Deer Hunting with Dogs

March 23, 1993

Richard B. Hamilton Assistant Director Wildlife Resources Commission 512 N. Salisbury Street Raleigh, North Carolina 27604-1188

Re: Advisory Opinion to the Assistant Director of the Wildlife Resources Commission ("WRC") from the Administrative Division, Service to State Agencies Section, comparing Sess. Laws 1987 Ch. 231 which allows Deer Hunting with Dogs in Anson County to G.S. 113-291.5 which allows WRC to regulate the use of dogs taking wildlife.

Dear Mr. Hamilton:

We are in receipt of your February 23, 1993, memorandum inquiring about the various laws and administrative rules affecting the use of dogs in hunting in Anson County. We have provided below the responses to your questions:

1. Does the local law control deer hunting with dogs in Anson County and override the State law and WRC rules?

G.S. 113-291.5 was enacted in 1979 and states:

(a)

Except as provided in G.S. 113-291.4, in the area described below, the Wildlife Resources Commission may regulate the use of dogs taking wildlife with respect to seasons, times, and places of use. The area covered by this subsection is that part of the State in and west of the following counties or parts of counties: Rockingham; Guilford; that part of Alamance and Orange lying south of Interstate Highway 85; Chatham; that part of Wake lying south of N.C. Highway 98; Lee; Randolph; Montgomery; Stanly; Union; and that part of Anson lying west of N.C. Highway 742.

(b)

In the area of the State lying east of that described in subsection (a), the Wildlife
Resources Commission may not restrict or prohibit the use of dogs in hunting or the
training of dogs, in season or out, except during the breeding and raising seasons for
game during the period April 15 through June 15.

(c)

On game lands, wildlife refuges, and public hunting grounds the Wildlife Resources Commission may regulate the possession and use of dogs and may impound dogs found running at large without supervision or, if unsupervised, without means of identification.

(d)

The Wildlife Resources Commission may not by its rules anywhere in the State restrict the number of dogs used in hunting or require that any particular breed of dog be used in hunting.

(e)

It is unlawful to allow dogs not under the control of the owner or the individual in possession of the dogs to run or chase deer during the closed deer season.

(f)

Nothing in this section is intended to require the leashing or confining of pet dogs.

Pursuant to this statute, WRC has promulgated rules regulating the use of dogs. 15A NCAC 10B .0109 prohibits the use of dogs to run or chase deer or to attempt to take deer west of NC 742 in Anson County (as well as in the other areas described in G.S. 113-291.5(a)). 15A NCAC 10D .0003(e)(3)(C) allows dogs to be used in hunting game birds on game lands open to deer hunting and located in or west of the counties of Rockingham, Guilford, Randolph, Montgomery and Anson, during the regular season for hunting deer with guns (with the exception of a few counties).

In 1987, the legislature enacted "AN ACT TO PROHIBIT HUNTING IN ANSON COUNTY WITHOUT THE WRITTEN PERMISSION OF THE LANDOWNER, TO REGULATE DEER HUNTING SEASON IN ANSON COUNTY, TO PROHIBIT HUNTING FROM THE RIGHT-OF-WAY OF A PUBLIC ROAD, AND TO REQUIRE OWNER IDENTIFICATION ON DOGS USED TO HUNT DEER IN ANSON COUNTY," Sess. Laws 1987 ch. 231. Section 3, in pertinent part, provides as follows:

Notwithstanding the provisions of G.S. 113-291.2 and regulations issued pursuant thereto, the season for hunting deer with firearms in Anson County shall last seven weeks. During the season for hunting deer with firearms in Anson County, deer may be hunted with the aid of dogs only during the last five weeks of the season, subject to the restrictions of G.S. 113-291.5(b) and the regulations issued pursuant thereto.

Sess. Laws 1987 ch. 231 is a proper exercise of legislation authority and overrides any conflicting provisions of G.S. 113-291.5. Where two statutes address the same subject they must be read in pari materia and reconciled if possible to give effect to each. Shaw v. Baxley, 270 N.C. 740, 155 S.E.2d 266 (1967). Likewise, where one statute generally addresses a subject while another statute specifically addresses the same subject, the specific statute will be controlling, unless it is apparent that the Legislature intended the general statute to be controlling; especially where the specific statute was enacted later. National Food Stores v. North Carolina Bd. of Alcoholic Control, 268 N.C. 624, 151 S.E. 2d 582 (1966).

By its passage of Sess. Laws 1987 Ch. 231, the Legislature apparently intended to carve out a small exception in Anson County for a particular portion of the gun-deer season. The intent of the Legislature to have Sess. Laws 1987 ch. 231 take precedence over G.S. 113-291.5 is obvious for the following reasons: (1) the local law was enacted subsequent to G.S. 113-291.5; (2) Sess. Laws 1987 ch. 231 expressly references G.S. 113-291.5; and (3) Sess. Laws 1987 ch. 231 is more specific than G. S. 113-291.5.

However, if Sess. Laws 1987 ch. 231 were to be challenged, it may not withstand scrutiny. G.S. 113-131(a) provides that, "The marine and estuarine and wildlife resources of the State belong to the people of the State as a whole. The Department and the Wildlife Resources Commission are charged with stewardship of these resources."

In addition, G.S. 113-133.1 limits the extent of local regulation of wildlife resources. Subsection

(a) expressly states that:

Nothing in this section is intended to invalidate local legislation or local ordinances which exercise valid powers over subjects other than the conservation of wildlife resources, even though an incidental effect may consist of an overlapping or conflict of jurisdiction as to some particular provision not essential to the conservation objectives set out in this Subchapter.

Subsection (f) provides:

The Wildlife Resources Commission is directed to review periodically all local acts affecting conservation of wildlife resources and notify local authorities and the General Assembly as to those that:

(1)

Substantially duplicate provisions of this Subchapter.

(2)

Seriously conflict with conservation policies set out in this Subchapter.

(3)

Seriously conflict with conservation policies developed for the people of this state as a whole by the Wildlife Resources Commission.

In 1982, the Attorney General issued an opinion relying on the aforementioned statutes which concluded that a county may not adopt an ordinance regulating the methods of trapping wildlife. The reasoning used in the opinion was that by giving WRC the sole authority to manage the wildlife resources for the people of North Carolina, the Legislature has preempted the area of wildlife conservation and management with the exception of those local acts and ordinances which exercise valid powers, i.e., safety, health and welfare and which may have an incidental effect on wildlife resources. Because Sess. Laws 1987 ch. 231 does not address the safety, health or welfare of the citizens affected by the legislation, but rather, regulates the manner of taking wildlife it arguable goes beyond the constraints provided by G.S. 113-133.1.

The opinion, however, did not address the issue of whether the Legislature can subsequently enact local acts (as opposed to city or county ordinances) which regulate the wildlife resources. Pursuant to its constitutional mandate, the Legislature can enact local laws which regulate wildlife resources.

First, the Legislature may, and has, delegated a portion of its power to regulate the wildlife resources of the State, but it may not abdicate its power. Adams v. North Carolina Dep’t of Natural & Economic Resources, 295 N.C. 683, 249 S.E.2d 402 (1978).

Second, it may be argued that the Legislature only intended county and city ordinances to be restricted by G.S. 113-133.1. Subsection (b) refers to "special, local, and private acts and ordinances" enacted prior to the ratification date of the statute. The subsection also refers to "local legislation or local ordinances." Subsection (c) refers to both preexisting and prospective "city or county ordinances." Finally, subsection (f) refers to "local acts" which fall outside the constraints of the statute. However, the subsection merely directs WRC to review and report such local acts.

Based on the foregoing principles of statutory construction, Sess. Laws 1987 ch. 231 should be enforced in all of Anson County notwithstanding either G.S. 113-291.5 or WRC’s administrative rules.

2. Does the WRC have authority to establish rules on its game lands that contradict state or local laws when the purpose is regulation of hunting, manner of taking, or wildlife conservation?

WRC cannot promulgate valid administrative rules to override a local act of the Legislature. Although an agency may be granted limited powers to promulgate rules for the implementation of statutes, such rules do not have the effect of substantive law, and may not be promulgated contrary to statutory provisions. Adams v. North Carolina Dept. of Natural & Economic Resources, Supra; States’ Rights Democratic Party v. State Bd. of Elections, 229 N.C. 179, 49 S.E.2d 379 (1948). Likewise, an agency cannot promulgate a rule which, in effect, amends or repeals a statute. Only the Legislature may amend or repeal its statutes. Ramsey v. North Carolina Veterans Comm’n, 261 N.C. 645, 135 S.E.2d 659 (1964).

WRC is given broad authority in G.S. 113-264 to regulate its game lands. G.S. 113-264(a) provides, in pertinent part, as follows:

The Department [Department of Environment, Health, and Natural Resources] and the Wildlife Resources Commission are granted the power by rule to license, regulate, prohibit, or restrict the public as to use and enjoyment of, or harm to, any property of the Department or the Wildlife Resources Commission, and may charge the public reasonable fees for access to or use of such property.

"Property" as used in that section includes game lands.

However, this broad grant of authority does not give WRC the power to promulgate rules which conflict with other statutes and local laws enacted by the Legislature. Therefore, any rules that contain provisions which are conflicting, are invalid to the extent of the conflicting language.

Ann Reed Senior Deputy Attorney General

Melissa L. Trippe Assistant Attorney General