Opinion ID: 2224144
Heading Depth: 1
Heading Rank: 2

Heading: PSC Function Legislative.

Text: In the very recent Ashwaubenon Case, [7] this court had before it an action by the PSC in rejecting an application by the town of Ashwaubenon and others to establish a requested bulkhead line in the Fox river at Green Bay. The function of the PSC in processing that application under sec. 30.11, Stats., was held by this court to be legislative. [8] In our opinion, the same conclusion must be reached as to the granting or denying of a permit to build a structure or allow a deposit in a designated area in a navigable water pursuant to sec. 30.12 (2) (a) . While the state of Wisconsin holds the beds of navigable waters in trust for all its citizens, [9] the legislature may authorize limited encroachments upon the beds of such waters where the public interest will be served. [10] Thus, in State v. Public Service Comm . [11] a legislative act was upheld which authorized the partial fill of a lake to provide a parking lot and other related public improvements for a swimming beach. In upholding this instance of legislative approval of the limited obstruction of the bottom of a navigable lake the court reviewed the history of the trust doctrine and noted that as to the purpose of the trust, all public uses of water have from time to time been recognized, including pleasure boating, sailing, fishing, swimming, hunting, skating, and enjoyment of scenic beauty. [12] In this case the court also noted that the trust doctrine does not prevent minor alterations of the natural boundaries between water and land. [13] Thus, in Milwaukee v. State [14] it was held: It is not the law, as we view it, that the State, represented by its legislature, must forever be quiescent in the administration of the trust doctrine, to the extent of leaving the shores of Lake Michigan in all instances in the same condition and contour as they existed prior to the advent of the white civilization in the territorial area of Wisconsin. In Ashwaubenon, second, this court stated: Recognizing that the proposed Ashwaubenon bulkhead line constitutes a greater intervention than has previously been approved by earlier decisions of this court in its evaluation of the trust doctrine, we must determine whether the legislature contemplated a thrust to the extent here proposed. . . . In our opinion, the fair interpretation of sec. 30.11, Stats. 1959, requires the conclusion that the legislature did in fact authorize the type of invasion of navigable waters which is proposed in this case, subject to the safeguards previously referred to. [Sec. 30.11 (2), Stats., specifying that `Bulkhead lines shall be established in the public interest and shall conform as nearly as practicable to the existing shores.'] We do not find that the trust doctrine forecloses the legislature from this course. The standards prescribed by the legislature constitute adequate protection to the public and, thus, there is no neglect by the trustee of its responsibilities. [15] In all of these legislative authorizations of fill or structures on the beds of navigable waters, it was the function of the legislature to weigh all the relevant policy factors including the desire to preserve the natural beauty of our navigable waters, to obtain the fullest public use of such waters, including but not limited to navigation, and to provide for the convenience of riparian owners. Attaching whatever significance it chose to each of these factors it was up to the legislature to decide to what extent the natural shorelines and the beds of navigable water should be altered in a manner that would be consistent with the trust under which the state holds title to the beds. In the end, under sec. 30.12 (2) (a), Stats., the legislature has authorized fill and structures to a limited extent, but only when the two standards are met which the legislature prescribes, to wit, that the proposed deposit or structure is not a material obstruction to navigation and is not detrimental to the public interest. [16] The job of applying these two standards in each particular situation was delegated to the public service commission. Thus, in the instant case, the PSC launched an investigation in early 1964 as to whether the appellant had deposited fill illegally on the bed of Plum lake in violation of sec. 30.12 (1) (a), Stats. After a hearing held with proper notice and at which the appellant was represented by counsel and had complete freedom to present witnesses, and to confront and cross-examine witnesses called by others, the commission entered findings and an order, dated August 27, 1964, directing the appellant to remove the disputed fill on the bed of Plum lake by December 1, 1964. During these proceedings appellant indicated that he might seek a permit under sec. 30.12 (2) (a), and after an application was submitted on September 11, 1964, by agreement of all concerned the entire record of the proceedings initiated earlier in 1964 by the PSC was incorporated into the record held on appellant's permit application. In the processing of appellant's application the PSC was discharging a legislative function. Just as the legislature deemed it appropriate to delegate the function to approve individual changes in the state arterial highway system, [17] the designation of controlled-access highways, [18] indeed, the approval of bulkhead lines in navigable streams, [19] so here, under sec. 30.12 (2) (a), Stats., the legislature delegates the function of approving fill or structures on the beds of individual waters. Although the legislature has decided that some deposits and structures may be permitted consistent with its duty as trustee, the PSC was given the specific job of applying the two prescribed standards to every application for a permit.