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BUREAU OF PLANNING GOVERNMENT OF GUAM AGANA,GUAM HD 1121.5 .Z63 L36 1984 RELI'ME-INAR Y FO 0,71 E W C) "ecl TTI 1w -TIJ er ce ient of COMM US Departu Centerl,ibrar3 'NOV- on, cm Bureau of Planning Government of Gudn, -d Agana,, -Guan. Document prepared by: David A. Bonvouloir, CZM Program Coordinator Patrick D. McMakin, Planner IV Armand W. Speidel, Planner IV Robin D. Grove, Legal Advisor Michael Gawel, Planner IV Frank Taitano, Planner I Alan Q. Calamba, Enginnering Aide III This document was funded in part by a grant from the Office of Coastal Zone Management, U.S. Department of Commerce. TABLE OF CONTENTS Page List of Tables . . . . . . . . . . . . . . . . . . . . . . . . . . . v List of Figures vi List of M-aps . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii Glossary of Abbreviations ix Chapter I OVERVIEW . . . . . . . . . . . . . . . . . . . . . . . . I A Purpose I B . A Question of Balance C. Definition of Land-Use Element . . . . . . . . . . . . . . I D. Overall Task and Determination of Goals . . . . . . . . . . 4 E. Statement of Objectives . . . . . . . . . . . . . . . . . . 5 F. Specific Tasks . . . . . . . . . . . . . . . . . . . . . . 5 G. Related Comprehensive Plan Elements 5 Chapter II APPROACH . . . . . . . . ... . . . . . . . . . . . . . . 7 A. Introduction . . . . . . . . . 7 B . Policy Guidelines of the Bureau Wpian"ning' 7 1. Urban Development . . . . . . . . . . . . . . .. . . . . 7 2. Shoreline Development . . . . . . . . . . . . . . . . . 8 3. Rural Development . . . . . . . . . . . . . . . . . . . 8 4. Agricultural Development .. . . . . . . . . . . . . . . 8 5. Public Access . . . . . . . . . . . . . . . . . . . . . lo 6. Recreation . . . . . . . . . . . . . . . . . . . . . . 11 7. Housing 8. Transportati on . . . . . . . . . . . . . . . . . . . . 12 9. Expansion and Siting of Maj or Facilities . . . . . . . 13 10. Coastal I-later Quality . . . . . . . . . . . . . . . . . 13 11. Fragile and Hazardous Land . . . . . . . . . . . . . . 14 12. Water Supply Land . . . . . . . . . . . . . . . . . . . 14 X-_ - Lands with Mineral Extraction Potential . . . . . . . . 15 Air Quality . . . . . . . . . . . . . . . . . . . . . . 15 N 't+-Kml Visual Quality . . . . . . . . . . . . . . . . . . . . 15 R" goLi ex Sedimentation and Erosion 16 C. A] terna ti ves . . . . . . . . . . . . . . . . . . . . . . . 16 I. Overview . . . . . . . . . . . . . . . . . . . . . . . 16 2. Alternatives of Approach . . . . . . . . . . . . . . . 16 Chapter III PHYSICAL AND CULTURAL CONSIDERATIONS . . . . . . . . . . 19 A. Physical Setting 19 General 19 2. Climatic-and Seismic'Conditions . . . . . . . . . . .. I 9 20 3. Northern Guam- 4. Central Guam . . .. . . . . . . . . . . . . . . . . 20 5. Southern Guam - 21 6. Coastal Features 22 B Hisiorical and Cultural Setting . . . . . . . . . . . . . . 23 Paqe Chapter IV GROWTH AND CHANGE CONSIDERATIONS 29 A. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . 29 B. Population . . . . . . * ' ' " " ' * ' 29 c. Projections for Population Growth . . . . . . . . . . . . . . 29 D. The Economy . - - - ' ' ' ' * " ' ' * ' * * . * ' ' * ' ' 36 1. Principal Economic Activities . . . . . . . . . . . . . . 36 a. The Construction Industry . . . . . . . . . . . . . . 36 b. The Retail and Wholesale Trades 39 c. The Service Industry . . . . . . . . . . . . . . . . . 41 d. Tourism . . . . . . . . . . . . . . . . . . . . . . . 41 e. Mi I i tary . . i * i * . . . . . . . . . . . . 43 f. Private Investment an@ L*o@ai G*overnment . . . . . . . 43 E. Industries for Growth: Agriculture and Transshipment . . . . 45 Chapter V LAND-USE PLAN . . . . . . . . . . . . . . . . . . . . . . 47 A. Land-Use District .. . . . . . . . . . . . . . . . . . . . . . 47 1. Urban District . . . . . . . . . . . . ... . . . . . . . . 47 2. Rural District . 47 3. Agricultural District . . . . . . . . . . . . . . . . . . 48 4. Conservation District . . . . . . . . . . . . . . . . . . 49 B. Areas of Particular Concern . . . . . . . . . . . . . . . . . 50 1. Overall Definition . . . . . . . . . . . . . . . . . . . . 50 2. Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . 50 3. Policy * 50 4. Basic Criteri@ a*nd' M*an'ag'em*en*t' 50 5. Study Breakdown of Areas of Particular Concern . . . . . . 51 6. Discussion of Approach . . . . . . . . . . . . . . . . . . 52 7. Areas of Particular Concern . . . . . . . . . . . . . . . 53 A. Resource Development Sites . . . . . . . . . . . . . . 53 Mineral Extraction I - - - - - - - - . . . . . . 53 Industrial and Corrme@clal Support . . . . . . . . . 55 Power Production and Transmission Facilities . - 55 Commercial Port . . . . . . . . . . . . . . . . 57 Superport . . . . . . . . . . . . . . . . . . . . 57 Agricultural Support . . . . . . . . . . . . . . . 60 Districting Methodology . . . . . . . . . . . . 61 Agricultural Irrigation Needs. 62 B. Facilities Requiring Shoreline Location 64 Resorts 64 Boating, Fishing, Aquaculture and Associated Services and Facilities . . . . . . . . . . . . . 66 Educational Institutions and Facilities . . . . . . 66 Parks and Beaches . . . . . . . . . . . . . . . . . 66 Surfing Sites . . . . . . . . . . . . . . . . . . . 66 Waste Disposal and Stormwater Drains . . . . . . . 68 C. Hazard Areas 69 Airport Ac@i'de@t'P*ote*n*ti*al*an*d'SLund'Z'one*s' 69 Flood Hazard Zones . . . . . . . . . . . . . . . . 73 Slide and Erosion Zones 74 Topography------. . ... . . . . . . . . . . .... . .. 76 Seismic Fault:'Zones 79 D.- Freshwater- Resources 80 Paqe E. Unique Terrestrial Ecosystems 85 Terrestrial Pristine Ecological Communities 85 Wildlife Refuges . . . . . . . . . . . . . . . . . 85 Proposed Critical Habitats . . . . . . . . . . . . 85 Limestone Forest . . . . . . . . . . . . . . . . . 85 Wetlands . . . . . . . . . . . . . . . . . . . . . 88 60 F. Unique Marine Ecosystems 93 Coral Reefs . . . . . . . . . . . . . . . . 93 Marine Pristine Ecological Communities . . . . . . 96 14, a Cultural and Recreational Areas . *. . . . . . . . . t7' Major Parks and Village Recreati on Areas 97 Historic and Prehistoric Sites 100 Scenic Vistas . . . . . i . . . . . . . . . . . 103 Other Areas of Proposed DevelopmLnt . . . . . . . . . 105 .0 Subdivision Development Areas . . . . . . . . . . 105 Unplanned Urban Form . . . . . . . . . . . . . 107 Urban Design . . . . . . . . . . . . . . . . . 107 Cluster Housing 108 C. Revised Zoning . . . . . . . . . . . . . . . . . . . . . . . 110 ;P Chapter vi REGULATORY MECHANISMS . . . . . . . . . . . . . . . . . . 113 A. Enforcement of Land-Use Related Law . . . . . . . . . . . . . 113 B. Bills 233 and 234 . . . . . . . . . . . . . . . . . . . . . . 115 1. Overview . . . . . . . . . . . . . . . . . . . . . . . . 115 2. General Discussion . . . . . . . . . . . . . . . . . . . 115 3. Bill 233, Objectives . . . . 116 4. Bill 233: Purpose, Code ChangLs'and'SLct'io'n;l Ana' lYsis 116 5, Bill 234, Objective . . . . . . . . . 119 6. Bill 234: Purpose, Code Changes and Sectional Analysis . 119 Chapter VII FURTHER REFINEMENTS AND RECOMMENDATIONS . . . . . . . . . 122 A Community Design . . . . . . . . . . . . . . . . . . . . . . 124 To B. Large Scale Lot Line M-apping 131 C. Revision of Zoning Maps . . . . . . * 131 D - Mapping of Government of Guam Land . . . . . . . . . . . . . 132 E - Coordination and Enforcement Agencies . . . . . . . . . . . . 132 F - Revised Seashore Protection Act and Seashore Reserve Plan 134 APPENDIX . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 136 1 - Community Population Projections for the Year 2000 136 57 2. Power Production Facilities, 1977 . . . . . . . . . . . . . . 141 3. Surfing Sites on Guam 142 d- & A Summary of the Reports Completed by the Bureau of Planning, 1976-1977, for Use as Background Data . . . . . . . . . . . 144 Forthcoming Studies Being Developed by the Bureau of Planning to be Completed Prior to December, 1977 146 CN J7 ' ' * Forthcoming Studies, Related to Land and Water ResL@ce*s, Being Prepared by Other-Agencies . . . . . . . . . . . . . . 148 BIBLIOGRAPHY . . . . . . . . . . . . . . . . . . . . . . . 151 iv LIST OF TABLES Table No. Page No. I Selection of Population Projections . . . . . . 31 2 A Summary of Municipality Growth Rates to the Year 2000 . . . . . . . . . . . . . . . . . . . . . . . 32 3 Population Changes and Percentages in Northern, Central, and Southern Guan, . . . . . . . . . . . . . . 32 4 Average Number of Employees in Retail and Wholesale Trades . . . . . . . . . . . . . . . . . . . . . . . . . 39 6 Topography Ratings . . . . . . . . . . . . . . . . . . 76 6 Village Recreation Areas . . . . . . . . . . . . . . . 99 v LIST OF FIGURLES figure No. pd@e 1 planning for a Balanced Resource Use 2 2 The Land-Use Planning Process . . . . . . . . . . . . . 3 3 Comprehensive Planning and Federal Consistency 6 4 Guam's Coastal Problems. 9 5 A History of Land Use and Planning on Guam . . . . . . 27 ......6 Population Projections for Guam . . . . . . . . . . . 30 Pie Chart of Ethnic Comoosition of Population 33 7 8 Ethnic Population by Age Group . . . . . . . . . . . . 34 9 Sex Composition of Population by Age Group . . . . . . 35 10 Gross Business Receipts by Sector . . . . . . . . . . 37 11 Employment on Guam . . . . . . . . . . . . . .. . . . . 40 12 Government of Guam Revenues and Expenditures 44 13 Relationships of Heavy Industrial Land Use in the Apra Harbor Area . . . . . . . . . . . . . . . . . . . 53 14 Monthly Rainfall for and Eleven Year Period 63 15 Land Use Compatibility Matrix for Airport Sound and Hazard Zones . . . . . . . . . . . . . . . . . . . . . 72 16 Destructive and Compatible Development on Sloping Terrain . . . . . . . . . . . . . . . . . . . . . . . . 78 17 Cross-Section of the Sasa Wetland 91 18 Comparison of Convential Subdivision and Cluster Development .109 19 The Three-Tiered System of Land-Use Planning -112 20 Land and Water-Areas and Regulatory Agencies and Commissions---. .114. vi Fiqure No. Page 21 The Relationship Between the Land-Use and Community Design Elements of the Comprehensive DevelopTrent Plan 123 22 A Conceptual Model of the Land-Use Control System 3 3 23 The Logical Approach of a Balanced Resource Use . . . . 135 VII LIST OF MAPS I-lap No.- Page I Resource Development Sites . . . . . . . . . . . . . . . . . . 2 Shoreline Facilities . . . . . . . . . . . . . . . . . . . . . . 3 Surfing Locations .... . . . . . . . . . . . . . . . . . . . . 4 AFFB Sound and Accident Potential Zones . . . . . . . . . . . 5 NAS Sound and Accident Potential Zones . . . . . . . . . . . . 6 Slide and Erosion Zones . . . . . . . . . . . . . . . . . . . 7 Seismic Fault Zones . . . . . . . . . . . . . . ... . . . . . 8 Water Resource Development Sites . . . . . . . . . . . . . . . 9 Water Classification Map . . . . . . . . . . . . . . . . . . . 10 Unique Terrestrial ECbsystems 11 Wetlands 12 Unique Marine Ecosystems . . . . . . . . . . . . . . . . . . . 13 Cultural and Recreational Areas . . . . . . . . . . . . . . . 14 Park Areas . . . . . . . . . . . . . . . ... . . . . . . . .. . 15 Subdivision Development Areas . . . . . . . . . . . . . . . . Glossary of Abbreviations Found in the Text AAFB Andersen Air Force Base AICUZ Air Installation Compatible Use Zone APC Area of Particular Concern BP Bureau of Planning CPC Central Planning Council CZM Coastal Zone Management (Guam Coastal Management Program) COP Comprehensive Development Plan CEIP Coastal Energy Impact Program CHP Comprehensive Highway Plan COE U.S. Army Corps of Engineers DLM Department of Land Management DPR Department of Parks and Recreation DPS Department of Public Safety DPW Department of Public Works EDA Economic Development Administration GEPA Guam Environmental Protection Agency GHURA Guam Housing and Urban Renewal Authority GPA Guam Power Authority HUD Housing and Urban Development LUC Land-Use Commission NAS Naval Air Station NCS Naval Communications Station OEDP Overall Economic Development Plan PUD Planned Unit Development PUAG Public Utilities Agency of Guam SDRC Subdivision Development Review Committee SPC Seashore Protection Commission TPC Territorial Planning Commission UOG University of Guam WRRC Water- Resources Research Center 208 Areawide Wastewater Management Plan 305 Coastal Zone Management Program Planning and Development god @J INPUTS INPUTS * Resource Eyniuation Studies 9 Population Projections 9 Areas of Particular Concern 9 Hou6na Needs :impacts of Proposed L)evclopmont a Unemployment ConsWerations Nsaster Impacts, (typhoons. * Economic Considerations floods, eallhQUOkes) eVisitor Survey flesulls *Fresh Wator Avail3billty Etc. Eln. J L- NEEDS RESOURCE. REQUIREMENTS ClEvELoPmENTA "outing e Water Resources Industry it Agricultural Lands 9 Resorts RecroDflonal Areas Open Spaco s Commercial Servicos *Public Institutions Scenic Vistas *Roods Wildlife Habitats $Utifities Hislodca) Sites #Parts and Airports rice Usc Figure I Planning,for ia'Balanccd ReSOU to Nect, Both Rcsource and Developmental lzequirements J.; OVERV I EW A Purpose. The rost important factor daterinining tha quality of our environment is the use ,,,,e make OF our land and water resources. It is the purpose of the Land-Use Element of the Comprehensive Development Plan to establish a long-range (20-25 year) blueprint for development on Guam. Envisioned growth takes place in a manner which reflects the need for expansion in all social and economic sectors but, at the sar.-,e time, recognizes the need for establishing guidelines for growth in 'areas where unplanned development would have a significant negative impact upon the well-being of the people of Guam. A "blueprint" for land and water use is not a fixed plan. Like the growth it seeks to guide, it is dynamic, flexible, and subject to revision as the myriad of factors influencing development themselves change. B. A Question'of Balance If the island of Guam were much larger, if we had a great abundance and variety of resources, and if the population growth were much lower, we would not have to worry as much about what type of develo ment should occur and where. Since Guam is small (212 square miles@, much of the land is owned by the Federal government (31.5%), resources are few and limited, and the growth rate relative high, we must seek a'balance of proposed development against the public benefit gained from that development. Due to our limited land area, we niust assure 'he location that this balance recognizes both the needs for growth, and L of that. growth in areas which can support it without producing unacceptable impacts on both the land and people of Guam. (See Fig 1.) This "balancing test" is the central issue of planning. The Land-Use Element, as well as other elements of the Comprehensive Development Plan must be able to apply the balancing test to all aspects of development in order to have a workable plan which does n 0t arbitrarily restrict the rights of the people. C. Definition of Land-@Use'Element The Land-Use Element is an integral part of the broader planning process involved in the "Comprehensive Development Plan" as defined by Public Law 12-200. While the Comprehensive Development Plan defines, future development in the terms of all determinants of growth and change (economic, political, social, and physical), the land-use part of the overall plan is the physical interpretation of those other elements.of the plan on the geographic areas of Guam. It is primarily concerned with the arrangement and types of land use, their impact upon the environment, and.relation to community development. Basically, the planning-process consists of a number-of conceptually'' distinct phases as shown in Figure 2. Public.. Involvement and Information Exchange -3: :_X X. ld2ntification Collection Formulation Plan X. A ppfova4 4 of Plans of Problems and Review and and Interpreta- and IMPLEMENTXMIN Statement of tion of Data Alternatives of Plans X4 Objectives X, :..J r -Enviromental, Social, and Econoi .-IM a (:41s, Evaluation of.. Figure 2 The Land-Use Planning Process -3- D The Overall Task and Determination of Goals The major objective which a Land-Use Element atteimpts to address can be expressed in a single state.T.2nt: "to organize, coordinate, and guide the process of growth-caused development so as to protect what the people of Guam most value as the environmental, cultural, and aesthetic characteristics of the island while meeting the essential needs of an increasing population." The following goals relative to the land-use planning effort were established through a questionnaire survey technique which solicited public opinion concerning a number of selected goal statements taken from a wide range of existing ' planni.ng documents and statements by government officials and political spokesmen: 1. Land-Use: Strive for an environment that promotes the general health and welfare, provides for all land uses and a choice among living, working, cultural , and recreational opportunities. 2. Natural Resources: Develop Guam's natural resources according to a balanced management program. This involves rational use of renewable and non-renewable resources and protection of those areas, both natural and man- made, which are critical to our health, safety and welfare.- (This goal has been amended to support-the objectives of various agencies'involved in the manage- ment of Guam's natural resources). 3. Recreation: Develop Guam's recreational resources to satisfy, the desires of visitors and residents, and to preserve the island's scenic vistas, historic sites, natural areas, and beaches.. 4. Cultural Heritage: Preserve and promote Guam's historical and archaeological heritage and varied cultural character so that future generations may understand their past as well as their development as a society. 5. Housing: Assure that safe, sanitary housing is available and within the financial reach of every family. .6. Economy: Continue on the road to self-sufficiency and manageable economic growth by developing a broad basic economy ty, small business, tourism,.. emphasizing military activit ..agriculture,.and.fishing. . .... . Goals do notdescribe-a@final productdesign, rather- they- set the' -of the commtmity, feel shouldbe the priorities direction. whi clr,@ people of their government.. -Although citizen participation was. substantially less than desired, the fact that land use, recreation, and natural resources were second ranked after education and employment indicates a significant desire- by-the people of-.Guam to. improve- the-process by: re made- .. ... which land-use decisions a E Statement.of Objectives Public Law 12-200 as amended direc-L-.s that "the Government lif Guam shall initiate a systematic, continUOUS, farsighL'ed planning Policy. - - 11 To that end, the Buroau of Planning was established to achieve certain objectives in a Land-Use Element. Determine the extent that our natural resources li,-..it urban and rural development. . Plan for preservation of the natural charm and character of Guam within the frame,,.jork of a gro,..jing population and modern technology. . Establish generalized areas of land use within an Urbarl, rural, agriculture, conservation, and resort context. . Provide guidelines for relocation of insufficient or inappropriate major uses. . Plan for a high quality environment. Recommend creative legislation regulating the use of land for the protection of future generations. F. 'Specific Tasks Establish designations for general distribution and location of the use of land. Include a statement on population density and building intensity for the various districts and other areas covered by the plan. Include a statement on regulatory devices governi'ng the use, development, and subdivision of land. Develop a Community Design Element (separate but closely related to the Land-Use Element) showing recorirended designs for community and neighborhood development and redevelopment. Develop a Conservation Element for the conservation, development, and utilization of natural resources. G. 'Rel6ted'Cbmprehensive'Plan Elements The Land-Use Element cannot be developed as a separate entity. It reflects the findings and recommendations of several elements, which, when combined, constitute the Comprehensive Development Plan. The other closely related elements which are incorporated as much as possible into the Land-Use Element are the: . Transportation Element . Regulatory Element . Public Building Element . Housing Element . Recreation Element <@. qtJC'r;C C'A PVeXtArVAI, . Safety Element . Five-Ye 'ar Proposed Capital Improvements . Five-Year Socio-Economic Plan Such additional elements related to the physical developmen he.Territary. of t -5- PnISTINE MARINE COMMERCIAL POnT ECOLOC31CAL EXPANSION COMMUNITY LUMINAO EE?--*'-@ C BRAS ENERSY YACHT ILAND PnODUCtION CLUB FACIL11"It'l C-PITICAL MA131TAT FOR ENDANGERED SPECIE3 RAT HAI PROPOSED AWWO WHARF GAROAD SEACA MANGAVE WIL RECREATIONAL HABITAT AREA MAN -MADE su HAZARD ZONE RSHES F_ -0 0 c: SLOPES IN EXCES3 OF 15 % MILITARY cl) S_ <L) cli LIMESTONE AREA T FORES RESTRICTED AREA 6 41@ ul f15 170 ATA @ANO A-1,vErk,, CL WETLAN@ > (D a C) CL) (1) u RIZAL 13EACH 1`0 0 RECREATIONAL AREA GUAM OIL REFIN @j APPROACH A The Land-Use Eleui2nt's preparation required at the outset a statement of policies which serve to guide the formulation of speci-Ific plans. considerable time has been spent reviewing both existing and proposed legislation, existing and proposed resource managem2nt prograr.".s under development by other agencies, and the various federal guidelines requiring the inclusion of a Land-Use Element flor future programs. Folio,aing is a series of policy statements and rationale,@r in,@icatipg the direction the Land-Use Element emphasizes relative to: 1. Urban Development 2. Shoreline Development 3. Rural Development 4. Agricultural Development 5. Public Access 6. Recreation 7. Housing 8-. Transportation 9. Expansion and Siting of Major Facilities 10. Coastal Water Quality 11. Fragile and Hazardous Land 17R, 12. Water Supply Land 14. . Lands with Mineral Extraction Potential C@y . Air Quality 14 . Visual Quality Sedimentation and Erosion B. Policy Guidelines of the Bureau of Planning It shall be the policy of the Government of Guam, through the implementation of the Land Use Element to: URBAN'DEVELOPMENT Policy 1. Encourage concentration of high-intensity, high-density develop-ment in areas of existing urban or urbanlike development as indicated on the districting map, and to ensure that such development is compatible with adjacent land and water uses, Rationale: In order to remedy the past practices of haphazard and friTg-mented placement of residential, commercial, and industrial deyelopment, and to promote a rational pattern of growth, the L Qovernment-of Guam must encourage the concentration of high - intensity use in already developed areas having additional capacity for future development. The existing patterns of unwarrented urban sprawl resulti.ng from strip zoning along major transportation networks must yield to a more efficient land-use pattern which would prevent development from encroaching, project by project), into rural, agricultural, and conservation areas; or areas of particular. Concern. Limited capital improverrents funding dictates that high-intensity growth must. be channeled into areas within or i=edi ent.to the existing infrastructure net. The ately.adjac government cannot-afford to continue the trend of providing expen-- - sive infrastructure such as sewer or major water lines, etc- to -7- ou@ Ulying developm-?nts 0-f- subdivisions locaLLed in areas re;--.oved ftom existing residential , eimployinen@., or commercial cent-2rs. At -the same time, within identified urbcin districts, cc-mmercial and industrial uses must be concentrated in areas @-,,hp-re conflict from adjacent land uses can be ayoid2d. For example, an R1 or R2 use designation should not be considered compatible wit@ areas having particularly hazardous characteristics such as a primary airport sound or accident potential zones. SHORELINE DEVELOPMENT policV 2: Encourage only development, adjacent to the shoreline, i-@Jhich is both consistent with the intent of the Seashore Protection Act and directly dependent on the proximity to the ocean shore for the use proposed. The activity must not adversely affect public access to or along the shore. Rationale: One of the most unfortunate results of urban sprawl and strip commercial/industrial development has been the placement of a number of enterprises directly adjacent to potential beach and shore recreation areas. Often this development bears little or no relationship to the shore itself creating a pattern of non- complimentary use which not only hinders access to public recreation areas, but creates an unsightly, (and at time hazardous), con gl orrera- tion of development. Such land-use patterns destroy both the aesthetic and visual appeal of the shoreline, as well as prevent a multiple-use approach which could be highly beneficial to people livi.ng within adjacent urban areas. RURAL DEVELOPMENT Policy 3: Designate areas, for the most part adjacent to urban areas, where future urban expansion can occur with reasonable certainty, and promote only that type of growth within these 11rural" areas which would not irrevocably commit that land to a use inconsistent with future urban expansion. Rationale: In line with encouraging efficient development of urban-type use v!ithin the urban district, the time will arrive when areas are not available for further development. At such time, contiguous areas to the urban district can be provided wi th infrastructure capable of supporting urbanlike development. In the interim, 'Should any high-intensity development, be planned for- designated rural districts, the developer will be charged with provision of adequate infrastructure according to the rules and regulations for the type of development being proposed. AGRICULTURAL DEVELOPMENT Policy 4: Conserve lands under or having a potential for intensive agricultural. development. Figure d Guam's Coastal Areas Face a Coinplexity of Problems Pcwer Plants Increcso 15.1 Water Temperaturg Cruse Air Fb;lulion and Impairs SceZ View Sewcge and Storm-- water Discharge, Pollutes Marine, Mar Environn-*nt Upland Development ","Nor Causes Sedimems to ,,Saw Enter the Wate Urban ExpomowLjMft i Visual and Public AccM., and Encroaches Upon a Op Flood Plain + HousingL Reduces- Opelv Spacep- Dock Construction Effects Current and Sand Flow- IIWr, Dredgincj Causes_ W IJI Sedimentaii ow Probkrm Utilizes L UTff t9&__L_ - Resou, 7! Scars tho Lard Landhilt Reduces- W at kmd Widlife Hc:bdcts--- -Litterv AbcndOrOxi Cori, on& DiWpftp4 DuO;.tOaV=x)9IMPQ He6" H= n. - . - Rationale: The present emphasis of the government's "Grn_;@n V,@V-olLltion" -is aimed at developing GUM'S CaPability of bacoming productive rather than consumptive in the area of fruit and vegetable production. 11hether or not this effort will b-2 successful will be determinad by a number of factors such as availability of irrigation viater and related infrastructure, provision of real economic incentives to potential farmers 14ty , (e.g. crop insurance, tax incentives, loan availabi 1 income guarantees), the ability of a fledgli.ng agricultural industry to compete favorably with imported foods, natural hazards, and the ability of farmers to establish a cooperative comprehensive production plan. Despite these difficulties, the present and short run policy for agriculture will be development oriented. Therefore, there must be a parallel policy within land-use planning to encourage only agriculture oriented devalopment to take place in lands with a production potential. This policy can be seen in the intent of several programs such as agricultural leasing, agricul- tural preserves, and cooperative agreements with the railflar for y use of federal lands for agricultural production. If and when this policy is altered in the future, these lands can be designated for alternative types of development. However, with the amount of land already available for high-intensity development, an irreversible commitment of lands with an agricultural development to other uses is discouraged. PUBLIC'ACCESS Policy 5: Ensure the public right of unrestricted access to all territorial ocean shore, recreation areas, parks, scenic overlooks, trol of the Territory conservation areas, and areas under the cont, of Guam; and to encourage, through cooperation with the Federal government, access to those areas under federal control which should be available to citizens of Guam. Rationale: Traditional patterns of land ownership permitted unrestricted access to many areas of the island. Section 13451 of the Government Code declares "that it is the public right to have unrestricted access to the ocean shores of Guam for the corimon use by all the people of Guam." Certain types of development on th restricted access property adjacent to the ocean shore have boL to the ocean shore, and through approval of development not consistent with a multiple-use concept of the ocean shore, destroyed portions of the shore for any land-based use by the public. Declared conservation areas are, in some cases, inaccesstiMe due to lack of trails, roads, or other means of access. Certain areas under control of the Federal government are prime recreational areas, yet are not open to the general public. Recent coordination among the Air Force, Navy, and Government of Guam has provided additional access to areas such as NCS Beach; however, access to other areas such as Ritidian Beach, Fena Reservoir, and others remains restricted..... VIhile the Bureau of Planning and the GoVernirent of Guam recognize%:,the need for certain security precautions, .7 or additional recreational a- as must be c nsid red future pressures if re with respect-to.portions of the island under federal control; and the number of people benefiting. from such designations- _10- RECREATION Policy 6: Increase recreational opportunities for all citizens while protecting fragile coastal and inland areas .-ihich mly be irreversibly harmed by unplannad d2velop--.2nt. Rationale: Several reports, most notably, the Bureau of Planning's S LI k'V ey itudes To,,@iards Land-Use'Planning have strongly supported puUlic awareness of the need for increased recreational facilities now and in the future. Generally, certain types of recreational facilities can be consistent with even the most sensitive areas of particular concern. The major concerna relative to recreation will continue to stress the flolloai.ng areas and emphasizethalt: a. Development of high-impact recreational facilities (ex. race tracks and marinas) m@st be compatible both with surrounding land usey and the natural environment. b. Adequate recreation areas for high-density residential areas are provided within the boundaries of the proposed development, or at least are easily accessible to the residents within such an area, including opening access of the island's many military recreational facilities to the public. c. The' limited recreational resources are developed (or preserved) for future-uses. These would include beaches, wildlife and marine conservation areas, scenic overlooks, parks, and historic sites considered to be of recreational value. d. Community recreational areas are provided to adequately meet the need for such facilities as well as being located in areas suitable for such development. e. Major development within Apra Harbor be carried out in a manner which addresses a multiple-use concept for shore and water recreation. f. Tourism-related recreational facilities be located and developed according to well-planned objectives, and have a minfinum negative impact upon the environment. The Bureau of Planning is now and will continue to be closely coordinated with the activities of the Department of Parks and Recreation in planning and providing input for proposed recreational development. HOUSING P61iq 7: Allow well-planned development of higher density residen-_ tial lots in des.ignated urban districts which are provided with functioning sewer, water, pow6@, and road systems, and where surroundi'ng land-uses'would not be incompatible with high-density-'..' residential use.... 7 m Rati on a I e: It is recognized that trAditionll housing patt2ros ha,le @_entered around single-faini 'ly housing and the eXtended 'amily. However, due to inflationary pressures on housing costs, scarcity 01F J@nd with full seryices, and fractional or substandard lot problems, the government must address a means for provision of decent and ing for a gro-,qing population. The increase olf apartmant adcquate hou� L dwellers from 107, to 22@', since 1970 indicates that, lvihile pernaps not- an optimum solution, higher density residential development may be tha only m2ans of providing adequate housing. For this reason, legislation prepared by the Bureau of Planning recorm.,ends that lots froi-ii 2500- 5000 sq.ft. may be feasible under certain circumstances if properly planned. Cluster housing and small-lot housing, often requires more attention to be given to recreational areas and landscaping. In reviewing proposals for such development, close attention vffll be given to these considerations. In rural, agricultural, and conserva- tion districts as well as urban districts with lower intensity zoning, minimum lot size's are specified. Small lots (2500-5000 sq.ft.) will not be allowed at any location, but rather will be evaluated on a PUD approach to avoid the development of potential blight areas by over crowding. TRANSPORTATION Policy 8: .Support the development of a balanced transportation system including the reconstruction of primary and secondary roads in poor condition, the Implementation of a mass transit systern and the introduction of a pedestrian and bicycle system as alternatives -to a dependence on the automobile, within the context of the Land-Use Plan such that efficient,- safe, and reasonably economic solutions to existing transporta-tion problems are realized. Rationale: The extreme geographic constraints on development, relatively small size of the island, population concentration in -relation to work centers, and the size of the projected population necessitates an efficient.- transportation system. To meet the transportation needs of the island by the year 2000, both major highway reconstruction and modification of.present attitudes' toward transportation will have to take place. -For the most part, the Department of Public Works Comprehensive Highway Plan (CHP) p@ovides'a balanced approach to these considerations. The Bureau of Planning's Districting Map reflects what planners see as the physical distribution of population, and supporting economic activity to,the year 2000, and 'generally agrees with future traffic demands outlined in the CHP. As avoidance of unwarranted sprawl is a major objective oF the Land-Use Plan, the Bureau will closely examine each highway proposal towards 'nieeti ng this objective. In addition, major new and proposed reconstruction activities will be examined closely, relative to severe environmental impacts. The foremost examples of these are: a Camp Watkins Road to Agana, Piti (widening of Marine Drive) b. Talaguac Road Extension' C. Route 15 to Route 4 Connector' Our concern viith "b" and "c" lies i 'n the fact that these proposE:d roads pass directly through th,2 Chalan Pago-Ordot aquifer recharq-:@ 'Extensive deyelopinent of this area is not recomni--@nded until area. L such time as the nature of the groundwater occurrence is fully understood, or 'that proper seeiering is available. Widening Narine Drive, adjacent to the shoreline, rrust be eyamined and designed for minimum impact to the shore and marine environment and maintcnance of public access to the seashore. Available -,ass transit as well as @Iternative modes of individual transportation r,-.ust be vigorously pursued if Guan. wants to avoid a transport systein crisis in the next 5 to 10 years. EXPANSION AND SITING OF i',IAJOR FACILITIES Policy 9: Designate and plan for specific siting of major facilities, public and private, such that the optimum use of limited land resources can be realized with Minimum impact on the environment and minimum disruption of surrounding or adjacent land use. Rationale: Guam is fortunate in one sense by being of a size such that locition of major facilities can be programmed with some degree of certainty. The major Land-Use Element concerns relative to major facility siting will be: a. Energy Production and Transmission b. Petroleum Refining c. Commercial Port d. Airport e. Mineral Extraction and Processing f. Solid Waste Disposal g. Sewage Treatment Facilities h. Major Reservoir Sites Generally, the location of all these facilitibs has been determined to the year 2000. Further discussion of this topic appears in Chapter V, Sections A And C. COASTAL WATER QUALITY Policy 10: Eliminate polluting discharges into the island's coastal waters. Rationale: The effects of polluting discharges into the island's coastal waters has been well documented through the efforts Of many Government of Guam agencies, in particular GEPA and.'the University of Guam 114rine Lab. The task of eliminating 100% of all discharges into coastal waters is, of course, not feasible. However, the majority of the polluti.ng discharges can be eliminated through planning which is more responsive to potential environmental and economic consequences. The Bureau of Planning shall be guided by thIs and othei- policies'developed Dy GEPA and other aqenctes aimed -13- aL nt, e I iminc,, tion, o r t-@t I eas L 111-i @, I g.-),- i on (,If, of p0llU'Ling djsdh,_@rges brwight aboi.A hy: a. Discharge of sewige ef-fluent"s b. Sediiientation and erosion r@innffl c . Storm wa ter runo ff d. Theraial discha-rges e. Oil and toxic SPills f. Dredging and -filling g. Pesticides and ch-emicals Standards controlling alloviable limits witMin the above cat,2yories have been or will shortly be developed by GEPA, and will b@! enforced by GEPA. The Bureau of Planning will be developing certdin overall performance@, guidelines for areas of p(-trticular concern (see Chap"Cer V, Section B), however, these will be based upon already developed rules and regulations for such- things ,is sedimentation and erosion, etc. lot FRAGILE AND HAZARDOUS LAND Policy 1.1: Ensure that development of fragile areas shall not diminish the natural or cultural value of an area through irreversible development. Identified hazard areas shall riot be developed in ways that would pose unreasonable risk to the health, safety, or welfare of the people of Guam. Note: The specific categories of lands under this policy are addressed under Chapter V, Section B, Group (a). Rationale: As indicated on the Districting Map, sufficient lands for residential, commercial, and industrial growth exist without having to irreversibly alter fragile areas, or areas-of particular concern relative to Unique and fragile environmental considerations. By the same measure, extensive development in identified hazard areas, such as floodplains, erosion-prone areas, airport crash and sound zones. Karst formations, or major fault areas will not be condoned without adequate safeguards for the persons using such areas. WATER SUPPLY LAND Policy 12: Fresh water resource lands shall he protected from development having irreversible or potentially harmful impact# upon the capacity of such lands to provide an adequate supply of pure water for consumption, irrigation, or other uses. Rationale: Fresh water is one of the m,ijor growth limitations to the island.- Although blessed with an excellent aquifer, (the Gyben-lierzenburg lens system as identified i *n John F. Mink's Ground,.,)ater Resources of Guam:' ' Occurence and' Devel opment) we must continue to emphasize conservativedevelopment in these areas, as well as protection of watersheds with the potential of providing surface reservoirs in the southern half of' the island, Until such time as the physics of the aquifer isJully understood, the government will continue, to discourage intensive development in these areas. CONSERVATION OF NATURAL RESOURCES Policy 13: It shall be the Policy of the Government of Guam to make thei-fi-i-JEFst and best use of the island's limited renewable and non- renewable natural resources for the long-term good of the people. The resources that are considered in this category include fisheries, wildlife, minerals, outdoor recreation, range, timber, water, and wilderness. Rationale The natural resources of Guam are limited to the island's 212 square miles and offshore marine areas. Presently, and more so in the future, intense demands will be placed on these natural resources. Long-range decis 'ions concerning the optimal use of these resources must be made in order to maintain a viable economy and a pleasant environ- ment for the people. This is preferable to utilizing the natural re- sources for the,immediate short-term gain of a few individuals.. LAN'D_S_ V11TH MINERAL EXTRA'CTION' POTEiNTIAL Policv 14: Ensure that la@nds, identified as having significant potelli-11-a-7 for mineral resources, shall not be designated -for intensive developmInn-t. Land-,$ identified as being environmientally, historically, or other@wise having additional value shall not be developed for extraction purposes unless an extremely strong case can be presentled by the developer based on indisputable evidence that no al-ternative sites are available. Ra ti onal e: Guam does not. have extensive mineral resources; those that xist are genera -ic do e lly recognized as limestone, sand, some basalt aggregate, or other relatively low value deposits. For this reason, identified areas suitable for extractive use should not be encroached upon by high density development which would [email protected] limit ongoing or potential use, or create a potential nuisance or health and safety hazardi in the area olf proposed development. Inversely, if potential sites are located upon or adjacent to uses not compatible with an extractive operation, the site should not be developed unless the developer can prove to the satisfaction of the Land-Use Commission A. or involved government agencies that no acceptable alLerna--ives exists. (See ChapAt-,er'V, Section P. Group (a). AIR QUALITY Po I icy Tr: Ensure that various programs dealing with lend-use planning and management seek to achieve air quality goals as defined by G17DA L-, by using such air quality standards developed as guidelines for high- impact use locations. Rationale: Land-use planning and management must reflect.the goals of. clean air efforts in the face of pressures for future industrial growth and development. Like other pollution problems, such as wastewater and solid waste disposal, air quality will continue to have a profound effect upon the island's economy especially if tourism remains a major contributing factor to the economic welfare of the island. Clean air, in this light, should be considered a major resource of the island. While agencies involved in both functional and long- range land-use planning will not be the enforcement power behind clean @ir regulations, 'they will be constantly - involved in promoting the type and1ocation of high-impact uses which are consistent with clean air guidelines and regulations. VISUAL QUALITY Policy Preyent destruction, impai@ment, or other d.agradation of the island's scenic and visual resources. Rationale: Visual or scenic considerations of. an area are most diffi'cult to define since'subjective rather than obj6ctive.criteria must be used to define "quality." Rather than attempting to come 7.".. up with a set of objective crtteria.to 'measure' visual or aesth@-Lic--@. quality, the'land-use, planning policy is to avoid certain practices.,.'...... that obviously create unsightly or incompatible use, such as sprawl and strip development, incompatible use with either the character or the land or surrounding use; unnecessary interference -15- of larid-to-sea or land-to-land Vistas, objectionable sign or advertisement placeimenL, etc. 'W'hile such rules and regulations do exist which address SLIch subjects as signs, height li;, .J Le- and blockage of view on the land-sea interface (Seashore L, Uions , Protecti 'on Act), the lack of an in-force master developm,2nt plan indirectly allovis development inconsistent with the int-en.- of these regulations. It is the aim of the land-LIS2 dis-t-ricting approach, the regulation of areas oF particular concern, the developrilent of a community design plan, revised and strengthened enforcement mechanisms, and eventually, revised zoning standards and maps, to resolve these issues. SEDIMENTATION AND EROSION Policy 1 Demand strict adherence by all proposed development to erosion and sedimentation guidelines, encourage development in areas not prone to erosion hazards, and support@ practices to lessen the erosion potential of all land areas. Rationale: A great deal of damage has been documented to the reefs of Guam as well as loss of valuable topsoil due to thoughtless or improper development during construction phases of building activities. In an area subject to a relatively high rainfall as well as frequent major storms, these practices cannot be condoned. Fortunately, Guam does n6t face major shoreline erosion problems due to the geologic formation of the island. The above policy has been applied in several instances-, in designating, as conservation lands, certain areas which Y cobld possibly have been utilized at a marginal level for another use, such as agriculture. Further, the Land-Use Element encourages the widespread planting of trees, shrubs, and other erosion preven-a' L tive measures by both government agencies and priva-te individuals- C. Alternatives.. 1. Overview Public Law-12-200 provided enough flexibility in the development of a Land-Use Element to allow a number of alternative approaches. Certain federal ly-funded programs requiring a Land-Use Plan, as wall as providing funds for the actual planning, provided additional guidelines as to the overall design. These include the HUD 701 Planning Information Systems, EDA 302 State Planning Program, the Disaster Preparedness Planning Program, and Coastal Zone Management Program. 'Many approaches have been considered; following are discussions of the major alternatives considered. (See Figure 5 2. Alternatives of-Approach. a. Continue to guide development according to an updated version of the 1966 Master'Plan, considering problems identified in the Greenleqf-Telescai/Ah'n 1972. Land-Use Section "Summary of Problems and Opportunities'". -16- Discussion: The 19606 ilaster Plan was a monumental effort in that T_tv.,ci@ the first attempt on Quam to designate sor ClT-IC arez@s for certain types of development, suggest dayalOW.IE!r1t. patterns considerin g open space, conservation areas, etc; establishing a zoning system and machanisins for the resolution df conflicts z!.nd appeals for'zoning- decisions. The main reasons for not being able to "update" this plan center arounl the facts that: 1. The incredible gro,,-ith rate in the five-year period (1968-1973) follo,;ting the plan's completion produced pressures for development, immigration problems, etc'., in excess of the plan's scope. 2. Inadequate funding in the area of Land Management for such things as legal description of land parcel boundaries,' updated ownership maps, and updated zoning (delineation of all zoning changes, conditional uses, PUD's granted) has F_ prevented, in many cases, an accurate assessment of facts having a bearing on a commission decision for allowing or not allowing development. - (These of course are still major stumbling blocks for implementation of any effective plan in the future.) 3. Modifications of the plan through approval of marginally acceptable development have established a pattern of growth-inconsistent with high growth rates being experienced on Guam. b. Institute an island-wide zoning system similar to the 1966 Master Plan, but emphasizing more specific zoning 'regulations for the 11agriculture zone" which is-essentially a "catch all" for all lands not zoned for other-purposes. Discussion: If a sufficient data base were available, dealing with such considerations as individual community objectives, popula-tion, growth, up-to-date soil and geologic information, -hazard areas, aquifer recharge areas, etc., this would be the best alternative. However, lack of- accurate data, lack of a system of checks and balances relative to the overall decision-making process, as well as such h.igh-priority programs as the Green Revolution and major sewer/wastewater infrastructure development, suggested that specific island-wide zoning is premature at this time. Public Law 12-200, in recognition of -these considerations, called for "generalized areas of land use within an urban, rural, agricultural, and conservation context." c. Update the-1966 Master Plan.plus introduce a "districting conceptal for areas of generalized land-use classification. Discussion: The' introduction'of -the nreau of Planni.ng's concept -is souiid for'reason@ enumerated in Paragraph (a)- of "districti.ng" p 'di e rece ng. , ffoweVir'- @the -limitations caused by modification of the'1966 Master:Plan discussed in Paragraph (a) would rule .7 out this approach'. 7 -17- d Institute a "no zone" approach within the context of a generalized land-Use classification systein of urban, I'LWal, agricultur,11, and conservation. Discussion: This is a viable approDch at first analysis. The mijor drawback, ho,,@iever, is that an extremely detailed set of performance standard.3 for all possible types of deyelopment is required for a "no zone" approach which, for example, could conceivably locate heavy industrial activity adjacent to a high- density residential use. The results of uniformly posing such stringent standards could produce a sizeable disincentive for nepded commer@ial and industrial activity. Development of such performance standards is aell beyond the capabilities of the Government of Guam at the present time. e. Institute an intermediary planning process, between the districting approach, such that unavailable data could be developed, existing data analyzed, and which could serve both as a long-range, 20-25 year conce -a basis for the ptual development plan, serving as next task of an updated zoning approach. Discussion: 'This proved to be the most- viable alternative, Generaily, the approach used consisted of: 1. Development of base maps (the uniform mapping system) and expansion of a land-use data base for use in the overall planning process. 2. Drawing upon all areas of government and public sector expertise, and developing maps and supporting data indicating areas of generalized land use, or districting maps. 3. Identification of island-wide "areas of particular concern" which must, for various reasons, receive closer attention relative to development pressures than a generalized use classification would provide. 4. Development of a "Community Design Element" (as specified in P. L. 12-200) to serve as a long-range development plan-for the island. Although a separate document from the "Land-Use Element," the concepts-included will be inseparable, as--well as providing a base for future zoning of the urban district. @7 Ill. PHYSICAL AND CULTURAL CONSIDERATIONS A. Physical Setting._ 1. General GL13M is the southern-most and largest island in the flarianas Cha'in, an archipelago in the Southwest Pacific. It lies 13 degrees 28'29"N and 144 degrees 44'55" E at Agana, the capital city on the central western coast. The island is approximately IIAO niles in length with a northern width of 8 112 miles and a maximum southern width of 11 1/2 miles. Northern and southern land areas taper at the central waist to a width of 4 miles. Excluding reell areas, the land area is 212 sq. miles or 550 sq. kilometers- The axis of the island is in a northeast-southeast direction. Guam is generally classified as a high island with 12 small islands. along the ree- larg&W offshore island is Cocos Island- - The -island @-;ed portiob of-the [email protected] an atoll-like lagoon. s a ea., 2. Climatic and Seismic Conditions Generally, the climate on Guam is warm and humid regardless of the time of year. The relative humidity commonly exceeds 84% at night, all year long,-and the average humidity is at least 66%7 every month. The daytime temperatures are commonly between 83 and 88 degrees with night temperatures falling to the mid-seventies during the coolest part of the evening. The two distinct climatic seasons on Guam are the wet and dry season. The dry season is generally from January to May and the wet season from July to November. ' December and June are considered transitional months. . The mean annual rainfall ranges from approximately 80" along the coast to 95" for the higher mountainous areas; (20-24%) falls in the dry season and 63-06600., in the wet season. The remaining rainfall occurs during the transi- tional months. A great deal of variation in rainfall can occur from year to year. In 1952, a maximum of 145.45" was recorded with 10 a minimum of 60.42" of rain recorded in 1955. Severe drouchts are a normal occurrence on Guam. The period of greatest drought hazard is February through April. Inversely, intense rainfall can occur with tropical storms or typhoons.- Small-scale storms or squalls can occur at anytime with varying frequency and character. Major storms or typhoons, with winds greater ihan 65 knots, have made direct hits on Guam. The likelihood of typhoons is greates-t during July through September; however, as evidenced by the last direct hit, they may occur during any month. On May 21, 1976, Typhoon Pamela devastated the island with recorded sustained winds of 115 mph and recorded gusts to 159 mph. Located 70 miles northwest of the Marianas Trench, Guam is subject to earthquakes and seismic sea waves at presently unpredictable frequency and intensity. Devastating sea waves have been absent L S e during recorded history. Numerous earthquakes and tremor hav occurred with the most damaging quake being recorded in 1902. Guam is structurally divided into six blocks by seismic -fault zones that are defined by distinct divisions in the land surface. _19- 3. lNortharn Gue,- The northern half of Guam is 9E!ographically characterizpd by a raised limestone plateau with a maximum eleva-tion of 60.0 feet which gently slopes dovinl,,iard in a southwestern trend to less than 100 feet in -the central mid-section of the island. The northern -tone is compo Of tile Co LL I I I fines sed nsolida ed remiains of' ree,@' coral and sediments. The northern limestone terraces and clifffs represent an ancient barrier reef, with the inland limestone terrain comprised of the sedimentary remains of the lagoon sediments. The coastal limestone is hard and valuable for mineral extraction. The central limestone is extremely perneable, thus rainfall quickly soaks into the ground and recharges three main aquifer areas. A lens of freshwater floats upon saltviater and provides the bulk of the island's freshwater supply. A very thin soil layer covers most of the northern limestone and hosts forest yegetation known as the limestone forest. The limes-Lone forest is comprised of large trees that form a canopy for understory shrubs, herbs, epiphytes, and lianas. Many of the plants grow from bare limestone. Many of the areas of limestone forest have been cleared by wartime efforts and postwar urban and military developments The remaining areas are concentrated along coastal slopes and repre- sent the critical habitat for many of Guam's endangere@ plants and animals. The northern limestone plateau is interrupted by volcanic upthrusts at Barrigada Hill and Mt. Santa Rosa. The volcanic basalt is exposed at rit. Santa Rosa and has resulted in the buildup of lateritic clay soil along an adjacent inland area. This region represents the only major sector of agriculturally developable land in the northern half of the island. 4. 'Central'Guam Geologically, the central waist of Guam, from Agana Bay to Pago Bay, represents a transitional zone between the northern limestone and southern volcanic formations. The limestone in this area is K__@ argillaceous or yellowish in color from the volcanic aviftki that mixed with the white reef coral during the later development of the northern reef adjacent to the older southern volcanics. The relief features are characterized by sloping hills that are inter- sected by low-lyi.ng basins that are periodically flooded during the -ant for wet season. They appear as grassy flats and are import recha'rge of the central aquifer. The central aquifer is the smallest lens, yet least affected by saltwater intrusion. It reaches the surface at Agana Springs and disperses water over a floodplain or wetland wildlife @abitat, kno,,-in as Agana Swamp, which eventually flows into Agana Bay via Agana Riyer-the northernmost river on Guam. -20- Despite the small land area, geologic characteris tics and unique ecology of Central GLIaffl, the area is the location of the major concertration of urban developrw@nt on the island. Approximately 30% of the island's population resides in this small land area. Com-mlarcial, industrial and residential development has expanded fro.-9 Agana, the major trade cen-Ler and seat of both governmental and religious power structuceo. 5. Southern Guam The southern half of the island is geologically characterized by two distinct volcanic formations that developed i 'n different geologic eras. The Alutom formation or mountainous ridge adja- cent to Central Guam, is the oldest formation. The highest peak is Nt. Alutom at 1,076 feet. The southern range, kno,,-in as the Umatac formation is characterized by high peaks or a cuestal ridge that is steep on the selaward side and gently slopes inland toward the interior basin where the two formations merge. The highest peak is Mt. Manglo at 1,250 ft. The rugged lip upland surfaces of volcanic areas are weathered. Exposed volcanic rock and conspicuous erosion scars are present. Major land areas, however, are covered with savannah grasslands that have adapted to the dry and nutrient deficient clay soils of the upper slopes. Water quickly drains from sloped surfaces and forms a surface drainage pattern that comprises the fresh- water resources of Southern Guam. A relatively small amount of rainfall soaks into the underlying rock strata. More than 40 rivers and streams form a surface drainage pattern that dissects the volcanic regions. These rivers flow into the sea at coastal embayments, where floodplains and wetlands typify the estaurine areas. A heavy growth of tropical vegetaltion borders the inland areas of rivers and represents a plant community known as the ravine forest. Sharp divisions between the savannah grasslands and ravine forest lends a particularly aesthetic contrast to Southern Guam. The southern uplands are some of the only expanses of unspoiled terrain on Guam. Only 24% of the island's population resides in southern coaruni- ties because of terrain restrictions. Village centers are most often along coastal lowlands with a traditional lifestyle.and architecture producing a sharp contrast with northern and central urban development patterns. The reliance on farming and fishing for subsistence is more persistent in the south. Topographic, geologic and ecological conditions have caused the deposition of fertile soil into southern interior basins. Large tracts of prime agricultural lands lie between the southern communities of Inarajan and Talofofo. Other portions of the interior basin, where the two major volcanic formations meet, however, are characterized by eroded reef coral that formis a jagged Karst topography. These areas are concentrated on federally restricted property near the Fena Reservoir, a man-made reservoir that supplies 10% of the island's water consumption. -21- 6. Coastal Features Being a small island, viith human settlerp.2nt concentrat:@d along coastal areas, the dynaiiiic features and processes that occur at the shoreline or ocean-land interface are among the most iniporttant: natural reSOUrces on Guam. Miuch of Guam is surrounded by coral reef, a diversified ecological community that is represented by different types in different locations. The northern coastline is generally characterized by an immediate reef front at tha base of steep cliffs. However, as sandy beaches occur, the presence of a reef flat becomes more prevalent along central and southern shores. The reef flat is a level base of limestone that consists of the remains of ancient reef coral that has built seaward to the present offshore reef front of living coral. The reef front suppresses the force of all except the largest- storm waves and contributes to the buildup of sand along the beaches. As a transition between the reef and beach, the reef flat area is sometimes exposed during low tides, however, it represents an important shelter for many small fish, shellfish, crustaceans, algae and other forms of sea life. Two barrier reefs, which encircle lagoon areas, are represented on Guam. Cocos Island, at the southern extreme is a relatively pristine area that is important as an area for both schools of juvenile deepwater fish and the species associated with the coral communit.y. The existing and potential use of the area is recreational. Apra Harbor, another barrier reef located along the central- west coast, still represents important underwater resources. The outward appearance, however, is vastly different than seen at Cocos Island. The offshore Cabras Island and Luminao Reef have been linked and covered with surface development to form the Glass Breakwater. Apra Harbor is the only deepwater port on the island. As the major port area, it serves both the military and civilian communities. Being a strategic location and situated on major trade routes, the harbor is the focal point of the most sea traffic and transshipment in the Western Pacific. Industrial development, in this area, increases yearly to meet island,.-Iide demands for imported supplies and energy development. Natural shoreline configuration is generally represented by rocky coastline, sandy beaches, mangrove mudflats and river estuaries. The rocky coastline comprises 62% of Guam's shoreline. It is characterized by steep, upl-ifted limestone terraces and cliffs with a lower bench terrace covered with a growth of marine organisms. Many cliffline areas are characterized by a waterline niche that is cut by algae, limpets and chitons. The sandy beaches of Guam comprise a significant portion of the shoreline, 31%. . They are sloping landforms composed of unconsolidated sand,. gravel, broken shells, coral and foraminifera'.' They extend land@qard from the water's edge to a distinct break in the. landform or to a point where terrestrial vegetation covers the substrate. They extend seaward as far as the sandy bottom is appreciably affected by tid.,, currents and wave movements- Mangrove mudflats are represented in only two locations on Gup@m. An extensive stand of mangrove species has been increasing in size along the inner shore of Apra Harbor. The other area of mangrove shoreline is along the extreme southern coastlina between Merizo and Inarajan, along the inner shoreline of Cocos Lagoon. They assist in natural shoreline stabilization and represen-It an important ecological community. Guam's shoreline is interrupted by numerous bays, most of which are associated. with estuaries or river mouths. The surrounding .river valleys and immediate edge of the river are wetland corrimuni-- ties. A diversity of aquatic plant and animal species rely on the specific environment of estuarine areas. The constant inundation of water also makes these areas valuable for aquaculture development. Beach areas at river mouths are Usually formed by a combination of reef material and riverine substances that originate from inland areas. Thus, beaches at embayments have a higher content of soil and organic material than the white sandy beaches. B... Historical and Cultural Setting Approximately 1500 BC, the-precontact Chamorros migrated from the C, Asia and established multiple direction of islands in Southeas' chiefdoms. The island was territorially divided and individual royal families, who traced ancestry through a female line, ruled over the- common people. The Chamorros flourished with an advanced fishing, horticultural and hunting society. A remarkable diversity ol stone age tools, utilizing natural materials such as shell, bone, wood and fibers, characterized their adaptive technology. Sporadic warfare among chiefdoms 'added to the characteristics of the life- style. Much cultural reconstruction, however, is speculative and based upon comparisons with similar Pacific cultures and the analysis of remains such as artifacts and skeletons or area features such.as the latte stone house supports. From archaeological -evidence, it is estimated that the population grew to 80-100,000 members or relatively the same number of people as inhabit the island today. Ferdinand Magellan discovered Guam, for the Western World, in 1521. Rapid colonization by Spanish conquistadores followed, accompanied by a Period of warfare, disease and missionization. The population rapidly declined and a Chamorro I'lestizo culture emerged as Guam was established as a link in the early trade route between Mexico and the Philippines. The remaining population was centralized in Agana and barrios developed within the city. Many new customs. were introduced from Spain, Mexico, the Philippines and other island groups. Major changes.in technology took place with the introduction 0 f Steel.._,Ovens replaced underground firepits. Catholicis m dominated beliefs in ancient spirits and ne,..i foods ware introduced. There was a major shift from gro,,-iinq rice to gra@,-iing corn. These changes happened so rapidly, that historical reports are scarce and brief. During the Spanish Colonial Period, fro.--i 1521-1899, ri&..; styles of architecture appeared on Gu7,.-9. Due to I.-Iorld War 11 and the effects of time, many original Spanish structures w@ere destrOy2d Al and only remnants remain 90-W --. They include Santa Aqueda, Ft. Soledad, Plaza d@__-v4 Espana and Spanish bridges. The bridges, constructed of hand-hewn stones, are seen in Taleyfac, Taelayag, Sella Bay and Agana. World I-Jar II, which added to the disappearance of many struc- tures, left its own unique relics that now have historical value. Massive artillery, tanks and important battle sites and cormnand posts add another link in the chain of events that lead to the present. Though the Japanese Occupation was relatively short-lived, its impact on the body of cultural knowledge and physical appearance of the island environment was profound. Many existing communities and land-use patterns have developed in response to infrastructure that was originally constructed to service military facilities. Communities such as Talofofo developed around civilian wartime camps. Many coastal areas, such as Agana and Agat had to be completely cleared of rubble and subdivided. . Still other communi- ties such as Santa Rita, developed as residents were relocated as a result of land aquisition by the U.S. military. IrAaljd) Presently, many people value the traditional archi ecture of southern villages and desire to retain their present a ance. Inarajan's pp 2" historic district represents the last remainingicconcentration of building styles and character with a prewar 4"IpwwWrIflavor. ThOLIgh i+L, (1-0 this adds to the scenic charact-er of the island, ma@@-@ao@wners wish to improve their property and utilize modern building materials. Many areas of Guam reflect a period of technological transition from, frame houses and tin roofs to typhoon-proofed, concrete-based structures. An increasing incidence of subdivision development Les a trend toward insular neighborhoods and a Western life Ly e denol st Land-use patterns and trends affect over 100,000 residents, approximately half of which are of Chamorro Guamanian heritage. Throughout multiple phases of colonial heritage, the Chamorros have adapted to the pressures of introduced lifestyles. They still retain a body of knowledge concerning the island's traditional use of land and sea resources. A traditional facet of Chamorro culture, the land tenure systen., considerably affects the course of development. Within many families, there are multiple owners of property. When several heirs all own title to a single parcel of land, conflicting interests often necessitate non-development. Distribution of land to heirs c an also encourage residential development, when for example,-land .k@l may beVa prime agriCUIUI-ral district. Often, lando-,-iners all live together in a traditional extended fa:iiily relationship. Severial generations of relatives often reside in adjacent h@[Jses. The system of land &,.inership on Guam is typical of the Pacif@c. Since the Chamorro Guai-nanians have been ezposed to varied ph;_@3es of colonial dominance through the years, they have adapted land-ise traditions as a COUnterchec@, against overdevelopment of lard on a fragile sea-bounded island. In Yona and Sinaiana, tl.lo central communities or Guam, urban renewall has changed this style of living. Lo,.,i-cost housing tracts and proposed urban renewal in other communities will enhance this urbanization process that changes social and economic patterns- Urban relawal and subdivision planning involves sensitive judgements as to whether extended family settings, shared outdoor cookhouses, and random traditional village appearances should yield to a more systematically planned and structurally sound environment. Land -uses are importantly planned with maximum public input as developmental change scmetimes poses a threat to the island's cultural diversity. One such activity that is prevalent on Guam and must be considered in resource planning and management is fishing. There are fe;a full-time fishermen today as existed in precontact times. In earlier years, a majority of residents were occupied full-time in fishing and its associated technology. With the introduction of industrially manufactured items and alternative employment, less time is spent in fishing. However, despite the decline in the number of full-time fishermen, there is 'still an abundance of part-time fishermen. A large volume of knowledge exists concerning local fish names, fish habitats and the use of a variety of traditional fishing methods, particularly net fishing. As planning often denotes areas of preservation, the Chamorro Culture also has traditional environmentalists that act in a conservative manner. These are the taotaomona or spirits of the island's'ancien@ inhabitants. It is a widespread belief that the spirits live in the wild and bring illness upon thos'e who viould wan'tonly destroy part of the environment. They reward those who @..;oul(j respect their jungle and reef habitat with a good food catch. The spirits are believed to favor large banyan trees as their abodes. Often, bull- dozer operators will leave an area with a banyan tree untouched. This in itself is a factor thwarting dev@!lopment. If it felt that an illness is spirit-caused, the island resident may go' to the traditional curers, known as suruhanos, for treatment with an ancient system of medicine. A cent@ral -facet of the treatment is the use of medicinal herbs. The suruhanos and other residents have a tremendous store of knowledge concerning valuable medicinal flora. There is knowledge of the ethnobotanical value of plants in every plant community on Guam. Ethnobotanical use involves the use of an herb, weed, shrub, tree or vine for food, medicine or material culture. Some trees such as the coconut are used for multiple 7 _25- PLWPOSeS. The establisimient of' districts arid areas ol' particular concern on Guain, is riot only t, L .ssential for the maintenance of niany endangered arid threatened plants and an-Imals, but preserves the Cultural kno'viledge arid identity of island residents. The need for Cultural consider-at ions in planning and manaqeF@2,it is probably more evident on Guaim than in many mainland areas, jqhere planners and managers are most' often a typical cor-imunity membpr and precisely a,.-iare of the local frame of reference or perceptions of resource use. On Guam, planners, governm.ant officials and developers must utilize information on a wide range of aspects of traditional island life in order that land and .-iater resource use blend with local patterns of acceptable b6havior. lie 'Li @ I i.,-; to ry o Use and P I arin nsi Approx-irnir X-ICILPIT CHA')IORRO SOCI E TY AD Terrizorl at Dijisic-n of Ch-i2f-,lrjrn!; Tradi-inn@l Land Tenu;c Fishing and par6culcure SPANISH COL0,N)AL 1521-1899 ENCO.MIENDERO SYSTEM P. Lend Acqu;sition by Coioni3l Conces37on Forced Can'ralization into Agara Development of Barrios and Ouz- Iying.R3nchLs First Roa-ds, Schools and Churches 1899 "1943 U.S. NAVAL ADMINISTRATION Development of Infrastructuref r) mvelopmen t of Public We Fa6licies Growth ofCommun;ry Areas JAPANESE IMPERIAL FORCES -1943-1945 OCCUPATION hment of Civilian War Establis. Camps Development of lnfr@structur& Mandatory Agricultural Production Construction of Airfields and Defansq Facilities 194- U S. NAVAL 1950 AiDMINISTRATION -t?", as"ar R--consTruc.-ion and Clearing Dav3lopmenT and Subdivision of Existing Communities Growth o' W3rtim9 Camps inw New Communities Infrastructure DavelopMent Construction of 02fense Locatiorm Federal L--nd Acquisition and Relocation GOVERNMENT OF GUANI 1950-19-36 (P3"@ of the Organic Act) Infrastructure Development. R--s;dannaf Growth Problem Recognition Compr-h-3mive Planning Concept Devolopment Initial Zoning Efforrs 'EstzblishmmT of Terr`ilvdal Plan. ning Commission -- izi .@JAPAN ES 'p"PERAL FORCES C)CCUPAVION F U S. NAVAL I@ ,q)_T A RAT.ION In -27- x OF Glj GO1JER,N.MEPJT 01: GU;,,,l I- nd nd Z- (Lifr,-J S@curity B.in) L3. Us@ a. , r: in-3 Cic-jl-)z;on and Tr:jnp,@, z@:j-,n P.Dr1-.% and P,@cr% -j, io -i Public and F-,@:iiiz;:r; Physical Pulblic auildl:.-)-@-. Policy Corn rn un i- rj n lncre,,ed Enforcennent Urb)rj R-n@,ria) Increased Mainland and Foreign lnvLstrn@nt lncr?z)-.ecl Ind-is-z.-i.1 and Re-,W-@n- lial D?V@[email protected] lnc,rea"d Go-.-rnr.-.?.-)zzal Control of In.ra-,ruczur@, GUA.M. r,1ASTER PLAN. PPOBLENIS GOVERNINIENT OF GL)A.'-,*. OPPORTUNMES AND ALTERNATIVE3 1972-1977 Population Land-Use Increased Indu3trial 0avelopment Housing Tourist industry Growth Circulation Problem Recogni:ion Economics Da!a Collection Parks and Recreation Increased Enforcement Sociall Factors Subdi0sion Control Health ServicesL Seashore Protection Public Education Typhoon Restor3tion EnviforinneMal Agricultural Growth Infrastructure increased Cornprehimsive P13nnln; Milit3ry GOVERNMENT OF GUAM COMPREHENSIVE D-=VzLO;).1.j=NT PLAj14 Projected- (Planning funded by HUD, CZA 14nd EDA) Input Inputi 1977 -2000 Oubiic Participation @Lnq-z ls-3 d%vida Ra3POr-s% rm. Is Reservoir Plans b rdinated Regula- Land-Use DistrIctin2 CO@ ble and C11 COE H3rbor Plans torV Enforcement, Mciflon- Delineation of Areas of Particular Concern Historic Prese.,vation Plan Making Pl3nning and Policy- Commurilly Design Seashore Park Plan blakin.9 by Federal. GovGuarn Revised Zoning and Private Interens. LegIslativa Revision Seashore Reserve Plart Land-Usa: Opinlow5urvey Parks and Racreation Plan Covernmant Subdivision Plans Population Projections Urban Renewal Plans Federal Lands Survey Low-Cost Housing Pj3ns Street Atlas Disaster Preparedness Plans 203 Pro_qram Transportation Plan Re-I S'udias WasteWater Facilities Plan Mineral Extra--tion Study Cap;zol Improvarnants Projects %IJRRC Studies Housing Element Nlarin2 Lab Studies Growth Policy Aqu3culture Study Statistical Abstracts AICUZ Studies Visitor's Survey Pristine Community StuCias Ovaral Economic Development Plan Flood Hazard Stuejej )G U n IEV 771 [ OV EFi W planning f E, n d @DA -28- IV. AND CHAI]GE CO@@;SIDERATTOHIS A . I n-tro (I uc Lion its previously experienced, a Land-Use Plan quickly bE:corqes o@-Oletc@ if vcirious factors -that influence land use are not adequately The rapid POPLIlatiOll and economic growth and tile subsequent change in land-Use patterns during the last 10 years, generally, were b?yond local control (e.g., disasters and immigration) or beyond local anticipation (e.g., tourism cro@ath). These occurrences have rendered'thewesoimmiw Haster pan obs6lete in many areas. I qild& Du ri ng this period, local attitudinal changes have also occurred. Living patterns, traditionally centered around the extendad family, are - giving way to an urban orientation characterized by proximity and or convenience to employment centers and public facilities and services. Employment patterns have shifted from primary sectors such as agriculture to the tertiary sectors of tourism and government-. Special needs of the elderly, low income, etc., are becoming public concerns Z as opposed to traditional familial responsibilities. This section will 16 discuss some of the demographic, social, and economic factors that- determine land-use patterns and present various trends that the Land-Use Plan will address. Fi gures ra - 12 depi ct economic trends and! factors whil ch are discussed in.length in the OEOP. B. Population The population of Guam is in a constant state of change, shift and relocation, and is closely related to Guam's economic situation. These two factors are instrumental in shaping both the form and function of particular areas on Guam. Section C deals with the overall trends of population and Section D addresses economic growth. While planners are often criticized for not having one definite set of applicable population statistics, we can only base our projections on existing data.- On Guam, these figures will continue to be periodically revised until a sufficient data base can be established to make more definite projections which will only have to be revised at the tirme of a census. Present data provides us with ranges of projections which vary significantly. We can only narrow these ranges down to those limits that existing parameters indicate. C. Projections for Population Gro@,-ith Although the 1970 census provided base data for the preparation of population projections, a final analysis was not completed. The Bureau of Planning recognized the need to prepare an interfim set of projections which could be used by the numerous agencies in their planning efforts. r Memoranda prepared by the Bureau and approved by the Depart.-ant of Commerce and Bureau of Labor Stati ,stics provided est-imations of island- wide population growth based on the data 'generated by the 1970 census. This series of three population projections were developed by Professor Roy Chung, a demographer, and Quinton-Budlong (QB), a firm contracted to preparea portion of.the 1972 Guam-Master Plan. The three.provide a'. d 'd ulation projections to the year 2000. useful range of.islan -wi e op (See Table 1 and Figure 6. -29- Figure 6 Po,?ulatiorl Projections for Guant h u n g 2 .0e Chung 0 200 1 18 P Land Use 150 100- 50 19 S, a 1971) 1080 1980 2000 7 p- -[,@z -30- It is difficult, if not impossible,however, to apply the island-wide growth rates used in these projections to specific municipalities and areas within municipalities. Planners at GEPA, PUAG, and DPW, as well as the Bureau of Planning, encountered difficulties especially in wastewater infrastructure planning when growth rates applied to specific areas; for example, indicated pipe sizing much too large for the existing population. Table 1 - Selection of Population Projections, 1970-2000* 1970 1975 1980 1990 2000 1. Chung.(DJ 85,380 105,400 126,000 165,400 206,660 (no rnili- (63,380) -(83,400) (104,000) ('1143,400) (183,660) tary) 2. QB (B) 89,890 106,310 126,956 179,352 236,000 Tn-on-ili- (67,890) (84,310) (104,956) (157,352) (214,000) tary) 3. Chung (C) 85,380 107,400 132,200 198,000 268,000 (no mili- (63,380) (85,400) (110,200) (176,000) (246,660) tary) 4. BP L-USE 106,700 188,500 (no mili- (84,700) (167,500) tary) *Note: Parenthese () indicate that the constant 22,000 military population is not included. Using aeriel photos, completed in 1975, actual densities of recent housing developments, data relative to planned developments, as well as certain geographic constraints to development, the Bureau of Planning, in cooperation with several agencies developed area- specific growth projections. While the overall projection (Line 4, Table 1) is somewhat less than the Chung Series D, (Line 1), planners feel these figures are the most realistic available, as far as planning for the type and intensity of growth to occur in the next 25 years. Table 2 A SLI;Mla@-Y Of Nullicipality Gro,..i,.h Rates to the Year 2000 *(See Aopcndix No. I for SpeCMC COICMUnit,', areas). Estimated Projec-Led MUrli Ci Q.:I I i tY Existing Popul.,-,tion Population Year _2000 U,ga'Lac 700 1,600 Agana 1,094 2,550 Asan 1,440 2,700 Piti 1,570 2,645 Mer-i zo 1,635 2,580 Inaraian 1,790 2,765 Agana Heights 2,125 4,000 Talofofo 2,155 2,675 Sinajana 2,545 4,750 Chalan Pago-Ordot 2,762 4,958 Santa Rita 3,200 5,00-0 Mongmong-Toto-Maite 4,022 5,100 Yona 4,098 8,460 Agat 4,230 9,450 Mangilao 5,694 19,482 Barrigada 5,818 11,474 YigO 6,097 13,600 Tamuning 11,849 27,500 Dededo 21,877- 36,250 TOTALS 84,701 167,589 Does not include military personnel and dependents. Tabl e 3 Population Changes and Percentages in Northern, Central and Southern Guam Percentage Percentage of Percentage Present of Present Projected Projected. Increases North 42,1333 49.98 86,684 51.74 104.77 Central 21,990 25.96 43,680 26.07 98.6 A r South 20,378 24.06 37,225 22.22 82.67 TOTALS 84,701 100.00 167,589 100.00 Projected-Present x 100 Present !:jl --@t g,,-i r e Pie Chart Showing the Ethnic Conipozdtion ol. th-e Civiliar- Population of Gua-,a, Se- L- D. pterab-3r, 197 JAPANESE CHINESE KOREAN CHAMORRO- <0 AUCASIAN 4Q, 010 3- CHAVIORRO- FILIPINO 4.10//0 CHAMMORRO (Guamanian) 55.5% A CAUCASIAN 9.0% FILIPINO 19.3% Source: Bureau of Labor Statistics -33- Figure 8 Ethnic Populat-ion by Age Group 30 Chamm orro Filipino C-7= UUCP- sian r M:@ 20 U3 CO C/3 C) Cz ...... C) .......... 5 ....... ....... . ... ................ X. . . ......... . ................. ........... ................... 1, 015 16 19 ZU 24 r5 "@@T-3@;@4445 54 IiS& over Age Source: Bureau of Labor Statistics, Government of Guam -34- FigUre 9 Sex Composition of Population by Age Group MALE FEMALE 65/OVER 900 1,500 2,000 1,800 55-64 3,800 3,300 45-64 35-44 3,800 4,300 CD 25-34 4,800 5,200 7,900 7,800 15-24 11,900 10,500 5-14 UNDER 5 4,800 5,500 .... .. ... ...... FEMALE ALL .... ALE F 39,900 39 1900 0 10 20 30 40 50 60 70 80 POPULATION (XIOOO) Source: *Bureau of Labor .S.tatistics, Goviernmeft of Guam D The Economy, 1. Principal Economic Activities (See Figure 10) The largest economic sector of the community is government. Excluding military employment of civilians, federal and local government employees on-payrolls totalled 10,800, or one- third of the total employment of 31,500. Including the military, total public employment approaches 15,000 wor'Kers, or almost half the workforce. a. The Construction Industry The economic impact of public expenditure goes further than direct employment. At present, the construction industry with 3,500 employees is almost entirely dependent on the public sector as a result of the continuing recession. At one time, it was the largest private sector industry with over 8,000 employees. Now, residential construction consists largely of completing projects begun a few years ago and post- typhoon Pamela reconstruction, as private sector 06 investment in new buildings has slowed dramaticall y The island's infrastructure systems are inadequate to serve the island's population and constitute a definite constraint to economic growth. Overall, roads are in a poor-to-fair state although recently completed reconstruc-- -7F: tion has improved the situation somewhat. The telephone system is archaic. An estimated forty percent of the water drawn from various sources is lost in the distribution system. The sewage disposal system has 7@: serious deficiencies, although projects being developed in coordination with GEPA should alleviate the situation in the near future. The island's power facilities are 'X- Z; C adequate at the present, but there are serious management W problems as well as cash flow difficulties which have resulted in fiscal obligations for new facilities not being met. This together with the power grid's susceptibi- lity to typhoon damage, and other factors such as aging equipment and lack of adequate personnel training could mean serious problems in the near future. s If funding and management requ'irements can be met by the local government, enough projects are proposed to support the construction industry for some time. For example, a $36 million sewer project is nearing planning and design completion. The USEPA is supplying 75% of the funding for the construction of treatment plants and trunk lines, while the local government and individuals will have to pay for collector lines and home connections. A $27 million loan has been approved by the Rural Electrification Administration for the construction of a phone system., .-only 10% -of which will be composed of existing equipment 36- FiqLff--! 10 GCOSS BLISillOSS by S---ctor, FY d of doliar-:7-) 200" 200[ Transportatlo,-l 150 150, 100 100, 50 50' =6 Y@E i!O'@ b 970 YI 2=7 =7 4 /6 66 67- 68- 69 70 71 72. 73 74! 7a 706- 77.73' do- 3 manufaeZur-Ing- -2001 Sarvices,---- It 1150 -150 .10 -:100 0 501 .50 .66 67i 69' 69' 7 0; 7 1, @@j 74 75;.@S: 77.- 78 66: 67 68 6;--fd-@ TI 72- 73 74 75 7S 77.7-8- ;2001 200 Whble;sa Ins.urance,RP-al Estare.Finance -150 1150, 100 .100 f t L .50. .50 66..' 67 6a.'--rp9. 73 7+.75i Z@-' 7 TL 66t 67; 68: 6970 71 72,73 74..- 75:76. 77 78" Source:. DeOaLttrdent .'Of" Commeirce' Governme.nt'of Guam L 200 Retail 1 0 100. 50 6d 67, 0! 73174-75,17"6 77. 78i 1 68,! 691i 7711 721 -2091f A@@riqultu-re-,*,- not recorded p ri or W1973 1501 100!i 4 66;: 67. 681 69! 701 71172173174' 75 76- 77731 6003 400' S. TOTAL C R O'S---T B USINESS RECIEPTS 300 -T- fd (billio'nso 611a' fs, 7-00 3_1 1 10 b8 63 73 7 1 7-7 j'j '74 Several roadway reconstrUCtiOn arid viater projects --re underway or co,-.iplet-2d, while others are a-.-iaitinq -Funding. The irnm2diate prospects For activity .-jiLhin the construc- tion industry are alrinast entirely d'-pendent on pu.-Iic expenditure for in FrastrUC Lure. Locally, available funding can be expected to finance only a small fraction J L of the reqUired projects. One advantage of te,,rporary support of the construction industry with public projects is the relative ease of implementing and enforcing environmental regulations as those pertaining to erosion and siltation, or fugitive dust emissions. Fugitive dust emissions are the only widespread air pollution problem on Guam with the island average being 2 to 3 times federal standards (sulfur and nitrogen oxides are well below federal standards). Because of heavy rainfall, the fringing coral reefs can be literally smothered to death by siltation from Aef- erosion or dredging without proper environmental sa-1ce- guards. As shown by recent interaction between the Government and the contractors responsible for the dredging of the new Agana Small Boat Harbor, local agencies are prepared to force compliance with siltation and other construction related environmental protection regulations. If the construction industry is based on public projects for the next couple of years, environmental protection practices can change from imposition to habit. b. The Retail and Wholesale Trades In terms of payroll and gross receipts, the largest industry in the private sector is wholesaling and retail- ing. This industry eYtore than /which employs 5,600 peopl ,'@ P agriculture, manufacturing, transportation, p DliC u tilities, finance insurance, and real estate co-imbined is principally dependent on the household expenditures@@'- of the resident population and, to a lesser degree, on tourist expenditures. Significant gro,,,ith has not occurred in the retail and wholesale trades in the past 4 years as Guam faced the worldwide recession, the energy crisis, and an overall decline in tourism. Table 4 Average Number of Employees in Retail and Wholesale Trades Average 1973: 5,525 Average 1974: 5,400 Average 1975: 5,850 5,450 '-!-'.@Av'erage 1976: Average 1973-1976:,.-. 52550 Fi cj ure I I on Guafa 41f go Total Number of 25 Employees on Guam Payrolls 3-73 3-74 3 75 3 76 3 77 -14 Overall Unemployment .13 -'12 by 10 :9 .8 7 Total Civilian Labor Force -30 VS 25 oTotal Civilian Persons Employed.---- 0 9-76 3-4 7 b@@/& 8-75 5-7' Source: Bureau of Labor Statistics, Goverment of Guam 7 L tal mpi TEO Civilian L, To t a 1. -40- As in any area @,-,ith a rapidly expanded population, there is a definite gro-,.ith potential for the ing and retailing trades. Considerable Congressional sympathy, recently, in evidence for reducing the level of subsidization of the military exchange and co!!imissary syste:ii could also have a direct and positive impact upon this sector of the economy. If 'the overall level Of Subsidization is reduced by Congress, gro-dth in excess of normal expansion could be expected. C. The Service Industry The largest single business group in the service industry is the hotel industry, which accounted for 3310 of the service industry's FY 1976 gross receipts, and one-third of the industry's employment throughout 1973-1976. The number of employees-on-payrolls in the service industry has remained stable in the past four years, averaging a steady 4,000 workers. The only noticeable drop in employment occurred immediately after Typhoon Pamela in June 1976. Apparently, some of the workers which Were laid-off were never rehired, as hotel industry employment has been steady, but below previous levels. (The average monthly hotel employment. figure for January-May was 1,540, versus a virtually constant 1,300 for June-December). Overall service industry employment, however, is quite close to previous levels. Comparing the total gross receipts of the personal services, business services, auto rental and other service industry groups to those of the hotel industry, and taking a conservative estimate of the portion directly or secondarily resulting from tourism, it is clear that tourism is the major component of the service industry, and is the source of half of the industry's revenues. - The service industry's growth potential lies in three areas. One is the increasing sophistication and interdepen- dence of the business community, which can be expected to continue and accelerate as the basic infrastructure and level of utilities services improves. The second and third are the expansion of the economy as a whole, and tourism as an individual sector. d. Tourism From 1967-1974, tourism grew rapidly and was a major contri- butor to the construction and economic boom of that period. In an economy, with as large a public sector as Guam's, government revenues resulting from tourism have an immediate :.z -41- and widespread efrec@_- on the island. The major sources of revenues are the 10@` hotel occupancy tax, th,_ 4@/' gross receipts tax, an@ inconiie Lay, 'c'ollections on employees. There are several major problems in the tourism industry. One is that the level of infrastructure facilities and services act as a constraint to business activity in this industry as in any other. Secondly is a distinct lack of tourist destinations. Basically, there are three tourist activities on Guam: the hotel activities and facilities, which includ-- restaurants, nightclubs, Tumon beach tennis, swimming pools, and shops; the round-the-island tour bus ride with stops at scenic overlook's, historic sites, Cocos Island etc; and gift shopping. Generally speaking, the government is not, and should not befthe business of entertaining tourists. Several major public projects, such as the Public Market and Agana Marina, have "joint-use" as tourist destinations. There are many smaller projects, related to outdoor recreation, which can also serve as destination areas for tourists. The best the government can do is to improve the overall climate for tourism, by such projects as those listed above, and by facilitating private investment. The actual job of entertaining tourists is the responsibility of the private sector. There is reason to believe that the decline iri tourist arrivals has reached its lowest level. The initial economic impacts of the oil embargo and its disasteroLk,3 - effect on the Japanese economy in 1975-1976 has reached its lowest point, and a recovery from the short-term effects has concluded. Hopefully, this indicates that the number of visitor arrivals will soon begin to rise. A more objective evaluation can be determined by an examination of the average rate of tourist arrivals, There were 239,682 tourists in 1975, and 201,344 in 1976; thus a decrease in 38,000 tourists, or 16%. At the 1975 rate of arrivals, the 38,000 tourists can be viewed as 8.2 weeks worth of tourism. Guam was entirely closed to tourism for three weeks following the I-lay 1976 typhoon. Further, the recovery in the rate of arrival being gradual and spread over more than one month, was another three weeks of tourism lost to Guam. Lastly, a Pan Am strike in Tokyo which necessitated the cancella- tion of many charter flights was another two weeks of lost revenues. These losses totalling eight'weeks can -42- accoun@ for almost thc: entire drop in tourism between 1975 and 1970'. There are other second a,--.,J third--order effects i.;hich inay belie -this agrument. By Ali-just 1977, when the visitor arrivals for the first six months of the yelr will b:2 kno,,-in, any stabilizi.-Lion or recovery in tourism. should be documentable. In the long run, temporary declines should level out and tourism shoul@ continue to gro,,,i, although at a slr,;.,.-r rate, and increase its contribution to the local economy. e. Mi I i tary Mi I i ta ry activity has played a major role in the economy of Guarm. It is a major source of employment and income for the island. In Harch 1974 the recorded civilian employment-on military reservations exceeded 7,300 and currently the military represents about one quarter of all direct employment on Guam. In Fiscal Year 1976, military expenditures on Guam totalled $193.4 million. Of this amount, approximately 74.2% or $143.5 million covered military and civilian employee payrolls, 11% or $21.3 million provided for construction and $28.6 million for other local expense. Various other contributions to the community and economy are attributable to the military role on Guam. Military on.-the-job training, both formal and informal , con-tributes to the development of labor skills, which may be of value to the civilian communt-Ly. Also, the military frequently assists the Government of Guam in handling certain types of need or emergencies. In addition, basic facilities such as power, water, and medical services, are shared with the local civilian community when needs arise. Given the strategic importance of Guam and the declining military presence in Asia, all indications point to a continuing influence by 'the military establishment to the economic stability of the island. f. Private.-Investment and Local-Government Facilitating private investment consists of conducting public financial transactions in an effective@, and consistent manner providing detailed plans-of-action for'public programs so as to reduce uncertaintr1perating public utilities in a manner that is not detr4nental to customers and providing infrastructure facilities (such as roads) which promote economic activity. Encouraging private investment is generally a question of such techniques as tax advantages, operating subsidies, and providing capital in the form of lands (often at reduced rates-of. interest), loan guarantees, or direct, investment,.:--.,-- -7: FiyLire 12 Governiaan*C_ of Cua::i, Revenues and Expeno-@_:ti-ires Goveinment Revenue REVENUES Includirg Autonornou; Aganc;es 16 (in millions) FUND Stazement of Revanua '1977 includes $12 rniflion o.$20 milHon I ZILCI ern2rgency grant - Typhoon Parne;a 120 1.0 100 73 14 75 113" 77 source F'in'ancial'Statarnenr FY 73 - F.Y 7,3, De.pt. of Adr-ninistration 160 G-ovt of Guam . cas@ receipts 15 andexpanditures FY FY % 7 77* j 4 %%% 14. 0 13 0 -oll months 12 73 -74 75 7 6 77 Source: News From t'he Governor Office of the Governor, Nay, 1977. C= The effects of these investment incentives Q@ usually extremely diffiCUlt to i:ieasure, given the Iii,lited cim@)unt of ecorioin-71c planning informa tion on Guarn. As a I-eWlt, the existing incentives, such as the tax concessions offered the hotels, hava never been assessed except in the most subjective ter;7;3. There is not even a known estii:-,ate of the arrlUnt of revenue foregone by the incentives. Because these investment. incentives are not' assessible in teris of their projected or actual past impact , it is conclu-ied that for the imnl.r-diate fttUI-2, public resources aould be better spent subsidizing the private sector by concentrating on improving the performance of the public sector. E. Industries for Grolqth: Agriculture and Transs-hipment There are two industries which are only in the first stages of development and have potential for long-term growth and stability: agriculture and transshipment. The problems encountered in the development of transshipment are subject to the most simple and stra 'ightforward solutions to any development issue on Guam. Commercial Port expansion is required to meet the basic and growing needs of the community, and can be done to such a scale as to allow the immediate and rapid groath of transshipment. Land acquisition, in terms of returning very small portions of the Navy-owned Apra Harbor to the community, is the main obstacle to development. In the case of the airport and air cargo transshipment, the existing facilities are sufficient for the most immediate future. Pan American Airways is instituting 747 freighter service to Guam, and should the cargo opera-Lions continue to expand, additional facilities will be required in the next few years. Transshipment, both by air and sea, represents irpnediately realizable economic growth for the island, and entirely new sources of income. Both ports are. administered by autonomous agencies with sole responsibility for their operation, and the managemient of each port is prepared to continue implementation of clearly required expansion. The Land-Use Element. specifically supports expansion of the Co-mmercial Port given certain development considerations which are heeded. (Chapter V, Section C, Group A.) The concept of a major oil -transshipment facility is presently being actively investigated for location on Guam. The 4proposed concept includes offloading facilities and storage capacity for a_90-da@ supply of crude oil-for Japan. While 'certain economic benefits would acc'ruo to the island, the vast and irreversible commtment resources must be analyzed before any decision is made. With expanded refinery capacity.. and related petrochemical industry location %,,'hich inevitably follow. the location of such a facilityl trade offs may include the entire tourism industry, as well as introducLion ol extremely high hazard potentials from oil spills to increased levels of air and water pollution. Too little is known at present to put forth even a cursory prediction on the feasibility of such a facility.- 7' The Og@'iCLJlture industry has broad economic poM-nLial , far in e7cess of the Current level of acti%,ity. Developm.-.-2nt of th-2 industry rc.-quire a high level of puhlic and private investmant and coordinatlion. Masic data on the resources and activities of the industry ar;@-- presen-.*.n-.j in the DevelopmenL Program for Agriculture in the island's Overall Economic Developr-r2nt Plan (June, 1977). De'Lailed develop@-nent planning for the industry, financed by an EDA State Planning Grant, is underway. The industry has been stLeadily growing, and .-Al-directLed large-scale public investments can greatly accelerate the rate of gro,a'Lh. By import replacement, this industry can enhance the econornic impacts of tourism, and military spending. The number of employees on payrolls in transship-,-.iant and agriculture are very small. Both industries could grow and become major employers in the years to conle.- -46- V LAND-USE PLAN This section Outlines the distributic L -;,I of projected use of the 1;;nd area of Guam by utilizing the mechanism of land-use districting cnid providing development guidelines for generei land use. District definition.3 encourace optimal use within different land areas as t;)e rost gen-_,ral level -in progression to,..jardl wore specific la!@-d-Llse delineations. Definition and discussion Of areas Of particular concern (APCs) and revised zon-lnc, stan-L_-rds follcos this section. A. Land-Use District (See Districting Harp) This is a land area identified by its development potential, existing characteristics and environmental restrictions or ecological complexity. Districts are suitable for four general types of us,e: Urban, Rural, Agricultural, or Conservation. 1. Urban district. Those areas characterized by intensive, high density use including residential, commercial, and industrial uses as well as public facilities and designated park areas. Boundaries of urban districts include lands no-.,i in urban use and a sufficient reserve area for forseeable urban gro,,.ith. -e "urban Urban development within defined districts does not promot sprawl . " Random urban development shows lack of design, compactness and efficiency. Compactness does not mean that urban uses are tightly squeezed or in monotonous rows. It means that uneven distribution of unused land in a rando-in arrangement becomes available for open- space, recreation, or additional areas of urban development. Many urban districts desperately need planned insular gro@qth for better aesthetic design, traffic circulation, infrastructure, public institutions, parks, and increased social cohesiveness. through neighborhood relationships. Thus, designation of urban areas outlines areas where not only urban development, but urban improv2i-rant may also be warranted. Cluster Development, as described in Bill 2325, Section 17 (17605.1, Government Code), is one measure of inproving urban district development patterns while at the same tine decreasing the cost of developing residen-tial units to provide less expensive units. Within urban and other districts, there will be designated Areas of Particular Concern (APCs) which would generally include areas where natural resource value (including areas suitable for intensive development, such as ports, power facilities, etc.) or where hazard play an important role in determining the suitability of land for particular uses. Designated urban districts are those where the Government of Guam is now providing, or has projected, expansion of infrastructure (roads, po-,-ier, viater, sewer, and other services) which would enable an area to 'support high-density development. 2. Rural District. Those areas of probable future expansion of urban districts and primarily characterized by mixed, low-density residen- tial lots and agricultural use. Maximum density (other- than certain spec ific areas existing with'a.higher density) should not exceed -47- one dwelling per one-half acra, where all Urban o[ slr-lices, Stl-LlCtUres, straets, and concentration of people- are abSE.-rit. Rural districts are typically identi-fied by a traditional li-17estyfe and appearance which inClUdes backyard faraiing and exten(j,-.d f-alm-171y households. Though adjacenL' to urban districts as areas for potential expansion of urban growth, thlay provide a setting, for residents who wish to engage in traditional subsistence or; a family I evel . 'Rural expansion into agricultural or conservation districts, rather than urban development of existing areas of rural density, W.-iever, is discouraged as the random spatial relationships within rural areas are generally inefficient in regards to ratio of land- use to houses per acre. Within designated rural districts, the Governrrent of Guam is not committed to providing such urban-level services as sewers, road improvements for all lots, or water and power other than a basic level until such a time as the designation is changed to urban. If urban development is proposed and accepted as compatible to the rural district by various overseeing agencies and commissions, the developer should be charged with the responsibility of providing all infrastructure if the rural district is retained. 3. Agricultural District. (See also Chapter V, Group A.) Those areas characterized by reasons of topography, relationship to water resources, soils, existing development and other related characteristics as having an existing or potential capacity of intensive cultivation- Agricultural activities include four basic elements: field farming, livestock and poultry production, aquaculture, and forestry. Hydroponics is a form of agriculture; however, self-contained environmental controls can permit its use within an urban or rural district. Included in the definition of agricultural land use are services and facilities and uses related to the above eleman .ts , but not limited to, farm residences, storage facilities, animal shelters, and roadside markets for the sale of agricultural products. Open- space areas and small-scale recreational facilities are clearly compatible with agricultural land use. The primary development guideline for agricultural areas involves the discouragement of urban level density within an agricultural district. A necessary amount of infrastructure and residences must accompany agricultural land use. However, excessive development, of roads and residences, particularly when land-grading or soil removal is in effect, b 'egins to d 'egrade and dissect large tracts of land and agricultural acreage begins to assume rural o r urban characteristics. To meet current or future sell'-sufficiency demands, the preservation and responsible use of prime agricultural land is of critical importance for the economic well-bei.ng of the island population. The delineation of agricultural districts has specifically been limited to land areas that are fairly level and contain adequate soil conditions. Soil data is concerned with depth, texture, -43- drainage, stonine5s, and fertility. Th2 prox1raity to L a reas i t iOil SOLIr-C-CS) enhances ag@'i CHI LLN.-a I g@-C)Wth potent i-@ I .1.1i ti-, j n individual district areas. Agricultural land, ho,.-;ever, is !,;-:.pt a-t a buf-fered distance froin major surface drainage rivers or aquifer Li recharge areas dLIO to the potenL al adverse eFfects of pesticides, fertilizers, and slaughterho-use leachates on quality. S t.(_ i C.L 4. Conservation Di - L. Those areas neces)sary for protecting water- @@hees @and ,-jat-er resou-rces, preserving scenic and historic areas; providing parklands, wilderness and beaches; conserving indigenou_; plants, fish, and wildlife; preventing floods and soil erosion; and enhancement of forestry development potential- Th2se are usually ope-n-space areas whose existing openness, natural condition or present state of use would enhance abutting or surrounding coa-anun-A-Lies. They are usually more specifically classified as various areas of particular concern and permitted uses would include those existing uses within these designated areas. Such uses may include limited agriculture, dwellings, resort development, parks, non-intensive recreation areas, open space, aquaculture, or other uses not deter- mined to produce irreversible adverse impacts. The scenic vistas and detailed beauty of conservation districts are resources of immeasurable value. Undeveloped areas provide a place for nature observation, scientific study, and preservation of the overall aesthetic appearance of Guam. Conservation districts not only enhance the quality of life for the island resident, but ent-ice the economically important tourist. The above district delineations and definitions are derived from a wide range of data such as environmental research, public involvement, and aerial photography. As land areas of optimal growth direction or preservation requirements, they retain a degree of'flexibility in response to changing demands and unpredictable events. They are basically intended as a decision- making tool for the wide range of government officials and private individuals involved in the direction of land uses which ultimately have iundam2ntal effects on an'island-wide society and the finite@ resource supply. -49- B Aroas of Particular Concorn JA[,C--,) I Overall Definition. An aroa of par-ticular concorn or APC is a ter@l applied to a specific geogrdlphic area w@,cre either natur6l rF_-1-OUt,CP' values, g2ologic constraints or hazirds) play an finportant role in determining the capability or suitabiliLy of th,@ land for pa-rticular uses. 2. PLHrpose. The purpose of the APCs is to provide an additional management capability to ensure responsible d0velopment in areas L either having a high degree of environmental sensitivity or that are, or will be, Subject to intense developmt-nt pressures in the near future. *Designation of areas of particular concern through a Land-Use Plan is not simply a method of identifying areas where no gro,,,ith should occur. The purpose of designation is to call attention to the importance of the area designated. In many cases, it will be possible to permit development which is regulated so as to be compatible with the basic environmental or renewable resources values or safety problenis of the land in question. While it is true that- uncontrolled or incompatible development would result in significant damage to the environment, life, or property, or the long-term public interest, it is equally true that some acceptable way to develop or use many such areas can be found; others must remain virtually unused or unoccupied if their values are to be preserved. While it is impossible to precisely define "responsible developm2nt" to the satisfaction of all land users, it is possible to identify.the goals and policies under which development can be guided, as well as Se APCS the constraints which the n pose as relative to impacts bot-h upon the safety and welfare of the people of Guam and tha APCs themselves. 3. Policy. The policy guiding overall management of APCs can be drawn from dozens of policy statements from the government codes and rules and regulations ranging from air and water quality to erosion and sedimentation. Generally, the overall policy which guid.-s the delineation of APCs and will guide the development of specific performance standards for these areas is: "To minimize the impact of proposed development upon specific areas which, by their value as a natural or public use resource, or fragile nature,.must receive special management attention." 4. Basic Criteria and Manaqement. For the purpose of initial delineation, Tour-basic criteria were applied to the land areas of Guam in order to formulate an exhaustive list of potential APCs. Transitional areas where further development or restoration is called for, or intensely developed areas requiring particular scrutiny for further development. Source: Land: State Alternatives for Planninq and Manalerrent. The Council of State Governments, Lexington, K.Y., April , 1975, p.54. -50- Areas having siqni Fizant natural WIIUC'S. Areas which have definite and id2ntifiable haz;1rd-j._;-, acteristics, if develop@!d @,-Jthout prop2r consid-ration. charL Areas having signifcant value for PLJ@IiC USe or After applying these general crit-eria, a more specii"ic breakdo-,-in of potential APCs was develop--d. This appears in the fol',rj,,,jirg Subsection (5). Under the envisioned man-agemant program as outlined in Sectionl of Bill 233, 'the Central Planning Council .rill have the ultimate authority in designating APCs after delineation and draft development guidelines have been developed by the Bureau of Planning and agencies involved in land-use enforcemant such, as the Departments of Land Mlanagernent, Public Works, Agriculture, Parks r and Recreation, and the G Cnvironmental Protection Agency. It must be noted that the maps within this document do not define exact locations of APCs. These maps are 11conc-ptual,, It Sh oa i n 9 general locations. Due to the impossibility of reducing a 1:25000 scale map to an 8 112 x 11 format, the definitive maps may be viewed at the Bureau of Planning. A complete atlas of these areas will be prepared -for all concerned agencies in the near future. 5. Stud r% 6 Brea',do@vjn of Areas of Pa.r-icular Concern. Group (A). Resource Development Sites. Areas of significant topographic or geologic resources for agricultural, commercial, or industrial support. Mineral Extraction Industrial and Commercial Support Agricultural Support Group (B). Facilities Requiring Shoreline Location. Areas where J9 development and facilities are dependent LIPOn access to co-2stal waters or areas of urban concentration where shoreline utilization and water use are highly competitive. Resorts Marinas and Boat Service Facilities Educational Institution Seviage Disposal Storm Drain Sites Public Parks and Beaches Surfing Sites Group (C). Hazard Areas. A@eas of significant hazard if developed. Airport Accident Potential and Sound Zones Flood Hazard Zones Slide and Erosion Zones Seismic Fault Zones Group (D). Freshwater Resources. Areas that protect, maintain, or replenish Guam's freshwater Fesources. Freshwater Resources V Un i GI-OLIP (E) tie Terrest?_izal Ecosy _@toms. Areas of hig@- prodUCtiVity or unique and fragile natural habitats for livij"g plaII.LS , wil dl i fe, f ish, and interr.;_@. _d resources, inClUdIng L 1 1, t, trophic levels of the -food chain critical to their well-h--ing. Terrostrial Pristine Ecological Commlinitties Wildlife RefLI92S Proposed Critical Habitats Th Limestone Forests Wetlands 7,5 -IS.? Group (F). Unique Marine Ecosystems. Narine areas of high NZI productivity and unique or fragile interrelationships beb.-.E!en marlne@@jr organisms. Marine Pristine Ecological Communities Coral Reefs Group Cultural and Recreational Areas. Areas of substantial cultural or recreational activity, value and opportunity. Village Recreation Areas 4MOM Park Areas Historic and Prehistoric Sites Scenic Vistas Group (i)'. Other Areas of Proposed Development. 'Areas proposed for development on a scale -likely to have an economic, social , 47 1-% environm-ntal , or other impact of island-wide significance including .but not limited to existing or planned blight area redevelopmen-t. or renewal , residential development of 50 or more units in size, or planned agricultural subdivision. Subdivision Development Areas 6. Discussion of Approach. The development of the APC approach as a means of more closely managing specific resources was brought about by a number of considerations. Among these: The-need to identify and delineate those resource, land forms and associated development potentials for special consideration. The need to consolidate for planning purposes the wide variety of. programs concerned with specific resources. The need to consider the extent and limitations of specific resources when faced by projected development pressures.. -to-modify and develop-an effective managamenf J .-The-need allocation of these scarce- -finite,'u system for:the nique' or fragile -resources in-the future. The concept, of APCs is not A nu;i-;@-2r of states and riF;tions have- davelop@::@d programs, concerned wiLh the allocation of which are subject to existing, and projc-cted gn:@%-:tri pl-assures. Hany pro@rams having a larger la@-,d area t1han Guair hT:ve taken a purely Ll preservationist" approach to P%PCs arid often limit clef -ini 'k ions to pristine or unique enviro,im@!ntal areas ,-:hich ShOUld he prot--cted from all dev,_;-,lopment. Rather than limit the sco,pe of the c-,incerit to protecting a particular marsh, waterfall, or lagoon, the decision was made to use the approach to establish a cc-nprehonsive -manageri-aritt program for all resourceS considered to be of "particular concern." The resources covered under this concept range from areas currently exposed or projected to face intensive developmental pressures (Cabras Island, East Agana) to those ,-,hich should be "preserved" in the strict sense of the viord (Tarzan Falls, Cocos Lagoon). Al so included are hazard areas which may limit otherwise suitable develop- men't (air crash and sound zones, seismic fault zones, floodplains) and areas with production potential for such activities as agriculture and tourist resort develop.-ent. 7. Areas of Particular Concern. Synopsis, Statements of Envisioned Development or Expansion, and Suggested Performance Guidelines. Group (A). Resource Development Sites Mineral Extraction (See itlap No. I Synopsis. Comprised primarily of limestone, sand, and a pottential of limited hard volcanic aggregate deposits, til- island's mineral deposits have already been significantly developed.' Majoir extraction activities are presen-tly located on the northeast coastline of the island. Illegal extraction of beach sand from several areas is slo!..ily being halted. Envisioned Development. According to studies currently underway and discussions with producers, supplies of lirne- stone and sand are adequate to meet the island's n2eds for the next 20 years without significantly expanding extraction opera-Lions to other areas of the island. Short.-term operations such as repair of the Glass Breakwater, using the Cabras Island quarry, can be expected. The Department of Public Work's Skid Reduction Prograim is presently engaged in an analysis of potential extraction sites for hard aggregate (basalt) in the southern part of the island. Initial geologic investigations, of volcanic aggregate resources - are encouraging in relation to the occurrence of a superior grade of unweathered basalt in the Northern Marianas (Pagan Island). A report will be released in October, 1977 addressing the specifics of these issues. Performance Guidelines. The following guidelines indicate: Existing extractive activities shall adhere to air water quality, and erosion-sedimentation standards established by GEPA. ............... . Af G UA @%j vel4mant Sites Iflap jo.: I Resource;Da all .0 1 C. a D a Ij CPIA C) -j- 1. A A C, A 7 F A L 0 1 0 L E G E M D COU.-FP.CTA,. P---tT A j A p E?t--,W-; MINERA4. EX71ACrC* 2n T IL 54 . Major new development of mineral extraction sites shall be closely evaluated relative to impacts on existing landforms, adjacent lard use, and shall be designed to minimize adverse aesthetic impacts. � Actual e xtraction shall be undertaken in a pattern such that once the land is no longer in extractive use, it will be suitable for urban development or open-space use, e.g., terracing for a residential subdivision use vs. a hazardous and unsightly pit. � The economic feasibility of proposed mineral extraction sites shall be closely examined such that a project will have a definite probability of success before land is irreversibly committed for that purpose. � Lands proposed for high-population-density or urban- like development shall not be committed for extrac- tion purposes unless such action would be directly compatible with the proposed urban development. � Lands having significant ecological, historical, agricultural, or aesthetic values shall not be used for extraction purposes unless the developer can prove that no alternative sources exist as well as proving that the proposal is vital to the health and walfare of the entire island. Beach strand mining for sand according to Government Code and/or Executive Order shall no longer be considered an acceptable use of the shoreline whether or not the resources are located on private property. All coral or other dredging operations, below the Mean High Water Mark, shall fully adhere to existing local and federal statutes and minimally require an approved EIA before commencement of any operation. Industrial and Commercial Support, (See Fig. 13 and Map No. 1 Power Production and Transmission Facilities Synopsis. A recently completed study, Future Power Production and Transmission Alternative Plans, -Guam, U.S.A., indicates that Cabras Island will, in all probability be the site for future power production facilities. The existing Government- of Guam site has sufficient land area for two additional steam plants Thereafter, the adjacent site of the existing Piti plants can be utilized as the present production facilities will probably be going off-line in 1994. Considerations -55- of a l Lerna Vi ve production iiiE!L' I iorls, Such as gradient, solar, and wind generation are Leitq cons 1@ered, but are still too experim,,!ntal to ba subject to a qre,_@L degroe of plarining consideration. L r@ 1!Lvjsioned Expansion. It is indicated in tnf-. abOVe 10 w2ntioni@d-_stud-ythat VA's pv(,serit land hoid'..n9s are adequate for exp-ansion of bull, fuel oil starz:g-- --.n!-s Ln adjacent to the existing pair of 2068,000 gal ion tan'-,s. %A Addil-Jonal tanks will be required at th.,2 Tank IN9. 4 is programi.-red for installation at the Cabras site. According to the study, no major changes or additions UP,0 are required for fuel oil delivery, or transfer of pipe- 1: line systems for power plant fueling needs up to the year 2000. The existing 115KV transmission line and planned expansion will provide adaquate voltage for Guam's power needs to the year 2000. Right-of-way widths depend on a conduct-or configuration which will probably remain in a two-circuit, vertical configuration (100 feet or greater) depending upon the span and heiSht of the towers. Performance Guidelines. Performance standards for sites 3 \D of production facility development will be based on the A' following guidelines: V � Commercial Port or other privat2 entarp-rise location shall not interfere with projected area require- ments for future energy facility location or around the present Piti or Cabras units. � Applicable local and federal standards for air and water quality shall be strictly enforced. Impacts of thermal discharge (cooling water) into the Piti Channel shall be lessened, with future heated water into the oCean units disposing ol rather than the harbor. The water area adjacent to the existing production and storage facilities shall remain open to public access, and GPA planning shall encourage- multiple-use, especially recreational boating, anchorage, etc. within these water areas, and replacement of any access or damaged facilities incurred in the process of expansion. Any proposed dredging activities shall be carried out in such a manner as to minimize siltation damage. to surrounding marine communities. Silt screens as well as proper timing of dredging activities shall be implemented in conformity with erosion control and water quality standards enforced-by GEPA. -56- Commercial Port (See Fig. 13) Synopsis. The Commercial port of Guam is located on Cabras Island and occupies 33 acres deeded to the Government of Guam by the Navy. Only 9 acres are presently use". as a container and marshalling yard whole 90% of the cargo off-loaded is in containers. The present area, the single gantry crane, and 2,700 linear feet of pier are totally inadequate for present activity which, over the last three years, has averaged around 700,000 tons of cargo off-loaded per annum. Envisioned Expansion. Plans for expansion include: Immediate development of 24 acres opposite the present port facility for additional container handling space. � Redesign and relocation of the access road to the northern edge of Cabras Island. � Leveling of terrain in and around the area of proposed expansion. � Development of an additional 800 feet of docking space to the east of the present docking facilities, and relocation of the feed mill. � Long-range development of approximately 4000 feet of additional dock space to the west of the existing Commercial Port (opposite what is now the Yacht Club anchorage and oil storage tanks). � Relocation and expansion of the Yacht Club facilities to the area east of the proposed 800 feet pier/dock extension. Shifting of some of the existing industry for more efficient use of the area. . Erection of additional warehousing facilities. . In addition, several new industrial-use locations are being considered for location in the Commercial Port area. Tuna transshipment and fishing processing facility Scrapyard Re-bar rolling plant Storage and warehousing Superport(See Fig. 13 Synopsis and Possible Development. Recently, interest has awakened on Guam for the location of transshipment and storage -57- EXISTING COMMERCIAL PORT FUEL STORAGE EXISTING INDUSTRIAL USE EXISTING AMMO WHARF @OWER PRODUCTION APRA PROPOSED HARBOR AM,MO \@XARF\ DRYDOCKS CL c CA, SHIP REPAIR FACILITY-%,, ro -c rz@ zr_ ISUAM OIL REFINERY POSSIBLE SUPERPS,41710N facilities, for a 90-day supply of oil, for Japan. While the decision will ultimately rest with the people of Guam, the Bureau of Planning can only recommend that a thorough; examination of the proposal considering the real (not imagined) economic benefits to Guam are weighed against the sizeable irraversible commitments that such a massive undertaking demands. Considerations must address: � The location and impacts of off-loading and support facilities such as a fixed mooring island, and tug/ supply boat staging areas. � The impacts of a major oil spill, the ability of local agencies to manage the effects, and spill prevention measures at all stages of the operation. � A detailed analysis of the real impact on employment, e.g., will outside labor or local hire be used in the construction and maintenance of facilities. � The increased demand and impacts of secondary industrial development, especially oil refining, accompanying such development. � The impacts of increased activity and tremendous land area, both on the Agat shoreline and the land surrounding present GORCO facili'ties, required for off-loading and storage. � The increased demand for island infrastructure and public facilities (roads, power, water, and communications). The life span or active life of the storage facili- ties due to a declining world oil supply in compari- son with the permanent and irreversible commitment of both shoreside and inland land and water resources; e.g., will the commitment of land for such facilities be worth the 20-40 years it will be in operation. The strategic impact of location of such a facility; e.g., effects on military defense developments. Performance Guidelines. Performance standards for Developvement of port facilities will be based on the following guidelines: Applicable local and federal air and water quality, sedimentation and erosion standards shall be strictly enforced. -59- Environw-ental Impact Assess-::Crits will L? requir:--4 for all iiialior dove I opiiants directly aM?rting fresh and narine waLers and associated flara and? fauna; addressilig the social, econornic, and environm@2n'_al effects of proposed deva-lo.,,-ent. An adequate syste@ii of prevention and reaction to potential oil or other toxic spills shall be developed to deal with increas--_-_f activ-1- ties within the port area. Construction activities shall be carrie-,' out in such a way as to minimize the damage to the environmen-L, historic sites, or existing recreation areas. Land alteration and construction practices shall include provisions of screening by landscaping of objectionable or unsightly industrial activities from public rights-of-way and any adjacent residen- tial areas which may be adversely impacted upon All by such development, as well as replacerent or rel.ocation of public-use recreational facilities altered or destroyed as a result of expansion activities. Provision of free public access to areas within the port such as the Glass Breakwater, Luminao Reef, and beach and boating facilities lviill be required. A park or multi-recreational facility shall be retained for public use west of the present Hotel Wharf including Glass Breakwater, the adjacent beach, and Luminao Reef. Agricultural Support (See Districting I-lap) Synopsis. Even though Guani is relatively "land poor," prime agricultural land is available for use. All of Guam's land is districted into urban, rural, conservation, 01- agricultural use. This is essential for an island society, as there is a limited amount of land. The potential for agriculture on Guam must improve if self-sufficiency is a valued objective. On Guam, the present executive administration took the name Green Revolution, and although Guam does not have a large agrarian society, the concept's main objective of enhancing agricultural production was deemed applicable and desirable on Guam. Two documents have been recently completed by the EDA Section within the Bureau of Planning. They are the Growth Policy for Guam and the Overall Economic Devel2pment Plan for Gual. -60- The' growtil polici,.-s conerally discuss th,@ niultit@A'.@, of i I L - - i facL'ors relaLing to dovelorm!_:@nL' of %-_,rious indus"rius c.,! GLIU; and outline the rj!ajor objectives end direc-tions thl:! GovernmE!nt of Guarii should tak-p to these obli,,_Otives. As a plan, th-2 OEOP more speciFically OLItlines funding, and incentives naedpd for develoipmen"- rif thes-2 indust.ries. Both dOCUIll?'AtS addf-!@ss agcicullture ;-:-s an [email protected] in i-.,hich gro-vith and developii2nt can bei-21fit. th@@ isiand society. Dist-ricting rlet@oJoloqy. Utilizing a ,-!ic-!2 range oF available data, the Bureau of Planning has delineated the prim.2 agricul- tural land. The ma 4or potential agricultural areas are @In J I Inarajan, Malojloj and Talo-fofo. Smaller areas are in Yona, Merizo, and Uirnatac. The only area of agricultural land in the northern half of the island is located in Yi9o. Inland of tit. Santa Rosa, soil that has developed as a result of the abrasion of volcanic material, has been deposited in the areas bettv;een Lupog and Mataguac. The total amount of agricultural land that has been districted is approximately 15.5 square miles. With an island of 212 square miles of land surface, the potential agricultural land is roughly 7.3% of the island. This does not sound like much land, J_ however, only small amount is currently used for agriculLural production and if preserved for agricultural use, it is - enough to meet long-range objectives for agricultural gro,.-Ith. Vith the designation of prime agricultural lands, -the needs of farmers can be better realized by governmental agencies and private interests. Three main factors are utilized in the delineation of agricultural districts. These are aerial photographs that depict topography, soil data, and climate. Land classification has been greatly facilitated by a set of aerial photographs that were taken in 1975. Aerial photos, with an overlay of contour lines, shoa such features as slopes, rivers, and L 'Lands th@t are level or gently existing areas of cultivation. sloping are we 'lture. The climate, mostly 11 adapted for agricu rainfall, is an important factor in agricultural developTent, as rainfall is not only needed for crops, but for the replenishment of',watershed areas that are necessarily proposed for irrigation purposes. (See Fig.14 -) Soil data is th'2 basic element in the delineation oF agricultural land. The major source of soil data is th@- Military Geology of Guam,, a document prepared by the U.S. Army Corps of Engine-ars in conjunction with the U.S. Geological Survey in 1959. There have been no exhaustive studies of agricultural land since this date, so this engineering soils study is the basic source of data. Soil data more spacifically analyzes five soil characteristics: 1. Soil Texture. Texture refers to the proportion of - sand, sM_,and clay in a soil arid a ffeCtS the water-holding and nutrient retention properties, as -61- well as the workability of the soil. Medium-textured soils are most desirable for crops. Fine-textured soils car. be desirable for wet crops such as taro. Coarse- textured soils such as coral sands are not suitable for crops unless excessive irrigation and fertilizer is used.. 2. Soil Depth. Depth refers to the thickness of the soil layer that is available to the roots of plants. Deeper soils provide a larger volume of soil from. which the plants can obtain moisture, nutrients. and anchorage. 3. Soil Drainage Drainage refers to the rapidity and the extent of removal of excess water from the soil. Soils that are well drained are best suited for most crop production. Special crops such as taro and rice can be cultivated on poorly drained soils. 4. Stoniness. Stones in the soil profile or on the surface affect the use of the land, especially if tillage machinery is used. Rocks can hinder or prohibit the use of such machinery. 5. Soil Fertility. Fertility refers to the capacity of the soil to provide the required nutrients to the crop for optimum growth. Some lands require large quantities of fertilizer to maintain optimum crop yields. Soil tests are used to determine the degree of soil fertility. All of the above considerations are utilized in the delinea- tion of Agricultural Districts. It is a distinct possibility that, in the long-range future, worldwide flood demands may force Guam to become more self-sufficient. For this reason, prime agricultural lands must be preserved. The agricultural uses, depicted on Community Design Maps. have been approved first by residents themselves. Agricultural Irriga tion Needs.. The availability of water is tile most critical input that would enhance agricultural growth potential. I-later of good quality is essential for all agricultural operations and some potential agricultural lands do not have an adequate supply of water to meet irrigation demands during the dry season. Droughts are a common occurrence on Guam and,. as indicated in the graph of rainfall. periods of minimum and sometimes even average rainfall are insuffcient. The graph was part of A Report Covering the Domestic and Agricultural Irrigation Water Supplies of the island of Guam Which Indicates the -Need for Conservation Areas. (See Fig. 14 .) The report was prepared in 1970 Austin, Smith and Associates, Inc. for PUAG. As the lengthy :title suggests, watershed or reservoir areas are essential for yic@uue_ 14 1.@c or En Elevti@n Yc-:c,,t- j-1 fi-j 1 J. 2S 7-'-7-7. L 71@ 20 ... ... .... S EA N S! > MELON3, CUCU,',181-_RSl TONIATOES1 .... .... .... .... .... .... SANANAS1 .. . ... .... ... r Avor-ADOS Ztj PAPAYASI NIANGO-ES! X X. M C/3 10 . . . . . . . . . . . . :-Xx . . . . . . . . . . X - A Q JAN.' F E_ B. MAR. APB. MAY - ''JUN JUL: AUG. SEPT, (3 CT@ NO V. DEC, Fill 0 NIT H S L E G E Mai. A a. INCHES OF @VATER NECESSARY v FOR PROPER GROWT14 AND MATUPING Or- X GIVEN CROP 7c,: T N-1 N, .-Source: A Report Covering th ..eDomestic an Irrig d Agricaltural ati6-al;allar SuoE)lies of the Island of Guam Which Indicates tha Need for Conservation Are-is, Austin, Simith and Assoc. for PHAr. I 7A agricultural growth. Reservoir and watershed sites have been proposed by the U.S. Army Corps of for the Umatec, Inarajan, Geus (Merizo) and Ugum (Talofolo) Rivers. The planning for the Ugum River Reservoir is furthest towards completion. Implementation could potentially supply the largest sectors of agricultural land in the south with irriga- tion water. The Hydrological Study for Potential Water Supply Reservoir, Ugum River, Territory of Guam was recently completed by Sunn, Tom and Hara for -the U.5. Army Corps of Engineers. The study was conducted to determine the surface water availability and storage requirements for the Ugum, River basin. Water from the basin would be used to serve the domestic consumption needs to the Year 2040 for the southern districts of Yona, Talofofo, Inarajan, Merizo, Umatac, and Agat. A recommended dam site was presented in the study. Further planning, involving impacts on the flora and fauna of the area are still forthcoming before feasibility and implemetation would occur. All of the Corps' proposed watersheds are depicted on the Community Design naps that are being prepared for this element of the Comprehensive Development Plan. (See also Chapter VII, Section A.) Group (B).- Facilities Requiring Shoreline Location Overvi ew In relation to Policy 2, relative to the location of facilities adjacent to the shoreline, certain areas of the shoreline are considered APCs for the purpose of ensuring compatible growth acter or accessibility without destroying the char of the shore. While it is recognized that there will always be pressure for the location of private dwellings, adjacent to the shore, it is the high-intensity uses of a nature not complimentary to the immediate use of the shore which are of' the most concern. The following categories should be considered as having a priority for location, adjacent to the shore, not including power production or porL facilities which aqre treated under Group (A preceding Resorts (See Hap NO. 2 and Tamuning Community Design Map) Synopsis. The most valuable component of the private sector of Guam's economy is its tourist industry. Every year, thousands of tourists corne to enjoy the scenic beauty of different historical and natural areas of Guam. When resort areas are delineated, protection of natural areas must be facilitated such that the needs of tourists can be more adequately met. Resort areas, though centralized, are located in areas of high scenic beauty, where recreational and consumer demands can both be obtained. -64- J7- @-- f C U t %c s@, r! 4 Hap INO. 2 Silo re I 4i.np--Fa.c.i I 'It ie@ IN % C A PAS Di A,( V 0 0 A It LEGEND lo Mso@r rz- Y., I A 1. 11 0 p 0 IAA.1-19 LAB IEXWr-N-. ft,,p sTr" ll`Aoftls:D@ PLA.- STA-.O,+- 1-01 % EXIS7.%'G SEW4Ce r:?-Ar%.gl PL.Z*.T ft AA .1 J A SFIT&C-5 COMALL 2 rL Boating, Fishincl, Lcuaculture and AssociaLed Services and Activities �Jpopsis. Boa-Ling, recreational and com.-Ma'rcial fishing, and related w-ater-oriented activities will continu,= to creata a demand for areas imn:-Iediately adjacent to the shr;reiine. Commercial fishing and/or aquacultture activities Can be expected to create additional pressures in the futur-e. To meet increasing demands, expansion of present boat-J"',g facfli- ties must take place. For example, the,Agana f4arina, proposed Agat small boat harbor, Merizo Public Dock, and various launch ramp sites and other projects such as aqua- culture developments all attest to a groaing demand for shoreline locations. Environmental, aesthetic, and socio- economic considerations must be closely considered in all expansion proposals, as well as. analysis of the secondary impacts of such development.. Educational Institutions and Facilities (See Map No.2 Synopsis Presently, the University of Guam's flarine Laboratory is the only educational facility requiring a .Iocation*imm,ediately adjacent to the shore. Expansion of the facility, or establishment of others such as aquariumns and similar activities would require a shoreline location. Parks and Beaches (See Mlap Nos.11 and12 and Table6 Synopsis. A basic component of island living is time for leisure and recreation. Large, centralized locations facili- tate activities such as fiestas, sports, picnicking, or relaxation. These areas provide open space, structures and L utilities which not only add convenience, but also protect against recreatIonal misuse of other more ecologically - sensitive conservation areas. When maintained, public park's and beaches can be aesthetically pleasing and more appropriate for this type.of land use than natural areas which tend to become spoiled by some forms of recreational activity or - to developed areas which lack sufficient space.* This is not L. imply that all recreational facilities must be located on t i the shoreline, rather, a public use, par cularly ater oriented, should be given priority over a use which involves location of a facility which does not compliment -the nature of the shoreline. Surfing Sites (See Map Ilo.3 and Appendix No.3 Synopsis. While offshore diving and surfing sites are n o t, usually negatively affected by shoreline facility location structures such as piers or boat harbors often intrude upon' these sites. Care should be taken to avoid, if possible, unnecessary intrusion upon these areas enjoyed by a sizeable -of enthusiasts- number -66- V.: GUAN FA A le.NG S@STEf !Map No.@ 3 Sdrfing Locations Q 0 T-- %\ C"A $'A G 01 07 A A Gi A T A L 0 0 F 0 a m SURFINO AT^ LocTross. % I ft A 0 1 A 2L__ si-EE-li -67- Waste Di a No. .@.,Vosal and Storm,-,,;-ater Drains ( Se e 1:11 P 2 @Ynqr is. The econo.--inic factors of waste disposal systerins usual ly deiiiiand an ocean out flal I .0 ther me tthods s --;ch a s I la nd disposal for sli-ivill t-reatnient plan-,;.-s have, perhap5 @.-hrouc@;- a misunderstand-iPg of t-h,- concept, been emphatically reject-ed by the citizens of Guarn. Given the technology of waste treatment, the proper depth siting of out-Falls an," the proper trenching of pipes, there should not be an adverse envirlon- mental impact fro-m secondarily treated waste efflueapt. Storm drains on the other hand should be discoura-2d as a means of draining parcels of land adjacent to the shore. Water quality conscious, land-based percolation mi;_-thods are encouraged given persistent pollution problems associated with several storni drains, particularly in the Tumon resort area. Performance Guidelines. The following guidelines shall apply. to facilities requiring, or professing to require a shoreline location: Developers proposing high-intensity residential commercial, industrial, or other uses not complimentary to a shoreline location must prove to the satisfaction of the Land Use Commission (See Chapter IV, Section B) that the local-Jon is suitable for the proposed development and that proper design considerations would eliminate negative impacts of such developiment.. For seashore location of high-intensity use not according to the Land-Use or Community Design Elements of the Comprehensive Development Plan (CDP), the developer must provide proof that Such development is consistent with the CDP; and that proper procedures are followed for redistricting, Seashore Protection Permits and other,mechanisms to protect1these resources. The guidelines provided by the Seashore' Protection Act, as amended, must be follo@v;ed for all developneent. falling within the Seashore Reserve. Public access to those usable portions oil the shore- line must be provided by the development which would-, otherwise block such access.- Shoreline development shall not interfere with along-shore access by placement of' structures, including but not limited to fences, seawalls, groins,, fill, wave absorbers, piers, docks, or other structures-' Where structures.such as marinas, seawalls, ramps, ...'etc., must by nature interfere with along-shore access an alternative path must be provided by the dev eloper -68- 'WA- Storm-draiin 'Jischarge into waters adjac@-,-t to I t- - recrea-tional beaches or, onto ree-c fla@s --hall, be discouraged as a means of lot draincage. On-sita ponding basins or other weans of runoff disposal shall be encouraged. Structures or activities which alter natural shoreline processes shall be pernitted only when designed to lessen or eliminate adverse impacts upon the natural shoreline or when it is determined by the LUC that public interest would be better served by protecting existing structures than protecting natural shoreline processes.* Men determined feasible and sensitive to shoreline resources, structures shall be built to withstand the potential force of storm waves and typhoon force winds. Group (C). Hazard Areas 140 Airport Accident Potential and Sound Zones (See Map No. 415 and Fig.15 �X92psis, Accident potential and airport 'and sound zones, unlike most areas of particular concern, arLi not areas to be preserved for their ecological or historical significance. The nature of airport technology has produced noise levels and accident potential zones that require specific performance' .standards. Noise levels can be incompatible with human activity and wildlife preservation and hazard zones can necessitate low-popula-tion density oriented land-use activities in certain areas adjacent to airfields. The Guam International Airport and its adjacent areas of specific noise levels and accident potential zones comprise,this area of particular concern. Because a military airfield adjoins the Guam .\18 International Airport, federal consistency is of major importance in this area. Coordination of local and federal planning involves both the Bureau of Planning and the U.S. Navy Program of Air Installation Compatible Use Zones (AICUZ). Expansion. According to a new Master Plan being developed, several expansion proJects are taking place at the NAS Guam International Air Teminal. These include- Air terminal improvements.. Interim airlines cargo building- Land acquisition up to 26 acres at an estimated cost of' $2 million. Aircraft-related improvements (completed during 19761) -$3.5 million) including three aircraft spots, taxiways, - -lighting and fueling facilities, runway stabilization, -fencing, service and maintenance ramp.._ -69- IIOPIeifientat'on of the traffic cir-cul-ation plan and consolidation of GAA offic@s (both un&2r-.-iay). Detai I s and the spe-r-i'lications of these projects's can b;2 obtained fro-Im the G--i.-.-,i Airport AU'LhOi^ity, the pu-rpose o1c discussion being th2 @..,,Ider implications on surrojnding land use @-ihich must acco@7,pany expansion, as viell as prof-.;oting adjacent land uses ...'hich are com.,patible with aircraft opera- tions at the airport. 'nes. The problemis caused by landing and Performance Gu.idel i takeoff of aircraft are not going to diminish' in -he near future. The Navy is presently engaged in an AICUZ study for NAS, Agana; and -he Air Force has completed a similar study- for AAFB. The objective of these studies is to determine how aircraft flight patterns can best be designed to minimize negative impacts on surrounding development. The land-use pattern must reflect these impacts with iraprov-ed zoning designations within identified crash and noise hazard zones. Map No. 4 shows a preliminary pattern for operations, L ra g Figure 15 indicates thauses which will be encou ed within affected areas. As the study for NAS is' not scheduled for t completion until a later date, the acLual redesignation of permitted uses cannot be completed until that time. Howaver, e -he per' rimance standards for aircra-" it is expect d that 10 crash and sound zones will follow the recommendations by only permitting the uses specified in Fig. 15 to occur within the zones identified by the final recommendations of both plans. Performance standards for land use., adjacent to airport operations, and falling within potential hazard zones, will be based.on the following guidelines: Uses compatible with the ident *Hied hazard zone delineations shall be,reflected in a revised. zoning map. Existing non-compatible uses (particularly in the d to cont Mongmong-Toto-vlaite area) will be permitt.2 inue -con-c as a non orming use,. At such time as a present non-conforming use ceases the use designated for such parcels of land shall be consistent with the hazard area use standards. There will be no variance permitted in prinnary crash and noise zones insofar as location of high-population- density uses. A maximum effort will be made to alter present takeoff- on landing procedures to produce the least i, existing uses. 'This involves modification of.takeoff an d'landing approach angles and.reduction.of.night Iandings and takeoff. -71- Figure 15 'LAND USE COMPATIBILITY MATRIX FOR AIRPORT SOUND ANb'HAZARD LAND USE CLEAR I.Y UNAMPTABLC N > < Q UN A C C 11 TAU L E' uj 0 < ill tA Ili @- > to X CL Ir -1 W X a: ff) C) om > w 0 0 u W -. NORMACLY- ft X (n 0 ill Ili 0 ACCEPTA'GLC z j 5 :r 3 cc (n z z IIJ - (L a a: 0 Ill (ecl) uJ w 15" 0 r 0 u Ili uj < Z vi X. (I. tu < CLEARLY >: > 0 z cc 0 D ACCEPTA3LC z x < 0 T z 7- 0 jr u ill :3 cc W. w rf) ce W (nj D cc* -i z 0 z om 8 < cc z in u 0 (t -ill 0 LfJ uj Ili j I Ili I OF 0 i<- 'o ill a in < ci: > Z LL T zul fc 0 0 0 w Z) 0 0 a. fn z "a 0 ui 0 0 1 < z 2: (n Z (h 0 :5- LIJ C) 2- j VW1 z Z z z 7- < <ill < < 0- -j ;:2 - C5 cc ; in 0 0 0 0 0 ou 0 u 0 ill - z @- F- (A P:,%. z z Ili z 0: ct CC ill C.) Im @- @; < ct -) w LIJ 11.1 Ill ul al u tr_ Ili rc < 0 > 0 L Ill cr Ili cc 0 ill > u- 0 0 5. in rr 6 ;az CC 1-7- 1- L) 06 U ill 0 0 W z z u AICUL, ZONES ........... CZ CLEAR ZONE ...... ... .... %@p 1k I NO NO@SE ZONE .. . ......... ..... NO NOISE ZONE i-3 HIGH NOISE ZONE3 .. .... .... MfODCRATE NOISE ZONE 3 HIGH,N013c: ZONIE 3 MiODERATE NOISS ZONE 2 HIGH NOISE ZONE X)< I @x I IR M.ODEAAT(U,NO1SF ZONE A maxiimum effort will be made to LtilizP- noise reduction devices for jet engine testinq. This and J the above standard are 2CtUal requireiments wi'Lh-if1 the AICUZ Program. As operaCions at the airport change, a maximuni e`17-Fort will b-- niade to ease restrictions created by present and expected use patterns. Flood Hazard Zones Synopsis. As surface drainage patterns on steep slopes merge into major rivers, the amount of water flow and concentration of sediments increases. The course of rivers inevitably leads to the ocean along coastal lolvilands.. Dispersal of water over a floodplain area retains freshwater resources and some sediments are distributed over land areas rather 'than into the sea. At one time, floodplains were valued and utilized as rich soil areas for wet crops such as rice.. During periods of adverse weather conditions that bring rainfall, the natural and developed drainage systems persistent can overflow even further into adjacent flat terrain at the base of a drainage slope. Th- dispersal of flood water is often confined to natural wetland habitats, but in some to developed areas of human settlement. cases, can overflow inL If improperly used, floodplains can become problem areas as tures and the a result of deterioration of flood-damaged struco- recurrence of public expense for relief and repair of flood- damaged facilities. When floodplains are left open, practically no flood losses occur. However, because floodplains are ievel and level land is in high demand on a small island, much development has already occurred in flood hazard zones or further encroaches upon floodplain areas. Performance guide- lines for development in historically proven flood hazard ty and the qual ity of zones seeks to prevent damage to proper human life. The U.S. Army Corps of Engineers is the primary agency involved in the delineation of flood hazard zones and undertakes projects for flood control. This is not only vital for the protec-tion of both the environment and population, but also the economy as federally subsidized flood insurance requires local delineation and management of floodplain areas in, order to be qualified for aid under the Federal Disaster Assistance Administration in the event of disaster. Performance Guidelines. Open-space uses such as parks, wetlands, agriculture, and parking are encouraged as low-population and low-structural density uses in defined flood hazard zones- Existing urban development within fl ood hazard zones shall be permitted as a non 'conforming use until ...Such time as structural or non-structural measures of flood control reduce the hazard area such that non- conforming uses are no longer within a flood prone area. th-in flcod hi,,zard zones Proposed urban developi,,;,nt wit. I shall be planned a-, such that land alteration not i -ease the flood hazard zone (causing it to extend nct l $_ over adjacent, previously non-hazardous areas). The proposed development shall be planne-e-1 as such that StrUCtUres are flood rosistant and the possi!)iji-ty OT npgliglble human injury due to flood conditions is Flood cont-rol imeasures such as dikes, channeliz--tion or revetments shall be planned as such that floodplain support of a wetland wildlife habitat does not become adversely affected, unless the extent of the hazard to human life and the economy are determined more - important, than natural ecology, in a thorough EIA. Slide and Erosion Zones (Slopes in Excess of 15%) (See Map I* i1o . and Fig.16 Synopsis. With a few exceptions, large-scale development has not yet occurred on steep lands. In the future, however, population increase and demands for more housing (urban expansion) may seek hillsides as development occupies availa- ble level terrain (eX. Barrigada Heights). Often home- builders and resort developers wish to take advantage of the vistas obtained from higher terrain. A historical preference for flatland as being more feasible for develop- ment could change as a result of economic pressures for use of land once considered marginal as far as development potential. Therefore, performance guidelines must facilitate protection of slopes as an extremely important area of particular concern. Approximately half of Guam's total acreage (430%) has a slope in excess of 15%. Steep terrain generally occurs on the savannah grasslands of the southern half of the island and on coastal-cliffs and te 'rraces. Because. of a multiplicity of problems that can occur Oth land-use, activity on hill- sides and clifflines, open space is encouraged as the predominant land use. The majority of sloping terrain has been designated as conservation districts because -the terrain and vegetati -on constitutes a natural watershed, an aesthe-tic resource, and an important area for recreational activities such as hiking and observation of ecological habitats. The vegetation, wildlife, drainage pat-terns, soil conditions, and underlying geology all suggest an emphasis on open space rather than urban or agricultural development in steep areas'. Construction on hillsides can promote erosion which destroys protective vegetative, cover, limits. land use, and degrades. water quality and visual appearance. Unplanned development can also lead to landslides and increases flood hazard areas. The 'weight of structures on steep hillsides can- cause unstable V.- J. C U A M W6 Vlap No Sl de and, Eros i o@ Zones 4N PC 37 SLO, P, -@r4e@A 54 A =A '7c Soil S to "Sl LV3.10" and weaken fo,,indations . I r i E. ,, @ r@_. ca s E 3 mu d s 1 i d-L, s may ca u s e bu i I d i n g d -im-i ge 2 n, d/o r th rc:ij to ho ;5 I i f e When ground cover is disturbed or reirov2d d-jring develop;-1-2nt, exposino the soil, potr@-ntial for e-rosion h.-:js been intro,@LlCed. As tho surface area available for absorbItio.-I of rain water is reduced by impervio-is surfaces road,.iays, parking lots, etc.), rLinof-IF is increaser] and th= potential for erosion increased along viith it. As a rul a > slopes are more easily eroded than level lands; the extent of U -abilization erosion during const ructi on end prior to soil St I L is SUbstantially increased on steep terrain. Septic tanks and leaching fields installed on steep slopes are more subject to failure than similar installations in more level landscapes. Where provision is maude for public power, water, telephone, or sewage systems, the difficulties and costs are significantly greater on steep SIOP25. In addition, the acreage requirements for roads and even for structures increases in slope. In short, land area cannot be used as efficiently on steep slopes as on level land. Efficiency is related to cost and some costs of developing land on steep slopes have to be borne by the public, as local government must maintain road-elays or other utilities or when erosion, viater sedimentation, or-slide damage occurs. *1o22qra2h . The topographic characteristics'of an area are one j of the most important determinants of the suitability of the area for residential land use development. The ratings for land-use topography are as S-hovin in Table 5 Slopes in the 2% to 55.1 range are steep enough to provide for good surface drainage and interesting siting, and yet flat .enough so that no significant site development problems w-M be encountered. Some drainage problems may be encountered in the 0% to 2% range, but these can be readily overcome unless there is a large expanse of absolutely flatland. The site 07- plan in the 5% to 1072@ range may be more interesting than in the 2% to 5% range, but will be more costly to develop Slopes Table 5 : TOPOGRAPHY RATINGS Rating Slope, in percentac, (a) Rural Residential optimum 2 to 5 satisfactory 0 to 2 and 5 to 10 marginal 10 to 20 unsatisfactory 20+ (b) Urban Residential optimum 0 to 5 - satisfactory 5 to 10 marginal 10 to 20 unsatisfactory 20+ Source: Kiefer, Ralph W., "Terrain Analysis for Metropolitan Fringe Area Planning." Journal of J-he Urban L Planninq and Development Division; Dec., 1967, p. 122. -76- over 10% present problems in septic tank filter field layouts that will be difficult to overcome. In addition, street development costs will be significantly higher than in the 0 to 10 range. Severe limitations in domes- tic sewage disposal and street development will be encoutered on slopes over 20%. Performance Guidelines. A general guideline for land use in slide and erosion zones is that all proposed and existing development shall adhere to the Erosion Control Standards established and enforced by the Guam Environmental Protection Agency. Specific guidelines for land use on slope must consider: Open space is encouraged as the most compatible land use on slopes in excess of 15%. The steeper the slope, the more the requirement for open space. Hilltops shall be avoided as building sites for urban development as the natural horizon line is interrupted and structures are highly visible. Buildings, located below hillcrests, are more sheltered from typhoon force winds, less visible from distant viewpoints, and less prone to cause erosion problems (see Fig.16 When necessary to locate on sloping terrain, roads and other frastructure shall be planned to follow the contours of the site. Structural and infrastructural development, if straight and down slopes, requires more grading, expense, maintenance, and increases the potential for erosion. If necessary on sloping terrain, land grading should be done during the dry season and during the shortest feasible time span to reduce the risk of sedimentation runoff during periods of heavy rainfall. Where urban development must occur on slopes, natural vegetation should be saved wherever possible and unsurfaced, graded areas should be replantad with a vegetative cover. Proposed development on slopes shall include plans for the safe disposal of increased water runoff caused by roofs, pavement. and land grading. This involves mechanisms such as temporary sediment basins, silt screens, ditches, and dikes during construction. Once construction has been completed, altered soil and surface conditions may require permanent inlets and storm drains to convey the increased runoff to an adequate storm water drainage system. -77- Figure 106 DESTRUCTIVE AND COMPATIBLE DEVELOP,.*.ENT ON SL.O;Dl,*',JC- TERR I IN Iz De.itructive d-welopment 4 LW, , 4@@ t I Z Compatibla d2ve)opment Art., -4@ .2 -Z 7 j. z,.., Source: Pa.-form3nce Controh for Sansitive Lands: A Praczzinl Guid@ for Locall Ad, i i Ltrators, A.S.P.O.,lJuly, 1975, p. 71. Z,' 7- _78- i I, Where an area hazard study denotes unstable soils where potential landslides may occur, land use within the hazard area shall be restricted to low-population density activities unless structural means of land- slide protection are implemented. Generally, slopes are rocky or do not possess the fertile alluvial soils of basin lands and costs of transporting irrigation water to upand terrain is considerable; however, if field farming is considered feasible on steep terrain, mechanisms of erosion control such as contour planning, terracing, ground cover crops, or natural vegetative zones should be employed to minimize potential erosion problems. Reforestation efforts shall be encouraged as a responsible mechanism of erosion control for the repair and enhancement of natural or man-made eroded Lack of fire control on larger grassy areas in Southern Guam destroys as much as 40% of the visible areas during periods of drought. Most fires are caused by illegal trash burning, camp fires, or illegal use of fire to flush game or clear terrain. Strict adherence to fire control regulations enforced by DPS Fire Department and Burning Permits required by GEPA shall be enforced. Seismic Fault Zones (See Map No. 7) Synopsis. During eras of the island's geologic development, different blocks of land have uplifted and subsided. The six blocks are divided by fault lines or geologic structural subdivision zones. In case of seismic or earthquake activity, the most potentially hazardous areas are along these zones. Major geologic activity occurs over such a long expanse of tire, though, that the potential hazard along fault lines slight. The land is stable enough for most land uses. The six major blocks have been mapped and described in the Military Geology of Guam, published in 1959 as a joint effort of the U.S. Army Corps of Engineers and the U.S. Geological Survey. Further geologic and seismolo- gical studies are needed before a more precise determination of the extent of the hazards associated with fault lines is known and more precise guidelines can be established. Performance Guideline. The basic guideline for this APC is that high-rise structures with a high-population density use (hospitals, apartments, condominiums, office buildings) shall not be constructed on a defined fault zone. -79- Group (D) F,r2s_',w,-j,2ter Reso,.irc;@s (Sc@- i'lap Nio.2 and@ Synopsis. The undergro,ind aquifer systems of Northern Gua@!: pro- -V vide the bulk Of tile island's 1'resh,,@iater sj,-;ply. A layar of V freshwater floats UD.-,n saltviater and forms a basal lens. The .Y lens is replenished by rain-fall percolation through tha lima- stone of -tile northern plateau. There are three main aquifer areas- -Dededo-Y-i go, Barrigada, and Chalan Pago-M.,dot in Cen- --_Fra_1_-G`ua_`m'Y' In the area over the two northernmost aqui fers, numerous sinkholes cause rapid injection of water into the lens system. These areas are particularly critical in terils of pol- lution of underground supplies as even partial filtration is not in elfect. Where urban @avelopinent surfaces the land over aqui- fer,recharge areas, ponding basins are sometimes needed to assist i.n rainwater recharge of the underground lens. LEI In th-- Central Guam aquifer area, wh-are southern volcanic up- lands meet the northern limestone plateau, the topography is intersected by low-lying basins tha-'T.-- appear as grassy @ields that are flooded during periods of rainfall in the viet season. These natural low-lying basins, like the northern sinkholes, assist in aqbife-. recharge and are depicted on more detailed maps in the Coariunity Design Element. Performance guidelines for land use over aquifer syste,.gs may ease as ongoing research of the nature of ground,,.,at-er resources further defines the extent of supplies and -the capacity to ab- sorb pollutants. Currently, the most coi-ilprehensive study, Groundwater Resources of Guain: Occurence and Development, by John F. Mink, has been published by the University of Guam llat2r Resources Research Center as their Technical Report No. 1. In the southern half of the island, rainfall does not penetrate the volcanic rock as rapidly as limestone and surface wat-er. gathers in the form of rivers, streams and wetlands. Surface drainage from watershed areas can be directed into reservoirs such as the existing Fena Reservoir. Because water resources are vital for activities such as human consumption, maintenance of wildlife habitats, agricultural use and industrial needs, they deserve special performance guide- lines Water is a basic human need. The adverse efflects of insensitive use can deprive the island of this fragile, finite and valuable resource. 7@ _80- -N ------ -- G UA "'A UI.,FC4V li-lap I.,Ia' t e rResource bevelopment Sft@@s Fl I Pt A a !-N fflo@ WELLS u A AM FO@- cr GUAM 2 0 2t. Presently, PUAG, GEPA, USGS and Navy PUC all cooperate in the management of water resources. The U.S. Army Corps of Engi- neers constructs reservoirs and defines watershed areas. Pro- posed watersheds and reservoirs are depicted on Community Design Maps as conservation uses. GEPA is the primary agency involved in the enforcement of water quality performance stan- dards and erosion control standards which are directly related to water quality. Within GEPA, the 208 Program or Areawide Wastewater Treatment Management Plan has the objective making all of Guam's water swimable and fishable by 1985. Performance Guidelines_. A general performance guideline for water resource use is that all existing and all proposed water- related development shall adhere to the Water Quality and Erosion and Sedimentation Control Standards established and en- forced by the Guam Enviromental Protection Agency and all agen- cies and private developers shall support the objective of eliminating all point source and non-point, sources of adverse pollution. Specific performance guidelines are listed below. � All agencies and owners of residential and commercial buildings or sewage treatment facilities shall obtain required permits from GEPA and Public Works for septic tank installation or sewer connection with plans show- ing that construction or connection will not adversely affect water quality; � All agencies, individuals and corporations wishing to drill or operate water. wells shall obtain a Well Drill- ing License, Well Drilling Permit, and Well Opera-Ling Permit from GEPA to protect groundwater from contami- nation or overpumpage by unskilled personnel or improper construction and equipment; � Anyone, including GoyGuam, selling, distributing or im- porting pesticides shall obtain a required Pesticides Dealer's License and Registration of Pesticides to en- sure competancy of all persons dealing in pesticides and that knowledge of imported pesticides products is monitored by EPA; Anyone, including GovGuam, intending to apply or use restricted pesticides shall obtain a Restricted Pesti- cides Applicator Certification, as required by GEPA, to ensure safe usage of pesticides which are classified as restricted; -82- 1@0. q Water Classif 1cation Hap AA A GCIS-@ 4;E AA ESTUN41ES C FRfS4 S@YVACF .ArE;tS 21 21,11 20-1 Z.-E b-I R12MKI Z3-1 lb-A A p A % 21-3 C. A A@ AA A A A VIATFR CLkS21FICATIOS IAAP Source: Guam Environmental Protection Agency -83- All government agencies, individuals and corporations planning to develop or maintain a dump on private or public property shall obtain Authorization for Solid Waste Disposal from GEPA to ensure health, sanitation, land-use compatibility and prevention of solid waste leachates from cintaminating freshwater resources: Anyone, including government agencies, intending to clear or grade land shall obtain a required permit from Public Works and clearance from GEPA to ensure adequate provisions have been made for erosion and sedimentation control; Open space and enviromentally sensitive recreational or agricultural uses shall be encouraged in aquifer recharge and watershed areas'. Urban-type uses are discouraged in such areas unless a thorough EIA de- termines that such development will not adversely affect water quality or quantity; Open space shall be maintained in sinkholes and natural low-lying basins. (Open space is defined as essen- tiaTly undeveloped natural areas, strategically loca- ted where most needed to exclude intensifying urbani- zation patterns.) In areas where development is al- ready present in low-lying basins and sinkholes, such development shall be permitted as a non-conforming use so long as it conforms to GEPA Water Quality Stan- dards; Field farming, hydroponics and aquaculture, as agricul- tural uses, shall be monitored and planned such that nutrient discharges into surface waters or through seepage into ground water supplies shall not produce adverse effects on water quality;. Livestock slaughterhouses and industrial land uses (involving petroleum and chemicals) shall be discouraged as uses over aquifer recharge areas; Within proposed areas of intensive residential develop- ment within primary aquifer recharge areas, the surface drainage shall not. be significantly altered; and ponding basins shall be required to ensure that surface develop- ment does not adversely affect rainwater recharge of groundwater supplies- Group (E). Unique Terrestrial Ecosystems (See Map No. 10) Terrestrial Pristine Ecological Communities Synopsis. These are the most untouched representatives of the specific habitats known as the limestone forest, ravine forest, savannah, coastal strand, and wetlands. Though, each of these areas has its own performance standards, the most scientifically valueable representative requires a more strict control of permissible uses in order that it be preserved for the study of its unique ecology. Ecology is the relationship between the plants, animals, and natural features of an area. Being the least developed, they are usually the most aesthetically pleasing or beautiful examples of the different natural communities. Pristine ecological areas often contain the highest incidence of endangered and threatened species of plants and animals. These are species that are in immediate danger of extinction or would reduce to a critically low number as adverse land uses were permitted to operate. Wildlife Refuges Synopsis. Pristine ecological communities, delineated through ongoing research, often develop overlap with other larger, unique wildlife habitats. As pristine areas are more specific in location, the larger Government of Guam Conservation Areas are maintained for the preservation of large tracts of wilderness land. They are precisely delineated in the Community Design Element as wildlife refuges. Proposed Critical Habitats Synopsis. Even more expansive are critical habitats for most resident birds. The majority of bird species on Guam are threatened or endangered and the Division of Wildlife and Aquatic Resources has delineated critical habitats for possible considerqtion by Federal Fish and Wildlife regulations. Critical habitats are the natural areas where particular species find the requirements for survival and protection from predators. The largest areas include much of the limestone forest around the northern coastal clifflines. The Fena Reservoir area, Orote Penisula, and Cocos Island are additional critical habitats. For example, Orote Island is the only nesting site on Guam for the brown booby and the ironwood trees on Cocos Island provide the nesting site for white fairy terns. Limestone Forest Synopsis. The limestone forests of Guam are so named because they grow in minimal soil upon the northern limestone plateau, Orote Peninsula, the areas of the southeast coastline. They are a finite resource as land devleopment has cleared many forested areas. Unlike mainland forests, reforestration is not possible because introduced "invader" species of vegeta- tion prohibits the re-establishment of native flora. Limestone -85- 7-- t I o hap No Url ique T-errestY ial Ecosys tems e. s, I F 5 o 0 r j" 6 2 I A. L 0 G o J It ILI A N A 1;t P."M F7@ I, L co m-.r,c. 1.-@ I A.1 1. % LEGEND 0% PC--_zAD I I'll CMnM hAa-A J fj WA--A-72 PC-Fm-e ITE ;29 r -z A- 2 L IL -36- forests are characterized by large trees that provide a shaded canopy over understory shrubs, herbs, and lienas. Numerous epiphytic ferns , mosses and orchids cover the rocks and larger trees. Due to periodic typhoons, the limestone forest never reaches a climax stage of maximum growth pootential . The importance of forested areas is multiple when weighing the public benefits of preservation and develop- mental needs. They provide a wildlife habitat for many unique and endangered species of plants and animals. Theyq also provide an area for collection of medicinal plants and edible animal life such as the popular coconut crab. As an aesthetic resource, they are value for hiking, nature observation and scientific investigation. Of less visibility, but not of less importance, much of the limestone forest lies over areas of the lens system as surface runoff is negligible and natural areas inhibit the infiltration of pollutants that are associated with urban development. Performance Guidelines. The performance guidelines for the above described types of unique terrestrial ecosystems are kept at a general level because the degree of preservation is different depending on the nature of an individual area and many areas overlap. As unique, fragile, and valuable wildlife habitats, these are generally reserved for limited recreational or scientific uses. Urban, rural (medium density) uses will not be encouraged. Medium-high density and agricultural uses, adjacent to these areas, must be sensitivly planned to avoid spillover impacts. It is recommended that an open-space buffer zone be maintained adjacent -to pristine ecological communities. Infrastructure development within pristine communi- ties and wildlife refuges shall be limited to minimal access roads, up to but not entering, the area. Transmission lines, lighting, signs (other than trail identification markers), and any off- road vehicular traffic (jeeps, cars, trucks, motorcycles) shall be prohibited within pristinqe communities and wildlife refuges. Disposal of solid waste (dumping and littering) within all unique terrestrial ecosystems shall be prohibited. Planned placement of trash receptacles along hiking trails is encouraged. While solid waste disposal is regulated on an island wide oasis, it is especially critical in this area. Discharge of pollutants into all water resources shall be prohibited in all unique terrestrial ecosystems. 87 Plant,animal, or rock collection shall be prohibited in pristine ecological communities and wildlife refuge habitats, except for scientific or educational purposes. Collection of plants for medicinal,food, or other purposes is permitted as a cultural activity within areas of the limestone forest and proposed critical habitats that are not protected as government-owned wildlife refuges. Hunting within critical habitat areas and the lime- stone forest shall adhere to regulations established and enforced by the Division of Aquatic and Wildlife Resources and shall not be permitted within pristine ecological communities or wildlife refuges. Hiking trails, steps, and benches, etc, shall be planned and maintained to discourage the proliferation of excessive trails and off-trail hiking within pristine ecological communities and wildlife refuges. Reforestation and related restoration activities are encouraged in erosion-scarred or other damaged areas of natural terrain that are within unique terrestrial ecosystems. Wetlands (See Map No.11 and Fig.17) Synopsis. Wetlands are unique components of the island ecosystem. They are the swamps, marshes, mangroves,and river valleys. These are areas that are constantly inundated with water and provide a wildlife habitat for aquatic species of plants and animals. Many wetlands also act as a source of fresh- water supply or assist in recharging the aquifer. They primarily provide a nursery ground for many juvenile species of animals until (the organism reaches a stage of growth when it can venture into another ecological niche . Wetlands are one of the most biologically productive areas on the island. They provide aesthetic scenery and are valuable locations for scientific research or sensitive aquaculture development. In areas at the coast, there is a transition from freshwater to saltwater wetlands with zonations of vegetation delineating the changes in salinity. A diversity of plant life is found in these areas, many of which assist, in maintaining the balance of the habitat, supply nutrients to the water, and have ethno-botanical value as food, medicine, or material culture. Wetland areas are often in floodplain areas and absorb excess overflow from rivers during periods of excessive rainfall. The mangrove fringe, represented in only two major locations on Guam, is not only an ecological habitat, but also functional as a shoreline stabilization mechanism which prevents erosion during periods of stormwave inundation. Mangroves are particularly resistant to typhoon force winds. Numerous small, reed marshes exist in inland savannah areas where surface drainage is slowed by a level area of topography. Savannah' marshes -are mostly found in the Dandan, Sigua and Umatac areas. Some unique que salt marshes can also be seen at Sumay on federal lands. These small savannah and salt marshes can be identified by on-site field inspection and development should follow the performance guidelines for all wetlands. F F /15 C, i ;;A J ..I.i;tp .1o' INe Ll ands, 0. or Ar P,I-R Isrum. @rA 0 1 7 f 11 A T T A L 00 0 p 0 I-J J-, V/FTLAND3 wq - - - - - - - - - - - - - - - .4 1 z 0 1 A@= 7- IAJ _89- Suggested Performance Guidelines. The acreage of a wetland shall not be reduced by filling it at the edges or dumping material over submerged grass beds and the flow of water shall not be altered, by blocking or channelizing rivers or tidal flow, unless it is proven by the developer that such activity is necessary for the management of hazard areas or economic well-being of the people of Guam and no alternative measure are available. The water quality in wetlands shall not be lowered by the introduction of adverse pollution, nor should the bottom be covered with harmful sediments. The nutrient supply within wetland habitats shall not be altered by removing large amounts of productive plant life. The removal of endangered and threatened plants and animals shall be restricted. Particularly, mangroves, fringing the shoreline shall not be cleared to enhance visual access as they assist in shoreline stabilization and are only'represented in two main locations on Guam. They are essential as nursery grounds for juvenile aquatic species of animals. Proposed development, adjacent to wetlands, shall adhere to GEPA water and erosion control standards and be compatible with the nature of the wetland habitat. Proposed recreational or cultural developments within wetland areas shall be permitted, after 'thorough planning for economic feasibility, complete funding and environmental assessment prove that such develop- ment will enhance the wetland habitat and benefit the people of Guam rather than cause irrigation damage to the finite amount of wetland habitat which is represented on Guam. Aquaculture developments in wetland areas shall be permitted only with an approved EIA, adherance to applicable GEPA standards, Division of Aquatic and Wildlife Resources regulations, approval of the U.S. Army Corps of Engineers (federal jurisdiction ova-, defined wetlands), and responsible planning to ensure -that the'development will not cause irrepairable damage to the ecological complexity of the wetland area. 90 Figurc 17 CROSS-SECTIOM OF THE 9ASA(w",ltmjlTKg-jFMt) WEI-LAND P lip, rX ARA FlOaXA' CRA.2 MANGROVF__ MUDFLAT Y AIR SHI, I "FiNGE1 FRESHWATER REED MARSH I I . I BRACKISH WA7ER ET 'i I I REED MARSH 1 ON E' RIVER OUTL -%EST Wo 00 Group (F). Unique Marine Ecological Communities Coral Reefs (See Map No. 12) Synopsis. Coral reefs are geological formations created by living marine organisms and include the living ecological communities on the surface of the reefs. Two deep lagoons surrendered by corel barrier reefs occur in Guam; Apra Harbo and Cocos Lagoon. Elsewhere, fringing coral reefs border over one half of Guam's present shoreline, forming wide reef flats of shallow water, seperating the shore from the deeper ocean. At times of lowest tides, these shallow reef flat areas may be exposed to a great extent, but depressed areas within the reefs and the outer margins of the reefs are always submerged, allowing for the growth of corals and associated organisms. Coral reefs provide protection of the shoreline, especially beaches, from storm waves and erosion. Reefs provide additional protection from the potential damage of tidal waves or tsunamis. They also provide recreational areas for swimming, boating, waterskiing, snorkeling, diving and numerous kinds of fishing. The rich diversity of corals, fishes and other reefs organisms on Guam make the coral reefs an outstanding location for scientific research. Reefs are biologically highly productive and economically important as a source of fish, corals and shellfish;and an outstanding tourist attraction. Living corals of several hundred species are the basic resources determining values of coral reef areas. The total ecological community and physical features are largely maintained in direct relation to the maintenance of living corals. These require constant submergance in salt water, 70-80 degree temperatures, sunlight, water circulation (oxygen) and a solid substrate. Natural variations in 'these and other physical parameters result in distinct zonations and a wide variety of reef communities. Performance Guidelines. Marinas, harbors, other shipping facilities, mariculture developments, power plants, etc. are to be encouraged at sites naturally suitable, where dredging and environmental alterations can be reduced to a minimum. Areas of living corals shall not be filled or dredged nor shall they be damaged by siltation or sedimentation from adjacent developments, unless it is proven by the developer that no alternative is possible and the resultant benefits exceed the environmental, Social, recreational, and other costs in a document such as environmental impact assessment. The dredging or filling of other submerged lands besid'-s those containing living corals should be kept to a minimum and alloaed only if the d:Evelopmant is water-dependent and there are no feasible alternatives. Developments that may alter currents and sediment transport shall provide current studies of the area throughout tidal cycles and all seasons and predict change caused by the development prior to approval of the project. Any major change in long- shore currents should be avoided and if shoreline erosion is expected the development should not be approved. No dredging spoil material shall be placed in water areas that are not part of a permanent filling project. Turbidity and siltation control mechanisms such as. silt screens and weirs shall be used to protect water quality in areas adjacent to dredging. Sewage outfalls, communication cables, pipelines, and similar structures which meet across reef flats shall be buried in trenches which are refilled and concreted to restore the original reef flat contours- Solid waste disposal and sanitary land fills shall not occur on reefs. Coral cover that has been damaged in areas adjacent to dredging, filling, and other changes in the marine environment should be reestablished by transplanting developed coral colonies to the area,4f a'sufficient parent stock is available and if Ciiter turbidity and other conditions,as well as transportation mortality does not prevent transplantation. All land development, especially adjacent to living coral areas, shall be designed with stringent runoff controls to contain and filter excessive sediments and polluted dis 'charges capable of degrading or destroying nearby marine resources. Change of ambient natural conditions,,including' turbidity, salinity, temperature, dissolved solids, suspended matter, dissolved oxygen, nutrients, currents, etc. shall not be allowed in the water immediately around living corals. Legal effluent outfalls and pollution systems shall not havelive-coral areas withiry mixing zones.. Outfall:'�ites shal 1---.be-;. in deep, -6ffshore:7 areas---.:-- j @*A% Aap No. I,9L Onique M arine Losystems I Til, -,e4: C. A D A Aif: A 3 A' Z'9 PAGO. ft A "s r I TA iA I Ike; I J P-\ T A L 0 11 0 1 LEGEND 10 A 0 41 49 2n 2L 3.1 -95- Addition of pesticides, petroleum product bleach and other toxic substances shall not be allowed in any waters surrounding living coral. Removal of coral is not allowed except under permit and supervision of the Aquatic and Wildlife Resources Division of the Government of Guam. Proposed developments adjacent to living coral areas shall be compatible with the nature of the coral habitats. Traditional and existing legal uses of the coral reef may continue, if not conflicting with any of the above performance guidelines. New uses must receive a submerged Land-Use permit and approval of the Land Use Commission. Marine Pristine Ecological Communities (See, Map No 12) Synopsis. Marine Pristine Ecological Communities include a typical representative of each of the major marine ecological community on Guam, including: estuaries, fringing reefs, barrier reefs, patch reefs, barrier reef channels, fringing reef channels, mangrove swamps, seagrass beds, cut benches and submarine cliffs. Each of the selected representative areas has retained its natural character or successfully re-established it after disturbance. This natural character includes biotic, and to a lesser extent abiotic, components of scientific, educational and aesthetic value. Of specific interest are the preservation of the natural ecological stability through diversity and the protection of critical habitats for rare, uncommon, threatened or endangered species. Although many of these areas are included in the coral reef category of APCS, these most valuable areas require a stricter control of Permissible, Uses Which will be governed by particular performance standards that can be developed after a study by the University of Guam's Marine Laboratory is completed in October, 1977. Preliminary Performance Guidelines. . The performance guidelines for coral reefs shall apply to pristine marine ecological communities. . Coral harvesting permits shall not be given for harvesting in these areas. . Permissible dredgeing and filling and developments shall not occur near these areas. . Recreational use may be restricted as needed to protect these areas and their resources -96- Group (G) Unique Geological Formations Karst Topography Synopsis. Karst topography consists of areas where limestone solution of uplifted reef coral is so extensive that large holes, crevices, and craggy geologic configurations.are at a surface level. Human habitation of these areas is a safety hazard and the ground base is too unstable for most types of development. Topsoil is negligible. These are areas that, by geologic nature, are only fit for conservation and scientific investigation. They generally exist in two geographic areas and in two basic configurations. Eroded areas exist in the southern half of the island between the Alutom and Umatac volcanic formations. These two volcanic formations arose at different time periods and the reef formation, between, was uplifted. Karst topography exists in this dissected area and has developed as a result of continuous drainage of surface water from volcanic regions into the lower .limestone-surfaced valley. The calcium carbonate in the limestone is carried away in solution and the most insoluble material is left. Most rainwater quickly disappears, but-where surface drainage enters a Karst area, the stream may flow underground and emerge at the surface further downstream. Trace areas of Karst topography also exist on the summit of the Alutom formation, but most is found in the areas known as the southern interior basin.. In the northern limestone plateau, karst topography is in the form of deep, round.sinkholes that are sometimes found singly or in clusters. They are not as massive or localized as in the southern areas. Sinkholes are generally protected by open-space conservation use for the protection of water resources. The majority of both forms of Karst topography is located on federally-owned lands. Since the major area of Karst topography is adjacent to highly restricted ammo bunkers in the Fena Reservoir area, it is naturally protected from adverse development. It would only become a high priority concern if this land was ever opened for public use or development. Further study is needed to define the extent and geologic nature of Karst regions before precise performance guidelines can be recommended. Presently, federal properties, open-space, and water quality guidelines are sufficient for the management of most of this unique geologic ecosystem.- Caves and Waterfalls Synopsis. In addition to the highly unique Karst areas, other geologic formations deserve management attention for the scientific-.study, and recreational enjoyment of their aesthetic character. Within areas of raised limestone, numerous caves have formed. Natural caves are subterranean hollow spaces, in relatively horizontal configuration, formed when water seepage dissolves limestone. Their size may range from the small cliff- side shelters that are numerous in some northern precontact village sites to larger coastal caves with stalactite formations. Larger caves are primarily important for geologic study of the composition, structure and history of the earth. Basically, performance guidelines managing sloping terrain should be adequate for the protection of caves. In addition, rock souve- Mrs should not be taken from cave areas and areas should be kept free of litter and fires associated with picnicMng and overnight camping. The Department of Parks and Recreation has listed 14 major water- fall areas of high scenic and recreational importance. Waterfalls are locations where steep topography causes surface drainage of a major river to vertically cascade to a lower river course. Water- falls impede navigation, however, they greatly enhance scenic vistas and offer a potential power source. Performance guidelines for slide and erosion control as well as water quality standards should sufficiently protect waterfall areas. Below listed are the major waterfalls on Guam. 1. Talofofo Falls 8. Sella River Falls 2. SiSua Falls 9. Laelae River Falls 3. Upper Siqua Falls 10. Imong River Falls 4. Inarajan Falls 11. Agaga River Falls 5. Malojloj Falls 12. -'Cetti River Falls 6. Tarzan Falls 13. Cotal Falls 7. Fintasa River Falls 14. Cannon Falls Group (14). Cultural and RecrEation Areas Overview The Departnjan@L of Parks and Recreation has the overall responsibility for design, construction, maintenance, operation and coordination of activities within all public and village recreation areas. In addition, historic and prehistoric sites, and scenic vistas fall under the planning and enforcement powers of the Department of Parks and Recreation. The Bureau of Planning has included these areas of APCs simply to reinforce the.continued expansion and maintenance of these facilities and to emphasize the importance of keeping such areas free from development pressures. Additional performance standards are not foreseen as being developed by the Land-Use Eleazent or subsequent documents. Rather, the approach will be one- of support of existing standards, rules and regulations developed by the Department of Parks and Recreation-, and the continuance of inter-agency cooperation for the success of recreational endeavors. Parks and Village Recreation -Areas (See Map1#11 Table 6 Syno2sis. Recreation, active or passive, is an extremely important part of the lives of Guam's population. The island is fortunate to have a dynamic recreation program, supported by an active Department of Parks and Recreation. If the recreation program is to continue providing an increasing population with adequate parks, facilities and activites for various types of' recreation, existing and potential areas must be free from development pressures which would negatively affect these activities, Performance Guidelines.- Use of park areas should follow the Parks and Recreation Rules and Regulations, being developed by the Department of Parks and Recreation. Existing rules of areas under the juris- diction of the Department of Parks and Recreation include: Motor vehicles shall be parked only in designated areas; no vehicles shall ,be all6we&o'n trai.1s, beaches, or. othei-, a as -withlyr;,park boundaries. re Y7 -r Af C) GUA J@,,] 11 Nap NO 113 CUlturaliand Recreatianal Are..' D ol"O J-- J.- T L N: w; r L L, rs c w A L. -Fif P _j .Dal O-L ft-com IN TA F IN IN LEGEND -A 1, Vv 10 P o 7 A L D 0 0 PPCPO- M. 2sTcvc ST@ sm MIP 3 srl-_ cr 0 0. GOLF CMM -4r,- E- r SL A 21R za -n C/') z r'-) @V.; r-3 C--) --j :IJ 9_j 0 7; V, 0- 77 Cr 0- (D c' .n U3 C-) (0 'D CL 0 r7 .) I CD < U- rj r:j C-i- a C-) tf, I Paseo de Susana, Agana c) 0 0 ;D 2. Aqana HeightsR--creation Area 0 3. Agat RQcreation Area 0 0 0 4. Asan Recreation Area 0 5. Maina Recrea*Cion Area 6. Barrigada Corrmunity Park 0 0 7. Chalan-Pago Recreation Park 8. Dededo Recreation Area 9. Liquan Terraces Recreation Areas 10. Inaraian Recreation Area 11. Manciflao Playground 12. Merizo Recreation Area 13. Mommong Recreation Area 14. Toto R(,-creation Area -0 15. Pi-Li Communitv Ballfield .0 16. Santa Rita Recreation Area -13 17. Talofofo Recreation Area 0 18. TaMUning Corinunity Park 6 19. TU-mon Recreation Area 20. U-matac Recreation Areas 21. Yiao Rpcraat@ion Area 22. Yona R--creation Areas I Table 6 Village Pecreation kreas (Nwaw'er Keyed to Map No. Source: Guide to Guam's Public Park and Recreation Areas, Department of ParLs and Recreation, 1977. -99- Litter shall be placed in proper receptacles and dumping of household trash is prohibited. All pet's must be on a leash. Degradation or defacing of trees, flowers,plants, or the removal of sand is prohibited. Additional consideration should be given to impacts of surrounding activities upon recreation areas and vice versa: Adjacent commerical or other intensive uses, existing or proposed, shall not restrict access to park's or recreation areas by such things as storage yards, extension of parking spaces outside of designated parking areas, placement of waste receptacles, or any similar activity. Parking for recreation areas shall be sufficient, so as not to create a spillover impact which may impede traffic flow or create safety hazards on roads or impede parking for neighboring establablishments, dwellings or other establishments unless permission has been granted by the property owners, or Office of Highway Safety, DPW. Proposed development shall not interfere with the operation, access, nor encroach upon the land areas designated for public recreation. Historic and Prehistoric Sites (See Map No. 19) Synopsis. There are many areas on Guam where past human activity has left structures and artifacts that are highly valued as links with a rich cultural heritage. These are areas of particular concern because of their archaeological significance, aesthetic value and fragile nature. Unplanned development can destroy these areas or limit their use as areas for observation, recreation and educational experience. The three elements of historic preservation are historic sites, archaeological sites, and architectural sites. Map No 14 Par!-, t@ Penton do- Atnantes yr,00 Bc!ocll Paseo df@ Susano I AN-' F zi i I'Y-4 U: PJR FURU a-,ISE Aciono Boat B .vs;n P@A r t cjk GAYAN' P I az ad e Espana 0 PC VIGO Fort Santa Aqueda VILLAGE DEDED0 9 eunqon Baoth ANIGU I a A,4ana OW Adtl.'p IrAPAUNING, NAVAL RADIO 3ntos Pork Asa,v PC CAN I( N. A, STANON J+jo . MA F. Conrrj Pork Ca"),as IS 8--jc", AS@yj GANA 13 AAINA 6 BARI? G D Irl - . . -A Ap a H3,b,)r Won ( Z 14 Orole Is.. HILL MNAJANA (; @ A 1, A 0 8-ach C. Na'at Bise P3A-3 Bay ez!acr, A RA H M.HT 2 A f I I e; 91 P irk YONA Tocahan ?C'rk Agar Bay SA NTA NITA W.4 say @Mlm Nim*or Se,:ich Tc-rzarv Fz!fs 1E - . w@ . . . . . . . . . . 1j Anje Is. 17 1,=ctn rs-c0l I At O@QF L) C4. ixt. Tj:'q!.vj Sjy Tiorias park ett. 8.-y MAI. 11.110) UMATAC UMat3c say 20 1-0. Fort Sol e loci So C: I U!,-t Pool INARA JAN 10 J.@"a;a Bay, SCALE UV "LFS Coros Is. Fofol I Pier Pork Coca% Island Park Source: Department of Parks and Recreation KEY Viewing Area, Playground Pi cnk Ar" Trail Launchina Rarnp t--Vd showers vater Skiing Information Boati"Wo Picnic Shalt., Telephone , n- iving &, I Of Drinki-19 -6- Mvina Crin,04tev Includied in historical sites are precontact village areas that are characterized by a prevalence of artifacts and associated features such as latte stones, rock shelters, and mortor stones. Since much of the island's present lifestyle has been influenced by a Spanish heritage, buildings that are survived this colonial era are valuable historic sites. Also, of historic significance are World War II relics that provide a fascinating retrospect, for both residents and visitors, into the past time of conflict. Presently, many residents value the traditional architecture of southern villages. Inarajan village, in particular, represents the remaining concentration of a traditional architectural style and is proposed as a historic architectural district with plans for preservation and improvement of damaged structures. Public Law 12-126 declares that it is the public policy and in the public interest to engage in a comprehensive program of historic preservation. Detailed description of historical resources, proposed historical park plans and preservation guidelines are outlined in the Guam Historic Preservation Plan and the Inarajan Village Historic Architectural Plan, Department Of Parks and Recreation. Performance Guidelines. Specific guidelines are outlined in the above mentioned documents. Basic guidelines for prehistoric sites involve: Notification shall be given to the Department of Parks and Recreation of intention to clear, construct, alter or improve a site that is suspected as having historical value. Development of a site listed in the Guam Register of Historic Places shall not begin until three months' notice has been given to the Department of Parks and Recreation. Notification shall be given to the Department of Parks and Recreation of intention to develop previously -102- uncleared land for agriculture so a survey team can description of its features and make a surface collection of artifacts. lndividuales or groups shall not, collect prehistoric artifacts, especially by digging indiscriminate holes on or near prehistoric sites (latte stones, village sites, caves, or rock shelters.) Scenic Vistas Synopsis. Aesthetics or beauty is seen in different things by different people, however, the cultural learning process causes most people to generally agree on the scenic value of different vistas. The maintenance of visual access or a clear view of different geographic areas is important so that the overall beauty of Guam is preserved. Visually pleasing views enhance the quality of life for the resident and promote tourism as a valuable facet of the island's economy. Scenic vistas include unrestricted overlooks and ground level views of both developed and undeveloped areas of the island. Performance Guidelines. Compliance with per- formance guidelines for other areas of particular- concern will naturally protect natural scenic vistas, as areas such as slopes in excess of 15%, limestone forests, wetlands, and pristine communities are often components of a scenic vista. In scenic areas of urban development such as resort areas and subdivisions, building codes and zoning regulations can effectively protect and enhance scenic quality. Water quality and erosion control standards also directly affect scenic quality. General guidelines, which must also be considered, are listed below. Structural and infrastructural development in natural scenic areas shall be planned to compliment existing features or form a natural continuum so that aesthetic quality is enhanced rather than degraded. Fences, transmission lines, towers -103- or other forms of tall infrastructure shall be planned as not to obstruct visal access of natural scenic vistas. Particular concern shall be given to sensitive siting of structures within the Seashore Reserve which can potentially interrupt the homogeniety of views from, either the shore or more distant overlook's from which the skyline can be interrupted by improper siting of structures such as tall, flat-topped buildings Public access to scenic overlooks and shoreline areas shall be, wherever feasible, kept unrestricted. Within areas of industrial development, location of facilities shall consider siting and design of structures which have architectural (structural, graphic, color) interest. Within industrial areas, where unsightly storage of scrap materials or equipment is necessary, landscape and structural screening shall be employed as mechanisms to enhance area aesthetics. The amount of litter, due to abandoned cars, beverage containers and other solid waste is nearly twice that reported in other parts of the United States. Dumping into authorized sanitary landfills only shall be strictly enforced by GEPA in con- junction with the litter laws enforced by DPS. Abandoned, dilapidated housing and other structures represent both a health hazard and disrupts aesthetic quality and shall be removed pursuant to the requirements of the Department of Public Health and Social Services. -104- Anchoring of boats shalling,fishing with spears nets, lines, may have to be controled, if needed, to retain the natural character of these areas. Group (I) Other Areas of Proposed Development Subdivsion Development Areas (See Map NO.15) Synopis. Human settlement and development needs are an inevitable aspect of island life. For social and economic purposes, urban development has historically consolidated at major trade cenLers. Because of terrain restrictions, relatively flat land adjacent to the coast has been the primary location for development of a wide range of urban developmental needs. With post-war reconstruction and the building boom there has been a notable trend toward subdivision of land further inland, adjacent to existing villages and in new locations.. Oil With an increasing population desiring to utilize coastal resources for recreation and tourist industry development coupled with the man-land ratio inefficiency and adverse ecological impacts associated with random urban sprawl, it has been necessary that increased planning for subdivision development provide the responsible mechanisms for change. Urban renewal of existing communities, not only seeks to eliminate substandard housing, but produces an urban design that makes better use of land space. Urban renewal is projected for almost every major village proper area on Guam except Yona and Sinajana which have already been transformed by planned urban development. In addition to urban renewal, low-cost housing tracts and government subdivisions are other GovGuam mechanisms with the objective of providing housing and land space for the emerging generations. GovGuam is currently completing the Pigua, Pagachaqo and Umatac subdivisions and initiating construction of the GHURA 500 low-cost housing tracts in Dedqedo and Yigo. Private developers have greatly supplemented the trend ,towards subdivision development. Existing, insular neighbor- hood-type areas such as Liguan Terrace and Barrigada Heights are rapidly affecting the traditional appearance, lifestyle and land-use patterns 'that have characterized urban residential areas in the past. Projected subdivision development and expansion are currently proposed for Ypapao. Estates, Baza Gardens and Sasajyan. Undoubtedly, as cyclical demands for housing occur,even more subdivision expansion and planning will occur between the present and the year 2000. The Subdivision and Development Review Committee, an advisory commission, reviews subdivision plans for responsible development. At this stage, various agency guidelines are enforced. -105- 777 UUA U%.;U- LIA;-%G_. Map NO. 1 ISUbdivision De@@elop,@ent Arreas tf p D 1. 5 a !0 L f I IA ..No A FAG III o.DoT T@i A, Jl- S...r. T A T J 1 A I. IF D J, o C-Ov--- SL2c-v*,c** I Lmfcf-lt =-ax) AT A P9CPCUD LPSQ# % LOw Cssr 'd lid -A f 1:1 1 ZL I I Single- family dwelling subdivision design may precede the planned design of land for other uses as evidenced by the Radio Barrigala agricultural subdivision. The 80-acre Radio Barrigada site is leased federal land and contains garden plots available for 1-year renewable leases. Guidelines for agricultural subdivisions are managed by the Departments of Land Management and Agriculture. Pesticide use and water quality is monitored by EPA. The degree of sucess in the Radio Barrigada project will indicate the feasibility of future development of agricultural subdivisions. Wheter urban or agricultural, planned subdivision development assists in the provision for developmental needs while ensuring that unnecessary expansion into other less developable areas of particular concern is prevented and that subdivision land-use is compatible with the adjacent enviroment. Unplanned Urban Form. the protection of scenic and natural resources is partially accomplished throught the designation of a Seashore Reserve and development of performance \ guidelines for APCs. However, a large portion of the Seashore Reserve is already urbanized and the majority of communities lie in coastal area of high scenic quality. The majority of the population lives in these communities. which need corrective actions for enviromental protection. and innovative approaches to community design and development. The most striking characteristic of the urban pattern on the land poor island of Guam has been the adoption of a random pattern of land utilization and building typology which as resulted in the misuse of land and an urban form unsuited for the whole of socitey. Particularly evident is the lack of neighborhood design, since all design efforts are limited to the scale of single buildings. No imporovements for the protection of scenic or aesthetic resources in an uban setting can be undertaken unless urban development is conceived witin the framework of responsible community design. Urban Design. The urban desing tools which allow for the protection of natural resources and a responsible human environment within developed areas, suited to a wide range of resident's needs include: block design of cluster housing instead of random single building design, This requires that the building in a given area be planned in a coordinated scheme, and the discouragement of individual building tyoplogies. Greater variety of building height in high- density districts, Neighborhood density and neihborhood open space ratios.. Neighborhood view corridors. Separation of traffic flow (bicycle, pedestrian, cars) at the neighborhood scale. Multiple land-use and integration of activities at the neighborhood scale. View corridors from densely built areas towards the ocean, shoreline, or sloping terrain. Integration of neighborhood parks with an urban network of green space, pedestrian and bicycle lanes. Planned urban forim is based on human scale, Community design and neighborhood organization. It provides for greater access to and protection of natural resources; greater energy saving and responsible, aesthetic and efficient development to meet human needs. Cluster Housing as an Alternative to Random Urban Sprawl. Where possible, low-density residential development should be clustered to retain as much open-space as possible. Cluster housing gives an area an aesthetic residential appearance as compared with the symmetrical arrangement of houses in rows and at right angles, where people tend to feel that they occupy one equal place in a rigid pattern of conformity. Even more socially, economically and aesthe- tically inefficient is random urban sprawl. Traditionally, urban development has randomly consumed vast amounts,of land space, leaving little open space for recreation or ecology. This problem can be greatly alleviated with planned cluster housing. People living in the increasing number oil subdivisions can only benefit from more carefully planned subdivision development that is both in the developer's and the public's interest. (See Figure 18) -108- FigLII-e 18 C0NVENTJ0;'\J,3.L SUBDIVIS110.*4 CLUSTER DEVELON,IENT :7. _w N^ IN F U !- , A_iry? M" e C .93 L @_-i r-T-T-n tl_@' TIT t VP -LI-L LLt I Numb,?roflots: 108 Number a! Ior3: 103 Open space: Open space, 50". Linear feet of strests- 5,400 Linear feet of streets: 4,900 Linear feet of sawer lints: 5,4CO Linear faet of sewer lin-3: 3,900 Source: How Will America Grow?: A Citizen Guide to Land-US& Planning, Citizens' Advisory Committee on Envirormenral QUalky, V13sh-, D.C., April, 1976, p. 15. _109- 0 C Revised Zoning Section A has presented the districting of Guam's land areas into four major districts. Because this concept does not exacty coin- cide with the regulation of zoning, as presently defined by the Government Code, revisions have been incorporated into the law through proposed legislation. Proposed bills 233 and 234 are discussed in Chapter VI following. While appearing quite complex, the actual application of the dis- tricting concept and the revision of present zoning code is quite simple and should not present any particular difficulties to commis- sions and Government of Guam agencies. (See Fig.19) 1. The zoning system presently in force (Residential R1 & R2, Commercial CO, Resort-Hotel H, Industrial M1 & M2) will only be applied within designated urban districts as shown on the Land-Use Districting Map. As the vast majority of existing and proposed development is expected to occur within the area designated as Urban, most individuals will not be affected. Zoning administration (process, procedure, per- mitted.uses, etc.) will essentially remain in its present organizational framework. Within the Urban District, changes have been recommended which substantially differ from existing zoning practice. A Resort-Hotel Zone has been delineated which suggests that specific types of development of a commercial nature be encouraged which would be complimentary to the concept of a resort hotel area. Also, certain development within the urban residential (R1 or R2) zones would be allowed to occur on lots of 2500-5000 sq. ft. Such development must meet an "average lot size" requirement, as well as constitute a Planned Unit Development (PUD). 2. Wit:hin the remaining three districts (Rural, Agricultural, Conservation), deveopment will be permitted according to performance standards applicable to each district. The Land-Use Commission will make decisions on the permisibility of such development based on these performance standards, as well as consideration of various other standards applicable to APCs and the Seashore Reserve, as well as other guidelines. Specific agency guidelines address such things as infrastructure requirements, building codes, recreational space, erosion and sedimentation, air and water quality, and development in "all waters" (COE, 404 Program). 0 3. While the Land-Use Commission would exercise its powers directly over zoning within Urban districts and all devel- opment within tho Rural, Agriculural, and Conservation districts, the Central Planning Council (CPC) will be re- sponsible for the designation of districts and any pro- posed changes to district boundaries. After a district boundary change has been permitted by the CPC, the Land-Use Commission will assume responsibility for the application of rules, regulations and other applicable standards. However, if a type of development is proposed, for a Rural, Agricul- tural or Conservation district which is contrary to the performance standards defining allowable development with- in that district, the developer must submit a formal request to the CPC for a district amendment. Also, if it appears that the Land-Use Commission has permitted a use of lands in the Rural, Agricultural or Conservation districts which appears contrary to the performance standards established for those districts the decision can be reviewed by the CPC and the developer could be required to file for a district amendment. After a district amendment has been permitted by the CPC, the Land-Use Commission would assume responsibi- lity for the regulation of the development. The functions. of the Subdivision Development Review Committee (SDRC) and the Department of Land Management, serving as staff for the Land-Use Commission, remain essentially unchanged. 4. The Agriculture Zone as it appears in the present code has been eliminated. In its place, an Agriculture District has been established, as described in Section A. Section B, Group (A) further discusses agricultural support areas as an APC. -111- FigUre 19 The Three-Tiered Systen, of Land-Use Planning Revised Zoning Areas of Particular Cc)rcem Districts: Urban- Rural-Agricultural -Conservatiort 11%. 's. N T ERRrMR r 0 VI. REGULAT0RY MECHANISMS A. Enforcement Land-Use Related Law Public Laws 12-200 and 13-89 resulted in separation of major land-use planning functions from those of land-use regulation, administration, and surveying. Under these laws, the Bureau of Planning assumed the responsibility for land-use planning, while the Department of Land Management, as the staff agency for the Territorial Planning Commission, retained its land-use regulatory authority. Legislation submitted to the 14th Guam Legislature by the Bureau of Planning, in the form of Bill Nos. 233 and 234, further attempts to clarify and distinguish between land-use planning policy and its implementation, regulation, and enforcement. Very simply, this legislation directs the Territorial Planning Commission (renamed, more appropriately, the Land-Use Commission), through use of the Department of Land Management staff, to regulate development through the zoning law urban districts and development standards in the remaining districts and areas of particular concern, pursuant to broader Central Planning Council policy guidelines. In addition, the Land-Use Commission's authority to review proposed development is expanded to include all development. Currently, the Commission primarily reviews only proposals requiring zone changes or variances, subdivisions, or planned unit developments. The expansion of the Land-Use Commission's authority, which increases the Department of Land Management's regulatory and enforcement respon- sibilities, is proposed not unmindful of existing enforcement-related problems. However, new legislation cannot be looked upon as a panacea for all the government's regulatory problems. Improved coordination, communication, and management amongst, the several agencies involved in land-use regulation can, and must occur irrespective of legislative action. Some confusion is currently generated by Section 1745D of the Zoning Law which states that the Building Official, located within the Department of Public Works, shall have the power and duty to enforce the provisions of the zoning laws. This section should not be read to imply that the Building Official, alone, must deterqmine, before issuance of a building permit, whether the proposed use is consistent with all applicable Questions as to the development's compatability with zoning laws, water quality standards, public utility regulations, proposed land-use plans, and licensing provisions must be directed to other governmental agencies with jurisdiction and expertise in these respective areas. While statutory provisions and case laws provide ample authority upon which to challenge the validity of permits or licenses issued in viola- tion of governing laws, very few improperly issued permits are ever questioned. Business licenses are granted for the practice of prohibited commercial activities in residential areas without knowledge of the Department of Land Management. Suspect sewage disposal systems are permitted without having been cleared through the Guam Environmental Protection Agency. Subdivisions are approved without thorough review of their drainage facilities by the Department of Public Works. Tolerance -113- C: G) )> > 0 C: 0 0 C: b c rri > > 6 > x Cf) > U) r- 0 m 'n :7 > .73 lb CORAC'!:---- REE@;@-" .S,,.CORAL REEF CIO B.EACH N,,@EASHORE -4z3oRESERVE X > -4 > > -0 C:) m -n C) (40 0 m 0 Cl) -0 .7 CA > CD n:---@ z Cl) m crot M M 03 < CD M M z cn rD Cl) -IT rrr . . ..... Ln =-a- cz -0 451, c 1) C-1 rry in 3:2. CO 45) .. .... 0 UK -17 K I > c '@: P-,C- t- C* I 0 Of these and other laissez faire practices must not continue what- ever the reasons for such breakdowns in the enforcement and regulatory mechanisms (insufficient funds, poor management, untrained staff, unclear procedures, or poor coordination). They must be identified and resolved before severe enviromental or economic consequences are sustained. The previously mentioned proposed legislation requires the Building Official to specifically consult with appropriate agencies before issuance of permits and licenses. It also requires the Land-Use Commission to assure that proposed development not occur in violation of the Building Code or overall land-use planning policies as adopted by the Council. Such mea- sures should aid in clarifying the duties of the respective agencies and regulatory bodies. Further refinement of these responsibilities can occur through development of necessary rules, regulations, and adminis- trative procedures. The Land-Use Commission, if it is to effectively regulate development, must maintain cognizance of all applicable land-use related planning programs, rules, regulations, relevant cases, developing legal doctrines, and governmental policies. Otherwise, efforts expanded by various planning, regulatory, and administrative agencies may be undermined through imprudant approval of proposed zone changes and variances, ill- planned subdivisions and planned unit developments, or failure to require necessary permits or revoke those issued improperly. As development pressures grow amidst a finite amount of developable lands, Commission decisions and Council policies become of greater consequence to the community. A potential increase in legal challenges to such regulation could be somewhat discouraged by the provision of legal counsel to these bodies by the Attorney General's office prior to their final decision making. With the passage of the Bureau's proposed legislation, the adoption of this Land-Use Plan and the completion of a scheduled environmental management study, the effectiveness of the Territory's Land-Use regulatory system should immeasurably increase. B. Bills 233 and 234 1. Overview.. The previous section discussed the enforcement aspects of land-use control and Section C, Chapter V briefly addressed the subject of changes within the existing code which are recommended by the districting approach. Following is a more in-depth dis- cussion of these proposed bills. At the time when Bills 233 and 234 become law, this portion of the Land-Use Plan will be amended to reflect that these mechanisms would no longer be "proposed." but in effect. 2. General Discussion. Bills 233 and 234 have been prepared in response to P.L. 12-200s requirements for establishment of generalized areas of use within urban, rural, agriculture, and conservation contexts through creative legislation. Basically, Bill 233 established a system of classification of the Territory's land into the above mentioned categories. Bill 234 amends the current Zoning Law to comply with the objectives of the Comprehensive Development Plan and the districting system proposed under Bill 233. Both bills contain additional provisions which amend related sections of the code dealing. -115- 0 with land use, but have less important effect on the overall land-use planning process. Through adoption of these steps toward achieving a truly effective system of land-use control and planning as envisioned in P.L. 12-200. 3. Bill 233, Objectives: The establishment of a system for designating areas within urban, rural,, agricultural and conservation contexts as required under P.L. 12-200. A procedure for development of necessary performance standards to regulate uses within these district classifications. A means to designate certain areas of particular concern which, because of their unique recreation, economic or resource value require special consideration. Amendment of the Chamorro Land Trust Commission Act to reflect the new districting system. The districting system proposed under Bill 233, modeled after Hawaii's highly successful legislation, has been reviewed and endorsed by federal representatives of the CZM Program, under whose program the legislation was developed locally. It is important to note that this legislation merely established the system for designation and regulation of uses within this districting concept and does not establish actual zoning or district boundaries. 4. Bill 233: Purpose, Code Changes and Sectional Analysis a. Purposes: To implement a more effective and practical system of land use classification. b. Change in the Law: Adds a new Chapter IV to, and amends portions of Chapters I, III, V-A, and VI of, Title XIV; amends and repeals portions of Chapter VII of Title XIII; repeals Public Law 12-96 and sections 9 and 10 of Public Law 12-69. c. Sectional Analysis Section 1: 13300. Findings and declarations of purpose. Outlines need to establish effective system for determining best use of territory's land resources. 13301. Definitions. 13302. Land-Use Guidance Policy. Allows the Bureau of Planning and central Planning Council to periodically revise land-use policies. -116- 0 13303. Land-Use Districts. Establishes and defines the four major land-use districts: urban, rural, agriculture, and conservation, into which all land shall be divided. 13304. Adoption of District Boundaries. Provides that the Bureau prepare, the CPC adopt following public hearings, and the Govenor approve the proposed land-use district boundaries. 13305. Amendments to District Boundaries. Permits the Council to amend district boundaries. 13306. Amendments to Urban Districts. Sets out factors to be considered in amending district boundary to urban classification. 13307. Amendments to Rural Districts. Permits amendments to rural district if consistent with relevant land-use policies. 13308. Amendments to Agriculture Districts. amendment to agriculture district if land is being used for, or has potential for, agricultural use. 13309. Amendments to Conservation Districts. Permits amendment to conservation district upon findings of need to conserve certain natural resources of minimize developmental impact. 13310. Hearings on amendments to land-use district boundaries. Sets out procedure for Council review of proposed boundary amendments. 13311. Adoption of Development Standards. Provides that the Bureau prepare and the Council adopt standards for development of specified uses within the land-use districts. 13312. Compliance with Development Standards. Requiring building permits to be issued in compliance with applicable standards as adopted by the Council, establishes priorities for applying standards, requires Land-Use Commission to assure all development complies with standard. and polocies adopted by Council, permits Commission to review all proposed development for such compliance and permits Commission to create necessary rules and regulations. 13313. Use Classifications. Permits the Burea. to prepare, the Council to adopt, and the Governor to approve use classifications and accompanying standards for such uses, within rural, agriculture, and conservation districts -117- 0 11314. Areas of Particular Concern (APC). Permits the Council to designate areas of land that are of particular concern because of their unique character; i.e., of high resource, recreation, economic, or deveopment value. 13315. Designation of areas of particular cocern. Permits the Bureau to recommend, and the Council to adopt following public hearings, areas of particular concern as delinated on adequate maps. 13316. Amendment and recession of areas of particular concern. Permits the Council to amend or rescind designations of areas of particu- lar concern upon findings follwoing public hearings. 13317. Powers of the Council within areas of particular concern. Permits the Council to adopt standards and require preparation of detailed site plans for development within such areas. 13318. Property tax assessment. Provides transfer a land-use district designation to Department of Revenue and Taxation for assessment purposes. 13319. Enforcement and penalties. 13320. Effective date. Provides that standards for development adopted by Council become effective only upon final approval of standards for all districts. 13321. Severability. Section 2: Permits the Central Planning Council to designate, and the Department of Agriculture to promulgate rules and regulations for, agricultural preserve areas. Section 2: Provides that a division head within the Department of Land Management serve as Administrative Director of the Chamorro Land Trust Commission; that leases respect the purchase preferences for certain subdivisions as outlined in prior legislation; and that certain lands under lease, areas of particular concern, certain conservation areas, and areas not so designated for inclusion in the Compre- hensive Development Plan not be designated as available lands. Section 4: Requires the Department of Land Management to inventory rather than classify, all government real property. Sections 5 and 6. Rename the Territorial Planning Commission the Land- Use Commission. Section 7. Transfer duties of preparing Seashore Reserve Plan the Bureau of Planning and replaces the Seashore Protection Commission with the Land-Use Commission. Section 8. Amends Code to recognize establishment of conservation districts. Sections 9 and 10. Deletes Code sections and laws in conflict with this legislation. 5. Bill 234, Objective Bill 234, though lengthy simply amends the current zoning law to reflect the institution of the disticting system in Bill 233 and changes in the island's land uses since its initial enactment in 1952. Included in the bill are new lot size, yard and area standards to reflect the increasing trend toward multiple-family and subdivision developqment. The Zoning Law, as amended, would govern uses within urban districted areas, while development within the remaining districts would be covered under subsequently adopted performance standards. 6. Bill 234: Purpose, Code Chanqes and Sectional Analysis a. Purposes: To update and revise the current Zoning Law to comply with the land use districting system proposed. in Bill No.33. b. Changes in the Law: Amends Chapter I through IX and X through XIV of title XVIII of the Government Code of Guam C. Sectional Analysis Section 1: Defnes purpose of the Zoning Law, Title XVIII. Section 2: Comprehensive list of terms and definitions. Section 3.. -Requires title to be applied and administered within framework of Comprehesive Development Plan. Section 4. Establishes six zones, RI, R2, H, CO, MI and M2 within Urban districted areas and provides that any changes or amendments to zoning maps become effective only upon approval by Land-Use Commission and the Governor. 5ection 5. Provides thatall past legislatively approved zoning maps of changes remain in effect until changed in accordance with procedures es- tablished under the Zoning Law. L Section 6. Provides that uses within any zone by subject to all applicable legislative established the Commission, Council, Legislature or other local or federal agency. Permits the De- partment of Land Management to require sub- mission of comphrehensive statements on various impacts oil proposed develoment pror to issuance of building permits. Provides for conditional uses and increased setback.lins within adjoining residential industrial zones. Section 7. Establishes new list of permitted and con- ditional uses for H (resort-Hotel) zone. Section 8. Establishes new list of permitted and con- ditional uses for R2 (Multiple Family Residential) Zone. Section 9. Esgtablished new list of permitted and conditional uses for, H (Resort-Hotel) .zone. Section 10. Establishes list of permitted and conditional uses for CO (Commercial) Zone. Section 11. Establishes list of permitted and conditional uses for M1 (Light Industrial) Zone. Section 12. Establishes list of permitted and conditional uses for M2 (Heavy Industrial) Zone. Section 13. Establishes height regulations for each of the six zones. Section 14. Establishes minimum yard and area regulations. Section 15. Provides.for transfer of development rights. Section 16. Allows for establishment. of lots down to 2,500 square feet in size-within cluster developments of six or more units upon compliance with certain requirements. Section 17. Establishes regulations for location of. accessory uses and buildings. Section 18. Establishes parking area regulations for commercially-zoned areas. -120- Section 19 Provides that non-conforming use provisions also apply to established and amandment of use classifications and districts, Section 20. Eliminates requirement that the zoning maps or amendments thjere to be submitted to the Legislature Section 21. Amends sign regulations to reflect changes in zone designations. Section 22. Amends section dealing with variances to reflect creation of a Comprehensive Deveopment Plan rather than a Master Plan. Section 23. Amends Section 17501 (K) to reflect new minimum lot sizes within rural districts. Section 24. Eliminates requirement of submission of agricultural impact statement for certain zone changes. Section 25. Amends bill rezoning Tumon Bay to reflect proper maps delineating the rezoned area. Section 26. Provides that Sections One through Twenty- four take effect upon final approval of all district standards and that Section Twenty- five take effect upon enactment.. V I I FURTHER REFINEMENTS AND RECOMMENDATIONS 4 Overview. The Land-Use Element in itself does not constitute a working system for land-use control, it simply establishes the basis by whcih a more effective system can be implemented. A continuing effort must be made at all levels to ensure that this element of the larger Comprehensiveinsiv Development Plan serves its objective of guiding the type, Liming and intensity of in the next 25 years. "Further Requirements" is a discussion of -the logical pattern of action needed to achieve the objective of an effective mechanism for land-use controls, including: A. Community Design B. Large Scale Lot Line Mapping C. Revision of Zoning Maps D. Mapping of Government of Guam. Lands E. Coordination and Enforcement Agencies F. Revised Seashore Protection Act and Seashore Reserve Plan -122- -i@'icurc 21 The- Relationship Between thc and Coi-Lmunity D-:@sigri Mertients of thc! ConiqrehenS4ve Development Plan curnprehi ens Iva ijolialoprnerit Han. Und Use A. EIE!MantS re!a-,jrjq to thaphysical d-lopment of the, territory. Is. Land Use Element C. Community De.5ign Element Element 4z@ areasof Districtincr Particular concerrt L Cummunky Do Eloment Zoning A. Community Design The Community Design Element compliments the Land-Use Element because both elements address the complexities of land-use patterns on Guam. The Land-Use Element generally describes the four main districts and outlines performance guidelines for APC's. Community design plans primarily bring different land uses, within an area of human settlement, int a composite plan on which future zoning patterns should be based. As communities, these are areas where residents hav a strong identification within a specific geographic location. Com- munity goals and cultural ties to the land are more specifically emphasized in community design plans. The land uses depicted on design maps are more specific in nature. They are a breakdown of the four main districts. For example, conservation districted land is classified into nine specific uses in the Coommunity Design Element: Open Space. Essentially, open spaces are undeveloped, visually, attractive natural areas, strategically located where most needed to exclude intensifying urbanization patterns. These are areas of natural terrain where nature observation and preservation of scenic beauty is ephasiized. Preservation of open space enhances the quality of life for both the resident and the economically important, tourist industry. Urban, rural and agricultural uses are discouraged in these areas, particularly in relatively untouched areas of the Seashore Reserve and on slopes in excess of 15%. Witin the Seashore Reserve, open space promotes visual and public: access as wall as wildlife preservation and shoreline continuity. Open space on slopes assist in erosion control, visual aesthetics and wildlife preservation. Also of particular importance is the maintenance of open space over aquifer recharge areas to protect the quality and quantity of groundwater resources. 2. Low Density. Within these areas', existing residentiial density and other uses pose an increasing threat to the visual, economic and ecological resources that characterize the areas. Additional large lot. structures will be examined on a site by site basis. Of particular importance are areas within the Seashore Reserve where public and visual access are important for recreation and becoming increasingly restricted by unplanned development. In specific cases, relocation of residences to urban areas is recommended. Low-density conservation uses also act as a buffer around less-developed open space in certain areas. -124- 3. Historical Sites- 1--litthill these areas, preservat-::on of historical featUres is eimphasized. They incl;A-2 architectural features, where residential follo,;is area guidelines. They also include areas containing precontact latte and village location:. Within precontact sites, land use is restricted to recreational site observation, wildlife preservation and professional archaeological investigation. Also included within this designation are park areas containing Spanish architecture and World War II relics. 4. Parks. These are major land areas delineated for recreational use and development that are sensitive to the resources within the area. Hiking, camping, picknicking, swimming and nature observation are the typical uses within these areas'. 5. Recreation. These are small land area's set aside for recre5-tional activites related to sports and relaxation. They include ballfields and urban parks that are centralized within urban areas. They rely upon' infrastructure and central location for convenience. They'are also important within commercial areas and subdivisions as an aesthetic provision of open-space' within an area of extensive development--. Partic- ularly, the youth within urban areas need recreational land. 6. Wetlands. These are areas of aquatic plant and animal life. They include swamps, marshes and river estuaries that are constantly inundated with water. Due to their fragile nature, they are delineated for scientific and nature observation study of a wildiffe habitat, their unique aesthetic appeal and flood control management. 7. Lowland Basins and Sinkholes. Lowland basins are low grassy areas intersecting the slopes that characterize the para-basal lens area and topography of Central Guam. In these areas, the northern limestone plateau and the southern volcanic uplands meet. These low areas act as drainage basins for aquifer recharge. Because they are periodically flooded and protect water quantity and quality, they are kept untouched and surrounded by open-space when possible. -Sinkholes, though structurally different, also function to assist.aquifer recharge and are kept as open-space. They are areas where solution has created a major opening in the. surface of the limestone plateau such that rain water rapidly filters into the-lens system. 8. Watersheds. These are areas in the southern volcanic uplands and raving valleys that have been outlined as regions where uninterrupted or unpolluted surface drainage is important for surface aquifer recharge. Development that would adversely affect water quality or quantity is discouraged. 9. Wildlife Reserves. These are wildlife conservation areas that have been set aside by the government for intensive protection of plants and animals. Resource use, beyond nature observation is prohibited witin these areas. They are usually the most untouched ecological habitats and given priority level pro- tection because of their aesthtic appearance and the presence of endangered and threatened species of plant and animal life. Both the Land-Use and Community Design Elements do not establish performance guidelines for Conservation districts or use classifications. The Land-Use Element defines and delineates the districts and the Comminity Design Element depicts com- patible land-uses. However, as depicted in Figure 21 , the APC concept has heavily influenced the designation of many use, classifications. Therefore, performance guidelines for APCs can serve as a guide for development within communities as well as in the APC itself. Performance guidelines for districts Will be developed at a later date. Within 90 days after passage of Bills 233 and 234, development standards and permits sible uses for districts will be submitted to the Central Planning Council. B. Large Scale Lot Line Mapping It is imparative that individual lots are placed on the large scale (1"=400') ortho maps. The Bureau of Planning will endeavor to coordinate this effort with the Department of Land Management in the near future. C. Revision of Zonings A standard zoning map, reflecting both the Land-Use Element and Community Design Element, must be prepared and put into effect by land-use related administrative and enforcment agencies. The present, rather random, administration of these maps must cease. The Department of Land Management will continue to have the responsibility for maintaining the official zoning maps. Each change as it occurs must be placed on the official zoning maps. Further, a procedure for notifying agencies which should have an up-to-date zoning map must be instituted. In addition, procedures for eventual changes in zoning designations must be developed. There are certain areas, particularly in the commercial and industrial category, which.are located in areas not suitable for the type of activity allowed. Any "downzoning" which takes place must avoid the "taking issue" (cases in which the owner could claim that the government is arbitrarily and capriciously preventing the highest and best use of the land.) This can be avoided through such mechanisms as land trading or amortization of capital investiment in an existing land use after a certain period of tine, but after that he could be reasonably required to discontinue the use without payment of compensation. (Courts have generally been sympathetic to this approach according to recent findings of the American Law Institute.) For example, an auto wrecking yard was given two years to complete business in Kansas (Spurgeon v. Board of Commissioners, 181 Kans. 10003,317 P.2d, 798, 1957) while a junkyard in New Hampshire was given one year (mcKinney v. Riley, 105 N.H. 249, 197 A-2d, 218, 1964.) The present zoning code must soon be amended to include various mechanisms for the elimination of particularly offensive uses. Nationally, there is a growing recognition that unrestrained private use of land is not identical with the public good. As population density increases, So must controls over marginally legal uses of land, such that abuses by developers operating outside the law can be quickly identified and halted. The basis for such action, -particularly that of eliminating existing uses must be based on the existence of definite plan. The Community Design Element, as discussed in Section A preceding, is planned to meet this need. D. Mapping of Goverment of Guam Land The annual reports prepared by the Territorial Auiditor consistently state that land areas owned the Government of Guam are the people's major asset. Yet, after more than 25 years of self-government, much of this land is still unsurveyed and being lost to encroaching private development. If this situation continues, the Government of Guam will continue to lose valuable and usable land. A major effort must be made to complete the surveying and mapping of these lands. E. Coordination and Enforcement Agencies One of the major problems experienced under present permitting processes is an apparent lack of coordination and cooperation among enforcement agencies. This has been partly the result of a lack of understanding of agency responsibility. To alleviate this problem, GEPA's 208 Program has contracted consultants to provide an in-depth analysis of regulatory agency permit procedures in an Environmental - Study. Recommendations will seek to eliminate overlaps, fill in management gaps and increase overall enforcement capability and efficiency by clearly defining agency responsibilities. Acency directors and administrators must implement this forthcoming analysis by directing sections within their respective agencies to follow defined responsibilities. 0f particular importance is the Department of Public Works' Building Permit process in conjunction with the Department- of Land Management and GEPA's enforcement responsibilities. Present practice indicates that many DPW Building Permits are issued which should have had prior approval of GEPA and DLM. The proposed Land-Use Commission (LUC), comprised of the present Territorial Planning Commission (TPC) and the Seashore Protection Commission (SPC), will have expanded powerrs under, proposed legislation (Bill 233). The Department of Land Management will still serve as staff for the proposed LUC. The proposed LUC and present TPC and SPC are required to follow guidelines for public bearings as defined in the Administrative Adjudication Act, Title XXV, Government Code. Consistent and strict adherence to these procedures is vital to ensure that maximum public participation is gained. Procedures involve proper notification and recording of public hearings. All plans and land-use controls are implemented in the public interest and public hearings provide the vital link between residents and enforcement agencies. Breakdowns, in this process only damage the public's right to responsible development and the credibility of regulatory agencies and commissions as effective mechanisms for control of land and water use. Figure 22 A Conceptual blodel of the Land-Use Control System Ing zonin N, strict' 106. EXisting Contmis Areas of Particular Concern Air quality Standards CGEPA) Minaral Extraction Erosion Control StarldardS.-CCEPA) Industrial and Commercial Support Blasting Permit CGEPA) Agricultural Support open Burning Permit (GEPA) Fie-sor,t,s Clearance for Grading and clearing CGEPA, DPW) ma.dnas aLr;4 Ek3at Service Facilities Authorization for Solid Waste Disposal (GEPA) Educational institutions Well Drilling and Operating Licenses and Permits CGEPA) Sewaga DisposatsSites sewage Disposal and Connection Permits CGEPA, DPW) Public Parks and 13eacheg Water Quality Standards (GEPA) SurtIng Sltai Pesticides Certl ficatlon, License and Registration (G EPA) Airport Crash and Sound Zones. Oullding Permits (DPW) Floodplains Land Lease (OLM) Slide and Erosion Zones 0@griculturallLease (OLM, Dept. of Agr)c.) Freshwater, Resource, Zoning Regulations (01. .M, LUC. SORC) Terrestrial Pristine Ecological Communities Subdiviiian Review (DLAA, SORC) Wildlife Refuges, Seashore Protection Permit (LUC) Proposed Critical HabltatV Watiand Fill Permit (COLE) UrrifttoneForests Construction In NavigableWaters (COE) Watiands Coral Collection Permit (Div. of Aquatic and Wildlife Re&) Karst TopoWphr, 1*4 ..y Hunting and Fishing Regiulations (Div. of Aquatic and W.R.) Matin 91cal e Prlstln&E Communities Archaeological Investigation (Dept. of Parks and Rec-) Coral Reefs Flee Control Rsgulations (OPS, Fire Dsj3L) Historic and Pmh1starle Sites, Public Health, Standards (Public Health'and Social Services) Village Recreation Areas. CMMV P371C Arms Scenic Vlsns Subellv1sl0ft Development Areasi. F Revised Seashore Production Act and Seashore Reserve Plan Public Law 12-10s, the Seashore Protection Act, madated the preparation of a Seashore Reserve Plan and instituted an interim permit system for any development taking place within 100 meters of the shoreline. A Subsequent amendment (Rider to Public Law 13-154) decreased the distance to a mere 10 meters. The Coastal Management Section of the Bureau of Planning will prepare, in the near future, the Seashore Reserve Plan which, will essentially redefine the boundaries of the Seashore Reserve area according to a more logical approach such as major geographic terrain features, as well as manmade features such as roads. Also, wording will be clarified within the bill to include, in their entirety, all of the offshore islands of Guam itsel The Seashore Reserve Plan will consist of the community design land-use designations falling,within the redefined boundaries of the Seashore Reserve. -134- ric@ure 23 The Lrj@i_ical A'PP!_0,!LC.-I OE El BaDIIICa@'.@I j!.1@30Ur(_'C- Ij.3C_- The Overcil Objective,-),' Optional Resource Use Dave!apcbl@@ and non-renewable, R-enewable Scarce, and Rarz@, Resources Natural 'Resources Multiple Use end SustmnaJ Rational W_-, and or Yield Management Prof ection and Preservation Management To -be passed onto future generations Fn -'D. i i!Wcr@@Ia APPENDTX NO. I COMMUNITY POPULATION PROJECTIONS FOR THE YEAR 2000 Un i 4Fori-ii E s t, inia t c d N o . Estimation of Population Grid of Existing Existing Projection R e - F,2 r-e-! ie Dwel 1 i ng_ Units Population Year 2000 Location 200 1,000 2,000.. Asan Village 3C-49 157 785 1,400 Piti Village 33-48 50 250 275 Piti Kaiser 3 D - 40) 127 75 .150 Nimitz Hill 3C-4 112 460 560 N i m i tz H i 11 . 3C-40 0 0 260 Nimitz Towers TOTALS 646 2.570 4,645 3B-42 94 470 1,000 Apra Hts. North 3A-41 84 420 850 Apra Hts. South 2F-41 211 0 840 1,050 Hyundai Santa Rita 7- 2F-@ - 0 294 1 470 2,150 Santa Rita 27-40 219 1,095 2,650 Old Agat 443 2E-39 2,215 4,500 Agat Village Proper 2 D - 3) 9 51 255 350 Agat South 2D-38 72 360 500 Agat South to Pagachao rZ 2D-38 0 0 1,000 Pagachao 'J < 2D-37 1-1 305 450 Taleyfac TOTALS 1,528 7,430 14.500 Ilk U 11 i f o rm Estimated No. Estimation of Population Grid of Existing Existing Projection Referonce Dwelling Units Population Year 2000 Location 1)0 3. E - 3 1 100 350 Salagna 217-30 120 600 900 Umatac Village 2E-29 0 0 350 t4achanage-As-Paile TOTALS 140 700 1,600 4. 2E-2U0 26 130 280 Bile Bay >1 2F-27 183 915 1,500 Merizo Village & Pigua ')A-25 118 590 800 Sagualao TOTALS 327 1,635 2,580 3&.6. 4A-26 195 365 Agfayan Bay 4B-27 104 520 600 Inarajan Village C) 4C-28 90 450 800 Ghagamin-Lao 625 1 '000 Malojloj 4D-39 125 04-) 17 TOTALS 358 1,790 2,765 0 0-4 Un i 'c o rm Estimated No. Estimation of Population Grid of Existing Existing Projection Reference Dwol I i rig Un i t s POPUlation Year 2000 Location 324 1,620 1 975 Talofofo 4L D - 3) 7 107 535 700 Ipan 4G-39 14.5 573 1,000 Windlqard Hills 9 ISO 750 1 400 Baza Gardens A 1) 200 Casa Do Sirena 3 9 50 250 500 Sabana Maleyuc 4E-41 - 16 80 100 Togcha TOTALS 834 3,808 5,875 .1 0 100 Ylig Bay 4 F_ - 41 87 435 800 As-Misen LIE- @2 293 1,500 2,820 Yona 4E-4 3 46 230 500 North Yona 4D-42 56 280 1,040 Pulantat Totals 487 2,445 5,260 9. 5A-45 336 1,572 5,000 Mangilao West 5B-45 576 1,392 4,080 Mangilao 5B-48 955 4,691 10,000 Barrigada Village 4E-49 1,401 5,644 8,000 Mongmong-Toto-Maite 166 639 2,550 Agana "A-49 88 440 700 flaina V LJ AB-43 191 0 5 4,525 8,000 Agana Hts.-Sinajana 4A-468 90 450 750 Afami 4D-46 446 2,212 4,000 Ordo'-Ihalan Pago 4F-47 85 425 L' "' 600 Mai-Mai TOTALS 5,048 21, 43,680 Uni form Estimated No. Estimation of Population- Gr i d of Exis-'Cing Existing Projection Roforoncr@ nwollilm Units. Population Year 2000 Location 5 C - 5 A 537 1,491 4,000 Tumon Village 5 D - 5 13 62,15 1,559 5,000 Tumon 4 IE_ - 5 2 2,B53 8,799 18,500 7amuning Village TIN -A I S UI 4,015 11 84.9 275500 11. 5E-53 406 1,811 3,000 Gugagon 5D_531 1,155 5,775 8,000 Liguan Terrace -th Liguan Terrace 141 705 75D Noi 0 0 5.000 Dcdedo West 365 67) 2, 2,600 Dcdcdo Village 5 F - 15 5 2 IQ' D 1,40D 1,500 Wottengel 6,01-55 1 034 5,170 5,200 Kaiser Dededo, CIB-55 0 0 500 GHURA 500 site 1 H-55 87 435 800 Ypa-Pao GB-55 94 376 2,400 Ypa-Pao Estates 6C-56 0 0 500 GHURA 500 Site 5 6B-,:),l 253' 1,265 11500 Yseng-song 5F-53 100 500 500 GHURA 500 Site 2 GA_@@:9 337 1,685 3,000 South Areas 6A-60 0 0 500 GHURA 500 Site 3 6C-60 78- 390 500 Yseng-song North TOTALS 4,438 21,877 36,250 Uni forill EstLimated No. Estimation of Population Grid of Existing Exisitng Projection Re Foronce Dwelling Units Population Year 2000 Location 12, 6E-5,1-,. 695 3,361 91000 Yigo Village C)D-56 0 0 500 GHURA 500 Site 6 6E-55 200 336 600 Perez Acres Cn 35 175 500 Mt. Santa Rosa 1,500 Yseng-song West --ss 2 53 1,265 6F-59 78 390 500 Chaguian 6D-62 102 520 11000 Agafo-Gumas TOTALS 1,363 6,097 13,600 SD-521 54 270 540 Barrigada Hill 5D-52 256 800 1,050 Barrigada Hts. 5F-52 326 815 1,244 Latte Hts. 6-p,-50 0 0 5,000 Sasajyan 5F-49 125 625 1,500 Pagat Village CI-0 TOTALS 761 2,510 9,334 GRAND TOTALS 19,945 84)701 167,589 L I F.: Nfl@ij:r R-KE C f 01 F ? 14ANE LOCAI [01,' C." ":'.C I I Y 1 S Y F I Cabras Ca1,r,!!; lslaq,! S L C'1.- I 66 1974 30 9 Ll- l(c) 2(b) 3"'a) 4C@ P2 66 1975 30 200J I (c) 2 (b) 3 C.- Piti Piti Sten-1 Navfac drZ'.Wir-.g Power Plant 7.900.500 1 22 1961; 30 1991, 1(c) 2 (a) 3(a) 4(c 2 22 1964 30 1994 1(c) 2 (a) 3(-=) L(c .3 11.5 1951 30 1931 1(c) 2 (-- )3 (a), 4 4 11.5 1951 30 1931 1 (c 2 (a) 3 (a) 4 5 11.5 1955 30 Out of Service Accidental Damage Tanguisson Tanguisson Steam Power Drawing No. Plant 1102205 # 1 26.5 1971 30 2001 1(a) 2(b) 3(--) 02 26.5 1972 30 2002 1(-,) 2(b) 3(a) 4(b Tamuning Tamuning Diesel Power Hospital Rd. Plant and Marine Drive behind GITC 1 2. 1970 20 1990 2(c) 3(a') 1(c) 2 2 'rX 1970 20 1990 2(c) 3(a)-4(c) 3 2 1!5' 1970 20 1990 2(c) 3(a) 4(c) 4 2 1970 20 1990 2(c) 3(a) 4(c) Dededo Mogfog Diesel (Dededo) Plant 1 1972 20 1992 2(b) 3(c) 4(c) 2 2. JL972 20 .1992 2(b) 3(0,4'c) 3 2. 1972 20 ;1992 2(b) 3(c) ,Flc) 4 2. 1972 20 '1992 2(b) 3(c) Power Floatina Barge (Apra'Farbor) - Z*- * 'k Inductance a@ 1973 30 1973 1(c) 2(a) 3:a) 4(b (Steam) (11as ended alloted life, but still in use for emergency and standby) Environmental Problems Ratina: 1. Cooling Water Discharge (a) High 2. AIr Emissions (Sulfur Problem) (b) Medium 3. Locational Problems (Negative Effects (c) Low on Surrounding Use) 4. Aesthetic Problems fL r MLO 46) '9 jle) A.)p-@ndix j@c, 3 Surfin( SJ tr@@, on Guarci* L 1-1 i C j. P A I I ty Popular Location Place. Co ri rllz! n t s 1.1angilzio Uiidcr9roun6 Ca-,.-e Private pro@,---rty, body surf ing Mangilao Marbo Caves Small ST-11ell Yigo Castro's Beach Private property, L- surfing inside the reef, very large s-well Dededo Double Reef Very good rights and lefts, Popular location Dededo Dugan's Reef Tamuning 14CS Beach Small swell Tamuning Gun Beach Small swell T a -Luun. i n g Rick's Reef North swell, frequently ridden Agana Agana Boat Basin North-4ast, Most popular all-year-around, lefts and rights Asan Left-overs Channel, small swell Asa-n Coral Reef Large west s,..;ell Piti Magoos Large north and west swell Piti Magundos Lefts and rights, best surf on Guam, any swell., very popular Pitip Spanish Rock Huge swell Piti Disneyland Huge swell Agat Gabgab Reef Huge swell Agat Rizal Largest ridable waves on Guam (10-20 feet) Agat Cemeteries Large west swell *Data provided by the Guam Surfing Association -142- --.unic: ipa I .uoc at- ion-_ -C o I t Acia t I. io C---n S R _L c.j In t s ,larq,,:@ a Rosev's Popular le-fts J i@gci t Corner Pock-o@@ Urqatac Point Perfection Uma-'Cac UmaCac Bay Very popular west swell i--ierizo Rock-boCCom kierizo, merizo, Lefts and rights, very popular, good on nor'o--.h- west, west and south swell Nerizo Beachside Cocos Small swell Nerizo Mistoe, s Very good on east or south swell Inarajan Inarajan Bay Large. east or sou6i swell Talofofo Talofo'Lo Bay Large east beginners only Talofo'Lo Number Nine Small east swell Yona Ylig Good on tqe east s,,.;all Mlangilao marine Lab-Gold Spot Body surfing, small waves -143- Appendix No. The Uniform, Happinq System- In 1974 an intensive investigation and evaluation of the grid sys"'l-n--il and rapping system on Guam was begun. Due to th2 inadequacies of existing ri-,aps and dissatis- faction with such maps, various agencies began their o,.-in individual grid and mapping system. A policy such as this would have led to more confusion and duplication of mapping efforts. To avoid further problems, the Bureau of Planriing consulted all the major map users in the Government of Guam and, with the help of 'their input, developed and proposed one uniform system for all to use. The only foundation for-a grid and mapping system is the survey data of an area. For Guam, the survey data was established in 1913 which was ideal for grid identifi- cation and a map base. This coordinate system, which has negligible distortion for the island of Guam, is the legal basis for all surveying on the island. There have been technical difficulties due to poor survey procedures and war damage, but its basic concepts are as good as the most modern system anywhere in the world.' The Guam coordinate system has always been defined in metric units with direct conversion to foot system units often super-imposed. Since there is currently a growing, irreversible trend toward use of the metric system, this quality of the Guam Coordinate system is most fortunate. In early 1976, Public La'a 13-473 was signed by the Governor which provides for a commission on the Metric System and requires that dual dimensioning begin by February, 1977. Considering these factors, the basis grid for Guam is based an the metric system. By Executive Order No. 75-16 the Uniform Grid System was established for Guam- In essence, the -Uniform Grid System updates the Guam Geodetic Triangulation Net technical procedures common to surveyors, into a more convenient and usable form for planners, engineers, and non-technical map users. The Guam Geodetic Triangu- lation Net, as noted in the Executive Order, is the technical base for the Uniform Grid System. On the other hand, the Land Square System, as developed in 1913, w;-Is good for the state-of-the-art of 1913. The running numbering of squares, -the quadrant numbering sections, and the row numbering of units was copied from the Ame-rican Sectional System common at the time. Such a system is not readily adaptable to computerization but rather dependent on using individual's working knowledge and memory. Therefore, the simple basis concept of Cartesian coordinates is used in the Uniform Grid System. This provides for divisions in units of ten and is fully described in the specifications provided for the system in Executive Order t1o. 75-37. Evolving naturally from the Uniform Grid System was the Uniform Mapping System, and this was effected by Executive Order No. 75-37. The Uniform Mapping System provides guidelines so that all mapping on Guam fits into a systematic pattern based on the Uniform Grid System. This means that, in the case of a series of maps being designed for area coverage of a project, and where regular squares or rectangles constitute each map sheet, then 'the lines of the Uniform Grid System shall regulate the individu sheet match lines. Some map series, which are standard, give total island coverage; with some sheets provided to show larger scAles. This is regulated to be consistent for all users. Where only limited project areas are to be mapped the flexibility of the grid allows the use of any grid line, providing it has an even metric value and not a foot system value. In mapping irregular-shaped areas, no grid lines are used for the w....sheet: Ti nes; @.- but -the metric grid.lines must-, be. .0own -to allow' -Antegration-with other maps of the system;' -Survey maps, engineering site maps, and strip M3pS- are also flexible, with the only requirement that metric grid lines be superimposed and properly labeled. I R2L 2R 3L 3R 4L'4P, 5L 7L 17R'Bl- I L Afi3f-C frT FE j F V _47-1 F-11 69!") Gr F 7 6 6 65@ -ZI 2' 61 61 0-1 5 5 7 5 E-1 53 53 4 9 ;F49 47; Q _llzl@ 'Is @@-l ,fj es, 45 44 fN 45 '5 3" 41 r4l 4C). 41 N @@2 3_31 37 27- -- 4L37 3 7 33 J 1 35; 332-3 1533 '31 2 9 @23 2c* 29 La 1Y - L7 @_15 2 2 5 &-1 2525 3 cl 9 LE A181 - T3-IF AI __JAIS C 0 E F. @2@T-ALBLC _L c ols F A 2-37 L_iIRr2LT2R'!3L3R L14R:5L5R6 L16R 71_7 8n EXPLANATION OF LOCATION SYSTEM THE ISLAND OF GUA.M IS DIVIDED INTO SQUARE "GRIDS ' EACH 1000 METERS BY WOO METERS. GENERAL LOCATION OF ANY FEATURE IS DEFINED BY THE GRID IN WHICH THE FEATURE 15 LOCATED. LOCA- TION OF A GRID IS DEFINED 13Y THE 'COLU.MN* AND DROW" IT IS IN. COLUMNS ARE DEFINED BY A NUMSER-LETTER COMBINATION. THERE APE EIGHT COLUMNS CI THRU 8) EACH DIVIDED INTO 51X EA THRU F) 1000 METER COLUMNS. FOR MAPPING PURPOSES, COLUMNS A,B, Ek C ARE COMBINED TO FORM A *LEFT* HALF. (EX- AMPLE 4L) AND COLUMNS D,E,EkF FORM A 'RIGHT' HALF (EXAMPLE 4R)_ TH. 'c NUMBER-LETTER CON181- NATION IS A CODE SYSTEI@ RELATED DIRECTLY TO THE GUAM GEODETIC TRIANGULATION NET METRIC COORDINATE SYSTEM. ROWS ARE DEFINED BY TWO NUMBERS (23THRU 70) DEFINING THE 1000 METER INCREMENTS OFTHE GUAM GEODETIC TRIANGULATION NET METRIC COOR- DINATE SYSTEM. FOR MAPPING PURPOSES, FOUR tooo METER ROWS ARE COMBINED AND IDENTIFIED BY THE COORDINATE NUMBER OF THE MIDPOINT. FOUR ROWS SUCH AS 3s. 3s. 37, a 313 ARE INCLUDED IN MAPPING ROW 37 (EXAMPLE 37). TO DEFINS THE LOCATIO14 OF A MAP WHICH THREE COVERS COL'JM?4& C4A,49, a 4C) AND FOUR- ROWS (35,36,37,4138) THE MAP LOCATION IS 4L37.. g, 'TTI FT Rit TOTAL ISLAND COVERAGE IS PROVIDED ON 70 SUCH MAPS WHICH INCLUDES 4 SMALL INSEVAREAS. THESE MAPS ARE NUMBEREO I THRU 70. Appendix No. 5 A Summary Chart of Major Government of Guam Laws Related to Land Use There are many different laws and GovGuam agencies and commissions involved in planning and regulation of land use. The chart is a summary by kind of land (coastline, subdivision. agricultural preserve. etc.). of the laws that have been passed and the agencies and commissions that have been author- ized to act regarding the use of land on Guam. Each row of the chart refers to a particular kind of land. The columns contain the relevant sections of law and GovGuam bodies involved in the planning and regulation of the land. COVERNMENT EODY E t,'A B L I NG G -F 0 C" P-:% i I i! I CWITH OVEPALL LEGISLATION E A R E S PO N S I B I L IT Y P L NNINr, Gi;1DT5 (Ovz?_'@LL PD'OPOSES, T 9rjD_/ GO_@LS, RESPO@:SIBILMES RESPO'ISTBLE Frop@ RESPONSIBILITIES I DLVEL0?.XE.;T) orritory of Government of Guam Title 1, Chapter II, uam (all Section 102 3nds and Organic Act (CovernmeQt o1c Guam Section 28 (a)(b) Code) Section 29 (a)(b) --------- --------------- - -------------------------------------------- ederal Lands Federal Government T'itle 1, Chapter 11 Section 101 Organic Act C> (Covernmen t of Guam Section 28 (c) Code) ;ovGuam Real Department of Land Title XIV, Chapter I Classification 'Management Section 13002 roperty L (Government of Guam (Section 13005 Section 13003 Code) Department of-Land Management) ---------- 1"IVGuam Real Governor Title XIV, Chapter I roperty for Section 13004 'Dlency Use Section 13004 (Government of Guam Code) --------- -- -- ovGuam land Governor Title XIV inventory J-1ilable for Section 13505.1 Chapter VI (Department of Land ale or lease (Government of Guam &Management, Section .-cept agriC4 rMQ Code) 13505.1) -vernment Covernor Title XIV Ind except Organic Act Chapter'VII ,,rLculture Section 6 (Covernment of Guam Code) lvernment, Governor Title XIV Selection @-id suitable Chapter VIT' )r agriktj@ Organic Act (Government of Guam (Department of Land Section 6 Code) Management, Section 13700) vGuam avail- Chamorro Land Trust PL 12-2@O" le lands/ Commission Chamorro Land Trust ction 13503 77 vernmen=.' 'Governo' Title XIV-, Chapte XL" Subdiv"ision Platt.-., nd for sub-@ (^Aovernment of Cuam (Departtaent- of Land vision Code) Management% Section 13952) [email protected][Eil;-C BODY RESPONSIBLE FOR NOTES AND CO:C/:@-@:-fS IMPLEMENTATION FO R ILI PL E@- i c,; n T r o., Sections of Organic Act cite& transfer title and contral of property to Covruan- Title 1, Chapter 11, Section 102 of thE@ Code establishes the boundaries o,r,; jurisdiction of CovCuam. ----------------- 91 of: 1) Militarv and submerged linds. 21) ochers. Responsibilities, besides Organic Act, are in the agreement- ------------------ Executive Order Rules and Regulations Section 13007 Section 18007 - ------ - -- - -------- This section is to be expanded, I if necessary, since so-me PL's designate specific I 'ands for specific agencies' (e.cr., Cabras Island). ---------- - - - - - - Land Transfer Board Rules This Chapter has been) PL 12-226 1Section 13500 Section 13502 repealed by PL 12-225) excludes but the law is not those lands implemented since already there is no Commis- ynd@--r the s.Lon yet. A impleamen- This chapter also tation of Department of.Land Land Use Permits Nanavement repealed by PL 12- these chapters, but upon - ---------- - ------ - -------- 226 1 E yel: s a I Chapter also repealed) to covern.- Departr 'nent of Agri. Leasing by-12-226 Section 13701 - ) ment of Process Section 13702- Cu@3ni the 13711. same@ becomf - )r-hamorro hnd Chamorro Land Trust Leasin- and Licensing This law is inoperative since Commission there is no Conmissioa formed Section 13506 yet. Section 13504 Contract -here are PL's which designate -Governor n: 13' certain subdivisioyr praj Sectio. J5C ects- Section '13956. 1 GEOU-PAPHIC WITH OVERALL PLANNING GUIDES AREA RESPONSIBILITY (OVEPALL PURPOSES, (GOVERKMENT BODY RESPONSIBILITIFS GOALS, RESPON'SIBILITIES) RESPONSIBLE FOR GOVERNMENT) erritorial Department of Parks PL 12-209 Cuam Territorial Park ark System and Recreation Parks and Recreation Systen: @Iatural Section 26001 Inventory Preserve (Dept. of Parks Rec) Conservation Section 26007 Reserve Territorial Parks Territorial Rec. Facility historical & Prehistoric Objecti-, and Sites Community Parks Community Rec. Faciliv ;ection 26007- 26009 ,ovGuam and Title XV111 .)rivate lands :!xcept for federal lands 1.11 subdivided TPC Title NIX Master Plan land Section 18001.1 Section 18003. (M) - - - ------- ------------------ - --------- ------ - ---- -- -i-riculture Department of PL 12-225 Fstablishm.-nnt of Pre- )reserve Agriculture Agriculture Preserves serves culture) Agricultural (Guam Land Conservation (Dept. of Agri use Act) -Recreational use -Wildlife habitat -Open space -Submerged land L,@, L U 1, 4 1. J L i RESPONSHLE FOE-Z FO R 110TES Ai"!) C0"'-,--:-c IMPLENCNTATTOM IMPLEMCNTATIONS Rules. and Regulations The Commission for thc: baparzment ol Parks and Recreation is Section 26003(a) established to appoin@, remove and advice the DTR. Division of Parks Executive Order 75-26 forms a Section 26011 conservation area in the Dededo watershed area and givesit. to DT21. Village Commissioners SacLion 26010 Enforcement Building Permits The responsible entity neeids DPW Section 17450 Section 17452 clarification-may be the Covet-nor Use License or TPC? Also not clear is the role Section 17453 of the Master Plan-it may be the Program Development Guide-but N_ P. comes in the subdivision law. - --------------- The SDRC (E.O. 75-2) makes recom- TPC Procedure mendations to the T?C. Section 18003 Chapter 11 Title XIX Rules and Regulations adopted b Y TPC--April 18, 1974. Suit brouabc Requirements Superior Court Civil Case #334-74. Section 18005 Temn Ee t,j,,'3,N99zder resulted vacate DepArtment of Contracts The mapped area inust be .Agriculture Article III established by the Department7 of Agriculture as Agriculture Adopted Rules IV Preserve. (Section 12504) Section 12505 EmInent Domain or other acquisition Article V WITH OVERALL UGISLATION GEOGP21THIC RESPONSIBILITY PIANININC GMES i INENT BODY P":,- K"'EN (OVERALL PURrOSES, (GOVERL RESPONSIBILITIES GOALSO., RESPONSIBILITIES) SPONSIBLE FO'), IiENT) Planned Territorial'Planning Title XVIII, Chapter XIII DevelopmenL Commission Section 17605 District -------------- - ---- ----------------------------- - ----------------- Seashore Seashore Protection PL .12-103 (Guam Seashore Reserve 0 eserve Commission Plan) tN Section Section 13413 Section 131410'(c) 13412(c) E. 0. 75-24 ------------ - -------------- - - -------- - ---- - ------ ------------------ - - Ocean Shore Territory of Guam PL 12-19 Department of Land Territory Section 13459 Management Recreational Section 13453(2) Area Historic Sites Department of Parks PL 12-126 Comprehensive Program and Objects and Recreation Section 13985.2 (Parks & Recreation) -7 Slum and GIIIURA Title XIV Section 13903(la) Iblight areas Section 13903 Chapter X (GRURA) and disaster Section 13903(19) areas (GovGuam Code) GOVEW L;%IFINT Bn-,)Y 1'C H 7 S FSpC),,;S1RLE FOR F 0 NOTE.S AND CO:-CfE@TS 1@[P[Y'TNTATL 10LT T .,TPLENZ@.`f ATION TPC Sam@- as for a zone Also called Planned Unit change Developmenu (eUD) ------------- - ------------------------------------------------------------------- Seashore Protection Interint Permits Commission Section 13417 --------------------------------- - ----- Ocean shores may now be nnt!er SPC operation (PL 12-108) and Territory Rec. Area under Parks and Rec.. (PL 12-2,09) Operation of Properties 1. Dept. of Parks Part Tir Department of Parks and Recreation and.Rec may refer's to Section 13935.7 have received uneerwatec. Section 13985. .3 the responsi. historic Cuam Register of bilities from 12ropereles Historic Places Land Management) but is not_' Section 13985-19 via PL 12-209 clear as 'to whether- 2. The role of the) or not the Cuam Institute submerged of Spanish/ lands are Chamorro, considered Culture (Part as such. IV) is not. clear. in this phase.of t: h e i4 study. CHURA Rules and Regulations Section 13903 Section 13903(5) =7!4 b COV'jE,vxN',:1@NT BODY F No'd", L IN G P 11 ri C;S GEOG!@-\2111C WITH OVEI@AU 1.1M.1SUMN A'@CA RESPONSIBILITY PLAIPIL;G CUID7-13 (OVERALL PU?,POSES, RES!'ONSIBILITUS Cn.@,LS, RESPONISIBILITIES) (GOVEP,@,"fENT BODY' 1@7- SPONISIBLE,zo-@ -)E@iFMOP- Territory Governor Title XXXII of Guam Organic Act Building Law (Building Section 6 Law) i.e-critory of Guam Environmental PL 11-191 Comprehensive Program Cuam Protection Agency @environmenta,l Section 57001-57002 Implementation of: matters) Title T.XI Chapter II Chapter Ur Chapter IV Chapter V Chapter V1 Chapter VIII (GEPA) ----------------- - ------ PL 12-191 CEPA Territory of PL 9-131 Comprehensive Program Cuam (Water PL 11-191- PL 11-191 Water Resources Conser-vation) Conservation Act (CEPA) Ali.!, U L I a VUK LE',I-E@ IT A"," I ON' Department of Public Section 31014 The Uniform Building Code is Works Rules and Re,-. incorporated into the Rules and Section 31007 Regulations of thee Department of Section 31019 Public @Iork.s. Perm its Buildin.:;, Section 31040 Inspection Section 31055 Appeals Chapter V Classification of Occupancy and Requirements Occupancy Permits Section 31034 GEPA Rules and Regulations Section 57005 This public law renumbers certaln titles and secetions of the Cov Guam Code pertaining to GEPA and similar otber. numbering. GEPA Well drilling License Well drilling Permits Well Operating Permits Inspection Meters seedlings-of Penalties :r Initfnctions COVEMIIEN7 BODY E N,',- !@ L I N G P P O'@.s CEOI;r A -. r@A LL . @__F111C WITH OVF LEGISI-MON P12,111MIN(; GUIDES PESPONSIBIL11Y (OVEMLL PURPOSES (COVEPt,'@ENT BODY RF- RESPONSIBILTTIES SPONSIBLE FOR Dl--I;F.[.O?- GOALS, kESPONSIBILITIES) I L f ENT) Territory of CEPA PL 9-76 Comprehensive Plan Guam Na.ter PL 11-191 Water Pollution Control Section 57041 Follution) (GEPA) ---- - -- ----------- Territory of CEPA PL 3-109 Comprehensive'Pla'n Guam (Toilet PL 11-191 Toilet Facilities and PL 11-191 Facilities Sewage Disposal (CEPA) and Sewerage r Disposal) Territory of GEPA PL 12-191 Comorehensive Plan Guam (Solid PL 11-191 Solid Waste PL 11-191 Waste) (GEPA) Territor of CEPA PL 10-74 Cooorehensive Plan Y: Guam PL h-191 (E=ission PL 11-191 (GIEPA) Control) COVEF@NNLNT BODY NECILA@;IS'43 RESPONSIBLE FOR FOI, NOTES Al."'D C0'C-1Eh;-rS I@MLEMENTATIO'N 1'-TLU-M-;TATION GEPA Section 57043 PL 11-191 Study and Investigate Section 57045 Sevage Disposal System Permits Section 57047 Classification and Standards Section 57048 Enforcement Section 57049 Emergency Procedures Section 57050 Penalties M GEPA Approval requirement, Section 57084 states that PU-kG Section 57064 has the power, duty and.respon- PUAG Public Sewer Connection sibility for the operat 'ion, and Installation administration and enforcement of this Chapter (IV) but PL 11-191 gives GEPA the responsibility oaff implementing this law. GEPA Traffic Court citation Section 57172 Section 57170 - ----------- CEPA Section 57104.Monitor PL 11-191 also knoTm as "Air Section 57103 Section 57105 Permits Poll ution Act" Section 57106 Inspectio Testing Sampling Section 57107 Rules & Reg on Emmission Control 7 Section 5710S Enforce- M ent Section 57109 Emergency Procedures EMS tz Section-57110.Variances SM 7- NZ Section 57111-Hearings & Judicial Reviei4 Section 57113 Penalties 1; 71 1 ri kfn?-n r- V"- Appeadix No. A Summary of tne Reports Completed by the Bureau of Planning, 1976-77, for Use as Background Data Analysis of Results, CZM Land-Use Opinion_Survey An analysis of the - results obtained from a survey questionaire distributed to 931 residents. Attitudes concern seashore development, recreational facilities, property OWnership and citizen participation. (CZM) Aquaculture and Its Potential Environmental Impact on Guam's Coastal Waters An analysis of the potential for various kinds of aquaculture development an Guam with discussion of developable species, 011 environmental impacts and necessary water quality controls. Areas for potential aquaculture development are mapped. (CZM) Atlas of the Reefs and Beaches of Guam An investigation of the coast and shallow reefs of Guara, including locations and geologic descriptions of reef .,, plat- forms, rocky shorelines, and locations, extent, slope and composition of beaches. This study completely maps the shoreline and shallow reefs of Guam. (CZ1Q An Ecological Survey of Pristine Terrestrial Communities on Guam Provides area descriptions', species lists and maps of terrestrial areas that are essential for the protection of endangered and threatened species or are unique or relatively untouched rep- resentatives of characteristic Guam terrestrial ecological communities. (CZM) An Economic Survey ot Guam's Business Community- An analysis of the results obtained from a- survey questio,-Llalre distributed to small businesses on Guara. Statistical data, discussion and recommendations address physical and humar, infrastructure, government and private activities, economic situation, social conditions and community environme-ri-L, investment opportunities, large ans small business cam, parison and ethnic group comparison. T ne Extent of Co, A ral Shell and Algal Harvesting in Guam Waters A discussio-n of living marine resources, other than fist,,,'.. which are being harvested from shallow offshore areas of Guam.. includes extensive lists of exploited species, location maps, existing legislation, and recommendations for resource development and preservation requirements. (Czm) 4 Future Power Production and Transmission Alternative Plansr Guam USA ot existing rivate.. federal. and GovGua.-&n -A description f acillties.. for--. the. production of.power; including power plants,". fueL - tanks ". transmissio _fuel lines, It n lines,.etc. -Future expansion needs and.locations are discussed and mapped- (C7,z-1) Guam Coastal Planning BiblioEra 'Rhy A bibliog-raphy of most written research materials concerning Guam, arranged according to subject matter ina nunLbered code system. Includes. authors, nur,=Jer of pages, dates, cross Guam: The United States Dave-loping Territory A discussion an I illustrative report of Typhoon Pamela damages. outlines programs for post-typhoon upgrage and restoration government operations, rehabilitation and economic development, community development and conclusions. Guam's Visitor Industry: An Economic Assessment A compilation of statistical data obtained from a survey qestionaire distributed to tourists, with 1,300 respondents providing the data base. Data addresses expectations, ratings of recreational, and entertainment facilities, expenditures, length of stay, visitor profiles and preferred attractions. Guam Inventory of Planninq Information An inventory of plans, reports, surveys and data bases about Guam, produced from 1970 to 1976. Includes a short descrip- tion of each published source. Entries are arranged by sub- ject areas in three volumes with appendices. A Guide to the Changes in Laws Relative to Land and Water Use, 1969-76 A presentation of changes in Guam's code of laws relative to land and water use during this time period. (CZM) Growth Policy for Guam A discussion of the factors relating to the development of Guam's economy. General Policies discuss environment, culture and lifestyles, agriculture and light industry. Housing Element, Residential Development policy Report An extensive discussion ot housing on Guam for inclusion,in the CDP. Chapters address problemsp current housing stock, Guam's households today and tomorrow, residential development opportunities and constraints, Policy alternatives and recommendations. An inventory of Present and Projected Coastal Land and Water Uses on Guam An identification of Guam's existing coastal water uses, such as recreational, waste disposal and others. Includes extensive Maps and tables of existing and proposed seashore activities by categories and projects, with appendix maps. (CZM) Mechanisms for Land-Use Control on Guam A compilation of data pertaining to regulatory land-use controls on Guam with discussion and flow charts of permitting procedures for such activities as zoning variances, building .permits, subdivisions and PUDs, COE permits, agricultural leases; with actual permit forms and guidelines included in the report. (CZM) Overall Economic Development'Plan A discussion of development proposals for the federal Economic Development Authority. Programs which are vital to Guam's. economy include those for agriculture, tourism, Commercial. Port, Guam International Air Terminal and water resources summary of EDA related, specific projects follows and exhaustive discussion of the various components of Guams economy. Major chapters address population, labor force and the economic. potentials and constraints affecting the various sectors of the economy. Population Projections A brief report containing methodology, tables and graphs of population projections for Guam to the Year 2000. Three different projections are compared to give a reasonable estimate of population growth. Street Atlas of Guam The first official reference map of all streets on the island, including location of major public-use facilities. This docu- qment was published as a guide for government agencies and made available for sale to the public sector by the printing agency and private enterprise. A Summary of Major Federal Land Holdings in the Territory of Guam An analysis and listing of locations, areasand uses of federal lands on Guam with appendices and a key map- (CZM) Appendix No. 7. Forthcoming Studies Being Developed by the Bureau of Planning, to be completed Prior to December, 1977. Beach Access Study Will describe access to all beaches of Guam, delineate problem areas and identify properties owned by private interests, GovGuam and the Federal Government. (CZM) Economic Development Plan Following the Growth Plan and the OEDP as major economic reports, this element of the CDP will further address eco- nomic growth potentials for the territory. The emphasis will be on utilization of economic and statistical methodology to more accurately assess trends and outline a five-year plan for economic growth, as previous plans were exhaustive studies of the current economic situation. Interim Disaster Preparedness Plan A discussion of inter-agency response procedures and mechanisms for disaster preparedness in relation to hazard analysis studies for such potential disasters as typhoons,floods and earthquakes. Inventory for Pristine Marine Ecological Communities Will describe and map those marine areas that are essential for the protection of endangered and threatened species or are untouched representatives of characteristic Guam marine ecological communities. (CZM) Phase II, Reef Study Will provide area sedimentation studies, transects of sensitive and control areas; and discuss larval development of marine species in coastal wetland areas. (CZM) Seashore Reserve Plan Will provide mapping of the land uses and physical features characteristics of portions of the Seashore Reserve as delin- eated in the Community Design Element of the CDP. (CZM) Social Element Will discuss and analyze the dimensions and problems affecting health services and facilties, changing lifestyle and language, the educational system, drug abuse; and provide conclusions and recommendations for the agency coordination, program emphasis and public action. This plan will provide an element of the CDP. Sources and Projections of the Availability of Minerals for Engineering Construction in Guam Will analyze the best sources of aggregates, fine sand and basalt for construction and pavement on Guam. (CZM) Supplement to the Guam Coastal Planning Bibliography, 1977 Will add entries, produced in 1976 and 1977, to the 1976 bibliography. (CZM) Appendix No.8 Forthcoming Studies, Related to Land and Water Resources, Being Prepared by Other Agencies (Tentative Titles) GEPA 208 Studies Enviromental Management Study Consultants have been contracted to provide an in-depth analysis of regulatory agency permitting procedures. Recommendations well seek to eliminate overlaps, fill in management gaps and increase overall enforcement capa- bility and efficiency by clearly defining agency respon- sibilities. Study of Non-Point Problems This 208 Program study will provide an analysis of strategies needed to solve non-point pollution problems. LOG Marine Laboratory Technical Reports Biological Studies of the Coconut Crab (Birgus latro) Will discuss the food habits, habitat, growth rate, and reproductive cycles of coconut crabs. Guam-Micronesia Marine Bibliography Will provide a list of sources relative to marine research in Guam and the Trust Territory. Ecological Studies for Guam, Coastal Zone Planning and Management A Sea Giant report of Tumon Bay, this study will provide a survey of submarine contours and physical and biological features of the feasibility of dredging Tumon Bay for resort purposes. A Study of the Effects of Thermal Effluent on the Coral Reef at Cabras and Piti Power Plants Will take data contained in previous reports, as well as recently collected data and provide a final compilation and analysis of the effects of thermal discharge into waters adjacent to the Piti and Cabras units. -148- A Study of the Effects of Thermal Effluent on the Coral Reef at Tanguisson Will supplement previous studies which specifically outline the extent of coral kill zones caused by thermal discharge or dispersal of heated water onto adjacent coral reef from the power plant facility. Studies on the Deepwater Shrimp (Heterocarous ensifer) Will provide an explanation of trapping methods, habitats (salinity, depths, etc.), localities and abundance of this marine species. WRRC Technical Reports Effects of Infiltration of Urban Runoff on Ground and Coastal Waters in Limestone Regions of Northern Guam Will characterize the quality of urban runoff and changes in the quanity of infilatrated runoff under laboratory, and if feasible, pilot field conditions. Evaluation of the Impact of a Domestic Effluent Discharge on on Guam Coastal Waters This study, prepared in conjunction with the Marine Laboratory will characterize effluent, receiving water quality and analyze the impact on the biota. Guam Basal Groundwater Monitoring Well System: Construction and Development Will provide an illustrated report containing new infor- mation which will serve as a guideline for the monitoring of future well projects on Guam. A Model of a Portion of the Public Utility Agency of Guam (PUAG) Water Distribution System Will measure the flow parameters in a selected portion of the PUAG water distribution system. By determining the relation- ship between these quanities, it will be possible to locate areas of leakage and to aid in planning for future expansion of the system and development of new sources. A Preliminary Study of the Dynamics of Guam's Norhtern Aguifer Will estimate the dynamics of natural recharge and outflow, the thickness of the transition zone, the effects of well depth and pumping rate on the transition zone, and the maximum sustainable yield of the basal lens. Preliminary Survey of Guam Groundwater Ages Utilizing Tritium Will determine the relative ages of groundwater from different environments. Quality of Percolate Below the Root Zone of Selected Guam Agri- cultural Crops Will determine the type and amount of agricultural chemicals being used or allowable for use and characterize parcolate quality in terms of chemicals being used. Role of the Blue Green Alga (Nostoc muscorue) as a Possible Nitrate Source to the Groundwaters of Guam Will provide additional information concerning the quality of Guam's groundwater by investigating to what extent, if any, Nostoe muscorum contributes to the concentration of nitrate in underground supplies. Sociocultural Determinants of Fresh Water Uses in Guam Will provide information concerning traditional Chamorro fresh water use customs which is intended as an aid in the solution of present and future water-related problems. -150- Coastal Recreation. A Handbook for Plannr::rs and Manaqers. Office of the CZM, Wash. , D.C. , Jan. , 1976. Coastal Survey of Guam. Richard H. Randall and Jeanne Hollman, UOG 11arine Lab. Tech. Report No. 14, August, 1974- Community Developiment Standards for Use in the Preparat 'ion of General Plans for Communities in the Territory of Guam. Territorial Planning Conrni ssion, 1960. of Sprawl. The Costs - Real Estate Research Corp. for Council on Environmental Quality; gffice of Policy Development and Research. Dept. of Housing and Urban Development, Office of Planning and 11gt.; Environmental Protection Agency, U.S. Gov't Printing Office, I-lash., D.C.', April, 1974. .Critical Areas: A Guidebook for Development of State Programs. U.S. Department of the Interior, Office of Land Use and Water Planning and USGS Resource and Land Investigations Program, I-lash., D.C., July, 1975. -C Critical Areas and information/Handling Primer. State Resource Mgt. Programs, U.S ' Dept. of the Interior, Office of Land Use and Water Planning and esodrces and Land -Irfve'stig:aif ions' Or'@ograrq, Jan., 1976.. USGS R' .Critical Habitat Map (Proposdd) Division of Aquatic and Wildlife Resources, Dept. of Agriculture, Guam,.1977. Data Needs and Data Gathering for Areas of Critical Environmental Concern: .1, Part I: Summary Report, Center for Geographic Analysis, Institute for Environmental Studies Report No. 53, Univ. of Wisconsin-Madison, Oct., 19705. Developer's Handbook. Allen Carrol, State of Conn., Dept. of Environmental Protection, Coastal Area Mgt. Program, 1976. Diffuse Source Pollution: Policy Considerations for the States. The Council of State Governments, Lexington, Ky., March, 1977. Draft Environmental Impact Statement for the Ammunition Port Facilily, Orote Point, Guam, Mariana Islands. U.S. Nlaval Magazine, Guam for Commander in Chief U.S. Paci.fic Fleet, March, 1977. Draft Environmental Impact Statement Harnors and Rivers in the Terri.tor-y of Guam, Interim Report on Flood Control , Agana River, Guam. U.S. Army COE, Play, 1975. An Ecological Survey of Pristine Terrestrial Communities on- Guam. Philip H- Moore for BP, CZM, Aug., 1977. 7 An Economic Survey of Guam's Business Corr-mu n i ty. Bureau of Planning., April 1976. Ecosystems and Resources of the Massachusetts Coast.. Mass. CZM, Boston, Mass. Endangered and Threatened Wildlife Species List..Threatene .d Species Com, i tt'ee of Guam, 1976.- BIBLIOGRAPHY Aesthetic Resources of the Coastal Zone. Roy Minn Associate, Inc. for Office of Coastal Zone Mgt. Washington, D.C., July, 1975. Aqana Marina Development Plan. Gillian, Koebig and Koebig, Inc.,for DPW, Nov., 1976. Aqat Small Boat Harbor Study. Background Information. U.S. Army COE, 1977 AICUZ Study: Naval Air Station, Agana, Guam. Preliminary Opera- tional Alternatives and Reports, CH2M Hill for PACDIVNAVFACENGCOM, Aug., 1977. Aircraft Noise Study of the Naval Air Station. Ronald A. Darby and Assoc., NAVFACENGCOM, Guam, March, 1974. Air Installation Compatible Use Zone. Anderson Air Force Base, Guam, March, 1976. Analysis of Results: CZM Land-Use Opinion Survey. BP, CZM, Aug., 1977. Agriculture and Its Potential Environmental Impact on Guam's Coastal Waters. William J. FitzGerald Jr. for BP, CZM Aug., 1977. Areas of Critical Environmental Concern. Association of Bay Area Governments, Berkeley, Calif., June, 1975. Asan Community Development Project Report. Juan C. Tenorio and Assoc., for GHURA, 1977. Atlas of the Reefs and Beaches of Guam. R.H. Randall and L.G. Eldredge. BP, CZM, 1977. Beaches: A Component of the Coastal Zone. Dr. Ralph Moberly, Hawaii CZM, Program Tech. Supplement No. 4, Aug., 1975. Boating Activity in the Territory of Guam, 1974.- Gillham, Koebig and Koebig, Inc., for U.S. Army COE, 1976. Biological Study of the Geus River Basin. Kami, Drahos, Lujan, and Jeffrey, UOG Marine Lab. Tech. Report No. 16, Nov., 1974. California Coastal Plan. California Coastal Zone Conservation, Commisions, San Francisco, Calif., Dec. 1975. Case Studies. Technical Supporting Report B, U.S. Dept. of the Interior Office of Land Use and Water Planning and USGS Resource and Land Investigations Program, Washington, D.C., July, 1975. Coastal Ecosystems. John Clark, The Conservation Foundation, Washington, D.C., 1974. coastal Development. Fundings and Policies No. 2, Coastal Resources Mgt. Council, Providence, R. I., April,1977. Coastal Landforms and Scenic Analysis: A Review of the Literature With a Environmental Statement, Agana Small Boat Harbor, Agana, Guam. U.S. Army COE, Nov. 1972. Exploitable Natural Resources. Findings and Polices No. 3, Coastal Resources Management Council, Providence, R.I., May, 1977. The Extent of Coral, Shell and Algae Harvesting in Guam Waters. Steven E. Hedlund, UOG Marine Lab. Tech. Report No. 34, July 1977. Evaluating Visual Quality of the Coastline: Some Significant Issues. Sarah Haskett, Visual Quality of the Coastal Zone Sea Grant Project, Working Paper No. 2, Syracuse, N.Y., 1975. Feasibility Report, Future Community Renewal Projects for Asan, Dededo, Piti Santa Rita, Tamuning, GHURA, June, 1971. Field Ecological Survey of the Agana-Chaot River Basin. Randall, Tsuda, Gawel, Rechebei and Chase, UOG Marine Lab. Tech. Report No.12, July:, 1974. Final Environmental Impact Statement, Flood Control Projects, Namo River, Territory of Guam. U.S. Army COE, Sept., 1974. Financial Statement FY 73-FY 76. Department of Administration, Guam, 1977. Flood Hazard Study, Geus River, Guam. U. S. Army COE, 1975. Inarajan River. Masso River. Salinas River. Tamuning Area. Umatac River. Florida Keys-Coastal Zone Manaqement Study._ State of Florida, Dept. of Natural Resources, Coastal Coordinating Council, June, 1974. The Florida Land Use and Cover Classification System: A Technical Report. Florida Dept. of Admin., Div. of State Planning, Bureau of Comprehensive Planning, April, 1976. Future Power Production and Transmission Alternative Plans, Guam, U.S.A. Walter F. Pinckert and Associates for BP, CZM, 1977. General Land Use Data and Trends. Dept. of Land Mgt., Guam, Nov., 1973. Groundwater Resources of Guam: Occurrence and Development John F. Mink, UOG Water Resources Research Center, Tech. Report No. I , Sept. 1976. Growth Management, Zoning, Public Policy and the Courts. David L. Kirp, Institute of Industrial Relations and Institute of Urban and Regional Development, University of California, Berkely, paper prepared Growth Mgt. Seminar, Nov. and Dec., 1974. Growth Policy for Guam. BP, Jan. 1977. Growth Shapers: The Land Use Impact of Infrastructure Investments. Council on Environmental Quality, U.S. Gov't Printing Office, Wash. D.C., May, 1976. A Guide to the Changes in Laws Relative to Land and Water Use, 1969-1976. Bureau of Planning, CZM, October., 1976. Guide to Guam's Public Park and Recreation Areas. Dept. of Parks and Recreation, 1977. Guam Coastal Planning Bibliography. Michael J. Gawel, BP, CZM, Sept., 1976. Guam Comprehensive Highway Plan. Dept. of Public Works, Planning Division, October 1976. Guam Comprehensive Outdoor Recreation Plan. Department of Parks & Rec., 1977. Guam Comprehensive Transportation Plan. DPW, 1975. Guam Environmental Policy Statement. Office of the Governor, June, 1974. Guam Environmental Protection Agency Fourth Annual Repoort, GEPA, April 1976, March 1977. Guam Historic Preservation Plan. Dept. of Parks and Recreation, Jan., 1976. Guam Inventory of Planning Information. BP, June 1976. Guam Master Plan, Phase 1: Problems, Opportunities and Alternatives. Greenleaf, Telesca-Ahn, June, 1972. Guam Overall Economic Development Plan. OEOP Committee, BP, 1977. Guam Pesticides Profile. Guam Environmental Protection Agency, March, 1975. Guam Soil Erosion and Sediment Control Standards and Regulations. Guam Guam Environmental Protection Agency, 1975. Guam: The United States Developing Territory. BP, Jan., 1977. Guam's Visitor Survey: An Economic Assessment. BP, EDA, Technical Report No. 77-1, July, 1977. Guam Water Quality Standards. Guam Environmental Protection Agency, Aug. 6, 1975. Housing Element, Comprehensive Development Plan. BP, Guam, 1977. Hydrological Study for Potential Water, Supply Reservoir, Ugum River, Territory of Guam,; Sunn, Low,Tom and Hara for U.S. Amy COE, March, 1977. Inarajan Village Historic Architectural District. J.B. Jones for Dept. of Parks and Recreation, Guam, 1977. Inventory and Managing of Wetland Vegetation in Guam, Saipan and Tinian, M.I. Moore, Raulerson, Chernin and McMakin,U.S. Army Corps of Engineers, 1977. An Inventor ,y of Present and Projected Coastal Land and Water Uses on Guam BP, UM, Feb. , 1977. Issues and Recommendations --State Critical Areas Programs. Land (Ise Policy and Program Analysis No. 5, The Council of State Government, Lexington, Ky., Jan, 1975. I Tano Yan I Tasi, Newsletter of the Guam Coastal Management Program, Vol. Z -Nos. I-?, Jan-July, 1977. Job Progress Report, Federal Aid to Fish and Wildlife Restoration, FY 1976. Dept. of Agriculture, Division of Aquatic and Wildlife Resources, 1976. Land Classification Program Proposal for the Trust Territory of the Pacific Islands. Tamotsu Shara, Land Study Bureau, Univ. of Hawaii, Honolulu, Dec., 1976. Land Development its Environmental Impact in Micronesia." Norden H. Cheathann, Micronesian Reporter, Vol. XXIII, No. 3, Third Quarter, 1975. A Land Resources Program for North Carolina. Land Policy Council, Raleigh, N.C., Dec., 1976. Landscape Evaluation: A Review of Current Techniques and Methodologies. Richard Viohl , Jr. , Visual Qua] i ty of the Coastal Zone Sea Grant Project. Working Paper No. 3, 1975. Land,: State Alternatives for.Plarming @nd @Ianaqement. The Council of State Governments, Lexington, Ky., April 1975. The Language of Zoning. ASPO Report No. 322, 1976. Management of the Forest Land of Guam Under a Program of Multigle Use. Foresty Division, Dept. of Agriculture, June, 1973. Marianas Yacht Club Master Plan, Prepared for the Guam Coastal Mgt. Program, April 22, 1977. Marine Biological Survey of the Cocos Barrier Reefs and Enclosed Lagoon. UOG Marine Lab. Tech. Report No. 17, Aug., 1975. Marine Environmental Baseline Report Commercial Port, Apra Harbor, Guam,- UOG Marine Lab. Tech. Report No. 34, April, 1974. ,Marine Environmental Survey of Piti Bay and Piti Channel, Guam. James A. Marsh Jr. and Gregory D. Gordon, UOG Marine Lab. Environmental Survey Report No. 3, June 1971. Marine Survey of Agat Bay. UOG, Marine Lab. Tech. Report No. 31, Jan, 1977. Master Plan for Guam International Air Terminal. Mackinlay, Winnacker, McNeil --.-.,-..and Associates; Richardson Associates; Austin, Smith and Associates; Miller, Lawson and Associates, Jan., 1971. Mlechanisais for Land-Use Control on Guam. BP, CZM, Dec., 1976. The jMerizo I-later System Sanj tary Survey, GEPA, Feb., 1977. Methods and Techniques for Critical Area Program Development. Technical Supporting Report A, U.S. Dept. of the Interior, Office of Land Use and Water Planning and USGS Resource and Land Investigations Program., D.C., July, 1975. Military Geology of Guam. U.S. Arrry COE and U.S. Geological Survey, 1959. A Model Land Development Code. The American Law Institute, Washington D.C., May 21, 1975. Natural Hazard Management in Coastal Areas. Office of Coastal Zone 14gt. Washington, D.C., Nov., 1976. The Natural Setting. 'Findings and Policies No. 1, Coastal Resources Center, Graduate School of Oceanography, Univ. of R. I., Kingston, R.I., Mar., 1977. News From the Governor, Office of the Governeor, Guam, May, 1977., Outdoor Recreation on Guam. Dept. of Commerce, Dept. of Land Mgt., Oct. 24, 1973. Parks and Recreation Guidelines and Standards for Subdivisions and PUD on Guam, Department of Parks and Recreation, 1974. Parks and Recreation Rules and Regulations. (Proposed) Dept. of Parks and Recreation, Guam, 1977. Performance Control-s-jor Sensitive Lands. ASPO Report Has. 307, 308, 1975. Planning for Southwest Guam.. Barton, Gartner Govoni and Lotz. Dept. Of Parks and Recreation, March 1, 1976. .Point Source Discharges, Coastal Waters, Revised Per Field Inspection. GEPA, Guam, July, 1977. Population Estimates of Guam: September 1975". News, Guam Department of Labor, Bureau of Labor Statistics, Jan. 19, 1976. Population Projections'. Bureau of Planning, Guam,1976, Amended, '1977. Port Authorities and Coastal Management. The American Associates of Port Authorities for office of Coastal Zone Mgt., Wash., D.C., July, 1976. Principles and Practice of Urban Plannia. William 1. Goodman'(ed), International City Managers' Association, Wash., D.C., 1968. Regional Ocean Coastline Plan. San Francisco Bay_Region.. Association of Bay,..- --Area Governments, JuI711-9,1M. Regional Plan, 1970:.1990, San Francisco Bay Region. Association of Bay Area Governments, Ju17 3-0, 1970. Regulation of Critical Areas Through a State Land Manaqement Program. R.I. 1j_^fVV-n1" Tarh D;3now- Alm r, 74Z - I 07C; Regulations for Flood Plains. ASPO Report No. 277, Chicago, III., Feb., 1972. A Report Covering the Domestic and Agricultural Irrigation Water Supplies of the Island of Guam which Indicates the Need for Conservation Areas. Austin, Smith and Associates, Inc. for PUAG, 1970. Report to the People. State Land Use Commission, Second Five-Year District Boundaries and Regulations Review, Honolulu, Hawaii, Feb., 1975. Review of Forestry Potentials for Guam. John D. Beebe and Harry W. Camp, U.S. Forest Service, Feb., 1970. Sacramento City General Plan. Sacramento City Council, Aug., 1974. Selected Data From Guam's Visitor Survey, Bureau of Planning, May, 1972. The Socio-Economic Impact of Modern Technology Upon a Developing Insular Region: Guam. UOG, 1975. Solid Waste Status Report. Guam Environmental Protection Agency, Jan., 1975. State of the Arts for Designation of Areas of Critical Environmental Concern. Land Use Policy and Program Analysis No. 4, The Council State Governments, Lexington, KY, Dec., 1974 State Guidelines for Local Planning in the Coastal Area Under the Coastal Area Management Act of 1974. Coastal Resources Commission, North Carolina, October. 15, 1975. State of Hawaii Land Use Districts and Regulations Review. Eckbo, Dean, Austin and Williams for State of Hawaii Land Use Commission, Honolulu, Hawaii, Second Printing, Jan., 1971. "State Land Use Planning: A Survey". Larry Malone, State Planning Issues, Vol.1, No. 2, Wash. , D.C. , Winter, 1977, pp. 7-11. State Policies for Land Use and Natural Resources Management. State of Wash., Office of the Governor, Jan. 1977. Statistical Abstract. Economic Research Center, Dept. of Commerce, Guam, Vol. 6, 1976. Street Atlas. Bureau of Planning, Guam, 1976. A Study of Biological Impact Caused by Natural and Man-Induced Changes on a Tropical Reef. Robert S. Jones and Richard H. Randall., UOG Marine Lab. Tech. Report No. 7, July, 1973. A Study to Determine The Aquaculture Potentials of Guam. William J. Fitzgerald, Fish and Wildlife Division, Dept. of Agriculture, July, 1975. A Summary of Major Federal Agency Land Holdings in the Territory of Guam. BP, CZM, Jan., 1977. Talofofo Bay Coastal Survey. Richard H. Randall, UOG Marine Lab. Tech. Report No. 13, August, 1974. Talafofo Beach Share Protection, Detailed Project Report. U.S. Army COE, June, 1974 "Terrain Analysis for Metropolitan Fringe Area Planning". Ralph W. Kiefer, Journal of the Urban Planning and Development Divison Dec., 1967 Technical Considerations in Developing a Coastal 'Zone Management Program for Hawaii., Hawaii CZM Program Document No., 1, Aug., 1975. Territory of Guam Comprehensive Highway Safety- Plan 1976-1977. Arthur D.Little Inc., for DPW, Play, 1975. Territory of Guam Master Plan. Guam Territorial Planning Commission, Jan., 1966. A Thermal Study of Plant Channel, Guam and Adjacent Areas, and the Influence Of Power Plant Operators on the Marine Environmnent J. A. Marsh, UOG Marine Lab. Tech. Report No. 6, June, 1973. Toward City Planning of Ocean Environment. Melville C. Branch, ASPO, Chicago, Ill., July 1964. Toward a State Land-Use Policy for the 70s. Planning and Community Affairs Agency, Olympia, Wash., Jan., 1971. Virgin Islands Coastal Zone Management Program; Working Discussion Draft. Office of the Governor, Virgin Islands Planning Office, CZM, Dec., 1976. Visual Quality and the Coastal Zone. Conference Proceedings. Sea Grant Visual Quality Project, School of Landscape Architecture, State University of N.Y., Syracuse, N.Y., 1976. Visual Quality in Land Use Control. Margaret A. Ross, Visual Quality of the Coastal Zone Sea Grant Project, Working Paper No. 1, Syracuse, N.Y. 1975. Wastewater Facilities Plan for Guam. Gillham, Koebig and Koebig, for DPW, 1977. Water Pollution Potential of Non-Point Sources: A Survey of Current Literature. -Joan Cabreza, GEPA, May, 1977. I 3 6668 14109 7446- --