Tulalip Reservation coastal management program

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

TULALIP RESERVATION
COASTAL MANAGEMENT PROGRAM,

DRAFT

for: Puget Sound Association of
Cooperating Tribes

by: The LaTourelle Associates

DRAFT

TULALIP RESERVATION COASTAL MANAGEMENT PROGRAM

Prepared for:

Puget Sound Association of Cooperating Tribes

Prepared by:

THE LA TOURELLE ASSOCIATES

Planning & Environmental Design
808 Terminal Sales Building
Seattle, WA 98101 682-8087

The preparation of this report was financially aided
through a grant from the Washington State Department
of Ecology with funds obtained from the National
Oceanic and Atmospheric Administration, and
appropriated for Section 306 of the Coastal Zone
Cl< Management Act of 1972.
r<

CC)

F 0 R W A R D

This plan addresses the reouirements of the Coastal Zone
Management Act of 1972 (PL 92-583) The document is divided
in two parts: First is a description of the Reservation and
the coastal resources; and second is the management program.
The Reservation description is a summary of the Physical and
cultural characteristics of the Reservation with special em-
phasis on the marine and wetland environments.
The second part of the Coastal Area Plan focuses on the
goals, policies and objectives of the Tribes in its management
of coastal area resources. 'Part Two also sets out a detailed
method of evaluating coastal area programs and Proposals for
development and describes the means of tribal control over

thos activities.
Over the past decade, an enormous amount of material has
been written about the TulaliP Reservation and the coastal

area environment. We have tried to distill from that material

the most current and Pertinent. The list of references we have
included will provide more detailed information when it is re-
quired.
Since the Tribes already has an approved zoning ordinance
we have recommended an amendment to Ordinance 35 that incorpor-
ates the Coastal Area Management Plan as a guiding policy
statement. This amendment also establishes a special review
and approval procedure for all Coastal Management Area proposals.
No new administrative structure or permit process was neces sary
to implement the Coastal Area Management Plan.
Finally, as@ in almost every other aspect of tribal govern-
ment operations, the extent of the Tribes jurisdiction over the
Reservation coastal area resources is unclear, This is a large
number of agencies which have some degree of influence over the
use and development of the Reservation coastal resources. With-
out the cooperation of all those agencies, the benefits of those
resources will be lost by stalemate or default.

1The requirements for management grants are set forth in the
Federal Register Vol. 40, No. 6 1-9-75.

P A R T 0 N E

RESERVATION DESCRIPTION

AND

INVENTORY
0

PART ONE DESCRIPTION OF THE RESERVATION*

I. LOCATION
The Tulalip Reservation is located in Snohomish County,
Washington, five miles north of the City of Everett, on the
north side of Port Gardner Bay. The eastern boundary meas-
ures six and one-half miles along Interstate-5 and the
Reservation shares an interchange with the City of Marysville,
which is directly east across the freeway at the southern
boundary. The northern boundary measures eight miles along
Fire Trail Road. The south and west boundaries front for
about 12 miles on the salt water of Puget Sound and for
about two miles on Ebey Slough, a slow moving channel of
the Snohomish River mouth.

The Reservation, of 22,000 acres, lies within the Snohomish
Drainage Basin. Three sub-basins run in a north-south di-
rection through the area. The interior and principal sub-
basin is the Tulalip Basin, with the Warm Beach Basin along
the coast to the west and the Quilceda Creek Basin to the

east.

The source of stream waters within the Reservation can be
traced primarily to the hills of the three ridge-lide land
forms, with surface runoff being the major supplier. Tula-
lip Creek is fed in part by Lake Goodwin and Lake Shoecraft,
north of the Reservation.

II. PHYSICAL FEATURES

A.. Topography
The land is characterized by gently rolling to hilly
terrain with steep slopes. The land rises from sea
level to elevations approaching 600 feet along the
tops of three dominant ridges which def ine'the Reser,
vation drainage basins.

Between the ridges, small valley floors of poorly drained
0 and organic soils follow the drainage system of Tulalip
*For a complete and detailed description of the Reservation,
see the Catwell Associates, Comprehensive Plan-Tulalip Reservation 1972.

MR.- .-M
f a e agpes
rybqjp 3ki@*
ary gheltoi"
I ' '"i e-
'be 5 's
weallup.11a laka ohn min lak'

0
9@#s I -a- ke'
spee-bi-da CD
CD

13 to boel
test,
tulalip shores

23 24

Wall
.:.tulal p
ay
j.

K
mission bea

31*

ar we
Tulalip Reservation
_@MeSV'001

c
0 2 miles

----------

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

...................
orm non
............
gra e falls.,

arysville
..............

......... .. . .....
92

-------------- ----------- 5
-------------- -------- Make tevens
-------------

- ----------
tt

- ------------------------

- - ----------

------------

m kilteo

28
homish

2 99 to

vicinity map'

Tulalip Reservation
.72 1 IC%
0 1 2 5 miles

and Mission Creeks south to Tulalip Bay, an oval
body of water partially enclosed by a hook of land
called Mission Beach. The bay is shallow throughout
the southeastern half, with mud exposed at low tides.

Along the eastern boundary of the Reservation, a con-
tinuous strip of land, one and one-quarter mile wide,
lies within the Marysville Trough. This low-land,
never exceeding an eight percent slope or rising above
100 feet in elevation, is the valley floor for Sturgeon
and Quilceda Creeks. Steep slopes rise to the west.
The soil is primarily poorly drained with the exception
of some well drained. material along Quilceda Creek.

To the south is the narrow strip of shoreland along Ebey
and Union Sloughs. These waters form part of the tidal
estuary of the Snohomish River, emptying into Port
Gardner Bay.

Lying between Ebey and Union Sloughs is an area called
Big Flats. Once a tideflat, the area has been filled
with industrial wastes for development as an industrial

area.
B. Reservation Geology - Structure and'-Hazards
The geology of the Reservation is primarily characterized
by glacial till, commonly known as hardpan. The till
areas form the majority of the uplands and rolling ter-
rain.

The wetland area along the Tulalip Croek and Mission
Creek watersheds are underlain by permeable sand and
gravel sediments to a depth of about 50 feet, These
sand and gravel areas aid in surface-groundwater exchange.

Much of the shoreline area is dominated by sea cliffs
or steep hills. The cliffs are sometimes outcroppings
of exposed rock, but more often are simply steep hills
with discontinuous layers of mixed sand and gravel
interspersed with or underlain by layers of clay and

silt.

The beaches along the shore are sand is some areas.
Tulalip Bay forms the only inlet-type beach formation.
C. Soils
The soils of the Reservation can be characterized by
five general groups: Well-drained; imperfectly drained;
poorly drained mineral; organic and miscellaneous lands.
The Reservation is largely overlain by well drained
soils of the Alderwood series. Pockets of organic
soils, peat and muck type sediments, are found in the
wetlands. A more complete description of Reservation
soils is found in the Tulalip Environmental Study.

The wetland areas of Quilceda, Mission and Tulalip
Creeks and those adjoining Weallup Lake may be classi-
fied as sensitive areas with respect to non-soil re-
lated environmental factors. The peat and muck in these
areas are only a few feet thick. They form a highly
permeable, unstable basis for any type of development.
D. Landslides and Erosion
No major landslides have occurred on the Reservation.
However, much of the shoreline on the western boundary
is steep bank terrain, of over 25% slope, with bluffs
reaching up over 200 feet from the beach.

Slides are usually associated with steep slopes, such
as those found along the valley sides and sea cliffs on
the Reservation. In addition, groundwater contributes
to landslide hazard. Under some conditions, groundwater
perched above impermeable sub-strata may act as a lubri-
cant, easing the movement of overlying materials. This
situation is particularly common where the impermeable
sub-strata is a layer of clay.

The silty clays, such as the Bellingham series, can be
fluid when saturated with rainfall. The sandy loams
are susceptible to erosion when groundcover is removed.

Triad Associates Tulalip Environmental Study 1977

The rough broken land of steep hillsides and sea cliffs,
along the extreme northern shores of the Reservation,
is underlain with Admiralty Clay and could be susceptible
to slides. Large areas of the Bellingham clay loams are
found on the steep side slopes above the Mission Creek
drainage basin. Sandy loams of the Everett, Edmonds
and Custer series are also found along the sea cliffs
and on interior hillsides above drainage ways.
E. Floods, Erosion-, Accretion
1. Floods. The Snohomish Valley floodplain was deter-
mined by the Corps of Engineers in 1975 and is the
extent of flooding expected with a 100 year flood.
The Reservation was not included in the study and
the ten foot contour from the tip of Priest Point
east to the area around the mouth of Quilceda Creek
was identified as the floodplain boundary.

The floodplain,as designated by the Corps of Engin-
eers, is divided into the floodway and the floodway
fringe, and is the configuration selected by Snoho-
mish County, Everett and Marysville for planning
purposes. The Snohomish County Ordinance 18.68
prohibits permanent structures, landfills and exca-
vations within the floodway and requires that perma-
nent structures within the fringe be floodproofed.
It also prohibits most landfills within the fringe.

Any flooding of the Snohomish River has a potential
impact on the tribal economy, in*that damage can be
done to the fisheries. Flooding destroys the habi-
tat for spawning and nursing the salmon fry. After
a particularly damaging flood, the only way to re-
establish a run is through artificial propagation.
2. Erosion. Erosion of reservation soils into major
drainage ways is a major concern for the protection
of the fisheries. This is difficult to control on
much of the Reservation where large parcels of land

are being subdivided into smaller five acre
tracts-. The attendant grading and clearing often
clogs natural drainage ways and dislodges natural
vegetative cover which holds the soils in place.
Silting of streams destroys the quality of the
water used for the fish rearing program and destroys
the natural spawning areas for the natural runs.

Logging activities, which have occurred on the steep
sideslopes on the Reservation, have perpetrated
conditions of erosion which jeopardize the creeks
and streambeds, essential to fish and wildlife
habitat on the reservation.

Due to the hilly nature of reservation lands, certain
regions are subject to erosion. Many of the recently
timbered sections in the northern north-central por-
tion are particularly susceptible. The entire shore-
line, except in extremely rocky regions, is subject
to tidal and wave erosion. The steep ridge adjacent
to the Marysville trough is forested, but would be
subject to heavy erosion if cleared.
3. Accretion. Tulalip Bay is the site of natural beach
accretion. Tides and currents deposit sand continu-
ously into the bay off the end of the spit at Mission
Beach. The south end of the bay is exposed mud flats
at low tide. Any permanent structure or activity,
such as a marina, would require that a channel be
dredged regularly.
F. Hydrology
The hydrology of the Reservation consists mainly of direct
freshwater precipitation, Some surface and groundwater
flows onto the Reservation across the northern boundary.

Three small streams cross into the Reservation from the

north. Two are branches of the Quilceda Creek ' whi6h
enter the Reservation, then flow out to the east and back
in again as the main section of the Creek. The third

is a branch of Tulalip Creek, north of Lake Weallup.
The most si gnificant land runoff or underground flows
occur in the vicinity of the unnamed wetland at the
northwest branch of Tulalip Creek and in the Lake Agnes
area. In most other areas, surface flow is directed
into creeks or away from the Reservation.
G. Surface Water

The Reservation is usually classified as apart of the
Snohomish River Basin, however, the surface waters are
all independent drainages leading directly to Possession
Sound or Tulalip Bay. The three major streams on the
Reservation are the Quilceda, Mission and Tulalip
Creeks. Mission and Tulalip Creeks are completely

freshwater streams with associated freshwater marshes

and swamps in several places. They flow from the north-
ern regions, southerly to the lowland marshes between
them and both empty into Tulalip Bay.

Mission Creek, until recently, flowed directly into
Tulalip Bay through a deep ravine and was little influ-
ences by tidal action. During 1979 a dam was constructed
at the mouth to form a fish rearing reservoir.

Tulalip Creek is impounded in a large reservoir built
for power generation during the late 1800's. The outfall
is regulated by gates at the dam. During 1975 a second
dam was constructed at tide level below the outfall to

create a second fish rearing pond.

Quilceda Creek meanders along the easterly edge of the
Reservation emptying into Ebey Slough through a long,
wide, tidal marsh. Only the Quilceda and its tributary,
Sturgeon Creek, are tidal for any portion. The lower
reaches of Quilceda Creek, below the Tulalip Road Bridge,
are navigable to small craft,

The Reservation has a number of small lakes. With the
exception of Ross Lake, which is wholly owned by the

Tribes, there is road access to all the named lakes,
which are: Mary Shelton, Agnes, Fryberg, John Sam and
Weallup. There are many small unnamed lakes through-
out the Reservation. There is a possibility of devel-
oping some of them into larger more productive lakes.
Where development has occurred around the lakes, it has
been of low intensity, such as summer homes and mobile

homes.

H. Ground Water

Groundwater now provides the major portion of the Reser-
vation drinking supply. The main aquifers are the Deep
Coastal Aquifer, running from Hermosa Point, north to
the Reservation boundary; the Central Plateau Aquifer
in the north central lake area; three intermixed aquifers
at various depths near Priest Point; the Eastern Ridge
Aquifer on the north-south ridge above Marysville Plain;
and the Eastern Sand-Northeast Artesion Aquifer on the
Marysville Plain. Due to lack of wells or test drillings
on the central portion of the Reservation, the extent
of mixing or overlapping of these systems in unknown.
I. Water Quality
Many of the aquifer systems on the Reservation have prob-
lems with high iron concentrations and hardness, partic-
ularly the three eastern aquifers. At present, about
70 percent of the water used on the Reservation comes
from the eight known aquifers, and 90 percent of this
water is used for residential requirements. Any devel-
opment which threatens contamination of important ground-
water supplies and sources must be carefully examined.

Water quality is also important in controlling the
health and viability of all water-,rrelated natural
systems. Pollutants in the form of high nutrient
concentrations, detergents or toxic substances detri-

l.See th-e U.S. Geologi cal Survey, Open File Report 76-493,
,Water-Resources of-the Tulalip Reservation, Washington by B.W. Drost

mentally affect nat.ural systems and human recreation
use. For human use, the most significant indicators
are coliform bacterial levels.

The saline waters north of Everett Harbor contain high
levels of sulfite waste liquor contamination from near-
by lumber and pulp industry. These concentrations have
reduced both fish and shellfish levels in the nearshore
waters of the Tulalip Reservation. Tribal concern of
this pollutant would be very difficult except through
legal means since the pollution sources are off of the

Reservation.

Tulalip Creek is relatively free from pollution. There
is little organic pollution (phosphorus or nitrogen)
in any of the Reservation water bodies. Both phosphorus
and nitrogen were well below EPA recommended standards
for drinking water at eight U.S. Geological Survey moni-
toring sites on Mission, Tulalip and Quilceda Creeks
in 1975. Quilceda Creek and lower reaches of Mission
and Tulalip Creeks occasionally have undesireably high
levels of coliform bacteria. This usually occurs when
high water tables and increased overland flow in winter
months introduce coliforms from farm, pasture or forest

lands.

In general, levels of freshwater pollution are not
serious. Care must be taken during future development,
however,to insure that degradation of the lakes, streams,

and wetlands does not occur.

In 1979, Parametri, Inc., conducted a baseline study
of the water quality of Tulalip Bay, Four water qual,
ity stations were monitored weekly from mid,April
through June for general phy@3ical and chemical proper-
ties, algae pigments, and inorganic nutrients, sanitary
microbiological analysis, metals, organic residues and
other toxics. The bay was found to be a well-flushed

estuary with exceptionally clean waters. Inorganic
plant nutrients and chlorophyll-A concentrations were
moderately high, and indicate that the bay is a highly
productive body of water. Some toxicants were found
in the sampling program, but the source and signifi-

cance are uncertain.
J. Climatology
The Tulalip Reservation has a moderate climate, typical
of the Puget Sound Region, with mild, moist winters;
cool, dry summers; and a modest temperature fluctuation
over the day and over the year.

The Reservation is protected from harsh winter storms
by the Olympic Mountains and those on Vancouver Island.
The Cascade Range to the east affects the Reservation
precipitation. Moist air moving east from the Pacific
Ocean is forced over the mountains, where the decreased
pressure causes cooling and condensation. The precipi-
tation on the Cascade slopes is significantly higher
than on Puget Sound and provides a significant runoff
into the Snohomish River Basin, and ultimately the
estuaries at the"river mouth. This flow is important
to the hydrology of the estuary. The flow carries sedi-
ment and organic matter which is deposited in the
estuary and mudflats. This suspended sediment is an
important factor in controlling the habitats found in
the estuary.

During fall and winter, the area is dominated by low
pressure disturbances which bring a flow of warm moist
air into Western Washington. Cooling and condensation
of this air brings rain tvhich begins in late October
and continues until February with few breaks. During
this period, there is little temperature variation
with daytime temperatures generally in the 40's and
nighttime temperatures in the 30's.

During the summer months, high pressure dominates
the weather patterns in the area, bringing a flow
of cool, dry air into the area. The driest period
of the year occurs between the middle of July and
the month of August. The temperatures at this time
of year average in the 70's during the day and the
50's at night.

The prevailing direction of the wind is southwest
during the fall and winter, gradually shifting to
west and northwest during the late spring and summer.

The mean rainfall for the area is 34.5 inches per year.

AVERAGE DAILY TEMPERATURE EXTREMES MONTHLY
AT EVERETT, WASHINGTON

J F M A M J J A -S 0 N D AVG
Max. 44.6 48.0 52.6 58.8 64.1 68.1 72.4 71.6 67.4 59.8 51.2 47.0 58.9-
Min. 32.2 34.1 36.6 40.4 .45.2 49.7 52.3 52.1 48.5 43.8 37.6 35.5 42.2

AVERAGE MONTHLY PRECIPITATION AT
EVERETT, I-VASHINGTON
(1956-1965)
J F M A -M - J J -A - - S - - 0 N -D TOTAL
4.97 4.07 3.28 2.44'2.00'-2.18 .73 1.67 1.59 3.33 4.73 4.56 35.55

K. Mineral Resources
Limited amounts of commercial grade sand and gravel
occur in scattered places on the Reservation. No sig-
nificant deposits of valuable minerals are known. In
the past, sand has been dredged from both Ebey and
Steamboat Sloughs.
III. TRANSPORTATION AND-NAVIGATION

The Reservation abuts Interstate@5 to the east with a major
interchange at Marysville, and is bounded by Fire Trail Road
on the north. Marine Drive is the major north-south access
across the reservation from 1-5 at the southeast corner, to
the northwest corner of the Reservation at Fire Trail Road.

The Tulalip Test Site has direct access to the Burlington
Northern mail line and an internal trackage system. North
of the Reservation, Burlington Northern has been assembling
acreage bordering the trackage in the Lakewood area and
has considered extending a spur southward into the Reser-
vation.

Tulalip Bay is presently a harbor for about fifty fishing
boats belonging to tribal members. Various small pleasure
craft are moored at small docks in the bay. Plans for a
major marina in Tulalip Bay, to be developed by the Tribes,
have been discussed for the past eight years. No immediate
plans for construction of such a marina are being made.

IV. COMMUNICATION

The Reservation is served by General Telephone Company and
the United States Postal Service. Radio and television

reception is comparable to that experienced in adjacent
parts of the country.
V. ENERGY GENERATION AND TRANSMISSION

There are no energy generating facilities on the Reservation.
Snohomish County PUD maintains the transmission facilities
and the Tulalip substation, west of Marysville on Marine

Drive.

VI. SPECIAL CHARACTERISTICS OF THE RESERVATION

The Tulalip Reservation is endowed with several outstanding
features which make it a desirable place to live and recreate
and which will continue to significantly affect future devel-
opment. Foremost is the 16 miles of salt water shoreline.
Starting in the Snohomish delta marshlands and extending
into Port Susan Bay on the northwest, the shoreline has
several distinctly different characteristics.

Most of'the shoreline is high-bank waterfront (7.2 miles)
falling precipitously to a narrow beach at the bottom. Up
to 300 feet high in places, these cliffs preclude access
to the water, but do provide excellent views of the Sound,
islands and mountains. In some high bank areas, steep
ravines cut access points to the water. At the base of

some of the larger ravines, beachfront communities have
developed on the narrow bench at the shoreline.

In other areas, notably at Tulalip Bay and Priest Point,
the waterfront banks are more moderate and offer good
access to the water. These areas have developed fully
with both seasonal and year-round residences. Low-bank
waterfront totals approximately 6.3 miles.

In the mouth of the Snohomish where the flat, low-lying
uplands meet the water, the demarcation of tidelands is
often difficult. These wetlands are often subject to
flooding from both extreme high tides, on-shore winds and

flood flows of the Snohomish River. There are about 2.5
miles of marshland shoreline, including the perimeter of
islands in Ebey Slough.

In addition to the view property on the high beach bluffs,
both of the high ridges inland on the Reservation offer
truly spectacular prospects for views to the east and the
Cascade Mountains, the south and Port Gardner Bay and
Everett, and to the west over Puget Sound, Camano Island,
and the Olympic Range.
VII. LAND USE, OWNERSHIP-AND DEVELOPMENT NEEDS

A. Present and Planned Land Use
With few exceptions, the land within the Reservation
is either vacant or used for permanent or seasonal
residences. Residential development is highly oriented
to salt water access wherever there are low banks along
the south, or to views out over water.

There are four major areas of residential development
on the Reservation shorelines. These are: Spee-Bi-Dah,
Tulalip Shores, Priest Point and Tulalip Bay, including
Tulalip and Mission Beach.

Inland, there are scattered clusters of housing around
0 Lake John Sam and along Marine Drive, and roads leading
off of it.

Of the residential areas mentioned, Tulalip Bay
contains the.greatest number of both permanent and
seasonal homes. The bay area will continue to
dominate the developed areas on the Reservation.

At Tulalip Bay, however, there are other-important
land uses. TulaliD Bay is the site of the fish
hatchery and rearing ponds. The tribal fishing fleet
is moored at Tulalip Bay and a small processing plant
has been built by several tribal members. Other land

uses on the Reservation are described in the sections

on industrial and commercial needs,

The Tribes has plans to substantially expand the resi-
dential development at Tulalip Bay and at other loca-
tions on the Reservation. There are also plans to
renovate an existing building on the waterfront into
a restaurant and lounge. At some time in the future,
the moorage facilities at Tulalip Bay will be expanded.

Institutional uses include the Sno-Isle Regional
Library on the 1-5 Frontage Road, the Tulalip Elemen-
tary School at Tulalip Bay, the Tribal Buildings, a
fire station at the Bay and a Catholic Church.
B. Ownership and Development Needs
There are three types of land ownership on the Reser-
vation: Allotted lands, owned by individual Indians;
alienated lands, owned by non-Indians; and tribal lands,
owned by the Tulalip Tribes. The Tribes is the single,
largest land owner.

For many years, the Tribes has been actively pursuing
development on the Reservation. Generating income and
employment for tribal members is probably the single
most important goal of the tribal community and the
acquisition of land which can generate such opportuni-
ties has been a tribal objective since the formation
of the tribal government in 1936. Soon after that
time, the Tribes began to acquire land.

Starting with the purchase of a site at the head-
waters of the old Tulalip Bay Water System, the Tribes
has assembled about 6,000 acres of very valuable land;
including the Boeing Test Site, Big Flats Industrial
Fill, and a large parcel of land at Tulalip Bay. A
primary source of the Tribes' income today is rental
of these properties.

Much of the land that is owned by the Tribes is still
undeveloped and because of its proximity to the Seattle
Metropolitan area, and its natural beauty, these
holdings represent an asset for the Tribes with enor-
mous potential for development. Recognizing this
potential, the Tribes began a formal planning program
in 1969 and intensified their efforts to increase
tribal income and employment on the reservation.

During the ensuing ten years, the Tribes has invested
heavily in the community facilities necessary to
support their long range development program. They
have installed a sewerage system and treatment plant
at Tulalip Bay to serve the existing homes and the fu-
ture residences the bay area is capable of sustaining.
The system has been designed for future expansion with
a larger treatment facility.

The Tribes has developed a new water system, abandoning
the reservoirs at Waterworks Road. They have dug three
new wells and installed the new piping required to
modernize the entire system.

The Tribes has constructed a new arterial serving the
bay area which deletes the need for the old shore-
hugging road along the bay. This road precluded access
to the water by any upland land use.

Most of the-original 22,000 acres comprising the Reser-
vation are now in private non-Indian ownership. In

addition to the almost 6,000 acres owned by the
Tribes, over 3,000 acres are held by tribal members.
An undetermined area of tidelands is also owned by
the Tribes.

The Indian ownerships range in size from as small as
two acre parcels to some with several hundred acres.
These Indian lands are scattered among the fee owner-
ships throughout the Reservation. Most of the shore-
line of Tulalip Bay is owned by the Tribes. Hermosa
Point, at the north end of the bay is an allotment,
held by tribal members. The largest single holding
of the Tribes is the 2,100 acre Boeing Test Site.
C. Development Constraints
The major constraints to development revolve around
water, both quality and quantity. In order to protect
the water-quality of Tulalip Bay, all effluents,both
residential and industrial, must be treated. The pre-
sent treatment plant is nearing full capacity. To
accommodate either increased development or increased
load due to new effluent sources, the treatment plant
will have to be expanded. The Reservation water supply
is also limited. In the not so distant future, new
water sources and expanded storage capacity will have
to be developed before much more growth can take place.

VIII. POPULATION
The 1972 Comprehensive Plan forecasted a 1.990 total Reser-
vation population of 7,840. The most recent estimates by
the Puget Sound Council of Governments show a 1990 popula-
tion of 7,300 and a year 2000 population of 13,300. The
present population is estimated by PSCoG at 4,668.

The Indian population of the Reservation has grown by over
30% since 1970; from 465 to 536.1 This rate of growth is
expected to continue as more employment opportunities are
generated on the Reservation for tribal members.

BIA Report on Labor Force, August 1979

The total population has increased by over 50% from 1970
to 1979. This rate was substantially higher than previously
forecast, due to the rapid growth in housing in the past
few years. As the housing supply begins to catch up with
demand and as the costs of commuting increase, the rate of
growth should slow somewhat but remain high, relative to
other areas of the region.

IX. INDUSTRIAL NEEDS ON THE RESERVATION
Two specific tribal planning objectives, outlined in the
Comprehensive Plan, relate to industrial development on

the Reservation:
- Provide opportunities for Indian economic
development

- Generate income commensurate with the value
of tribal lands

The land lying west of Interstate-5,has long been recog-
nized as potential industrial area. For more than a mile
the flat Marysville Valley extends into the Reservation,
terminating at the foot of the steep ridge at the west.
The soils are generally highly permeable, fine sandy loam,
though poorly drained; it is a situation which could be
corrected with the installation of a properly designed
drainage system. The area can be served easily by power,
gas, sewer and water. It has excellent highway and trail
access. The areas indicated on the Tulalip Comprehensive

Land Use Plan as industrial sites are:
- The Tulalip Test Site - A 2,000 acre parcel
owned by the Tribes, adjacent to Interstate-5,
immediately north and south of two interchanges.
It is served by rail and water and can be served
easily by sewer, if the demand is present. The
site is leased to the Boeing Company, which tests
and stores explosive ordinance. There are few
sites of the size and quality under single owner-
ship in the Seattle-Everett area compared to that
parcel.

- Big Flats Industrial Land Fill - For over a decade
industrial waste products from the City of Seattle
have been barged.to an island, owned by the Tribes,

in the mouth of the Snohomish River. The filling
is now complete and there are approximately 150
acres of land available for industrial develop-
ment. The property is bounded by navigable waters
on the north and south, and to the east by 1-5
and the main line of the Burlington Northern
Railroad. In order to bring the site up to indus-
trial qualities, power and sewer can be provided.
a rail spur and improved highway access can also
be constructed. A soils analysis including recom-
mendations for construction techniques has been
completed.
Other industrial activity is carried on on the Reservation
at isoldated sites:

- A small boat building operation is located at
Quilceda Creek near Ebey Slough
- Triway Manufacturing has recently purchased a
40 acre parcel near the I-5/Marysville Inter-
change, bordering on Ebey Slough. Their long
range plans are to develop an industrial park.
The first five acre parcel has been developed
with their own manufacturing building and offices
where items are machined for the airplane industry.
A log storage depot and dump is located on the
north bank of Ebey Slough just west of 1-5. The
waters adjoining this site have been used for log
rafting for many years and cover a large portion
of the mouth of the Slough.
While sites for industry, owned by the Tribes, are limited
to the Test Site and Land Fill at Ebey Slough, the Tribes
is interested in developing two major strategies for econ-
omic development on the Reservation:
- Seek the establishment of industry on suitable
Reservation lands; and
- Develop tribally owned or controlled operations
on tribal lands, particularly around Tulalip Bay.
These projects might include:
A major marina to serve the Tribes' fishing
fleet and pleasure craft
A fish rearing and fish processing operation
The housing and construction industry
Tourist facilities near the bay.

X. HOUSING REQUIREMENTS
Housing for tribal members has long been a critical problem
facing the Tribes, The Comprehensive Plan was published in
1972, documenting substandard characteristics for most
Indian housing and the need for a planned program of up-
grading and adding to the supply of housing on the Reserva-
tion. The need to construct 75 new units and extensively
renovate 33 units was noted. Additionally, housing for
elderly tribal members and for foster children is a serious
need. More recently, the Tribes has acknowledged the need
to provide housing for young adult, single members of the

Tribes.

The Tulalip Tribal Housing Authority was formed in 197
as the first step in beginning a housing program.
new HUD funded.units has been built near Tulalip Bay.
Twenty-three, funded by loans from the Farmer's Housing
Administration, are scheduled for construction on Quilceda

Creek in 1980.

Other recent developments related to housing on the Reserva-

tion:

- Mission Cemetary Hill Development, which is
partially developed with some roads paved, will
provide new home sites for lease by the Tribes.
- The Ti@ibes has discussed a mobile home park
ordinance for the Reservation, though none has
been enacted.

- A 37-acre parcel on Waterworks Road is being
subdivided into five acre tracts by a private
owner.
- Many other large acreage ownerships on the
Reservation-are being subdivided into five acre
tracts. It is estimated that 500 acres are
currently undergoing subdivision. No services
are available for these lots. Septic tanks and
individual wells will have to be used. Dynamiting,
logging and grading are occurring with little
control being exercised by the Tribes or the County.
Subdivisions developed along Marine Drive near
Tulalip Bay have been pushed too close to the

main highway Sh ould the full right-of-way
ever be used to its maximum, the houses will
be too close to the road.
The Tulalip Tribes owns several hundred acres of very
valuable land at Tulalip Bay that is suitable for residen-
tial development. Almost all of the land is low bank
waterfront or view property. The utilities are in place
in the area, with a new sewerage system recently built.
XI. RECREATION AND OPEN SPACE

A. Existing Recreation Use
The Tulalip Reservation is historically a recreation
area for Snohomish County. In the past, communities

of summerhomes were built wherever access to the water
was easy. These areas are now the communities of Spee-
be-dah, Sunny Shores, Tulaire Beach, Mission Beach,
Priest Point, and Tulalip Bay. Although most of these
homes have been-converted to permanent, year-round
residences, many people still come to the Reservation
for recreation along. Even though access is limited,
the beaches attract picnickers and clam diggers. The
water around the Reservation attracts large numbers of
people for sport fishing and recreational boating.
The Tribes also provides a put and take trout fishery
in the upper Tulalip Creek rearing pond after the last
release of juvenile salmon.

The uplands of the Reservation are almost wholly unde-
veloped and provide abundant wilderness with easy access.
There are trails and old logging roads throughout the

Reservation.

The Potlatch Grounds at Tulalip Bay has been reserved
for tribal recreation use. This site fronts on the
water and includes a ceremonial longhouse, social center
for the Tribes' youth, children's playground, baseball
fie'ld and the Neighborhood Service Center, which serves
as the tribal office and indoor recreation center.

In 1977, the Tribes acquired a large tract of land
that stretches from Port Susan Bay to Lake Weallup
and leased it to the Port Susan Bay Camping Club.
The site is now used for short term vehicular camping.
Access to the saltwater beach and to Lake Weallup is
restricted to members of the camping club.
B. Planned Recreational Development
In 1973, the Tribes prepared a Comprehensive Park and
Recreation Plan which describes in detail the existing
recreational opportunities and planned development.
Three areas are of particular importance to the coastal

area resources:
1. There is an insatiable demand for pleasure boat
moorage in the entire Puget Sound region. Because
of this demand, and the need to provide adequate
facilities to support the Tribes' fishing fleet,
the Tribes has planned to build a marina at
Tulalip Bay. Several sites have been investigated
and more detailed studies of the impact of such a
facility on the waters of Tulalip Bay are required
before a fina-1 location and plans are drawn.
2. As the population grows at Tulalip Bay, due to the
tribal development of the uplands, there will be
an increasing need to provide more beach and water
access for the Tribes' leasees. Several sites at
Tulalip Bay have been identified as potential park
and water access points.
3. The wetlands at the mouth of Quilceda Creek are a
valuable and unique natural habitat. This site has
easy access from Marine Drive and as yet has not
been threatened with development. The Quilceda Creek
wetlands have been identified as a potential
natural park area for passive recreation and
wildlife study.

Although there has been little development to date on
the five acre parcels, the development activity will
surely pick up as the parcels are resubdivided into
smaller, more marketable tracts.

The subdivision activity that has occurred is all on
alienated lands over which the county now exercises
jurisdiction. The issue of land use jurisdiction over
alienated lands with the Reservation boundaries has

not yet been resolved.

Illegal dumping of waste materials of all kinds is a
continuing problem in the vacant open space lands of
the Reservation. Because of the easy access by road,
the relative isolation and lack of enforcement by all
agencies with jurisdiction, several environmentally
sensitive Areas have been despoiled by this activity.
C. Open Space and Access
In both the Comprehensive Plan and the Park and Recre-
ation Plan, the Tribes recognized the Reservation Open
Space as a valuable natural asset. In the Comprehensive
Plan, all areas of steep slope, poorly drained soils,
all shorelines and the major drainage basins were iden-
tified as environmentally sensitive areas. The open
space on the reservation provides visual amenity, recrea-
tion areas, wildlife habitat and stabilizes the hydro-
logic cycle of the surface waters of the reservation.
Without these vast open spaces in their natural state,
the coastal resources would be severly altered.

Over one-third of the reservation land was designated as
open space in the Comprehensive Plan and was subsequently
zoned Areas of Special Significance by the Tribes. This
zoning classification will allow very low density develop-
.ment under controlled circumstances.

Access to the reservation open space is generally uncon-
trolled, which is both a benefit and a hazard. The easy

access allows the public to participate in the benefits
of the natural resources of the open spaces on the
reservation, but at the same time, easy access also
encourages over use and development. In the recent
bouyant housing market, many of the large privately held

tracts of land on the reservation have been subdivided
into five acre tracts. Under current county and state
subdivision law, these small tracts can be resubdivided
in five years from the original division

XII. COMMERCIAL FISHING
The waters of the Tulalip Reservation are significant pro-
ducers of anadromous fish that are harvested by both
commercial and sport fishermen. Four species of Pacific
Salmon: Pink, Chum, Coho and Chinook, are harvested in the
area. Other salmonids with a sizable run in the area are
summer and winter Steelhead Trout, Searun Cutthroat Trout and
Searun Dolly Varden. Port Susan Bay also supports s small
Hake fishery.

For many years, the Tulalip Tribes has participated in a
fisheries enhancement program and at present operates a sub-
stantial rearing program. Three large rearing ponds on
Tulalip and Mission Creeks contribute over two million salmon
to the Puget Sound fishery each year. The Tribes has secured
grant funds of approximately $7,000,000 to construct a major
hatchery capable of producing upwards of twenty million fish
per year. Completion of that facility is now scheduled for

1983.

The Tulalip Tribes has established a fisheries division of
the Tribal government. The Fisheries Division is responsible
for both the enhancement and enforcement programs. A complete
description of the fisheries activities of the Tribes may be
found in the 1979 Annual Report of the Fisheries Division.

Fishing is by far the largest single source of income and
employment of the Tulalip Tribes. Since the court decision

36 31
A- 36
7@[email protected]
RVATIon @@I)Axv

XARYM@

5
3 2

IN \1
Sunny Sho"
v \k\
'6.

Tulam Beaeb U L
9, 10 k 0

E-

Sp@Bi-Dsh

i7
14 13

Tulalip Shom

W.44&L4.

4-41
JJ.
As W- w-
dAA CL

n CWJL 5 36

&owe T-
3'

Tulalip R rvation
PIIW" P
tc

36 31 8. .34 /Ij 33r"@.,_pj@@ A\ Psi 36
t PA3F.RVA7 vnvwbAAY I T-o
p C-1

Lp
op

Sam

Sunnv

z
U L A
X W11
10 0

(A,

b
ob

Sp-Bi-Wd,

IT. V T

14 13

TuWip Sh@

z
o

23
.22 Lu

o@
FA ct A.

ooo
;A
r-jz@wu--A-r errz

35 36

poia
G-@

lp @vation
Tulalip Res
Ats

in U.S. vs Washington (.The Boldt De'cision), which reaffirmed
the Indian rights to equal access to the fishery of the State,
the Indian fishery has grown rapidly. In 1979 over 120 Tribal
permits were issued for gill netting, set nets, beach sienea
and round hauling. Not only are more Tribal members partici-
pating in the fishing activity, there has been a great increase
in investment in the industry. Small, old and less efficient
boats have been replaced by new, larger, well equipped vessels.
Although there is no precise measure of fleet capacity, the
fleet has grown substantially. A conservative estimate would
be a doubling of harvesting capacity since the Boldt Decision
in 1973.

XIII. WETLANDS AND ASSOCIATED AQUATIC LANDS IN THE TULALIP RESERVATION
COASTAL MANAGEMENT AREA
The following discussion of the aquatic and wetlands habitat
of the Reservation has been summarized from two resource
publications: The Snohomish Estuary Wetlands Study by the U.S.
Army Corps of Engineers; and The Tulalip Reservation Environ-
mental Study, by the Triad Associates, 1977.

A. Wetland Characteristics
The federal government considers wetlands to be critically
important natural'resources for the people of this country,
and as such, should be protected from unnecessary altera-
tion or destruction.. Wetlands have many definitions. For
the purpose of this study, wetlands are defined broadly as
areas which support a prevalence of vegetative or aquatic
life, requiring saturated or seasonally saturated soil
conditions. Areas specifically identified as wetlands
include: swamps, bogs, sloughs, potholes, wet meadows,
river overflows, mudflats and natural ponds.

Wetlands considered to perform functions important to the
interests of the Tulalip Tribes are those which:
Serve important Patural biological functions,
including food chain production, general habitat
and nesting, spawning, rearing and resting sites
for aquatic or land species;

- Are set aside for study of the aquatic environ-
ment or as sanctuaries or refuges,
- If destroyed or altered, would affect detrimentally
natural drainage characteristics; sedimentation
patterns, salinity distribution, flushing character-
istics, current patterns, or other environmental
characteristics;
- Are significant in shielding other areas from wave
action, erosion, or storm damage;
- Serve as valuable storage areas for storm and flood
waters;
- Are prime natural recharge areas, locations where
surface and groundwater are directly interconnected;
and

- Through natural water filtration processes, serve
to purify water.

In the Snohomish Estuary Wetlands Study (Burrell, 1978),
produced for the U.S. Army Corps of Engineers, a detailed
and very thorough classification of the estuary wetland
habitats was prepared. Much of the reservation shoreline
was included in the mapping and classification developed
in that study.

The study first identifies, describes and evaluates all
wetlands in the Snohomish Estuary study area. The study
area lands, wetlands, and aquatic lands are classified
into seven different general habitat types: 1) Urban;
2) Agricultural; 3) Non-forested vegetated lands; 4) For-
ested uplands; 5) Water; 6) Aquatic lands; and 7) Other
lands (vegetated spit). Each of these categories is
further subdivided to describe the refined differences in

habitat types.

Because the study is a valuable resource for site-by-site
analysis of development impacts, it should be referred
to for specific information.

B. Wetland Habitats on the Reservation

The following.text summariezes the characteristics of
habitat types found in the Reservation Coastal Management
Area and for each of the locations which are of particular

concern to the Tribes. Appendix A provides a brief
summary of each of the habitat classifications found in
the reservation coastal area.

1. Salt water shorelines and the Coastal Area of the
Tulalip Reservation are described as the wetlands
and aquatic lands along the saltwater shoreline
bordering Possession Sound including associated coastal
beaches, Tulalip Bay, the mouth of Quilceda Creek and
a portion of Ebey Slough and Steamboat Slough.

The marine habitats in the nearshore area off the
reservation are found to be generally low in plant
species diversity, density and productivity.

Along the more open northern shoreline, below the
Kayak Point area, algal populations occur. Green algae
is present nearest the beach, with a brown algal zone
in deeper water. No detailed research has been per-

formed in this area.
The area'from Tulalip Bay, south to the Snohomish River
mouth provides the main shellfish habitat for the
Snohomish Basin. This habitat has been degraded
through high concentrations of sulfite waste liquor
and other industrial and municipal contributions to
poor water quality. Significant populations of
Dungeness crab are known to exist from Tulalip Bay
along Mission Beach and along the Snohomish tidal flats.
Cockles, littleneck and butter clams are also found in
significant numbers. The abundant and diverse popula-
tions of fish make the area important for both sport

and commercial harvest.
a) Tulalip Bay. Total Acreage: 364.
This is the only protected saline bay on the Re-
servation shoreline. The area is an open space
sand spit with associated tidelands. The lumber
mill at Tulalip was the first major commercial
activity in this area. It was purchased by the

government in 1955, to become part of the
Tulalip Res ervation.

At the north end of the bay is the Tulalip
hatchery on Tulalip Creek. The hatchery is an
important producer of salmon with a sizable return
each year which are harvested as both a sport and
commercial fishery.

Until recent-ly, the broad expanses of mudf lats in
the southern part of the Bay were used for log
storage. The mudflats may be inhabited by sediment
dwelling detritovores. No studies have been done
in this area. These organisms are an important
food source to both juvenile salmon and other fish
and also shorebirds such as dunlins and sandpipers.
In addition, some dabbling ducks such as mallards

and shovelers also feed on the detritovores.

The small fish that feed in the Bay are an impor-
tant food item to herons, grebes, mergansers and
other fish-eating birds. The spit at the mouth of
the bay is a resting area for shorebirds and water-
fowl and offers considerable security. The spit
also acts as a wave break, protecting the bay shore-
line from wave attack.

The habitat types in Tulalip Bay, identified in
the Snohomish Estuary Wetlands Study, include:
54 Bay
622 Algal
623 Eelgrass

624 Salt Marsh

637 Sand-Silt Flats

638 Mudflats

711 Vegetated Spit

b) Jetty Island Mudflats. The main Areas of
importance are the eelgrass beds which occur
from 100 to 300 meters offshore from Mission

Beach to Priest Point in an area known as the
Jetty Island Mudflats.

Eelgrass and algae are both highly productive
species which contribute extensively to the
aquatic ecosystem. This is the primary food
source for the dense populations of detritovores
inhabiting mud and sand flats. These detrito-
vores in turn are the primary food source for
herring, smelt, juvenile salmon and other small
fish, and also a wide variety of shorebirds and

waterfowl.

Eelgrass is a major spawning substrate for herring.
Eelgrass also acts as a nursery habitat for salmon,
smelt, herring, shad, sole and flounder. Crabs
commonly feed in the eelgrass beds. The shallow
flats are a critical schooling area for salmon and

searun trout.

The Jetty Island Mudflats are presently open area,
not used for commercial fishing because of shallow
water. Sport boating takes place in the area.
The habitat types identified in this area in the
Snohomish Estuary Wetlands Study include:
54 Bays
622 Algal Assoc.
623 Eelgrass
637 Sand/Silt Flats

c) Entrance Mudflats to Ebey Island. Total Acreage: 470
There has been no diking of these exposed flats.
Continuous use for log rafting has severely de-
creased the predominately secondary productivity.
Intertidal flats such as these are highly produc-
tive as an important habitat for invertebrate
benthos. Benthic organisms are an important food

source for salmon, shad, shorebirds and some
waterfowl. These areas are used by juvenile
salmon for feeding and schooling. Shad also
uses the flats for a feeding and nursery area.
Water flows across these flats to enter the sloughs,
thus currents, salinity, and flushing are con-
trolled in part by the configuration of these flats.
Although the flats are heavily impacted by log
rafting, research indicates a quick recovery after
removal of the logs.

The southern portion, west of Smith Island, is
in Snohomish County and is designated Conservancy
in the SMP. It is recommended for preservation
by the Snohomish River Basin Mediated Agreement.
The northern portion, between North Ebey Island
and Priest Point, is within the Tulalip Reservation
boundaries.

The southern area is extensively used for log
rafting and has pilings throughout. Nearby land
areas have forest products.industry and/or have
been filled. The area is accessible by boat. The
southern portion is privately owned; the northern
portion is on the Tulalip Reservation. Development
pressure for activities other than continued
piling/log rafting is considered low.

Habitat types identified in the Snohomish Estuary
Wetland Study include:
1532 Log Rafts

511 Estuarine River

62 Aquatic Land
622 Algae
6241 Sedge Marsh
638 Mudflat

d) North Ebey Island, On Tulalip Reservation,
including Quilceda Island. Total Acreage: 207
Western portion of North Ebey Island was included
as part of Tulalip Reservation in Treaty of 1855.
No diking or logging has occurred on the island.
The 160 acre sanitary landfill on the island was
begun in approximately 1966. The landfill site
is filled to capacity at present.

Most salt marsh species such as this one are highly
productive. The marshes and swamps provide nesting
and breeding for a variety of waterfowl and other
birds. Cattail and bulrush provide nesting for
raptors and songbirds. The inaccessibility of the
area provides security for wildlife. Diverse habi-
tats provide a variety of plant species for food
and shelter. Aquatic interaction aids detritus
expert and suspended sediment trapping. The area
acts as a buffer, slowing discharge of landfill
leachates into the aquatic system. The area has
good examples of habitat zonation and successional
sequence in marine and brackish wetlands. It
protects.the landfill from erosive wave action.

The area is wetland open space. The mudflats to
the west are used for log storage; the landfill to
the east has not yet been developed. The area is
not readily accessible by road. Its location west
of 1-5 and its proximity to existing fill may
contribute to pressure to develop this land.

Habitat types identified on North Ebey Island in
the Snohomish Estuary Wetlands Study include:
572 Marine Slough
6111 Spruce Swamp
6241 Sedge Marsh

6242 Mixed Salt Marsh

6243 Mixed Salt Marsh

6244 Mixed Salt Marsh

6245 Sedge Marsh

6246 Bulrush Marsh
6252 Cattail/Bulrush Marsh
6253 Cattail Marsh

Mouth of Quilceda Creek. Total Acreage: 302
There has been very little activity in this area.
A railroad spur once extended along the south
shore. A portion of the south shore was bulkheaded
and filled for log storage (tidal connection for
remaining marsh was maintained.) The area is within
the Tulalip Reservation boundaries. It is wetland/
open space and easily accessible.

The marsh communities are all highly productive.
These diverse communities provide food, shelter
and nesting area for a variety of wildlife. The
proximity to a large wooded area provides feeding
area for upland species. The dense vegetation
provides security and protection for various--wild-
life. Juvenile salmon migrating down the creek
begin schooling in the vicinity of Ebey Slough;
these salmon feed on the benthic invertebrates
found on the mudflats and along slough bottoms.
The numerous drainage channels provide important
aquatic interaction for trapping suspended solids
and exporting detritus, thus aiding water quality
and estuarine productivity.

This is the only example of salt marsh-brackish
swamp-fresh marsh-upland zonation in the study area.

The Snohomish County Marysville Area Comprehensive
Plan shows this area as greenbelt. The Snohomish
County SMP designates it as Conservancy, and this
has generally been accepted by the Tulalip Tribes.
The City of Marysville SMP shows Conservancy on
Quilceda Creek upstream of this area. This area
has a unique nature and is valuable as a wildlife
and fish habitat. There are archeologic sites in

this area. It is used by several school districts
for field trips as a biological study area. Access
and unique zonation make this an excellent research

and education site.

Habitat types along the mouth of the Quilceda
identified in the Snohomish Estuary Wetlands Study
include:

572 Marine Slough
6111 Spruce Swamp
6241 Sedge Marsh

6242 Mixed Marsh

6243 Mixed Marsh

6244 Mixed Marsh

6245 Sedge Marsh

6246 Bulrush Marsh

6250 Brackish Marsh
6252 Bulrush/Cattail Marsh
638 Mud Flat

2. Freshwater Wetlands.

There are both still and flowing water freshwater

habitats on the reservation..
Lakes. The lake areas are varied in type, ranging
from Ross Lake which is deep and open, to Weallup
Lake which is shallow and surrounded by wetlands.
No research has been conducted on the freshwater

habitats of the lakes other than field observation.
WeAllup Lake seems to have the only extensive areas
of submergent plants. Pondweeds are prevalent. The
lakes along the northern reservation border are small
and shallow (John Sam, Agnes, Fryberg and Diary Shelton).
These lakes may contain submerged plants near the banks
as well as floating algae of medium to low concentra-
tions. Nutrient levels are generally not high enough
in these lakes to support substantial plant productivity.

Ross Lake is a glacially formed lake with few nutrients.
Little or no algae or floating or submerged plants are

observed on this lake. Their absence is due to

acidic conditions and low nutrient contributions from
the surrounding watershed.

Streams and Creeks. The streams in the Tulalip and
Mission Creek watersheds are small, moderately flowing
creeks. Intermittent high nutrient and pollutant levels
have been observed, particularly in Mission Creek, which
could lead to growth of noxious algae under low flow
or stagnant conditions.

The main freshwater wetland areas are: An artificially
diked marsh area along Central Mission Creek; Marsh
and swamp wetlands on Mission Creek below Ross Lake; A
swamp at the central portion of Tulalip Creek; A marsh
surrounding Weallup Lake; and a swamp at the northwest
headwaters of Tulalip Creek along Fire Trail Road.

The freshwater wetlands are all in some way connected
with Tulalip and Mission Creeks. Mission Creek contains
an extensive marsh and swamp area below Ross Lake,
extending south of the Turk Road Culvert. There is

also a diked wetland in central Mission Creek. The

creek itself is lined with a scattering of aquatic
and emergent plants in the downstream portions. The
Mission Creek wetlands will be described in detail here
since they are typical of both streams.

a) Mission Creek
Along Mission Creek near the mouth of the stream
is a moderately flowing, steepsided channel
surrounded by mixed coniferous and hardwood forest.
Typical streamside plants include bracken ferm
scouring rush, spleenwort and polypody ferns,
with alder and bigleaf maple shrubs on the higher
streambanks. The articificially diked wetland on
central Mission Creek is more of a true marsh than

the scattered streambank areas. This wetland is

remote. It is located several hundred feet off

of an old logging road. The marsh is dominated by
cattails, sedges and bulrush. Surrounding the
marsh are thickly tangled shrubs, ferns and vines
including gooseberry, vine maple, alder, blackberry,
bracken fern and holly. Surrounding trees are
alder, douglas fir, red cedar and hemlock. The
swamp areas on northern Mission Creek have a some-
what different composition than the open marshland.
Oregon alder and red willow are the predominate
trees with cattail, Canadian burnet and angelica
in more open areas. Thistle and goldenrod are
prevelant in the near-marsh field areas.

b) Tulalip Creek
The Tulalip Creek wetlands are similar in nature
to the swamps and marshes of Mission Creek. The
central Tulalip Creek Swamp contains water hemlock,
bul rush and a variety of herb species as well as
the dominate alder and willow. Much of the swamp
has been logged and other areas have rotted to such
an extent that the majority of trees are standing
dead as a result of water level fluctuations.

The wetlands around AVeallup Lake and at the north-
west branch of Tulalip Creek are swampy in nature.
Weallup Lake is surrounded by tangles of spirea,
alder, willow, vine maple and other thickly tangled

shrubs. Marsh areas do exist at the northwest

corner of the lake. The Wetland area near Fire
Trail Road is an open water bog-swamp fringed with
old-growth alders, some with diameters of 26 inches

or more. Scattered cattails and rushes surround

the edges of this open bog.

3. Estuarine Habitats of Fish, Shellfish and Wildlife
a) Anadromous Fish. The Tulalip Reservation and
adjacent waters are significant producers of ana-
dromous fish harvested both by sport and commercial

f ishery..
1) Salmon and Trout. Four species of Pacific
Salmon: pink, chum, coho and chinook, use
the Snohomish River for spawning. Other

salmonids with a sizable run in the river

include summer and winter steelhead trout
and searun cutthroat trout. Searun Dolly
Varden have also been reported.

The lower Snohomish River estuary and Posses-
sion Sound play an important role in the
development of both salmon and trout stocks.
During upstream migration, salmon use of
sloughs, with almost 60% of the fish moving
through Union and Streamboat Sloughs.

The river mouth and Port Gardner area are

important as a nursery and schooling habitat
for.juveniles before they move out to sea.
During the first weeks of near shore schooling,
salmon populations are particularly suscep-
tible to adverse environmental conditions.

Mortality rates at this time will significantly

determine the size of the adult return.

2) Shad. The Snohomish estuary may also be the
spawning ground for American Shad, another
anadromous fish. In other areas of Washington,

shad are considered a valuable marine resource

for commercial harvest.

3) Herring. Herring and longfin smelt use the

lower Snohomish and its estuarine areas
extensively for spawing and juvenile nursery
areas. The eelgrass beds are important spawning
areas for both. Large numbers of smelt larvae
have been reported in the old river channel
and lower ends of the major sloughs.

b) Non-Anadromous Resource Fish. 11any species of
non-anadromous fish are found in Snohomish estuary
and Possession Sound. These include flat fish,
perch, code and rockfish which are also taken for
sport. Primarily commercial fish include dog fish,
ratfish, hake, pollock. Hake is an important

commercial fish in this area.

c) Non-Anadromous, Non-Resource Fish. Non-resource
fish are predominantly small fish such as sculpin,
gobies, sharks, eels and lampreys. These species
are important in the aquatic ecosystem. Many are

food for salmon or other resource fish.

d) Distribution of Fish in Study Area Waters. The
sloughs are important migratory paths for anadromous
fish. Near shore and in shallow water starry
flounder, staghorn skulpin, sand lance, tom cod,
perch, and juvenile species of sole, stickleback
and gunnel can be found.

The drainage channels of intertidal marshes are
habitat for juveniles, and small fish such as
stickleb9ck, sculpin and flounder.

West of Jetty Island, the intertidal flats are
covered with eelgrass beds. These are important
spawning areas for herring and skate. Juveniles
of many species are also found in these beds. Adult
pollock, perch and sculpin are found there also.

At Tulalip Bay, pilings and riprap structures
provide a habitat for perch, rockfish, and probably
other species associated with rock substrates.

Very little information is available on the fish
around the solid rock substrates and rock outcrop-
pings around the mouth of Tulalip Bay. They are
probably similar to those reported at the south
.end.of Gedney Island, which includes rockfish,

bocaccio, ling cod, rock sole, decorated
warbonnet, prickleback, goby, painted greenling
and a variety of sculpins.

The soft sediments of sand and mud between the tide
flats and Gedney Island yield an abundance of fish
for commercial and sport harvest, including sole,
flounder, rockfish, hake, pacific herring, dogfish,
walley pollock, sand lance, black cods and ling cod.

T
e) Shellfish and Other Invertebrates. Xnvertebrates
in the area can be grouped non-taxonomically to
reflect their functional distribution within the

areas: Molluscs; crabs and shrimp; sediment
dwellers; insects (and spiders); zooplankton.
1) Molluscs. The principal molluscs in the area
are clams, cockles and mussels. A variety of snails
and other gastropods inhabit some substrates. In
the muddy-sand substrate, heart cockles and bent-

nose.clams are found. Some soft shell clams are

found where a freshwater influx reduces the salinity.
In muddy-sand substrates mixed with gravel, little-
neck clams and butterclams can be dug for sport. In
mixed sand and gravel, geoducks and horseclams can
be found. On pilings and along rocky shores grow
the blue mussel, fast becoming popular with seafood

enthusiasts.

2) Crabs and Shrimp. Possession Sound is the home
of red rock crab and Dungeness crab. Dungeness
crab is usually associated with sandy and muddy
substrates and can be found in eelgrass beds as
well. Crab is harvested both commercially and for
sport. Spot shrimp and pink shrimp are reported
in the area but not enough are present for commercial

harvest.

3) Sediment Dwellers. Sediment dwellers are a
broad variety of benthic invertebrates
including worms and crustaceans. They are
important first-order consumers in the detritus
food chain. They are also a primary food source
for many shore birds, juvenile salmon and other
small fish. Corophiumspp, a filter feeding
amphipod is found in abundance on the shallow

mudflats.

4) Insects. Insects are the only upland inverte-
brates which play a significant role in the
aquatic ecosystems of the estuary. The larvae
of many insects are found in marshes, swamps
and tideflats where they provide food for a
variety of birds, small mammals and fish. The
adult form of many insects are also 'an important

food source.

5) Zooplankton. Zooplankton are a diverse group of
microscopic organisms that feed on phytoplankton.
Zooplankton are the first order consumers in the
ocean*ic food chain and therefore constitute an

important food for a variety of fish.

4. Wetland and Freshwater Inhabitants
A great diversity of fish species is not found in the
wetlands, lakes and streams of the Reservation. Ross,
Weallup and some of the smaller lakes have been
occasionally or periodically stocked with sport fish,
principally rainbow trout. No fish have been known to
inhabit Ross Lake prior to the introduction of trout.
due to the lack of freshwater inflow or outflow.

The wetlands, although not too useful for fish, are
primary habitat for a wide variety of birds and small
mammals. Rare or threatened bird species in Western
Washington, which have been observed on the reservation
by the Pilchuck Audobon Society or from biological
field surveys, include loons, grebes, heron, brant,,

geese, a variety of ducks, mergansers, hawks, owls
and many songbirds. The wetlands provide dense cover
for songbirds even in winter months. Waterfowl and
raptors (predatory eagles, hawks, owls, etc.) also
use wetlands for food and breeding purposes. Up to
six bald eagles at one time have been observed at Ross
Lake and adjacent wetlands. Small furbearing mammals
are also abundant in the marshes and swamps. Beavers,
mountain beaver, river otter, mink, muskrat, raccoon
and weasel make regular use of Quilceda Creek and the
freshwater wetlands. Red fox, oppossu, striped skunk,
chipmunk, cottontail rabbit, pocket gopher, Douglas
squirrel, coyote and black-tailed deer make occasional
use of wetlands for either food or cover in addition

to their more normal upland habitat. A variety of
reptile and amphibians including garter snakes, frogs
and salamanders have also been reported on reservation

wetlands.

Waterfowl and shorebird densities are seasonally high
in both marine and wetland environments of the reserva-

tion. Offshore eelgrass beds provide particularly
significant waterfowl habitat as do bulrush and cattail
marshes along Quilceda, Sturgeon and Mission Creeks. In
recent years, waterfowl populations in the Snohomish
River Delta have been increasing, but the number of
species has decreased, probably due to alteration of
habitat and possibly pollutant effects.

Rare or unique species known to exist in near aquatic
habitats are bald eagle, possibly osprey and Aleautian
Canada Goose. In addition, the Arctic Peregrine Falcon
and Eskimo Curlew may occasionally use the area as a
migratory rest stop, although known sitings do not
exist. Other birds which are rate, unusual or of
threatened status in Western Washington are listed

in Table 4.

No rare or endangered mammals are known to inhabit
the reservation. Although reasonable siting*informa-
tion exists on birds, mammals, and waterfowl, no.
information has been gathered on the densities or
estimated populations on these animals except for
estimates by the Game Department of ruffled grouse
populations.

P A R T T W 0

COASTAL AREA MANAC@EMENT PROGRAM

PART TWO

TULALIP RESERVATION COASTAL AREA MANAGEMENT PROGRAM

I-.. PROBLEMS, ISSUES, OBJECTIVES AND POLICIES

A. Problems and-Issues
The fundamental problem in the coastal lands and waters
of the Tulalip Reservation is the conflic t between the
necessity to maintain the highest auality water which
will sustain the Tribes' vital fisheries program and
the potential degradation of the water quality from
development of other activities. This conflict is ex-
pressed in many different circumstances and in many
different ways, but it remains the core of the Coastal
Area Management problem. All other problems and issues
are either directly related to the development of the
fishery or are subordinate to it. Each of the problems
and issues listed below can be ultimately related to

this central issue.

1. DeveloDment-of Tulalip Bay. Tulalip Bay is the
center of the tribal activities and development pro-
gram. The lands and waters of the bay area are one
of the more important tribal assets and presently
sustain a wide range of activities. The sheltered
bay, with its protective bluffs and spit, gentle
upland slopes, and surrounding view-properties, has
the potential for intensive development for tribal
income and employment.

At the same time, Tulalip Bay is the center of the
Tribes' highly successful and growing fisheries
program. The lands and waters of the bay support
both the fisheries enhancement program, which con-
tributes substantially to the annual salmon catch,
and the tribal fleet, which harvests the catch. It
is imperative that the waters of the bay be main-

tained to a level that will support the fishery
program and only those other activities,which can
be developed without significantly impairing water
quality,can be allowed.
2. Maintenance of Natural Systems and Habitat Areas.
Several areas of the Reservation are important con-
tributors to the Snohomish esturine system and the

natural salmon runs. The marshlands and tidal areas

at the mouth of Ebey Slough and Quilceda Creek are
examples of these areas and they must be protected.
3. Tulalip and Mission Creek Drainage Basins. Although
they stretch for some distance from the salt water
these creeks provide the waters for the Tribes' rear-
ing ponds and must be protected. Logging and other
activities near these creeks threaten the fishery

program.
4. Port Gardner Bay Water Quality. The coastal area of
The Tulalip Reservation is an integral part of the
Snohomish River esturine system. Recent water quality
monitering of Tulalip Bay indicates that pollutants
from the Snohomish River svstem are degrading Reser-
vation water and threaten the full use and enjoyment
of the tribal resources.

5. Lack of Baseline Data. In s-Pite of all the study
effort of the Snohomish estuary, there is almost
no data available on the present state of the Reser-
vation waters. With the exception of a tribally
1
sponsored water quality study of Tulali-p Bay , there
has been no systematic evaluation of monitoring of
water quality on the Reservation by any agency.
6. Lack of Appropriate Water-Quality-Criteria. Very
little is known about the biological effects of
cumulative changes in water quality on fish. There

Parametrix, Inc. Water Quality and Fishery Investigations
in Tulalip Bay, Washington. 1978

are no difinitive minimum standards against which
proposed development in the coastal area can be
judged.
7. Jurisdictional Authority. There are many agencies
which exercise jurisdiction and influence over the
management of the Reservation coastal area. Some
agencies which purport to exercise control in fact
do not; thus leaving a jurisdictional vacuum. Recog-
nition of the Tribes authority by other regulatory
agencies is a major problem in management of the

coastal resources.

8. Intergovernmental Coordination and Cooperation. Be-
cause so many agencies have an interest in the manage-
ment of the coastal resources, it is imperative that
these agencies cooperate to the fullest. Partly
becuase of a lack of understanding of Indian problems
in general, Indian tribes have often been looked upon
as junior partners in resource management programs
by other agencies. This unfortunate attitude has
lead many agencies to be particularly insensitive to
the needs of the reservations. There must be a pro-

cess which will:

a. Identify environmental problems and thoroughly
evaluate the impacts of contemplated activities;
b. Provide for expeditious conflict resolution among
the agencies resulting in judgements based upon
a balance of all interests;
c. Provide for clear jurisdictional boundaries and
joint or coordinated regulation of the regional

resources;
d. Administer the regulations in an efficient, quick
and responsive manner without imposing great costs

on the users of coastal area resources.

B. Objectives of the Coastal Area Management Program
Natural resources have no intrinsic value apart from the
values that man attributes to them. We seek to conserve,
protect and enhance natural resources because it is to

our benefit to do so. The coastal areas of the Reser-

vation provide the Tribes with a flow of benefits and

the Tribes seek to maximize those benefits. Therefore

the objectives of the Tribes Coastal Area Management
Program are:
1. Preserve the natural state of the coastal area in

so far as it enhances the natural resource base and
furthers the tribal goals of self determination;
2. Protect the natural resources of the coastal area

from degradation;
3. Conserve limited coastal area resources for long
range, efficient resource use;

4. Restore coastal areas to their natural state where

restoration will maximize the resource- benefits;
5. Where possible, enhance coastal area resources to
increase coastal area benefits;
6. Develop the coastal area in a manner that will
maximize benefit over the long term and avoid
development which may conflict or preclude optimum.

use of the resources.

C. Coastal Area Management Policies
In setting policies for coastal area management and
development, the Tribes recognize that no rules, guide-
lines, criteria or statements of policy can be applied
inflexibly. The complexity of the management task defies
simple solutions. There are many competing, worthwhile
uses of the coastal area and a balance must be struck

between them.

1. General Policies.

a. Preserve the coastal area in its natural state
when it is necessary to the maintenance of the

coastal resources.

b. Preserve the coastal area in its natural state

when the contribution to the coastal resources

exceeds the benefits from alternative uses.

c. Require full evaluation of the existing condi-
tions and impacts of all coastal management area
development and activities.
d. Restrict development and activities to the coastal
areas where the impacts would be minimized.
e. Where feasible, devise and adopt detailed develop-
ment and performance standards.
f. Require design and development practices which
will result in the least adverse impacts on the
coastal area resources.

g. Require continuous monitoring of development and

coastal area activities with uotential for adverse
environmental impacts.
h. Vigorously enforce all regulations of use of the

coastal area.

2. Policies for Protection of Natural Svstems.

a. Prohibit use of natural areas when the activity

would result in substantial and irreversible loss

of the resource benefits of the natural environ-

ment.

b. Seek feasible alternatives to uses of natural

coastal areas which would result in adverse en-

vironmental imuacts or diminish the benefits of

the natural systems.
C. Protect existing beneficial uses of the coastal

area from encroachment of less desireable uses.

d. Seek and permit desireable uses of the coastal area.
3. Policies for Preservation.
a. Prohibit use and development in areas necessary

for the maintenance of coastal area resources.
b. Preserve coastal areas of unique, cultural,

historice or scenic values.

c. Preserve coastal areas of habitat for unique
and endangered wildlife species.
4. Policies for Restoration.

a. Wherever feasible, coastal areas will be restored

to the natural state.
b. Wherever feasible, cultural, historic and scenic
areas in the coastal area will be restored to

their original state.
c. Abandoned, deteriorating and obsolete develop-
ments in the coastal area will be removed and
replaced with uses compatible with the natural

coastal area.

5. Policies for Enhancement.

a. Wherever feasible, natural productivity of the
coastal area will be enhanced by restoration of
damaged or supplementary man-made improvements.
b. Where compatible with the natural system and
existing use, access to the coastal area will
be provided to enhance enjoyment of the resource.
c. Educational programs will be encouraged to en-
large the understanding and enjoyment of the

coastal area.

d. Scientific study of the coastal area will be
encouraged to develop better methods of managing
the coastal area and enhancing mans use of the

resources.

6. Policies for Ccinservation.
a. Encourage the uses of the coastal area which
develop renewable resources and discourage uses

which consume finite coastal area resources.

b. Encourage those uses which maximize long term
benefit rather than short term goals.
c. Encourage those uses which use coastal area
resources efficiently.
d. Encourage those uses which are compatible with
other coastal resource uses and do not preempt
the resource for a single purpose.

e. Encourage uses which do not require an irrevers-
ible or irretreivable commitment of the coastal

area resources.
7. Policies for Economic Development.
a. Water dependent and water oriented economic
development will be encouraged in the coastal
areas capable of sustaining the activity without
damage to the natural resource.
b. Economic development which is neither water
dependent nor water oriented will be prohibited
from the coastal areas.
c. Resource dependent economic development will be
permitted in the coastal management area.
d. Proposals for economic development in the coastal
area.must demonstrate significant net benefits

over less intensive alternative uses of the

coastal area.
e. Economic development which provides significant
employment and income-opportunities for Indian
ownership and tribal revenues will be encouraged.

COASTAL AREA BOUNDARIES AND AREAS OF CONCERN

A. Boundaries of,the Coastal Management Area
The boundaries of the Coastal Management Area are intended
to include both the lands directly influenced by the

marine environment and those lands which will have a

direct and significant influence on the coastal area
resources. The Coastal Management Area is defined as
the coastal area (the wetlands, intertidal zones, and
marine waters-of the Reservation) and the uplands which
have a significant relationship with the coastal area.
These lands, necessary for management of the coastal
resources, include:
1. All Reservation lands below the line of extreme
low tide -and the waters over them;
2. All tidelands to the line of extreme high tide
and the waters over them;

3. All lands abutting the tidelands which are strongly
influenced by the marine environment to a depth of
200 horizontal feet from the line of extreme high
tide;
4. All wetlands defined by the EO 11990;
5. All lands abutting the coastal area which are subject
to the actions of the coastal area natural systems
or other natural systems (coastal bluffs, slide
prone areas, ravines);
6. All lands which substantially influence the coastal
waters and coastal area resources (Tulalip, Mission
and Quilceda Creek Drainage Basins);
7. All areas of concentrated development abutting the

coastal area.

B. Areas of Particular Concern

1. Criteria for Areas of Particular Concern. The

coastal areas on the Reservation that are of particu-

lar concern are listed below because each meets at
least one of the following criteria:
a. The area is unique becuase of the habitat it
provides, the physical features, historic or

cultural assets or scenic value.
b. The area is of exceptionally high natural produc-
tivity and contributes significantly to the

coastal area food web.

c. The area is now used for active recreation or has
significant potential for recreation development.
d. The area does or can support water dependent de-
velopment.
e. The area has unique geographic features that suit
it for industrial development.

f. It is an area of urban concentration.
g. It is an area susceptible to natural hazards.
h. The area contributes significantly to the operation
and maintenance of a ntural system which supports

coastal area resources.

2. Designated Areas of Particular Concern Several
of the areas listed below have a number of the
criteria for areas of particular concern; others
only one. The Reservation coastal areas listed
here as areas of particular concern are those
which warrant special attention.
a. Tulalip Bay.
Tulalip Bay has unique characteristics in the
Snohomish estuary system. It is the only
natural, protected bay, guarded by high, stable
bluffs and a sand spit stretchning across the
entry. The spit acts as a natural breakwater
and shields the inner bay shorelines from the
wave action of Port Gardner Bay. At the same
time, the sand spit dissipates the wave energy
causing the suspended silts from the Snohomish
River to deposit in the inner bay. Tulalip Bay
has high quality water, designated as Class A
by the State of Washington, and is an integral
part of the tribal fisheries enhancement pro-
gram. At-the same time, the bay is the center
of the Reservation's urban activities and supports
a wide variety of uses: residential, commer-
cial, recreational and institutional. The bay
is the base of the rapidly growing tribal
fishing fleet and the Tribes has extensive
plans for continued development of the bay area.

Tulalip Bay is the principal natural asset of
the Tulalip Tribes. Because of the existing

concentration of the urban uses and the devel-
opment potential of the site for tribal programs,
water quality is the primary concern at Tulalip
Bay.- The Tribes must be assured that planned
development at Tulalip Bay will not cause signif-
icant degradation of the waters and jeopardize
the fishery.

b Ebey and Union Slough Wetlands.
The wetlands at the mouths of Ebey and Union
Sloughs provide a rich habitat for a wide
variety of wildlife and are significant con-
tributors to the food web. Upstream sources
of pollution are a problem for this highly
productive natural area.
c. Quilceda Creek and Associated Wetlands.
The Quilceda Creek area is a remarkably varied
transitional area; highly productive and filled
with wildlife. Because of the easy access to
this area, it has particular significance as a
scientific, educational and recreational resource.
For the same reason, the Quilceda wetlands have
been the site of indescriminate dumping of all
kinds of wastes and encroachment of development.
Upstream construction and generation of pollu-
tants has resulted in deteriorating water quality
and damage to the natural environment.
d. Big Flats Land Fill.
The completed land fill on Ebey Island represents
both an opportunity and a potential problem.
Leachates from the fill contribute to the pollu-
tion load of Port Gardner Bay. Little known of
the nature or quantity of the leachate or its
effect on the surrounding wetlands and waters.

The landfill site is also a prime potential

industrial location. It is well served with

road and potential rail access, secure from
flood damage, and has water access. The Big
Flats site has been planned for industrial
development for many years and may provide
significant employment and income to tribal

members.

e. Tulalip and Mission Creek Dr ainage Basins.
Tulalip and Mission Creek are the sources of
water for the Tribes fish rearing ponds and are
an indispensible part of the fisheries program.
The drainage basins of these creeks have been
the site of continued logging. Although the
development pressures in these drainages has
been slight, unless activity in the area is
closely regulated and monitored, there could
be serious degradation of the waters of these
creeks and a threat to the fisheries program.
Diversions, blockage of flows, alteration of
the basin hydrology could also jeopardize the
Tulalip fisheries program.
f. Beachfront Settlements.

Continued development in and around the estab-
lsihed beachfront communities of Spi-bi-Day,
Tulare Beach, Tulalip Shores, and Priest Point
could result in pollution of the coastal area
and shellfish from septic tank effluents and
further encroachment by filling. Access to the

beaches and tidelands in these communities is
often restricted and discouraged. Bulkheading
in several locations is failing and both erosion
and flooding are present hazards.
g. Bluff Top Development.
Most of the coastal area of the Reservation
is high bluffs. In some areas, the bluffs con-
tain unstable soils. Development at the tops
of these unstable areas results in increased
subsurface waters from septic tanks which lub-
ricate the soils and cause increased sluffing
and slumping. This action, along with the
natural undercutting by beachfront wave action,
may lead to severe slide and erosion conditions.
Bluff top development must be controlled and

monitored.

III. AREAS AND FACILITIES OF NATIONAL INTEREST
The Coastal Zone Management Act1require� that facilities
of national and regional interest must be accommodated in
the planning process, and must not be unreasonable restricted.
Because of the wider interests involved, all agencies with
responsibility should be encouraged to support the development
of facilities of national interest. On the Tulalip Reserva-
tion there are two types of facilities of national interest.
A. Fishery Enhancement Program
The first type is the fisheries enhancement complex at
Tulalip Bay. Following the courts decision in United
States v Washington, upholding the Indian treaty rights
to access to the fishery, a federally established
fisheries management system was set in place. Concurrently,
with the management system, an extensive, federally sup-
ported fisheries enhancement program was launched. The
fish propagation facilities, which have been installed
over the years at Tulalip Bay, and those that are now
in the planning stage, are an integral part of the
federally assisted enhancement program.
B. Economic Development
The second type of facilities of federal interest are
the tribal and other Indian investments in projects for
economic development. In 19 the Indiance Self-Deter-
mination Act2 set out as federal policy, the right of
.Indians for governmental self-determination and economic
self-sufficiency. To this end, the gQvernment has pro-

vided financial and technical assistance to the Indian
people to develop the means of generating income and
employment. The development program of the Tulalip
Tribes, which includes land development, business ven-
tures, public facilities and other programs in support
of its members, is a direct expression of the federal
interest in Indian @jelf-determination.

1 16 U.S.C. 1451 et.seq
2

IV. POLICIES FOR PERMITTED USE

A. The coastal area resources of the Reservation are the
major source of income and employment for tribal members.
It is the policy of the Tribes to use these resources
to the fullest extent possible consistent with the long
term maintenance of the resources.

B. The coastal area of the Reservation can accommodate and
support a wide variet y of uses; each of which contributes
to the Tribes' goals of self determination and self
sufficiency. The Tribes will seek a balance of resource
use and development.
C. Recognizing that some uses of regional and national
benefit may not directly contribute to the Tribes' goal
of self-determination, the Tribes will not unreasonably
restrict such uses in so far as they do not preclude

or threaten tribal use of the coastal area resources.
D. The coastal area in its natural state, is a rich provider

of resources for the Tribes. Unless it can be demon-
strated that any proposed use or alteration of the
natural state of the coastal area will result in over-
all, substantial and sustained benefits to the Tribes,
the use will be restricted or prohibited in the coastal

area.
E. The coastal area of the Reservation is a part of the
historic and cultural heritage of the Indian people.
Any use which tends to diminish this heritage must be
justified by substantial contribution to other tribal
goals.
F. The natural beauty is a major component of the coastal
area and its value to the Tribes. Every effort will be
made to insure that permitted uses will contribute to
the aesthetic quality of the coastal area.

V. PERMISSIBLE LADT4 AND WATER USES

The permitted land and water uses in the Coastal Management
Area are classified into three broad categories below. The

specific uses within each area designated in the Coastal
Area Management Plan are set out in the controlling regu-
lations in Ordinance 35.

A. Water Dependent Uses
1. Marine resource use: propagating, raising and
harvesting fish and shellfish.
2. Activities which aid or protect natural systems
in producing marine resources.
3. Activities and uses necessary for the health,
safety and welfare of the people of the Reser-

vation.
4. Non-consumptive water uses, such as recreation,
educational, scientific and aesthetic enjoyment.
5. Water dependent commercial and industrial use.
Activities which require direct contact with the
water,such as fisheries support facilities,
marinas, marine transportation, utilities and

water borne commerce.

B. Water Oriented Uses

1. Uses which require direct access to the water
as An integral part of their function. Fish
propagation facilities, repair and support
facilities for the fishing fleet.
2. Recreational uses requiring public access to the

water.

3. Commercial and industrial uses reauiring water

access.
4. Developments requiring high amenity. Cultural
facilities, places of public accommodation and
entertainment, and housing in urbanized areas.
C. Non-water Dependent or Water Oriented Uses Permitted
1. Facilities necessary to protect the public from
natural hazards, such as erosion, landslides and

flood control.

2. Uses which are non-consumptive, non-degrading
of the environment and do not preempt the resource
for other uses.

3. Uses which enhance marine resources.

4. Scientific research.
5. Uses which foster the fishery.
6. Resource dependent activities.
7. Water dependent commerce and industry.
8. Uses which preserve, conserve or enhance natural
systems.
9. Uses which preserve, conserve or enhance historic,
cultural or archeological resources.
10. Water oriented resource enhancement and support

facilities.

11. Water oriented commerce, industry and cultural
facilities.

12. Water oriented recreational facilities.

13. Residential development.
14. Non-water oriented permitted uses.

VI. METHOD OF EVALUATION

Because of the importance and sensitivity of the Reservation
Coastal Area, all proposed uses must be evaluated to the
extent that the Tribes can be reasonably certain that the

use will not be detrimental. To achieve this level of
certainty, the following procedure will be used in evaluation
of proposed uses of the Coastal Management Area.
A. Project Description
A comDlete written and graphic description of the proposed
use will be submitted. Wherever possible, the project
characteristics will be quantified. The description
will include: the size, shape and location of any
structures; the size, shape and location of any alter-
ations to the physical environment; the nature, frequen-
cy and duration of activities associated with the project;
the benefits expected of the proposed use; and the

special requirements and constraints of the proposed
use that require a coastal area location.
B. Background and Baseline Data
The applicant will submit a complete description of the
coastal area setting in which the use is proposed. It
is the responsibility of the applicant to contact and
collect the pertinent data from all private, federal
and.state and local agencies that is readily available.
Background and baseline data will include:
1. A complete description of the physical character-
istics of the area, addressing those elements of
the environment listed in the State Environmental

Policy Act (WAC 197-10-444).
2. The applicant shall describe the relationship
between each element of the environment and the

proposed use.
C. Capability Analysis
Each Coastal Management Area proposal shall contain an
analysis of the capability of the environment to sustain
the present resources and identify the critical factors
for maintenance of the environment. The capability
analysis will set out all known and adopted environ-
mental standards and criteria pertinent to the project
and identify their source.
D. Impact Analysis
Each Coastal Management Area proposal shall include a
detailed statement of the anticipated impact of the
use on each element of the environment that is appli-
cable. The statement shall stress quantitative mea-
surements of the impacts and will include cummulative
and secondary,as well as direct, effects. Potential
adverse impacts will be described as to magnitude,
frequency and duration. When the possibility of ad-
verse environmental impacts is apparent, the proba-
bility of occurance will be stated in as precise terms
as possible. When the available information to analyze

the potential impacts on the environment is insufficient,
the applicant shall describe an appropriate method of
collecting and analyzing the required information and
the costs of obtaining it. The impact analysis shall
also include a description of the project features
designed to mitigate adverse impact, features designed
to enhance the coastal area resources, additional and
alternative measures that might mitigate adverse impacts,

and the cost and effectiveness of these@efforts.
E. Project Evaluation
Upon receipt of all the information deemed necessary
to evaluate the proposed Coastal Management Area use,
the Tribes will evaluate the proposal guided by the
following principles: T
1. All.uses of the coastal resources must be in

accordance with the Tribes stated goals and
objectives for coastal area use and development.
2. The benefit of the use must be reasonably balanced
against its detriments. The project must reason-
ably demonstrate that the benefits expected from
the proposed use outweigh both the probable adverse
consequences of the use and reasonable alternative
uses of the resource which would be precluded by
the proposed development. The alternative uses
considered must be identified in the plans of the
Reservation and be reasonably achievable.
3. The evaluation of possible impacts will be based
upon a balancing of the probability of occurance
and the expected magnitude of the impacts antici-
pated. The greater the adverse impact potential,
the lower the acceptable probability.
4. The Tribes will not required rigid adherence to
arbitrary environmental standards, but will demand
the levol.of compliance necessary to sustain and
protect the resource.

5. All interested will be considered and balanced:
environmental, economic, social and cultural;
tribal, federal, state and local. The evaluation
will cite the adopted polici;s of all interested
parties and indicate the degree in which the pro-
posed use supports or conflicts with those policies.
6. When reasonable locational and development alter-
natives exist, the proposal which is least disrup-
tive to the natural state or consumptive of coastal
area resources will be favored.

VII. MEANS OF CONTROL

A. Organizational Structure
The Tulalip Tribes of Washington is a federally chartered
government established under the provisions of the Indian
Reorganization Act of June 18, 1934 (225 USC 468 et. seq;
48 Stat 984). The Tulalip Tribes adopted a constitution
in 1936 which provides for a Chairman and Board of Direc-
tors as the governing body of the Tribes. The Tribes
employs a professional staff to conduct the daily busi-
ness of the Tribes (organizational chart).
B. Legal Authority to Regulate and Acquire
Under the provisions of the Constitution (Art. VI & VIII:
Charter, See 5), the Tribal government has the authority
to lease tribal lands; purchase lands; levy taxes and
license fees; to exclude from the Reservation persons
not legally entitled; to maintain law and order; to
conduct business with land for profit; and regulate
the use and disposition of property
C. Regulatory Measures
In July of 1973, the Tulalip Tribes adopted Ordinance
35, the Reservation Zoning Ordinance. This ordinance
establishes the Comprehensive Plan as the land use
guide for reservation development, provides for zoning
districts with restricted uses, establishes development

For a complete description of the legal authority of the Tribes to
exercise land use controls, see Appendix A of the Comprehensive
Plan, Tulalip Reservation.

standards and a permit system for developm ent control.
The Zoning Ordinance is administered by a Hearing
Examiner appointed by the Board of Directors. His
duties include: Issuance of use and occupancy per-
mits; hearing variances and conditional use permit
applications; amendments to the Zoning Ordinance and
Comprehensive Plan and amendments to the Zoning Map
(rezones). The actions of the Hearing Examiner and
appeals from his decision are heard by the Board of

Directors.

Ordinance 35 is to be amended by adopting the Coastal
Area Management Plan as a component of the Comprehensive
Plan and requiring the Hearing Examiner to use the
policies and methods of evaluation in the Coastal Area
Management Plan on all proposals that fall within the
Coastal Management Area.

D. Notification of the Public and Interested Parties

Public notification by publishing and posting is re-
quired by Ordinance 35 for any action regulated by the
Zoning Ordinance. When any action is to be taken under
Ordinance 35, which is loacted in the Coastal Management
Area, or will have a significant affect on the coastal
area resources, all "agencies with jurisdiction" as
defined in the State Environmental Policy Act (197-10
WAC), will be notified. These provisions along with
the A95 process for federally assisted actions, will
provide ample notice to all parties with an interest
in the management of the coastal area.
E. Consultation and Coordination with Other Agencies
The Tulalip Tribes is a member of the Puget Sound Council
of Governments, Snomet, the Regional Water Quality
Advisory Council, and many other intergovernmental
coordinative bodies. The Tulalip Tribes has maintained
excellent working relations with all levels of govern-
ment over the years and is in continuous contact with

interested agencies. In addition to formal notifi-
cation requirements such as A95, these less formal
contacts provide a working forum for exchange of views
and concerns.

During the review period, and in the hearing process,
all agencies.and interested parties will have the
opportunity to participate. At this time , conflicts
between the parties can be identified, additional in-
formation developed, solutions proposed and conflicts

resolved.

The list of federal and state regulatory citations
listed in Appendix indicates the extend to which the
management and concern over the resources is shared.
In addition to those listed, Snohomish County through-
out its zoning and subdivision regulations, Shorelines
Master Program, and other governmental operations, also
influences coastal area development. However, it must
be pointed out that because of the unique status of
tribal governments, the extent to which many of these
agencies exercises the jurisdiction under the authori-

ties cited is uncertain.

F. Standards Adopted
Before issuance of any permit or approval under Ordinance
35, the Hearing Examiner must require full documentation
of the proposed action and may require all measures
necessary to further the purposes of the Ordinance and
the Coastal Area Management Program. To evaluate the
proposals and determine the significance of the impacts
the use or activity may have on coastal area resources
the Tribes may adopt standards and criteria. Princi-
pal among these are the Federal Air and Water Quality
Control Act which are incorporated into this program.

APPENDIX B

STATE AND FEDERAL COASTAL AREA REGULATIONS

Revised Code of Washington (RCW) listings:
RCW` 43.20, Public Health, Department of Social and Health
Services
RCW 43.21c, State Environmental Policy Act
RCW 43.30, Department of Natural Resources
RCW 43.51, Parks and Recreation Commission
RCW 56'and 57, Sewer and Water Districts
RCW 75, Department of Fisheries
RC!W 76, Department of Natural Resources
RCW 77, Department of Game
RCW 79, Department of Natural Resources
RCW 85.05 and .06, Diking and Drainage Districts
RCW 89.08, Conservation Districts
RCW 90.48.260, Department of Ecology
RCW 90.58, Shorelines Management Act
RCW 352.32, Parks and Recreation Commission

Code of Federal Regulations (CFR) listings:
15 CFR 920, 923, NOAA/NMFS Grant Regulations
33 CFR 209.320-329, U.S. Army Corps of Engineers Regulations
36 CFR 800, Historic Preservation Review
40 CFR 115.220-229, 230, Environmental Protection Agency
Regulations

Washington Administrative Code (WAC) listings:
WAC 173-220, National Pollutant Discharge Elimination
System (NPDES) Permits
WAC 197-210, State Environmental Policy Act (SEPA) Guidelines
WAC 232, Game Regulations
WAC 332, Department of Natural Resources

United States Code (USC) listings:
16 USC 1531-1543, Endangered Species Act of 19.73

Federal Register (FR) listings:
FR 40, 231, December 1, 1975, U.S. Fish and Wildlife Service

Public Law (PL) 92-500, Federal Water Pollution Control Act
and Amendements

APPENDIX C

REFERENCES

Department of Commerce, Coastal Zone Management Program,
Administrative Grants, Notice of Final Rulemaking, Federal
Register Vol. 40 No. 6 Part.1, Thursday, January 9, 1975.

Drost, B.W., WATER RESOURCES OF THE TULALIP INDIAN RESERVATION,
U.S. Department of Interior, Geological Survey, Tacoma 1977.

Department of Ecology, APPLICATION TO THE SECRETARY OF COMMERCE
FOR APPROVAL OF THE STATE COASTAL ZONE MANAGEMENT PROGRAM, Olympia
1975.

Jermann, Jerry, ARCHEOLOGICAL POTENTIAL IN TULALIP BAY
University of Washington, 1975.

The Latourelle Associates, COMPREHENSIVE PLAN, TULALIP RESERVATION,
Seattle, 1972.

IBID/Calvin Jordon Consultant, PARK AND RECREATION PLAN, TULALIP
RESERVATION, Seattle,1973.

IBID, DEVELOPMENT PROGRA121S AND STRATEGIES: TULALIP RESERVATION,
Seattle, 1974.

IBID, COASTAL ZONE MANAGEMENT STUDY OF INDIAN TRUST LANDS IN
WESTERN WASHINGTON, Department of Ecology, Olympia, 1975.

Meyer, John H., A REVIEW OF THE LITURATURE ON THE VALUE OF
ESTUARINE AND SHORELINE AREAS TO JUVENILE SALMONIDS IN PUGET
SOUND WASHINGTON, U. S. Fish and Wildlife Service, Olympia, 1979.

OVERALL ECONOMIC DEVELOPMENT PLAN, THE TULALIP INDIAN RESERVATION,
Tulalip Tribes, 1976.

Parametrix, Inc., WATER QUALITY AND NEARSHORE FISH INVESTIGATIONS
IN TULALIP BAY, WASHINGTON, Bellevue, 1979.

,5.b.qpiro and Associates, Inc.,/Andrew-L, Driscoll,,Consultant,
SNOHOMISH ESTUARY WETLANDS @,TUDY, SIRq-4ARY'REPORT, VOLUME 1,
Corps of Engineers, S'eattle, May- 1979..

IBID, BASELINE INFORMATION AND EVALUATION, VOLUME II.

IBID, CLASSIFICATION AND MAPPING, VOLUME III

IBID, DELINEATION OF WETLAND BOUNDARIES, VOLUME IV.

Snohomish County Planning Department, OVERALL ECONOMIC DEVELOPMENT
PLAN, Everett.

Snohomish County Planning Department, SNOHOMISH COUNTY SHORELINE
MANAGEMENT MASTER PROGRAM, Everett, 1974.

Snohomish County Planning Department, SHORELINES OF SNOHOMISH
COUNTY, INVENTORY SUMMARY, Everett, 1973.

Triad Associates, TULALIP RESERVATION ENVIRONMENTAL STUDY,
Bellevue, 1977.

Triad Associates, TULALIP RESERVATION: PROPOSEDENVIRONMENTAL
ORDINANCES, Bellevue, 1977.

TULALIP FISHERIES REPORT, The Tulalip Tribes, 1978.

APPENDIX D

PROPOSED AMENDMENT TO TULALIP ZONING ORDINANCE

In order to assure the protection of the coastal area resources
through proper evaluation of project proposals, the following
amendments to Ordinance 35 are recommended:

Section 1.0 PURPOSE
.... as set forth in the Comprehensive Plan AND RELATED
DOCUMENTS; to bring to .....

Section 2.0 DEFINITIONS
Add COASTAL AREA MANAGEMENT PLAN The Policies, guidelines
and procedures adapted for the development and protection
of the coastal area resources of the Reservation by the
Board of Directors by its Resolttion #
of day of Y 19-, which by this reference
is incorporated herein and made a part of this ordinance.

Add COASTAL MANAGEMENT AREA The area of the Reservation

where development and other activities could significantly

influence the coastal area resources of the Reservation as
described and mapped in the Coastal Area Management Plan.

Add MAJOR ACTION OR PROJECT Any action or project within
the Coastal Management Area which may have a measurable or
significant influence on the coastal area resources. Major
actions or projects will include any proposal which:
1. Requires the removal or emplacement of 500 cubic
yards of material,*
2. Any structure 2,000 square feet or larger at the
perimeter;
3. Any action or project which would cause an increase
of 3 cubic fee/second in the peak surface water
runoff during a ten year storm over the runoff
during natural conditions;

4. Any activity proposed which would occupy
20,000 square feet of land area or more;
5. Any action or project which would be likely
in the worst case condition to cause a

measurable adverse impact on the coastal area

resource; .
6. Any subdivision of more than four lots.

Section 4.1.3 (New Section) COASTAL MANAGEMENT AREA
4.1.3.1 Before the issuance of any approval or permit, the
Hearing Examiner shall determine if the project or
action proposed is within the Coastal Management
Area. All projects within the Coastal Management
Area will meet the guidelines and principles set
forth in the Coastal Area Management Plan.
4.1.3.2 The Hearing Examiner shall determin if the proposed
action or project is a major action or project. This
determination will be made on the basis of the project
information submitted to the Hearing Examiner, investi-
gation of the site of the proposed action or project,
and consultation with other persons and agencies with
expertise in the coastal area resources and resource
development.
4.1.3.3 All major projects or actions will be evaluated in
accordance with the procedure prescribed in the
Coastal Area Management Plan.
4.1.3.4 On any project within the Coastal Management Area,
the Hearing Examiner may establish any reasonable
conditions to any permit or approval which he deems
necessary for the protection of the coastal area
resources and xhievement of the Coastal Management
Plan Goals and Objectives. If there are no conditions
which could be applied to the project or action
which would satisfy the Goals and Objectives of the
Coastal Area Management Plan, the Hearing Examiner may
withhold approval and deny any required permit.

Section 4.1.4 (Strike)

Section 4.7 USE AND OCCUPANCY PERMIT
...with the procedures specified in Section 5.
All projects within the Coastal Management Area
will be additionally subject to the procedures
specified in Section 4.1.3 and found to be in
compliance with the Coastal Area Management Plan.

Section 5.4 FEES

add 5.4.7 The costs of evaluating and administering any
proposal regulated by this ordinance shall be
borne by the applicant. Such costs shall
include: Hearing Examiner fees, fees of technical
specialists, administrative overhead and direct
expenses necessary for complete evaluation of
the proposal.

APPENDIX A
SUMMARY OF WETLAND AND AQUATIC HABITAT
TYPES FOUND IN THE TULALIP COASTAL ZONE

Extracted from: U.S. Army Corps of Engineers
Snohomish Estuary Wetlands Study
(Burrell, 1978)

Wetland and Aquatic Habitat Types on the Tulalip Reservation
5 Water

Both marine and freshwater habitats are considered in those
classifications in which water is the principal medium.

Description: This habitat type includes a wide variety of water
bodies within the study area. The estuarine river channels and
small streams, inland ponds and lakes, and the open waters of
Possession Sound are part of this habitat type. Salinity varies

from the marine waters of Possession Sound to freshwater lakes
and streams. Water is the medium which transports detritus from
wetland and upland habitat types to intertidal and subtidal areas.
Phytoplankton are the primary producers of the water habitat,
and the basis of a grazing food web which includes zooplankton,
crabs, salmon and other aquatic fauna.

Significant Relationships: Water is not only the habitat for fish,
shellfish, and plankton, it also provides resting and feeding
habitat for waterfowl, wading birds and a few upland mammals such
as beaver, muskrat and otter. Water is the transport medium of
detritus, carrying it from the wetland habitat types to the inter-
tidal flats and beyond.

Water is also used to dilute and dissipate municipal and industrial
wastes. Materials which are discharged into the estuary are meant
to be transported out-of the river and into Possession Sound.

51 River/Stream
Running water habitats are distinguished by a definite current
which varies greatly with valley shape and other geo-hydraulic
features in different streams and in different segments of the same

stream course.

Streams and creeks are the backbone of the Tulalip Reservation

drainage system. They allow the movement of nutrients into the
estuary and bay from far ther upstream, with which, the productivity
of the system would drastic ally decrease. It is critical habitat
for benthic invertebrates, anadromous fishes, Ospreys, Great Blue
Herons, Double-crested Cormorants, Belted Kingfishers, waterfowl,
grebes, swallows, gulls, riber otters, mink, beaver, muskrats,
raccoons and harbor seals. Decline in water quality and alteration
to creeks and streams will result in decreased productivity and
numbers of animal and fish species.

511 Estuarine Zone

Strongly influenced by the marine environment and can be distin-
guished by a branching channel pattern in a broad, flat valley.
The stream channel gradient is near 0 feet per mile with the result
that weak currents deposit silt and mud in the stream bed.

515 Intermittent Stream
Streams which lack a sufficient watershed to sustain year-round
flow and are thus distinguished from other flowing waters. Although
abbreviated, zonation does occur along the stream course and
resultant geo-hydraulic features will be similar to larger streams.

52 Lake/Pond
Permanent standing water habitats are numerous in the recently
glaciated Pacific Northwest. They occur in local depressions of
varying depth and may or may not contain emergent vegetation. They
are important habitats for waterfowl, shorebirds, aquatic mammals,
amphibians, fish and species which are associated with marshes,
swamps and riparian vegetation. Loss of these habitats would be
detrimental to almost all species of animals found in the Snohomish
River Basin. For this reason, they are some of the most critical
habitats found in the study area. (A list of animals seen in this
type is given in Table B-1.)

521 Lake
For mapping purposes, those with a surface area greater than 20

acres. Open water areas are relatively large compared to near-
shore zones and are usually the primary producing'regions for the
lake.

522 Inland Pond
Standing water with a surface area less than 20 acres situated at
higher elevations than the beach fringe or river delta. Ponds are
typically shallow; therefore, the nearshore zone is an important
primary producing area.

524 Beaver Pond
Standing water formed along small streams by the damming activities

of beavers.

526 Fish Rearing Facility
Rearing ponds for juvenile salmon.

54 Bay/Estuary
This category includes moderately protected marine embayments
commonly referred to as bays, harbors, inlets and coves. They have
free connections with the open sea; wind and wave action is modi-
fied by protective uplands, and freshwater inflow creates variable
salinities. Bluffs, beach substrates, marshes, eelgrass beds and
other intertidal habitats associated with these embayments are
greatly affected by upland, freshwater and marine influences and
should be viewed as integrated communities, not as individual
habitat types.

Bays and estuaries are dynamic natural systems. Important aspects
of these systems are their high productivity'and the extremely
diverse life forms they support. The delicate balance and operations
of these areas is dependent on the interrelationships of complex
natural processes that go on not only in the ocean and rivers but
on land and in the atmosphere as well. Bays and estuaries are
fragile environments, and seemingly modest alterations in:the
processes that govern them can cause major changes in the biota
which they support.

55 Impoundment
Those portions of both marine and freshwater habitats isolated
from marine waters by man-made obstructions.

59 Open Water
Those marine waters commonly referred to as Sounds, Straights
and Reaches other than bays and estuaries. The open salt water
of Puget Sound is contiguous with the western shore of the Reser-

vation.

6 Aquatic Lands
Designates those lands which are either covered by water or
strongly influenced by adjacent waters (Fig. B-1).

61 Aquatic Land-Forested
Areas that have surface or standing water during some portion of
the year and are at least partially forested.

611 Intertidal Freshwater/Brackish Swamp
This is a shrubby or forested area in which the tidal influctua-
tion results in inundation and/or water table fluctuation.
Although the frequency and duration of tidal inundation are not
known, the boggy soil and fluctuating water level in shallow depres-
sions are strong evidence of tidal influence. The vegetation in
these areas is of three major types: Coniferous trees, broadleaf
deciduous trees, and shrubs. The coniferous trees are predomi-
nantly Sitka Spruce. Broadleaf deciduous trees found in the swamp
include alder and several species of willow. Wild rose, Nootka
rose, honeysuckle, Ninebark and Spiraea are the most common shrubs
found in the swamp habitat. Cattail and Goldenrod may also be
associated with swamp habitats.

6111 With Picea

This habitat class is defined by the presence of Sitka Spruce.

Distribution: There are parcels of intertidal spruce swamp at
Quilceda Creek.

Significant Relationships: The swamp habitat type supports a
wide variety of fauna. Insects are abundant in the boggy, densely
vegetated community. These insects are an important food source
to small songbirds such as wrens and chicadees. Insects are also
an important food source to woodpeckers, which depend on snags for
feeding grounds. A wide variety of small rodents, such as mice
and moles, are common on the ground and in the low branches of
swamps. These small'mammals and birds are preyed on by larger
mammals such as muskrat, mink and raccoon. These larger mammals
often next in dens or hollow logs within the swamp. Deer may also
browse in swamps, especially forested swamps with a somewhat less
dense understory. Raptors often next in coniferous trees and also
rest there when not hunting.

The swamp habitat type is highly productive, generating abundant
detritus. However, since the swamp has a relatively high tidal
elevation, much of this detritus is deposited as forest litter,
rather than being exported into the aquatic ecosystem. As a habi-
tat for a wide variety of birds and mammals the swamp is an impor-
tant part of the food web which constitutes the estuarine ecosystem.

62 Aquatic Land-Vegetated Nonforested
That portion of the wetlands which is non-forested but may be
densely vegetated, e.g., marshes, bogs, meadows, and intertidal

areas.

Estuaries rank along with rain forests and coral reefs as some of
the most productive ecosystems known to man. The major contributors
of the primary productivity within the estuarine system are marine
plant communities (ie kelps, eelgrass, other algal associations and
salt marshes). Thus, they are also the major contributors of
organic matter in estuaries. There are two ways in which this
organic matter is used by animals. Plants are either grazed directly
by herivores, or second, the organic matter is used by detritus
feeders which eat dead or decaying plant material. These plants
are also important to animals as a substrate to live on and as
cover for refuge from predators. A specific example of their use

is eelgrass which is used as a substrate, as direct food for a
small number of herbivorous species, as food for detritivores,
as a stabilizer for a mud substrate, and as cover for organisms
requiring quiet or silt-free water. (Phillips 1974).

Marine plant communities form the basis for some of the most complex
food webs known to man. Because of their complexity any destruction
of these plant communities will negatively effect the biota of the
entire estuary.

Like marine plant communities, freshwater marshes also tend to be
naturally fertile systems (Odum, 1971). Due to the lack of tidal
action and flowing water, they affect a smaller area than marine
plant communities and thus, support less complex food chains.
However, they are used by a large number of wildlife species (i.e.
beaver, muskrat, otter, coyotes, raptors, waterfowl, song birds,
Great Blue Herons, fish, benthic invertebrates and amphibians).
Some of these species live almost exclusively in marshes, while
others are dependent on marshes to some degree.

One of the most valuable uses of marshes is their ability to
moderate extreme highs and lows in stream flow.

621 Nereocystis Communities
The kelps (Nereocystis spp.) are a group consisting of large brown
algae which are often a conspicuous component of the shoreline.

Kelp is found where rock, cobble, or coarse gravel substrates are
present; and exists in both the lower intertidal and shallow
subtidal regions.

623 Eelgrass
Eelgrass is a rooted plant found in the lower intertidal and
shallow subtidal zones of marine habitats. It often forms large
dense beds on muddy sand flats. The abundant rhizomes and roots
of eelgrass often form thick mats which resist erosion, thus
stabilizing the substrate.

Distribution: Extensive eelgrass beds are found on the shallow
mudflats at the mouth of the Snohomish River. These flats extend
westward to Tulalip Bay and'south to the south end of Jetty Island.
More than 40% of the 3,000+ acres of flats in this area are vege-
tated with eelgrass. In addition, there are eelgrass beds in Tulalip
Bay, although they are not extensive.

Significant Relationships: Eelgrass provides food, shelter, and
substrate for a diverse population of organisms., Numerous species
of algae, bacteria, and invertebrates reside on eelgrass blades.
Many of these in turn are food for the fish and crabs which inhabit
the beds. The dense vegetation and thick root mass provide shelter
for fish, crabs and benthic organisms. All of these in turn are
food for a diversity of larger fish, waterfowl and occasional raptors.
Shellfish, including cockles and some clams, are found in eelgrass
beds. Detrital material, the remains of dead plants such as eelgrass,
are known to be food for a variety of filter feeding organisms,
including many which are residents of unvegetated flats. Eelgrass
beds are also important spawning and rearing grounds for herring.

622 Other Algal Associations
Algal communities in intertidal areas are composed of green, brown
and red algal types. Certain types may be separated on the basis
of substrate types and tidal levels.

6221 Ulvoids
Green algae occurring mainly in the low to mid tide range in large
mats. Characteristically occurs in spring and in sheltered areas
during the summer.

624 Salt Marsh
Description: These are communities of intertidal vascular plants
which are capable of withstanding daily inundation with marine
waters. The frequency and duration of inundation are a function
of elevation and the various communities tend to segregate according
to elevation. Thus, there is a plant community zonation within the
marsh with respect to elevation.

Distribution: Salt marsh areas are located on North Ebey Island,
west and south of the landfill and at Tulalip Bay. There are 145
acres of salt marsh between Priest Point and 1-5, with 90% in the
Quilceda Creek area.

Salt marshes provide a feeding habitat for a variety of birds and
mammals. Seeds of marsh plants (e.g. sedge) are a food source to
waterfowl, especially dabbling ducks. Songbirds such as sparrows,
and small mammals also feed on marsh plants when the tide is low.
Insectivorous birds such as swallows, wrens and tits are often

observed to feed on the numerous insects associated with marsh
habitats. These small birds and mammals in turn provide prey for
the raptors (especially hawks) and carnivorous mammals (mink,
raccoon, muskrat) which often enter marsh areas.

In addition to feeding, numerous birds use the marsh for nesting
and resting. Some waterfowl may next in the salt marsh, and many
take shelter there during moulting. Rails, bitterns and some wrens
breed in the high marsh; they build their nests above the high water
mark or hang them from the vegetation.

Salt marshes are hig hly productive habitat types which, due to
frequent tidal inundation, export much of that productivity as
detritus into the aquatic system. This detrital material in turn
is a major food source for the abundant detritovores that occupy
nearby mudflats.

6241 Carex

A plant community in salt marsh dominated by Lyngby's sedge. This
community occurs primarily along the edges of Ebey and Steamboat
Sloughs.

6242 Triglochin - Carox
A plant community where seaside arrowgrass (Triglochin maritimum)
and Lyngby's sedge are dominant.

6243 Carex - Potentilla - Agrostis - Triglochin - Deschampsia
A plant community where Lyngby's sedge, Pacific silverweed, bent-
grass, seaside arrowgrass and tufted hairgrass are dominant.

6244 Juncus - Potentilla - Agrostis - Triglochin - Deschampsia
A plant community where Baltic rush, Pacific silverweed, bentgrass,
seaside arrowgrass and tufted hairgrass are dominant.

6245 Disturbed Carex
Continual disturbance by drift logs, not by other types of disturb-
ance, create this diverse salt marsh community. Common plants in
this type are Lyngby's sedge, Pacific silverweed, common silverweed,
Douglas aster, common orache, tufted hairgrass, bentgrass, meadow
barley, bulruch, common cattail, seaside arrowgrass and meadow
goldenrod.

6247 Salicornia
A slat marsh characterized by the presence of pickleweed. Pickle-
weed was found only on shoreline of Tulalip Bay.

625 Brackfish/Freshwater Intertidal Marsh
These are vegetated intertidal areas which receive regular brackfish
or freshwater inundation. Almost 90% of this habitat type is
represented by a mixed cattail/bulrush community (6252 habitat type).

120 acres are scattered as small parcels west of 1-5 on Ebey Island.
There are about 105 acres of this habitat type in the Quilceda Creek
area, with about 95% east of the creek.

The sedge marsh is an important feeding habitat for waterfowl;
the seeds are eaten by numerous dabbling ducks. Its low elevation
along the slough makes it a popular feeding area which is easily
reached from the water at most stages of the tide.

Cattails and bulrushes are an important feeding and breeding habitat
for a wide variety of fauna in the estuary. Many small rodents next
on the floor of the marsh and feed on insects, seeds and vegetation.
Small songbirds also feed on insects; their nests are often attached
to a clump of reeds. Rails and bitterns are also common residents
in this habitat type, although due to their shy manner they are
rarely seen. Larger rodents, such as beaver and muskrat, also feed
in these marshes (the' only known beaver dam in the estuary is in a
cattail marsh near Lowell). Evidence of deer has been seen near

marsh-swamp borders, indicating use of the habitat as a resting
area. With the abundance of small mammals and birds, numerous
predators find the marsh an important feeding ground. Raptors,
mink, and raccoons all enter the marsh to hunt.

The low diversity brackish marshes have an extremely high rate of
productivity. In addition, the relatively low tidal elevation and
comsequently high aquatic interaction means a significant percentage
of this material is exported as detritus, adding to the food base
of an important aquatic food web. These marshes also aid in the
regulation of nutrients and contaminants in the estuary through the
deposition of suspended solids. Nutrients, such as phosphorous and
nitrogen, and assorted contaminants which adhere onto these suspended
solids before deposition, are absorbed by the vegetation, trapped
in the sediment or slowly broken down by microbial action.

6250 Other
A brackish/freshwater intertidal marsh type which does not fit into
the other categories.

6252 Scirpus - Typha
Marshes where bulrushes and common cattail have almost equal densi-
ties. Few other plants occur in this type.

63 Aquatic Land-Nonvegetated
Substrates which are important habitats for many benthic inverte-

brates.

Beach substrates are important biologically for the diverse benthic
invertebrate community they support. These invertebrates are
important sources of food for diving ducks, shorebirds, fish and

man.

637 Muddy-sand Substrates
Fine sand and silt form a characteristic habitat in protected areas
such as bays and estuaries. Contains a more diverse and abundant
biological community than either a sand or mud habitat.

635 Mud Substrate
Made up of very fine particles. As a result, this substrate is
extremely soft and sometimes dangerous to walk in. Mud occurs only
in areas where wave action and currents are extremely low, such as
at the heads of bays and estuaries. Due to this location, mud is
often associated with brackish waters.

Description: These two unvegetated substrates are found throughout
much of the flats which extend from the Snohomish River mouth to

Tulalip Bay. The substrate is mud or a silt and sand mixture
which contains an abundant biological community, including benthic

diatoms.

Distribution: In addition to the flats extending into Port Gardner,
mud and silty sand substrates are found through much of Tulalip
Bay. Small parcels of this habitat type have been identified along
Quilceda Creek and in the area between the landfill and the
railroad tracks on.North Ebey Island.

Although the distribution of these flats has not been recorded
historically, they have probably been accreting westward for cen-
turies. River-borne sediments and materials eroded from both the

Everett and Mission Beach Bluffs have been deposited in this area,
slowly extending the flats outward from the estuary.

The major impacts on these unvegetated flats have been filling and
log rafting. Filling raises the substrate surface out of the
marine environment, thus eliminating it from direct interaction
and making it available for development. This has occurred in
several locations. Log'storage resitrcts access by waterfowl which
would use the shallow flats for feeding. It also results in the
deposition of large quantities of bark and wood chips. This
material generates a significant biochemical oxygen demand and
eliminates much of the potential habitat value for benthic organisms.
Additionally, log rafting shades the substrate, thus potentially
impacting benthic diatoms. The shallow flats in much of Tulalip
Bay have traditionally been used for log storage activities.

Significant Relation�hips: Mud and sand flats in the Snohomish
River mouth have been shown to be highly productive habitats for

benthic invertebrates and plankton (Smith, 1977). These bottom
dwelling organisms feed on detritus washed out of marshes and
eelgrass beds, and on each other. They in turn provide food for
waterfowl and a variety of fish, such as salmon and flatfish.
Shallow sand and mud flats have been noted as having some of the
highest fish densities of all nearshore fish habitats (Miller, et
al, 1976). In part this high density results from use of the areas
by schooling juvenile salmon, herring and smelt. This activity
makes these shallows extremely important to the later commercial
and sport harvest of these species.

In addition to fish, invertebrates and waterfowl, mud and sand flats
are important habitats for shellfish. Bent-nosed clams, soft-shell
clams, horse mussel, cockles and littleneck clams are all commonly

associated with these habitats.

7 Other Lands

Lands not identified in the rest of the classification system.

71 Spits
Shoreforms created when sand and other fine s.ediments eroded from
cliffs or bluffs are carried by alongshore draft and deposited at
bay mouths or coastal obstructions. Marsh and beach grassland
vegetation typically invade the uppoer portions of these important
resting areas for gulls and shorebirds.

The only spit in the study area is located in Tulalip Bay. Spits
have significant value as resting sites for large numbers of animals,
particularly birds. Their isolation and unobstructed view make them
especially important for safety and freedom from disturbance.
Numerous shorebirds, gulls, terns, waterfowl and harbor seals fre-
quently can be observed on undisturbed portions of spits.

711 Vegetated Spit
If the vegetated area of a spit is less than can be mapped at
scale, the entire spit is designated a vegetated spit.

ROAA COASTAL SERVICFS CTR LIBRARY

3.6668 14110458 0

14T
393
,W22
T85
1980