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SAIPAN LAGOON USE MANAGEMENT PLAN FINAL DRAFT VOLUME II LAGOON AND SHORELINE USE MANAGEMENT PLAN Prepared for Coastal Resources Management Office Commonwealth of the Northern Mariana Islandz Prepared by Duenas and Swavely, Incorporated in Association with Pacific Basin Environmental Consultants, Inc. COASTAL ZONE INFORMATION CENTER TABLE OF CONTENTS PART ONE INTRODUCTION CHAPTER I PURPOSE AND SCOPE OF VOLUME II A. STATEMENT OF INTENT I-1 B. PROJECT AREA AND RELATIONSHIPS TO OTHER PLANNING !-1 C. PURPOSES !-3 D. MAPS OF EXISTING DATA AND PLANS FOR IMPROVEMENTS 1-4 E. ADOPTION OF THIS PLAN 1-4 CHAPTER Ii SUMMARY OF PLAN II-1 10 PART TWO LAND USE PLAN ELEMENT CHAPTER III LAND USE PLAN A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTIFICATION OF PROBLEMS III-1 B. OBJECTIVES 111-2 CHAPTER IV ZONING AND LAND USE DISTRICTS PLAN FOR THE SAIPAN LAGOON PROJECT AREA IV-1 A. STATEMENT OF INTENT IV-1 B. ADOPTION OF PROPOSED ZONES .AND LAND USE DISTRICTS IV-1 1. Segregation of Public Recreation Areas from Residential Zones IV-1 2. Expansion of Village Zone, San Antonio IV-3 3. Additional Resort Zone in Northern Saipan IV-3 C. RESORT ZONES ALONG THE SAIPAN LAGOON SHORELINE IV-3 D. PAUPAU RESORT ZONE IV-6 E. ESTIMATED COST FOR ZONE AND LAND USE DISTRICT AMENDMENTS AND ENACTMENT IV-9 CHAPTER V LAND USE REGULATIONS V-1 A. STATEMENT OF INTENT V-1 B. SHORELINE SETBACK REGULATIONS V-1 C. PROPERTY COVERAGE RATIO/PROPERTY SETBACKS/HEIGHT REGULATIONS V-3 1. Lot Coverage Ratios V-3 2. Setback and Height Regulations V-6 D. SHORELINE FENCING REGULATIONS V-7 E. LANDSCAPING GUIDELINES V-9 F. ESTIMATED COST OF PROMULGATING NEW LAND USE REGULATIONS AND DISSEMINATING LANDSCAPING GUIDELINES V-17 CHAPTER VI BEACH RESTORATION PLAN VI-1 A. STATEMENT OF INTENT VI-1 B. REGULATIONS FOR DREDGING, DIKING AND LANDFILLING ALONG COASTAL AREAS VI-1 C. REGULATIONS FOR STRUCTURES IN NEAR-SHORE AND BEACH STRAND ECOLOGICAL ZONES VI-3 D. REGULATIONS FOR MINING ALONG COASTAL AREAS ' VI-4 E.. BEACH AND SHORELINE RESTORATION PLAN V1_5 1. Typical Remedial Measures For Beach Erosion VI-5 2. Non-s-ructural Measures VI-6 3. Structural Measures VI-8 F. RECOMMENDED SHORELINE EROSION CONTROL STRUCTURES AND ESTI- MATED COST OF STRUCTURES AND PROMULGATI.NG REGULATIONS FOR COASTAL AREAS VI-13 CHAPTER VII INFRASTRUCTURE PLAN VII-1 A. STATEMENT OF INTENT VII-1 B. WATER FACILITIES PLANNING FOR FUTURE SHORELINE USES VII-2 1. Scope of Work VII-3 2'. Groundwater Management Task Force VII-4 3. Estimated Cost and Project' Schedule. VII-5 C. WASTEWATER FACILITIES PLANNING FOR FUTURE SHORELINE USES 111-5 1. Scope of Work VII-6 2. Estimated Cost and Project Schedule VII-8 D. STORM DRAINAGE DESIGN CRITERIA MANUAL VII-8 1. Scope of.Work VII-8 2. Estimated Cost and Project Schedule VII-10 E. PLANNING CRITERIA FOR EVA- UATING DEVELOPMENT IMPACTS ON INFRASTRUCTURE VII-11 1. Water Service VII-.12 2. Sewer Service VII-12 3. Electrical Power Service VII-13 4. Telecommunications VII-13 5. Roads and Parking VII-13 F. IMPACT EVALUATION BY MATRIX VII-14 PART THREE LAGOON WATERS USE PLAN ELEMENT CHAPTER VIII LAGOON WATERS USE PLAN VIII-1 A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTIFICATION OF PROBLEMS VIII-1 B. OBJECTIVES FOR LAGOON USE PLAN ELEMENT VIII-4 CHAPTER Ix WATER RECREATION ZONES PLAN IX-1 A. STATEMENT OF INTENT IX-1 B. RECREATION USE ZONES FOR SAIPAN LAGOON IX-1 1. Swimming Zones IX-1 2. Diving Zones IX-5 3. Boating Zones IX-5 4. Surfing IX-7 5. Water Recreation Advisory Board IX-7 6. Cost Estimates for Estab- lishing Recreation Use Zones through an Advisory Board IX-7 C. WATER SAFE'TY INFORMATION PROGRAM IX-8 1. Boating IX-9 2. Swimming IX-10 3. Cost Estimates for Water Safety Information 'Program IX-11 CHAPTER X WATER HAZARDS AND MARINE NUISANCE ABATEMENT PLAN X-1 A. STATEMENT OF INTENT X-1 B. REMOVAL OF LAGOON HAZARDS X-1 C. LOCATION AND EXTENT,OF MARINE NUISANCE ANIMALS X-2 D. MARINE NUISANCE ABATEMENT PLAN X-4. 1. Crown-of-Thorns Starfish Nuisance Abatement Plan X-4 2. Jellyfiah Nuisance Abate- ment Plan X-5 3. Monitoring Program x-6 E. BUDGET ESTIMATE FOR MARINE NUISANCE ABATEMENT AND HAZARDS REMOVAL PLAN X-6 PART FOUR BEACH PARKS AND RECREATION-PLAN ELEMENT CHAPTER XI BEACH PARKS AND RECREATION PLAN XI-1 A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTIFICATION OF PROBLEMS XI-1 B. OBJECTIVES XI-2 1. Outdoor Recreation Plan XI-2 2. Upgrade Beach Parks XI-3 3. Establish New Beach Park XI-4 4. Bicycle Route XI-4 CHAPTER XII SAIPAN OUTDOOR RECREATION PLAN XII-1 A. STATEMENT OF INTENT XII-1 B. SCOPE OF WORK FOR SAIPAN OUTDOOR RECREATION PLAN XII-1 C. COST ESTIMATE AND PROJECT SCHEDULE XII-2 iv CHAPTER XIII BEACH PARKS AND SHORELINE RECREATION FACILITIES IMPROVEMENTS PLAN XIII-1 A. STATEMENT OF INTENT XIII-1 B. CLASSIFICATION OF SAIPAN LAGOON BEACH PARKS AND RECREATION AREAS XIII-1 C. PRELIMINARY NEEDS ASSESSMENT AND IMPROVEMENTS PLAN FOR VILLAGE PARKS AND PLAYGROUNDS XIII-4 D. PRELIMINARY NEEDS ASSESSMENT AND IMPROVEMENTS PLAN FOR COMMUNITY BEACH PARKS XIII-5 E. DESCRIPTION OF RECOMMENDED IMPROVEMENTS AT BEACH PARKS XIII-6 F. COMMONWEALTH PARKS XIII-10 G. ESTIMATED COST OF PARK IMPROVEMENTS XIII-10 CHAPTER XIV AFETNA BEACH PARK PLAN XIV-1 A. STATEMENT OF INTENT XIV-1 B. AFETNA BEACH PARK IMPROVEMENTS XIV-1 C. COST OF IMPROVEMENTS XIV-2 CHAPTER XV SAIPAN LAGOON SHORELINE BICYCLE ROUTE PLAN XV-1 A. STATEMENT OF INTENT XV-1 B. PLANNING CRITERIA FOR THE BICYCLE ROUTE XV-2 C. TYPICAL PROFILES OF BIKE ROUTES XV-3 1. Class I Bikeways XV-3 2. Class II Bikeways XV-5 D. BICYCLE ROUTE IMPROVEMENTS XV-10 CHAPTER XVI BEACH FACILITIES MAINTENANCE PROGRAM xvi-i A. STATEMENT OF INTENT xvi-i B. FACILITY INVENTORY AND MAINTENANCE SCHEDULE xvi-i CHAPTER XVII SOILS EROSION AND SEDIMENTATION CONTROL TECHNICAL MANUAL xvii-i A. STATEMENT OF INTENT XVII-1 B. SCOPE OF WORK XVII-1 C. COST ESTIMATE AND PROJECT SCHEDULE XVII-3 v PART FIVE IMPORTANT HABITATS MANAGEMENT ELEMENT CHAPTER XVIII IMPORTANT HABITATS MANAGE- MENT PLAN XVIII-1 A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTI- XVIII-1 1. Mangrove Stands Habi- tats XVIII-1 2. Coral Patch Reefs Habitats XVIII-4 3. Managaha Island Under- water Trail Plan XVIII-4 4. Seagrass Beds Habitats XVIII-5 B. OBJECTIVES FOR IMPORTANT HAB1- TATS MANAGEMENT PLAN ELEMENT XVIII-5 CHAPTER XIX IMPORTANT HABITATS MANAGEMENT PLAN XIX-1 A. LEGISLATION FOR THE PROTECTION OF IMPORTANT HABITATS XIX-1 B. IMPORTANT HABITATS MANAGEMENT PLANS XIX-3 PART SIX.., ENERGY FACILITIES PLAN ELEMENT CHAPTER XX SITING CRITERIA FOR ENERGY FkCILITIES XX_1 A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTI- FICATION OF PROBLEMS XX_1 B. 'OBJECTIVES FOR ENERGY FACI- LITIES SITING CRITERIA XX-2 C. SITING CRITERIA XX-2 1. :Conventional Oil Fired Energy Facilities Siting Criteria XX-2 2. Coal Fired Energy Faci- lities Siting Criteria XX-3 3. Biomass Fueled Energy Facilities Siting Criteria XX-3 4. Solar Salt Gradient Energy Facilities Siting Criteria XX-3 vi PART SEVEN IMPLEMENTATION PLAN ELEMENT CHAP TER XXI SUMMARY OF PLAN RECOMMENDATIONS xxi-i CHAPTER XXII ADMINlSTRATIVE, FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLE- MENTATION OF PLANS xxii-i A. COASTAL RESOURCES MANAGE- MENT OFFICE xxii-i B. ZONING ADMINISTRATION OFFICE XXII-3 C. DEPARTMENT OF PUBLIC WORKS XXII-3 D. DEPARTMENT OF NATURAL RE- SOURCES XXII-6 E. DEPARTMENT OF PUBLIC HEALTH AND ENVIRONMENTAL SERVICES XXII-6 F. DEPARTMENT OF PARKS AND RECREATION XXII-7 CHAPTER XXIII IMPACT ASSESSMENT OF SAIPAN LAGOON USE MANAGEMENT PLAN xxiii-i vii PART ONE CHAPTER I PURPOSEAND SCOPE OF VOLUME II A. STATEMENT OF INTENT The SAIPAN LAGOON-USE MANAGEMENT PLAN is the Commonwealth's first comprehensive analysis. and PLAN for managing the Saipan Lagoon and its shoreline. Volume I of the PLAN analyzes both original- data as@well as previously collected information, about the Lagoon itself-and, on-shore environs between the coastline and Beach Road, in addition to Managaha Island. In Volume II plans, programs, policies and projects are@recommended for managing the various uses and resources associated. with this project area. Where appropriate, legislationj rules and regulations, and budgets are included to implement the recommendations. Volume III is a six-sheet set of maps which portray the PLAN's project .area and depict both the existing data and planned uses. An Executive Summary of this PLAN is presented as Volum IV. Volume I and II of'the-SAIPAN LAGOON USE MANAGEMENT PLAN are relatively complex documents, because ' by their nature, both breadth and depth of data are required to accurately portray the project area. This PLAN encompasses an area roughly one-third the size of Saipan Island and reflects such diver- 'gent uses and resources as energy facilities siting; tourism; commerce; residential, commercial, industrial and ,public land uses; infrastructure; public recreation and facility maintenance; lagoon water quali ty; critical habi- tats; beach erosion control; and soil erosion control. In short, these two Volumes are not written for the public- at-large but, rather, intended. to,guide more technical applications of resource management by various agencies of the Government of the Northern Mariana Islands. Chapter XXIV specifically addresses the budgetary and scheduling aspects -of: the PLAN in order to serve as a framework for implemen- ting the various recommendations. In many cases, the documents are also useful to developers contemplating pro- jects within the Saipan Lagoon area. B. PROJECT AREA AND RELAT IONSHIPS TO OTHER PLANNING While this PLAN studies lagoon and coastline issues more broadly and more deeply than any other previous project, it is, nonetheless, improper to, think of development within this project area as totally separable from the remainder of Saipan's physical and social development. In fact, not one of the PLAN's recommendations for improvement can be contained exclusively within the lagoon and coastline area. The impact of each proposed recommendation ultimately reaches beyond those geographical boundaries to influence both social and economic development of all Saipan. Some recommendations have an indirect effect on the Commonwealth as a whole. Nor is it correct to think of this PLAN's influence only in terms of the Lagoon's integrated relationship with the island of Saipan to the east. The Lagoon's harbor also serves as the only maritime link between Saipan and other islands of the CNMI, surrounding deep-water resources and oceanic commerce to the west and beyond. It can become difficult, therefore, to strike the exact balance of which-data, analys,es and existing plans are rele- vant to such an amorphous project area and, conversely, which are not. For example, fishing within the Lagoon, per se, can be quantified and qualified, but those data are insufficient to understand the importance of fishing's contribution to family subsistence or as a second-income generator within - the Saipanese economy. Likewise, recommendations for providing Lagoon-oriented recreation opportunities to tourists must be gaged by the anticipated growth of Saipan-bound tourists, a brand of- market forecasting which relies heavily on international economics. Additionally, the allocation of resort land-base and support infrastructure for, Saipan's largest economic' sector is subject to a @myriad of supply and demand factors that comprise the volatile, price-sensitive industry of tourism. Exactly how much Saipan-wide or*Commonwealth-wide social and economic data should be incorporated into this PLAN becomes a matter of good.planning judgment and report editing of existing documents. Volume I, "Data and Analysis" does not repeat much of Saipan's basic historical and current data relating to political status, commerce and trade, natural resources, governmental services and private sector develop- ment. While those subjects are naturally considered. as integral to any planning for Saipan, their data are incorporated by reference into this PLAN from such documents as listed below. "Socioeconomic Development Plan for the Northern Mariana Islands, 1978 to 1985 - Volume I and III' "Physical Development Master Plan (1978) Volume II - Saipan" 111980 Census of Population - Northern Mariana Islands" "Coastal Land and Water Use Plan, CNMI, May 1979" "Annual Reports Marianas Visitors Bureau" .1 2 "Overall Economic Development Strategy,, 1981, 1982 and 198311 "Proceedings - Year of the Pacific Conference, 1984, South Pacific Conference" "Annual Report to the United Nations in the Administration of the Trust Territory of the Pacific Islands," (Various Years) In addition to buttressing this PLAN with a data base from those documents, other plans which have been proposed for the Lagoon and its coastline are also . incorporated. Specifically, the following proposed projects and programs are integrated into this PLAN at appropriate places, although not always wi.thout certain qualifications and changes. "Zones and Land Use Districts Study for Saipan, Tinian and Rota, 198411 - "Garapan Flood Control Project, 198411 "Chalan Kanoa/Susupe Redevelopment Project, 197911 "Small Boat Harbor-Saipan CNMI, 1971" "Saipan Water System Study,1982" "Wastewater Facilities Plan for the.Island of Saipan, 197811 "Port and Harbor Study of Saipan, CNMI, 198011 "Lake Susupe Flood Control, 198111 "American Memorial Park - General Management Plan and Comprehensive Design, 198011 Finally, the data and analyses presented in Volume I of the 'Plan, including the significant contributions and valuable insights by the participants of SALAPAT (Saipan Lagoon Planning Advisory Teams), provided the bulk of this volume's technical and general planning data. C. PURPOSES The primary purposes of Volume II, SAIPAN LAGOON USE MANAGEMENT PLAN are threefold: 1) To synopsize the Volume I data analyses and identification of problems into six major elements. Land Use Element Lagoon Use Element Beach Park and Recreation Element Lagoon Water Quality Management Element Rare, Threatened and Endangered Habitats Management Element Energy Facilities Sit,ing Criteria Element 3 2) To, recommend appropriate plans, programs, policies and projects for managing the various uses and resources within each Element of the PLAN. To determine administrative requirements and cost estimates for implementing the recommendations. D. MAPS OF EXISTING DATA AND PLANS FOR IMPROVEMENTS Volume III is 'a six-sheet set of maps (one for each Planning Area, except the Tanapag Harbor and Managaha Island Planning Areas.are combined on one sheet) which graphically portrays @much of the existing data for the project area in addition to the planned improvements. These maps serve as a basic reference for both Volume I and Volume II of the PLAN. These maps are: Sheet 1 - Puntan Magpi Sheet 2 - Tanapag Harbor Sheet 2 - Managaha Island Sheet 3 - Puntan.Muchot Sheet 4 - Garapan Lagoon Sheet 5 - Puntarf Susupe Sheet 6 - Puntan Afetna E. ADOPTIO-N OF THIS PLAN This Volume of the PLAN recommends specific legislation, rules and regulations,' plans, programs, projects and poli- cies for managing the Saipan Lagoon and its on-shore environs. Legislative adoption of the PLAN shall be con- strued as formal CNMI legislative support for the recommended laws, rules and regulations, plans, programs, projects, and policies'herein. Table I-1 serves as an index to this PLAN's recommendations. 1 4 TABLE I-1 INDEX TO PLAN'S RECOMMENDATIONS EXHIBIT (E) No. FIGURE (F) No. TABLE (T) No. FORM OF SECTION (S) SHORT TITLE RECOMMENDATION (S) IV.B Zones and Land Use District Legislation Act of CNMI (S) IV.B.1 Amendment to Section 9 of Legislation Zones and Land Use District Act (S) IV.B.2 Expansion of Village Zone, San Legislation Antonio-Zones and Land Use District Act (S) IV.B.3 Paupau Resort Zone in Northern Legislation Saipan-Zones and Land Use District Act (E) V-1 Shoreline Setbacks Regulations- (T) V-1 Property Setbacks, Structure Regulations Heights and Densities (E) V-2 Lot Coverage for Commercial Regulations and Resort Zones (E) V-3 Setback and Height Regulations Regulations for Commercial and Resort Zones (E) V-4 Shoreline Fencing Regulations Regulations (E) VI-1 Landscaping Guidelines Government Policy (E) VI-1 Regulations for Dredging, Diking Regulations and Landfilling along Coastal Areas (E) VI-2 Regulations for Structures Regulations located on Near Shore and Beach Strand Ecological Zones (E) VI-3 Regulations for Mining along Regulations Coastal Strand I - 5 (S) VI.E Beach and Shoreline Restoration Design & Plan Construction (T) VII.B.1 Shoreline Water Facilities Design & Planning Construction (S) VII.B.2 Groundwater Management Task Government Force Program (S) VII.C.1 Shoreline Wastewater Facilities Design & Planning Construction (S) VII.D.1 Storm Drainage Design Criteria Policy (S) VII.E. Planning Criteria for.Evaluating Policy Development Impacts (S) IX.B Recreation Use Zones for Saipan Improvements Lagoon Plan (S) IX.B-5 Water Recreation Advisory Board Government Program (S) IX.C Water Safety Information Program Government Program -(S) X.B Hazards Removal Plan Contractual Service (9) X.D Marine Nuisance Abatement Plan Government Program (S) XII.B Saipan Outdoor Recreation Plan Master Plan (T) XIII-4 Improvements for Beach Design & Parks - Natural' Construction (T) XIII-5 Improvements for Beach Design & Parks - Developed Construction (S) XIV.B Afetna Beach Park Improvements Design & Construction (F) XV-7 Bicycle Route Improvements Preliminary Engineering (T) XVI-1 Recreation Facilities and Program Maintenance Schedule (9) XVII.B Soil Erosion and Sedimentation Policy Control Technical Manual 6 (E) XIX-1 An Act to Protect Important Legislation Habitats (S) XIX.C important Habitats Management Master Plan Plans (S) XX.C Energy Facilities Siting Criteria Policy CHAPTER II SUMMARY OF PLAN This PLAN recommends the following plans, programs, policies and projects to address.the problems identified within each of the Elements. Amendments to Saipan's Zones and Land Use Districts, as well as to the rules. and regula- tions to be promulgated thereto.. Regulations governing shoreline setback; property coverage'ratios; -property setback/height limita- tions; and shoreline fencing. Landscaping guidelines for property development. Regulations for shoreline landfilling, diking and dredging. Regulations for -constructing shoreline struc- tures. Beach restoration structures. Water facilities planning for future shoreline uses. Wastewater facilities planning for future. shoreline uses. Stormwater drainage fa-ci.lities design criteria. Planning criteria for evaluating. development impacts on infrastructure. Recreation use zones for the Lagoon. Water safety information program. Plan for removal-of lagoon hazards.. Plan for abating marine nuisances. Outdoor recreation plan for Saipan. improvements for existing beach parks and playgrounds. New beach parks,Puntan Afetna. Shoreline bicycle route plan and improvements. Maintenance program for beach facilities. Technical manual. for soil erosion and sedi- -mentation control. Important habitats management plan. An act to protect important habitats. Criteria for siting coastal energy facilities. Administrative, financial.and legal requirements to implement recommended plans, policies, programs and projects. 11 2. PART TWO LAND USE PLAN ELEMENT CHAPTER III LAND USE PLAN A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I DATA AND IDENTIFICATION OF PROBLEMS Land use planning for Saipan is in its embryonic stage. Two different land use plans now exist in the form of the "Physical Development Master Plan" prepared in 1978 for the Office of Transitional Studies and Planning and the "Zoning and Land Use Districts Report" prepared for the Costal Resources Management Office in 1984. While both plans are basically compatible, neither carries the necessary enforcement and regulatory authority for bona- fide implementation. Without a legally adopted and enforce- able land use plan and associated regulations, public and private development will continue to determine land use on an incremental, project-by-project basis. The legislative adoption of this.PLAN will enact the land use zoning plan recommended in this Part Two. The project area encompassed by this SAIPAN LAGOON USE MANAGEMENT PLAN is especially vulnerable to disjointed land use planning decisions because the coastline comprises a mix of development ranging from Saipan's rural to most urban, and includes residential, village, commercial, resort, industrial and public uses. Infrastructure and other community support facilities are, for.the most part, planned as a reaction to existing demands and development pressures, rather than as a guide to the growth of social and economic resources in accordance with a preconceived plan. This situation is, of course, not unusual for Micronesia in general, nor for most developing re- gions. However, this need not be the case; and the SAIPAN LAGOON USE MANAGEMENT PLAN is an appropriate vehicle for strengthening land use planning and supporting regula- tions for the project area. Land use planning does occur, de facto: individual site planning decisions for private and. public projects, extending infrastructure to new areas, resizing and improving existing infrastructure, and islandwide program planning and promulgation of regulations by such agencies as the Marianas Public Land Corporation and the-Department of Public Health and Environmental Services all function, cumulatively, as "land use planning". Unfortunately, this III occurs with sometimes self-defeating results. For example, public subdivision developme.nt, leasing of public lands for resorts, government -guaranteed loans for commercial pro- jects, and new public facilities must b6 inextricably coordinated with islandwide land use planning, timely infra- structure improvements and increases in maintenance and support operations. Otherwise, piecemeal improvements will be negated by the inevitable problems they create through placing impossible burdens for public services into the hands of the local Government. The basic land use pattern for Saipan, enabling legisla- tion, and rules and regulations now under consideration by the Legislature, (see "Zones and Land Use Districts for Saipan, Rota and Tinian",March 1983), are I generally endorsed by this SAIPAN LAGOON USE, MANAGEMENT PLAN. Some of those proposed-zones and land use districts within the project area must be adjusted to conform with land use planning goals and objectives established by this PLAN. Additionally, support-ive rules and regulations dealing with landscaping, fencing, -set-backs, . height and property coverage must be revised or, in some cases, established for the first time. Due to the interdependent nature of land use planning and infrastructure development, it is necessary to supplement this project area's Land.,Use Plan Element with an infrastructure plan that provides for an adequate capacity of sewer, water and roads as well as design criteria for storm drainage facilities. The last aspect of this Land Use Plan Element involves a Beach Erosion Control Plan to remedy seashore erosion along the Lagoon's shoreline. B. OBJECTIVES As a result of analyzing data and problems from Volume I, several objectives were identified relating to land use zones and regulations, infrastructure planning, infrastruc- ture maintenance, and beach erosion control. Those objectives have been consolidated into six basic plans which collectively comprise the Land Use Plan Element. A Zoning Plan which ado pts, in part, and adjusts the Government's now proposed "Zones and Land Use Districts Study". Two major purposes of adjusting the proposed land uses are-to distribute the Re- sort Zone to another location along the Lagoon shoreline and to segregate public recreation uses from other Zones within the Urban Land Use District. 111 2 Regulations encompassing property coverage ratios, set-backs, fencing, and height limitations, estab- lished with an environmental sensitivity towards preserving view corridors and an open, non- congested profile of shoreline development. The proposed landscaping regulations, which already accompany the Government's "Zones and Land Use Districts Study" are customized to the project area by this PLAN through including references to Saipan-specific flora. An Infrastructure Plan is needed to accommodate the projected utility requirements generated by the Land Use Plan Element. The Infrastructure Plan must update (or establish) the Government's existing facility plans for water and sewer so that future CIP projects are designed to accommo- date the preferred land use patterns. A maintenance program must address the Govern- ment's long standing efforts to wrestle con- trol over its ponderous responsibility of maintaining public recreation facilities with pitifully inadequate resources of trained man- power, reliable equipment and sufficient materials. A Beach Erosion Control Plan must account for stabilization and preservation of the Beach Strand and Near-Shore Ecological Zone's. Shoreline erosion is now occurring, and the likelihood of additional development mandates immediate attention to regulating fill and. excavation operations; dredging, diking and landfilling; structures; and beach restoration projects. Lastly, planning criteria for assessing the im- pacts by residential, commercial and industrial projects on public infrastructure and other resources must be developed in order to better evaluate the anticipated impac.t of proposed projects. CHAPTER IV - ZONING AND LAND USE DISTRICTS PLAN' FOR THE SAIPAN LAGOON PROJECT AREA A. STATEMENT OF INTENT The intent here is to amend, in part, and then have enacted the Government's land use patterns as proposed in its "Zones and Land Use Districts Study" foe the Saipan Lagoon shoreline areas covered by this PLAN. The amendments provide for a Resort Zone along a portion of the project area's northern shoreline, expanding the Village Zone of San Antonio, and providing for a Recreation Zone in the Urban District. With the exception of these amendments to the text and official zoning and land use districts map for Saipan, the Commonwealth's proposed Zoning and Land Use District boundaries and regulations meet the goals and objectives of this SAIPAN LAGOON USE MANAGEMENT PLAN. The recommended zones are depicted on the applicable sheets of the six-sheet set of Plans in Volume III. B. ADOPTION OF PROPOSED ZONES AND LAND USE DISTRICTS In April 1984, the Commonwealth Government completed a study which recommended zoning and land use districts for Saipan, Rota and Tinian.. The proposed legislation and accompanying maps, regulations and procedures are now undergoing legislative and public review as part of their ultimate enactment. In general, the proposed zones, districts and regula- tions are compatible with the SAIPAN LAGOON USE MANAGEMENT PLAN; and, with the three exceptions described below, the Government's proposal is endorsed by this PLAN. 1. Segregation of Public Recreation Areas from Resi- dential Zones The "Zones and Land Use Districts Study" proposes that parks, playgrounds and recreation areas are classified as permissable uses within the zones of residential, commercial, resort, and industrial. In the village zone, open-space and -recreation are listed as a principle use. While this system of land-use classification is fully satisfactory for accommodating the park and recreation uses as one of several aspects of community development, it does not provide for open space IV 1 and public@'recreation as a primary land use. This PLAN finds that the importance of open space and public recreation to be so significant that it deserves recognition as an exclusive zone for those large areas relegated to such uses. Of course, park and recreation uses shoul 'd continue to be designated as permissible or principle uses in the other zones, as originally proposed. It ' is recommended, therefore, that the following amended language be included into the. Commonwealth's "Zones and Land Use Districts Act". The new language is underlined. SECTION 9 URBAN DISTRICT: ZONES, USES, CHANGES (a) Zones. The Urban District shall be subdivided into six zones: Residential, Commercial, Resort, Industrial, Village and Recreation. The permissible land and building uses for each zone. are described below. A (g) Recreation Zone Uses. The pur- p6se of the Recreation Zone is to provide for public open space, park and recreation uses. While such uses are also encouraged in other zones as either permissible or prin- cipal, this Recreation Zone is in- tended primarily for larger parcels of land (generally larger than one acre) which are exclusively de- signated for passive or active recreation purposes. (1) Principal uses of the Recreation Zone. (aa) Public Parks. (bb) Public open space. (cc) Public sports and recreation facilities. (2) Permissible uses of the Recreation Zone. (aa) Private concessions.- Tbb) Parking. Cc-c)Historical and culturally signi- ficant sites. (ddT -Community halls. (ee) Non-conforming uses. Conditional Uses of the Recreation Zone. (aa) Flood plains. (-bb)Storm drainage percolation basins. IV - 2 (cc) Government and quasi-government facilities. (ddT-Any permitted use locat4ed in an Area of Particular Concern as depicted on Coastal Resources maps or regulations. (ee) Other uses in consonance with the zone's purpose and character, as determined. by the Zoning Administrator. (4) Prohibited Uses of the Recreation Zone. (aaT-All uses other than those speci- fied as principal, permissible, or conditional are prohibited for the Recreation Zone 'These changes to the Government's proposed zones are reflected in the six sheet Plan for Improvements, en- closed in this Volume. 2. Expansion of Village Zone, San Antonio This PLAN recommends the northern expansion of San Antonio's Village Zone to include the 30 to 40 struc- tures which now comprise the northern portion of the community. This expansion is also. reflected in Figure IV-1 and should be incorporated into the official CNMI Zone Map for,Saipan. Additional Resort Zone i.n Northern Saipan This third and last proposed.amendment is described in Section C, Resort Zones along the Saipan Lagoon Shore- line. This new zone is reflected in Figure IV-2 and should be incorporated into the official CNMI Zone Map for Saipan. C. RESORT ZONES ALONG THE SAIPAN LAGOON SHORELINE Recognizing the importance of Saipan's tourist industry to CNMI's overall economic development, proper land use planning must provide for adequate land base, infrastructure support and protection as- well as enhancement of environmental quality for both resorts and tourist-related development. Within guidelines that promise to enhance the Commonwealth's natural resources, while simultaneously raising the standard of liv *ing through more and better- paying jobs, tourist industry development is beneficial and fostered by this SAIPAN LAGOON USE MANAGEMENT PLAN Presently, two Resort Zones,are proposed for Saipan: in Garapan, approximately 40 acres in size, and in IV - 3 c A0, Ob 40 OP 40 AWTONIO L-Iol R561VENTIAL@ C H A L A M P I A 0 ZONE 0. ft SAN A to (Village It 04 BM A. F- T (Ar a) Ii ZZ - I t57,4@@ AN TON 10 Susupe/Chalan Kanoa, about 30 acres, refer to Plan for Improvements, Puntan Muchot Planning Area and Puntan Susupe Planning Area. Long term tourist arrival projections, coupled With the anticipated ancillary businesses which proliferate around hotels and resorts, indicate a need for additional land use designated as Resort zone. The question of expanding Garapan's and Susupe's Resort Zones verses that of designating other areas along the shoreline must be evaluated in terms of tourist pre- ferences, opportunities for peripheral development, and general planning policies. The general planning@ policy expressed by SALAPAT participants is that the Saipan Lagoon shoreline should provide for tourist industry development more or less uniformly, as opposed to con- tinuing the concentrated development in only Garapan and Susupe. While Garapan will serve as Saipan's commercial/tourist center for the foreseeable future, that municipality is also the Island's major residential sector. Already the peripheral tourist-related businesses have usurped the majority of former, downtown Garapan residences on the Lagoon side of Beach Road and spurred a transition of substantial downtown redevelopment. While this is not necessarily detrimental to the community's development (and certainly not unexpected) a limit does exist after which tourist-related development enroaches upon and consumes other beneficial characteristics of a community. This PLAN recognizes that such a limit will be reached for Garapan when the area now contained by the proposed Resort Zone becomes fully saturated with tourist ..industry development. Likewise, Susupe is the Commonwealth's seat of Government as well as a major residential area; and the existing, pro- posed Resort Zone, while far from reaching it's point of development saturation at this time, is permanently boxed-in by other well established land uses. Not much data has been collected and analyzed in order to evaluate and articulate visitor preference from among Saipan tourists. As with Guam's case, sun, sand and surf are likely to rank among the highest desirable attributes of Saipan as a destination. Additionally, Saipan's major role in Japan's pre-WWII and WWII eras contributes an historical preference by tourists from Japan. Close proximity to the Lagoon waters and shoreline is always an important criterion for siting resorts and for desig- nating additional resort land base. This effectively eliminates, expanding the Resort Zone in Garapan since that zone's shoreline is blocked to the north by the American Memorial Park and to the south by Government land as well as by successively-narrowing beach front property. IV - 5 While it can be argued that all but a few peripheral businesses to hotels and resorts are community assets, the opportunity for indirect economic growth in the form of retail shops of all kinds, restaurants, grocery stores, entertainment and rentals are often common around resort areas in small communities; and this business trans- lates into local employment, higher property values and an expanding tax base. To date, Garapan is the 'only municipa- lity which has been able'to fully capitalize on this peripheral aspect of economic growth for Saipan'-s tourist industry, although some evidence of this type of peripheral growth, is also beginning in Susupe. Distributing such opportunities among other shoreline villages is consistent with the aforementioned policy of balanced growth. Two significantly large, undeveloped tracts of shoreline still exist: one in the Tanapag/San Roque area and one in the San Antonio vicinity. Additionally, both the Hopwood Junior High School site as well as the San Antonio Elementary School site have been offered for lease by MPLC to prospective resort developers on the condition that the respective schools be first reconstructed at a different, suitable location. As for the northern Tanapag/San Roque area, enough vacant land is available between Tanapag and San Roque as well as north of San Roque to support full scale resort development. As for developed land along the Lagoon's southern shoreline, the former US Coast Guard Station .(now CNMI land) is large enough to support resort development. This PLAN recommends that north Saipan be targeted as 'the next location for decentralizing the shoreline's existing resort development. The general (but not unanimous) consensus to retain publicly owned shoreline lands, such as the former Coast Guard Station, for public use precludes this area from being leased to a private develoo'er. On the other hand, nearly all of the northern shoreline lands within the PLAN's project area are in private ownership and, therefore, not subject to public use. D. PAUPAU RESORT ZONE In northwestern Saipan a new Resort Zone is recommended for the shoreline project area directly north of San Roque, see Figure IV-2 and refer to Exhibit I-1. .Basically,only two choices present themselves for new resort development within this portion of the project area: the relatively undeveloped stretch of land between Tanapag and San Roque which is bounded by the shoreline and Beach Road; and the area being recommended, north of San Roque. IV - 6 % Iit/I 46 16- The area lying between Ta'napag and San Roque, which is proposed by the "Zones and Land Use Study" as a Rural District, comprises approximately 50 acres of easily devel- opable land with prime beach frontage. However, this area is unsatisfactory as a Resort Zone for the following reasons. Recognizing the future growth of both Tanapag and San Roque between the shoreline and Beach Road, a gradual residential infilling will likely take place along Unai Achugao. Tanapag's growth poten- tial to the south is eventually constrained by the Tanapag Harbor and Industrial Area which is devel- oping northward, towards the village, as well as by other potential uses in this vicinity such as aquaculture. Tanapag's growth inland, across Beach Road is always possible; but Saipanese com -munities display a clear propensity for coastal development rather than inland, wherever sufficient coastal land base is available. Furthermore, land such as the area between Tanapag and San Roque should not be designated for such incongruous uses as resort and tourist-commercial development between two relatively similar and historically well-established residential commu- nities. Acres of hotels, shopping centers and enclaves of tourists situated between Tanapag and San Roque are akin to building a sociological barrier that will forever separate the community and cultural comradery which now bonds these two "north Saipan" sister villages. Lastly, the peripheral economic and infrastruc- ture amenities that accompany a major resort development will not extend to San Roque if the new Resort Zone is situated south of San Roque. Because the major centers of business, government, transportation and infrastructure are located in central and southern Saipan, the orientation from. Tanapag and San Roque is generally directed southward towards the major population centers. Both Tanapag and San Roque can avail themselves of an equitable degree of economic growth opportunities only if that development is designated northward of San Roque. Therefore, the area between Tanapag and San Roque should be reserved for longterm future municipal growth of both municipalities; and a new coastal Resort Zone should be designated beyond that area of the two Villages' common influence. IV 8 The proposed new Resort Zone, designated Paupa6 Resort Zone, is approximately 30 acres in size and parallels the northern stretch of Unai Paupau. It is to be subject to the same land use regulations prescribed for the other Resort Zones, as established in the "Zones and Land Use- Districts Study". This new zone should be incorporated into the official CNMI Zone Map for Saipan. E. ESTIMATED COST FOR ZONE AND LAND USE DISTRICT AMENDMENTS AND ENACTMENT Because these amendments are incidental to the CNMI Zones and Land Use Districts Act, no special costs are identified for this Plan. The budget for implementing the proposed CNMI zoning program was developed as part of the "Zones and Land Use Districts for Saipan, Tin 'ian and Rota" project at an annual cost of approximately $150,000. This cost is not reflected in the implementation costs for the SAIPAN LAGOON USE MANAGEMENT PLAN. IV 9 C-HAPTERY LAND USE REGULATIONS A. STATEMENT OF INTENT The. intent of this chapter of the PLAN is to propose new regulations for shor-eline setbacks, property coverage ratios and height limitations, shoreline fencing, and supplement the Government's existing proposed regulations for land- scaping with examples.of Saipan indigenous plants. Section 5 (h) of the proposed Zoning and Land Use Act, "Zones and Land Use Districts Study", authorizes the Zoning Administrator to promulgate-rules and,regulations to carry-out the intent and purposes of the Act.- The Land Use Regulations recommended in this Chapter should be promulgated under that proposed Act. During the interim, however, these Regulations could be promulgated by the Coastal Resources Management Office under the authority of., Public Law 3-47... B. SHORELINE SETBACK REGULATIONS Exhibit V-1 presents the recommended- shoreline setback regulations. EXHIBIT V-1 REGULATIONS SHORELINE SETBACKS (A) Authority. Section 5(f) of the@Zoning and Land Use Act, Commonwealth-of the Northern Mariana Islands. (B) Scope of Regulations. The shoreline setback regulations herein prescribedapply to all coasts of the Commonwealth for all districts and zones, except for Village Zones, where only Shoreline Setbacks A and Al shall apply and except for Industrial Zones where n-o shoreline setback regu- lations shall apply. Sh-oreline setbacks shall be measured inland- from the mean high water level contour as determined by a Registered Land Surveyor of the Commonwealth. (C) Shoreline Setbacks' Shoreline'Setback A, Beach reservation zone from 0-35 feet fo"r use a.s public access and recreation. Gener- ally, structures are pro- hibited. Any pr -oposed development within this Shoreline Setback B, from 35-75 feet. No -vertical construction which will obstruct the visual openness and con- tinuity of the beach area is permitted. Open space, rest and recre- ation areas, swimming pools, terraces, land- scaping and related out- door improvements are allowed. Parking areas are not permitted. Shoreline S 'etback CP from 75-100 feet Single-story structures, covered porches, trel- lises and similar im- proveme-nts not to exceed 12-feet in height measured from the natural grade line. Parking is permitted. Shoreline Setback D, from 100-feet ormore Building height based.on ''Property Setback/Height Regulations. For any lot where thirty percent (30%) or more of the land area is affected by the mandatory shoreline set- back above, such seashore setback regulations are modified as follows: Shoreline Setback A-1, from 0-20 feet Beach recreation zone for use as public access and recreation. Shoreline Setback B-1, from 0-20 feet Shall be open space with no vertical construction or parking permitted. Shoreline Setback C-11 from 60-100 feet Single and two-story struct-ures only, with the total height not to exceed 20 feet. V 2 Shoreline Setback D-1, from 100-feet or more Building height based on proposed Property Set- back/Height Regulations. Figure V-1, Shoreline Setback/Height Graph, graphically depicts Shoreline Setbacks A,B,C and D. C. PROPERTY COVERAGE RATIO/PROPERTY SETBACKS/HEIGHT REGULATIONS Setbacks, lot coverage ratios and height limitations are interdependent functions of property development. The mini- mum setbacks and maximum heights and lot coverage ratios presented in Table V-1 are established by the Commonwealth's proposed Zoning and Land Use Act. These proposed regulations were.established with the purpose of applying to all Zones within all of the Commonwealth's Urban Districts; therefore, they cannot be expected to exem- plify any unique features or requirements of the Saipan Lagoon project area, per se. With the data analysis from Volume I of this project and SALAPAT @as a background, however, the property setback, property coverage, and height limitations for the Commercial Zone and the Resort Zone can be improved to reflect more design flexibility for developers while protecting the project area's natural beauty and openness. 1. Lot Coverage Ratios Lot coverage for structures means the "footprint" of buildings on the site and does not consider the floor area of upper floors or the overall density of the development. Where the first floor is elevated above the ground level, its lot coverage ratio shall be based on the proposed,use for the area below the structure. The lot coverage ratio for open space is considered-to include plazas, terraces, decks and other outdoor areas which are not covered or walled, landscaped areas,, recreation and open space, improved or unimproved natural areas, covered storm water disposal areas, and pedestrian walkways. The continuity, conservation and maintenance of open space must be provided for; any later modification must be first approved as a variance. V 90- 6H0Kr--UNr- -@@PTOACK -165 H ANP Hl@ IH HE161HT PA,@Rpl M or 40 - Hrl6iHT 57UcTu Rr- SF-TP@ACK 0 '5,F-TEACK A 16F-To^r-rl 15 WITHOUT No IN ,TRU VIP 114^r OpV Af @O' At. 70 00 90 0 110 1 f4 ':@F-TPACK OF '@'TIZW6TUIM (IN FrF-q) fr-OM MF-,4W HIAH WATF-lz IV-vpl, TABLE V-1 MINIMUM PROPERTY SETBACKS, MAXIMUM STRUCTURE HEIGHTS AND DENSITIES FOR ZONES, PER PROPOSED ZONING AND LAND USE ACT MINIMUM PROPERTY MAXIMUM HEIGHT FOR MAXIMUM DENSITY ZONE SETBACK FOR STRUCTURE STRUCTURES OF DEVELOPMENT Residential 20' from primary and None, per se, except 6 units/acre for secondary roadways. that a single or single and two- 10' from collector multi-family resi- family dwelling roadways. 4' (front dential structure units. yard) and 5' (rear shall not exceed a Lot coverage of yard)-for tertiary height that inhibits 40% for non- roadways. access to sunlight sewered lots for for adjacent lots. single-family units. Lot coverage of 50% for non- sewered and 60% for sewered lots for multi-family units. Commercial None 25' None Resort 20' side yard 85' or eight 20 quest units/ stories acre Industrial None 451 None Village None None None V 5 EXHIBIT V-2 LOT COVERAGE REGULATIONS FOR COMMERCIAL AND RESORT ZONES (A) Authority. Section 5(f) of the Zoning and Land Use Act, Commonwealth of the Northern Mariana Islands. (B) Scope of Regulations. These regulations apply to the Commercial Zone and to the Resort Zone as established by Section 9(c) and (d), respectively of the Zoning and Land Use Act, Commonmwealth of the Northern Mariana Islands. Commercial Zone Maximum lot coverage by structures - 25% Maximum lot coverage for parking, roads and ser- vice entries - 45% Minimum lot coverage by for open space - 30% Resort Zone -Maximum lot coverage by structures - 20% Maximum lot coverage for parking, roads and ser- vice entries - 35% Minimum lot coverage for open space - 45% 2. Setback and Height Regulations The maj,or considerations when evaluating property coverage ratios and setback-height standards are light,, air, open space, compatibility with adjacent uses, preservation of scenic views and the overall aesthetics and character of the area. The objective.with such regulations is to devise a formula which, on one hand, safeguards environmental design principles without, on the other hand, imposing burdensome and restrictive standards on a developer. Recognizing, therefore, the potential and the need for economic development in CNMI as well as the imperative- ness for general site design standards, the following regulations (Exhibit V-3) are recommended for commer- cial and resort zones to replace those now proposed in the "Zones and Land Use Districts Study." v - 6 EXHIBIT V-3 SETBACK AND HEIGHT REGULATIONS FOR COMMERCIAL AND RESORT ZONES (A) Authority. Section 5(f) of the Zoning and Land Use Act, Commonwealth of the Northern Mariana Islands. (B) Scope of Regulations. These regulations apply to the Commercial Zone and Resort Zone as established by Section 9(c) and (d), respectively , of the Zoning and Land Use Act, Commonwealth of the Northern Mariana Islands. (C) Setback and Height Regulations. A height-setback graph is provided for each zone. These curves reflect the relationship between the height and the space between buildings. Additionally it is recommended that taller buildings be clustered in a manner to minimize the impact of.each individual tower. Certain concessions in the setback-height standards can be proposed where,a desirable con- cept. of clustering is possible. (D) Height/Setback Graph. See Figure V-2. D. SHORELINE FENCING REGULATIONS While indiscriminate shoreline fencing is not now a signifi- cant problem along the Saipan Lagoon shoreline, the Commonwealth should promulgate specific regulations to pre- vent any undesirable situations where such fences may create access or aes.thetic problems. Exhibit V-4 proposes such regulations. EXHIBIT V-4 SHORELINE FENCING REGULATIONS (A) Authority. Section 5(f) of the Zoning and Land Use Act, Commonwealth of the Northern Mariana Islands. (B) Scope of Regulations. These regulations apply to all properties within the first 75 feet landward from the mean high water level. (C) Conformity With Other Regulations. Shoreline Setbacks A and B as established by the Common- wealth's duly promulgated Shoreline Setbacks are hereby incorporated into the Shoreline Fencing Regulations. V - 7 u 100- 10 Ll 60 70 60- HF-161HT 5TRUCTURFE (IN 90- -40- 10- 0 @11@000 10 V 46 r/D 60 70 80 10 100 (m maT) (D) Supplemental Regulations to Shoreline Setback Regulations A. The Zoning Review Board and the Coastal Resources Management Office shall not approve any construction for fences in this 0-35 feet setback. (E) Supplemental Regulations to Shoreline Setback Regulations B. In the event that fencing is per- mitting by the Zoning Review Board and the Coastal Resources Management Office within the 35- 75 feet shoreline setback such fencing must com- ply with all of the following criteria: 1. Such fencing shall not exceed 30" (thirty inches) in height or 2411 (twenty-four inches) in width.. 2. Such fencing shall not extend seaward beyond a point which is 25'(twenty-five feet) from the mean high water level contour. 3. Such fencing shall be primarily constructed of indigenous materials. Barbed wire is especially prohibited. 4.' Such fencing shall not be used as a foundation for any objects extending vertically or horizon- tally from the fencing itself. 5. Such fencing which is lying perpendicular or askew of the coastline shall be provided with either ground level openings or with steps, -both of sufficient size and convenience to accommodate easy pedestrian access. E. LANDSCAPING GUIDELINES Exhibit V-5, below, is adopted from the "Zones and Land Use Districts" report and supplemented with species of indi- genous vegetation that are suitable for the respective landscaping guidelines. V 9 EXHIBIT V-5 GUIDELINES FOR LANDSCAPING The Authority for these regulations is Section 5(f) of the proposed Zoning and Land Use Act, Commonwealth of the Northern Mariana Islands. GUIDELINE No. 1 Development should promote the lagoon's scenic qualities. Variations in the natural coastline, beaches-, and-reef should be visually accessible. Lagoon and beach activities should be visually featured. On-shore topography and natural vegetation should be retained. Areas of particular concern should continue to be protected by legislation. Unique ecological areas and significant stands of tropical limestone vegetation should be preserved through site development plans which protect such areas and vegetation from degradation by nearby construction. GUIDELINE No. 2 Establish complementary relationships bet- ween development and the lagoon shore.line. Maintain 'continuity of land form, topography and transitions to the beach. Minimize the use of retain- ing walls, dikes and seawalls. Design seawalls to also serve as benches and soften their appearance by providing tropical @landscaping such as Hibiscus hedge, Panama Cherrytree, Coconut Palm, Beach Morning Glory and various beach grasses. Maintain, define and develop beach access points. Provide for continuous beach walkways and incorporate beach walkways into all shore development, including the provision of benches, tr,ash receptacles, low-level lighting and other conveniences. Public access to the beach should be established through pedestrian arcades and public corridors. Maintain a open-view corridors to the Lagoon. Orient buildings perpendicular to the shoreline to allow view corridors between buildings., Open buildings at the ground level to permit views. V - 10 Parking adjacent to shoreline areas is subject to the prevailing Seashore Setback Regulations. Screen all views of parking in order to promote the natural Lagoon and shoreline setting. Preserve stands of Coconut Palms, Ironwood,. Flame, Kapok, Breadfruit, Barringtonia, Banyan and other mature trees. Clearing of low-level scrub such as tangan-tangan, and various grasses within and adjacent to the shoreline is encouraged to enhance views and provide for public security. Existing, tall Palm, Barringtonia, Ironwood, Banyan, Kapok, Breadfruit, Messerschmidia and Flame trees should not be damaged or removed. GUIDELINE No. 3 Encourage accessibility to community assets which provide a sense of orientation, recognition and visual interest. Maintain and improve the quality of open space areas and access to them for recreational purposes. Maintain and improve accesses from the beach to park and recreation facilities. Relate proposed developments visually and functionally to adjacent roadways and pedestrian walkways. Provide amenities such as rest areas, landscaping of natural flora, lighting, and appropriate street furniture. Plantings of low vegetation such as the Beach Sun- flower, Dwarf Poinsettia, Beach Morning Glory or other common ground cover within rights-of-way. are en- couraged. Relate proposed developments to nearby historic areas. GUIDELINE No. 4 Development shall promote a positive visual image and impression of Saipan's character. Resort, hotel or tourist industry facility environments should reflect a feeling of relaxation and leisure. The intensive building, congestion and activity of urban settings are discouraged. Emphasize recreation, and pedestrian activity and landscaped open space. Consideration should be given to preservation and improvement of the natural beauty of the proposed project site with emphasis on open space,- water features, natural land form, and vegetation such as that found in the limestone forest, beach strand or savannah. V 11 Consolidation of properties into the largest possible parcel is encouraged. Subdivision of property into smaller parcels is discouraged unless justified by an overall site master plan to be implemented through specific construction in consonance with the projected development.of the basic lot. Utilize green areas for on-site disposal of stormwater. Landscaped percolation basins, grass covered ponding basins, recreation and open-space areas and areas of natural vegetation will provide capacity for recharge of stormwater run-off. areas covered with various short grass such as Bluegrass Japanese grass or other appropriate types can be used. Adequate lighting should be provided for outdoor areas. Lighting should have a precisely defined purpose and not be disruptive to the adjacent surroundings or to the overall environment. Light poles should be no more than 15-feet in height, with underground electrical service. Screen all service and mechanical areas by using natural vegetation hedges such as Hibiscus, Crotans or close-cropped Ironwood. Create hills and berms to integrate overall land and building forms. Accentuate natural land form in order to define the character of development and to promote the natural setting. Provide underground, covered or screened parking. Screened parking is easily accomplished by hedges of Hibiscus, Crotons or Ironwood. GUIDELINE No. 5 Use design elements to express function, use and tropical setting. Provide variety in building envelope, wall plane and roof shape. Break structures into related components, with distinctive appearance. Link buildings and activities through the use of vestibules, covered passages, terraces and arcades. Promote ind-oor-outdoor relationships. Public spaces can be open to the outside to allow for natural breezes and the experience of the tropical environment. Utilize rece,ssed entries as shaded transitions. Promote natural ventilation of spaces. Orient for maximum wind exposure. Provide.breezeways to capture cooling breezes. V 12 Give consideration to treatment of entry, windows, cornices and other building elements that contribute to style. Consult architectural and construction references for energy-conscious design features, Balance the use of concrete and masonry with the use of natural materials. Naturally-weathering materials provide a pleasant appearance with minimal maintenance requirements. Permanent structures are encouraged. Temporary structures such as mobile homes and pre-engineered steel buildings and structures made of corrugated metal sheeting are not desirable for the long term appearance of the Lagoon area. Utilize distinctive ground textures for visual charac- ter and continuity. The nature, size, shape, style and lighting of all signs should be in harmony with the Lagoon setting and in conformance with prevailing Sign Regulations. Signs should be subordinate to buildings and fit within existing features of the structure. GUIDELINE No. 6 The proportion and scale of buildings should relate to human scale. Structure should not dominate adjacent streets, pedestrian spaces and neighboring properties. Pedestrian viewpoints should relate to both the size and detail of buildings. Provide for transitions between building scale and street scale through the use of plazas, trellises with overhanging plants such as epiphytic ferns from the limestone forest, street furniture, landscaping and other outdoor features which relate to human scale. Extend form and relieve the massiveness and/or height of structures through the use of transitional elements. Ancillary structures such as entrance canopies, trellises, porches, stairs, terraces, plazas, gardens and other exterior spaces provide shade and inviting spaces, while enhancing the human scale of buildings. Soften the bulk of structures by breaking them into smaller components. Examples include the use of several, connected structures, in lieu of one large V 13 imposing structure and provision-of lower, ancillary buildings which surround tower structures. Vary the wall plane, height and fenestration to provide an interesting configuration and silhouette. Use roof forms which enhance the structure's overall scale; also, blend various forms. Soften the bulkiness of structures through the use of landscaping with local vegetation like Coconut and Betel Nut Palm, Hib-i-scu-s, Bamboo, Panama Cherrytree, Soursap, Papaya, Pandanus, Flame tree and other appro- priate flora incorporated within the form of buildings. GUIDELINE No. 7 Promote continuity of a proposed development with adjacent areas. A structure's scale adjacent to the street shall relate to pedestrian scale. Provide a variety of -setback and exterior spaces separating adjacent,developments. Provide adequate open space as a component of the project. Provide transitions between the structure's heights and the boundaries of the site. Construction at a corner site shall be less imposing in order to diffuse and open-up intersections. Use special care in siting of high-density residential buildings where they are located adjacent to low- density residential developments. The effect of tall structures on natural air circulation and wind turbulence should be considered. Building shadows should not interfere with neighboring activities. A building significantly taller than its surroundings can experience high wind loads and create pedestrian- level winds. Provide unobtrusive parking, walkway and landscape lighting for safety and public security. GUIDE LINE No. 8 Integrate infrastructure and service elements in an unobtrusive manner. V 14 The underground installation of power, telephone and television service within the site are strongly encouraged. Locate automobile and bus' parking areas to the rear of buildings whenever possible. Screen parking areas at boundaries and break-up large, paved areas with islands that are land scaped in a natural setting. GUIDELINE No. 9 Protect existing landscaping and design new landscaping around existing vegetation, especially mature trees and planting. Existing trees and groupings such as coconut Palm, Ironwood, Barringtonia, Flame, Banyan, Pandanus, Papaya, Panama Cherry, Soursap, established in their natural condition, should be retained and protected during construction. Selective pruning and removal are desirable in order to open specific vistas, to give shape and dimension to vegetative groupings, to create functional open space., and to frame architectural elements. Prune and shape existing vegetation for viewing and to preserve mature Coconut Palm, Ironwood, Barringtonia, Flame, Banyan, Pandanus, Papaya Cherry, Soursap trees. Parking area layouts should incorporatte existing trees to the greatest extent possible. Buildings should be located with respect to preserving large stands of mature trees. Maintain visual continuity of existing vegetation by replacing cleared areas with new landscaping of similar species composition. GUIDELINE No. 10 Utilize landscaping as functional solutions to site development. Utilize landscaping for t 'raffic and circulation control to screen objectional views of service and mechanical areas and to provide privacy by utilizing hedges of various Hibiscus species or thick Ironwood. Buffer and -shade parking areas with Coconut Palm, Banyan, Barringtonia, Ironwood, Breadfruit or other large trees to provide Pelief from sun glare and to reduce surface temperature of paved areas. Large paved areas are hot and uninteresting, landscaping cools and shades parking lots. V 15 Utilize landscaping of appropriate height vegetation in order to enchance building line and form, to unfold an attractive vista or to frame a view. Islands of interspersed landscaping with a glimpse of the ocean may be more effective than a block-view or a sweeping panorama of horizon. Utilize ground cover of varying heights and types to shade, cool and direct breezes, to absorb unpleasant ,sounds, smells and dust, and as erosion control on steep banks. In some cases, plant-ings th-emselves become a focal point of development. Large planting groups re- presenting natural tropical settings such as the limestone forest or beach strand, are strong deter- minants of spatial form. Provide other landscape elements including rock forms, wat er and sculptures. Landscape storm-water percolation basins with local ground cover such as the Beach Sun Flower or common grasses, to.- ensure attractive and maintained open space. GUIDELINE No. 11 Utilize informal landscaping techniques to enhance the natural setting of the Lagoon area. Random plant ing and.naturalness should be created by planting to blend with the natural environment, like that which is found in the limestone forest, savannah or beach strand. Plant in mass. Large trees such as Coconut, Breadfruit, Pandanus, and other natural forms of large and small plants should be grouped into clusters as simple landscape elements. Consider seasonal variation of color, loss of leaves and susceptibility to pest attack. Transient floral aspects, no matter how striking, should not be the sole basis of selection unless the specimen is also a sound selection when not in flower. Landscaping lighting shall be low level. Underlighting of plaintings, can serve also as walkway lighting. Limit any illumination spotting to specimen trees and to dominant landscape forms. V 16 F. ESTIMATED COST OF PROMULGATING NEW LAND USE REGULATIONS AND DISSEMINATING LANDSCAPING GUIDELINES Provisions for promulgating new or amended land use regula- tions are prescribed in the Zones and Land Use Districts Act. This procedure would be carried-out by staff of the proposed Zoning Administration Office staff as provided by the Act or, in the interim, by the Coastal Resources Management Office, and involve a period for becoming familiar with the materials, coordination among other agencies, and public hearing expenses. The Landscaping Guidelines should be printed for dissemination to prospective developers. The estimated cost for promulgating the regulations and printing the guidelines is $2,000. V 17. .CHAPTER VI- BEACH RESTORATION PLAN A. STATEMENT OF INTENT The intent of this section of the PLAN is to recommend both -regulatory as well as preliminary plans for structural and non-structural improvements for protecting the beach along Saipan Lagoon. The regulatory measures address three a@ctivates-which now affect th,e beach strand and near-shore ecologi-cal zones. They ar.e: Regulations for dredging, diking and land- .filling along coastal areas; Regulations for mining along coastal areas; and Regulations for structures which* ar-e located within the near-shore or beach strand ecological zones. Appropriate structural and non-structural remedial measures for protecting and restoring beach erosion sites are adapted to the- Lagoon's--coastline and specific measures, are recommended. B. REGULATIONS FOR DREDGING, DIKING AND LANDFILLING ALONG COASTAL AREAS Exhibit VI- 1, below, contains these proposed regulations. EXHIBIT VI-1 REGULATIONS FOR DREDGING, DIKING AND LANDFILLING ALONG COASTAL AREAS 1. Authority. Public Law 3-47, Commonwealth of the Northern Mariana Islands. 2. Prohibited dredging, diking and landfilling along coastal areas. The dredging, diking or landfilling of coastal wetlands is prohibited. 3. Conditions for permitting landfilling, diking and dredging. Landfilling, diking and dredging shall be permitted only as part of a wetland or esturine restoration plan and under the auspices of a permit approved by by the Coastal Resources Management Office, Commonwealth of the Northern Mariana Islands and 'VI 1 of a permit approved by by the Coastal Resources Management Office, Commonwealth of the Northern Mariana Islands and a) as part of an approved maintenance dredging project; or b) as part of a port expansion; or c) as part of an energy facility for which there is no alternative.location that would result in less environmental damage. Conditions upon approval for dredging. When dredging is allowed in accordance with Section 3, above, such dredging shall: a) 'avoid unnecessary disruption Ito biological communities and water circulation through planning and scheduling of dredging operations; b) shall avoid the dredging of toxic bottom materials; and c) shall provide for the isolation and treat- ment of.spoils material or for its disposal on land so as to prevent pollution of marine, surface and underground waters. 5. Disposal of dredged material. Dredged. material which is suitable for beach replenishment shall be transported to appropriate beaches designated by the Coastal Resources Management Office. After a thorough assessment of potential disposal sites, all other dredge spo.ils shall be dis- posed at either: a dry land in authorized fill sites; or b) in marine areas where studies demonstrate that it can be used with minimal environ- mental impact; or c) in deep ocean areas subject to Federal and/or Commonwealth guidelines.and at sites chosen so as to minimize adverse impacts to marine organisms. VI 2 EXHIBIT VI-2 REGULATIONS FOR STRUCTURES LOCATED IN NEAR SHORE AND BEACH STRAND ECOLOGICAL ZONES 1. Authority. Public Law 3-47, Commonwealth of the Northern Mariana Islands. 2. Conformance with other regulations. These regulations shall supplement other prevailing applicable regulations for structures located in near shore and beach strand ecol-ogical zones, such as those regulations administered by the U.S. Army @Corps of Engineers. 3. Prohibited structures. Structures on the open beach strand shall be prohibited except for those necessary for public health, safety or welfare. 4. Conditions for approval. Near-shore and beach strand structures shall be permitted only when required: a) to maintain and-serve public recreation areas or necessary public service facilities where there is noless environmentally harmful alternative; or -ect existing developments where the b) to prot Coastal Resources Management Office deter- mines that the public interest would be better. served by such protection than instead, by protecting the natural shoreline processes'. 5. Repair of structures. Repair, replacement or reconstruction of shoreline structures shall be planned and designed to protect and enhance marine life conditions. Existing shoreline struc- tures which cause water pollution and fish habitat degradation shall be required to conform with these regulations within one year of the effec- tive date of these regulations. D. REGULATIONS FOR MINING ALONG COASTAL AREAS Exhibit VI-3, below, contains these proposed regulations. EXHIBIT VI-3 REGULATIONS FOR MINING ALONG COASTAL STRAND, 1. Authority. Public Law 3-23, Commonwealth of the Northern Mariana Islands. VI - 3 D. REGULATIONS FOR MINING ALONG COASTAL AREAS Exhibit VI-3, below, contains these proposed regulations. EXHIBIT VI-3 REGULATIONS FOR MINING ALONG COASTAL STRAND 1. Authority. Public Law 3-23, Commonwealth of the Northern Mariana Islands. 2. Mining along beach strand. Mining activities within the beach strand ecological zone are prohibited. 3. Mining along other coastal areas. Mining may be permitted in other coastal areas if it can be demonstrated that: a) such extractions cannot be feasibly supplied from inland locations; and b). such extractions will not have substantial or longlasting adverse impact on coastal zone resources; and c) the sand supply at the extraction site is sufficient to allow mining without adverse impact; and d) buffer areas are provided to screen in-land mining from coastal areas; and e) mined areas will be reclaimed and replanted; and f) mined and dirty surface water Pollution and waste materials and spoils disposal are controlled to minimize adverse impacts. 4. Mining along coastal streams. Excavations affecting coastal streams shall be permitted only when necessary for flood control and only if con- sistent with approved Commonwealth plans. Such excavation requires mitigation measures to: a) maintain sand transport capability; b) replace all fish, wildlife and habitat values; and c) protect recreational values. VI - 4 E. BEACH AND SHORELINE RESTORATION PLAN The Saipan Lagoon shoreline suffers from beach erosion at several sites, see Figure VI-1. In most cases, this erosion has been a progressive, long-term effect; however, periodic storm waves have accelerated some beach changes, especially when accompanied by high tides. The causes of these beach erosion areas have not been studied and are not well understood at this time. Engineering investigation of existing coastal geology and oceanography processes must occur before major restoration projects are undertaken. However, several types of remedial measures are already well developed by the U.S. Army Porps of Engineers; and their general planning applications and design principles are appropriate for certain Saipan Lagoon beach erosion sites. Such recommended measures are not to be construed as a substitute for professional engineering services which are prerequisite to properly designed shore- line restoration. Rather, they are described and .recommended as guidelines for those restoration plans. 1. Typical Remedial Measures for Beach Erosion Various methods can be employed to protect property from beach erosion and other wave-induced damages and, to replenish eroded beaches. Understanding the causes of erosion and the principles of design are the two keys in selecting the proper remedial measure. Esta- blished design principles include: adequate bedding for structural foundations; flank protection of revetments by return walls; structural stability of bulkheads or other structural devices; stone underlayers and filters beneath armour stone; and adequate elevation to prevent severe over- topping by waves. Erosion control measures are categorized as either non-structural or structural. Non-structural measures may include: taking no action (not considered in this PLAN); regulation of shoreline uses; relocation of existing buildings and roa-ds away from eroding land; beach fill and nourishment; piling supports for structures; and planting vegetation. VI - 5 joc@o+ -300 3001+- 5201+ 81001+ 21901+ Structural measures should be considered only when non-. structural measures cannot achieve the required shoreline protection. Structural measures may include: revetments; seawalls; other devices which protect the shoreline from direct erosion by waves; groins; offshore breakwaters; and other devices which protect the shoreline by controlling sand transport. 2. Non-structural Measures Obviously, some measures have interchangeable and/or multiple functions; but serious consideration is always given first to non-structural measures because they require the least effort (expense) and generally have the least adverse impact on the environment. Three types of appropriate non-structural measures for;. the Saipan Lagoon shoreline are described below. a) Shoreline Management. This is the remedial- measure employed.most fully. Preserving existing vegetation, strategic planting of erosion- resistant vegetation and requiring buildings and other structures to be located landward of erosion constitute the most effective measures for protecting property from coastal damages. This measure is implemented by virtue of the Seashore Setback Regulations proposed in the Land Use Plan Element of this SAIPAN LAGOON USE MANAGEMENT PLAN. b) Beach Fill and Nourishment. A sandy beach, provides natural protection against wave attack; but continuous erosion will eventually result in the long-term loss of sand. If that, loss is replenished with new material, the beach recession can be abated. Such nourishment measures require medium to coarse gravelsand compatible with that being replaced, to be successful. The sand fill can be dumped in a continuous blanket directly upon the eroded area, in stock piles at regular intervals along the beach, or on a feeder beach updrift of the eroding beach, allowing for wave action to distribute the material. Beach nourishment simulates a natural erosion control measure, and the resulting beaches are VI - 7 aesthetically. pleasing and provide recreation opportunities. However, this may become an expen- sive measure because the capacity of waves to remove sand could be so great as to preclude economic feasibility. Furthermore, a sand beach without some sort of structural back-up may not provide adequate protection against waves generated by periodic tropical storms and typhoons. Also, the regular displacement of sand from one area to another may be injurious to marine habitats. See Figure VI-2, Typical Beach Fill, for the cross-section,view of this measure. 50 Te> 100 WMI-FON@Av-= PZUN- OF A? Pt;@X tO 1-5 @3@H F1 W- WATE@Z RO I L@ F_ TYP[e-AL- PF-ALH PILA_ C) Vegetation. Although planting vegetation is most commonly associated with erosion protection of sand dunes (which do not occur along the Saipan Lagoon shoreline) this remedial measure does offer some value to the project area. VI - 8 Vegetation counteracts erosion because root systems bind the soil and also forms protective mats which resist,,erosion. Low-growing grasses and @coastal. shrubs that spread thickly and have extensive root systems are useful, such as Wedeli'a biflora;'Beach Morning Glory, Ipomoea pes-caprae; and Scaevola.taccada. Trees sucH as ironwoods are effective as coastal windbreaks. Of course, few species of vegetation can survive a constant onslaught of inundation by seawaters; and it take,s considerable time to establish a dense growth, even under ideal conditions". Consequently, the vegetation which does exist along the Saipan Lag-oon shoreline serves a valuable, time-tested purpose and.must be preserved and nurtured. 3. Structural Measures Four types of structural measures are appropriate for the Saipan Lagoon shoreline. They are stone revetments, masonry gravity walls', bulkheads and sand grabbers. a) Stone.Revetments. A revetment is nothing more than a protective facing which covers a slope from direct erosion by waves. Properly designed, revetments are time-proven measures for shore protection. They can be constructed of various materials, but rlarge coral' boulders (armour stones) are the most economical for Saipan. The armour stones must --be large enough or interconnected in order to-resist dislodging by waves. Also, armour stone revetments require: proper filter..material to prevent loss of slope material through the voids between stones; bedding stoneto distribute the weight of the armour'stones; and protection of the slope's toe and flanks. Generally the slope of revetments should not be steeper than 3,0%; and the quarry stones should be clean and free of cracks and cleavages. The largest stone should be not greater in size than three times smallest.stone, ruling out the use of broken asphalt or -concrete rubble as armour material. Advantages of revetments as remedial measures for shoreline erosion include: VI high resistance to wave damage; flexibility in that they can settle into und erlying soils and experience minor damage but still function without major repairs; and resistance to wave run-up and overtopping due to their rough surface. The disadvantages of revetments include: the heavy equipment and special skills needed to place armour stones; relative expense of quarried coral which is suitable for armour stone; and the large area r.equired to construct the structure; and unaes.thetic appearance compared to non- structural.measures. See Figure VI-3 for a typical revetment section. OF HF-16HT To t4mrr P ........... .. ARMOK UNrr H@@VY W.Avr-- r-.UNU F-NOUAR TO RF-61ST MWF_Hr:-- T WAVES @XJISTJ N4; 69A,0" TYPI _Ytr, or- -MAI,@rz Of= 54OUR 'F I L T PK RRJA@- 1/4@'Tc 160 1-15. 6T0Q.0iz wovv:_@J _.FIITEIZ C@-OTH TYP16A[, 'REVETMF_Wr 6S6TION b) Masonry Gravity Walls. Masonry gravity walls are common shoreline protection structures along coastal beaches. The wall must be designed so as VI 10 to resist the pressures of the retained saturated soil that tends to topple the wall seaward. This normally is accomplished by providing a broad base and by battering the backface of the wall away from the shore (See typical cross section in Plate VI-4). An engineering design analysis is needed to assure that the wall is*structurally stable. The base of the wall must be well below the maximum anticipated scour on its seaward side; and adequate toe protection is required to prevent undermining by waves reflected off the wall. An aggregate backfill apd weepholes are required for draining saturated soils. A splash apron behind the wall's crest will prevent overtopping waves from washing-out the backfill. The masonry gravity wall is a proven, moderately-priced, long-lasting, relatively main- tenance free remedial measure. However, these walls do require an experienced mason, and structural failures are difficult to repair. 18!1 1YFI' 60N6F?f_=T- CfZ AFROM 0, 7 7/ 7 L-1- t N-PYP 6p@=_V CIrAIV=LI 01Z 10 Tyr wo,@@,4 P'_A5T'IC WIS-MPHOI-E PF7,4,IN TUSW Tbr=. FISOTS65TION AJNP 6H'5Z.,' AciAlf4gr EXI@T- !@OJL@ PEATZili5i V.44-UE@@ ANTICIrPd@-V 560UR TYPICAL- 60N&'[@ETF- 09 61ZOUTEP MA60NA!ZY ,IRAVITY WAL-L- C) Bulkheads. A bulkhead is a vertical seawall, con- structed of sheetpiles that are driven into the ground or seabed, and stabilized by tie-backs. Sheetpiles are normally constructed of either VI steel, concrete or timber. The length of the sheets are determined by a ratio of being embedded to a depth of 1.5 to 2.0 times the height of the wall above the scour depth. A tie-back is needed to anchor the top of the bulkhead against soil pressures tending to topple the wall seaward, al- through free-standing alternatives, requiring sig- nificantly deeper penetration of the piles, can be designed. Bulkheads require substantial toe protection, usually provided by graded quarried stones. Bulkhead seawalls also require consider- able soils analysis and engineering design work. While they provide longterm, maintenance-free pro- tection of uniform appearance, especially for industrial and sh,oreline-dependent areas where land base is scarce, bulkheads do posses some disadvantages. The long tie-back feature does not adapt well where a building is situated close to the shoreline. Steel sheetpiles have a limited life because of salt water corrosion. Timber piles are prone to biological decay. The smooth v.ertical face does not absorb wave energy; and reflected wave energy may result in ,loss of sand that is seaward of the bulkhead. Repairs can be expensive, and pile-driving is a noisy, objectionable operation. See Figure VI-5. e-ME:F40- F 6" (A F_@ VI 12 d) Sand Grabber. The Sand Grabber is a patented devic e constructed of concrete building blocks that are hooked together with steel rods. The devices trap sand behind them as wave action carries water over and through the structure. The slower return-flow of the water that penetrates through the blocks allows the sand to deposit behind the structure. .The blocks can also be placed along the shore to form a revetment. This structure is inexpensive and allows easy ac- cess to the beach. However, the steel rods will eventually rust away, thereby allowing the blocks to disassemble. This remedial measure has not been proven functionally effective or structurally adequate over a period of time long enough to judge its life expectancy .and maintenance requirements. Therefore, it should be considered as appropriate for a short-term solution only. Also, without adequate protection, the seaward row of blocks may be undermined by toe scour. These installations must also be protected to prevent flanking failure. Figure VI-6, below, depicts sectional views of this measure. _;;CD(,K'5_6@CU;ZW WIN _M VI 13 F. RECOMMENDED SHORELINE EROSION CONTROL STRUCTURES AND ESTIMATED COST OF STRUCTURES AND PROMULGATING REGULATIONS FOR COASTAL AREAS Construction of erosion-control works -can have both favorable and unfavorable impacts on the Saipan Lagoon coastline: shoreline uses, adjacent properties, plants and wildlife are all affected. Shoreline protection control structur-es may hamper the natural littoral transport regime by creating a beach on the updrift side while inducing erosion on the downdrift side. A revetment may protect an eroding shoreline, but the material that is being protected no longer becomes available to supply the erosion occurring at downdrift beaches. Construction operations may create temporary turbidity and water quality degradation. The following erosion control structures (see Table VI-1) are recommended for correcting the shoreline erosion which now occurs at five locations along the Saipan Lagoon shoreline (refer to Figure VI-1). Additionally, a budget cost estimate is enclosed for the engineering design, plans and construction specifications. TABLE VI-1 RECOMMENDED SHORELINE EROSION CONTROL STRUCTURES AND COST ESTIMATES LOCATION LENGTH OF RECOMMENDED ESTIMATED COST EROSION.(LF) STRUCTURES OF STRUCTURE N.E. American + 300 Sand Grabber $ 196/L.F. Memorial Park Beach Fill $ 25/Cu.Yd,. W. American + 300 Sand Grabber $ 196/L.F. Memorial Park Beach Fill $ 25/Cu.Yd. Micro Beach/ + 520 Sand Grabber $ 196/L.F. Hafa'Adai Hotel Beach fill $ 25/Cu.Yd. North of Garapan + 800 Masonry Gravity Wall $ 330/L.F. Wharf Stone Revetment $ 40/Cu.Yd. North of San + 27190 Stone Revetment $ 360/L.F. Jose Subtotal (approx.) $1,500,000 Plans and specifications for constructione $ 1001000 TOTAL COST ESTIMATE $1,600,000 VI 14 The cost of promulgating the three sets of proposed regulations is similar to other regulation promulgation activities recommended by this PLAN. The estimated cost by CRMO staff is $1,000 for public hearings, promulgation and printing of the three sets of regulations. VI 15 CHAPTER VII INFRASTRUCTURE PLAN A. STATEMENT OF INTENT This SAIPAN LAGOON USE MANAGEMENT PLAN establishes, among other things, the preferable development pattern for the Saipan Lagoon project area by virtue of the proposed zones and land uses, regulations, and management policies. Second only to this PLAN achieving those desired uses and growth pattern is the importance of assuring sufficient, reliable infrastructure throughout the project area; because available capacity for water, wastewater and power are determinant forces for -managing any development plan. Infrastructure planning for the Saipan Lagoon project area can occur in either of two forms:- that of determination where development will (and will not) take place by providing for excess carrying capacity which can accommodate new growth, or, similarly, by extending utilities to areas where new projects have already been announced; or a preferred development pqtern: that of supporting preconceived regional development plans by providing for excess capacity in accordance with land use projections and, conversely, by not upgrading capacity in those areas where development has reached it determined saturation point. In the absence of an adopted, enforced land use plan for Saipan and its western shoreline corridor, infrastructure planning has basically taken the course of the first form: excess capacity being provided in the absence of land use planning or in reaction to proposed major projects which require extending and enlarging of utilities in order to service water,' wastewater and power requirements. This results in land use planning at its worst because the public facilities are reactionary to private development decisions. The Government's existing water and wastewater facilities plans are based on several sources of land use development and population projections. They have relied on the best (only) data available to date. With the adoption of this SAIPAN LAGOON USE MANAGEMENT.PLAN, however, a realistic land use growth and development pattern will be established for the Saipan Lagoon shoreline geographical area; and infra- structure planning should be revised to account for this VII - 1 information. Otherwise, the existing water and wastewater facilities plans will be fostering public investment in infrastructure which is out-of-step, and in some cases contradictory to, the land use development which is adopted .by this PLAN. Another aspect of infrastructure development, stormwater drainage and disposal, also suffer's from inadequate planning and technical adaptation for Saipan. As with proper., planning for water and sewer utilities, stormwater drainage facilities should be properly sized and designed to efficiently handle the intensity, volume and quality of,the Island's stormwater runoff. Presently, however, the CNMI government has not adopted design criteria and construction standards to guide the placement of stormwater drainage and disposal facilities. A design criteria manual is necessary to standardize these facilities (which become the responsibility of Public Works to maintain) and to assure that the design parameters reflect Saipan's climatological and hydrological characteristics. The intent of this Infrastructure -Plan, therefore, is to recommend detailed scopes of work for updating the Saipan water and wastewater facilities plans for the Saipan Lagoon project area, to recommend a scope of work for developing a sto.rm drainage criteria manual for guidindthe design of Saipan drainage works in order to handle the runoff into the Lagoon in an environmentally acceptable manner; and to develop infrastructure planning criteria to assess the im- pact of future development within the established land use zones that are recommended for the PLAN's project area. In addition to these new recommendations this Plan also endorses many existing recommendations for on going programs and for infrastructure improvements which are presented in other reports. B. WATER FACILITIES PLANNING FOR FUTURE SHORELINE USES The primary purposes of this section are: 1) to update and revise the existing water facilities planning to reflect the newly established land use and development plans established for the Saipan Lagoon project area as well as to correct the water consumption demands used as a basis for design in the 1982 Saipan Water System Study; and, 2) to endorse the Government's existing plans for establishing a Groundwater Management Plan Task Force. This water system planning shall determine the-necessary water production and transmis- sion system to support the overall development objectives and plan elements for the SAIPAN LAGOON USE MANAGEMENT PLAN. VII 2 1. Scope of Work In the Volume I, Chapter VIII, Section B.1.a "Problems associated with the Water System", it was disclosed that the planned water system improvements are under- designed by the year 1988. The following Scope of Work is recommended to correct that projection by upgrading the systemwide plans to accommodate the future Lagoon shoreline development based on current planning data. This projection deficiency in the 1982 Saipan Water System Study does not discount the many other recommen- dations for both system upgrading and operations/maintenance improvements, which are still appropriate. It is unnecessary to repeat all of those recommendations (many of which are now being imple- mented by the Government) in this PLAN; however, their overall importance to implementing this PLAN- certainly justifies inclusion by this reference. The specific tasks embodied by the scope of work for this Facilities Plan Amendment are listed below. a) Description and characteristics of the project area Topography Geology Land use development pattern Population projections Economic projections b) Existing water facilities Water production facilities Water distribution facilities Water system evaluation Management Operations Maintenance Sanitary survey requirements c) Water consumption requirements Historical production and demands Unaccounted-for water Per capita use Future public requirements. Future commercial requirements Islandwide future water requirements VII - 3 Design criteria Design period 'System pressures System demands Pipelines Storages Supply Treatment e) Water Quality Water quality criteria for domestic uses Water quality criteria for industry uses Water quality monitoring program f) Water supply and treatment alternatives Groundwater quality management Water reclamation Desalination Saltwater plumbing systems Recommendations g) Proposed water distribution and system improvements General Storage Distribution Hydraulic analysis Proposed improvements Cost estimates 2. Groundwater Management Task Force Inherent to this P.LAN's focus on water facilities planning is the assumption that an adequate quality and acceptable supply of potable water is available to the project area. The CNMI Government has iembarked on a program to protect its groundwater resources and to plan for their future use on a sustainable yield basis. This PLAN endorses those efforts and specifically proposes that a Groundwater Resources Manager position be established to implement objectives of the Task Force. VII 4 3. Estimated Cost and Project Schedule The estimated cost of the Water Facilities Planning is $85,000 and is not eligible for US EPA funding. This project Will take approximately six months to complete. The annual salary of a Groundwater Resources Manager is $30,000, plus an additional $10,000 for office administrative support, not including office space itself. C. WASTEWATER FACILITIES PLANNING FOR FUTURE -SHORELINE USES The primary purpose of this section is to update and revise the existing wastewater facilities planning to reflect the newly established land use and development plans established for the Saipan Lagoon project area as well as to correct the wasteload projections used as a basis for design in the 1977 Wastewater Facilities Plan. This wastewater facili-ties planning shall determine the necessary wastewater collec- tion, transmission, treatment and disposal system to support the overall objectives and plan elements of the SAIPAN LAGOON USE MANAGEMENT PLAN for the island's southern waste- water system, which data analysis from Volume I showed to be under-designed by the year 1988. There is no intent to amend Saipan's Wastewater Facilities Plan but, rather, to address the southern 'System's service area, which does not provide for the capacity that must be accommodated for addi- tional tourist facilities now under construction and proposed. Aside from the necessity to adjust future wastewater plan- ning projections so as to reflect the land use development pattern and development proposals presented in Volumes I and II of the PLAN, the most pressing need for this utility is its general upgrading, in consonance with other existing plans and recommendations. Improvements to the physical system, as presented by the 1977 Wastewater Facilities Plan, and, particularly, improvements to operations and main- tenance of the system as presented by both that Facilities Plan as well as by supplementary studies, rank as two of the Commonwealth's most urgent problems. It would be redundant for this PLAN to repeat those Wastewater Facility Plan recommendations; however, they are incorporated by reference as prerequisites to the full implementation of this lagoon use management PLAN. The need for these operators and maintenance improvements are well understood by the G'overnment, of.course; and much VII - 5 effort, but not enough funds, are already invested towards remedial action. The Saipan Lagoon and its planned shore- line uses cannot develop to their economic potential without the basic infrastructure improvements that is now budgeted in,the Commonwealth's CIP and O&M requests. 1. Scope of Work The specific tasks embodied by the scope of work for this Facilities Plan Amendment are listed below. a) Description of the project area and wastewater system service areas b) Environmental inventory of the project area Natural environment Land and lagoon Plants and animals Areas of particular concern and critical .habitats Manmade environment Demographic projections Land use development patterns Economic-development c) Water quality criteria Water quality objectives Water quality standards for lagoon and reef margin Wastewater system parameters Wastewater treatment requirements Sources of pollution d) Existing wastewater loadings and facilities Identification and characterization of wastewater loadings Flows Loadings Characteristics Existing wastewater facilities Collection systems Transmission systems Treatment and disposal systems Maintenance and operations e) Planning factors and wastewater design criteria Demography, land use and zoning Environmental and water quality considerations VII - 6 Historical and archaeological considerations Identification and characterization of future wastewater loadings Identification of potential wastewater treatment and disposal sites f) Wastewater system alternatives Collection system alternatives Transmission system alternatives Treatment and disposal system alternatives Efficient disposal alternatives Innovative/alternative system approaches Sewage sludge disposal g) Evaluation of alternatives Preliminary screening for methodology, technical application and selection of alternatives Construction impacts Natural environment Manmade environment Operational impacts Natural environment Manmade environment Operational and maintenance manpower, skills and availability of supplies Cost for capital replacement, 0 & M and life cycle costing Final Evaluation Environment impacts Social impacts Present-worth costs Cost effectiveness Prioritized ranking of alternatives h) Review by CNMI Government and incorporat ion of appropriate comments i) Final evaluation and recommendation of selected wastewater systems plan j) Implementation plan and schedule Sub-projects schedule Capital improvements schedule Phased development for systemwide operations VII k) User charge rates Operational costs Capital costs User statistics Cost per user 2. Estimated Cost and Project Schedule This wastewater facilities plan for the shoreline area of the southern wastewater system will cost approxi- mately $40,000 and take about four months to complete by a professional engineering firm that is familiar with Saipan. This work is not eligible for US. EPA funding. D. STORM DRAINAGE DESIGN CRITERIA MANUAL The purpose of such a Storm Drainage Design Criteria Manual is to technically guide storm drainage planning and design throughout Saipan. General hydrologic and hydraulic prac- tices as well as drainage design problems in Saipan must be addressed in detail. The primary thrust of the Manual is be to treat storm drainage as ,an infrastructure subsystem of the total urban infrastructure system.- Likewise, drainage management should be considered as an integral part of Saipan's entire water resources management effort. Planning for interdiscipl,inary resources a-nd other community infra- structure must be related to drainage policies wherever possible in order to achieve an overall, better environment. The contemplated use of this Manual will',,be for Commonwealth of the Northern Mariana Islands designers, engineers '; and planners, consulting engineering firms, and other agencies or organizations having development responsibilities in the Commonwealth. The Department of Public Works shall have the design criteria adopted by Legislative resolution as CNMI policy. 1. Scope of Work The Scope of Work to prepare this Manual must stress three primary purposes. Give direction to the Commonwealth Government agencies in order to support and assist private decisions about drainage, plans and improvements. Give direction to the Commonwealth Government agencies for guiding and regulating private developers in regards to drainage matters. VII 8 Provide a framework for all public agencies in the Commonwealth to manage flooding and drainage problems. The specific tasks embodied by the Scope of Work for this Manual are listed below. a) Establish storm drainage policies and planning principles adopted by the Commonwealth and recommend amendments or additions as necessary. b) Compile all applicable Commonwealth and Saipan laws, ordinances and regulations which relate to storm drainage. c) Conduct a rainfall data analysis to determine: general characteristics of frequency; basic precipitation data; and frequency-intensity- duration analyses. d) Recommend methods to improve the availability and reliability of precipitation data. e) Describe the use of the Rational Method of statistical analysis for determining runoff and its application to Saipan-specific precipitation. f) Recommend appropriate design procedures for storm drains on Saipan, including: sizing of storm drain systems; hydraulic design of storm drains; design standards and criteria; and sample problems for storm drain design calculations. g) Recommend appropriate design procedures for storm water drainage from streets, including: design criteria for urban streets; design criteria for rural streets; and design criteria for intersections. h) Establish policies for street drainage and facilities maintenance. i) Determine types and sizes of appropriate storm drainage inlets, including: procedures for selection and use of various types of inlets; design of curb opening inlets; and design of grated and combination inlets. VII 9 Determine appropriate design procedures for major drainage works including.: open channels; box culverts; large pipe culverts; riprap; and sediment-control. k) Determine - appropriate design criteria for hydraulic structures, including: energy dissipaters; channel drops; bridges; acceleration chutes; bends; and baffle chutes. 1) Determine appropriate design criteria, capacity charts and nomographs for inlets and culverts, including: concrete box culvert inlets; long condutt inlets; and trash racks. M) Determine appropriate design criteria for upstream and downstream storage facilities, including maintenance procedures. n) Determine appropriate design criteria for storm water disposal alternatives including: discharge to streams; discharge to lagoons; discharge to the ocean; and discharge by means of infiltration. 0) Recommend appropriate- means of floodproofing against storm water drainage, including: non-structural alternatives; structural alternatives; and construction procedures. 2. Estimated Cost and Project Schedule A project of this scope will require up to twelve months to complete complete and cost between $45,000 to $60,00 '0 (depending on the amount of data available or furnished by the Government) by .a professional engineering consultant. VII 10 E. PLANNING CRITERIA FOR EVALUATING DEVELOPMENT IMPACTS ON INFRASTRUCTURE. New development and changing uses along the Lagoon's shore- line will exact certain impacts on the project area. These impacts vary in nature and degree with the types of new development and uses that are introduced. Hotels, multi- unit residential complexes, industrial facilities and energy-related facilities can be expected to create the most significant shoreline and lagoon impacts. Park and recreation areas, conservation areas, commercial sales and services, and single-family residences generally create less severe and more easily manageable impacts. The targets of such impacts also vary with respect to the types of new development and uses that are introduced. Impacts from people-intensive activities, such as hotels and apartments or condominiums, will strain the Commonwealth's water, sewer, power and telecommunications systems. Commercial establishments of the types most @typically found in the PLAN's project area, on the other hand, contribute more heavily to the congestion of Saipan's transportation facilities than to community utilities. Industrial and energy-related facilities are most likely to impact on air quality and on the Lagoon's water quality. It is important to understand the impacts that can be reasonably anticipated by new development and uses within the Saipan Lagoon project area. By intelligently antici- pating the cumulative effects of these impacts it is possible to invoke mitigating measures where appropriate and/or plan for additional community infrastructure to accommodate the eventual nee,d for increased demands. The purpose of this Section is to develop criteria and an im- pact rating system to evaluate the impact of large-scale proposed development within the project area. The most likely type of new, large-scale coastline developments are hotels and multi-unit residential complexes. The most significant impacts of such projects affect the following infrastructure. Water service Sewer service Electrical power Storm drainage system Telecommunications Roads and parking VII 1. Water Service The Saipan Water System Study calculated average residential water consumption at 130 gallons per capita per day (gcd). This is a projected rate, based on 24- hour water service. While apartment houses and condominiums are not particularly profilic on Saipan, the typical multi-family unit has two bedrooms and is occupied by 4 people ( *2 adults and 2 children). The water demand for each such typical unit is, therefore, 520 gallons per day. The demand for water by hotels must be calculated somewhat differently, however. On the whole tourists are more mobile than residents; and their demand for water is more distributed throughout the island such as at parks, shopping areas and other tourist attractions. Additionally, tourists do not generate all of the typical water uses of residents such as for laundry, car washing, irrigation, etc. For purposes of this analysis, therefore, a tourist is assigned a water use factor of 80% that of a resident, or 104 gcd. Since the average occupancy of a hotel room is 2 guests, the average water demand, per guest room, is calculated as 208 gallons per day. It must be remembered that these calculations for water demand are based on consumption .and, therefore cannot be translated into water produc- tion requirements without accounting for water loss in the system due to leakage. Consumption plus leakage equals water production that is necessary. An ancillary water demand by hotels and multi-unit residences is required for fire fighting capacity (fire flow). According to the Saipan Water System Study, the fire flow capacities are calculated by population. For communities the size of Chalan Kanoa and Garapan, for example, the flow in gpm is 1750 for a duration of seven hours. For the smaller villages such as San Roque, Tanapag and Susupe the fire flow is 100 gpm for,a duration of four hours. 2. Sewer Service Assuming mandatory connection to a public sewer system ,(a reasonable assumption for large scale developments) the demand generated for sew Ier-service is computed as a factor of water usage. It can be reasonably assumed that water consumption and sewage flow are equal since non-sewered water such as for landscaping, irrigation, car washing, exterior maintenance of building and walk- ways are negligible. In short, then, average daily VII 12 generated sewage flows are 2,16 gallons per hotel guest room and 520 gallons per apartment/condominium unit. However, demand analysis of a sanitary sewer system must take in account the peak flows which are likely to occur. Peak flows reflect the day-to-day living patterns of residents and tourist and result in a multiplier effe-ct of 3.5 over the average flow quantities. 3. Ellectrical Power Service A standard basis for design to provide el-ectrical power for hotels and multi-unit residential complexes is 13.8 KV distribution and 30 amps for a 200 room hotel 10 amps.for a 50 unit residential building 4. Telecommunications A standard basis. for design to provide telephone service for hotels and multi-unit residential complexes is: one private line per 10 h-otel guest' rooms, plus 10 additional lines one. private line per residential unit. 5. Roads and Parking Only a small percentage of Saipan tourists rent vehicles or mopeds. Consequently, the major traffic generators by hotels are buses, delivery vehicles, employee vehicles, and local guests. Because few activities are available to Saipan tourists by walking, tour.buses are used for sightseeing tours, shopping, airport transportation,. entertainment. and eating. It is likely that, on the average, each tourist uses a bus once a day. Of course, not every 40- passenger bus is fully occupied, because the trips are pre-arranged as optional transportation services. Based on 50% ridership on each bus, each 200 room hotel would generate 10 primary round trips (once leaving the hotel and once returning); but that trio generation can be doubled to account for shuttling the empty buses to and from the hotels. For planning purposes, therefore, each 200-room hotel can be expected to generate approx- imately 40 vehicle traffic counts at a-hotel each day. Delivery vehicular traffic is a function of goods and services purchased by the hotel. VII 13 Employee traffic can be calculated at two vehicle trips per employee per day, based on the average hotel employment ratio of one employee per room. Minimum parking requirements for commercial and resort developments have been established in the "Zones and Land Use Districts Act" within Section 9, subsection c(5) and subsection d(5), respectively. For commercial developments, minimum parking space requirements are one space for every 200 square feet of commercial floor area and for restaurants and bars the requirement is one parking space for every four customer-seats. For resort deve'lopments the minimum parking requirements are one space.for every five guest rooms, plus one parking space for every four customers seats in a hotel's restaurant and bar. F. IMPACT EVALUATION BY MATRIX While it is important to accurately judge the anticipated impact to infrastructure from hotels and multi-unit resi- dential complexes, other types of impacts (and other types of projects) must al:To be included when evaluating any proposed projeetts overall impact. Many types of methods are available for evaluating impacts. Because.the environmental assessment process often produces a large volume of unorganized new, data, impact evaluation methodologies should achieve the following results. organize a heterogeneous mass of data summarize the data aggregate the data into smaller sets (with minimum loss of data) extract salient features display both the hew data and the derived in- formation in a meaningful way. Of the 70 or so data evaluation techniques in use today, some of the most popular ones include averaging, correla- tion, cost/benefit analysis, curve-fitting from benchmarks, Delphi technique, factors analyses, flow charting, indices and indicators, mapping, matrices, networks, overlay techniques, preferential ordering, public meetings, regression techniques, trend extrapolation/projection, and utility assessment. Because of inherent limitations in manpower and data collection techniques within the Coastal Resources Management Office, the most appropriate assessment methodology at this time appears to be the matrix. Matrices can be structured to build on data which are generally obtainable by CRMO from sources such as: VII 14 * a project report describing the proposed devel- opment; * a visit by the site investigator; and * a review oflexisting plans and studies deal'ing with the site in question. The more sensitive type of matrix will record not only the types of impacts that can be anticipated but also the inten- sity of those impacts. Most matrices, however, emphasize the inescapability of the need for impressionistic ratings because: many criteria do not lend themselves to numeri- cal or other forms of objective analysis; even where numerical data or indices are readily available, they are often relevant to only a part of the particular rating; and the very large number of matrix cells usually required will preclude extensive data acquisi- tion and analysis for each cell, any one of which might be expandable into a complex study of its own. Such weighting schemes must be recognized as solely judgmental, because it is impossible to assess any multi- criter ia issue without such subjective analysis. Initial judgments can generally be made about a proposed project, and then the final conclusion can be tested for sensitivity over the full range of value weights. Obviously, this method encourages (and relies on) the use of expert judgment. Table VII-1 depicts the matrix recommended for use by the Coastal Resources Management Office. This cause-effect matrix is adapted from the U.S. Geological Survey's Circular 645.. This matrix method includes an "importance value" for each impact in addition to the "magnitude value". The importance value is intended to encompass the subjective evaluation assigned to each criterion by CRMO. For example, in evaluating a proposed beachfront'project on Saipan, CRMO would . probably consider the Lagoon's quality (impact "Lagoon, d1l) to be more important, relatively, than the value of beach sand at the project site (impact "On-shore, all). Thus, CRMO can determine a numerical weighting to establish the relative difference in importance between these two (and the other) particular impacts. The magnitude value, of course, represents the severity of the impact as a result of a specific proposed development and alteration to the existing environment. VII - 15 The list of actions can, of course, be expanded as experience and circumstances dictate; although it is now comprehensive enough to indicate the general type of actions to consider and to stimulate further discussion. The first step in this procedure is to check each column corresponding to an action that is associated with a particular project. For each column that is marked, the boxes corresponding to the impacts are examined. For each box, a magnitude and importance are specified on a scale of 1 to 10. These two numbers are placed in the box and separated by a slash. Each project would have a separate matrix, and.the basis for assessing the activities and the'values associated with the project are based on the professional judgment of the Coastal Resource Management Office planners and/or of other designated staff. VII 16 LT - IIA REsOUp__z TRANSFORMATION OF ECOLOCICAL ZONES DIFICATION OF EXTRACTION ECOLOCICAL ZONE .Z w @6 !I 5r r 0 20xwwwoOnwgovgQaw -1 -4 0 m 0 0 E:j j a @ "" w In -1 -n -V M P:oo-=oA,-,oa a rn > r- :,c H -3 000 r. En m P3 cl a > = M > " p = a mt-in 7* " a X n " = t- > 0 - m = m = w j - 9 " o gi@ @m= 0 Q n cl C, 0 tn 0 rn q 0 rn on 0 no .4 M x ?_ 2: 3:p = = @ Z 0 < 0 0 96 6 = L- 0 8 tn c 0 tn a ty En -4 n 0 0 0 0 4 C= f-I 0 = An (n 0 - m tn 8 0 r. -4 0 9 En > 0 0 m Am 0 to ta c 7- tn 0 > =0 A -a cl m > En a A 0 -4 ul < 0 ul 0 (A.0 m rn 10 1 lol, I I I I I I PROPOSED AEFIOUS a. MINERAL RESOURCES 0 b. SOILS r c. LAND FORM La :9 d. WETLANDS Ln A e. t-ANGROVES LJ__ BEACH OTHER' a. SURFACE 0 b. SUBMARINE c. SUB-BED d. QUALITY T1 t c V.' Aj7. RECITARdf -tv. CURRENTS h. OTHER. a. C)LIALITY rA > MICnO-CLIHATC t" 0 rn TEMPERATURE -11 dc * OTPE:R ?11 a- FEDOOZZIG b. EROSION tn c. DEPOSITION (SED./PRECIP.) d. SOLUTION 0 SORPTION (ION EXCHANG-E.C0 -IlPLEXIfJG*,l tn f. COMPACTION ;UID SETTLING a. STABILITY (SLIDES) h. STRESS-STRAIII (EARTHQUAKE) i. AIR MOVaIENTS j. OTHER a. WATER SYSTEM En be SZWER SYSTEM c. impm 5RArNAGE d. TELECOt-U-IUNICATION POWER ACCESS TREES b. SHRUBS c. GRASSES 0. 0 d. CROPS cl e- MICPDFLORA n f. AOUATIC PlkNTS. a. E140ANGERED SPECIES h. BARRIERS 0 j. CORRIDORS j.OTHER a. BiRDS b. LANO ANIMALS INCLUDING REPTILES (n FIS11, SHELLFISH BEImlic 01tcAtilsms e. !NSECTS A. mic;tOrl"UNA a. ENDMIGERED SPECIES 7-77-14 1 1 1 1 1 -+44-Ll. ::P- OTHEa PART THREE LAGOON WATERS USE PLAN ELEMENT CHAPTER VIII - LAGOON WATERS USE PLAN A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTIFICATION OF PROBLEMS Visual observations and analysis of data gathered through questionnaire interviews indicated that existing. recrea- tional uses within the lagoon are numerous, particularly in view of the growing tourist industry on Saipan. The Saipan Lagoon represents a substantial recreation arena and major recreational uses within it include the following: Swimming Snorkeling Scuba Diving Boating (power and sail) Water Skiing Surfing Spear Fishing Gathering The Lagoon's massive expanse-of water spans the entire west coast of Saipan and represents a vast open space. Its constant change of color and texture creates unlimited visual attractions and sets the stage for one of Saipan's more exciting recreational activities: to face the challenge of wind and waves or to submerge into an underwater world of tranquillity and mystery. It is the promise of the unspoiled experience of these qualities which attracts visitors to the Saipan Lagoon. These waters also contain great economic resources: fish, shell-fish, crustaceans, algae and seagrass and other valu- able marine organisms which are collected for daily subsistence and retail sale. The. survival of these activities and resources is in jeopar- dy. Lagoon resources adjacent to population centers are being endangered or destroyed because of insufficient envi- ronmental planning and forethought. Sedimentation in estuaries, bays and lagoons f 'rom accelerated man-induced erosion and surface runoff related _'to construction, land clearing and landfilling have always been a problem in developing areas. It is probably the greatest environmental threat to all emerging Pacific nations today. The impact of viii 1 suspended silt and deposited sediments,on the reef flat and near-shore coral reef communities are potentially devas- tating and can be irreversible. Ocean and lagoon.conservation measures cannot focus solely on the marine environment to the exclusion of the terres- trial or coastal environment. Since the ratio of coastline to land is high on a small island, uncontrolled land use or poor land management practices can directly impact nearshore and lagoon marine resources. Thus, conservation measures directed at the marine environment must necessarily address potential developmental problems associated with adjacent shoreline areas. The physiographic transition from terrestrial to coastal to the marine environment must not be viewed as separate zones but rather as a continuum, with an interchange of physical and biological attributes occurring between the various habitat areas. The assault against any one of these three physiographic environments may be expected to produce accom- panying changes in the remaining two and, ultimately,. on the entire marine environment. The Saipan lagoon and, in particular, t-he Tanapag Harbor area have been extensively modified by dredging and shore- line construction activities. All this has, no doubt, produced,impacts to benthic flora and fauna. Fish dynami- ting and cloroxing have also damaged extensive areas of patch reefs. Saipan has the largest lagoon of the entire Northern Marianas Archipelago. Seaward from the long west-coast beach is a shallow lagoon of approxim 'ately 20 square miles which is walled-off from the Philippine Sea by a barrier reef that lies approximately two miles offshore at the '7 harbor en- trance but approaches the shore with a fringing reef at its northern and southern ends. Just north of 'the harbor entrance is the small islet of Managaha, consisting of loose limestone that extends to only eight or ten feet above mean tide level. Excellent reefs are found along the south and west sides. Some of Saipan's "fringing reefs" are actually sealevel benches composed of volcanic material with an appreciable organic component at the submerged face. At the south end of Saipan, however, are 11 true" fringing reefs with de- pressed reef flats that support extensive growth in a typical lagoon environment. Access between the lagoon and deep oceanic water is by several natural and a few manmade channels. The main channel is the Tanapag Harbor entrance at mid-island. Two VIII - 2 small boat channels have been built into the boat docks at Garapan and Chalan Kanoa. There are also two natural surge channels located at the south end of the reef and near San Jose 'Village. These latter channels are used by boats in emergencies only and are generally navigated only during daylight and under very calm conditions. With such diverse natural and man-made re/sources, excellent accessibility and scenic beauty, the Saipan Lagoon becomes a focal point for recreation within the CNMI and particularly to Saipan. It is a valuable resource in itself as noted in Volume I and apart from daily use by local residents,tourism accounts for the largest single use of the beaches and lagoon recreational resources. All tourists spend time on the beaches and swim in-the near-shore lagoon waters of both Saipan and Managaha. Tourist related boating activity ac- counts for a larger part of daily water borne traffic flow in the Saipan lagoon. The majority of this activity occurs near-shore between the Hafa Adai and Hyatt Hotels,. on the west coast of Managaha and on a rather direct line between these points. Larger boats dock in Smiling Cove and operate in the channel to Managaha. Water-borne traffic on these routes is composed of five types of craft: Small to large ships Glass Bottom Boats (25-40 ft) Motorboats (16-25 ft) Sailboats (14-80 ft) Wind Surfers Adequate facilities do not exist for the safe operation of boats in proximity to swimmers or other lagoon users. For example, of the six docking/loading facilities on Saipan four do nothing to discourage swimming in the same general area and two of these ( Hafa Adai Hotel, Hyatt Regency .Hotel) are in direct conflict with tourist swimming beaches. The prime concern here is boating traffic patterns around waters where swimmers congregate. Such conflicts exist in three separate areas: Managaha Island, Micro Beach and in the vicinity of Puntan Susupe. Recent deaths of tourists due to motorboating accidents indicate a serious problem. .Boating traffic patterns in the Saipan Lagoon reflect general congestion in the central Tanapag Harbor area. Glass bottom boats take passengers to and from Managaha Island on a regular schedule and usually stop to view under- water wrecks on their morning runs. These boats position themselves over the submerged wreck and sit idle for a few minutes before moving on. Small sailboats, Hobie Cats and other, small catamarans sail between Saipan and Managaha Island regularly. An 80 ft catamaran sails regularly VIII 3 between Saipan and Tinian. Wind surfers use the shallow lagoon just off Micro Beach and Managaha Island. Motorboats operate between a few docks on Saipan and Managaha Island carrying passengers. Other small motor boats pull water skiers in the lagoon near Micro Beach and in shallow water of Managaha Island. Jet skiers and other small motorized, single-person speed boats operate in an oval area just off the main hotel beaches. Large ships (cargo and passenger) operate in the main Tanapag Channel between the harbor entrance and Charlie Dock. Small to medium sized fishing and pleasure boats operate in the vicinity of Charlie Dock and Smiling Cove, moving across to the harbor and harbor entrance. Numerous areas within the lagoon are considered excellent diving spots either for fishing, gathering or just exploring. These include shallow patch reefs near the lighthouse, Paupau Beach and near Managaha Island. Under- water wrecks- are dived regularly in the outer lagoon, particularly near Managaha Island. j B. OBJECTIVES FOR LAGOON USE PLAN ELEMENT The objectives for this PLAN element follow those objectives identified in the SALAPAT planning sessions. They are summarized as follows: Water Recreation Zone Plan a. Recreational use zones for Saipan Lagoon b. Water safety information program c. Water Recreation Advisory Board Water Hazards and Marine Nuisance Abatement Plan a. Removal of lagoon hazards b. Abatement of marine nuisances VIII 4 CHAPTER IX - WATER RECREATION ZONES PLAN A. STATEMENT OF INTENT The variou 's recreational uses and port traffic patterns in the Saipan Lagoon (Figure IX-1) suggest a complex use pat- tern that requires serious evaluation in order to protect individual users from accidents. This is o;bvious from recent accidents where tourists were seriously injured or killed by boats. The intent of this water recreational zone plan is to design a water recreation zoning scheme that will allow all acceptable water uses in specific areas where they are compatible. B. RECREATION USE ZONES FOR SAIPAN LAGOON Recreational zones are established to eliminate the conges- tion of multi-uses in specific areas of the Saipan Lagoon. These areas, noted in Figure IX-2 involve shallow lagoon water in front of Micro Beach, Puntan Susupe and Managaha Island. It is not possible to zone all lagoon uses such as diving, sailing or surfing. However, it is possibl-e to zone swimming areas and the various motorboating activities like paras,ail operation, general motorboat travel,'jet skies and waterskiing. The following section identifies the various lagoon recreational uses and establishes standards to insure the concurrent safety of all uses. 1. Swimming Zones Swimming zones should be established by hotel policy and roped-off from other uses in the following areas, as depicted in Figure IX-3. Royal Taga/Grand Hotel Hafa Adai Hotel Intercontinental Hotel Hyatt Hotel Paupau Beach Managaha Island These areas do not have to be large: they can be 100x100 feet. However, they must be roped-off with buoys.in order to keep all other uses out of- the area. Swimmers who venture outside of this area swim at their own risk. Boaters who operate boats in the vicinity of these swimming areas must do so cautiously, move not greater than 5 mph and keep a watchful eye for swimmers. Swimming zones should be marked as such and, if possible, patrolled by a qualified lifeguard. Ix 1 J0001", ewimmim:h M.Ae-H5-, wM4 f5c,-@Ne, 144-nviTy E50,-5-T. EAUN6HI" 5a6aNP^KY Tg,&,pFle, FZOUTEA5 41@ ICRO PF,'&ZH H,6@0 R OW rMK POCK r--'Of:<T AW2 HAF@J?@C@@ -rlr F:A6 I L@ I ze7 7 1 D@41 Aq P M 442 , I N 5 L-E@ENP; 3w -5uKF-INA ic --cZt A;c I N T H I PAN JF-T wlr;@ WIN12 AKFA WIM HOPa e-AT,5AILANCj 1-,Al Ll Wj VII 2. Diving Zones Skin and scuba diving usually occurs on off shore reefs or reefs and wrecks within the lagoon, (Figure IX-3). It is not practical to establish diving zones except where marine parks exist such as the proposed under- water trail at the Managaha 'Island Marine Park. However, for the sake of safety, divers should comply with established safe diving techniques. The major safety technique for divers involves the use of a "'Diver Down" flag, either towed behind the diver on a tube or displayed on the dive boat. 3. Boating Zones* Boating involves-numerous kinds of watercraft. This plan does not include a boating zone for.the movement of large ships in and out of the main Tanapag channel to the commercial pier at Charlie Dock. Commercial cr4aft including foreign vessels (particularly large ships) are presently controlle.d by the Coast Guard through the International Shipping Rules and Regula- tions. Local protection would be redundant and ..unnecessary. Therefore, this plan deals with smaller boats which utilize the lagoon waters. a. Jet Skiis. Although jet skiis do not have propellers, they'move sufficiently fast to cause serious damage upon collision, and there are some small (single engine) power boats which operates like jet skiis that do have propellers. These craft should be operated only in specific areas. Each hotel or beach concession should define the boundary for their use sufficiently far enough off-shore so as to not pose a threat to swimmers. There is intense competitiveness among the hotels for beach and lagoon recreational uses. As successful i-deas are generated by one hotel other hotels usually follow suit. In-the same light, if successful safety practices are initiated by one hotel, others will follow. It is best to leave the initiation of such safety precautions to hotel owners, unl'ess a specific problem can be identified and solved by the government in harmony with the hotel owners or hotel association. An acc,ess channel from the beach to the operating area shoul.d be defined. The access channel should be roped- off and marked accordingly on the beach. IX 5 An offshore jet ski-operational area should be buoyed-off at either end and near the middle to adequately define the area. Swimmers should be aware of these.operation areas through warning signs placed at convenient locations on the beach. b. Water Skiing. -Water skiing can be a dangerous sport to both the skier and others in the water if precautions are nottake'n. Like jet skiis, water skiing should occur far enough from shore to be completely away from swim- ming areas. Skiing should take place away from coral or rocks and in deep enough water to prevent injury to the,skiers, should they fall. Skiing areas should be designated on beach maps and posted so that all swimmers and other lagoon users know their location. Water skiers should not start their runs from the beach. 'Ski boats should move safely away from the beach area and begin ..their run in the designated skiing areas offshore. The Boating Safety Act states that "boats should be 200 yards from shore for more than 5 mph speed." Ski areas are noted on Figure IX-3 for hotels. and tourist oriented operation's. The CRMO, .through the seminar suggestion below, can work with the hotel association to designate these areasand operate within them. P. Sailing. Sailing encompasses two distinct categories of vessels. The greatest number of sailing vessels involve wind surfers, while the other-category involve true sailboats, like small monohulls,.Hobie Cats or similar craft. Sailing is considered an area-wide Lagoon water sport and there is no particular zone for sailing in the Lagoon (Figure IX-3). It is important for the sailor to stay out of and away from swimming zones and away from zones used for other craft like jet skiis or water skiboats. Although this is not possible at all times, it should be stressed that being in the wrong zones will create a risk to the operator of both vessels. Operators of all vessels must understand that sailing craft, under sail power alone, h'ave the right-of-way under International Rules of the Road, except in a confined channel. The responsibility for boating safety must start somewhere. The Coast, Guard already has responsibility. However, with their limited IX - 6 budget they, like the CNMI government, can only do so much. In this case it is suggested that a seminar be set up between the CNMI government, Coast Guard 'and Hotels in order to establish safe water craft operational areas. 4. Surfing Ther.e are Six surfing sites along the west coast of Saipan. All but one of these are located on the reef. Only one area within the Lagoon offers quality waves for surfing. This is on patch reefs off Micro Beach. Surf does not occur frequently on the fringing and barrier reef but depends on swell patterns usually associated with tropical depressions, storms or typhoons. Given these conditions, however, both locations have excellent surf conditions. Surf zones are not commonly established 'anywhere, although in heavily populated areas, -like California, surfers do have particular spots that swimmers must avoid. Most often, however, surfers must avoid established swimming areas. It is not@ realistic to establish surfing zones within the Saipan Lagoon. However, it is important for all lagoon users to know where popular surfing areas are located (Figure IX-3) in order'to use or avoid them. 5. Water Recreation Advisory Board There are a number of concerned organization on Saipan that can help to improve the-safety of lagoon users. These include: Department of Public Safety through the Boating Law, Mari-anas Visitors Bureau, Coastal Resources Management Office through their permitting authority, Port Authority and the Hotel. Association through their concern 'for hotel guests. Each element shares a common 'element, safety of those who use the' Saipan Lagoon. Because of the number of concerned organizations an organized Advisory Board could do much to promote safety of all lagoon users. The board should be com- prised of one representative from each of the five aforementioned organizations. Meetings can be held monthly or at a convenient schedule based on necessity. A lead agency can be decided by active members. Tasks can be assigned based on arealistic division of labor and costs can be shared based on level of responsibility. 6. Cost Estimates for Establishing Recreation Use Zones through an Advisory Board. IX. -7 These costs amount to the. following. Administrative Rules and Regulations $1,000 Zoning Maps 250 Public Education 5,000 Materials Beach Signs (Public Works) 1,500 Handouts 500 Maps 500 TOTAL $8,750 Proposed here is a set of signs designating swimming zones, ski zones, parasail zones and other uses in the water. These could be placed at the appropriate beach sites. In addit:ion, public information handouts designating the areas (zone) on a map with brief explanations should be proposed. C. WATER SAFETY INFORMATION PROGRAM A comprehensive Water Safety Information Program is an essential element for water oriented developments along the Saipan Lagoon coastline. Saipanese and Carolinians use the marine environment for subsistence purposes and for recrea- tion. Boating plays an important role with in island environments. The.,number and type of boats operating in the Saipan Lagoon are quite varied and increasing annually. The number of passengers carried by the larger vessels are. also increasing annually, especially those carrying passengers to and from Managaha Island and on sunset/dinner cruises. Boating safety is not the only important element in a Water Safety Information Program. Residents and visitors alike use the lagoon for a number of other purposes, including swimming, diving and beach combing. Each of these uses carries certain risks that pose hazards to the users. Specific water recreation use zones do much to protect lagoon users from inherent dangers. This section of the Plan deals with some basic water safety information concepts designed to improve user awareness and safety. The CRMO, as a permitting agency of the CNMI government, has the , responsibility to protect coastal resources. Recreational uses are essential resources within the coastal zone. However, this does not necessarily mean that the CRMO should get involved in regulating recreational uses. It is IX - 8 more important that they help other regulatory agencies like the Department of Parks and Recreation or the Department of Public Safety deal with these problems more effectively. In addition, specific issues like swimming areas and other hotel related recreational areas should be regulated by the hotels. It is the hotel's responsibility to provide safe recreational areas for their visitors. 1. Boating The U.S. Coast Guard is the basic element of a boating safety information and education program in all U.S. waters. The Coast Guard does have legal jurisdiction within Saipan waters and throughout the CNMI. However, because of a lack of personnel only infrequent visits to Saipan are made by Guam-based Coast Guard personnel. Duties additional to regular station activities include safety inspections and documentation of vessels. These personnel have all jurisdiction to cite vessels for infractions of U.S. Coast Guard Rules and Regulations, inspect boats, license skippers, observe for- infractions and monitor for--oil spills. The lack of adequate personnel to patrol these waters poses serious pro6lems. in light of the increased boating activity in the area and in regards. to the groups of Japanese tourists that utilize water-borne vessels for sight'seeing and transportation to and from Managaha Island and throughout the Saipan Lagoon. A boating safety program is essential, particularly on Saipan where various forms of waterborne activities prevail. The Coast Guard is no longer meeting this responsibility regularly. It is now being provided by the local CNMI government through the Department of Public Safety which has a,,limited budget and cannot meet the demands of the program. However, this does not relieve them of their responsibility, and an emphasis should be set on essential elements of a boating safety program for the Department of Public Safety. In this light the primary thrust of a boating safety program should be aimed at vessels carrying passengers- for-hire, especially those which move between Saipan Island and other islands like Managaha and Tinian. The essential elements of such a boating safety program are as follows. Licensing Rules of the Road Seamanship First Aid Ix - 9 Navigation Mechanical Knowledge Life Saving Fueling , 0 Knowledge of Local Waters' Inspections Equipment Certificate of Numbers .Sign Posting 5 mph speed limit in selected channels and recreation areas By making a 5 mph speedlimit in selected channels and recreation areas a requirement for vessels carrying passengers-for-hire to be licensed, private sector support businesses may emerge.. These might include services such as teaching courses on basic boat handling;, navigation,, first aid and other aspects of of boating safety. 2. Swimming A This Plan calls for specific swimming areas to be roped-off, particularly in the vicinity of hotels. This precaution will be a major step toward the preven- tion of those accidents caused to swimmers by boats., Such swimming zo'nes will not necessarily prevent swim- ming accidents caused by dangerous marine life such as stone fish, jellyfish or sea urchins or related to hazardous conditions, such as strong currents or rip- tides. 'Whatever the hazard, users of the Lagoon need to be informed as to where they occur, how to avoid them, and what to do if they are affected. One of the most effective methods to generate awareness is a public information program aimed at a large percentage of lagoon users. Presently, the CRM office publishes a newsletter on various aspects of the envi- ronment including a section about the Saipan Lagoon. The newsletter is written in English/Chamorro and in- tended for local residents. This is obviously a beneficial activity. However, much can be done to improve residents' and tourists' knowledge of water safety. Following are some of the most important con- cepts of a Public Awareness Information Program that CRMO should implement as a part of their program. Ix - 10 Radio Initiate public service announcements devoted to basic water safety awareness, using case histories as examples of the right and wrong ways to handle oneself in and around the water. Television 30-second to one-minute spots covering lagoon uses and potential hazards. Site specific examples, documented cases of injury, explore why these accidents occurred and how they could have been prevented. Newspaper - Following current practices, continue to relate stories of importance regarding lagoon hazards and the consequences of misuses. Call attention to other information about water safety. Posters - Develop a series of posters depiciting various water safety hazards, conse- quences of misuse a-nd methods of proper handling or treatment. These should be trilingual English/ Chamorro/Japanese and should be posted in hotels and other places where totirists/residents will see them. This could be an annual high school project sponsored by CRMO, with prizes for the winners. Brochures - Develop a sho r't brochure that describes lagoon uses, use zones, hazards, con- sequences of misuse and what can be done for the prevention or treatment in the case of acci- dents. This document could be placed in each hotel room and/or distributed to each potential user of the lagoon. Signs Post signs along the, beach where particular uses are allowed or prohi- bited. These would include swimming zones, boat docking zones, strong currents, surf, riptide or other such hazards. These signs should be written in English/Chamorro and Japanese. 3. Cost Estimates for Water Safety Information Program Media Campaign Develop 30 second 00C 60 second public service announcements on Radio, and TV $1,000 Ix -.11 Develop Education Articles For Newspaper 500 Develop Posters (20) 500 Construct and erect signs (10) 12000 Develop Brochure (1000) 3,000 TOTAL $67000 Ix 1,2 CHAPTER X WATER HAZARDS AND MARINE NUISANCE ABATEMENT PLAN A. STATEMENT OF INTENT The intent of this Plan is twofold. First, it will help to abate the problems of jellyfish, Ancanthaster and other nuisance animals in the Lagoon. Second, it will provide for the r-emoval of water hazards in the Lagoon. As a result of analyzing personal interviews and field investigations there is a need to establish abatement measures for eliminating common or cyclic nuisances found ..within the Saipan Lagoon. These nuisances were identified in SALAPAT I & II. The most common nuisances are those that affect lagoon users, particularly swimmers or divers, like jelly fish as well as those nuisances that indirectly affect -everyone through the destruction of coral reefs, like the Crown of Thorns starfish. The- proposed Plan also seeks to identify reasonable abatement methods to enhance -the safety of - lagoon users from hazards such as scrap metal on the beaches and in the water, stinging jelly 'fish, (particularly the Portuguese man-of-war) and protect the coral reef-s' from destruction by the Crown of Thorns starfish. The- Plan identifies the need for protection from these hazards and nuisances and details a plan of action in the form of lead agencies to carry-out.appropriate-abatement measures. B. REMOVAL OF LAGOON HAZARDS Hazards to lagoon use 'rs are found primarily along the beaches and in near-shore waters. These hazards include a substantial amount -of scrap.metal, classified@here as junk, most of which remains from-World War II. The impact on the environment from scrap (junk) metal cannot go unmentioned., Besides the aesthetic element, scrap metal rusts and begins to break apart littering the shoreline and water offshore with loose debris. Large rusting hulks discolor the sand and leach metal into the near-shore environment', changing ambient conditions to less desirable conditions. Some plants cannot survive in heavy iron sit-uations. Scrap metal on beaches trap sediments and sand which can build into mounds,- covering the.entire structure. Although the junk. may be out-of-sight, this is usually temporary in nature. Large storms can clear these.sand deposits in a matter of hours leaving the junk visible and hazardous. Most impor- tantly, scrap metal on beaches is dangerous to beach users, particularly children who like to climb around on the debris. Numerous cuts, often quite bad,.result.from these x 'i objects. Not, only is this junk a hazard to all lagoon users, it is also unsightly and a visual blight on what is otherwise an extremely beautiful beach. and lagoon setting. War-related junk is found along the entire west coast of Saipan. However, the quantity and location ascrap metal at a few areas pose particularly serious problems. Such junk should be removed from the following areas. North and south of Sugar Dock. In the vicinity of Garapan Dock. In the vicinity.of the Puerto Rico Dump. In the.vicinity of the Seaplane Ramp and Puntan Flores. C. LOCATION AND EXTENT OF MARINE NUISANCE ANIMALS The crown-of-thorns starfish was sighted in water 20 feet deep along the entire outer reef. Numbers were highest in the south and decreased towards the north. Unusually high numbers were observed just inside the harbor entrance at various shallow patch reefs to the southwest of Managaha Island. Very few starfish were observed in shallow lagoon water. 'The crown-of-thorns starfish is a pest of major concern. Thomas F..Goreau, noted ecologist, witnessed over 90 percent coral destruction,by the starfish on the patch reefs west of Managaha Island in 1969 (Goreau, 1969). Regrowth has been excellent, particularly in light of the 1973 starfish infestation. In only 15 yea *rs-the majority of the patch reef area has been completely restored.. However, the destruction of the corals within the proposed underwater trail is a threat now. Birkeland's 1983 st:arfish infestation prediction was extremely accurate, and the animal is well established along Saipan's western reef system (Birkeland, 1982). From the south, the starfish has moved into the Lagoon through the Tanapag Harbor Channel entrance and through depressions in the barrier reef and is making its way north along the inside of the barrier reef directly toward the reefs and a proposed site for the underwater trail. -Preliminary counts estimated the starfish at 250 for the 18 acre (73,000 m2) site. Th-is is a significant and recent increase. Removal of these starfish is especially needed on selected reefs in the vicinity of Managaha Island, specifically at the proposed underwater trail site and nearby reefs. This should.be an on-going process to ensure protection of the area. X 2 An Acanthaster removal program, even though limited in scope to only cover t 'he reefs within the proposed Managaha underwater trail area, will likely be labor intensive and and costly. If volunteer help from a local dive club and other concerned citizen groups are not feasible, then the program will require a considerable amount of operational funding. Realistic cost estimates should be calculated after all donated resources can be determined. This starfish removal program is not designed to eliminate all the starfish in the Saipan Lagoon or even. all the animals within the proposed underwater trail area. It is merely a protective measure to ensure healthy coral communities on the patch reefs within the vicinity of the underwater trail. Although the corals eventually regrow in a damaged area, and the species diversity often increases, when the percent of damage is high the beauty and attraction of the underwater trail will be seriously degraded and create a negative impact on the numbers of tourists who want to visit the park. It is now generally accepted by most contemporary biologists that Acanthaster infestations are cyclic phenomena triggered by periods of drought followed by:-heavy rainfalls and subsequent runoff from the land... Increased nujt@,rients enter the water and result in a higher survival rate for the starfish, which drift about and filter feed on planktonic organisms during their larval stage. The.end result is much greater numbers of adult starfish approxim'ately three years following such an event. Observations.support the belief that the Acanthaster outbreaks eventually''Irun their course" and return to normal populations on the reefs. Since Acanthaster is a natural-part of. Pacific coral reefs and, therefore, plays a role in the ecosystem as a whole, a credible argument can be made for ignoring the starfish over-population, even if it enters a sensitive area like a marine park. The starfish then become a dynamic part of the coral reef community and, as such, are an "attraction". If they do enter the park area and it *becomes obvious that a substantial quantity of corals will be lost, control mea- sures within the park should be considered. The Stinging Jellyfish and Portuguese Man.-of-War are animals with little or no mobility of their own. Although most jellyfish can swim, they usually ride@on ocean currents and winds, like the Man-of-War, until reaching shallow water where they wash-up on a beach or.rocky coastline. These animals are a nuisance, since *some have powerful stinging cells. They are most dangerous while still in the water where the stinging tentacles are extended into the water column. Swimmers do not usually see these animals and X 3 become draped with the stinging tentacles on virtually any part of their bodies. These animals can also remain dangerous after washing-up on the beach. Children have been stung by sand that carries the remains of stinging cells left from a jellyfish or Man-of-War. Others have been stung on the foot or ankle as they step on these animals during a stroll on the beach. Stinging Jellyfish or the Portuguese Man-of-War were observed on a numbei- of beaches from Wing Beach south to Micro Beach. Prevailing northeast winds and currents drive these animals to the closest point of land. Very few were observed in the water or-on beaches south of,Micro Beach. D. MARINE NUISANCEABATEMENT PLAN The objectives here arefourfold. Determine the extent of the reef killing threat of the crown-of-thorns starfish. Determine whether infestation is a cyclical phenomenon orthe result of environmental imbalance. Determine what benefits, if any, result from infestation. Determine the ecological signi- ficance of the crown-ot-thorns starfish. Provide@ongoing monitoring. The Plan of Action is as follows. The Department of Natural Resources will act as the lead agency for nuisance abatement. Through the, Division of Fish and Wildlife the Department of Natural Resources will esta- blish a Nuisance Abatement Program. Personnel of the' Division of Fish and Wild- life will monitor the lagoon and beaches to determine whether the area is experiencing any nuisance like the crown-of-thorns star- fish or jellyfish. When identified, the Division of Fish and Wildlife will notify the Director of Natural Resources. The Department of Natural Resources will then implement the following plan to abate the problem as follows 1. Crown-of-thorns Starfish Nuisance Abatement Plan a) Personnel from the Department of Fish and Wild- life having identified areas for potential ,destruction shall: X 4 * Organize diving teams to remove the star- fish from selected area-s * Diving teams should include regular per- sonnel from the Division and special in- terest groups like dive clubs and other concerned citizens. b) Abatement methods involve the use of Formalin injection, cutting the central organs from the body or removal of the animal from the water. The best method depends on available funding; equipment and personnel.- c),Abatement will continue only as long as the immediate problem persists in areas where coral destruction is deemed detrimental by CNMI officials. 2. Jellyfish Nuisance Abatement Plan a) Personnel from the Department of Natural Re- sources, Division of Fish and Wildlife and the @-Coastal Resources Management Office will be responsible for identifying the threat of this nuisance during regular monitoring and work activities in near-shore water and on the beaches of the Saipan Lagoon. b) When a potential nuisance poses a significant health hazard Directors of Natural Resources and CRMO shall be notified. c) Methods for removal of high concentrations only work when the animal is beached. Crews must shovel or rake the animals into piles and then remove them in containers. While concentra- tions are high in the water, officials should ,notify people to stay-out of the water and post warning signs accordingly. d) Notices shall be displayed in appropriate places so that the potential Lagoon users will be aware of the danger. Notices shall be in bilingual Japanese/English and displayed or announced on: Sign posts along the beaches that are affected. Radio and TV announcements Newspaper articles CRMO Newsletter articles x 3. Monitoring Program The Department of Natural Resources through the Division of Fish and Wildlife, monitors marine waters in the CNMI. The monitoring strategy is basic and only weekly supported with personal and budget. The aim is to monitor the marine environment and its changes over time. The strategy should meet the objective. Possibly the program need revision to down-scope the weekly and monthly tasks to fit available personal and budget. A monitoring program for marine nuisances shall include the following steps: Establish six transects along the outer reef, each one mile long. Establish six transects along the inner reef, each one mile long. Establish at least two transects along the west and southwest side of Managaha Island. Monitor these transects at least every 60 days. E. BUDGET ESTIMATE FOR MARINE NUISANCE ABATEMENT AND HAZARDS REMOVAL PLAN Nuisance abatement plans and measures require the allocation of time on the part of the Division of Fish and Wildlife through the Department of Natural Resources for monitoring on a regular basis. Monitoring of the entire lagoon from the. beaches seaward to the 60 foot contour should be a regular part of the Division of Fish and Wildlife routine. Monitoring activities for the Crown of Thorns starfish will take approximately 2-3 days for each 60-day period. Similar monitoring activities for other nuisance animals in near- shore water and on beach*es will take 1-2 days each 15-day period. Cumulative time for both activities amounts to approximately 2.5 mandays per working month. Equipment required for monitoring the Crown of Thorns starfish includes a boat, towing sled and scuba equipment. At least two individuals are needed to survey in this manner. Other equipment includes air fills, truck and boat trailer. Monitoring for other nuisance animals near shore and on the beaches involves one person and a vehicle. Cost of labor would amount to approximately $150 for two workers per month for 2.5 days. Cost of equipment to monitor for the Crown of Thorns starfish would cost approximately $50. Total budget for one month's monitoring X - 6 would cost approximately $325 and require no more than two workers and no more than 20 cumulative hours. Total annual cost is approximately $4,000. Junk Removal for the specified location shall be accomplished as follows: Personnel from the CRMO aided by the Historic Preservation Officer will survey areas identified in this PLAN and other areas where scrap metal and other junk exists on the beach or in shallow water. Determine which pieces should be removed. Findings shall be turned over to the Department of ,Public Works who will contract for this service. The contracted cost of removing this scrap metal is approximately $100,000. X PART FOUR BEACH PARKS AND RECREATION PLAN ELEMENT CHAPTER XI - BEACH PARKS AND RECREATION PLAN A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTIFICATION OF PROBLEMS Opportunity abounds for public recreation within the Saipan Lagoon and along its shoreline. .From the project area's most northern tip at Wing Beach in the Magpi Planning Area to the most southern extremity at Agingan Point in the Puntan Afetna Planning Area, seventeen beach areas are for- mally recognized as public recreation sites along the Lagoon's shoreline. Additionally, Managaha Island is a very popular recreation destination for residents and tourists. This balanced distribution of shoreline sites averages slightly more than one recreation area per mile: a very favorable ratio. Table XI-1 depicts the Planning Areas and public beach recreation sites in each Area. TABLE XI-1 BEACH RECREATION SITES BY PLANNING AREA Planning Area Beach Recreation Site Magpi Wing Beach Unai Matuis Dikike Unai Paupau Unai Achugua Tanapag Harbor Unai Tanapag DPW Beach Managaha Managaha Island Puntan Muchot American Memorial Park Micro Beach Garapan Lagoon Unai Garapan Unai Chalan Laulam XI 1 Puntan Susupe San Jose Beach Civic Center Beach Royal Taga Beach Unai Susupe Unai Chalan Kanoa Puntan Afetna Unai Afetna While beach-oriented public recreation sites,are relatively abundant, basic park-type improvements are either non- existent, too few-, or s-ubstandard at most sites. Consequently, insufficient passive and active recreation opportunities are presently available to the public, despite the ample amount of beach strand and backshore land now designated for these pursuits. An inventory of all parks and beach recreation sites is presented in Volume I. The type of facilities and improvements determined to be most needed generally include: Maintained access from Beach Road or some other improved, nearby right-of-way for vehicles and for bicycles. Parking areas, large enough to accommodate anti- cipated requirements but located away from the beach and barricaded to prevent vehicular access to the beaches. Maintained, operational restrooms. Picnicking facilities, including tables, benches, barbecue pits, trash receptacles and potable water service. Permanent pavilions of varying sizes. Permanent park benches. General recreation areas and playfields for unor- ganized sports and games. Sports facilities such as courts and fields for volley ball, basketball, tennis, softball and touch football. Launching facilities for small boats. Playground apparatus for pre-school and elementary school-age children. B. OBJECTIVES The eight specific objectives that were developed for the public recreation and beach park element of this SAIPAN LAGOON 'USE MANAGEMENT PLAN, are consolidated into the following four general objectives. 1) Outdooor Recreation Plan. .An Outdoor Recreation Plan for Saipan will provide for XI - 2 an acceptable level of outdoor public recreation oppor- tunities to . serve Saipan's resident and tourist population. (Conceivably, such a Plan should be part of an overall' CNMI Outdoor Recreation Plan encompassing Saipan, Tinian and Rota). At least three classifica- tions of parks and recreation sites should be addressed for Saipan. a) Commonwealth Parks and Forests which commem- orate sites and events of historical and/or natural importance and serve all residents of Saipan. The American Memorial Park and the Marpi Commonwealth Forest are examples. b) Community Parks which primarily serve nearby community and village residents with a full array of passive and active recreation opportunities, although not all types of facilities are located at each site. The size, facilities and proximity of these sites are basically established by the needs and preferences of the village to be served. Unai Paupau is an example of a Community Park for the village of San Roque. c) Village Parks and Playgrounds which provide special purpose recreation opportunities and are gen4rally smaller in size. Playgrounds and athletic facilities at public schools are typical examples of recreation resources in this category., as well as tot lots and other isolated sports facilities (i.e, public tennis courts and track and field). These types of parks and facilities are sometimes incorporated within Community Parks and the Commonwealth Park, especially along shorelines in conjunction with beach parks. However, playgrounds must be site-dependent on walking distance to residential areas, therefore they will often occur near to housing, independent of other types of parks. 2) Upgrade Beach Park.s Upgrading beach parks and shoreline recreation facili- ties within the project area must be accomplished to conform to the proposed Saipan Outdoor Recreation Plan. This objective includes designating the seventeen existing sites into an islandwide park and recreation system- and, accordin,gly, to determine the necessary improvements including access and parking, picnicking XI - 3 facilities, additional trees, more and better main- tained restrooms, and upgrading of boat launching'faci- lities, etc. 3) Establish New Beach Park Establishing a new beach park in the southern region of the project area, in the Puntan Susupe/Puntan Afetna Planning Areas is necessary. This site should become a well developed community Beach Park. 4) Bicycle Route Providing for a Bicycle Route which links the Saipan Lagoon shoreline recreation sites with a safe corridor for bicycle riding is desirable for both local and tourist recreational use. XI 4 CHAPTER XII - SAIPAN OUTDOOR RECREATION PLAN A. STATEMENT OF INTENT An Outdoor Recreation Plan for Saipan has been established as an objective of the SAIPAN LAGOON USE MANAGEMENT PLAN and as a,prerequisite to-providing for an acceptable level of islandwide passive and active outdoor public recreation opportunities for residents and tourists. The extent of accomplishing this objective involves: Establishing a Scope of Work to gu ide the formulation of a Saipan Outdoor Recreation Plan; and Estimating the cost of such Plan if it was prepared through professional consultant services. B. SCOPE OF WORK FOR SAIPAN OUTDOOR RECREATION PLAN The following scope of work highlights the basic tasks to be covered during the formulation of a Saipan Outdoor Recreation Plan. Inventory islandwide public outdoor recreation resources. Conduct a survey of recreation preferences by residents and tourists. Develop a needs assessment to compare the availa- bility of recreation resources with the public's preferences . and the established recreation facility standards for Saipan. Establish goals and objectives for development of Saipan's outdoor recreation resources. Establish a classification of park and recreation area development which addresses:. Federal/Commonwealth Parks and Forests; Community Parks and Recreation Areas; and Playgrounds and Sports Facilities Prepare a comprehensive development plan for each park and recreation area classification Si.te specific physical improvements Site specific program improvements XII - 1 Cost estimates for improvements, operations and maintenance Cost estimates for necessary land acquisition or/other appropriate development rights Prepare a comprehensive management plan for ad- ministering and financing the islandwide park and recreation system. Managerial responsibility for each classification of area Rules and regulations Legislation Operating and CIP budget forecast Opportunities for financial support from the Federal government and other sources Present plan alternatives an.d proposed regula- tions, administrative guidelines and managerial policies to affected agencies and groups. Present proposed Plan to public Prepare final Plan for official adoption C. COST ESTIMATE AND PROJECT SCHEDULE The cost for such a Plan will range between $30,000 to $50Y000by a private consultant, depending on the amount of basic data collection that is required or provided by the Commonwealth Government. A reasonable project schedule is approximately eight months. XII 2 ,CHAPTER XIII BEACH PARKS AND SHORELINE RECREATION FACILITIES IMPROVEMENTS PLAN A. STATEMENT OF INTENT The existing beach park and shoreline recreation facilities along the Saipan Lagoon need upgrading in order to provide an acceptable level of recreation opportunities to residents and tourists. Physical improvements, new facilities and better maintenance all fall within the scope of upgrading. The extent of accomplishing this objective involves: Designating the existing beach parks and recreation areas into the three classifications of Parks to be established by the proposed Saipan Outdoor Recreation Plan. Determining the full complement of facilities and improvements that should be provided at each of the parks. Assessing the inventory of existing facilities and im- provements now available at each site, as presented in Volume I. Establishing the scope of facilities and improvements upgrading that are necessary at each park, including design and construction budget estimates. B. CLASSIFICATION OF SAIPAN LAGOON BEACH PARKS AND RECREATION AREAS The general criteria for park classification are outlined in Section C of this Chapter; and more articulate criteria will be developed as part of the proposed Saipan Outdoor Recrea- tion Plan which encompasses islandwide recreation resources. Nevertheless, it is necessary to preliminarily classify the beach parks and shoreline recreation areas within this pro- ject area in order to establish'the level of improvements and facilities to be provided.at each site. Table XIII-1 presents the classification of beach park and shoreline recreation areas. Those parks which overlap into two classifications must provide recreation opportunities that will serve the intended purposes of each classifica- tion. Each classification of parks is also presented on Figure.XIII-1. XIII - 1 TABLE XIII-1 CLASSIFICATION OF BEACH PARKS AND SHORELINE RECREATION AREAS .PARK CLASSIFICATIONS Planning Village Parks Community Commonwealth Area and Playgrounds Park Park or Forest Magpi Unai Paupau Wing Beach Marpi Unai Achugau Boomtown Beach Commonwealth Unai Paupau Forest Unai Achugau Managaha Managaha Island Park Tanapag Unai Tanapag Harbor DPW Beach Puntan American American American Muchot Memorial Park Memorial Park Memorial Park Micro Beach Garapan Lagoon Unai Garapan Una-i Chalan Laulau Puntan Civic Center San Jose Beach Susupe Beach Civic Center Unai Susupe Beach Royal Taga Beach Unai Chalan Unai Susupe Unai Chalan Kanoa Puntan Unai Afetna Afetna XIII - 2 @S@FA6H AN P vlt A A NM NAM C0MMQNWF-Ai.TH PA4RY, OR COMMUNITY FPAKK @@F_ fUvAgK AN12 y4F;? C. PRELIMINARY:NEEDS ASSESSMENT AND IMPROVEMENTS PLAN FOR VILLAGE PARKS AND PLAYGROUNDS Four Village Parks and Playgrounds are associated with beach parks within the project area. They are at: Unai Paupau, serving San Roque Unai Achugau, serving Tanapag American Memorial Park, serving Garapan Unai Susupe, serving Susupe Understandably, these four areas are also parts of other parks within Saipan's islandwide park system, and those uses will be addressed later iyi this Chapter under improvements for Community Parks and for Commonwealth Parks. Further, these four areas are not necessarily the only Village Parks and Playgrounds to be designated for the respective villages they serve but, rather, the only village parks and playgrounds within the PLAN's project area. Other such village-level parks are likely to be designated by the proposed Saipan Outdoor Recreation Plan and accompanied by site specific im@rovementplans and budgets. A Needs Assessment for Village Parks and Playgrounds is generally computed in r-atios of standards such as park areas/population or facilities/population, where the population. is determined by walking. distance from the park. Contemporary standards range from 1.0 to 2.5 acres/1,000 population for "neighborhood" parks, with such typical facilities as playground equipment, multi- purpose court, multi-purpose fields, benches and land- scaping. In Saipan villages, as in most residential areas, these types of facilities are usually developed in conjunction with elementary schools. More specialized athletic and sports facilities are usually found on the campus of a junior and senior high school. While some playground equipment is already available near Unai Paupau (at the San Roque Elementary School) near Unai Achugau (at Tanapag Elementary School) and near the American Memorial Park (at Garapan Elementary School) these facili- ties are, in whole, inadequate for two reasons: The existing facilities are insufficient to meet the needs of the walking distance population at San Roque and at Tanapag; and In consonance with one of this Plan's primary goals, "to retain traditional uses and values of the island", recreation areas should have an orientation with the sea; therefore, all parks, including these proposed Village Park and Play- ground improvements, these should be developed XIII - 4 at the Unai Paupau and Unai Xchugua beach parks so that the traditional environment is captured as part of the recreation experience. The foll owing improvements are recommended at the four sites in order to provide for Village Park and Playground recreation opportunities. Due to the linear, beach strand configuration of Unai Paupau, Unai Achugua, and Unai Susupe, improvements at these three sites must be limited to equipment facilities rather than space-occupying fields and courts. TABLE XIII-2 VILLAGE PARKS AND PLAYGROUND IMPROVEMENTS Parks Improvements Unai Paupau Benches, 4-6 Enclosed tot-lot play area, 20'x 30' Playground apparatus:, 2-3 types Unai Achugua Benches., 4-6 Enclosed tot-lot play areas, 20'x 30' Playground apparatus, 4-6 types American Memorial Park Benches, 4-6 Enclosed tot-lot play area, 30'x 30' Playground apparatus,. 4-6 types Unai Susupe* Benches, 4-6 Enclosed tot-lot play area, ,201x 30' Playground apparatus, 2-3 types D. PRELIMINARY NEEDS ASSESSMENT AND IMPROVEMENTS PLAN FOR COMMUNITY BEACH PARKS The Saipan Lagoon Shoreline creates some of the most out- standing community park resources in Micronesia. While Community Parks can take on various forms and purposes depending on their size, proximity to residents and tourists, and natural amenities, the 16 community parks within this project area are all properly sub-classified as "beach parks". It is unnecessary to plan for identical improvements at each beach park inasmuch as a formal needs .-assessment XIII 5 conducted as part of the-Saipan Outdoor Recreation Plan would reveal that some of these parks should be exten- sively developed while others should be left, more or less, in their natural state. For purposes of this Saipan Lagoon Use Management Plan, therefore,. these beach parks are divided into two subclassifications: Beach - Park Natural (to be retained basically in its natural state); and Beach Park - Developed (to be improved for more intensive uses). These two sub-classifications are presented in Table XIII-3 as depicted on Figure XIII-2. T@BLE XIII-3 COMMUNITY PARK SUB-CLASSIFICATIONS AS BEACH PARKS - NATURAL AND BEACH PARKS - DEVELOPED Beaches Parks - Natural Beach Parks - Developed Wing Beach Unai Paupau Unai Matuis Dikike Unai Achagua Unai Tanapag DPW Beach Micro Beach Unai Garapan Civic Center Beach Unai Chalan Laulau Unai Chalan Kanoa San Jose Beach Unai Susupe Royal Taga Beach Unai Afetna E. DESCRIPTION OF RECOMMENDED IMPROVEMENTS AT BEACH PARKS The basic character of Beach Parks - Natural'is one of low- intensity development, natural environment and passive recreation opportunities. Unimproved (without asphalt) access roads and parking areas, no public restrooms or picnic facilities and little or no -beach maintenance are typical of this category of beach parks. Table XIII-4 lists the improvements recommended for each Beach Park - Na-tural. Table XIII-5 lists the improvements recommended for each Beach Park - Developed XIII. - 6 .60MMUNITT P,4KK,57 MA4H F41;@K - @?F-VE LOFEP NATIJRAI@- ,-',OHM UNITY OFACH PAfZK - WATUP-AL@ //C\V 60MMUNIT-f @@CH rAzy- TABLE XIII-4 IMPROVEMENTS FOR BEACH PARKS NATURAL Public Improvements Park Existing Facilities Needed Wing Beach Access road, compacted Road main- coral, 1500 linear feet tenance, semi- (if) annually,where needed Mowing and trash clean-up Trees Parking, compacted, coral, for 10 vehicles, with barriers Unai Matius Dikike Access road, coral, None 1200 if Unai Tanap-ag Pedestrian acc-esses, Clearing of two at 300 if each path for access to beach Trees Parking along access road, Widening of (back road between Public road shoulder Works and Tanapag) to accommodate parking for 10 vehicles Unai Chala,n Laulau None None San Jose Beach Picnic tables,3 Repair existing Playfield tables and add 3 more Barbecue pits, 2 Tables Trash containers Trees Parking, compacted coral for 10 vehicles Royal Taga None None, except as may be provided by adjacent resort XIII 8 TABLE XIII-5 IMPROVEMENTS FOR BEACH PARKS DEVELOPED Public Improvements Park Existing Facilities Needed Unai Paupau Access road, compacted Road maintenance coral, 600 if semi-annually, Picnic tables, 6 where needed Camping area, Parking,compacted coral for 20 vehicles, with barriers Add 6 picnic tables, Add 6 trash con- tainers Public restrooms at pavilion Trees Benches, 8-10 Unai Achugua Access road, coral, Picnic tables, 6 200 if Barbecue pits, 4 Benches, 6 DPW Beach Access road, coral, Semi-annually 400 if road maintenance where needed Pavilion Parking,clear for 10 vehicles Picnic tables, 2 Barbecue pits, 2 Benches,.2 Trash containers,1 Micro Beach Access road, paved and Pave portion which compacted coral, 1600 if is presently com- Public restroom pacted coral Pavilion Enlarge parking Picnic tables, 5 area to accommodate Volley ball court 40 cars and bar- Playground ricade parking lot boundary Picnic tables, 6 Barbecue pits, 6 Benches, 10 Unai Garapan Access road, compacted Dock and channel coral, 300 if as recommended XIII 9 Launching ramp by USACCE Fishing dock Parking, paved Parking for 6 vehicles for 25 vehicles and boat trailors Picnic tables, 4 Trees Play field Barbecue pits, 2 Benches, 6 Trash containers,3 Upgrade playfield Public restroom Civic Center Access road, coral, 50 lf Picnic tables, 12 Beach Park Parking for 15 vehicles Benches, 10 at north end and for 15 Barbecue pits, 12 vehicles at south end Upgrade restrooms Picnic tables, 6 Trees Public Restrooms Tennis court Unai Chalan Kanoa Access road, paved, Parking, compacted 150 lf coral for 10 vehicles Picnic tables, 5 Barbecue pits, 4 Benches, 5 F. COMMONWEALTH PARKS The only park of this classification in this PLAN's project area is the American Memorial Park. This park's. site improvements are already planned and presented in the September 1983 "American Memorial Park - General Management and Comprehensive Design". G. ESTIMATED COST OF PARK IMPROVEMENTS Park improvements budgets are presented in Table XIII-6 for each Park. These budgets were prepared on the basis of unit costs for the various facilities being recommended. Inasmuch as unit costs can vary depending on such factors as field conditions that may be encountered, the number of contractors involved with the improvements and other design- dictated requirements, a lump sum budget estimate is presented for each park. It is recommended, however, to let- out one design contract for all improvements in order to reduce the cost of plan preparation for similar facilities at different parks and for standardizing the design. details and construction methodology of the improvements. The estimated cost of design for all recommended Park improvements is $10,000. XIII - 10 Th.e budget. estimate of $90,600 for construction of park improvements is summarized below. 40 TABLE XIII-6 BUDGET ESTIMATES FOR PARK IMPROVEMENTS Village Na'tural Beach Developed Location Park Park Beach Park Wing Beach na $3,000 na Unai Paupau $3,400 na $107000 Unai Achugua $4,800 na $ 3,500 Unai Tanapag na $2,000 na DPW Beach na na $ 3,500 American Memorial Park $5,200 na na Micro Beach na na $15,000 Unai Garapan* na na $18,000 Civic Center, Beach Park na na $11,000 San Jose Beach na $2,800 na Unai Chalan Kanoa na na $5,000 Unai Susupe $3,400 na na $16,800 $7,800 $6 1 00 Not including USACOE recommended dock and channel xiii 11 CHAPTER XIV - AFETNA BEACH PARK PLAN A. STATEMENT OF INTENT The southern Saipan Lagoon shoreline has but a dearth of park and recreation improvements. The growing population of southern villages need more park and recreation areas. Such a need, coupled -with an overall -objective of geographically balancing the Island's developed Beach Parks, have resulted in this Plan for the Afetna Beach Park, located in the Puntan Afetna Planning Area. The elements of a plan for Afetna Beach Park include improvements and new facilities necessary to design and construct a well developed Community Park along Afetna Beach,at the former US Coast Guard LORAN Station site (now CNMI public land). Because this site holds substantial value for other public or commercial leasehold uses, the Beach Park Plan is concentrated in the southern portion of the property, thereby reserving the remaining northern area for other future uses. The intent of this SAIPAN LAGOON USE MANAGEMENT PLAN is to recommend a site development plan for the Afetna Beach Park, complete with design and construction costs. B. AFETNA BEACH PARK IMPROVEMENTS Presently the Afetna Beach Park area is unimproved, with the exception of two picnic tables and shelters at the beach's southern end, near Agingan Point. As a well-developed Community Beach Park, the following improvements and facilities should be provided. Access road, compacted coral, 1200 lf Parking, compacted coral for 20 vehicles Picnic tables, 10 Barbecue pits, 6 Benches, 8 Trash containers, 10 Restrooms Outdoor Showers Pavilion, 301x 401 Playground apparatus, 3-4 types Playfield for soft ball, volleyball A general recreation area Additional trees XIV 1 C COST OF IMPROVEMENTS Table XIV-1, below, itemizes the cost estimates for Afetna Beach Park Improver@ents. TABLE XIV-1- COST OF IMPROVEMENTS AFETNA BEACH PARK Facility Amount Estimated Cost Access road, compacted coral 1200 if $22,000 Parking, compacted coral 20 vehicles 3,000 Picnic Tables 10 3,000 Barbecue Pits 6 1,000 Benches 8 1,000 Trash containers 10 500 Restrooms with outdoor showers LS 10,000 Pavilion 301x 401--i' 201000 Playground apparatus 3-4 types 1,5G.0 Playfield for soft ball, volleyball and general recreation area LS 3,000 Additional trees 50 500 $b5,500 Contingency 4,500 $70,000 The surveying costs and engineering design fee should be budgeted at $10,000. XIV 2 CHAPTER XV SAIPAN LAGOON SHORELINE BICYCLE ROUTE PLAN A. STATEMENT OF INTENT Due in part to the increasing interest being demonstrated by residents and tourists in bicycling on Saipan, a bicycle route is recommended to connect the Lagoon beach parks. Such a plan must include a defined corridor stretching from Wing Beach to Unai Afetna, along with appropriate improve- ments and traffi'c safety features that cater exclusively to the cyclists. This Shoreline Bicycle Route Plan presents the site-specific improvements and their associated costs for implementing the objective. It is understood that Saipan has more to offer bicyclist's than only a route linking the Lagoon's beach parks. Those other, islandwide, recreation opportunities for bi- cycling wo'uld be explored and developed as part of the proposed Saipan Outdoor Recreation Plan. Bicycling offers three types of benefits to Saipan. First, its primary economic return is in providing for a popular pursuit to those tourists who want to rent bikes and peddle their way along the Saipan Lagoon shoreline. Biking is, of course, very common in Japan and represents the the country's most basic means of transportation on a one- person-one vehicle basis. Because nearly every Japanese tourist is so familiar with bicycling, the implementation of a safe and convenient Bicycle Route System creates 2 signi- ficant market for additional.tourism industry development. Second, and of only minor economic importance, are the increased public recreation'opportunities provided by using bicycles as the primary means of access to remote or less developed recreation areas. Developing "bike trail" access rather than "auto roadway" access to public recreation sites is considerably less expensive and much'more quickly imple- mented. Even when cost is not a consideration, bike paths require much less right-of-way to construct and, therefore, encourage the possibilities for, access easements across privately owned lands instead of the typical requirement of acquiring right-of-way for two auto travel lanes. The third, and most insignificant economic benefit, is the potential reduction in vehicle traffic as a result of bike ways. It cannot be argued that more people, on fair-weather days, will be inclined to make bike trips rather than auto trips for their transportation needs. This tendency will XV 1 yield an occasional net reduction in vehicular traffic flow, but in too few numbers and too inconsistently for factoring into the design of future street and highway facilities. B. PLANNING CRITERIA FOR THE BICYCLE ROUTE In general, the bicycle is emerging in western, developed regions as an alternative mode of urban transportation. While very few on Saipanese commute to work by bike or conduct other forms of business in this manner, cycling is becoming increasingly popular among tourists and among local residents as a form of recreation and exercise. Con- sequently, this aspect of the SAIPAN LAGOON USE MANAGEMENT PLAN. provides for "recreational riding" opportunities as a leisure time activity for all ages. it is well understood that the bicycle does not blend well with other types of pedestrian or vehicular traffic, due mainly to the differential in speeds as well as the contrasting sizes. Consequently, special precautions are necessary in planning and designing bicycle routes so that they are both safe and convenient. Of the four basic types of bicycling (neighborhood, recreational, community, and sport or touring), routes for recrea- tional riding are characterized by a minimum of conflict with vehicular traffic. Also, visual experiences are particularly important; and special attention must be given to providing pleasing visual impressions whenever possible. The three basic forms of bicycle paths that are planned for this Shoreline Bicycle Route include: Class I (Bike Path or Protected Lane) A completely separated right-of-way desig- nated for the exclusive use of bicycles. Class II (Bike Lane) A restricted right-of-way designated for the exclusive@or semi-exclusive use of bicycles; through-vehicles are not 'permitted. Vehicle parking and access to property, as well as pedestrian access to parked vehicles, are allowed. Class III (Bike Routes) A shared right-of-way designated as such by signs placed on vertical posts or stenciled on the roadway pavement. XV - 2 C. TYPICAL PROFILES OF BIKE ROUTES Within the three basic bike p@th classes variations exist for adapting to field conditions, budget constraints and safety factors. Combinations of all three classes, as well as two variations within each class, are required to imple- ment the Saipan Lagoon Shoreline Bicycle Route. This section presents typical profiles that are incorporated into the proposed Bike Route, along with a brief description of the advantages and disadvantages associated with each class variation. The following code is used,to designate various features of the typical profile. SW - Sidewalk BW - Bikeway UT - Utility OTL -,Outside Travel Lane SB - Setback B - Bicycle Right-of-Way BA - Barrier PED - Pedestrian Right-of-Way PC - Parking MV - Motor Vehicle Right-of-Way 1. Class I Bikeways These are completely separated right-of-way designated for exclusive use of bicycles. Two variations of Class I Bikeways, Variation A and Variation B, are employed in the Saipan Lagoon Shoreline Bike Route. FIGURE XV-1 CLASS I BIKEWAY VARIATION A LJT ------ - a) Bikeway designated exclusively for bicycle use. b) Striping recommended. c) Continuous low berm applicable.. d) Minimum two.-lane bikeway. XV 3 Advantages: a) Provides horizontal and vertical separation from motorized traffic, thereby eliminating conflicts with an overtaking vehicle, autos parking or entering the traffic stream from their parking positions, and conflicts caused by open cardoors. b) A barrier is provided.to separate pedestrians and bicyclists. c) Minimum of two-lanes one-way provides / adequate passing room for cyclists. Disadvantages: a) Bicycle crosses pedestrian traffic-flow and conflicts are generated. b) Since bicyclists are removed from the traffic pattern, intersection and driveway conflicts become critical because of the reduced cau- tionary attitudes in' both motorists and bicyclists. c) Driveways pose other problems such as stopped vehicles within the bicyclist's path awaiting to enter the traffic pattern. d) Motorists are likely to back their vehicles into the bike lane rather than into the road- way, which is potentially dangerous for bicy- clists. FIGURE XV-2 CLASS I BIKEWAY VARIATION B Fle XV 4 a) Barrier to be provided between bike lane and parked cars to prevent encroachment from cars which are park@ng. b) Potential bicycle/opened cardoor conflicts. c) Recommended for areas with high parking/low turnover rates. d) Minimum two lanes for bikes. Advantages: a) Providing a horizontal separation by using parked cars effectively eliminat-e.s- auto/ bicycle conflicts with the addition of protection from out-of-control vehicles. b) A curb barrier between the parked cars and the bikelane will prevent encroachment by autos attempting to park. c) Maneuvering room may be inadequate with the minimum recommendation of two lanes for the bikeway. .Disadvantages: a) Not only does the motorist know the bicyclist cannot drift into the traffic pattern, he will not be able to see the bicyclist, and this aggravates the severity of intersection and driveway conflicts. b) When the parking lane is ended the bicyclist is exposed to the hazards inherent with motorized traffic and both bicyclists and motorists are unaware of the presence of the other. c) Motorists entering a driveway or exiting from one effectively "box" the bicyclist within the lane. d) Bicyclist may drift into the parked cars with the possibilities of injuries. e) Opened cardoor conflicts are not adequately resolved. f) Potential conflicts with passengers exiting from parked cars are not resolved. g) Pedestrians crossing to parked,cars create other conflicts.with bicyclists. 2. Class II Bikeways These are restricted rights-of-way designated for the exclusive or semi-exclusive use of bicycles. Through- travel by motor vehicles is not allowed; however, parking may be allowed. XV .PLATE XV-3 CLASS II BIKEWAY VARIATION A '"I I.A/ i NA /I,- M V --------------- a) Pavement markers are the recommended barrier between bikes and autos. b) When curbs are to be used, access across bike lanes must be prohibited.. c) Minimum of two lanes with a curb barrier. d) No parking permitted when pavement markers are the barriers used. -Advantages: a) Providing pavement markers can be deterrent to motorists encroaching upon the bike lane. b) Relative to curbs and pylons as physical barriers, pavement markers are more desirable barriers since the possibility of a bicyclist spilling@ from his bike when riding over the markers is redu'ced. c) A curb barrier provides the best horizontal separation in terms of eliminating encroach- ment by motorists altogether. The minimum two-lane requirement for bike lanes provided with curbs is designed to allow maneuvering room for bicyclists. d) Prohibiting access into driveways alleviates the problem of cross-auto-flow into the bike lane, thereby eliminating these conflicts for bicyclists. Disadvantages: a) Possibility exists for bicyclists to drift over or into the barriers with serious consequences. b) Especially with respect to a curb barrier provided between the outside travel lane and XV - 6 t the bike lane, the motorist is encouraged to think the bicyclist cannot cross into his path and may be caught unaware if this actually occurs. c) Providing curb barriers intensifies the possibilities of conflicts at intersections where the barriers may be ended. FIGURE XV-4 C.LASS II _BIKEWAY VARIATION B 7/7, s-/A lvll' Fr_ 'Y' MV 6A a) Striping or pavement markers. b) Parking restricted during peak bicycle travel hours. c) One-lane bikeway only. d) Clearance to outside travel lane and for opened cardoors must be provided. Advantages: a) Restricted parking during peak bicycle travel hours allows greater room for passing cyclists and adequate maneuvering space. b) There are. no physical barriers such as curbs or pylons which tend to lead motorists and bicyclists to be less cautious. c) Maneuvering room is provided with clearances from the traffic lanes and parked cars. Disadvantages: a) Cross-auto-flow by parking cars generates potential conflicts. b) Potential pedestrian/bicycle conflicts caused by passengers exiting from parked cars. c) Cars improperly parked may detract from maneuvering room for bicyclists. XV - 7 d) Cars entering the traffic stream from their parking positions create further conflicts especially if they wait to enter the stream within the bicyclists' path. FIGURE XV-5 CLASS III BIKEWAYS VARIATION A //ALL MV a) Signed, shared right-of-way b) Signs only to designate route. c) No parking permitted. Advantages: a) The implementation of the Class III route alternative is relatively inexpensive as signing is the only necessary designation. . b) Bicyclists ride within the traffic pattern; consequently, motorists and bicyclists are well aware of the presence of each other. c)- Maneuvering space is only restricted by the presence of other traffic. d) Since bicyclists are already part of the ,traffic stream, intersection conflicts and driveway conflicts are less critical. e) Prohibiting parking can decrease the volume of intentional cross-auto-flow, thereby de- creasing the potential for auto/bicycle conflicts. Disadvantages: a) Bicyclists. within the traffic pattern are vulnerable to serious accidents and injuries; and large volumes of traffic increase the likelihood of serious or fatal accidents. XV 8 v @vyztr. b) Inherently restricted in speed, the bicyclist may slow traffic and increase traffic tie- UPS c) Overtaking - vehicles and weaving autos are hazardous to bicyclists, especially to inexperienced ones. d) Bicyclists may be forced by the presence of traffic to ride at relatively high speeds which affect their ability to control their bikes. FIGURE XV-6 CLASS III BIKEWAYS VARIATION B 14 A A44 '/ /A'kV//, Wk Ile, %we a) Signed, shared right-of-way. b) Parking permitted. c) No striping or barrier. Advantages: a) Relatively inexpensive to implement requiring only the signing of existing routes. b) Motorist awareness of the -presence of bicyclists is enhanced. c) Bicyclists are not restricted to the "bikelane", allowing maneuvering space for any necessary evasive actions. d) Intersection and driveway conflicts are ' still less critical, as maneuvering space is not restricted. Disadvantages: a) Pedestrian/bicycle conflicts are increased. b) Again, the motorists is not aware of the presence of bicyclists and, therefore, inter- section and -driveway conflicts become critical. XV 9 c) Maneuverability is somewhat restricte-d, which may be critical especially with the presence of pedestrians. Table XV-1 presents the minimum space requirements for the Class I,II and III bikeway variations. D. BICYCLE ROUTE IMPROVEMENTS Figure XV-7 depicts the types of Bicycle Route improvements that are recommended for the Saipan Lagoon Shoreline Bicycle Route Plan. Before the construction costs can be established for these bikeway improvements, consider 'able surveying and preliminary engineering are necessary to determine the exact scope of reconstruction along the route. Anticipating that the total cost for all improvements will be prohibitively expensive, it is recommended that the next step be 'restricted to a preliminary engineering study which establishes reliable cost budgets for each type of improvement, the extent of cadastral work necessary to accommodate the bikeway and other project aspects such as utility relocations, intersection re-designs and specifying cost-efficient bar.riers for the Class I, Variation B, bikeway. thd cost of such a preliminary study is approximately $25,000. XV 10 TABLE XV-1 MINIMUM SPACE REQUIREMENTS FOR BIKEWAY VARIATIONS Bikeway Minimum Bikeway Recommended Minimum Remarks Variation Width Space Required Class 1 3.31 5.81 5.8'paved Variation A Class'l 6.8' 7.5' Type B-3 curb barrier; no Variation B door opening allowance given. Class 11 6.8' 7.5' Including curb Type B-3 curb barrier; 2-lane Variation A barrier; outside traffic minimum to allow for lane should provide 1.0' passing cyclists. minimum clearance. Class 11 3.3' to 5.3' 13.31 from curb to outer Medium to.hich parking density; Variation B edge of bikeway off peak; low turnover. 13.@' from curb to outer Low parking density; off peak. edge of bikeway Class III NA 14.1' for outside traffic Low motor vehicle volumes and Variation A speeds. Class III NA 14.1' for outside traffic Low parking density; through Variation 8 lane motor vehicle traffic restricted. 22.1' for outside traffic Medium to high density.parking. lane, xv CHAPTER XVI BEACH FACILITIES MAINTENANCE PROGRAM A. STATEMENT,OF INTENT The Commonwealth Government now maintains many beach park facilities along the Saipan Lagoon shoreline. These facili- ties range from access roads and.parking areas to pavilions, toilets, picnic tables and boat launching ramps. Despite periodic efforts by the Departme,nt of Public Works, many of these facilities are not maintained to standards that are acceptable to either the public or the tourists. The intent of this Chapter is t.o prescribe a maintenance program for the PLAN area's beach faciliti;es so as to assist Public Works in budgeting and implementing a repair and maintenance program. The Department of Public Works must concern itself with two aspects of its maintenance program for these facilities: periodic maintenance; and as-needed repairs. Since as-needed repairs are scheduled whenever required, such as to repair broken waterlines or acts of vandalism, they are not subject to the regularly scheduled maintenance and up-keep described in this Plan. B. FACILITY INVENTORY AND MAINTENANCE SCHEDULE Table XVI-1, below, summarizes the various types of recrea- tion facilities along the Saipan Lagoon shoreline parks which are to be programmed for maintenance. TABLE XVI-1 SUMMARYOF RECREATION FACILITIES AND MAINTENANCE SCHEDULE Scope of Facility Maintenance Schedule (minimum) Access road, Re-grading and Biannual: once compacted coral compaction where during mid-rainy necessary season and once at end of rainy season Access road, Maintenance of Annual, prior to paved roadside drainage rainy season Pavilion, open Painting, exterior Every two years air, and picnic shelters XVI - 1 Concrete roof Every two years Seal cracks Root, corrugated Annual Check for loose sheets Electrical system Annual 'Inspect and repair as necessary Plumbing system Annual Inspect and repair pipes as necessary Inspect and repair Monthly leaking faucets and showers Restrooms Paint, exterior Every two years Paint, interior Annual Concrete roof Every two years Seal cracks Electrical sy@stem- Annual Inspect and repair as necessary Plumbing system Annual Inspect and repair as necessary Inspect and repair Monthly leaking toilets and faucets Picnic Tables and Barbecue Inspect. and repair Annual Pits where necessary Parking and other Inspect and repair Annual, prior to paved areas such drainage system rainy season as multi-purpose as required athletic courts Re-paint lines Annual,shortly and ramps after rainy season Playfield Inspect, lubricate Annual equipment and repair as necessa.ry XVI - 2 CHAPTER XVII SOILS EROSION AND SEDIMENTATION CONTROL TECHNICAL MANUAL A. STATEMENT OF INTENT The intent of this Plan is to prepare a technical manual of soil erosion and sedimentation control techniques and proce- dures which are appropriatefor the Commonwealth. Such a manual will serve as a technical reference for implementing Erosion Plans as now required by permitees under the Commonwealth "Earthmoving and Erosion Control Regulations", promulgated in April 1984. Section 4 of these Regulations outline the requirements for a permit to engage in earth- moving activities. One such requirement is an Erosion and Sediment Control Plan which must present specific measures and practices to control erosion and sedimentation resulting from the proposed project's earthmoving activities. A technical manual which describes various erosion, and sediment control measures appropriate for the Commonwealth is not now available. Such a manual would be useful as a primary reference- for Government-approved structural and non-structural erosion/sediment control devices as well as for those vegetative measures -which have proven to be successful for different soil types and terrains.on Saipan. This Technical Manual should be prepared under the Government's guidance and be made available to all con- tractors, designers and other potential Earthmoving. permitees. The following Scope of Work is appropriate for directing the preparation of a Technical Manual for Soil Erosion and Sediment Control in the CNMI. B. SCOPE OF WORK 1. Outline the Basic Principles of Erosion and Sedimentation Definition of Erosion and Sedimentation Causes of Accelerated Erosion Influencing Factors to Erosion Causes of Sedimentation Sediment Transportation and Deposition xv@ii 1 2. Describe Erosion and Sedimentation Control Planning Principles for Erosion and Sedimentation Control Planning Plan-ning Step #1 - Preliminary Evaluation of Site Planning Step #2 - Preliminary Design Planning Step #3 - Sub-surface Investigations Planning Step #4 - Final Design Describe Appropriate Erosion Control Measures Functions of Erosion Control-Measures Types of Erosion Control Measures Surface Roughening Interception and Diversion Practices Vegetative Stabilization Non-vegetative Soil Stabilization 4. Des,cribe Appropriate Vegetative Measures for Control- ling Sedimentation Plan%ning,for Establishment of Vegetation Minimum Slope and Surface Requirements Soil Testing Clay and Sand and Organic Matter Intermixing Topsoiling Liming and Fertilizing Permanent Seeding Temporary Seeding Mulching Sodding Maintenance Planning Guidelines for Preventing Sediment Runoff by the Use of Vegetation Vegetative Control Measures Natural Buffers Installed Vegetative Buffer Contour Strips Sod*Inlet Filter Temporary and Permanent Stabilization Through Vegeta- tion XVII 2 5. Describe Appropriate.Structural Measures for Control- ling Sedimentation Pre-Sediment Pond Techniques Sediment Basin Techniques Post-Sediment Basin Measures 6. Describe Construction of Erosion and Sediment Control Measures Roadway Construction Underground Utility Construction Building Construction 7., Describe Maintenance of Erosion and Sedimentation Control Measures Maintaining Vegetative Measures Maintaining Structural Measures Removal and Disposal of Sediment from Detention Ponds C. COST ESTIMATE AND PROJECT SCHEDULE The cost for such a Technical Manual will be approximately $15,000, including printing. A reasonable project schedule is four months, including review time. XVII PART FIVE IMPORTANT HABITATS MANAGEMENT ELEMENT CHAPTER XVIII - IMPORTANT HABITATS MANAGEMENT PLAN A. SYNOPSIS OF DATA ANALYSES FROM VOLUME I AND IDENTIFI- CATION OF PROBLEMS During the data collection phase of this study important .habitats such as mangrove stands selected coral reefs in the lagoon, turtle nesting sites and seagrass beds were identi- fied and a general assessment of the condition of each species was made. Literature related,to these habitats was obtained and reviewed in order to d-etermine their relative change over time. This was necessary in order to determine the impact of development on these habitats and to determine the level of protection.needed. In general, very little hard data are available for these habitats; and, therefore, a picture of historical change is difficult to compose. Without such data it is impossible to determine whateffect development has had on these habitats. Field investigations alone do not give such an insight. During field investigations no evid-ence was found regarding specific areas used for shelling or,any other purpose other than what is identified in Volume I. 1. Mangrove Stands Habitats Mangrove stands were Isurveyed from land and by boat. This resource on Saipan is very small for a tropical island (Figure XVIII-1). However, it is common to find limited mangroves on islands with few small rivers and limited estuaries, such as on Saipan. The extent of mangroves on Saipan is limited to three extremely small stands. The first stand. is in a small tidal estuary at the mouth of a storm drainage basin at Lower Base toward@ the northern extreme of Puntan Tanapag. The area of tidal influence extends 'to the road, 'through a culvert and north along the'road approximately 20 meters (65 ft). This area continues along the road another 50 meters (165 ft) as a depressed wetland fed by a natural spring and rainwater runoff. It is only remotely affected by the tides. It has been reported XVIII '100 17 41 t m i'oss ............ .......... + pu.erto All RICO @Lj . 0 u ji g L.01 that at one time the entire wetland was probably a small bay open to the harbor. However, with the exten- sive filling from wartime activities and development over the years the outlet has been reduced to a narrow streambed. -One estimation puts the mouth of this stream approximately .600 meters (2000 ft) from the harbor. Most likely, the stream drained a large low- land area presently covered by fill and supporting buildings in the vicinity of Puntan Flores. Only one species of mangrove exists in. this limited area, Bruguiera gymnorrhiza. This species extends from the mouth of this estuary along both sides to the bridge. A few mangrove trees can be seen on the oppo- site side of the road but they dissipate rapidly. Other wetland-type plants in the area are Phragmites karka (Kariso), Hibiscus tilaceus (Pago) Acrostichum um (Langa3 -)_ Cyperus alternifolius-7-umbrella aure rao sedge), a number of grasses common to these islands like Pennisetum purpureum (elephant grass) - and Sporobolus virginius (salt grass). A few small trees exist in the area, such as Pandanus tectori,us (Aggak), Pithecellobium dulce (Kamachile F 'and the common Leucaena leucocephala (Tan,gan-Tangan). A few small weed's,vi-ne and. bushes like Bidens pil6sa' (Beggars tick), 'Pluchea indica and Ipomoea pes/caprae (Beach morning glory) round out species composition. The. second small mangrove.stand is found just south of the Puerto Rico Dump along a short segment of coast- line. The extent of the mangrove area is a patch measuring 300 meters long by 10 meters wide. Bruguiera gymnorrhiza is the only mangrove species in this area. This site is fed by fresh water along the shoreline from a small wetland directly east of Beach Road and to the south 100 meters across from Smiling Cove. Man- groves are also found at this site. Data suggest that the area was likely a poorly-drained marsh. The area is now filling in, a process which is facilitated by expansion of the dump. The third mangrove stand is located on the east side of @Beach Road directly across from Smiling Cove. Bruguiera gymnorrhiza is the only species of mangrove living here and only in isolated stands. It appears that the area was once connected to the ocean because of the wetland appearance. However, no direct connec- tion now exists. The water is definitely estuarine and likely affected by the tides. Associated vegetation in the vicinity of these sites include the following: Hibiscus tiliaceus (Pago), XVIII 3 Leucaena leucoephala (tangan-tangan), Pluchea indica, Ipom6'e-a P-es-caprae (Beach morning glorT-and a few weeds like Bidens pilosa (Beggars tick). 2. Coral Patch Reefs Habitats The -Saipan Lagoon is rich in resources particularly those associated with coral reefs. The barrier and fringing reefs form a contiguous reef zone from north to south along most of the West Coast of Saipan. This reef is an important habitat in itself since it provides the homes for all other reef-associated marine biota. This particular habitat is not addressed in detail in this PLAN since it is already protected by ,existing regulations such as those regarding the taking of coral, trochus and a few other marine species. Promulgated by the Department of National Resources and carried out by the Division of Fish and Wildlife,, however, much could be done to improve-efficiency in operation. Three patch reefs within the lagoon, represent a rich resource that reqVire protection. . Two of these patch reefs are comprised of one dominant coral, Acropora formosa know as staghorn coral. The largest of these patch reefs is located just inside the reef at the Japanese lighthouse. The second and smallest of these Acropora patch reefs is located at the northern extreme of Paupau beach. A third patch reef is quite different than the other two with much greater coral diversity. Numerous species of corals can be found here supporting a much greater variety of marine life. This area is located in the central lagoon just north of Tanapag Harbor. Fishermen can often be seen using various fishing techniques around this reef. These three patch reefs are excellent fishing grounds for spearfishermen and should be protect'ed from illegal activities like cloroxing or blasting. Local spear- fishermen use these areas constantly because of their proximity to shore and abundance of resources. The upper portion of the Acropora patch is mostly dead coral with associated incrusting sponge and algae. The lower portions of the reef is alive and teeming with life. However, the patch reef north of Tanapag Harbor is mostly live coral throughout. .3. Managaha Island Underwater Trail Plan A natural spinoff of the PLAN is the development of a marine park in the vicinity of Managaha Island. One of XVIII 4 the primary interpretative aspects of this park is an underwater trail. This trail involves two coral arcs located in shallow water to the northwest.of Managaha Island. The area is characterized as a group of diverse coral heads with a few unique sights. At this time a Marine Park Management Plan is being developed for this site. An underwater trail has been layed-out, and a management plan with interpretation features is nearly completed. Because of the positive tourist attra,ction this trail will provide, its protection is essential; although protective legislation is not in place at this time. Before the Marine Park Management Plan is accepted and adopted, a public hearing and legislative action must be taken. 4. seagrass Beds Habitats Three species-of seagrass exist in the Saipan Lagoon. These are Enhalis accoroides, Halodule uninervis and Halophylla minor. . Each of these species has its own geographical range. However, all three live in close proximity in the Garapan Lagoon Planning Area Seagrass beds are an important resource in the Saipan Lagoon since they provide protection for juvenile fishes.. Thick mats of seagrass are found in shallow waters in the Garapan Lagoon from -Puntan Muchot to Puntan Susupe. These beds exist along the shoreline approximately 5 meters from the mean tide line into the lagoon and approximately 200 meters from the shoreline. Rich% coral on the outside barrier reef provides a habitat for adult stages of the various reef fishes. Seagrass beds in shallow near-shore*waters provide the habitat for the juvenile stage of the same fishes. Adults bear their young in these thick seagrass beds in order to provide them protection. When the juveniles grow to adult size they migrate to the coral habitat at the edge of the barrier reef and eventually into deeper water. B. OBJECTIVES FOR IMPORTANT HABITATS MANAGEMENT PLAN ELEMENT The intent of this PLAN is to prepare a management plan for mangrove stands and selected patch reefs and to prepare legislation which protects these specific areas. XVIII Mangrove forests, selected patch reefs, seagrass beds and the coral reefs designated for this purpose represent important habitats in that they are breeding grounds for a variety of marine and terrestrial wildlife. For this unique reason, these habitats need protection to prevent their destruction. This is particularly true in.the Saipan Lagoon which has only three small mangrove stands (two located at the American Memorial Park and one near the Commercial Port), limited patch reefs, seagrass beds and coral reefs in close proximity to land. The proposed Plan identifies the need to protect these resources through legislation, preserve the resource through. a management plan and monitor the resource through an on-going monitoring program within the framework of existing CNMI government agencies. The specific parts of legislation for protecting important habitats are listed below: Develop an act to protect Mangrove stands and -patch reefs. Identify the lead agency in conjunction with supporting agencies (DEQ, CRMO, and Division of Fish and Wildlife) to provide supporting evidence in the legislative process. Obtain the support of Federal Government Agencies (ACOE, US Fish and Wildlife Service, US EPA and ,others). Develop memorandums of understanding between governmental concerns. Important habitats within the PLAN area are depicted on Figure XVIII-2. XVIII 6 Mangrove forests, selected patch reefs, seagrass beds and the coral reefs designated for this purpose represent critical habitats in that they are breeding grounds for a variety of marine and terrestrial wildlife. For this unique rea-son, these habitats need protection to prevent their destruction. This is particularly true in the Saipan Lagoon which has only three small mangrove stands (two,located at the American Memorial Park and one ne@ar the Commercial Port), limited patch reefs, seagrass beds and coral reefs in close approximately to land for tourists to dive at. The proposed Plan identifies the need to protect these resources - through legislation, preserve the resource through a management plan and monitor the resource through an on-going monitoring program within the framework of existing CNMI government agencies. The specific parts of legislation for protecting critical habitats are listed below: Develop an act to protect Mangrove stands and patch reefs as rare, threatened and endangered habitats. Identify the lead agency in conjunction with supporting agencies (DEQ, CRMO, and Division of Fish and Wildlife) to provide supporting evidence in the legislative process of declaring these areas as critical habitats. Obtain the support of Federal Government Agencies (ACOE, US Fish and Wildlife Service, US EPA and others). Develop memorandums of understanding between governmental concerns. Critical habitats within the PLAN area are depicted on Figure XVIII-3. XVIII 7 CKIT I C-A L H@E> 17ATS A-rcrOrlo- FATe- 14 r<@ cofzd:S..@ @zr=@ CHAPTER XIX IMPORTANT HABITATS MANAGEMENT PLAN @A. LEGISLATION FOR THE PROTECTION OF IMPORTA NT HABITATS Exhibit XIX-1 presents proposed legislation to protect important habitats. EXHIBIT XIX-1 AN ACT TO PROTECT IMPORTANT HABITATS Commonwealth-of the Northern Mariana Islands Department of Natural Resources The Department of Natur.al Resources in conformity with and pursuant to CNMI-statutes, and every other law hereunto enabling does her-eby, ad-opt the following act for the establishment, protection and regulation of important habitats, Saipan Lagoon CNMI.* PART I Section.l. Establishment of, ImPortant Habitats. Department of Natural Resources does hereby declare and establish the Important Habitats Zone (described in detail in Section 3 of this part). Section 2. Purpose. It is the purpose of this regulation to preserve, protect and conse'rve the. marine and terrestrial resources and geological factors asso- ciated within the boundaries of the zones identied in Section 3 of this part.. Section 3. imp-ortant,Habitats-Zone. These habitats shall include-those zo-nes, identified in the sit ing map (Figure XXI-1) and referenced as follows: a. Mangrove stands at Lower Base and along Unai Sadog Tasi in the Tanapag Harbor region. b. Potential Ma:nagaha Island Marine Park C. Acr-opora,Patch reef at the light house in Garapan Lagoon XIX 1 d. Acropora patch reef in the vicinity of .Paupau Beach. e. Diverse coral patch reef in Central Lagoon north of Tanapag Harbor. f. _Seagrass beds, Halodule uninervis particu- larly, in the vicinity of Garapan Lagoon near-shore. 9. Turtle nesting sites at Wing Beach and San Antonio Beach. PART 'II Section 1. Activities prohibited. It shall be .@unlawful for any person to: a. Fish for, take, process or remove any fish, mollusk, crustacea, or other marine or ter- restrial animal within mangrove stands and associated marine environment except for sub- sistence yurposes. b. Take, alter, deface, destroy, possess or re- move any r,ocks, coral, sand or other geological features or specimens. C. Contaminate or otherwise alter the physical, chemical or biological properties of the waters, including change in temperature, taste, color, turbidity or odor thereof, .,or to discharge, directly or indirectly waste materials of any kind, whether treated or not and whether animal, mineral, or vegetable, and whether liquid gaseou-s, radio- active 'or solid including sewage and agricul- ture and industrial wastes, so as to cause said waters of these habitat zones to be reduced in quality below the established Water Quality Standards as established and amended by the Department of Environmental Quality and any amendments thereto, which are hereby incorporated herein and made a part of these regulations. d. Construct, install, erect, or place piers, jetties, moorings, utilities or structures of any kind, or sink any type of water craft or other sizable object, or abandon any type of water craft or other sizable object, sunk XIX 2 or unsunk without permission of proper governmental authority. e. Operate, anchor or move any vessel in a manner contrary to the Rules and Regulations Governing Boating of the Dept. of Transporta- tion, U.S. Coast Guard, and any amendments thereto, which by reference are hereby incor- porated in this Regulation and made a part hereof as though fully recited herein. Section 2. Exceptions. Notwithstanding any provi- sion of this regulation to the contrary and except as. prohibited by any other rules, regulation or law, it shall be lawful for any person to: a. To fish for, take, possess or remove any marine life by the use of hook and line, spearfishing or trapping except for sub- sistance purposes. There shall be absolutely no dynamiting or cloroxing as a method for fishing. b. Take, for scientific, propagation, or other purposes except as approved by the Department of Natural Resources, Division of. Fish and Wildlife thereof any fish, corals, mollusks, crustacea and other form of marine animal. Section 3. Penalty. Any person violating the provi- sion of this regulation shall be fined not more than $500 or imprisoned not more than 90 days or both. B. IMPORTANT HABITATS MANAGEMENT PLANS Concurrent with -establishing legislation for the protection of mangrove stands and selected patch reefs,'it is necessary to develop a Management Plan to ensure their protection in the future. The purposes of this Management Plan are to: Maintain the ecological balance; Protect fish nursery and stock; Pr-ovide habitat for selected species; Provide protection of Saipan's only Mangrove stan-ds for the sake of education and research; XIX 3 Establish standards for the protection and further propagation of mangrove stands in the Saipan Lagoon; and Maintain selected patch reefs and seagrass beds for the propagation of such species. The Plan to manage important habitats for coral patch reefs, mangrove stands and seagrass beds, follows. Designate these habitats by legislation Designate the Department of Natural Resources as the lead agency, with the Department of Fish and Wildlife as the subordinate agency for monitoring purposes. Monitor these habitats on a regular basis to to ensure their protection. Levy a penalty for 'any violations or infractions. XIX 4 PART SIX ENERGY FACILITIES PLAN ELEMENT CHAPTER XX - SITING CRITERIA FOR ENERGY FACILITIES A. SYNOPSIS- OF DATA ANALYSES FROM VOLUME I AND IDENTI- FICATION OF PROBLEMS Volume I of the PLAN outlines the general and specific energy related facilities on Saipan, all of which are located within the Tanapag Harbor Planning Area except for privately owned, back-up equipment (Refer to Volume I, Part B, Chapters II. 2a and VIII. 4). Within this planning area is the 28.8 MW power plant with 10.3 MW back-up generators, pipelines between the Mobil Bulk Oil Plant and DPW Fuel Storage area at Charlie Dock, and the power plant shop bunkering pipelines at Charlie and Baker Docks. Electrical generating equipment on Saipan barely meets current energy demand. In 1981 peak load was estimated at 15.4 MW and the baseload at 11.6 MW. Old and inefficient equipment and breakdowns account for the short-comings. Energy users on Saipan have been enjoying a substantial energy subsidy over the years and do not pay their share for energy consumption. The 1982 production cost of electricity (most recent accurate data available) was $.12/kwh. Until 1976, only $.03/kwh was charged to all consumers. Since then, rates have been charged at $.06/kwh for 0-2000 kwh/month, $.07/kwh for 2001-25,000kwh/month, and $.08/kwh for more than 25,000 kwh/month. This rate structure does not meet the $.12/kwh cost of production. In addition, the CNMI Government does not pay for its consumption, and the old TTPI Government pays a flat rate of $400,000 per year. The effective net result of revenue derived from energy consumers in the CNMI is $.02/kwh, or nearly six times less than the 1982 estimated cost of production. Rising energy costs are also a problem in the CNMI. Continued, increased federal funding is the only way in which the CNMI Government can keep pace with the@rising cost of energy production in its oil-based energy dependent society. Besides the economic problems inherent in this situation, other special problems exist, especially if the oil supply were to be depleted or if prices rise dramatically. Both of these situations would stress an already fragile relationship between the energy suppliers and users. XX 1 B. OBJECTIVES FOR ENERGY FACILITIES SITING CRITERIA The primary objective of the energy facilities siting criteria is to determine the elements that should be examined for expansion of existing as well as the development of new energy facilities. Primary elements include physical/environmental as well as social aspects, such as proximity of generating and distributing facilities to residences. C. SITING CRITERIA It is important to understand the impacts that can be reasonably anticipated by new or expanding energy development in the PLAN area so that it is possible to invoke mitigation measures by intelligently anticipating the cumulative effects of these impacts. These mitigating measures will lead to more appropriate siting of the facilities and result in less impact on the physical and social environment. Siting criteria require that the following elements be examined closely. Physical/Environmental Resource requirements Water, land and air pollution Social Proximity to residences Visual and noise pollution Within these elements the siting criteria are divided into general and spec.ific aspects for two energy sources: conventional oil and alternate sources (i.e. coal, biomass, and solar salt-gradient ponds). 1. Conventional Oil Fired Energy Facilities Siting Criteria Locate in proximity to a water source (ocean, lagoon) for cooling water supply. - Development of a surface cooling water source. - Development of a, deep water (60 ft. minimum) disposal site for heated effluent. XX - 2 Locate in proximity to commercial port for easy transmission of fuel. Locate in central proximity to consumers. Minimize pollution (air, water, noise, land) on the environment. 2. Coal Fired Energy Facilities Siting Criteria Adequate', adjacent land to existing power plant for Expansion of existing facility to accommodate a coal fired plant. Coal stockpiling Locate in proximity to commercial port for coal transshipment to energy facility. All other issues stated for conventional oil fired energy facility. Biomass Fueled Energy Facilities Siting Criteria Adequate, adjacent land to exi-sting -energy facility for a biomass conversion plant. Proximity to biomass source (residential or @business customers) or adequate transpor- tation of fuel feedstock to energy facility. 4. Solar Salt Gradient Energy Facilities Siting Criteria Adequate land (2 ha plots), flat and none permeable. Shallow lagoon (2 ha plots) which can be bermed for protection. Proximity to distribution system for easy connection. Protection from inundation by extreme tidal fluctuation or heavy rains. XX PART SEVEN IMPLEMENTATION PLAN ELEMENT. CHAPTER XXI SUMMARY OF PLAN RECOMMENDATIONS The purposes of Plan Element Seven are to recap the recommended Plans presented in Plan Elements Two through Six and to present the administrative, financial and legal requirements for implementing each Plan. Also, this Plan Element identifies issues of national significance that relate to the implementation of this SAIPAN LAGOON USE MANAGEMENT PLAN as well as a general assessment of the proposed PLAN's impact on the Saipan community. Table XXI-1 categories the PLAN recommendations with respect to the following implementation requirements. Agency with administrative purview over recommendations Coastal Resources Management Office Zoning Administration Office Department of Public Works Department of Natural Resources Department of Public Health and Environmental Services Department of Parks and Recreation Financial Executive Branch Operating Budget Capital Improvements Project Budget Legal Public Law for Enactment Public Law for Appropriation Regulations XXI 1 XXI- TABL- !MPLEMENTATION REOUIR6MEWS FOR PLAN REC " ENDATIONS REFERENCE EXHIBIT 'E', No. FIGURE (F) No. PLAN RECOMMENCIAT T IONS ADMINISTRATIVE FINANCIAL LEGAL TT SECTION@S- (SI (SHORT LTLE-; (LEAD AGEENCY) '_xecutive Brancri Public iaw IV.3 Zones and Land Use District Zoninc Act of CHMI Administration Operating Budget. for Enactment Office (S) iv.8_1 Amendment to Section 9 of -lonina NA Public Law to T: amend Act -,Ones and Land Use Dis'rict: Administration of rt i ce@ (S) !V.3.2 Expansion of Villace Zone of Zonina -NIA Pubiic Law to San Aniconio-Zones and Land Administration amend A& Use District Act Office (S) IV.8.3 P3UD&u Resort Zone in Northern Zoning NA Pubiic Law to Saipan-Zones and Land Use Administration amend.Act Dis6rict Act Office fc) V-1 Shoreline z 4-backs Coasta@ Resources Re-.uiations Management 3ff"ce (T) V-1 Setbacks, Struc-ture 'Loni n4 Requ i at i ons Heights and Densities Administration Office (E) V-2 Lot Cov&aae for Commercial Zonina NA Requiat-ions and Resort -Zones Adminii@stration Office (E) V-3 Setbatk and Height Regulations Zoning NA Requiations for Commercial and Resort Zones Administration Office E V-4 Shoreline Fencing Regulations Coastal Resources NA Regulations Management Office (Elt VI-1- Landscaping Guidelines 7 utive Brancii Appropriation oning r_xec Administration Operating Budget Office (E) VI-1 Regulations For Dredging %_oastal Resources NA Regulations Diking and Landfilling along Management Office Coastal Areas XXI 2 (E) VI-2 Regulations lor 3tructures Coastal Resources NA Regu i at-i ons locatea on Near Shore and Management Office, Beach Strand Ecoiogical Zones (E) VI-3 Regulations For Mining along Coastal Resources NA Reauiations Coastai Strand Management Office (S.) vi-c- Beach and Shoreiine Restoration Depart-ment of CIP Budget Appropriation Public Works (T) VIT.3.1 Shoreiine Water Facilities Department of Cxecutive Branch Appropriation ?Iannina Public Works Operating Budget (S) VII.3.4' 'roundwater Manauement Task Department of NA NA Force Public Health and Environmental Services (S) VII.C-1 Shoreline Wastewater @acilities Department of CIP BUdqet Appropriation Planning Public Works (S) VIL 0. 1 Storm Drainage Design Criteria Department of Executive Branch Appropri at-i on Public Works Operating Budget (S) Vii-E. Planninq Criteria for Evaluating Coastal Resources 1JA NA Development Impacts Management Office (S" -L'K.5 Recreation Use 7ones For Saipan Department of Executive 2ranch Appropriation Lagoon Parks and Recreation Operatinq 3UGqet (S) !X.3.5 Water Recreation Advisory Board Coastal Resources NA NA Management Office IS' IX.C Water Safety Information Program Department of Executive Branch Appropriation Parks and Recreation Operating Budget (S) X.3 Hazards Removal Plan Department of CIP Budget Appropriation Parks and Recreation (S) X.0 Marine Nuisance Abatement Plan Department of ':Executive Branch Appropriation Natural Resources Operating Budget- (S) XII. B Saipan Outdoor Recreation Plan Department of Executi-ve Branch Appropriation Parks and Recreation Operating Budget (T) XITI-2 improvements For Villaqe Parks Department of CIP Budget Appropriation and Playgrounds Public Works (T) XJIT-J improvements for Beach Parks Department of CIP Budget Appropriation Natural Public Works XXI 3 (T) 'A I I I - 55 Improvements For Beach Parks - Department of CTP Budget Appropriarion Developed Public Works (S) A1IV.8 Afetna Beach P3rk Improvements Department of CIP Budge,": Appropriation Public Works 0 (F) (V-7 Bicycle Route Improvements Department of CIP Budget Approp Public Works r,ation (T) XVI-1 Recreation Facilities and Deoar-ment of NA NA Maintenance Schedule Public Works (S) A-IX.3 Soil Erosion and Sedimentation Department of Executive Branch Appropriation Control Technical Manual Public Health Operating Budget and Environmental Services ,E) XIX-'-, Critical Habitats Protect;on Depart-meit of NA Public Law Act Natural Resources for Enactment XIX-3 Critical Habitats Manaqement Department of NA NA Plans Natural XXI 4 CHAPTER XXII - ADMINISTRATIVE, FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTATION OF PLANS The primary responsibilities for implementing this PLAN fall to the following agencies of the Government of the Northern Marianas Islands. Coastal Resources Management Office Zoning Administration Office (as proposed by legislation now under consideration by the CNMI Legislature) Department of Public Works Department of Natural Resources Department of Public Health and Environmental Services .Department of Parks and Recreation Their respective roles for implementing this PLAN are outlined in the following sections of this Chapter. A. COASTAL RESOURCES MANAGEMENT OFFICE The@ responsibilities of CRMO are two-fold with respect to implementing the SAIPAN LAGOON USE MANAGEMENT PLAN. First, as the PLAN's lead agency, CRMO- must serve as the Government's primary advocate for implementation. This involves coordinating the various responsibilities for implementation among the respective agencies; helping to resolve the inevitable conflicts that arise among the public, the Executive Branch and the Legislative Branch as implementation takes place; providing financial grant support, wherever possible, to other agencies with administrative responsibilities for implementing aspects of this PLAN; and serving as the spokes-agency for promoting the public benefits and economic growth that evolve from properly managing the Lagoon's resources and from coastal resources planning in general. The second CRMO responsibi'lity for implementing this PLAN pertains to those particular plans for which the agency. has administrative purview to implement. Those plans are extrapolated in Table XXII-1, along with their respective financial and legal requirements for implementation. The present administrative purview of CRMO could conceivably embrace other PLAN recommendations by virtue of the agency's permitting authority and wide-ranging influence in land use development and lagoon resource management matters. However, this PLAN recommends that only those pertaining exclusively to shoreline recommendations 6 management (e.g., near-shore and beach strand development, etc.) and interagency coordination (e.g., the Water Recreation Agency Board) be assigned to CRMO. Other XXII 1 .agencies with more clearly designated authority for such programs as recreation resources planning, stormwater drainage, erosion control and land use regulations are assigned to those types of plans. One possible exception to this recommended assignment of administrative responsibility involves those plans assigned to the Zoning Administration Office. In the event that such an Office is not yet created by legislation, which is n ow under consideration by the Legislature, CRMO should assume that proposed Office's responsibilities until such time as the Zoning and Land Use District Act is passed and.operational. TABLE XXI-1 FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTING PLANS UNDER THE ADMINISTRATIVE PURVIEW OF CRMO Plan (Short Title Financial Legal and Reference) Requirements Requirements 1) Shoreline Setbacks None required Promulgate the (E) V-1 recommended Regulations 2) Shoreline Fencing None required Promulgate the (E) V-4 recommended Regulations 3) Diking and Landfilling None required Promulgate the along Coastal Areas recommended (E) VI-2 Regulations 4) Structures located on None required Promulgate the Near-Shore and Beach recommended Strand Ecological Zones Regulations (E) VI-2 5) Mining along Coastal None required Promulgate the Strand recommended (E) VI-3 Regulations Planning Criteria for None required None required Evaluating Development Impacts (S) VIII.E Water Recreation None required None required Advisory Board (S)-IX.B.5 XXII - 2 B.: ZONING ADMINISTRATION OFFICE The Zoning Administration Office was proposed in 1983 by the CNMI Zoning and Land Use Districts Act as the agency to administer the Commonwealth's zoning and land use districts program. Several of the PLAN's recommendations are direct adjuncts to that program and, therefore, should be within the administrative purview of that Office for implementation. Those plans are extrapolated in Table XXII - 2. It should be noted that the proposed organizational and annual operating budget ($150,000) for the office was previously recommended by the Government as part of its zoning and land use districting program. That operational budget is not included as part to this PLAN's implementation requirements. C. DEPARTMENT OF PUBLIC WORKS As the Governments' primary contracting and infrastructure maintenance agency, Public Works has a major responsibility for this PLAN's design, construction and maintenance recommendations. Of course, Public Works must rely on the expertise of other agencies, especially CRMO, Natural Resources and the Division of Environmental Quality in making the final determination for planning data analysis, scopes of work, and construction alternatives for many of these projects. The Public Works PLAN implementation responsibilities are presented in Table XXII-3- XXII 3 TABLE XXII-2 FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTING PLANS UNDER THE ADMINISTRATIVE PURVIEW OF THE ZONING ADMINISTRATION OFFICE Plan (Short Title Financial Legal and Reference) Requirements Requirements 1) Zones and Land Use None required Enactment of Districts Act of CNMI (see section B, the proposed (3) IV.B this chapter) Act 2) Amendment to Section None required Public Law to of.Zones and Land amend Act Use Districts Act (S) IV.B.1 3) Expansion of Village None required Public Law to Zone, San Antonio- amend Act Zones and Land Use Districts Act (S) IV.B.2 4) Paupau Resort Zone None required Public Law to in Northern Saipan- amend Act Zones and Land Use Districts Act (S) IV.B.3 5) Property Setbacks, See item #8, Promulgate the Structure Heights below recommended and Densities Regulations (T) V-1 6) Lot Coverage for See item #8, Promulgatethe Commercial and below recommended Resort Zones Regulations (E) V-2 7) Setback and Height See item #8, Promulgate the Regulations for below recommended Commercial and Regulations Resort Zones (E) V-3 8) Landscaping $2,000 for staff None required Guidelines expenses and printing costs XXII - 4 TABLE XXII 3 FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTING PLANS UNDER THE ADMINISTRATIVE PURVIEW OF PUBLIC WORKS Plan (Short Title Financial Legal and Reference) Requirements Requirements 1) Beach and Shoreline $1,600,000 for CIP Restoration Plan design and Appropriation (S) VI.E construction 2) Shoreline Wat-er $85,00 0 for Executive Facilities consultant Branch Planning services Operating (T) VII.B.1 Budget Appropriation Shoreline Wastewater $40,000 for Executive Facilities Planning consultant Branch (S) VII.C.1 services Operating Budget Appropriation 4) Storm Drainage Design .$60 000 for Executive Criteria Manual consultant Branch (S) VII.D.1 services Operating Budget Appropriation 5) Hazards Removal Plan $100,000 for Executive (S) X.B contractual Branch services Operating Budget Appropriation 6) Improvements for See item #8, CIP Village Parks and below, plus Appropriation Playgrounds $16,800 for (T) XIII-2 construction Improvements for See item #8 CIP Beach Parks Natural below, plus Appropriation (T) XIII-4 $7,800 for construction XXII 5 8) Improvements for $10,000 for CIP Beach Parks-Developed design of Appropriation (T) XIII-5 improvements for items #6, #7 and #8, plus $66,000 for construction 9) Afetna Beach Park $10,000 for CIP Improvements design, plus Appropriation (S) XIV.B $70,000 for construction 10) Bicycle Route $25,000 for CIP (E) XV-7 preliminary Appropriation engineering 11) Recreation Facilities To be determined Executive and Maintenance by Public Works Branch Schedule Operating (T) XVI-1 Budget Appropriation D. DEPARTMENT OF NATURAL RESOURCES The Department of Natural Resources has prime responsibility for urging the enactment of the proposed Act to protects habitats for rare, threatened and endangered species within the Saipan Lagoon project area and fo r implementing a program for marine nuisance abatement. The plans are highlighted in Table XXII-4. E. DEPARTMENT OF PUBLIC HEALTH AND ENVIRONMENTAL SERVICES This Department's responsibilities accrue from the program authority of its Division of Environmental Quality (DEQ). Many of DEQ's programs already affect the Lagoon; however, only two plans have been recommended for DEQ to improve the management of the Lagoon uses. They are support for the recently developed Groundwater Management Task Force and the preparation of technical manual to guide design and construction solutions for complying with Saipan's soil erosion and sedimentation control regulations. DEQ also has a secondary role in the implementation of the SAIPAN LAGOON USE MANAGEMENT PLAN. As the Government's watchdog over the quality of the Commonwealth's marine waters, fresh waters and terrestrial resources, DEQ must be included as an official advisor to virtually every XXII - 6 recommendation of this PLAN which impacts on the environment. The primary PLAN implementation responsibilities of DEQ are presented in Table XXII-5. F. DEPARTMENT OF PARKS AND RECREATION By virtue of the Lagoon's many recreation reso urces, this Department has administrative authority over water recreational areas, as highlighted in Table XXII-6. TABLE XXII - 4 FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTING PLANS UNDER THE ADMINISTRATIVE PURVIEW OF THE-DEPARTMENT OF NATURAL RESOURCES Plan (Short Title Financial Legal Reference) Requirements Requirements 1) Marine Nuisance $4,000:for Executive Abatement Plan staff,,materials Branch (S) X.D and equipment Operating Budget Appropriation 2) Important Habitats None required Enactment of Protection Act the proposed (E) XIX-1 Act Important Habitats. None required None required Management Plan (S) XXI.B XXII 7 TABLE XXII - 5 FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTING PLANS UNDER THE ADMINISTRATIVE PURVIEW OF THE DEPARTMENT OF PUBLIC HEALTH AND ENVIRONMENTAL SERVICES, DIVISION OF ENVIRONMENTAL QUALITY Plan (Short Title Financial Legal and Reference) Requirements Requirements 1) Groundwater Management None required None required Task Force (S) VII.B.2 2) Soil Erosion and $15,000 for Executive Sedimentation Control consultant- Branch Technical Manual services Operating (S) XIX.B Budget Appropriation TABLE XXII 6 FINANCIAL AND LEGAL REQUIREMENTS FOR IMPLEMENTING PLANS UNDER THE ADMINISTRATIVE PURVIEW OF PARKSAND RECREATION Plan (Short Title. Financial Legal and Reference Requirements Requirements 1) Water Safety $6,000 for Executive Information producing Branch Program materials Operating (S) IX.C Budget Appropriation 2) Recreation Us e $8,750 for Executive Zones for Saipan printing public Branch Lagoon education materials Operating (S) IX.B and erecting signs Budget Appropriation 3) Saipan Outdoor $50,000 for Executive Recreation Plan consultant Branch (S) IX.B services Operating Budget Appropriation XXII 8 CHAPTER XXIII - IMPACT ASSESSMENT OF SAIPAN LAGOON USE MANAGEMENT PLAN The recommendations of every proposed plan should be evaluated in order to assess the positive and negative impacts that can be anticipated. Obviously, the positive impacts must be found to outweigh the negative, or else the plan fails to. advance the likelihood of resolving those conflicts and problems that it was to address. The inherent methodology for formulating this SAIPAN LAGOON USE MANAGEMENT PLAN was designed to assure that it would produce predominatly positive impacts. By convening SALAPAT representatives of the public agencies and private organizations who have resource protection and economic 'deve.lopment responsibilities for the PLAN area, the thrust of this master planning was directed towards identifying problems and recommending improvement plans which promote positive changes for all concerned. While it is impossible to predict, in detail, all of the impacts that may occur from this PLAN, the general ramifications can be isolated. On the negative side, there are basically two: slightly increased costs of public and private development as a result of mandatory compliance to certain new design, pre-construction and construction regulations which protect the Lagoon environment; and reasonable, but nonetheless unprecedented, restrictions on some uses of private properties. More specifically, increased development costs are to be expected when plans for development along the coastline are challenged by regulations which set limits on construction activities and require additional steps of review and approval before permits are issued. Such procedures are generally decried as "red tape" which accomplish nothing but more headaches and unnecessary costs for developers. While the regulations, etc. proposed by this PLAN are deemed reasonable and requisite to protecting that which makes the Saipan Lagoon one of the Commonwealth's most treasured resources, the Government must always be on the watch for signs which may indicate that its protectiveness is too restrictive and, consequently, self-defeating in the end. The loss of some private property rights as a result of land-use zoning is an inevitable result of increased development pressures of an urbanizing community. This impact is unusually harsh to those traditional and community property rights which have existed for generations on Saipan. In the final analysis, however, when a government is expected to provide for the health and safety of its residents, some means of organizing the various land uses XXIII 1 becomes ne cessary in order to achieve a reasonable scale of economy and e'fficiency. Because this PLAN proposes strict controls over development within the Lagoon and along i-ts shoreline in addition to supporting the zoning and land use districting legislation now under consideration by the Government, it is reasonable to anticipate that both increased development costs as well as some restriction of traditional property rights will result. On the positive side of anticipated impacts, this PLAN will create three primary benefits. First, the PLAN serves to enhance tourism as the Commonwealth's keystone to economic progress. By providing for tourist-oriented recreation opportunities within the lagoon waters and along the beach, tourist satisfaction is fostered. By providing for additional hotel development opportunities and supporting infrastructure plans, positive growth for the tourism industry is accommodated for the future. Second, the Lagoon's natural resources are given additional protection for enjoyment by future generations. The proposed programs, regulations and laws for protecting marine water q,uality, beach sand, and critical habitats for rare, threatened and endangered species, collectively insure these resources against the inevitable onslaught @ of development pressures. Because it is not too late to preserve much of the Lagoon's pristine quality, today's children will be able to pass along this environmental legacy to their progeny. Third, more public recreation opportunities are provided for Saipan residents. Parks, playgrounds and water recreation sports are enjoyed by the whole of Saipan's population; and the PLAN's recommendations would multiply the existing resources by severalfold. The Lagoon is meant for the people of Saipan: beach parks, fishing, swimming and boating are indigenous activities and amply provided for by this PLAN.. XXIII 2 i . VOLUME III J@@ kk I I SAIPAN LAGOON USE MANAGEMENT PLAN FINAL DRAFT VOLUME III LAGOON AND SHORELINE USE MANAGEMENT PLAN Prepared for Coastal Resources Management Office Commonwealth of the Northern Mariana Islands , ek Prepared by Duenas and Swavely, Incorporated in Association with Pacific Basin Environmental Consultants, Inc.