Anchorage coastal management program concept approved : final report

[From the U.S. Government Printing Office, www.gpo.gov]

MUNICIPALITY OF ANCHORAGE

COASTAL MANAGEMENT PROGRAM

PPROVED

Municipality of Anchorage
George M. Sullivan, Mayor

----FINAL REPORT SEPTEMBER, 1979
_HT
393
A42
CONCEPT

A53 Physical Planning Division
1979 Planning Department
zz' Municipality of Anchorage
Pouch 6-650
Anchorage, Alaska 99502

ANCHORAGE COASTAL

MANAGEMENT PROGRAM

CONCEPT
PPROVED

FINAL REPOR@/
SEPTEMBER, 1979

Physical Planning Division
Planning Department
Municipality of Anchorage
Pouch 6-650
Anchorage, Alaska 99502

Municipality of Anchorage
George M. Sullivan, Mayor
Q41

1 0*

The preparation of this report was financed in partthrough a coastal zone management program
grant from the U.S. Department of Commerce under the provisions of Section 305 of the Coastal
Zone Management Act of 1972, as amended, and the Division of Community Planning, Depart-
ment of Community and Regional Affairs of the State of Alaska.

ANCHORAGE COASTAL MANAGEMENT PROGRAM
FINAL REPORT

MUNICIPALITY OF ANCHORAGE
ASSEMBLY

Paul Baer
Bill Besser
Ernie Brannon
Fred Chiei
Tony Knowles
Ben Marsh
Carol Maser
Dave Rose
Lidia Selkregg
Don Smith
David Walsh

PLANNING AND ZONING COMMISSION

Charles A. Champion
David Dorris
Grant Giesler
Nancy Gross
Barbara Hill
Shari Holmes
Dale Johannes
Raymond Pearce
Wilburn Privett

PARTICIPATING PLANNING STAFF

Tony Burns, Senior Planner Program Manager
Tom Nelson, Associate Planner

CONSULTANT

Howard J. Goldman
Attorney at Law

MUNICIPALITY OF ANCHORAGE

ASSEMBLY MEMORANDUM

NO. AM 652-79

Meeting Date: July 24,1979

From: Mayor

Subject: Coastal Management Plan

In accordance with AS 46.40 Sec 30, the Municipality of Anchorage has developed a Coastal Manage-
ment Plan in accordance with the requirements of the Alaska Coastal Management Program.
The Anchorage Coastal Management Plan utilizes a concept of land use suitability and subdivides the
coastal landscape into different functional units called coastal resource policy units. Each of the coastal
resources units was then analyzed to determine the various environmental impacts that could result from
various land uses and activities. As part of this process, all major existing federal, state and local
regulations were researched that applied to each coastal resource policy unit and where existing laws
were sufficient to meet and mitigate any development problems, no new regulations were proposed.
However, where deficiencies were noted, recommendations are made in order to comply with the
requirements of the Alaska Coastal Management Act. The land use suitability analysis and the legal
review were jointly used to develop recommended policies for each coastal resource policy unit.
The Anchorage Coastal Management Plan is thus a conceptual document containing specific recom-
mendations to be carried out upon receiving approval by the Municipality and the State of Alaska. The
Plan is not self executing but will require that ordinances be amended, new ordinances be developed,
that federal and state activities be monitored for compliance, and that management plans be prepared.
The plan will be adopted as part of the Anchorage Comprehensive Land Use Plan pending state review
and approval expected in January 1980.
The Hearing Draft of the Anchorage Coastal Management Plan has been generally well received by both
federal and state agencies as well as the public.

Recommended by:

Michael J. Meehan
Director of Planning
Respectfully submitted:

Submitted by: Chairman of the-Assembly
at the request of the Mayor
Prepared by: Planning Department
For Reading: July 24, 1979

MUNICIPALITY OF ANCHORAGE

ANCHORAGE MUNICIPAL ASSEMBLY RESOLUTION NO. AR 79-153

A RESOLUTION RECOMMENDING CONCEPTUAL APPROVAL OF THE
ANCHORAGE COASTAL MANAGEMENT PLAN - FINAL REPORT,
HEARING DRAFT.

BE IT RESOLVED by the Anchorage Municipal Assembly:
WHEREAS, AS 46.40.030 states that coastal resource districts shall develop and adopt district
coastal management programs in accordance with the provisions of the Alaska Coastal Management
Act and the Alaska Coastal Management Program, Standards and Guidelines, and
WHEREAS, a comprehensive Coastal Management Plan was developed for the Municipality of
Anchorage according to AS 46.40 6AAC Chapters 80 and 85, and
WHEREAS, a comprehensive Coastal Management Plan was developed which recognizes: 1)
The coastal area of the Municipality of Anchorage as a distinct and valuable natural resource of concern
w
o the people of Anchorage; 2) The demands upon the resources of coastal area are significant and will
increase in the future; 3) The protection of the natural, cultural and scenic resources and the fostering of
ise development of the coastal area, and
WHEREAS, the Anchorage Coastal Management Plan avoids the creation of new regulatory
structures wherever possible, relying instead upon existing federal, state and local authorities jo
implement the provisions of the Act, and
WHEREAS, the Anchorage Coastal Management Plan sets forth twelve specific recommenda-
tions to be carried out upon approval and;adoption of the plan. Such recommendations for implement-
ing the plan range from monitoring the issuance of permits, amending existing ordinances, preparing
and adopting new ordinances where necessary to meet the requirement of the Act, developing manage-
ment plans that address the standards and guidelines set forth in 6AAC 85.010-.110 and AS 46.40.030,
and including nominations for areas meriting special attention, and incorporating the Anchorage plan as
an element of the comprehensive plan.
NOW, THEREFORE, BE IT RESOLVED by the Anchorage Municipal Assembly that the Anchor-
age Coastal Management Plan and Resource Policy Maps, including the amendments described in the
addendum, be conceptually approved and forwarded to the Alaska Coastal Policy Council and Office of
the Coastal Management for adoption by the State of Alaska. Upon acceptance by the State of Alaska,
the Municipality intends to adopt the Anchorage Coastal Management Plan by ordinance.
PASSED AND APPROVED by the Anchorage Municipal Asembly this 28th day of August, 1979.

Attested by: Presiding Officer
Anchorage Municipal Clerk Anchorage Municipal Assembly

AMENDMENTS

The following amendments to the Municipality of Anchorage District
Coastal Management Program were adopted by the Alaska Coastal Policy
Council on January 16, 1980.

1. Class I Waters: Adopt the policy as listed on page 2 of
Volume II.
2. Selected Coastal & Upland Marshes and Wetlands: Adopt the
policy as listed on page 75 of Volume 1.
3. Tidal Flats: Adopt the policy as listed on page 75 of
Volume I.
4. Salt Water Marches: Adopt the policy as listed on page 75
of Volume 1.
5. Coastal Habitats: Adopt the policy as listed on page 10
of Volume II.
6. Hazardous Lands: Adopt the policy as listed on page 14
of Volume II.
7. Historical/Archaeological/Natural Areas: Adopt the policy
as listed on page 76 of Volume 1.
8. Coastal Food Zone: Adopt the policy as listed on page 76 of Volume
I.
9. Class I Waters: Adopt the policy as listed on page 20 of Volume II.
10. Class III Waters: Adopt the policy as listed on page 77 of
Volume I.
11. Scenic Corridors, Areas and Vistas: Adopt the policy as listed
on page 77 of Volume I.
12. Park & Recreation Areas: Adopt the policy as listed on page
26 of Volume II.
13. Marginal Lands: Adopt the policy as listed on page 78
of Volume I.
14. River Floodplains: Adopt the policy as listed on page 78
of Volume 1.
15. Open Space: Adopt the policy as listed on page 78 of Volume I.
16. Forestry and Game Management Areas: Adopt the policy as listed
on page 78 of Volume I.
17. Class IV Waters: Adopt the policy as listed on page 78 and
79 of Volume I.
18. Urban Residential: Adopt the policy as listed on page 79 of
Volume I.
19. Urban Development: Adopt the policy as listed on page 79 of
Volume I.
20. Urban Waterfront: Adopt the policy as listed on page-80 of
Volume I.
21. Rural: Adopt the policy as listed on page 80 of Volume 1.

TABLE OF CONTENTS
Page Page
INTRODUCTION ....................... ii Use: Fish and Seafood Processing ..... 29
Appendices .......................... iv Use: Timber Harvesting and
Processing .......................... 29
CHAPTER I - An Overview of Coastal Use: Mining and Mineral Processing ... 29
Resources And Issues in Use: Subsistence ..................... 29
the Upper Cook Inlet Geophysical Hazards ................. 30
Environment Air, Land, and Water Quality ........... 30
Introduction .......................... 1 Important Upland Habitat ............. 31
Physical S6ting ....................... 1 Uses of State Concern ................ 32
Cook Inlet Physical Description ....... 2 Erosion Planning Element ............. 32
Geology ............................. 2 Energy Facility Siting Planning
Estuaries ... ......................... 2 Element ............................ 33
Estuaries and Coastline Federal Requirements ................. 33
Characteristics ...................... 2 State Requirements ................... 33
Bathymetry .......................... 2 Definition of Major Energy Facilities ... 33
Surface Circulation ................... 6 Energy Facilities Likely to Affect the
Coastal Zone Geologic Risk Coastal Zone ....................... 33
Phenomena ......................... 6 Shoreline Access Planning Element .... 35
Tsunamis ............................ 6 CHAPTER III - The Planning Methodology
Volcanos ............................. 6 and Process
Floods ............................... 6 Introduction .......................... 37
Water Quality ........................ 13 Balanced-Use Philosophy ............. 37
Biological Resources of Upper Preservation, Conservation, Utilization
Cook Inlet .......................... 13
Social, Cultural and Economic Concept ............................ 38
Resources .......................... 13 Coastal Zone Management Planning
Population ........................... 13 Philosophy ......................... 39
Resource Ownership and Use ......... 14 The Planning Methodology ............ 39
ses in the Anchorage Coastal Area ... 15 Water Dependent/Water Related
Present Conditions ................... 16 Uses ............................... 45
CUonclusion ........................... 17 The Approach to Establishing
Declaration of Policy .................. 17 Permissible Uses .................... 45
The Need for Coastal Management .... 17 CHAPTER IV - The Resource Inventory
Economic Productivity ................ 19 and Analysis
Livability ............................. 21 Introduction .......................... 49
Natural Resource Base ................ 22 Inventory Format: Maps ............... 51
The Role of Local Government in Planning Unit ........................ 52
Coastal Management ................ 23 The Inventory ........................ 54
Summary ............................ 23 On-Going and Future Programs ....... 64
Goals and Objectives ................. 23 Estuarine Water Quality Impacts ....... 64
State/Local Government Interaction . .. 24 CHAPTER V - Anchorage Resource
CHAPTER 11 - Requirements of the Alaska Management Coastal
Coastal Management Act Environments
Introduction .......................... 26 Introduction .......................... 69
General Policy ....................... 26 Preservation .......................... 69
Development of District Coastal Conservation Environment ............ 70
Management Programs ................ 26 Utilization Environment ............... 70
Requirements of the Regulations ...... 27 Preservation Environment Coastal
Boundaries ........................... 27 Resource Policy Units ............... 70
Resource Inventory .................... 27 Conservation Environment Coastal
Resource Analysis .................... 27 Resource Policy Units ............... 71
Subject Uses ......................... 27 Utilization Environment ............... 72
Proper and Improper Uses ............ 28 Policies Applicable to Environments ... 73
Policies .............................. 28 Preservation Environment General
Implementation ....................... 28 Policies ............................. 73
Public Participation ................... 28 Conservation Environment General
Use: Coastal Development ............ 28 Policies ............................. 74
Use: Recreation ...................... 28
Use: Historic, Prehistoric and Utilization Environment General
Archaeological Resources ........... 28 Policies . ........................... 74
Use: Energy Facilities .: * * * * *:''** ... * ' 28 Resource Policy Unit Goals and
Use: Transportation and Utilities ....... 28 Policies ............................. 74

TABLE OF CONTENTS (CONT.) J
Goals and Recommended Policies ..... 74 CHAPTER VIII - Implementation
Preservation Environment ............. 74 Existing Federal and State Controls .... 111
Conservation Environment ............ 76 Existing Local Controls ............... 111
Utilization Environment ............... 78 Uses and Areas in Need of Additional
CHAPTER VI - Boundaries of the Coastal Control ............................. 112
Zone Management Program Recommendations ..................... 113
Requirements ........................ 81 Recommended Implementation Process
and Future Work Program ........... 114
CHAPTER VII - Areas Meriting Special Compliance with Guidelines and
Attention Standards .......................... 116
Introduction .......................... 87 BIBLIOGRAPHY ........................ 139
The Process of Determining Areas
Meriting Special Attention ........... 88
Areas Meriting Special Attention #1 .... 90 APPENDIX A - Inventory of Major Existing
Areas Meriting Special Attention #2 .... 92 Federal, State, and Local
Areas Meriting Special Attention #3 .... 94 Land and Water Use
Areas Meriting Special Attention #4 .... 96 Controls Relevant to the
Areas Meriting Special Attention #5 .... 98 Municipality of Anchorage
Areas Meriting Special Attention #6 .... 100 Coastal Zone ............. 143
Areas Meriting Special Attention #7 .... 102 APPENDIX B - Memorandum of Under
Areas Meriting Special Attention #8 .... 104 standing .................. 161
Areas Meriting Special Attention #9 .... 106
Areas Meriting Special Attention #10 ... 108 APPENDIX C - Documentation ........... 167

LIST OF TABLES
Chapter/Table Content Page
1-1 Tides ............................................................... 12
1-2 Eruptive History ..................................................... 12
111-3 Resource Policy Units . 40
111-4 Preservation-Conservati*o"n*-*U't'ili*z'ati'o*n* * M*'a't*ri*x* 44
111-5 Impact Tables ....................................................... 46
111-6 Impact Tables ....................................................... 47
IV-7 -Scenic Value Assessment Criteria ..................................... 68
V111-1 -
VIII-22 IMPLEMENTATION RECOMMENDATIONS ........................... 117-138

AREAS MERITING SPECIAL ATTENTION
VII-13 Seward Highway Scenic Corridor ..................................... 91
VII-14 Old Girdwood Townsite .............................................. 93
VII-15 Bird Creek Regional Park ............................................. 95
VII-16 Fish Creek Restoration .......... 97
VII-17 Pt. Campbell-Pt. Woronzof Coastal Wetlands .......................... 99
VII-18 Port of Anchorage Urban Waterfront Zone ............................. 101
VII-19 Eagle River (drainage) Special Study Zone ............................ 103
V 11-20 Pt. Woronzof Bluffs .................................................. 105
V 11-21 Pt. Campbell Dunes .................................................. 107
VII-22 Andesitic Dike ....................................................... 109

MAPS AND FIGURES
Content Chapter/Page
Regional Maps of Cook Inlet ................................................... 1-3
Map of Cook Inlet Basin ....................................................... 1-4
Map of Alaska/Alaska Peninsula ................................................ 1-5
Earthquake Belts of the World .................................................. 1-7
Faults & Seismic Areas in Alaska ............................................... 1-8
Earthquake with Magnitude .................................................... 1-9
Tsunami Speed ................................................................ 1-10
Volcanos of the Cook Inlet Region .............................................. 1-11
Procedural Flow Diagram ...................................................... 11-34
Anchorage Coastal Management Planning Process .............................. 111-42

ANCHORAGE COASTAL RESOURCE DISTRICT MANAGEMENT PLAN
INTRODUCTION

The coastal areas of Alaska have been described as The Alaska Coastal Management Act of 1977 pro-
unique, valuable, diverse, productive, and impor- vides for trying to resolve the many controversies
tantly, finite. The sum of the economic and natural over how to use or not use the land and waters of
resource values found atthecoast makesthis areaa Alaska's coast through the development and use of
most important piece of geography. District Coastal Management Programs. The dis-
It is not surprising that the demands on coastal trict management concept is a unique, pioneering
resources have begun to surpass the ability to serve effort to bring local plans and regulations, and plans
all needs. Competition for space - for water- of all public agencies, into conformity with state-
aependent industry and transportation, energy facil- wide policies, standards and guidelines relating to
ities. housing, food and f iber production, and pqblic coastal resource management.
recreation - is outstripping opportunities to accom- Local governments have traditionally been respon-
modate, in an orderly manner, all that is sought. In sible for land use decisions within their boundaries.
response to these pressures. a number of states Coastal management programs will influence the
began, in the 1960's, to develop comprehensive way in which these decisions are made in the future.
coastal management plans. Congress entered the Under any coastal management program, states
picture in 1972 through enactment of the Coastal will have a more direct role. The role of local
Zone Management Act, stimulated, in part, by the governments will vary with the structure of each
findings of the Stratton Commission Report which program and will depend in part on the interest and
concluded that: ". . . effective coastal management willingness of local governments to participate.
to date has been thwarted by a variety of govern- The Alaska Coastal Management Act of 1977 created
mental jurisdictions involved." the Alaska Coastal Policy Council to help put all of
Congress fashioned the Coastal Zone Management the local plans together into a statewide Coastal
Act to create a partnership among the governmental Management Program. The Council's responsibili-
units developing coastal resource management ties include making sure that coastal boroughs,
programs. The basic thrust of the act is to recognize municipalities. and cities look at all the opportuni-
the national, regional, state, and local interests in ties for development and possible problems in their
coastal resources through a precedent inter-govern- areas, and making sure that all the state and federal
mental network and to establish balanced resource agencies respect the local plans once these plans
management plans which recognize the need for are completed and approved. Under this law the
economic development while at the same time pre- State of Alaska has mandated specific controls
serving, protecting, and where possible. restoring (guidelines and standards) over the coastal zone
vaiuable coastal resources. Implicit in this mission and also established a state review of district plans
is the creation of conflict resolution mechanisms to and, therefore, land use plans and ordinances hav-
make the hard resource allocation choices. ing an effect on the coastal area. This was done
The Alaska Coastal Management Act of 1977 de- because it was felt that returning full controlto local
clared that Alaska's coast is a distinct and valuable governments without any state review or appeal
resource of vital and enduring interest to all people; authority would generally result in uneven implemen-
but how is this concern for the future translated to a tation.
particular piece of coastal property, a bluff top lot. A state's coastal zone management program must
an urban water front, or a coastal wetland system? provide for any one or a combination of three
Anchorage's coastal management program at- approaches for the control of land and water uses
tempts to answer these issues and put forth imoie- within the coastal zone. That is, states may estab-
mentation techniques and methods to meet'the Iish: (1) criteria and standards for local impiementa-
issues and needs. tion, subject to administrative review and enforce-

ment of c ompliance; (2) direct state land and water the Municipality a management tool it never could
use planning and regulation; (3) state administrative have developed internally. This requirement will
review for consistency with the management pro- permit better planning coordination as well as the
gram of all development plans, projects, or land and forging of consistent federal, state and local govern-
water regulation. ment relations. With both the State of Alaska and the
The Alaska Coastal Management program follows Federal government owning large amounts of land
option #1, local implementation with State guide- in the Anchorage coastal area. the.need for coopera-
lines. According to this type of management, Alaska tive and coordinated management of Anchorage's
established criteria and standards for local implemen- coastal resources will be needed as growth in the
tation, with review by the State for conformity of Municipality continues.
local plans with such criteria and standards, and The third opportunity resulting from passage of the
enforcement of compliance if the local government Alaska Coastal Management Act is the ability of
should prove unable to enforce those plans. Once local governments or coastal resource districts to
the local plans are accepted by the State, the look beyond their immediate political boundaries.
primary responsibility for managing coastal areas Local governments can now begin to look at
would reside with the local governments. regional-type planning issues. For example, water
In compliancewith the Alaska Coastal Management quality and air quality, two major impacts that result
Act, the Municipality of Anchorage has developed a from increased urbanization, are issues that must be
district program for coastal resource management addressed at the regional level as well as the local
presented in the following pages of this document. level.
The district program specifically addresses the Of particular importance to Anchorage is complete
issues, goals and objectives of coastal management coordination, cooperation and integration of its
as well as complying with the requirements of the coastal management plan with those of the
Alaska Coastal Management Program. Matanuska-Susitna and Kenai Boroughs. The coast-
Anchorage's development of coastal management al zone is a system, a delicately balanced, dynamic,
underSection 305 planning grant funds has afforded biophysical system, Inappropriate decisions or
+the Municipality some particularly noteworthy oppor- actions made by any of the two adjoining boroughs
tunities for increasing the awareness and effective- could result in significant environmental impacts. IN
ness of coastal resource planning and manage- Anchorage could not successfully implement a
ment. The first is a new incentive to inventory, coastal management plan unless that plan is com-
analyze and evaluate natural resources within both plementary with those coastal plans of Kenai and
an urban and rural environment and to prepare Mat-Su Boroughs.
management plans for dealing with them and incor- Chapter 1 discusses the needs, goals, and objec-
porating this information into the land use planning tives of the Anchorage area in relationship to coast-
process. The result is the opportunity to view land al management planning. Chapter 1 provides a gen-
use planning in a new perspective. Traditionally, eral description and overview of the geography of
planning at the local government level has directed the Upper Cook Inlet environment and relates the
its efforts toward land use planning/ that is, the environmental parameters to the economic produc-
allocation of specific types of land uses to different tivity, livability, and natural resource base of the
parcels of land within its jurisdiction. However, Anchorage area.
local planning has not traditionally planned for
natural resource management. The emphasis of the Chapter 2 provides an overview of the requirements
coastal management program, which is geared in of the Alaska Coastal Management Act. Contained
part to economic development, is, however, aimed within the chapter are the specific requirements as
primarily at the management and protection of outlined in the Alaska Coastal Management pro-
natural resources found within the coastal area. gram document as well as a general articulation of
This is important because it appears that the state State policy. A discussion is presented which out-
program was based on the concept that, while there lines the Municipal network necessary for imple-
is a tendency for local governments to place higher menting and managing a coastal resource man-
regard on direct economic benefits than on regional agement program as well as a statement identifying
or state environmental values, it still would be the management authority of the local government
politically appropriate for local governments to to implement a coastal management plan and the
have the primary responsibility for initiating and state local government coordination activities re-
administering regulatory programs in the coastal quired to implement a plan.
area. The Alaska initiative appears to have been Chapter3 is somewhat more technical and presents
designed to broaden the planning base and gen- the planning methodology and process utilized to
erally is oriented toward protection and manage- prepare Anchorage's district plan and regulations. It
ment of important environmental resources while is the draft coastal resource management plan from
recognizing the need for development. which policies were derived. The chapter outlines
The second opportunity stems from the Act's Fed- the planning process used to determine direct and
eral Consistency Requirement. This provision offers significant impacts on coastal waters, identify coast-

al management boundaries, identify areas meriting Chapter 6 delineates the proposed coastal man-
special attention, identify proper and improper uses agement boundary for the Municipality of Anchor-
and other elements of the ACMP program document. age. The chapter covers initial planning boundaries
set by the State and sets forth the criteria which
Chapter 4 provides an overview of the resource must be met in order to delineate a managem e nt
inventory and analysis conducted by the Municipal- boundary different from that of the initial planning
ity. The Municipality of Anchorage was divided into boundary.
three planning units: Turnagain Arm, Anchorage
Bowl, and Eagle River. Chapter 7 deals with another specific element of the
Alaska Coastal Management Act: Areas Meriting
Many of the specific requirements of the Alaska Special Attention. For each of the planning units
Coastal Management Act are or can be satisfied by within the Municipality, specific geographic areas
the Municipality in the natural course of its planning meeting the criteria as specified in the Alaska Coast-
and management practices. However, others are al Management Program document have been iden-
more technical and require special attention. Chap- tified and delineated as part of the program require-
ter 5 molds the information contained in previous ment.
chapters into a framework upon which the coastal Chapter 8 presents the plan for implementing the
management plan is based. Chapter 5 attempts to Anchorage Coastal Management Program.
divide the Municipality into one of three broad
environmental classifications. These environmental APPENDICES
classifications are composites of many sub-areas, A. Existing Federal, State, and local land and water
or resource policy units as they are called in the use controls relevant to the Municipality of
coastal management program. For each of these Anchorage Coastal Zone.
environmental designation and resource policy B. Record of public participation efforts, including
units, goals and policies are stated. Federal and State agency input and review.
The Alaska Coastal Management Act specifically 0. Memorandum of Understanding between the
addresses thirteen uses and activities in the coastal Municipality of Anchorage and the Division of
area. For each of the uses and activities identified by Policy Development and Planning implementing
the state, districts must address appropriate goals, the OMB Circular A-95 and Section 307 of the
objectives, and policies for permitting or not per- Coastal Zone Management Act of 1972 (as
mitting these activities within the coastal area. amended).

CHAPTERI

AN OVERVIEW OF COASTAL RESOURCES AND ISSUES
IN THE UPPER COOK INLET ENVIRONMENT

INTRODUCTION non-andromous fisheries of the lower inlet -
The Cook Inlet area of south central Alaska is cur- including commercial operations for herring,
rently undergoing themost intenseand rapid devel- shrimp, and crab. and sports fishing for halibut -
pment in the State of Alaska. The Municipality of are, of course, limited by the extent of relatively
Anchorage, the state's largest and most populated sediment free normal sea water (Evans, et al., 1972).
Ocity. is located at the head of Cook I nlet on a roughly Essentially all non-solid sewage and industrial waste
triangular piece of land between the Knik and Turn- from the city is discharged into the inlet. Circulation
again Arms of Cook Inlet. Anchorage is the center of determines the localized impact of contaminants in
transportation, commerce, recreation and industry. the water - the dispersion of wastes or the distribu-
With a current population of 202,101 ' and a pro- tion and behavior of oils from a platform or valve
jected population of 507,000 'in twenty-five years, along a shoreline. The circulation patterns present
theuseof Cook Inlet as a water transportation route in Cook Inlet determine the distribution and disper-
to the Municipality will increase as the area devel- sal of any major pollutant. The effect of strong tidal
opment continues. Associated with this futureclevel- currents on the unconsolidated bottom sediments
opment will be increased estuarine pollution. Of of upper Cook Inlet are of important consideration
particular concern to many governmental agencies in the engineering, design and construction of oil
and residents is a need to control and alleviate the pipelines, platform and terminals - such as is pro-
environmental disturbances that are and will be posed for thesouth side of Ship Creek in Anchorage.
associated with this rapid coastal zone development. Suspended sediment is currently the most detri-
PHYSICAL SETTING mental and serious pollutant found in upper Cook
The following discussion of the physical environ- Inlet. An understanding of how this sediment is
ment and coastal resources of Cook Inlet is of far transported and circulated is important because as
more than academic interest. An understanding of Anchorage continues to grow and uses of coastal
*the physical, biological and oceanographic pro- resources increase in coastal locations, impacts on
cesses are important to both systematic environ- coastal waters will increase. It is estimated that
mental protection and resource development as newly developing areas can produce as much as
well as coastal zone management in the entire Cook 20,000 - 30,000 times more sediment than natural
In I et area. undisturbed areas. High sediment loads are also
Strictly by coincidence, the majority of the turbid troublesome in that siltation of ports. marinas and
water in Cook Inlet originates from Knik and Turn- other water dependent industries is of enormous
gain Arms, adjacent to Anchorage, Alaska*s popula- economic impact.
tion and industrial center. Offshore oil activities are Upper Cook Inlet is subject to severe ice problems
also largely confined to the upper inlet. Cook Inlet in winter. Most ice in the upper inlet is floe ice which
supports a major salmon fishery. Significant fisher- can increase in thickness as much as one inch per
ies for king and tanner crab, shrimp and herring are day and form cakes as thick as four feet. This situa-
found in the sediment-free sea waters of lower Cook tion is further complicated by large piles of ice,
Inlet. An understanding of circulation patterns will called stamukki. formed on tidal flats from beach ice
permit prediction of the behavior of any oil spills and broken free, deposited higher on these stamukki
an analysis of potential threats to the shorelines of and as the tides recede. the overhanging portions
Anchorage and its fishery resources. break off leaving stacks of layered ice. During
The salmon fishery presents a good example of the extreme high tides these can go adrift and previous
need for this understanding and shows the relation- observations have found some to be greater than 40
ship of the fauna to the environment. The fish rou- feet thick. These can and do cause difficulties with
tinely enter the inlet on their spawning run and pro- shipping, but also scour the inlet floor and shoreline
ceeci with the tide, dropping to the bottom to rest causing various impacts.
when the tide sets against them. Apparently. also, Cognizance of the physical parameters will then
they tend to mass for a time near the boundary assist in identifying the issues that must be dealt
between the clear and turbid waters before they with in developing a coastal resource plan for
make ltheir final run to the spawning streams. The Anchorage. The intent here is to lay some basic

Aicno,are. @@ an r(n.: Dec!. isz.m ate @s or _,v

foundation from which to initiate a discussion of its simplest form then, the basin is a graben,
coastal zone management and implementation bounded by major fault zones on the north, westand
strategi'es, and to establish a basis from which to east. Associated with this are five active volcanoes
identify goals and objectives of a coastal manage- along the western side of Cook Inlet. Seismic activ-
ment plan. ity has been active at various times along these fault
COOK INLET PHYSICAL DESCRIPTION zones.
Cook Inlet is oriented in a northeast-southwest ESTUARIES
direction and is approximately 180 miles long. The Cook Inlet by definition is an estuary: "A semi-
inlet is a large, cold water tidal estuary of the Gulf of enclosed coastal body of water which has a free
Alaska, bounded on the west, north and east by the connection with the open sea and within which sea
Alaska, Talkeetna and Chugach Mountains (Figure wter is mesuably diluted with fresh water derived
1). The Inlet is divided geographically into a north- from land drainage." According to the U.S. Army
ern and southern region by the East and West Fore- Corps of Engineers, Cold Regions Research and
lands. Upper Cook Inlet is characterized by extensive Engineering Laboratory, Cook Inlet is considered a
tidal marshes, lowlands, high turbidity, variable positive, tidal estuary formed by tectonic processes
salinity, high suspended sediment loads, high veloc- and is characterized by more runoff and precipita-
ity currents and some of the highest tides in the tion than evaporation resulting in dilution of sea
world with average diurnal ranges from 13.7 feet at water by fresh water. Cook Inlet is dominated by
the entrance to 33 feet in Anchorage. Cook Inlet tidal action with strong tidal currents and mixing.
terminates in the Knik and Turnagain Arms, which ESTUARY AND COASTLINE
border the Municipality of Anchorage on the west CHARACTERISTICS
and south. Knik and Turnagain Arms are 45 and 43
nautical miles long, respectively. The Chugach The Cook Inlet coastal configuration is character-
Mountains border Anchorage on the east. ized by sea cliffs extending from Kachemak Bay to
The Municipality of Anchorage covers an area of Turnagain Arm. Pocket beaches occur along thie
coast. The head of Turnagain Arm is characterized
approximately 1950 square miles, but only about 15 by extensivetidal flats and marsh wetlands, particu-
percent of that is suitable for human habitation. larly near the outlets of Twenty Mile, Glacier and
The Susitna River, Matanuska, Knik, Eagle, Twenty- Placer rivers. At low tide the Turnagain Arm is
mile, Placer, Glacier and numerous smaller rivers mostly exposed tidal flats with only a few main
and creeks contribute to a high proportion of the channels draining the waters flowing into the Arm
fresh water of the Inlet and have a mean combined The mountains adjacent to the Turnagain Arm slope
annual flow of 43,600 cubic feet per second. The abruptly into the water body. Turnagain Arm is
majority of these rivers and streams are heavily noted for its extreme tidal range (30 ft.) and frequent
laden with glacial silt and as a result contribute a tidal bores. As a result of an abundant supply of
heavy sediment load to the Inlet. sediments and high tidal energy, extensive areas of
GEOLOGY intertidal silt and sandbars have developed. Many
The Cook Inlet basin (Figure 2), according to Cook areas along the Arm experienced major subsidence
Inlet Environment, A Background Study of Avail- as a result of the 1964 earthquake.
able Knowledge, August 1972, is a topogrpahic, At Potter Marsh, the topography changes abruptly
structural and sedimentary basin containing approxi- and enters the Anchorage coastal plain character-
mately 60,000 - 70,000 cumulative feet of marine and ized by a shoreline of sea cliffs with elevations rang-
non-marine sedimentary and volcanic rocks rang- ing from 25 to 100 feet in height, and pocket beaches
ing in age from Late Polcozoic to recent. The Inlet is where streams enter the Turnagain and Knik Arm.
described as a narrow elongate troughlike depres- Extensive tidal flats and wetlands surround the
sion covering approximately 15,000 square miles majority of the Anchorage coastal lowland.
and being roughly 200 miles long and 70 miles wide. Extending up the Knik Arm the coastline is generally
Seventy percent (70%) of the basin is covered by the characterized by sea cliffs of low elevation but as
waters of Cook Inlet. The geologic history of the one approaches the head of the Knik Arm. a vast
basin is complex and recent geologic history has wetland, similar to that of Turnagain Arm, islocated.
consisted primarily of erosion and modification of
mountainous areas during glacial and interglacial Theinletis bordered by morethan 100squaremiles
cycles with partial filling of the lowland areas and of tidal marsh, most of which is located in upper
valleys with quaternary glacial drift and associated Cook Inlet.
deposits. BATHYMETRY
Structurally, the basin is an elongate/ a deep mod- Cook Inet, north of the forelands, is generally less
erately asymmetrical basin. The Cook Inlet area, than 20 fathoms in depth. Turnagain and Knik Arms
regionally, is near the axis of the Alaska orocline are the shallowest areas with much of the bottom
(Figure 3), the tectonic feature so clearly expressed exposed as tidal flat at low tide. The depth of Cook
by the topography. The axis of the orocline repre- Inlet gradually deepens to approximately 80 fathoms
ents the juncture of two great tectonic systems. In at the mouth of 'the Inlet.

I0. AtCtORAGE (3 11

Ut sow
Flow pve@ 0-t

al.Wt* pf.

14 A I

PENINSUL4

feet F.10J."d
We.. I-A."

KFNA

ftelf."
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woveir I#-

All 11.
so
"OVE

-zo
41j

',NORTH

A LASKA a."$*$

PENINSULA
0 10 zo Nautical miles

REGIONAL MAP OF COOK INLET Figure 1
3

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-n 0 SU51 TAIA .1
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COOK INLET
,:75UBPROVINCF.

AXIS OF-
ALASKAN OROCLINE

fw ALASKA. PENINSUZA COOK INLET PROVINCE

MAP OF ALASKA SHOWING ALASKA PENINSULA - COOK INLET PROVINCE Figure 3

SURFACE CIRCULATION ordinances, uniform building codes and other land
The circulation pattern of the Inlet is strongly influ- use regulations are developed to deal specifically
enced by bathymetry, morphometry and fresh water with these risk zones.
drainage. Because of the large tidal fluctuations in The Municipality has, under contract, conducted a
the shallow, narrow embayments of Turnagain and
Knik Arms, Iwater in the upper Inlet is well mixed. geophysical hazards asessment study that identi-
Surface runoff is highest during summer and results fies various hazards and delineates each. Results of
in a net outward movement of water from the upper the study are incorporated in the coastal map set.
Inlet. During the winter, with reduced runoff, there is TSUNAMIS
virtually no net outflow. Tsunamis also pose a potential hazard to coastal
lands of Anchorage; however, the probability locally
COASTAL ZONE GEOLOGIC is less compared to other coastal areas more
RISK PHENOMENA exposed. Because of Anchorage's protected loca-
The Alaska seismic zone, ext6ndingfrom Fairbanks tion in upperCook Inlet, waves generated outside of
to the Gulf of Alaska, is part of the near-continuous the Inlet would have difficulty entering. The factors
seismically and volcanically active belt that cir- of shallow waters in Knik and Turnagain Arms, plus
cumscribes the entire Pacific Ocean basin. It has the turbulent nature of their tides and currents,
been estimated that approximately seven percent of would reduce a tsunami wave and impact.
the earthquake energy released world-wide origi- While tsunami risk is minimal, there does exist a risk
nates in the Alaska seismic zone. Between 1899 and in the Anchorage area. Earthquakes with epicenters
1965, nine Alaska. earthquakes have equaled or in the Inlet or volcanic events across the Inlet could
exceeded a magnitude of 8 on the Richter scale, and produce a significant wave that could cause signifi-
more than 60 have equaled or exceeded magnitude cant damage to vessels and low-lying coastal struc-
7 (Hansen et. al., 1960) (Figures 4, 5, 6). tures and facilities (Figure 7).
Cook Inlet is included in seismic risk zone 3, and as Potential tsunami damage can be minimized by (1)
Anchorage's population increases the potential loss planning for safe economic development and land
of life due to earthquakes and related catastrophes use, (2) preparing effective land use regulations
similarly rises. dealing with the hazard, (3) identifying areas sub-
ject to such hazards and mapping the inland extent
Damage to Anchorage as a result of earthquake of potential danger.
activity can be caused by a variety of factors includ-
ing: direct seismic vibration, ground breakage, mud VOLCANOES
or sand emission from breaks, ground lurching, The western side of Cook Inlet is the location of five
landslides, fires, seawaves, and land level changes. volcanoes: Mt. Spurr, Mt. Redoubt, Mt. Iliamna, Mt.
Past experience has shown that areas of poor soil Augustine and Mt. Douglas (Figure 8). With thle
stability including offshore and waterfront areas exception of Mt. Douglas, all of the Cook Inlet vo -
exposed to potential tsunamic runup are the most canoes have erupted in historic time; an.d there have
vulnerable. been four eruptions in the past 20 years (Spurr '
During the 1964 earthquake an area from between 1953; Redoubt, 1966; Augustine, 1963-1976) (Table
70,000 to 110,000 square miles was tectonically 2).
uplifted or depressed. Much of the Anchorage area Mt. Augustine is active and considered potentially
was in an area of general subsidence (Plafker, eruptive, and thus is presently poses the greatest
1969). Damage was caused by direct seismic vibra- volcanic hazard to Anchorage, particularly to fisher-
tion, by landslides and by ground cracks. Land- ies, airlines, and coastal situated facilities. It is cap-
slides were attributed to the failure of Bootlegger able of producing a "krakatoan" eruption capable of
Cove Clay, a glacial estuarine-marine deposit producing large magnitude explosions, very des-
underlying large areas of the Anchorage bowl. Boot- tructive seawaves, ash fall out, and explosive ash
legger Cove Clay under vibratory stress of the clouds producing turbulent columns up to 40.000
earthquake failed along zones of low shear strength. f eet.
Evidence of such landslide activity is most notable FLOODS
along the shoreline at Turnagain Heights, L Street Historically, floods have not been a major problem
and the 4th Avenue Buttress areas. The widespread in the Anchorage area. However, small scale flooding
damage in Anchorage during the 1964 earthquake does occur in many of Anchorage's streams. For
reflects the fact that in many instances residential example, recently many structures have been built
and commercial structures were built on relatively on flood plains (Chester and Campbell Creek) and
unstable sedimentary rocks that amplify seismic are subject to flood damage. Floods result from
motions. This geologic factor greatly increases the above average runoff, from rain or snowmelt. or
seismic hazard. Seismic risk in Anchorage coastal from ice blockage of drainage during the winter
zone can be reduced if (1) the risk area can be months.
identified and rated according to its potential sever- The Municipality currently has a flood plain ordi-
ity, (2) if the design of structures takes into consid- nance in effect and it is the simplest method of
eration such potential seismic forces and risks, (3) preventing undue flood damage. However, addi-

EXPLANATION

8ROOKS RASGS
0 0 6.0-6 9
0
0 1
0 7.75-8.5
Filled cirel#e
=
mwenter>50 K-M
h

'PA

0
.00.

0
$;EUTTAN IS
.00* *..a 0
S rk
.?@ 0 0
1 00
""CS *0
AMOREA140F ISLA1405 tt
0 0
*0 .0e ....... Fl-
0 o -00 0 SOO f4fLES
P, L.........
-d 0

'0
0

Fig. IV-1 EPICENTERS OF NLkJOR ALASKAN EARTHQUAKES, 1898-1961
from Hanson et al., 1966,

. . . . . . . . . . .
.70eya 54AI A7;3dlAe15C0
4 nAm r/ c

0cF-j1v
4w1dr

1jV01AA1 COCZAV

EARTHQUAKE BELTS OF THE WORLD. THESE BELTS COINCIDE WITH THE EARTH'S
OROGENIC ZONES AND CONTAIN MOST OF THE EARTH'S ACTIVE VOLCANOES
7

. . . . . . . . . . . .

.0000

2 3

%
eleool

-000
,wo,"O" ......... 00#0 :@V
0-,w . Cab

00
"EMEWAO.. .00.0wo

Major Faults

000.0 don%. Seismic Zones
1--Minor structural damage C3.0-4.5)
2--Moderate structural damage (4.5-6.0)
3--Major structural damage (6.0-8.8)

Source: Compiled in 1971 by the Federal Field Committee for
Development Planning in Alaska from authoritative sources.

FAULTS & SEISMIC AREAS IN ALASKA Figure 5
8

m
>

"CHORAGE

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>

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m
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00 0 0
Old 0
0 0

(D
0)

C:
2
> Speed (mlih) 670 600 519 424 299 212 94 30

En
M
M DelIJI (feet)3j,000 24,000 18,000 12,000 6,000 3,000 U00 60
M

M
M
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C:
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0
M _66
a V.W.Wj

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M
Tsunami speed is determined solely by water depth,
0
h and this fixed relationship makes it possible to
C) forecast tsunami arrival-times for distant locations.
0
3 The tsunami illustrated here, although somewhat
3
exaggerated in the vertical dimension, is characteristic.
0
CD

MOUNT SPURR

Anchorage

0",

RED(XJBT-z:l 2
VOLCANO

ILIA14N.A.
VOLCXNO

ISLAND English
Bay

0 Platforms
4DV A0 Transmission Line
MT. DOUGLXS Pipelines
1 Diift River Terminal
2 Kenai Terminal
3 Beluga Power Plant

VOLCANOES OF THE COOK INLET REGION Figure 8

TABLE 1-1

Kenai Anchorage
Datum Plan (Lower Cook Inlet) (Upper Cook Inlet)
Highest Tide 26.00 35.80
Mean Higher High Water 20.70 29.60
Mean High Water 19.90 28.90
Mean (half) Tide Level 11.05 15.55
Mean Low Water 2.20 2.20
Mean Lower Low Water 0.00 0.00
Lowest Tide -6.00 -4.90
Mean Range 17.70 26.70
Diurnal Range 20.70 29.60
32.00 40.70
Extreme Range

TABLE 1-2

ERUPTIVE HISTORY OF COOK INLET VOLCANOES
Four volcanoes have erupted in the Cook Inlet Area in historic time. These volcanoes and their recorded
eruptive activity are listed below:
Augustine Redoubt Iliamna Spurr
1812; active 1778; active 1741; grew quiet 1953: ash eruption
(fall out on Anchorage)
1883: violent eruption 1819; smoke 1768; smoke 1954: ash eruption
with ash and mudflows
1885; steaming shore to 1902, active 1778; resumed action
summit
1935: lava eruption 1933: smoke 1779;a ctive
1963: Nov. 7th 1966-1968; recurrent 1786: smoke
explosions and turbulent
clouds to elevations
over 40,000 feet
1964: July 5th, and 1867: ash eruption
August 19th
1976; Aug. - fall out 1876@ smoke
on Anchorage 1933; smoke

1947: smoke

1952-53; smoke

Present
State:

-- .........I.......... ........... ...... ..... ...... ........... ......... ......... ... .................. ............................. ............................................
Lava dome moving Small lava dome extruded Continuing fumarolic Continuing fumarolic
Upv,jard. and con at head of fissure vent activity near summit activity near summit
tinually degassing; in 1967-68. Dome is
recurrent mic,oearth degassing, rnicroearth
quake activitv quake activity level
oresently unknown

tional consideration needs to be given to such Turnagain Arms serve primarily as a migration route
factors as vegetation removal and revegetation for salmon migrating to freshwater spawning
practices in flood plains as an additional means of streams during the period May through September.
containing floods and reducing sedimentation and Limited set net fishing is conducted in the upper
erosion. Inlet, however.
Coastal flooding can be a serious hazard. Highly The greatest potential for impact to fishery re-
erodable soils along the coastline, icescouring, and sources in Cook Inlet is development activity. The
high velocity currents create problems. Storm driven fishery resources are important not only because of
waves pose a threat to low lying coastal facilities, significant commercial and sport fishing purposes,
although the protected location of Anchorage does but secondary economic and social benefits asso-
have a tendency to ease the problem most of the ciated with tourism and sport fishing. Fishery
time. resources are sensitive to numerous factors related
WATER QUALITY to human activities, and effective planning in the
Base data regarding the water quality of the numer- coastal zone is required to ensure maintenance of
ous streams and drainage basins in Anchorage is these important renewable resources. The intertidal
limited. Outside of the immediate metropolitan area areas at the mouths of streams need special man-
almost no data exists, however, the 208 Water Quai- agement to ensure that damage caused by siltation,
ity Program will correct this situation in the near or disturbance of the stream bed, or toxic pollutants
future. does not occur. Other fish species, such as smelt,
are also common in the streams of upper Cook I nlet,
Some basic statements can be made, however, particularly the Twenty-mile and Knik Rivers,
about streams and drainage basins in the Anchor- beginning about May 15.
age area that are undergoing increased residential,
commercial and industrial use. The increase in pol- Numerous bird species are found in the upper Cook
lutants loading (as base data indicates in Chester I nlet region, particularly in the coastal wetlands and
Creek) would suggest runoff is entering the various marshes.
streams carrying with it pollutants from the residen-" Ducks and migrating birds are common to several
tial area's streets and yards as well as grease, oils, coastal wetlands in the Anchorage area. particularly
and heavy metals. Stream channel and bank modifi- in the Palmer Hay Flats (geese, swans, and ducks),
cation, as well as construction in the various drain- and in Potter, Eagle River and Portage marsh lands.
age basins. have reduced the natural vegetation
which would tend to reduce the contaminant load- These wetland areas, used as stopover resting areas
ing. Turbidity tends to increase with increased flows and as nesting areas, are subject to severe damage
downstream as well as the BOO and COB. from human activity. Pollution from urban runoff
and encroachment of urban development pose
Numerous rivers and streams have been identified serious threats either by elimination of important
by the Alaska Department of Fish and Game as habitat, food and cover or by fouling of the habitat.
andromous fish streams but degradation of the
fishery habitat has decreased or eliminated the fish Marine mammals are occasionally found in the
population in some streams. This is associated with waters surrounding Anchorage but are most com-
an increase in urbanization and development. mon in the lower Inlet; however, increased water
pollution in the upper Inlet could cause an impact.
The 208 Water Quality Plan will be used as one of the No data is available to determine what types of pol-
major implementation tools for Anchorage's Coas- lutants or levels of pollutants would cause an
tal Zone Management Program, and as data impact,
becomes available for each drainage basin, specific
mitigation measures can be initiated. Beluga whales were sighted in Knik Arm, adjacent
In addition to streams and rivers, the numerous to the mouth of Fish Creek, in August of 1978.
lakes in the Anchorage areas must be given equal SOCIAL, CULTURAL AND
consideration. For example, Sand Lake water levels ECONOMIC RESOURCES
decreased by five feet from 1963 to 1970. All drain-
age designs must take into account the hydraulic POPULATION
interdeoendence of Sand, Sundi, and Jewel Lakes, Both the location and physical character of the
the bogs and the upland wetlands which could lead Anchorage area have a great deal to do with popula-
to lower lake levels and high pollutant levels if tion growth - both past and present. Anchorage is
proper management and planning are not under- located at the head of navigation for oceangoing
taken. vessels and is the terminus of four major land trans-
BIOLOGICAL RESOURCES OF portation routes (Anchorage-Fairbanks Highways,
UPPER COOK INLET Seward, Glenn and the Alaska Railroad) as well as
the hub of the state's air transportation network.
The five North American species of Pacific salmon Anchorage thus serves as a natural center for com-
(chinook, sockeye. pink. coho, and chum) are found merce and government, and is the major population
in Cook Inlet. However, the waters of the Knik and center of Alaska.

The Municipality of Anchorage contains approxi- government construction aspect of the economy
mately 1950 square miles of land, but only 15 per- declined in relative importance. The civilian sector
cent may be considered suitable for urban devel- of the economy increased in importance during this
opment and habitation. When one considers that period. Despite a short earthquake-related decline.
the Chugach Mountains, Chugach State Park and followed by an economic upswing connected with
Chugach National Forest prevent growth to the east restoration, the Anchorage area continued to grow,
and that Cook Inlet effectively blocks continuous increasing 37 percent since 1960 to a total popula
development to the north, west and south (in tion of 113,522 in 1968. By 1970 the initial effect of
addition to the two military bases immediately the well-publicized oil discoveries on the North
adjacent to metropolitan Anchorage), it becomes Slope were being evidenced by rising population
readily apparent that population growth isrestricted figures for Anchorage. The area's population
and that densities throughout the Municipality are increased by 11.3 percent to 126,333 during the 18-
bound to rise. month period between the 1968 Special Census and
the 1970 Decennial Census. The Trans-Alaska Oil
Only small portions of the valleys along Turnagain Pipeline brought a significant increase in popula-
Arm are suitable for development by reason of tion to Anchorage. Between 1970 and 1974 the pop-
rugged, mountainous topography, large -public ulation increased by 36,166 to a total of 162,499. In
reserves, localized subsidence and wide floodplains. 1975 this increased to 177,817. By July 1, the popu-
The Eagle River area population concentration is lation had increased to 202,101 or nearly 50 percent
restricted basically to the Glenn Highway corridor of the state's population. This figure will increased
and to relatively small areas of Eagle River valley to a projected level of 507,000 in twenty years.
because of the above-stated limitations.
RESOURCE OWNERSHIP AND USE
The population distribution in the Municipality is Along the Turnagain Arm the Alaska Railroad paral-
not uniform, rather, it can be described as a clus- lels the coastline. The Seward Highway parallels the
tered type pattern. The majority of the Municipali- railroad on the landward side along the majority of
ty's population resides in the Anchorage bowl; how- this area. Both the highway and railroad pass
ever. as densities rise. future growth will be and through the Chugach State Park and Chugach
currently is being directed toward the Eagle River National Forest. Private land holdings along the
area and south Anchorage with infilling occurring in Turnagain Arm are small and generally restricted to
the Anchorage bowl the valleys.
Total population growth in any given locale is influ- Upon entering the Anchorage lowland the State of
enced by an exceedingly wide variety of pheno- Alaska owns and manages the Potter Marsh Refuge,
mena, some taking place within an area while others a coastal marsh adjacent to the bluff line in south
occur outside the area. In the case of Anchorage, Anchorage. This ownership extends into the tidal
most of the major influences have come from out- flats. Ownership along the bluff top is primarily pri-
side the immediate area. The site of the original vate and is in residential use. From about Point
settlement was chosen in 1915, when the Alaska Campbell to Point Woronzof coastal ownership is
Railroad set up a townsite near the mouth of Ship held by the military and state, with lands leased to
Creek. The first census recognizing the area was the FAA for airport use. Earthquake Park is held in
taken in 1929 when 2,736 persons were counted in Municipal ownership as a park. Adjacent to the park
what is now the Municipality of Anchorage. is again private ownership but at Fish Creek the
In 1939, the last census prior to World War 11, the Alaska Railroad again parallels the shoreline and
Anchorage area's population totaled 4,229. The continues on into Ship Creek and the ARR terminal.
greatest population growth rate ever recorded in the The Port of Anchorage is located just north of the
area occurred during the next two decades as a railroad. East and north of the port, E!mendorf AFB
result of the national defense effort associated with and Ft. Richardson jointly own a vast stretch of
World War 11, the Korean and Cold Wars. Large shoreline up to approximately Beach Lake which is
numbers of military personnel were assigned to a regional park site in Municipal ownership. The
local installations, while construction projects majority of the remaining coastline is held in private
attracted large numbers of civilians due to the avail- ownership by Eklutna Inc., an Alaska native village
ability of high-paying construction employment. corporation.
Population growth has been inconsistent through'
the period, reflecting to a large extent the impact of Of primary concern in planning for public access to
government decisions based on matters of national the shoreline will be the cooperation of the Alaska
security. Population in the Anchorage area in- Railroad which controls most of Anchorage's shore-
creased from 4,229 in 1939 to 32.060 in 1950. a line, and thus the importance of the federal consis-
growth of 658.1 percent. By 1960, the population tency provisions of the Coastal Zone Management
more than doubled, increasing 158.1 percent to a Act. This situation could lead to inherent conflicts
total of 82.736. between the asDirations and desires of the upland
Since 1960, Anchorage's population growth rate owner. the community at large and the railroads
has slowed. military strength has stabilized and the interest.

Competing uses along the shoreline are increasing, of a point source is fairly self-explanatory: it is a
but available land is limited. Careful planning now waste discharge entering a water course at a single
wil(ensure a coastline of balanced use in the future. point, usually a pipe. Outfalls from sewage treat-
The Coastal Zone Management Act is perhaps the ment plan are the most common example. A non-
most comprehensive tool for control of coastal point source of pollution is refuse, entering a wter
uses. By requiring designation of permitted and course at many points, either from the land surface
non-permitted uses and mandating a solid envir- directly orthrough the ground water regime. It is for
onmental planning program, the Municipality this reason that the coastal management program
accepts responsibility in conjunction with the State must be closely coordinated with the Municipality's
for coastal quality. 208 Water Quality Management Plan. The Munici-
pality of Anchorage has been given the primary
USES IN THE ANCHORAGE responsibility to complete the planning and devel-
COASTAL AREA opment of the various controls required to meet
To provide a benchmark from which to develop both the water quality standards, the air quality
future plans for the preservation, conservation, and standards, and the requirements of the Alaska
utilization of the Anchorage coastal area, it is Coastal Management Act. As a result, local Municii-
necessary to be knowledgeable of existing condi- palities become the implementing agency for the
tions and uses. Inasmuch as there is a close rela- policies and objectives adopted at the Federal and
tionship between land use and water quality, it is State level.
necessary to include consideration of current uses The Anchorage Coastal Management Plan will be a
in the coastal area so that the Anchorage Coastal major element of the Anchorage Comprehensive
Management Program can adequately address Plan which sets forth goals, objectives, and policies
those uses which may cause adverse impacts. regarding the future development of the Anchorage
ncreased development in the Municipality and its area. Although the comprehensive plan has been
various drainage basins will be accompanied by a adopted as an ordinance, it does not represent final
I

lowering of water quality and result in direct and regulatory authority over the use of land. Rather,
significant impacts on coastal waters given a situa- this authority is vested with the Planning and Zon-
tion with no controls. The severity of impact is ing Commission and the Assembly and effectuated
almosttotally related to the intensityof development. through the Zoning Ordinance and Subdivision
That is, commercial, industrial, and multi-family Regulations. Likewise, the regulations of the
land uses have a much greater impact on water Anchorage Coastal Management Plan will vest
quality than single-family or low density single- authority with the Planning and Zoning Commis-
family land use. The greatest problem facing the sion and the Assembly for implementation of this
Anchorage Coastal Management Program is the plan.
accommodation of a significant increase in popula-
tion in the Municipality while atthesame time main- The emphasis of the coastal management plan is
taining a high environmental quality. Uses in the primarily centered around the special patterns and
Anchorage coastal area can be classified into ten segregations of land uses and the suitability and
major uses: 1) military 2) transportation, including capability of an area to accommodate a given land
highway, rail, and airports 3) residential 4) port use: The plan provides goals and objectives for
facilities. including warehousing and commercial environmental quality. including vegetation, air,
activities 5) recreation 6) gravel extraction 7) sewage water, local aesthetics, and those uses and activities
treatment 8) wildlife management. such as is pro- which could result in direct significant impact on
vided in the Potter Marsh Game Refuge 9) national coastal waters. This present document represents
forest and 10) state park. only the first phase of an ongoing planning process.
The Municipality of Anchorage owns only a very The coastal management plan as presented in this
small portion of the coastal area. The largest land document outliens a ccriceptual framework and
planning methodology which identified a process
holders are the Military and Alaska Railroad, the required for environmental planning to meet the
State, the U.S. Forest Service. and Eklutna Native requirements of the Alaska Coastal Management
Corporation. Major commercial and industrial activ- Program. Based on the methodology, goals, objec-
ities are primarily confined to the Port of Anchorage tives, and policies were developed for specific
and adjacent Ship Creek industrial area. In addition geographic areas within the coastal management
to the Port and Alaska Railroad properties located in area. The ongoing activities that will be necessary to
Ship Creek, the majority of uses that could cause
fully implement the coastal management plan
direct and significant impacts on coastal wters are include preparatiin of programs and precise plans
ocated in upland situations. It is those water to deal with specific areas of the Municipality requir-
dependent and water related industries in upland ing special attention, and the preparation of ordi-
uses that have the most potential for causing direct nances to deal with sensitive environmental areas
and significant impacts primarily on water quality, where certain uses and activities may have adverse
air quality. and land quality. impacts on coastal waters. Figure 1 is a diagram
Water quality problems can result from both point illustrating the continuous comprehensive planning
and non-point sources of pollution. The definition process.

Man shapes his communities and structures his crude oil gathering facilities are located along th e
habitat through the use of land. Land use activities coastline of the Inlet. Of particular importance is
determinethe nature and vitality of his environment. freshwater stream and river discharges into the
The entire spectrum of our human society depends Inlet. The Matanuska, Knik. and Susitna Rivers con-
on development practices which alter the natural tribute approximately 70% of the fresh water annual
state. Land is thus the base upon which must exist a discharge into the Inlet. Additional sediment is pro-
man-made environment as well as the natural envir- duced by man's activities. particularly highway and
onment which supports life. Our man-made envir- urban development in the Anchorage bowl area.
onment, however, is often incompatible with nature. Future developments in these watersheds will
As man*s use of the land increases in scope and increase throughout the Inlet and therefore the
intensity, the threat to the natural environment is effectson the Inlet environment likely to resultfrom
greatly increased. The future success or failure to future development must be assessed in order to
reduce this threat will determine the ultimate quality formulate a rational coastal management plan for
of life in the Municipality of Anchorage coastal area. the entire Cook Inlet.
The most important consideration for our future and Burial of Cook Inlet organisms by silt, subtidal ero-
environmental quality lies in the broad concept of sion and scouring of the Inlet seafloor by ice and
how man makes use of the land. Our supply is not sediment, rapid currents mesuring up to 8 knots,
limitless, but finite; its proper use and management low temperatures, exceptionally high turbidity, and
is essential to the well being of all citizens of the low fluctuating salinity all, combine to create an
Municipality. Anchorage in particular, is blessed exceptionally severe estuarine environment. The
with a great variety of natural land and water areas severe environment and the high suspended sedi-
which are both beautiful and productive, but this ment concentrations cause migrating fish to use
condition is neither inexhaustible nor indestructi- upper Cook Inlet only as a means to travel through
ble. As man occupies or uses the land, he is in one the area to creeks and rivers to spawn or to cleaner
sense consuming it, for he removes most of the waters in Cook Inlet as feeding juveniles.
future options for that area. In addition, he often Commercial fishing was generally discontinued in
strips it, reshapes it, and pollutes it during his most parts of the upper Cook Inlet in the late 1960's
process of utilization. If the indescriminate use of due to decreases in andromous fish population.
land is left to continue unabated, it will not be long Commercial fishing activities are concentrated in
before these characteristics which make Anchorage the lower Inlet south of the forelands. This decline
a livable place, a beautiful, unique, productive, life- has been attributed to theeffects of stream channel-
supporting and culturally significant area, will be ization, thermal pollution, roadway drainage, water
destroyed. impoundments, among other causes. Andromous
PRESENT CONDITIONS fish are generally taken from local creeks and rivers
Atthe present time suspended sediment is thedom- rather than Knik and Turnagain Arms.
inant pollutant in Cook Inlet and thus will increase Health problems also are present. The chief con-
as previously undisturbed land areas become deve- cern of fecal coiiform concentrations is with humans
loped. During the summer months the Knik and since serious enteric diseases are often transmitted
Matanuska Rivers discharge up to 150,000 tons of by water. An example would by dysentery and
silt per day into the I nlet. The mean suspended sed- typhoid fever. The fact that some people do contact
iment concentration in water near Anchorage was contaminated waters along Anchorage's shoreline
measured at 1.280 ppm. However, suspended sedi- requires serious consideration. With a possible
ment is not the only pollutant. Other pollutants doubling of Anchorage pooulation within the next
include Municipal sewage. According to a water twenty years the incidence of contact with coliform
quality study of Knik Arm by Tetra Tech, the present
outfall pipe at Point Woronzof does not effectively contaminated coastal waters will certainly increase
the probability of the transfer of human disease.
dispose of- Anchorage Municipal wastes
because it provides only minor dilution at low tide Almost one-half of the state's population lives in the
and permits the waste field to become entrained in Cook Inlet basin with the majority of that in the
an eddy during flood tide. The report concluded that metropolitan Anchorage area. Commercial activi-
larger flows in the future will worsen the situation ties associated with the main industries in the basin
unless the outfall is moved or extended. - petroleum exploration and development. fishing,
The Asplund Water Pollution Control Facility treats transportation. recreation, tourism. timber and agri-
Municipal sewage prior to it being discharged into culture - are centered in the Cook inlet basin.
*the Inlet and is most likely the single most important These industries are the major competitors for utili-
environmental protection measure undertaken in zation of the natural resources in the coastal zone.
Anchorage. In view of present acute energy requirernen'ts. raiDid
development of these resources and subsequent
Other pcilutants include oil spills, raw sewage dis- industrial expansion along the coast was inevitable.
posal directly into the Inlet from other towns and
cities. fish processing waste. etc. Numerous subma- Another issue to be considered is that the COOK inlet
rine pipelines and cables cross the Inlet and several area is highly faulted by both major and minor

faults. This area is located in the trans-Pacific seis- assist the states to exercise effectively their respon-
mic zone and is included in seismic risk zone 3, sibilities in the coastal zone through the develop-
defined as ares susceptible to earthquakes with ment and implementation of management programs
magnitudes 6.0 to 8.0 and where major structural to achieve wise use of the land and water resources
damage could occur. of the coastal zone giving full consideration to eco-
Located within the Inlet basin are numerous active logical, cultural, historic and aesthetic values as
volcanoes, all posing a potential threat and impact well as to needs for economic development."
to future and present coastal development. The policy established by Congress means that
An associated hazard related to seismic and Vol- activities within the zone or the use of the zone
canic activity is of course tsunami and tsunami- should be undertaken so as to be compatible with
runup. the capabilities and limitations of that area.
Upper Cook Inlet is covered with ice for approxi- The Coastal Zone Management Act of 1972 delegates
mately four months of the year. Qreat ice blocks the major tasks of coastal management to the states.
form in winter months acting as impediments to ship Under this Act Alaska is required to determine the
navigation and as scouring agents along the coast. nature of its coastal resources and identify the
Ice also poses a threat to water dependent activities major problems and issues related to those re-
such as marinas and port facilities. Every winter sources. In Alaska this task has been delegated to
approximately 500,000 tons of ice form under th the coastal resource districts and the process culmi-
dock at the Port of Anchorage. nates in a land and water use plan for the coastal
zone. The ACMP affects three levels of government.
Other geotechnical hazards found within the coast- Local governments such as Anchorage are required
al zone of Cook Inlet include areas subject to lique- to prepare district coastal management plans.
faction, landslides, permafrost, avalanche, wind and These plans are subject to council and legislative
coastal erosion. review. State agencies are required to perform their
CONCLUSION dutiesand activities in thecoastal zone inconformity
Quite clearly then, Anchorage is dependent upon with the ACMP, the guidelines and standards, and
coastal water transportation for a majority Of its approved district programs. Federal agencies,
supplies. There are many competing uses on the through the consistency provisions of the CZM Act
coastal area and available land is limited and much of 1972, must act in a manner consistent with the
of the area is subject to numerous hazards. Rapid ACMP (ACMP Draft. 1976).
population increases will result in increased prob- THE NEED FOR
lems, and increase the pollution levels. As natural COASTAL MANAGEMENT
resource development activities increase, growt .h Rapid growth in South Central Alaska and particu-
will continue. These factors make Anchorages larly the Anchorage coastal plain has placed increas-
coastal zone a factor of immediate concern. The
need for effective planning to accommodate, in a ing pressures on the complex natural systems that
balanced manner, the growing demands on coastal support many human activities and has created con-
areas is needed now. flicts over the allocation of coastal resource. As
more conflicts arise, it becomes increasingly appar-
A general conclusion can be stated as a result of this ent that the limited natural resource base is threa-
previous discussion: that maximum rational use and tened, and choices must be made. In the Anchorage
management of coastal resources consistent with Municipality, for example. at the present time 1/5 of
the retention of life support systems. beauties and 1 % of the state's total coastal zone supports 60% of
amenities of the coastal zone must fully recognize the total coastal population. or approximately 45%
the constraints and limitations of such a severe of the entire state population. In less than twenty
estuarine environment. years, this same area is anticipated to increase in
An understanding of the physical setting as well as population 100%, from 202,000 people to 507,000
man's role in Cook Inlet must be understood people. If growth actually occurs according to the
because it is the basis fordeveloping aviable coast- dynamic rate that has been projected for Anchor-
al management plan. Man*s actions do and will con- age, a strain will be placed on the limited land, air
tinue to cause direct and significant impacts on and water resources currently available. Rapid devel-
coastal waters at an accelerated rate unless sound opment along the north and south corridors to
management of our coastal resources is encour- Eklutna and Portage. along with continued "bowl"
aged and carried out. This is the emphasis of the development, necessitates that a coastal manage-
Coastal Zone Management Act. ment program be developed and utilized. As owner-
manager of vast coastal public resources and as
DECLARATION OF POLICY protector of the public interest, the Municipality
-The Congress finds and declares that it is the must devise and implement a rational process for
national policy (a) to preserve, protect. develop, and resolving these conflicts. This process should main-
where possible, to restore or enhance, the resour- tain thedelicate balance among theeconomic,envir-
ces of the Nation's coastal zone for this and suc- onmental. and social forces that sustain human well
ceeding generations. and (b) to encourage and being; and it must remain flexible enough to

respond to new information and changing percep- future growth and development while also recogniz-
tions of human needs. ing the constraints, and if possible how they can be
In 1976, the Anchorage Municipal Assembly overcome.
adopted the Comprehensive Development Plan, a In recent years the public has become increasingly
declaration of goals and objectives to act as a prac- aware of coastal problems and less willing to live
tical guide for community development. One of the with them. In many of the public meetings held for a
purposes of the comprehensive plan is to force variety of planning purposes, residents have
attention to major issues facing the Anchorage expressed their concern about a number of prob-
community and clearlystate the policies and actions lems that result in conflicts over use of the natural
the community intends to pursue. One such policy resource base. They have made it clear that they
which is identified to help insure that resources will expect solutions, and when the problems are greater
be used in the most efficient manner is coastal zone than purely neighborhood in scope, many residents
management. Three major objectives are listed look to the Municipality and the State to provide
specifically: answers for these local and regional problems.
1 .To develop a plan for the orderly regulation and The Municipality Iof Anchorage is responsible for
development of the coastal zone within the promoting prudent and environmentally sound devel-
Municipality, while recognizing that all of Cook opment within the Municipality. This responsibility
Inlet is an integrated unit and part of the entire derives from several sources. First, the State of
unitand part of the entire coastal resourcescifthe Alaska grants certain planning and zoning powers
state. to home rule municipalities such as Anchorage.
2. To adopt and implement policies and programs Second the Municipality isa major investor in public
which will protect and enhance the unique natu- facilities such as ports, parks, and recreation areas;
ral features of the coastal zone. andthird, theMunicipality isgranted powerto regu-
3. To cooperate with the State government in for- late the uses of many of the natural resources asso-
mulating policies for the entire coastal zone of the ciated with coastal waters and adjacent shorelands.
state. For these reasons, Municipal processes to weigh
and balance policies for these coastal responsibili-
If the Anchorage Municipality is to achieve the goal ties have been designed.
of optimal utilization of its coastal resources, it must The resource focus of the Anchorage coastal man-
firstclevelop a mechanism whereby decisions regard- agement program is coastal waters, adjacent shore-
ing those resources are based upon adequate knowl- lands, the major drainages and coastal lakes within
edge and information concernig existing condi- the Municipality. The public has a strong interest in
tions, and the range of options available. Such a the Anchorage coastal region because its abundant
mechanism must, at a minimum, insure that the best resources support many human demands. The
available information is incorporated into the coastal waters and shorelands are themselves a
decision-making process and that readily apparent great resource. The large population of the Munici-
conflicts and options are understood prior to mak- pality in conjunction with the tourist industry
ing commitments in the costal zone. It should strive depends not only on the diversity of fish and wildlife,
to assure that long-term values are not sacrificed but on scenic views, open spaces, wetlands. and
with the benefit of short-term gains, that decisions clean air and water. Public waters support water-
are based upon well informed judgment with a full borne transportation which furnishes access to
awareness of the consequences to be expected. ports. The ports open vast markets for goods. thus
This is the essence of coastal management and the encouraging high levels of industrial and commer-
purpose of this program. The upper Cook Inlet is a cial productivity throughout the Municipality, upper
major contributor to the prosperity and well-being Cook Inlet and the State. All these uses of coastal
of both the State and the Municipality. The popula- waters support public well being and private enter-
tion and economy of the Municipality and the entire prise. The principal issues that should be addressed
upper Cook Inlet have grown rapidly over the last by any coastal management program are those
decade, and this growth rate is expected to continue. related to the public and private demands made on
Although continued coastal growth and develop- coastal resources and to the natural processes that
ment is both desirable and probable, it is not are intimately associated with the wters and adja-
assured, for the coastal area's ability to supply the cent shorelands. Some governmental authority is
resources needed for continued increases in pro- exercised over activities both on the uplands and in
ductivity is uncertain. Problems have already risen coastal waters. Many public concerns. Hke many
that. unless checked, will limit economic growth. private activities. are in no way dependent on a prox -
These problems include increasing exposure of res- imity to coastal waters. Residential development
idents to natural hazard areas as urbanization and industriai siting, for example. are of concern to
increases, possible shortage of fresh water for this program only when they compete directly for
industry, the Municipality. and new residential the product of coastal waters. threaten the con-
growth. The coastal management program must tinued availability of the resources contained in
identify those areas and uses most desirable for these coastal areas. or create hazards to coastal
18 1

residents. Likewise, road construction, park plan- waters, and petroleum activity that may interfere
ning, and law enforcement are not always of con- with continued biological productivity in some parts
cern to coastal management either. That is, they are of the coastal waters can have adverse effects on
of concern only when they impinge on coastal sport and commercial fishing. Likewise, aesthetic
waters and their adjacent uplands. During public considerations that benefit recreation and tourism
meetings held in Girdwood, the bowl area and Eagle sometimes conflict with the intense use of coastal
River and with the Community Councils, residents waters for ports. waterborne transportation, petro-
repeatedly express concern about a number of leum activities, and disposal of sewage waste. Other
coastal issues. Two issues mentioned frequently economic sectors, too, make competing demands
were: (1) The entire issue of coastal hazards (liqui- for fresh water and space either directly or indi-
faction, subsidence. the Turnagain slide area) and rectly. Water demands caused by various economic
(2) the importance of maintaining habitats in sectors of the Municipality may reduce the inflows
wetlands area (and the allocation of fresh water in of fresh water, sediment, and nutrients to coastal
the drainages, which ultimately flow into Cook ecosystems. Wetlands in other areas necessary for
Inlet). Questions were raised about the value of continued biologic productivity within the Munici-
wetlands, and what the boundaries of the coastal pality may be damaged by changed fresh water,
area should be for management purposes. Institu- nutrient, or sediment inflows or by the disposal of
tional problems were also discussed. They included dredge materials. However, at the same time, eco-
inefficiencies in the flow of information to citizens, nomic growth is vital to the Anchorage economy
and in other public programs and policies. Although and thus the Anchorage Economic Development
these institutional problems are not unique just to Commission has stated as one of its goals that it is
the coastal area, they affect coastal resources and necessary to encourage the development of a
were seen by residents to be in urgent need of regional economy with sufficient growth and stability
solution, to improve the standard of living of the region's
population, and to guide regional economic develop-
These coastal and institutional problems are not ment consistent with full consideration of public,
being dealt with now to the public's satisfaction by private, and environmental coasts and benefits.
either government or the private market system. Anchorage, as the major metropolitan area in Alaska,
Recurring problems can be classified as falling into is heavily influenced by events which occur at both
three main categories: Those associated with the the state and local level. Some of the major issues
economic activities derived from coastal waters and which may impact the development of Anchorage in
their adjacent shorelands. those arising from con- both the short- and long-term are:
flicts to the natural resource base of the coastal 1 Transportation
area. and those affecting the quality of life - the Anchorage International Airport - North/South
livability of the coastal region. These problem Runway. Construction work has started on a new
categories comprisethe basis forconcern aboutthe 10.500 foot north-south oriented runway located
coastal area within the Municipality. in the coastal zone. The new runway is designed
ECONOMIC PRODUCTIVITY to increase the safety of Anchorage International
Historically, the vast and highly productive natural Airport by providing an alternate way for jets to
resources of the upper Cook Inlet have made it a land during periods of severe crosswinds. The
major contributor to the prosperity and well being of present federally funded project will allow
he State as well as to the Municipality. Three fac- Anchorage to reach its full potential as the air
tors have been important to Anchorage's growth. crossroads of the north. The new runway will also
These are: provide needed space for the expansion of local
aviation enterprises.
1, Location on the major transport routes into 2. Private Port Developments
Alaska, both natural and manmade; Two major private port developments on the tide-
2. The growth of government activity in Anchorage lands on the southside of Ship Creek have
and recently been proposed by local enterpreneurs.
3. Development of Alaska's natural resources. Property has been leased from the Alaska Rail-
road south of the existing port of Anchorage. The
All these factors are interrelated. Each factor has first project, proposed by local industrialists,
been important in varying degrees throughout would cover approximately 60 acres of tidelands
Anchorage's history, and will continue to be impor- below Ship Creek. The other projects. covering
tantly connected to its future growth. 43 acres, would also be located in that area. Both
The economic sectors depending directly on coast- of the projects would require extensive dredging
al waters (waterborne transportation. commercial and filling operations prior to construction.
fishing, petroleum exploration and offshore produc- The first project. with an estimated cost of 50
lion, and most of he recreation and tourism in the million dollars, would include a 6.5 acre small
coastal region) compete with each other for the use boat and moorage basin and additional commer-
of the coastal resources. Port facilities, dredge cial and recreational marine support facilities.
channels, increased urban runoff into coastal The complex would be served by roads and a

railroad spur. Although the proposal is still under c. The major tracts of vacant land in the coastal
evaluation, the commercial dock facilities are' area are in Federal ownership.
apparently not meant to be in competition with d. The Port of Anchorage has limited area and is
the existing port of Anchorage. completely surrounded by Federally-owned
The second project would be a railroad-oriented lands.
waterfront complex adjacent to the first project Thus, the only possibility for locating such facili-
on the south side. The project, proposed by a ties would be on either Federally-owned land or
group of local businessmen, would also include on lands patented to Eklutna, Inc. or Cook Inlet
warehousing and office facilities, and possibly a Region Inc. The Matanuska-Susitna Borough 'is
restaurant. Both proposals are presently being actively looking into the feasibility of locating
reviewed by the U.S. Army Corps of Engineers. such a facility at Point McKenzie. Fire Island
These major waterfront developments, if com- offers a potential location: however. such feasibil-
pleted, could provide both jobs and an increase ity has not been determined.
in the port capacity of Anchorage. 5. Government
3. Beluga Coal Reserves
Directly west of Anchorage, on the opposite side Government, while it provides only 27% of total
of Cook Inlet, lies a major deposit of coal. The civilian employment, is almost 38% of the eco-
Beluga reserves, which comprise the major por- nomic base. The next most important industry,
tion of this massive coal field, are thought to construction, has less than half the impact of
contain over two billion tons of coal, which trans- government.
lates into an energy equivalent 25% greater than The importance of the non-govern mental sector
Ahe Prudhoe Say oil reserves. To date this mas- can be seen by examining the Anchorage econ-
sive coal field has not been mined commercially, omy in a functional sense. Anchorage serves as
but various interests are now studying the the administration and distribution center for
resource development potential of the region. Alaska. Because of this. traditional service indus-
One proposal would include a mine, dock, and a tries such as trade, services, transportation. and
townsite designed to accommodate hundreds of finance are important basic industries for
workers. Another idea being explored by one Anchorage. The second important funcitonal sec
local electric utility is to build coal-fired electric tor which includes employment in many indus-
generating plants on site at Beluga and transmit tries is tourism. Both of these sectors include
the electricity back beneath Cook Inlet to employment and transportation, trade. and servi-
Anchorage. ces. According to estimates made by the state,
4. OCS Leasing the primary impact of tourism accounted for
The federal government continues to lease trusts 5,000 jobs in the state. By assuming the distribu-
on the outer continental shelf of Alaska to oil tion is proportional to the distribution between
companies seeking developable petroleum Anchorage and the state, Anchorage has about
reserves. The latest off-shore leasing schedule 2,500 tourist related jobs.
indicated options for such areas as the Beaufort The strength of the Anchorage economy can be
Sea, Gulf of Alaska. Kodiak, Bering Sea and Cook discussed in terms of three important aspects of
Inlet. All of these off-shore operations, but espe- the economy. -
cially the proposed Cook Inlet leases in March First, Anchorage is the transportation center for
of 1981, 'will have varying degrees of impact on the majority of the Alaska population. The Port
Anchorage. In the exploration stage, administra- of Anchorage serves as the majority entry po t
tion and logistic support for the exploratory dril- r
ling rigs typically either originate or are proc- for goods for about 80% of the population. The
essed through Anchorage. Once marketable quan- Alaska Railroad, International Airport, and exist-
tities of oils are found, more substantial invest- ing highway networkserveto link Anchorage with
ments of manpower and materials are likely to be the rest of the State. This transportation network
made in Anchorage, resulting in increased popu- establishes the market area served by Anchorage
lation in Anchorage. While the possibility of a as the majority of the State.
major discovery in lower Cook Inlet is possible, The second development strength of the econ-
the Municipality has limited onshore coastal areas omy is the existence of ample capital resources.
suitable'forthe siting of oils and gas-related facil- Both new and traditional sources of capital will
ities. This is due in part to several factors, guarantee capital resources for development.
State revenues from resource development will
a. A majority of the coastal area of Metropolitan become an important source of capital for the
Anchorage is presently developed. public infrastructure investments needed to
b. The topography of a major portion of the coast- encourage development.
al area is too steep to accommodate such facil- The final strength of the Anchorage economy is
ity siting. its scale and its established system of service.

Additional development will be generated by the people choose to live, work, and visit Anchorage.
size of the economy, most importantly as the For a place to be livable, it must offer a balance
local service sector expands. The established between continuing economic opportunities and
*system of services guarantees Anchorage will other assets, not all of which are adequately taken
continue to provide services to the whole state into account by the market pace. Probably the most
and a major proportion of state growth will be important resource in the coastal area is an ade-
reflected in growth in Anchorage. quate fresh water supply of unpolluted surface
The growth of natural resource industries within water and ground water that can be produced with-
the state could lead to the expansion of the admin- out adverse effects. At the present time, the major
istrative sector of the Anchorage economy. The source of fresh water supply for Anchorage is Ship
headquarters of the many petroleum companies Creek. The upper reaches of Ship Creek originate in
operating within the state are already located the western slope of the Chugach range east of
here. The hard rock mining industry could also Anchorage. Ship Creek is approximately 24 miles
follow the same pattern as it develops in the long and drains a basin of 117 square miles. Because
state. This industry will have different impacts of its excellent quality and its close proximity to the
over time, with the impact probably being greater urbanized area, Ship Creek is the primary water
during exploration and development than during supply source for Anchorage and the military bases.
production. Other natural resource industries, Nearly one third of the combined Municipal and
such Ias fishing and forestry, may also headquar- military water demand for Anchorage is supplied
ter in Anchorage as larger firms enter these directly from Ship Creek at the Diversion Dam at
industries. Mile 10.5. Water is also withdrawn from Ship Creek
for cooling water at three power plants. Prior to
Anchorage's potential as a processing center 1942, the entire length of Ship Creek was suitable
for natural resource products depends directly spawning habitat. Andromous species were abun-
on its relation to existing and planned transpor- dant, and included silver, king and chum salmon.
tation systems. The location of the port of Dolly Varden char were also present although not in
Anchorage at the end of the two major transporta- great numbers. In 1942 the population of Anchorage
tion systems into the Alaska interior makes was around 3,000. During the next decade. four
Anchorage, as the trans-shipment point, a poten- dams were constructed on Ship Creek to support
tial point for processing. the water and power demands of a rapidly expand-
The scenic beauty of Alaska is the major asset ing population. Three of these four dams consti-
in the development of the tourist industry in tuted a total barrier to migrating salmon. Since that
Alaska. According to the State Division of Tour- time, however, fish ladders have been constructed
ism, the potential is being realized with a rapid at three of the four dams to restor migration. A new
increase in the number of tourists in Alaska. fish hatchery has been located on Ship Creek in
Between 1970 and 1975 the number of tourists in attempts to restore the productivity to Ship Creek.
Alaska doubled. The main strength of the Degradation of the fishery habitat in Ship Creek can
Anchorage tourist industry is the growth of state also be attributed to other factors associated with
tourism. Tourism is environmentally clean and urbanization and development. Gravel removal to
provides employment for low-skilled individuals. supply construction activities has degraded spawn-
The potential lies in the areas of increasing the ing habitats severely in localized areas. Channeliza-
total number of tourists in the state, increasing tion of Ship Creek near its mouth, through the
the proportion that comes to Anchorage, and Elmendorf Air Force Base Golf Course and near the
increasing the amount tourists spend in Alaska Fort Richardson power plant, has also degraded
and Anchorage, Tourists spend between 300 and and depleted the habitat. Also of concern is pollu-
400 dollars during their stay in Alaska; more tour- tion from storm water runoff from Fort Richardson,
ist attractions would serve to increase the amount and from commercial and industrial sources in the
of time and money they spend in Anchorage. The lower two miles of the stream. As a recreational
main weakness is the lack of development of resource, Ship Creek is no longer the popular sport
attractions for tourists in Anchorage. fishery for local anglers it once was. In 1961 the
salmon season was closed and remained closed
Thus. economic consideration must be consid- until 1970 when severe restrictions were placed on a
ered within the coastal management plan of the short season. In 1973 there was another complete
Municipality, but considered in the context that closure.
increased economic development will result in As a commercial resource, samples of commercial
increased population which must be accommo- catches in the Cook Inlet have been taken and
dated in an environmentally acceptable manner. counts of Ship Creek salmon compiled. However,
LIVABILITY sufficient data hsa not been collected to evaluate
Livability is defined by he qualities that make an the overall contribution of the Ship Creek Hatchery
area a good place to live. A livable place offers more as a commercial fishing industry.
than the satisfaction of the basic necessities. The In the face of increasing stress due to development
livability of the coastal area is one reason many in theAnchorage bowl. the future of Ship Creek as a

fishery resource is questionable, as are stresses to uses. These are part of government's concern for
the other drainages in the Municipality. the public interest.
The preceding example was used to illustrate that
increased urbanization in the Anchorage area has NATURAL RESOURCE BASE
caused pollution of the surface waters and has pro- The livability and economic productivity of the
duced adverse effects. Fresh water is the limiting coastal area makes it important, but why should
natural resource in the coastal region. Other assets there be concern about it? The answer is that the
to livability include a pleasant climate, clean fresh natural resource base which makes possible the
air, open spaces, and fishing and hunting opportun- livability and the economic activities of the coastal
ities. These are not only valued by coastal residents, area is being changed by these very activities. The
but also by people who live in interior Alaska. Non- abundant natural resources of the coastal area con-
coastal residents also have a stake in the future of tribute to both economic development and the
coastal waters, not only because coastal waters are attractiveness of the coastal areas as a place to live.
publicly owned, but also because these uses benefit The economic activities based on these natural
the state as a whole as well as their own commu- resources affect coastal waters and shorelands in
nities. many ways: by diverting fresh water supplies; by
Besides natural resources, other components encroaching onto wetlands; by producing goods
include the availability of jobs, public safety, public that require shipping lanes and thus dredging and
facilities, and freedom from unnecessary govern- disposal of dredge material; and creating a public
mental restrictions on the use of or access to public demand for roads and waterways and for other pub-
resources. People demand a mixture of elements for lic facilities. When the marsh is partially excavated
a high quality of life, but they assign different priori- and filled for residential development.- marsh pro-
ties to these elements. When public preferences are ductivity is diminished, as is thewater recharge func-
translated into a political will, the present dollar tion that it serves. The complexity and interdepen-
value of any one use of coastal water should not by dency of both the human and natural system along
itself determine ultimate resource allocation. the coastal area means that activities using coastal
Because coastal waters belong to all Alaskans - resources may have unseen but important reper-
not just to the highest dollar bidder, and not only to cussions. To assure a lasting and desirable mix of
the people who live next to the shorelines of Cook benefits from coastal resources in the face of grow-
Inlet, decisions made on a local level that might ing demands upon them, the workings of coastal
preclude uses of regional benefit should also take resource systems must be better understood.
into account the demand by the broader public for Not all areas of coastal waters or shoreland are
livability. Retaining all these components requires a alike. Not all areas of the coastal zone are suited to
balance between development, conservation, and the same uses or intensity of uses. Although beach
preservation. and shoreface areas, marshes, tidal flats, and other
Just as the various economic sectors compete for resources of the coastal area differ from one
resources, some of the components of livability con- another, they are interconnected and affect one
flict with one another. For example, jobs often another.
depend on intensive economic activities that con- To understand each of these areas in the context of
flict with aesthetics or other social values. People the coastal system as a whole, the coastal system
value abundant open space, a pleasant climate, and may be broken into a manageable number of sub-
scenic areas. They see value in a diversity of land,
water, plant and animal life in natural areas that can units and composite environments. These may be
sustain a variety of uses. There is value in the resil- referred to as coastal environments since they
iency that allows intensive uses in one place without group together into functional units various physi-
marring the aesthetic or scenic qualities in another. cal, biophysical and cultural features forms which
These non-economic benefits are not valued equally are typically associated in nature. Subunits of these
however; for example, who is to decide what a coatal environments are referred to in the Manage-
ment Plan as resource policy units. whether natural
scenic view is worth? Questions such as these show or manmade. and are mappable entities defined by
why assessing social values is one of the most diffi- local characteristics of processes. land form. soils,
cult problems in resource allocation and manage- biota, and other factors that naturally support cer-
ment. Recreational opportunities are afforded by a tain levels of human activities.
combination of natural attractions - fish. wildlife,
transportation systems, lakes, fresh flowing These coastal resource policy units must be taken
streams. in a varied vegetation landscape. Conflicts into account if public and private decision makers
may arise because different kinds of recreation are to harmonizethe intensive use and development
impose different demands. Some are solitary of coastal resource systems with the continued
reflected activities, while others are intensive and economic productivity and livability of the Anchor-
sometimes destructive uses of coastal resources. age area. These coastal environments and their
Government has authority over much outdoor recrea subunits - Resource Policy Units - are "he basic
ion: it can and must regulate certain uses. It pro- units upon which the Anchorage Coastal Manage-
vides access to and sometimes licenses for certain ment Plan is desianed.

THE ROLE OF LOCAL GOVERNMENT intangible value of resources, both natural and
IN COASTAL MANAGEMENT social. These matters fall within the scope of govern-
Given the rising demand for the economic re- mental concern because of the Municipality's long
sources and livability of the coastal area, and given established role as a major owner and regulator of
the complex interdependence in and among the coastal resources, and as an investor in public facili-
human and natural systems of the coast, why are ties such as parks and port fcilities. The land, air and
these coastal issues governmental concerns rather water resources currently available are limited. Rapid
than merely private sector matters? The answer is development along the north and south corridor to
that a large part of the coastal resource base is Eklutna and Portge, along with continued "bowl"
publicly owned and still more of it is subject to the development. necessitates that a coastal manage-
long-established regulatory and public investment ment program be developed and utilized. As owner-
programs. manager of vast public resources and protector of
the public interest, the Municipality must devise and
The Municipality and the State of Alaska conduct implement a rational process for resolving use con-
many regulatory and investment functions in the flicts. This process should maintain the delicate
coastal area. Regulatory activities such as the air balance among the economic, environmental, and
and water quality program, solid waste disposal social forces that sutain human well-being, and it
programs, and fishery regulations have been long must remain flexible enough to respond to new
established. Some of the regulatory activities, such information and changing perceptions of human
as fishery regulations, are designed to protect pub- needs.
lic resources. Other are enacted to protect the pub-
lic interest against undesirable externalities, or spill- If the Anchorage Municipality is to achieve the goal
over effects. An example of such a pillover problem of optimal utilization of its coastal resources, it must
is air pollution, which cannot be adequately resolved first develop a mechanism whereby decisions regard-
by private enterprise alone because not all the costs ing those resources are based upon adequate knowl-
and benefits of the decision to dispose of waste and edge and information concerning existing condi-
air pollution are borne by the parties making the tions, and the range of options available. Such a
decision. Significant costs are borne by others in mechanism must, at a minimum, ensure that the
the area whose health and property are damaged by best available information is incorporated into the
the polluted air. For example, early in 1978 the decision-making process and that readily apparent
Alaska Department of Environmental Conservation conflicts and options are understood prior to mak-
ruled that amajor portion of the Anchorage Metro- ing major commitments in the coastal zone. It
politn area was a non-attainment area in terms of the should strive to assure that long-term values are not
national ambient air quality standards as defined by sacrificed for the benefit of short-term gains, that
Section 174 (a) of the Clean Air Act of 1977. The decisions are based upon well-informed judgment
Municipality of Anchorage has been designated as with a full awareness of the consequences to be
the lead agency in devising a plan for meeting the expected. This is the essence of coastal manage-
National Air Quality Standards by the 1982 dead- ment and the purpose of this program.
line. In the event of non-compliance with the Clean The upper Cook Inlet is a major contributor to the
Air Act. the Municipality stands to lose large prosperity and well being of both the State and the
amounts of federal funds for categories such as Municipality. The population and economy of the
highway construction. Apart from governmental Municipality and the entire upper Cook Inlet have
action, the polluter would have no economic incen- grown rapidly over the last decade, and this growth
tive to avoid imposingthis cost upon others. In addi- rate is expected to continue, but can it be accom-
tion, the public investment and public facilities in modated in an acceptable manner? Coastal man-
the coastal area such as parks, roadways, ports, are agement in Anchorge seeks ways to resolve the
also important. Therefore, the Municipality should conflicts and provide for both future growth and
organize and conduct its activities in the coastal conservation in an acceptable manner.
area effectively, efficiently, and with a view to its
continued productivity and livability. GOALS AND OBJECTIVES
The trend toward greater urbanization in the Munic-
SUMMARY ipality will result in the expansion of our man-made
rhe coastal area is a focus for concern because the environment. To support this development, addi-
increasing use and demand for coastal resources tional land will be utilized for buildings. highways,
raises doubts that the economic productivity and parking areas. community facilities. and numerous
livability supported by coastal resources will be other land use activities, thereby altering the natural
maintained. Coastal resources. economic produc- conditions which now exist. One of the main pur-
tivity. and livability are interdependent. Economic poses, then, of the Anchorage Coastal Management
activities use natural resources, and natural re- Program must be to accommodate future growth
sources provide the raw materials for a livable and expansion, but accommodate the growth in an
environment. Economic activities also producejobs environmentally sound manner. To accomplish this
and dollar flows that increase livability and provide task thefollowing goals and objective fortheAnchor-
tax revenues. Livability, in turn, is determined by the ageCcastal Management Program have been established:

TO SAFEGUARD THE NATURAL AND CULTURAL their own areas. These district coastal management
HERITAGE UNIQUE TO THE MUNICIPALITY OF programs are the building blocks of the Alaska
ANCHORAGE. Coastal Management Program (ACMP).
I ) To identify those areas in need of immediate One of ACMP's primary goals is complementing
protection, as well as setting forth a method by and strengthening local and areawide planning and
which selected areas throughout the Municipal- management capabilities, in coordination with state
ity may be objectively evaluated to determine and federal agency and private sector activities. In
their suitability for inclusion in a program of pro- so doing, ACMP is intended to furnish coastal area
tection. citizens with improved opportunities to construc-
2) To suggest development or performance stan- tively influence the land and water management
nards, in a process forapplying these standards to decisions which affect their lives. District coastal
afford adequate protection and yet not usurp the management programs are not designed to impose
right of local determination where appropriate. additional impediments to various uses of coastal
3) To establish, in conjunction with identification lands and waters, but rather to more equitably and
and implementation, a procedure which will efficiently apply the diverse array of existing federal,
encourage the coordination of environmental state, and local authorities governing such uses,
area protection with land use policies formulated and to ensure the balanced consideration of a broad
at the local and State levels. range of competing interests. Likewise, district
coastal programs are not solely regulatory in nature.
4) To initiate a program which can be continued They are intended to foster affirmative actions
and expanded to offer a wide application for which enhance the human and natural environment
environmental protection when necessary while of the coast by such means as matching capital
accommodating future growth and development improvement programs with coastal management
in the Municipality. policies and priorities.
5) Coastal area development should provide long The program coordination requirements contained
range benefit to man and his economic pursuits in the Act serve only to reinforce the on-going coor-
while assuring compatibility with the environ- dination effort between the Municipality of Anchor-
mental and physical goals for coastal areas. age and the State. A Memorandum of Understand-
6) To make recommendations which will permit a ing (MOA) between the Municipality and the State
coordinated approach among state agencies of Alaska, Division of Policy Development and
concerned with the environment and the formu- Planning, implementing the OMB Circular A-95,
lation and implementation of coastal manage- sets forth a clearing service be provided for coastal
ment land use policies and plans. zone matters by collecting, processing and dissem-
inating pertinent information relating thereto. This
STATE/LOCAL GOVERNMENT INTER- MOA provides the opportunity to coordinate and
ACTION assist state and local government activities in the
One of the hallmarks of both the Federal Coastal coastal zone.
Management Act of 1972 and the Alaska Coastal In recent years a gradual change has been taking
Management Act was the intent that units of state, place in the concept of the term land, a change
regional, and local government would utilize the incapable of precise definition. The change can be
coastal management program as a vehicle for reas- attributed to an awakening of the populous to the
serting theirrightful governmental prerogatives and fact that land is a finite resource as is water. This
responsibilities. In essence, the act envisioned a changing attitude toward land and water can be
state-level planning and management program that, described by saying that land should be considere
I It
via meaningful coordination, would involve all
interested and affected governmental bodies. a resource rather than a commodity. Such an i-
tude correctly indicates the direction of the change,
The size and diversity of Alaska's coastal area have but it can disregard the constitutional right to own
required specially adapted organizational arrange- land and buy and sell it freely. Land. therefore. must
ments. be treated as both a resource and a commodity. The
These specialized needs are reflected in the Alaska right to move throughout the Municipality and the
Coastal Management Act of 1977 (AS 46.40 and AS State and buy and sell land in the process is an
44.19.891-894), which provides for local coastal essential element in the mobility and flexibility our
citizens need to adjust to rapid changes of our
programs to be developed in conformity with gen- times. Conservationist who view land only as a
eral guidelines and standards. This approach resource are ignoring the social and economic
represents a partnership of shared state and local impact that would come with any massive restric-
management responsibilities. The Coastal Policy tions on the free transferof ownership. On theother
Council is responsible for statewide oversight and hand. land speculators who view land only as a
coordination, while local units. coastal resource dis- commodity are ignoring the growing public realiza-
tricts. are to develop more specific programs for tion that a finite supply of land can no longer be

dealt with in the free wheeling ways of A rn'erica's
frontier heritage.
The attempt then of the coastal management pro-
gram has been to identify those geographic areas of
the Municipality's coastal area that are best suited
for future growth and expansion and economic
activity, while recognizing that other areas of the
Municipality are less suited for such uses or inten-
sity of uses and must have certain restrictions
placed upon them. There are also areas that are in
need of protection, enhancement, and preservation.
The development of the Anchorage Coastal Man-
agement Plan has attempted to recognize the eco-
nomic, the livability, and the natural resource base
in developing its program.

CHAPTER 11

REQUIREMENTS OF THE ALASKA COASTAL MANAGEMENT ACT

INTRODUCTION (3) develop a management program which sets out
The previous chapter described the geographical policies, objectives, standards and procedures
setting of Anchorage as it related to coastal man- to guide and resolve conflicts among public and
agement needs, issues and problems, and outlined private activities involving the use of resources
the basic goals of the district program. The purpose which have a direct and significant impact upon
of the present chapter is to relate Anchorage's pro- the coastal land and waters of the State;
gram to the specific requirements of the Alaska (4) assure the participation of the public, local
Coastal Zone Management Act. The chapter is governments, and agencies of the State and
structured to emphasize the relations of the Anchor- Federal governments in the development and
age program to the key policies and requirements of implementation of a coastal management pro-
the Act and Part 6, Alaska Administrative Code, gram;
Chapters 80 and 85, Standards and Guidelines relat-
ing to coastal zone uses and activities, boundaries, (5) utilize existing governmental structures and
areas meriting special attention, public participa- authorities, to the maximum extent feasible, to
tion. and implementation procedures. achieve the policies set out in this section; and
GENERAL POLICY (6) authorize and require State agencies to carry
The overriding philosophy of the State of Alaska is out their planning duties, powers and respon-
that the coastal zone of the State is a distinct and sibilities and take actions authorized by law with
valuable natural resource of concern to all the peo- respect to programs affecting the use of the
ple of the State and that the demands upon the resources of the coastal area in accordance with
resources of the coastal area are significant and will the policies set out in this section and 'the
increase in the future. The findings of the legislature guidelines and standard! adopted by the Alaska
are significant and provided the basic conceptual Coastal Policy Council under AS 46.35.
framework from which Anchorage could develop a Sec. 46.35.030. Development of District Coastal
planning methodology. The legislature stated that Management Programs.
"the protection of the natural and scenic resources Coastal resource districts shall develop and adopt
and the fostering of wise development of thecoastal district coastal management programs in accord-
area are of concern to present and future citizens of ance with the provisions of this chapter. The pro-
the State, and the capacity of the coastal area to gram adopted by a coastal resource district shall be
withstand the demands upon it is limited." Also of based upon a municipality's existing comprehen-
importance is the finding by the legislature that "the sive plan or a new comprehensive resource use plan
degree of planning and resource allocation which or comprehensive statement of need3, policies,
has occurred in the coastal area has been motivated objectives and standards governing the use of
by short term considerations, unrelated to sound resources within the coastal area of the district. The
planning principles." Based upon these findings the program shall be consistent with the guidelines and
legislature concluded that "in order to promote the standards adopted by the council under Section 40
public health and welfare, there is a critical need to of this chapter and shall include:
engage in comprehensive land and water use plan-
ning in coastal areas and to establish the means by (1) a delineation within the district of the bound-
which a planning process and management pro- aries of the coastal area subject to the district
gram ... may be effectively implemented." coastal management program;
Based upon these findings the legislature devel- (2) a sttement, list ordefinition of the land and water
oped the following general policy to direct coastal uses and activities subject to the district coastal
zone management planning, management program@
It is the policy of the State to: (3) a statement of policies to be applied to the land
and water uses subject to the district coastal
(1) preserve, protect, develop, use, and where neces- management program:
sary. restore or enhance the coastal resources of (4) regulations. as app Iropriate. to be applied to the
the State for this and succeeding generations; land and water uses subject to the district coast-
(2) encourage coordinated planing and decision al management program:
making in the coastal area among levels of 5) a description of the uses and activities which wl 11
government and citizens engaging in or affected be considered proper and the uses and activities
by activities involving the coastal resources of which will be considered improper with respect
'the State: to the land and water within the coastal area:

(6) a summary or statement of the policies which cess being utilized for the coastal zone manage-
will be applied and the procedures which will be ment program is based on the general methodology
used to determine whether specific proposals of the land suitability approach. It involves the anal-
for land or water uses, or activities shall be ysis of the physical environment to reveal natural
allowed; and features and characteristics, the interpretation of
(7) a designation of, and the policies which will be these findings, the formulation of rational, explicit
applied to the use of, areas within the coastal criteria, and the identification of "geographic areas
resource district which merit special attention. of particular concern" and their suitability for var-
ious land uses.
The approach to be used by Anchorage in pursuing This philosophy and planning methodology are
coastal zone objectives is that both Federal and consistent with the general requirements of the
State interests must be recognized and that there is Alaska Coastal Management Act of 1977.
a local, State and national interest in the use, protec-
tion and development of coastal resources We REQUIREMENTS OF THE
begin with the assumption that (until proven other-
wise) the entire coastal area of Anchorage is an area REGULATIONS*
of concern. It is only the level of concern that All coastal resource districts are required by State
changes. The second assumption is that not all law to develop and adopt coastal management pro-
areas of the coastal zone are suited for the same grams in accordance with the regulations of the
uses or intensity of uses. Alaska Coastal Policy Council as outlined in 6 AAC
Some urban planners have observed that local 85.010-110. Ten specific program elements are
government land use plans appear to represent cur- listed and include:
rent growth pressures resulting from economic and 1 .NEEDS, OBJECTIVES, AND GOALS
political interests ratherthan land development --apa- Anchorage must include a statement of our
bilities and limitations based on variable character- overall needs, objectives and goals for coastal
istics of natural land areas. The result has too often management.
been the destruction of scarce environmental 2. ORGANIZATION
resources and the serious disruption of natural pro- Anchorage must include a description of the
cesses with evident immediate and future conse- district program organization and include budget-
quences. ary and staff needs and a schedule for reorgani-
Today it must be realized that the characteristics of zation as necessary to implement and carry out a
the physical environment have far reaching effects coastal management program.
on urban development and the pattern of land use. 3. BOUNDARIES
There is a need to incorporate information on natu- Anchorage must map and delineate the bound-
ral phenomenon and processes into the planning aries of the coastal area within the district sub-
process and to apply the resulting analysis for urban ject to the district program in accordance with
development. Broadly stated, the purpose of the the provision of 6 AAC 85.040.
ecological planning method is to understand the
character of a place and to utilize such understand- 4. RESOURCE INVENTORY
ing in planning, its use and development. This phi- Anchorage must include a comprehensive re-
losophy or methodology is the basis for Anchor- source inventory which describes natural re-
age's Coastal Zone Management Program planning source. land use and land status in a manner suf-
process. The purpose behind this approach is sim- ficientfor program developmentand implementa-
ple. The natural research base, land, wate, biota, tion.
and minerals, is finite. Problems result from human 5. RESOURCE ANALYSIS
demands on this natural system because all land Anchorage must include a resource analysis
and waters are not equally suited for all uses. The sufficient in detail for program development and
planner and public policy maker must, in their implementation as specified in 6 AAC 85.060.
respective spheres, understand the diversity of the
land and water and the uses on them in order to 6. SUBJECT USES
encourage sound and balanced development of Anchorage must include a description of the
multifaceted human systems. One of the responsi- land and wter uses and activities which are sub-
bilities of public planners and policy makers should ject to the district program. Uses which must be
be the collection and dissemination of information included, if applicable, are: a) coastal develop-
regarding the complexity of natural resources. ment. b) geophysical hazard areas. c) recrea-
Heretofore, projects in both the public and private tion, d) energy facilities, e) trans 'portation and
realms have too often been undertaken without an utilities. f) fish and seafood processing, g) timber
adequate knowledge of constraints imposed by harvest processing, h) mining and mineral proc-
local land and water conditions, The planning pro- essing, i) subsistence.

e S; a tU I e @- -Cc rc _1 I3@@- 1@-, -
-ese -:7utancns are c@,-n- . :79,c- r@e -as@a L reC -a I I -!az. a35:a:
@,are-et cfl,ce --3 -71

7. PROPER AND IMPROPER USES must, at a minimum, comply with Parts 320-323,
Anchorage's district program must include a Title 33, Code of Federal Regulations (Vol. 42 of
description of the uses and activities, including the Federal Register, pp. 37133-47 (July 19,
uses of State concern, that will be considered 1977).
proper and improper within the coastal area, The district progra .ms will be expected to con-
including land and water use designations. tain waterfront use limitations, in the form of
8. POLICIES zoning or another land use control device which
Anchorage's district program must include a responds to this standard.
statement of the policies that will be applied to USE: RECREATION
land and water uses and activities subject to the
district program and the process which will be Applicable Standard
used to determinb whether specific proposals 6 AAC 80.060. RECREATION.
for land and water uses and activities will be
allowed. Districts shall designate areas for recreational use.
9. IMPLEMENTATION Criteria for designation of areas of recreation use
Anchorage's district program must include a a re:
description of the methods and authority which (1) The area receives significant use by person
will be used to implement the district program. engaging in.recreational pursuits or is a major
10. PUBLIC PARTICIPATION tourist destination; or
Anchorage's district program must include evi- (2) the area has potential for high quality recrea-
dence of effective and significant opportunities tional use because of physical, biological, or
for public participation in program development. cultural features.
In addition to the ten specified program elements, This standard obligates the districts to provide for
the Alaska Coastal Management Program Docu- the recreational needs of their areas by stipulating
ment requires districts to specifically address other that areas shall be designated for recreational use.
important aspects. These include: USE: HISTORIC, PREHISTORIC AND
1. Uses and Activities subject to the Coastal Man- ARCHAEOLOGICAL RESOURCES.
agement Act 6 AAC 80.150. HISTORIC, PREHISTORIC, AND
2. Areas Meriting Special Attention ARCHAEOLOGICAL RESOURCES.
3. Federal Consistency/ Federal Exclusion/Federal
Agency Participation Districts and appropriate State agencies shall iden-
4. Uses of State Concern tify areas of the coast which are important to the
5. Erosion Planning Element study, understanding, or illustration of national-,-
6. Energy Facilities Siting State , or local history or prehistory.
7. Shoreline Access Planning Element This standard requires attention to historic, prehis-
The Alaska Coastal Management Program Docu- toric and archaeological values by the districts and
ment identified nine majoruses or activities that are State agencies.
to be dealt with in the development of district plans. USE: ENERGY FACILITIES
For each of these uses or activites the Alaska Coast- Applicable Standard
al Policy Council has promulgated a standard.
Thesestanclards havethe forceand effect of regula- 6 AAC 80.070. ENERGY FACILITIES.
tions, and both districts and State agencies are (a) Sites suitable for the development of major
bound by them. They are: onshore, nearshore, offshore. and outer conti-
USE: COASTAL DEVELOPMENT nental shelf facilities must be identified by the
Applicable Standard: State in cooperation with districts.
6 AAC 80.040. COASTAL DEVELOPMENT. (b) The siting and approval of major oil and gas
(a) In planning for and approving development in facilities must be based on the policies of the
State of Alaska concerning the on-shore aspects
coastal areas. districts and State agencies shall oil and gas development.
give. in the following order, priority to: (c) Districts shall consider that the uses authorized
(1) water-dependent uses and activities: by the issuance of State leases for mineral and
(2) water-related uses and activities-, and petroleum resource extraction are uses of State
(3) uses ana activites which are neither water- concern. District programs and plans must be
dependent nor water-related for which there consistent with those uses.
is no feasible and prudent inland alternative USE: TRANSPORTATION AND UTILITIES
to meet the public needs for the use or
activity. Applicable Standard
(b) The ,placement of structures and the discharge 6 AAC 30.080. TRANSPORTATION AND
of dredged or fill material into coastal water UTILITIES.

(a) Transportation and utility routes and facilities in (3) roads for log transport and harvest area
the coastal area must be sited, designed, and access must be planned, designed, and con-
constructed so as to be compatible with local structed so as to minimize mass wasting,
community goals and desires as expressed in erosion, sedimentation, and interference
district programsand local comprehensive plans. with drainage, and must be adequately main-
(b) Transportation and utility routes and facilities tained until they are returned to their pre-
must be sited inland from beaches and shore- road natural drainage pattern (put to bed);
lines unless the route or facility is water- and
dependent or no feasible and prudent inland (4) stream crossings, including bridges and cul-
alternative exists to meet the public needs for verts, must be kept to a minimum number,
the route or facility. designed to withstand seasonal high water
and flooding, and must provide for unre-
This stahdard requires compatibility with properly stricted passage of fish.
expressed local desires, and reflects public aware- USE: MINING AND MINERAL PROCESSING
ness of the impact that transportation facilities can
have on communities. However, transportation is Applicable Standard:
also listed as a use of State concern, and thus local
programs may not exclude such uses arbitrarily or 6AAC80.110. MINING AND MINERAL
unreasonably. PROCESSING.
The second paragraph of the standard declares that (a) Mining and mineral processing in the coastal
transportation and utility routes and facilities are area must be permitted, designed, and con-
not automatically high priority uses of the coast and ducted so as to be compatible with the standards
should be kept away from the water's edge in other contained in this chapter, adjacent uses and
than extreme circumstances. activities, regional programs, Statewide and
national needs, district programs, and local
USE: FISH AND SEAFOOD PROCESSING comprehensive plans.
Applicable Standard: (b) Sand and gravel may be extracted from coastal
waters: intertidal areas, barrier islands, and spits,
6AAC80.090. FISH AND SEAFOOD PROCESSING when there is no feasible and prudent alternative
to coastal extraction which will meet the public
Districts shall indentify and may designate areas of needs for the sand or gravel.
the coast suitable for the location or development of The standard calls for compatibility with various
facilities related to commercial fishing and seafood plans, says that the other standards of ACMP
processing. apply to mining activities, and established a low
USE: TIMBER HARVESTING AND PROCESSING priority for sand and gravel extraction from
Applicable Standard: certain areas of the coast. The present standard
is adequate to protect mining as an acceptable
(a) Commercial timber harvest activities in the use in the coastal area, with some limitations,
coastal area must be conducted so as to meet and to control the adverse impacts that mining
the following standards: and mineral processing can have.
(1) the location of facilities and the layout of USE: SUBSISTENCE
logging systems must be managed so as to
minimize potential for adverse enviornmen Applicable Standard:
tal impacts; 6AAC 80-120. SUBSISTENCE.
(2) unrestricted fish movement in coastal water (a) Districts and State agencies shall recognizeand
must be assured. assure opportunities for subsistence usage of
(b) Commercial timber transport, storage, and pro coastal areas and resources.
cessing in the coastal area must be conducted (b) Districts shall identify areas in which subsist-
so as to meet the following standards: ence is the dominant use of coastal resources.
(1) onshore storage of logs must be encouraged (c) Districts may, after consultation with appro-
where compatible with the objectives of the priate State agencies, Native corporations, and
Alaska Coastal Management Program; other persons or groups, designate areas iden-
(2) sites for in-water dumping and storage of tified under (b) of this section as subsistence
logs must be selected and these activities zones in which subsistence uses and activities
conducted so as to minimize adverse effects have priority over all non-subsistence uses and
on the marine ecosystem, minimize conflicts activities.
with recreational kuses and activities, be (d) Before a potentially conflicting use or activity
safefrom storms, and notconstitute a hazard may be authorized within areas designated
to navigation; under (c) of this section, a study of the possible

adverse impacts of the proposed potentially the statutes pertaining to and the regulations and
conflicting use or activity upon subsistence procedures of the Alaska Department of Environ-
usage must be conducted and appropriate safe- mental Conservation with respect to the protection
guards to assure subsistence usage must be of air, land, and water quality are incorporated into
provided. the Alaska Coastal Management Program and, as
(e) Districts sharing migratory fish and game administered by the agency, constitute the compo-
resources must submit compatible plans for nents of the coastal management program with
habitat management. respect to those purposes. (Eff. Reg.) Authority: AS
44.19.893 AS 46.40.040.
The standard is restricted to declaring that subsist-
ence should generally be recognized and protected In addition to setting standards for major uses and
and that districts especially are obliged to identify activities in the coast, the Alaska Coastal Policy
areas of importance to subsistence, and then have Council has identified and promulgated standards
the option of designating and managing such areas for eight major habitats. These standards are
for the benefit of subsistence usage. designed to protect and preserve these habitats,
regardless of the use or activity which takes place
What the standard accomplishes is not necessarily within them. Therefore, in addition to satisfying an
the protection of subsistence usage, although that applicable use standard, a use or activity in a speci-
is called for, but rather enables the districts to iden- fied habitat must meet the relevant habitat standard.
tify and protect subsistence resources, so that, in Habitats include:
turn, subsistence usage may be protected. (a) 1) offshore areas;
In addition, the council has promulgated two stand- 2) estuaries;
ards which apply to all uses and activities listed 3) wetlands and tideflats;
above. 4) rocky islands and seacliffs;
5) barrier islands and lagoons;
GEOPHYSICAL HAZARDS 6) exposed high energy coasts;
6 AAC 80.050. GEOPHYSICAL HAZARDS AREAS. 7) rivers, streams, and lakes: and
(a) Districts and State agencies shall identify known 8) important upland habitat.
geophysical hazard areas and areas of high The key standard applicable to all of these habitats
development potential in which there is a sub- is:
stantial possibility that geophysical hazards may (b) The habitats contained in (a) of this section must
occur. be managed so as to maintain or enhance the
(b) Development in areas identified under (a) of this biological, physical and chemical characteris-
section may not be approved by the appropriate tics of the habitat which contribute to its capac-
State or local authority until siting, design, and ity to support living resources.
construction measures for minimizing property
damage and protecting against loss of life have Additional standards that apply to each habitat
been provided. identified in (a) of this section are:
@s
The standard requires study by the State and local 1. Offshore areas must be managed as a fisherie
governments to identify hazard areas, but limits the conservation zone so as to maintain or enhance
mandatory scope of such studies to areas where the State's sport, commercial and subsistence
development is likely or where there is a suspected fishery.
hazard. 2. Estuaries must be managed so as to assure
In development of district programs then, a geo- adequate water flow, natural circulation pat-
hazard inventory of study will be needed, and then terns, nutrients, and oxygen levels, and avoid
policies and regulations development which will the discharge of toxic wastes, silts, and des-
account for the identified hazards. The local truction of productive habitat.
government must then assure that its regulations 3. Wetlands and tideflats must be managed so as to
are followed in dealing with use proposals in the assure adequate water flow, nutrients, and oxy-
hazard areas. It will be impossible for a local gen'levels and avoid adverse effect 's on natural
government to thoroughly assess each hazard area drainage patterns, the destruction of important
and devise detailed standards to protect any con- habitat, and the discharge of toxic substances.
ceivable use of the hazard area. Thus, the developer 4. Rocky islands and seacliffs must be managed so
should be obligated to conduct the surveys and as to avoid the harassment of wildlife, des-
studies needed to determine exactly what siting, truction of important habitat, and the introduc-
design and construction measures are needed. tion of competing or destructive species and
predators.
AIR, LAND, AND WATER QUALITY 5. Barrier islands and lagoons must be managed so
16AAC80.140. AIR, LAND AND WATER QUALITY. as to maintain adequate flows of sediments,
detritus, and water, avoid the alteration of redi-
Notwithstanding any other provision of this chapter, rection of wave energy which would lead to the

filling in of lagoons or the erosion of barrier (d) areas where development of facilities is
islands, and discourage activities which would dependent upon the utilization of, or access
decrease the use of barrier islands by coastal to, coastal waters;
species, including polar bears and nesting birds. (e) areas of unique geologic or topographic
6. High energy coasts must be managed by assur- significance which are susceptible to indus-
ing the adequate mix and transport of sediments trial or commercial development;
and nutrients and avoiding redirection of trans- (f) areas of significant hazard due to storms,
port processes and wave energy. Rivers, slides, floods erosion or settlement;
streams, and lakes must be managed to protect
natural vegetation, water quality, important fish (g) areas needed to protect, maintain, or replen-
or wildlife habitat and natural water flow. ish coastal land or resources, including
coastal flood plains, aquifer recharge areas,
IMPORTANT UPLAND HABITAT beaches and offshore deposits;
This category is intended to include all uplandareas (h) potential estuarine or marine sanctuaries;
within the coastal zone which are important for wild- (i) areas important for subsistence hunting,
life habitat. fishing, and food gathering; and
No special standard has been promulgated. (j) areas with special scientific values or
In recognition of the fact that complete nondegra- opportunities.
dation is an impossible standard to meet, and that in District management programs must include man-
certain instances tradeoffs between natural values agement schemes for areas which merit special
and other human values will have to be made, the attention and must preserve, protect, enhance, or
Council adopted the following: restore the value or values for which the areas are
(d) Uses and activities in the coastal area which will designated.
not conform to the standards contained in (b) Federal Consistency/Exclusion/and Participation
and (c) of this section may be allowed by the
district or appropriate State agency if the follow- Federal agencies are obligated to participate in
ing are established: coastal management by Federal law and thus will be
involved in local program development and imple-
(1) There is a significant public need for the pro- mentation. The ACMP guidelines and standards,
posed use or activity; likewise, require that coastal resource districts pro-
(2) There is no feasible and prudent alternative vide opportunities for Federal involvement in the
to meet the public needs for the proposed development and approval of the district programs.
use or activity which would conform to the The Coastal Zone Management Act requires exclu-
standards contained in (b) and (c) of this sion of certain Federal lands from the state's and
section; and district's designated coastal management area. It
(3) all feasible and prudent steps to maximize defines these as lands the use of which is by-law
conformance with the standards contained subject solely to the discretion of the Federal
in (b) and (c) of this section will be taken. government, or lands which are held in trust by the
Other required program elements are briefly de- Federal government. Excluded lands, while they
scribed below: may be surrounded by lands and water that lie
within the state's coastal boundary, are outside the
Areas Meriting Special Attention - Article 4, 6 AAC scope of its management program, except when the
80.16 use of these lands affects the coastal area.
A. Means - a delineated geographic area within Federal lands in the Anchorge Coastal Area, includ-
the coastal area which is: ing both owned and ]eased areas, are indicated on
(a) sensitive to change or alteration and war- the land ownership map for Eagle River and
rants special management, attention, or, Anchorage and Turnagain Arm. These maps have
(b) which because of its value to the general pub- been compiled from the most current information
lic, should be identified for current or future available from each of the Federal agencies con-
planning, protection, or acquisition. cerned. While most Federal lands are excluded from
the coastal management program, those areas in
B. These areas include: which the Federal government holds a less than
(a) areas of unique, scarce, fragile or vulnerable possessory interest, such as easements, are not
natural habitat, cultural value, historical sig- excluded.
nificance, or scenic importance; Facilities, activities, or programs on Federal lands,
(b) areas of high natural productivity or essen- whether excluded or non-excluded, must be con-
tial habitat for living resources; sistent to the maximum extent practicable with
(c) areas of substantial recreational value or approved district programs. Thus, ongoing Federal-
opportunity; district-State coordination will be necessary.

Federal agency participation is particularly impor- USES OF STATE CONCERN
tant in the Municipality of Anchorage. The Alaska Anchorage, as a coastal resource district, is obli-
Native Claims Settlement Act transfers some 115,000 gated in the ACMP Guidelines to consider and pro-
plus acres to Eklutna Inc. and transfers land to Cook vide for uses of State concern, and thus will be
Inlet Regional Native Corporation. The presence of accountable to the State and national interest.
two large military installations in Anchorage and the
Alaska Railroad (a Federally owned railroad) occupy Uses of State concern are defined as:
large amounts of land in the coastal zone. Chugach "Uses of State concern" means those land and water
National Forest occupies a large portion of the Mu uses which would significantly affect the long-term
nicipality and located within this Federal boundary public interest; these uses, subject to council defini-
are some of the better coastal wetland areas. tion of their extent, include:
The Alaska Railroad has easements along a majority (A) uses of national interest, including the
of the coastal zone and thus the need for Federal resourses for the siting of ports and major facil-
participation, coordination and cooperation in ities which contribute to meeting national energy
coastal planning. needs, construction and maintenance of naviga-
Federal agency 'partici pati on in the planning pro- tional facilities and systems, resource develop-
cess is important because the CZMA provides that ment of Federal land, and national defense and
once a State program is approved (and district pro- related security facilities that are dependent
grams are part of the State program), Federal agen- upon coastal locations;
cies must conform to it to the maximum extent prac- (B) uses of more than local concern, including those
ticable in all of their activities, including the issuance land and water uses which confer significant
of Federal permits and licenses. enviornmental, social, cultural or economic
benefits or burdens beyond a single coastal
The CZMA is clear in its intent that Federal activities resource district;
in the coastal zone be consistent with State efforts. (C)the siting of major energy facilities or large-
Section 307(c) (a) states: scale industrial or commercial development
"Each Federal agency conducting activities which are dependent on a coastal
or supporting activities directly location and which, because of their magnitude
affecting the coastal zone shall or the magnitude of their effect on the economy
conduct or support those activities of the State orthe surrounding areas, are reason-
in a manner which is, to the maxi- ably likely to present issues of more than local
mum extent practicable, consistent significance;
with approved State management (D) facilities serving statewide or interregional trans-
programs." portation and communication needs: and
However, Section 304(a) states in part: (E) uses in areas established as State parks or
"Excluded from the coastal zone recreational areas under AS 41.20 or as State
are lands the use of which by law is game refuges, game sanctuaries orcritical habi-
subject solely to the discretion of tat areas under AS 16.20.
or which is held in trust by the
Federal Government, its officers or EROSION PLANNING ELEMENT
agents." Erosion mitigation is part of 6 ACC 80.050 - Geo-
In order to clarify the degree of control that states physical Hazard Areas which states that:
may exercise over activities on Federal lands, the (a) Districts and State agencies shall identify known
U.S. Justice Department rendered a legal opinion geophysical hazard areas and areas of high
on August 10, 1976, which in summary states: development potential in which there is a sub-
... the exclusionary clause stantial possibility that geophysical hazards may
excludes all lands owned by the occur.
United States from the definition of (b) Development in areas identified under (a) of this
the coastal zone." section may not be approved by the appropriate
The identification of Federally-owned lands within State or local authority until siting, design, and
the Municipality's coastal waters or within the plan- construction measures for minimizing property
ning boundary along the coast has been concluded. damage and protecting against loss of life have
been provided.
Coastal management planning staff are currently Thus development and implementation of an ero-
conducting meetings with the various Federal sion planning element will occur through district
agencies involved in the Anchorage area in attempts and State efforts to identify hazards and the regula-
to incorporate Federal comments into the planning tion of development such that loss of life is pre-
process at an early date. vented and property damage is minimized.

ENERGY FACILITY SITING PLANNING development of Federal land, and
ELEMENT national defense and related security
FEDERAL REQUIREMENTS facilities that are dependent upon coast-
al locations"; and (AS 46.40.210(6) (A))
The Coastal Zone Management Act of 1972, as "the siting of major energy facilities or
amended in 1976, requires that states develop "a large-scale industrial or commercial
planning process for energy facilities likely to be development activities which are
located in, or which may significantly affect, the dependent on a coastal location and
coastal zone, including, but not limited to, a process which, because of their magnitude or
for anticipating and managing the impacts from the magnitude of their effect on the
such facilities" (Section 305(b) (8)). To require economy of the State or surrounding
coastal states to pay special attention to energy areas, are reasonably likely to present
facility siting and to address the following procedur- issues of more than local significance."
al elements: (AS 46.40.210(6) (C)).
"(1) an identification of energy failities The uses so defined, the Standards and Guidelines
which are likely to locate in, or of the Alaska Coastal Management Program require
which may significantly affect, the the State, in cooperation with coastal districts, to
coastal zone; identify sites suitable for major facilities and to
(2) a procedure for assessing the approve actual siting decisions on the basis of State
suitablility of site for such facilities; policies concerning the onshore and nearshore
(3) articulation of State policies and the aspects of oil and gas development (6 AAC 80.070).
techniques for the management of DEFINITION OF MAJOR ENERGY
energy facilities and/or their FACILITIES
impacts; In the context of the framework established by the
(4) a mechanism for coordination State Act and Standards and Guidelines, a major
and/or cooperative working arrange- energy facility is defined as a development carried
ments, as appropriate, between the out in, or in close proximity to the coastal zone,
State coastal planning or man- which meets one or more of the following criteria:
agement agency and other relevant (a) a facility required to support energy operations
State, Federal and local agencies on Federal and State lands leased for explora-
involved in energy facility planning tion and production purposes;
and/or siting, including conformity
of siting program where they exist (b) a facility utilized to produce, convert, process or
with the Coastal Zone Management store energy resources and marketable products;
Program; and (c) a facility utilized for transfering, importing or
(5) an identification of legal and other exporting energy resources and marketable
techniques that can be used to meet products;
management needs." (d) a facility utilized for in-State energy uses of
more than local concern; or
STATE REQUIREMENTS (e) a facility used primarily for the manufacture,
The other half of the objective to manage onshore production, or assembly of equipment, machin-
and nearshore activities associated with energy ery, products or devices which are involved in
development is built into the Alaska Coastal Man- any activity described in (a) - (d).
agement Act of 1977 where the legislature directs
'the Coastal Policy Council to: ENERGY FACILITIES LIKELY TO AFFECT
"initiate a process for identifying and THE COASTAL ZONE
managing uses of State concern within Majorenergy facilities determined as likely to locate
specific areas of the coast. . in, or significantly affect Alaska's coastal zone
(AS 46.40.040(4)). include:
By "uses of State concern," the Act identifies those (a) exploratory drilling vessels
land and water uses which would significantly affect (b) petroleum production platforms
the long-term public interest, i.e.: (c) marine service bases and storage depots
11 uses of national interest, including the (d) pipelines and rights of way
use of resources for the siting of ports (e) petroleum or coal separation, treatment and
and major facilities which contribute to storage facilities
(f) LNG plants and terminals
meeting national energy needs, con- (g) oil terminals and other port development for
struction and maintenance of naviga- the transfer of energy products
tional facilities and systems, resource (h) conrete platform fabrication yards

PROGRAM ELEMENTS

USES AND ACTIVITIES IMPLEMENTATION

Land Use 6AAC
Resource Suitability 86.050
Inventory classification GAAC 80.040
and or 16AAC Coastal Development
Resource P.C.U. 85.060
Analysis Concept -0 6AAC 80.05.0
Geophysical Huard Areas

GAAC 80.060

Coastal GAAC Recreation
Resource 86.060
Policy 4-- SAAC 80.070
BAAC Screening Units Energy Facilities
86.080 process -40 6AAC 80.080 GAAC 86.100
aviron- Transportation & Utilities
GAAC mental SAAC 80-090 IMPLEMENTATION
85.090 Matrix Proper -.0
and Fish & Seafood Processing 1. Techniques
Improper
Cl) Use 4AAC --0 6AAC 80.100 2. Methods
Idea ification 85.080 Timber Harvesting Ordinances
I 6AAC 80.110 208 Water Quality
Uses and :6AAC Mining & Mineral Processing Air Quality
Activities 85.070 GAAC 80.120 State Lam
Subject to Subsistence Federal Laws
District Zoning
Man GAAC 80.130 Performance
Habitats Standards
Areas Historical & Arch Sites SAAC 80.150
Meriting
Special 6AAC 6AAC 80.140
Attention 80.160 Air, Land, Water Quality

Management DISTRICT COASTAL MANAGEMENT
Boundary PLAN PROCEDURAL FLOW DIAGRAM
upar 6AAC 86.040 Figure 9
Us, 6A
if.,U,.n 85.1

'6AA
C
80.1 60

-
'y
m@
da
6AAC 86.10

mo W Ew Mw on so M M

(i) petrochemical plants The Alaska Coastal Policy Council is charged with
(j) refineries and associated facilities developing the Alaska Coastal Zone Program. The
(k) hydroelectric projects council has adopted regulations for managing coast-
(1) other electric generating plants al areas in Title 6 of the Alaska Administrative Code
(m)transmission lines (6 ACC 80.00 and 6 ACC 85.00). Although the regu-
(n) uranium enrichment or nuclear fuel processing lations contain recreation concerns, there are no
facilities specific standards to guarantee public shoreline
(0) geothermal facilities access. The Alaska Coastal Management Act and
(p) tidal power coastal regulations do, however, appear to grant
authority to State agencies and local districts to
SHORELINE ACCESS PLANNING plan for public access.
ELEMENT Therefore, Anchorage will, as part of its current and
The Federal Coastal Management Act of 1972, as on-going coastal planning process, prepare a
amended, specifically calls for states to develop a shoreline access plan in accordance with the
planning and management process to address pub- requirements of the ACMP program document.
c access and public use of coastal area.s. Federal
regulations pursuant to Section 305(b) (7) of the Act Figure 9 illustrates the procedural elements of the
c'iite six elements that are required in order for states coastal management planning process and relates
to adequately address the access issue in the con- each step to the specific State administrative code
text of receiving Federal program approval. requiring each step.

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36 1

CHAPTER III
THE PLANNING METHODOLOGY AND PROCESS

INTRODUCTION which directs its coastal management program
The problems associated with land use conflicts toward a balanced diversity for scarce resources.
and environmental sensitivities in the coastal zone An extreme emphasis of either preservation, con-
are issues well documented in most cases and servation or development philosophies would be at
ones with which the public are readily aware. Cog- odds with the mixed existing pattern of shoreline
nizance of these land use conflicts and environment- uses. The demand for space in the coastal area will
al issues should not, however, keep us from being continue to increase as the population of Anchor-
acutely aware that coastal zone utilization is one of age continues to increase. These supply-demand
the most significant planning and resource man- relationships will intensify the competition which
agement issues facing us at this time. now must be faced when determining the most
The Municipality recognizes the pertinent issues appropriate land and water uses in the coastal zone.
and conditions that prevail in its coastal area and Rational consideration of long-term objectives
has developed certain "balanced-use" objectives in should therefore be incorporated into the process of
preparation of its coastal zone management plan. defining permissible uses and the priority of those
The plan will: area. However, therearesome important considera-
tions which go beyond a decision between preser-
(1) Be formulated in an objective and impartial vation, conservation and development, and also go
manner, utilizing well-defined techniques and beyond general coastal use classification. Instead
criteria. of deciding upon either/or issues, answers must
(2) Attempt to strike a balance between develop- often be phrased in terms of degrees - how much
ment and preservation interests. density, which natural features to preserve and
which to develop, etc. This can be most effectively
(3) Be as compatible with regional planning efforts handled through existing zoning ordinances, com-
as possible. prehensive land use plans, and through existing
(4) Provide maximum retention of land and water state land and water use statutes (air and water
use options for the future. quality).
(5) Allow for the wisest possible use of the coastal The Anchorage coastal management plan identifies
zone. specific geographic areas within the coastal area
(6) Protect the long-term interests of the Municipal- and applies Federal and State statutes and regula-
ity by maintaining and enhancing the quality of tions (existing) to these areas. Local ordinances and
life in the coastal zone. land use regulations are then also applied to each
(7) Utilize existing land use controls wherever and specific geographic area. For example, one geogra-
whenever possible. phic area has been labeled "hazardous lands." Exist-
ing land use regulations do not appear to satisfac-
BALANCED-USE PHILOSOPHY torily cover this subject. The Anchorage coastal
The Coastal Zone Management Act (CZMA) estab- management plan then makes specific recommen-
lished a balanced-use philosophy in its require- dations to "fill the gap"; to recommend that as part
ments to establish a definition of land and water of its implementation program research be con-
uses which have direct and significant impacts an ducted to identify what other municipalities, coun-
coastal waters. The CZMA specified that the proc- ties and states have done in this area and then to
ess through which permissible uses are established prepare a local geotechnical hazards ordinance.
includes consideration of development and utiliza-
tion as well as conservation and preservation (PCU) Existing regulations are used wherever possible, in
activities. The rules and regulations adopted for the an attempt to reduce the need for more and for new
Act state that in the process of determining permis- regulations. Only in specific instances where ade-
sible uses, consideration should be given to: require- quate controls do not exist is a recommendation
ments for industry, commerce, residential devel- made for new regulations.
opment, recreation, extraction of mineral resources
and fossil fuels, transportation and navigation, waste It should be noted that specific land and water uses
disposal, as well as the harvesting of fish, shellfish are not spelled out or prioritized: instead, all uses
and other living marine resources. Also required is are subject to existing regulations, zoning and ordi-
lull consideration of ecological, cultural, historical, nances which already limit or restrict the types of
aesthetic, archaeological, economic development uses that can be allowed.
and national intere@t aspects of coastal zone use During the .resource inventory and analysis phase of
activities. the planning program it was found that certain geo-
Anchorage has directed its coastal management graphic areas of the Municipality possess varied
planning efforts toward development of a philosophy characteristics: that is, certain areas are essentially

suitable for urban and rural development whereas plan. Such a concept of land designation into three
other areas have natural features that are less toler- broad use environments is needed in order to plan
ant of such development, and other areas can be for the management of coastal areas according to
made suitable for development provided certain their ecological sensitivities and hence, suitabilities
measures aare taken before development. In for specified land and water uses. The generic terms
essence, the process is one of identifying the sub- used for the three land and water unit suitability
units of the total landscape based on suitabilities for categories as applied to the Municipality's method-
use. This process of land use suitability analysis ology are Preservation, Conservation and Utiliza-
makes it possible to prescribe dominant and subor- tion (PCU) Environments.
dinate land uses for each subunit of the coastal Each environment represents a particular emphasis
landscape within the Municipality based upon exist- in the type of uses and the extent of development
ing or proposed regulation and based on a biophys- which should occur within it. The system is designed
ical cultural delineation of the coastal area. This to encourage uses in each environment which
planning methodology makes possible objective enhance the character of the environment while at
rather than subjective determinations regarding the same time requiring reasonable standards and
permissible uses within the area subject to the coast- restrictions on development so that the character of
al resource management plan. This methodology the environment is not destroyed.
involves inventorying and mapping data on natural
phenomenon, interpreting this data in light of its The determination as to which designation should
positive and negative characteristics, and designat- be given to any specific coastal area has been based
ing land use suitability classes. on and is reflective of the existing development
pattern, the biophysical capabilities and limitations
This concept is expressed both in a graphic and of the land and the goals and objectives as outlined
narrative manner by utilizing the Preservation, Con- in the Anchorage Comprehensive Development Plan
servation, Utilization concept in conjunction with Ordinance.
policy charts. Each of the three environments is actually a compo-
Each of the Preservation, Conservation and Utiliza- site of many subclasses. A concept which is central
tion environments is subdivided into numerous to the deisgriation of permissible uses is that of
coastal resource policy units or geographic seg- 11 geographic segmentation." This concept involves
ments. Each coastal resource policy unit is the a division of the coast into different coastal resource
result of the resource inventory and analysis and is a policy units, each representing a particular type of
mappable unit. Once these units were mapped, a environment. These resource policy units are not
thorough legal review was made to ascertain which defined solely on a biophysical basis, but rather,
Federal, State or local land and water use contr6ls may represent an environment which takes on a
applied to it. These regulations are listed in a policy special character due to man's activities there i I
chart and each policy chart is accompanied by a Thus, resource units represent both biophysical
map delineating the resource policy unit. and social values as well.
In summary, the philosophy of balanced use should The coastal zone, while a continuous system, is
reduce the competition and the total demand on actually a composite of numerous and distinct coas-
coastal zone resources by attempting to allocate tal resource units - each with its own particular
those activities that are not water dependent or character. An effective and equitable coastal man-
related (or significantly enhanced by a coastal zone agement plan must be tied to specific areas within
location) to other areas within the Municipality. the coastal resource district. Thus the purpose of
Prior existing land uses would not be affected, only subdividing the three environments into subunits or
those that are proposed or not yet considered. Exist- coastal resource policy units. Secondly, these pol-
ing uses will be dealt with by existing land use plans icy units are mappable units.
and ordinances and through the use of new ordi- While the coastal resource district should be thought
nances. of as being a continuous system, effective land
PRESERVATION, CONSERVATION, management and planning is based on plans which
UTILIZATION CONCEPT take into account the natural diversity of the coastal
In order to more effectively implement goals, objec- area. The geographic segmentation of the coastal
tives and policies of the Anchorage Coastal Man - area into units of a similar nature allows planners to
agement Plan and the Alaska Coastal Management prepare plans which address the particular charac-
Act, the coastal areas of the-Municipality have been teristics of a given area. In this way land use controls
can be tailored to fit needs of specific sections of the
categorized into three broad use environment. The coastal area. The act of segmentation reveals a
purpose of these designations is to differentiate recognition that the coast is not homogenous. Land
between areas whose geophysical, biological and uses which exist in harmony in one coastal environ-
cultural features imply differing objectives regard- ment may be entirely inappropriate for another. The
ing their use and future development. process of geographic segmentation is designed to
Some measure of an area's suitability for develop- provide planners and decision-makers with the
ment is essential to any coastal zone management means for examining the coastal area in light of its

natural diversity and to plan for and manage it environmental resources and the serious disruption
accordingly. of natural processes with evident immediate and
Identification of resource units within the coastal future consequences.
resource district allows specific policies to be writ- Today it must be realized that the characteristics of
ten that apply to each unit, and for this reason the the physical environment have far reaching effects
resource units shall be called "coastal resource pol- on urban development and the pattern of land use.
icy units." There is a need to incorporate information on natu-
Table 111-3 illustrates the grouping of the coastal ral phenomenon and processes into the planning
resource policy units and their linkage with the process and to apply the resulting analysis for urban
three environments. development. Broadly stated, the purpose of the
ecological planning method is to understand the
Chapter V describes and defines the coastal re- character of a place and to utilize such understand-
source policy units and defines the three environ- ing in planning its use and development, This philo-
ment designations - P.C.U. sophy or methodology is the basis for Anchorage's
Since the CZMA requires a comprehensive ap- Coastal Zone Management Program planning proc-
proach to the use and management of all resources ess. The purpose behind this approach is simple.
in the established area or jurisdiction, it provides a The natural research base: land, water, biota, and
focal point for coordinating a large number of the mienrals, is finite. Problems result from human
State's and Municipality's existing laws, statutes, demands on thes natural systems, because all land
regulations, ordinances, plans and programs that and waters are not equally suited for all uses. The
have been or will be implemented by the State and planner and public policy maker must, in their
the Municipality. The following pages set forth the respective spheres, understand the diversity of the
planning concept and process utilized in develop- land and wter and the uses on them in order to
ing the Anchorage plan. encourage sound and balanced development of
multi-faceted human systems. One of the responsi-
COASTAL ZONE MANAGEMENT bilities of public planners and policy makers should
PLANNING PHILOSOPHY be the collection and dissemination of information
Traditionally, urban planners have presented objec- regarding the complexity of natural resources. Here-
tives, principles, and standards for the orderly phys- tofore, projects in both the public and private realms
ical development of urban area in the form of Com- have too often been undertaken without an ade-
prehensive Land Use Plans. Such plans have quate knowledge of constraints imposed by local
focused on the location and functional requirements land and water and the uses on them in order to
of residential, commercial, and industrial areas, of encourage sound and balanced development of
community facilities, and the transportation net- is based on the general methodology of the land
work. The designations presented in related land suitability approach. It involves the analysis of the
use plans are often given legalexpression inzoning physical environment to reveal natural features and
ordinances. characteristics, the interpretation of these findings,
n the past few years there has been a tremendous the formulation of rational, explicit criteria, and
increase in public awareness of the complex inter- finally the identification of areas meriting special
aiction between man and his physical environment, attention. Of equal importance in this process is the
accompanied by an increased concern about envir- identification of the cultural features of the lands-
onmental deterioration. The increase in environ- cape: the ownership patterns, the current land uses,
mental awareness has focused realization that some and the services available for the different land uses.
previous attempts at land use planning have fallen This endeavor requires first an inventory of the
short of attaining a comprehensive perspective, and major physical components of land use, which in
that they were in some instances oblivious to the concert establish the character of any given place.
topography, geology, soils, climate, and other natu- THE PLANNING METHODOLOGY
ral phenomenon of an area's physical environment. The planning process required for Coastal Zone
Furthermore, natural processes or changes which Management is illustrated in Figure 10. These plan-
modify and create the natural landscape have occa- ning steps are broken down as follows:
sionally been ignored or inadequately considered in
land use planning. Oftentimes planning has been Step 1 - Designation of Study Areas
based on design, economic, engineering, and trans- The first step in the planning process is the designa-
portation concepts that have considered natural tion of the area of study. The coastal zone manage-
processes only partially or indirectly. More recently, ment contract under which the Planning Depart-
however, some urban planners have observed that ment is oeprating, divided the Municipality of Anchor-
local government land use plans appear to repres- ge into the three study areas or planning units. The
ent current growth pressures resulting from eco- first study area is the Turnagain Arm; the area
nomic and political interests rather than land devel- extending from Potter Marsh to Portage. The second
opment capabilities and limitations based on study or planning unit is the Eagle River/Chugiak/
variable characteristics of natural land areas. The Peters Creek/Eklutna area of the Municipality. This
result has too often been the destruction of scarce area extends from Ft. Richardson to the northern

TABLE 111-3

RESOURCE POLICY UNITS

Preservation Conservation Utilization
Environment Environment Environment

1 Class I Waters 1 Class 11 Waters 1 Class IV Waters

2 Selected Coastal and 2 Class 11 Waters 2 Urban Residential
Wetlands

3 Tidal Flats 3 Scenic Corridors, Areas 3 Urban Development
and Vistas

4 Salt Water Marshes 4 Park and Recreation 4 Urban Waterfront
Areas

5 Coastal Habitats 5 Marginal Lands 5 Rural

6 Coastal Bluff/Cliffs 6 River Floodplains

7 Hazardous Lands 7 Open Space

8 Historical, Archaeological 8 Forestry Management
Sites and Natural Areas Areas

9 Coastal Flood Zone

@w' vow ow No, go, so M" wt) No, ,no,

I im it of the Municipality at the Knik River bridge. The a. the preparation and continued updating of a
third planning unit or area of study is the Anchorage Municipal wide inventory of the land use and nat-
Bowl or Metropolitan Area. ural resources of the Municipality;
Step 2 - Data Requirements b. projections of the nature, quantity, and compati-
The second planning step involves the identification bility of land needed and suitable for recreation,
of the types of data required to perform the coastal parks, and open space; scientific and educational
zone management program. For this study the purposes; protection of areas of critical environ-
selected major data categories are: geology, hydrol- mental concern; conservation and preservation
ogy, physiography, soils, vegetation, wildlife, haz- of natural resources; forestry; industry and com
ards, and land use. However, as the inventory pro- merce, including the generation and transmis-
gressed, other data categories were added to meet sion of energy; solid waste management; trans-
the special requirements of the State Coastal Man- portation; housing, urban development, and the
agement Act. This sequence is significant because economic diversification of the community, tak-
it reflects casual relationships. By understanding ing into consideration future demands for and
the surface geology and hydrolic processes of a limitations upon the suitabilityand capabilities of
place, the soil types can be interpreted. Information the land;
on soils in turn determines to some extent the habi- c. the preparation and continuing revision of an
tat areas of the various wildlife found within the inventory of environmental, geological, and phys
Municipality. A subclass of physiography and one ical conditions which influence the desirability of
that has been set aside as a separate class for the various uses of land.
study is Hazards Identification. For each of the
major categories, data is collected, compiled, des- Step 4 - Conceptional Framework
cribed, and mapped. This planning process takes We begin step four with the assumption that the
into consideration ecological inter-relationships, entire coastal zone of Anchorage is an area of con-
and also man's desires, needs, wants, and uses for cern. It is only the level of concern that changes. The
land. Of importance to note at this time are the data second assumption that can be made is that not all
gaps that currently exist. Data is frequently frag- areas of the coastal zone are suited for the same
mentary, incomplete or completely lacking. For uses or intensity of uses.
example, no soil maps or data are available for a
majority of the Turnagain Arm; and aquifer recharge Next, a conceptual framework is designed
areas have not been adequately studied or mapped. (P.C.U.) with which we can apply the remainder of
Therefore, coastal management planning must pro- the planning steps and one which permits the identi-
ceed with available data, but allow for future data fication and use of the desired information. As a
acquisition and program update and modification. result of the analysis of the factors considered, it
was found that portions of the Municipality's land
Step 3 - Land UselResource Inventory possess characteristics that are essentially suitable
The third step in the process is the biophysical and for urban development, whereas other portions
land use inventory. Step three is where actual plan- have natural features that are less tolerant for such
ning begins with the gathering of detailed data development; thus, the development and use of the
directly or indirectly related to a specific geographic, P.C.U. concept.
area called the Planning Unit. The data is an infor-
mation base upon which inter-disciplinary planning Step 5 - Resource Policy Unit Designation
is undertaken to identify and resolve land use and Conducting the resource inventory and performing
resource conflicts. Decisions can then be made, an analysis of the baseline data permitted the total
then detailed development oraction plans prepared landscape to be geographically segmented into
for each activity in the coastal management pro- specific units. This was done to allow for directing
gram. The data is presented as resource maps for poilcies at specific areas and to permit ease of
each planning unit. A narrative describing thecoast- implementation. This process also permitted the
al resources of each planning unit will accompany ability to identify those areas of the Municipality in
the resource maps. need of special attention, both in terms of manage-
The inventory function of the planning process ment and in terms of adequacy of existing land use
should be viewed as an ongoing series of actions regulations. These geographic areas are called
related to collecting information and rendering that coastal resource policy units, and when combined
information useful for problem solving and decision- they can be grouped to fit into one of the three
making, both for specific land use questions en- P.C.U. environments (table 111-3). The designation
countered on a day-to-day basis and for policy for- of resource policy units is a key element in the coast-
mulation and long range planning. Thus, the inven- al management plan because specific land and
tory function serves as a data base forother planning water uses can be weighted against each policy unit
programs, many of which are interrelated with each to determine which uses could cause direct and
other. significant impacts in any geographic area of the
coastal zone. Table 111-4 illustrates this concept.
The purposes to be served from the inventory func- The table represents an example of a planning tool
tion related to coastal zone management are: that was used to determine probable impacts and

ANCHORAGE
COASTAL MANAGEMENT
PLANNING PROCESS

STEP 1 Designation of planning units

S Data requirements definition

STEP 3 Resource inventory and analysis

Biophysical Cultural

STEP 4 Conceptual framework for coastal
management planning

L STEP 5 Resource policy unit designation

Environmental I
Impact Tables I

STEP 6 P.C.U. land use suitability matrix

STEP 7 Areas meriting special attention

STEP 8 Management boundary identification

STEP 9 Legal review

STEP 10 Policy chart development

STEP 11 Implementation
TEP 2

needs for new land use regulations that could lic Law 92-583 encourages this program to include
reduce or mitigate impacts associated with develop- "an inventory and designation of areas of particular
ment. concern." The State CMA refers to these areas as
Step 6 - P.C. U. Land Use Suitability Matrix "areas meriting special attention." The guidelines
The concept behind the development and use of the attendant to the law further expound on this inven-
matrix is presented here for purposes of clarifica- tory and suggest areas that should be considered.
tion. The "areas" refer to geographic areas which should
reflect consideration of "(1) Areas of unique, scarce,
Data are of little use until they are interpreted and fragile, or vulnerable natural habitat, physical fea-
evaluated. The purpose here is addressing the prob- ture, historical significance, cultural value and
lem of evaluation: which lands are intrinsically suit- scenic importance; (2) Areas of high natural pro-
able for preservation, for conservation, which are ductivity or essential habitat for living resources,
most suitable for commerce and industry, and including fish, wildlife, and the various tropic levels
which for residential land use? in the food web critical to their well-being; (3) Areas
The basic proposition employed is that each area of substantial recreational value or opportunity; (4)
has an intrinsic suitability for certain land uses and Areas specially suited to intensive use for develop-
finally, that certain areas lend themselves to multi- ment and where development and facilities are
ple coexisting land uses. The productor resultof step dependent on the utilization of, oraccess to, coastal
six is the designation of resource capability (policy) waters; (5) Areas of unique geologic or topographic
units and that these resource policy units can fall significance to industrial or commercial develop-
into three broad suitability classes called Preserva- ment: (6) Areas of urban concentration where shore-
tion, Conservation and Utilization (PCU). These pol- line utilization and water uses are highly competi-
icy units represent biological, physical and cultural/ tive; (7) Areas of significant hazard if developed, due
social values. to storms, slides, floods, erosion, settlement, etc.;
and (8) Areas needed to protect, maintain or replen-
The CZMA requires the managing entity to deter- ish coastal lands or resources, such areas including
mine which land and water uses have "direct and coastal flood plains, aquifer recharge areas,
significant" impacts on coastal lands and waters beaches, off-shore sand deposits, etc.
and which do not. Those uses which do not have An important phase in the overall methodologyisto
such impacts are exempt from the coastal manage- solicit public input and incorporate that input into
ment program. By viewing potential environmental the planning process. The viewpoint of the public
impacts and weighing land uses against each seems an effective means to begin this designation
resource policy unit, a broad measure of an area's of areas meriting special attention. It would be pre-
suitability can be determined and direct and signifi- sumptuous for only staff of this program to enumer-
cant impacts generally identified. ate "areas meriting special attention" for such broad
The matrix is rated numerically one, two and three. subjects as stated in both the State and Federal
The number one is used to imply minimal probable guidelines. Yet, the public workshop and hearing
impact would resultfrorn conducting a specific land process could become unwieldy if open to the com-
use in a specific resource policy unit provided all plete forum of local government bodies, special
existing regulations are followed. The number two interest groups, and the public at large without
is used to imply moderate probable impact, but some tentative recommendations. All groups should
impacts that could generally be overcome by proper eventually be able to contribute to the determina-
design, engineering and construction. Those uses tion of these areas, but first an approximation deve-
having a value of two can be compared to condi- loped by the Anchorage Planning Department will
tional uses as currently used in the zoning ordi- be used to initiate the process. Thus, the designa-
nance. The number three is used to designate those tion of various particular concerns is tentative. It is
land and waters uses that could have the most sig- subject to extensive review and modification by all
nificant impacts and ones that require careful con- entities at all levels and by the general public. Some
sideration. This implies that either the uses should areas may be added or others deleted as the process
not be permitted or that special measures be taken progresses.
to mitigate the impacts associaed with the use or The identification and delineation of areas meriting
activity. special attention resulted from both the resource
Uses that could have direct and significant impacts inventory and analysis. Viewing the data in an over-
were determined by developing a set of charts that lay fashion permitted an initial determination of
identify various stresses caused by various land use areas in need of special management.
and examining the induced changes and environ- Step 8 - Management Boundary Identification
mental efforts that could result from various uses. By viewing in composite the resource policy units,
Table 111-2, 111-3 and 111-4 illustrate this concept. the resource maps, and the areas meriting special
Step 7 - Areas Meriting Special Attention attention, a management boundary can be deli-
One of the objectives of the Anchorage Coastal neated. The P.C.U. matrix was also utilized at this
Zone Management Program is to compile and assess step to identify which uses might cause direct and
problem areas as perceived by various groups. Pub- significant impacts in each resource policy unit. A

Cm
Sr
:3 iff 10; 20 C 3 = M r 0 Z M > M go
C"
co C., C
C
20 *C)
CL C2
;;, < ff @F
>
ao
CL Sw
M
Cr ct w
0
:n
-n
M M

W W W N3 Class I Waters

Selected Coastal and Wetlands

Tidal Flats

Salt Water Marshes

Coastal Habitats

Coastal Bluff/Cliffs
w - I- IwI I- I- 1wI I" I-- w w w Hazardous Lands
w w w - w I- I-W I- I- w w w w W Historical, Archeological Sites and Nat
w W w - " w I -I - Coastal Flood Zone
w w w w w w w w w I I,- Class 11 Waters
w w w " I I Class I I I Waters
w " w I- I -I w w Scenic Corridors, Areas and Vistas

w w w w w " w " " w Parks and Recreation Areas

Marginal Lands

w - w w " w w w r@ C4 " River Floodplains

" - w w w w w w w @ Open Space
I-
W - - - - - - w " Forestry Management Areas

w Class IV Waters

w w " hi Urban Residential

w rjw w w w w w " Urban Development

w w w " " w w w w cla ww NJW Urban Waterfront

Rural

lm as 1w, so M/ A* M

sketch map was made showing all areas where uses THE APPROACH TO ESTABLISHING
were in conflict with the resource base and this PERMISSIBLE USES
sketch map overlayed with the AMSA map. The
result of this procedure permitted a tentative man- As previously discussed, a concept which is central
agement boundary to be defined. to the designation of permissible uses is that of
"geographic segmentation." This concept involves
Step 9 - Legal Review a division of the coast into different "resource policy
A thorough review was made of all major Federal, units," each representing a particular type of envir-
State and local laws and regulations applicable to onment. Resource policy units are not defined
the coastal area. These laws and regulations were solely on a biophysical basis, but rather, may
then applied to each resource policy unit. The pro- represent an environment which takes on a special
duct of this planning step is a policy for each character due to man's activities there, and thus
resource policy unit map. represent both biophysical and social values as
Step 10 - Policy Charts well.
For each resource policy unit a set of goals and Clearly, one set of permissible uses could not ade-
objectives was identified. The values for each policy quately account for the inherent diversity present
unit were listed so that policies could be developed within the coastal zone of the upper Cook Inlet or
to protect the values identified. The legal review even Turnagain Arm. The coastal zone, whilea con-
undertaken in step 9 was then incorporated into the tinuous system, is actually a composite of numer-
policy charts. Existing laws and regulations were ous and distinct coastal resource units - each with
weighed against the policies for each resource pol- its own particular character. However, before the
icy unit and recommendations were made for addi- subject of "permitted uses" can be discussed, a
tional land use control if needed. definition of certain terms is in order.
Step 11 - Implementation
Public work sessions, appearances before public Coastal Waters
and government groups and work sessions with the Coastal waters can be defined as those waters
Planning and Zoning Commission and the Assem- adjacent to the shorelines which extend inland
bly were conducted prior to the public hearing no further than the limit of regular tidal influ-
process. ence and contain a measurable quantity or
percentage of seawater. Coastal waters com-
prise various ecological systems. These areas
WATER DEPENDENT/ are the tidally influenced streams, estuaries,
WATER RELATED USES tidal deltas, bays, tidal flats, and the beach/
upper shoreface areas.
The Coastal Management Act states that uses in the Shorelands
immediate coastal area be water-dependent orwater- Shorelands are those areas in proximity to the
related. These terms are defined as: shoreline that strongly influence or are strongly
(W D) Water-dependent: influenced by coastal waters. Shorelands are
A use or activity which can becarried outonly areas that begin with the beach/shoreface
on, in, or adjacent to water areas because the interface and extend from that point.
use requires access to the water body for Impact
water-borne transportation, recreation, An impact is the result of a human activity that
energy production, or source of water. causes a measurable change in the chemical,
(WR) Water-related: physical, or biological characteristics of water,
ses which are not directly dependent upon substrate, or biota which are present in coastal
access to a water body, but which provide waters. Impacts are measured by the degree of
guoods or services that are directly associated disruption of the existing composite resource
with water dependent land or waterway use area ecological system. Social impacts also
and which if not located adjacent to water need to be considered, butthe emphasis as per
would result in a public loss of quality in the the CZMA is on those land and water uses
goods or services offered. Residential uses, having direct and significant impact on coastal
parking lots, spoil and dump sites, roads, waters.
factories, restaurants, business, and trailer Direct Impact
parks are not considered dependent on or An activity produces a direct impact if and only
related to water location needs. if it is connected to the coastal waters through
Because a majority of the Anchorage coastal area is ecological systems that both strongly influ-
already committed to several various uses, only ence and are strongly influenced by coastal
small portions remain that can accommodate either waters. The influence of one ecosystem on
water-dependent or water-related uses. Uses which another occurs through the immediate trans-
meet the above definitions shall be limited to the port of water, sediment, nutrients, biota, or
urban waterfront resource policy unit. energy. An activity produces a direct impact if

TABLE III - 2 & 3

POSSIBLE ENVIRONMENTAL IMPACTS

STRESS INDUCED CHANGE ENVIRONMENTAL EFFECT COMMENTS

1. Ground Water Withdrawal 1. a. Salt water intrusion 1. a. Degradation of potable water
b. Subsidence supply
c. Flooding b. Property damage
c. Loss'of fish nursery areas
because of altered water chem-
istry at depth
2. Dredging and Spoil Disposal 2. a. Increased water turbidity 2. a. Loss of marine resources
b. Loss of photosynthetic process b. Possible increase in productiv-
c. Loss of marine resource ity of bay
d. Destruction of habitat c. Destruction of fish and shellfish
e. Alteration of physical & Chemi- nurseries
cal character of estuaries
f. Erosion of coastal areas
41 3. Devegetation 3. a. Increased runoff/increased 3. a. Loss of soil resources
0) flood hazard b. Loss of wildlife habitat
b. Removal of wildlife habitat c. Loss of shorelines
c. Increased erosion d. Flood damage
4. Offshore Construction 4. a. Increase in sedimentation 4. a. Damage to wildlife resources
b. Potential introduction of harm b. View obstruction
ful chemicals into air and water
5. Shoreline Construction 5. a. Alteration of physical character 5. a. Degradation of coastal lands
of estuary b. Production of new shallow
b. Alteration of circulation water habitat
c. Alteration of erosion & deposi- c. Alteration of fish and shellfish
tion patterns nurseries
d. Habitat impact
6. Inland Construction 6. a. Increased runoff other 6. a. Loss of estuary productivity by
pollutants siltation of shellfish beds -
b. Decrease in soil fertility changes in photosynthetic pro
c. Removal of wildlife habitat cess
b. Loss of recreational waters
c. Flooding
d. Loss of wildlife habitat

a= 80 so so, W (am, -00 So, W., @m M M M Me M an M

M Mao M M M M M am M M am @ M @ M

7. Solid Waste Disposal 7. a. Surface water pollution 7. a. Threat to public health disease
b. Ground water pollution - aquifer pollution
c. Air pollution b. Loss of aquatic habitat
d. Influx of certain wildlife species c. Loss of wate recreation
d. Pollution of downstream water
bodies
e. Creates attractive muisance for
wildlife
8. Liquid Waste Disposal 8. a. Degradation of surface water 8. a. Threat to public health disease
- aquifer pollution
b. Loss of aquatic habitat & life
c. Loss of water recreation
d. Pollution of downstream estuar-
ies
9. Gaseous Waste Disposal 9. a. Degradation of surface water 9. a. Threat to public health respira-
tory diseases, etc.
b. Loss of agricultural productivity
c. Property damage
10. Excavation 10. a. Potential leaks and spill 10. a. Loss of marine resources &
b. Potential ground and surface nursery areas
water b. Loss of agricultural productivity
c. Potential for land subsidence c. Loss of natural amenity
d. Alteration or reduction of wild- resources
life d. Loss of habitat
11. Filling 11. a. Destruction of natural 11. a. Loss of wildlife habitat
vegetation b. Loss of natural amenity
b. Alteration of ground-water flow resources
and recharge c. Threat to public health aquifer
c. Increased surface runoff pollution
d. Reduced water storage/ retention
e. Increased flooding potential
12. Draining 12. a. Potential destruction of vegeta 12. a. Loss of wildlife habitat
tion b. Loss of water recreation
b. Increased sediment load in
runoff water
13, Increased Vehicular Traffic 13. a. Destruction of vegetation 13. a. Loss of property
b. Decreased soil stability b. Loss of natural resource
c. Loss of shore protection c. Loss of biotic community
d. Increase in noise levels
14, Subsurface Waste Disposal 14. a. Pollution of groundwater 14. a. Threat to public health disease
b. Pollution of surface water - aquifer
b. Loss of aquatic habitat & life
c. Loss of water recreation
d. Pollution of downstream water-
bodies

it occurs in the ecological systems included in direct and significant impacts can be generally iden-
coastal waters or shorelands. An activity pro- tified through the use of the Enviornmental Impact
duces an indirect impact if the activity is con- Matrix. As previously explained, existing laws and
nected to the coastal waters only through regulations applicable to each resource policy unit
ecosystems thatare not both strongly influenc- -were identified. In most cases, these regulations are
ing and strongly influenced by coastal waters. designed to protect the environment against those
Significant Impact uses which would cause direct and significant
A significant impact is a measurable chemical, impacts and where they do not, new ordinances and
physical, or biological change which exceeds regulations are recommended, as are changes to
a system's prescribed level of ecological toler- the zoning, if needed. So instead of listing specific
ance. This tolerance "threshold" is scientifi- uses that are or are not permitted, the existing legal
cally established and takes into account natu- structure is used.
rally occurring fluctuations and the ability of Additionally, such programs as the Metropolitan
tje system to withstand stress. An impact may Anchorage Urban Study (MAUS) and the Erosion
be judged significant by virtue of either its and Sedimentation Control Reportforthe 208 water
extent, duration, orseverity of disruption of the quality study, when completed, will be part of the
ecological system. implementation tools for the Coastal Zone Man-
Because of the diversity of environments along agement Plan. Thesestudies in concertwith zoning
Anchorage's coast, it would be almost impossible if ordinance (both existing and proposed) will aid in
not inappropriate to provide a predetermined designating permissible uses and in determining
statement of the types of land and water uses direct and significant impacts and how they can be
responsible for significant impacts in coastal waters. mitigated.
The types of site-specific data required to compile Coastal management is an ongoing planning pro-
such impact statements in many cases simply do cess and as such, revisions and updates to the pro-
not exist and funds are not available for such study. gram will be made. New ordinances will be prepared
The approach that is possible is reflected in 'the and adopted that insure wise use of coastal resour-
planning methodology. This approach states that ces.

CHAPTERIV
THE RESOURCE INVENTORY AND ANALYSIS

INTRODUCTION factors as the cutting of trees and draining of wet-
Knowledge of existing coastal land and water uses lands, which in turn cause such problems as silta-
and the general characteristics and interrelation- tion of freshwater systems and erosion. The result
ships within coastal environments (natural systems) caused by the interaction of natural systems and
is the logical first prerequisite in developing a coast- human activities is oftentimes an upset of local
al zone management program. To accomplish this, balances.
however, requires a resource inventory. Human activities, in turn, affect other actual or
The resources of the Anchorage coastal region are potential human uses of the land and water. For
many and varied. They include such natural resour- example a certain type of resource use may pre-
ces as minerals, rivers, tidal and fresh-water clude others. How lands and waters are ultimately
marshes, forests, abundant fish and wildlife, migra- used is largely determined by economic demands
tory waterfowl, and expanses of open space. They and by the vagaries of human preference. Accord-
also include cultural resources such as those that ingly, certain problems arise. If, for example, a land
constitute the cultural landscape found within the use planner introduces a specific use on a given
metropolitan Anchorage area, as well as the smaller land area, he has either knowlingly or unkowingly
communities such as Eagle River, Chugiak, Eklutna, made a trade-off of competing uses. Therefore,,
and Girdwood. Both natural and cultural resources before designating and implementing a specific
permissible use, the land use planner must study the
are interrelated and are a part of one complex sys- given area to determine all alternative permissible
tem of interactions. For example, the wildlife areas land and water uses that are compatible with the
depend, in turn, on bedrock, climate and the geo- area's resources.
graphical situation of the land. Climate isafunction
of the geographical situation of Anchorage which, In summary, an understanding of the natural
in turn, is dependent on the geologic setting, vege- resource baseand itscomplexity isafirststep in the
tation, and climate (tocomefull circle). Theamount prudent use of lands and coastal waters. The natural
of water found in the various rivers that drain into resource base is finite and problems result from
the Cook Inlet are dependent on river basin size, human demands on these natural systems because
climate over the whole basin, and bedrock condi- all land and water are not equally suited for all uses.
tions at the various river courses. The value of resource inventories and the resultant
Natural systems also affect man. The course of riv- inventory maps is to help determine the total supply
ers and the locations of natural channels that flow and distribution of coastal resources. Inventories
into estuaries such as Cook Inlet have also influ- and mapping programs help answer questions
enced the location of human settlements. For about the uniqueness or scarcity of coastal resour-
example, when Congress decided in the early 1900's ces. By combining map attributes or thematic data
to I ink, by railroad, the coastal areas of Alaska with in an overlay manner, the resultant information can
the vast interior, the community of Anchorage was then be used to describe geographic areas of similar
established as a result, A party of surveyors landed environmental or resource capacity or suitablility.
at the mouth of Ship Creek to begin work on the Also, the quantification of scarcity and uniqueness
Federally-owned railroad, and the resulting con - is then used as a criterion for identifying geographic
struction camp and settlement became known as areas which merit special attention.
Ship Creek Landing. Within a year after start of The formulation and operation of an effective man-
construction the original landing site had grown so agement program for Anchorage's coastal area will
much that a new townsite on the bluff south of the depend largely on the development of an extensive
creek was selected. This new site was subsequently data base for the coastal zone as well as developing
named Anchorage because ships could anchor at analytic and assessment techniques for working
the mouth of Ship Creek. This is but one example of with this information. The need for a broad range
how natural systems affect man. The 1964 earth- of information that is readily available, accurate,
quake produced significant changes in the coastal and in a format that is consistent with the types of
zone of Anchorage through land subsidence which analysis required is clear from many parts of the
in turn greatly affected man and his occupancy of CZM Act of 1972.
the area. The need for reliable and sound information in any
Not only do natural systems affect man, but human decision making process is paramount. Yet land
activities in turn affect natural systems. Cities resource decisions are being made in Anchorage
encroach upon the natural landscape and diminish everyday, having direct or indirect bearing on the
wildlife habitats. Resources are depleted by mineral nature and conditions of the resources of the Munic-
extraction. Urbanization within the Municipality has ipality. These decisions are often based on partial,
resulted in the alteration of habitats due to such incomplete or only minimal information about the

quality and quantity of resources important to the categories, keeping in mind that the same data may
quality of life in Anchorage. This fact is recognized have positive, negative, or neutral factors for differ-
in both the Federal and State Coastal Management ent use considerations. In addition to the above, the
Programs. In the Alaska program the Act states that data categories, once grouped into resource policy
each district program must include a resource units, were examined in light of potential environ-
inventory which describes, in a manner sufficient mental impacts that could result from differing
for program development and implementation: hab- types of land uses. In addition, the following were
itats, major cultural resources, major land and water also considered for their relevance to perspective
uses and activities, major land and resource owner- land use activities: economic minerals, scarce or
ship and management responsibilities, and major unique features, water resources, slope and acces-
historic and prehistoric and archaeological resour- sibility.
ces. The State Act also requires a resource analysis The result of the above steps would be a series of
which describes, in a manner sufficient for program maps locating unique sites, location of water
development and implementation: (1) significant resources, slope and exposure, along with other
anticipated changes in the matters identified under data, and from this process land use suitability maps
Section 50 of the Alaska Coastal Management Act; were derived. These intrinsic suitability maps indi-
(2) an evaluation of the environmental capability cate the best individual uses for each area within the
and sensitivity of resources and habitats, including total study area, thus identifying both a single dom-
cultural resources, for land and water uses and inant prospective land use for every area of the total
activities; and (3) an assessment of the present and study area, as well as multiple uses suitable for the
anticipated needs and demands for coastal habitats different environment designations.
and resources. The resource analysis in effect calls
for a much more detailed resource inventory than is Next, compatible and incompatible land uses are
indicated in 6 ACC 85.050. separated by constructing a matrix that shows all
A traditional and classic method has been used to prospective land uses weighed against each of the
obtain diverse information on the physical base of resource policy units. Using this matrix, existing
the study area. Data has been collected in the fol- and prospective land uses can be measured for their
lowing categories: degree of compatibility with all other land uses and
measured against the resource policy units in which
1 .Land Use they reside. It is then possible to group compatible
2. Surficial Geology (foundation conditions) and coexistent land uses for each area of the total
3. Physiography study area, thereby identifying the most compatible
a)slopes land uses. The map produced would show those
b)slope stability portions of the Municipality having the fewest con-
4. Hydrology straints for urban development, show those areas of
5. Soils the Municipality where development could take
6. Vegetation (land cover) place but which would require that certain condi-
7. Habitats tions be met first, and a map which shows those
8. Land Ownership areas where development probably should not take
9. Historical and Archaeological Sites place.
10. Hazardous Lands (a special sub-classification) The natural resource/cultural inventory conducted
and Marginal Lands by the Municipality's coastal zone plannig staff is
11. Scenic Areas based on the following:
This data inventory reveals the supply of resources, 1. Satellite imagery and U-2 high altitude color
which can later be matched with the demand for infrared aerial photography
them. Thus, staff has placed great importance on 2. Low altitude black and white and color photo-
reliable information gathered during the inventory graphy
stage, because it will have the greatest persuasive- 3. A search of current data sources
ness for public bodies. 4. Various informational and interpretive maps at
After the data is collected, the next step is to inter- differing scales
pret its relevance to a broad range of prospective 5. Field investigations
land uses. To do this, cultural and biophysical fea- 6. Special studies
tures were grouped into categories. These catego- The inventory program will result in map depictions
ries are the resource policy units which when com- showing geographic relations among various
bined together form the composite preservation, resources. The inventory will include:
conservation, and utilization environments, Next,
the data categories previously mentioned are exam- 1 .Political Jurisdictions and Land Ownerships
ined for their positive, negative or neutral effects on 2. Coastal Floodplains
each perspective land use. For example, agriculture 3. River Floodplains
or recreation, where high precipitation has a posi- 4. Slope and Slope Stability
tive effect on forestry but a negative effect on 5. Natural Hazards
recreation. This procedure is continued for all data 6. Surficial Geology

6. Surficial Geology The maps show areal relations among (and varia-
7. Soils tions in) the twelve map subjects or themes. The
8. Vegetation cultural/biophysical inventory and analysis permit-
9. Wildlife/Habitats ted the development of a series of maps for the
10. Current Land Use entire coastal zone. The mapping approach adopted
11. Historical/Archaeological Sites utilizes a multi-factor overlay technique which per-
12. Aesthetic Resources mits various aspects or factors of the cultural/bio-
The collection of technical information necessary physical landscape to be mapped as separate
for effective planning is an ongoing process. sheets. These map sheets are then overlayed - a
Numerous State and Federal agencies, researchers, process generally referred to as the stacking of
universities, corporations, as well as the Municipal- thematic data. When maps are overlayed it allows an
ity, have collected a wealth of information on understanding and examination of spatial interrela-
resources in the coastal zone; however, data gaps tionships between various resources, land uses and
still exist. New data are constantly being added. The between the -,different areas of concern within the
inventory depicts the Anchorage coastal zone, its coastal zone,and thus provides the underlying ratio-
natural resources, and its cultural, socio-economic nale for the subsequent determination of areas
interactions at one point in time. This picture meriting special attention.
changes for two reasons. First, the acquisition of How much information a map can impart is largely a
new data and consequently new information is a function of map scale; the ratio of ti,e size of the map
continuing process. Second, the coastal zone is a to the total land area covered. The Planning staff has
composite of dynamic systems - complex areas utilized two map scales.
that change from day to day and year to year. Like- Large scale maps generally show more detail than
wise, human demands on (or interactions with) those of a small scale.The maps repesented here
resources change. progress from a small scale to a large scale. A scale
Because of financial and time constraints the of 1:250,000 means one unit of distance on the map
Anchorage Coastal Zone Management Program has equals 250,000 equal units on the ground or one
relied largely on existing information for the inven- inch on the map equals about 4 miles on the ground.
tory or resources in the coastal zone; however, new A scale of 1:63,360 means one inch on the map
programs have been initiated to fill data gaps and equals one mile on the ground and so on.
acquire new information. This process will continue To produce the maps, resource information was
into the implementation phase of the Coastal Man- compiled from a variety of sources and scales and
agement Program. either reduced or enlarged to fit on a base map of
In addition to basic data collection, therehas been a 1:63,360 for the Turnagain Arm area or to fit on a
collection and review of literature relating to coastal base map of 1:25,000 for the Eagle River and
zone management in general as well as acquisition Anchorage bowl areas. This scale is not available
of coastal zone reports conducted by other states. for the Turnagain Arm area. The base maps were
The intent here was to review various state's CZM constructed by the U,S * Geo ,ogical Survey and
programs to aid Municipal planners in defining and show natural and cultural features including shore-
planning a coastal zone management program lines, rivers, topography, major highways and rail-
appropriate for and adequate to address the Munic- roads and urbanized areas.
.pality's coastal planning needs. Thus, this program A variety of data were then compiled onto the work-
does not purport to present fundamentally different ing base; the twelve data topics previously listed.
'concepts, nor does the program purport to present Once the data topics were prepared, overlaying of
new technical data. Despite all the existing informa- the various resource/cultural features was possible.
tion regarding coastal processes and resources, Using this technique has advantages. Maps of the
there are still glaring data deficiencies. It is part of same area showing such things as geology, soils,
the purpose of the CZM resource inventory program and vegetation assemblages are a graphic aid in
to present a complete, but generalized, depiction of understanding the interaction and interdependence
the current state of knowledge regarding coastal among these natural entities. Likewise, resource
resources. In addition, based on the inventory and conflicts can be readily envisioned by viewing maps
data collection efforts, judgements will be made on showing the conflicting features. For example, maps
technical deficiencies in the information base that depicting both cultural features and potentially
hamper decision-making regarding the coastal active natural processes may reveal hazardous
zone. zones, such as where residential neighborhoods lie
INVENTORY FORMAT: MAPS in flood-prone areas or in areas subject to other natu-
A set of twelve maps graphically depict the loca- ral hazards.
tion of coastal resources. These maps show political The overlay technique permits the development of
jurisdictions and ownership, coastal and river flood-
plains, slope and physiography, hazards, natural composite natural resource area maps. For example,
processes, geology, soils, vegetation and wildlife, enviornmental factors converge within certain dis-
current land use and historical/archaeological sites. tinct areas, so that similar sets of natural conditions

exist within a set of discrete boundaries. The dom- Utilization Map
mon boundaries of these environmental factors The Utilization map shows those portions of the
then define the general limitsof a composite coastal coastal zone identified as (1) already developed, or
resource unit. officially committed to a development project, (2)
Composite natural areas exist because of the inter- undeveloped and intrinsically suited for develop-
depenclenceof environmental factors. Forexample, ment, or (3) undeveloped and having only minor
marshlands exist because of a delicate equilibrium physical limitations which could be easily corrected.
involving substrate type, bathymetry (or topo- All such designations should be capable of moder-
graphy), frequency of tidal inundation, freshwater ate to high density development.
inflow (amount, temporal distribution and chemical Note: Past development in the coastal zone has in
quality), and sediment budget. All of these affect some cases occurred in areas that would have been
floral assemblages (marsh-grasses), which in turn designated as "Preservation" or "Conservation" had
provide a base forthe marine food chain. The defini- they not already been developed.
tion of "composite natural areas" is thus somewhat Composite Map
circular; marshes are defined by component grasses The composite map presents a generalization of
that are one of a number of features "causing" an coastal zone landscape conditions into major cate-
area to be a marsh. gories of concern after a factoring out process has
Marshes represent a composite of natural factors, been applied. This process involved overlaying the
and they sustain a certain array of conditions; yet PCU maps and noting where factor overlaps oc-
they remain distinctly marshlands. They are thus curred. In cases of overlap, the preservation consid-
one type of composite natural area. erations outweighed conservation or caution devel-
Composite natural areas are mappable entities, opment factors. The resulting map utilized a color
either natural or man-made, defined by local char- coding system, with red implying "stop" or "preser-
acteristics of one or a combination of physical pro- vation," yellow implying "proceed with caution" or
cesses, substrate, landforms, soil, biota, or othe "conservation," and green implying "proceed" or
r "utilization," utilizing normal social and environ-
sustaining factors that naturally support certain mental safeguards.
described levels of human activities without impos-
ing hazards on human populations. Composite nat- It should be noted that any given classification on
ural resource areas are one form of resource suita- the composite map is not an absolute. For example,
bility maps. In this case the terms Preservation, the classification of an area as "utilization" does not
Conservation and Utilization have been used to necessarily imply that all such areas should be deve-
denote various levels of suitability for use. Compo- loped. It simply implies that if growth is to occur, it
site mapping of the biophysical/cultural features would be logical to attempt it in those areas classi-
will thus result in a set of Preservation, Conservation fied as "utilization" because they have the fewest
and Utilization maps. Overlaying of the PCU maps constraints. Similarly, classifications of an area as
results in a final composite map. "preservation" simply indicates preservation values
Preservation Map that should be formally considered in decision mak-
The Preservation map shows those portions of the ing regarding use of the land under that classifica-
coastal zone identified as having major-values to the tion, and does not necessarily mean that the area
public at large. For preliminary panning purposes in should remain forever untouched. It is felt that most
identifying preservation areas, all jurisdictional current existing land use controls and land use
ownership boundaries have been ignored. What designations (parks, management areas) have suf-
were examined were the natural systems that oper- ficient control over the uses permitted on those
ate within the coastal zone, and all designations as lands.
Presrvation were based on this approach. Designa-
tion as Preservation should not be construed to PLANNING UNIT
indicate areas that are off limits to all uses. The The Anchorage Coastal Management District encom-
major concern relating to areas designated a Pres- passes the entire Municipal coastal area from Por-
ervation is thatassociated functions orpublic values tage in the south to the Knik River bridge in the
be maintained. Areas so designated are considered north. The Anchorage Coastal Management District
to be those impossible to replace and any tradeoffs was divided into three planning units to facilitate
of their values will usually represent a loss of better planning efforts. Planning unit designations
options for future action. In the analysis process, were based on both political, cultural and environ-
preservtion factors outweighed the conservation or mental characteristics. Unit one is the Turnagain
utilization factors of the other biophysical/cultural Arm study area, extending from Portage to Potters
maps should overlaps occur. Marsh. Unit two is the Eagle River study area,
Conservation Map extending from Fort Richardson to the Knik River.
The Conservation map shows those portions of the Unit three is the Anchorage Bowl.
coastal zone identified as having significant natural Anchorage Bowl Planning Unit
or institutional use limitations tha require special The Municipality of Anchorage is located in the
precautions in use and development. southcentral portion of Alaska at the head of Cook

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Inlet on a roughly triangular piece of land between wood Valley, since it represents that area where the
the two estuarine drainages, Knik and Turnagain majority of existing development is occurring and
Arms (Figure 11). The Municipality covers a land future development is anticipated.
area of approximately 1950 square miles of which
only 115 percent is suitable for human habitation. Indian and Bird Creek Valleys, which include small
The remaining 85 percent is comprised of the population settlements, are both glacial stream val-
Chugach Mountains, which are too rugged and leys flowing out of the rugged Chugach Mountains
remote for human habitation. Metropolitan Anchor- to the north and east. Penguin Creek is a major
age, which is home to a population of 200,000, is tributary to the stream flow of Bird Creek. Topo-
located at the western side of the Municipality on a graphy in both areas is very steep, with peaks 4,000
lowland coastal plain that slopes gently away from to 5,000 feet in elevation. The steep mountainous
the mountain front toward Cook Inlet. The sou- terrain drops sharply and abruptly into Turnagain
theastern part of the area declines in elevation from Arm, allowing only minimal land area for roads. Due
500-600 feet at the mountain front through a series to the topography and the juncture of these two
of ridges and isolated hills to a broad trough about streams with Turnagain Arm, the area provides a
80 feet above sea level, that extends north-south minimum of land suitable for development.
through the bowl to Turnagain Arm. The area of the The stream channels and swamp flats of Twenty-
former City of Anchorage and nearby military bases Mile River, Portage Creek and Placer River com-
occupy a broad, gently sloping alluvial plain, while prise the majority of privately-owned land in the
the areas to the north and west have extensive Portage area. The remaining terrain consists of
hummocky terrains that locally rise to heights of steep mountains and glaciers rising to 4,000 feet
more than 300 feet. The entire lowland is separated within the Chugach National Forest.
from the sea by steep bluffs, and only in the valleys The Girdwood Valley area is an old glaciated valley,
of major streams does the land approach sea level which has dominant land forms resulting from the
with gentle gradients. carving action of historical glacial ice. This area is
Eagle River Planning Unit presently drained by Glacier Creek and its many
The Chugiak-Eagle River area, located approxi- tributaries, including California, Crow, Winner and
mately ten miles north and east of the Anchorage Virgin Creeks. These eventually flow into Turnagain
metropolitan area, is comprised of several residen- Arm near the "Old Girdwood Townsite."
tial communities; namely, Eagle River, Chugiak, The Girdwood Valley floor is composed of a mixture
Fire Lake, Peters Creek, Birchwood and Eklutna. of loose material deposited directly at the margin of
The area is separated from the rest of the Municipal- the glacier or from the melt water streams which
ity of Anchorage by the Fort Richardson Military altered the surface the deposited water-graded mate-
Reservation. Extending along the Glenn Highway rial varying from clay particles to boulders. These
for approximately fifteen miles in a northeasterly fine materials of clay and silt present the greatest
direction to the Knik River, the Eagle River-Chugiak difficulty to development, since they make subsur-
area is abounded on the east by Chugach State Park face drainage difficult or impossible. These condi-
and on the northwest by the Knik Arm. The area is a tions, along with subsequent surface drainage, have
strip about three miles wide and fifteen miles long, altered the natural vegetation. Muskeg has deve-
encompassing approximately forty-five square loped, even on the gently sloping valley sides, to
miles. Eagle River, the principal community in the form deep deposits. The west meadows have ridges
southern portion, is located near the intersection of of coarse, well-drained material at their margin
the Eagle River and the Glenn Highway in an area of which support good stands of birch and spruce.
increasing development within the Eagle River Val-
ley. Birchwood, Peters Creek, Chugiak and Lower Glacier Creek has a braided channel in the lower
Fire Lake are located northeast of Eagle River along valley which cuts a wide strip out of the valley floor,
the Old Glenn Highway in a more rural atmosphere. producing a broad floodplain. The valley sides are
Turnagain Arm Planning Unit quite steep in many places and have a high fre-
The Turnagain Arm Community represents those quency of avalanches which limit the winter and
portions of population concentration south of the early spring use of land at the bottom of the slopes.
"Anchorage bowl" generally along the Seward High- THEINVENTORY
way and extending to Portage at the southern Map 1 - Land Ownership and
boundary of the Municipality. The largest and most Political Jurisdictions
significant of these, from the standpoint of popula-
tion and private land ownership, is the Girdwood The Municipality of Anchorage, an area of approxi-
Valley area. The Girdwood Valley encompasses the mately 1950 square miles, is located in the south-
drainage basin of Glacier Creek along with its tribu- central portion of Alaska at the head of Cook Inlet.
taries and includes the new town of Girdwood and Of the 1950 square mniles, only about 15%, or 293
Alyeska Ski Resort and Lodge. This valley lies near square miles, is suitable for human habitation; the
the head of Turnagain Arm, approximately 45 miles remaining 85% of the land is closed to development
south of Anchorage. For purposes of this discus- because of the existing land ownership pattern and
sion, most of the emphasis will be placed on Gird- because of rugged terrain unsuitable for develop-

ment. Of that 1950 square miles, 218 square miles that do not pressure the carrying capacity of the
are water areas (Turnagain and Knik Arms). land. Comparing (combining) the land use map
with, for example, a map showing natural pro-
The Municipalityof Anchorage has roughly 92 miles cesses, areas can be shown where man unknow-
of coastline; however, a majority of this is in either ingly has exposed himself to natural hazards.
Federal, State or Native ownership. Elmendorf Air The large landowners (the State and Federal govern-
Force Base occupies 21 square miles and Fort
Richardson occupies 96 square miles of land. ments) have had a restraining effect on the ability of
Chugach State Park occupies 772 square miles and the Municipality to expand. This has also been a
Chugach National Forest covers some 384 square factor in the lands surrounding the metropolitan
miles within the Municipality. Lake George National area being preserved for present and future recrea-
Natural Area contains 4800 acres. Another major tion purposes.
landholder is the Native village of Eklutna. Although The data for the land use inventory has been
they have not yet received title to all the lands they extracted from several sources. Property and tax
selected under the provisions of the Alaska Native maps, in conjunction with current aerial photo-
Claims Settlement Act, they are entitled to three graphs, provide the sources for identifying and
townships, or 108 square miles of land, within the mapping land uses. Limited field checks have been
Municipality. Based upon these figures, only 67 made to verify questionable areas.
square miles of land remain in Municipal ownership, Land use was also identified from aerial photo-
other private ownership, or to State or Federal graphs and mapped at a scale of 1 inch to 1000 feet.
agencies. This map was then reduced to 1:25,000 to match
This map details the amount of land under Federal, scale with the other resource maps. In the process
State, Municipal, Native, and private ownership. of reduction, the land uses were generalized. Land
Due to several land programs, the land ownership use will be updated as required utilizing various
pattern will change significantly during the next few tools and methods.
years. The Municipal Land Entitlement Act is mak- Land use is a general category concerning several
ing certain State lands available for local govern- socioeconomic conditions within a planning unit.
m ent selection. The Alaska Native Claims Settle- 1 .Developed land use. This map shows to what
ment Act has resulted in Native selection of large extent an area has been developed. The following
amounts of land within the Municipality: however, structural types are mapped.
the Bureau of Land Management is still in the pro-
cess of transferring title. This process will most a. single-family
likely be a lengthy one and the exact boundaries of b. multi-family
Native owned land will be unclear for some time to c. commercial
come. The Municipality is also acquiring land for d. industrial
greenbelts, and as bond propositions are passed, e. public lands and institutions
additional monieswill beavailableto purchaseland f. vacant
needed for open space and greenbelt purposes. The Maps 3 and 4 - Physiography and Climate
land ownership map depicts one time period and Physiography is the description of the terrain or the
will be updated as new information becomes "lay of the land." It includes such features as moun-
available. tains, valleys, watercourses and shorelines. Climate
can be defined as a long-term composite picture of
Map 2 - Current Land Use day-to-day weather conditions and atmospheric
Current land use maps help show man's present use process in an area. Physiography (terrain) and cli-
of the land in relation to natural regimes, in addition mate interact in the Anchorage coastal region. Fac-
to aiding the general public in understanding growth tors determing local climate are complicated by the
patterns and attendant environmental, economic, or physiography; the surrounding mountains greatly
demographic factors. Land use maps permit a study affecting the distribution of precipitation and the
and analysis of the pattern and spatial arrangement prevailing wind speed and direction. The effects of
of land uses and their functional relationship to terrain on annual precipitation are well illustrated by
each other. A knowledge of the existing arrange- the Chugach and Kenai Mountains. These two
ment of the Municipality's land use is essential in mountain ranges effectively block the flow of moist
determining what trends exist and what problems air from the Gulf of Alaska and thus most of the
may affect future development activities. The land precipitation carried by the easterly and southeas-
use map is a benchmark from which subsequent terly winds falls on the eastern slopes resulting in a
changes can be gauged and is a tool for evaluating relatively low (14.4 inches) mean annual precipita-
kinds of uses amenable to specific kinds of lands. tion. Climate also affects landforms (the terrain) by
The land use map can be used as a tool for identify- means of different erosion and weatehring rates that
ing cultural pressure points on the natural system. It are in turn functions of the amount and temporal
identifies areas of intensive use that may impose distribution of rainfall, degrees of insulation/wind
imbalances or that may activate processes. The land activity, freeze-thaw frequency in winter, etc. The
use map also identifies the aerial limits of other uses predominant winds in the upper Cook Inlet, because

of its physiography, are those funneled through the Hillsides move naturally as the result of gradual
basin from the north or south, with forty-two per- weathering and erosion. However, development
cent (42%) being southerly. Downslope winds (Kata- that removes vegetation sharply increases soil ero-
batic winds) occasionally occur and are caused by sion and slope instability by increasing the amount
cold air moving downslope on the Chugach Moun- of water in the soil. Construction that alters the
tains from highland glaciers through adjacent val- natural formation of rocks, soils and other compo-
leys into the Anchorage bowl and adjacent low- nents of a slope will make it more susceptible to
lands. Principal factors affecting Anchorage's slides and slumps. Development that removes vege-
climate are, in addition to its local physiography, its tation or otherwise alters natural drainage patterns
latitude and geographic position relative to the will increase runoff and erosion. Steep slopes and
extremely large land masses and oceans. The lands soils that are relatively less permeable (e.g., clays)
within the Municipality are located in a transitional are particularly sensitive to this problem. Radical
zone between the interior, which is characterized by changes in hillsides due to erosion will in turn have
cold winters, hot summers, low precipitation and impact on surface water quality, groundwater qual-
moderate winds, and the maritime, which is charac- ity and quantity, and stream flow. Use of improper
terized by cool summers, mild winters, high precipi- construction techniques can leave the landscape
tation and frequent storms with high winds. The permanently scarred. The aesthetic damage is com-
Anchorage area is warmer and wetter than the inte- pounded where site planning and design ignore the
rior, but coolerand drierthan direct exposure to the natural contours of the terrain and obliterate the
open sea. Upper Cook Inlet provides Anchorage hillside itself. Slopes have positive value to people
with a modified maritime climate. It is the physio- as they provide distinctive relief to the landscape
graphy of Anchorage and its surroundings that are and interesting settings for human activities.
responsible forthis moderated weather regime. One Climate data is presented in the Environmental
of the primary physiographic features of the Anchor- Atlas of the Greater Anchorage Area Borough.
age coastal region is 13 river systems. These are: the
Knik, Eklutna, Peters Creek, Eagle River, Ship Creek_ Map 5 - Historical-Archaeological
Chester Creek, Campbell Creek, Indian, Birc, Glac- Overview
ier, Twenty-Mile, Portage and Placer Rivers. In addi- The Municipality's Historical Landmarks Preserva-
tion there are numerous smaller streams that drain tion Commission has retained a preservation spe-
int-o-the Knikand Turnagain Arms. cialist to complete a survey and inventory of historic
Another major feature dominating a majority of the and archaeological sites for the Greater Anchorage
rgion is the Chugach Mountain Range. Ths moun- area. This effort is in progress, yet an overview of the
tain range, occupying approximately three fourths movements associated with local history has been
of the eastern side of the Municipality, is steep and completed. Specific sites have been identified in the
rugged with very distinct treelines. Above timber- inventory which will be published in 1979. There are
line, bedrock is exposed and rock slides and ava- a number of sites which are located in the ar(
lanches are common. designated as the coastal zone which have been
Two maps have been compiled, one indicating identified at this point in time. The historical move-
slope stability classes and the other showing areas ments which are associated with the Municipality
with slopes over 25%, with particular emphasis on are important in identifying what remnants of the
coastal bluffs and hills. past stil exist and their historic significance. Dis-
cussed below are these movements or patterns of
Slope is the gradient of the land surface. It is the history.
angle between the inclined ground surface and the
horizontal plane. The slope at a given location thus Prehistory and Native History:
is a measure of the steepest gradient encountered Archaeological investigations in the Anchorage area
on the ground surface at that point. have not been extensive. Until the last decade abo-
The slope map summarizes the slope information riginal cultural evidence was generally lacking, but
provided by the contours on the topographic map this was because of the absence of field investiga-
by grouping local areas having similar slopes into a tions rather than the result of fruitless research.
single map unit. The slope map was constructed Current studies suggest human occupation in the
basically from the topographic map by measuring Anchorage portion of the Cook Inlet region to date
the spacing between the contour linns. Greater from approximately 6,500 years ago.
accuracy was added by using aerial photographs to Prehistoric and historic evidence is primarily sup-
locate details of the topography not apparent from portive of Athapaskan Indian culture in this area.
the contours. Many slope-map units coincide with However, research also leads to the possibility of
the geologic-map units (Schmoll and Dobrovolny, Eskimoid occupation before the Athapaskan people
1972) because many of the geologic deposits have migrated to this vicinity from the interior. Artifacts
distinctive slope characteristics. and evidence of living style (e.g. hearth construc-
Hillsides are geological features which, in combina- tion) suggest that the Kenai and upper Cook Inlet
tion with vegetation, soils, and precipitation, affect area may well have supported Eskimoid culture. Itis
the natural balance of the hydrologic system. conceded that the Tanaina were reltive latecomers.

The Tanaina are a subgroup of Athapaskan Indians first mines there. Winner Creek, another of the Glac-
which inhabit the entire Cook Inlet Region; they are ier Creek tributaries, was also the scene of mining
related not only geographically, but also linguisti- operation before the turn of the century. Mining in
cally. It is believed that the Tanaina moved into the the Municipality has been of two types: placer min-
region sometime within the last mellenium. Upon ing and lode mining. Placer mining consists of sluic-
the first contact by European or Russian explorers; ing, panning or hydraulic operations to remove gold
including Cook, Dixon, Portlock, Glottov and Juv- flakes or nuggets from the creek bed deposits. The
enal, the Tanaina were well established, Holmgren-Erickson Mine, also known as the Crow
Regional variations in culture and linguistics are Creek Gold Mining Company, is an excellent exam-
identifiable among the Tanaina. Eklutna isthe major ple of that type of operation; the well preserved
site which is associated with Tanaina occupation in buildings of that operation are still in existence
Anchorage. It appears that the Tanaina of that upper today. Lode deposits in the Crow Creek basin were
Knik Arm area generally had contacts and means of first discovered by Conrad Hores in 1909. A number
communication with other Tanaina in the Mata- of lode mining operations were developed; this
nuska and Susitna Valleys, rather than to the south. entailed tunneling into veins, the transport and
The Tanaina language is derived from Na-dene lin- refinement or ore. Such lode mining operations
guistic stock. The upper Inlet Tanaina, including the included the Monarch (Staser), Bahrenburg, Jewel,
people of Eklutna, Knik and Susitna, speak a dialec- and Brenner properties. Two lo ide mining opera-
tical variation of the Tanaina language, Interest- tions were located on Peters Creek. A silver source
ingly, Tanaina place names suggest historic use of a (the Mayflower lode) was discovered below Eagle
number of streams and points in the Anchorage Glacier in 1911; little was done to develop that claim.
bowl (e.g. k'giydulghakt or "where they put up fish," The Alaska Railroad:
a geographic point north of Eagle Bay). A list of Anchorage was born in the spirit of the railroad
such place names has been compiled for the Anchor- development of Alaska. The U.S. Congress, in creat-
age area. ing the Alaska Territorial legislature in 1912, also
Archaeologic sites are scattered throughout the commissioned a study of potential railroad route
Municipality. Thecommon denominator associated which would link the seaboard with the interior and
with most sites is that they are usually near streams its rich mineral deposits. However, it was not until
orotherwater related features. This isto be expected 1915 that the selection of a route was actually made.
as the Tanaina, unlike the other Athapaskans of the President Wilson, by Congressional authorization,
interior, were a coastal oriented people. Their sub- selected the Western or Susitna Route. This route
sistence was based on fish and sea mammals prim- joined Seward, an ice free port, with the interior
arily; however, the upper Inlet Tanaina were more which was so rich in gold, oil, timberand fertile soil.
dependent on land mammals than their southern Of particular importance, the railroad could trans-
counterpart. The Tanaina typically lived in semi- port coal from the Matanuska area. In short, the
subterranean log structures in the winter; these carry equipment and supplies from larger ships
were organized into a village. House pits are rem- which lay "atanchor" inthe Inlet's deeperwaters off
nants of such occupation and can sometimes unfold Anchorage into existence. Plans for railroad's
a story of successive occupation. Examples of such development proceeded and a site at Ship Creek
pits are located on Pt. Woronzof. was visualized as the ideal location from which con-
Russian missionaries initiated contacts with the struction could proceed north to the coal fields as
Tanaina about 1800. The Russian Orthodox Church well as south toward Seward. As lighterage could
established firm religious foundations within Cook carry equipment and supplie from larger ships
Inlet, especially on the Kenai, before the American which lay "at anchor" in the Inlet.s deeper waters off
purchase of Alaska in 1867. Traditional social values Ship Creek, the railroad's headquarters were con-
and structure were enjoined to or broken down by structed there. Workers flooded to the spot by the
the church doctrines. Today many villages maintain hundreds, creating a "tent city" in the short space of
an Orthodox Church; such is the case at Eklutna. a few months after Wilson had authorized the route.
By midsummer the Alaska Engineering Commis-
Mining History: sion (i.e., the Federal agency building the railroad)
Gold mining in the tributaries of TurnagainArmand had cleared a townsite, platted lots according to the
Knik Arm has taken place since 1895. The remains simplistic grid system of streets, sold those lots at
of cabins, hydraulic works and equipment for lode public auction to create the town, and endorsed the
mining are scattered throughout the drainage bas- people's vote to call the town Anchorage.
ins of Crow, Rainbow, Indian and Bird Creeks. The railroad used the existing right-of-way which
Although the miners have never experienced the had been constructed by the privately-financed
bonanzas of Nome, Iditarod or the Klondike, many Alaska Central Railway. That railroad went bank-
operations were continuous and steady until the rupt in 1908; its predecessor was the Alaska North-
Second World War. Gold was first discovered on ern Railway which emerged in 1910. Track was laid
California Creek in 1895 by F.J. Perry and Chris- no further than Kern Creek (mile 71 on the railroad)
topher Spillu,; nearby Crow Creek was staked in in the southeast portion of the Municipality. The
1896 and James E. Girdwood operated one of the "Government Railroad" (which was officially termed

the Alaska Railroad in 1923) was constructed be- Map 6 - Aesthetic Resources
tween 1915 and 1923. Associated with roughly 90 The following excerpts from several legislative acts
miles of main railroad line that run through the highlight those sections which point specifically to
Municipality are a few section houses, the ARR the protection of aesthetic resources:
depot at Ship Creek and a number of miscellaneous 1. Coastal Zone Management Act of 1972
results of railroad development (e.g. the dock facili-
ties, examples of lighterage and retired cars and The Act stresses the importance of coastal
engines). resources, including aesthetic resources, to the
The Development of Anchorage: national well-being. Section 302(b) states:
The Congress finds that the coastal
In the summer of 1915 a temporary settlement along zone is rich in a variety of natural, com-
Ship Creek, known simply as "Tent City," gave way mercial, recreational, industrial and
in orderly fashion as a townsite was platted and lots esthetic resources of imediate and
were sold to create Anchorage, the shipping and potential value to the present and future
operational headquarters for the construction of the well-bein6 of the nation (emphasis
Alaska Railroad (ARR). The plan was the most sim- added).
plistic possible - a series of square blocks, separ- The Act's declaration of policy states in Section
ated in T-square precision by a network of grid 303(a) that it is the national policy "to preserve,
streets. The plan acknowledged only a few special protect, develop and, where possible, to restore
uses of land: a school reserve, a municipal reserve, a or enhance the resources of the nation's coastal
cemetary reserve, a federal reserve and park zone for this and succeeding generations."
reserves. In the original townsite commercial estab-
lishments, especially along Fourth Avenue, and The Act also states in Section 303(b) that it is
residential units were rapidly developed. On the national policy:
specially designated parcels of land, government to encourage and assist the states to
institutions came into existence. Over time, the exercise effectively their responsibilities
townsite became the central business district of in the coastal zone through the devel-
Anchorage. Land use still includes a high propor- opment and implementation of man-
tion of commercial use, however, office use has also agement programs to achieve wise use
become extensive while residential use has of the land and water resources of the
declined. Today a few representative buildings of coastal zone, giving full consideration to
the early Anchorage era are still in existence. ecological, cultural, historic and esthetic
Besides the railroad a couple of other major forces values as well as to needs for economic
helped to foster growth in Anchorage - air trans- development (emphasis added).
portation and the military. Air travel started in the Section 306 of the Act makes administrative
1920's here. The late 1930's saw refinement in archi- grants contingent on provisions in the manage-
tecture style as concrete construction was intro- ment program "for procedures whereby specific
duced and new public buildings replaced their areas may be designated for the purpose of pre-
frame counterparts. In late 1939, in anticipation of serving or restoring them for their conservation,
possible war, military defense was bolstered in recreational, ecological or esthetic values."
Alaska; Fort Richardson and Elmendorf Field were
developed in the early 1940's. In its November 23, 1973 and August 21, 1974,
Guidelines for Management Program Develop-
Homesteading, which had played a part in the set- ment Grants (15 CFR Parts 920 and 923), OCZM
tling of Alaska, the last frontier, also had a role in makes more specific reference to aesthetic
Anchorage's development. Place names through- resource planning. Section 920.12 includes
out the expanding city are often derived from such among the criteria for establishing areas of par-
homesteads. Most of the original homesteads have ticular concern:
largely been subdivided. A number of scattered cab- Areas of unique, scarce, fragile or
ins within the Anchorage bowl, Eagle River and vulnerable natural habitat, physical fea-
Peters Creek bear witness to this facet of history. tures, historical significance, cultural
The Good Friday Earthquake of 1964 is undoubt- value, and scenic importance.
edly a most prominant event in the history of Section 923.15 cites "historic, cultural, esthetic
Anchorage. A good deal of the fabric of the com- and conservation values," and "historic sites"
munity was lost in that disaster. This included not (those listed on the National Register of Historic
only individual homes and businesses in the down- Places) among those concerns in which there
town area and Turnagain, but also whole sections of- is a clear national interest.
settlement as at Portage. 2. National Environmental Policy Act of 1969
A list of sites and buildings will be adapted from the
historic sites inventory as a portion of the next Similarly, the'National Environmental Policy Act
phase of the CZM study. (NEPA) stresses aesthetic considerations in its

gui-delines for environmental impact statements Streams and Creekbeds:
(EIS), requiring that: Streams and creeks play two important roles within
The Federal government use all practi- the hydrologic cycle. First, they contribute major
cable means . . to ... assure for all drainage systems carrying runoff and sediment
Americans safe, healthful, productive, from higher elevations to low-lying land and water
and aesthetically and culturally pleasant bodies. Second, they contribute water to aquifers
surroundings ... and to ... preserve during the wet season and receive groundwater
important historic, cultural, and natural through springs or seepage during the dry periods.
aspects of our national heritage ... Development in these areas, by removing vegeta-
NEPA, Sec. 101(b) (2,4) tion and introducing impervious surfaces, increases
3. Water Resources Planning Act of 1965 erosion and sedimentation which in turn increase
stream turbidity and reduces available oxygen in the
The Principles and Standards for Planning Water water. The increased runoff introduces urban pollu-
and Related Land Resources (Federal Register, tants in the form of petroleum products, fertilizers,
Vol. 30, #174, Part 111, September 10, 1973, pp. road salts, etc. Removal of shading vegetation can
61-66) of the Water Resources Council states increase thermal pollution of the streams. Devel-
the following reasons for protecting and enhanc- opment also can adversely affect overall hydrologic
ing special areas within the coastal zone: balance within the watershed. Streambed siltation
obstructs natural flows from surface to ground-
Beaches and Shores: The juxtaposition water; strearnflow becomes irregular, with lower
of attractive beaches, distinctively base flows and high peak flows, raising the level of
scenic shorelines and adjacent areas of flooding.
clean offshore water provides positive
public aesthetic values and recreational Aquifers:
enjoyment. Groundwater is carried byaquifers, formations com-
Estuaries: Beyond their critical impor- posed of consolidated and unsolidated rock. This
tance in man's harvest of economically underground water supply is fed from seepage from
useful living marine resources, many streams and lakes as well as by precipitation which
estuaries, coves, and bays merit consid- percolates directly to the aquifer. Groundwater is an
eration as visually attractive settings important source of water for human consumption,
that support diverse life forms of aes- and helps regulate surface flow by absorbing water
thetic value and as marine ecosystems during wet periods and relesing it during dry peri-
of special interest. ods. It also acts as a natural filter since percolation
of water through the soil and other formations can
Open and Green Space: These are remove certain impurities.
essentially undeveloped, visually attrac- Inappropriate or unregulated development on or
tive natural areas, strategically located near aquifers can unfavorably affect this water
where most needed to ameliorate inten- resource in a number of important ways. By cover-
ifying urbanization patterns. .ng recharge areas with relatively impervious sur-
The Alaska Coastal Management Act makes refer- 'faces and effectively sealing them to percolation,
ence to designating areas for recreational use based development decreases recharge of the ground-
on the following criteria: the area has potential for water supply and increases runoff. Development
high quality recretion use because of physical, bio- that pumps water in excess of aquifer recharge rates
logical, or cultural features. will cause the groundwter reservoir to fall, not only
The first substantive component of the aesthetic reducing the available supply but causing land sur-
resource planning process was an inventory of faces to sink. Where fresh groundwater is located
coastal area aesthetic resources. Table IV-7 identi- near saline groundwater, overpumping can also
decreasethe natural flowfrom fresh to saline, result-
fies the attributes of natural aesthetics resources, ing in saline pollution of the freshwater reservoir.
those features of the coastal area which possess a Again, land use activities can allow harmful sub-
distinctive degree of visual unity. Based on these stances to enter the aquifer, e.g. location of septic
attributes, aerial photographs and field inventories tanks or cesspools at or below the water table; sub-
were conducted to identify sites possessing aes- terranean disposal of wastes; agricultural activities
thetic characteristics. The results are presented on involving concentrations of fertilizers or animal
the Scenic Resources Map. wastes; poorly constructed chemical or petroleum
Map 7 - Water Resources storage tanks, etc.
The Municipality is fortunate in having numerous Map 8 - Wetlands
lakes, streams and creeks within its political boun-
daries. They serve not only as aesthetic resources The term wetlands encompasses a variety of ecolog-
but also play important roles. The water resource ical areas that are generally classified by their vege-
map delineates ail water bodies within the coastal tation, water type (fresh, saline), and predominant
planning area. water depth. However, wetlands are a geomorphic

feature, not necessarily a vegetative feature. Wet- rivers traverse some portion of the habitable area,
lands include fresh or saline meadows, marshes, although only eight - ship, Chester, Fish, Camp-
swamps, bogs, bays and open water. These areas bell, Peters, Rabbit and Glacier Creeks, and Eagle
perform a number of vitally important natural func- River - traverse areas that affect significant por-
tions. They affect water quality by filtering out silt tions of the Municipal population.
and other pollutants, slowing down runoff, and In numerous recorded instances, residential and
changing inorganic nutrients into acceptable nut- commercial properties within the floodplains of
rient material. Wetlands also serve to stabilize water Chester and Campbell Creeks have been damaged
quantity by absorbing excess flows during flood by flood water. Potential flood damage will increase
periods and retaining it during droughts. Wetlands in areas adjacent to the creeks if development con-
are particularly important for the maintenance of tinues to encroach upon the streams. Although
fish and wildlife habitat; they provide critical breed- these streams are not classed as catastrophic flood
ing, nesting, and feeding grounds for birds, fish and hazards, they present serious threats to the stability
other aquatic animals, and contribute to the food and safety of development already existing in the
chains of upland plants and animals. Finally, in addi- floodplains.
tion to supporting general ecosystem health, wet-
lands also have important value as recreation, edu- Urbanization in the Municipality has increased the
cation, and aesthetic resources. flood potential considerably. Development has
taken place without regard to normal surface drain-
Development or alteration of wetlands can create age. Streams are realigned, relocated, filled, chan-
serious water quality and related environmental nelized and deepened at various locations along
problems. Upland development can lead to nutrient their courses. The results of these alterations of the
and sediment inflows that exceed the natural capac- natural water regimen have caused drainage prob-
ity of the wetlands to act as a "filter;" it can no longer lems and increased the flood potential. Major flood
efficiently transform nutrients into harmless inor- problems also have been created by inadequate
ganic matter and remove suspended sediment. The culverts and bridge openings. These undersized
nutrients stimulate eutrophication, and the in- stream crossings force flood waters to flow over
creased turbidity resulting from the sediment rein- roads and to back up and flood lands upstream. In
forces this depletion of available oxygen in the some areas, replacement of inadequate culverts
stream, degrading water quality and creating fish with larger culverts, construction of bridges, and
kills. Wetlands may function as recharge areas for realignment of poorly diverted small tributaries will
groundwater, groundwater discharge areas, orcatch be necessary to prevent or alleviate future flood
basins for overland flow. Development that in- problems.
creases upland runoff or affects groundwater levels Urbanization also increases the flood potential of an
can upset the intricate cycling of water between area by increasing runoff. When lowlands, swamps
wetlands, groundwater and surface water, impeding and othe areas that absorb moisture are drained,
the wetlands ability to counteract floods and developed and replaced by streets, sidewalks and
droughts. houses, more water runs off the land surface into the
The Municipality will conduct a research program, streams. This reusIts in higher and more frequent
as part of the implementation phase, to further deli- peak stages in the streams.
neat wetlands, classify wetlands, and understand Erosion and Sedimentation:
the hydrodynamics of wetlands as a prelude to
developing a wetlands ordinance or performance The construction phase of urban development ca r'
standards. This effort will be jointly conducted by result in significant alteration of the landscape, t: he
the CZM program and 208 planning efforts and will extent of the changes usually depending upon the
most likely involve input from Federal and State size of the development. A construction cost com-
agencies. monly incurred is large-scale removal of vegetative
Map 9 - Flooding coverin order that construction can proceed smooth-
Of the approximately 15 percent of land in the ly and efficiently. The impact, in terms of the hydro-
Municipality which is suitable for habitation, a sig- graph, is increased runoff from the area resulting
nificant amount is subjectto inundation from flood- both from increased quantity and velocity of flow.
ing. This natural flooding results from above- Both of these factors lead to significant removal of
average runoff from rain and snowmelt. Natural soil through the erosion process. Theactual amount
drainage basins are fairly small, however, but flood worked away from the site will also depend upon the
stages caused by rain or snowmelt generally rise extent of surface area exposed to the runoff and the
and fall within a few hours. Ice blockage in streams characteristics of the soil. The sediment washed
during winter months also can cause flooding of from areas undergoing urban development is from
local areas adjacent to streams. This occurs when five to five hundred times as great as that from
streams freeze to the bottom and do not allow for undeveloped rural areas. The consequences of ero-
runoff during winter and spring thaws. sion are loss of productive topsoil and the deposi-
tion of the soil, including its organic constituents, in
The Municipality has 22 distinct watersheds within streams, marshes, lakes, and the various water
its boundaries. The majority of these 22 streams or bodies. The resulting impact on these water bodies

is a smothering of streambed organisms and plants, Leaching refers to the removal of soluble materials
destruction of their storage capacity for water by percolating water. If these soluble materials are
supply and flood control, and an increase in the rate pollutants, this removal is harmful. Subsurface lea-
of eutrophication of lakes, swamps, and other water chage occurs as an intended action in the draining
bodies. of a septic tank. However, if a leaching field is
Sedimentation not only interferes with the function- blocked or otherwise fails, proper leaching does not
ing of the natural ecosystem, but also with the uses occur and subsurface water containing pollutants
which mankind usually expects to make of these often works its way to the surface. There it can be
water bodies. Sedimentation of streams and rivers picked up by runoff and carried to nearby bodies of
with a heavy organic load decreases their aeration water, resulting in degradation of water quality.
capacity and the ability of the water to assimilate Leaching often occurs at landfills, as rainfall perco-
future waste loads imposed by discharges from lates down through the site where wastes have been
wastewater treatment facilities. Furthermore, depo- disposed. If water percolating through this waste
sition of the sediment in reservoirs reduces the picks up soluble materialsor harmful virus and bac-
capacity of the reservoir for its intended use, teria, and later becomes part of that groundwater
whether it be water supply, power generation, or which augments streamflow, these pollutants may
flood storage. In due time these dams will retain also be carried into the stream. Proper landfill loca-
only silt and the original problem (water supply, tion and operation will serve to minimize leaching
power, and flood control) will still have to be solved. problems.
Sedimentation also interferes with the use of water As partof the water resource inventorythe following
bodies for recreational purposes. The destruction of maps were produced.
bottom or bed life and the inflow of organic mater 1. Coastal and upland marshes and wetlands
can result in a decrease of oxygen, thereby killing 2. Coastal and riverine flooding (100 Year)
fish. Furthermore, the transport of sediment in 3. Water bodies and drainages
streams and lakes reduces the aesthetic appeal of 4. Water recharge areas
these waters, whether it be due to the dirty water or These date will be inputed with the Anchorage 208
the resulting muck on the bottom. Water Quality Management Plan and additional
Studies of river channels have shown that the natu- studies performed to better manage water quality in
ral forces inherent in period flows naturally con- the Municipality.
struct and maintain channels with the capacity to Map 10 - Solis
carry a volume smaller than the average flood; this Soil is solid, surficial earth material that is capable of
means that on the average such rivers will overflow supporting plant life. As such, soil - along with air
their banks every 1.5 to 2 years. However short-term and water - is one of the basic sustainers of life. It
. the flooding, in the long-term is an increase in the directly or indirectly supports all terrestrial life,
channel's cross-sectional area through erosion of including man.
'it's banks. This, in turn, means additional deposits of Soil originates as a result of dynamic interactions
sedimentation downstream. among several factors: substrate, climate, toog-
Surface and Subsurface Pollution: raphy, and biota. The result is a complex mixture of
The constituents of pollutants which are deposited solid inorganic materials, fluids (solutions of miner-
on the surface of urban environments vary widely, als and gases in water), and biologic components
ranging from common organic material to highly (both living organisms and dead organic matter).
toxic metals. Some pollutants are intentionally Soils change continually according to water availa-
placed on the surface, only to be carried away by the bility, nutrient cycling rates, kinds and extent of
runoff, e.g. road salt, insecticides, herbicides. Oth- plant cover, human activities, and many other fac-
ers are the unintentional residue of man's activities, tors. Most soil changes are slow in relation to human
such as lead from automobile exhausts and oil drip- experience, perceptible over decades rather than
ping from trucks and cars. Such pollutants appear days. However, certain events such as floods,
to vary according to the land use and intensity of droughts, and fires can markedly change soils con-
land use. ditions inabriefspanoftime (forexample, byaccel-
For a given frequency of rainfall, increasing urbani- erating erosion). Regeneration of soil lost because
zation leads to greater removal of these surface pol- of natural processes or depleted by unwise land use
lutants due to the increased quantity and velocity of practices is a slow process - so slow that soil is, in
the resulting runoff. This becomes important when effect, a nonrenewable resource. Man can rapidly
one realizes that the most significant pollution deplete the soil, or he can mitigate some of the
occurs when there is just sufficient runoff to carry damaging processes (whether natural ly-occu rri ng
the pollutants from their place of deposition to the or man-induced). It is clearly in his best interest to
receiving waters; this runoff provides the least dilu- practice stewardship regarding this resource. Soil
tion in the streams. For the same frequency of rain- will continue to support mankind only insofar as
fall occurrences, this means that the urbanization mankind sustains the soil.
process will result more often in greater scouring or Soils are made up of a series of nearly horizontal
washing of the pollutants into the streams. ia-yers, 6-r-ho-riz ons. A soil profile is the sequence of

these horizons from the surface down to the under- (1) To identify the life-forms that aredeemed impor-
lying material which has not been altered by weath- tant to man (these can be the "visible" or direct
ering or plant roots. Soils that have profiles almost assets, such as game and fish).
alike make up a soil series. All soils of one series (2) To relate these "important" biologic entities to
have major horizons that are similar in important their habitats.
characteristics. These include (1) color; (2) texture,
or reltive proportions of gravel, sand, silt, and clay; (3) To understand the interrelationships among
(3) structure, or arrangement of soil particles into these designated life-forms and the total envir-
aggregates orclusters; (4) consistence; ordegreeof onment, especially regarding the complete food
compaction and plasticity; (5) aeration and drain- chain and the linkages with inorganic systems
age conditions; (6) reaction, or degree of acidity or and energy s 'ources.
basicity; (7) thickness; and (8) arrangement in the These information needs are being addressed by
profile. Each soil series is named and described in the Anchorage Coastal Management Plan, drawing
this report as it occurs in the Anchorage area, but upon the expertise of the Alaska Department of Fish
the names are subject to review and possible corre- and Game.
lation with soil series mapped elsewhere. Within the Municipality are found a variety of fish,
Soil series are further subdivided on the basis of birds and other wilflife as well as a diversity of habi-
external features that are important to use and man- tats. The maps developed illustrate the habitats of
agement of the soil. The subdivisions are called only selected biota and are superimposed on envir-
phases. Areas that have little or no identifiable soil, onments of upland, coastal and aquatic areas. The
or little plant cover, orthat are frequently inundated map alone does not reflect environments; this infor-
by tides, are called miscellaneous land types rather mation is derived from other data sources (water
than soils. resources, vegetation, soils, etc.) and needs to be
The areas shown on the soil map and identified by a viewed jointly to understand the environment which
symbol are called mapping units. A mapping unit creates the habitats.
represents an area on the landscape and, in the
Anchorage area, consists principally of the domi- The Municipality has abundant and varied wildlife
nant soil phase or miscellaneous land type for which habitats. Many streams and lakes provide sport fish-
the unit is named. ing for residents of the community, and some
Some mapping units consists of two or more domi- streams support runs of salmon that contribute sig-
nant soils which occur in such an intricate complex nificantly to the commercial fishery of Cook Inlet.
pattern on the landscape that they cannot be deli- Streams and lakes are also aesthetic and educa-
neated separately on the map. These mapping units tional resources.
are named for the two dominant soils and are called Most sport fishing in the Municipality is seasonal,
complexes. particularly for salmon and eulachon, which are
Because is it not possible even on a detailed soils available only for a short period during theirspawn-
map to show very small areas of soil, mapping units ing run. Perpetuation of the values accruing from
usually include patches of other soils. The proper- these fish depends upon protection of their habitats
ties of some included soils can differ substantially from pollution and encroachment of development.
from those of the dominant soils and thus may influ- Problems are acute, particularly in Campbell, Ches-
ence the potential use of the mapping unit. ter and Ship Creeks. Some lakes in the metropolitan
The soil maps produced permit the identification of area are already polluted, and more stringent pro-
areas suitable for residential, commercial, recrea- tection of water and strearnside quality is required
tional, and sanitary landfill. The soils of the coastal as the community expands. Ten fish species are
commonly found in the streams and lakes of the
area are an important resource and must be consi- Municipality.
dered a non-renewable resource. A varied bird population provides recreation through
Map 11 - Habitats hunting and study, and it is an attractive part of the
An animal's living-space is its habitat, and orga- landscape.
nisms cannot be divorced from their habitats and Numerous species of mammals inhabit the Munici-
survive. Humans may espouse a policy to ensure pality. Some are inconspicuous because of their
continued natural productivity of a species. Such a size or habits, while others are seen commonly and
policy might entail a regulation of harvest, or limita- are a significant source of aesthetic recreation and
tions of kills in terms of numbers of organisms or hunting.
allowable seasons for harvest. However, if the habi- Finally, Anchorage is one of few metropolitan areas
tat of the organism is lost, then the organism cannot where animals are large as moose range in a wild
survive. Although biota are considered a renewable state.
resource, the habitat necessary for sustaining a
given species may be (for all practical purposes) Some of the critical habitats for these animals are in
nonrenewable. Thus, there are basic information the development areas of the city and can be main-
needs for managing biological resources: tained only if their values are recognized and the

required management policies are adopted and car- important social benefits that can be expected from
ried out. Continued abundance of these animals their implementation. First, a substantial reduction
also depends upon a freedom from the effects of in the population and economic investment at-risk
pesticides and other poisons and control of preda- can be attained. Second, a substantial reduction in
tion by household pets (dogs). the expenditures of private and public agencies for
Some serious pressures are being placed on habi- evacuation, relief and rehabilitation can also be
tats of birds in the Municipal area where bogs and achieved. Third, dependence upon protective works
marshes are being drained and filled for develop- can be decreased. Restricting development in
ment sites. If populations of bog- and marsh- hazard prone ares can further more general envir-
dwelling birds are to be retained, residents of the onmental goals for society. Also, where it is possible
area must recognize the essential role of these to accurately delineate hazard zones it is often feas-
wetlands. ible to locate open space uses. In response to
incresing public demand for outdoor recreation and
Between 2,000 and 2,500 moose inhabit the Munici- open space in urban environments, governments
pality (Bader, 1972). Most of these animals range are placing more emphasis on providing such areas.
into the subalpine zone of the Chugach Mountains Overall, the effect of most land use management
in spring, summer and early fall. In late fall or winter, schemes is to produce less intensive uses of land in
however, they depend upon their traditional winter the hazard zone and less modification of the natural
range - the lowlands of the Anchorage bowl. They environment than would otherwise occur.
are a subject of interest to the entire community and Recent legislation has tended to recognize the
a magnificent asset to the community as long as growing importance of the land use management
they remain in the highlands or in wooded aeas. The option for hazard reduction and mitigation.
usually tolerant, sometimes nervous, relationship
between the growing human population, with its At one time, various units of government may not
increasingly high-speed highways, and the moose, have had the legal authority to enact regulations
with its dwindling food supply, is becoming more guiding land use in hazardous areas, including
critical as houses replace birch and willow browse. floodplains/ however, most of these legal impedi-
Management is difficult. Opportunities to improve ments no longer exist. But, despite the lessening of
winter range that are acceptable to all segments of legal ob@tacles, there has been no great rush to
the community are few, and acceptable means of adopt regulations controlling the land use in these
tailoring the moose population to the carrying areas. Opposition to governmental restrictions on
capacity of its range by hunting in the park and land use comes primarily from property owners.
heavily settled areas are difficult to find. The posi- Managing hazard zones to minimize the loss of life
tive values of a nearly unique local moose popula- and property can run counter to the forces which
tion must also be contrasted with the negative value attract people and activities to these areas; eco-
of the moose as an unpredictable half-ton highway nomic and aesthetic reasons combine to create
obstacle. At times, particularly in early spring and intense pressures to develop in floodplains and
for a month following calving, the animals are of other hazard zones. Political officials are often
uncertain disposition and should be treated with reluctaritto impose regultory measures since reduc-
caution. Young calves are often adopted by well- ing the economic return on a parcel of land or its
meaning people under the mistaken assumption assessed value can have serious fiscal impacts on a
that they have been abandoned, thereby adding to community that relies primarily on the property tax
the problem. Thesefactors should be considered by for its revenues. A particularly important problem
the public in arriving at a policy as to how large a with land use control as an adjustment measure for
moose population to maintain in the Municipality. reducing or mitigating hazards is the length of time
Without such a policy, the Department of Fish and required forthefull benefitsof theprogram toacrue.
Game can take only stopgap management Accurate hazard zone mapping is a critical compo-
measures. nenet of the planning process. Mapping should be a
necessary part of all local ordinances regulating the
Maps 12 and 13 - Hazards and Marginal use of land in hazardous areas. Without a map deli-
Lands neating the area and the intensities of risk within it,
Until recently, planning for hazard mitigation and public opposition to land use measures will be par-
control has not been recognized as an integral part ticularly strong and a legal attack on the validity of
of an areawide comprehensive planning and man- the ordinance would probablysucceed inthecourts.
agement process. With the possible exception of the Local priorities for hazard mapping should be based
floodplain ordinance, little has been done regarding on potential adverse impacts, related in turn to their
the mitigation of the full array of hazards present in likelihood of occurrence.
the Anchorage area. The least utilized measures,
i.e., land use controls in natural hazard areas, need Hazard mapping essentially consists of transferring
to be reassessed in light of the requirements of the known hazard occurrences to a map, which can be
Coastal Management Act. These include land acqui- done for all hazards for which accurate occurrence
sition, restricted development policies and assorted data exists. Even where such historical data are not
regulatory programs. Often overlooked are the available, sophisticated statistical techniques are

now employed in some cases, involving correlation create a defensible hazard zone area. Legal defen-
of the existing physical properties of an area to the sibility depends on predictive capability; if the pre-
hazard occurrence potential. Federal agencies do dictive capability of a hazard map is low, the use of
most of the mapping of hazardous ares, often at the the map for regulatory land use questionable. Pre-
request of or in cooperation with State and local dictive capability of such maps is based mainly on
agencies. HUD, the Army Corps of Engineers and the probabilities within which variation of occur-
the Soil Conservation Service of the U.S. Depart- rence exists. Thus accuracy is relatively high for
ment of Agriculture have been mapping flood delineation of floodplains, based on past flood his-
hazards for several years in virtually all areas of the tories and reliable hydrologic data; for the natural
U.S. The National Oceanic and Atmospheric Admin- hazards where assignment of probabilities of occur-
istration (NOAA) and the U.S. Geological Survey rence is less reliable (earthquake, volcano, tsuna-
have ongoing programs to map areas susceptible to mis, avalanche, landslide), mapping as a basis for
earthquakes, tsunamis, landslides and volcanoes. land use management is less defensible. However,
hazards within this latter group have a strong poten-
The Municipality has undertaken two projects in tial for being mapped in relation to distinct geologic
efforts to identify and delineate hazards. A contract characteristics of an area. These known character-
for hazard assessment studies has been awarded to istics can be used to produce maps accurate for
Harding-Lawson Associates, a local geotechnical areas with potential for occurrence, even though
firm, to identify, delineate, and rank hazards and probabilities cannot be estimated reliably.
their possible severity (see appendices). Part of the
contract requires the development of model ordi- ON-GOING AND FUTURE PROGRAM
nances. The second program just now beginning is The Municipality is currently preparing plans for
the Southcentral Remote Sensing Demonstration dealing with water quality. These projects are sum-
Project. The utilization of various remote sensing marized on the following pages.
technology will be applied to hazard studies in the A need also exists to identify a classification scheme
Municipality. The results of both projects wil be for all coastal and upland wetlands and prepare
incorporated in the coastal management program. management plans for them. Some wetlands may be
The U.S. Geological Survey is presently conducting suitable for development while others may have
a project entitled Earthquake Hazards Mapping, values, functions and suitabilities not tolerant to
Anchorage-Susitna Lowlands. This project com- development. This issue will be addressed as part of
plements the Harding-Lawson study, and will be the southcentral remote sensing demonstration
used in future land use planning efforts. study.
Available mapping techniques rely principally on The remote sensing demonstration program is ex-
either on-site investigation or remotely sensed pected to produce products that will assist in updat-
imagery. On a national or regional scale, remote ing the inventory and add new knowledge about
imagery techniques are adequate for the accuracy areas in which information is lacking. Of particular
required; on the state or particularly the local level, a importance is a program to monitor urban change
combination of both remote and on-site techniques and a program (remote sensing) to monitor water
is usually required to obtain the needed accuracy. quality in the Municipality. Land cover/vegetation
At the local level technical accuracy is paramount, maps are being produced as part of the remote sens-
as local regulations governing land use must be ing demonstration project and the resulting pro-
precise. At this level, site-specific verification ducts will be incorporated into the coastal man-
("ground truth") is required for dependable maps. agement plan and atlas of resources.
With the launching of LANDSAT 2 and 3, satellite ESTUARINE WATER QUALITY IMPACTS
imagery and high altitude photography has become A water quality study of Knik Arm and Upper Cook
an effective tool for certain types of hazard map- Inlet is the first major MAUS element to be com-
ping. The most innovative aspect of LANDSAT is the pleted and was conducted by Tetra Tech, Incorpo-
ability of the imagery to provide large area perspec- rated, consulting engineers. The purpose of the pro-
tives, especially useful in identifying regional fault- ject was to determine the effects of various levels of
ing relationships. More detailed imagery from low wastewater effluent discharges from the sewage
altitude aerial surveys is used extensively in the U.S. treatment plant on the water quality of the estuary.
for accurately identifying floodplains, faults, ava- It was demonstrated by field measurement and
lanche paths, landslides and other hazards. Gener- numerical calculation that the present sewage out-
ally, aerial photography techniques are most useful fall provides surface dilution of as little as 2:1 during
for mapping geomorphic and hydrologic hazards, low slack water. Further, during flood tide, the waste
while atmospheric hazards such as tornados are field is entrained in an eddy that carries wastes
more suited to use of historical data. For still other toward the shoreline to the east of Point Woronzof.
hazards, such as tornados, both types of data can be Examination of water and sediments in shore areas
used effectively. subject to contamination identified the presence of
Application of hazard mapping to land use man- fecal coliform bacteria, confirming the inadequate
agement requires sufficient data substantiation for performance of the existing vertical nozzle outfall
it to be used by a political decision making body to that extends about 800 feet out into Cook Inlet.

Current biological impacts from sewage eff I uentsin tional value that the Municipality plans to protect
the Point Woronzof vicinity include possible esthetic and use. The shorelines of several of these creeks
effects (i.e., odor) during spring thaw, a slight have already been designated as greenbelts and
enhancement of plankton populations, and con- parks in the Municipality's Comprehensive Devel-
sumption of coliform bacteria by various members opment Plan.
of local food webs. No coliforms would be trans- To better define the existence and extent of sus-
ferred to humans by edible shell fish since commer- pected nonpoint source pollutants, runoff flows
cial species do not occur in the Point Woronzof were measured and samples were analyzed during
region. Occasional body contact with sewage efflu- 1976 and 1977. Data obtained from five representa-
ent coliforms along the shoreline could occur. tive urban development drainage areas will be used
An estuarine model was applied to Cook Inlet to to calibrate a computer simulation model for defini-
evaluate the water quality impacts of increased dis- tion and analysis of urban runoff.
charge rates at various treatment levels. The water Runoff from downtown and the commercial districts
quality projections showed that a reasonable stand- along Campbell Street showed generally higher
ard, in keeping with present and foreseeable uses of concentrations of COD, grease and oil, chloride,
the water and with the potential of the marine envir- suspended solids, turbidity, bacteria, and heavy
onment, would not be violated outside the initial metals compared to the residential site. This differ-
mixing zone at any time with primary effluent dis- ence is concistent with the higher traffic density
charges. Also important is the fact that only minor expected in commercial areas.
reductions of waste constituent concentration
would occur in the estuary as a result of secondary Runoff from the airport showed anomalous in con-
or advanced waste treatment. centrations of many water quality parameters: nit-
In summary, the study concludes that the present rogen species were extremely high and metaphos-
outfall pipe does not effectively dispose of Anchor- phates and SOD very high, while orthophosphates
age Municipal wastes because it provides only and coliforms were low. These data can beexplained
minor dilution at low tide and permits the waste field by high concentrations of detergents, fuel, or some
to become entrained in an eddy during flood tide. A deicing or defogging chemicals high in nitrogen
biological survey of the area showed that no adverse species. Low orthophosphates and coliforms make
impacts were observable during summer at the a sewage source unlikely.
present time. However, fecal coliform measured The single-family area showed high volumes of
along the shoreline indicates contamination from SOD, nitrogen, and phosphorus compared to the
thesewage discharge. Largerflows in thefuture will other @urban areas. The presence of a source of
worsen this situation unless the outfall is moved. domestic sewage from ground water infiltration is a
Nonpoint Source Pollutants possible explanation. Runoff from the multi-family
Other types of wastewater also affect water quality. residential area also showed high concentrations of
They are termed nonpoint source pollutants nitrogen forms compared to the commercial areas.
because their source of origin cannot be pinpointed Existing Drainage System and Practices
and include storm runoff and snowmelt. Water qual-
ity problems associated with urban drainage are the Drainage facilities are currently in place throughout
result of changing the quantity of runoff, as well as most of the urbanized portions of the Ship Creek
the washing off of waste constituents accumulated and Chester Creek drainage basins, many of the
on the ground. facilities having been constructed incrementally
The major waste constituent in urban storm water is lacking a comprehensive design. (This is not char-
generally sediment, principally sand and silt. Sedi- acteristic of Fort Richardson and Elmendorf AFB,
ment comes from atmospheric dust, disintegration however, where adequate systems exist.) Those
of road surfaces, sanding of icy roads, and erosion systems that have been built were designed without
of urban land areas. High erosion and sediment consideration of the character and effects of runoff
production rates are generally associated with unreg- quality or pollutant levels.
ulated land development activities. For many of the rapidly developing basins, plans
Concentration of organic materials (SOD, COD), have yet to be prepared; for others, the plans need to
nitrogen and phosphorus compounds and coliforms be updated to conform to community development
can reach high levels in urban runoff. Significant goals,
amounts of heavy metals have been found; zinc and Water quality is also affected by snow removal and
lead are most prevalent, and copper, nickel, mer- disposal operations. During the 1974-75 snow sea-
cury, and chromium occur in smaller amounts. Oil, son, for instance, over one million cubic yards of
grease, and gasoline residues, which are related to snow were hauled to 34 disposal sites within the
traffic volumes, can cause water quality problems. Municipality. Some of the sites were situated so that
Significant levels of pesticides and related organic snow was stacked adjacent to streams and lakes.
compounds can also occur in urban runoff. While some of the snowmelt percolates into the
The receiving waters for urban and snowmelt are ground, a substantial portion, along with its accom-
various creeks and small lakes of substantial recrea- panying pollutants, directly enters surface waters.

Runoff from urban construction sites is another snowmelt runoff wasteloading to Campbell Creek
source of pollutants. Activities that can cause prob- will be simulated under assumed suburban devel-
lems include street and highway construction, home opment patterns. It will be determined if State of
building, commercial and industrial land develop- Alaska Stream Water Quality Standards will be met,
ments, utility networks, and recreational develop- and whether other-'problems due to increased
ments. Generally, eroded soil is the major waste waste-loading will occur. In addition, drainage prob-
constituent from development activity. lems will be predicted by the computer model.
Runoff Quality Management Plans After potential water quality problems have been
The Corps of Engineers and the Municipality have defined and prioritized alternative solutions to the
split the responsibility for runoff management plan- problems will be formulated. The computer models
ning in the Anchorge bowl under the 208 Areawide will be used to assess the effect of each solution.
Wastewater Management study. Both efforts are The most practical and effective set of solutions will
similar in that they are problem oriented and be defined and presented in a final report to the
designed for immediate implementation in certain Municipality in early 1979.
problem drainage basins. The study results will also Drainage Basin Plans
be useful for later application to other basins as
required. The general objectives of the 208 study in Campbell
The Corps'study area includes the most developed Creek are to:
and urbanized region, generallywhere storm drains Develop an acceptable cost-effective plan for
already exist but where water quality problems are managing water pollution sources foradeveloping
prevalent. The Corps' study is being conducted by basin within the Campbell Creek watershed using
Woodward-Clyde Consultants. Six areas of special detailed procedures; and the total developing area
interest have been identified: Ship Creek drainage in the Campbell Creek watershed using general-
basin, Chester Creek drainage basin, Fish Creek ized procedures.
drainage basin, Knik Arm drainage basin, Anchor- Establish a stormwater management methodology
age International Airport study area, and the central including a calibrated and verified quantity and
business district study area. quality computer simulation model for developing
Of these, the basin with the most severe runoff pol- similar plans in other urbanizing areas within the
lution problems will be identified. Then an imple- Anchorage area.
mentable plan for reducing pollutant loads to levels Have the Campbell Creek watershed plan adopted
consistent with water quality standards will be deve- by the Municipal assembly and the initial priority
loped. The goal is to have the plan adopted by the control measures budgeted in the Municipality
Municipal Assembly, with initial priority control Capital Improvement Program for 1979.
measures budgeted in the Municipality's Capital
Improvement Program for 1979. The key tasks that will accomplish these goals are:
Alternative treatment measures that will be evalu- 1 .For the entire Campbell Creek watershed, iden-
ated include sedimentation ponds, filtration and var- tification of the existing major drainage systems.
ious physical-chemical methods. Another approach For a developing basin within Campbell Creek
improving storm runoff quality is to reduce pollu- watershed, identification of detailed drainage
tants at the source by limiting (1) the quantity or systems, including pipe, gutter, and ditch
type of material that can be picked up by runoff or networks.
(2) the volume of runoff yielded by a basin. Accord- 2. Selection and calibration of the computer simu-
ingly, an evaluation is to be made of the benefits of
improved sanitation through antilitter programs, lation model. Development of procedures to
street cleaning, road maintenance, and other non- prepare the generalized and detailed basin
structural solutions. plans.
Task number one has been completed and a techni- 3. Definition of present and future water quality
cal memorandum describing the existing drainage problems in the Campbell Creek basin.
system and available environmental data has been 4. Formulation of alternative plans.
produced. A summary of the Task One memoran-
dum is available. Task Number Two, the computer 5. Evaluation of alternative plans.
modeling phase of the project, is now well under 6. Selection of recommended plans. Preparation
way. A pollutant washoff computer model has been of draft and final reports.
calibrated to water quality data observed in the
three test drainage basins in Anchorage. The prim- 7. Summarization of metholodology and proce-
ary result of the calibration process is a pollutant dures followed in developing plans. Preparation
buildup matrix that gives pollutant buildup rates in of design manual.
pounds per acre perdayforeach land use classifica- 8. Partial implementation of recommended plans.
tion in the Campbell Creek basin. 9. Public involvement program.
Using the pollutant buildup matrix as basic input to
a washoff computer model, future rainfall and 10. Project management and coordination.

The Anchorage 208 Water Quality Program will be
utilized extensively to assist in implementing the
Anchorge Coastal Management Plan with regard to
water quality and reducing those land uses that
cause direct and significant impacts on coastal
waters. The Planning Department coastal manage-
ment staff strongly endorses adoption and imple-
mentation of the 208 plan.

TABLE IV-7

SCENIC VALUE ASSESSMENT CRITERIA
Ecosystem Continuity: the visible manifestations of shore ecology, such as marshes, inlets, and flats seen
within a single shorescape viewshed.
NearlFar Contrast: the juxtaposition between foreground or middleground and horizon forms; greatest
when the nearer forms are distinct and the horizon forms, beyond water surfaces, are blued by haze and
appear two-dimensional.
Uniqueness (Scarcity): an index of value based on rarity; a quality subject to broad interpretation dependent
on the experience and expectations of the individual viewer.
Endangerment (Issue-Real): an index of the aesthetic quality of concern for resources facing real or
imagined destruction.
Sensitivity to Change: a judgmental indicator of the extent to which a shorescape unit possesses compo-
nents which would be blocked, overshadowed, replaced, or otherwise damaged by the intrusion of objects
or functions of moderate or average magnitude.
True-to-Form Rurality: a landscape possessing forms and materials, both natural and man-made, typical of
classic, natural, semi-natural or agricultural areas.
True-to-Form Townscapes: a townscape possessing forms and materials, both man-made and naturalized,
typical of architectural styles characteristic of the region's historically established artifacts.
Color(Hue) Ingredients: color of natural elements (earth, vegetation, water, sky); a criterion that varies with
seasons and weather.
Pictorial Composition: canvas qualities; varies with viewing orientation and is a determinant of best
viewpoints for given vistas.
Vividness: a summary quality which expresses the uniqueness and impressiveness of one or more of an
area's other qualities.
Shore Dynamics: the visual impression of tides, currents and weather.
Saill1sland Horizons: visual distinctness of islands and rocks; depends on viewpoint orientation and
distance as well as on temporal factors.
Topographic Complexity: an index of the diversity as well as the relative relief of an area's landforms
(vertical qualities).
Shoreline Complexity: an index of the irregularity of the coastal interface between land and water (horizon-
tal qualities).
Vegetative Integrity: unity of vegetative species or type forms within a single shorescape viewshed.
Vegetative Diversity: diversity of vegetative species or type forms within a single shorescape viewshed.
Human Dynamics: visible manifestations of human activity associated with the coastal zone (e.g., clamming,
fishing, shipping, swimming), which are of human scale and interest.
Absence of Detractions: freedom from incompatibilities introduced by natural forces (e.g., storm-eroded
slopes) or by man (the latter by far the more important factor).
InstructiveQualities: characteristics of geological, botanical, or other scientific interest, or which shed light
on other qualities of the coastal zone.

CHAPTER V
ANCHORAGE RESOURCE MANAGEMENT COASTAL ENVIRONMENTS

INTRODUCTION The coastal zone, while a continuous system, is
The key element of the program Approval Guide- actually a composite of numerous and distinct coast-
lines is that the various elements of the Coastal al resource units--each with its own particular char-
Management Act be integrated into a balanced and acter. An effective and equitable planning frame-
comprehensive program. The Act further specified work must be tied to specific areas within the
that the process through which permissible uses are coastal resource district. Thus, the purpose of sub-
established include full consideration of develop- dividing the three environments into subunits.
ment and utilization as well as conservation and While the coastal resource district should be thought
preservation activities. The Municipality of Anchor- of as being a continuous system, effective land
age, in developing its coastal management pro- management and planning are based on plans
gram, has utilized the preservation, conservation, which take into account the natural diversity of the
utilization concept to identify specific environments coastal area. The geographic segmentation of the
(geographic areas) along the coastal area, and has coastal area into units of a similar nature allows
applied a land use suitability analysis to each classi- planners to make decisions which address the par-
fication or environment for the purpsoe of identify- ticular characteristics of a given area. In this way,
ing permissible uses. land use controls can be tailored to fit needs of
In order to more effectively implement goals, objec- specific sections of the coastal area. Land uses which
tives and policies of the Municipality's coastal exist in harmony on one coastal environment may
resource district program and the Alaska Coastal be entirely inappropriate for another. The process
Management Act, the coastal areas of the Munici- of geographic segmentation is designed to provide
pality have been categorized into three separate planners and decision makers with the means for
enviornment designations. The purpose of these examining the coastal area in light of its natural
designations are to differentiate between areas diversity and to plan for and manage it accordingly.
whose geographical features imply differing objec- The PCU approach provides a basic conceptual
tives regarding their use and future development. description of an area's suitability for development,
Each environment represents a particular emphasis preservation and conservation. Preservation, con-
in the type of uses and the extent of development servation and utilization may be defined as:
which should occur within it.Thesystem isdesigned PRESERVATION:
to encourage uses in each environment which _r@
enhance the character of the environment while at 1he Preservation Environment consists of areas
the same time requiring reasonable standards and (resource policy units) characterized by the pres-
restrictions on development so that the character of ence of some unique natural and cultural features
the environment is not destroyed. considered valuable in their undisturbed or original
condition and which are relatively intolerant of
The determination as to which designation should intensive human use; those lands and/or water
be given to any specific coastal area has been based areas of the coastal area ident ified as having major
on and is reflective of the existing development ecological, hydrological, physiographic, hazard-
pattern, the biophysical capabilities and limitations ous, historical, archeological, cultural, or socio-
of the land and the goals and objectives as outlined economic importance to the public. Such areas
in the Comprehensive Development Plan adopted should be essentially free from development or be
July 20, 1976. capable of being restored to their natural condition,
The generic germ used for tht three land use suita- and they should be large enough to protect the
bility Environments are: Preservation Environment value of the resource. Preservation areas are being
Conservation Environment, Urban Development. defined as those coastal areas which provide
invaluable public benefits, such as flood protection,
Each of the three environments is actually a compo- recreation, scenic, aesthetic, economic value, and
site of many subclasses. A concept which is central he protection of significant fish and wildlife habi-
to the designation of permissible uses is that of tats.
geographic segmentation. This concept invovles a The emphasis in the Preservation Environment is on
division of the coast into different resource units, preservation and restoration of natural systems and
each representing a particular type of environment. resources, and on prevention or regulation of uses
These resource units are not defined solely on a and activities which would degrade or destroy the
biophysical basis, but rather, may represent an
environment which takes on a special character due natural environment. Any proposed use or activity
to man's activities there. Thus, resource units which would change the existing situation would be
represent both biophysical and social values as desirable only if it further enhances, restores or pre-
well. serves the natural character of the area so classified.

Areas which provide these public benefits would physiography, soils, hydrology, geology, or
be considered for the preservation management otherfactors, land in the Utilization Environment
environment. would be comparatively suitable for develop-
The purpose of designating the Preservation ment. Land so classified would have reduced
Environment is to preserve and restore those ecological, recreational, and overall public
natural resourcesystems existing relativelyfree importance. Water dependent and water related
of human influence. These systems require uses and activities should be restricted to this
severe restrictions of intensities and types of environment. The Utilization Environment is
uses permitted so as to maintain the integrity of particularly suitable to those areas presently
the Preservation Environment. subjected to extremely intensive use pressure,
as well as areas planned to accommodate urban
CONSERVATION ENVIRONMENT expansion. Shorelines planned for future urban
The Conservation Environment consists of those expansion should present few biophysical or
lands and water areas of the coastal area hazardous limitations for urban activities and
identified as having certain natural or institu- not have a high priority for designation as an
tional use limitations which require special pre- alternative environment.
caution prior to their use or development. Conser- The purpose of the Utilization Environment
vation areas include those areas designated for classification is to ensure optimum utilization of
long-term uses of renewable resources in the the coastal resource district within urbanized
coastal resource district. Conservation areas areas by permitting intensive use and by
would include the smaller tracts of lesser managing development so that it enhances and
ecological sensitivity and biological importance. maintains the area for a multiplicity of urban
Lands classified as Conservation would be those uses. The environment is designed to reflect a
requiring special precautions when being policy of increasing utilization and efficiency of
developed, or designated for recreation and urban areas, to promote a more intensive level of
open spaces.
use for development of areas now underutilized,
The purpose of the Conservation Environment and to encourage multiple use of the coastal
classification is to protect areas for environ- area if the major use is water dependent.
mentally related purposes, such as public and PRESERVATION ENVIRONMENT
private parks, fishing grounds, flood protection, COASTAL RESOURCE POLICY UNITS
scenic quality, water management, forestry Within the Preservation Environment classifica-
management and water recharge. While the tion are contained nine coastal resource policy
natural environment is not maintained in a pure units, each of which merit preservation environ-
state, all activities and uses to be carried out ment status and which meet the purpose and
provide minimal adverse impact. The key to this definition of this designation. Each coastal
Environmental classification is management, in resource policy unit is defined so that specific
which the intent is to use certain resource policy designation of permitted uses can be identified
unit classifications within the Conservation and specific policy statements applied.
Environmental classification for development
provided the use is designed to maintain the 1. Class I Waters
quality of the natural elements of the site. These are surface waters that are used or
Development in specified resource policy units have the potential for use as a potable source
of the Conservation Environment will be limited of public water supply, or withdrawn for
to those uses which are non-destructive and, treatment as such.
where possible, non-consumptive of the 2. Selected Fresh Water Marshes and Wetlands
resources indentified as being valuable and These include upland wetlands formed during
requiring protection and management. the past glacial melting period and smaller
UTILIZATION ENVIRONMENT lakes, ponds and inland marshes and upland
The Utilization Environment means those lands marshesformed bythediking action of glacial
and water areas of the coastal resource district marines and silt deposits or highway and
suitable for development; already developed or railroads which block the natural flow of
officially committed to an acceptable develop- many smaller streams. These are also areas
ment activity; or undeveloped but suited for having a high water table. Such areas are
development giving full consideration to environ- unsuitable for intensive land uses without
mental safeguards, design, engineering, con- major alteration. They are usually of substan-
struction and planning practices. tial ecological importance and serve as natural
The Utilization Environment means those lands retention mechanisms for surface waters.
that could be developed with only minor altera- Someswamps and marshes mayalso function
tions to the environment of the coastal zone, and as aquifer recharge areas. Development in
includes that classification of open water swamp and marsh areas has a high initial cost
designated for transportation, navigation, utility and a high continuing cost that is often borne
and industrial use. Because of such factors as by government. Such problems as periodic

flooding, poor stability of roads and streets, crea- include: eagles, rare birds of prey, water fowl and
tion health hazards, and subsequent expendi- upland birds. Fish include principally the migrat-
tures of tax money for corrected mesures are ing salmon during breeding and rearing seasons,'
often encountered in such areas. Development in but also include those fish species utilized for
fresh water swamps and marshes, therefore, is sport fishing. Coastal wildlife habitat areas
likely to become an unnecessary tax burden. include both established wildlife reserves,
Because of the ecological significance of these refuges, and sanctuaries, as well as areas not
areas, their value for water retention purposes formally classified but which serve the functions
and their intrinsic unsuitability for intensive described above.
development, they should be managed to ensure 6. Coastal Cliffs and Bluffs
against modifications that will significantly impair These are steep lands from which development
identified function or values. They are character-
ized by semi-aquatic vegetation including var- should be restricted because of high susceptibil-
ious species of grasses and sedges. ity to accelerated soil erosion, slippage or foun-
dation instability, resulting in unnecessary scar-
3. Tidal Creeks and Flats ring, onsite sewerage disposal problems, and
This includes the lands between the mean high unnecessarily high seismic hazards to structures.
water line and the mean low water line; the area Retention of maximum natural ground cover is
covered and uncovered by the daily rise and fall generally desirable on these slopes to prevent
of the tide. The physical characteristics are mixed accelerated erosion or coastal slippage. Public
sediment and glacial silt flats, organic material, policy should attempt to create a coastal con-
and very low plants. Such areas are valuable habi- struction setback Ii ne f rom.the edge of the coastal
tat for numerous species of birds. They also pro- bluff.
vide necessary nutrients to adjacent waters and, 7. Hazardous Lands
through their filtering action, help maintain good These are lands from which development is to be
water quality. Many important marine species are either excluded or restricted and carefully con-
dependent upon marsh systems, marsh and tidal trolled, and include well identified snow ava-
flat systems for survival, and preservation of lanche zones, rock slide areas, areas subject to
these areas is considered crucial to maintenance frequent coastal flooding or seismic seawave
of our marine fisheries. Their storm buffering (tsunami) and areas subject to glaciation or
function also helps reduce damages to coastal severe seasonal ice scour, or areas subject to
development. significant seismic hazard, land slide, mud slide,
slumping, solifluction, subsidence or other major
4. Salt Water Marshes hazards.
This category includes a variety of low, salty 8. Historical, Prehistoric, Archaeological and Natu-
marshes, sedge marshes, high marshes and inter- ral Areas for scientific and educational research.
tidal gravel marshes--these are characterized by
sedges, beachrye, hair grass and some reed These are areas of outstanding historical and
grass. These salt marshes have low soil salinity prehistorical and archaeological significance
from tidal flooding due to low salt concentrations which reflect Alaska's rich and colorful history.
in upper Cook Inlet waters. The salt water These sites provide the informational base upon
marshes are considered part of the tidal marsh which our cultural heritage is built and reflect
b
ystems and have major significance. Such areas our varied ethnic origins. In many cases these
are valuable habitat for numerous species of sites provide the only avenue to the understand-
irds and terrestrial animals. They also provide ing of our prehistory and history, and the physical
necessary nutrients to adjacent waters and, disturbance of these sites by unqualified individ-
through their filtering action, help maintain good uals could result in the irretrievable loss of a seg-
waterquality. Many important marine speciesare ment of our cultural heritage. Natural areas for
dependent upon these salt water marsh systems scientific and educational research are those
for survival, and preservation of these areas is areas that contain natural features of an unusual
considered crucial to maintenance of our marine or unique character, usually of comparatively
fisheries. Their storm buffering functions also small geographic extent.
help reduce damage to coastal development. 9. Coastal Flood Zone
Included in this category are high marsh areas This category encompasses lands between the
generally considered as being above the mean shoreline and the 100 Year Floodline; that is, the
high water line. areas subject to flooding by gale driven tides on a
1* Coastal Habitats statistical probability of at least every 100 years.
No development, except water dependent devel-
These are lands and waters imperative to the sur- opment, should be allowed within this zone.
vival and propagation of varied wildlifeand fisher-
ies resources. They include breeding and rearing CONSERVATION ENVIRONMENT
areas, overwintering areas, and historic migra- COASTAL RESOURCE POLICY UNITS
tion routes. Land mammals of particular concern Within the Conservation Environment classification
include: dall sheep, goat, moose, bear, wolf and are contained eight coastal resource policy units,
small furbearers. Birds of particular concern each of which merit conservation environment sta-

tus and which meet the purposes and definition of ensure acceptable levels of development. There
this designation. Each coastal resource policy unit are varying degrees of marginality, and most of
is defined so that specific designation of permitted these limitations may be adequately overcome by
uses can be identified and specific policy state- appropriate technology. Generally speaking, how-
ments applied. ever, intensive development of areas having
1 .Class 11 Waters moderateto severe limitations involves excessive
These are coastal and inland waters which have modification of the landscape, large initial expend-
the potential or actual or present capability of iture of funds, a high maintenance cost, and
supporting recreatinal and/or commercial fish presents continuing problems for local govern-
propogation and harvesting, also including ment. In addition, intensive development of mar-
spawning areas in rivers and including lakes. ginal lands can generally be anticipated to have
significant ecological impact unless careful plan-
2. Class III Waters ning proceeds development.
These are coastal and inland waters and water- 6. River Floodplains
bodies which have the capability of providing These are lands lying along drainage corridors
active or passive recreational enjoyment and which (rivers, streams, creeks, and lakes) that are sub-
provide access routes for anadromous fish spe- ject to flooding on a regular basis. These areas
cies between Class I and Class 11 waters. The usually contain mixed alluvial, poorly drained
primary requirement for these bodies is that they soils and natural vegetation that is adopted to
be maintained at a quality sufficient to allow body fluctuating water levels. All development within
contact water sports and propagation of fish and the 100 year floodplain must be restricted and
wildlife. only those developments that can safely be
3. Scenic Corridors, Scenic Areas and Vistas designed to prevent damage and loss should be
These are rights of way for highways, railroads, considered within this resource policy unit.
trail or water channels which pass through areas 7. Open Space
of recognized high aesthetic value which gener- These are lands which occupy a variety of natural
ally require that foreground elements be pre- environments. In general, Open Space lands are
served or enhanced and considered in the design those which occupy areas not suited to develop-
and construction of such mentioned uses. Scenic ment for a variety of reasons, most of them
areas and vistas are those areas generally recog- already discussed under hazardous lands, coas-
nized fortheir great aesthetic beauty or having an tal and river floodplains and marginal lands. In
obvious or unusually distinctive physical appear- addition, Open Space lands may promote a better
ance. Provision should be made for providing community design by providing breathing space
scenic pullouts along highways and trails and for between and within subdivisions, buffers between
residential and commercial, buffers between
providing measures that take these factors into highways, airports, railroads and residential
consideration in all planning for the Municipality. development and for environmental reasons per-
4. Parks and Recreation Areas taining to noise abatement and air pollution
These are areas devoted to outdoor recreational abatement, and drainage corridors for snow-melt
activities of various types, both existing and and other runoffs.
potential. This may include historical, archeolog- 8. Forestry Management Areas
ical, prehistoric sites, wildlife refuges, unique These include those Municipal, State and Federal
environmental areas, or natural areas. It is impos- lands specifically set aside as state or national
sible for the State of Alaska to meet all outdoor forest or as part of the state game management
recreation needs of residents and tourists. There- area program. This designation also includes
fore, local governments and private owners must Municipal lands set aside for forestry and game
be relied upon to satisfy a large portion of the management purposes. Such lands in many
instances also contain habitat (critical and non-
needs. As urbanization intensifies, this situation critical) which must be managed to ensure both
becomes increasingly critical, emphasizing the maintenance of the wildlife species and sustained
wisdom of providing development controls that yield of the forest resource. Use of such lands will
will prevent degradation of recreation areas. require proper management procedures to allow
for economic gain while managing the forest and
5. Marginal Lands wildlife resources.
These are lands that require moderate to exten-
sive alteration before they are suitable for devel-
opment. These lands include those areas contain- UTILIZATION ENVIRONMENT
ing poor drainage, poor foundation conditions,
poor soil conditions which subjects the site to Within the Utilization Environmerituict-__
severe building restrictions, areas of low permea- contained five resource policy units, each of which
bility in a high water table, and all other condi- merit utilization environment status and which meet
the purpose and definition of this designation. Each
tions which require moderate to extensive altera- coastal resource policy unit is defined so that spe-
tion prior to development. Specific performance cific designations of permitted uses can be identi-
standards need to be applied to these lands to fied and specific policy statements applied.

1. Class IV Waters of compatible uses while also maintaining the
These are surface waters presently used or capa- natural environment, character, scale and inten-
ble of use for waterborne commerce, transporta- sity of use as expressed in the Comprehensive
tion, commercial fishing, for water dependent Development Plan Ordinance, while at the same
commercial and industrial purposes and uses, time meeting the following goals: (A) maintain a
and for utilities and power generation. This clas- full complement of water dependent uses; (B)
sification applies to those waters of the Turna- preserve and enhance the view shed across Knik
gain and Knik Arm. Cook Inlet, for all its negative Arm; (C) develop a diversity of commercial and
attributes, can in no way be considered an unlim- residential activities related to the use and
ited dumping ground for the waste of man. It may enjoyment of the water front, the surface and
be better suited for this purpose than many bays maintenance of water related activities and pro-
in North America, but it does have a finite capac- viding for public access; and (D) encourage mul-
for receiving waste without unduly disturbing tiple use concepts having a wide range of inten-
natural conditions. sity while preserving view of the water from
2. Urban Residential upland and adjacent properties.
The Urban Residential classification is intended 5. Rural
to protect areas which are appropriate primarily The rural resource policy unit is intended for
for residential uses. These are residential areas coastal resource district areas characterized by
currently developed as primarily residential low density residential uses where most urban
neighborhoods and vacant lands suitable for services are not available, in areas which provide
residential development. The purpose of the buffer zones and open space between predomi-
urban residential resource policy unit is to main- nately urban areas. Undeveloped coastal areas
lain the existing residential character of the not planned for urban expansion or which do not
designated area in terms of bulk, scale and gen- have a high priority for development or for desig-
eral types of activities and developments. Such nation in an alternative environment or resource
areas should have elevations, soils, topography policy unit and recreational uses compatible with
drainage, and other physical conditions favora- other environments and resource policy units are
ble for development. "These are lands needing appropriate for the rural resource policy desig-
little or no modification to make them suitable for nation. The purpose of designating the rural
development. It is not necessarily advocated that resource policy unit is to restrict intensive devel-
all such areas identified as urban development opment along undeveloped coastal areas, func-
areas be intensively developed. Rather, it is tion as a buffer between urban areas, and maintain
intended to indicate to developers and govern- open spaces and opportunities for recreational
mental agencies and decision makers those uses within the ecological carrying capacity of
areas physically suited for development and to the land and water resource. New developments
stress the importance of guiding future growth in the rural resource policy unit area should
into these areas if possible. Controls on distribu- reflect the character of the surrounding area by
tion, density and design of development within limiting density, providing permanent open space
such areas is the responsibility of comprehensive and by maintaining adequate building setbacks
land use plans and special purpose plans. from water to prevent shoreline resources from
3. Urban Development being destroyed and to permit public access.
The areas included in the Urban Develoment
resource policy units are primarily those which POLICIES APPLICABLE TO ENVIRON-
are appropriate for commercial and/or industrial MENTS
purposes. The purpose of the designation is to PRESERVATION ENVIRONMENT GENERAL
provide for efficient utilization of such areas for POLICIES
water dependent commerce and industry con- 1. Natural areas shall remain free from all develop-
sistent with the standards and guidelines of the ment which would adversely affect their natural
Alaska Coastal Management Act, and other character.
applicable regulations. Water related commerce
and industry shall be given second priority in 2. The intensity and type of uses permitted shall be
this designation. restricted in orderto maintain the natural systems
4. Urban Water Front and resources in their natural condition.
The purpose of the urban water front classifica- 3. Uses which are consumptive of the physical and
tion is similarto the purpose of the urban residen- biological resources or which may degrade the
tial and urban development classifications but actual or potential value of the preservation envir-
also incorporates additional goals and policies onment shall be prohibited.
based on the particular characteristics required 4. Uses and activities in locations adjacent to natu-
for waterfront uses and activities (such as port ral areas should be strictly regulated to ensure
development). Additionally, the purpose of this
designation is to provide areas for controlled that the integrity of the preservation environment
development, encouraging a variety and mixture is not compromised.

CONSERVATION ENVIRONMENT GENERAL accentuate erosion, drainage problems or other
POLICIES adverse impacts on adjacent environments.
1 .New developments should be restricted to those 7. Redevelopment and renovation of standard
which are compatible with the natural and bio- areas shall be encouraged in order to accom-
physical limitations of the land and water. modate future users and make maximum use of
2. Commercial and industrial uses other than for- the coastal resource.
estry, agriculture, energy facilities, fisheries and 8. New development in rural areas shall reflect
mining shall be discouraged. the character of the surrounding areas by limit-
3. Diverse recreational activities which are com- ing residential density, providing permanent
patible with the conservation environment shall open space and maintaining adequate building
be encouraged. setbacks from coastal and inland waters.
4. Development which would be of a hazard to 9. Recreational access to the coastal areas shall
public health, safety, or the general welfare or be encouraged. Recreational facilities should be
would materially interfere with the natural pro- located and designed to minimize conflicts with
cesses shall not be allowed. other uses, activities and user groups not com-
5. Residential development should be regulated to patible with recreational uses.
maintain an overall density based on the carry- 10. Industrial and commercial uses in the rural area
ing capacity of the land or should be a high shall be restricted to those associated and in
density cluster unit with large amount of open character with this environment.
space and buffer around it.
6. Within the flood hazard zone, regulations shall
be developed which apply to development within RESOURCE POLICY UNIT
the floodplains, but the primary objective should GOALS AND POLICIES
be to prevent further development in the flood-
plains of the Municipality. Uses and activities within the coastal area can have
7. In areas with poorly draining soils or in the mar- both beneficial and adverse impacts, and an objec-
ginal lands resource policy unit, development tive assessment should attempt to identify both
shall not be allowed unless connected to a types, as well as those that are conditional uses -
sewer line. those which can be permitted provided mitigation
8. Developments shall be regulated so as to min- measures are taken to 'ensure a use or activity will
imize the following: erosion or sedimentation, notcausea direct orsignificant impact. An effective
the adverse, direct or significant impact on land and meaningful assessment of impacts must take
and aquatic habitats and degradation of existing place within an established framework of objectives
character of the conservation environment. and policies relating to planning, resource man-
agement and development activites. By assessing
9. The Municipality of Anchorag*e shall encour- impacts within a clearly defined objectives/policy
age sustained yield management of natural structure, the potential for uncertainty and arbitrary
resources within the conservation environment. actions is reduced.
10. Industrial, commercial and residential developr Rational management of coastal resources and the
ment shall not encroach on Class 11 or Class III uses and activities conducted within the coastal
Waters. area demand that goals and policies relating to
UTILIZATION ENVIRONMENT GENERAL those resources and uses be clearly and concisely
POLICIES articulated. Goals, objectives and the resulting poli-
1 .Emphasis shall be given to development within cies must also reflect and be related to a framework
already developed areas. of permitted and non-permitted uses.
2. Priority shall be given to water dependent and
water related uses over other uses. Uses which GOALS AND RECOMMENDED POLICIES
are neither water related nor water dependent
shall be discouraged except for residential. PRESERVATION ENVIRONMENT
3. Multiple use of the shoreline shall be encour- Class / Waters
aged. Goal:
4. To enhance future water development and to (1) To preserve and protect sources of potable and
ensure maximum public use, industrial and potentially potable sources of public water
commercial facilities shall be designed to supplies.
permit pedestrian water front activities consist- Recommended Policies:
ent with public safety and security. 1. No contaiminants shall be discharged into
5. Aesthetic consideration shall be actively pro- Class I waters which would degrade water qual-
moted by means of sign control regulations, ity below State or Federal standards.
architectural design standards, plan unit devel- 2. There shall be no dredging in these areas
opment standards, landscaping requirements, which will degrade water quality below State or
view shed requirements and other such means. Federal standards.
6. Development shall not significantly degrade 3. Stormwater runoff controls sufficient to pre-
the quality of the environment, including water vent water quality degradation shall be imposed
quality, nor create conditions which would on development adjacent to these waters.

Selected Freshwater Marshes, Wetlands and Coas- Recommended Policies:
tal Marshes 1 . Policy shall be to discourage development in
Goals: tidal flats, estuaries, beaches, and tidal creeks
(1) To protect the basic natural functions served by except in areas designated suitable for water
coastal marshes, freshwater marshes and dependent uses providing all activities shall to
wetlands. the extent possible avoid or minimize any
(2) To prevent public liabilities associated with adverse impacts.
development in these areas. 2. Policyshall be to encourage the development of
management plans designed to protect recrea-
Recommended Policies: tional and environmental values of estuarine
1. Policy shall be to discourage development in beaches.
coastal marsh systems except in cases shown by Salt Water Marshes
assessmentof all pertinent factors to be not con- Goals:
trary to the public interest. In coastal marshes (1) Same as those Selected for Freshwater Marshes
designated as critical habitat areas no develop- and Wetlands.
ment shall be permitted. Recommended Policies: Same as above.
2. Planning programs shall recognize and con-
sider the natural values of coastal marsh system Coastal Habitats
and provide fortheir protection and recognition Goals:
of management alternatives. (1) Coastal habitats must be identified and man-
3. Coastal marsh systems shall be regulated to agement plans prepared to preserve such areas
ensure maintenance of protected natural func- in a manner that no loss of the values and func-
tions and values. tions occurs as a result of the activities of man.
4. Public works activities such as transportation (2) To protect the natural environment of critical
projects, utilities, sewers and drainage activities urban and rural coastal habitats.
shall avoid or minimize any identified adverse (3) To restrict and where necessary prohibit devel-
impacts upon coastal marsh systems. opment in these areas except that necessary for
5. Neither the U.S. Army Corps of Engineers nor administration and management.
any State agency shall issue any permit for (4) To permit recreational uses that are not ecologi-
dredging and/or filling without first contacting cally disruptive.
the Municipality Planning Department and Recommendedf Policies:
without first complying with all applicable pro- 1. Policy shall be preserve coastal habitat areas in
visions of the Coastal Management Plan. their natural state and preclude any develop-
6. In freshwater marshes and wetlands, policyshall ment in areas so identified and to provide
be to discourage development except in cases buffers around these areas as necessary to
shown by assessment of all pertinent factors to maintain the natural qualities necessary to criti-
be not contrary to the public safety, welfare, and cal habitats.
interest. 2. No commercial, industrial, or residential uses
7. Planning programs shall recognize and con- shall be permitted.
sider the natural functions and values of fresh- 3. Public use of these areas shall be limited to hik-
water marshes and wetlands and provide for ing, sightseeing, nature study and research to
protection and recognition of managment alter- the extent compatible with the purpose for
natives. which critical habitat areas are established.
8. Freshwater marshes and wetlands of major sig- 4. The Planning Department shall attempt to
nificance shall be regulated to ensure mainte- ensure that development activities adjacent to
nance of protected natural functions and values. coastal habitat areas do not detract from the
9. All public works activities such as transportation values sought to be preserved.
projects, utilities, sewers and drainage activities
shall avoid or minimize any identified adverse Coastal CliffslBluffs
impacts upon freshwater marshesand wetlands. Goals:
(1) Protection of coastal bluffs from erosion caused
Tidal Creeks and Flats (including estuarine beaches) by indiscriminate construction.
Goals: (2) To provide public access and viewing opportun-
(1) To protect the basic natural functions served by ities to the public.
tidal creeks and mud flats. (3) To protect the public safety and welfare.
(2) To protect estuarine beaches for the purpose of Recommended Policies:
public access and recreation. 1. No new construction shall be allowed that would
(3) To prevent public liabilities associated with. threaten the stability of the coastal bluff envi-
development in these areas. ronment.

2. Policy shall be to maintain vegetation in its natu- (which shall be protected) and shall plan all use
ral state to prevent slope degradation. and activities so as not to destroy, alter, remove,
3. No new construction on or immediately adja- or infringe upon any such sites.
cent to slopes identified as having poor stability 5. Unique or fragile areas should be identified and
or subject to sliding, slump and severe erosion set aside as special natural areas forthe purpose
shall be permitted. of educational research, study, and for the
Hazardous Lands - No Development enjoyment of the public.
Goals: Coastal Flood Zone
Goal:
(1) To assure, through appropriate land use regula- (1) To identify and map the coastal flood zone
tion, that development in areas designated as including the inland extent in lowlands and
hazardous lands does not occur in order to pro- water courses and to establish management
tect human life and the public safety and wel- plans for their utilization based upon their natu-
fare. ral function, values, coastal habitats and asso-
ciated values.
(2) To conduct geotechnical studies to identify and Recommended Policies:
delineate hazardous lands. 1. Policy shall be to prohibit development within
Recommended Policies: the coastal flood zone except those uses which
1 . Policy shall be to prohibit all new residential are water-dependent and water-related. Uses
developments in areas identified as avalanche which meet theabove criteria shall be located in
run out/deposition zones, rock slide areas and the Urban Environment classification. - I
landslide areas. 2. All rsidential uses shall be prohibited in the
2. Policy shall be to prohibit all new development coastal flood zone.
in areas identified as "hazardous" and to insti- 3. Water-dependent and water related uses and
tute programs to identify and further delineate activities shall be required to prepare an Envir-
hazardous areas. onmental Assessment (at a minimum) in order
to identify potential problems associated with
3. Policy shall be to prepare management plans for such uses and activities. Mitigation plans must
all hazardous lands and to coordinate such be prepared and accepted by the Municipality
planning with the Alaska Division of Emergency for each identified problem or adverse impact
Services. prior to issuance of a permit by the Municipality
and the U.S. Army Corps of Engineers or by the
Historical, Prehistoric, Archaeological and Natural State of Alaska.
Areas 4. No uses, other than passive recreation, sightsee-
(1) To preserve, restore, protect and where appro- ing, hiking and viewing, or other uses and activi-
priate allow public access and display of sites ties that will not alter, endanger or destroy fish
important to Alaska history and archaeology. and wildlife species or habitat shall be permitted
(2) To preserve and protect unique environmental in the coastal flood zone identified by the State
areas and features not otherwise protected as Department of Fish and Game as "Critical Coast-
natural areas. al Habitat."
Recommended Policies: 5. In all other coastal habitat areas, the Alaska
1. These areas shold be protected where possible Department of Fish and Game must prepare and
through the application of local zoning, tax submit in writing their response to all proposed
incentives, purchase, easements, or other uses and activities meeting the criteria in
appropriate means. number 1 above.
2. Any development in "natural areas" should CONSERVATION ENVIRONMENT
incorporate special precautions and design Class 11 Waters
criteria to avoid damaging the character of the
feature. Goals:
(1) To protect water quality and preserve the natural
3. Because prehistoric and archaeological sites environment of water courses, including lakes
are important assets to both local Municipalities and ponds.
and the State, local and State governments (2) To prevent man-induced erosion and stream
should institute conscientious programs de- alternation due to construction activities.
singed to identify and preserve all significant
sites not already protected by Federal or State (3) To ensure wise use of our water resources so as
programs. to maintain the quality of these waters at a level
4. Prior to any proposed land modification activi- which will be suitable forthe propagation of fish,
ties, project sponsors/applicants shall contact wildlife and shellfish resources.
the appropriate local and state government (4) To provide a buffer along and parallel to all
agencies regarding exact location of sites streams, rivers, creeks, ponds and lakes from

which development shall be prohibited. The Recommended Policies:
widthof thebuffershall notbelessthan 100year 1. Policy shall be to identify, designate and safe-
river floodplain. guard areas that provide and offer important
Recommended Policiies: viewing opportunities and to provide interpre-
1* Policyshall be to assure that activities in oradja- tive signs where appropriate.
cent to these areas do not cause violation of 2. The State Department of Transportation shall
State and Federal water quality standards. No incorporate in its highway planning process
dredging shall be allowed in Class 11 Waters provisions for allowing pullouts at sites desig-
for shellfish harvesting, salmon
S"pawning and rearing, or sport fishing, except nated by the Municipality for such scenic and
for maintenance dredging on existing naviga- viewing purposes.
tion channels or other projects specifically 3. Policy shall be to require, if deemed appropriate
exempt from Federal, State and Municipal regu-
lation. by the Municipality, design criteria and perfor-
mance standards for developments adjacent to
2. Policy shall be to see that any development of scenic corridors in orderto maintain a high aes-
subsequent use in or bordering Class 11 Waters thetic appeal and prevent unsightly and incom-
shall avoid pollution of the waters. This includes patible development.
not only control of runoff and pollutant dis-
charges but turbidity considerations as well. 4. Where appropriate, provide nature trails along
thecoastal bluff areasforviewing opportunities,
nature study, photography, hiking and other
Class /// Waters passive recreational purposes.

Goals: Parks and Recreation Areas
(1) To ensure wise use of our water resources; to
maintain the quality of these waters at a level Goals:
which will be suitable for recreational purposes. (1) To create, maintain, and where needed, expand
outdoor recreation opportunities and access
Recommended Policies: and provide park facilities for the benefit of resi-
1. Where waters and water bodies identified as dents and visitors and to conserve State lands
suitable for recreational purposes or currently for future recreation needs as required.
utilized for such purposes coincide with Class I
Waters, the policies application to Class 11 Recommended Policies:
Waters shall apply. 1. Policy shall be to formulate land uses plans and
2. Any development of subsequent use in or bor- regulations in or adjacent to parks and recrea-
dering Class [if Waters shall avoid pollution of tion areas. These plans and regulations shall,
the waters and ensure that present water quality where possible, be designed to foster recrea-
is not degraded below applicable water quality tional-oriented development in these areas and
standards. This includes not only control of allow for future expansion of recreational facil-
runoff and pollutant discharges but turbidity ities.
considerations as well. Marginal Lands
3. Traditional public uses of these areas, such as Goals:
fishing, hunting, boating, and swimming, shall (1) To assure that development in areas defined as
be allowed. marginal adequately consider the physical lim-
4. Construction of docks and piers for boats and itations involved and not result in direct or indi-
aircraft shall be permitted provided such con- rect consequences harmful to the public health,
struction and subsequent use does not cause safety and welfare.
adverse impacts to the fishery resources and
water quality. Note: Marginal Lands are those areas that require
major alterations before they are suitable for
development. There are varying degrees of
Scenic Corridors, Scenic Areas and Vistas marginality (poor drainage, poor foundation
conditions, susceptibility to flooding, high water
Goals: table, etc.) and most of the limitations may be
(1) To identify and designate the primary scenic adequately overcome by appropriate technol-
corridors within the Municipality. ogy. The purpose in designating marginal lands
(2) To incorporate a scenic element into the com- is to notify developers that special site design
prehensive plan. and considerations are required and secondly,
to let the purchasers and users of the site know
(3) To identify the primary scenic viewpoints, vistas that the area is marginal and that special design
and preserve such sites for the public enjoy- and construction methods were needed. In addi-
ment. tion, development of marginal lands can gener-

a I I y be anticipated to haves ign if icanteco I ogical (2) To provide greenbelts and open space between
impact unless careful planning precedes develop- noncompatible land uses.
ment. (3) To conserve and protect the scenic beauty of the
Recommended Policies: coastal area.
1. Because of the wide range of problems asso- Recommended Policies:
ciated with development of marginal lands, cau- 1 . The identification and assessment of open space
tion and careful site planning shall be required values and the formulation of plans for maximiz-
before development takes place in these areas. ing these values should be a viable part of
2. Local comprehensive plans, subdivision regula- Municipal planning programs.
tions, building codes, zoning, etc., shall identify, 2. New developments should be designed to con-
recognize and address marginal lands to assure serve the natural landscape, and design of new
that future growth in these areas is not injurious developments should include sufficient open
to the public health, safety and welfare. space by legal means that will guarantee its
3. Development in marginal lands shall, where remaining open space in perpetuity.
feasible, utilize central sewage collection and 3. To ensure that adequate open space is provided
treatment facilities and where not feasible, on- within the framework of an individual subdivi-
site facilities shall be designed so as not to cause sion and at the neighborhood, community and
conditions that will pollute rivers, lakes, and regional level.
other water bodies including the ground water
supply. Forestry and Game Management Areas
River Floodplains Goals:
Goals: (1) To provide the Municipality and the private sec-
(1) To minimize unnecessary flood losses caused tor with a stock pile of timber resources for
by unwise development in areas subject to future use and to provide areas that will support
flooding (100 year statistical floodplain). public hunting.
(2) To enhance, restore and preserve the ecological (2) To attain multi pie-use forestry management prac-
values of floodplains. tices which minimize impacts upon coastal
resources and water bodies flowing into coastal
Recommended Policies: waters while meeting forestry needs.
1. Development in the 100 year floodplain shall be
discouraged in order to avoid the need for later Recommended Policies:
attempts to protect such investments through 1. Forestry and game management areas sha
construction of flood control structures at pub-
where appropriate, be managed in a fashion thai
lic expense, except those uses which require will maintain their traditional functions.
water access. 2. Buffer strips shall be left between the forest and
2. Federal, State and Municipal agencies and depart- adjacent water bodies to prevent degradation of
ments shall conduct their activities in such a water quality.
manner which manages and prevents erosion, UTILIZATION ENVIRONMENT
retards runoff, and protects the natural func-
tions and values of the floodplain. Class IV Waters
3. Channel improvement projects intended to pro- Goals:
vide flood protection shall be considered only (1) To prevent further degradation of waters so
after they have been reviewed and determined classified, and, if possible, enhance the quality
by appropriate Federal, State and Municipal of these waters.
agencies that land treatment and all feasible
flood water retarding structure will not provide (2) To assure that all future developments, uses and
an adequate level of flood protection. activities that could have direct and significant
4. In cases where channel improvements for flood impacts on coastal waters are consistent with
protection have been fully analyzed and justi- natural processes and constraints so as to pre-
fied, such projects shall be carried out with min- vent further degradation.
imum loss and destruction of fish and wildlife Recommended Policies:
habitats and with minimum alteration and des- 1. Uses and activities in or adjacent to Class IV
truction to the natural vegetation. Waters shall assure that state water quality
Open Space standards are not violated.
Goals: 2. Because the general low quality of Class IV
(1) To preserve, enhance and protect unique envir- Waters (upper Cook Inlet) poses a potential
onmental features not otherwise protected. health hazard as well as a hazard to adjacent

wale, resources, all practical measures shall be 8. Residential units and developments shall be set
taken to prevent further degradation of the back from the shorelines of all water bodies at
waters so classified. least 50 feet. In accordance with Municipal
3. Any present or future industrial contaminants comprehensive plans and future programs, the
Municipality shall formulate long-range plans
(resulting from mining activities, port facilities, for orderly development in areas identified as
waterborne transportation, energy facilities, fish "urban residential" and amend or adopt land use
processing facilities, etc.) or other deleterious controls which assure that location and timing
substances introduced into Class IV Waters of new development is in accordance with the
shall not be in amounts to render such water ability of government to provide and maintain
unsuitable for fish survival, industrial cooling, necessary services such as streets, solid waste
and industrial process watering supply disposal, water supplies, schools, policeandfire
purposes. protection.
Urban Residential Urban Development
Goals:
Goals: (1) To assist Municipal decision-makers, zoning
(1) To assist Municipal decision makers, zoning and and platting officials, developers and land
platting officials, developers and landowners in owners in determining those areas best suited
determining those areas best suited to residen- forcommercial and/or industrial usesand assure
tial development and assure that development that such development occurs in a manner that
occurs in a manner that is compatible with the is compatible with the environment.
environment. (2) To meet Municipal commercial/industrial needs
(2) To maintain the character of those areas pres- in a manner consistent with the stated goals of
ently developed as residential or suited for resi- the Municipality and consistent with Municipal
dential development in terms of bulk, scale and environmental and resource management objec-
general type of activities. tives.
(3) To meet housing needs in a manner consistent (3) To give priority (in the coastal zone) to water-
with Municipal environmental and resource dependent uses and activities over those uses
management objectives. and activities not requiring such a location.
Recommended Policies: Recommended Policies:
1. Effective subdivision regulations and building 1. All applicable policies relating to use and activi-
codes should be enacted and enforced by the ties as listed in Part 11 of this chapter and as
Municipality. identified in the ACMP shall apply.
2. The Municipality should develop and implement Urban Waterfront
plans and programs for guiding residential devel-
opment into areas suitable for such devel- Goals:
opment. (1) Maintain a full complement of water dependent
uses and preserve and enhance the view shed
3. To the extent possible, regulations should be across Knik Arm and Turnagain Arm.
performance oriented rather than means- (2) Develop a diversity of commercial, industrial
oriented to allow flexibility in the techniques
used to achieve desired goals of local govern- and residential uses related to the use and
ment, enjoyment of the waterfront, the service and
maintenance of water-related activities and pro-
4. Residential developments should be planned in viding for public access to the water.
accordance with the natural characteristics of
the land rather than simply laying out a grid (3) Encourage multiple use concepts having a wide
pattern that ignores slope, elevation, drainage range of intensity while preserving the quality of
patterns, natural vegetation and accessibility. the environment and preserving views of the
5. Maximum retention of green areas and open water from upland and adjacent properties.
space should be encouraged. (4) To assure optimum utilization of the waterfront
6. Runoff from streets, residential construction subject to demands from competing and possi-
sites, and yards should be controlled to prevent ble conflicting interest.
flooding in adjacent areas, to prevent erosion, (5) To minimize dredge and fill activities within the
soil loss, siltation and/or pollution of water waterfront and to ensure that necessary dredge
bodies. and fill activities have the least possible adverse
7. Only that vegetation removal necessary for the environmental, social and economic impacts.
actual construction of the residential unit shall (6) To assure that docks and piers do not obstruct
be permitted; no clear cutting of natural vegeta- water flow, hinder navigation or restrict public
tion shall be permitted. use of the waterfront.

(7) To facilitate efficient port location, design and Goals:
operation while minimizing conflict with (1) To provide areas within the coastal zone for low
resource management objectives. density residential and non-polluting commer-
Recommended Policies: cial uses.
1. In accordance with Municipal comprehensive (2) To designate such low density afeas to meet the
plans and future programs, the Municipality needs and demands of the citizens of the Munici-
shall formulate long-range plans for orderly pality.
development in areas identified as "urban water-
front" and adopt land use controls which assure Recommended Policies:
that location and timing of new development is 1. To allow and provide for low density develop-
in accordance with the ability of government to ment that is compatible with the environment
provide and maintain necessary services such and which can meet the goals and policies of
as streets, solid waste disposal, water supplies, such environments.
schools, police and fire protection. 2. Local plans shall recognize the dual suitabilities
2. All development in these areas shall utilize ade- of these areas.
quate environmental safeguards. 3. Local plans shall reflect effective controls to
3. The Municipality shall adopt effective controls ensure that development in these areas is com-
to ensure that urban waterfront development is patible with the physical environment.
compatible with the physical environment. 4. The Municipality shall adopt land use controls
4. Municipal plans shall give priority consideration which assure that location and timing of new
within these areas to water dependent activities. rural development is in accordance with the abil-
5. Any use or activity which would result in direct ity of government to provide and maintain neces-
and significant environmental impacts shall not sary services, such as streets, soild waste man-
be permitted until such adverse impacts can be agement, water supplies, schools, police and
mitigated. fire protection.
Rural 5. Only that natural vegetation removal necessary
for the actual construction on the site shall be
Note: After a complete resource inventory and anal- removed. The area should be maintained in as
ysis have been completed and all other resource natural a state as possible and be maintained for
policy units delineated then the rural resource the purposes it was classified as (if the rural
policy unit can be identified. It may overlap environment area overlaps into another envir-
other resource policy units and environments. onment classification or resource policy unit).

CHAPTER VI

BOUNDARIES OF THE COASTAL ZONE MANAGEMENT PROGRAM

REQUIREMENTS The State of Alaska, Department of Fish and Game,
The Coastal Zone Management Act of 1972 requires in conjunction with the Office of Coastal Manage-
states receiving program development grants to ment, has delineated a coastal zone planning boun-
identify those boundaries of the coastal zone sub- dary for the upper Cook Inlet based on biophysical
ject to its management program (Section 305(B)(1)). criteria. Their coastal zone boundaries for upper
In addition, the Act identifies the parameters which Cook Inlet are defined as follows:
astate must use in identifying its boundaries bydefin- Zone of Direct Interaction
ing the coastal zone as "coastal waters (including A. Landward Limit
the land therein and thereunder), the adjacent shore Landward, the zone of direct interaction, is defined
lands (including the water therein and thereunder) I by salt water intrusion into marshes and rivers and
strongly influenced by each other and in proximity areas of active coastal erosion such as the bluffs
to the shorelands of the several coastal states, and along Turnagain and Knik Arms. Salt water intru-
including transitional and intertidal areas salt sion occurs up to six miles inland in the Susitna
marshes, wet lands, and beaches. The zone exiends Flats and as far as twenty miles up stream in the
inland from the shoreline only to the extent neces- Susitna River. Areas of active coastal erosion are
sary to control shorelands, the uses of which have a best approximated by the 50 foot contour through-
direct and significant impact on the coastal waters. out the upper Cook Inlet region.
Excluded from the coastal zone are lands, the use of
which are, by law, subject solely to the discretion of B. Seaward Limit
or which are held in trust by the Federal govern- Seaward, the zone of direct interaction, is defined
ment, its officers or agents." by near shore sediment transport and deposition
States may wish, initially, to delineate a planning out to the 18 foot depth contour. This is a high
area which is generally larger than, and encom- energy zone which is actively disturbed by tidal cur-
passes the area ultimately identified as the coastal rents, ice scour, breaking waves, sediment dynam-
zone. This is suggested as a possible means of tak- ics and fresh water dilution.
ing advantage of data, programs and institutional Zone of Direct Influence
boundaries that cover geographic areas larger than A. Landward Limit
the eventual coastal zone designation. The landward zone of direct influence in upper
The regulations applying to program administrative Cook Inlet is defined where the bulk of anadromous
grants indicate that a state's management program fish spawning and rearing takes place, where moose
must show evidence that the state has both deve- seek low-land areas for over-wintering and caving,
loped and applied a procedure for identifying the and where coastal wetland habitats attract a large
boundary of its coastal zone. These regulations number of nesting birds and small mammals. Direct
require that, at a minimum, this procedure, when influence is best defined by the 1,000 foot contour in
applied to the landward boundaries, should result upper Cook Inlet. This zone extends up the Susitna
in: (1) a determination of the inland boundary River to include Devil's Canyon and through Por-
required to control, through the management pro- tage Pass where birds such as eagles, gulls, and
gram, shorelands, the uses of which have direct and Black-Legged Kittiwakes, traverse between nesting
significant impacts upon coastal waters; (2) an iden- areas in Prince William Sound and in feeding areas
tification of transitional and intertidal areas, salt in Turnagain Arm.
marshes, wet lands and beaches; and, (3) an identi- B. Seaward Limit
fication of all Federally owned lands, or lands which Seaward, the zone of direct influence, includes the
are held in trust by the Federal government, its marine waters of Cook Inlet extending south to Kal-
officers and agents, in the coastal zone and over gin Island. Turbulent mixing between marine and
which a state does not exert any control over use. fresh water takes place in the vicinity of Kalgin
These regulations indicate the acceptability of a Island. The characteristic marine waters of upper
boundary which is delienated by a strip of land of Cook Inlet, which include high turbidity and low
uniform depths (e.g., 250 feet, 1,000 yards, etc.) or salinity, are formed in this region. This is also the
by political boundaries, cultural features, property average southern extent of heavy winter sea ice.
lines or existing designated planning and environ- The process of determining a boundary for the
mentally controlled areas, with the conditions that coastal zone is actually a two-tiered process involv-
any such boundaries include and be limited approx- ing first the identification of a planning boundary
imately to those lands which have any existing, pro- (which was established by the State as the 1,000 foot
jected or potential uses which would have a direct
and significant impact upon coastal waters. contour) and finally the management boundary

itself. The Coastal Zone Management Act rules and Boundaries designated in this manner should
regulations also state that, for initial planning pur- include and serve as adequate approximations
poses, a boundary can be delineated for a planning of the selected biophysical features and should
area which is generally larger than, and encom- enable more effective state control and local
passes the area ultimately identified as the coastal control over the designated coastal area than
zone. The State Office of Coastal Management, in the biophysical boundaries they approximate.
its program document, has left the responsibility of To meet the intent of the Act, the rationale for
identifying the management boundary to the dis- designation of such administrative boundaries
tricts. However, the boundary of the coastal zone must be clearly specified in light of uses which
can not be merely the result of an arbitrary determi- have impacts on coastal waters, and their con-
nation but rather must take into consideration the trol. In designating such administrative bound-
direct relationship that exists between the require- aries, the Municipality should exercise caution
ment for determining inland boundaries and the to insure that the delineated area is not so
requirement for determining permissible land-water extensive that a fair application of the manage-
uses in areas of particular concern. Bydefinition the ment program becomes difficult or impractica-
coastal zone extends inland from the shorelines ble.
only to the extent necessary to control shorelands, 3. Multiple
the uses of which have a direct and significant A multiple boundary can serve as an effective
impact on the coastal waters. The Coastal zone mechanism by which districts can meet the
Management Act" therefore, requires control on all intent of the Act while incorporating the provi-
uses that have direct and significant impacts on sions of existing state programs and regula-
coastal waters. tions. Multiple boundaries may delineate a
In light of the above, the Office of Coastal Zone combination of specific sections or zones of
Management has determined that three types of coastal land on different functional and resource
approaches are acceptable for delineating the bases such as: areas meriting special attention;
inland coastal zone boundary. These are: permissible uses; geological or biological fea-
1 .Biophysical. tures; air and water controls; and other func-
A biophysical boundary can be defined in terms tional bases.
of natural features, be they biological, geologi- Multiple boundaries could also be designated
cal, physical, or a combination. These features on a basisof intensityof controls. Thestrongest
can include drainage basins, floodplains, eco- and most direct control would normallybeexer-
systems, ridges of coastal mountain ranges, etc. cise in the zone or tier adjacent to the water's
The use of a single biophysical feature for edge. Generally, but not always, the degree of
boundary delineation may not be adequate to control would decrease in each succeeding
insure that all uses with direct and significant zones landward. In any case, the control in a
impact on coastal waters are included. Often a particular zone should be appropriate for exist-
combination of features may be most practica- ing plans or potential uses of the land and water
ble. While this type of boundary would meet the within that zone. Examples of such multiple
intent of the Act with respect to uses of shore- boundaries based on intensity of controls are:
lands which have impacts on coastal waters, uniform distances measured horizontally from
difficulties may be encountered in establishing the shoreline; inland coastal political lines;
methods for the required effective management incorporated limits of coastal communities.
control of uses. Delineation based on biophysi- 4. Management Boundary
cal features may require expensive and time Part 6, AAC 85.040 requires each coastal
consuming surveys to locate and designate resource district to include a map of the bound-
these boundaries. In addition, periodic update aries of the coastal area within the district sub-
of the boundary_ location may be necessary, as ject to the district program.
natural features upon which it is based are often
subject to change. Before council approval of a district plan, initial
2. Biophysical as a Base for Administrative. planning boundaries were to be based on L
One method of circumventing some of the diffi- physical boundaries as published by the Office
culties associated with a strictly biophysical of Coastal Management and the Alaska
boundary isthe designation of an inland bound- Department of Fish and Game. The initial plan-
ary along a set of existing, easily located line- ning boundary for Anchorage was determined
ameants which approximate natural features by the State to be the 1,000 foot contour level.
and include all necessary land areas. Once the However, final management boundaries of the
appropriate biophysical delimiting features are coastal area subject to -the district program
identified, any number of political boundaries, maydivergefrom the initial planning boun-daryif
cultural features, existing designated planning the final boundary: (1) extends inland and sea-
areas, property lines, environmental control ward to the extent necessary to manage uses
areas, and other such administrative or cultural boundaery of its coastal zone. As a result of con-
features could be used as boundary lines. ducting the resource inventory and analysis, the

and, (2) includes all transitional and intertidal shall be subject to the provisions of the Alaska
areas, salt marshes, salt water wetlands, islands Coastal Management Program.
and beaches. Lands, waters, and land and water uses behind
If the above criteria are met, then final manage- the management boundary shall be managed
ment boundary may be based on political juris- and regulated through proper -ordinance and
dictions, cultural features, planning areas, other land use regulations so that direct and
watersheds, topographic features, uniform set significant impacts on lands and waters within
backs, or the dependency of uses and activities the management boundary shall complywith all
provisions, regulations and requirements of the
on water access. In addition, the final manage- Alaska Coastal Management Act in the Anchor-
ment boundaries of the Anchorage district must age area.
be sufficiently compatible with those of adjoin- Seaward Extent
ing boroughs to allow consistent administration The seaward extent of the Anchorge Coastal
of the Alaska Coastal Management Program. Management Program shall extend to the
The Anchorage Municipal Planning Department Municipality's political boundary in the Turna-
has, as of this writing, completed its resources gain and Knik Arms.
inventoryand analysis, identified potential areas Management Justification
meriting special attention, applied a planning The seaward extent of the district coastal man-
process to identify probable direct and signifi- agement boundary coincides with the political
cant impacts that could result from various uses boundary of the Municipality of Anchorage as
in the coastal zone. The ACMP document provided and covers the full area to which the
requires that districts show evidence that they Municipality has legal jurisdiction, noting
have developed and applied a procedure for though and recognizing the State's ownership
identifying the management boundary of its of tidelands and waters.
coastal zone. The Planning Department feels The landward extent of the district coastal man-
they have adequately developed and applied a agement boundary was determined by a logical,
procedure for identifying its management sequential planning process identified in the
boundary of its coastal zone. As a result of c-on-- progress project report, December 1977,
ducting the resource inventory and analysis, the Appendices. Utilization of this method made
following paragraph describes the proposed possible the delineation of the management
management boundary for Anchorage. boundary and complies with the criteria which
provides for divergence from the initial 1,000
inland Extent foot planning boundary in that the boundary
As measured from the line delineating the inland extends inland to the extent necessary to man-
extent of coastal flooding, as exhibited on the age uses and activities that have or are likely to
map showing coastal flooding and as derived have direct and significant impact on marine
coastal waters and include all transitional and
from the U.S. Army Corps of Engineers Flood- intertidal areas, salt marshes, salt water wet-
plain Data and from the National Flood Insu- lands, islands and beaches. It is the position of
rance Program, Flood Insurance Rate Maps, the the Municipality of Anchorage that the Coastal
inland extent of the coastal resource boundary Zone Management Act of 1977 of the State of
has been determined to be 1,320 feet as mea- Alaska was not intended to be a comprehensive
sured from the horizontal along the line deli- land use management program covering all areas
neating the areas of the 100 Year Coastal Flood of the Municipality, but a program to manage
(also called the Inland Extent of Coastal Flood- coastal areas and possible impacts to those land
ing). Where such inland boundary partially and water areas. The Municipality of Anchorge
touches upon either (1) lakes, (2) bogs, further feels that its existing ordinances, land
(3) marshes, (4) swamps, (5) areas identified as use regulations and pending 208 Water Quality
and Air Quality Management programs and
having natural hazards, (6) water recharge value, regulations will provide adequate protection for
(7) floodplains, (8) recreational, (9) scenic, present and future uses which may cause direct
(10) biologic or habitat values, then these areas and significant impacts on coastal waters. The
will also be included in their intirety within the management boundaryas defined providesade-
management boundary to insure their proper quate buffer areas, is adequate to allow com-
and adequate protection, use and value for the plete integration of existing and proposed land
public welfare. In addition, where such inland use regulations, allows State and Municipal
boundary crosses or passes through any river, regulatory programs to focus, specifically, on
stream, or creek, then the management boun- coastal managment problems, and provides for
dary shall extend inland paralleling this wai3r concentration of Federal and State planning
feature up to the 1,000 foot contour level. The funds in the most vulnerable coastal areas.
width of the management boundary along riv- ANCHORAGE COASTAL MANAGEMENT
ers, streams, and creeks shall be the boundary BOUNDARY DETERMINATION PROCESS
of the 100 Year Floodplain or 200 feet on either
side of that water - b-ody as measured from the Inessence, boundary determinations are based ona
center line of the drainage. All lands within the determination and examination of land/water rela-
riverine portion of the management boundary tionships, uses and activities likely to occur that

could result in direct and significant impacts on the six elements referenced in the first paragraph of
coastal waters. this section, and while the Alaska Coastal Policy
As part of the initial planning process, a detailed Council has yet to approve the Anchorage Plan, the
resource inventory was conducted resulting in a ACMP provides for divergence if specific criteria are
series of resource maps being developed. Data was met. The boundary as defined in the Anchorage plan
mapped in all cases up to the 1,000 foot contour does meet the criteria. Emphasis has been placed
level and in some cases farther inland. on those uses and activities most likely to impact
coastal waters,and it is the findings and conclusion
The resource analysis employed utilized a geogra- ofthePlanning Department that the resource analy-
phic segmentation/land use suitability approach. sis meets the objective. By definition the Anchorage
The emphasis of the Anchorage Coastal Manage- Plan does include those upland and coastal areas
ment Plan is primarily centered around the special likely to have uses and activities that could cause
patterns and segregations of land and land uses and direct and significant impacts on coastal waters.
the suitability and capability of an area to accom-
modate a given land use. Asa result of the resource analysis, legal review and
environmental impact analysis, it was determined
Not all areas of coastal waters or shoreland are that certain areas within the initial planning boun -
alike. Not all areas of the coastal zone are suited to clary could be excluded because the land/sea re a-
the same uses or intensity of uses. Although beach tionships were considerably less direct and signifi-
and shoreface areas, marshes, tidal flats. and other cant than those areas finally identified as being
resources of the coastal area differ from one within the final management boundary. In addition,
another, they are interconnected and affect one existing regulatory controls were determined to be
another. sufficiently adequate to mitigate and control any
To understand each of these areas in the context of possible impacts to coastal waters in these upland,
the coastal system as a whole, the coastal system excluded areas.
may be broken into a manageable number of sub- The Anchorage Coastal Management Plan final
units and composite environments. These may be management boundary meets the divergence crite-
referred to in the Management Plan as resource ria in that it extends inland to the extent necessary to
policy units, whether natural or manmade, and are manage uses and activities that have, or are likely to
mappable entities defined by local characteristics of have, direct and significant impact on coastal
processes,-land forms, soils, biota, and other factors waters, and does include all transitional and interti-
that naturally support certain levels of human dal areas, salt marshes, saltwater wetlands. islands
activities. and beaches, and is sufficiently compatible with
These coastal resource policy uanits must be taken preliminary boundaries of Kenai and Matanuska-
into account if public and private decision makers Susitna Boroughs.
are to harmonize the intensive use and development It should be noted that the final management boun-
of coastal resource systems with the continued dary does include those geographic areas (resource
economic productivity and liability of the Anchor- policy units) that are of major concern to the pur-
age area. These coastal environments and their poses and objectives of coastal management and
subunits - Resource Policy Units - are the basic the use of which could result in direct and signifi-
units upon which the Anchorage Coastal Manage- cant impacts to coastal waters.
ment Plan is designed. In addition to a one-quarter mile corridor along the
A more detailed explanation of this concept is found oast, where such inland boundary crosses or
on pages 56-59 of the Anchorage Plan. The point to touches upon either inland lakes, bogs, marshes,
were analyzed for each resource policy unit (up to swamps, areas of natural hazards, water recharge
be made here is simply that land uses and activities
the 1,000 foot contour level) and a legal review was value, floodplains, coastal recreation/scenic and
applied to each resource policy unit as well as an biologic values, and water dependent/water related
environmental impact analysis to determine the use areas, then these areas shall also be included
possibilityof directand significant ipactson coastal in their entirety within the management boundry.
waters and the adequacy of existing regulations to Rivers, streams, and creeks are included in the
prevent such direct and significant impacts. This management boundary uptothe 1,000 foot contour
process was applied to each thematic data set both level and ata width of the 100 year floodplain or200
inclividuallyand collectively. Asa resultof thisanal- feet on either side of the water body, whichever is
ysis. it was determined that the initial planning greater.
bounclarycould divergecloserto theshoreline, and In the event that some major project was to be con-
that no direct and significant impacts were likely to structed inland from the management boundary
occur within the area deleted from the initial boun- and it was determ i nedthat it would result in activites
dary area. This process which permitted the defin- likely to cause direct and significant impacts then
ing of a narrower management boundary still meets paragraph 2 of the management boundary defini-
both Federal and State requirements. specifically tion (p. 142) would apply. This paragraph states:

Lands, waters, and land and wale, uses conceplolgeog,aphic se,menlalion wasan attempt
behind the management boundry shall be to define functional biophysical and land use ele-
managed and regulated through proper ordi- ments of the landscape. These functional units or
nance and other land use regulations so that resource policy units could then be evaluated indi-
direct and significant impacts on lands and vidually and/orgrouped to form environments -the
waters within the management boundary Preservation, Conservation, Utilization concept.
shall comply with all provisions, regulations from which policy statements could be developed to
and requirements of the Alaska Coastal Man- protect the functions, processes and values identi-
agement Act in the Anchorage area, fied for them.
This provision provides for State agencies to utilize
and adhere to the requirements of the Standards Because much of Anchorage is already urbanized,
and Guidelines up to the 1,000 foot contour level many of the biophysical processes occurring natu-
and to permit review. evaluation and responses to rally have already been altered and the remaining
such projects. This provision recognizes, therefore. values and processes are, for the most part, man-
that there are some possible circumstances where agement or regulated by existing comprehensive
an inland event could possibly have an impact on plans. ordinances and Municipal regulations.
coastal waters. Because of this it was not deemed as appropriate or
In conclusion. the process and methodology util- necessary to include such areas in the coastal man-
ized in the plannin'g process are felt to be adequate agement boundary. The methodology used for the
to meet both the requirements of the ACMP as well Anchorage Coastal Management Plan in effect
as the intent, objectives and purposes of coastal further subdivides the State's three coastal sub-
management. zones or boundary tiers, which reflects the respec-
tive degree of biological and physical interaction
The purposes of the Alaska Coastal Management between the land and sea occurring within it. This
Act definition of coastal management boundaries in methodology permitted the identification of such
Cook Inlet were based strictly on biophysical pro- biophysical interaction on a much more refined
cesses rather than attempting to draw or define basis 'and set forth policy and management plan
boundaries for lancluse, political. or legislative recommendations to protect them. Thus, it is the
purpose. position of the Municipality that its plan is an
improvement of the State's approach and does
However, in Anchorage. biophysical, landuse, and accomplish the purposes and intent of coastal
political aspects had to be viewed in concert. The management.

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86 1

CHAPTER VII
AREAS MERITING SPECIAL ATTENTION

INTRODUCTION flood plains, aquifer recharge areas, beaches
Anchorage's Coastal zone Management Program and offshore sand deposits.
must come to grips with the designation of portions (AS 46.40.210.(1))
of the coastal area that are of particular concern. In addition to the above criteria, the Alaska Coastal
The State act refers to such areas asAREAS MERIT- Policy council has added three more categories of
ING SPECIAL ATTENTION, while the Federal areas to this listing:
CZMA refers to those areas as GEOGRAPHIC
AREAS OF PARTICULAR CONCERN, In Alaska, as 1 ) Areas important for subsistence hunting, fishing,
in other states, much of the coastal area can be food gathering, and foraging;
managed with only generalized land and water use 2) Areas with special scientific values or opportuni-
controls. This in itself is expensive, but the fact that ties, including those where ongoing research pro-
the effort must be spread overthe entire coastal area jects could be jeopardized by development or
results in an inability to properly recognize and conflicting uses and activities; and
manage certain areas that have unique values or
fragile characteristics that make them more in need 3) Potential estuarine or marine sanctuaries.
of special attention. By adding a special area identi- Section 160 of 6AAC 80.160 states: A. Districts and
fication and manage element to a State coastal appropriate State agencies shall recommend to the
management program (including district programs), council areas to be designated as areas which merit
the financial and management resources of the pro- special attention. Recommendations must include
gram may be focused on such areas and detailed the following information:
management programs developed. 1) the basis or bases for designation under
As required by the ACMA and the ACMP regula- AS46.210(l) or (B) of this section;
tions, districts shall designate AMSA's in their pro-
grams. The legislature provided a generic definition 2) a map showing the geographical location, surface
of AMSA's in the Alaska Coastal Management Act: area and where appropriate, bathymetry of the
AREASWHICH MERIT SPECIAL ATTENTION means area
adelineated geographic area within thecoastal area 3) a designation of the area which includes domi-
which is sensitive to change or alteration and which, nant physical and biological features;
because of plans or commitments or because a 4) the existing ownership, jurisdiction, and man-
claim on the resources within the area delineated agement status of the area, including the existing
would preclude subsequent use of the resources to uses and activities;
a conflicting or incompatible use, warrants special
management attention, or which, because of its 5) present and anticipated conflict among uses
value to the general public should be identified for and activities within oradjacentto thearea, if any;
current or future planning, protection, or acquisi- and
tion; these areas, subject to council definition of 6) a proposed management scheme, consisting of
criteria for their identification, include; the following:
A. Areas of unique, scarce, fragile or vulnerable a) a description of the uses and activities which
natural habitat, cultural value, historical signifi- will be considered proper and the uses and
cance, or scenic importance; activities which will be considered improper
B. Areas of high natural productivity or essential with respectto land and waterwithin thearea;
habitat for living resources; b) a summary or statement of the policies
C. Areas of substantial recreational value or oppor- which will be applied in managing the area;
tunity; and
D . Areas where development of facilities is c) an identification of the authority which will
dependent upon the utilization of, or access to, be used to implement the proposed man-
coastal waters; agement scheme.
E. Areas of unique geologic or topographic signifi- The Federal Coastal zone Management Act of 1972
cance which are susceptible to industrial or (Public Law 92-583) requires an inventory and
commercial development; designation of areasof particular concern within the
F. Areasof significant hazard due to storms, slides, coastal zone (section 3056.3) and that the manage-
floods, erosion or settlement; and ment program make provisions for purpose of pre-
serving or restoring them for their conservation,
G. Areas needed to protect, maintain, or replenish recreational, ecological, or aesthetic values (sec-
coastal land or resources including coastal tion 306C.9).

The regulations implementing the act clarify the Public workshops are also being conducted about
role of these areas to include: geographic areas of specific aspects of CZM planning. Forexample, the
particular concern are likely to encompass not only Anchorage Planning and Zoning Commission has
the more often cited areas of significant natural requested that each separate element of the Coastal
value or importance, but also, transitional or in- Management Program be presented to them in a
tensely developed areas where reclamation, resto- public workshop format. This request has been
ration, public access and other actions are espe- made to facilitate a better understanding of the
cially needed; and those areas especially suited for entire Coastal Management Program. From these
intensive use or development. In addition, immedi- workshops and meetings will emerge recommenda-
acy of need should be a major consideration in tions for:
determining areas of particular concern (920.13). 1 ) a list of site specific geographic areas meriting
Both the Federal and State Act categorically identify special attention;
those features of the landscape that must be consi- 2) classifications of areas meriting special atten-
dered as areas meriting special attention. tion per categorical classification;
THE PROCESS OF DETERMINING AREAS 3) an identification of permitted and nonpermitted
MERITING SPECIAL ATTENTION land and water uses within each designated
Early in Anchorage's program development a basic area.
assumption was made. It states that for planning
purposes the entire coastal zone is an area of con- 4) a proposed management plan for each AMSA.
cern and only the level of concern changes along These and other recommendations will be exam-
the coastal zone. ined and described as part of the program develop-
During the first year of program development, a ment effort. It should be noted that the Federal pro-
thorough review was made of previous coastal zone gram regulations provide that areas meriting special
studies of other states to ascertain the extent to attention should reflect areaa which are of State or
which certain geographic areas of concern had regional concern as opposed to strictly local con-
been identified. Additionally, recent State legisla- cern. Hence, the areas recommended in this docu-
tion, both inacted and proposed, was reviewed to ment reflect not only areas of local concern but
discern statements of public policy regarding areas attempt to incorporate one or more of the following
of particular concern. The biophysical and land use basic principles:
inventory aided in identifying potential candidate 1 ) theyareof concern tothe Statedueto impacton
areas for designation as AMSA's. From this process State facilities, programs, or plans;
emerged many categorical areas recommended for
designation as areas meriting special attention. 2) action relative to the use or management of the
Potential categorical areas were also developed area is required by more than one unit of local
fr,orn discussion among program staff and the var- government or;
ious members of the Officeof Coastal Management, 3) the resource or area has recognizable value to
and from discussions with staff members of other broad segments of the general population.
State agencies involved in coastal zone manage- Certain portions of the Municipality's coastal zone
ment. Many of the recommendations were are of particular concern primarily because they are
expressed in terms of subjects needing detailed limited in number, have some special connection to
research to document theextent of the resource, the an important event or time in the State's history or
problems surrounding its use, and the reasons for culture, are widely recognized for their singular
its particular concern. beauty or attractiveness, or represent a resource of
An equally important part of the determination pro- great value for recreational, scenic, physical fea-
cess has involved the use of public workshops tures, educational or scientific research purposes.
before representatives of special interest groups, In many respects these areas represent a last stand,
community organizations and the general public, as because once lost there are few if any others of their
well as elected officials. Public participation is a type, character or condition. In other cases areas
specific requirement of both the Federal Coastal may not warrant such dramatic action, but their pres-
Zone Management Act and the State program. ence requires a sensitivity to the resource, an
There is also a strong commitment on the part of the awareness of its existence when making coastal
Municipality to the principle of citizen participation zone management decisions. No specific standards
in the planning process, and that this participation is are prescribed forareas meriting special atention, but
vital to the success of Anchorage's Coastal Man- the policies which will be applied to these areas
agement Program. must preserve, protector restore the value for which
Informal meetings have been and are currently the area was designated. A management scheme is
required for these areas which identifies permissible
being conducted to inform the public about CZM uses, policies and management authorities.
and to solicit their comments and input prior to any
formal plan or policy development and implementa- Special attention was devoted to nominating poten-
tion. tial AMSA's that did not have existing protective

status; thus such areas as Potter Marsh were not of areas meriting special attention. It should be
included. Other areas meeting the criteria for noted, however, that any individual or public group
AMSA's, such as the majordrainages in Anchorage, may identify and request the Alaska Coastal Policy
were also not identified as potential nominations for Council to adopt an area meriting special attention.
AMSA's because they are classified as greenbelts. Local districts may only nominate areas meriting
This implies a given level of regulation as to permit- special attention. It is the Alaska Coastal Policy
ted land uses and activities. However, should this Council that will make the final determination as to
level of regulation prove to be inadequate the areas whether an area qualifies and should be designated
could, in the future, be nominated. as an area meriting attention.
The following pages are recommendations made by
staff (incorporating all previously mentioned steps)

AREAS MERITING SPECIAL ATTENTION first formally recognized in 1958 when the
Secretary of the Interior withdrew certain lands
in the Turnagain Arm for "protection of scenic
values and public service sites." The Seward
1 ) Name of Area: Seward Highway/Turnagain Arm Highway offers access to recreation sites, wil-
derness areas and offers scenic significance
2) Value classification worthy of protection.
*Primary: Scenic, Recreation, Transportation *Other Significant Resource/Land Use Values:
*Associated: Major Transportation route to Many historical and archaeological sites are
Kenai Peninsula connecting with Anchorage, found adjacent to the Seward Highway.
also a rail corridor/Alaska Railroad. 10) Proposed Management: The Sewa-rd-Highway
3) Location should be formally designated as a scenic corri-
*Region/Subregion: Southcentral, Turnagain dor; highway markings erected identifying spe-
Arm cific points of interest, pullouts built to accom-
modate vehicular traffic at scenic vistas. The
*Comm unity/Orientation/Distance: Area is State of Alaska should officially designate the
within the Municipality of Anchorage. area as a scenic highway and prepare pamph -
*Topographic Quad/1:63,360: Turnagain Arm lets describing the points of interest. High -
.way improvements should be designed in a
CZM Map #12. manner which would allow for maximum view-
4) Upland Acres (Hectares): Approximately ing from the roadway. Design and construction
1,393.94 acres from Potter station to the Kenai of improvements should also be done in a
Borough border. manner which would not unnecessarily detract
from the surrounding natural setting. It is
5) Seaward Distance for Protection: Existing width recommended that the Municipality prepare a
of State Right-of-Way. Seward Highway Scenic Corridor Plan.
6) Existing Ownership: State 11) Allowable Uses: All vehicular traffic, recreation
activities and picnicking at pullout sites, private
7) Existing Management: The area is managed by development in areas already designated as
the State Department of Transportation. development areas (Indian, Bird Creek, Rain-
8) Adjoining Ownership/Management: The Alaska bow and Girdwood).
Railroad has withdrawals of Land (right-of way) 12) AMSA Categorical Classification
adjacent to the Seward Highway. Otheradjacent 1. Areas of unique, scarce, fragile or vulnerable
ownerships include Chugach State Park, private natural habitat, physical features, historical
lands, and other Federal lands (Chugach significance, cultural value, and scenic
National Forest and BLIVI in the Portage Area). importance.
9) Area Description 13) Present and Anticipated Conflicts
The Seward Highway presently has few pullout
*Dominant Physical/Biological Features: The areas to accommodate those people interested
Seward Highway serves those portions of popu- in viewing and photographing many of the spec-
lation concentration south of the "Anchorage tacular views that exist along the highway. The
Bowl" generally along the Seward Highway State Department of Transportation has begun
and extending to Portage at the southern a program to widen the present highway but
little attention has been paid to increasing p b
boundary of the Municipality. The Seward u
Highway parallels the Chugach Mts. and the lic viewing and interpretive opportunities in a
mountainous terrainanops -s--'har-p--I--y-a--n@d--a-br-u- p-t-ly safe manner. Increased width and removal of
into Turnagain Arm. Scenic vistas offered along many of the curvy portions of the highway will
the highway corridor include: glacial valleys, create a situation that will accommodate faster
glaciers, a variety of vegetative types and a traffic. Many large trucks currently use the
change in ecosystems, a variety of wildlife spe- highway for movement of goods. Thus a need
cies. Several streams cross the highway which exists to provide adequate pullout areas at
offer fishing opportunities and several species scenic points and to provide interpretive signs
are found within them. for the public as well as the visiting tourist. One
-- - - ------
*Recreation, Scenic, Heritage or Wilderness such example is an area to view bore tides and
Significance: The public value of the area was mountain goats.

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MUNICIPALrry OF ANCHORAGE MCINITY MAP LEGEND
DISTRjar COASTAL MANAGEMENT PROGRAM

AREAS MERITING SPECIAL *Recreation, Scenic, Heritage or Wilderness
ATTENTION #2 Significance: The site offers scenic views of the
entire Turnagain Arm, and offers a site for
nature trails, passive recreation activities, pic-
1) Name of Area: Old Girdwood Townsite South of nicking, photography, hiking.
Seward Highway. *Other Significant Resource/Land Use Values:
2) Value Classification The area is unsuitable for development; how-
*Primary: Wildlife Habitat, Scenic, Passive ever, a few buildigns exist from pre-earthquake
Recreation. days, but have subsided. The area is now a
significant wetland area and Glacier Creek
*Associated: Historic Site, Wetlands, other uses enters the Turnagain Arm through this wetland
compatible with the Turnagain Arm Compre- tract.
hensive Land Use Plan (in progress). 10) Proposed Management: Thesiteshould bedesig-
3) Location: nated as a State Game Refuge, administered by
*Region/Subregion: South Central, Turnagain the State Department of Fish & Game, and
Arm. nature trails developed or other appropriate vis-
*Community/Orientation/Distance: Area is itor facilities developed. A site development plan
within the Municipality of Anchorage/Old is recommended. This plan should be prepared
Girdwood Townsite. jointly bythe Municipality of Anchorageand the
Alaska Division of Parks and Department of Fish
*Topographic Quad/1:63,360: Turnagain Arm and Game.
CZM Resource Map #13. 11) Allowable Uses: Scenic, passive recreation, wild-
4) Upland Acres: Approx. 217.60 Acres--Land area life habitat area, nature study, hiking.
only. 12) AMSA Categorical Classification:
5) Seaward Distance for Protection: To the center 1 .Areas of unique, scarce, fragile or vulnerable
of Turnagain Arm. natural habitat, physical features, historical
6) Existing Ownership: The parcels within the Old significance, cultural value, and scenic
Girdwood Townsite are in private ownership importance.
with a few in State ownership. The lands imme- 2. Areas of natural productivity or essential habi-
diately adjacent to the Townsite are State owned tat for living resources, including f ish, wildlife,
lands. and the various trophic levels in the food web
7) Existing Management: The area is currently critical to their well-being.
managed by the State. 3. Areas of significant hazard if developed,
9) Area Description because of storms, slides, floods, erosion, set-
*Dominant Physical/Biological Features: The tlement, etc.
original Girdwood Townsite was built on the
shores of Turnagain Arm. Subsidence follow- 13) Present and Anticipated Conflicts
ing the Good Friday Earthquake of March, The site presently contains parcels of privately
1964, inundated the original townsite. Much of owned land, the use of which could cause direct
the original vegetation was killed by seawater and significant impacts to the coastal marsh
Today, 15 years after the earthquake, the vege- ecosystem. The site has been identified as hav-
tation has-changed to that which is salt water ing important habitat for migratory waterfowl.
tolerant as well as for brakish waters. Much of The area is used as a resting and feeding area.
the original'vegetation is dead. The site is flat, Future uses not conducive to the needs of migra-
boggy and vegetated with grasses. The area tory waterfowl could result in damage to the
has been identified by the State Department of marsh and its use for waterfowl. The site is also
Fish and Game as a resting and habitat area for entirely within the coastal floodplain and subject
migratory water fowl and other birds. to future subsidence from seismic events.

man m m m m so m

V5-

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sc@ ':03'm

wES

MUNICIPALITY OF ANCHORAGE VICINITY MAP LEGEND
DISTRICT COASTAL MANAGEMENT PROGRAM

mc@-

AREAS MERITING SPECIAL ATTENTION Recreation, Scenic, Heritage or Wilderness
#3 Significance: The former Greater Anchorag e
Area Borough Assembly recognized the publi c
value of this area for recreation and scenic
1) Name of Area: Bird Creek Regional Park use when they adopted the Master Park Plan
for Bird Creek Regional Park in 1973. The
2) Value Classification Master Plan calls for such activities as camp-
� Primary: Recreation, scenic, nature study ing, hiking, horseback riding and snowmobil-
� Associated: Uses compatible with Bird Creek ing. The natural setting also makes the area
Park Master Plan suitable for such passive activities as photo-
graphy and observation of wildlife (see at-
3) Location: tached resolution).
�Region/Subregion: South Central, Turnagain Other Significant Resource/Land Use Values:
Arm A large tract of land virtually in its natural
�Comm u n ity/O rientation/ Distance: Area is with- state suitable for recreational purposes, nature
in the Municipality of Anchorage/Bird Creek study and scenic purposes. rk
�Topographic Quad/1:63,360: Turnagain Arm 10) Proposed Management: As a regional pa
CZM Resource Map #14. designed to accommodate a wide variety of
recreation activities. It is recommended that the
4) Upland Acres: 2,200 acres master plan be actively implemented to accom-
5) Seaward Distance for Protection: Bird Creek modate growing recreational demands of
drainage should be protected to and where it Anchorage residents.
enters Turnagain Arm. 11) Allowable Uses: Recreation activities consistent
6) Existing Ownership: Municipality of Anchorage with the Bird Creek Master Park Plan (see at-
7) Existing Management: By agreement between tached resolution).
the Municipality and the State of Alaska, Depart- 12) AMSA Categorical Classification:
ment of Natural Resources, Division of Parks, as 1 .Areas of unique, scarce, fragile or vulnerable
part of Chugach State Park. natural habitat, physical features, historical
8) Adjoining Ownership/Management: The land to significance, cultural value, and scenic impor-
the north, east and west is State land within tance.
Chugach State Park. The land to the south is
primarily private land of multiple use, both resi- 2. Areasof natural productivity or essential habi-
dential and commercial. tatforliving resources, including fish, wildlife,
and the various trophic levels in the food web
9) Area Description critical to their well-being.
Dominant Physical/ Bi olog ical Features: The 3. Areas of substantial recreational value and/or
majority of the land is located on the valley opportunity.
floor of Bird and Penguin Creeks. The valley 13) Present and Anticipated Conflicts
is heavily wooded primarily with Sitka spruce
and mountain hemlock, birch, poplar and While Bird Creek has been recognized as a
alder. Mountains tower over the park on three regional park, little has been done to identify
sides and are the most dramatic features in important educational values and scenitific
addition to the water courses. Bird Creek is a resources. A park plan which incorporates ele-
spawning ground forandromous fish. Because ments to serve the broadest possible vis
of the location of the park adjoining the State interest should be prepared. Since the park is
Park and the fact that it encompasses such a presently undeveloped, now is the time to iden-
large healthy valley, the wildlife within the tify scenic, recreational, habitat resources, scien-
park is a major feature and includes moose, tific and educational values to ensure a truly
brown and black bear, lynx, wolverine, hare, comprehensive park plan to serve the large met-
grouse, dall sheep and birds. ropolitan area of Anchorage.

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SCALE i:64L380

.mes

MUNICIPALITY OF ANCHORAGE %nCINITY MAP LEGEND
DtMICT COASTAL MANAGEMENT PROGRAM

AREAS MERITING SPECIAL ATTENTION been 0 laced in culverts. Despite these changes,
#4 the creek remains a natural linear element tra
versing its way through the Spenard area o;
Anchorage. With continued higher density
1) Name of Area: Fish Creek development occurring in areas adjacent to
2) Value Classification the creek, Fish Creek will become even more
valuable as a visual and recreational open
� Primary: Coastal wetland, scenic, nature space resource.
study, open space. The AMSA area is a portion of Fish Creek
� Associated: Wetlands, marsh, habitat, unique representing approximately 1.25 miles located
physical feature in an urban environment, aes- between Northern Lights Boulevard, Spenard
thetic, recreational. Road, and Bootlegger Cove. Adjacent land
3) Location: uses are primarily residential with some com-
mercial and light industrial uses occurring
�Region/Subregion: South Central, Anchorage near Spenard Road.
�Comm u n ity/Orientation/Di stance: Area is with- 10) Proposed Management: The site is i n i mmediate
in the Metropolitan Anchorage area and drains need of restoration. Attached as part of this
into Bootlegger Cove on the Knik Arm of upper AMSA nomination is a Restoration Plan pro-
Cook Inlet. posed for Fish Creek. Approval of this AMSA
�Topographic Quad/1:25,000: Anchorage Bowl and subsequent funding under Section 306
CZM map #15. funds will permit implementation of this restora-
tion plan.
4) Upland Acres: 111)Allowable Uses: Scenic, recreational, open
5) Seaward Distance for Protection: To mean low space, nature study.
tide line of Knik Arm at Bootlegger Cove. - 12) AMSA Categorical Classification:
6) Existing Ownership: The original city of 1. Areas of unique, scarce, fragile or vulnerable
Anchorage (not the Municipality or Borough) natural habitat, physical features, and scenic
was given patent to the tidelands within the old importance.
city limits and thus the tidelands portion of the
site are Municipally owned. Other owners in- 2. Areas of natural productivity or essential habi-
clude (1) Alaska Railroad (right-of-way), and (2) tat for living resources, including fish, wildlife,
private ownership by adjacent property owners. and the various trophic levels in the food web
7) Existing Management: Municipality of critical to their well-being.
Anchorage 3. Areas needed to protect, maintain, or replen-
8) Adjoining Ownership/Management: Upland ish coastal land or resources, including coast-
ownership consists of the Alaska Railroad and al land or resources, including coastal flood
private residential owners. plains.
9) Area Description 13) Present and Anticipated Conflicts
Dominant Physical/Biological Features: Fish Fish Creek is presently held in private, Municipal
Creek, particularly near its mouth, represents and Federal ownership. The site is an excellent
a unique coastal marsh system in an area example of a coastal wetlands; however, field
surrounded by residential uses. visits. to the site have revealed trash, car tires,
and poor drainage due to blockages of Fish
Fish Creek winds its way through the Munici- Creek. The site should be restored and cleaned
cipality of Anchorage for approximately six up to protect the hydrologic flow of water into
miles and drains an area of approximately the wetland area; to enhance the aesthetic
5.6 square miles. Much of this drainage area appeal of the area; to protect the natural produc-
has been developed for residential and other tivity and essential habitat for living resources.
urban uses. As a result, the creek is segmented A culvert under the Alaska Railroad ROW has
by vehicular and rail traffic routes. In some become filled with debris, trash and dirt, The
areas, vegetation has been removed, creek Railroad should provide annual maintenance
banks have been modified and the creek has and cleanup on its property.

all
N 11

AREAS MERITING SPECIAL ATTENTION vides opportunities for viewing wildlife in a
#5 natural setting.
1) Name of Area: Point Campbell - Point Woron- Other Significant Resource/Land Use Values:
zof Coastal Wetlands The area is unsuitable for development. The
area is a significant wetland thatcould accom-
2) Value Classification modate recreational use to a growing urban
� Primary: Habitat, scenic, recreation area aswell as provide nature viewing opportu-
� Associated: Wetlands, salt water marsh, coast- nities.
al flood zone 10) Proposed Management: The site should bedesig-
3) Location: nated as a State Game Refuge, administered by
the State Department of Fish and Game and
� Region/Subregion: South Central, Anchorage included and made part of Potter Game Refuge.
� Community/Orientation/Distance: Area is with- Nature trails sho-u--Id- be deve-loped and public
in the Municipality of Anchorage. access provided. A management plan should be
prepared jointly by the Municipality of Anchor-
� Topographic Quad/1:25,000: Anchorage Bowl age and the Alaska Division of Parks and Depart-
CZM map #16 ment of Fish and Game.
4) Upland Acres: 11) Allowable Uses: Coastal wildlife habitat area,
5) Seaward Distance for Protection: To the Munic- scenic, passive recreation, nature study, hiking,
ipal political boundary in the Knik Arm of upper picnicking.
Cook Inlet. 12) AMSA Categorical Classif i cation:
6) Existing Ownership: State/State tidelands 1 .Areas of unique, scarce, fragile or vulnerable
7)*Existing Management: No present management natural habitat, physical features, and scenic
except that which resides with appropriate state importance.
agencies having jurisdiction in tidelands under 2. Areas of natural productivity or essential habi-
existing state statute. tat for living resources, including fish, wildlife,
8) Adjoining Ownership/Management: Upland own- and the various trophic levels in the food web
ership is comprised of the Municipality of critical to their well-being.
Anchorage, the State of Alaska which leases 3. Areas of significant hazard if developed,
land to the FAA, and a military site. because of storms, slides, floods, erosion, set-
9) Area Description tlement, etc.
�Dominant Physical/ Biological Features: Sev- 4. Areas needed to protect, maintain, or replen-
eral reports have identified this coastal marsh ish coastal land or resources, including coast-
al flood plains, beaches and offshore sand
as an area having diverse coastal marsh vege- deposits.
tation which supports numerous species of
wading birds and migratory waterfowl. The 13) Present and Anticipated Conflicts
site is generally flat, boggy and vegetated with No apparent conflicts exist at the site with the
coastal marsh type grasses and is within the possible exception of occasional odors emitted
coastal flood plain. from the sewer treatment facility. The area has
�Recreation, Scenic, Heritage or Wilderness been identified by Fish and Game and Tetra-Tec
Significance: The site offers scenic views (a private consulting firm) as having a unique
across Cook Inlet and excellent views of Fire vegetative community that attracts a variety of
1sland. The area is highly scenic and offers birds and waterfowl. A site management plan
an opportunity for nature viewing, photo- will ensure proper management of the site, pro-
graphy, hiking and picnicking, The site is tect property value above the bluff line and pro-
located close to the metropolitan area yet pro- tect a valuable coastal wetland.

'Y"

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7t,

MU@PAI-rry OF AKK>K)RKGE MIN" U@D
DISTFWT OOAST@ MANAGE@ PROGWM

AREAS MERITING SPECIAL ATTENTION and the required support services. The site
#6 is within the coastal flood plain, is subject
to subsidence, mass wasting and other
1) Name of Area: Port of Anchorage Area hazards. Only a small portion of this area
2) Value Classification remains vacant forf uture development and expan-
sion.
* Primary: Water dependent/related uses/Port
facilities 10) Proposed Management: The present Port is
managed by the Municipality of Anchorage.
* Associated: support activities and water- Lands immediately adjacent to the port, but
related uses within the AMSA designation are owned and
3) Location: leased to private businesses by the Alaska
� Region/Subregion: South Central, Anchorage Railroad. The mixed ownership pattern had
resulted in the lack of a comprehensive water-
� Comm u n ity/O rientation/ Distance: Area is with- front development plan. Due to limited space
in the Metropolitan Anchorage area. available for expansion it is proposed that an
� Topogrpahic Quad/1:25,000: Anchorage Bowl urban waterfront zone be created and a com-
CZM map #17. prehensive port development plan be prepared.
4) Upland Acres: 11) Allowable Uses: Water dependent uses
5) Seaward Distance for Protection: To the Munic- 12) AMSA Categorical Classification:
ipal political boundary in the Knik Arm of upper 1. Areas where development of facilities is depen-
Cook Inlet. dent upon the utilization of, or access to,
6) Existing Ownership: Municipality of Anchorage, coastal waters.
Alaska Railroad. 13) Present and Anticipated Conflicts
7) Existing Management: Department of Transpor- Geographically the Port of Anchorage is con-
tation, Port Director, Municipality of Anchorage, fined to a small area. The entire waterfront area
and lands within Ship Creek are owned and is held in ownership by the Municipality and the
managed by the Alaska Railroad and leased for Alaska Railroad. Since the Alaska Coastal Man-
industrial purposes. agement Program requires consideration be
8) Adjoining Owners h i p/ Management: Upland own- given to water related and water dependent use
ership is U.S. Air Force and private. over those uses not meeting the above require-
9) Area Description ment a comprehensive plan is required to guide
future growth and to have the Alaska Railroad
Dominant Physical/Biological Features: The meet consistency requirements necessary for
port of Anchorage is located at the mouth such a plan to be implemented. Present use of
of Ship Creek on the tidal flats. The general portions of the waterfront area do not utilize
site is the only location within the Municipality this area to the maximum extent possible and
that is capable of supporting a port facility waste valuable waterfront areas.

100

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MUNU@ OFANCHO@ VICAN@ LEGE@
MS@ OOAST@ MANAGEWZW PROG@

AREAS MERITING SPECIAL ATTENTION until such time as a determination is made as to
#7 the feasibility of utilizing Eagle River as a source
1) Name of Area: Eagle River (drainage) of potable water supply for the Municipality.
Upon such a finding and need, a comprehensive
2) Value Classification site development plan would be prepared.
� Primary: Recreation, water supply, flood con- 11)Allowable Uses: Water supply, open space,
trol, open space recreational, habitat
� Associated: Habitat, scenic 12) AMSA Categorical Classification:
1. Areas of unique, scarce, fragile or vulnerable
3) Location: natural habitat, physical features, and scenic
�Region/Subregion: South Central, Eagle River importance.
�Co m m u n ity/Orientation/ Distance: Eagle River 2. Areas of substantial recreational value or
is located north/northeast of the Metropolitan opportunity.
Anchorage area. 3. Areas of unique geologic or topographic sig-
�Topographic Quad/1:25,000: Eagle River CZM nificance which are susceptible to industrial
map #18. or commercial development.
4) Upland Acres: 4. Areas of significant hazard due to storms,
slides, floods, erosion or settlement.
5) Seaward Ownership: State of Alaska, Eklutna 13) Present and Anticipated Conflicts
Inc*., Fort Richardson Military Reservation. The Eagle River Comprehensive Plan identifies
7) Existing Management: The Municipality of the Eagle River Valley drainage area as marginal
Anchorage regulates land use within the site in that the area is subject to flooding, contains
under the provisions of Title 21/Flood Plain numerous bogs, marshes and other wetlands.
Ordinance. The Alaska Division of Parks man- The valley has been selected by Eklutna, Inc.
ages portions of the drainage within Chugach and thus is in private ownership. To preserve
State Park and some lands adjacent to Eagle all the primary and associated values while at
River on the south side of the valley. the same time recognizing private property
8) Adjoining Ownership/Management: The major- rights, the Municipality in cooperation with
ity of the ownership adjacent to Eagle River is Eklutna, Inc. and the State Division of Parks
in private holdings east of Glenn Highway and develop a site plan to identify proper uses whi.ch
west of Glenn Highway ownership is Federal. also give recognition to the physicall.co n
The State of Alaska and the Municipality of straints. To accomplish this a site management'..-,
Anchorage have small holdings adjacent to plan should be prepared to prevent present and
Eagle River. future anticipated conflicts.
9) Area Description The boundary shown for this AMSA does not
Dominant Physical/Biological Features: necessarily correspond with that of the 100 year
flood plain. No flood plain data is presently
10) Proposed Management: Flood plain studies of available. Eklutna, Inc. has requested that the
Eagle River are incomplete. First priority would U.S. Army Corps of Engineers initiate such a
be to map the flood plain boundaries and con- study. Such efforts would parallel those recom-
duct a study to identify which specific portions mendations made in the Anchorage Coastal
of the drainage should be held as open space Management Plan.

102

live..

I ul

AREAS MERITING SPECIAL ATTENTION Arm toward Mt. McKinley and the skyline of
#8 Anchorage.
10) Proposed Management: The Hearing Draft of
the Anchorage Coastal Management Plan
1) Name of Area: Pt. Woronzof Bluffs recommends that this area be designate as
2) Value Classification open space in order to facilitate the develop-
ment of a coastal bluff bike trail connecting
� Primary: Scientific, Educational Earthquake Park with other areas along the bluff
� Associated: Scenic, Open Spade as designated in the Trails Plan. This would pro-
3) Location: vide access to the site for educational and scien-
tific purposes. It is recommended that the loca-
�Region/Subregion: Southcentral, Knik Arm of tion not be posted as a scientific-area in an
Cook Inlet attempt to avoid excavation by non-protes-
�Community/ Orientation/ Distance: Area is with- sionals; rather the management proposal is to
in the Municipality of Anchorage recognize the scientific value of the bluff and
�Topographic Quad/1:25,000: Anchorage Bowl limit its use for this primary use.
CZM map #19 11)Allowable Uses: Educational and scientific
4) Upland Acres (Hectares): study, public access via a bike trail along the top
of the bluff, scenic viewing opportunities, and
5) Seaward Distance for Protection: From mean those uses compatible with the designation as
high tide line to top of bluff. open space.
6) Existing Ownership: State of Alaska in part and 12) AMSA Categorical Classification:
Municipal Land Selection 1 .Areas of unique, scarce, fragile or vulnerable
7) Existing Management: The area will be subject natural habitat, physical features, historical
to use regulations for the new North/South significance cultural value, and scenic impor-
runway at International Airport - approach tance.
zone. 2. Areas of unique geologic or topographic sig-
8) Adjoining Ownership/Management: The site is nificance which are susceptible to industrial
located between Earthquake Park and the Pt. or commercial development.
Woronzof Municipal sewer treatment plant. 3. Areas with special scientific values or oppor-
The site will be subject to the State of Alaska tunities, including those where ongoing
regulations regarding approach zones for air- research projects could be jeopardized by
craft. development or conflicting uses and activi-
9) Area Description ties.
Dominant Physical/Biological Features: The 13) Present and Anticipated Conflicts
site is located on a north-facing bluff on Pt. The site is located adjacent and to the imme-
Woronzof. Slopes are generally in excess of 25 diate north end of the new International Airport
percent and classified as unstable. The site is North-South Runway. Since this area will be
that portion of the bluff situated between the within the approach zone for arriving and
tidal flat and the access road to the sewer departing aircraft, access to the site for educa-
treatment plant. The area was nominated as an tional and scientific purposes must be reserved.
AMSA to protect an important stratigraphic The Municipality also is planning on a coastal
exposure and because it contains the only bluff bike trail through this area which would
known fossil beds in the Anchorage area. The also provide access to the site. To avoid poten-
site also offers excellent views across Knik tial conflicts a site management plan is required.

104

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. . . . . . . . . .

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AREAS MERITING SPECIAL formed in a proglacial lake. The gravel
ATTENTION #9 shows excellent bedding features such as
1) Name of Area: Pt. Campbell Dunes and Delta cross bedding, channel filling, collapse
features. While gravel extraction was still
2) Value Classification in progress exposures in this gravel were
Primary: Scientific, Educational excellent. Most of them have been covered,
Associated: Scenic, Recreation (dirt bikes, but some are still visible along the access
hang gliding) road. However, these exposures are very
fragile and unless some effort is made to
3) Location: protect them continued motorcycle use
� Region/Subregion: Southcentral, Turnagain will probably contribute to rapid deteriora-
Arm tion.
� Comm un ity/O rientation/ Distance: The site is (3) Theoriginal topographic surface just tothe
within the Municipality of Anchorage located north of the gravel pit area shows cliff head
on Pt. Campbell facing Turnagain Arm. sand dunes. It is believed this is the only
� Topographic Quad/1:25,000: Anchorage Bowl Anchorage locality where active sand dune
CZM Map #20 migration can be observed. The dune on
4) Upland Acres (Hectares): top has probably been activated by gravel
extraction when the protective vegetation
5) Seaward Distance for Protection: From cover was disturbed and sand in the pit
mean high tide was exposed to the prevailing wind.
6) Existing Ownership: Municipality of Anchorage The dune is spectacular in that it is in the
7) Existing Management: The site is the old process of burying trees on the leeward or
Borough car dump and is presently used for east side. The surface shows beautiful
motocycle racing and hang gliding. The site is wind ripple marks. The cut edges show
located within Kincaid Park. classic dune bedding deposits and buried
8) Adjoining Ownership/Management: The site is soil horizons. This is an extremely fragile
located at the extreme southern boundary of feature and is being damaged greatly by
Kincaid Park, adjacent to Potter Marsh Wildlife use of dirt bikes in the area.
Refuge. Lands to the west are in Federal owner- (4) The deltaic features are unique. The grav-
ship and used for military purposes, lands to the els are part of a large feature which extends
east are in private ownership and contain single east toward Sand Lake Road and north
family residential homes. toward Pt. Woronsof. The delta is fascinat-
9) Area Description ing because it faces "the wrong direction."
Dominant Physical/Biological Features: The The geological history is difficult to recon-
site offers the highest topographic vantage struct as the geometry of the beds indi-
point in the Anchorage lowland. cates thatthe melt water flowed east toward
(1) One can see the physiographic "setting" of the mountains. One would have expected
the entire upper Cook Inlet along 3600 it to flow west toward Cook Inlet.
including Alaska Range, Talkeetna Mts. The pebbles in the delta demonstrate rock
and Chugach-Kenai Range. This is an types of all possible source areas includ-
excellent place to describe the glacial his- ing coal fragments from the Matanuska
tory-of Anchorage, as all four possible Valley.
source areas of icecan be viewed. Evide-nce
-for each o-f the five glacial periods can be 10) Proposed Management: 0@es that would be
seen as follows: associated with designatiori-of this site as an
AMSA are in conflict with the recreational uses
(a) Mt. Sustina Glaciation - the glacial occuring at present; however, the Planning
profile of Mt. Susitna Department feels that a management plan could
(b) Caribou Hills Glaciation - truncated be developed to accommodate all uses. Provid-
spurs of the Chugach Mts. ing for public access for pedestrians and provid-
(c) Eklutna Glaciation - high level ing for a bike trail could be accomplished while
moraines on the Chugach Mts. still maintaining an area for dirt bike use. It is
suggested that the hillside (sand dune) imme-
(d) Knik Glaciation - the deposits on diately adjacent to the dirt bike track be put off
which most of Anchorage is built, limits to motorcycles to (1) provide for educa-
including the lateral moraine along the tional use, and (2) to preserve the natural vege-
Chugach Mt. front and all the gravel tation and prevent accelerated erosion of the
deposits at Pt. Campbell. dune face. Aesthetic and appropriate barriers
(2) The gravel deposits at Pt. Campbell are could be designed and erected to keep motor-
part of a unique feature--a delta which was cycles off the hill and restrict their use to the

106

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established motorcycle trail area. Approval of research projects could be jeopardized by
this AMSA would result in the preparation of a development or conflicting uses and activi-
detailed site plan for the area. ties.
11) Allowable Uses: Recreational uses (dirt bikes, 13) Present and Anticipated Conflicts
hang gliding), public access, educational and The site is presently used by dirt bikes for races,
scientific study. Due to heavy public use, shoot- by hang gliders, and by hikers. The motorcycles
ing should not be allowed in the immediate area. have extended the area in which they ride
12) AMSA Categorical Classification: beyond that of the designated track, which
1. Areas of unique, scarce, fragile or vulnerable creates a potential hazard to those individuals
natural habitat, physical features, historical sig- hiking or utilizing the adjacent sand dunes for
nificant, cultural value, and scenic importance. other purposes. Since the area has identified
educational and scientific values a plan should
2. Areas with special scientific values or oppor- be prepared which will accommodate use of the
tunities, including those where ongoing area by all uses and interest groups.

AREAS MERITING SPECIAL bedrock exposure just east of Potter Marsh
ATTENTION #10 along the Old Seward Highway.
1) Name of Area: Andesitic Dike at Potter 10) Proposed Management: The Municipality would,
Marsh on the Old Seward Highway upon approval of this nomination, prepare a let-
ter of agreement with the State indicating to the
2) Value Classification: Department of Transportation that this site be
� Primary: Scientific, Educational preserved and not altered during future road
� Associated: Scenic drive along Old Seward work. The site s 'hould have an interpretive sign
Highway, transportation route adjacent to site. posted identifying the structure and its relation-
3) Location: ship to the geologic history of Anchorage. This
� Region/Subregion: Southcentral, Potter Marsh would be in accordance with the concept of
scenic design standards for the Seward High-
� Comm un ity/Orientation/Distance: Area is way as proposed in the Anchorage CZM Plan.
within the Municipality of Anchorage, located 11)AIlowable Uses: Scientific and educational
on the Old Seward Highway adjacent to Potter study, public viewing. Rock climbing in this
Marsh specific site should be prohibited.
� Topographic Quad/1:25,000: Anchorage Bowl 12) AMSA Categorical Classification:
CZM Map #21 1. Areas of unique, scarce, fragile or vulnerable
4) Upland Acres (Hectares): natural habitat, physical features, historical
5) Seaward Distance for Protection: None significance, cultural value, and scenic im-
portance.
6) Existing Ownership: State of Alaska Right-of- 2. Areas of unique geologic or topographic Sig-
Way nificance which are susceptible to industrial
7) Existing Management: None or commercial development.
8) Adjoining Ownersh i p/ Management: The site is a 3. Areas with special scientific values or oppor-
road cut along the cliff and is part of the right-of- tunities, including those where ongoing
way. Adjacent ownership includes the State of research projects could be jeopardized by
Alaska, for Potter Marsh, and private property development or conflicting uses and activi-
on the upland areas surrounding the site. ties.
9) Area Description 13) Present and Anticipated Conflicts
Dominant Physical/Biological Features: This No immediate conflict exists at the site; how-
site is the only igneous dike exposed in the ever, future planning for highway maintenance
Anchorage area. It is a good bedrock exposure and road widening should give consideration -to -
showing an andesitic lithology, weathering, the site as a significant geologic feature and
and joint patterns. The dike is located in a avoid any damage to it.

108

Vt
-7e-,

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_VJ

CHAPTER Vill
IMPLEMENTATION

The challenge in implementing a district coastal Anadromous Fish Protection
management program is how to maximize the use of Tidelands Lease and Permit
existing land and water use controls to achieve
improved management of the coastal zone while Land Classification
minimizing the need for additional controls. Mining and Oil and Gas Regulation
The Anchorage Coastal Management Program is an Historic Preservation
ambitious attempt to address the issue of land-use
suitability along the coast of Alaska's largest urban Solid Waste Disposal
center. The focus of the program is on areas -- not Certification of Activities under Section 401 of
on uses or activities. By establishing policies for Clean Water Act
coastal areas based on area values and limitations,
a0l uses and activities in those areas becomesubject Overlaying all of the above listed Federal and State
to the program. All coastal areas are addressed. controls are two key requirements of the Federal
Coastal Zone Management Act and the Alaska
Initially, a comprehensive permit system, similar to Coastal Management Act. Under the Federal Act,
the system administered in California, was consid- Federal agency actions, including the issuance of
ered as a means of implementing the Anchorge permits, must be consistent with an approved state
program. Under this system, all major uses and coastal management program. Under the Alaska
activities in the coastal zone would require a permit Act, the actions of State agencies, including the
from a local authority. Because the operation of this exercise of the controls listed above, must comply
system would have the effect of adding yet another with approved district coastal management pro-
layer of governmental control over uses and activi- grams. By monitoring the exercise of the Federal
ties which, in many cases, are adequately regulated, and State controls listed above for "consistency" or
it was deemed inappropriate for Anchorge's needs. 11 compliance" with the provisicrns of its district prc-
The plan adopted by the Anchorage Coastal Man- gram, the Municipality of Anchorage can exert con-
agement Program relies to the extent possible on siderable control over uses and activities in the
the use of existing Federal, State, and local land and coastal zone. A summary of each listed control is
water use controls to achieve its objectives. It is only contained in Appendix A of this document. Appen-
dix B contains a memorandum of understanding
where those controls are inadequate to meet Fed- between the Municipality of Anchorage and the State
eral and State coastal management requirements, Division of Policy Development and Planning con-
that additional controls have been recommended. cerning procedures for the review of Federal agency
actions for consistency.
EXISTING FEDERAL AND STATE EXISTING LOCAL CONTROLS
CONTROLS In addition to Federal and State controls listed
Implementation of the Anchorage Coastal Man- above, the Municipality of Anchorage administers a
agement Program begins with an inventory of exist- wide array of local controls relevant to coastal man-
ing Federal and State land and water use controls in agement. These controls include the following:
the coastal zone. The following controls are most Local Controls
relevant to Anchorage: General powers
Federal Controls Comprehensive Plan
National Pollution Discharge Elimination System Zoning .
Corps of Engineers Permit for the Discharge of Flood Plain Regulations
Dredged or Fill Material Subdivision Regulations
Corps of Engineers Permit for Work or Structures
Executive Order 11988, Floodplain Management Watershed Regulations
Executive Order 11990, Protection of Wetlands Tidelands Regulations
Historic Preservation Wastewater Disposal Regulations
Selection of State Lands
State Controls Land Trust Fund
Water Quality Standards Planning
Wastewater Disposal Permit a. Comprehensive Land Use Plans
Water Appropriation Permit b. AMATS
c. Air Quality and Water Quality Management
Game Refuges Plan

Historic Preservation amendment of the existing zoning classification to
Improved coastal management can be accomp- establish priorities for water-dependent and water-
lished through the administration of these local con- related use. This objective could be incorporated as
trols in conformity with the provisions of the district an element of comprehensive port study authorized
coastal management program. The key means of by the 1979 Alaska Legislature.
achieving this result in incorporation of the district Geologic Hazards
program into the Municipal Comprehensive Plan. Although the Uniform Building Code, as amended
This will require that the coastal management pro- bythe Municipality, establishes structural standards
gram serve as a "guideline" for future Municipal for earthquake stress, it does not address the suita-
actions. bility of soils for development with respect to geo-
Appendix A contains, in addition to State and Fed- logic hazards. Outstanding legal issues such as
eral controls, a summary of local land and water use Municipal liability for damages, the withholding of
controls, with the exception of the several Municipal Federal disaster relief assistance, and the condition-
planning programs. ing of loans on the obtainment of hazards insurance
require caref ul consideration by the Municipality. In
USES AND AREAS IN NEED OF addition, management of hazardous areas is man-
ADDITIONAL CONTROL dated by the regulations of the Alaska Coastal Pol-
After considering the application of existing Fed- icy Council. In March, 1979, the Municipality
released a study entitled Geotechnical Hazards
eral, State, and local land and water use controls in Assessment Study, Municipality of Anchorage, con-
the context of the requirements of the State Coastal cerning seismic hazards (faults, soil liquefaction,
Management Program, several uses and areas stand landslides, ground shaking, avalanche, icing and
out as needing additional management controls. glaciation, ground water, permafrost, subsidence,
These uses and areas are: coastal. erosion, and wind). This study should be
h@
1. water quality management followed by the development of ordinances or ot er
2. priority for water-dependent and water-related tools for managing development in hazardous areas,
uses to the extent that such management is found neces-
sary or desirable, based on Municipal liability for
3. geologic hazards damages as well as the Municipality's general obli-
4. wetlands protection gation to protect the health, safety and welfare of its
residents. The Assembly may wish to obtain an
5. scenic preservation opinionfrom the Municipal Attorney priortounder-
6. coastal access taking this task.
7. waste treatment and water supply Wetlands Protection
Thetwo primaryexisting controls over development
8. areas which merit special attention in wetlands are: (1) the Army Corps of Engineers
9. uses of state concern Permitforthe Discharge of Dredged or Fill Material;
and (2) Executive Order 11990, Protection of Wet-
10. sand and gravel extraction lands. Both authorities are subject to Municipal
A brief discussion of each issue follows: review. However, final administrative decisions on
whether or not to proceed with a project are left to
Water Quality Management Federal agencies. Direct local management of
Under Section 208 of the Federal Water Pollution wetlands would place much of the final decision-
Control Act, the Municipality of Anchorage has making authority in the hands of Municipal officials.
undertaken a study of means of managing signifi- The development and adoption of local wetlands
cant nonpoint sources of water pollution, including protection measures should be undertaken, pre-
urban runoff, erosion from construction sites, runoff ceded by a comprehensive inventory and classifica-
and percolation from snow disposal, and failure of tion of all'coastal wetlands in the Anchoragearea, to
on-site wastewater disposal systems. Adoption of a insure that local concerns and desires are formally
strong water quality management program by the brought into certification decisions. Under Section
Municipality is essential to meeting coastal man- 401 of the Clean Water Act of 1977, any applicant for
agement concerns with water quality. a Federal license or permit to conduct any activi y
Priority for Water-Dependent and which may result in any discharge into navigable
Water-Related Uses waters, shall provide the licensing or permitting
Both Federal and State coastal management require- agency a certification from the state that any such
me'rits include priority to water-dependent and water- discharge will comply with applicable provisions of
related uses and activites in the coastal zone. An the Act. The Department of Environmental Conser-
area especially suited to this type of management is vation is the agency responsible for certifying activi-
the Port of Anchorage. Limited in geographical ties requiring a Corps of Engineers permit.
extent, and of vital economic importance, this area Scenic Preservation
is currently zoned for industrial use. More efficient One of the most outstanding aesthetic values of the
use of this area could be accomplished through Anchorage area is scenery. This value is largely

112

unprotected by the existing array of land use con- transportation and communication needs; and
trols. Consideration of scenic preservation in "(e) uses in areas established as state parks or
Municipal planning programs, as the Municipality recreational areas under AS 41.20 or as state
expands, will ensure that this value is preserved. game refuges, game sanctuaries or critical habi-
Coastal'Access tat areas under AS 16.20."
A common result of inadequate coastal manage- In reviewing district coastal management programs
ment is insufficient provision for public access to for approval, the Alaska Coastal Policy council must
the shore. As with scenic preservation, considera- ensure that the local program does not "arbitrarily
tion of this factor in Municipal planning efforts will or unreasonably restrict or exclude" such uses. In
ensure that this important value is preserved. determining whether a restriction or exclusion is
Waste Treatment and Water Supply arbitrary or unreasonable, the Council must approve
The Metropolitan Area Urban Study, "MAUS", cur- the restriction or exclusion if it finds that:
rently underway, concerns waste disposal in estua- (1) the coastal resource district has consulted with
rine waters and the supply of potable water. This and considered the views of appropriate Fed-
study should be continued and recommendations eral, state or regional agencies:
for implementation developed and adopted. No (2) the district has based its restriction or exclusion
solid waste disposal sites are planned for areas on the availability of reasonable alternative sites;
identified as being within the coastal management and
boundary. (3) the district has based its restriction or exclusion
Areas Which Merit Special Attention on an analysis showing that the proposed use is
The Alaska Coastal Management Act requires that incompatible with the proposed site.
districts designate areas of the coast which merit AS 46.40.070(c)
special management attention. Although the entire In its present form, the Anchorage Coastal Man-
coastal area could be designated as one large agement Program does not restrict or exclude uses
"AMSA", several key areas have been identified as in of state concern. However, as ordinances are deve-
need of special management. These areas, and pro- loped, or additional Areas Which Merit Special
posed management plans for them, are contained in Attention designated. as part -of the coastal man-
Chapter VI I of this document, and form an extremely agement program, the possibility exists that uses of
important aspect of the Anchorage Coastal Man- state concern will be restricted or excluded. In tak-
agement Program. ing these actions, the Municipality should be aware
Uses of State Concern of and comply with the three-part test for reasona-
Uses of State concern are defined in the Alaska bleness contained in AS 46.40.070(c).
Coastal Management Act as follows:
"(6) "uses of state concern" means those land and Sand and Gravel Extraction
water uses which would significantly affect the The regulations of the Alaska Coastal Policy Coun-
long-term public interest; these uses, subject to cil require that "sand and gravel may be extracted
council definition of their extent, include: from coastal waters, intertidal areas ... when there
is no feasible and prudent alternative to coastal
"(a) uses of national interest, including the use of extraction which will meet the public need for the
resources for the siting of ports and major facili- sand or gravel." This activity is currently managed
ties which contribute to meeting national energy under AMC 21.50.070 as a special exception. This
needs, construction and maintenance of naviga- section of the Municipal Code should be amended
tional facilities and systems, resource develop- to reflect the State requirement.
ment of Federal land, and national defense and RECOMMENDATIONS
related security facilities that are dependent upon
coastal locations; The following constitute the plan for implementing
"(b) uses of more than local concern, including the Anchorage Coastal Management Program. Adop-
those land and water uses which confer signifi- tion of these recommendations should enable the
cant environmental, social, cultural, or economic Municipality to satisfy State coastal management
benefits or burdens beyond a single coastal requirements. In the event that certain requirements
resource district; are found not to have been satisfied, the Alaska
"(c) the siting of major energy facilities, activities Coastal Policy Council may approve those portions
pursuant to a state oil and gas lease, or large- of the program which are Sufficient while directing
scale industrial or commercial development the development of additional or amended
activities which are dependent on a coastal loca- elements.
tion and which, because of the magnitude of their (1) The Anchorage Coastal Management Program
effect on the economy of the state or the sur- should be adopted as part of the Municipal
rounding area, are reasonably likely to present Comprehensive Plan.
issues of more than local significance; (2) The Municipality should undertake the continu-
"(d) facilities serving statewide or interregional ing review of Federal agency actions affecting

113

the coastal zone for consistency with the As part of this effort the Planning Department, in
Anchorage Program, including the following: conjunction with the Engineering Division of the
(a) NPDES Permits (EPA) Public Works Department and with the assist-
ance of a consultant, will investigate design
(b) Permits for the discharge of dredged or fill criteria per hazard category necessary for future
material (Corps of Engineers) development in hazardous areas. Also included
(c) Permits for work or structures (Corps of in this effort would be an investigation into
Engineers) alternative means of regulating land use in such
areas.
(d) Federal agency compliance with Municipal
land classification (8) The Municipality should conduct an inventory
(e) Federal agency compliance with Executive and classification of wetlandswithin thecoastal
Order 11990, Protection of Wetlands zone. Classification should include the identifi-
cation of these wetlands requiring additional
(f) Federal agency compliance with Executive, management. The Municipality should then
Order 11988, Floodplain Management develop appropriate management tools, such as
(g) Federal agency compliance with State and ordinances or AMSA designations, necessary to
local historic preservation designations protect such areas. As part of this effort,
wetlands must be classified and the hydrody-
(3) The Municipality should undertake the continu- namics of each wetland researched and under-
ing review of State agency actions affecting the stood so that appropriate and effective ordinag -
coastal zone for consistency with the Anchor- ces can be prepared. The Municipality is
investigating the possibility of conducting a
age Program, including the following: joint study with 208 Water Quality Management
(a) Wastewater disposal permits (DEC) planning efforts.
(b) Water classification and reclassification (9) All Municipal planning activities should be in
(DEC) conformance with the provisions of the Anchor-
(c) Water appropriation permits (DNR) age Coastal Management Program and the
(d) Tidelands leasing, permitting, and disposal Alaska Coastal Management Prograffi, inci U-d-
(DNR) ing the following:
(e) Classification and disposal of State lands (a) Transportation planning (AMATS)
(DNR) (b) Parks, trails, and recreational planning
(f) Oil and gas and mineral leasing (DNR) (c) Planning for the disposition of State lands
(g) State agency compliance with Federal and selected under the Municipal Entitlements
Act.
local historic preservation designations
(h) Solid waste disposal (DEC) (d) Public facilities siting
(4) The Municipality should designate and adopt (e) Solid waste disposal
management plans for the Areas Which Merit (10) The Municipality should undertake a study of
Special Attention contained in Chapter VII. the impacts of co nstructi on- related activities
(5) The Municipality should adopt the recommen- in marginal lands. Information resulting from
dations of the 208 Areawide Water Quality this study should be made available to home-
Management Plan and continue work on the buyers and developers.
Metropolitan Area Urban Study. NOTE: This recommendation was inadver-
(6) The Planning Department and the Department tently omitted from Table VIII. It will be under-
of Cultural and Recreational Services should taken as an implementation activity in FY-81
jointly prepare scenic protection and coastal and funding will be addressed in the FY-81
access elements to the Municipal Parks and grant period.
Trails Plans.
(7) The Municipality should develop ordinances or (11) The Municipality should produce an atlas of
other tools for managing development in coastal areas incorporating the resource inven -
hazardous areas, to the extent that such man- tory and analysis information produced during
agement is found necessary or desirable, based development of the coastal management pro-
on Municipal liability for damages as well as the gram.
Municipality's general obligation to protect the
health, safety and welfare of its residents. (12) AMC 21.50.070, Standards for Natural Re-
"Hazardous areas" means those areas identified source Extraction, should be amended to
in Geotechnical Hazards Assessment Study, comply with 6 AAC 80.110, Mining and Mineral
Municipality of Anchorage (1979). Extraction (sand and gravel extraction).

114

RECOMMENDED IMPLEMENTATION The Municipality has also undertaken a "Geotech-
PROCESS AND FUTURE WORK nical Hazard Assessment Study" which has resulted
PROGRAM in a series of hazard maps for each of the planning
The following pages present the thirteen staff units in the Municipality. These maps and the report
recommendations that were felt necessary to will be used to prepare a "hazards ordinance,"
implement the Alaska Coastal Management Act in On-going studies which will contribute to the data
Anchorage. The tables (VIII-1 - VIII-12) set forth the base for the coastal management plan include the
specific recommendation, state what actions are Southcentral Alaska Remote Sensing Demonstra-
necessary to implement the recommendation, tion Project. Products of this project will be used
assign a level of priority to the recommendation, and incorporated into the coastal atlas as it becomes
and then outline the approximate cost to carry out available. In addition to providing baseline informa-
the implementation actions. Level I corresponds to tion, remote sensing techniques will be used to
FY 1979-1980; Level I I corresponds to FY 1980-1981; monitor water quality and urban/rural change.
and Level III corresponds with FY 1981-1982.
The same procedure has been established to Areas Copies of any of the above referenced documents
Meriting, Special Attention (AMSA's). Staff has are available at the Planning Department, Pouch
recommended seven AMSA's and each is present in 6-650, Anchorge, Alaska, 99502.
Tables VIII-13 - VIII-19.
The tables for both the recommendations and Organization
AMSA's set forth the Municipality's future work pro- The Municipality has in place the organizational
gram for the next three years. As comments are structure necessary to carry out the requirements of
reviewed at the public hearings as well as in writing,
priorities, recommendations, and AMSA's may the coastal management plan. The Planning
change, be added to, or revised, thus requiring a Department, Physical Planning Division will act as
rescheduling of activities and costs. Tables 1A and the lead Municipal agency to implement coastal
1 B summarize approximate costs for implementing management. Present staff levels are adequate to
the Anchorage program by level of priority. initially begin implementation; however, this will be
evaluated in terms of future -needs and. require
The Planning Department has already initiated other ments. Coordination with other Municipal depart-
actions and programs which incorporate the require- ments will ensure successful implementation. As
ments and various elements of the Alaska Coastal various phases of the plan are implemented those
Management Program. These programs include: 1) Municipal departments that are needed for input will
the Eagle River Comprehensive Land Use Plan, 2) be used. Present planscall for assistance from OMB,
the Turnagain Arm Comprehensive Land Use Plan, Public Works, Parks and Recreation, Sewer and
3) the Municipality is currently conducting and pre- Water Utility and other divisions of the Planning
paring to implement 208 Water Quality Manage- Department.
ment Plan, and 4) the Municipal Planning Depart-
ment is preparing an Air Quality Management Plan. Budgetary needs for FY80 have been identified in
These programs, in conjunction with the recom- the grant application. If the funding level is approved
mendations and AMSA's nominations are, in the the Municipality will be well on its way toward suc-
Planning Department's view, adequate and suffi- cessful implementation of its coastal management
cient to meet and carry out the requirements of the plan. No organizational changes are anticipated or
Alaska Coastal Management Act. required at this time.

115

COMPLIANCE WITH GUIDELINES AND STANDARDS

Requirement Compliance
6 AAC 80.040, Coastal Development Recommendation (2);
AMSA #6
6 AAC 80.050, Geophysical Hazards Hazardous Lands Resource
Unit; Recommendation (7)
6 AAC 80.060, Recreation Recreation Area Resource
Unit; Recommendation (6);
AMSA's #1, #2, #3, #4,
#5, #7
6 AAC 80.070, Energy Facilities AMSA #6
6 AAC 80.080, Transportation Recommendation (9).
6 AAC 80.090, Fish Processing AMSA #6.
6 AAC 80.100, Timber Harvest Not applicable.
6 AAC 80.110, Mining Recommendation (12).
6 AAC 80.120, Subsistence Not applicable.
6 AAC 80.130, Habitats Recommendation (5), (8);
AMSA's #2, #3, #4, #5,
#7.
6 AAC 80.140, Air, Land, Water Quality Self-executing.
6 AAC 80.150, Historic Resources Historic Areas Resource
Unit.
6 AAC 80.160, AMSA's Chapter Vil.
6 AAC 85.020, Needs, Objectives, Goals Chapter 1.
6 AAC 85.030, Organization Page 187.
6 AAC 85.040, Boundaries Chapter VI.
6 AAC 85.050, Resource Inventory Chapter IV.
6 AAC 85.060, Resource Analysis Chapter IV.
6 AAC 85.070, Subject Uses Chapter Vill.
6 AAC 85.080, Proper and Improper Chapter Vill.
6 AAC 85.090, Policies Chapter V.
6 AAC 85.100, Implementation Chapter Vill.
6 AAC 85.110, Public Participation Appendix.

116

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table viii-1 IN-HOUSE IMUNICIPALITY1 CONTRACT EFFORT ILEVEL OF PRIORITY)

The Anchorage Coastal Planning Department Upon approval Staff time and travel to
Management Program, Assembly Approval of: (1) Coastal Policy Council
including text and Legal Dept. codi- Anchorage Meetings
maps, should be fication Assembly (2) Legislature
incorporated by (2) Coastal (3) Anchorage Legal Dept.
reference into the Policy Charge
Municipal ComprehensivE Council
Development Plan. This (3) Legislature 1A Staff time for Policy
will give the program Council Approval-2 weeks
formal status and in Anchorage 1,600.00
enable it to serve as 2A Staff appearance in Juneau
a guide to future for program discussion
actions of the and explanation.
Municipality. 3 weeks in Juneau
staff time 1,950.00
travel 600.00
per them 1,050.00
-4 3A Legal Dept. charge back
40 hours @ 70.00 per
hour = $2,800.00

rotal estimated cost:
$8,000.00

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
IN-HOUSE MUNICIPALITY) CONTRACT EFFORT ILEVEL OF PRIORITY)
Table VI11-2

The Municipality Planning Department Upon approval of Approximately @ man year.
should undertake the Coastal Manage@
continuing review of ment Program by Total estimated cost:
federal agency actions the Municipality $10,140.00
affecting the coastal and State of
zone for consistency Alaska
with the Anchorage
Coastal Management
Program, including
issuance of the follow-
ing federal permits an(
the following actions:

(a) NPDES permits(EPA);
(b) dredged and fill
material permits
(Corps of Engineers;
W work or structures
permits (Corps of
Engineers); and
(4) federal compliance
with Municipal lanc
use classification,

(Note: See Appendix B,
Memorandum of under-
standing betweenthe
Municipality of Anchor-
age and the Division
of Policy Development.)

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table V111-3 IN-HOUSE IMUNICIPALITY) CONTRACT EFFORT ILEVEL OF PRIORITY)

The Municipality Planning Dept. in Upon approval of Approximately 14 man year.
should undertake the conjunction with Coastal Manage-
continuing review of other Municipal ment Program by Total estimated cost:
State Agency actions Departments. the Municipality $10,140.00
affecting the coastal and the State of
zone for consistency Alaska (Cost included in recommenda-
with the Anchorage tion #2)
Coastal Management
Program,.including
issuance of the
following state permin
and actions:

(a) Wastewater disposaL
permits (DEC);
(c) Water classi-
fication and re-
classification
(o (DEC);
(d) Tidelands leasing,
permitting, and
disposal (DNR);
(e) Classification of
State lands (DNR);
(f) oil and gas and
mineral leasing
(DNR).

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII-4 IN-HOUSE IMUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

The Municipality Anchorage Municipal Assembly approval None
should designate the Assembly Action of Anchorage
areas meriting special Coastal Manage-
attention and adopt ment Program
appropriate management
schemes (as contained
in Chapter VII).

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII-5 IN-HOUSE (MUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

The Municipal zoning Anchorage Municipal ssembly approval None
map and zoning Assembly Action of both the
regulations should be Anchorage Coastal
amended to designate a Management PrograE
port district in which and the 208 Water
priority is given to Quality Management
water-dependent and Plan.
water-related uses.

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
IN-HOUSE (MUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)
Tahlj- SITTI-6

The Municipality should Planning Dept. On-going PlanninE
adopt the recommenda- Dept. effort Funded by other State
tions of the "208" Municipal Assembly sources
Water Quality Manage- Action
ment Program concern-
ing non-point water
pollution sources.

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII-7 IN-HOUSE (MUNICIPALITY) CONTRACT EFFORT [LEVEL OF PRIORITY)

The adopted Municipal Planning Department IFY80 consistent 6 man months total
parks plan and trails with 306 imple-
plan should be supple- Dept. of Cultural & mentation progran Staff time and overhead
mented by incorporating Recreational Services and funding $20,280
coastal access and
scenic area provisions Graphics 4,000
in accordance with Mapping 4,000
coastal management Publication
program. costs 4,000

Total Cost $32,280

PHASING OF
REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII-8 IN-HOUSE MUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

The Municipality Option #1 Option #2 Upon approval of Option #1
should undertake the the Anchorage
development of an Planning Dept. Staff Consultant utilizing Coastal Manage- Staff time and overhead
ordinance managing the Anchorage Geotech- ment Plan by the 4 man months $13,520
development in high nical Hazard Assessment Assembly Legal Review 2,800
seismic risk areas. Study $16,320

option #2

Approx. $10,000.
Legal Review 2,800
$12,800

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VI11-9 IN-HOUSE (MUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

The Municipality shoul( Option #1 Option #2 Upon adoption by Option #1
undertake the develop- the Assembly.
ment of an ordinance Planning Dept, Consultant Staff time & Overhead
managing development 4 man-months; $13,520
in important wetlands. Legal Dept.
Review 2,800
$16,320

Option #2

Consultant-approximately
2 man-months $5,000
Legal Dept.
Review 2,800
$7,800

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENP&TIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII- IN-HOUSE (MUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

All Municipal Planning Municipality On-going None
activities concerning
the Coastal Zone
should be consistent
with the Anchorage
Coastal Management
Program, including:

(a) Transportation
Planning;
(b) Parks, Trails, and
Recreation
Planning;
(c) Planning for the
disposition of
land selected undei
the Municipal
entitlement act;
(d) Economic and
0)
developmental plan-
ning; and
(e) Public Facilities
siting studies.

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII-12 IN-HOUSE IMUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

Amend special excep- Planning Department Upon approval of
tion standards for the Anchorage
natural resource Municipal Assembly Coastal Manage-
extraction, AMC, ment Plan by the
21.50.070, (A) to Planning & Zoning Assembly Is Polic)
add a submission Commission Council
requirement that sand
or gravel extraction
in the coastal zone
complies with 6 AAC
80.110;

(B) to add a general
requirement that sand
and gravel extraction
in the coastal zone
comply with 6 AAC
80.110.

REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF APPROXIMATE COST TO
RECOMMENDATIONS ACTIVITY CONDUCT EACH RECOMMENDATION
Table VIII-11 IN-HOUSE (MUNICIPALITY) CONTRACT EFFORT (LEVEL OF PRIORITY)

Preparation of a Planning Department Ist year 306 Each volume
Coastal Management- Administrative Servicei activity upon
Resource Atlas approval of the 775.00 per map including
Anchorage Coastal A. Color separation
3 Volume Atlas Management B. Plates
Program C. Printing 1,000 copies
lat Volume
Anchorage Bowl 15 plates per volume= $11,625
15 map sheets Graphics/Type setting 4,000
Narrative text printinR-A2-0-0-0
2nd Volume $19,625
Eagle River Atlas
15 map sheets
Total cost for three volumes
3rd Volume $58,875
Turnagain Arm Atlas
15 map sheets
One volume to be prepared per
co year.

Staff time and overhead
4 months $13,520 per year

Total $72,395.00

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACI'IVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE (MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Seward Highway Option #1 Option #2 Level 1 Priority Option #1
Scenic Corridor Municipality Contractor Prepare design
standards for 3 man-months staff time
scenic pullouts incl"ding overhead
along the Seward $10,140,00
Highway as part
of a scenic Option #2
corridor manage- Consultant
ment plan.
Planning/Architect Firm
2 man-month effort
@ $65.00 per hour
$20,800.00

RECOMMENDED AREAS REGUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACTIVITY LEVEL CONDUCTIPREPARE MANAGEMENT
ATTENTION IN-HOUSE MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Old Girdwood Townsite Planning Department Level 2 Priority Approximately 6 man months
in cooperation with Prepare memoran- of staff time
Alaska Dept. of Fish dum of aggreement
and Game between the Labor & overhead $20,280
Municipality and Graphics 2,000
the State Dept. Mapping 2,000
of Fish and Game Printing 2,000
to have the State $26,280
manage the site
and the Municipa-
lity in coopera-
tion with the
State prepare a
management/use
plan for the
site.

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL M@I*IVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE (MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Bird Creek Regional Planning Dept. in Level 3 activity Approximately 6 man-months of
Park cooperation with other staff time.
Municipal departments Revise and update
a Bird Creek Labor/overhead $20,280
Regional Park Graphics 3,000
Plan. Give special Mapping 2,000
ttention to a Printing 2,500
nulti-purpose park, $27,780
identify important
scientific and
E!ducational sites.

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACTIVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Fish Creek Planning Dept-Option Consultant-Option #2 Level 1 Activity Option #1
Restoration
(1) Prepare Fire Approximately 2 man months
Creek Restor.
ation Plan 6,760 Labor & Overhead
and cost 3,000 Printing, graphics,
proposal 9,760 mapping

1A. Implement
Restoration Plan Option #2

Solicite Proposals from local
firms to prepare (1) Fire
Creek Restoration Plan and
Cost Proposal

mmm M = mmmmmmmm= M M MM

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACTIVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE (MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Pt. Campbell- Planning Dept. in Level 3 Activity Approximately 6 man months
Pt. Woronzof conjunction with the Prepare memoran- of staff time
Coastal Wetlands State Dept. of Fish dum of understand-
and Game ing between the Labor & overhead $20,280
Municipality and Graphics 2,000
the State Dept. ol Mapping 2,000
Fish and Game to Printing 2,000
include this area $26,280
as part of Potter
Marsh Game Refuge
leaving ownership
in Municipal hand.,
The Planning Dept.
in conjunction
with Fish and Gam(
will prepare a
management/use
plan.
CA)

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACTIVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE (MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Port of Anchorage Planning Dept. Consultant Level I Activity Estimate Approximate Cost to
Urban Waterfront Zone (rezoning) be $150,000.00
(1) Develop a
Master Port
Development/
Urban Water-
front Plan.

(2) Rezone the
area to a
Port District

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL __1'IVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE (MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Eagle River (drainage' Option #1 Option #2 Level 2 Activity Option #1
Special Study Zone
Planning Dept. in Consultant To prepare a 6 man months plus overhead
cooperation with other study outlining $20,280
Municipal depts. and alternative mapping 2,500
Eklutna Inc. management optioni graphic@; 2,500
Eagle River has publications 2,500
been identified $27,780
as a potential
source of potable
water, however, Option #2
the property is
in private own- Consultant
ership and con- Approximately $35,000
tains other 3 month study
resource values
(recreational
opportunities,
habitats and
scenic resources
are also present)
What is the best
use of the river
and what are the
implications of
such actions.
This study should
be undertaken in
cooperation with
Eklutna and prior
to any zoning
actions in the
immediate area.

Table VIII-20 187V

RECOMMENDED AREAS REOUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACTIVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE IMUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Pt. Campbell Dunes Planning Department Level I Estimated Cost
Develop site $4,745.00
management and
access plan and
interpretive
brochure

mmm = M M M MIM M M M M M M M M =@M

RECOMMENDED AREAS REQUIRED ACTIONS NECESSARY FOR IMPLEMENTATION PHASING OF ESTIMATED COST TO
MERITING SPECIAL ACTIVITY LEVEL CONDUCT/PREPARE MANAGEMENT
ATTENTION IN-HOUSE (MUNICIPALITY) CONTRACT AND PRIORITY PLANS FOR EACH AMSA

Pt. Woronzof Planning Dept. Level II Estimated Cost of site
Bluffs Fossil Beds management plan and brochure
Develop access and interpretive sign
and site manage- $7,500.00
ment plan

Develop inter-
pretive facility
and brochure

Potter Marsh Planning Dept. Level II Estimated Cost
Andesitic Dike Develop site
Geologicic Site management plan, Brochure, management plan
interpretive sign and interpretive sign
and brochure $7,500.00

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141

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142 1

APPENDIX A

INVENTORY OF MAJOR EXISTING FEDERAL, STATE, AND LOCAL
LAND AND WATER USE CONTROLS RELEVANT TO
THE MUNICIPALITY OF ANCHORAGE
COASTAL ZONE

143

TABLE OF CONTENTS
FEDERAL CONTROLS PAGE

NATIONAL POLLUTION DISCHARGE ELIMINATION SYSTEM ........... 145
DISCHARGE OF DREDGED OR FILL MATERIAL ........................ 145
WORK OR STRUCTURES IN NAVIGABLE WATERS ..................... 146
EXECUTIVE ORDER 11988, FLOODPLAIN MANAGEMENT ............... 146
EXECUTIVE ORDER 11990, PROTECTION OF WETLANDS ............... 150
HISTORIC PRESERVATION ............................................ 150
CONSISTENCY WITH ALASKA COASTAL MANAGEMENT PROGRAM ... 150
STATE CONTROLS

WATER QUALITY STANDARDS ........................................ 151
WASTEWATER DISPOSAL ............................................. 151
WATER APPROPRIATION .............................................. 152
GAME REFUGES ...................................................... 152
FISH PROTECTION .................................................... 152
TIDELANDS LEASE .................. ................................. 152
TIDELANDS PERMIT/SPECIAL LAND USE PERMIT ..................... 153
MINING AND OIL AND GAS REGULATION ............................. 153
LAND CLASSIFICATION ............................................... . 153
HISTORIC PRESERVATION ............................................ 154
STATE AGENCY COMPLIANCE WITH THE ALASKA COASTAL
MANAGEMENT PROGRAM ........................................... 154
LOCAL CONTROLS

GENERAL POWERS .................................................... 155
COMPREHENSIVE PLAN ............................................... 155
ZONING ............................................................... 155
FLOODPLAINS .................................................. L-- - - - 156
SUBDIVISIONS ......................................................... 156
WATERSHEDS ......................................................... 157
TIDELANDS ........................................................... 157
WASTEWATER DISPOSAL ............................................. 158
SELECTION OF STATE LANDS ......................................... 158
LAND TRUST FUND ................................................... 158
HISTORIC PRESERVATION ............................................ 159

144

1. Federal Controls marshes and shallows and means those areas peri-
A. NPDES 33 USC 1342,1344; odically inundated by saline or brackish waters and
40 CFR Subchapter D. that are normally characterized by the prevalence of
salt or brackish water vegetation capable of growth
Under he National Pollution Discharge Elimination and reproduction;
System (NPDES), the Environmental Protection (c) Rivers, lakes, streams. and artificial water
Agency issues permits for the discharge of pollu- bodies that are navigable waters of the United
tants into navigable water, National effluent stand- States up to their headwaters and landward to their
ards, 40 CFR Subchapter N, must be met and the ordinary high water mark;
affected state must certify that its water quality
standardswill becompliedwith. Federal regulations (d) All artificially created channels and canals
require the state to give public notice and receive used for recreational or other navigational purposes
public comments before certification 40 CFR 124.32. that are connected to other navigable waters, land-
The term "navigable waters" is defined, for the pur- ward to their ordinary high water mark;
pose of NPDES, as follows: (e) All tributaries of navigable waters of the Uni-
(1) All navigable wters of the United States; ted States up to their headwaters and landward to
(2) Tributaries of navigable waters of the United their ordinary high water mark:
States:
(3) Interstate waters; (f) Interstate waters landward to their ordinary
(4) Intrastate lakes, rivers, and streams which are high water mark and up to their headwaters;
utilized by interstate travelers for recreational or (g) Intrastate lakes, rivers and streams landward
other purposes; to their ordinary high water mark and up to their
(5) Intrastate lakes, rivers, and streams from which headwaters that are utilized;
fish or shellfish are taken and sold in interstate (1) By interstate travelers for water-related
commerce: and recreational purposes:
(6) Intrastate lakes, rivers, and streams which are (2) For the removal of fish that are sold in
utilized for industrial purposes by industries in interstate commerce:
interstate commerce. 40 CFR 125.1 (p). (3) For industrial purposes by industries in
The term "pollutant," under NPIDES, includes interstate commerce', or
"dredged spoil, solid waste, incinerator residue, (4) In the production of agricultural commod-
sewage, garbage, sewage sludge, munitions, chem- ities sold or transported in interstate commerce;
ical wastes, biological materials, radioactive mate- (h) Freshwater wetlands including marshes, shal-
rials. heat, wrecked or discarded equipment, rock, lows, swamps and similar areas that are contiguous
sand, celler dirt, and industrial, municipal, and agri- or adjacent to other navigable waters and that sup-
cultural waste discharged into water." port freshwater vegetation. "Freshwater wetlands"
40 CFR 125.1 (y). means those areas that are periodically inundated
B. Corps of Engineers permit for discharge of and that are normally characterized by the preval-
dredged or fill material. 33 USC 1344; 33 CFR ence of vegetation that requires saturated soils
209.120. 1 conditions for growth and reproduction; and
Under the Federal Water Pollution Control Act of (i) Those other waters which the District Engi-
1972, as amended, the Secretary of the Army issues neer determines necessitate regulation for the pro-
permits for the discharge of dredged or fill material tection of water quality as expressed in the guide-
in navigable waters. Permits are issued based on the lines (40 CFR 230). For example, in the case of
criteria contained in 33 CFR 209.120. intermittent rivers, streams. tributaries, and perched
The term "navigable waters" is extensively defined wetlands that are not contiguous or adjacent to
for these purposes: navigable waters identified in paragraphs (a) - (h), a
decision on jurisdiction shall be made by the District
(i) The term, "navigable waters,- as used herein for Engineer.
purposes of Section 404 of the Federal Water Pollu- Applicants for "dredge and fill" permits must certify
tion Control Act, is administratively defined to mean the proposed activity is in compliance with an
waters of the United States including the territorial approved state coastal zone management program.
seas with respect to the disposal of dredged mate- The appropriate state agency (in Alaska, the Office
rial and shall include the following waters: of Coastal Management), must then concur in that
(a) Coastal waters that are navigable waters of certification. This provision is found at 33 CFR
the United States subject to the ebb and flow of the 209.120(g) (18):
tide, shoreward to their mean high water mark Activities in coastal zones and marine sanc-
(mean higher high water mark on the Pacific coast); tuaries. (i) Applications for Department of the
(b) All coastal wetlands, mudflats, swamps, and Army authorizations for activities in the coas-
similar areas that are contiguous or adjacent to tal zones of those States having a coastal
other navigable waters. "Coastal wetlands" includes zone management program approved by the

145

Secretary of Commerce will be evaluated for all structures or work in navigable waters of the
with respect to compliance with that pro- United State, with certain exceptions. 33 CFR
gram. No permit will be issued until the 209.120(e).
applicant has certified that his proposed "Navigable waters of the United States" does not
activity complies with the coastal zone man- have the same broad meaning as "navigable water"
agement program and the appropriate State in the context of permits for the discharge of
agency has concurred with the certification dredged or fill material. "Navigable waters of the
or has waived its right to do so (see para- United States'' is defined in 33 CFR 209.260(c) gen-
graph (i)(2)(ii) of this section); however, a erally to mean:
permit may be issued if the Secretary of
Commerce, on his own initiative or upon "...those waters which are presently, or have
appeal by the applicant, finds that the pro- been in the past, or may be in the future sus-
posed activity is consistent with the objec- ceptible for use for purposes of interstate or
tives of the Coastal Zone Management Act of foreign commerce."
1972 or is otherwise necessary in the interest "Work of structures" requiring authorization include
of national security. (ii) If the proposed activ- dams, dikes. wharves, piers, excavation, and filling
ity will be located in the coastal zone of a in.
State, the District Engineer shall obtain from
the applicant a certification that the activity The criteria for issuance of the permit and the
conforms to the coastal zone management procedures for state CZM certification contained in
program of the State. Upon receipt of the cer- 33 CFR 209.120 apply to permits for work or struc -
tification, the District Engineer will forward a tures in navigable waters of the United States as well
copy of the permit application and certifica- as to permits for the discharge of dredged or fill
tion to the State agency responsible for material in navigable waters.
implementing the coastal zone management D. Executive Order 11988, Floodplain Management.
program and request its concurrence or E.O. 11980. May 24.1977; 43 CFR 6030 (Feb. 10,
objection. The District Engineer can issue the 1978).
public notice of the application jointly with
the State agency if arrangements for such In recognition of an estimated $3 billion annual
joint notices have been approved by the Div- flood loss in 1976, the President issued Executive
ision Engineer. A copy of the certification will Order 11988 as part of a comprehensive environ-
also be sent, along with the public notice of mental message. The overall objectives of the
the application to the Director, Office of Order are:
Coastal Zone Management, NOAA, Depart- To avoid to the extent possible the long- and
ment of Commerce, Rockville, Maryland short-term adverse impacts associated with
20852. If the State agency fails to concur or the occupancy and modification of flood-
object to the certification within six months plains and to avoid direct and indirect sup-
of receipt of the request, it will be presumed port of floodplain development wherever
to waive its right to so act and the certifica- there is a practicable alternative.
tion will be presumed to be valid. Before
determining that a waiver has occurred, the The order does not prohibit development in flood-
District Engineer will check with the State plains but creates a clear Federal policy against
agency to verify that it has failed to act. If the such development in most cases.
State agency objects to the proposed activity, The Executive Order contains general requirement's
the District Engineer will so advise the Direc- for all Federal agencies to follow in conducting
tor, Office of Coastal Zone Management, activities in f loodplains, regardless of who owns the
NOAA, and request advice within thirty days real property. The U.S. Water Resources Council is
whether or not the Secretary of Commerce designated as the coordinating body for ensuring
will review the objection. If the objection will compliance with the Order. To this end, the Council
not be reviewed, the permit will be denied. If, has published Floodplain Management Guidelines
however, the Secretary of Commerce indi- at 43 CFR 6030 for use by Federal agencies and
cates he will review the objection, further periodically reviews the actions of the agencies.
action on the application will be held in Actual implementation of the policies and require-
abeyance pending notification of the results ments of the Order are left to individual agency
of the review. If the objection is sustained, rule-making with Council review.
the permit will be denied. If the objection is
overruled by the Secretary's finding, how- Virtually all Federal agency actions that take place
ever, the processing will be continued. within floodplains are subject to the Order, includ-
ing (1) the management. acquisition. or disposal of
C. Corps of Engineers permit for work or struc- Federal lands and facilities: (2) financing or assist-
tures. 33 USC 401 et. seq.: 33 CFR 209-120. ing in construction and improvement@ and (3) con-
Under the River and Harbor Act of 1899, as amended. ducting activities and programs. including plan-
Department of the Army authorizations are required ning. regulating, and licensing.

146

The first requirement of the Order is that a Federal izations or appropriations from the Federal Officeof
agency determine if an activity is located within a Management and Budget, that the proposed activity
floodplain. The term "floodplain" is defined as is in accord with the Executive Order. Because one
follows: provision of the Order requires that the Federal
Lowland and relatively flat areas adjoining agency action conform to applicable State and
inland and coastal waters ... including, at a local floodplain standards, State and local
minimum, that area subject to a one percent governments, responding through the A-95 pro-
or greater chance of flooding in any given cess, can challenge funding for Federal projects
year. which do not comply with their own floodplain
standards as well as other provisions of the Order.
No distinction is made between Federally and non- In Anchorage, the Floodplain Regulations, MAC
Federally owned land. Agencies are required to use 21.60, and relevant coastal management policies
the "best-available" information in making this deter- and maps should be measured against the pro-
mination. Minimum standards are established by posed action.
the Department of Housing and Urban Develop- Another important provision of the Order concerns
ent's floodplain maps. However, where more developers and home buyers who finance activities
detailed information is available it must be used. (In through Federal sources. Federal agencies which
this context, the Anchorage Coastal Management
guarantee, approve, regulate or insure any financial
Program coastal flood zone and river floodplain transaction related to an area located in a floodplain
maps should be utilized.) must provide notice to the private parties involved in
If the agency determines that the activity is located the transaction that the property is located in a
within a floodplain, it must give public notice at the floodplain. The notice must explain the chances of
earliest possible time of its intentions. The Guide- being flooded, and requirements for flood insu-
lines specifically state that, where possible, notice rance, and a statement that the transaction may be
should be given before irrevocable decisions to subject to floodplain regulation. Major Federal
proceed have been made. Early public notice may agencies subjectto this notice provision includethe
be afforded by any number of methods, including Veterans Administration. the Federal Savings and
workshops, hearings, newsletters, and advisory Loan Insurance Corporation, the Federal Housing
groups. However, the Executive Order leaves the Administration, the Federal Home Loan Bank Board,
exact mechanics of public notice to be determined the National Credit Union Administration, and the
by the affected agency, through its regulations and Federal. Reserve System.
procedures. Methods which must be used, when The U.S. Water Resources Council estimates that 74
otherwise appropriate, include both the Environ- Federal agencies are required to issue or revise reg-
mental Impact Statement (EIS) and the Office of ulations or procedures to comly with Executive
Management and Budget Circular A-95. Besides Order 11988. Under the terms of the Order, these
early public notice. age -ncies must provide for "con- revisions or amendments were to have been issued
tinuing communication" during the planning by May, 1978. As of March, 1979, only nine agencies
stages of an activity, especially during the impact had published regulations or procedures in final
assessment and alternative selection processes. form, 24 had published in a preliminary form. and 41
When a final decision to proceed with an activity had "shown no evidence of developing implement-
in a floodplain is made, a notice of findings and an ing procedures." Water Policy Task Force Progress
explanation of why the decision was made must Report No. 3, May 1, 1979. The status of Federal
be made public. State agencies receiving Federal agency compliance with the Order is set out below,
funds for a project (e.g., D.O.T.P.F.) may be with reference to the Federal Register when availa-
required to satisfy notice requirements. ble. A more recent report should be forthcoming
One important aspect of the Order is the require- following a May 30, 1979, report of the agencies to
ment that agencies indicate, when requesting author- the Task Force.

147

FLOODPLAIN MANAGEMENT TABLE

Department of Agriculture* ...................... Federal Register. June 9, 1978 Proposed
Soil Conservation Service .................... Federal Register. June 2, 1978 Proposed
Rural Electrification
Administration* .......................... Federal Register, Aug. 29, 1978 Proposed
Economics, Statistics and
Cooperative Service ......................
Farmers Home Administration* ............... Federal Register, Sept. 14. 1978 Proposed
Forest Service* .............................. informal draft
Science and Education
Administration ...........................
Agricultural Stabilization and
Conservation Service* .................... informal draft

Department of Commerce* ...................... Federal Re ister. Sept. 28. 1978 Proposed
9
Economic Development
Administration* .......................... Federal Register. April 5, 1978 Final
National Oceanic and Atmospheric
Administration* ..........................
Department of Defense (Construction)* .......... Federal Register, March 6, 1978 Final
Air Force ................................... Design Manual, Dec. 22, 1978 Final
Army .......................................
Corps of Engineers* ......................... Federal Register. May 24, 1978 Proposed
Navy .......................................
Department of Energy* .......................... Federal Register, March 7, 1979 Final
Federal Energy Regulatory
Commission .............................
Department of Health, Education
and Welfare* ................................
Education Division .......................
Public Health Service .....................

Department of Housing and Urban
Development* ...............................
Community Development Corp* ..............
Federal Disaster Assistance
Administration* ....... informal draft
Federal Insurance Administration .............
Community Planning and
Development* ...........................
Housing Production and
I Mortgage Credit .........................
Housing Management .......................
Department of the Interior* ...................... Federal Register. June 9, 1978 Interim
Fish and Wildlife Service* .................... Federal Register, June 2, 1978 Draft
Heritage Conservation and
Recreation Service* ...................... Federal Register, Oct. 13. 1978 Draft
National Park Service* ....................... Federal Register. Sept. 28, 1978 Proposed
Bureau of Land Management* ................ Federal Register, Sept. 28, 1978 Interim
Bureau of Reclamation* ...................... Federal Register. Oct. 27. 1978 Draft
Bureau of Indian Affairs .......................
Office of Surface Mining .....................
Bureau of Mines .............................
Geological Survey ...........................
Department of Justice ...........................
Bureau of Prisons ...........................
Land Enforcement Assistance ................
Administration ...........................

Department of Labor ............................

143

Department of State ............................
(Bureau of Oceans and Inter-
national Environmental and
Scientific Affairs* ............................ informal draft
Department of Transportation* .................. Federal Register. April 26, 1979 Final
U.S. Coast Guard ..............................
Federal Aviation Admin ........................
Federal Highway Admin* ....................... Federal Register, Dec. 27, 1978 Proposed
Federal Railroad Admin ........................
Urban Mass Transit Admin .....................
Saint Lawrence Seaway
Development Corporation .....................
Department of Treasury* ........................ Federal Register, May 24, 1978 Final
Environmental Protection Agency* ............... Federal Register, Jan. 5, 1979 Final
Office of Solid Waste
Management .................................
Office of Water Planning
Office of Water Supply .........................
Independent Agencies
Advisory Council on Historic
Preservation .................................
Action ........................................
Community Services Admin ....................
Farm Credit Administration .....................
Federal Communication
Commission .................................
Federal Deposit Insurance
Corporation ..................................
Federal Home Loan Bank Board* ...............
Federal Reserve System ........................ Federal Register, Aug. 8, 1978 Proposed
Federal Preparedness Agency* ................. Federal Register, May 24, 1978 Proposed
General Services Admin* .......................
International Boundary Water
Commission* ................................. Federal Register, Dec. 29, 1978 Final
National Aeronautics and Space
Administration* .............................. Federal Register, Jan. 4, 1979 Final
National Credit Union
Administration* ..............................
Nuclear Regulatory Commission* ............... Federal Register, Oct. 6, 1978 Proposed
Small Business Administration* ................. Federal Register, Oct. 28, 1978 Interim
Tennessee Valley Authority* .................... Federal Register, June 2, 1978 Draft
U.S. Postal Service* ............................ PS Bulletin, August 14, 1978 Final
Veterans Administration* ....................... Federal Register, Aug. 22, 1978 Final
Water Resources Council* ..................... Informal Draft, Dec. 22, 1978

Notes: Executive Order 11988 applies to all proposed actions and Section 2(d) of the Order requires that
each agency shall comply with the Order by issuing regulations or procedures. The agencies listed
above appear to conduct activities affecting floodplains based on program descriptions in the
Federal Government Organization Manual. Agencies dealing with services unlikely to affect flood-
plains (such as personnel management or mediation) have not been included. Procedures for the 13
cabinet level agencies may cover all of their subunits and obviate the need for separate subunit
procedures.
*Status report for November 30, 1978 has been received.

149

E. Executive Order 11990, Protection of Wetlands. F. Historic Preservation. 23 USC 138; 16 USC 431
E.O. 11990, May 24, 1977, 42 F.R. 26961. et. seq.; E.O. 11593, May 13, 1971; 36 CFR Part
Executive Order 11990, Protection of Wetlands, was 800.
issued in conjunction with the President's com- Under the 1976 amendments to the Federal-Aid
prehensive environmental message of 1977 and Highway Act of 1968, Pub. L. 90-495, the Secretary
simultaneously with Executive Order 11988, of Transportation is prohibited from approving any
Floodplain Management. program or project which requires the use of land
from a historic site (or park, recreation area, orwild-
The Order mandates Federal agencies to take cer- life or waterfowl refuge) of national, State, or local
tain actions "in order to avoid to the extent possi- significance, as determined by the appropriate
ble the long and short term adverse impacts asso- Federal, State or local official, unless he finds two
ciated with the destruction or modification of things: (1) there are no feasible and prudent alterna-
wetlands and to avoid direct or indirect support of tives; and (2) all possible planning to minimize harm
new construction in wetlands whenever there is a has been undertaken. 23 U.S.C. 138. A series of
practicable alternative." major Federal court decisions have interpreted
Specifically, "each agency, to the extent permitted and applied this provision; see especially Citizens
by law, shall avoid uindertaking or providing assist- to Preserve Overton Park v. Volpe, 91 S. Ct. 814,
ance for new construction located in wetlands on remand 335 F. Supp. 873. In Anchorage, herit-
unless the head of the agency finds (1) that there is age resources identified by the Historic i Land-
no practicable alternative to such construction and marks Preservation Commission might qualify as
(2) that the proposed action includes all practicable sites of local significance. See Patterns of the Past
measures to minimize harm to wetlands which may -- An Inventory of Anchorage's Heritage Resources,
result from such use. In making this finding, the Municipal Planning Department, 1979. However,
head of the agency may take into account eco- absent some formal designation beyond mere
nomic, environmental and other pertinent factors." inventory, there is a possibility that such sites
Early public review of plans or proposals for new would not qualify.
construction in wetlands must be allowed, either The Historic Sites Act, found at 16 USC 461 et. seq.,
through the E.I.S. process or where no E.I.S. is declares it the policy of the United States to "assist
required, through new procedures developed for State and local governments .... to expand and
this purpose. Existing agency procedures must be accelerate their historic preservation programs and
used to the extent possible. Each agency was activities." This Act establishes the National Regis-
required to implement public review procedures by ter of districts, sites, buildings, and culture, and
October 1, 1977. However, no particular Federal provides for funds to States for surveys and plans
agency is given coordinating authority over the for the preservation of such property. The term "his-
implementation of this Order. toric preservation" is defined to include "the protec-
One important distinction from the Floodplain Man- tion, rehabilitation, restoration, and reconstruction " I
of such property. Once a property is included in the
agement Order is that this Order does not apply to list or determined by the Secretary to be eligible for
"the issuance by Federal agencies of permits, listing, Federal agencies must formally consider the
licenses, or allocations to private parties for activi- effect of their actions on such property. The Advi-
ties involving wetlands on non-Federal property." sory Council on Historic Preservation, an inde-
Only Federally owned or controlled wetlands are pendent agency in the Executive branch, reviews
therefore in issue. and comments on Federal agency actions affecting
State agencies receiving Federal funds may be National Register property.
responsible for meeting requirements of the Order. Executive Order 11593, May 13, 1971, entitled "Pro-
When leasing, granting easements or rights-of-way tection and Enhancement of the Cultural Environ-
on, or otherwise disposing of Federally owned ment," requires that Federal agencies, in consulta-
wetlands, a Federal agency is required to reference tion with the Advisory Council, establish procedures
in the conveyance those uses that are restricted regarding the preservation and enhancement of
under identified Federal, State and local wetlands non-Federally owned historic and cultural proper-
regulations and attach appropriate restrictions to ties in the execution of their plans and programs.
the use of the property. Procedures for the achievement of their objective,
promulgated by the Advisory Council, are found at
The term "wetlands" is defined in the Orderas"those 36 CFR Part 800.
areas that are inundated by surface water or ground G. Consistency with the Alaska Coastal Manage-
water with a frequency sufficient to support, and ment Program. 16 USC 1456; 15 CFR 930.
under normal circumstances does or would sup- Certain activities of federal agencies in the coastal
port, a prevalence of vegetative or aquatic life that zone, including the issuance of NPDES permits by
requires saturated or seasonably saturated soil the Environmental Protection Agency and the issu-
conditions for growth and reproduction. Wetlands ance of permits for the discharge of dredged or fill
generally include swamps, marshes, bogs and sim- material and work or structures in navigable water
ilar areas such as sloughs, potholes, wet meadows, by the Army Corps of Engineers, must be "consistent
river overflows, mud flats, and natural ponds:," with approved state coastal management programs.

150

Consistency" is a variable concept. In conducting (5) DPDP responds. in writing to the federal
or supporting activities directly affecting thecoastal agency and the applicant informing them of
zone, federal agencies shall act "in a manner which its findings. In accordance with 15 CFR
is, to the maximum extent praticable, consistent 930.63(b) and (c), DPDP responds at the ear-
with approved state management programs." 16 liest practicable time. If no decision has been
USC 1456(c) (1). Applicants for federal permits for reached within three months, DPDP reports
activities affecting the coastal zone must certify on progress and the reason for delay. DPDP
"that the proposed activity complies with the state's will make a finding within six months of initial
approved program and that such activity will be receipt of the federal license or permit appli-
conducted in a manner consistent with program." cation and consistency certification, or the
16 USC 1456(c) (3) (A). However, "nothing in this state may be presumed to have concurred
chapter shall be construed to diminish ... Federal ... with the certification.
jurisdiction, responsibility, or rights ... ; (o r) ... as (6) In the event of a dispute, DPDP initiates
superseding, modifying, or repealing existing laws negotiations between disagreeing state and
applicableto thevarious Federal agencies." 16 USC federal agencies and, if necessary, the appli-
1456(e). cant. Mediation procedures will folloW the
The "approved state program" with which federal process detailed in 15 CFR 930, Subpart G.
activities must be consistent will consist of two Itshould be noted thatthese procedures call forthe
basic components: the standards of the Alaska staff of DPDP to concur or object to a consistency
Coastal Policy Council, 6 AAC 80, and approved certification, not an affected local government.
district coastal management programs.
The procedures for determining federal consistency 11. State Controls
are outlined in the State of Alaska Coastal Manage- A. Water Quality Standards AS 46.03.080: 18 AAC
ment Program and Draft Environmental Impact 70.
Statement, pps. 149-161, State of Alaska Office of The state of Alaska Water Quality Standards are
Coastal Management and U.S. Department of found .at 18 AAC 70. These standards are used by
Commerce, Office of Coastal Zone Management, the State in certifying NPDES permits to the Envir-
January, 1979. The proposed procedures for review- onmental Protection Agency; the standards have
ing federal permits are based on the use of the Div-
ison of Policy Development and Planning (DPDP), been approved by EPA. 40 CFR 120.10.
in the Office of the Governor, as a clearinghouse for Ship Creek is classified, under these standards, "B"--
distribution of notices and collection of comments. suitable for water supply and drinking with treat-
The proposed procedures are of great importance ment. All other fresh waters and all ground waters
to affected local governments and are as follows:, are presumed to meet the highest water classifica-
(1) Applicant submits the license or permit tion, "A", water supply and drinking without treat-
application and consistency certification to ment, until reclassified. All marine and estuarine
the federal agency and to DPDP. The "con- waters are classified "C"--bathing, swimming, and
sistency certification" certifies that proposed recreation. 18 AAC 75.050.
license or permit activity will be carried out in B. Wastewater Disposal. AS 46.03. 100; 18 AAC 72.
a manner consistent with the approved
ACMP. The wastewater disposal regulations provide the
(2) DPDP insures timely public notice of the State of Alaska with a means of implementing its
project or activity pursuant to 15 CFR 930.61. water quality standards. The regulations provide:
(This division will attempt to establish "No person may conduct an operation which
agreements with relevant federal agencies for results in the disposal of wastewater into or
the publication of joint public notices.) upon the waters of the state or surface of the
DPDP, at its discretion, may hold one or
more public hearings on the proposed land without obtaining a waste disposal per-
license or permit activity in accordance with mit from the department (Environmental
15 CFR 930.62 and AS 44.62, the Administra- Conservation) under AS 46.03.100. A permit
tive Procedures Act. will be granted upon a finding that the dispo-
(3) DPDP circulates the application and certi- sal will meet the requirements of this chapter
fication to affected state agencies and local and ch. 70 of this title." 18 AAC 72.010.
governments and collects comments. Before DEC may issue a permit, it must give public
(4) The staff of DPDP reviews the comments, notice and allow for public comments; however, it
and recommends concurrence with or objec- may waive these requirements where NPDES
tion to the applicant's consistency certifica- procedures are followed. AS 46.03.110.
tion to the director of the division. Any
recommendation to object will include rea- The term "wastewater" in this chapter means "sew-
sons and suggested changes which would age, waterborne industrial waste, laundry liquid
allow the proposed project or activity to be effluent, shower or sink water, or other wastes
conducted in a manner consistent with the which are waterborne or in a liquid state." 18 AAC
ACMP. 72.100(27).

151

C. Water Appropriation Permit. AS 46.15.010; 11 areas. Within the Municipality of Anchorage, the
AAC 72. Potter Point State Game Refuge has been desig -
"Wherever occurring in a natural state, the waters nated, AS 16.20.030(b), and declared closed to hunt-
are reserved to the people fora common use and are ing, with certain exceptions. 5 AAC 81.270, 280(h) '
subject to appropriation and beneficial use as pro- The Department of Fish and Game has the respon-
vided in this chapter." AS 46.15.030. sibility for reviewing all uses, leases, or disposal of
A permit to appropriate water, issued by the land in state game refuges for compatibility with the
Department of Natural Resources, is required prior purpose of the designation. AS 16.20.060.
to the diversion, impoundment, or withdrawal of In addition, the Alaska Department of Fish and
unappropriated waters on state, federal, or private Game is cooperatively managing the Portage Flats
lands. Use of the water must be "beneficial," defined Property Management area with the Bureau of Land
as "a use of water for the benfit of the appropriator, Management for recreation and habitat, pursuant to
other persons or the public, that is reasonable and a memorandum of understanding. These lands are
consistent with the public interest." AS 46.15.260(3) under Federal (BLM) ownership.
In finding that a proposed appropriation is in the E. Anadromous Fish Protection.AS 16.05.870; 5 AAC
public interest, eight factors are considered: 95.010; AS 16.10.010.
(1) the benefi 't to the applicant resulting from the Two provisions of AS 16 regulate uses in and around
proposed appropriation; water used by anadromous fish.
(2) theeffectof the economic activity resulting from 5 AAC 95.010 incorporates by reference a list of
the proposed appropriation; waters important to anadromous fish. Persons
(3) the effect on fish and game resources and on planning to "use, divert, obstruct, pollute, or change
public recreational opportunities; the natural flow or bed of a specified river, lake, or
. stream, or to use wheeled, tracked, or excavating
(4) the effect on public health; equipment or log dragging equipment in the bed of
(5) the effect of loss of alternate uses of water; a specified river, lake, or stream" must obtain the
(6) harm to other persons resulting from the pro- prior written approval of the Department of Fish
posed appropriation; and Game. AS 16.05.870 -.880.
(7) the intent and ability of the applicant to com- Anadromous fish-waters designated in the Anchor-
plete the appropriation; and age area include Ship Creek, Eagle River, Bird
Creek, Fire Creek, Campbell Creek, Little Campbell
(8) the effect upon access to navigable or public Creek, Indian Creek, Glacier Creek, Twenty-Mile
waters. River, Glacier River, Portage Creek and Placer
Public notice of applications for permits to appro- River, as well as other drainage supporting anad-
priate water must be given by publication in a news- romous fish in the Municipality.
paper of general circulation in the area of the pro- AS 16.10.010 states that it is unlawful for a person to
posal and by service upon other appropriators who "render the waters inaccessible or uninhabitable for
may be affected. DNR may also serve notice on a salmon for that purpose without first applying for
political subdivison. Objections may be filed for 15 and obtaining a permit or license from the Depart-
days after publication; hearings may be held at the ment of Environmental Conservation."
discretion of DNR. AS 46.15.070. "The waters" referred to are "waters of the state,
Several major exceptions to the requirements of either fresh or salt, utilized by salmon in the propo-
these regulations are contained in 11 AAC 72.200, gation of the species." AS 16.10.010(l).
including: No provisions for public notice or comment are pro-
(1) the use of less than 1000 gallons of water per day vided in connection with either of these controls.
for domestic purposes; F. Tidelands Lease. AS 38.05.070; 11 AAC 58; 11
(2) the temporary use of water, during a single AAC 62.
period not to exceed 120 days, for drilling, con-
struction, and other activities that do not require "When not limited by general law, the non-exclusive
a permanent or seasonally receiving water use; use of unoccupied and unappropriated state owned
and tide and submerged lands shall not be denied any
(3) the use of water in a remote location where the citizen of the United States or resident of Alaska."
use will not impinge on other uses. 11 AAC 62.180.
D. Game Refuges. AS 16.20; 5 AAC 81.270. Tidelands "means those lands covered by tidal
waters between the elevation of mean high and
AS 16.20 establishes three types of special areas for mean low tides"; submerged lands "means those
the protection and preservation of natural habitat lands covered by tidal waters between the line of
and game population: state game refuges; state mean low water and seaward to a distance of three
game sanctuaries; and fish and game critical habitat geographical miles ...... 11 AAC 62.840.

152

State-owned tide and submerged lands (and "shore- Permits for the use of state-owned land which is
lands" covered by navigable nontidal waters) may neither tidal nor submerged are called "special land
be leased by the Department of Natural Resources use permits." They are authorized under AS 38.05.330
"for a period up to 55 years, if it appears to be in the and 11 AAC 58.210: "The director, without prior
best interest of the state..." AS 38.05.070. This lease approval of the commission, may isue special land
does not cover the extraction of natural resources. use permits on such terms and conditions as he
deems in the best interest of Alaska."
Applicants for leases must submit development If the land at issue contains or adjoins "public or
plans to DNR. 11 AAC 62.700. If the land is within six navigable" waterways or bodies of water the State
miles of the boundaries of a municipality, DNR must must, in most instances, reserve easements or
notify the municipality at least 30 days prior to act- rights-of-way for public access. AS 38,05.127: 11
ing on a lease application. The municipality may AAC 70.
consult with DNR and comment on the proposed
actions; public hearings may be held. AS 38.05.305. H. Mining and Oil and Gas Regulation.
Lands to be leased must be classified based on a Although not of direct application to the Municipal-
land use plan. 11 AAC 58.35. Where land use plans ity of Anchorage at this time, the following state
"would materially affect organized communities..., controls over mining and oil and gas related uses
the consultation of local offical or unofficial plan- and activities should be noted:
ning groups shall be sought when practicable..." 11 The Department of Natural Resources issues
AAC 52.210.
leases, on a competitive basis, for oil and gas
The use of leased land must comply with "the rules purposes on state-owned tide and submerged
and regulations" of an organized zoning authority. 11 lands.
AAC 58.700. Before land containing or adjoining 1. Land Classification. AS 38.05.300: 11 AAC 52.
navigable or public waterways or bodies of water is AS 38.05.300 provides:
leased, the state must "provide for the specific
easements or right-of-way, or both, reasonably The director (of the Division of Lands) shall
necessary to insure free access to and along the make a preliminary classification for surface
body of water, unless the department finds that use of all lands in areas where he considers it
regulating or limiting access is necessary for other necessary and proper for future develop-
beneficial uses or public purposes." AS 38.05.127: ment. The classification, together with a land
11 AAC 70. use plan, shall be transmitted to the commis-
sioner (of the Department of Natural Resour-
G. Tidelands Permit/Special Land Use Permit. AS ces) for this approval, modification, or rejec-
38.05.330; 11 AAC 62; 11 AAC 58.210. tion. This section does not ... preclude multiple
The Department of Natural Resources issues per- purpose use of land and water area whenever
mits for the use of state-owned tide and submerged different uses are compatible.
lands for a period up to five years. Uses for which Notice of classification or reclassification must be
permits may be issued include "...log storage, oil furnished to a municipality if the land is within six
well drilling sites and production facilities for the miles of its boundaries. AS 38..05.305. DNR is
purposes of recovering minerals from adjacent required to consult with affected communities in the
lands under valid lease, and other similar uses or preparation of land use plans. 11 AAC 52.210.
improvements, or for the limited personal use of The classifications of state lands are currently under-
timber or materials." AS 3 *8.05.330. In granting per- going revision. 11 AAC 52.
mits, the Department "shall give preference to that
use of the land which will be of greatest economic J. Historic Preservation. AS 41.35; AS 45.98; 11 AAC
benefit to the state and the development of its 16; 11 AAC 17.
resources. However, first preference shall be granted The Alaska Historic Preservation Act of 1971, AS
to the upland owner for the use of a tract of tideland, 41.35, declares that "it is the policy of the state to
or tideland and contiguous submerged land, which
eaward of the upland property of the upland preserve and protect the historic, prehistoric and
ownerand which is needed by the upland ownerfor archaeological resources of Alaska from loss, dese-
cration and destruction so that the scientific, his-
any of the purposes for which the use may be gran- toric and cultural heritage embodied in these
ted."/d. resources may pass undiminished to future genera-
Notice of application for a tideland permit must be tions." The Act grants the primary administrative
furnished to a municipality pursuant to AS 38.05.305 authority in this area to the Department of Natural
(see F. Tidelands Lease, supra) and abutting upland Resources (DNR) and establishes a Historic Sites
property owners. No permits may deny upland Advisory Committee in the Department.
owners "reasonable access" to tidewaters. 11 AAC On State owned land, including tidelands. title to
62.720. historic, prehistoric and archaelogical resources is

153

in the State. However, local groups may keep or The Alaska Historic Preservation Act established a
obtain artifacts from the State for study or display if Historic Sites Advisory Committee within the
the State finds that the artifacts will be properly Department of Natural Resources. This committee
cared for. The Governor is authorized to declare, by is composed of the Director of the Alaska State
public order, State Monuments or Historic Sites and Museum, the State liaison officer appointed under
the Department of Natural Resources is authorized the National Historic Preservation Act of 1966, one
to acquire and, in certain instances condemn his- professional from the fields of history, architecture
toric, prehistoric and archaeological resources. and archaeology, and two persons representing
On privately owned land, the Governor may estab- indigent ethnic groups. The Committee develops
lish State Monuments or Historic Sites with'the writ- criteria for the evaluation of State Monuments and
ten consent of the owner. Privately owned sites or Historic Sites, cooperates with DNR in administer-
monuments are eligible to receive State support for ing a statewide historic sites survey, approves prop-
maintenance, restoration or rehabilitation provided erties for nomination to the National Register, anid
they are kept accessible to the public. Once pri- advises the Governor concerning State policy. In
vately owned land is declared a Monument or His- addition, the Commission consults with local histor-
toric Site, restrictions on construction, alterations ical district commissions established under AS
or improvements attach. 29.48.108 -- 29.48.110.
K. State Agency Compliance With The Alaska
DNR maintains records concerning the location of Coastal Management Program. AS 46.40.100(a);
important historic, prehistoric and archaeological AS 46.40.200.
sites. These records are furnished to State agencies.
Before any public construction by the State or Two key provisions of the Alaska Coastal Manage-
agency of the State is undertaken, DNR may survey ment Act concern the issue of state agency com-
an area to determine if it contains such sites. If it pliance with the Alaska Coastal Management Pro-
does, and if the Department determines that such gram.
sites will be adversely affected by the construction, AS 46.40.100(a) provides:
DNR may require that the construction activities be Municipalities and state agencies shall
held in abeyance until it has conducted an investiga- administer land and water use regulations or
tion, recording and salvage operation. In addition, controls in conformity with district coastal
if, during the course of public construction, sites or management programs approved by the
remains are discovered by the persons conducting council and legislature and in effect.
the activity, DNR must be notified and allowed an
opportunity to survey the area. Itmay, followingthe AS 46.40.200 provides:
survey, halt the project to the purpose of investiga- Upon the adoption of the Alaska coastal
tion, recording and salvage. management program, state departments,
DNR's regulations concerning historic preservation boards and commissions shall review their
are found in two chapters of 11 AAC: 11 AAC 16, statutory authority, administrative regula-
Historic, Prehistoric and Archaeological Resour- tions, and applicable procedures pertaining
ces, and 11 AAC 17, Outdoor Recreational, Open to land and water uses within the coastal area
Space, and Historic Properties Development Fund for the purpose of determining whether there
Grant Program. Article 1 of 11 AAC 16 contains are any deficiencies or inconsistencies which
procedures used by the Division of'Pa@ks -to admin- prohibit compliance with the program
ister historic, prehistoric and archaeological adopted. State agencies shall, within six
resources; Article 2 concerns procedures to be fol- months of the effective date of the Alaska
lowed for nomination and administration of National coastal management program, take whatever
Register properties. The Outdoor Recreational, action is necessary to facilitate full com-
Open, and Historic Properties Development Grant
Fund may be used to pay up to one-half of the pliance with and implementation of the pro-
non-Federal share of projects which are initiated by gram, including preparation and submission
municipalities to acquire, preserve or protect his- of recommendations to the council for addi-
toric sites, buildings, and monuments. tional or amended legislation.

154

Ill. Local Controls AS 29.33.085. Zoning must be "in accordance with
A. General Powers. AS 29; AMC 2.10. the comprehensive plan," AS 29.33.090(a), and the
The Municipality of Anchorage is a unified home plan must be reviewed every two years.
rule municipality organized under AS 29.68.240 - The Municipality of Anchorage Comprehensive Plan
440. It has all powers: is found at AMC 21.05. It is declared to be "a public
(1) not prohibited it by law or charter; and declaration of the policies which will guide the
actions of the legislative body," AMC 21.05.025, the
(2) granted to organized boroughs and first class provisions of which "are not inteQded to be self-
cities. AS 29.68.440. executing unless so specified by their terms. All
Some important powers of the Municipality, for provisions which are not self-executing are deemed
purposes of coastal management, include: to. be directive and advisory. Directive and advisory
provisions are intended to establish a continuity of
(1) planning, platting, and zoning (AS 29.33.070 - governmental policy and are to be used as guide-
245); lines for future action of the municipal government.
(2) entering into agreements, including those for The municipality shall, when appropriate, consider
cooperative or joint administration of any func- advisory provisions and shall take positive action
tions or powers with a local government, with toward meeting directives within a reasonable time."
the state, or with the United States AMC 21.05.085.
(AS 29.48.010(4)); A land use classification map illustrates areas best
(3) the power to enforce ordinances and to pre- suited for four types of land use categories: residen-
scribe penalties for violations (AS 20.48.010(8)); tial; commercial; industrial; and public lands and
institutions. While "the functional categories neither
(4) the power to acquire, manage, control, use and affect current zoning regulations nor place addi-
dispose of real and personal property. tional regulations on specific property ... future land
(AS 20.48.010(9)) use decisions such as rezoning, subdivision appro-
(5) the provision of facilities and services, including val and special exception must conform to the indi-
sewer and sewage treatment facilities, marine cated functional categories in theabsence of excep-
facilities, water resource and flood control facil- tional circumstances." AMC 21.05.095(B).
ities, water, recreation facilities, and historic Ultimately, however, "these Comprehensive Plan
preservation (AS 20.48.030); maps must be precisely defined and implemented
through land use regulation oedinances."
(6) the power to regulate, including regulation of AMC 21.05.095(D)).
building and housing codes, water pollution
control, and "othdr powers and functions affect- In addition to land use classification, extensive
ing the general health, safety, well-being and goals and objectives for such uses and activities as
welfare of its inhabitants" (AS 29.48.035); transportation, land use, enviornmental, recreation,
(7) extraterritorial jurisdiction over water supply and economic are stated. AMC 21.05.030 -.080.
and watershed protection (AS 29.48.037); and The Municipality is currently amending the existing
(8) the acquistion or disposition of real property Comprehensive Plan, developed for the Anchorage
(AS 29.48.260). bowl area, by developing Comprehensive Plans for
the Eagle River-Eklutna and Turnagain areas of the
Municipal powers are to be construed liberally, Municipality, which incorporate various elements of
AS 29.48.310, and "unless otherwise limited by law, the coastal management plan. The AMATS and Air
boroughs and cities may exercise all powers and Quality Management Plans will also be used as
functions necessarily implied in or incident to the implementation tools for the Anchorage CZM Plan.
object or purpose of all powers and functions con- C. Zoning. AS 29.33.090; AMC 21.35; 21.40; 21.45;
ferred in this title." AS 29.48.320. 21.50; 21.55.
AMC 2.10 concerns the legislative powers of the The Municipal Comprehensive Plan, in addressing
Municipality , AMC 2.10.010, and sets out those future land use regulations, states that "conven-
actions requiring an ordinance, including "adopt or tional zoning and subdivision regulations, though
amend zoning orsimilar land use control measures' I subject to modification, will continue to serve as the
and amendment of the Anchorage Municipal Code. iegai base for land use regulation. These mecha-
AMC 2.10.020. nisms are established legal tools, defined by exten-
B. Comprehensive Plan. AS 29.33.085; 21 AMC.05. sive application and litigation." AMC 21.05.100.
AS 29.33.085 states: "the assembly (of a borough) The standard for all local zoning is contained in AS
shall adopt a comprehensive plan based on the 29.33.090. This section, in its entirety, provides as
recommendations of the planning commission." follows:
The comprehensive plan is to be "a compilation of Sec. 29.33.090. Zoning. (a) In accordance
policy statements, goals, standards and maps for with the comprehensive plan, the assembly
guiding the physical, social and economic devel-
opment, both private and public, of the borough." shall regulate and restrict the use of land and

155

improvements by districts. Regulations shall (1) restrict or prohibit uses and structures
be uniform for each class or kind of building, which are dangerous to health, safety or
structure, land or water area within each property in times of flood or which cause
district, but the regulations may differ among increased flood heights or velocities;
districts and exceptions may be made in (2) require that uses vulnerable to floods ... be
order to provide for the preservation, provided with flood protection or flood-
maintenance and protection of historic sites, proofing at the time of initial construction:
buildings and monuments. and
(b) zoning regulations adopted under (a) of (3) protect individuals from unknowingly
this section may include, but are not limited purchasing lands which are unsuited for
to, restriction of intended purposes because of flood hazard.
(1) land use; AMC 21.60.010.
(2) building location and use; The regulations prohibit the issuance of a building
(3) the height and size of structures; permit within the flood hazard district unless certain
(4) the number of stories in buildings; requirements are met, AMC 21.60.050(c), and
(5) the percentage of lot which may be require certain uses, structures, or activities within
covered; subdistricts of the flood hazard district to obtain a
(6) the size of open spaces; special flood hazard permit. AMC 21.60.070.
(7) population density and distribution; Conditions, including flood proofing measures, may
(c) Zoning regulations are designed to be attached to the issuance of the permit. Other
(1) provide for orderly development; enumerated uses are prohibited from the "floodway"
(2) lessen street congestion; and "floodway fringe" subdistricts. AMC 21.060.
(3) promote fire safety and public order; E. Subdivision Regulations. AMC 21.75; 21.80;
(4) protect the public health and general 21.85; 21.87.
welfare; The Land Subdivision Regulations of the Municli-
(5) prevent overcrowding; pality of Anchorage "govern *all subdivisions or
(6) stimulate systematic development of resubdivisions which result in the partitioning, di-
transportation, water, sewer, school, viding, combining or altering of any lot, parcel or
park and other public facilities tract or land legally created and filed for recor for
The Municipalityof Anchora:ge hasdivided itself into the purpose, whether immediate or future, of sa e,
27 use districts. For each district, permitted uses lease for more than five years." AMC 21.75.02 (A).
and structures, prohibited uses and structures, and AMC 21.80 contains the minirMUM or maximum
special exceptions are provided. AMC 21.40. These standards for subdivision. (Other standards are
districts are illustrated on the Municipal zoning found in the Official Streets and Highways Plan and
map. Procedures for obtaining variances and special in the Standard Specifications of the Department of
exceptions are contained in AMC 21.15; another Public Works.)
section, AMC 21.50, contains the standards for
special exeptions. Standards contained in AMC 21.80 which are of
The Comprehensive Plan also states, in discussing particular importance in coastal management
future land use regulation, that certain refinements include the following:
to conventional zoning will be considered "to 21.80.120 Lots- E nvi ron mental Design
provide greater flexibility." Refinements include: Lots shall be designed to minimize the effect
(1) performance standards of development in the environment.
(2) contract zoning; 21.80.125 Screening and reserve strips
(3) incentive zoning; Planted strips may be required to be placed
(4) development rights transfer; next to incompatible features such as high-
(5) timed development zoning; ways, railroads, commercial or industrial
(6) special district zoning; uses to screen the view from or provide a
(7) impact zoning; noise or glare buffer for residential propor-
(8) land linkages; and tion.
(9) leasehold development. 21.80.130 Public lands--Provisions for
D. Floodplain Regulations. AMC 21.60 Provisions shall be made for the allocation of
lands for schools, parks, playgrounds, trails
The Municipal floodplain regulations establish a and open space areas where an officially
special type of zoning district not listed in AMC adopted ... plan exists...
d
I
0

21.40 - the flood hazard district. This district 21.80.140 Public lands--Special features
overlays existing zoning districts; the provisions of Special, natural or man-made features of his-
the floodplain regulations "are intended to be in torical significance in a proposed subdivision
addition to all other land use regulations" and to which enhance or have unique value to the

156

community may be set aside in a reserve be authorized under Title 15 of this code." AMC
tract for acquisition or voluntarily dedicated 25.40.010. The lands designated by this section are
to the public. "all of these lands depicted on a Watershed Area
21.80.150 Slope standards--Requirements map designated as exhibit "A" and entitled
The subdivider shall demonstrate to the satis- "Watershed Area of the City of Anchorage" or
faction of the platting authority that the "Watershed District" and attached to and incorpo-
design is specifically adapted to development rated in Ordinance No. 39-65." AMC 15 defines
and that the design takes into account other Watershed Lands as "those lands and waters des-
cribed in Section 25.40.010 of this code," (the zon-
development in the vicinity and features uni- ing section), and makes no reference to AMC 25.40.
que to the specific parcel of land proposed
for subdivision. AMC 15.65.020 regulates sewage disposal systems
21.80.180 Unsuitable sites in watershed areas.
In cases where existing lots, tracts or parcels G. Tidelands Regulations. AMC 25.50
are of a shape, size, or condition which rend- Except as otherwise provided herein, the
ers subdivision of the property in conflict municipality, by virtue of AS 38.05.300 et
with the purposes of these standards as set seq., and Tidelands Patent No. 10 issued
forth in Section 21.75.015, the platting December 22, 1961, recorded in Vol. 234,
authority may reject a subdivision application pages 62 and 63 of Anchorage Recording
in its entirety. Precinct, and any other patents hereafter
Enforcement of these standards is through platting issued to it, reserves and has succeeded to
authority approval of subdivision plats. Proposed all right, title and interest of the State of
subdividers must file detailed applications with the Alaska in tide and submerged lands lying
authority, including contour, water location and seaward of the city, including lands,
quality, vegetative cover, and soil information. Pub- improvements, reclaimed lands or natural
lic notice and hearing are required priorto action by resources in all lands permanently or period-
the platting authority. AMC 21.15.100-125. Abbre- ically covered by tidal waters up to the line of
viated plat procedures wherethe subdivision "is of a mean high tide and seaward to the Director's
simple nature" are found at AMC 21.15.125. Public Line as defined in said Tidelands Patent No.
notice of application for abbreviated plat approval is 10 or on any succeeding patents, provided,
required, but public hearing is not required. AMC however, that those lands and rights therein
21.15.100. lawfully vested in others by Acts of congress
F. Watershed regulation. AMC 21.40.230; AMC 15.50; prior to January 3, 1959, shall not be
AMC 25.40; AMC 15.65.020(D). infringed upon, and provided further, that
title to natural resources therein shall be
The "W" or Watershed district is established as a reserved to the State of Alaska until such
zoning district "to preserve and protect the potable time as the state may convey such title to the
water reserves available to Anchorage in the Chu-, municipality. AMC 25.50.310.
gach Range east of the metropolitan area." AMC "City" is defined as "thearea formerly comprised by
21.40.230. The section lists permitted uses, prohi- the City of Anchorage, Alaska." AMC 25.50.116.
bited uses, and special exceptions, but requires
both permitted uses and special exceptions to The Municipal Assembly, upon recommendation
complywith the provisionsof AMC 15.50, Watershed from the Municipal Port Commission, may sell,
District Regulations. This section lists certain acts grant, lease, or otherwise dispose of municipal tide-
which are prohibited in the Watershed district lands and contiguous submerged lands "as well as
except upon a permitfrom the Departmentof Health any material therefrom." AMC 25.50.322. Public
and Environmental Protection (DHEP). The condi- notice is required@ protests may be filed within 30
tions for issuance of a permit include: days of notice. Id.
(1) that the act "not contaminate, interrupt, Leases or permits for the use of municipal owned
interfere with or injure the watershed district tidelands may begranted "when in the best interests
and water supply;" of the municipality,'' AMC 25.50.510, and the
(2) that the act is in compliance with all appli- Assembly "shall give such preference to the use of
cable DHEP and State Department of Envi- the land as will be of greatest economic benefit to
ornmental Conservation regulations; and the municipality." AMC 21 @50.530.
Although the Planning Commission and Port Com-
(3) that the use is permitted under the applica- mission must approve or disapprove an application
ble zoning section. AMC 15.50.030. for tidelands permit, the Assembly "may, with or
AMC 25.40, Watershed Lands, states that "no per- without a public hearing, grant or reject the
son shall enter upon or do any act or commit any requested permit." AMC 25.5.540. Permits may be
omission adversely affecting municipal watershed issued foruptofiveyears, renewable at the action of
lands, as designated in this chapter, except as may the Assembly. AMC 25.50-550.

157

Leases and sale or disposal of Municipally owned Municipal selections are developed through a"joint
tidelands are conducted in accordance with the consideration" process between the municipality
Municipal Charter, AMC 7.20 (real property leas- and the state. This process is to identify state and
ing),andAMC7.18 (sale or disposal of real property). municipal interests in the land. State interests
Restrictions on the use of Municipally owned tide- include those of greater than local concern, includ-
lands include protection of waters important to ing environmental, resource, transportation, and
anadromous fish, under AS 16.05.870, hering spawn- recreation concerns. Municipal interest include resi-
ing convenants, AS 16.60.160, the reservation of dential, industrial, and commercial concerns and
mineral rights to the Municipality or the State, AMC those matters which are the responsibility of local
government. In reviewing a municipal selection,
25.50.316, federal lands, AMC 25.50.320, and permit ,land considered appropriate for municipal selec-
preferences for upland owners, AMC 25.50.530. tion is land that is suitable and appropriate for an
In addition, waste or injury to these lands is unlaw- identifiable present or future municipal use or for
ful. AMC 25.50.330. disposal to private use bythe municipality by sale or
H. Wastewater Disposal AMC 15.65 other means." AS 29.18.205(g).
This chapter establishes standards for the disposal The state retains mineral and oil and gas rights
of wastewater in the Municipality. "Wastewater" is under the land conveyed.
defined as "sewage, waterborne industrial waste, "When the interests of the state may be protected
laundry liquid effluent, showeror sink wateror other through conveyance of title that is less than a fee
wastes that are waterborne." AMC 15.65.010. Sev- title, the municipality, at its option, may accept the
eral types of permits are established, administered title..." AS 29.18.205(9). This provision makes pos-
by the Department of Health and Environmental sible the attachment of conditions on use to the
Protection, including: conveyance. The State also will retain easements
(1) wastewater disposal design permits, AMC along public waterways.
15.65.120; M. Land Trust Fund. AMC 25.70.
(2) manufacturer's and excavator's permits, AMC The land trustfund, administered bytheAnchorage
15.65.130; and Land Trust Fund Council, manages land acquired
(3) wastewater pumping, transportation, and dis- by the Municipality after June, 1975 (including land
posal permits; AMC 15.65.140. to be selected from the State) and much of the land
acquired by the Municipality beforeJune, 1975. The
Regulated methods of wastewater disposal include Council acts as trustee for the Municipality with
connection to sanitary sewer systems, water-carried respect to these lands.
sewage disposal systems, septic tanks, subsurface It is the general policy of the Municipality not to sell
disposal fields, seepage pits, cesspools, holding these lands. Sale may be accomplished only if the
tanks and earth privies. Council determines that it would be "consistent with
1. Selection of State Lands. AS 29.18.201, 213. the public interest," and three-fourths of the Coun-
The Municipal Land Entitlement Act of 1978, ch. 180 cil approves. AMC 25.70.040.
SLA 1978, provides for the transfer of land from The preferred method of managing these lands is by
state to municipal ownership. The Municipality of leasing them. "Land trust fund lands shall be leased
Anchorage is entitled to 44,893 acres. AS 29.18.201. for purposes consistent with compatible interim
Lands which may be transferred must be "vacant, uses or planned ultimate uses of such lands, and in
unappropriated, and unreserved;" this means "land conformance with existing zoning." Leases, upon
patented or tentatively approved to the state from certain conditions, may be madeto Municipal depart-
the United States under � 6 (a) or (b) of the Alaska ments, other units of government, nonprofit corpo-
Statehood Act," AS 29.18.213, which rations, and private parties. AMC 25.70.070.
(A) has not been set aside by statute for one or more AMC 25.70.080 concerns the use of surface or sub-
particular uses or purposes; surface resources on these lands. Extraction or
removal of resources requires a use permit granted
(B) has not been approved for patent to a municipal- by the Assembly upon Land Trust Fund Council
ity; or recommendation. The use must be consistent with
(C) is unclassified, or, if classified under AS 38.05.30, the ultimate planned use of the land, or determined
is classified for agriculture, grazing, commer- by the Assembly upon recommendation by the
cial, industrial, private recreational, residential, Planning Commission. Provisions for detailed plan
utility, or open-to-entry purposes. AS submittal and bonding are also provided.
29.18.213(12). "Use of land trust fund lands for interim purposes
After July 1, 1978, classification of large tracts which do not result in extraction or removal of
within a municipality by the state requires notifica- resources orother irrevocable commitments of land
tion of the municipality and allows the municipality shall generally be compatible with and shall not
to object. AS 29.18.205(d). delay the ultimate planned use or development of

158

such lands." Permits for such uses may be granted One matter currently being explored by the Com
on such terms "...which sufficiently protects the mission is the establishment of a historic district
public interest and the public values of such lands." under State law. AS 29.48.108 - 29.48.110 allows
AMC 25.70.080(D). local governments to form historical district com-
The Assembly mustapprove anysale, lease, permit, missions which, in turn, may establish "historical
exchange, or management agreement concerning districts" within the boundaries of the Municipality.
Municipal trust fund lands. AMC 25.70.110. Historical districts are "relatively compact areas of
historical significance in which two or more struc-
N. Historic Preservation. AMC 4.60.030; AS tures important in State or national history and in
29.48.108 - 29.48.110; AS 45.98. close proximity or historical association are
The Anchorage Historical Landmarks Preservation located." Establishment of a historical district makes
Commission was established in 1975 to, inter alia, a Municipality, or a person or business eligible for a
recommend to the Assembly buildings and areas to low-interest (61/2 percent) loan from the Department
be designated historical landmarks, "provided there of Commerce and Economic Development's histor-
is ownership approval," and to advise the Mayor, the ical district revolving loan fund for the purpose of
Assembly, the Planning and Zoning Commission, restoration, improvement, rehabilitation or mainte-
and other Municipal agencies about historic preser- nance of historic structures within the district. AS
vation. Recently, the Commission published a 45.98. Historical districts are established in consul-
Municipality-wide survey of arch itectu ral-h istory tation with the State Historic Sites Advisory
sites (Planning Department, January, 1979). Committee.

159

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160 1

APPENDIX B

MEMORANDUM OF UNDERSTANDING

between the

MUNICIPALITY OF ANCHORAGE

and the

DIVISION OF POLICY DEVELOPMENT AND PLANNING

implementing the
OMB CIRCULAR A-95 (as revised)

and

SECTION 307 of the
COASTAL ZONE MANAGEMENT ACT of 1972 (as amended)

161

The Municipality of Anchorage (MOA) and the Div- posed to occur exclusively within the
ision of Policy Development and Planning (DPDP), MOA boundaries. The MOA will distrib-
Office of the Governor, State of Alaska wish to ute those plans, policies, and environ-
establish procedures for coordinating plans and mental assessments provided by federal
programs at federal, state, areawide, and local lev- agencies on such activities to the
els. appropriate state, areawide, and local
The authority to enter into this Memorandum of governments. The subsequent review will
Understanding is based upon the Office of Man- focus on the relationship of the propos-
agement and Budget (OMB) Circular A-95, Parts I als to state, areawide, and local plans and
and 11 (as revised on January 2, 1976) and upon programs and upon potential environ-
Section 307 of the Coastal Zone Management Act of mental effects. the MOA, in addition, will
1972, as amended (P.L. 92-583 and P.L. 94-370) and provide a copy of proposals which may
the regulations published pursuant to 307 of the impact state plans, programs, and poli-
Federal Act (15 CFR 930). cies along with their corresponding dis-
tribution lists to DPDP. DPDP will retain
The purpose of this agreement is to coordinate the the option of circulating such proposals
state and Municipality of Anchorage review of pro- to reviewers not included on MOA's dis_
posed federal activities which may affect the plans tribution lists.
and programs of both the state and the MOA. The
notification and review process described in the (2) Request DPDP to comment on federal
OMB CircularA-95 facilitate required federal agency proposals distributed by the MOA accord-
consultation with the Governor, state and areawide ing to the following time frames:
clearinghouses, and local elected officials to assure (a) at the earliest practicable time not to
that proposed federal programs, project and uses of exceed 25 days after date on cover letter
federal lands and resources (subject to coverage in for a notification of intent by an applicant
paragraph 3, OMB Circular A-95) are, to the maxi- applying for federal assistance.
mum extent possible, consistent with local, area-
wide and state plans. This Memorandum of Under- (b) at the earliest practicable time not to
standing outlines the procedures to be used to exceed 25 days after date on cover letter
coordinate the state and MOA review process under for a completed application that has been
the OMB Circular A-95. The process will also pro- preceded by a notification of intent from
vide for the coordinated review of the proposed fed- an applicant applying for federal assist-
eral activities subject to the consistency require- ance. If a completed application is sub-
ments of the Coastal Zone Management Act of 1972, mitted to the MOA during the first 25 days
as amended, and which may also affect the MOA. after a notification of intent has been
It is Mutually Assumed That: submitted, DPDP will have 25 days plus
(1) Both DPDP and the MOA are interested in the the number of days remaining in the
appropriate and timely exchange of information, initial 25-day notification period to com-
evaluation, and review of proposed federal activ- plete its review.
ities subject to coverage under the OMB Circu- (c) at the earliest practicable time not to
lar A-95 which may affect the plans, programs, exceed 50 days after date on cover letter
and policies of state, areawide, and local agen- for a completed application that has not
cies; and, been preceded by a notification of intent
(2) Both DPDP and the MOA are interested in avoid- from an applicant applying for federal
ing duplication of effort in their respective clear- assistance.
inghouse review processes; and,
(3) Both DPDP and the MOA are interested in (d) at the earliest practicable time not to
implementing the Alaska Coastal Management exceed 50 days after date on cover letter
Act (AS 46.40), which provides for the coordi- fora notification of intent accompanying
nated and rational use of coastal resources. a comprehensive description of a pro-
THE FOLLOWING PROCEDURES WILL BE posed direct federal activity or develop-
EMPLOYED: ment project.
1. In Relation to OMB Circular A-95: (3) Serve to facilitate communication, and, if
A. THE MUNICIPALITY OF ANCHORAGE necessary, attempt resolution of differ-
AGREES TO DO THE FOLLOWING: ences between the federal agency (@nd
applicant, if appropriate) contemplating
(1) Assume primary responsibility for coor- a proposed federal activity tooccurexclu-
dinating the state, arewide, and local sively within MOA boundaries and the
government review of proposed federal state, areawide, and local agencies that
activities, subject to OMB Circular A-95 have plans, policies, or projects which
coverage, when such activities are pro- may be affected by the proposed activity.

162

(4) Provide DPDP with the final MOA (2) Allow the MOA to comment on federal
response to federal proposals when such proposals distributed by DPDP accord-
response contains substantive DPDP ing to the following time frames:
comments. (a) at the earliest practicable time not to
(5) Provide DPDP with the federal agency exceed 25 days after'date on cover letter
response to the comments generated by for a notification of intent by an appli-
the MOA review when such a review cant applying for federal assistance.
contains substantive DPDP comments. (b) at the earliest practicable time not to
(6) In the event that DPDP is the primary exceed 25 days after date on cover letter
coordinator of the state, areawide, and for a completed application that has
local review of federal proposals and been preceeded by a notification of
requests MOA review of such proposals, intent from an applicant applying for
the MOA will provide DPDP with infor- federal assistance. If a completed appli-
mation on the consistency and relation- cation is submitted to the MOA during
ship of proposed federal activities to thd first 25 days after a notification of
areawide and local plans, policies, and intent has been submitted, DPDP will
programs, according to the time frames have 25 days plus the number of days
prescribed by DPDP. remaining in the initial 25-day notifica-
(7) In the event that DPDP is the primary tion period to complete its review.
coordinator of the state, areawide, and (c) at the earliest practicable time not to
local review of federal proposals and exceed 50 days after date on cover letter
written MOA comments on such propos- for a completed application that has not
als will likely arrive after the review dead- been preceeded by a notification of
line, the MOA will trasmit substantive intent from an applicant applying for
comments to DPDP verbally or request federal assistance.
an extension. (d) at the earliest practicable time not to
(8) Should the MOA be unable to attend a exceed 50 days after date on cover letter
meeting of mutual interest to both the for a notification of intent accompany-
MOA and DPDP as it relates to the ing a comprehensive description of a
review of federal proposals subject to proposed direct federal activity or
coverage under the OMB Circular A-95, development project.
it may request DPDP to represent its (3) Serve to facilitate communication, and if
concerns on a case-by-case basis. necessary, attempt resolution of differ-
B. THE DIVISION OF POLICY DEVELOPMENT ences between the federal agency (and
AND PLANNING AGREES TO DO THE FOL- applicant, if appropriate) contemplating
LOWING: a proposed federal activity and the state,
(1) Assume primary responsibility for coor- areawide, and local agencies that have
dinating the state, areawide, and local plans, policies. or projects which may be
government review of proposed federal affected by the proposed activity.
activities, subject ot OMB Circular A-95 (4) Provide the MOA with the final DPDP
coverage, when such proposed activi- response to federal proposals when such
ties may affect the MOA but do not a response contains substantive MOA
occur exclusively within the boundaries comments.
of the MOA. DPDP will distribute those (5) Provide the MOA with the federal agency
plans, policies, and environmental response to the comments generated by
assessments provided by federal agen- the DPDP review when such a review
cies on such activities to the appropriate contains substantive MOA comments.
state, areawide, and local governments. (6) In the event that the MOA is the primary
The subsequent review will focus on the coordinator of the state, areawide, and
relationship of the proposals to state, local review of federal proposals and
areawide, and local plans and programs requests DPDP review of such propos-
and upon potential environmental als, DPDP will provide the MOA with
effects. DPDP. in addition. will provide a information on the consistency and rela-
copy of proposals which may affect the tionship of proposed federal activities to
MOA along with their corresponding state and areawide plans, policies, and
distribution lists to the MOA. The MOA programs, according to time frames
will retain the option of circulating such prescribed by the MOA.
proposals to reviewers not included on (7) In the event that the MOA is the primary
DPDP's distribution lists. coordinator of the state, areawide, and

163

local review of federal proposals and for direct federal ac tivitiesIdevelop men t
written DPDP comments on such pro- projects.
posals will likely arrive after the review (b) at the earliest possible time not to
deadline, DPDP will transmit substantive exceed 30 days after date on cover letter
comments tothe MOA verbally or request for federal license and permit activities.
an extension.
(8) Should DPDP be unabletoattend a meet- (c) at the earliest possible time not to
ing of mutual interest to both DPDP and exceed 30 days after date on cover letter
the MCA as it relates to the review of for federal license and permit activities
federal proposals subject to coverage described in detail in Outer Continental
under the OMB Circular A-95, it may Shelf (OCS) plans.
request the MOA to represent its con- (d) at the earliest possible time not to
cerns on a case-by-case basis. exceed 30 days after date on cover letter
It. In Relation to the Alaska Coastal Management for review of federal ly-assisted projects.
Program: Time may be shortened or lengthened by
A. THE MUNICIPALITY OF ANCHORAGE mutual agreement.
AGREES TO DO THE FOLLOWING: (3) Consider the MOA comments and
(1) Upon receiving from DPDP a statement recommendations on the relationship of
on the consistency of a proposed federal proposed federal activities to the MOA
activity or action with the ACMP to be coastal management district plan in DPDP's
conducted in the MOA, the MOA will consistency finding.
conduct and coordinate the areawide (4) Upon realizing that DPDPwill likely issue
and local government review of the pro- a consistency finding contrary to MOA's recom -
posed federal activity or action. Such menclation, DPDP will initiate discussions
review will focus on the consistency of with the MCA in order to resolve
the proposed activity or action with the any serious disagreements. If necessary,
MOA's district coastal management plan DPDP will request a time extension for
contained in the ACMP and will be con- review from the federal agency to facili-
ducted within thetimeframes prescribed tate such discussion with the MCA.
by DPDP. In addition if the MOA finds a (5) Provide the MOA with the option of join-
proposed activity to be controversial dur- ing in the informal and formal mediation
ing the course of the MOA's consistency procedures between DPDP and a federal
review, the MOA may request DPDP to agency in the event that DPDP and a
hold a public hearing in Anchorage. federal agency have serious disagree,
(2) In the event that the MCA determines a ment concerning the consistency of a
federal proposal is inconsistent with the proposed federal activity with the ACMP,
MOA's district coastal management plan, and the MCA supports DPDP's position.
the MCA will respond to DPDP describ- It is Mutually Agreed That:
ing (1) how the proposed activity will be (1) Failure to provide comments on proposed
inconsistent with specific elements of federal activities within the appropriate
the district coastal management pro- time periods above implies tacit agree-
gram, and (2) alternative measures (if ment with those proposed activities,
they exist) which, if adopted by the fed- unless a time extension is mutually
eral agency, would allow the activity to agreed upon or additional information at
proceed in a manner consistent to the a later date substantially changes the
maximum extent, practicable with the impact of the proposed activities.
district coastal management program.
B. THE DIVISION OF POLICY DEVELOPMENT (2) In the course of a joint review, if either
DPDP or MCA is of the opinion that the
AND PLANNING AGREES TO DO THE FOL- comments generated by a joint review warrant
LOWING: objection or intervention by the lead
(1) Provide the MCA with a copy of any fed- party in the review and there is not
eral proposals requiring a consistency agreement between DPDP and MCA as
finding with the ACMP (Alaska Coastal to the course of action that should I
Management Program) and which occur taken, the party requesting official action
in the Anchorage, Mat-Su, or Kenai will have the option of operating as an
Peninsula boroughs. independent clearinghouse and may
(2) Request the MOA to comment on federal pursue the course it deems appropriate.
proposals distributed by DPDP accord- (3) Time periods may be shortened or
ing to the following time frames: extended by mutual agreement.
(4) This agreement will be reviewed annually
(a) at the earliest possible time not to or as required to determine the adequacy
exceed 30 days after date on cover letter of the review process.

164

(5) Nothing herein will be construed as obli-
gating the MOA or DPDP to violate exist-
ing laws or regulations.
(6) The agreement will become effective on
as evidence by the signa
tures below. This agreement will remain
in effect until revised in writing or until 30
days after notice of termination.

THIS AGREEMENT WAS REVIEWED AND REAFFIRMED BY THE PARTIES SHOWN BELOW:

Division of Policy Development Municipality of Anchorage
and Planning
Frances A. Ulmer

Office of the Governor Municipality of Anchorage
Division of Policy Development
and Planning
State of Alaska

By: By:
Date: Date:

165

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I APPENDIX C
DOCUMENTATION
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1 167

INTRODUCTION matters by collecting, processing and disseminat-
ing pertinent information relating thereto. This MOA
The coastal resources of the Municipality of Anchor- provides the opportunity to coordinate and assist
age have values and interrelationships that trans- State and local government activities in the coastal
cend Municipal boundaries, and are of regional, zone. The draft of the MOA is contained in Appendix
State and in some cases national significance. While B.
the Alaska Coastal Management Act and the Guide- The Planning Department Coastal Management
lines and Standards promulgated under the Act staff has held the following meetings and work-
require preparation and implementation of local shops.
coastal management programs by district organiza-
tions, the Act and the Guidelines and Standards are 1 .January 29, 1979, Planning and Zoning Com-
clear in their intent that both development and ensu- mission public work session.
ing implementation will be accomplished utilizing
and employing the expertise, authorities and 2. February 3, 1979, public workshop.
responsibilities of the appropriate local, State and 3. Department of Interior agencies through Mr.
Federal governmental agencies. Paul Gates, Regional Environmental Officer.
Given this, the Municipality of Anchorage intends to 4. February 14, 1979, Environmental Law Com-
act as the lead agency in implementation of the mittee of the Alaska Bar Association.
policies, recommended actions, AMSA's, and regu-
lations of Anchorage Coastal Management Pro- 5. Anchorage Board of Realtors
gram. Coordination with Stateand Federal agencies 6. March 12, 1979, Planning and Zoning Com-
having jurisdiction or authority with respect to par- mission public work session.
ticular coastal resources is inherent in the regula- 7. March 15, 1979, Planning and Zoning Com-
tory system of the district program, and review of mission public work session.
applications for proposed developments, uses or
activities that may cause direct and significant 8. April 2,1979, Planning and Zoning Commission
impact on these resources will be closely coordi- public work session
nated with the appropriate agency or agencies. 9. April 3,1979, Planning and Zoning Commission
State and Federal agencies contemplating devel- public work session.
opment, projects, uses or activities on land or 10. April 23, 1979, Planning and Zoning Commis-
waters within the Anchorage coastal area will sim- sion public work session.
ilarly be expected to cooperate and coordinate
closely with the Municipality so that consistency of During the development phase of both the Turna-
goals, objectives, policies, ordinances and regula- gain Arm Comprehensive Land Use Plan and the
tions of the Anchorage Coastal Management Plan Eagle River Comprehensive Land Use Plan the var-
can be assured. ious elements of the Anchorage coastal manage-
ment program were explained at public meetings
The Municipality, as lead agency responsible for and incorporated into the land use plans. Copies of
implementation, has authority to regulate land use both plans are available at the Planning Depart-
under Alaska Statute AS 29.33.070 through ment.
29.33.245. The coastal management program will be
implemented utilizing the authorities under the On September 28,1978, a meeting was held with the
above referenced statute. Kenai Peninsula Borough and the Matanuska-
The program coordination requirements contained Susitna Borough to discuss common coastal man-
in the Act serve only to reinforcethe on-going coor- agement issues with particular emphasis on man-
dination effort between the Municipality of Anchor- agement boundaries. Prior to public hearings with
age and the State. A Memorandum of Understand- the Anchorage Assembly, additional meetings will
ing (MOA) between the Municipality and the State be held with each borough tofinalize discussions on
of Alaska, Division of Policy Development and management boundaries.
Planning, implementing the OMB Circular A-95 sets Samples of the above referenced public participa-
forth aclearing service be provided forcoastal zone tion efforts are contained in the following pages.

168

Public Workshop on Anchorage
Coastal Management Program

February 3, 1979
Agenda

I. Welcome and Purpose of Meeting
9:00 - 9:15

II. The Anchorage Coastal Zone - A Slide Presentation
9:15 - 9:45

III. Elements of the Alaska Coastal Management Act
9:45 - 10:15

IV. Development of the Anchorage District Plan
10:15 - 11:30

1. Steps taken to Meet the Requirements of the Act
2. The Planning Process
3. Review of Coastal Resource Maps
4. Discussion of Identifying the Management Boundary
5. Identifying Permitted Uses
6. Areas Meriting Special Attention
7. Discussion of Various Implemention Methods

V. Lunch Break
11:30 - 12:45

VI. Answer and Question Session, Public Input
12:45 - 2:00

169

MUNICIPALITY ADVERTISING TRANSMITTAL SHEET

Originaror Originating Dept.

Budget Account No.

Date Originated Z-

Date Required for Publication
Subject Matter @Lkl%-XA4 , wa-kA-,-L@- _CtIzUbL9 PL0L1-y11(1V-k1

Proof of Publication Required Yes No

Received Date
Time

Published Date

Proof of Publication Provided on Date

170

NOTICE OF OPPORTUNITY TO PARTICIPATE IN THE ANCHORAGE
COASTAL RESOURCE DISTRICT PROGRAM

ON SATURDAY, FEBRUARY 3RD,FROM 9:00 A.M. TO 2:00 P.M. AT
THE ANCHORAGE HISTORICAL FINE ARTS MUSEUM, 121 W. 7TH AVE.,
THE COASTAL MANAGEMENT PLANNING STAFF OF THE MUNICIPAL PLAN-

NING DEPARTMENT WILL CONDUCT A PUBLIC WORKSHOP TO: (1)

PRESENT THE STATUS OF THE ANCHORAGE COASTAL RESOURCE
DISTRICT PROGRAM; (2) SOLICIT PUBLIC C0MMENT AND INPUT
ON ALL ELEMENTS OF THE PROGRAM,AND (3) PROVIDE AN

OPPORTUNITY FOR ALL INTERESTED PARTIES TO PARTICIPATE IN THE
PROGRAM AND ITS DEVELOPMENT. ADVANCE COPIES OF THE DRAFT

DOCUMENT WILL BE AVAILABLE STARTING JANUARY 29TH AT THE
CITY HALL ANNEX, 650 W. 5TH AVENUE AT THE INFORMATION

COUNTER.

171

POUCH 6-650
A
'110r' KA 99502
N' 3AGE, ALASt
(907) 274-2525

GEORGE M. SULL VIAM,
MA YOR
Anclaor&@

September 6. 1978 PLANNING DEPARTMENT
Mayor Don Gilman
Kenai Peninsula Borough
Box 850
Soldotna, Alaska 99669

Re: Request for Meeting on CZM

Dear Mayor Gilman:

On behalf of Dr. Lidia Selkregg, I would like to request a meeting with
you and Mayor Larson, and members of your planning staffs concerning the
subject of coastal zone management. The purpose of the meeting will
basically be twofold: to acquaint you and your staffs with Anchorage's
district CZM program development, and to identify major topics of concern
to be dealt with by the Alaska Coastal Policy Council.

As you are aware, the Anchorage Municipal Planning Department has been
engaged in developing a district coastal management pro-ram for over a
0
year now. We have developed a complete inventory, established a basic
framework and methodology, and are now addressing specific components of
the program that will deal with management and implementation. Such
components are management boundaries, criteria for designating areas
meriting special attention, and municipal management network for imple-
mentation of the district program. We would like to give Mayor Larson,
yourself, and your staffs a presentation of our program development to
date. It may benefit you with ideas for your program development, and
it may benefit us to get a response from fellow local governments who
C,
may see problems or opportunities that are not apparent to us.

The Alaska Coastal Policy Council will again be meeting regularly to
address a number of significant issues that will need to be resolved,
not least of which will be the effectivenesi of regional planning and
state agency compliance with local district programs. Other issues to
be addressed this fall will include:

Uses of State Concern
Availability of state agency plans, studies, and assistance
305 approval and its implications for district funding for
1979
Revisions to the Guidelines and Standards

It may be useful for the local governments of Cook Inlet to obtain a
0
common understanding of problems that we, as individual districts, may
have with the issues; and concerns that as a group, we can prepare to
CP
deal with at meetings of the Coastal Policy Council.

172

I would like to suggest Thursday, September 28 as a meeting date. That
would be one week before the next scheduled meeting of the Alaska Coastal
Policy Council, which is to be held on October 5-6. For optimum conve-
nience to all parties, I would also suggest that we meet in Anchorage,
although if that is inconvenient to Mayor Larson's or your schedule, we
would be more than willing to meet in Soldotna or Palmer.

Please let me know if you feel such a meeting will be appropriate at
this time, and also, if the suggested date and location are okay. I
will then finalize the necessary arrangements and inform you of them.

I look forward to hearing from you.

Best regards,
A@I
Tom Nelson

TN:mw

cc: Mayor Ron Larson, Matanuska-Susitna Borough

173

-UCH 6-6.50
PO
ANCHORAGE, ALASKA 99502.
@Unlclpallty
(907) 274-2525
Y
cl

i GEORGE MA SULLIVAN,
An cnor&@?, hfA YOR
:MP

September 6, 1978 PLANNING DEPARTMENT

Mayor Ron Larson
,Nfatanuska-Susitna Borough
P.O. Box B
Palmer, Alaska 99645

Re: Request for Meeting on CZM

Dear Mayor Larson:

On behalf of Dr. Lidia Selkregg, I would like to request a meeting with
.you and Mayor Gilman, and members of your planning staffs concerning the
subject of coastal zone management. The purpose of the meeting will
basically be twofold: to acquaint you and your staffs with Anchorage's
district CZM program development, and to identify major topics of concern
to be dealt with by the Alaska Coastal Policy Council.

As you are aware, the Anchorage Municipal Planning Department has been
engaged in developing a district coastal management program for over a
year now. We have developed a complete inventory, established a basic
framework and methodology, and are now addressing specific components of
the program that will deal with management and implementation. Such
components are management boundaries, criteria for designating areas
meriting special attention, and municipal management network for imple-
mentation of the district program. We would like to give Mayor Gilman,
yourself, and your staffs a presentation of our program development to
date. It may benefit you with ideas for your program development, and
it may benefit us to get a response from fellow local governments who
may see problems or opportunities that are not apparent to us.

The Alaska Coastal Policy Council will again be meeting regularly to
address a number of significant issues thatwill need to be resolved,
not least of which will be the effectiveness of regional planning and
state agency compliance with local district programs. Other issues to
be addressed this fall will include:

Uses of State Concern
Availability of state agency plans, studies, and assistance
305 approval and its implications for district funding for
1979
Revisions to the Guidelines and Standards

It may be useful for the local governments of Cook Inlet to obtain a
common understanding of problems that we, as individual districts, nmy
have with the issues; and concerns that as a group, we can prepare to
deal with at meetings of the Coastal Policy Council.

174

I would like to sugges, 11,ursday, September If, as a meeting dalo, Tha I
would be one week before the next scheduled meeting ol the Alaska Coastal
Policy Council, which is to be field on October 5-6. For optimum conve-
nience to all parties, I would also suggest that we meet in Anchorage,
although if that is inconvenient to Mayor Gilman's or your schedule, we
would be more than willing to meet in Soldotna or Palmer.

Please let me know il you feel such a meeting will be appropriate at
this timeV and also, if the suggested date and location are okay. I
will then finalize the necessary arrangements and inform you of them.

I look forward to hearing from you.

Best regards

T@om Nelson

TN:mw

cc: Mayor Don Cilman, Kenai Peninsula Borough

175

MUN1(JPAL11'Y OF ANCHORAGE
PLANNI,I'ING AND ZONING C0124ISSION

A G E N D A

Municipality of Anchorage
Administration Building
3500 East Tudor Road
7:30 P.M.

March 12, 1979

Roll Call

2. UnfinLshcd Business Eagle River Comprehensive Plan: Public Hearing
Continued.

A. Eagle River - Eklutna Comprehensive Plan. The Comprehensive Plan
Area covers that portion of the Municipality of Anchorage north of
Fort Richardson Military Reservation from the Eagle River Valley
(including the South Fork) to the Knik River.

B. Amendments to-R-0 zone.

3. New Business

A. School District Warehouse Site Selection: Discussion and Action

B. Remote Sensing Plan-of-Study

C. Coastal Zone Management: Review

1). State Land Selection Process

4. Site Plan Review - None

5. Reports

A. Planning Director
C@
B. Chairman
C. Committee

6. Minutes

7. Persons to be heard

8. Commissioner's Comments

176

MUNICIPALITY OF ANCHORAGE
PLANNING AND ZONING CONZ1MISSION

A G E N D A

Municipality of Anchorage
Administration Building
3500 East Tudor Road

March 29, 1979

7:30 P.M.

1. Roll Call

2. Unfinished Business - None

3. New Business

Water Quality Management Plan. The Water Quality Management Plan
contains recommendations for the prevention and control of non-
point source water pollutions, and is designed to fulfill the 1982
Federal "fishable, swimmable" goal for major water bodies.

4. Other

A. Space Facilities Study Discussion

B. Coastal Zone Management Discussion

5. Appearance Request - None

6. Site Plan Review - None

7. Reports

a. Planning Director
b. Chairman
c. Committee

8. Minutes

9. Persons to be heard

10. Commissioner's Comments

177

MUNICIPALITY OF ANCHORME
PLANNING AND ZONING COMMISSION

ADDENDUM TO AGENDA

Municipality of Anchorage
Administration Building
3500 East Tudor Road

April 2, 1979

7:30 P.M.

1. Roll Call

2. Old Business-None

3. New Business

P79-13 Request by Edmund Ryan and Others for a change of zone classification
for a portion of Section 31-T15m-R1W; containing approximately 30
Acres situated along the west side of Fire Lake, from R-2 (Two-
Family Residential District) to R-6 (Suburban Residential District-
Large lot. (Chugiak Community Council)

P78-74-A1 Request by H.S. Scurlock & Associates representing Barry,
Christine and Bev Shenum and Gordon Jenkins for a change

of zone classification for a portion of Section 8-T12m-R3W
containing approximately 4 acres; situated southwest of Dimond
Blvd. and Erin Street (between Hartzell Road and the Seward
Highway) from R-2 (Two-Family residential District) to I-1.
(Light-Industrial District). (Abbott Loop Community Council)

P79-21 Request by Donald B. Hoff for a change of zone classification for
a portion of Section 20-T12N-R3W; containing approximately 11 acres;
situated at the soutbeast corner of O'Malley Road and, the. Seward
Highway.frontage road from R-6 (Suburban Residential District-
Large Lot) to B-3 (General and Strip Commercial Business District)
(Huffman-O' Malley Community Council)

P79-26 Request by Croup Three design representing Ravensbruch Developments

for Concept Approval of a Conditional Use to allow, a Planned unit
Development in the R-2A. (Two-Family Residental District) and R-3
(Multiple-Family Residental District) zone in a portion of Section

14-T13N-P3W; containing approximately 37 acres; situated along the
west side of Tutpin Street between E. 2nd and E. 6th Avenue. (North-
east Community Council)

178

Pago 2 - Agenda - April 2, 1979 - Planning and Zoning Commission

4. Other

A. Appearance Request:

Z-429 Plaza 36 Mobile Home Park - Landscaping Extension Requested

B. Coastal Zone Management - Work Session

C. Site Plan Review - None

D. Reports

1. Planning Director
2. Chairman
3. Committee

5. Minutes

6. Persons to be heard

7. Comissioner's Comments

179

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