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


                                                                            FY 1992 FINAL PRODUCT Task 36
                                                                                          Technical Assistance



                            DRAGON RUN ACCESS PLAN








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                       A publication --f the Virginia Cepartment of Environmental Quality's Coastal Resources
                  Managernerit Program pursuant to National Cceanic and Atimospheric Administration Award No.
                                                         NA270Z0312-01.







                        DRAGON RUN ACCESS PLAN

















                                                 Jim Uzel

                                   Environmental Programs Coordinator
                               Middle Peninsula Planning District Commission







                                      Dragon Run Steering Committee


                                              October, 1993







                       The Dragon Run--A Unique Place



                       The Dragon Run Stream is a forty-mile stream characterized by extensive
                non-tidal and tidal cypress swamp. The cypress stand here is the largest stand in
                the species' northernmost range. The Counties of Essex, King and Queen,
                Middlesex, and Gloucester border the swamp.


                       In 1974 the Smithsonian Institution reviewed and subsequently ranked 232
                ecologically significant areas throughout the Chesapeake Bay region. The Dragon
                Run System was ranked second. Prior to and since that time, concern has been
                voiced regarding the protection of this valuable natural resource. Early efforts to
                offer protection came in 1970, and most recently again in 1985, to have the Dragon
                Run designated as a scenic river by the Virginia General Assembly.


                       The Middle Peninsula Planning District Commission (MPPDC) has a long
                history of conducting management efforts along the Dragon Run Stream. In 1984
                the MPPDC sponsored a two-day symposium on the Dragon Run. The event led
                to the formation of the Dragon Run Steering Committee as a subcommittee of the
                MPPDC Board. In 1988 the Steering Committee, the MPPDC Board, and three of
                the four counties bordering the Dragon Run adopted the recommendations for the
                formation of the Dragon Run Conservation District. Wetlands protection and
                buffering by up to 150 feet were implemented in these counties three years prior to
                implementation of the state mandated Chesapeake Bay Preservation Act.


                       Yet, with the identification and recognition of the Dragon Run at the state and
                federal levels and. the conservation management at the local level, the true
                realization of its unique character can be experienced only at an individual level.
                While in a canoe, along a bank, or through the woods, the Dragon Run and swamp
                convey solitude and wilderness. It is nature at its finest, pristine and challenging.
                The opportunities the Dragon affords in nature interpretation, fishing, and hunting
                are coupled with responsibilities in stewardship and management. In short, access
                within the Dragon Run ecosystem comes at a cost, either by exacting damage to
                the system or by expending resources to manage the access.







                      The Need for A Plan



                      In early 1987, the Dragon Run Steering Committee identified five issues that
               needed attention in managing the Dragon Run Watershed. They are as follow:


                      (1) Development Management


                      (2) Forestry Management


                      (3) Agricultural Management


                      (4) Recreational Access


                      (5) Wildlife Management


                      As mentioned earlier, the Dragon Run Conservation District began to
               address the needs in development management. This plan will address
               recreational access. Other issues will be explored in an upcoming watershed
               management planning process.


                      Several factors have led to the need for organized management planning.
               Historically, land ownership status along the Dragon vested the property owner as
               steward and caretaker. This system of management has been successful in the
               past; however, two factors may portend a change to the status quo. First, the
               agrarian based economy is declining in the Middle Peninsula. This follows the
               national trend of the decline of the family farm and the rise of corporate farming.
               This trend is accelerated as an older generation of farmers and landowners retire
               or pass on and estates are divided among the next generation. A second factor
               compounds the first. The Middle Peninsula region has experienced steady and
               sometimes explosive growth in population over the last two decades; the result of
               which is the subdivision and development of land. The initial demand for "prime"
               waterfront land focused mainly on the wide tidal bays, creeks, and rivers bordering
               the counties. However, the high demand and price of prime waterfront has led to
               investors or newcomers looking at other waterfront land such as the Dragon Run.


                      While new landowners may not necessarily be poor stewards of the Dragon
               Run resources, there are factors which may contribute to a lesser relationship to
               the land and waters. As land is subdivided, the sheer number of property owners
               multiplies, and owner responsibility becomes more parochial and narrowly focused


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               on individual interests. The tradition of landowner management of public access
               through granting permission may become more limited as more and more people
               control less and less land. There may in fact be a decrease in accessibility as
               privacy issues begin to dominate the concerns of landowners. This could have
               implications in restricting sportsman, educational, and recreational access to the
               Dragon Run.


                      Access is occurring either with landowner permission, without permission,
               or unofficially at highway rights-of-way along the bridge crossings. In addition to
               .the problems mentioned above with the increasing number of landowners, those
               landowners who have normally given permission to the public to access the stream
               via their property may be less inclined to do so because of injury liability issues.
               While the Dragon is not a dangerous stretch of water, it does present normal
               hazards which may cause injury. The real or perceived liability by the landowner
               for such injuries may cause a hesitancy to allow the public access.


                      As more people move to the Middle Peninsula, more people become aware
               of the Dragon Run. With a greater number of people comes a greafter variety of
               ideas about recreational use, some of which may ignore property rights. When
               property trespass occurs and trash or other evidence is left, the property owner
               may again become hesitant to allow future access, even if permission is asked.


                      The four bridge crossings of the main stem of the Dragon Run provide
               unofficial public access via the right-of-way owned by the State. These occur at
               Routes 602 and 603 in King and Queen/Middlesex, Route 604 in King and
               Queen/Essex, and Route 17 in Gloucester/Middlesex. With the exception of U.S.
               Route 17, the roadways are of local area use and not major thoroughfares.

                      Another reason for developing an access plan for the Dragon Run is based
               on the concept of local constituent planning in a proactive manner. The state,
               federal, and county governments may at some future time have an opportunity to
               acquire land along the Dragon Run. With an active access management plan
               developed by the present landowners, guidance can be given as to the site location,
               size, and use which would be appropriate for the Dragon Run.












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                       Types of Uses



                       The types of recreational uses afforded by the Dragon Run are oriented
                exclusively toward the "outdoor" sports of hunting, fishing, canoeing, hiking, and
                conservation education. These activities are experienced with only the comforts of
                nature, that is without any extensive built facilities or structures. The wild and difficult
                nature of the Dragon Run area attracts only those hardy enough to be fulfilled by
                the challenge and rewarded by the beauty.



                Hunting



                       The extensive swamplands surrounding the Dragon Run Stream and the
                agricultural and forestry land uses within the watershed provide for excellent habitat
                for all types of native wildlife, including numerous game species. Since the land
                surrounding the Dragon Run is privately owned, hunting access is obtained by
                owner permission. A common method of hunting management is for the owner to
                lease lands to a hunting club. The hunting club then becomes a responsible party
                to the landowner in controlling access and liability issues. Hunting clubs allow
                members access to the leased lands and expect responsible hunting practices from
                the members. This arrangement curtails unauthorized hunting on private lands
                while preserving the traditional use of the land for game management.



                Fishing



                       The Dragon Run provides for excellent recreation in its fresh water and
                spawn fishery. Fishing access is available by canoe or boat at bridge crossings
                and with landowner permission. While quantitative numbers are not available, most
                fishing probably occurs along the bank at the bridge crossings.










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               Canoeing



                      A canoe trip down the Dragon is truly an adventure and re        quires both
               physical and mental readiness. A canoeist must be prepared for numerous
               obstructions in the stream, requiring portage or dragging of the canoe over logs or
               beaver dams. There are places, too, where the main channel is not obvious and a
               traveller must have skills in interpreting the stream flows. At times of low water,
               such as during a summer drought, a trip down the Dragon Run may be unadvisable.


                      While the Dragon Run is not particularly dangerous from an experienced
               canoeist's perspective, there are hazards to be recognized. The aforementioned
               obstructions and the physical ability to carry and drag a canoe are the most obvious
               hazards. During periods of high water, the stream can run swiftly; and, when
               obstructions are encountered, tipping is a possible hazard. The Dragon Run can
               also be quite deep in places where it does not appear to be. Perhaps the greatest
               hazard is being unprepared for the length of a canoe journey. Because of its
               sinuous path, the Dragon Run is longer between two points than it may appear.
               What appears to be four to five miles may in fact be double that distance. When
               coupled with the time delays of obstructions, many a miscalculating canoeist has
               unintentionally spent the night in the swamp, encountering cold, hunger, and
               insects!


                      A first time canoe trip on the Dragon should be in the company of someone
               familiar with the stream and its hazards. At a minimum, a novice on the Dragon
               should consult maps and the advice of someone experienced in paddling the
               stream.


                      Canoe launching occurs at undeveloped sites at bridge crossings and at
               private landings with landowner permission. Problems at these sites include lack
               of safe parking and unloading areas, steep grades to the stream, vegetation and
               bank disturbance, and trespass on private property.














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                Hiking and Camping



                       The extensive swamp of the Dragon Run makes the area difficult for hiking
                and camping recreation. Often the stream is not visible from high ground due to
                the densely wooded swamp which borders it. Since there are no public trails, hiking
                is probably limited to landowner access to old logging roads.


                       As mentioned earlier, canoeing the Dragon Run takes adequate planning.
                Some experienced enthusiasts plan overnight trips, with a component to set up a
                primitive camp along high ground adjacent to the stream. Persons planning an
                overnight trip generally have (or should have) extensive experience on the Dragon
                Run and will receive landowner permission to camp on private property.



                Conservation Education



                       Any recreational activity on the Dragon Run includes the enjoyment of nature
                at its best. The abundance of animal and plant life in the context of solitude provides
                a rewarding experience for the hunter and environmentalist alike. Several groups
                provide organized outings to highlight the uniqueness of the Dragon Run, both as
                its own ecosystem and as a part of the larger Chesapeake Bay system. The
                Rappahannock Community College includes several canoe trips as part of its
                curriculum for students and the community. The Chesapeake Bay Foundation, Inc.,
                runs educational canoe trips from time to time. The conservation group Friends of
                the Dragon Run organize membership canoe trips and stream cleanup days
                throughout the year. In the recent past, a commercial venture offered canoe tours
                of the Dragon Run.




                       The Dragon Run provides a natural classroom for students, scouts, and the
                public in general. Education about the ecosystem can lead to effective
                management practices for the Dragon Run.










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                        Present Access Sites

                Route 17


                        Located on the east side of north-bound U.S. 17 is an area with good access
                and unimproved parking. The land is posted, and landowner permission is required
                for use.




                New Dragon Bridg&-Route 603

                        There is an informal parking area on the Middlesex side of the bridge with a
                pathway to the stream. The extent of right-of-way and private ownership needs
                determination.



                Wares Bridge-Route 602

                        Right-of-way parking and access to the Dragon Run exist on the north side
                (Middlesex).


                Byrds Bridge-Route 604
                        Remnants of the old road and bridge alignment can be seen; however, the
                land is posted, and parking is limited.



                Upper Reaches Crossings

                        Routes 607 and 612 each cross two branches of the Dragon Run. The
                stream is relatively small, and recreation possibilities are limited. Access and
                parking are not available except at the Route 612 crossing of the lower Dragon
                Swamp branch at the Essex-King and Queen line where parking is available for
                about two vehicles.








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                                                             Route 17













               New Dragon Bridge-Route 603



















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                       Access Policies



                       The present status of recreational access and availability has been examined
                in preceding sections. The following policies have been developed to address the
                possibilities and needs for improved recreational access:



                        9 The Dragon Run is a valuable natural resource in which access should be
                         managed to prevent environmental damage.


                        * The access made available should maintain the character of the present
                         recreation uses and the wild and difficult nature of the Dragon Run stream
                         and wetlands.


                        * Recreational activities which take place primarily on land such as hunting,
                         hiking, and camping should be landowner or leaseholder controlled.


                        e Stream-based recreation such as canoeing, fishing, and conservation
                         education should be accessible on a scale compatible with the size and
                         difficulty of the stream. Access points should encourage planned and
                         responsible use.


                        * Access sites should be limited in size and designed to protect the stream,
                         stream banks, and wetlands from erosion, litter, and surface runoff.


                        * The four counties bordering the Dragon Run, Gloucester, Essex, Mid-
                         dlesex, and King and Queen, should coordinate development and
                         management of any public access sites on the Dragon Run. The Dragon
                         Run Steering Committee and the Middle Peninsula Planning District Com-
                         mission can assist in the coordination effort.






                        Access Management



                        The management of access to the Dragon Run can occur through both
                private and public means. Private landowners can determine the types and quantity
                of access allowed on land under their control. Local governments, through their
                parks and recreation departments, can manage selected sites for controlled public
                access.




                Private Management



                        The history of private landowner management of the Dragon Run is a story
                of success which involves three major players. These are the property owner;
                leaseholders (hunting or other special use); and private, non-profit organizations.
                There are examples of how these groups can work together toward the common
                goal of protecting the resource while allowing and sharing access. One case
                provides for a conservation easement on private land which will limit future
                development while preserving hunting access. Another example provides a
                non-profit group with access across private and leased land to the stream and to
                islands the group owns for conservation purposes. The. cooperation among these
                various groups and individuals provide   s a basis to expand management options.
                Two management options follow:




                        ConServation Easements -Landowners can place a portion or all of their land
                in a permanent easement which will prevent built development of houses or other
                structures. In designing a conservation easement, the landowner can stipulat     'e the
                types of uses which will be allowed. For example, forest management and hunting
                may be allowable uses. The land may be sold or subdivided; however, the
                .provisions of the easement are carried to the new owner.




                        Groul2 Alliances -As mentioned in examples above, landowners can grant
                extended permission to various non-profit groups for access to the Dragon Run
                Stream. Another possibility is for two types of groups to share a lease. For
                example, a hunting club and a birding club could share an annual lease on property



                                                          12







                based on the time of year in which each group would use the area. A hunting club
                would be active primarily in the fall and winter of the year. Birding (watching) may
                be best in the spring, summer, and early fall of the year. This concept of shared
                use could apply to purchasing as well as leasing land.



                Public Management



                        While at present the only public access points along the Dragon Run are
                road rights-of-way at bridges, thi's may not always be the case. A government
                agency (local, state, or federal) may plan to purchase lands for public access
                purposes. Land may also be donated to a government, and then the agency must
                decide what to do with and how to manage the land. Various funding programs
                become available from time to time which may provide monies for parks and
                recreation sites and facilities. In all of these cases, it is important to have a
                framework for public access planning and development. The following options are
                a guideline for public access management:


                        Site Size -Water access should be provided on a relatively small scale in
                relation to the stream width. For example, at bridge crossings where the channel
                of the stream is forty to fifty feet, bank fishing or canoeing should be limited to five
                to ten participants (3-5 parking spaces). Sufficient buffering of the stream from
                parking areas should also occur. Generally, 50 to 100 feet of vegetated buffer would
                be acceptable.


                        Site Location--The location of any public access site should be compatible
                with surrounding land uses. Sites used as canoe launches should be spaced in
                reasonable intervals along the stream such that the trip will not extend more than
                about six to eight hours. The uppermost canoeable stream segment begins in the
                vicinity of Wares Bridge, Route 602. The New Dragon Bridge, Route 603, is 5.0
                stream miles below, and the Route 17 bridge is another 9.4 stream miles.


                        Site Manaaemen -There are seemingly conflicting goals of providing public
                access to the Dragon Run while at the same time limiting any detrimental effects of
                increased use of the resource. With this in mind, public access should occur only
                with certain expectations of public responsibility, including not exceeding the
                capacity of a site, not damaging structures or natural features, and removing any
                trash generated by the user.






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                       Site management can include various levels of user accountability as
                demonstrated in the options below:



                       ï¿½ Limit parking at the site and post "No Parking" signs on road sides. Site
                         parking limited to daytime use only.


                       ï¿½ Parking permits for parking at an access site. These could be available
                         from an on-site box or from the county parks and recreation office.


                       * Reservations system could provide controlled access at sites. Reserva-
                         tions could be obtained by phone or in person. Use information could be
                         obtained and recorded by the locality.


                       ï¿½ Electronic control devices such as arm gates with a strip card reader could
                         be installed. Disposable cards could be issued by reservation or bought
                         on site and would be magnetically encoded to activate a gate opening.



                       These options range from simple to "high tech" and may or may not be
                practical from a local management point of view. However, they represent options
                which can be adapted to a local management program. Enforcement could be
                accomplished by local sheriff's departments, state police, or game wardens.




                       User Contact -There is a benefit to having users of a public access site
                contact the managing department, especially when considering the wild and difficult
                nature of the Dragon Run. The local agency could advise users about hazards and
                conditions, provide maps, and help in trip planning.




                       User Fees -it is not unreasonable to charge users of an access site a fee to
                help maintain and manage the site. User fees could take the form of charges for
                parking, launching a canoe, or reservations. A user fee structure could include daily
                and annual rates.







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                       Regional Coordination-it is possible that a system of access sites along the
                Dragon Run could involve up to four localities in site ownership and management.
                It is important that a standard management and fee structure (if applicable) be
                instituted by all of the localities involved. Providing a uniform system, which would
                be simple and effective for the user, would encourage responsible use and
                accountability for the Dragon Run. Design and maintenance of the sites could also
                be standardized among the participating localities.


                       Site Development



                       The following site criteria are adapted from the Chesapeake Bay Area Public
                Access Technical Assistance Report, October, 1990. These criteria pertain to the
                development of small public access sites suitable for canoe launch, fishing, and
                educational access.




                       e Location of parking and support facilities which are not water-dependent
                         on higher ground outside the recommended shoreline buffer areas.


                       0 Where steeper slopes exist, locate parking areas above the crests and
                         maintain or reestablish the natural vegetation on the slopes.


                       * The scale, species, and spacing of plants should be compatible with those
                         of surrounding shoreline areas.


                       e In grading of the site, the slope gradients and scale of mounds, swales,
                         and berms should be appropriately designed where possible to create
                         rounded earth forms compatible with those of the natural shoreline.


                       e Land area of 1.5-2.5 acres.


                       *Three to five 10' x 20' parking spaces, including one 12'6" x 20' hand-
                         icapped parking space.


                       e Access road which meets secondary road standards.


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                        100' buffer zone at the shoreline.


                        Minimum water frontage required for a cartop boat/canoe launch is 50'.


                        Use of. porous gravel and Best Management Practices in managing
                        stormwater runoff.


                        Carry down walkway and dock 48 to 60 inches wide, with maximum slope
                        of 3:1.



                        Dock to include fishing stations parallel to shoreline.



                     A concept plan depicting the general relationship of site elements is shown
               on the following page.






























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                  CONCEPT LAYOUT for CANOE and FISHING ACCESS








         Stormwater Control





                                                         Buffer
                                                                               Stream




                         Parking
                                                             Launch Ramp




                                                                          P.
                                                                           ier




                             V/



                     Access Road







                                                       State Route









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                     Bibliography


                     Commission of Outdoor Recreation, The. Draaon Run. December, 1971.



                     Dragon Run Foundation, The. Dragon Run Reprints. Hayes, VA: 1980.



                     Dragon Run Steering Committee. Dragon Run Conservation District:
              Report and Proposed Recommendations to the Middle Peninsula Planning District
              Commission. Saluda, VA: December 2,1987.



                     Gold, Seymour M. Recreation Planning and Design. New York, NY: Mc-
              Graw-Hill Book Company, 1980.


                     Massachusetts. Department of Environmental Management. Sandcastles
              and Sand pi pers-- Restoration and Development Guidelines for Ocean Beach
              Recreation Areas. Boston, MA: January, 1988.



                     National Water Safety Congress, The. Guide for the Safe Operation anc!
              Maintenance of Marinas.



                     National Water Safety Congress, The. Planning, Design, Operation, and
              Maintenance of Inland Water Swimming Beaches.



                     Nordhaus, Richard S., et al. Accessible Fishing: A Planning Handbook.
              Albuquerque, NM: September, 1984.


                     Public Access Subcommittee. Chesapeake Bay Area Public Access Tech-
              nical Assistance Report. October, 1990.



                     Redman/Johnston Associates, Ltd. Mathews County Shorelands Access
              Development Plan. Easton, MD: November, 1989.



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                     United States Department of Agriculture and U.S. Department of Interior.
              Design Guide for Accessible Outdoor Rgcreation. September, 1990.



                     Virginia Department of Conservation and Recreation. The 1989 Virginia
              Outdoors Plan. Richmond, VA: 1989.



                     Wilson, Keith, Waterways Development Public Sector Consultants, Inc.
              Guidelines fgr the Design of Barrier-Free Recreational Boating and Fishing Facilities.
              Lansing, MI: February, 1992.



                     Wilson, Keith, Waterways Development Public Sector Consultants, Inc.
              Handbook for the Location, Design, Construction, Operation, and Maintenance of
              Boat LaUnching Facilities. Lansing, MI: March, 1989.






























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