Hawaii 2024 Regular Session

Hawaii Senate Bill SB636 Compare Versions

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11 THE SENATE S.B. NO. 636 THIRTY-SECOND LEGISLATURE, 2023 S.D. 1 STATE OF HAWAII A BILL FOR AN ACT RELATING TO THE ENVIRONMENT. BE IT ENACTED BY THE LEGISLATURE OF THE STATE OF HAWAII:
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33 THE SENATE S.B. NO. 636
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3131 A BILL FOR AN ACT
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3737 RELATING TO THE ENVIRONMENT.
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4343 BE IT ENACTED BY THE LEGISLATURE OF THE STATE OF HAWAII:
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4646
4747 SECTION 1. The legislature finds that Hawaii's natural and cultural resources, including reefs, beaches, oceans, forests, streams, estuaries, and shorelines, provide irreplaceable and invaluable benefits to residents and visitors. These natural and cultural resources are critical to generating billions of dollars for Hawaii's economy and the local community and supporting thousands of jobs for residents. Hawaii's natural and cultural resources are inseparable from the State's culture and directly support the visitor industry and the livelihoods that depend on the visitor industry. The legislature further finds that despite the incredible value of Hawaii's natural and cultural resources, the State currently invests less than one per cent of its budget to protect, restore, and manage these assets. To leave a healthy natural and cultural resources legacy for future generations of Hawaii residents and visitors, the State must urgently address the estimated $360,000,000 annual conservation funding gap and provide sustained, increased funding for Hawaii's natural and cultural resources and environment. The legislature also finds that Hawaii's natural environment faces significant environmental pressures from heavy use by persons traveling from throughout the world to enjoy the State's natural beauty and natural and cultural resources. Hawaii's natural environment also faces increasing challenges as a result of climate change. Continuing to underinvest in the protection and care of Hawaii's natural and cultural resources poses a significant liability to the State's visitor industry, the stability of the natural systems, including water quality, and economic resilience. Hawaii residents already contribute significantly to the protection and management of the State's natural and cultural resources through taxes. With escalating visitor impacts, there is an immediate need for additional resources to protect, restore, and manage Hawaii's natural and cultural resources. The legislature believes that it is reasonable and timely to ask visitors to Hawaii who enjoy local natural and cultural resources to further contribute to the protection, restoration, and care of these resources. Visitor green fees have been successfully implemented in other visitor destinations around the world, including the Galapagos Islands, New Zealand, and Palau. A visitor green fee program will provide additional resources to protect Hawaii's natural and cultural resources for the enjoyment of future generations while supporting the creation of thousands of jobs for Hawaii residents. A $50 fee paid by visitors who enjoy Hawaii's public parks, beaches, and trails could generate up to $400,000,000 each year to enable the State to leave future generations with a healthy and safe environment. The legislature additionally finds that a visitor green fee program can support economic diversification and create thousands of public and private jobs in Hawaii's economy. The legislature now believes it is imperative to raise additional revenues to leave a positive environmental legacy for Hawaii's future generations and that a visitor green fee will provide a reasonable and appropriate way to generate these needed revenues. Accordingly, the purpose of this Act is to: (1) Require the department of land and natural resources to establish a visitor green fee program to collect fees from visitors to the State for the provision of sustained and increased funding for the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and build the resilience of these resources against the impacts of climate change and local threats; (2) Establish the Hawaii environmental legacy commission to rank project applications and make recommendations to the board of land and natural resources regarding the allocation of funds collected from the visitor green fee program; and (3) Establish the Hawaii environmental legacy special fund. SECTION 2. Chapter 171, Hawaii Revised Statutes, is amended by adding a new part to be appropriately designated and to read as follows: "Part . Visitor green fee program §171-A Definitions. As used in this part: "Commission" means the Hawaii environmental legacy commission. "License" means the license issued by the department that allows visitors to use state natural and cultural resources, including beaches, parks, trails, coastlines, and the environment. "Nonprofit organization" means a private, nonprofit organization with nonprofit status acknowledged by the United States Internal Revenue Service that qualifies under section 501(c)(3) of the Internal Revenue Code, as amended, and has among its charitable purposes the preservation, restoration, management, or interpretation of natural or cultural resources for scientific, historic, educational, recreational, scenic, wildlife, or open-space purposes, the protection of the natural environment or biological resources, the preservation or enhancement of wildlife, or the protection or interpretation of native Hawaiian cultural resources. "Nonresident" means an individual who is not a resident. "Resident" means an individual who has: (1) Filed or paid state income taxes for the immediately previous tax period; or (2) Established domicile in the State, as evidenced by documentation showing the individual's address, including any of the following: (A) A valid state driver's license; (B) A valid state civil identification card; (C) A valid school identification card; or (D) Any other official document issued to the individual by a government agency, financial institution, insurance company, or utility company in the State. "Special fund" means the Hawaii environmental legacy special fund. §171-B Visitor green fee program. (a) There is established a visitor green fee program to provide sustained and increased funding for the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and build the resilience of these resources against the impacts of climate change and local threats. Under the program, to be administered by the department, nonresidents shall pay the visitor green fee in order to obtain a license to use Hawaii's public beaches, parks, trails, coastlines, and environment. Visitor green fees collected shall be deposited into the Hawaii environmental legacy special fund established pursuant to section 171-D. (b) Beginning July 1, 2024, it shall be unlawful for any nonresident of the State who has attained the age of fifteen, except for members of the armed forces of the United States of America on active duty, to visit a state park, beach, state-owned forest, or other state-owned natural area or hike on a trail on state-owned land without first obtaining a license pursuant to this part. (c) The department shall establish convenient opportunities for nonresidents to purchase a license, including through a mobile application and an internet website. The department may also establish a separate retail license program to enable retail establishments and nonprofit organizations to sell licenses. (d) The initial visitor green fee shall be $50 per person. (e) The chairperson may adjust the visitor green fee by rule not more than once every five years, at the rate of the consumer price index change from July 1, 2024, compounded annually, and rounded to the nearest dollar. (f) A license shall be in effect for a three hundred sixty-five day period, including the day of issuance. (g) The department may adopt rules pursuant to chapter 91 as necessary to effectuate the purposes of this section. §171-C Hawaii environmental legacy commission. (a) There is established within the department the Hawaii environmental legacy commission to rank project applications and make recommendations to the board of land and natural resources regarding the allocation of the visitor green fee funds consistent with the purposes of this part; to support conservation workforce development and economic diversification; and ensure stakeholder engagement, transparency, and effectiveness of the program. (b) The commission shall be composed of the following voting members, to be appointed without need for confirmation by the senate: (1) One representative of a nonprofit environmental organization with expertise in the protection, restoration, and care of terrestrial natural and cultural resources, to be appointed by the chairperson; (2) One representative of a nonprofit environmental organization with expertise in the protection, restoration, and care of marine and coastal natural and cultural resources, to be appointed by the chairperson; (3) One representative of a nonprofit environmental organization with expertise in climate change mitigation and resiliency, to be appointed by the chairperson; (4) Not more than two members who are staff of the department or its attached agencies, to be appointed by the chairperson; (5) The director of the office of planning and sustainable development, or the director's designee; (6) Not more than two representatives from the Native Hawaiian community who have expertise in the protection, restoration, care, and interpretation of native Hawaiian cultural resources, to be appointed by the chairperson; (7) The president and chief executive officer of the Hawaii tourism authority, or the president and chief executive officer's designee; (8) One youth representative between the ages of eighteen and twenty-five, inclusive, at the time of appointment that works or has worked in the field of environmental sustainability or restoration, to be appointed by the chairperson; and (9) One representative from the visitor and tourism industry, to be appointed by the president and chief executive officer of the Hawaii tourism authority. (c) Commission members shall annually elect a chair and vice-chair of the commission from among its members. (d) The commission shall make recommendations to the board of land and natural resources on the allocation of funding, including grants, from funds deposited in the special fund. Moneys deposited into the special fund shall be allocated by the board for direct expenditure by state agencies and for grants for projects that directly support the purposes of this part, including for projects with one or more of the following purposes: (1) Protection, restoration, or enhancement of terrestrial or marine natural and cultural resources, or a combination thereof; provided that up to ten per cent of each grant awarded may be allocated for resource management to ensure the long-term sustainability of state natural and cultural resources; (2) Enhancement of interpretive and educational facilities and programs related to the State's natural and cultural resources and the protection of those resources; (3) Increase of resilience and adaptation of the State's natural and cultural resources with environmentally beneficial strategies to reduce the adverse impacts of climate change, including coastal erosion, sea level rise, ocean acidification, coral bleaching, destruction of reefs, and other impacts; and (4) Removal and control of invasive species and propagation and planting of native species. (e) In awarding grants from the special fund, the board of land and natural resources shall prioritize projects that directly support the purposes of this part and: (1) Create jobs for Hawaii residents; (2) Provide significant long-term protection, restoration, and enhancement of Hawaii's natural and cultural resources; (3) Increase the enjoyability of participating in outdoor recreational activities for residents and visitors of the State; (4) Involve local communities in the design, implementation, and long-term management of the project; and (5) Protect, enhance, or restore natural and cultural resources that contribute to Native Hawaiian cultural practices and that have demonstrated support from Native Hawaiian residents. (f) The board of land and natural resources may adopt procedures and guidelines for the prioritization and allocation of moneys from the special fund, including direct grant or competitive grant processes; provided that the board shall hold at least one hearing in each county to receive public comments before adopting grant guidelines. (g) A simple majority of board members shall establish a quorum necessary to approve allocations from the fund. (h) The commission shall hold meetings in public consistent with chapter 92 and any other applicable laws. The commission may hold its meetings in person or online via the Internet, or a combination thereof. (i) Commission members shall serve without compensation but may be reimbursed for reasonable expenses, including travel expenses, necessary for the performance of their duties. (j) Beginning January 2026, the department shall publish an annual report, to be reviewed by the commission, no later than twenty days prior to the convening of each regular session of the legislature on how the Hawaii environmental legacy special fund: (1) Promotes the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and builds the resilience of these resources against the impacts of climate change and local threats; and (2) The benefits that accrue or will accrue from those expenditures to state residents, visitors, and natural and cultural resources. §171-D Hawaii environmental legacy special fund. (a) There is established in the state treasury a Hawaii environmental legacy special fund, into which shall be deposited: (1) All proceeds from visitor green fees and licenses purchased pursuant to the visitor green fee program established under section 171-B; (2) Appropriations made by the legislature; and (3) Grants and gifts made to the special fund. (b) Moneys deposited into the special fund shall be used and allocated as directed by the board pursuant to section 171-C(d) and (e) and as follows: (1) At least fifty per cent per fiscal year shall be used for grants to local governments, nonprofit organizations, and community-based organizations; (2) Not more than fifty per cent per fiscal year shall be allocated to state agencies; (3) Up to twenty-five per cent per fiscal year may be used to enhance state management of natural and cultural resources, implementation of state regulatory programs designed to protect natural and cultural resources, and enforcement of natural and cultural resource protection laws and regulations; (4) Not more than five per cent per fiscal year of the amount allocated to state agencies pursuant to paragraph (2) shall be used to administer this part; and (5) Not less than ninety-five per cent per fiscal year shall be used for the purposes described in this section." SECTION 3. In codifying the new sections added by section 2 of this Act, the revisor of statutes shall substitute appropriate section numbers for the letters used in designating the new sections in this Act. SECTION 4. This Act shall take effect upon its approval.
4848
4949 SECTION 1. The legislature finds that Hawaii's natural and cultural resources, including reefs, beaches, oceans, forests, streams, estuaries, and shorelines, provide irreplaceable and invaluable benefits to residents and visitors. These natural and cultural resources are critical to generating billions of dollars for Hawaii's economy and the local community and supporting thousands of jobs for residents. Hawaii's natural and cultural resources are inseparable from the State's culture and directly support the visitor industry and the livelihoods that depend on the visitor industry.
5050
5151 The legislature further finds that despite the incredible value of Hawaii's natural and cultural resources, the State currently invests less than one per cent of its budget to protect, restore, and manage these assets. To leave a healthy natural and cultural resources legacy for future generations of Hawaii residents and visitors, the State must urgently address the estimated $360,000,000 annual conservation funding gap and provide sustained, increased funding for Hawaii's natural and cultural resources and environment.
5252
5353 The legislature also finds that Hawaii's natural environment faces significant environmental pressures from heavy use by persons traveling from throughout the world to enjoy the State's natural beauty and natural and cultural resources. Hawaii's natural environment also faces increasing challenges as a result of climate change. Continuing to underinvest in the protection and care of Hawaii's natural and cultural resources poses a significant liability to the State's visitor industry, the stability of the natural systems, including water quality, and economic resilience. Hawaii residents already contribute significantly to the protection and management of the State's natural and cultural resources through taxes. With escalating visitor impacts, there is an immediate need for additional resources to protect, restore, and manage Hawaii's natural and cultural resources.
5454
5555 The legislature believes that it is reasonable and timely to ask visitors to Hawaii who enjoy local natural and cultural resources to further contribute to the protection, restoration, and care of these resources. Visitor green fees have been successfully implemented in other visitor destinations around the world, including the Galapagos Islands, New Zealand, and Palau. A visitor green fee program will provide additional resources to protect Hawaii's natural and cultural resources for the enjoyment of future generations while supporting the creation of thousands of jobs for Hawaii residents. A $50 fee paid by visitors who enjoy Hawaii's public parks, beaches, and trails could generate up to $400,000,000 each year to enable the State to leave future generations with a healthy and safe environment.
5656
5757 The legislature additionally finds that a visitor green fee program can support economic diversification and create thousands of public and private jobs in Hawaii's economy. The legislature now believes it is imperative to raise additional revenues to leave a positive environmental legacy for Hawaii's future generations and that a visitor green fee will provide a reasonable and appropriate way to generate these needed revenues.
5858
5959 Accordingly, the purpose of this Act is to:
6060
6161 (1) Require the department of land and natural resources to establish a visitor green fee program to collect fees from visitors to the State for the provision of sustained and increased funding for the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and build the resilience of these resources against the impacts of climate change and local threats;
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6363 (2) Establish the Hawaii environmental legacy commission to rank project applications and make recommendations to the board of land and natural resources regarding the allocation of funds collected from the visitor green fee program; and
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6565 (3) Establish the Hawaii environmental legacy special fund.
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6767 SECTION 2. Chapter 171, Hawaii Revised Statutes, is amended by adding a new part to be appropriately designated and to read as follows:
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6969 "Part . Visitor green fee program
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7171 §171-A Definitions. As used in this part:
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7373 "Commission" means the Hawaii environmental legacy commission.
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7575 "License" means the license issued by the department that allows visitors to use state natural and cultural resources, including beaches, parks, trails, coastlines, and the environment.
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7777 "Nonprofit organization" means a private, nonprofit organization with nonprofit status acknowledged by the United States Internal Revenue Service that qualifies under section 501(c)(3) of the Internal Revenue Code, as amended, and has among its charitable purposes the preservation, restoration, management, or interpretation of natural or cultural resources for scientific, historic, educational, recreational, scenic, wildlife, or open-space purposes, the protection of the natural environment or biological resources, the preservation or enhancement of wildlife, or the protection or interpretation of native Hawaiian cultural resources.
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7979 "Nonresident" means an individual who is not a resident.
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8181 "Resident" means an individual who has:
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8383 (1) Filed or paid state income taxes for the immediately previous tax period; or
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8585 (2) Established domicile in the State, as evidenced by documentation showing the individual's address, including any of the following:
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8787 (A) A valid state driver's license;
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8989 (B) A valid state civil identification card;
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9191 (C) A valid school identification card; or
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9393 (D) Any other official document issued to the individual by a government agency, financial institution, insurance company, or utility company in the State.
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9595 "Special fund" means the Hawaii environmental legacy special fund.
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9797 §171-B Visitor green fee program. (a) There is established a visitor green fee program to provide sustained and increased funding for the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and build the resilience of these resources against the impacts of climate change and local threats. Under the program, to be administered by the department, nonresidents shall pay the visitor green fee in order to obtain a license to use Hawaii's public beaches, parks, trails, coastlines, and environment. Visitor green fees collected shall be deposited into the Hawaii environmental legacy special fund established pursuant to section 171-D.
9898
9999 (b) Beginning July 1, 2024, it shall be unlawful for any nonresident of the State who has attained the age of fifteen, except for members of the armed forces of the United States of America on active duty, to visit a state park, beach, state-owned forest, or other state-owned natural area or hike on a trail on state-owned land without first obtaining a license pursuant to this part.
100100
101101 (c) The department shall establish convenient opportunities for nonresidents to purchase a license, including through a mobile application and an internet website. The department may also establish a separate retail license program to enable retail establishments and nonprofit organizations to sell licenses.
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103103 (d) The initial visitor green fee shall be $50 per person.
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105105 (e) The chairperson may adjust the visitor green fee by rule not more than once every five years, at the rate of the consumer price index change from July 1, 2024, compounded annually, and rounded to the nearest dollar.
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107107 (f) A license shall be in effect for a three hundred sixty-five day period, including the day of issuance.
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109109 (g) The department may adopt rules pursuant to chapter 91 as necessary to effectuate the purposes of this section.
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111111 §171-C Hawaii environmental legacy commission. (a) There is established within the department the Hawaii environmental legacy commission to rank project applications and make recommendations to the board of land and natural resources regarding the allocation of the visitor green fee funds consistent with the purposes of this part; to support conservation workforce development and economic diversification; and ensure stakeholder engagement, transparency, and effectiveness of the program.
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113113 (b) The commission shall be composed of the following voting members, to be appointed without need for confirmation by the senate:
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115115 (1) One representative of a nonprofit environmental organization with expertise in the protection, restoration, and care of terrestrial natural and cultural resources, to be appointed by the chairperson;
116116
117117 (2) One representative of a nonprofit environmental organization with expertise in the protection, restoration, and care of marine and coastal natural and cultural resources, to be appointed by the chairperson;
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119119 (3) One representative of a nonprofit environmental organization with expertise in climate change mitigation and resiliency, to be appointed by the chairperson;
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121121 (4) Not more than two members who are staff of the department or its attached agencies, to be appointed by the chairperson;
122122
123123 (5) The director of the office of planning and sustainable development, or the director's designee;
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125125 (6) Not more than two representatives from the Native Hawaiian community who have expertise in the protection, restoration, care, and interpretation of native Hawaiian cultural resources, to be appointed by the chairperson;
126126
127127 (7) The president and chief executive officer of the Hawaii tourism authority, or the president and chief executive officer's designee;
128128
129129 (8) One youth representative between the ages of eighteen and twenty-five, inclusive, at the time of appointment that works or has worked in the field of environmental sustainability or restoration, to be appointed by the chairperson; and
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131131 (9) One representative from the visitor and tourism industry, to be appointed by the president and chief executive officer of the Hawaii tourism authority.
132132
133133 (c) Commission members shall annually elect a chair and vice-chair of the commission from among its members.
134134
135135 (d) The commission shall make recommendations to the board of land and natural resources on the allocation of funding, including grants, from funds deposited in the special fund. Moneys deposited into the special fund shall be allocated by the board for direct expenditure by state agencies and for grants for projects that directly support the purposes of this part, including for projects with one or more of the following purposes:
136136
137137 (1) Protection, restoration, or enhancement of terrestrial or marine natural and cultural resources, or a combination thereof; provided that up to ten per cent of each grant awarded may be allocated for resource management to ensure the long-term sustainability of state natural and cultural resources;
138138
139139 (2) Enhancement of interpretive and educational facilities and programs related to the State's natural and cultural resources and the protection of those resources;
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141141 (3) Increase of resilience and adaptation of the State's natural and cultural resources with environmentally beneficial strategies to reduce the adverse impacts of climate change, including coastal erosion, sea level rise, ocean acidification, coral bleaching, destruction of reefs, and other impacts; and
142142
143143 (4) Removal and control of invasive species and propagation and planting of native species.
144144
145145 (e) In awarding grants from the special fund, the board of land and natural resources shall prioritize projects that directly support the purposes of this part and:
146146
147147 (1) Create jobs for Hawaii residents;
148148
149149 (2) Provide significant long-term protection, restoration, and enhancement of Hawaii's natural and cultural resources;
150150
151151 (3) Increase the enjoyability of participating in outdoor recreational activities for residents and visitors of the State;
152152
153153 (4) Involve local communities in the design, implementation, and long-term management of the project; and
154154
155155 (5) Protect, enhance, or restore natural and cultural resources that contribute to Native Hawaiian cultural practices and that have demonstrated support from Native Hawaiian residents.
156156
157157 (f) The board of land and natural resources may adopt procedures and guidelines for the prioritization and allocation of moneys from the special fund, including direct grant or competitive grant processes; provided that the board shall hold at least one hearing in each county to receive public comments before adopting grant guidelines.
158158
159159 (g) A simple majority of board members shall establish a quorum necessary to approve allocations from the fund.
160160
161161 (h) The commission shall hold meetings in public consistent with chapter 92 and any other applicable laws. The commission may hold its meetings in person or online via the Internet, or a combination thereof.
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163163 (i) Commission members shall serve without compensation but may be reimbursed for reasonable expenses, including travel expenses, necessary for the performance of their duties.
164164
165165 (j) Beginning January 2026, the department shall publish an annual report, to be reviewed by the commission, no later than twenty days prior to the convening of each regular session of the legislature on how the Hawaii environmental legacy special fund:
166166
167167 (1) Promotes the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and builds the resilience of these resources against the impacts of climate change and local threats; and
168168
169169 (2) The benefits that accrue or will accrue from those expenditures to state residents, visitors, and natural and cultural resources.
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171171 §171-D Hawaii environmental legacy special fund. (a) There is established in the state treasury a Hawaii environmental legacy special fund, into which shall be deposited:
172172
173173 (1) All proceeds from visitor green fees and licenses purchased pursuant to the visitor green fee program established under section 171-B;
174174
175175 (2) Appropriations made by the legislature; and
176176
177177 (3) Grants and gifts made to the special fund.
178178
179179 (b) Moneys deposited into the special fund shall be used and allocated as directed by the board pursuant to section 171-C(d) and (e) and as follows:
180180
181181 (1) At least fifty per cent per fiscal year shall be used for grants to local governments, nonprofit organizations, and community-based organizations;
182182
183183 (2) Not more than fifty per cent per fiscal year shall be allocated to state agencies;
184184
185185 (3) Up to twenty-five per cent per fiscal year may be used to enhance state management of natural and cultural resources, implementation of state regulatory programs designed to protect natural and cultural resources, and enforcement of natural and cultural resource protection laws and regulations;
186186
187187 (4) Not more than five per cent per fiscal year of the amount allocated to state agencies pursuant to paragraph (2) shall be used to administer this part; and
188188
189189 (5) Not less than ninety-five per cent per fiscal year shall be used for the purposes described in this section."
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191191 SECTION 3. In codifying the new sections added by section 2 of this Act, the revisor of statutes shall substitute appropriate section numbers for the letters used in designating the new sections in this Act.
192192
193193 SECTION 4. This Act shall take effect upon its approval.
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197197 Report Title: Department of Land and Natural Resources; Visitor Green Fee Program; Hawaii Environmental Legacy Commission; Special Fund Description: Requires Department of Land and Natural Resources to establish a Visitor Green Fee Program to collect fees from nonresidents via a license to use state natural and cultural resources, to be used for the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and build the resilience of these resources against the impacts of climate change and local threats. Establishes the Hawaii environmental legacy commission to rank project applications and make recommendations to the Board of Land and Natural Resources concerning the allocation of Visitor Green Fee Program Funds. Establishes the Hawaii Environmental Legacy Special Fund. (SD1) The summary description of legislation appearing on this page is for informational purposes only and is not legislation or evidence of legislative intent.
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203203 Report Title:
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205205 Department of Land and Natural Resources; Visitor Green Fee Program; Hawaii Environmental Legacy Commission; Special Fund
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207207
208208
209209 Description:
210210
211211 Requires Department of Land and Natural Resources to establish a Visitor Green Fee Program to collect fees from nonresidents via a license to use state natural and cultural resources, to be used for the protection, restoration, and care of Hawaii's natural, cultural, and outdoor recreational resources and build the resilience of these resources against the impacts of climate change and local threats. Establishes the Hawaii environmental legacy commission to rank project applications and make recommendations to the Board of Land and Natural Resources concerning the allocation of Visitor Green Fee Program Funds. Establishes the Hawaii Environmental Legacy Special Fund. (SD1)
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219219 The summary description of legislation appearing on this page is for informational purposes only and is not legislation or evidence of legislative intent.