A History
Of
Nebraska's
Natural Resrources Districts
Compiled By
Hazel M. Jenkins
Edited By
Robert B. Hyer
1975
INTRODUCTION
With the complexity of society ever increasing, the function of government in providing the
framework from which a healthy and productive society may grow continually becomes a more
intricate labyrinth of "give and take." Just as small groups of local people rely on state and federal
government to carry on affairs beyond the scope of their ability or jurisdiction, so too must the
larger governmental units rely on an effective local subdivision of government for implementation
of its programs. But, without proper geographical organization of local governmental subdivision,
the merits of many programs are lost.
In Nebraska a problem of this sort became evident when large water projects, the impact of
which spread beyond long established county lines and randomly selected boundaries, made
determination of proper sponsorship virtually impossible. A profusion of special purpose districts
had been developed in an attempt to solve local water-related problems as they arose. But the
puzzle of overlapping authorities and responsibilities (and even boundaries) provided confusion at
best. Legislators often found themselves in a bewildering situation as the question of project
sponsorship turned from one of "whom" to "which one."
In 1969 the 80th Unicameral resolved the problem with the passage of L.B. #1357 creating
natural resources districts (NRDs). The boundaries of these new subdivisions of state government
were established primarily in accordance with Nebraska's naturally delineated river basins on the
premise that natural boundaries would provide a better opportunity for dealing with resource-
related problems than would boundaries established because of other considerations. As delineated,
the boundaries provided for 24 natural resources districts; and on July 1, 1972, some 154 special
purpose districts previously established in the state to solve special problems were merged into and
became part of the new multi-purpose districts. *
Some of the advantages of natural resources districts are readily apparent. Program
implementation related to land and water resources now lends itself, in most situations, to natural
resources districts. Problems common to individuals and communities within a basin can be more
easily dealt with. Local funding of projects has become less troublesome because of the greater tax
base of these larger governmental units. Elected boards of directors form the governing bodies of
each NRD.
With the history of NRDs still young, however, full potential of the natural resources
districts concept has not yet been realized. While NRDs were originally envisioned for water
development projects, it is being discovered that districts are effective vehicles for introducing,
implementing and coordinating a number of different programs. Water quality planning, waste disposal,
recycling, land use planning, education and information are only a few of the areas being explored
for future NRD involvement. Only time will prove the ability or inability of these districts to
cope with these and many other resource-related issues.
It was once said that reorganizing and restructuring Nebraska's conservation district system
into NRDs would take a revolution. It did not. Even now, some observers feel that natural
resources districts would not work in other states despite their success in Nebraska. Even though
each state varies considerably in its resources, agriculture, industrial development, population,
geography and many other features, use of the natural resources district organization plan may
provide a starting point for the solution to many states' resources development problems. It is
hoped that this paper will prove to be of value to other states and to all others interested in learning
of the trials and tribulations encountered in the formulation of the NRD concept, the conversion of
that concept to a reality and the early attempts at implementation of that reality to provide for an
efficient, viable entity of local government.
*Update: As of January 5, 1989 the Middle Missouri Tribs
and Papio Natural Resources Districts merged into one NRD, the Papio-Missouri
River NRD. This action represents the first significant change in NRD boundaries
since 1972. The merger grew out of the conclusion that the Middle Missouri Tribs
NRD did not have adequate financial resources to deal with the resource needs of the
area.
EVOLUTION OF THE NRD CONCEPT
Enactment of the natural resources district concept was not an overnight operation; rather, in
an indirect manner it had been coming about over a period of many, many years. In 1939, an
Interim Legislative Council Study Committee studied the problem of multiplicity of special
purpose districts and found that at that time there were 172 special purpose water districts in the
State of Nebraska. During the period from 1895, when the first irrigation district was created, to
1967, there were 13 different types of special purpose resource-related organizations created by the
State Legislature. These included: Irrigation Districts in 1895; Drainage Districts in 1905; Soil
Conservation Districts in 1937 (Changed to Soil and Water Conservation Districts in the late
1950's); Watershed Districts in 1959; Rural Water Districts in 1967; as well as Watershed Planning
Boards; Advisory Watershed Improvement Boards; Reclamation Districts; Mosquito Abatement
Districts; Public Power and Irrigation Districts; Sanitary Improvement Districts; and Sanitary
Drainage Districts. In fact, a total of 500 resource-related special purpose districts covered the state
by the late 1960's.
In more recent years, much of the legislation relating to conservation districts had been
leading to the gradual assumption of more and more responsibilities and authorities by these
districts. As an example, between 1957 and 1969, the following changes occurred: (1) In 1957 the
Watershed Conservancy District Act was enacted to provide a local entity of government with
authority to sponsor flood control projects; (2) in the late 1950's the name of soil conservation
districts was changed to include the words "and water. . .;" (3) Soil and Water Conservation
Districts were authorized to receive county financial assistance and did in fact receive both county
and state financial assistance; (4) authorities of these districts were broadened to include recreation,
fish and wildlife, and water quality; (5) the election of SWCD supervisors was to be held during the
state's general election instead of special elections; and (6) a general leadership role of local district
officials and the State Soil and Water Conservation Commission began to emerge in the broad field
of natural resources development.
Because of the piecemeal fashion in which special purpose districts were created, a situation
of overlapping authorities and duplicate responsibilities became increasingly evident. As a result of
this two-fold problem, the subject of reorganizing and restructuring local units of government
became the subject of heavy conversation in the 1960's.
THE PLAN FOR A NEW CONCEPT
In 1964 the District Outlook Committee of the National Association of Soil and Water
Conservation Districts studied the problems associated with such a multiplicity of local resource-
related organizations. The Committee recognized that a strong local unit of government was
needed - one that could more comprehensively tackle resource problems. They further recognized
that special purpose districts would continue to form because of the limited authorities granted
past resource organizations - particularly soil and water conservation districts. Although they
analyzed the situation adequately, their recommendations were less than adequate and quite ambiguous.
They concluded that soil and water conservation districts should be strengthened with no guidance as
disarray of special purpose districts and their coordination problems.
It was during 1966 that much of the groundwork was laid for eventual reorganization efforts
in Nebraska. Recommendations for reorganization legislation were made to the Legislative
Council Study Committee on Water and to the Board of Directors of the Nebraska Association of
Soil and Water Conservation Districts. As an outgrowth of these recommendations, and after much
thought and deliberation, Resolution #18 was presented to the delegates of the 26th Annual
Conference of the Nebraska Association of Soil and Water Conservation Districts at Kearney,
Nebraska in September of 1966. This resolution called for legislation to be considered to
reorganize Soil and Water Conservation Districts along hydrologic units rather than county lines
and that such newly formed districts be of sufficient size to facilitate economy of operation and
effectiveness of purpose. It also called for districts to be granted the necessary tools to carry out
and sponsor comprehensive programs of land and water development, and that such districts be
governed by locally elected representatives, both rural and urban, to assure local control.
This resolution was passed, but not without considerable debate and reservation on the part
of some of the delegates.
During the period immediately following this conference, there was a great deal of
correspondence emanating both from the office of the Nebraska Soil and Water Conservation
Commission and from officials of the Nebraska Association of Soil and Water Conservation
Districts. The purpose of this effort by both of these groups was to keep the local people informed
on developing plans for reorganization.
Meetings were held with state and federal officials at which time proposed legislation was
discussed. Preliminary boundaries were drawn for various numbers of districts throughout the
state, and comments were requested from many different agency personnel.
A series of area meetings throughout the state was called late in 1966 during which
reorganization was discussed at great lengths. Needless to say, the subject did not meet with favor
with all of the local people, nor with all agency personnel.
Early in 1967, the Commission staff visited many of the local districts where the primary
topic of conversation was reorganization. Commission staff members were well aware that many
of the supervisors were only cautiously receptive to the idea of reorganization at this point, even
though they felt something was needed to strengthen the district system.
Correspondence and meetings with local, state and federal officials continued on to the time
of the State Association's annual conference on September 17, 18, and 19, 1967 in Lincoln. At that
conference, Resolution No. 2 was introduced. Resolution No. 2 stated that the State Association, in
cooperation with the Nebraska Soil and Water Conservation Commission and other state and local
agencies, would make every effort to complete Studies regarding reorganization and restructuring
of the conservancy district system. It further stated that the president appoint a committee to report
at the next annual meeting in order that legislative action might be taken during the 1969 session of
the Nebraska Legislature. This resolution was passed unanimously. Yet it was evident that SWCD
supervisors and watershed directors were not yet ready to accept the entire concept of
reorganization at the local level even though they were agreeable to studying the problem.
Governor Norbert Tiemann, in an address to the 1967 State Conference, also came out in
favor of reorganization by calling for "a functional realignment of local water agencies in
Nebraska."
During the following few months, Commission staff members felt more reassured as local
districts became more willing to sit down and discuss possible reorganization.
The State Association, at their annual summer board meeting at Long Pine, Nebraska, again
thoroughly discussed the subject and was assured support by most of the local, state and federal
agencies represented. A series of preconference meetings was called by the Association for the
main purpose of education about the concept of multi-purpose districts.
Many sessions with state and federal officials were also held during the summer of 1968 in
an effort to supply as much information as possible to all those seeking it.
The State Association held their 1968 annual conference in North Platte, a session which
undoubtedly will be recorded as one of the most historic meetings ever held dealing with resource
development. Warren Fairchild, Executive Secretary of the Nebraska Soil and Water Conservation
Commission, Warren Patefield, President of the State Association, and Phil Glick, Legal Counsel
for the U. S. Water Resources Council, were scheduled as Conference speakers. All three strongly
advocated reorganization efforts and urged the delegates to carefully consider the merits.
After a fiery business session during which Resolution No. 25 was introduced, the resolution
was finally passed with a recorded vote of 57 for and 42 against. The resolution called for
legislation to be enacted to reorganize and consolidate soil and water conservation districts,
watershed conservancy districts, watershed planning boards, and watershed districts along
hydrologic lines where possible, and other special purpose soil and water resource districts be
encouraged to join in such reorganization. It was obvious at this point that there was bitter
opposition building against the reorganization of local resource districts.
Numerous meetings were held, slide presentations and visual materials prepared, and many
pieces of correspondence written in the few months following passage of Resolution No. 25.
Early in 1969 the booklet, "Modernization of Local Resource District Legislation" was
prepared by the Commission staff in the form of a "Special Recommendation" of the State Water
Plan. After approval by the Technical Advisory Board and Special Representative Committees of
the Commission, it was given final approval by the Commission in March of 1969.
Also during March 1969, natural resources legislation calling for reorganization was drafted.
After revision and amendment, the legislation was introduced into the 8lst Legislature on April 1,
1969, by Senators Maurice A. Kremer of Aurora, C. F. Moulton of Omaha, George Syas of Omaha,
and Herb Nore of Genoa, and came to be known as L.B. #1357.
Copies of the bill as well as the publication "Modernization of Local Resources District
Legislation" were distributed to all local supervisors and directors during a series of statewide area
meetings called by the Association early in April. Many pieces of correspondence emanated from
the office of the State Commission to the local people in an effort to keep them informed about the
legislation and its progress. The Commission staff spent considerable time meeting with local
boards for this purpose. All amendments made to the bill were forwarded to the local boards for
their review and comments.
A public hearing before the Legislature's Agriculture and Recreation Committee was held
on May 1, 1969. A large number of persons were in attendance to testify at the two and one-half
hour hearing with thirty-one persons appearing in favor and sixteen in opposition. Even with this, it
was becoming more and more evident that the opposition to the legislation was becoming more
organized and more inclusive.
Members of certain SWCD's and watershed boards in southeast Nebraska organized
themselves into a group known as the "Non-Paid Association of Soil and Water Conservation
Districts" to actively oppose the legislation. They hired a professional lobbyist to act for them in
the Legislature and also printed brochures containing their views on the proposed legislation. What
effect this opposition really had on the Legislature will never be fully known. At the least, it
stimulated many senators to examine the bill more thoroughly than otherwise might have been the
case.
The reorganization bill remained with the Legislature late into the session and Senators
looked forward to the September State Association Convention as an indication of statewide
support or opposition.
On September 14-16, 1969, the State Association held its annual conference in South Sioux
City, Nebraska. During this conference, Resolution No. 20 was introduced by several southeastern
Nebraska SWCDs and watershed boards. Basically, the resolution called for opposition to the
compulsory reorganization of 154 special purpose districts into natural resources districts as set
forth in L.B. #1357. The resolution was defeated. In spite of this opposition, this state conference
was termed a very successful meeting and the discussions, resolutions adopted, and other business
transacted ended in considerably strengthening local support for the bill.
Two days following the convention on September 18, 1969, at 4:40 p.m., L.B. #1357 was
passed by the Nebraska Legislature by a vote of 29 for, 9 against and 11 not voting.
Thus, the wheels were then set in motion for the Commission to carry out its responsibility
for complying with the provisions of the new law.
OPERATIONS AFTER ADOPTION OF L.B. #1357
Even though extensive discussion and many meetings had been held prior to the passage of
L.B. #1357, the year following was also a critical period. It is unfortunate that a complete record of
all the public meetings was not kept so that a more accurate picture of the trials, tribulations,
problems and eventual solutions could be reconstructed, but it did not seem important at the time.
It could be considered a conservative estimate that at least 200 such meetings were held during that
interim period with local boards and various local civic groups, including area and statewide
meetings.
Immediately after passage of the law, the Commission assigned two staff members to work
full time on the implementation of these new districts. All other staff members spent as much time
as was possible assisting these people. As adopted in 1969, L.B. #1357 called for Natural
Resources Districts to commence operation on January 1, 1972. This permitted the 1971
Legislature to reassess the legislation and to pass upon Commission determinations such as the
appropriate number of districts and their boundaries. The law at this point specified that the
number of districts should be between 25 and 50.
Shortly after adoption of L.B. #1357, a Task Force was brought together to work out district
boundary lines. This Task Force was composed of persons from various groups and agencies -
local, state and federal - all of whom had a great deal of knowledge of the State of Nebraska.
Besides representatives of the Commission, other agencies working on this Task Force were the
Soil Conservation Service, Bureau of Reclamation, Corps of Engineers, Department of Water
Resources, UNL - Conservation and Survey Division, Game and Parks Commission, Department
of Health, and Cooperative Extension Service. Also called in from time to time were
representatives of the State Tax Commissioner, Department of Economic Development, State
Office of Planning and Programming, and the Secretary of State's office.
Meeting for all-day sessions on ten different days, their assignment was to delineate
boundaries for the districts by dividing the state into common resource problem areas. Their first
recommendation to the Commission was a map outlining boundaries for 28 districts. This proposal
was presented to the Commission at a special meeting on January 5, 1970. On January 15, 1970,
the Commission accepted the boundary delineations as submitted by the Task Force and asked for
submission of the proposed boundaries to the local people at a series of statewide meetings to be
held later the same month. After those meetings, the Commission would review the boundaries in
light of the local recommendations.
From January 19 to January 29, 1970, eight area meetings were held across Nebraska during
which boundaries were discussed. Many local problems kept surfacing such as those surrounding
the area of Adams County and the three county area of the Central Nebraska Public Power and
Irrigation District. The problem which had to be resolved was whether or not Adams County
should be in the Tri-County area to the west from which most of their groundwater originates, or in
the Little Blue area to the east into which most of the surface water from Adams County drains.
(The problem was eventually compromised apparently to the satisfaction of all sides.)
Beginning the latter part of February, continuing through March and into early April of
1970, meetings were held in each of the proposed 28 natural resources districts. With only a few
exceptions, these meetings were well attended and helpful to the Commission staff in obtaining
local attitudes and ideas about boundary lines.
Following these meetings, and using the recommendations received from the local people,
the Task Force prepared new boundary proposals and a map outlining 33 districts. The Task Force
was again called into session and met for two days. A combined staff and Task Force report was
presented to the Commission for their review on April 23, 1970. The Commission reviewed each
of the boundary proposals at great length. It was evident that problems over some areas were still
not yet resolved. Further comments were requested with a Commission determination scheduled
for April 30, 1970.
At the Commission meeting on April 30, people representing many areas of the state were
present to comment on and suggest changes in the boundary proposals to date. Following this
meeting, the map outlining the 33 districts, as presented to the Commission on April 23 by the staff
and as modified as a result of the suggestions made at the meeting on April 30, was printed for
distribution. These were to be the boundary delineations to be presented at 18 public hearings to be
held across the state during June of 1970.
Meanwhile, more intensive opposition was generating against the entire natural resources
district concept. During March of 1970 a group calling themselves "Nebraskans for Nebraska Soil
and Water, Inc.," an outgrowth of the "Non-Paid Association of Soil and Water Conservation
Districts," was formed. Their chief objective was the repeal of L.B. #1357. Even though most of
the opposition did originate in Southeast Nebraska, there was scattered opposition from various
areas throughout the state. It is interesting to note that opposition to the formation of the soil
conservation districts in the late 1930's came from this same southeast area of the state. More about
this opposition group and the effect it had on the formation of NRDs will be discussed later.
During June and July of 1970, 18 separate public hearings were held at strategic points
across Nebraska. These hearings dealt only with the number of districts and their boundaries and
testimony was received only on these subjects. They were called by and conducted by the
Commission according to its Rules and Regulations. The final hearing was held in Lincoln on July
31, 1970. Each hearing was taped and later transcribed so that all testimony was available to the
Commission members for study before final boundary determinations were made. Since the law
called for the boundary determinations to be made by September 1, 1970, the Commission's program
committee met in a two-day session on August 5 and 6, 1970. Pressures were great, particularly
those involving Adams County and the dispute over whether it should go with the district to the
east or the west as previously discussed. Further discussion was held at a Commission meeting
on August 7, 1970, but final determination was not made until August 20.
In an effort to satisfy all concerned, the Commission chose to make Adams County a district
by itself. Because of the earlier merger of two districts in the Elkhorn Basin, the number of districts
remained at 33. This boundary arrangement was given final approval by the Commission on
August 20, 1970.
LEGISLATIVE COUNCIL RECOMMENDATIONS
Early in August the Legislative Council Interim Study Committee on Water and Land
Resources began a series of 33 hearings across the state - one in each of the 33 proposed NRDs - to
further examine public opinion about NRDs. As a result of these hearings, a number of legislative
changes for L.B. #1357 were recommended to the 1971 session of the Legislature.
The Committee in its report to the Legislature reported, "While this has been a very
controversial measure, the Committee is strongly of the opinion that there is enough merit to a
concept of natural resources districts that L.B. #1357 should be retained. . . ." The Committee did,
however, recommend several amendments, including: (1) Reducing the number of NRDs from 33
to 20; (2) That the initial boards of directors of NRDs include directors of Groundwater
Conservation Districts; (3) The election of permanent boards should be moved up to 1972 with it
being mandatory rather than permissive as initially provided, and that subdistricts be established for
election purposes. The elected board should also take office January 1, 1973 with staggered four
year terms. The member at-large and the member from each subdistrict receiving the highest vote
should serve terms of four years and the next highest for an initial term of two years; (4) NRDs
should be restricted to a maximum tax levy of one mill instead of the suggested two mills unless a
higher rate was approved by the voters of the district; (5) The authority to issue general obligation
bonds should be eliminated; (6) Each NRD and SWCD should be required to prepare no later than
August 1, 1975 a long-range six-year plan for its operations with an annual updating and a one-year
certain plan. Failure to comply with this planning requirement should result in the withholding of
any state funds from the non-complying NRD; (7) NRDs should be made subject to the Nebraska
Uniform Budget Act of 1969, L.B. #1433, with a change in fiscal year for NRDs from July 1
to August 1; (8) The per diem for the NRD board members should be limited to $15.00 and the
members of the initial boards to receive no mileage or expense reimbursement; (9) All reference to
mosquito abatement districts should be eliminated from L.B. #1357; (10) Soil and Water
Conservation Districts should be retained rather than mandatorily merged into NRDs. They should
be encouraged to mergewith NRDs, but should be prohibited from merging with each other. The suggestion
that these recommendations be drafted into legislation was soon to be carried out.
Because of the upcoming legislation, the Commission scheduled a series of 16 meetings
across the state during the period of January 11-27, 1971. The meetings were designed to advise
the local people of the effect of the proposed legislation, and to obtain their comments for
assistance in developing testimony on the forthcoming bills.
EIGHT AMENDMENTS TO L.B. #1357
On January 29, 1971, a packet of eight bills was introduced by Senator Jules Burbach of
Crofton incorporating the recommendations of the Legislative Committee. Those bills, numbered
consecutively L.B. #537 through L.B. #544 inclusively, each dealt with one specific portion of the
NRD Act. All of the bills were given public hearing and extensive debate by the Legislature's
Committee on Agriculture and Recreation during the 1971 session.
One of the key proposals in that package of bills introduced in 1971 was the retention of soil
and water conservation districts as separate entities of government, thereby taking them out of the
mandatory consolidation phase originally proposed by the legislation and provided for in L.B.
#1357. Although that proposal was specifically included in only one of the eight bills introduced, it
had a total effect upon all of the bills because it was integrally involved with and was mentioned in
each of the others. A note of this fact will be important in later discussion of the action taken on
several of those bills in the Second Session of the 82nd Legislature during 1972.
Because of the volume of legislation introduced during the 1971 session of the Legislature
and because of the controversial nature of some of these bills, the Committee and the full body of
the Legislature did not have adequate time to sufficiently discuss and debate all of the issues
contained within this package of bills. Thus, as an alternative to last minute haphazard amendment,
the Legislature indefinitely postponed one of the eight bills, L.B. #439, and amended and adopted
two others originally introduced in that session, L.B. #538 and L.B. 544. The other five bills, L.B.
#537, #540, #541, #542, and #543 were forwarded to the Agriculture and Recreation Committee for
further evaluation during the interim period between sessions. Because of their importance to the
evolution of the NRD concept, a summary of the bills acted upon during the 1971 session of the
Legislature is necessary.
As originally introduced, L.B. #537, and the remainder of the bill providing for a change in
the fiscal year was indefinitely postponed.
L.B. #538 as originally introduced was designed to abolish the boundaries for the 33 NRDs
as established by the Commission on August 20, 1970. It proposed the establishment
of 20 entirely different districts solely by the Legislature itself. After extensive amendment,
L.B. #538 was passed in the following form: It directed that the state be redivided into NRDs by
the Commission; that these delineations be completed by October 1, 1971; and that the criteria be
as follows: ". . .establish boundaries which provide effective coordination, planning, development
and general management of areas which have related resources problems. Such areas shall be
determined according to the hydrologic patterns. The reorganized river basins of the state shall be
utilized in determining and establishing the boundaries for natural resources districts and where
necessary for more efficient development and general management, two or more districts shall be
created within a basin. . . ." The bill went on to direct the Commission to delineate between 16 and
28 NRDs and abolished the 33 districts previously delineated by the Commission in 1970.
L.B. #544 as originally introduced was intended to prohibit the combining of two or more
NRDs, to prohibit the dividing of one district into two or more, and to also prohibit the
Commission from initiating action for a change in boundaries or for a merger of other special
purpose districts. In final amended form, L.B. #544 directed only that mandatory merger not take
place until July 1, 1972. This moved the date for NRDs to commence operation back six months
from the previous January 1, 1972 deadline to allow the Legislature more time to evaluate the NRD
concept before it became operative.
OPERATIONS DURING AMENDMENT OF L.B. 1357
It was late in the 1971 Legislative session when L.B. #544, moving the implementation date
back from January l, 1972 to July 1, 1972, was passed. As explained above, the Legislature felt this
would give them one more opportunity (the 1972 session) to review the new districts, their
boundaries, and make any alterations in the law itself they deemed necessary.
The Commission and its staff were now assigned the responsibility of drawing up new
boundaries on modified river basin lines before the end of September 1971.
The wheels were again put into motion and the staff developed new boundary lines after
reviewing all the testimony received at previous hearings and meetings. At a special meeting of the
Commission on September 7, 1971, members reviewed proposals of the staff combined with those
drawn by the Nebraska Association of Soil and Water Conservation Districts. As is evidenced by
the minutes of that meeting, extensive discussion took place. There were several local delegations
present to again request changes for their particular districts. Hydrologic lines were followed as
closely as possible in most instances and a map delineating the boundaries for 24 natural resources
districts was tentatively developed. The Commission agreed to meet on September 14 after the
actual legal descriptions outlining the specific boundaries had been completed.
Again on September 14, there was still some opposition to certain boundaries and minor
changes were made. Later that afternoon, action was taken to approve the proposalestablishing 24
natural resources districts as submitted. The districts were also officially named by the
Commission in a manner indicating their relative river basin location as directed by law.
Now that the boundaries were hopefully settled, attention was given to the actual
implementation and all the details that needed to be taken care of before such a merger could be
realized. One of the first tasks completed was the preparation of a handbook for NRD directors,
giving special guidance to the interim and initial boards.
During December of 1971, the Commission conducted a series of meetings - one in each of
the 24 natural resources districts. The morning sessions were devoted to informational discussions
about natural resources district organization, to which the new NRD directors, state senators,
members of the press, Soil Conservation Service local representatives, and all other interested
agency personnel and interested individuals were invited. The afternoon sessions were devoted to
the discussion of the Framework Study of the Nebraska State Water Plan, with invitations to all of
the same persons attending the morning sessions, in addition to all other persons interested in
resource development in Nebraska.
At these meetings, the future NRD directors were encouraged to meet and form interim
boards. Board authorities at this point in time were very limited. Any action the interim boards
took, including the location for their office headquarters was unofficial. Thus, it was necessary that
a complete and accurate set of minutes be kept and the actions ratified after July 1, 1972.
THE FIVE REMAINING BURBACH AMENDMENTS
Planning for implementation was further hampered by the fact that five of the eight
legislative bills introduced in 1971 had not yet been acted upon. In addition, the overall effect upon
the natural resources district legislation had not been adequately considered during the initial
preparation of those five bills and it was apparent that a number of clarifying and correcting
amendments needed to be adopted for each of those bills early in the 1972 Session. Fortunately,
corrective amendments to L.B. #537, #540, #541, #542 and #543 were introduced by Senator
Burbach on January 10, 1972, and the bills were acted upon as explained below.
L.B. #537 as originally introduced called for the preparation of a comprehensive long-range
six-year plan to be updated annually along with a one-year certain plan to be prepared no later than
August 1, 1975. This was to be one not only by NRDs, but by SWCDs as well. The bill also stated
that failure of any district to comply with this requirement would result in withholding of any state
funds that would otherwise be allocated to that district. This bill was passed essentially unchanged
with the additional requirement taken from L.B. #539 that NRDs were to comply with the Uniform Budget
Act.
L.B. #541 as originally introduced directed SWCDs to comply with the same rules as NRDs
regarding investment of excess funds. This bill as amended and passed authorized SWCDs to
invest excess funds, or make loans to other SWCDs. It also stated that districts could make soil and
water conservation machinery, equipment and services available to landowners as long as they were
not in competition with private business or industry. Both of these bills were passed at a time when
it was assumed that SWCDs would not be a part of the mandatory merger.
Because of the extensive nature of the proposed amendments to L.B. #542 and #543, it was
decided that these should be printed in the Legislative Journal and acted upon the following day.
L.B. #542 proposed to change the name of the Soil and Water Conservation Commission to
the Board of Natural Resources by January 1973. It would also change Commission membership
to a 20-member board with each member representing one of the 20 NRDs as originally prepared in
L.B. #538 the previous year. L.B. #542 as amended and passed changed the name of the Nebraska
Soil and Water Conservation Commission to the Nebraska Natural Resources Commission, and
stated that effective January 1, 1973, the Commission would consist of fourteen members as
follows: The Director of the Conservation and Survey Division of the University of Nebraska, the
Dean of the College of Agriculture of the University of Nebraska, the Director of the State
Agricultural Extension Service, the Director of the Department of Water Resources, four members
to be appointed by the Governor (one to represent pump irrigation interests, one to represent the
Chambers of Commerce, one to represent municipal and industrial water users, and one to represent
gravity irrigation interests), one district director from the state at-large and one district director or
former district director from each of five areas of the state. Commencing the third Thursday after
the first Tuesday in January 1975, the Legislature directed that the Nebraska Natural Resources
Commission was to consist of 15 members, as follows: One NRD director each from twelve of the
state's thirteen naturally delineated river basins (The White River-Hat Creek Basin was combined
with the Niobrara Basin due to its size and similar problems.), and three members to be appointed
by the Governor and confirmed by the Legislature - one representing municipal users of water, one
representing surface water irrigators, and one representing groundwater irrigators. The
Commission was also directed to establish a technical advisory committee to assist in the
performance of its duties - this to consist of representatives from thirteen university, state and
federal agencies. This bill also directed the Commission to encourage SWCDs to merge into
NRDs, but did not require their mandatory merger.
L.B. #543 was probably the most extensive bill passed of the eight Burbach bills, especially
after the lengthy amendments it received. It was originally intended to abolish the authority of an
SWCD to sell fertilizer, seeds and seedlings; it would have restricted their ability to make
machinery and other equipment available to landowners; it would have left SWCDs as separate
entities with the ability to merge later if they so desired; it would have and as passed did abolish
all reference in L.B. #1357 to natural resources divisions of public power and irrigation districts;
it also removed the Commission's authority to establish job qualifications for district employees;
it added directors of groundwater conservation districts to the initial boards of directors of resources
districts; it provided that natural resources districts were to be mandatorily subdivided instead of
permissively as they were directed under the existing law; it would have moved the election of the
permanent board of directors of natural resources districts up to 1972 from 1974; it required that
soil and water conservation districts and groundwater conservation districts appoint one of their
members as liaison advisor to the natural resources districts; and it provided that there would
be no expenses for the members of the initial board for the first year and that per diem for
subsequent years would be reduced from the originally proposed $25 to $15.
The original draft of L.B. #543 would also have struck soil and water conservation districts
from the list of districts that were to be mandatorily merged, but failed to include them in the list of
districts having the option to merge pursuant to what is now section 2-3201, 1973 Supplement.
Senator Burbach's amendments, which corrected this mechanical error as well as many others, were
adopted on January 11, 1972. No discussion developed at the time on the issue of voluntary versus
mandatory merger. On the same morning, Senator Kremer offered five amendments. The effect of
these amendments was to reinstate "Soil and Water Conservation Districts" in the list of districts to
be mandatorily merged. Contrary to the Burbach amendments, extensive debate constituting eleven
pages of the floor debates on L.B. #543 was heard at this time regarding the mandatory merger of
soil and water conservation districts. A great deal of confusion developed as the topic of mandatory
merger of SWCDs bounced around the chamber. At the conclusion, the Kremer amendments were
adopted and SWCDs were to be mandatorily merged into NRDs. Because of the last-minute
amendment, however, many inconsistences were created by the different treatment of SWCDs in
the other bills adopted. In fact, portions of L.B. #543 still referred to SWCDs as though they were
to remain separate entities of government. Notwithstanding these technical inconsistencies,
legislative intent to mandatorily merge SWCDs was clear and all language suggesting the contrary
was removed by Legislative Bills #335 and #337 in the 1973 Session of the Legislature.
Many other changes were also accomplished with passage of L.B. #543.
As adopted, it provided that the Legislature would have the power until January 1975 to
change NRD boundaries, after which time the Commission would assume this authority.
This bill also included a section pertaining to the appointment of urban directors to the NRD
boards and eliminated the section previously authorizing operation of solid waste disposal facilities.
Additional provisions included within L.B. #543 specified criteria for establishing election
nomination subdistricts, now required; directed the establishment of each NRD of an executive
committee to be composed of not more than 21 members; and required NRDs being within the
same river basin to meet at least twice annually for coordination of their activities.
L.B. #540, the last of the Burbach bills, was originally introduced to restrict the taxing
authority of NRDs to one mill unless a higher rate was approved by the voters of the district. The
bill also was intended to eliminate the authority of NRDs to issue general obligation bonds. The
bill was adopted essentially unchanged from its original form.
PREPARATION FOR THE MERGER
Interim boards were formed in all but the Nemaha NRD in Southeast Nebraska. Attempts to
organize such a board encountered resistance from local supervisors and directors.
The Commission attempted to give those interim boards as much assistance as possible and
staff members were available for attendance at meetings whenever requested.
Some of the things the early boards had to consider were as follows as discussed in a memo
from the Commission's Executive Secretary to the local boards late in 1971):
(1) Office Location. The law requires that each NRD maintain an office and that the minutes,
records, books, etc. of the district be open to the public at reasonable business hours.
(2) District Functions. Knowledge of all ongoing functions of each district that will be merged
into an NRD.
(3) Equipment. Estimate of how much equipment will be needed to carry on these functions
and how much of this equipment will be assumed on July 1, 1972 from merging districts.
(4) Assumption of Assets, Liabilities and Obligations. Number of deeds, titles, etc. needing to
be transferred. Need of a local attorney to assist in these transfers if an NRD divides any of
the existing districts. Procedures to use to set values on assets, etc. Need for a local
appraiser.
(5) Number of Directors and Subdistricts. Determination of the number of directors (5-21)
and subdistricts for each NRD if the election date is moved ahead by the Legislature to
1972. The possibility of subdividing (2-10 areas). (NOTE: The election date for NRD
directors was not changed and remained at 1974. A section dealing with the election and the
manner in which districts were subdivided will appear later on.)
(6) Personnel. The number of staff necessary to begin operations. Consider retention of the
clerical and technical assistance now provided to SCS. If any SWCDs were divided by an NRD,
and retention of assistance was desired, an agreement had to be worked out with the neighboring
NRD for retention of this assistance.
(7) Memorandums of Understanding. If an NRD wished to continue cooperation with the SCS, a new
Memorandum of Understanding needed to be drafted.
(8) New Programs. If there were any new programs which the NRD would like to initiate
early in its period of operation, these should be considered.
(9) Appointment of Executive Committees.
(10) Budgeting. Budgeting to allow levy of taxes for the fiscal year beginning July 1, 1972.
(11) Funding early operation. As initial tax funds weren't received until December 1972,
consideration of the need for extra money for the first five months of operation was
necessary. Discussion of sources of funds were also conducted, such as from county flood
control funds, borrowing, etc.
Early in January of 1972, each of the affected organizations were asked to submit a report
reflecting the true status of their assets, liabilities, functions, agreements, contracts, etc. along with
an estimate of the values as of June 30, 1972. A form for this purpose was supplied so that a
uniform set of reports could be supplied to the interim boards for their use. Where affected districts
were split by an NRD boundary, accurate apportionment percentage figures had to be made so that
properly apportioned assets and liabilities could be determined between NRDs.
Later (but before June 30, 1972), the Commission contracted for an appraiser and a uniform
appraisal was made across the state on all equipment and real estate owned by the affected districts.
Copies of these appraisals were then made available to the respective NRDs for their use.
During March and April of 1972, a uniform bookkeeping system was developed by the
Commission staff in cooperation with the State Auditor and other individuals. They also worked
with the State Auditor on budget forms so that the information required would coincide with the
accounting system. The Commission staff then held a series of meetings across the state to explain
the new system to NRD staffs. Later, each NRD was visited several times to see that the system
was being correctly implemented.
RULES AND REGULATIONS FOR NRDs
Commission staff also assisted the new NRDs with many details necessary to comply with
State and Federal laws. Rules and regulations for the first boards were drawn up and
adopted by the Commission in accordance with its authority to promulgate such rules for the initial
boards. Included were:
1. Transferring Social Security records from name of old districts to new.
2. Cancellation of Federal and State withholding identification numbers and making
application for new ones.
3. Assisting in completion of State sales and income tax forms.
4. Application for nursery dealers' certificate.
5. Completion of first budget forms.
6. Application for gas tax permit.
7. Transfer of registration, license plates and titles of all motor vehicles and trailers.
8. Preparing and filing affidavits on real estate and land rights transfers.
9. Providing sample forms for:
a. Transfer affidavit on water rights,
b. Timekeeping forms,
c. Expense form for directors and employees,
d. Sales tax exemption form, and
e. Resale certificate.
10. Assisting in seeing that districts each had proper liability and workmen's compensation
insurance until some plan could be worked out on a statewide basis.
A checklist was provided to all the chairmen of the NRD interim boards to assist them in
seeing that many of the above details were carried out. Many reports had to be completed by the
affected districts and accounts in their names cancelled before NRDs became effective on July 1,
1972. Bank accounts, certificates of deposit, bonds and other securities all needed to be transferred
to the respective NRD accounts.
A meeting of all NRD directors was called by the Commission on May 2, 1972 at Kearney,
Nebraska. The purpose of this meeting was to discuss the necessary activities and responsibilities
of the boards. The meeting proved very successful and provided those in attendance with a number
of ideas and suggestions which they could utilize in their own districts. Twenty of the twenty-four
NRDs had representatives at this meeting.
One of the provisions of L.B. #543 passed by the 1972 Legislature provided for urban
appointees to the interim NRD boards to assist in operating the affairs of the district until the first
election in 1974. In addition to the directors of all the merged districts and the groundwater
conservation districts, the following urban representation was made to each board". . .one
representative from each city of the second class within the district, one representative from each
city of the first class within the district for each five thousand inhabitants, to the nearest five
thousand, and seven representatives from each city of the primary class within the district, such
representatives to be designated by the mayor with the approval of the city council, with the mayor
and members of the council being eligible for such designation, except when the natural resources
district includes a city of the metropolitan class, ten representatives of urban interests were to be
designated by the county board of the county in which such city is located."
Notices were sent to all municipalities in the state urging them to make their appointments
quickly so that these new directors could be notified of the first official meeting.
The Commission was required by law to convene the first official meeting of each board.
These twenty-four meetings were called for the month of June 1972. A Commission member
officially presided at each of these meetings. During these meetings the interim board chairman
reported on the tentative commitments made by the interim board. His report included actions
taken on the following items:
1. The executive committee;
2. The headquarters or office location;
3. The budget procedure;
4. Intangible assets; bank accounts, savings, time certificates, etc.;
5. Tangible assets; machinery, materials, real estate, etc.;
6. Insurance coverage, both liability and property and workmen's compensation;
7. The need for and the availability of surety bonds;
8. Employees and employment;
9. Provisions made for notifying debtors, creditors and business contacts about the new NRD;
10. Application for permit numbers and account numbers;
11. Meeting notices, minutes, reports, forms, etc.;
12. Functions and requirements of affected districts to be completed by the NRD after July 1,
1972;
13. The standard bookkeeping system; and
14. The first official meeting.
This initial board of directors was required to select an executive committee which would
have authority over all matters unless specifically limited at the time of its establishment. The
number could not be more than twenty-one and members were selected by a majority vote of the
board. An amendment did specify that the executive committee would establish the subdistricts for
election purposes. (The election procedure will be discussed later in this paper.) This is one
responsibility the full board could not retain, unless the full board constituted twenty-one or fewer
members and it was decided that all members should constitute the executive committee. It was no
longer a requirement that every affected organization be represented on the executive committee.
The law did state, however, that there must be a municipal representative on the executive
committee unless there were no city representatives on the board. In establishing the Executive
Committee, due regard had to be given to the extent that works of improvement were located in
rural areas, the extent to which population and taxable values were located in urban areas and the
wishes of the people.
LEADING UP TO A LAWSUIT
As was discussed earlier, a group called "Nebraskans for Nebraska Soil and Water, Inc."
was formed in March of 1970 after opposition for the Natural Resources District Concept was
expressed by many individuals across the state.
There was a great deal of money spent, not only for lobbying purposes, but for the support
of this opposition group (over $42,000 was reportedly pledged). Most of these funds could be
traced to the treasuries of local watershed conservancy districts and soil and water conservation
districts almost entirely from southeast Nebraska. Since most of this money was originally
collected as taxes from within those districts, this was a very questionable expenditure and one
which was never really resolved. The State Attorney General ruled that these were illegal
expenditures and the proper approach for recovery of these funds would be a taxpayer's suit brought
by some taxpayer living in a district where such contributions had been made. No such lawsuit was
ever filed.
The Commission itself had no legal authority to recover any of these funds. However, the
Commissions's Executive Secretary was directed to write letters to each of the directors of those
districts illegally contributing funds advising them of the illegality of such expenditures. At the
same time, several soil and water conservation districts were known to be giving away some of
their assets to avoid transfer to the NRDs. Again, the Commission authorized the Executive
Secretary to advise the districts that this was not legal and that they should be receiving fair market
value for any assets given up.
An official resolution by the Commission was adopted on March 29, 1972, and transmitted
to each district encouraging the recovery of these funds by the participating districts. It is believed
that some of these funds were recovered although the amount remains unknown.
THE LAWSUIT AGAINST NRDs
On June 6, 1972, only 25 days before the NRDs were to become operative, the long anticipated
lawsuit challenging the constitutionality of the natural resources district law was filed in
Lancaster County District Court.
The NRD law was attacked on numerous constitutional grounds in a fourteen page petition,
starting with the Legislature's adoption of the original law in 1969 and subsequent amendments in
later sessions. The lawsuit asked the court for a restraining order and temporary injunction to halt
the State from merging 154 special purpose districts into 24 natural resources districts on July 1,
1972. Upon a final hearing on the merits of the lawsuit, the petition asked a declaratory judgment
enjoining the State from merging special purpose districts into NRDs. The suit contended that the NRD
law violated the Nebraska Constitution on several points, including:
(1) Members of a restructured State Soil and Water Conservation Commission, which would
govern NRDs, were appointed, violating citizens' voting franchise;
(2) This Commission was vested with legislative, executive and judicial powers;
(3) Various legislative bills comprising the NRD law each contained more than one subject and
the titles of the bills did not clearly express the contents;
(4) The NRD laws contained procedures that constitute and provide for the taking of private
property without due process of law and the taking of private property for works of public
improvement without just compensation; and
(5) Taken as a whole, NRD laws were so indefinite, ambiguous and incomprehensible as to be
incapable of enforcement or performance by the citizens, electors and taxpayers of the state.
They also felt that the NRD law violated the one-man, one-vote principle and that NRD
directors were arbitrarily chosen or selected.
The lawsuit was filed on behalf of the Richardson County Soil and Water Conservation
District and two are landowners (who were also directors of watershed conservancy districts).
OUTCOME OF THE LAWSUIT
On June 24, 1972, Lancaster County District Court Judge William Hastings took the request
for a temporary injunction to block the formation of the 24 NRDs under advisement. On June 29,
he refused to grant such an injunction. However, Judge Hastings did temporarily enjoin the NRDs
from transferring, liquidating, depleting or co-mingling any of the assets of the 154 special purpose
districts being merged into NRDs, except as was necessary to continue the present level of
operations and pay current obligations and liabilities on contracts.
For all practical purposes, the first natural resources districts ever to be created in the United
States went into full operation on July 1, 1972. The injunction merely prohibited the use of any
assets of the 154 merging districts in any geographical area other than within the original
boundaries of each individual special purpose district. An exception to the rule was the authority to
use available funds for administration purposes, such as paying salaries. What the injunction did do
was to create the necessity for a very cumbersome bookkeeping system. A separate set of ledgers
had to be maintained for each of the merged districts as well as a master ledger. For some NRDs
this meant having as many as 28 separate ledgers and was most frustrating and time consuming.
Names of several other organizations also changed at this time. The Nebraska Soil and
Water Conservation Commission then became known as the Nebraska Natural Resources
Commission, and the Nebraska Association of Soil and Water Conservation Districts became the
Nebraska Association of Resources Districts, both changes reflecting the newly restructured and
reorganized system.
It was not until July of 1973 that the District Court issued a final order that the NRD law
was for the most part constitutional. The only feature held unconstitutional by the court was that
relating to the four ex officio members of the Commission. The State Attorney General indicated
he would want to appeal this ruling because of its effect on many other state commissions and
boards, as well as the Natural Resources Commission. At this point, the plaintiffs indicated they
would file a notice of appeal to the State Supreme Court - which they did on July 26, 1973.
On April 18, 1974, the State Supreme Court upheld the constitutionality of Nebraska's
Natural Resources District System. The Supreme Court did, however, agree with the lower court
that three ex officio members on the Commission (University employees) were unconstitutionally
appointed, but the fourth member, the Director of the Department of Water Resources, was
constitutionally serving. The plaintiffs filed for a rehearing, but this was denied by the Court
during July 1974. As a result of this decision, the Governor was given the authority to make
appointments to fill the three vacancies on the Commission.
At last the long battle of the constitutionality of natural resources districts was settled. Even
though it had apparently not hindered the progress of most NRDs, it did brighten the picture and
left essentially no major stumbling blocks in the road for future progress and growth of natural
resources districts.
THE FIRST ELECTION OF NRD BOARDS
Election of the first permanent NRD boards of directors soon became the major topic of
concern. By January 1, 1974, the NRDs had submitted their recommendations for the number of
directors desired by their district to the Natural Resources Commission. The number of directors
could range from 5 to 21. This decision was made after all interested persons in each district were
given an opportunity to be heard at a public meeting.
The next step in the election procedure was to adopt subdistrict boundaries. As outlined in
the Commission's Rules and Regulations, the following items were to be submitted by each NRD
for approval of their subdistrict delineations:
(1) The subdivision map or a separate map showing the location of projects named or described
on a separate tabulation;
(2) A separate tabulation of population and valuations of subdistricts and cities;
(3) Evidence of the determination of the wishes of the people;
(4) A map showing the subdistrict in detail;
(5) A separate compilation of legal descriptions, one for each subdistrict, by number;
(6) A narrative explaining the steps taken in arriving at the subdistrict arrangement;
(7) A numbering arrangement appearing on the map and utilized to identify legal descriptions.
These recommendations were all reviewed by the Commission and initial approval was
given to all but one. That proposal was returned to the NRD for revision and was subsequently
approved. After final approval on June 6, 1974, the Secretary of State was provided with the proper
maps and legal descriptions of every subdistrict with each NRD.
Any registered elector could then become a candidate by filing, with the Commission, a
nominating petition signed by 25 registered electors from the area to be represented. In the
meantime, the Secretary of State held two separate sessions with County Clerks and Election
Commissioners throughout the entire state at which this first election of NRD directors was
discussed in detail. In order to make the first election go as smoothly as possible, the Commission
provided packets of information to everyone directly involved with the election procedures. At the
second session held on April 22, the County Clerks and Election Commissioners were provided
with sufficient copies of nominating petitions, instructions for circulation of the petitions, and
copies of maps of each subdistrict within that particular county to take care of all potential
candidates within their region. The same information was also provided to each NRD as well as
being available from the Commission.
The deadline for filing nomination petitions with the Commission was 5:00 p.m., August 9,
1974. Following that date the Commission certified and forwarded the slate of candidates for
directors for every district in Nebraska to the Secretary of State, who in turn prepared sample
ballots for the County Clerks or Election Commissioners involved. The necessary and usual
election procedures were then followed as outlined in the Nebraska Statutes.
The State's general election was held on November 5, 1974 with the new directors taking
office on January 9, 1975. The effect of the election was to reduce the number of directors for the
24 NRDs from 1,058 to 370.
The November election had 561 candidates for the 370 board positions across the state. Yet,
there were 21 positions in 10 NRDs for which no candidates filed. These positions were later filled
by appointment of the new boards after they were operative.
Newly elected directors and former directors gathered on January 16, 1975 in basin caucuses
all across the state to select 12 individuals to become Commission members, each representing a
river basin as designated by law. (The White River-Hat Creek Basin was combined with the
Niobrara Basin because of its small size, population and similar resource problems.) The remaining
three members were appointed by the Governor: One to represent municipal water users, one to
represent surface water irrigators and one to represent groundwater irrigators. These 12 elected
Commission members took office on January 23, 1975 and at their initial meeting on that same day
determined among themselves which six members would serve two-year terms and which six would serve
four-year terms.
From earlier discussion, recollection will be made that a one mill levy could be collected by
the NRDs. In most instances this has been sufficient to carry out their programs, but how long this
will be true is becoming a pressing question. As projects have become more complex, the costs
have risen. Mill levies during FY 74-75 ranged from .275 to 1.00 with from $14,482.67 to
$527,763.00 in revenue coming into individual NRDs for their operation as a result of this tax, or a
total of $4,525.470 across the state. Operating requirements range from $105,500 to $1,381,661 for
an individual NRD, or a total of $14,028,208 across the state.
Just as the topography and climate of Nebraska varies greatly from one end of the state to
the other, likewise the programs of the NRDs also vary greatly. In the short time that NRDs have
been in existence, their programs and projects have grown, as have the number of staff employed
by them. At the present time, all of the NRDs have offices open to the public five days a week and
all have managers. Numbers of staff range from three or four to over twenty.
Many of the programs and projects inherited from the old districts are being carried on by
the NRDs, but at the same time many new and more complex problems are now being faced. Some
of these programs include: Grass seeding, range management, tree planting, rodent control,
watershed projects, drainage problems, bank stabilization projects, groundwater problems, studies
of floodwater runoff, groundwater recharge, flood plain management, clearing and snagging,
educational programs, soil stewardship, awards programs, water quality studies, land treatment
practices, erosion control, recreation development, fish and wildlife, soil surveys, channel
improvement, cost sharing on county road structures and land treatment practices, irrigation
management and development, demonstration farms, feedlot pollution control, rural water supplies,
and cooperative city planning of parks and open space. Some NRDs are even talking about land
use regulations and recycling. The potential for future resource programs sponsorship and
leadership by NRDs is limited only by money and time.
EPILOGUE
The creation of a functional mechanism from a theory - an idea in the back of someone's
mind - is a challenge par excellence. Many organizations and individuals spent untold numbers of
hours in the formation of natural resources districts in Nebraska, not only before the law was
passed, but in the succeeding weeks, months and years after its adoption in 1969. It has not been
the intention to omit their contributions, because they, too, have played vital roles in the creation,
passage, implementation and success of the natural resources district system.
It was the hope and dream of many individuals and groups that some day Nebraska would
have a functional vehicle at the local level with not only the authority, but also the ability to achieve
the coordination and comprehensive management of the state's land and water resources. This
dream has now become a reality . . . The Natural Resources District Concept.