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                                                                                                                                                                                                                           RECOMMENDED                                                                                  INITIATIVES
                                                                                                                                                                                                                                           BY LOCAL GOVERNMENTS
                                                                                                                                                                                                                                                                                                                                                     IN THE
                                                                                                                  5w. -'r,
                                                                                                                                                                                                                               BALTIMORE METROPOLITAN
                                                                                                                                                                                                                                                                                            TO ASSURE THE
                                                                                                                                                                                                                            ENVIRONMENTAL INTEGRITY
                                                                                                                                                                                                                                         AND FULL DEVELOPMENT
                                                                                                                                                                                                                                                POTENTIAL OF COASTAL
                                                                                                                                                                            6j@
                                                                                                                                                                                                                                                                                                                                                            AREAS
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                                                                                                                                                                                                                                                PREPARED BY COASTAL ZONE

                                                                                                                                                                                                                               METROPOLITAN ADVISORY BOARD

                                                                                                                                                                                                                                                                                                                                             APRIL0981

                     RECOMMENDED INITIATIVES BY LOCAL GOVERMENTS

                          IN THE BALTIMORE METROPOLITAN AREA

                         TO ASSURE THE ENVIRONMENTAL INTEGRITY

                    AND FULL DEVELOPMENT POTENTIAL OF COASTAL AREAS

                                               Prepared By:
                                               Sensitive Areas Sub-Committee
                                                of the Coastal Zone Metropolitan
                                                Advisory Board. (An advisory
                                                committee of the Regional
                                                Planning Council)

                                               April 1981

            The preparation of this report was in part supported by a grant
            from the Maryland Coastal Zone Management Program (Tidewater
            Administration), funds provided by the Office of Coastal Zone
            Management.

                                      ABSTRACT

                   Recognizing that actions by local governments are
                   necessary to resolve the land use and environmental
                   problems in coastal areas, this report offers a for-
                   mat for local action. It begins by describing the
                   nature and interrelationships of the natural environ-
                   ment and coastal areas. The report proceeds to pre-
                   sent in some detail a "new approach" in determining
                   optimum land use based on soil information. The
                   report concludes by reviewing on a subject-by-subject
                   basis current regulations, suggested policies, and
                   additional regulations by which local governments
                   can deal with the various land use and related prob-

                   lems.

                                    TABLE OF CONTENTS

              Abstract  ................................................ i

              TABLE OF CONTENTS  ......................................

              INTRODUCTION  ...........................................

                Background  ...........................................
                Objectives  ...........................................

              THE NEED TO COMPREHENSIVELY ADDRESS THE
               PROTECTION OF SENSITIVE AREAS AND THE
               EFFICIENT UTILIZATION OF DEVELOPABLE
               LAND  ..................................................   3

                Major Natural Management Components
                 of the Coastal Zone  .................................   4

                A Rational Approach to Resource
                 Protection At the Local Level   .......................  5

              UTILIZATION OF SOIL INFORMATION AS A TOOL
               IN SOLVING LAND USE RELATED COASTAL
               PROBLEMS  ..............................................   6

                Soil Characteristics  .................................   6

                Alternative Development Patterns   .....................  8
                Comprehensive Application of Soils Data    .............. 14

              GUIDELINES FOR PROTECTION OF SENSITIVE
               AREAS AND DEVELOPABLE LAND   ............................ 19

                Upland Resources .......... 0........... 0 .............. 19

                Shoreline Resources  ..................................  23

                Watercourses and Tidal Waters  ..... o .................. 28

                Cultural Resources  ...................................  31

              APPENDIX - IMPACTS TO SENSITIVE RESOURCES
               OF THE COASTAL ZONE  ...................................  A-1

    -A

                                         FIGURES

              FIGURE 1: TYPICAL SOIL SURVEY MAP
                           MARYLAND COASTAL AREA   .......................  7

              FIGURE 2: SCAR ACRES    ...................................   9

              FIGURE 3: PRISTINE PASTURES     ............................ 12

              FIGURE 4: SUGGESTED GROUPING OF SOIL TYPES      ............. 16

                                          TABLES

              TABLE 1:    DEVELOPMENT LIMITATIONS OF SOIL
                           TYPES, BALTIMORE METROPOLITAN AREA    .......... 17

              TABLE 2:    SUGGESTED MECHANISMS TO ADDRESS
                           VARIOUS LAND USE AND RELATED
                           PROBLEMS WITHIN COASTAL AREA   ................ 21

                                    CHAPTER I
                                  INTRODUCTION

              CHAPTER I

              INTRODUCTION

              Background

                    The coastal areas of the nation have experienced the
              greatest degree of concentrated growth of any area within the
              country. This is particularly significant since the coastal

              zone contains sensitive environmental resources and valuable

              economic and recreational resources. Coastal areas as a whole

              have the potential to accommodate additional growth and devel-
              opment. However, it is important that future development con-
              sider factors that were ignored or not adequately considered
              in the past. These factors include natural resource protection,
              additional public health and general welfare considerations,
              protection of sensitive environmental areas, reservation of
              land particularly suited for water-related development, and
              the maintenance of recreational opportunities and aesthetic
              qualities. By including these considerations in land-use
              planning decisions, both existing and future development will
              be enhanced. It makes economic sense to proceed with a bal-
              anced planning program, one which accommodates development
              within a framework, minimizing the loss or degradation of
              existing natural and man-made features.

              Objectives

                    The State of Maryland's Coastal Zone Program, the Balti-
              more Metropolitan Coastal Area Study, the Chesapeake Bay Pro-
              gram, the 208 Water Quality Program, and other studies have
              provided much needed technical information which makes it
              possible to adequately identify problems and offer solutions.
              This study is consistent with these various programs and stud-
              ies and offers the means to carry these programs forward.

                    The specific objectives of this study are to:

                    1.  Provide local coastal counties in Maryland
                        with a comprehensive understanding of the
                        major coastal-related problems which they
                        all experience to some degree.

                    2.  Develop a rational, simplified technique
                        utilizing soil data to address the var-
                        ious problems which can be comprehensively
                        incorporated within existing regulations.

                    3.  Describe current actions being taken to
                        address these problems.

                    4.  Suggest policies to be followed in dealing
                        with these problems.

                    5.  Specify the appropriate local government
                        regulations or techniques which can be

                        tailored to deal with these coastal-related

                        problems.

                    This study does not provide model regulations nor specific
              regulatory language. Rather, it provides the basis for these
              regulations. Any interested coastal jurisdiction should be
              able to incorporate into local provisions the policies, tech-
              niques and other suggestions provided in this report.

                                              -2-

                                        cc

                                       CHAPTER11

             THE NEED TO PROTECT SENSITIVE AREAS

             CHAPTER II

             THE NEED TO COMPREHENSIVELY ADDRESS THE PROTECTION OF SENSITIVE
              AREAS AND THE EFFICIENT UTILIZATION OF DEVELOPABLE LAND.

                   The protection of sensitive environmental areas and the
             efficient utilization of developable land are two sides of the
             same issue. The wise use of resources requires that the natu-
             ral systems which promote a healthy, stable environment be
             maintained to continue their functions adequately. At the same
             time, static resources such as sand and gravel, historical or
             archeological sites, agricultural land, and prime developable
             land must be identified and used conservatively. Both the
             basic elements of the natural systems and these static re-
             sources must be carefully managed for present and future needs.
             (For more detailed discussion of impacts of these systems and
             resources, see Appendix A.)

                   Both types of resources involve interactions which are
             often highly complexand, to some extent, unknown. Therefore,
             impacts on these resources and their causes are sometimes
             difficult to identify and quantify. However, some basic
             inter-relationships are understood and should be incorporated
             into management practices (e. g. development regulations).

                   Existing development regulations have evolved over time,
             often in response to specific public health, safety or direct
             economic welfare concerns of the human community. Now that the
             relationship of impacts on natural systems and the sources of
             these impacts are better understood, steps should be taken to
             incorporate the new knowledge comprehensively into existing
             regulations.

                   The difficulty of explaining the need for revised regu-
             lations to the general public is a reflection of the nature
             of the impacts. Impacts are most difficult to perceive when
             they are separated from the source by time or distance. The
             buffering capacity of the Chesapeake Bay and its tidal estu-
             aries often hides impacts until they become severe. In

                                            -3-

             addition, naturally occurring fluctuations in size and dis-
             tribution of many natural resources are generally unknown.
             Impacts on seemingly unimportant plants or animals can impair
             the productivity of a whole biological community. (A descrip-
             tion of types of impacts is in Appendix A.)

                   Recognizing the complex nature of these resources, this
             report recommends a rational approach to comprehensively re-
             vising local development regulations. The aim of these recom-
             mendations is to protect developable land and sensitive environ-

             mental areas alike.

             Major Natural Management Components of the Coastal Zone

                   When managing coastal environmental resources, particular
             types of impacts can be associated with various features. These
             are the shoreline, the uplands, the watercouses and tidal waters.
             The biological health of the Bay is dependent on the physical
             stability and balance ofthese components of the coastal environ-
             ment. The well-being of the human environment is enhanced by
             these resources and the cultural resources of the Bay region.

                   Disturbance to soils in upland areas may drastically
             alter the character of receiving waters both through changes
             in sedimentation rates and water flow regimes. The combined
             impacts from various disturbances which occur within a water-
             shed may be significant. Management practices such as improper
             herbicide application, poor landfill practices, and land drain-
             age pattern modification can limit the biological productivity
             of receiving water bodies. The coastal aquatic area eventually
             receives impacts from all upland development.

                   The shoreline is the access point for recreational and
             commercial opportunities. It is in demand for residential home-
             sites, especially where access exists to boatable waters. The
             natural stability of the shoreline areas is vital to the sta-
             bility of the aquatic biological resources. The maintenance
             of natural shoreline vegetation is desirable since the vegeta-
             tion buffers land-generated impact to water and water impacts

                                             -4-

              to land, literally a "living bulkhead" moving to adjust for
              changes in physical impact intensity.

                    Alterations to watercourses and water quality have an
              impact on coastal resources. Induced environmental insta-
              bility by excessive additions of pollutants and stormwater
              disturbances will degrade the aquatic environment. The tidal
              waters themselves may be the site of direct impacts -- dumping
              of pollutants, intense boating activity, and dredging and fil-
              ling.

                    Impacts to cultural resources are often irretrievable
              losses. Historical buildings or archeological sites may be
              destroyed without knowledge of their worth.

              A Rational Approach to Resource Protection At the Local Level

                    The natural history of the land and its suitability for
              various uses ismost often defined by soil characteristics and
              other geological formations. The evidence of flooding, springs,
              wetlands and the suitability of the land to support forest,
              agriculture, wildlife habitat, or development are all available
              in soil surveys. Many of the impacts described above can be
              addressed through an approach based on soil characteristics
              (described in Chapter III), while others require additional
              protection as described in Chapter IV.

                                           -5-

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                                                                                                                                                                                                CHAPTER TU
                                                                                                       UTILIZING SOILS INFORMATION

                                                                                                         I

             CHAPTER III

             UTILIZATION OF SOIL INFORMATION AS A TOOL IN SOLVING LAND USE
              RELATED COASTAL PROBLEMS

             Soil Characteristics

                   The land surface of the coastal areas of Maryland is
             covered with many distinct soil types. (Over 700 soil types
             exist in Maryland.) Soil scientists and technicians of the
             Soil Conservation Service of the U. S. Department of Agricul-
             ture have, through research and field investigation, identified
             and mapped these individual soil types or units. Each soil
             unit has particular properties which distinguish it. These
             soil properties include such characteristics as texture, depth,
             stoniness, degree of wetness, slope, and others. Based on
             their properties, soils are classified with respect to their
             potentials or limitations with regard to various uses. Soil
             suitability is rated for such diverse uses as crop production,
             woodland management, septic systems, homes with basements, and

             camp areas.

                   Figure 1 depicts the component soil type for a land area
             in the Maryland coastal province. The area shown encompasses
             an area of 54 acres. The various soil types indicated are
             quite diverse. Some have few limitations for most uses while
             others have severe limitations. The upland areas of the site
             consist of Mattapex (MIA) and Sassafras (ShB) soils. These
             soils are relatively level and well-drained and can be success-
             fully adapted for many uses. However, other areas of the site
             have serious limitations for most uses due mainly to wetness,
             flooding, or steepness. it is important to understand that
             the areas containing severe. limitations for most man-related
             uses also serve fundamental hydrologic, hydraulic, and bio-
             logical functions.

                                            -6-

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                                                                                        Figure 1 TYPICAL SOIL                                              SURVEY. MAP                                          MARYLAND COASTAL AREA

                       MIA                      (Mattapex silt loam)                                                                                       -           No serious use limitations
                       ShB                      (Sassafras sandy loam)                                                                                     -           No serious use limitations
                       LyB                      (Loamy and clayey land)                                                                                    -           Moderate use constraint - instability
                       Fs                       (Fallsington loam)                                                                                         -           Severe use constraint - wetness
                       Av                       (Alluvial land)                                                                                            -           Severe use constraint - flooding
                       SsE                      (Sassafras and Joppa soils)                                                                                -           Severe use constraint - steepness
                       Tn.                      (Tidal marsh)                                                                                              -           Severe use constraint - tidal flooding

                    In order to assure a wise use of this site, the indivi-
              dual nature of the various soils and their relationship must
              be fully understood. The loamy and clayey land (LyB), due to
              a high clay content, lacks stability. The Fallsington soils
              (Fs) are poorly drained and have a high water table.      These
              soils store water, releasing it slowly. The alluvial soils
              (Av) are floodplain soils, andthey also store water and have
              a high water table; in addition, they transport stormwater
              from stream channel overflow. Floodplains serve to store
              stormwater and reduce both its velocity and sediment load.
              Tidal marsh (Tm) areas serve to trap and assimilate sediment
              and other pollutants from upland flows. They act as buffers,
              reducing the intensity of both upland flows and tidal storms.
              Biologically, most wetlands are more productive than prime
              agricultural land. Wetlands serve as breeding and nursery
              grounds for shellfish, finfish, and waterfowl. Hence, wet-
              lands serve biological and hydrological functions and are
              important economically since the Bay's use as a commercial
              fishery is dependent on the existence of wetlands. The Sass-
              afras and Joppa soils (SsE), which are distinctly different
              from the more usable Sassafras sandy loam (ShB), generally
              contain slopes over 25 percent. Most of these soils are in
              woodland. They serve to buffer the wetlands they border.

              Alternative Development Patterns

                    Typically, the process of converting land from its natural
              state into residential or commercial development (or some
              other developed use) often ignores the full potential
              and natural limitations of the site for development and the
              natural function and interrelationship of the soils. In this
              case, the following practices are likely to occur without
              adequate requirements as development takes place (see Figure 2):

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                                                Figure       2 SCAR ACRES

                                                      Existing zoning: DR 3.5
                                                      Acres: 53.8
                                                      Allowable density: 188 units
                                                      Proposed density: 169 units

                    1.  The loamy and clayey soils (LyB) would be
                        developed and the potential for structural
                        damage would exist unless special construc-
                        tion techniques are included.

                    2.  The Fallsington soils (Fs) would be developed
                        without adequate attention to their high
                        water table and poor drainage. This could
                        result in flooded basements, ponding in yards,

                        and cracked walls and sidewalks. It would

                        also alter the base flow (or amount of water
                        held underground feeding the stream) resulting
                        in a more extreme flow variation from seeps
                        and springs.

                    3.  The alluvial soils or floodplain areas of
                        small watersheds (Av) would be partially
                        or completely filled or otherwise severely
                        altered. If completely filled, the stream
                        would be piped. This would compromise all
                        of the functions of floodplains detailed a-
                        bove as well as create development-related
                        problems such as flood hazard or structural
                        damage. In addition, the biological and

                        aesthetic values of the stream would be lost.

                    4.  If the steep Sassafras and Joppa soils (SsE)
                        were cleared of trees or other vegetation as
                        part of the development process, the adjacent
                        wetland would likely be severely impacted by
                        the resulting erosion and sedimentation and

                        the unbuffered stormwater flows from the

                        development.

                                           _10-

                    5. The effect of all of this on the tidal marsh
                         (Tm) would be one of severe disruption. The
                         tidal marsh's capacity to assimilate sediments
                         and other pollutants would be overwhelmed due
                         to the altered nature of the upland flows in
                         both a qualitative and quantitative sense.
                         Compounding this problem would be the intro-
                         duction of new pollutants introduced with
                         development which would be found in the storm-
                         water flowing from the site.

                    The  paradox here is that after development, the functions
              of natural sysems, characterized in part by the soils, are even
              more critical in order to mitigate the impacts of development.
              Yet, these natural systems tend to be impaired, if not destory-
              ed, by the development process itself. Figure 2 depicts a
              residential subdivision which ignores specific site limitations
              and opportunities with respect to soil characteristics.

                    Developments which take place consistent with soil limi-
              tations result in fewer problems for the developer, future
              residents of the site, the local government, and the public
              in general (see Figure 3). Oftentimes, the site can accomo-
              date the same or greater density of development at a lower
              cost through better design, including clustering as in this
              example. The aesthetic values of developing in concert with
              soil limitations are impressive. The developable areas of the
              site would be buffered by retaining the problem soils in a
              natural state. These same open space areas serve as habitat
              for local wildlife. Indeed, these linear interconnected nat-
              ural areas make ideal habitat for many types of wildlife which
              would otherwise be eliminated from the neighborhood.

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                                                                 Figure 3 PRISTINE PASTURES

                                                                                 Existing zoning: DR 3.5
                                                                                 Acres: 53.8
                                                                                 Allowable density: 188 units
                                                                                 Proposed density: 188 units
                                                                                             56 Individual homes
                                                                                             66 Townhouses
                                                                                             66 Condominiums

                   By the utilization of soil information as provided by the
             Soil Conservation Service (SCS) and published in county soil
             surveys, various advantages are achieved including the following:

                   1.   Development is restricted on sites physically
                        unsuited for such development.

                   2.   A basis is provided for requiring the necessary
                        development design practices on those sites
                        with serious physical limitations for develop-

                        ment.

                   3.   A rational basis is provided for the estab-
                        lishment of buffer areas with respect to the
                        county's water resources including public
                        water supply reservoirs and their watersheds,
                        estuaries, streams, wetlands, and shorelines.

                   4.   Flooding and the degree of destruction from
                        flooding is reduced.

                   5.   Critical wildlife habitat is preserved.

                   6.   A rational basis is provided for the maintenance
                        of permanent open space.

                   7.   Erosion and sedimentation are reduced by pre-
                        venting development on slopes generally greater
                        than 25%, limiting development on slopes between
                        15% and 25%, and maintaining natural buffers
                        between development and the @,ounty's waterways.

                   8.   The volume and impact of stormwater is reduced

                        and base flow maintained.

                   9.   Subdivision design compatible with the natural
                        features of a site is encouraged.

                   10.  And a much greater use of clustering in density
                        zoning classifications is encouraged.

                                          -13-

              Comprehensive Application of Soils Data

                    The use of soils data as part of an overall system for
              determining specific land use decisions avoids many of the
              problems associated with individualized and often arbitrary
              standards. A more rational land use is derived by using a
              soils approach since a number of basic considerations are
              served simultaneously. The soils approach simplifies land
              use regulations, reduces review time, and fosters consistency
              in the use of land.

                    Table 1 lists development limitations of'soil types in
              the Baltimore Metropolitan Area. These soils are representa-
              tive of soils throughout the Maryland coastal area. (Figure
              4 shows these categories applied to the previous example.)

                    Development-restricted refers to those soils which are
              subject to flooding, have slopes generally over 25 percent
              and are excessively wet or poorly drained, located at heads
              of streams. These conditions preclude the potential for
              development.   Development-limited soils include those soils
              which have characteristics including high water table, poor
              natural drainage, subsoil shrinkage, and instability. These
              soils require special construction techniques. (Development-
              limited souls could also include soils with slopes between
              15-25 percent.)

                    To provide some insights into the acreages involved
              within each classification, data from Baltimore County have
              been developed. (This data represents both the coastal and
              piedmont areas of the county.) Of the undeveloped land in
              Baltimore County, 205,797 acres, or 73 percent, contain few
              limitations for development; 8,845 acres, or three percent,
              have limited potential for development and, 67,597 acres, or 24
              percent, of its land area is development-restricted. Twenty-
              six percent of the county is already developed.

                    A soils approach as a tool to assure optimum land use
              can be applied to various regulatory documents already in
              existence in most Maryland counties. Particularly beneficial
                                          -14-

                                            TABLE I

                          DEVELOPMENT LIMITATIONS OF SOIL TYPES
                                BALTIMORE METROPOLITAN AREA*

               Development-Restricted              Development Restricted    contd.

               Alluvial land (Av)                  Bibb (Bm)
               Baile (BaA, BaB)                    Relay (RsE)
               Brandywine (ByE)                    Sassafras, (SaE, SsE)
               Chrome (CoE3)                       Stony land steep (St)
               Coastal Beaches    (Ct, Ce)         Swamp (Sw)
               Codorus (Cu, Ch)                    Tidal Marsh (Tm)
               Collington (CoE)                    Westphilia (WaE3)
               Comus (Cv, Cr)                      Development-Limited  2
               Croom (CsE)                         Barclay (Br)
               Dunning (Du)                        Christiana + (CcB2, CcC2) Anne Arundel Co.
               Edgemont (EgE)                       (CmB, CmC2, CdC3) Baltimore County
               Fallsington (Fa, Fs)                Colemanton (Ck, Cm)
               Glenville (GnA, GnB,    GuB)        Elkton (Ek, Em, En, Eo)
               Hatboro (Hb, Ha)                    Kelly (KeB2, KuB, KeC2, KsC)
               Howell (HyE)                        Kinkora (KrA, KrB) Harford County only
               Iuka (Iu)                           Linoir (LmC2, LnC3, Llb, LmB, LoB)
               Legore ME,     LeE)                 Baltimore County only
               Lindside (Ls)                       Leonardtown (Lr)
               Loamy & Clayey land (LyE)           Loamy and Clayey land (LyB, LyD)
               Manor (MdE, MhE)                    Osier (0s)
               Marr (MfE)                          Othello (Ot)
               Melvin (Mh, Mo)                     Pocomoke (Po)
               Mixed Alluvial    land (Mt),        Shrewbury (Sr), (Ss)
               Manmouth (MvE)                      Watchung (WaA, WaB, WcB)
               Muirkirk (MyE)                      Muirkirk (MyB, MyC, MyD)
               Neshaminy (NsE)                     Muirkirk Urban Land Complex (MzB, MzD)

                Subject to flooding, excessive slope, excessive wetness at
                heads of streams.
               2High water table, poor natural drainage, subsoil shrinkage,
                instability.
                Developed using soil data available through the Soil Conservation
                Service, U. S. D. A.
                Some symbols are the same for different soils, depending on the
                county in which they occur. In these cases, the counties to which
                the symbol applies (in Baltimore, Anne Arundel and Harford counties)
                are noted.

                   t                                  ShB

                                                           30
             . . . ... ..
           X.,
              Ly B."

                                                          20           vs
                                         Av

                                                                          .- AN

                                                                        ShB

                                                   Av
                            MIA',
                                                                       well
                                          %10

                  0                  110

                                                                      It

                                                           Co

                        Figure  4 SUGGESTED GROUPING   OF SOIL TYPES

                                Development-Unrestricted  (Refer to zoning
                                for proper use)
                                Development-Limited (Specific problems to
                                be addressed before development
                                Development-Restricted (Development allowed
                                only when compatible with sensitive area)

             application can be achieved through subdivision and zoning regu-
             lations. Additional application can be made through the building
             code, grading permit, and various health-related requirements.
             Soil information is also useful in public acquisition, provision
             oP tax incentivee@ @or dieinQi@ntivQ;@Oq anU the Uevelopment of
             5pecial reguidtion5. farm soil and water conservation plans
             already rely heavily on soil information.

                   With respect to the subdivision process, it is recommended
             that development plans submitted to local governments be required
             to contain all of the soil types of the subject tract as illus-
             trated in Figure 1. In the case of density zoning, the full
             density can be calculated from the developable and development-
             limited soils, while no density can be utilized from the portion
             of the site with soils classified as development-restricted.
             All development must be located on the developable and, where
             approved, development-limited soils.

                    In cases involving development on development-limited
             soils, special techniques or siting practices would be necessary.
             For example, high water table areas would require special sewage
             handling and exclusion of basements; unstable soils would require
             stone buffers surrounding the foundations. Development-limited
             areas would receive conditional approval for development through
             the subdivision process. Conditional approval would be noted
             on the plan at the subdivision processing stage and must be
             made Inown to any perspective purchaser by including a notation
             on the deed. Such conditions must be carried forward to the

             building permit stage. The localagency responsible for per-
             mits and inspections must assure they are adequately addressed.
             Unless adequate techniques can be formulated to the satisfaction
             of the approving agency, development would not be allowed.

                                             717-

                    In the case of development not involving density zoning,
              the same requirements would exist as with density zoning except
              that the minimum lot size or the required buildable area would
              have to be satisfied outside of those soil types where develop-
              ment is restricted, although a lot could include these areas.
              In cases where neighborhood, community, or jurisdictional needs
              would be served, the non-developable areas of a site could be
              required to be dedicated to a community association or to the
              jurisdiction.

                    A developer would have the right to submit technical soil
              data acceptable to both the Soil Conservation Service and the
              local government engineering agencies if the accuracy of the
              Soil Conservation Service data is questioned. If both the Soil
              Conservation Service and the local government engineering agen-
              cies concur with the developer's claim, the soil data as pro-
              vided by the developer rather than the soil survey would be
              binding.

                    As indicated, the soils information can be used in con-
              junction with the zoning process as well as the subdivision
              regulations. Zoning districts can be established utilizing
              soil attributes. For example, alluvial soils can form a basis
              for a floodplain zoning classification in the absence of more
              detailed hydrologic information; and prime and productive ag-
              ricultural soils can form a basis for an agricultural zone.
              Prime development land can be identified relative to physical
              site conditions. A combination of both subdivision and zoning
              techniques might be the best approach.

                    The use of deta'iled soils information in making land use
              decisions is not new albeit past applications on a large over-
              all scale have been limited. The particular concept proposed
              in this report represents a new approach to an old issue; how
              to comprehensively, effectively, and uniformly achieve sound
              land use decisions. That is, decisions which help the private
              development sector, future residents, and the public in general.

                                       CHAPTER 12

                       GUIDELINES FOR  PROTECTION

             CHAPTER IV

             GUIDELINES FOR PROTECTION OF SENSITIVE AREAS AND DEVELOPABLE LAND

                   This chapter identifies specific problems related to the
             four coastal resource categories described in Chapter II, des-
             cribes current regulatory authorities and mechanisms, and pro-
             poses policies to address these problems and the regulations
             which could be revised to implement them.

                   The soils approach described in the previous chapter
             unifies many fragmented attempts to regulate development. The
             approach is valuable, showing large tracts of land capable of
             development and sensitive areas essential to the maintenance
             of natural systems to be considered when planning for public
             facilities or reviewing development proposals. While it ad-
             dresses wetlands, floodplains, heads of streams, and unstable
             soils specifically, it also addresses prime development lands,
             significant environmental resources, and basic natural systems
             in an integrated fashion.

                   This chapter shows where the soils approach can be used
             with respect to the coastal resource categories and where addi-
             tional measures are needed to address specific problems not re-

             lated to soils.

             Upland Resources

                   Upland resources include prime and productive agricultural
             lands, commercial deposits of sand and gravel, prime develop-
             ment sites and significant environmental resources. The soils
             approach is especially valuable in comprehensively locating
             use of these last two upland resources. Appropriately developed
             areas should retain the natural systems and wildlife which exist-
             ed before development and should minimize the need for public
             works improvements.

                   Prime and productive agricultural lands represent a highly
             important local and natural resource. In addition to producing
             food and fiber, prime and productive agricultural lands serve as

                                                                                                                                            C
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                                     PROBLEMS                                                     x   Q.  a   W  U)  0  U)  Cl)

         Upland Resources
          LOSS or Conversion of Prime and Productive Farmland                                         x          x          x    x       x
          Loss of Commercially Important Sand and Gravel Extraction Sites                             x          x   x      x    x       x
          Loss or Underutilization of Prime Development Lands                           x             x          x          x    x       x
          Inadequate Protection of Significant Environmental Resources                      x         x       x  x   x  x   x        x   x  x
         Shoreline Resources                                                                                             I                    I

          Shore Erosion                                                              x                x              x      x            x  x

          Adverse Impacts of Bulkheads                                               x      x                        x                   x
          Tidal Flooding                                                             x      x                    x   x      x            x
          Wetlands Destruction                                                       x      x         x                     x            x  x

          Lack of Adequate Buffers                                                   x      x                               x            x  x
          Stormwater Discharges into Wetlands                                                                           x   x               x
          Reduction of Shoreline Aesthetics                                                           x              x
         Watercourses and Tidal Waters                                                                                 I-
          Inadequate Watercourse Suffers                                             x      x         x                 x                x  x
          Riverine Flooding Impacts                                                  x      x         x                     x            x
          Culverting or Piping of watercourses                                       x      x         x                     x
          Discharge from Malfunctioning Septic   Systems                           _m@_   - x                    X          x            x
          Destruction of Springs and Seeps                                           x      x  x                            x            x  _X
          Malfunctioning Sewage Disposal, Treatment and Conveyance @vstems              x      x                 x   x
          Indiscriminate Dumping of Polluting Substances                                                             x           x
          Uncontrolled Stormwater                                                                             x         x        X_ x
          Floodplain Disturbances or Modifications                                   x      x         x       x         x   x    X_      x  x
          Disturbance of Steep Slopes                                              _2L      x         x   x   x         x   x    x   x   x  x
          Excessive Soil Erosion and Sedimentation                                        _2L              _2S_         x   x    x   x   x  x
          Ground-water Pollution                                                     x  x   x         x   x   x         x   x        x   x  x

         Cultural Resources
          Loss of Historic Landmarks and Archeological Sites                       _x J_ x        x

                         I  Adequate design and maintenance of any man-made controls
                            or improvements is essential to minimize impact to coastal
                            resources. These considerations must be the basis of all
                            modification to the above mentioned mechanisms.
                         2  Special regulations include those regulations designed for
                            a specific ang usually single-minded purpose and would in-
                            clude subject areas such as historical preservation which
                            are not normally included within other regulations,
                                                                                                          X

              an important component of open space. With the high cost of
              transportation, it is becoming increasingly important to be
              able to grow farm produce locally. Factors which continue to
              impact prime and productive agricultural land include: (1)
              continued loss from urban encroachment; (2) excessive erosion;
              and, (3) lack of adequate buffers from adjacent conflicting

              land uses.

                    Coastal areas within the Baltimore Metropolitan area
              contain commercially valuable sites of sand and gravel. This
              is a site-limited and quite valuable resource. The cost of
              sand and gravel and related products is based in part on trans-
              portation costs, Therefore, it is particularly important to
              protect the resource locally. Unfortunately, however, some
              areas of commercially important sand and gravel have been lost.
              Factors which are having an adverse impact on this important
              resource at the present time include: (1) continued loss from
              urban encroachment; and, (2) public or neighborhood opposition
              based on past industry problems including excessive erosion
              and sedimentation, air pollution, noise, and lack of adequate

              reclamation.

                    Prime development land is an important community resource

              which can be characterized as land which because of its loca-
              tion, physical nature, access and/or availability of public
              services, is ideal or in demand for a particular type of deve-
              lopment or development in general. Frequently, prime industrial
              or commercial locations are utilized for residential develop-
              ment. Of particular importance is the need to reserve or pro-
              tect sites with deep-water access for port-related industries.
              Additionally, prime water-related recreational sites are often
              lost to other uses. The best use of these sites is of frus-

              trated by improper zoning designation, underutilization, poor
              site design and unnecessary regulatory constraints.

                                         -21-

                    Significant environmental resources can be described as
              particular components of the natural environment which are dis-
              tinguished because of an unusual quality such as size, age, or
              wildlife value. Endangered or rare species habitats are in-
              cluded in this category. The maintenance of these resources
              enriches the lives of local residents and preserves these re-
              sources for future generations. Problems which affect signi-
              ficant natural environmental resources include: (1) lack of

              information with respect to distribution and other critical
              data; (2) failure of development through design or density to
              be compatible with significant natural environmental resources;
              and, (3) lack of consideration with respect to preserving these
              areas as part of an overall natural system.

                    In general, few local governments in Maryland have effec-
              tively protected these four basic upland resources. Some limited
              success has been achieved through zoning in protecting prime
              development sites and productive agricultural land. However,
              very little has been accomplished in the way of minimizing con-
              flicts with mineral extractive sites and unique environmental

              resources.

                    Upland resources, by their nature, are best suited to
              management by the soils approach as described in Chapter III.
              Other steps to take to protect these resources are listed below:

                    1.  Utilize data on significant wildlife habitat
                        areas correlated with soils information avail-

                        able for most counties in Maryland, to specify
                        locations and descritpions of the various land-

                        related resources.

                    2.  Determine existing and future threats or con-

                        flicts with these land resources.

                    3.  Apply various land use controls and other
                        techniques to addequately protect resources.

                    Table 2 illustrates the specific mechanisms which may be
              used to protect these resources.

                                          -22-

              Shoreline Resources

                   The shoreline is an area of very intense activity, both
              natural and man-made. The shoreline provides a dynamic edge
              where biological productivity is high and so is the deamnd for
              human use. Shore erosion and flooding are natural occurances
              to coastal systems; however, human use is usually in conflict
              with these processes. The soils approach is used to integrate
              uses of the shoreline, protect wetlands specifically, and di-
              rect development to suitable soils.

                   Areas of severe shore erosion represent a potentially
              serious problem with respect to nearby development. Fortu-
              nately, the problem of severe shore erosion is not widespread,
              although over half of the Bay's 3,190 miles of shoreline has
              some degree of erosion problem. The process of shore erosion
              is a natural one and cost-effective methods of preventing or
              significantly reducing the problems are often difficult to
              achieve. In addition, some shore stabilization practices
              have accelerated shore erosion in adjacent areas.

                   The most common stabilization practice is the use of
              bulkheads. Bulkheads are permanent structures constructed
              of treated wood, stone, masonry or metal materials. Bulk-
              heads are built to prevent shore erosion. Most bulkheads
              tend to deteriorate over time. Rather than replacing the
              structure where it exists, a new bulkhead is often construct-
              ed beyond the existing one. (The area between the old and
              new bulkhead is filled.) In some areas of the Bay, virtually
              entire shorelines are bulkheaded. Major adverse impacts re-
              lating to bulkheads are that the natural shoreline, includ-
              ing its function of absorbing wave energy, is substantially
              destroyed, public shore access is reduced (because the inter-
              tidal area owned by the state is reduced), and the water sur-
              face area of the estuary declines.

                                         --23-

                    In order for a shore erosion structure to be built or

              replaced, a Wetland Permit and a Section 10 Regular or Gen-
              eral Permit is required from the State of Maryland and the
              U. S. Corps of Engineers, respectively. The State of Mary-
              land, in processing a permit application, must consider

              M
               aryland law regarding the inherent rights of property own-
              ers to protect their property and to reclaim the portion of
              a property lost to shore erosion since 1972. The Corps of
              Engineers does not have a similar requirement for issuing
              its permit. If a shorefront property owner uses riprap -
              a sloping structure of loose stone construction which has
              less adverse environmental impact - he can avoid the lengthy
              Corps of Engineers permit process by fulfilling some general

              conditions.

                    Significant land areas along the Bay's shoreline are
              subject to tidal flooding. Storms of record in the Baltimore
              metropolitan area have been used to establish an elevation
              between six and 11.5 feet (depending on the jurisdiction) as
              the 100 year tidal floodplain elevation.

                    Unfortunately, to varying degrees, some development has
              already occurred within this flood zone. With respect to loss
              of life and property damage, tidal flooding is, perhaps, the
              most serious coastal-related problem. Araas subject to tidal
              flooding contain all tidal wetlands and, in general, areas of
              high water table. They function as important natural areas
              between the shoreline and coastal upland areas.

                    Wetlands, or more specifically in this case, tidal
              marshes, are important components of the land-water edge.
              Wetlands possess a number of important valuse including
              those of a biological, hydrological, recreational, aesthetic,
              and economic nature. They also play a dominant role in pollu

              tion abatement.

                                         -24-

                   Wetlands are currently receiving impacts from:

                   1. Legal and illegal filling, dredging, and draining

                   2.  Sedimentation

                   3.  Stormwater discharges

                   4.  Disruption

                   5.  Incompatible adjacent land uses

                   The Maryland Wetland Act passed in 1970 has reduced the
            destruction of wetlands from filling, dredging, and draining
            This Act prohibits the direct alteration of state wetlands
            unless a license has been issued by the State Board of Public
            Works. Local governments in Maryland generally do not have
            regulations protecting wetlands.

                   Shoreline resources can be protected in a number of ways.
            The Coastal Resources Division, Tidewater Administration, De-
            partment of Natural Resources has inventoried areas experienc-
            ing erosion along the Chesapeake Bay shoreline. Using this
            data or similar data from some other source, it is possible
            for a local government to determine problem areas. The employ-
            ment of riprap or other types of sloping shore erosion struc-
            tures along an eroding shoreline is an alternative to bulkhead-
            ing. This method is more consistent with maintaining the
            natural shoreline and usually does not substantially reduce
            the surface water area of an estuary. In addition, it provides

            a habitat for various forms of marine life.

                   Policies that should be considered with respect to the
            management of shorelines include:

                   1. Prevent structures from being constructed in
                       areas adjacent to shore erosion where, given
                       the erosion rate and the life of the structure,
                       the structure would be imperiled.

                                          2. F;

                    2.  Maintain natural vegetation in areas of severe

                        shore erosion.

                    3.  Prohibit bulkheads in those areas presently
                        undeveloped or where natural shorelines still

                        dominate.

                    4.  Discourage structural approaches along essen-
                        tially natural shorelines by encouraging rip-
                        rap or some other "natural" form of protection.

                    5.  Promote a comprehensive approach to shore
                        erosion problems, developing management
                        approaches for entire reaches of shoreline
                        rather than on a case-by-case basis.

                    6.  Establish standards for bulkhead placement
                        and construction including maximum distances

                        of bulkhead from shorelines.

                    7.  Discourage residential and non-water related

                        commercial or industrial uses in areas prone
                        to tidal flooding.

                    8.  Reserve sites which are distinguished by hav-
                        ing access to deep water channels or other
                        significant locational factors (such as rail
                        access) for specific water-related uses pro-
                        vided, of course, that certain protective
                        features are included in their development
                        plans to protect them from the effects of
                        tidal flooding.

                    9.  Prohibit subdivision of land for residential
                        development in the tidal floodplain. Resi-
                        dential development on existing parcels could
                        be permitted provided the first floor eleva-

                        tions are above the flood elevation would

                        allow the unobstructed flow of water generated
                        by tidal flooding.

                                          -2f;-

                   10.   Prohibit the extension of public utilities
                         into the tidal floodplain except where justi-
                         fied by concentrations of existing development.
                         In such cases, utilities should be sized only
                         to meet existing needs.

                   11.   Prohibit grading, including filling practices
                         to achieve elevations above tidal flooding.

                   12.   Provide local government assistance to the
                         State of Maryland in the enforcement of the

                         State Wetlands Act. Local enforcement or

                         inspecting staffs would be trained to spot
                         and report violations of this Act.

                   13.   Initiate or strictly enforce (if already en-
                         acted) local controls over locally generated
                         polluting substances including sediments.

                         Such controls should be refined to increase

                         their effectiveness. Stormwater should not
                         be allowed to be discharged directly into wet-

                         lands.

                   14.   Wetlands should be adequately buffered. Nat-
                         ural vegetation should be maintained adjacent
                         to all wetlands. The size of the buffer area

                         would depend on slope, type of adjacent land
                         use, soils, and other criteria. The Buffer
                         Area Study undertaken by the Coastal Resources
                         Division, Tidewater Administration, discusses
                         the use of buffer areas under differing condi-

                         tions.

                   15.   Wetlands protection efforts should become a
                         part of local open space programs, including
                         those involving acquisition.

                    Specific regulations could be revised or established as
               shown on Table 2 (page 22), to implement the above policies.

                                            -27-

              Watercourses and Tidal Waters

                    Except for air, water is the most critical resource
              with respect to sustaining life. Within the watersheds of
              the Chesapeake Bay, extreme variations exist with respect
              to water quality. The overall quality of the water flowing
              into the Bay from the land is the basic factor in determin-
              ing the health of this large estuary. Floodplains, heads of
              streams, and areas of high water table are important to the
              storage and release of waters to coastal areas. The soils
              approach is important in protecting these water-related re-

              sources.

                    Water quality degradation is often the result of: poor
              land use practices including overdevelopment, development of
              steep slopes or other unsuitable areas; lack of suitable
              stream buffers; inadequate erosion and sediment control; dis-
              turbance or alteration of floodplains, springs and seeps;
              and, channel modifications. Stormwater management programs
              do not require sufficient on-site infiltration. In addition,
              the farm community often does not implement best management
              practices with respect to water quality impacts.

                    Illegal dumping, poorly located or operated waste dis-
              psoal facilities, and malfunctioning septic tanks and sewage
              systems add to the pollutant loads. Recreational and commer-
              cail craft in overcrowded conditions also contribute to the

              problem.

                    Numerous programs and regulatory measures dealing with
              water quality exist at all levels of government. These pro-
              grams include:

                    1. The establishment of water quality standards
                        for the waters of Maryland.

                                           -28-

                    2.  Various State permits including:
                        a.  Waterway Construction Permit

                        b.  Toxic Materials Permit

                        C.  Surface Mine Permit and License

                        d.  National Pollutant Discharge Elimination
                            System Permit

                        e.  Hazardous Waste Certificate
                        f.  Oil Operation and Handling Permit

                    3.  River Basin Planning (303[el)

                    4.  Areawide Water Quality Planning (208)

                    5.  Sewer and Water Facilities Planning (201)
                        including County Water and Sewer Plans

                    6.  Sediment and Stormwater Management Programs

                    7.  Standards and Criteria for Septic Systems
                        and Wells

                    8.  Solid and Hazardous Waste Programs

                    The following policies should be included in attempts
              to resolve water quality related problems:

                    1.  Land use planning efforts should involve
                        greater efforts to tailor development to

                        the natural character of the land. In

                        some cases, this would imply no develop-

                        ment.

                    2.  Prohibit development on slopes 25 percent

                        or greater.

                    3.  Limit development on slopes of 15%-25% to
                        respond to soil suitability and provide

                        adequate buffers.*

                    4.  Prohibit develupment or alteration (includ-
                        ing filling) of the 100 year riverine flood-
                        plain.

                                           _29-

                For details on the uses and need for buffer areas, see the
                Coastal Resources Division (Tidewater Administration) Buffer
                Area Study.

                     5.  Prohibit development or alteration (including
                         filling) of heads of stream areas containing
                         predominantly wet soils and freqently contain-
                         ing springs or seeps.

                     6.  Limit stream channel modifications to public
                         health or welfare related projects where com-
                         pelling justification exists.

                     7.  Improve the effectiveness of sediment control
                         practices by emphasizing erosion control along
                         with a more vigorous and strengthened enforce-
                         ment and penalty procedure.

                     8.  Improve stormwater management programs by advo-
                         cating plans with greater emphasis on infiltra-

                         tion.

                     9.  Provide stiff penalties as a deterrent to dump-
                         ing polluting waste. In addition, provide con-
                         veniently located, environmentally safe dumping

                         sites.

                    10.  Require all landowners, including farmers, to
                         put in place those management practices neces-
                         sary to prevent degradation of water    quality.

                    11.  Through 208 and 201 planning programs, develop
                         ways and means of correcting present deficiencies
                         in private and public sewer systems and providing
                         future systems which will assure water quality
                         protection. This would include the planning of
                         utility extensions which are most likely to pro-
                         mote land use patterns and densities which are
                         more consistent with environmental protection

                         and enhancement.

                                              -30-

                   12.  Minimize pollution from boating activity by
                        appropriate marine location criteria and de-
                        sign standards consistent with maintaining
                        water quality, providing safety to bathing
                        beaches, and buffering wetlands and other im-
                        portant natural areas sensitive to impacts of
                        boating.

                   13.  Limit dredging to essential private and public
                        projects. Provide conveniently located and
                        environmentally safe dredge material disposal
                        sites of adequate capacity. Where feasible,
                        consider the recycling of dredged material.

                   14.  Protect groundwater by maintaining aquifer
                        recharge areas, protecting aquifers from pollu-
                        tion, avoding overpumping and saltwater in-

                        trusion.

                    Table 2 (page 22) illustrates the mechanisms which can be
              used by local government with respect ot the various water quality
              related problems specified above.

              Cultural Resources

                    Due to the fact that coastal areas were among the first
              settled and developed, they contain significant historical and
              archeological resources. From a cultural basis, it is desir-
              able to identify and protect these resources in order that the
              present and future generations can better understand and appre-
              ciate the past and be enriched by it. All too often historical
              landmarks are lost or compromised by demolition, neglect or
              structural conversion. Archeological sites are most frequently
              lost or destroyed because their location was unknown, components
              were stolen, or the site's owners did not care to preserve or
              protect the site. Few coastal jurisdictions have regulations
              protecting cultural resources.

                    The following policies are recommended as means of pro-
              tecting cultural resources:

                                            -31-

                    1.  Complete surveys/inventories should be taken

                        and maintained.

                    2.  Public education programs should be initiated.

                    3.  Incentive and regulatory programs for these
                        cultural resources should be developed and

                        maintained. This would include historical

                        structures, individual landmarks and archeolo-
                        gical sites. Other unique cultural and
                        physical features such as rock formations
                        and vistas could also be protected if desired.

                    A number of mechanisms can be utilized to implement a
              preservation interest (see Table 2, page 22).

                                        APPENDIX

                                       APPENDIX

                   IMPACTS TO SENSITIVE RESOURCES OF THE COASTAL ZONE

              PREFACE

                    Participation in the Federal Coastal Zone Management Pro-
              gram dictates that coastal resources be utilized in a manner
              which optimizes their benefits while being compatible with main-
              taining irreplaceable cultural resources, and a healthy and pro-
              ductive natural environment. The following descussion attempts

              to demonstrate the nature of coastal resources and to introduce

              a management approach consistent with the goals of the Coastal
              Zone Management Program.

              The Intrinsic Nature of Coastal Resources

                    Wise resource management decisions consider the funda-
              mental interrelationships between the resources being managed
              and their surroundings. For instance, non-living resources
              (such as historical and archeological sites and mineral re-
              sources) which are generally static in time and space should
              be managed differently than living resources and natural physi-
              cal systems. Living resources are dynamic and thus dependent
              on each other and non-living resources. Land use decisions
              which are made both within and beyond the boundaries of the
              "coastal zone" can have significant impacts on both living
              and non-living coastal resources.

                    Costs and benefits of changes to dynamic environmental
              resources, although recognized by many, are not readily quanti-
              fied. Consider the management of a business enterprise; the
              successful manager knows his inventory, his production costs,
              his sales, and his potential income. He attempts to optimize
              his gains within the constraints of the current economic en-
              vironment. Production costs are dependent on many factors:

              the price of packaging, assembly, labor, etc. for the determina-
              tion of the final cost of the product. Although many factors
              may be involved, the costs are readily determined and identifi-
              ed with their source. Unlike a business, the interacting com-
              ponent costs are never totally identifiable. The components of
              living systems are synergistic, thus making analysis of natural
              production systems exceedingly complex. The level of biological
              productivity is a function of the physical stability, age, avail-
              able energy, and nutrients available to the community. The man-
              ner in which a bio-community responds to physical environmental
              changes is beyond the predictive capabilities of the resource
              manager. This response has been programmed into these living
              organisms during evolutionary time. The role of the natural
              resource manager is to manage the physical constraints (to the
              degree possible) or community species composition to promote
              the development of the desirable biological resources or environ-
              mental amenities. For optimum management of biological resources,
              the interrelatedness of these living resources to the surround-
              ing environment must be recognized and addressed by any success-
              ful management approach.

              What are "Sensitive" Resources?

                    Within the spectrum of coastal resources, there occur
              particular resources which, due to their location or natural
              function, are particularly susceptible to loss or degradation.
              These areas may be referred to as "sensitive" due to their pot-
              ential for change both from human and naturally occurring im-

              pacts.

                    Impacts to historical and archeological sensitive areas
              may result in a loss of irreplaceable cultural resources. For
              other areas, it may mean significant reduction of biological
              productivity. Changes in some of these elements are indicative
              of the local health of the coastal biological resources. Im-
              pacts to sensitive areas are observed when disturbances (beyond

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              the naturally occurring environment fluctuations) occur at a
              greater frequency. Man-related activities which result in
              changes in the erosion rates within floodplains and along shore-
              lines, sedimentation rates at intertidal areas, and loss of
              biotic components of the environment are examples of man-induced
              impacts to sensitive areas.

                    In some cases, the naturally occurring fluctuation in size
              and distribution of a particular resource are not known, despite
              the recognized importance of that particular component to the
              local biological productivity. This is the circumstance with
              submerged aquatic vegetation in the Bay. The loss or decline
              of vegetated areas will undoubtedly result in a local decline
              of the living resources which depend on this vegetation for
              their existence. The causes of decline are currently under
              intensive investigation. It is likely that there are a number
              of causes involved.

                   Management of sensitive areas requires that one should:
              (1) formalize conservation procedures for static sensitive
              coastal resources; and, (2) manage the dynamic, physical com-
              ponents of the environment (in order to maintain physical stab-
              ility) by buffering the impacts of coastal resources utilization
              on the living dynamic components of the coastal resources.

              What Determines Biological Community Health and Productivity?

                    All land-use actions which affect upland water flow
              patterns or the chemical characteristics of the waters can
              potentially affect the Bay's living resources. Aquatic com-
              munity changes will occur if the upland changes result in
              deviations which exceed the tolerance ranges of the organisms
              living there. For example, sediment which is deposited in the
              tidal waters may first reduce the amount of light penetrating
              the waters, thus limiting the diversity and abundance of the
              aquatic plant community. Suspended silts may interfere with
              the physiological functioning of animals and plants. Shift-
              ing sediment may sufficate germinating plants and fish eggs,
              thus decreasing local reproduction success. Muddy waters are

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              readily visible. But what of the not-so-readily-visible such
              as: chemicals in solution? Dissolved chemicals can be just
              as influential on biological community structure. Impacts
              can occur at very small concentrations, particularly if the
              community organisms have not experienced these selection pres-
              sures during evolutionary time. Impacts can be much more wide-
              spread if the source is relatively constant and the chemical
              remains suspended in solution. Consider the heavy metals which
              have been deposited in the Baltimore Harbor. Chemical impacts
              can be much more permanent than sediment impacts per se. Once
              deposited in harbor sediments, certain chemicals can effective-
              ly prohibit vegetation establishment. Some Bay organisms are
              sensitive to relatively "invisible," widespread, low concentra-
              tions of man-induced chemicals. Consider chlorine, a known

              '
               sterilant" commonly added to the discharge waters of wastewater
              t'reatment plants throughout the Bay's watersheds, which is used
              to kill pathogens found within the discharge. Fish eggs of some
              species are sensitive to concentrations equal to currently ap-
              proved discharge rates. Consider herbicides used in many agri-
              cultural and suburban horticultural practices used to alter
              plant community composition at various times during the growing

              season. These chemicals can reach the water resources and have
              a similar effect on the aquatic plant communities. Sensitivity
              of the resources varies with the growing season, reproductive
              stage, and the pressure of adbitional stresses. Environmental
              and physiological stresses may not be the direct cause of a
              particular species decline. Just as in human health, environ-
              mental stresses and pollution may lower the resistance of
              particular species to existing pathogens.

                    Under some circumstances, the total biological productiv-
              ity may not be reduced. However, instread of "growing roses",
              we are cultivating weeds. Under these conditions, less desir-
              able species predominate within the environment. For instance,

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              instead of shellfish, one may find tubifex worms. Keep in mind
              that a sewage treatment plant is a very biologically productive

              environment.

                    The question remains, however, what level of biological
              community complexity should we set as our management 'goal? The
              human benefits derived from a diverse biological environment
              are numerous.   Increased vegetational diversity results in a more
              aesthetically pleasing environment. It promotes quality recrea-
              tional experiences and allows a greater variety of recreational
               pportunities such as fishing, hunting, boating, and passive
              aOctivities. It permits the production and harvest of renewable
              natural resources such as shellfish and fishery resources. it
              increases the stability of our physical environment by buffering
              storm tides, stabilizing floodplains, and modifying wind actions.
              Perhaps, most importantly, by taking positive steps toward en-
              hancing our natural environment, we will also be instilling a
              realistic attitude toward the natural environment upon which we
              are ultimately dependent.

              What are the Major Management Components of the Coastal Region?

                    When managing coastal environmental resources, particular
              types of impacts can be associated with various features. These
              features are the uplands, watercourses, the shoreline, and the
              tidal waters. The biological health of the Bay is dependent on
              the physical stability and balance of these components of the

              coastal environment,

                    Disturbance to soils in upland areas may drastically alter
              the character of receiving waters both through changes in sedi-
              mentation rates and water flow regimes. The combined impacts
              from various disturbances which occur within a watershed may be
              significant. Management practices such as herbicide application,
              poor landfill practices, and land drainage pattern alteration
              can limit the biological productivity of receiving water bodies.
              The coastal aquatic area eventually receives impacts from all
              upland development.

                   Alterations to watercourses and water quality may have an
             impact on coastal resources. Induced environmental instability
             by direct additions of pollutants and stormwater disturbances
             will degrade the aquatic environment.

                   The shoreline is the access point for recreational and
             commercial opportunities; it is in demand for residential home-
             sites, especially where access exists to boatable waters. The
             natural stability of the shoreline areas is vital to the stab-
             ility of the aquatic biological resources. The maintenance of
             natural shoreline vegetation is desirable since the vegetation
             buffers land impacts on water and water impacts on land, liter-
             ally a "living bulkhead" moving to adjust for changes in physi-
             cal impact intensity.

                   And, finally, the tidal waters themselves may be the site
             of impacts -- dumping of pollutants, intense boating activity,
             and dredging and filling activity, to name a few.

             Public Perception of Coastal Environmental Resource Impacts

                   Natural resources which can be found within urban areas

             are managed mostly for their impact on health, safety, and gen-
             eral welfare. Off-site impacts on natural resources have tradi-
             tionally been addressed only when there are significant impacts
             on the physical health, physical safety (risk), or direct economic
             welfare to the human community. Because loss of environmental
             benefits are not immediately visible in our economic analysis,
             does not mean that significant impacts are not occurring. Im-
             pacts are most difficult to perceive when they are separated
             from the source of the impact  by time or distance. Impacts on
             the aquatic resources of a large water body, such as the Chesa-
             peake Bay and tributaries, are prime candidates for environment-
             al abuse due to its size and buffering capacity. Water quality
             impacts by their inherent nature, may have their greatest cumu-
             lative impact at some distance from the origin of the impact.

                                          6-A

              Intense development of upland areas without regard for adverse
              environmental impacts and poor agricultural paractices may to-
              gether have the greatest combined impact on coastal waters.
              Changes in water flow, sediment load, and water quality are
              significant -- causing radical changes to the aquatic community.
              But these changes are not readily perceived by the landowner -
              miles away. The natural processes of water purification along
              the length of a stream are beneficial but, if land-use impacts
              exceed the natural abilities of the stream to clean itself, the
              impacts reach the tidal waters. In this way, minor upstream
              impacts become diluted in the muddy waters of other minor im-
              pacts and the source of the problem becomes unclear.

                    Time has a way of hiding the impacts from their sources.
              The buffering ability of water bodies (that is: to accommoda-
              te stress without major aquatic community changes) extends the
              time interval between impact occurrence and when a readily visi-
              ble influence is apparent. Land-use practices performed for
              years may suddenly cause changes when the intensity of use with-
              in the watershed increases beyond the capacity of the existing
              natural system to accommodate it. Time may hide the source from
              the impacts in another way. Due to the migratory nature of some
              of the Bay's highly-valued fishery resources, economic impact
              may not be visible for years after we exceed the tolerance thres-
              hold for particular fish species. For instance, some fishes
              which spawn in the Chesapeake Bay may decline in significant num-
              bers when young and most sensitive, but since these fish normally
              move to the ocean water where they develop for several years, Pop-
              ulation impacts may not be known for several years when that age-
              class of fish fails to return to the Bay waters to spawn.

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             SUMMARY

                   By monitoring sensitive resources, we can determine the
             quality of our human environment. The intangible nature of many
             of these resources' benefits and the dynamic nature of their
             origin preclude these resources from being managed easily in the
             traditional economic sense. Management of these resources must
             reflect their relationships with other regional 'resources. By
             comprehensively regulating human impact on natural systems,
             these systems will continue to function and to support and
             enhance our existance while limiting public expenditure to
             correct problems caused by human activity.

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                                       REGIONAL        PLANNING COURr

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