proposed program for Michigan's coast project overview

[From the U.S. Government Printing Office, www.gpo.gov]

CZAST AL M Ay 197 7
INFORMIGS CENTER
I Z rie T L E ST TE
Cionatostramai?ioi

EMI . . ... . .... ... . ...

A&Z
PO:

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ic igan s oast

*1 members
S adv:Lsory counm
r
Robert H. Allen James Kerwin
Presque Isle Corporation 1001 Beaconsfield
P.O. Box 426 Grosse Pte. Park, MI 48230
Alpena, MI 49707 Phone: (office) 3131222-2000
Phone: (office) 517/595-6101 Appointed: April 1976
40 Appointed: August 1975 Robert Marsh
Dr. John Armstrong Lake Huron Property Owners Assn.
to Coastal Lab Box 42
to 1101 N. University Building East Tawas, MI 48730
University of Michigan Phone: 517/362-5412
04 Ann Arbor, MI 48103 Appointed: January 1974
V Phone: (office) 313/763-1377
N Appointed: January 1974 Steward Myers
Donna Asselin 106 Ivanhoe, N.E.
2826 South Lake Shore Drive Grand Rapids, MI 49506
St. Joseph, MI 49085 Phone: (office) 616/456-4860
Phone: 616/429-5557 (home) 616/949-5141
Appointed: January 1974 Appointed: January1974

Dr. Dorothy Brooks Richard Micka
Watervale 1216 Riverview
Arcadia, MI 49613 Monroe, MI 48161
Phone: 616/352-7035 Phone: (office) 313/242-1444,
ext. 340
Les Brown (home) 313/242-0909
Route 2, Box 43 Appointed: January 1974
Lawton, MI 49065
Phone: (office) 616/621-3143 Daniel Reed
Appointed: April 1976 Paradise, MI 49768
Katherine Cushman Phone: 906/492-3380
23633 Elmwood Court Appointed: January 1974
Dearborn, MI 48124
Phone: 313/561-3318 Edwin Shannon, Manager
Waste Control Department
Ernest Graham 628 Building
144 First Street Dow Chemical Company
Q -Z5 Menominee, MI 49858 Midland, MI 48640
Phone: (office) 906/863-5595 Phone: (office) 517/636-2330
Appointed: April 1976 Appointed: January 1974

Marjorie Hendricks Hope Trapp
1250 Washington 1510 Lincoln Avenue
Grand Haven, MI 49417 Marquette, MI 49555
Phone: 616/842-4558 Phone: 906/225-1227
Appointed: April 1976 Appointed: August 1975

e,n

This publication was produced by Michigan's Coastal Management Program through
V financial assistance, provided by the Coastal Zone Management Act of 1972,
R be rt H
0
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administered by the Office of Coastal Zone Management, National Oceanic and
Atmospheric Administration, U.S. Department of Commerce

COASTRL ZONE
0.
ST TE

Page
Introduction . . . . . . . . . . . . . . . . . . . . . . 1
Pq Character of the Coast . . . . . . . . . . . . . . . . . 4
N Importance of the Coast - Past and Present . . . . . . . 5
E Problem and 1plortunity Areas * * . . . . . . .
What Must be Done? . . . . . . . . . . . . . . ...... .
9

What is Being lone?

Defining the Coastal Area . . . . . . . . . . . . . . 13

Special Areas . . . . . . . . . . . . . . . . . . . . . 17

Goals for Coastal Management . * , * . * * * , , , ,q

Program Roles for Coastal Management . . . . . . . . . . 21

What Can I Do and How Can My Input be Used? . . . . . . 25

Program Guidelines . . . . . . . . . . . . . . . . . . 31

Summary . . . . . . . . . . . . . . . . . . . . . . . . 33
).Pa_6e

COASTAL ZONE
INFORMATUA CENTER
INTRODUCTION

"A Proposed Program for Michigan's Coast" provides an overview'of a two and

one-half year effort by planning and development regions, many interested

groups and individuals, and the Department of Natural Resources to improve
the way in which our Great Lakes coastal resources are managed. This

spring, the Department of Natural Resources will sponsor a series of infor-

mation meetings across the State to discuss this report and receive further

public input.

The need for more effective coastal management was officially recognized

by the Michigan Legislature and Governor Mi Iliken in 1970 when the Shore-

lands,Protection and Management Act was signed into law. This statute re-

flected statewide awareness of the importance of Michigan's coast and its

value as a natural asset. Major provisions of the act include the mandate

to plan for the management of Michigan's Great Lakes high risk erosion areas,
flood-risk areas and critical fish and wildlife habitats. 4-q

Two years later, passage of the Federal Coastal Zone Management Act marked

a nationwide recognition of the multiple values of the nation's coastal

area. This Act, for the first time in our nation's history, established a

national program to assist coastal states during the development and imple-

mentation of coastal management programs. Under this voluntary program,

the 30 coastal states may apply for grant monies to work with citizens,

local and federal agencies, and other vitally affected interests in the de-

velopment of such a program. Each state program is mandated to give full

consideration to the ecologic, cultural, economic, aesthetic and recreation

values of the coast.

The Division of Land Resource Programs, within the Department of Natural

Resources, has been assigned responsibility for the preparation and

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coordination of Michigan's Coastal Management Program. "A Proposed Program

for Michigan's Coast", offered on the following pages for your review, iden-

tifies coastal resource use problems and opportunities. It presents a

framework through which citizens, federal agencies, state and local govern-.,

ments can work together to solve problems and to fully realize Michigan's

coastal resource potential.

Ten supplements to this report have been prepared for individual coastal

areas of Michigan by ten planning and development regions, in concern with

their representative citizens, under contract with the Michigan Depart-

ment of Natural Resources. Supplements can be obtained at coastal manage-

ment information meetings, from individual planning and development re-

gion offices or the Department of Natural Resources. Addresses for the

planning and development region offices are listed on page

Michigan citizens can benefit from improvements in the way in which their

beautiful and productive coastal resources are managed. We hope you will

@assist in' perpetuating and improving Michigan's coastal area and will take

time to carefully review "A Proposed Program for Michigan's Coast" and the

regional supplement for your area. Michigan's unique coastal resources need

your assistance to assure wise management for present and future generations,.
A response form is provided on the last page of the report for your comment's

and questions. Your concerns and comments are important in forging the

vision of Michigan's Coastal Management Program.

Public hearings on the proposed Coastal Management Program are to be held
in Summer, 1977. The draft coastal management program document will then be
revised according to public comments and prepared for approval of the Natural

Resources Commission and Governor Milliken. The next step will be to forward

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Michigan's proposed program to the National Oceanic and Atmospheric Adminis-

tration, Department of Commerce, Washington, D.C. for federal approval.

Upon federal review and approval of Michigan's program by the United States

Secretary of Commerce, Michigan will be eligible to receive federal grants

annually for up to three years for the implementation of the coastal manage-

ment program.

The opportunity is present for Michigan's citizens to have a profound in-

fluence on the future quality of a unique natural asset. You are invited

to participate fully in the development and implementation of a program to

assure that the legacy of Michigan's coast is one of which we can all be

proud.

4-4

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CHARACTER OF THE COAST

Michigan has one of the longest coastlines in the country and the longest

freshwater coast in the world. Our share of the Great Lakes covers some

38,000 square miles of Lakes Michigan, Huron, Superior and Erie, and their

connecting waterways. These waterways include the Keweenaw Waterway, the

St. Marys, St. Clair and Detroit Rivers, and Lake St. Clair. More than

200 islands scattered across Michigan's share of the Great Lakes account

for 900 miles of the State's total 3,200 miles of coastline.

Each of our Great Lakes has-a unique mix of coastal. features. Clay bluffs

and sandy beaches, dotted by some of the largest sand dunes in the world,

shape the Lake Michigan coast. Towering rocky bluffs, sandstone cliffs

and cobblebeaches diversify the breathtaking beauty of Lake Superior. The

Lake Huron coast is quite different -- being characterized by wetlands,

rocky outcrops and narrow beaches. Wetlands and artificial fill along Lake

Erie, Lake St. Clair and the Detroit River are distinguishing features of

the largely flat and low coastal plain of southeast Michigan.

IMPORTANCE OF THE COAST - PAST AND PRESENT

Throughout history, the Great Lakes and the resources they support have

been a key factor in Michigan's development. In the eighteenth century,

the fish, furs, fertile land and rich-timber resources attracted settlers
or-4
who built towns along the coast and used the Great Lakes to transport their

harvests to other parts of the growing nation. By 1833, there were over

1,500 vessels of all descriptions operating on the Great Lakes, carrying

about $60 million worth of cargo per year.

With the rise of the automobile in the twentieth century and the arrival

of the "age of travel", workers headed away from the cities to vacation at

Great Lakes beaches and resorts. Improved roads and freeways shortened

travel time between industrialized cities and the coast making it possible
for some to enjoy a seasonal or permanent residence on the shores of the 0
Great Lakes. 4-1
@__l
Today, we continue to look to the coast for a major portion of our liveli- r&1_1

hood and recreation. We look to our coastal lands to support industrial

complexes, recreation facilities, residential areas, resorts, ports, farms

and orchards, energy and mineral production. Our coastal waters support

water transportation, fisheries, recreation, and industrial and public

water supplies. The Great Lakes coastal area continues today to be one of

the state's most valuable natural resources. Current use, development and

ownership patterns along Michigan's mainland coast are shown in Figures 1

and 2.

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PROBLEM AND OPPORTUNITY AREAS

Our Michigan coast is beautiful and productive and presents many possibili-

ties for future use. It is, however, faced with mounting problems --

property and resource damage caused by flooding and erosion, development

patterns which do not always respect coastal capabilities or tolerances,

loss of important wetlands and sand dunes, insufficient public access to

coastal waters, and others. Despite coastal problems, numerous recreational

and economic opportunities are available along the coast. It is important

that we acknowledge the presence of problems, as well as opportunities,

and work toward solutions which will optimize our coastal resources.

It is helpful to think in terms-of five general categories which classify

the types of areas where problems and opportunities are likely to occur in

Michigan's coastal area.

1. Areas Hazardous to Development.

Damage from shore erosion and flooding in Michigan reaches into the

tens of millions of dollars each year. Department of Natural Resources

surveys show that 500 miles of shoreline are subject to critical ero-

sion problems. More than 80 homes have been destroyed in the last four

years, while an additional 800 are in immediate danger. Approximately

50,000 acres of Michigan's coastal areas are susceptible to flooding,

with the coastal areas of Saginaw Bay, Lake Erie and Lake St. Clair most

vulnerable.

2. Sensitive Areas

Michigan's coastal area is blessed with certain unique natural environ-

ments that are of value to all of its citizens. Sensitive coastal

wetlands, sand-dunes, islands, woodlots and shallow water areas provide

-7-

fish and wildlife habitats, scenic sites and nature study areas. Wet-

lands, although easily damaged by man's activities, are among the most,

valuable ecosystems in terms of biological productivity. In a sponge-

like manner, wetlands absorb rising flood waters, protecting upland areas

from inundation. Wetland vegetation also filters sediments and nu-

trients from inflowing waters, helping to protect Great Lakes

water quality. Unfortunately, throughout the. 20th century, thousands
of acres of sensitive coastal areas have been filled, or devegetated.
Remaining areas must compete for survival with home construction,
industrial use and commercial developments. Approximately 300 miles
of Michigan's coast have been identified as essentail to the preser-
vation of Great Lakes fish and wildlife species by the Department of

Natural Resources.
3. Areas Fulfilling Recreational and Cultural Needs C)
Mi*chigan's coastal area is virtually unsurpassed for recreational oppor- 4-q

tunities. Recent introduction of salmon and restoration of lake

trout have made Michigan's Great Lakes a sport fishing paradise. One-

third of the state's boating and fishing activity depends on Great

Lakes waters. Fishing, boating, long stretches of sandy beaches, a

wealth of historic attractions, and fresh water for swimming have made

Michigan's shore among the most popular Midwest tourism and vacation

spots. Problems occur when crowded campsites, parks, beaches, and

boating and fishing facilities detract from aesthetic and recreational

appeal of the coastal area and place high public service costs on

coastal communities.

4. Areas of Intensive or Conflicting Use

The most intensively used coastal areas in Michigan are located near

the larger coastal cities. Several waterfront stretches in Michigan's

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coastal cities have been identified as needing waterfront planning,

rehabilitation or redevelopment due to deteriorating conditions. In

addition, many residents of coastal cities have reported a need for more

public access to the coast for fishing, boating or swimming.

Other resource use problems are notable where rivers or lakes empty

into the Great Lakes. Water quality problems must be alleviated to protect

the recreational, aesthetic and ecological values of coastal lakes and

river mouths. Maintaining or deepening river mouths for navigation pur-

poses may disrupt habitat for fish and wildlife and cause additional problems

in locating proper disposal sites for dre dged materials.

5. Areas of Natural Economic Potential

The coast offers a variety of economic opportunities which are enhanced by

the availability of Great Lakes ports and harbors. Nearly 500 ships navigate

the Lakes, together capable of carrying 5 million tons of cargo per trip.

A diversified mineral resource base of limestone, iron ore, gypsum, sand,

salt, copper and brines provide important raw materials to industry. The

Great Lakes create a unique climate suitable for the production of cherries,

blueberries and other fruit crops. Industrial development oocupies 5% of

the total coastline and is a vital part of the state's economy. Bright

economic opportunities.for Michigan will be in part dependent on our ability

to recognize coastal opportunities and to promote long term use of these

resources.

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WHAT MUST BE DONE?

What must be done to solve Michigan's coastal problems and to promote :,q,:

planned use of coastal resources?
Q)

Many programs now operating at the state level deal with Michigan's coastal

area. Administration of the Shorelands Protection and Management Act is

aimed in part towards reducing future damages to structures in identified

Great Lakes high risk erosion areas by requiring an established building

setback from the bluffline. The Public Access Site and.Harbors of Refuge

Programs in the Michigan Department of Natural Resources' Waterways Division

are designed to provide improved boating access to Great Lakes waters. The

Departments'Submerged Lands Program is responsible for protecting the public

trust in the state-owned bottomlands of the Great Lakes by regulating dredge

and fill activities. The Department of Natural Resources has been charged
4-4
by legislative action to take a more direct role in the improvement of the

coastal area by acquiring specific lands for public purposes.

Other state agencies and several Department of Natural Resources' programs

have activities in the coastal area. In addition, 30 federal agencies

have interests in Michian's coast, either through statutory responsibility,

land ownership, grant programs, or development projects. Although state

and federal governments have activities in the coastal area, most programs

are single-purpose and deal with individual pieces of the total coastal

picture.

The greatest responsibility for planning coastal land development rests

with local government and private interests. Forty-one counties, 74 cities

and villages and 190 townships on the shoreline influence activity in Michigan's

_10-

coastal area. Local units of government shape the quality of Michigan's

coastal area through the placement of utilities, community facilities, and

recreation areas. Useof local regulatory measures such as zoning ordinances

and subdivision regulations also influence the quality of the coast.

Local, areawide, state and federal interests are drawing together in

Michigan to deal with coastal problems and opportunities. A strategy is

being developed now to improve the way in which we plan for the wise manage-

ment of Michian's coastal area. The developing coastal management strategy

for Michigan should consider:

Overall guidance, direction and coordi.nation of state level programs

operating in the coastal area.

Adequate funding to solve coastal problems and improve coastal recrea-

tional and economic opportunities.

Closer coordination with federal agencies to see that their proposed

co astal activities consider local and state interests, as well as the

national interest.

Partnership between state and local units of government, supported by

grants and technical assistance, to strengthen planning and innovative

resource management techniques at the local level.

WHAT IS BEING DONE?

In July 1974, the State of Michigan received its first grant from the Na- "T:

tional Oceanic and Atmospheric Administration (NOAA) to develop a program

to assist in solving coastal problems. The Department of.Natural Resources'

Division of Land Resource Programs has been assigped responsibility for the

preparation and coordination of the program and has received a three year

grant for program development. Tasks undertaken during development of the

program include:

1. An-inventory of the physical characteristics of the coastal area through

aerial photography interpretation.

2. Determination of Great Lakes high-risk erosion areas, critical fish and
wildlife habitats,and preparation of appropriate management plans in ac- N
cordance with Michigan's Shorelands Protection and Management Act. F-4
3. An inventory of the historic and archaeologic resources of the coastal 0
4-4
area by the History Division, Michigan Department of State.

4. An inventory of commercial shipping facilities by the Michigan Depart-

ment of State Highways and Transportation.

5. An inventory of the various state, local and federal programs and regu-

lations applicable to coastal land and water uses.

6. Preparation of two documents to assist communities in promoting wise

use of the coast: "Planning Guidelines for Residential and Path De-

velopment in Michigan's Sand Dunes and Wetlands" and "Michigan Guide

to Performance Controls for Great Lakes Shorelands".

7. Distribution of coastal management information materials, presentations

to local officials and citizens, and discussions of the ways

in which interested officials and individuals may participate in the.

program.

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S. Identification of coastal problems and opportunities, analysis of

coastal land use trends, and initiation of a public participation pro-

cess to identify special coastal areas.

Approximately half of Michigan's total coastal management program develop-

ment grant has been subcontracted to ten planning and development regions in

order to involve local government and citizens in the development of the

program. Each planning region has provided a description of regional prob-

lems, land use trends, goals and special areas. This information is sum-

marized in a series of ten regional supplements to this report.

A group of 15 concerned citizens from around the state have been appointed

to the Citizens Shorelands Advisory Council by the Michigan Natural Resburces
Commission to advise the Department -of Natural Resources in the development
of a coastal management strategy, Members.of the Council are listed on page

Participation of planning:and development regions, the Shorelands Advisory

Council, the Division of Land Resource Programs and many local, state and

federal agencies has been important in the development of a strategy for

carrying out a coastal management program in Michigan. The strategy, pre-

sented on the following pages for your review, includes a definition of the

coastal area, identification of areas of particular concern,, program respon-

sibilities, goals and principles.

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DEFINING THE COASTAL AREA

How far inland from the waters of the Great Lakes do land and water

activities have important impacts on Great Lakes waters?

This question must be answered in the definition of Michi*gan's coastal area.

Definition of the coastal area.is required of those states receiving

.federal assistance to develop coastal management programs under the pro-

visions of the federal Coastal Zone Management Act. Michigan's approach

to the definition of its coastal area has been to identify a coastal land

and water area which is consistent with the existing state definition of

the "shorelands" under the Shorelands Protection and Management Act as

well as consistent with the intent of the federal Act.

The purpose of defining the extent of Michigan's coastal area is twofold: 0
(1) to define where Land activities have the most Idirect and significant 4-4
impacts of Great Lakes waters; and (2) to identify a Limited Land and
water area where Michigan's coastal management program can concentrate V_-j

future program services and technical assistance.

Legislative Guidelines. Guidance for the delineation of a coastal area

for Michigan is provided by two pieces of legislation. At the federal

level, the Coastal Zone Management Act of 1972 (P.L. 92-583) identifies

the coastal area as those shorelands and coastal waters strongly influe-

nced by one another. It states that all of Michigan's Great Lakes waters,

bottomlands and islands are to be included in Michigan's coastal area.

At the state level, the Shorelands Protection and Management Act (Act 245,

P.A. of 1970, as amended) defines "shorelands" as those areas within 1,000

-14-

feet landward of the ordinary high-water mark of the Great Lakes or its

connecting waterways and those areas bordering or adjacent to waters

affected by levels of the,Great Lakes. Definition of "shorelands" is

expanded for flood-risk areas to include the 100-year flood plain of the

Great Lakes and its connecting waters.

Michigan State University Boundary Study. In 1975, the Resource Develop-

ment Department of Michigan State University began a three-month study of

a wide range of alternative coastal boundary definitions. The study

recommended that an area extending 1,000 feet from the ordinary high-water

mark of the Great Lakes would be most appropriate to encompass those uses

of the land having direct and significant impacts on coastal waters. This

corresponds with the 1,000 foot boundary established by Michigan's Shore-

lands Protection and Management Act. In some instances, however, the

report recommended that the boundary extend further inland in special

areas. These extensions or "bulges" in the 1,000 foot boundary were-

necessary to include those areas where uses or character of coastal lands

are strongly influenced by the Great Lakes (i.e. sand dunes, coastal river

mouths and lakes, floodplains, recreation and natural areas, islands and

wetlands). Including these special areas in the coastal area corresponds

with the intent of the federal Act.

Recommended Defini-tion of Michigan's Coastal Area.

The coastal area extends lakeward to include all submerged lands,
waters and islands of the Great Lakes and connecting waterways (Keweenaw

Waterway, St. Marys River, Lake St. Clair, St. Clair River and Detroit

River) up to the state or international boundary in the middle of the

lakes. Landward, the coastal area is recommended to extend 1,000 feet

Coastal . Management Boundary

RECREATION AREA

SAND DUNES
COASTAL LA E % . /k
11112 M@\\@ ETLANDS

*own INLAND
BOUNDARY

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4-4

PT.

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LAK FZD
MICHIGAN 'SEWATERRBIOTUONRDIAARLYLIMITS

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from the ordinary high-water mark. of the Great Lakes or connecting

waterways.

Where waters are directly affected by levels of the Great Lakes or where

inland lakes li'e within 1,000 feet of the Great Lakes or connecting water-

ways, the coastal area is recommended to extend 1,000 feet landward around

these waters. The coastal area is also recommended to extend landward to

include the following types of areas in their entirety:

--Wetlands adjacent to waters directly affected by levels of the Great

Lakes or connecting waterways;

--Publicly owned park, recreation or other natural areas adjacent to the

Great Lakes or connecting waterways which have been designated by a

public agency and administered for the preservation of natural charac-

teristics;

--Sand dune formations adjacent to the Great Lakes or connecting waterways;

--Areas falling within the 100-year flood plain of the Great Lakes or

connecting waterways.

Modification of Boundary. In limited special cases, the recommended boundary

definition may not provide a meaningful approximation of the coastal area.

Two such special cases are: (1) high.ly urbanized areas, where cultural

rather than natural features are dominant (i.e. metropolitan Detroit); and

(2) flat, low,lyi'ng coastal areas where the ordinary high-water mark is not

easily discernible, or where influences of the Great Lakes water levels may

extend great distances inland (i,e. river mouths). Determining the inland

.extent of the coastal area in this case would be difficult without engi-

neering surveys. In these two special cases, the coastal area may be
approximated by the first major roadway inland from the Great Lakes or

connecting waterways.

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SPECIAL AREAS

Within the boundaries of Michigan's coastal area.are some very special

sites. These sites are referred to in Michigan's coastal management

program as "areas of particular concern".

A special sand dune area in Laketon Township, Allegan County, is used by

colleges and groups for nature study. The undisturbed 270-acre tract is

one of the finest natural dune areas remaining in the Lower Peninsula of

Michigan. The St. Ignace waterfront is another special area. The city

has recognized the need to revitalize its waterfront and has proposed

three projects to enhance visual appeal and recreat ional opportunity

along Lake Huron. These are only two examples of the many coastal

areas of particular concern suggested to receive.special consideration in
coastal management efforts. 4-q

Through. the coastal management program, a process has been developed for

Adentifying special coastal areas. This process has been developed to

(1) provide a new avenue for local input into state decision-making proces.ses
(2) for formalizing statements of local concern about particular areas;

and (3) for identifying special areas which. might be considered in future

actions by the Michigan Legislature or in ongoing programs.

The coastal management program has involved citizens, local, regional, state

and federal agencies and interested groups in the identification of special

coastal areas. Planning and development regions have been given primary

responsibility to coordinate the identification process.

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Hundreds of brochures, requesting;interested parties to identify special

coastal areas, were distributed by planning and development region staff

and the Department of Natural Resources. Approximately 650 responses have

been received, identifying special areas, the location and special charac-

teristics of the area, and offering sugg.estions for proper management.

Areas have been identified in the cateqories shown in Table

All special areas identified through this process have been referred to

regional planning commissions for regional/local review. The commissions,

have refined and screened descriptions and management recommendations upon

consultation with local officials and citizens. The commissions themselves

have also identified special areas. A listing of special areas has been

submitted by each of the ten regional planning commissions for inclusion

in Michigan's coastal management effort. The listing of special areas of

parti'cular concern for the ten regions is contained in the regional supple-

ments to this report.

TABLE 1

14 Categories: Areas of Particular Concern

1. High Risk Erosion Areas a. Islands
2. Flood Hazard Areas 9. Coastal Lakes, Rivermouths, Bays

3.. Ecologically Sensitive Areas 10. Urban Areas
4. Natural Areas 11. Mineral Resource Areas

5. Recreation Areas 12. Agricultural
6 Historic and Archeologic Sites 13. Prime Industrial Sites
7. Sand Dunes 14. Water Transportation Areas

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GOALS FOR COASTAL MANAGEMENT

The following proposed goals have been developed for Michigan's coastal

management program through the assistance of the Citizen's Shorelands

Advisory Council.

.Goal: To protect coastal land, water and air resources from

activities detrimental to the public health, safety and

welfare.

Goal: TO promote citizen awareness of the value and sensitivity

of the Great Lakes coastal area.

.Goal: To recognize the economic value of Michigan's Great Lakes

coast in regional , national and worldwide commerce.
0
Goal: To protect the plants and animals dependent upon Michigan's 4-4

coastal ecosystem.

Goal: To minimize damage to shoreland properties that results

from flooding and erosion.

Goal: To provide recreation opportunity through management which

makes the best use of coastal resources.

Goal: To protect the cultural, historic, and aesthetic values of

the coastal area.

Goal: To assure the wise use and development of mineral and energy

resources in the coastal area.

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Goal: To coordinate the operation of federal, state, regional

and local programs that influence activity in Michigan's

coastal area.

Goal: To encourage and support local units of government to

carry out coastal management responsibilities in an

effective and efficient manner.

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PROGRAM ROLES FOR COASTAL MANAGEMENT

The management of Michigan's coastal area must be a shared responsibility

between citizens and local, state and federal governments.

Local Role. Historically, Michigan has relied on local govern-

ment to assume responsibility for planning, zoning and administration of

specific state statutes. This same principle will be followed in identi-

fying local responsibilities in Michigan's coastal management program.

1. Specific state statutes offer local governments the opportunity to

assume certain state statutory authorities. Local units may enact

and enforce regulations consistent with state guidelines in high risk

erosion, flood risk and environmental areas designated under authority

of the Shorelands Protection and Management Act (Act'245, P.A. 1970,

as amended). A primary purpose of Act 245 is to provide a county,

township, city or village with the specific authority to enact shore-

land zoning for hazardous and sensitive areas. Encouraging local units

to assume responsibility under Act 245 and other state statutes that

can be locally administered will be one focus of the coastal management

program.

2. Local units of government have the responsibility and opportunity to

shape the planning of those aspects of coastal land use which are

essentially local in character. Local planning bodies should be per-

mitted to exercise freedom in selecting methods of planning local

matters so that local plans reflect local objectives. Local govern-

ments can play a major role in the coastal management program by

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developing resource management techniques to protect the

Great Lakes coastal area.

State Role

.1. Protection of Michigan's valuable coastal resources is assured by

legislative mandates such as:

Great Lakes Submerged Lands Act (Act 247, P.A. of 1955)

Subdivision Control Act (Act 288, P.A. of.1967)

Floodway Encroachment Act (Act 167, P.A. of 1969)

Mine Reclamation Act (Act 92, P.A. of 1970)

Shorelands Protection and Management Act (Act 245, P.A. 1970)

Soil Erosion and Sedimentation Control Act (Act 347, P.A. of 1972)

Inland Lakes and Streams Act (Act 346, P.A. of 1972)

Sand Dune Protection and Management Act (Act 222, P.A. of 1976)

Passage.of these statutory directives has signalled an increased state-

wide recognition for the need to protect the coastal area from adverse

impacts of improper land and water uses. In general, the state is

responsible to exercise its inherent and statutory management authorities

to assure protection of essential coastal resources of concern to all

Michigan citizens and to resolve issues of more than local significance.

2. Planning and programming efforts of state agencies which affect the
coastal area must be effecti.vely coordinated to avoid costly duplication

and conflict.

-23-

3. Administration and coordination of the coastal management program is :rl_:

the responsibility of the Michigan Department of Natural Resources,

Division of Land Resource Programs- Responsibilities include adminis-

tering coastal management implementation grants; providing formal

recognition of citizen concerns to government agencies operating in

,the coastal area; serving as staff to the Citizens Shorelands Advisory

Council; encouraging local interest in coastal resource management and

assisting in the development of local resource management techniques.

Federal Role. The federal Coastal Zone Management Act establishes guidelines

for the prcparation and implementation of Michigan's Coastal Management Pro-

gram. Federal review of coastal-management programs assures that Michigan

considers the full range of coastal interests in the development of its

program, including the national interest in the siting of certain facilities 4-q

in the coastal area. ra--n
Ls`__J
QT?_I
1. The Office of Coastal Zone Management in the National Oceanic and-Atmos- tl@

pheric Administration (NOAA),U.S. Department of Commerce, is responsible

for review of Michigan's program.to assure that it meets requirements of

the federal Act. NOAA will, upon approval of Michigan's Coastal Manage-

ment Program, provide assistance in the form of grants and.technical

assistance for program implementation.

2. Upon federal approval of Michigan's Coastal Management Program, federal

agencies supporting activities, or carrying out development projects

or activities in the coastal area, shall insure consistency with Michigan's

Coastal Management Program to the maximum extent practicable.

-24-

3. Any applicant for a federal license or permit to conduct an activity
in the coastal area must certify that the proposed activity is con-
sistent with the accepted state coastal management program. This is
an important incentive to develop a federally approved management pro-
gram for Mi-chigan's coastal area.

-25-

WHAT CAN I DO AND

HOW CAN MY INPUT BE USED?

What can each of us do to be included in coastal management.efforts?

There is much to be done during both current program development and next OH

year's expected implementation phases of the program. You can express

your interest in this effort by contacting your local or regional planning

and development agency, the Michigan Citizen's Shorelands Advisory Council,

or the Division of Land Resource Programs in the Department of Natural Re-

sources. We are depending heavily on this communication; your input will

make a difference.

The best method for individuals, coastal interest groups and government

agencies to have input to the coastal management program is to attend in-
formation meetings, public hearings, or contact the groups.mentioned above. 0
4-4
These vehicles have been put in place to insure your concerns are heard, Q@

and will continue to be heard. But another, perhaps more precise way to 9SZ-1

they have special problems or because they have some special value -- is

to nominate those specific coastal areas as areas of particular concern. A

process for you to recommend management attention and nominate such areas

has begun and will continue. Ask us for forms.

As your inputs are received, they will be considered in all levels of the

program development effort. Once the program receives federal approval,

they will provide a formal, documented indication of Michigan's coastal

concerns and ways to act on them. Each type of input -- especially the

areas of particular concern -- will be brought to the attention of per-

sons responsible for programs which have the ability and authority to

_26-

take responsive action. The process of developing and approving this pro-

gram (among other things) maps out how a number of policies, authorities

and organizational structures are available to provide such action. This

program accordingly provides assurances that recommendations from indivi-

duals, citizen groups, and government will be fully considered in all levels

of coastal decision making. (As an example, federal agencies are required

to fully consider coastal problems, goals, objectives and Areas of Particu-

lar Concern documented as part of approved coastal management programs to

conduct their activities to the maximum extent practicable in consistency

with them.) Therefore, where the coastal management program, itself, can-

not carry out helpful action, it can at the least provide the opportunity

and the support for priority,consideration in local, state, federal agency

or other programs with the.ability to address coastal management needs and

issues.

Management.recommendations may be carried out by local, state or federal

programs providing certain services, incentives and/or regulations.

Available management tools include funding, property acquisition, techni-

cal assistance or services, tax incentives, coordination agreements, and

permits. As an example, the following chart shows several existing state

programs which can be applied to coastal problems or opportunities.

-27-

CATEGORIES OF
COASTAL CONCERN S

C)
A TABLEJO SHOW EXISTING
CD
STATE AGENCY PROGRAMS WHICH < < =) Q)
a Uj
CAN BE USED TO FOCUS ON
COASTAL1AND & WATER MANAGEMENT V1 Uj
cc V)
=3 Cr
C:3 0
< LO
a-- c- V) 71-1
CD Co C3 -j
Lt- -j U- <
STATE PROGRAMS FOR C) W "I CD C-) C3
::%-
LAND & WATER MANAGEMENT V) Uj V) L" V) V) -j Ln
.< n -:c Lt-, @@ <r < Uj
(by management activi ty & W W (.J W Lj W F-
(D = -i Lu cz: cy-, C@ or., C3
department of state government) I-- .1c < Q: <

NATUPX OR ENVIRONMENTAL SI&NIFICANCE
NAI URAL RE560CM-
Environmental Services .............................................
)< X X
Natural Rivers ............................................................-11
Shorelands Protection and Management .................. @el x %1z X
Land Acquisition .......................
Artificial Marshes and Ponds ..................................
Fisheries Research .......................................................
Fish Passage Barriers .................................................
Habitat Protection .......................................................
Hatchery and Production ................................; ............
Forest Fire Production .........................................
Forest Pest Contro'L .....................................................
4-q
Endangered Species Program ..................................... .
\1
Farmland Urban Wildlife ............. ......................... ... .-- \t Q@
Forest Wildlife ................................................... ......
Research ........................................... ...............................
Waterfowl Management ...................................................
Wildlife Services ............ ..................... .......................
PUBLIC HEALTH:
Insect and Rodent Control ...
...................................

HISTORIC OR CULTURAL SIGNIFICANCE
COHfIERCE DEPARTMENT:
Travel ........I....................... .......I ....................................
NATURAL RESOURCES:
Salvage ..............................................................................
V
Mackinac Island ............................................................. .
Parks ................................................................................
Recreation ..................................................
..............I.......
Inventory and Assessment ............................................
kegUl ations ......................................................................
Forest Recreation .........................................................
STATE: History and Research ......................................

AIR QUA-M
NATURAL RESOURCES:
t

Preservation of Air Resources ...............................
PUBLIC HEALTH:
Radiological Health ......................................................

-28-

CATEGORIES OF
COASTAL CONCERN S

U
C3
U C CD
A TABLE TO SHOW EXISTING 0@
= ,C,:, C) C)
STATE- AGENCY PROGRAMS WHICH < =:) U
CD M Uj
CAN BE USED TO FOCUS ON _j
LU
COASTAL LAND & WATER rIANAGEMENT
=
C@

<
V) 2= @= " = -_
U. C) ;"-- C:) - _j
_J LU LL. <
STATE PROGRAMS FOR CD Li C:)
LAND & WATER MANAGEMENT V) a-' LU V) L11
< LLJ < < LL- zc Lu
(by management activity & LLJ Lj F- W
CX CD __j 0C W 7-' LLJ
LX CD
department of state government) < < <

WASTE DISPOSAL
_7WURTC-REOURCES
Marina Sanitation .......................................................... V x/
Solid Waste
Oil and Gas .....................
................................................
Liquid Industrial Waste Haulers ............................
Domestic Waste Haulers .......................... . X
Water Resources Commission
.....................I ................
Mineral Well Drilling,.:---- ....... ...........

LAND USE
DEPARTMENT:
Condominium ............... ...................................................
Energy Administration ..................................................
HIGHWAYS AND TRANSPORTATION:
Port Development ..... ......... ........................................... -)C-.---
Public Transportation :.... ...........................................
Highways .......................................................................... X X X
Railroad ............................................................................
Ai rport .................................................................
DEPARTMENT:
Building ........................................................................... ..X
Electrical ........................................................
M
I - @@_ .\I- V
echanical .............................................. . ;..* .... I
Plan Review ............. ! ......................................
P'l umbi ng ........................................................ .
NATURAL RESOURCES:
M'ining and Environmental Geology ........................
Farmland and Open Space .............................................
Zoning Ordinance Review .......................... ................. 4-41
Minerals and Leasing .....................................
Tax Land ........
Flood insurance .............................................
Floodway Control . ...... I ....................................
Subdivision Control ........................ ...............
Subr,erged Great Lakes Bottomlands ..... ..........
Docks ......................:......................................I ...................
Harbors of Refuge ....................................................... 7. .
Public Access Site .....................................
Access and Facility Development ..........................
Forest Management ...........................................
Inland Lakes and Streams .........................................

-29-

CATEGORIES OF
COASTAL CONCERN S

LU -i
A TABLE TO SHOW EXISTING < (-) <
r@4 -- Ck: C3
STATE AGENCY PROGRAMS WHICH < < =)
CD ca Uj Uj
CAN BE USED TO FOCUS ON
COASTAL LAND & WATER MANAGEMENT < V) Uj -cc
0@ Ul Ln W
=3 =3
Uj C)
<
V) Z= 2t
c) ;--- CD C> -j
U- -j LU ;:: U-
STATE PROGRAMS FOR C) Uj (n C:) C-) C)
@:- 'c <:
LAND & WATER MANAGEMENT W V) W W 4n 0 -_i V) @n
C@ :r LU Le- -CC < LL- <c W
(by management activity & Uj @- tj W W = W @-
C:) 0@ -j -1 cc: 0@ cl = c)
department of state government) :r <C C..) < a-

Shore'land Protection & Management - Erosion.... -X-
Soil Erosion and Sedimentation .......................
Federal Water Pollution Control .....................
Mine Reclamation .........................................
Sand Dune Protection and Management ............
Shore I and Pro tect i on & Management - F 1 ood Ri sk
PUBLIC HEALTH: Y
Land Subdivision and Planning ..........................
Hobile Home Park ............................................ .
Campground Develcpment ..................... .............. V

WATER 'zUPPLY AND WATER QUALITY
A6, ICULTURE:
Drains., ........... ........... ;...........I ...................... 4-q
Soil Conservation ............................................
COMMERCE:
Industrial Plant Location ...................................
NATUPAL RESOURCES:
Environmental Services ....................................
Hunicipal.Facilities and Planning ....................
Water Quality Enforcement ..............................
...........
Demonstration Erosion Control ...........................
Local Watershed Hanagement ..............................
Rydrologic Engineering .................................... .. K
Irrigation Management .....................................
'V
Waterworks and Sewage System ...........................
Oil and Hazardous Materials .........................
Mining Water Diversion .......................................
PUBLIC HEALTH:
Groundwater Quality Control ..............................................
Public Swimming Pool ....................................... ... ...
Public Water Supply ......................................... --- -------- - -----

OTHER
AGRICULTURE:
Laboratory ......................................................
Weather Service ................................................ ...

I
LLD

-30-

CATEGORIES OF
COASTAL CONCERN S

X
A TABLE TO SHOW EXISTING
.STATE AGENCY PROGRAMS WHICH C@
< U
CD cc Uj Uj
CAN BE USED TO FOCUS ON @- W. -j @D-
za - _j
COASTAL LAND & WATER MANAGEMENT < LLJ V) w
Ce -:= V)
ix LAJ --)
C) I-- F-
< 2= CD <
CD (D C) -j
Ll- _j - ;:! U- U- <
STATE PROGRAMS FOR CD Ln @- C) L-) C)
LAND & WATER MANAGEMENT < .1c -
V) Uj V) 0-' Uj V) V) __j V)
< M < LLJ Cj@ < < LL- -<
(by management activity LLJ LLJ F- L-) Uj w = LLJ
department of state government) w CD w ix of C:) w C)
L-@ < CL

COMMERCE:
Public Service Commission ................................ 1< 1\11
NATURAL RESOURCES:
Marine Safety ..............
Policy Development ...........................
Environmental Raview Permits ........ V
General Services ..............................................
Information and Education -A-
Surveys and Statistical Services .......................
PUBLIC HEALTH:
Microbiological Services ....................................

-31-

PROGRAM GUIDELINES

The following principles for the operation of state land resource programs

have been reviewed by the Natural Resources Commission, Governor Milliken,

various legislators and public and private institutions. They are pre-

sented here as the guideposts for the development and implementation of a

Coastal Management Program for Michigan.

1. Private property rights must be recognized and respected.

2. The resolution of conflicts and the performance of regulatory functions

should occur at the level of government closest and most responsive to

all the people affected.

3. The coastal management program should provide for the economic and F-4

social well-being of the people--in other words, for the orderly 4-4

growth and development of the state--as well as for the physical

well-being of both man and his environment.

4. Skills and experience of all existing levels of government and the

private sector should be employed in a partnership approach in

developing and implementing the Michigan Coastal Management Program.

5. Existing or new mechanisms for obtaining public.participation in the

governmental decision-making processes should be utilized ensuring

that a balanced range of options is heard and considered.

6. Uniform procedures should be established so that all levels of govern-

ments abide by the same rules to reach common objectives.

_32-

7. Innovative and creative programs affecting coastal uses in general

and especially geographic areas of particular concern should be

encouraged through efforts of the private sector and all govern-

mental entities.

8. There should be provision for periodic review of Michigan's Coastal

Management Program.

9. The Coastal Management Program should respect our coast as a resource,

not as a commodi ty.

10. The-Coastal Management Program should combine planning and-management

at all levels for effective implementation.

11. The Department must maintain a visible and accountable coastal

management process and program.

-33-

SUMMARY

To be effective, local, state and federal-interests must work together
(D
to protect and enhance Michigan's coastal area.

Over the past two years, development of Michigan's coastal management P@
program has fostered a stronger working relationship between citizens and

agencies. Hundreds of citizens and many local officials have had the oppor-

tunity to shape future coastal management decisions by identifying goals,

problems and special coastal areas. Continued development of a state-

local partnership is critical to the success.of the coastal management
P4
program.
F-4
0
Upon approval, Michigan will become eligible for federal monies from the 4-4
National Oceanic and Atmospheric Administration to implement the provi- ra-_1
L5__j
RR-1
sions of its coastal management program. Funding will be aimed towards

improving delivery of state and local program services in order to:

local program services in order to:

(1) minimize future damages to coastal resources and personal property from

flooding and erosion hazards;

(2) maintain important Great Lakes fish and wildlife habitat to the benefit

of sportsmen,wildlife observers, and future generations;

(3) preserve the rich cultural heritage of the coastal area and increase

coastal recreation opportunity;

,-34-

(4) assure that all coastal concerns are considered in decisions involving

areas of intensive or conflicting use;

(5)-promote the long tem-use of areas of natural economic potential such

as mineral resources, agricultural lands, water transportation facilities

and industrial sites.

Public meetings, public hearings, and involvement with citizens, local,

regional, state, and federal agencies will assist the Division of Land Re-

source Programs in determining which activities are most suitable and will

best address coastal problems and opportunities. As an appendix to this

report, a list of potential "Action Programs for Coastal Management" has

been developed. This list provides an indication of the type and scope of

projects and activities which might be pursued during program implementa-

tion. Public and agency comments and suggestions on "Action Programs"

will be ful ly considered in developing and implementing coastal-program

actions. Copies of "Action Programs" will be available at public informa-

tion meetings,, development region offices and the Michigan Department of

Natural Resources.

In summary, Michigan's Coastal Management Program, once having received

citizen support, will provide a forum -- for agencies and citizens alike

to deal with complex coastal issues and to reconcile views as to how our

valuable resources should be used.

NOAA COASTAL SERVICES CTR LIBRARY

I
v
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