Subchapter A. ENVIRONMENTAL POLICY PLANNING PROGRAM

§ 9.1. Background.

 (a)  The Commonwealth needs a plan to address the diverse resource and environmental problems of this Commonwealth, the limitations of past environmental protection strategies, the complex environmental problems associated with the emerging character of the Commonwealth constitutional responsibility for the protection and preservation of environmental values. The legislature passed the act of December 3, 1970 (P. L. 834, No. 275) establishing a mandate for action through the development of an Environmental Master Plan for this Commonwealth.

 (b)  In response to the various needs for action, the legislative mandate to ‘‘prepare a master environmental plan’’ suggests that a more comprehensive approach toward environmental protection based on a better understanding of the environment and human relationships to the environment is needed. A broad approach is necessary because traditional programs for environmental protection have been inadequate for the following reasons:

   (1)  Narrow program concerns provide solutions which may cause problems in other areas of the environment.

   (2)  Interrelated character of the environment makes it impossible to impact only a single part of the total system.

   (3)  Incomplete knowledge about the complex workings of the environment increases the potential for unintended or irreversible consequences.

   (4)  Preoccupation with short term goals and satisfaction of continually growing demands precludes an analysis of the long term impacts of current activities on a limited resource base.

 (c)  A broader view of the total environment recognizes man as a member of the biotic community. His social and economic activities are as much a part of the whole environment as the forests, mountains and streams. However, human survival, the survival of all other living things, and the general well-being of society depend upon the health and maintenance of the natural environment, clean air, pure water and the protection of the complex ecological relationships.

 (d)  The environment is generally described as the biosphere, the periph- eral portion of earth including the upper crust of the earth, the land surface, water, and a 25-mile-high band of atmosphere surrounding the earth. All living things are dependent upon this finite environment for survival. The interrelated and dynamic web of life support processes and resources within the environment must continue to function for the good of the overall biotic community, or the survival of all living things is jeopardized. The interaction of biological, chemical and physical processes over millions of years has created environmental conditions enabling the earth to support an abundance and diversity of life. The overall complexity of the environment emanating from the diversity of biological organisms, habitats and physical conditions provides a means for resisting dramatic changes that could ultimately result from small but potentially dangerous stresses. The capacity of the environment to accommodate growth, resource consumption and degradation is limited. Exceeding the capacity of the environment may disrupt vital ecologic processes which in turn could threaten the survival of many organisms, including man.

 (a)  The development of an ecologically sensitive philosophy provides a means for incorporating a broader understanding of the natural environment and man’s relationships to the natural environment into ‘‘a master environmental plan.’’ Incorporating an understanding of and a respect for ecologic values into the existing social structure requires a rethinking of traditional man-environment relationships. There must be an attempt to challenge and change those attitudes which do not reflect an overall sensitivity for the environment. Traditional attitudes related to the environment can be characterized by the following statements:

   (1)  Growth is good.

   (2)  Technology can solve any problem.

   (3)  Economics is a higher concern than environmental protection.

   (4)  Maintaining a natural environment is not a productive use of the land.

   (5)  Lessening population growth eliminates resource consumption problems.

   (6)  Nature can be protected by setting aside small areas of the environment.

   (7)  The knowledge and superiority of man places him above the laws of nature.

 (b)  The development of the Environmental Master Plan shall be guided by a planning process providing a systematic framework for evaluating, reassessing, and changing traditional social attitudes related to the environment.

 (c)  Cultivating a societal environmental sensitivity is accomplished through a planning program which is based upon a recognition and respect for the values of the environment. These values of the environment may be generally defined as attributes of the biosphere which maintain the functioning of ecosystems thereby being of long term importance for human survival. Environmental values may also include values which society places on maintaining certain intrinsic qualities or characteristics of the environment such as scenic quality or pieces of the environment which may be rare, unique, or endangered.

 (d)  The basis of a planning program sensitive to environmental values is actually an ethic or set of principles reflecting a change in traditional attitudes toward man-environment relationships. The following principles are fundamental components of an environmental ethic to guide the development of the Commonwealth Environmental Master Plan:

   (1)  Man is a part of the total ecosystem and a citizen within the biotic community and is to be recognized as a trustee of the earth’s resources.

   (2)  The total dependency of man upon the finite air, water and land resources of the earth is to be acknowledged for the long term survival of society.

   (3)  Complex interrelationships and interdependencies of the natural environment are to be recognized and respected.

   (4)  Environmental values which maintain the quality and productivity of natural resources, processes, and systems of the environment are to be protected.

   (5)  Environmental resources are to be managed recognizing the natural capabilities and assimilative capacities of the total environment.

   (6)  The activities of man creating adverse impacts on human health and the natural environment are to be minimized.

 (e)  Based upon the principles set forth in this section, it shall be the environmental policy of the Commonwealth to encourage an ethic of understand- ing and respect for the natural environment by all Commonwealth citizens and throughout all levels of government.

 (a)  The environmental ethic is based upon principles which reflect an overall sensitivity for the environment. The Environmental Master Plan may therefore be reviewed simply as a program to translate the ethic into attitudes and lifestyles which encourage an understanding and respect for the natural environment.

 (b)  The development of environmental goals by working committees of Commonwealth citizens was the initial step of the Master Planning Program. The goals provide a broad overview of the type of environment desired by the citizens of the state. After extensive public review, the goals were adopted by the Pennsylvania Environmental Quality Board in February 1974 as part of their legislative mandate to develop the Environmental Master Plan. The general concern of the goal statements is incorporated within the following Overall Environmental Goal of the Commonwealth:

   (1)  To Protect the Natural Processes and Ecological Relationships of Man’s Life-Support System, and Manage Our Activities to Preserve Natural, Scenic, and Aesthetic Values of the Environment While Meeting Society’s Needs.

   (2)  The Environmental Master Planning Program will be the mechanism for directing and coordinating Commonwealth actions to attain the Commonwealth’s environmental goals.

 (c)  Although the goals are broad statements indicating a desired level of environmental quality, the goals by themselves do not provide adequate guidance and direction for individual programs related to environmental protection, resources management and socio-economic well-being. The general intent of the goals must be articulated through the development and implementation of environmental policies which can guide various Commonwealth actions throughout all levels of government.

 (d)  Therefore, the specific objective of the Master Planning Program will be to attain the Commonwealth Environmental Goals through the development and implementation of policies which reflect an overall sensitivity for the environment.

 (e)  The development of policies which express an overall environmental sensitivity may be, at times, in conflict with other policies addressing social and economic priorities. Ideally, the Commonwealth should have a comprehensive planning program bringing together social, economic, and environmental policies into a single Commonwealth policy reflecting tradeoffs between conflicting concerns.

 (f)  In the absence of a single comprehensive policy program for the Commonwealth, programs at the State, regional and local levels must attempt to incorporate existing social, environmental, and economic policies while achieving specific program objectives. Since policy conflicts are resolved by making tradeoffs and balancing priorities, the Master Plan has a responsibility to provide decision-makers with a policy input which gives strong consideration to environmental factors.

 (g)  Certainly, policies of the Master Plan will not be, nor are they intended to be, the sole determinants for guiding future Commonwealth actions, but rather they will provide a sound environmental perspective which must be studied and considered in the overall decision-making process. Since decisions are often made without an understanding of existing policies, clearly stated environmental policies can strengthen the decision-making process by providing an increased awareness of environmental concerns which is necessary to ensure the long-term harmony between socio-economic well-being and the protection of the environment of this Commonwealth.

 (h)  The primary emphasis of the Master Planning Program is directed to the development and implementation of environmentally sensitive policies. In order to protect ecologic processes and enhance the total human environment, the development of policies will be generally focused in two areas:

   (1)  Protection of the natural, scenic, aesthetic and other environmental values in urban and rural areas throughout this Commonwealth.

   (2)  Resolution of environmental problems related to issues such as pollution control, environmental health, transportation, energy production and community development.

 (i)  The implementation of policies which speak to environmental values and problems will encourage the protection of areas having outstanding environmental quality, support the restoration and improvement of areas already degraded, and provide direction for generally enhancing the quality of life for all Commonwealth citizens.

 (j)  Actions related to the development and implementation of policy will further define the Master Planning program as consisting of the following outputs:

   (1)  Environmental Goals for the Commonwealth.

   (2)  Policies for the critical environmental areas of this Commonwealth.

   (3)  Policies for other environmental values of statewide importance.

   (4)  Policies to abate pollution and enhance environmental health.

   (5)  Policies guiding the management of the natural resources of this Commonwealth.

   (6)  Policies supporting an environmentally sensitive growth and development plan for the Commonwealth.

   (7)  Environmental guidelines and criteria for statewide, regional, and local environmental planning and management activities.

   (8)  Incorporating statewide environmental planning programs as part of the Environmental Master Plan through policy coordination and implementation.

   (9)  Land use and resource information system for policy development and evaluation.

   (10)  Technical assistance for county and local governments in all phases of environmental planning.

   (11)  Recommendations for environmentally sensitive regional and local growth and development plans.

 (k)  The ultimate success of the Master Planning program will be dependent upon the effective implementation of environmental policy. Implementation of environmental policy is not solely a responsibility of the Department of Environmental Resources or other Commonwealth agencies. There must be a shared responsibility with regional agencies and local governments to make the Environmental Master Plan a meaningful plan to guide and coordinate future statewide actions in an environmentally sensitive manner.

 (l)  In summary, the evolution of the Plan is describing the environmental planning program of the Commonwealth as the development and implementation of environmental policy. This will involve the Commonwealth in a positive effort to institutionalize the ethic, recognize environmental values, identify environmental issues and initiate government action through policy development and implementation.