here's the issue...
APS...
You asked: What possible reason could be given to insist that an 8' windsurfer shell out $$ for Lake Restoration?
The reason is that the Windsurfer is using the lake... its also quite possible that the Windsurfer may need NHMP assistance if something were to go very wrong. (Middle of the Broads, too tired to to get back up etc.)
The Lake Restoration Fee applies to all lakes.... even those too small to for motorboats. Milfoil isnt the only problem this fee addresses. Using your logic, because the fee is paid by motorboats, only the lakes that allow motorboats should benefit from these monies.
Woodsy
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The only way to eliminate ignorant behavior is through education. You can't fix stupid.
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