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






               A COASTAL RESOURCES MANAGEMENT GUIDE




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          THIS REPORT WAS FUNDED, IN PART, BY THE VIRGINIA COUNCIL ON THE
          ENVIRONMENT'S COASTAL RESOURCES MANAGEMENT PROGRAM
          THROUGH GRANT #NA90AA-H-CZ796 OF THE NATIONAL OCEANIC AND
          ATMOSPHERIC ADMINISTRATION UNDER THE COASTAL ZONE
          MANAGEMENT ACT OF 1972 AS AMENDED.















                          PREPARED BY THE STAFF OF THE
                      CRATER PLANNING DISTRICT COMMISSION


                                SEPTEMBER, 1991







                     A COASTAL RESOURCES MANAGEMENT GUIDE



                   The purpose of this guide is to provide a current overview of those coastal
              resource management issues that are of most concern to the "tidewater" portion of
              the Crater Region. Tidewater Virginia is defined in the Code of Virginia to include
              f orty-six cities and counties and forty-three towns which border on tidal waters, such
              as the James, Chesapeake Bay, and their tributaries such as the Appomattox River.
              The Crater Region's tidewater communities consist of the cities of Colonial Heights,
              Hopewell, and Petersburg; the counties of Chesterfield, Prince George and Surry;
              and the towns of Claremont and Surry.





                         Crater Region's Tidewater Area


















                   This guide addresses the following coastal resource management issues:

                                                  Wetlands
                                       Chesapeake Bay Preservation Act
                                                Public Access
                                                 Solid Waste
                                               Water Quality








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                               Wetlands


                                         Wetlands are the areas on the landscape where land and water meet. In
                               general, they are lands that are either inundated with surface water or saturated
                               with groundwater long enough during the growing season to make it necessary for
                               the vegetation to adapt to growing in saturated soil conditions. This periodic or
                               permanent wetness is the fundamental factor that makes wetlands different from
                               uplands. While most people picture wetlands as marshy areas with lush aquatic
                               plants, there are actually many more kinds of wetlands.

                                         There are two wetland types within the "tidewater" portion of the Crater
                               Region. First, tidal wetlands, which are dominated by tidal action, being flooded
                               regularly. Tidal wetlands, consisting of vegetated marshes, sandflats and mudflats
                               are most recognizable. The second type of wetlands are nonticlal wetlands.
                               Nontidal wetlands are located adjacent to tidal wetlands and farther inland along
                               rivers and streams. Nontidal wetlands can also be found in upland areas of poorly
                               drained soils that are isolated f rom surface waters, and thus, are more difficult to
                               recognize since they may give no surface evidence of the presence of water.



                                                                           SCHEMATIC OF WETLANDS TYPES

                                                     NONTIDAL WETLANDS                                                                                  TIDAL WETLANDS

                               UPLAND


                                                     UPLAND                       UPLAND


                                                                                                                   UPLAND





                                                                                                                                                                                             RM AND
                    WATER TABLE                                                                                                                           LOW MARSH                     EXTREME SPRING
                                                                                                                                       HIGH MARSH
                               
                               ROUNDWATER                     HIGH WATER                      HIGH WATER                                                                                       HIGH TIDES
                               DISCHARGE     STREAM --------  LOW WATER      ------          LOW WATER   -------- #-------------------                                                      DAILY HIGH TIDE
                                                                                                                         MARSH-UPLAND                                                       DAILY LOW TIDE
                                                                                  WATER TABLE           WATER TABLE       BORDER                     PA
                                                                                                                                            PooL LOWER HIGH MARSH
                                                                 RIVER                                                                                                                       AQUATIC BED
                                                                                                                                                                      INTERTIDAL FLAT
                                SEEPAGE WETLAND         OVERFLOW OVERFLOW            DEPRESSIONAL                                 IRREGULARLY             REGULARLY          ESTUARINE         
                                    ON   SLOPE          WETLAND- WETLAND               WETLAND                                       FLOODED               FLOODED           DEEP WATER
                                                              DEEPWATER                                                              ZONE                   ZONE
                                                                HABITAT


                                         Wetlands provide many ecological and socio-economic benefits, including
                               water quality improvement, stormwater treatment, food sources, fish and wildlife
                               habitat, shoreline erosion control, flood protection, potable water supplies,
                               economic resources such as timber and recreation. Wetlands have traditionally 
                               artificial draining or filling. This view has changed significantly as the connection                                                              
                               between wetlands,wildlife,water quality, and other ecological and economic values
                               have been evaluated.              
                                                                                                                                                                                                                                                                                                        MARSH
                           
                           







                    Virginia tidal wetlands are regulated via the Virginia Wetlands Act of 1972
              (Amended 1982). This act requires that a permit be issued before most types of
              development can take place in tidal wetlands.

                    The regulation of nonticlal wetlands is much more muddled. Currently, the
              federal government Is attempting to develop a nationwide wetlands policy,
              however, this task has proven most difficult. The central issue involves the definition
              ofwetlands. The immediate dispute results from the federal government's proposal
              to revise the federal manual by which wetlands now are identified. Some people
              feel the proposed revisions are too lenient, while others say the revisions are too
              restrictive. It is envisioned that this debate will not be resolved for some time, thus
              the Crater Region's "tidewater" communities will have to wait a little longer to
              resolve the extent to which nontidal wetlands exist, based upon a revised def inition
              which will include three factors - vegetation, hydrology, and soil content.









                Chesapeake Bay Preservation Act


                     In 1988, the Virginia General Assem 'bly passed the Chesapeake Bay Preservation
                Act. This legislation established a nine member board called the Chesapeake Bay
                Local Assistance Board to implement the Act. The Board has developed regulations
                governing development affecting many coastal resources. The Chesapeake Bay
                Preservation Act Program attempts to manage land use in order that the pollutants
                contained in stormwater runoff from urban and agricultural areas are controlled,
                thus protecting the water quality of the Chesapeake Bay and its tributaries.
                     The Regulations call for the designation, by each local government, of
                Chesapeake Bay Preservation Areas. Chesapeake Bay Preservation Areas are lands
                "which, if improperly developed, may result in substantial damage to the water
                quality of the Chesapeake Bay and its tributaries." They include Resource Protection
                Areas and Resource Management Areas.

                     A Resource Protection Area (RPA) is land at or near the shoreline which has
                important value to water quality. These lands may help to protect water quality or
                be easily damaged by the impacts of development. Local governments must include
                tidal wetlands, certain nontidal wetlands, tidal shores, and other lands that are
                especially important to water quality in these areas. An RPA must also include a
                buff er area, which is 100 feet wide measured f rom the landward side of these
                natural features.








                                                                                     TIDAL SHORELINE
                   HYPOTHETICAL
                 CHESAPEAKE BAY                                                   TIDAL WETLANDS
                PRESERVATION AREA
                                                                                    WETLANDS


                                                                             BUFFER


                                                                          RPA BOUNDARY

                                                                     @-RIVIA-i BOUNDARY


                                                                     OTHER LANDS


                                              1.%%I-


                     A Resource Management Area (RMA) is land which protects the value of the
                RPA. Improper development in these areas will have an adverse impact on water
                quality. Floodplains, highly erodible soils, steep slopes, highly permeable soils, other
                nonticlal wetlands and other lands necessary to protect water quality are to be
                considered by local governments in delineating Resource Management Areas. (Two
                r
                  ssible RMA boundaries are shown on the sketch.) A RMA must be designated
                a%ward of and contiguous to all RPAs.









                   In all Chesapeake Bay Preservation Areas, development must meet general
              performance criteria that are designed to reduce nonpoint source pollution and/or
              protect sensitive lands from disturbance. These criteria include:

                                          Preserve natural vegetation
                                         Minimize disturbance of land
                                   Minimize impervious cover such as paving
                        Strictly control soil erosion during land clearing and construction
                                   Control stormwater runoff and its quality
                                   Pump out septictanks once every five years
                 Provide a reserve drainfield for septic tanks, which equals the waste treatment
                                       capacity of the primary drainfield.
                                   Subject all development to site plan review
                          Control stormwater quality in agricultural and forestal areas

                   In a Resource Protection Area, only water dependent uses, such as piers, and
              redevelopment of existing uses are allowed. Specific performance criteria must be
              met. The water quality impact of the development must be analyzed. Homes and
              related structures, such as swimming pools, can not be constructed within an RPA.
                   In a Resource Management Area, any use which is allowed under the local
              zoning ordinance will still be permitted. However, all development must meet the
              general performance criteria.

                   Each of the Crater Region's "tidewater" communities must develop programs
              by November 15,1991, to comply with the regulations. Such programs involve
              adjustments to existing land use control ordinances (subdivision and zoning
              ordinances, etc.) and comprehensive plans, as well as other appropriate regulatory
              mechanisms. Each local program must be structured to protect water quality as well
              as environmentally sensitive areas.

                   Below is an outline, by jurisdiction, highlighting how each community will carry
              out the requirements of the Chesapeake Bay Preservation Act:

              City of Colonial Heights

                              It was anticipated that each local government would have its
                              programs in place by the time this guide was developed.
                              However, due to procedural problems, the Chesapeake Bay
                              Local Assistance Board did not adopt permanent Regulations
                              to implement the Act until months after the targeted date.
                              The Regulations did not become effective until October 1, 1991.
                              Thus, the Crater Region's "tidewater" communities are in the
                              process of finalizing their programs. Once all local programs
                              are approved, they will be summarized and included in the
                              guide, in order that the citizenry can readily determine how
                              each jurisdiction will implement its Chesapeake Bay Program.










                Public Access


                      Over the last decade, demand for public recreational access to the James and
                Appomattox Rivers has increased. Public access includes water-dependent and
                water-related facilities which are located along the James and Appomattox Rivers
                and their tributaries. Marinas, boat launch ramps, beaches, and public water-
                oriented recreation areas are considered water-dependent facilities. Water-related
                activities could include picnicking, facilities for education, camping, hiking, hunting,
                wildlife observation, and other passive recreational uses.

                      The following presents public access sites to the James and Appomattox Rivers
                and their tributaries, by jurisdiction, for the "tidewater" portion of the Crater
                District:

                                  Chesterfield County                             Location

                          - R-11chmond National Battlefield Park,              James River
                           Fort Darling, Drewry's Bluff

                          - Dutch Gap Boat Launch                              James River

                          - Henricus Historical Park                           James River

                          - Presquile National Wildlife Refuge                 James River

                          - Point of Rocks Park                                Appomattox River/Ashton
                                                                               Creek


                                  Colonial Heights

                          - White Bank Park                                    Swift Creek

                          - Fort Clifton Park                                  Appomattox River


                                  Hopewell

                          - Hopewell Yacht Club                                Appomattox River

                          - National Park Service, City Point Unit             Appomattox River


                                  Prince George County

                          - Appomattox Small Boat Harbor                       Appomattox River

                          - Jordan Point Yacht Haven                           James River

                          - Upper Brandon                                      James River









                               Surry County                               Location

                       - Lawnes Creek Ramp                               Lawnes Creek

                       - Hog Island Wildlife Management Area             James River

                       - Chippokes Plantation State Park                 James River

                       - Claremont Beach                                 James River

                       - Grays Creek Marina                              Grays Creek
                    The dredging project currently underway on the Appomattox River will
              provide boating access to the City of Petersburg in the near f uture.

                    Several federal and state inventories have determined the need for efforts to
              increase public access to the waterfront.

                    The Commonwealth of Virginia and the "tidewater" communities need to find
              additional techniques for acquisition and development of access sites.










              Solid Waste


                    One of the most sensitive issues facing the "tidewater" communities of the
              Crater Region is the location and operation of solid waste management facilities.
              Citizens are concerned about the impact of solid waste facilities on water quality@as
              it relates to coastal resources.

                    The Commonwealth of Virginia has mandated that every locality or region
              develop a comprehensive solid waste management plan. After July 1, 1992, the
              Commonwealth may withhold permits for local or regional solid waste management
              facilities, pending Plan approval by the Virginia Department of Waste Management.
              Each plan is to be updated every five years.


              Hierarchy of Solid Waste M anagement Strategies

                    Each locality or region must consider, as part of the planning process, the
              following strategies of waste management (listed in order of priority):
              Source, Red 6ction (creating less waste to begin with, through reduced packaging,
              etcj-

              Reuse (using items more than once - for the same or different purposes)

              Recycling (processing waste into new or different products)

              Resource Recovery (burning waste to create energy)

              Incineration (burning waste to reduce its volume)

              Landfilling (burying trash in sanitary landfills)


              Recycling Goal

                    Citizens across Virginia have encouraged the Commonwealth to place a strong
              emphasis on recycling. In response, the Virgnia General Assembly has mandated
                                                         c
              that each locality or region must meet the ollowing recycling goals for the total
              weight or volume of waste generated:

                                               1991            10 percent
                                               1993            15 percent
                                               1995            25 percent

                    With the exception of Surry County, all of the "tidewater" communities have
              joined other local governments in Central Virginia and designated the Crater
              Planning District Commission and Richmond Re ional Planning District Commission
              as the lead agencies to develop the Regional Soyid Waste Management Plan. A
              Citizen Advisory Committee was created to review and comment on the Plan.








                    The Central Virginia Waste Management Authority (CVWMA) was designated
               by the same 13 jurisdictions as the principal entity to implement the Regional Plan, in
               cooperation with the local governments.

                    Once endorsed by local governments and adopted by the two PDCs and the
               CV`WMA, the Regional Plan will be sent to the Vir inia Depar-tmentof Waste
                                                              'T
               Management for approval. Prior to adoption by t e CVWMA, public hearings will be
               held in early 1992.

                    The preferred solid waste management system has been developed forthe
               plan and consists of the following components:

                                          Source Reduction and Reuse
                                                   Recycling
                                         Waste Collection and Transfer
                                                Waste Disposal

                    Surry County is actively involved in the development of a regional solid waste
               plan with twelve other local governments in the Southern Region of the Crater
               District, including the towns of Claremont and Dendron. Th is Regional Plan will
               meet the same mandates as previously discussed under the Central Virginia effort.
                    Both Regional Plans will provide major direction to all "tidewater"
               communities ensuring that sensitive coastal resources are properly protected.




               Water Quality


                     The federal government has had laws and regulations in place for many years
               aimed at reducing water pollution. After the passage of the Water Pollution Control
               Act of 1972 and the Clean Water Act of 1977, many communities had to upgrade
               their wastewater treatment facilities.

                     Thus, historically, regulatory programs focused on point sources of pollution
               such as factories and sewage treatment plants because they were easily recognized
               and regulated. Also, engineering techniques were available to reduce the pollutants
               in their discharges. In most cases, the conventional pollutants (primarily solids and
               biodegradable materials) have been controlled from these sources by a discharge -
               permitting system. In spite of the progress we have made in controlling pollutants in
               discharges f rom factories and sewage treatment plants, water quality problems have
               persisted.
                     Through continuing studies, we have learned a great deal about the role of
               nonpoint sources in water quality problems. Studies have shown that stormwater
               runoff from urban and agricultural areas includes a significant amount of pollutants
               such as nitrogen, phosphorus, bacteria, heavy metals, pesticides, sediment and other
               organic material. The amount of these pollutants contributed by stormwa       *ter runoff
               may exceed that which comes f rom point sources. In some cases, even if we were to
               eliminate sewage treatment plant and industrial wastewater discharges to our
               rivers, water quality standards would not be met because of stormwater runoff.

                     Thus, in 1987, amendments to the federal Clean Water Act were passed by
               Congress in order to address stormwater runoff pollution problems.

                     One concept that has been developed to assist in improving water quality is
               called the Best Management System. This System is defined as a combination of
               conservation practices or management measures, which when applied will achieve
               nonpoint source pollution control through reduced transport of sediment, nutrients
               and chemicals into surface and groundwater. This System is implemented through
               the use of what is called Best Management Practices (BMPs). BMPs apply to:
               agriculture (crop production and animal husbandry), residential and industrial
               development, transportation, mining, forestry, recreation, and waste disposal.      BMPs
               can involve the installation of structural components, such as detention ponds,
               (structural BMPS), or a change in land use practices, such as conversion to no-till
               systems or crop sequencing, (non-structural BMPs). Virginia's "Nonpoint Source
               Management Program" is administered by the Division of Soil and Water
               Conservation in the Department of Conservation and Recreation.

                     The intention of BMPs that relate to water quality is to reduce the sediment
               and contaminant loads in runoff from human activities. This includes runoff into
               lakes, streams, and rivers, and into aquifers. Traditionally, BMPs have been used
               most in agricultural extension and forestry work to promote soil conservation, but,
               increasingly, BMPs are being developed and applied to urban stormwater runoff and
               othe land uses. Some urban BMPs come under the purview of local erosion and
               sedimentation control ordinances.

                     Examples of BMPs include: grass f ilter strips and no-till methods for crop and
               pasturelands, animal waste control ponds, integrated pest management to reduce
               runoff of pesticides, reforestation of erodible land, level spreaders for urban runoff,
               detention basins, porous asphalt cement, and streambank stabilization.

                     The local soil and water conversation districts within the "tidewater" portion
               of the Crater District can offer technical guidance and educational materials in
               regard to BMPs to interested landowners.







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