manage t h e e f f o r t s o f t h o s e charged with the plan r e s p o n s i b i l i t y . I t is recognized a t the o u t s e t t h a t a s u c c e s s f u l pr ogram must be a c o o p e r a t i v e e f f o r t . It must be s u p p o r t e d by t h e d e s i r e o f Michi gan c i t i z e n s and l e a d e r s t o r e t a i n and en h a nc e t h e l a n d r e s o u r c e v a l u e s which we have f o r so l o ng t a k e n f o r g r a n t e d . Any u n d e r t a k i n g , w h e t h e r an i n d i v i d u a l e f f o r t , a c o r p o r a t e v e n t u r e , o r a pr ogram a d m i n i s t e r e d by a gover nment al body, i s more l i k e l y t o be s u c c e s s f u l i f pr e c e d e d by a t h o r ou gh u n d e r s t a n d i n g o f the problem t h e a c t i o n c o n t e m p l a t e d i s d e s i g n e d t o r e s o l v e . A c c o r d i n g l y , and a s a f i r s t s t e p , a s t r o n g i n f o r m a t i o n base i s v i t a l t o t h e u n d e r s t a n d i n g o f t h e l a n d use c o n c e r n which has been f o s t e r e d by a gr owi ng demand f o r our f i n i t e l a n d r e s o u r c e s . A t t e n t i o n m u s t , t h e r e f o r e , be d i r e c t e d a t a s s e m b l i n g and e v a l u a t i n g th e e x i s t i n g land re so u rc e information base. Concur­ r e n t l y , s t e p s must be t a k e n t o g e n e r a t e needed i n f o r m a t i o n i n a r e a s o f c o n c e r n where t h e r e i s i n a d e q u a t e l a n d r e s o u r c e base i n f o r m a t i o n . These i n f o r m a t i o n e l e m e n t s must have u t i l i t y a t a l l gover nment as well a s p r o v i d i n g u s e f u l sector. levels of information for the p r i v a t e 279 A second s t e p i n t h e p l a n p r o c e s s and one which has been d e v e l o p e d by t h e Depar t ment i n i t s i n i t i a l program document , M i c h i g a n ' s F u t u r e Was Today, i s t h e e s t a b l i s h m e n t o f g o a l s o r a d e s i r e d f u t u r e c o n d i t i o n f o r our e s s e n t i a l l an d r e s o u r c e s . The t h i r d s t e p i n t h e p r o c e s s would be t h e f o r m u l a t i o n o f o b j e c t i v e s , p o l i c i e s and a c t i o n s n e c e s s a r y d e s i g n e d t o a c h i e v e stated goals. The Mi chi gan L e g i s l a t u r e t h r o ug h v a r i o u s ( c i t e d ) l e g i s l a t i v e e n a c t m e n t s , has a d o p t e d s p e c i f i c p o l i c i e s f o r p r e ­ s e r v i n g and managi ng f a r m l a n d , open s pa c e l a n d and c e r t a i n o t h e r essential lands. Other land p o lic y o p tion s for e s s e n t i a l lands management a r e o f f e r e d l a t e r i n t h e r e p o r t f o r l e g i s l a t i v e consideration. A f o u r t h s t e p i n t h e p l a n p r o c e s s must encompass t h e d e v e l o p me n t and p r o v i s i o n o f l a n d management t o o l s t e c h n i q u e s and assistance. T h i s i s n e c e s s a r y f o r us e by t h e l a n d management agencies ( s t a t e , lo c a l, i n d i v i d u a l s ) r e s p o n s i b l e f o r i mpl ement i ng s t a t e o r l o c a l l a n d p o l i c i e s t o a c h i e v e s t a t e d l a n d use g o a l s . I n c l u d e d would be d o l l a r s , p l a n n i n g g u i d e l i n e s , s t a n d a r d s , and c r i t e r i a , and t h e p r o v i s i o n o f c a p a b l e t e c h n i c a l a s s i s t a n c e t o r e q u e s t i n g l a n d management a g e n c i e s . Land Res our ce Base I n f o r m a t i o n Needs M i c h i g a n ' s Land Res our ce ba s e c o n s t i t u t e s t h e s u m - t o t a l o f o u r wo r k i n g c a p i t a l . capital The c i t i z e n r y can draw i n t e r e s t on t h i s i n t h e form o f r e n e w a b l e n a t u r a l r e s o u r c e s . resources represent a fixed c a p i t a l . Nonrenewable The c o n t i n u e d s u c c e s s o f t h e 280 b u s i n e s s o f l i v i n g w i t h and e n j o y i n g M i c h i g a n ' s n a t u r a l a d v a n t a g e s depends on how wel l we manage o u r c a p i t a l - - t h e l an d r e s o u r c e b a s e . E f f o r t s o f one form o r a n o t h e r , have been underway s i n c e b e f o r e Mi chi gan g a i n e d s t a t e h o o d , t o i n v e n t o r y i t s l a n d r e s o u r c e s . Much o f t h i s i n v e n t o r y and a s s e s s m e n t has been d i r e c t e d a t a s p e c i f i c land r es o ur ce i n t e r e s t or is s ue with l i t t l e a t t e n t i o n to other existing resources. Only i n r e l a t i v e l y r e c e n t t i m e s , has t h e br oa d p u b l i c needs been r e c o g n i z e d . The use o f s o i l s i n f o r m a t i o n f o r l o c a t i n g d e s i r a b l e s i t e s f o r c e r t a i n c l a s s e s o f s t r u c t u r e s and hi ghways , t h e use o f geological s u r v e y i n f o r m a t i o n t o en c o u r a g e new mi ner a l investment and t h e use o f f o r e s t i n v e n t o r y d a t a t o enc ou r a g e t h e l o c a t i o n o f new i n d u s t r y a r e pr i me e xa mp l e s . Much o f t h e u s e f u l infor mat ion about our land reso urc es has been g a t h e r e d i n c i d e n t a l bility. t o o t h e r p u b l i c management r e s p o n s i ­ The r e s u l t i n g d a t a has t h e r e f o r e a l l t o o o f t e n pr oven e i t h e r i n c o m p l e t e o r i n need o f f u r t h e r i n t e r p r e t a t i o n and p r o c e s s i n g t o be u s e f u l . There i s a p r e s s i n g need t o d e v e l o p t h e basic information necessary to the early recognition of potential conflict. S p e c i f i c a l l y , t h e f o l l o w i n g a r e recommended t o p r o v i d e t h i s i m p o r t a n t b a s e i n f o r m a t i o n need. A e r i a l Survey It is essential t h a t t h e s t a t e d e v e l o p sound s c i e n t i f i c i n f o r m a t i o n a b o u t a v a i l a b l e l a n d r e s o u r c e s i n o r d e r t o make 281 proper d e c is io n s . The most s a t i s f a c t o r y i n s t r u m e n t f o r g e n e r a t i n g some o f t h e needed i n f o r m a t i o n and a t t h e same t i me p r o v i d i n g a base map f o r a d d i t i o n a l r e s o u r c e d a t a i s an a c c e p t a b l e s e t o f r e c e n t a e r i a l photographs. I t i s recommended t h a t t h e e n t i r e s t a t e be p h o t o g r a p h e d a t one p o i n t i n t i me w i t h i n f r a - r e d c o l o r p h o t og r a p hy a t a scale o f 1:2,000 f e e t . Such p h o t o g r a p h y and s c a l e would match t h e most w i d e l y used USGS map ( 7 - 1 / 2 mi n ut e q u a d r a n g l e ) ; c o n v e r t e a s i l y and d i r e c t l y t o m e t r i c u n i t s ; a n d , would enhance vegetation id e n t i f i c a t i o n J S a t e l l i t e Mo n i t o r i n g Te c h ni q ue s a r e r a p i d l y b e i ng d e v e l o p e d t h a t w i l l p r o v i d e an economi cal method o f m o n i t o r i n g t h e c o u r s e o f f u t u r e l a n d use change. I f s u c c e s s f u l , t h i s w i l l o b v i a t e t h e need f o r comp l e t e c o v e r a g e by a e r i a l photography a t too f r e q u e n t i n t e r v a l s . Some o f t h i s work i s b e i n g done u n de r c o n t r a c t t o t h e N a t i o n a l A e r o n a u t i c s and Space A d m i n i s t r a t i o n and b e i ng t e s t e d by v a r i o u s s t a t e s and local u n its. Thi s e f f o r t s ho u l d r e c e i v e c o n t i n u i n g a t t e n t i o n . Local Land Res our ce I n v e n t o r y I t i s n e c e s s a r y t h a t a l a n d r e s o u r c e i n v e n t o r y be c o n d u c t e d a c c u m u l a t i n g d e t a i l e d , on t h e ground i n f o r m a t i o n . I t i s recommended t h a t such an i n v e n t o r y be c a r r i e d o u t by i n s t i t u t i o n s and ^ P h o t o g r a p h i c e f f o r t s were begun i n a c c o r d w i t h t h i s r ecommendat i on i n t h e summer o f 1978. 282 and o r g a n i z a t i o n s t h a t a l r e a d y e x i s t a t t h e u n i v e r s i t y o r l o c a l level. Additional f in a n c i a l s u p p o r t c o u p l e d w i t h a t e mp o r a r y a d j u s t m e n t o f p r i o r i t i e s can a c c o m p l i s h t h i s t a s k . S o i l Sur veys An e v e r wi d e n i n g s p e c t r u m o f i n t e r e s t s a r e l e a r n i n g t o use i n f o r m a t i o n g e n e r a t e d by modern s o i l day d e c i s i o n making r e s p o n s i b i l i t y . s u r v e y s i n t h e i r day t o Soils information is findin g use i n s e l e c t i n g s u i t a b l e hous i ng s i t e s , highway l o c a t i o n , s i t i n g public u t i l i t i e s , avoiding natural hazards, etc. There i s some s o i l s i n f o r m a t i o n a v a i l a b l e f o r e v e r y c o u n t y i n Mi chi gan. There a r e , however, a p p r o x i m a t e l y 8 , 0 0 0 , 0 0 0 a c r e s c u r r e n t l y i n need o f d e t a i l e d s o i l maps and a n o t h e r 1 , 9 0 0 , 0 0 0 a c r e s i n need o f r e c o n ­ naissance type soil s u r v e y s i n Mi chi gan. Soil surveys ar e c a r r i e d o u t c o o p e r a t i v e l y by t h e A g r i c u l t u r a l and t h e U.S. S o i l C o n s e r v a t i o n S e r v i c e . Exper i ment S t a t i o n Local Soi l C o n s e r v a t i o n D i s t r i c t s , c o u n t y gover nment s and t h e s t a t e Depar t ment s o f N a t u r a l Res our ces and A g r i c u l t u r e have a l s o c o n t r i b u t e d . Due t o t h e o v e r a l l need and u t i l i t y o f s o i l s u r v e y i n f o r ­ m a t i o n , i t i s recommended t h a t a d d i t i o n a l institutional s u p p o r t be generated t h a t w ill ena ble the completion o f the c o o p e r a tiv e soil s u r v e y w i t h i n t h e s h o r t r a n g e f u t u r e and t h a t such i n f o r m a t i o n be i n t e g r a t e d i n t o t h e S t a t e Land Res our ce I n v e n t o r y . ^ ^ c t 268, P.A. 1977, was s i g n e d i n t o law on December 14, 1977, t o a u t h o r i z e t h i s needed s u r v e y e f f o r t . 283 Top og r aph i c Survey Sl ope c h a r a c t e r i s t i c s a r e o f t e n c r i t i c a l in determining t h e s u i t a b i l i t y o f v a r i o u s l a n d a r e a s t o p r o v i d e f o r human n e e d s . Uni t ed S t a t e s G e o l o g i c a l Sur vey t o p o g r a p h i c maps p r o v i d e an a c c u r a t e base upon whi ch t h e needed i n v e n t o r y o f t h e s t a t e ' s p h y s i c a l e n v i r o n m e n t c a n be r e c o r d e d f o r compar i son and a n a l y s i s . U n f o r t u n a t e l y , o n l y a b o u t 42% o f M i c h i g a n ' s l a n d s a r e c o v e r e d by t h e p r e f e r r e d 7 - 1 / 2 mi n u t e q u a d r a n g l e maps. Topo gr a ph i c maps a r e p r e p a r e d by t h e Uni t ed S t a t e s G e o l o g i ­ c a l Survey w i t h f i n a n c i a l a s s i s t a n c e from t h e v a r i o u s s t a t e s . Michi gan r a n ks 4 0 t h o f t h e 50 s t a t e s i n t h e d e g r e e o f c o v e r a g e a t t h i s p o i n t in time. There i s need f o r a commitment t o compl e t e the topographic survey. S t a n d a r d i z i n g Land Use C l a s s i f i c a t i o n When c o n d u c t i n g l a n d us e i n v e n t o r i e s , t h e r e i s a need f o r a common s ys t e m f o r c a t e g o r i c a l l y c l a s s i f y i n g l a n d u s e s and c o v e r which w i l l f a c i l i t a t e t h e i n t e g r a t i o n o f i n f o r m a t i o n c o l l e c t e d by d i f f e r e n t p e o p l e a t d i f f e r e n t p o i n t s i n t ime a t n e i g h b o r i n g o r widely se p a ra te d l o c a t i o n s . A n a t i o n a l s y s t e m has been de ve l op e d by t h e Uni t e d S t a t e s G e o l o g i c a l Sur vey and a d o p t e d t o Michi gan c o n d i t i o n s by a co mmi t t e e o f i n t e r e s t e d and h i g h l y c a p a b l e individuals. A manual has been p r e p a r e d , p r i n t e d and d i s t r i b u t e d t o s t a t e , r e g i o n a l and l o c a l o f Land Resour ce P r ogr ams . s o u r c e s by t h i s D e p a r t m e n t ' s D i v i s i o n Land r e s o u r c e i n v e n t o r y p o l i c y s h o u l d 284 be e s t a b l i s h e d t h a t e n c o u r a g e s t h e us e o f t h i s u n i f o r m s y s t ems a t all levels. P o l i c y A c t i o n and A s s i s t a n c e Needs Revi s ed Zoni ng E n a b l i n g Act s Governor M i l l i k e n i n h i s 1978 S t a t e o f t h e S t a t e Message i n d i c a t e d t h a t i f l o c a l u n i t s o f gover nment i n Michi gan a r e t o assume pr i me r e s p o n s i b i l i t y f o r i n s u r i n g p r o p e r us age o f t h e l a n d , t h e y must p o s s e s s a d e q u a t e t o o l s t o do t h e j o b . Traditionally, t h e z o n i n g power has r e p r e s e n t e d one r e g u l a t o r y t e c h n i q u e which has been p o p u l a r l y employed by l o c a l gover nment . However, in s p i t e o f i n c r e a s i n g l y complex l a n d use i s s u e s , t h e s t a t u t e s g o v e r n i n g use o f t h e z o n i n g power have n o t been e x t e n s i v e l y r e v i e w e d o r r e v i s e d i n o v e r 30 y e a r s . While t h i s s i t u a t i o n i s n o t i n h e r e n t l y ba d, t h o s e c h a r g e d w i t h a d m i n i s t e r i n g l o c a l z o n i n g and c o n c e r n e d w i t h a f f e c t i n g p r o p e r l a n d us age a r e a s k i n g wh e t h e r M i c h i g a n ' s c u r r e n t z o n i n g e n a b l i n g s t a t u t e s a r e a d e q u a t e t o deal w i t h c o n t e m p o r a r y l a n d u s e p r o b l e ms . A r e v i e w o f t h e e n a b l i n g s t a t u t e s r e v e a l s p r o c e d u r a l and s u b s t a n t i v e problems i n t h r e e g e n e r a l a r e a s : 1. The p r o c e d u r e s f o l l o w e d i n i n i t i a l a d o p t i o n o f a z o ni n g ordinance. 2. The p r o c e d u r e s , d e l e g a t i o n o f power, and r e l a t i o n s h i p s between a d m i n i s t r a t i v e o f f i c i a l s , p l a n n i n g b o d i e s and t h e l e g i s ­ l a t i v e body i n v o l v e d i n t h e s u b s e q u e n t a d m i n i s t r a t i o n and amending of zoning r e g u l a t i o n s . 285 3. The ad eq uacy o f l o c a l z oni ng powers t o p r o p e r l y and e f f e c t i v e l y me et and c o r r e c t t h e complex l and use pr obl ems f a c e d by M i c h i g a n ' s l o c a l g o ve r nme n t s . Wi t h i n e a c h o f t h e s e g e n e r a l problem a r e a s , t h e i s s u e s r e v o l v e ar o u n d t h e v a gu e n e s s o f c u r r e n t s t a t u t o r y l a n g u a g e , i n a p p r o p r i a t e p r o v i s i o n s , c o n f l i c t bet ween t h e p r o v i s i o n s o f v a r i o u s z o n i n g a c t s , and o m i s s i o n s o f needed power s. Each o f t h e s e pr o bl e ms has p l a c e d gover nment al u n i t s , c i t i z e n s and t h e c o u r t s i n a p o s i t i o n o f u n c e r t a i n t y - u n c l e a r a s t o what can p r o p e r l y be a c c o m p l i s h e d w i t h t h e z oni ng power, and i n a p r o c e d u r a l s e n s e , t h e manner i n which z on i ng s h o u l d be e x e r c i s e d . The complex n a t u r e o f t o d a y ' s l and use p r o b l e m s - - s o c i a l , economic and e n v i r o n ­ ment al - - n e c e s s i t a t e a c l o s e l o o k a t t h e ade qu acy o f M i c h g i a n ' s z o n i n g p o w e r s , and r e v i s i o n where n e c e s s a r y t o meet c o n t e mp o r a r y n e e d s and c o n c e r n s . The D i v i s i o n o f Land Resour ce Pr ogr ams , i n c o n j u n c t i o n w i t h a z o n i n g a d v i s o r y c o m m i t t e e , has r e l e a s e d a r e p o r t which p r e s e n t s s u g g e s t i o n s f o r r e v i s i o n o f M i c h i g a n ' s z on i ng e n a b l i n g s t a t u t e s . The r e p o r t , e n t i t l e d M i c h i g a n ' s Zoning En a b l i n g Act s - - Recommendat i ons for Revision, l i s t s 17 i t ems which s h o u l d be g i v e n i mmedi at e l e g i s ­ l a t i v e c o n s i d e r a t i o n t o f a c i l i t a t e l o c a l us e o f t h e z o n i n g power. Us i ng M i c h i g a n ' s Zoni ng En a b l i n g A c t s — Recommendations f o r R e v i s i o n a s a s t a r t i n g p o i n t , t h e r e i s a need f o r l e g i s l a t i v e a c t i o n t oward i mme d i a t e and l o n g r a n g e r e v i s i o n s i n M i c h i g a n ' s z oni ng e n a b l i n g statutes. 2 86 Land S u b d i v i s i o n C o n t r o l s The S u b d i v i s i o n Cont r ol Act o f 1967 i s t h e maj or s t a t u t e us ed t o g u i d e t h e d e s i g n and s i t e c o n s t r u c t i o n s t a n d a r d s f o r l a n d when i t i s p l a t t e d f o r r e s i d e n t i a l l a n d use d e v e l o p me n t . The a c c e l e r a t e d c o n v e r s i o n o f a g r i c u l t u r a l and f o r e s t l a n d s t o r u r a l residential s u b d i v i s i o n s has been a t t r i b u t e d by some c r i t i c s t o t h e 10 a c r e p a r c e l s i z e l i m i t a t i o n i n t h e s u b d i v i s i o n l aw. De v e l o pe r s o f l a r g e l a n d t r a c t s can a v o i d t h e c u r r e n t s u b d i v i s i o n p r o c e s s , and i t s s a f e g u a r d s , by d i v i d i n g and s e l l i n g b l o c k s o f l a n d i n 10 p l u s a c r e p a r c e l s . Ten a c r e t r a c t s o f l a n d i n i n d i ­ v i d u a l o wn e r s h i p s c a n n o t be e f f e c t i v e l y managed f o r a g r i c u l t u r a l or fo rest resources. A d d i t i o n a l l y , t h e y may even pose a t a x and m a i n t e n a n c e burden f o r t h e i r owner s. The t e n a c r e p r a c t i c e o f l a n d d i v i s i o n and c o n v e r s i o n t o more i n t e n s i v e l a n d u s e s , has a d i r e c t i mpact on t h e t a x a t i o n o f s u r r o u n d i n g l a n d s which a r e u s u a l l y d e v o t e d t o a g r i c u l t u r a l f o r e s t r y , o r open s p a c e u s e s . As l a n d s a r e c o n v e r t e d t o more i n t e n s i v e u s e s , t h e c h a r a c t e r o f t h e a r e a changes from r u r a l a g r i c u l t u r a l or f o r e s t , u s e and a p p e a r a n c e . to rural r e s id e n tia l to recreational in This s h i f t in land use, i nc r ea se d land value and r e s u l t s i n h i g h e r l a n d t a x e s . This s i t u a t i o n p lac es the r e m a i n i n g a c t i v e f arm and f o r e s t owners i n a t a x d i s a d v a n t a g e b e c a u s e t h e r e i s no commensurat e i n c r e a s e i n t h e i r e a r n i n g power s. As a r e s u l t , t h e f arm and f o r e s t owners may be f o r c e d t o s e l l p o r t i o n s o f t h e i r a c r e a g e s t o meet p r o p e r t y t a x o b l i g a t i o n s , t h u s compounding t h e p r obl e m. 287 F u r t h e r , b e i n g p e r m i s s i v e in n a t u r e , t h e c u r r e n t S u b d i v i s i o n C o n tr o l Act has p e r m i t t e d d e v e l o p e r s t o s e l l m a r g in a l d e v e l o p m e n ts while fa c in g only occasio n al p r o s e c u tio n . Mandatory e n f o r c e m e n t would r e q u i r e s t r i c t a p p l i c a t i o n o f t h e law by r e v i e w i n g b o d i e s and a d h e r e n c e by d e v e l o p e r s . There i s a need f o r a th o ro u g h a n a l y s i s o f t h e S u b d i v i s i o n Contro l Act by t h e L e g i s l a t u r e t o d e t e r m i n e i f t h e Act i s c o n t r i ­ b u t i n g t o t h e u n n e c e s s a r y c o n v e r s i o n o f a g r i c u l t u r a l , f o r e s t and open sp a c e l a n d s t o more i n t e n s i v e d e v e lo p m e n t. M i c h i g a n ' s I n h e r i t a n c e Tax Laws The Farmland and Open Space P r e s e r v a t i o n Act o f 1974 i n d i c a t e s s o c i e t y ' s a t t i t u d e toward t h e im p o r t a n c e o f r e t a i n i n g a c t i v e a g r i c u l t u r a l p r o d u c t i o n f o r t h e economic and e n v i r o n m e n ta l b e n e f i t which a r e r e c e i v e d by a l l people. However, a n o t h e r problem e x i s t s which has an i m p o r t a n t b e a r i n g on lan down er s r e t a i n i n g a g r i c u l t u r a l land in a c t i v e p ro d u c tio n . inheritance taxes. Th is problem c o n c e r n s When l a r g e t r a c t s o f a g r i c u l t u r a l land a r e i n h e r i t e d by o t h e r members o f a f a m i l y , o f t e n t h e l a r g e amount o f i n h e r i t a n c e t a x e s f o r c e s them t o d i s p o s e o f a p o r t i o n o r a l l o f t h e l a n d i n o r d e r t o meet t h e i n h e r i t a n c e t a x l e v y . A method s h o u ld be p r o v id e d t o t h o s e p e o p l e p l a c e d in an i n h e r i t a n c e s i t u a ­ t i o n which would p o s tp o n e o r e l i m i n a t e t h i s d i f f i c u l t y . This c o u l d be a c c o m p li s h e d by r a i s i n g t h e p e r s o n a l exe mption on r e a l e s t a t e i n h e r i t a n c e f o r t h o s e who i n h e r i t a c t i v e a g r i c u l t u r a l and who r e t a i n t h e p r o p e r y i n a c t i v e a g r i c u l t u r a l la n d production fo r a 28 8 s p e c if ie d period o f tim e. I f t h e p r o p e r t y i s s o l d p r i o r t o t h e end o f t h e s p e c i f i e d ti m e p e r i o d , t h e owners would pay a p e n a l t y on t h e i n h e r i t a n c e t a x s a v i n g s f o r each y e a r t h a t t h e b e n e f i t was in force. C o n s i d e r a t i o n and f a v o r a b l e a c t i o n by t h e Michigan L e g i s ­ l a t u r e o f n e c e s s a r y amendments t o t h e S t a t e ' s I n h e r i t a n c e Law t o p r e v e n t t h e p r e m a t u r e p a r c e l i n g o f a g r i c u l t u r a l l a n d s f o r such payment i s needed. The Dep ar tm en t s h o u ld a g g r e s s i v e l y p u r su e a p u b l i c i n f o r m a t i o n program on t h e m e r i t s o f such a m ea sure . F o r e s t Lands Management and T a x a t i o n The c e n t r a l form o f a q u e s t i o n : i s s u e i n f o r e s t l a n d use can be s t a t e d in t h e How do we m a i n t a i n a f o r e s t la n d c l i m a t e i n Michigan t h a t w i l l r e s u l t i n : 1. Proper u t i l iz a tio n th at a lso p r o te c ts the resource? 2. F a i r and e f f i c i e n t a l l o c a t i o n o f t h e r e s o u r c e ? 3. A minimum amount o f c o n f l i c t between d i f f e r i n g land u s e s and a s s o c i a t e d c u l t u r a l v a l u e s ? The f o r e s t s t h a t c o v e r 53% o f M i c h i g a n ' s l a n d s u r f a c e s u p p l y an a s s o r t m e n t o f commodity, e n v i r o n m e n ta l and r e c r e a t i o n a l benefits. These b e n e f i t s come from o v e r 19 m i l l i o n a c r e s o f la n d owned a n d / o r managed by f e d e r a l and s t a t e a g e n c i e s , i n d u s t r i a l c o n c e r n s , f a r m e r s and o t h e r p r i v a t e c i t i z e n s . These f o r e s t r e ­ s o u r c e s v a r y w i d e l y i n s p e c i e s , c o n d i t i o n , c a p a b i l i t i e s , and proxim ity to p o p u latio n c e n te r s . ho w ev er , i s t h e human e l e m e n t . The most i m p o r t a n t v a r i a b l e , 289 There i s a need f o r t h e d ev elopm en t o f a broad f o r e s t la n d p o l i c y f o r t h e S t a t e o f Michigan t h a t : — S ta te s the sig n ifican ce o f the f o r e s t resources. — Helps g u id e t h e o v e r a l l s t a t e f o r e s t r y program bo th f o r t h e management o f p u b l i c l a n d s and t h e r o l e t o be p la y e d by p r i v a t e l a n d s . — En cou rages c o n t i n u a l s u rv e y and a n a l y s i s o f t h e f o r e s t resource. T h e re i s a need t o examine t h e Commercial F o r e s t Act. This s i n g l e p i e c e o f l e g i s l a t i o n can and s h o u ld be an i m p o r t a n t p a r t o f t h e o v e r a l l s t a t e f o r e s t r y program. Like t h e growing f o r e s t i t ­ s e l f , h o w e v e r , t h e e f f e c t t h a t l e g i s l a t i o n has on o u r l a n d s chan ges as s o c ie ty changes. To t h i s e x t e n t t h e e f f e c t o f t h e law can p o s s i b l y be d i f f e r e n t from what was o r i g i n a l l y i n t e n d e d o r what i s presently desired. The a r e a s o f management p l a n n i n g , t a x payment and r e c e i p t f o r m u l a s , tim e l i m i t s and p e n a l t i e s , p u b l i c a c c e s s and m i n e r a l s p r o v i s i o n s should be s t u d i e d a s t o t h e i r e f f e c t i v e n e s s i n t o d a y ' s f o r e s t lan d u s e s i t u a t i o n . M ineral Lands P r o t e c t i o n and R ehabilitation Easy a c c e s s to t h e a v a i l a b l e m i n e r a l r e s o u r c e s in t h e p a s t has e n g e n d e r e d a high d e g r e e o f complace ncy . Land use d e c i s i o n s have t h u s o f t e n been made w i t h o u t r e g a r d t o t h e i r p o t e n t i a l e f f e c t on a d j a c e n t l a n d u s e s . T h is has r e s u l t e d in e x t e n d i n g o f hou s in g d e v e lo p m e n ts t o t h e edge o f g r a v e l p i t s and t h e s u b s e q u e n t p e t i ­ tio n in g f o r th e c lo sin g o f th e excavating o p eratio n . Worse y e t , v a l u a b l e m i n e r a l d e p o s i t s have been u n w i t t i n g l y c o n v e r t e d t o o t h e r 29 0 perm anent s u r f a c e u s e s b e f o r e t h e y c o u l d be a s s a y e d . In t h e c a s e o f b u i l d i n g m a t e r i a l s such a s sand and g r a v e l , t h e r e s u l t s a r e f e l t a l m o s t im m e d i a t e ly by t h e p o t e n t i a l home b u i l d e r who i s hard p r e s s e d t o meet e s c a l a t i n g c o n s t r u c t i o n c o s t s . The need t o l o c a t e and a s s a y o u r m i n e r a l r e s o u r c e s was r e c o g n i z e d in Act No. 65 o f t h e P u b l i c Acts o f 1869, which p r o v id e d f o r f u r t h e r g e o l o g i c a l survey o f the s t a t e . Renewed commitment sh o u ld be made t o com plete both t h e g e o l o g i c a l and s o i l s u r v e y s . Areas h a r b o r i n g needed m i n e r a l d e p o s i t s s h o u ld th e n be e v a l u a t e d i n t h e l i g h t o f r e l a t e d land n e e d s . A la n d r e s o u r c e i n v e n t o r y can th e n r e f l e c t m inera l la n d a r e a s e s s e n t i a l t o t h e c o n t i n u e d v i g o r o f M i c h i g a n ' s economic and e n v i r o n m e n ta l c l i m a t e . The dev elo p m en t o f M i c h i g a n ' s m in e ra l r e s o u r c e s need n o t be an e n v i r o n m e n ta l d i s a s t e r . Less th a n 0 . 2 p e r c e n t o f t h e land a r e a i s p r e s e n t l y i n v o l v e d i n m inera l r e c l a m a t i o n and m in e ra l activ ities. Many t e c h n i q u e s f o r t r e a t i n g mine w a s t e s and r e c l a i m i n g mined a r e a s a r e p r e s e n t l y known. I n d u s t r y , t h e u n i v e r s i t i e s and s t a t e a g e n c i e s a r e a c t i v e l y s e e k i n g new ways t o d e v e lo p m ar gin a l r e s o u r c e s and t r e a t t h e r e s i d u e in a c c e p t a b l e manner s. There i s need f o r t h e dev elo p m en t o f a broad m i n e r a l s p o l i c y f o r t h e S t a t e o f Michigan t h a t : s t a t e s the s ig n if ic a n c e of t h e m i n e r a l r e s o u r c e s ; makes a commitment t o o r d e r l y and s a f e d e v e l o p m e n t ; and e n c o u r a g e s r e s e a r c h in methods o f d e v e lo p m e n t , u t i l i z a t i o n , r e c y c l i n g and t h e c o n t r o l and d i s p o s a l o f w a s t e p r o d u c t s i n c l u d i n g t h e r e c l a m a t i o n o f m in e ra l la n d t o l e s s e n any 291 im pa cts o f m i n e ra l e x t r a c t i o n and p r o c e s s i n g a c t i v i t i e s . This p o licy should provide f o r the r e g u l a r m onitoring of the s t a t u s of t h e s t a t e ' s m inera l r e s o u r c e s . T here i s need f o r d i r e c t i o n o f a v a i l a b l e f e d e r a l , s t a t e and l o c a l e n e r g i e s t o t h e e a r l y c o m p le t io n o f t h e g e o l o g i c a l s u r v e y , i n c l u d i n g t o p o g r a p h i c mapping i n Michigan. Once v i t a l m in e ra l r e s o u r c e s a r e l o c a t e d and e v a l u a t e d a s e s s e n t i a l f o r f u t u r e u s e , s t a t e p o l i c y s h o u ld be ad o p te d and c o n s e r v a t i o n t e c h ­ n i q u e s e x p l o r e d t h a t w i l l p r o t e c t t h e r e s o u r c e from p r e m a tu re conversion. I t i s f u r t h e r recommended t h a t t h e Mine Re clamation Ac t, Act 92, P.A. 1970, a s amended, be f u r t h e r amended t o i n c l u d e s a n d , g r a v e l and c l a y and t o p r o v i d e f o r s t r o n g e r p r o v i s i o n s c o n ­ c e r n i n g land use p l a n n i n g and r e h a b i l i t a t i o n . Flood P l a i n I d e n t i f i c a t i o n and P r o t e c t i o n Knowledge o f t h e b o u n d a r i e s o f f l o o d p l a i n s and f l o o d prone a r e a s i s an i m p o r t a n t i n f o r m a t i o n component in d e t e r m i n i n g c r i t i c a l o r unique la n d a r e a s . C r i t i c a l n o t o n l y from an e n v ir o n m e n ta l a s p e c t , but more i m p o r t a n t l y f o r human s a f e t y and p r o p e r t y p r o t e c ­ tion. Flood p l a i n i d e n t i f i c a t i o n i s i m p o r t a n t to l o c a l , s t a t e , and f e d e r a l governmental a g e n c i e s a s well a s t o t h e i n s u r a n c e i n d u s t r y t h a t p r o v i d e s c o v e r a g e f o r p e o p l e and p r o p e r t y l o c a t e d i n f l o o d prone a r e a s . The c o s t o f p r o v i d i n g i n s u r a n c e t o p e o p le and p r o p e r t y l o c a t e d i n t h o s e p o t e n t i a l l y h a z a r d o u s a r e a s i s s h a r e d by t h e gover nment and t h e i n s u r a n c e i n d u s t r y . To d i s c o u r a g e unwise use o f f l o o d prone la n d a r e a s , t h e f e d e r a l government a l l o w s t h e s a l e 292 of su b sid iz e d in su ran ce only in thosecommunities t h a t agree to d e v i s e a l a n d management program t o minimize f u t u r e f l o o d l o s s e s . Such a management program may i n c l u d e b o th c o r r e c t i v e and p r e v e n t i v e m ea sure s i n c l u d i n g l a n d u s e c o n t r o l s such a s l o c a l z o n i n g . T h e re i s a need f o r an a c c e l e r a t e d f l o o d p l a i n d e l i n e a t i o n and mapping program and r e s e a r c h i n t o i n n o v a t i v e and l e s s e x p e n s i v e means f o r d e t e r m i n i n g f l o o d p l a i n s and f l o o d pro ne la n d a r e a s . L e g is la tiv e c o n s id e ra tio n o f the m erits o f in cluding designated u n d eveloped f l o o d p r o n e a r e a s u nder t h e t a x i n c e n t i v e p r o v i s i o n s o f Act No. 116 o f t h e P u b l i c Acts o f 1974 may p r o v i d e a n o t h e r avenue of incentive p ro te c tio n . T h is a p p r o a c h , i f proven f e a s i b l e , would p r o v i d e land owne rs o f f l o o d prone a r e a s w i t h an a l t e r n a t i v e to i n t e n s i v e d e v e lo p m e n t o f t h e s e i d e n t i f i e d p o t e n t i a l l y hazardous areas. L e g i s l a t i o n i s a l s o needed which would amend e x i s t i n g p r o p e r t y laws t o r e q u i r e s e l l e r s o f p r o p e r t y l o c a t e d on h i g h - r i s k sh o re la n d s or f lo o d p l a i n s to d i s c l o s e t o t h e b uyer t h e r i s k s in v o l v e d w i t h t h e o w n e r s h ip o f t h e p r o p e r t y . For ex ample, t h e deed o r c o v e n a n t on a p a r c e l l o c a t e d in an a r e a s u b j e c t t o a c t i v e e r o s i o n would i d e n t i f y i t as a h i g h - r i s k p i e c e o f p r o p e r t y b e f o r e the s a le takes p lace. F u r t h e r , numerous v a c a n t p a r c e l s have been r e n d e r e d u n b u i l d a b l e due t o s uch p r o c e s s e s a s s h o r e l a n d e r o s i o n , s e a s o n a l i n u n d a t i o n and highway d ev elo p m en t. Many rem ai n a s s e s s e d a t t h e e v a l u a t i o n imposed p r i o r t o t h e d i m i n i s h i n g a c t i o n . Thus, s a l e t o an unwary buyer emerges a s t h e most l u c r a t i v e o p t i o n a v a i l a b l e f o r 29 3 r i d d i n g t h e owner o f such f i n a n c i a l burdens. Id e n tific a tio n of su ch p a r c e l s f o r p r o t e c t i o n o f t h e p r i v a t e p u r c h a s e s i s a must, and s h o u ld r e c e i v e i n m e d i a t e a t t e n t i o n . W etlands P r e s e r v a t i o n The h i s t o r y o f w e t l a n d s i n Michigan has been one o f l o s s . A 1922 U.S. Dep ar tm en t o f A g r i c u l t u r e e s t i m a t e p l a c e d M i c h i g a n ' s w e t l a n d a c r e a g e a t o v e r 11 m i l l i o n a c r e s . The most r e c e n t s t a t e ­ wide i n v e n t o r y , c o n d u c t e d by t h e Department o f t h e I n t e r i o r in 1955, and c u r r e n t e s t i m a t e s p l a c e w e t l a n d s a c r e a g e a t 3 . 2 t o 5 . 3 m i l l i o n a c r e s de p e n d in g upon t h e e x t e n t o f t h e f o r e s t e d w e t ­ lands. Michigan has l o s t a b o u t 70% o f i t s c o a s t a l w e t l a n d s s i n c e t h e m i d - 1 8 0 0 ' s and o n l y a b o u t 106,000 a c r e s r e m a i n . Based on r e c e n t t r e n d s , i t i s r e a s o n a b l e t o e x p e c t t h a t a b o u t 25% o f t h e nonwooded w e t l a n d s w i l l be l o s t between now and t h e y e a r 2000. About 10% o f a l l w e t l a n d s w i l l l i k e l y be d e s t r o y e d i n t h a t p erio d J The l o s s o f w e t l a n d f u n c t i o n s such as f l o o d r e t e n t i o n , s e d i m e n t a t i o n c o n t r o l , w a t e r p u r i f i c a t i o n and ground w a t e r r e c h a r g e , must i n most i n s t a n c e s be r e p l a c e d by c o s t l y man-made fa c ilitie s. F u r t h e r c o s t s a r e e x p e r i e n c e d a t l o c a l , c o u n ty and r e g i o n a l l e v e l s when w e t l a n d s a r e used f o r r e s i d e n t i a l , commercial ^E. J a w o r s k i and C. R a p h a e l , F i s h , W i l d l i f e , and R e c r e a ­ t i o n a l Values o f M i c h i g a n ' s C o a s ta l Wetlands ( Y p s i l a n t i , MI: Dep ar tm en t o f G eo gr ap h y -G eo lo g y , E a s t e r n Michigan U n i v e r s i t y , 197 8). 29 4 o r i n d u s t r i a l dev elop m ent. Roads, sewers and o t h e r p u b l i c s e r v i c e s a r e more c o s t l y t o c o n s t r u c t and r e q u i r e more m a in ten an ce when placed in a re a s not s u ite d to those uses. Local governments have n o t been a b l e t o s u c c e s s f u l l y r e g u l a t e unwise use o f w e t l a n d s . S e v e r a l o t h e r s t a t e s and t h e f e d e r a l government a r e c o n ­ s i d e r a b l y ahead o f Michigan in t h e p r o t e c t i o n o f w e t l a n d s . These a g e n c i e s have r e c o g n i z e d t h e n a t u r a l v a l u e s and t h e s u b s e q u e n t c o s ts o f rep lacin g the functions o f wetlands. Unless Michigan d e v e l o p s a co m p r eh en siv e w e tla n d m a n a g e m e n t / r e g u l a t o r y program, t h e U.S. Army Corps o f E n gin ee rs un de r PL 9 2 - 5 0 0 , S e c t i o n 404, w i l l i s s u e o r deny p e r m i t s a t t h e f e d e r a l l e v e l removing v i r t u a l l y a l l local input in to the process. P r e s i d e n t C a r t e r has i s s u e d E x e c u t i v e O rder 11990 on P r o t e c t i o n o f Wetlands which r e q u i r e s f e d e r a l a g e n c i e s d i r e c t l y o r th ro ugh t h e i r a c t i o n s , t o a v o i d d i s r u p t i n g w e t l a n d s whenever t h e r e i s a p r a c t i c a l a l t e r n a t i v e . P r e s e n t l y , Michigan has s e v e r a l s t a t u t e s which a f f e c t use o f w etlands to varying degrees. P r i n c i p a l among t h e s e a r e Acts 247, P.A. 1955 and Act 346, P.A. 1972 which a f f e c t w e t l a n d s which a r e l o c a t e d below t h e o r d i n a r y high w a t e r mark o f t h e G r e a t Lakes and i n l a n d l a k e s and s tr e a m s r e s p e c t i v e l y . Act 245, P.A. 1970, p r o v i d e s p r o t e c t i o n t o some w e t l a n d s a d j a c e n t t o t h e G r e a t Lakes above t h e o r d i n a r y hi gh w a t e r mark. Var ious o t h e r a c t s may i n d i r e c t l y a f f e c t uses o f p a r t i c u l a r w e t l a n d s . G e n e r a l l y , however, t h e r e i s no s t a t e r e g u l a t i o n o f u s es o f w e t l a n d s which a r e above t h e o r d i n a r y h i g h w a t e r mark o f an i n l a n d l a k e o r s t r e a m . 295 There i s need f o r an u p - t o - d a t e d e t a i l e d i n v e n t o r y o f M i c h i g a n ' s r e m a i n in g w e t l a n d s . The i n v e n t o r y i s t h e n e c e s s a r y f o u n d a t i o n upon which t o b u i l d t h e needed o v e r a l l management p r o ­ gram f o r w e t l a n d s . L e g i s l a t i o n p r o v i d i n g a d e q u a t e p r o t e c t i o n and r e g u l a t i o n o f a l l w e t l a n d s in t h e s t a t e i s v i t a l . This l e g i s l a t i o n should mandate both an i n v e n t o r y and an o v e r a l l management p l a n . I t i s a l s o e c o n o m i c a l l y and e x p e d i t i o u s l y d e s i r e a b l e f o r s t a t e a d m i n i s t r a t i o n o f a l l w e t l a n d r e g u l a t o r y programs a s opposed t o f e d e r a l a d m i n i s t r a t i o n o f some programs i s now th e c a s e . Wet­ l a n d s l e g i s l a t i o n need s t o a d d r e s s t h i s p o i n t a s p r o v id e d f o r in r e c e n t amendments t o t h e F ed er al Water P o l l u t i o n C o n t r o l Act. An e x t e n s i v e i n f o r m a t i o n and e d u c a t i o n , w e t l a n d s aw ar en es s e f f o r t must be i n i t i a t e d by t h e Department so t h a t t h e g e n e r a l p u b l i c as well a s gov er nm en tal a g e n c i e s w i l l a p p r e c i a t e t h e f u n c t i o n s and v a l u e s o f remaining wetlands r e s o u r c e s . Power P l a n t S i t i n g L e g i s l a t i o n There i s a t p r e s e n t , and w i l l c o n t i n u e t o be, a growing need f o r e l e c t r i c and gas p u b l i c u t i l i t y s e r v i c e s which w i l l r e q u i r e t h e c o n s t r u c t i o n o f m ajor new f a c i l i t i e s . Such f a c i l i t i e s c a n n o t be b u i l t w i t h o u t i n some way a f f e c t i n g t h e p h y s i c a l e n v i r o n ­ ment where t h e y a r e l o c a t e d . P r o p e r s i t e s e l e c t i o n can minimize t h e a d v e r s e e n v i r o n m e n ta l i m p a c t s . T here i s c u r r e n t l y no uni fo rm s i t i n g c r i t e r i a o r e s t a b l i s h e d process f o r a u t i l i t y to follow to assu re s i t e ap proval. c u r r e n t r e v i e w p r o c e s s i s t i m e consuming and c o n f u s i n g . The Delays i n 29 6 c o n s t r u c t i o n , o r approval o f c o n s tr u c t i o n , cause increased c o s ts i n t h e form o f h i g h e r u t i l i t y r a t e s . Expenses due t o m i t i g a t i o n o f a d v e r s e e n v i r o n m e n ta l im pac ts c o u ld be c o n s i d e r a b l y l e s s o r n e g l i g i b l e i f i d e n t i f i e d a t t h e o u t s e t and av o id e d th ro u g h p r o p e r s ite selection. Delays in t h e ap p r o v a l p r o c e s s a l s o t h r e a t e n a r e l i a b l e energy supply. Adequate i n f o r m a t i o n r e g a r d i n g s u i t a b l e s i t e s i n Michigan i s n o t a v a i l a b l e to a i d in d e c i s i o n - m a k i n g as t o t h e a p p r o p r i a t e l o c a t i o n o f power f a c i l i t i e s . S tate-w ide s i t e s u i t a b i l i t y informa­ t i o n i s needed i n o r d e r t o e f f e c t i v e l y e v a l u a t e a s p e c i f i c s i t e application. There i s a need f o r l e g i s l a t i o n which would s t r e a m l i n e and s i m p l i f y t h e c u r r e n t p e r m i t ap p r o v a l p r o c e s s ; i n t e g r a t e and c l a r i f y t h e r e s p o n s i b i l i t i e s o f t h e v a r i o u s a g e n c i e s ; p r o v i d e f o r an a d e q u a t e base o f t e c h n i c a l d a t a r e g a r d i n g a c c e p t a b l e s i t e s in o r d e r t o make sound d e c i s i o n s ; a n d , p r e s e n t a p r e d i c t a b l e , c o n c i s e and tim ely process fo r u t i l i t i e s to follow fo r s i t e approval. A Comprehensive Land Use Program Land use c o n t r o l s h o u ld be s h a r e d w i t h a l l le v e ls o f govern­ ment b u t t h e s t a t e must assume t h e i n i t i a t i v e i n c r e a t i n g and c o o r d i n a t i n g t h e comprehensive s t a t e w i d e i n s t i t u t i o n a l p l a n n i n g and p la n r e a l i z a t i o n . s tru c tu re for The s t a t e must s t r i v e t o e f f e c t a r e a s o n e d and b a l a n c e d u t i l i z a t i o n o f la n d r e s o u r c e s and e s t a b l i s h an e q u i l i b r i u m between t h e r i g h t s a s s o c i a t e d w i t h p r i v a t e o w n e r s h ip o f p r o p e r t y and t h e gover nmen tal f u n c t i o n o f p r o t e c t i o n o f t h e t o t a l 297 public i n t e r e s t . Methods must be found t o e n co u r ag e e n v ir o n m e n ta l p a t t e r n s t h a t p r o v i d e f o r t h e open sp a c e needs o f t h e p r e s e n t and f u t u r e , a i d t h e economic and s o c i a l w e l f a r e o f t h e r e g i o n , i n c r e a s e t h e s e r v i c e a b i l i t y o f urban c e n t e r s , d e t e r any f o r e s e e a b l e ecological im b a la n c e s and s t i l l p ro te c t the rig h ts of property owners. P r i o r i t y must be g i v e n t o l e g i s l a t i v e r e c o g n i t i o n o f t h e need f o r a c o o r d i n a t e d and s y s t e m a t i c ap p r o a c h t o r e s o l v i n g land r e s o u r c e proble ms and a s s u r i n g t h e a l l o c a t i o n and c u l t i v a t i o n o f su ch r e s o u r c e s t o m ee t c u r r e n t and p r o j e c t e d r e q u i r e m e n t s . There must be a l e g i s l a t i v e mandate which c l e a r l y d e f i n e s t h e p l a n n i n g and problem s o l v i n g p r o c e s s w h i l e a t t h e same t i m e , e s t a b l i s h i n g t h e p a r a m e t e r s and p r i n c i p l e s o f th e c h a r g e d agency and p i n p o i n t i n g th e r e s p o n s i b i l i t y f o r performing t h i s t a s k . Zoning G u i d e l i n e s and Tech nica l A ssistance In r e c e n t y e a r s , c i t i z e n s and l o c a l governments t h r o u g h o u t Michigan have d e m o n s t r a t e d an i n c r e a s e d i n t e r e s t in la n d use p l a n n i n g and management. P r e v i o u s l y an urb an phenomenon, p l a n n i n g and l a n d u s e management a c t i v i t i e s a r e now p r e s e n t in bo th urban and r u r a l a r e a s i n Michig an . C o i n c i d e n t w i t h t h i s i n c r e a s e d l o c a l i n t e r e s t in l a n d use p l a n n i n g and management i s t h e need f o r t e c h n i c a l a s s i s t a n c e . The s i n c e r e e f f o r t s o f l o c a l u n i t s o f government a r e o f t e n c o n s t r a i n e d by a l a c k o f t h e f i n a n c i a l and t e c h n i c a l r e s o u r c e s which a r e 29 8 r e a l i s t i c a l l y needed in o r d e r t o e f f e c t i v e l y engage in l a n d p l a n n i n g and management a c t i v i t i e s . Wherever t h e d e s i r e i s p r e s e n t to c r e a t e programs f o r t h e improvement o f community e n v i r o n m e n ts , c l e a r l y d e f i n e d a c c e s s i b i l i t y t o l a n d use 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 s h o u l d be a v a i l a b l e . There i s a need f o r a r e a d i l y a c c e s s i b l e c a p a b i l i t y a t t h e s t a t e l e v e l t o p r o v i d e lan d use p l a n n i n g and management i n f o r m a t i o n and a s s i s t a n c e t o l o c a l u n i t s o f government. The im m ed ia tely needed components o f such a c a p a b i l i t y i n c l u d e t h e develop m en t o f a co m p r e h e n s iv e pa ckage o f t e c h n i c a l pap er s p r e s e n t i n g b a s i c i n f o r m a t i o n and g u i d e l i n e s d e a l i n g w i th lan d p l a n n i n g and management techniques. Such t e c h n i c a l p a p e r s s h o u ld p r o v id e i n s t r u c t i o n a l m a t e r i a l , and r a n g e i n c o m p l e x i t y from s u g g e s t e d forms f o r zoning ordinance a d m in is tra tio n to techniques for asse ssin g the c o s ts and b e n e f i t s o f l a n d developmen t p r o p o s a l s . F u r t h e r , b a s i c r e s e a r c h s h o u ld be enc ou rag ed which w i l l r e s u l t i n t h e de velopm ent o f new l a n d use p l a n n i n g and management t e c h n i q u e s f o r u s e by l o c a l u n i t s o f government. The a b i l i t y o f t h e s t a t e t o p r o v i d e e x t e n s i v e , a s well a s s p o n ta n e o u s a s s i s t a n c e to local u n i t s o f gover nment and r e g i o n a l p l a n n i n g a g e n c i e s s h o u ld a l s o be d e v e l o p e d . Elements o f su ch a c a p a b i l i t y c o u ld i n c l u d e a " h o t l i n e " phone number t o r e c e i v e an sw ers to meet immediate q u e s ­ t i o n s ; p e r s o n n e l a v a i l a b l e t o work on an e x te n d e d b a s i s w i t h l o c a l u n i t s o f government a s t h e i r l a n d p l a n n i n g s p e c i a l i s t ; and a la n d p l a n n i n g i n f o r m a t i o n bank f o r u s e by l o c a l u n i t s o f g o vernm ent. 299 Local Re sour ce Base I n v e n t o r y A ssistance T r a d i t i o n a l l y , o n l y minor c o n s i d e r a t i o n has been give n t o n a t u r a l d e t e r m i n a n t s i n p r e p a r i n g l a n d use p l a n s . I t has o n ly been i n r e c e n t y e a r s t h a t t h e p l a n n i n g em phasis has begun to s h i f t from p r i m a r i l y s o c io - e c o n o m i c f a c t o r s t o i n c l u d e e c o l o g i c a l c o n ­ siderations. While t h e p r e p a r a t i o n o f a la n d use p l a n i n v o l v e s a very wide r a n g e o f m u n i c i p a l c o n s i d e r a t i o n s , from f i s c a l and c a p i t a l b u d g e t i n g t o l o c a t i o n o f r o a d s and m u n i c i p a l f a c i l i t i e s , a th o ro u g h and c o m p r e h e n siv e lan d r e s o u r c e i n v e n t o r y o f f e r s a f r e s h and v i t a l d a t a s o u r c e i n t h e p l a n n i n g p r o c e s s a s well as a l e g a l f o u n d a t i o n upon which s o c io - e c o n o m i c f a c t o r s may be s u p erim p o se d . A land reso u rce inventory e s s e n t i a l l y d e s c rib e s the n atu ra l s u i t a ­ b i l i t y o f land f o r v a rio u s uses. T h is s u i t a b i l i t y f a c t o r has h i s t o r i c a l l y been o v e r l o o k e d in l a n d use d e c i s i o n s . As a r e s u l t , l a n d use d e c i s i o n s have produc ed u n n e c e s s a r y m un ic ip a l c o s t s , n e e d l e s s la n d w a s t e , and d e g r a d a t i o n o f n a t u r a l r e s o u r c e s . A la n d r e s o u r c e i n v e n t o r y can be used w i t h long r a n g e p l a n n i n g by p r o j e c t i n g t h e im pact o f de velo pm ent and t h e c o s t o f such d e v e l o p ­ ment t o t h e community. The dev elo p m en t o f a s e r i e s o f manuals which w i l l i n s t r u c t and a s s i s t l o c a l co m m uni ti es i n t h e c o m p l e t i o n o f a la n d r e s o u r c e in v e n to ry i s v i t a l l y needed. This would i n c l u d e t h e p r e s e n t a t i o n o f a methodology f o r ex am ining and r e l a t i n g t h e im pact o f de velo pm ent t o t h e community. BIBLIOGRAPHY 300 BIBLIOGRAPHY Books Dana, Samuel T r a s k . F o r e s t and Range P o l i c y . H i l l Book Company, I n c . , 1956. New York: McGraw- Dunbar, W i l l i s F r e d e r i c k . Michigan: A H i s t o r y o f t h e Wolverine S t a t e . Grand R a p id s , MI: W. B. Erdman P u b l i s h i n g C o . , 1902. H ib b a r d , Benjamin Hor ace. H i s t o r y and Management o f Land G r a n ts f o r E d u c a t io n i n t h e Northw est T e r r i t o r y . New York: The K n i c k e r b o c k e r P r e s s , 1885. Maybee, R o llan d H. M i c h i g a n ' s White Pine E r a . L a n s in g , MI: John M. Munson Michigan H i s t o r y Fund P u b l i c a t i o n , Michigan H i s t o r i c a l Commission, 1960. McKee, R u s s e l l , G r e a t Lakes C ou n tr y . 1966. New York: Thomas Y. C r o w e l l , P u b ! i c Documents I n s t i t u t e f o r Community Development and S e r v i c e s . Laws R e l a t i n g t o P l a n n i n g . E a s t L a n s i n g , MI: Michigan S t a t e U n i v e r s i t y , 1875. Michigan Dep ar tm en t o f C o n s e r v a t i o n . B i e n n i a l Rep ort o f t h e D e p a r t ­ ment o f C o n s e r v a t i o n , 1921-22 t h r o u g h 1 9 6 7 - 6 8 . L a n s i n g , Mi ch i gan. Michigan Departm ent o f N a tu r a l R e s o u r c e s . Biennial Report o f the De par tm en t o f N a t u r a l R e s o u r c e s , 1969-70 t h ro u g h 1 9 7 5 - 7 6 . L a n s i n g , M ichigan . Michigan Dep ar tm en t o f C o n s e r v a t i o n . P r o c e e d i n g s o f t h e C on s er v a­ t i o n Commission, 1925-26 th r o u g h 1 9 3 4 - 3 5 . Volume 5 - 1 4 . L a n s i n g , Michigan. M ichigan Dep ar tm en t o f C o n s e r v a t i o n . P r o c e e d i n g s o f t h e C onserva­ t i o n Commission, 1 9 3 7 - 3 8 . Volume 17. L a n s i n g , Michigan. Michigan Dep ar tm en t o f C o n s e r v a t i o n . P r o c e e d i n g s o f t h e C o n s e r v a ­ t i o n Commission, 1942-43 th r o u g h 1 9 4 9 - 5 0 . Volume 22 - 2 9 . L a n s i n g , M ichigan. 301 302 Mich igan Department o f C o n s e r v a t i o n . P r o c e e d i n g s o f t h e Conserva­ t i o n Commission, 1 9 6 5 - 6 6 . Volume 45. L a n s i n g , Michigan. Mich igan Department o f N a tu r a l R e s o u r c e s . P r o c e e d in g s o f t h e N a t u r a l R e s o u r c e s Commission, 1970-77^ Volume 50. L a n s i n g , Michigan . Michigan P u b l i c Domain Commission. P r o c e e d i n g s , P u b l i c Domain Commission, 1909-10 th ro u g h 1 9 1 8 - 1 9 . Volume 1-10. L a n s i n g , Michigan: Wynkoop H a l le n b a c k Crawford Company, S t a t e P r i n t e r s , 1921. Michigan Departm ent o f N atu ral R e s o u r c e s. M i s c e l l a n e o u s n o t e s , r e c o r d s , u n p u b l i s h e d d a t a and a r c h i v e m a t e r i a l s . Ree ce, D. J . and O ' M a l l e y , B. J . Michigan Environmental Law, Volume I . Michigan House o f R e p r e s e n t a t i v e s S p e c ia l Committee on Environmental Law Review, 1977. R eece , D. 0. and O 'M a lle y , B. J . Michigan Environmental Law, Volume I I . Michigan House o f R e p r e s e n t a t i v e s S p e c i a l Committee on Environmental Law Review, 1977. S t a t e o f M ic higan. Laws R e l a t i n g t o S t a t e Lands A d m i n i s t e r e d by t h e Dep ar tm en t fo C o n s e r v a t i o n . L a n s i n g , Michigan: L e g i s l a t i v e S e r v i c e Bureau, 1966. S t a t e o f M ichiga n. Laws R e l a t i n g t o C o n s e r v a t i o n . L a n s i n g , M ichigan: Department o f C o n s e r v a t i o n , 1963. S t a t e o f M ichigan. Laws R e l a t i n g to N a tu r a l R e s o u r c e s . M ichigan: L e g i s l a t i v e S e r v i c e s Bureau, 1968. S t a t e o f M ichiga n. Laws R e l a t i n g t o W a t e r . L e g i s l a t i v e S e r v i c e s Bureau, 1966. Lansing, L a n s in g , Michigan: S t r o u g h t o n , W il li am L. Laws o f t h e U nited S t a t e s G r a n t i n g Lands t o t h e S t a t e o f M ic h i g a n . L a n s i n g , Michigan: John A. Kerr and Company, P r i n t e r s t o t h e S t a t e , 1867. R e p o r t o f t h e S p e c i a l Committee t o Study Department O r g a n i z a t i o n . By K e ith W ilson, Chairman. L a n s i n g , Michigan: Department o f N a t u r a l R e s o u r c e s , 1975. A r t i c l e s , B o o k l e t s , and R e ports A l l e n , R. C. and M a r t i n , H. M. "A B r i e f H i s t o r y o f t h e G e o l o g i c a l and B i o l o g i c a l Survey o f M ic higan: 1837 t o 1872 by R. C. A l l e n and 1872 t o 1920 by H. M. M a r t i n . " Michigan H i s t o r y , 6:4 (1922). 30 3 Berg, H e r b e r t Andrew. F i n a n c i a l S u p p o r t o f Michigan A g r i c u l t u r a l C o l l e g e During Format ive Years w i t h Emphasis on t h e C o ll e g e Swamp L a n d s . E a s t L a nsin g: Michigan S t a t e U n i v e r s i t y , 1966. B o e h l e r , C h a r l e s E. S t a t e Parks o f M ic h ig a n . L a n s in g , Michigan: Michigan Department o f C o n s e r v a t i o n , 1957. Daw, Ted E. "Remember t h e CCC?" August 1955). Michigan C o n s e r v a t i o n , ( J u l y - G r e f f e n i u s , R. S. E. "Development o f Michigan Land P o l i c y . " Ph.D. d i s s e r t a t i o n , U n i v e r s i t y o f Michig an , 1968. H i l l , R u s s e ll G. Land S t e w a r d s h i p , A Study o f Soil C o n s e r v a t io n D i s t r i c t s in M ic h i g a n . E a st L a nsing: Michigan S t a t e U n i v e r s i t y , 1975. J a w o r s k i , E. and R ap h a el, C. F i s h , W i l d l i f e , and R e c r e a t i o n a l Values o f M i c h i g a n ' s C o a s ta l W e t l a n d s . Y p s i l a n t i , MI: Department o f Geography-Geology, E a s t e r n Michigan U n i v e r s i t y , 1978. M a r t i n , H. M. "An A b s t r a c t o f a H i s t o r y o f t h e Michigan G e o l o g i c a l and B i o l o g i c a l Survey by R. C. A l l e n and H. M. M a r t i n . " Re por t o f t h e Michigan Academy o f L i t e r a t u r e , S c i e n c e , and t h e A r t s '! Ann A rbor, 1923. M a r t i n , Helen M. "A Hundred Years o f t h e Michigan G e o lo g ic a l S u r v e y . " Michigan C o n s e r v a t i o n , ( A u g u st- S ep tem b er, O c t o b e r , and December 19 37). M i t c h e l l , J . A. and Robson, D. F o r e s t F i r e s and F o r e s t F i r e Co ntrol in M ic h i g a n . L a n s i n g , M ichigan : Michigan Department o f C o n s e r v a t i o n in c o o p e r a t i o n w i t h t h e U nited S t a t e s D e p a r t ­ ment o f A g r i c u l t u r e F o r e s t S e r v i c e , 1950. O f f i c e o f Land Use. M ic h i g a n ' s F u t u r e Was Today. L a n s in g , M ich igan : Department o f N a tu r a l R e s o u r c e , 1974. P e t e r s e n , E. T. "The H i s t o r y o f Wild L i f e C o n s e r v a t i o n in Michigan 1859-1921." Ph.D. d i s s e r t a t i o n , U n i v e r s i t y o f M ichigan , 1952. Radamacher, C h a r l e s E. S t a t u t o r y H i s t o r y o f Payments in Lieu o f Taxes on S ta te -o w n e d Land und er J u r i s d i c t i o n o f t h e Department o f N a tu r a l R e s o u r c e s , Lands D i v i s i o n . L a nsing : Michigan Department o f N a tu r a l R e s o u r c e s , 1974. 304 R ey nold s , D. B. E a r l y Land Claims i n M ic h i g a n . L a n sin g , M ichigan : Department o f C o n s e r v a t i o n , 1922. Schoenmann, L. R. " P u b l i c Lands i n M i c h i g a n s . " F i f t y - t h i r d Annual R e p o r t o f t h e Michigan Academy o f L i t e r a t u r e , S c i e n c e , and t h e A r t s . Ann A r b o r, 1952. S t r u h s a k e r , F. P. "100 Years i n t h e Land B u s i n e s s . " C o n s e r v a t i o n , 11:10 (November, 1942). Michigan T i t u s , H a r o ld . The Land Nobody Wanted. S p e c ia l B u l l e t i n 332. E a s t L a n s i n g , MI: Michigan S t a t e C o l l e g e Experiment S t a t i o n , S e c t i o n o f C o n s e r v a t i o n , i n c o o p e r a t i o n w it h Michigan S t a t e C o l l e g e E x t e n s i o n S e r v i c e and Michgian Departm ent o f C o n s e r v a t i o n , A p r il 1945. W a l l i n , H elen . B i o g r a p h i c S ke tch o f Douglass Houghton, M ic h i g a n ' s F i r s t S t a t e G e o l o g i s t , 1837-1845. L a n s i n g , Michigan: Michigan Department o f C o n s e r v a t i o n , G e o l o g i c a l S ur ve y, 1966. W a l l i n , H elen . "M ichigan's Lost P e n in su la ." 2:3 (1961). Michigan H e r i t a g e , Interview s Daw, Ted. C h i e f , F o r e s t r y D i v i s i o n ( r e t i r e d ) , Michigan Department o f N a t u r a l R e s o u r c e s , L a n s i n g , Michigan . I n t e r v i e w , 15 December 1977. Hoffman, Quincy. L e g i s l a t o r , S t a t e o f M ic h ig a n , L a n s in g , Michigan. I n t e r v i e w , 23 F e b r u a r y 1978. Rademacher, C h a r l e s . Lands D i v i s i o n , Michigan Department o f N atu r a l R e s o u r c e s , L a n s i n g , Michigan. I n t e r v i e w , 18 A p r il 1977. Rustem, W ill ia m . G o v e r n o r ' s A id e, E x e c u t i v e O f f i c e , S t a t e o f M ich igan, L a n s i n g , Michigan . I n t e r v i e w , 5 J a n u a r y 1978. S lau g h ter, A rthur. G e o l o g i c a l Survey D i v i s i o n , Department o f N a tu r a l R e s o u r c e s , L a n s i n g , M ichigan . I n t e r v i e w , 18 May 1978. W iebe r, James. I n f o r m a t i o n S p e c i a l i s t , Departm ent o f N a t u r a l Re­ s o u r c e s , L a n s i n g , M ich igan . I n t e r v i e w , 11 A p r i l 1978. W ilson, K eith. W at erw ays D i v i s i o n , D e p a r t m e n t o f N a t u r a l L a n sin g , M ichigan. I n t e r v i e w , 25 A p r i l 1 9 7 8 . R esources, APPENDIX A THE DEPARTMENT OF CONSERVATION ACT 17, P.A. 1921 305 APPENDIX A THE DEPARTMENT OF CONSERVATION ACT 17, P.A. 1921 P u b l i c A c t s , 1921--No. 1 7 . An Act t o p r o v i d e f o r t h e p r o ­ t e c t i o n and c o n s e r v a t i o n o f t h e n a t u r a l r e s o u r c e s o f t h e s t a t e ; t o c r e a t e a C o n s e r v a t i o n Departm ent; t o d e f i n e t h e powers and d u t i e s t h e r e o f ; to provide f o r th e t r a n s f e r to said department o f t h e powers and d u t i e s now v e s t e d by law i n c e r t a i n b o a r d s , co m m is s io n s and o f f i c e r s o f t h e s t a t e ; and f o r t h e a b o l i s h i n g o f t h e b o a r d s , commissions and o f f i c e s t h e powers and d u t i e s o f which a re hereby t r a s n f e r r e d . The P eople o f t h e S t a t e o f Michigan e n a c t : SECTION 1. There i s her eb y c r e a t e d a Department o f Cons er- v a t i o n f o r t h e S t a t e o f Michigan which s h a l l p o s s e s s t h e powers and p e r f o r m t h e d u t i e s h e r e b y g r a n t e d and imposed. a d m i n i s t r a t i o n o f s a i d powers and d u t i e s s h a l l The g e n e r a l be v e s t e d in a Commission o f C o n s e r v a t i o n which s h a l l be composed o f seven members a p p o i n t e d by t h e Gov ernor, s u b j e c t t o c o n f i r m a t i o n by t h e s e n a t e . The G overnor s h a l l d e s i g n a t e which member o f t h e commission s h a l l a c t a s ch a ir m a n t h e r e o f . The members o f s a i d commission s h a l l be s e l e c t e d w i t h s p e c i a l r e f e r e n c e t o t h e i r t r a i n i n g and e x p e r i e n c e a l o n g t h e l i n e o f one o r more o f t h e p r i n c i p a l l i n e s o f a c t i v i t i e s v e s t e d i n t h e Departm ent o f C o n s e r v a t i o n and t h e i r a b i l i t y and 306 307 f i t n e s s t o d eal t h e r e w i t h . Each member o f t h i s commission s h a l l ho ld h i s o f f i c e u n t i l t h e a p p o i n t m e n t and q u a l i f i c a t i o n o f h i s successor. The Governor s h a l l , s u b j e c t t o c o n f i r m a t i o n by t h e s e n a t e , a p p o i n t a D i r e c t o r o f C o n s e r v a t i o n , who s h a l l r e c e i v e an annual s a l a r y o f f i v e th o u san d d o l l a r s , and s a i d d i r e c t o r s h a l l a p p o i n t w ith t h e a p p r o v a l o f t h e commission such a s s i s t a n c s and employees a s may be n e c e s s a r y t o c a r r y o u t t h e p r o v i s i o n s o f t h i s a c t , o r o f any o t h e r law o f t h e s t a t e a f f e c t i n g t h e powers and d u tie s o f said department. The c o m p e n s a t io n o f a l l su ch a s s i s t a n t s and employees and t h e number t h e r e o f s h a l l be s u b j e c t t o t h e a p p r o v a l o f t h e S t a t e A d m i n i s t r a t i v e Board. The members o f t h e commission s h a l l r e c e i v e no com pensatio n h e r e u n d e r , b u t e a c h such member, and t h e o t h e r o f f i c e r s and employees o f t h e d e p a r t m e n t , s h a l l be e n t i t l e d to r e a s o n a b l e e x p e n s e s w h i l e t r a v e l i n g in t h e p er fo r m an ce o f any o f t h e d u t i e s he r e b y imposed. hereunder sh all All s a l a r i e s and e x p e n s e s a u t h o r i z e d be p a id o u t o f t h e s t a t e t r e a s u r y i n t h e same manner a s t h e s a l a r i e s o f o t h e r s t a t e o f f i c e r s and employees a r e paid. I t s h a l l be t h e d u t y o f t h e Board o f S t a t e A u d i t o r s to f u r n i s h s u i t a b l e o f f i c e s and o f f i c e eq u ip m en t, a t t h e c i t y o f L a n s i n g , f o r t h e u se o f t h e C o n s e r v a t i o n Dep artm en t. Each member o f t h e commission and t h e D i r e c t o r o f C o n s e r v a t i o n s h a l l q u a l i f y by t a k i n g and s u b s c r i b i n g t h e c o n s t i t u t i o n a l o a t h o f o f f i c e , and f i l i n g same in t h e o f f i c e o f t h e S e c r e t a r y o f S t a t e . SECTION 2. The powers and d u t i e s now v e s t e d by law in t h e P u b l i c Domain Commission; t h e S t a t e Game, F ish and F o r e s t F i r e 308 Commissioner; t h e S t a t e Board o f F is h Commissioners; t h e G e o lo g ic a l S u r v e y ; and t h e Michigan S t a t e Park Commission a r e hereby t r a n s ­ f e r r e d t o and v e s t e d i n t h e Department o f C o n s e r v a t i o n . Whenever, in any law o f t h e s t a t e r e f e r e n c e i s made t o any b o a r d , commission o r o f f i c e r whose powers and d u t i e s a r e t h u s t r a n s f e r r e d , r e f e r e n c e s h a l l be deemed t o be made t o t h e Department o f C o n s e r v a t i o n . On t h e t a k i n g e f f e c t o f t h i s a c t t h e P u b l i c Domain Commission, t h e S t a t e Board o f F is h Commissioner s, t h e G e o lo g ic a l Michigan S t a t e Par k Commission, and t h e o f f i c e S ur ve y, t h e o f S t a t e Game, F ish and F o r e s t F i r e Warden s h a l l be a b o l i s h e d and a l l r e c o r d s , f i l e s and papers o f every n a tu r e p e r t a i n in g to the fu n c tio n s t h e r e o f sh a ll be t u r n e d o v e r t o t h e Department o f C o n s e r v a t i o n , t o be p r e s e r v e d a s a p a r t o f t h e r e c o r d s and f i l e s o f t h e d e p a r t m e n t he r e b y created. Any h e a r i n g o r o t h e r p r o c e e d i n g pend ing b e f o r e any commission o r board h e r e b y a b o l i s h e d s h a l l n o t be a b a t e d b u t s h a l l be c a r r i e d on and d e t e r m in e d by t h e Commission o f C o n s e r v a t i o n in a c c o r d a n c e w i t h t h e p r o v i s i o n s o f t h e law g o v e r n i n g such h e a r i n g and p r o c e e d i n g . The commission he r e b y c r e a t e d may a d o p t such r u l e s and r e g u l a t i o n s , n o t i n c o n s i s t e n t w i t h la w , g o v e r n i n g i t s o r g a n i z a t i o n and p r o c e d u r e , and t h e 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 t h i s a c t , a s may be deemed e x p e d i e n t . SECTION 3. I t i s he reb y made t h e d u ty o f t h e Departm ent o f C o n s e r v a t i o n t o p r o t e c t and c o n s e r v e t h e n a t u r a l r e s o u r c e s o f t h e S t a t e o f M ic hgia n; t o p r e v e n t t h e d e s t r u c t i o n o f t i m b e r by f i r e o r o t h e r w i s e ; t o promote t h e r e f o r e s t i n g o f n o n a g r i c u l t u r a l lands 30 9 b e l o n g i n g t o t h e s t a t e ; t o guard a g a i n s t th e p o l l u t i o n o f l a k e s and s t r e a m s w i t h i n t h e s t a t e ; and t o f o s t e r and e n co u r ag e t h e p r o t e c t i n g and p r o p a g a t i o n o f game and f i s h . On b e h a l f o f t h e p eo p le o f t h e s t a t e , t h e Commission o f C o n s e r v a t i o n may a c c e p t g i f t s and g r a n t s o f la n d and o t h e r p r o p e r t y f o r any o f t h e p u r p o s e s c o n t e m p l a t e d by t h i s a c t . I t s h a l l a l s o be t h e d u t y o f s a i d d e p a r t m e n t t o make an i n v e s t i g a t i o n o f t h e n a t u r a l w a t e r power o f t h e s t a t e , t h a t i s a s y e t u n d e v e l o p e d , and t o r e p o r t t o t h e Governor and l e g i s l a t u r e with re fe re n c e th e r e to before the f i f t e e n t h of January, nineteen hundred t w e n t y - t h r e e . Such r e p o r t s h a l l s p e c i f y t h e l o c a t i o n and e x t e n t o f such power, i t s a v a i l a b i l i t y f o r u s e , and such o t h e r m a t t e r s a f f e c t i n g t h e same a s may be deemed e x p e d i e n t . SECTION 4 . On o r b e f o r e t h e f i f t e e n t h day o f J a n u a r y o f e a c h y e a r i n which a r e g u l a r s e s s i o n o f t h e l e g i s l a t u r e i s h e l d , t h e D i r e c t o r o f C o n s e r v a t i o n s h a l l make t o t h e Governor and l e g i s ­ l a t u r e , a r e p o r t c o v e r i n g t h e o p e r a t i o n o f h i s d e p a r t m e n t f o r th e preceding biennial period. Such r e p o r t s h a l l , i f so o r d e r e d by t h e Board o f S t a t e A u d i t o r s , be p r i n t e d and s h a l l be d i s t r i b u t e d in such manner and t o such p e r s o n s , o r g a n i z a t i o n s , i n s t i t u t i o n s , and o f f i c i a l s a s s a i d board may d i r e c t . SECTION 5. All a c t s o r p a r t s o f a c t s in c o n t r a v e n t i o n o f t h e p r o v i s i o n s h e r e o f a r e he r e b y r e p e a l e d a s o f s a i d d a t e . SECTION 6 . T h i s a c t i s he r e b y d e c l a r e d t o be im m ed iately n e c e s s a r y f o r t h e p r e s e r v a t i o n o f t h e p u b l i c p e a c e , h e a l t h and s a f e t y . T h is a c t i s o r d e r e d t o t a k e immediate e f f e c t . A p p r o v e d March 3 0 , 1921.