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                                                                                                                                            FY'91                                 Task 17

                                                                                                                                                      Final Product
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                                         (ALICIssessment of the Barrier Island Policy
                                                         I   the Coastal'Primary Sand Dune Act


                                                                                                   Prepared by,
                                                                                                  Chris W. Frye













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                          T'his report was funded, in part, by the Virginia Council on the Environment's Coastal Resources Management Program through grant
                        NA17OZO359-01 of the National Oceanic and Atmospheric Administration under the Coastal Zone Management Act of 1972, as amended.
        77






            Barder Island Policy Assessment





                                                               Table of Contents.










                               1. Introduction.                                                                    3



                               11. Barrier Island Features and Processes        . . . . . . . . . . . . . . . . .  4



                               111. Historical Use of Virginia's Coastal Barriers       . . . . . . . . . . . . .  4


                               IV. Recent Development Trends and Activities                                        6


                               V. Project Review and Evaluation.                                                   7

                                        A. Northern Cedar Island        . . . . . . . . . . . . . . . . . . . . .  7
                                        B. Central Cedar Island       . . . . . . . . . . . . . . . . . . . . . .  8
                                        C. Southern Cedar Island        . . . . . . . . . . . . . . . . . . . . .  9


                               VI. Discussion                                                                      9

                                        A. Access Ramps                                                            9
                                        B. Septic Disposal Systems .                                             .10
                                        C. Water Quality                                                         .12
                                        D. Endangered Species       . . . . . . . . . . . . . . . . . . . . . . .  13
                                        K Over-sand Vehicle Use                                                  .13

                               VII. Summary and Recommendations             . . . . . . . . . . . . .            .14


                               VIII. Bibliography    . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .   15


                               IX Over-sand Vehicle Registration Form                                              16










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                                                                                                Barrier Island Policy Assessment



   A         Introduction                                                     Accomack County, however, has not and it in
                                                                              the Commission% responsibility to consider the
                                                                              impacts to the primary sand dunes and beaches
                   The Commonwealth of Virginia legislatively                 in that locality.
                 adopted the Coastal Primary Sand Dune Protec-                 This report will focus on Accomack and North-
                 tion Act in 1980. The Act wags set forth in                  ampton Counties and one of Virginia's most
                 acknowledgment of the unique physiographic                   valuable natural resource's - a chain of 13 barrier
                 features of coastal primary sand dunes and                   islands located on the seaside of theVirginia
                 beaches, which function as protective barrie=                portion of the southern Delmarva peninsula
                 from the effects of flooding and erosion caused              (Figure 1). The two primary geornorphological
                 by coastal storms. Sand dunes and beaches are                features of Accomack and Northampton Coun-
                 also recognized for their importance to the over-            ties'barrier islands, sand dunes and overwash
                 all scenic and recreational attractiveness of Vir-
                 ginia's coastal zone.                                        areas, are both included in the statutory defini-
                                                                              tion of a coastal primary sand dune as a...
                   The Virginia Marine Resources Commission                   "mound of unconsolidated sandy soil which is
                 ("Comm; sion!" or "VMRC'), in conformance                    contiguous to mean high water, whose landward
                 with Chapter 14 of Title 28.2 of the Code of                 and lateral limits are marked by a change in
                                                                              grade from ten percent or greater to less than
                    Figure I - Delniarva Peninsula and Virginia's 13          ten percent, and upon any part of which is grow-
                                     Barrier Islands                          ing"... one or more of the designated plants
                                                                              listed in Chapter 14 of Title 28.2 of the Code of
                                                                              Virginia.
                                       MARYL@No.,
                                                                                As a direct result of the increased develop
                                        IRGINIA                               mental pressure during the 1980's on Cedar
                                                    AWATIA&SE ISLANO
                                               WALLM SLAW                     Island in Accomack County, the Commission
                                       a      ASSAWOMANISLA"                  found it necessary and appropriate to establish
                            WAKE
                                                                              a policy and supplemental guidelines to assist
                                      0
                                                                              landowners and regulators alike in shaping
                                                      DELAIARV
                                           CEDAR ISLAND
                                                      PENINSULA               barrier island uses in a manner that preserves
                                         PARRAMORE ISLAND                     and protecta the values of Coastal Primary Sand
                                                                              Dunes as set forth by the General Assembly.
                                                                              The resulting Barrier Island Policy wags created
                                       I" OUW40
                                                                              and implemented in 1986, and later revised in
                                                                              1990.
                                   VRect, GLANO
                                  SWW SHOAL ISLAND
                                  MYRTLE ISLAWO                                 The purpose of this study, funded in part by
                                SMITH ISLAND                                  the National Oceanic and Atmospheric Admini-
                             FISHERMAN ISLAND                                 stration through a grant received under the
                 Virginia, is the State agency responsible for                Coastal Zone Management Act of 1972 an
                 managing the permit program for encroach-                    amended, was to evaluate the effectiveness of
                 menta on coastal primary sand dunes and                      the revised Barrier Island Policy in reducing the
                 beaches. There are eight localities which are                environmental impacts associated with mares
                 authorized and have the option to adopt the                  increased activities on Virginia's barrier islands.
                 Coastal Primary Sand Dune Ordinance: the                     This report focuses on Cedar Island since the
                 Counties of Accomack, Lancaster, Mathews,                    majority of development has occurred there. In
                 Northampton and Northumberland and the                       addition, the study would further examine a
                 Cities of Hampton, Norfolk, and Virginia Beach.              permitting system for over-sand vehicle use on
                 Northampton County has adopted the Model                     the island and present a plan that would outline
                 Coastal Primary Sand Dune Zoning Ordinance.


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            Barrier Island Policy Assessment




               possible changes to the present Barrier Island             of the 13 barrier islands. Byrnes et al (1989)
               Policy.                                                    reported the southern half of Metomkin Island
                                                                          to be retreating at a rate of 13.6 m/yr, three
                                                                          times the rate of the northern half, between
            Barrier Island Features and Processes                         1962 and 1988. Conversely, the northern
                                                                          section of Cedar Island, between 1949 and 1986,
                                                                          had an average retreat rate of 6.4 m/yr, while
                 Accomack and Northampton Counties'barrier                the southern section during the same time
               islands are located east of, and run parallel to,          period had an average accretion rate of 2.1 m/yr
               the mainland and generally exhibit a north-                (Dolan, 1986). Long4erm (1852 to 1989) migra-
               northeast trend. The barrier islands and their             tion rates, however, indicate the entire island in
               various morphological components provide                   retreating on an average of 4.8 m/yr (VIMS,
               protection to the Eastern Shore mainland from              1989). The large variability of temporal and
               the direct action of the Atlantic's waves,                 spatial accretion/erosion rates creates a very
               currents, and storms. Similar barrier island               unpredictable scenario for island development.
               systems occur in every coastal state of the                  As a. result of the obvious difficulties associ-
               United States having a shoreline along the
               Atlantic Ocean, Gulf of Mexico, and Pacific                ated with regulating development activities and
               Ocean (Stauble, 1989).                                     minimizing the resultant environmental
                                                                          impacts on the extremely dynamic sand plat-
                 Dimensions of the Eastern Shore barrier                  forms, the Commission attempted to develop a
               islands are quite variable. The average length             set of guidelines to assist in the management of
               and width of the islands are approximately                 those areas.
               8 Ian and I kin, respectively. The islands have
               been characterized as low-profile with
               vertical elevations ranging between 0     'in and      Historical Use Of Virginia' s Coastal
               10 in (Byrnes et al, 1989). Dune development           Barriers
               along much of the coastal barriers could be
               described as minimal.
                 Because the barrier islands are low4ying,                  There is a well-documented history of human-
                                                                          related activities and habitation on the barrier
               they are extremely susceptible to overwash                 islands off the Eastern Shore. Native Ameri-
               during storm events which results in the trans-            cans, primarily Nanticoke tribe members, made
               portation of sediment from the barrier beach               frequent trips to the islands to gather provisions
               and dune system to more quiescent areas                    and certain items used in bartering. In 1672 a
               behind the barrier islands (Figure.2). The                 small colony of European settlers livedon Hog
               resultant "overwash fans" quickly become                   Island, but mysteriously disappeared by the
               re-colonized by coastal vegetation, which serves           turn of the century. It was in the late 1800's
               to trap windblown sand and assist in the natu-             that a large island village, BroadwRter, emerged
               ral reconstruction of coastal dunes. Overwash,             on Hog Island. There were more than 200
               aeolian (or wind blown) transportation, and the            persons on the island, at least a dozen homes, a
               exchange of sediment and water through tidal               church, hotel, stores and a sportamen6 club.
               inlets all contribute to the landward migration            When the civil war ended, numerous wealthy
               of the islands. The migration or "rollover@'proc-          visitors came to the Eastern Shore's islands to
               ess actually maintains the integrity of the                relax, hunt and foh. The simple existence of
               barrier island and the associated coastal                  the island's inhabitants was short-lived,
               primary sand dunes and beaches.                            however. Although the village survived many
                 There is considerable temporal and spatial               coastal storms and floods, it was the continuous
               variation between the migration rates for each             rollover and erosional processes that ultimately


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                                                                                          Barrier Island Policy Assessment




                                                 Figure 2 - Barrier Island Rollover



                       Mainland                    Marsh/Lagoon System               Barrier Is1and               0cean

                                                                                     coastal primary
                                                                                      sand dune

                                                   tidal creek






                                                                                          dune crest


                                                                       landward migration
                                                                           
                                                                   overwash fan                         storm surge





                                                                               dune crest














                forced the island residents to evacuate their           remaining lifesaving station in use on the East-
                belongings in the 1920's and early 1930's.              ern Shore.

                  During the early years of intercoastal ship-             Cedar Island has experienced similar human-
                ping from the major port of New York City to            related use, but mostly by seasonal recreational
                the Chesapeake Bay, the barrier islands played          hunting and fishing parties. In the 1950's.
                a key role in providing locations for the estab-        however, approximately 95% of Cedar Island,
                lishment of lifesaving stations along the Atlan-        which was privately owned, was subdivided into
                tic Coast. The shallow and unmarked waters              2,200 Iota. The planned development, called the
                along the eastern seaboard were quite danger-           Ocean City of Virginia, was to be linked to the
                ous, especially during stormy weather. At least         mainland with a causeway. The plan lost
                eight separate lifesaving stations were estab-          momentum, however, and the developer offered
                lished on the backside of several of the barrier        to sell the property to several conservation
                islands, from Assateague to Fishermans Island,         organizations and the Commonwealth of
                providing the most immediate response to mari-          Virginia (i.e. The Nature Conservancy, Fish &
                time emergencies. Most of the original stations         Wildlife Federation, and the Department of
                were replaced in the early 1900's with more             Game and Inland Fisheries), but without suc-
                modem facilities that currently exist, but in           cess. During the interim, the island continued
                various states of disrepair. The U.S. Coast             its migratory trends and many of the originally
                Guard Station on Parramore Island is the only           platted Iota were lost to the Atlantic Ocean. It



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             Barrier Island Policy Assessment




                wasn't until the mid-1980's that the majority of             offices (Figure 3). A single application was filed
                Cedar Island again began to be marketed and                  in 1985 for construction activities on the north
                purchased with individual lots ranging between               end of Cedar Island. The 1985 application,
                two and twelve acres in size.                                which was approved by the Commission, was
                                                                             followed in 1986 by 14 coastal primary sand dune
                   In contrast to Cedar Island, the majority of              applications describing proposed activities on
                Virginia's barrier islands are undeveloped and               Cedar Island. After a time consuming and
                exist as protected wildlife sanctuaries under the            careful review of each of the applications, eight
                Virginia Coast Reserve or National Wildlife                  were approved, three were denied, and three
                Refuge Programs.                                             were modified so as to not have any impacts on
                                                                             the coastal primary sand dune (no permit neces-
                                                                             sary; NPN).
            Recent Development Trends and                                      The 1986 deluge of a   Ipplications represents the
            Activities
                                                                             peak year for proposed activities on Cedar
                                                                             Island. The potential construction lboom!'
                   Since Virginia adopted the Coastal Primary                revealed the necessity for further investigation
                Sand Dune Act in 1980 only about 40 applica-                 of the possible environmental impacts due to
                tions have been filed in VMRCs offices request-              the increased human-related activities on the
                ing authorization to conduct activities upon the             barrier islands and the formulation of certain
                coastal- primary sand dunes and beaches associ-              criteria and guidelines for management
                ated with the Eastern Shore barrier islands.                 purposes. The resultant Barrier Island Policy
                Figure 3 depicts the distribution of the 40                  was approved and adopted on June 24,1986.
                applications, as well as the Commission%                       Figure 3 shows a highly variable, but decreas-
                actions for each of the 12 years since 1980.                 ing trend in the number of coastal primary sand
                Only two of the 40 applications submitted                    dune applications submitted to VMRC. While
                entailed proposed activities somewhere other                 the data indicate a slight increase during 1989
                than Cedar Island. During 1992 two applica-                  and 1990, there were no applications submitted
             Figure 3 - Coastal- Primary Sand Dune Applications for          for proposed construction on Cedar Island after
                      Virginia's Barrier Islands, 1980 - 1992.               1990. Applications submitted in 1992 were for
                                                                             proposed activities on Wallops and Assateague
                      of Appkabra                                            Islands.

                                                      maw
                 14                                   M1Au#wfl:md              Thirty-eight Cedar1sland applications were
                 12                                   DOwded                 submitted for consideration between 1985 and
                 io                                   CIWN                   1990,23 were authorized, 9 were denied, and 6
                                                                             were determined, after review, not to require a
                                                                             permit (NPN). Authorized construction activi-
                                                                             ties, therefore, could have potentially occurred
                                                                             at 23 separate locations on Cedar island.
                    80 61  82  83 84 85  86 87 98  89 90 91   92
                                        Year                                 Twentymone of the 23-Authorized projects were
                                                                             actually initiated during 1985-90. Approximate-
                               -                                             ly 70% of those structures, however, have either
                tions were submitted for proposed activities on              been relocated or destroyed as a result of the
                Wallops and Assateague Islands.                              natural migration or rollover process.
                   During theperiod between 1980 and 1984                      The projects that have not been moved or
                                                                                                        located on the southern
                there were no coastal primary sand dune appli-               destroyed are priman
                cations from the Eastern Shore filed in VMRC's               end of the island. Short-,termshoreline position
                                                      7
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                                                                                          Barrier Island Policy Assessment




               changes indicate that this section of the island         were reported to be ten feet above normal.
               is actually acereting (VIMS, 1989). Newly con-           Several cottages on Cedar Island were
               structed and relocated cottages have remained            destroyed, while significant damage was
               fairly secure along the southern reach of Cedar          reported at the Wallops Island Flight Facility
               Island due to the wide beach and substantial             and along Assateague Island further to the
               primary sand dune. In addition, southern                 north.
               Cedar Island may benefit from being in the lee
               of northern Parramore Island. Southerly winds              Northern Cedar Island
               and waves may be dampened by Parramore
               Island and the ebb tidal shoal associated with             The northern region of Cedar Island today
               Wachapreague Inlet.                                      bears scant resemblance to what existed during
                                                                        the mid-1980's. Distinct primary and secondary
                                                                        dunes, along with a wide beach and backshore,
           Project Review and Evaluation                                were present during the 1986 construction boom.
                                                                        However, northern Cedar Island, from 1985 to
                                                                        present, has migrated landward at a rate of
                 For the purpose of discussion, the following           approximately 30 m6rr, flattening the dunes,
               chapter will separately address three distinct           creating washover fans and eliminating all
               regions of Cedar Island; the northern region,            evidence of any previous human-related distur-
               approximately 2.4 kni in length and bounded by           bances.
               Metomkin Inlet, a central region approximately             Ten projects authorized under the Barrier
               3.6 kni in length; and the southem 3.2 km                Island Policy were actually constructed within
               stretch bounded by Wachapreague Inlet                    the northern region of Cedar Island between
               (Figure 4).                                              1985-89. All of these previously disturbed
                 So that the investigations and findings of this        construction sites were visited during this study
               study can be placed in proper context, a sum-            to record any observable human-related impacts
               mary of the climatic events that occurred during         and determine how effective the Policy may
               late 1991 and early 1992 is necessary. During            have been at minimizing those impacts to the
               the period, several significant storms passed            coastal primary sand dunes and beaches. Out of
               along the Virginia coastline that caused substan-        the ten structures, eight were moved to central
               tial damage. On October 31, 1992, the "Hallow-           or southern Cedar Island, while the remaining
               een Storm" brought unusually high water condi-           two structures were only partially constructed
               tions, including storm surge and waves. As               before being destroyed by natural forces.
               Hurricane Bob passed along the continental                 The only remains of the authorized structures
               shelf on October 31 headed north, strong winds           are the foundation pilings which supported
               forced shelf water onshore and raised sea level          several cottages. These pilings have been
               approximately five feet above normal. In addi-           stranded in the Atlantic Ocean by the rapidly
               tion, aerial reconnaissance on the day of the            migrating island. VMRC, by utilizing the
               storm provided the opportunity to observe five           enforcement powers of the Barrier Island Policy
               to eight-foot waves and much of the Eastern.             and Title 28.2 of the Code of Virginia, has
               Shore barrier islands under water.                       directed that these structures be removed in
                 A typical noreaster enveloped the area                 their entirety. Several problems were encoun-
               during the weekend following the Halloween               tered during this effort, one of which was deter-
               Storm, taking advantage of the weakened                  mining what lot and owner the remnant pilings
               natural shoreline defenses. On January 4,                were associated with. The primary logistical
               1992, an exceptionallystrong noreaster struck            problem faced by the property owners was how
               the northern. region of the Eastern Shore.               to remove the pilings from the nearshore zone.
               Water levels at Wallops Island Flight Facility



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             Barrier Island Policy Assessment




                   Identifying remnant pilings in the future                 Central Cedar Island
                 could be accomplished by affudng some type of
                 identification to the pilings, or requiring a               The long-term migration rate for central
                 detailed plan of the pilings configuration be             Cedar island, although not as great as that at
                 submitted once the pilings had been installed.            the north end, is still reported to be around
                 The most desirable solution to the stranded               4.8 m/yr. During the period between 1986 and
                 piling problem would be to have the pilings               1991, the shoreline has migrated landward 119 m,
                 completely removed from the upland at the time            or approximately 24 m/yr. As a result, the
                 of relocation or destruction. In the past,                coastal primary sand dune has been destroyed
                 however, the pilings have apparently been cut             and redistributed along the shore and across the
                 at or just below dune level and then covered by           island in some areas as overwash fans.
                 sand. This makes it very difficult during follow.
                 up compliance inspections to determine whether              Between 1986 and 1990, six cottages were
                 or not complete removal has been accomplished.            authorized and constructed under the Barrier
                 With stricter compliance monitoring-and inspec-           Island Policy in the central region of Cedar
                 tions at the time of relocation or immediately            Island. All of those project sites were evaluated
                 after destruction, it may be possible to minimize         to determine whether they were in compliance
                 this type of incident in the future.                      with their permits and what impacts may have
                                                                           occurred to the coastal primary sand dunes and
                   Jt is difficult, if not impossible, to determine        beaches. The investigations revealed that only
                 what impactathe construction projects may                 two of the six authorized structures were still
                 have had on the coastal features and processes            habitable and situated on their originally per-
                 associated with the north end of-Cedar Island.            mitted sites. The other structures have either
                 Qualitatively, it appears that the natural proc-          been destroyed, relocated, or deemed uninhabit-
                 esses are continuing at such a rate and intensity         able by the Health Department due to recent
                 that any man-made structures placed in the                damage to the septic disposal systems.
                 way are incidental. Pedestrian access points                The two cottages located on their originally
                 over the dunes, sand fencing, pilings, and low-
                 density single family cottages-have played a              permitted sites were within the predetermined
                 rather insignificant role when viewed in rela-            (ortrigger) distance to mean high water (prede-
                 tion to the natural processes.                            termined distance is approximately 48 m for
                                                                           central Cedar Island). As stated in the Barrier
                   Had the 1990 Policy setback criteria -from the          1sland Policy, "once local mean high water
                 dune crest (20 times the local 100 year -long-term        approaches a structure to within 10 times the
                 annual shoreline recession rate) been applied to          average recession rate, a plan for its movement
                 the 1986 structures on the -north -end; of Cedar          or relocation must besubmitted:f0freview."
                 Island they would have been constructed                   In accordance with the Policy, VNIRC has
                 approximately 122 m from the dune crest. Even             requested submittal of relocation -plans from the
                 so-, they would onlyjust recently have                    two property owners since their cottages are
                 become situated on the beach. While this would            now located less-than 48 m from*the mean high
                 have possibly added an additional two years to            water position.
                 the life of-the structures -and given the property
                 owners more time to formulate alternative                   After reviewing the permit issued for one of -
                 plans, it would not have eliminated the inevita-          the above-mentioned. properties, it appears that
                 ble. Maximizing the setback distance is preferw           the setback distance from the crest of the
                                                                           coastalprimary:sand dune to the septic system
                 able as long as the lots have the available         -
                                                                           was approximately 30 m. Under the present
                 upland. Many of the platted lots, however, do
                 not -contain enough highland property to allow            regulations of the Barrier Island Policy, the
                 for-the required setback standards set forth in           required setback distance is close to 90 m. This
                 the 1990 Policy.                                          setback would have been enough to preserve the


                 8






                                                                                          Barrier Island Policy Assessment




                structure for several years under the current              During the early 190016, the Island House
                conditions. The lot also appeared to contain            Hotel on southern Cedar Island was a popular
                enough upland to accommodate the setback                vacation spot drawing visitors from all over the
                distance prescribed by the revised Policy.              country. The southern portion of the island also
                                                                        became the site for several small private
                  The most southern cottage within the central          cottages. Most of these structures, however,
                region is still standing, but uninhabitable since       were destroyed by the storms of the 1930's, or
                it is now located adjacent to a recently formed         relocated to the mainland.
                inlet and the mean high water position. The
                Policy did not intend for the relocation criteria          Due to the relative, short-term stability
                to apply to structures threatened by the lateral        exhibited over the past 25 years, southern
                movement of newly formed breaches or inlets.            Cedar Island has again become the site for low-
                It is apparent from the recently formed inlet on        density construction activities. The develop-
                Cedar Island, however, that the Policy should           ment, however, has intensified over the past
                also address structure location/relocation with         five years since the north and central portions
                respect to inlets and breaches of the barrier           of the island have experienced severe erosion
                islandasystems.                                         and rollover. Approximately ten structures
                                                                        have been constructed, or relocated from the
                  Both the central and northern regions lacked          north,since the adoption of the Barrier Island
                a defined coastal primary sand dune during this         Policy. Most of the cottages are situated far
                investigation. It appears the migration rates for       enough behind the primary sand dune that
                the past few years have vastly exceeded the             authorization under the Coastal Primary Sand
                island's natural ability to repair and reconstruct      Dune Act was averted. Permits have been
                its dunes. Without conducting a detailed, quan-         issued, however, for permanent and temporary
                titative sediment budget analysis, however,             access crossings of the coastal primary sand
                it is impossible to determine why the coastal           dune, and for the installation of septic disposal
                primary sand dune no longer exists along the            systems.
                central and northern regions of the island. In
                our opinion, human-related activities are
                having little discernible impact on the coastal      Discussion
                primary sand dunes and beaches relative to
                the natural migration or rollover processes.
                  Southern Cedar Island                                    Accesg &mpg
                  The long-term migration rate for southern                The only access ramps to remain intact after
                Cedar Island is approximately 4.1 m/y, but the          the storms of 1991 and 1992 were located on
                short-term data indicate the southern portion of        southern Cedar Island. Efforts in evaluating
                the island is actually accreting at approximately       the impacts related to access ramps, therefore,
                2.1 m/yr. The beach profile of southern Cedar           focused on the structures that remained on the
                Island has a very wide, but flood-prone back-           relatively stable southern end of the island.
                shore. The coastal primary sand dune is fairly             Temporary disturbances to the primary dune
                continuous with heights exceeding 4 in. Land-           occurs while building materials are transported
                ward of the primary sand dunes are extensive            over the primary dune to the construction site.
                secondary and tertiary dune systems, which              Those impacts can be minimized through the
                ultimately grade into the marsh/lagoon complex          use of access ramps. Authorization for tempo-
                found behind the barrier islands. The south end         rary access ramps is always contingent upon the
                of Cedar Island has a wide variety of coastal           permittee agreeing to restore the dune to its
                geomorphological features that are generally            pre-existing contours and revegetate with the
                indicative of a sand-sufficient system.                 appropriate plants.


                                                                                                                           9





            Barrier Island Policy Assessment




                 Each of the authorized structures on southern          hazard to the public, and require enforcement
               Cedar Island were investigated to determine if           action in order to have the pilings removed and
               they still existed, whether their performance            the problem resolved. Therefore it seems
               was adequate, what impacts they have had on              unlikely that the use of open-pile elevated
               the coastal primary sand dune, and how success-          ramps will be encouraged during future projects.
               ful were the restoration efforts. The investiga-
               tions were carried out after the severe storm              Restoration of the primary sand dune after
               and high water conditions that occurred during           removal of the temporary access ramps was
               late 1991 and early 1992.                                evaluated during the study. Two temporary
                                                                        construction access ramps were removed from
                 The permanent corduroy access roads did not            the coastal primary sand dune in the southern
               endure the high water conditions very well.              region. The areas, as conditioned by the per-
               Many were observed to be washed from the                 mits, were to be restored to their pre-existing
               dune crossing in a landward direction. It                contours and sprigged with the appropriate
               appeared that the access roads may have even             vegetation. R appeared in both instances that
               channelized and accelerated the water being              the affected areas had not been returned to
               forced over the primary dune, causing consider-          their pre-existing contours. Appropriate vegeta-
               able scour. This could present a potential               tion, however, appeared to have been sprigged,
               problem if a septic disposal system is placed            while natural vegetation was also successfully
               within the dune and in the general vicinity of           returning to the areas.
               the access ramp.                                           After witnessing the amount of damage
                 In concept, the access ramps are designed to           caused by storm surge as it funneled through
               funnel traffic through a single point of the dune        the access points along the primary dune, it
               rather than repeated crossings over a larger             appears that restoring temporary access cross-
               portion of the dune. In areas of accretion the           ings to their pre-existing contours is important.
               dune will typically increase in height, while            Significant scouring of the dunes occurred as a
               the access ramp remains at the level it was              result of water channelling through the access
               installed. The corduroy, or gapped ramp will             areas, not to mention the potential impact to
               also allow vegetation to grow between the                adjacent septic disposal systems. Stricter en-
               planks of the ramp as long as traffic is not too         forcement of permit conditions related to resto-
               great. Based on the evaluation of the structures         ration could minimize those impacts.
               and observations of breaching during the storm
               conditions, it might be advisable to require the           Septic Dispgsal S3mtems
               owners of the access ramps to periodically                 The Virginia Department of Health, Eastern
               remove the ramp and raise the elevation of the           Shore Health District is responsible for the
               ramp area to approximate that of the adjacent            evaluation and issuance of permits for septic
               dunes.
                                                                        disposal systems on the Eastern Shore and the
                 All of the evaluated access ramps were of the          barrier islands. In comparison to the islands,
               corduroy design. The Policy, however, permits            potential septic disposal sites on the "mainland"
               the construction of both corduroy and open-pile          are evaluated on their soils and whether they
               elevated ramps. Although an open-pile elevated           are a naturally occurring, non-fill material that
               structure allows wind, water and sand to pass            exhibits certain soil horizons indicative of
               relatively undisturbed, and vegetation to grow           leaching or percolation. The rate at which the
               beneath, the pilings present a problem similar           soil percolates can be measured, and is used
               to the one encountered on the north end of               primarily when determining the suitability of a
               Cedar Island. Severe erosion or migration of             site for the placement of a drain field.
               the dune could leave the foundation pilings in             Potential septic disposal sites on the barrier
               an undesirable location, posing a potential              islands, however, are not evaluated for their

               10





                                                                                         Baffler Island Policy Assessment




                                                Figure 4 - Vicinity Map of Cedar Island





                                                                        4

                                                                    4,  4


                                                                 41
                                                                        14               "etaNkla RAI"



                                                               12                   e
                                         N






                                                  10



                                                                                     Atlantic ocean





                                    4                  Burto" say

                                           4


                                                                                  0 1992 Piping Plover Mat Sites

                                      'k                                          0 VDB Bowling Stations

                                                                                ......... 1952 Cedar Island Shoreline










              percolation rat4w, appeamrice of soil horizons or         the single family cottages used on the barrier
              the origin of the soil. The islands are continu-          islands.
              ously shifting their sands from one site to
              another, therefore, soil horizons are unable to             On May 5, 1992, the Eastem Shore Health
              become established. Rather than measuring                 District conducted a survey of the 26 habitable
              percolation rates, suitable septic disposal sites         structures on Cedar Island and their sewage
              are identiflied by the distance from the surface of       disposal systems. The survey was conducted to
              the sand to the elevation of the water table.             evaluate the damage that may have occurred as
              The difference should be at least 8 to 12-inches.         a result of the recent inclement weather, and
              In addition, there must be at least five feet of          any effecta the failed systems may have had to
              sandy material above the underlying marsh                 adjacent shellfish growing waters. Approid-
              peat. With this criteria in hand, suitable septic         mately ten septic systems were found to be
              disposal sites are readily available for most of          damaged and in violation of Virginia's





           Barrier Island Policy Assessment




                                            Figure 5 - Fecal Coliforni Concentrations for Burtons Bay
                                                                    and Cedar bland


                                               5Concenuation (#AOanl)                    *Smdm 14
                                            4.7S . ........................................ 6-Statim 12  .....
                                                I                                       -Wftdonto
                                             4.S . . .................................... 4.stadma ....
                                            425 . .....  ... . ...............           *StatIM6
                                               4@ ...       . ......             ........................

                                            175 . ...............                ........................

                                             3.S - --------     ..............    ........................
                                            3.35 ....... *..........   ..........        4!  ..............
                                               3O@ N@, D@. JL F;b. Z; A@. " JL JL A@g. Sept.

                                                              October M1 - September 1M



               Sewage Handling and Disposal Regulations.                     Health, it appears that the moderate fluctua-
               The District notified each property owner of                  tions in the bacteriological levels is driven
               the alleged violation and requested the indi-                 mostly by rainfall and seasonal fluctuations in
               viduals to submit plans to correct the identified             water temperature. The data does show a slight
               problems.                                                     increase in the concentration levels observed
                                                                             during the fall of 1991 and early winter of 1992.
                 In addition to the failed septic systems identi-            This dom coincide with'the months of high
               fied by the District, this study noted the pres-              water conditions and, most likely, the time
               ence of dislocated septic tanks as a result of the            during which Cedar Island septic systems expe-
               high water conditions. The Barrier Island                     rienced failure. It is dif'ricult, however, to associ-
               Policy requires that all septic tanks have an                 ate increased bacterial concentrations with
               identification number affixed to the plastic tank             failed Cedar Island septic systems, since there
               to aid in the proper identification of its owner.             are other potential local sources of contamina-
               This procedure has apparently not been adhered                tion.
               to. The problem was discussed with the Eastern
               Shore Health District and it is anticipated that                 In addition to the potential impacts to the
               the District will also require that all future sep-           adjacent waters, septic disposal systems on
               tic tanks have the associated District permit                 southern Cedar bland were also evaluated to
               number affixed thereto.                                       determine their impacts on the coastal prim-
                                                                             primary sand dune. As stated earlier, the evalu-
                 Water QUality                                               ation was confined to southern Cedar Island
                                                                             where a coastal primary sand dune still exists.
                 The Virginia Department of Health, Division                 Although many of the cottages on southern
               of Shellfish Sanitation records monthly water                 Cedar bland were placed in areas that did not
               quality information from numerous stations                    require a permit from the Commission, numer-
               located in Burtons Bay, near Cedar Island                     ous septic disposal systems were entrenched
               (Figure 4). Figure 5 depicts the concentration of             within the coastal primary sand dune. Of the
               fecal coliform bacteria from five of those                    several permitted sites evaluated, very few dis-
               stations during the study period. After review-               turbances to the primary dune were noticed.
                                                                                          S"@
                                                 --- --- --------
                                                 ..............................
                                                r   .... -----------






               ing the water quality data and discussing the                 Rezprigging efforts seemed to have varied
               results with personnel from the Department of                 success, but natural recolonization occurred



                12





                                                                                                                  Barrier Island Policy Assessment




                    very quickly for most of septic systems evalu-                            Piping plovers have pfimarily concentrated
                    ated.                                                                  their nesting activity on northem Cedar Island.
                                                                                           All of the previously constructed cottages, and
                      Rn4angcnd SRacies                                                    associated human-related structures, have been
                                                                                           removed from this part of Cedar Island as a
                      The Barrier Island Policy requires that any                          result of the intense erosion. This area of Cedar
                    impacts to threatened and endangered species                           Island, however, has always been popular with
                    be given due consideration prior to permit                             boaters, fishermen, and beachcombers. In
                    authorization. MAlson's and piping plovers are                         addition to the humans, pets are often brought
                    the two bird species of greatest concern on                            along to the islands for recreational purposes.
                    Cedar Island. Physical encroachment by any                             It is suspected by researchers that these
                    structure onto nesting sites is prohibited. Time

                                                        Figure 6 - Piping Plover Pairs for Eastern Sbore,
                                                                          Virginia 1988 - 1992


                                                      Number of Pairs
                                                    14                      Eastsm Stio :8.MsUs -             ..........
                                                   12 -Hogla -*Cobbls -Cadarls

                                                    10 ......................................... ... ...........


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



                                                                             .......   .. ...........     .............
                                                               .......... * .....  *...*.... ... ......




                                                     2 ........    ........    .......


                                                     0
                                                    1988              I=               490             1991           1992
                                                                                       Year




                    of year restrictions, typically mid-Alarch                             combined activities may have been disruptive to
                    through September, are imposed on all construc-                        the piping plovers during the summer of 1992
                    tion activities through permit eDnditions. Spe-                        on Cedar Island.
                    cial consideration can be given for construction
                    and relocation activities as long as they are                             Figure 6, however, indicates that similar
                    approved and monitored by personnel from the                           trends were observed on adjacent islands
                    Department of Game and Inland Fisheries.                               between the summers of 1991 and 1992. It is
                                                                                           likely that the highly destructive storms and
                       Figure 6 shows the number of piping plover                          subsequent erosion had a significant affect on
                    pairs observed on Cedar Island and other                               the success of the piping plovers during 1992.
                    adjacent barrier islands to the north and south                        Humn n-related activities do remain a concern
                    from 1988 to 1992. All of the depicted islands                         as evidenced by the signs posted and driving
                    showed slight increases in the number of plover                        corridors established around critical nesting
                    pairs from the summer of 1990 to that of 1991.                         sites along the islands.
                    The summer of 1992, following the high water
                    conditions of late 1991 and early 1992, had                               Over-Sand Vehicle Use
                    fewer observations of plover pairs on all of the
                    depicted islands except Assawoman Island.                                 Vehicular traffic on Cedar bland and some
                                                                                           of the other barrier islands has long existed to
                                                                                           some degree, but at a low-level. It wasn!t until



                                                                                                                                                           13






           Barrier Island Policy Assessment




               Cedar Island was platted and sold in small               extremely difficult to measure either their indi-
               parcels that vehicles began to be used more              vidual or climulative impacts on the islands
               regularly on Cedar Island. As more and more              coastal primary sand dunes and beaches. The
               cottages were constructed on the island, the             majority of the island has undergone extreme
               problems associated with over-sand/offroad               changes and approximately two thirds of the
               vehicle use began to emerge. It is well known            islands coastal primary sand dune no longer
               that ATV's and other vehicles can quickly                exist. Coastal erosion and island migration
               destroy vegetation growing on the dunes and              rates have exhibited significant increases when
               cause that feature to destabilize and deflate.           compared to historical rates. This study was
                                                                        not able to determine whether the recent accel-
                 With the adoption of the Coastal Primary               erated erosion and migration rates of Cedar
               Sand Dune Act and even stricter regulations,             Island were associated with the human-related
               contained in the Barrier Island Policy, travel-          activities that occurred during the mid-1980's.
               ling over the coastal primary sand dune on the           Severe erosion and island migration, however,
               Eastern Shore barrier islands became explicitly          were experienced all along the Delmarva Penin-
               denounced. The Barrier Island Policy, adopted            sula, which would indicate that the low-density
               in 1986, provides a well-defined set of guidelines       development on Cedar Island has had an incon-
               that each individual property owner on Cedar             sequential contribution to the overall geomor-
               Island could follow. The Policy's vehicular regu-        phological changes observed there.
               lations have been in effect since it's adoption,
               but a permitting system and enforcement proce-             The placement of low-density structures,
               dure has never been established. This is due, in         including the recently damaged or destroyed
               part, to the Commissions anticipation of fewer           septic disposal systems, has caused no observ-
               vehicles on Cedar Island since construction              able impacts to the adjacent waters monitored
               activities were beginning to lessen during the           by the Health Department. Future septic
               late-1980's. Fortunately, impacts to endangered          disposal tanks will have the appropriate identifi-
               species have been minimized by posting signs             cation number affixed thereto. Threatened and
               and flagging driving corridors.                          endangered species (piping plover) populations
                                                                        were relatively stable between 1988 and 1990.
                 With the recent acknowledgment of acceler-             The number of pairs increased, however, two-
               ated migration rates, it appears that vehicle            fold in 1991, but decreased proportionally in
               status and condition information could enhance           1992. Recent declines are more than likely a
               the Commissions ability to have a vehicle                repercussion of the storms and overwash that
               removed from the island before the vehicle               severely impacted plover habitat during the
               becomes abandoned. It is the finding of this             study period. It was evident that uncontrolled
               study that a no-cost annually renewable vehicu-          public access on the northern point of Cedar
               lar permit form be devised which will be pro-            Island may be detrimental to those species.
               vided to all existing and proposed vehicle own-          Continued coordination with the Department of
               ers on Cedar Island, and that a permit tracking          Game and Inland Fisheries regarding oonstruc-
               system be initiated. A possible format for the           tion access, relocation plans, time-of-year restric-
               over-sand vehicle permit application has been            tions, and vehicular traffic is essential.
               included at the back of this document
               (see attachment).                                           Furthermore, this study recognizes the need
                                                                        for stepped-up project compliance and monitor-
                                                                        ing efforts. Construction debris must be
            Summary and Recommendations                                 completely removed from the site following
                                                                        construction or relocation. Temporary and per-
                                                                        manent access roads over the coastal primary
                 After conducting an island-wide evaluation of          sand dune should be of the corduroy type, not
               the structures placed on Cedar Island, it was            open-pile design, and they should be located as


                14






                                                                                              Barrier Island Policy Assessment




                   far from the septic disposal system as possible.           Dolan, R., 1986. Shoreline Erosion and Cedar
                   Permit and dune restoration conditions within            Island. Unpublished report.
                   access areas should be monitored and enforced
                   more closely.                                              Stauble, Donald X, 1989. Barrier Islands:
                                                                            Dynamic Coastal Landforms Requiring Complex
                     Setback criteria incorporated in the revised           Management Decisions. In: Stauble, Donald K.
                   1990 Barrier Island Policy should contribute             and Magoon, Orville T., (eds.), Barrier Islands:
                   significantly to the life-span of the cottages and       Process and Managgment. ASCE, New York,
                   their appurtenances. Pre-1990 permitted struc-           N.Y. pp 63-77.
                   tures were sometimes inundated, if not
                   destroyed, by the Atlantic Ocean prior to comple-          Virginia Institute of Marine Science, 1989.
                   tion. The revised Policy should at least enable          Shoreline Recession Rates. Unpublished data.
                   the property owner to complete construction and
                   utilize the structure for several years before             Virginia Department of Game and Inland
                   contemplating relocation. The Policy does not            Fisheries, 1992. Piping Plover Data. Unpub-
                   specifically address lateral setback or move-            lished data.
                   ment/relocation criteria from existing or newly            Virginia Department of Health, Eastern
                   formed breaches and inlets. This may become a            Shore Shellfish , 1992. Water Quality Data.
                   legitimate concern if the island becomes more            Unpublished data.
                   and more deficient of sand. If that occurs,
                   breaches and inlets, although mostly ephem-
                   eral, will begin to occur more regularly. It is
                   the recommendation of this report, therefore,
                   that future revisions to the Policy include addi-
                   tional criteria to address the lateral setback dis-
                   tance and movement/relocation from inlets and
                   breaches.


                     Lastly, this report recognizes the need for a
                   bonafide vehicular permit tracking system. The
                   system would allow for easier identification of
                   vehicles, current information on vehicle operat-
                   ing status, and hopefully reduce the number of
                   vehicles and their impacts to resources of the
                   barrier islands. A recommended vehicle permit
                   application form has been attached to back of
                   this report (see attachment).


               Bibliography


                     Byrnes, Mark R., Kathryn J. Gingerich, Su-
                   zette M. Kimball, and George R. Thomas, 1989.
                   Temporal and Spatial Variations in Shoreline
                   Migration Rates, Metomkin Island, Virginia. In:
                   Stauble, Donald K. and Magoon, Orville T.,
                   (eds.), Barrier Islands: Process and Manage-
                   mgat. ASCE, New York, N.Y. pp 78-92.




                                                                                                                              is





            Barrier Island Policy Assessment



                  ..........                                           - -----
                   V I R G I N I A                                .........       ..............
                                                                               I........... .......... .............
                                                                  .... . ....... ..... . ................. . . ..... .. ...
                   ?-'rF1                                          -             ........ ...
                                                                                .. .. ....
                          -RZ
                   T tr
               .....                           ..... . .....
                                                                                   .....................








                 General Criteria


                 Dune Crossings

                 No cuts through the dune will be permitted. TemRgraly vehicular access for purposes of construction
                 will be permitted only by corduroy ramps or open-pile ramps. Permits for temporary vehicular a
                 ramps will be limited as necessary to protect significant natural resources. Temporary construction
                 vehicles and access ramps must be removed and the dune restored to its pro-existing contours and
                 revegetated. All plans for temporary construction access must be specified in the application for any
                 construction permit. Permanent vehicle access across the dune will be perinited only by corduroy or
                 open-pile ramps. A temporary access ramp developed for the purposes of construction access may
                 remain in place for permanent access if it is specifically approved.

                 Beach Access

                 Each dwelling will be limited to a maximum of one vehicle for access to and from the island's landings.
                 All vehicles shall be subject to the following conditions:

                      ï¿½ Each vehicle shall have a no-cost annually renewable permit to travel on the beach. The owner
                        shall attest at the time of renewal the vehicle's status and condition.
                      ï¿½ The permit number for each vehicle shall be displayed in two foot high letters on the roof and
                        sides of the vehicle.
                      ï¿½ When a vehicle for a particular dwelling is no longer functional, it must be removed from the
                        island. Evidence of its removal must be provided prior to the issuance of a permit for a new
                        vehicle.
                      ï¿½ All driving will be limited to the intertidal zone and between there and approved dune
                        crossovers. Vehicular use of the beach at periods greater than four hours either side of the
                        low water shall be considered a violation of the Policy.
                      ï¿½ All bird nesting areas posted by the Virginia Department of Game and Inland Fisheries, U.S.
                        Fish and Wildlife Service, or Department of Conservation and Recreation shall be off limits to
                        all vehicles.
                      ï¿½ All terrain vehicles (AT%"a) will not be permitted.
                      ï¿½ Evidence of vehicle use in areas other than those authorized shall be cause for revocation of the
                        permit and a requirement that the vehicle be removed from the island. Any person having his
                        or her permit revoked shall be precluded from reapplication for a one-year period.

                 Qmratwg Tim

                   ï¿½ lower tire pressure to 15 pounds * doet drive in salt water * use CB channel 9 for emergencies
                   ï¿½ carry four boards for placement under each tire when stuck     9 after stopping vehicle, back up
                      several feet before proceeding forward   # do not spin your tires when stuck      carry water
                      displacement spray for drying wet engine electrical parts





               16











             ,Over-sand Vehicle Reeistration


             On which barrier island will you be driving your vehicle?

             How will you be transporting your vehicle to the island, and where will
             the vehicle be loaded and unloaded?





             What is the tax parcel number of your property9 Lot

             Is there a vehicle access ramp over the dune at this property9 Y- N-
             If yes, please provide Coastal Primazy Sand Dune Permit Number
             CPSD Permit #


             Vehicle Make               Model              License


             Vehicle Identification Number (VIN#)

             Vehicle Color               Four Wheel Drive Y N


             Engine Type: Eight cylinder      Six cylinder     Four cylinder


             Please complete this form and return to :
               Virginia Marine Resources Commission
               P.O. Box 756
               Newport News, Virginia 23607


             Each individual application will be considered and a letter of authorization including
             the vehicle registration number will be forwarded once approved.


             For information regarding vehicle use on Federally-owned beaches on the Eastern
             Shore send inquiries to:
               Chincoteague National Wildlife Refuge
               U.S. Fish and Wildlife Service
               P.O. Box 62
               Chincoteague, VA 23336














                                                                                                            17







                                                                                                                               NOAA COASTAL SERVICES CTR LIBRARY



                                                                                                                               3 6668 14111913 3