Opinion ID: 2302071
Heading Depth: 1
Heading Rank: 6

Heading: Nature and Scope of the Board's Authority

Text: In resolving those issues, we need to examine first the nature and scope of the jurisdiction and authority that the Board exercises when dealing with a State wetlands license. Although it had antecedents dating back to 1825, the Board of Public Works in its present form was created in the 1864 Constitution for the purpose of managing the State's investments in various railroad, turnpike, and canal companies until those investments could be sold or otherwise liquidated. Indeed, even to this day, the Board's direct Constitutional authority, as set forth in Article XII, §§ 2 and 3 of the Constitution, is limited to those functions, which clearly do not encompass the issuance of wetlands licenses. The wellspring of all other jurisdiction and authority of the Board emanates from the brief statement in § 2 of Art. XII that the Board shall perform such other duties as may be hereafter prescribed by law. That is why, earlier in this Opinion, we noted that the Board's jurisdiction and authority over wetlands licenses is derived solely from statutory delegation by the General Assembly and not from any Constitutional or inherent authority the Board possesses on its own. The greatest part of the Board's statutory authority lies in the general area of procurementsuperintending or having approval power over the acquisition and disposition of interests in real property needed or owned by the State, construction of public facilities, and the acquisition of certain services needed by the State. See, in general Title 10 of the State Finance and Procurement Article (SFP). In this case, the Board and the individual appellants invoke some of that authority as part of what they regard as the Board's overarching composite jurisdiction over State wetlands. [13] Particular reference is made to SFP §§ 10-305 and 10-402. Neither has anything to do with the issuance of a wetlands license. SFP § 10-305(a) permits the Board to approve the sale, lease, transfer, exchange, grant, or other disposition of any real or personal property of the State for a consideration the Board decides is adequate, provided the conditions set forth in § 10-305(b) have been satisfied. Apart from the fact that the record before us fails to show that the conditions in subsection (b) were satisfied, or even thought relevant, a wetlands license does not constitute or involve the sale, lease, or other disposition of the State wetlands. The Board's own wetlands regulations make that clear. See COMAR 23.02.04.01A and D. [14] Similarly, SFP § 10-402 applies only to the conveyance of title to land owned by the State as a result of the relationship of the land to the waters of the State. Whatever general discretion the Board may have under either of those statutes when considering the conveyance of title or a leasehold interest has no relevance to the issuance of a wetlands license. The Board's authority with respect to a wetlands license emanates solely from and is controlled by ENV title 16, subtitles 1 and 2. As we have observed, the applicable standard that guided the Board's discretion in that regard, at the time, was ENV § 16-202(c)(1), which now appears as § 16-202(g)(1): Upon receipt of a report by the Secretary [of DOE], the Board shall decide if issuance of the license is in the best interest of the State, taking into account the varying ecological, economic, developmental, recreational, and aesthetic values each application presents. If the Board decides to issue the license, the issuance of the license shall be for consideration and on terms and conditions the Board determines.