! State of New Jersey Coastal Management Program - Bay and Ocean Shore Segment and Final Environmental Impact Statement c \ ^TES O* * / U.S. DEPARTMENT OF COMMERCE National Oceanic and Atmospheric Administration Office of Coastal Zone Management The New Jersey Coastal Management Program - Bay and Ocean Shore Segment was prepared In part with financial assistance from the National Oceanic and Atmospheric Administration, Office of Coastal Zone Management, under the provisions of Section 305 of the federal Coastal Zone Management Act (P.L. 92-583, as amended). NEW JERSEY COASTAL MANAGEMENT PROGRAM BAY AND OCEAN SHORE SEGMENT AND FINAL ENVIRONMENTAL IMPACT STATEMENT August 1978 Prepared by: State of New Jersey Department of Environmental Protection Division of Marine Services Office of Coastal Zone Management P. 0. Box 1889 Trenton, New Jersey 08625 U.S. Department of Commerce National Oceanic and Atmospheric Administration Office of Coastal Zone Management 3300 Whitehaven Street, N.W. Washington, D.C. 20235 u 2 8 a a DEPARTMENT OF ENVIRONMENTAL Brendan Byrne Governor PROTECTION Daniel J. O'Hern Com missioner Digitized by the Internet Archive in 2012 with funding from LYRASIS Members and Sloan Foundation http://www.archive.org/details/newjerseycoastalOOnewj ?p?:$<: : ji^ State of Nkw Jersey Departmknt of Environmental PROT EC T I ON DANIEL J. O'HERN, COMMISSIONER P. O. BOX 13 9 O TRENTON, N.J. 08625 609-292-2665 AUli c Z 1978 Dear Reader: I am pleased to present you with the New^Jersey Coastal Management Program t. Bay and Ocean Shore Segment and Final Environmental Impact Statement. As Governor Byrne indicates in his cover letter, the Department of Environmental Protection is the lead agency for coastal zone management in New Jersey. Preparation of this Coastal Management Program began under the leadership of former DEP Commissioners David J. Bardm and Rocco D. Ricci. I wish to express my gratitude to my predecessors and to Director Donald T. Graham of the Division of Marine Services and David N. Kinsey, Chief of the Office of Coatal Zone Management and his staff for their contributions to this work. The Management System, including the specific responsibilities of this Depart- ment to meet the requirements of the federal Coastal Zone Management Act, are explained within the Program description. I am also directing that all Depart- mental decisions which affect the Bay and Ocean Shore Segment be consistent with the Coastal Management Program, to the extent permissible under existing statutes. In particular, the decisions of the Natural Resources Council on riparian lands management will be subject to my oversight and approval to insure that the Pro- gram's policies are implemented. Insights, suggestions and criticism from a wide variety of public agencies, organizations and individuals have already contibuted significantly to the prepa- ration of this program for the Bay and Ocean Shore Segment. The planning and implementation of New Jersey's coastal program will be successful only if it is understood and supported by the public. Each area of the state is special and important, but the coast is the area which presents perhaps the most challenging set of potential opportunities and conflicts. This Coastal Management Program - Bay and Ocean Shore Segment is a major step towards the maintenance and enhancement of this precious area. Very truly yours, 1CG% RECYCLED NOTE TO READER/NEPA SUMMARY The National Environmental Policy Act of 1969 (NEPA) mandates that an environ- mental impact statement be prepared as part of the review and approval process of major actions by Federal agencies. The action contemplated is approval of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment under Section 306(h) of the Federal Coastal Zone Management Act of 1972, as amended (CZMA) . An immediate effect of approval is the qualification of the State for Federal matching funds for use in administering the Coastal Mangement Program for the Bay and Ocean Shore Segment. In addition, New Jersey will be eligible for continued funding under the Coastal Energy Impact Program (CEIP) . The federal Coastal Zone Manage- ment Act stipulates that Federal activities affecting the coastal zone shall be, to the maximum extent practicable, consistent with an approved State coastal manage- ment program. This document is organized as follows: Part I r Introduction - prepared by the Federal Office of Coastal Zone Management (OCZM) with the assistance of the State of New Jersey. Part II - New Jersey Coastal Management Program - Bay and Ocean Shore Segment - prepared by the state and relied upon by the Federal OCZM as a description of the proposed action. Parts III-VIII - Environmental Impacts - prepared by Federal OCZM with the assistance of the State of New Jersey. The thirteen appendices which follow Part VIII are also part of the Program. Appendix M includes responses to general questions raised by the public on the Draft EIS. For purposes of reviewing this proposed action, the key concerns are: - whether the Bay and Ocean Shore Segment is consistent with the objec- tives and policies of the national legislation, - whether the State management authorities are adequate to implement the segment , - whether the award of Federal funds under Section 306(h) of the Federal Act will help New Jersey to meet those objectives, and - whether there will be a net environmental gain as a result of Program approval and implementation. The Federal Office of Coastal Zone Management believes the answers to these key questions are affirmative. The Office has widely circulated this document to all interested agencies and parties in order to receive the fullest expression of opinion on these questions. This Program is of major significance, not only to New Jersey, but to the Nation. It is one of the first Programs submitted from an eastern coastal state. Further, the New Jersey coast represents a concentration of natural, historic, and economic attributes that is of national importance. The Federal Office of Coastal Zone Management thanks those participating in the review of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment and this environmental impact statement . NEPA Summary ( ) Draft Environmental Impact Statement (X) Final Environmental Impact Statement Department of Commerce, National Oceanic and Atmospheric Administration, Office of Coastal Zone Management. For additional information about this proposed action or this statement, please contact: Office of Coastal Zone Management National Oceanic and Atmospheric Administration Attn: Ms. Kathryn Cousins Regional Manager, North Atlantic Region or Richard S. O'Connor Assistant Manager, North .Atlantic Region 3300 Whitehaven Street, N.W. Washington, D.C. 20235 Phone: 202/634/4235 1. Type of Action Proposed Federal approval of New Jersey Coastal Management Program - Bay and Ocean Shore Segment. (X) Administrative 2. Brief Description of Action ( ) Legislative It is proposed that the Secretary of Commerce approve the Coastal Zone Manage- ment Program (Bay and Ocean Shore Segment) of the State of New Jersey pursuant to P.L. 92-583. Approval would permit implementation of the proposed segmented program, allowing program administration grants to be awarded to the State, and require that Federal actions be consistent with the Program, to the maximum extent pract icable . 3 . Summary of Environmental Impacts and Adverse Environmental Effects Approval and implementation of the Program will allow the State to implement more effectively existing State management within the Bay and Ocean Shore region. The State will condition, restrict, or prohibit selected land and water uses in some parts of the New Jersey coast, while encouraging development in other parts. Each coastal municipality will retain primary responsibility for managing land use along its coast. The impacts of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment will be generally beneficial, although there may be some adverse, short-term economic impacts on some coastal users, and the Program will entail the irreversible commitment of coastal resources. 4. Alternatives Considered A. Federal Alternatives The Assistant Administrator could delay or deny approval of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment under the following conditions if: 1. The Program does not have the authorities necessary to imple- ment the Program at the time of Section 306 segment approval. 2. The Program does not adequately achieve the goals of the Coastal Zone Management Act as expressed by Congress in Section 302 of the Act. 3. The national interest in the siting of facilities in the coastal zone were not adequately considered. 4. The Bay and Ocean Shore Segment could not be unified with the entire state coastal management program. B. State Alternatives 1. The State could withdraw its application and not seek Federal assistance . 2. The State could wait until the entire State Program is sub- mitted. 3. The State could wait until new legislation is adopted that recodifies the Wetlands Act, CAFRA and Riparian Laws. 4. The State could reduce the coastal boundary under CAFRA jurisdict ion. 5. The State could wait until more precise policies using the Coastal Location Acceptability Method (CLAM) have been completed or mapped. 6. The State could seek legislation delegating coastal zone management authority to localities. 5. A list of all Federal, State and Local Agencies and other parties from which comments were received is listed in the Appendix M. 6. This FEIS was submitted to EPA on August 30 , 1978. TABLE OF CONTENTS P a ? e Governor's Letter Commissioner's Letter Note to Reader/NE PA Summary i Table of Contents v PART I: INTRODUCTION 1 PART II: NEW JERSEY COASTAL MANAGEMENT PROGRAM - BAY AND 7 OCEAN SHORE SEGMENT: DESCRIPTION OF THE PROPOSED ACTION Chapter One: COASTAL MANAGEMENT IN NEW JERSEY 8 Purpose Major Issues and Opportunities Coastal Management Efforts in New Jersey New Jersey Approach to the Federal Coastal Zone Management Program Chapter Two: BOUNDARY - DEFINING THE COASTAL ZONE ,. Introduct ion Inland Boundary - Bay and Ocean Shore Segment Seaward and Interstate Boundaries - Bay and Ocean Shore Segment Chapter Three: A VISION OF THE COAST 1 Introduction The Vision Basic Coastal Policies Chapter Four: COASTAL RESOURCE AND DEVELOPMENT POLICIES 27 1.0 General 27 1 . 1 Purpose 1.2 Authority 1.3 Jurisdiction 1.4 Severability 1.5 Review, Revision, and Expiration V TABLE OF CONTENTS - Cont . 2.0 Coastal Decision-Making Process 2 . 1 General 2.2 Principles 2.3 Definition 2.4 Pre-Applicat ion Phase 2.5 Application or Project Review Phase 2.6 Information Requirements 3.0 Location Policies 3.1 General 3.2 Special Areas 3.2.1 General 3.2.2 Shellfish Beds 3.2.3 Surf Clam Areas 3.2.4 Prime Fishing Areas 3.2.5 Finfish Migration Pathways 3.2.6 Submerged Vegetation 3.2.7 Navigation Channels 3.2.8 Shipwrecks and Artificial Reefs 3.2.9 Marine Sanctuaries 3.2.10 Beaches 3.2.11 Coastal Wetlands 3.2.12 High Risk Beach Erosion Areas 3.2.13 Dunes 3.2.14 Central Barrier Island Corridor 3.2.15 Historic Places 3.2.16 Specimen Trees 3.2.17 white Cedar Stands VI Page 30 33 33 34 63 TABLE OF CONTENTS - Cont . Page 3.2.18 Endangered or Threatened Wildlife or Vegetation Species Habitat 3.2.19 Critical Wildlife Habitats 3.2.20 Public Open Space 3.2.21 Steep Slopes 3.2.22 Farmland Conservation Areas 3.2.23 Bogs and Freshwater Wetlands 3.2.24 Ephemeral Stream Corridor 3.2.25 Special Hazards Areas 3.2.26 Excluded Federal Lands 3.2.27 Borrow Pits 3.3 Water Areas 3.3.1 General Definition of Water Areas 3.3.2 General Policy on Uses of Water Areas 3.3.3 General Rationale for Water Areas Policy 3.3.4 Water Acceptability Table 3.3.5 Definitions of Water Body Types 3.3.6 Rationale for Policies by Water Body Types 3.3.7 Definitions of Water Uses 3.3.8 Water Acceptability Conditions by Water Uses 3.4 Water's Edge 3.4.1 General Definition of Water's Edge 3.4.2 Natural Water's Edge 3.4.3 Retained Water's Edge 3.4.4 Filled Water's Edge 3.5 Land Areas 90 3.5.1 General Definition of Land Areas 3.5.2 General Policy for Land Areas 3.5.3 Coastal Regions vii 83 TABLE OF CONTENTS - Cont . Page 3.5.4 Environmental Sensitivity 3.5.5 Development Potential 3.5.6 Definition of Acceptable Intensity of Development 3.5.7 Land Acceptability Tables 3.5.8 Determination of Location Acceptability 3.6. Policy on Location of Linear Development 3.7 General Location Policy 4.0 Uses Policies i ] 5 4.1 Purpose 4.2 Housing 4.3 Resort-Recreation 4.4 Energy 4.5 Public Facility 4.6 Indus try- Commerce 4.7 Ports 4.8 Coastal Engineering 5.0 Resource Policies 147 5.1 Purpose 5.2 Marine Fish and Fisheries 5.3 Water Quality 5.4 Surface Water Use 5.5 Groundwater Use 5.6 Runoff 5.7 Soil Erosion and Sedimentation Control 5.8 Vegetation 5.9 Wildlife 5.10 Air 5.11 Public Services viii TABLE OF CONTENTS - Cont . Page 5.12 Public Access to the Shorefront 5.13 Scenic Resources and Design 5.14 Secondary Impacts 5.15 Buffers and Compatability of Uses 5.16 Solid Waste 5.17 Energy Conservation 5.18 Neighborhoods and Special Communities 5.19 Traffic 5.20 High Percolation Wet Soils 5.21 Wet Soils 5.22 Fertile Soils 5.23 Flood Hazard Areas Chapter Five: MANAGEMENT SYSTEM - POLICIES ON DECISION-MAKING PROCESSES Introduction Department of Environmental Protection Division of Marine Services - Coastal Area Facility Review Act (CAFRA) - Wetlands Act - Riparian Statutes - Shore Protection Program Other Programs in DEP , fi _ Division of Water Resources Division of Environmental Quality Division of Parks and Forestry Green Acres Program Division of Fish, Game and Shellf isheries Solid Waste Administration Office of the Commissioner Department of Energy 164 164 165 165 \K TABLE OF CONTENTS - Cont . Page Other State Departments F 174 Department of Agriculture Department of Community Affairs Department of Labor and Industry Department of the Public Advocate Department of Transportation Municipal and County Government 175 Regional and Interstate Agencies 176 Public Participation 177 Conflict Resolution - Appeals Chapter Six: MANAGING THE COAST: NATIONAL INTERESTS, CONSISTENCY OF FEDERAL ACTIONS AND REGIONAL BENEFIT DECISIONS 180 Introduct ion 180 National Interests „ ^ 180 Federal Consistency Regional Benefit Decisions 199 Chapter Seven: SPECIAL COASTAL RESOURCE AND DEVELOPMENT POLICY REQUIREMENTS OF THE FEDERAL COASTAL ZONE MANAGEMENT ACT 01 Introduction _„ 201 Geographic Areas of Particular Concern Areas for Preservation and Restoration „_ 206 Chapter Eight: NEXT STEPS IN COASTAL MANAGEMENT IN NEW JERSEY E s 207 Managing the Bay and Ocean Shore Segment Completing the State's Management Program • Changing the Coastal Management Program 210 Part III: PROBABLE IMPACTS OF THE PROPOSED ACTION ON THE ENVIRONMENT 211 Part IV: ALTERNATIVES TO THE PROPOSED ACTION Part V: PROBABLE ADVERSE ENVIRONMENTAL EFFECTS WHICH CAN BE AVOIDED 231 lX TABLE OF CONTENTS - Cont Pag' Part VI: RELATIONSHIP BETWEEN LOCAL SHORT-TERM USES OF THE 233 ENVIRONMENT AND THE MAINTENANCE AND ENHANCEMENT OF LONG-TERM PRODUCTIVITY Part VII: IRREVERSIBLE OR IRRETRIEVABLE COMMITMENTS OF RESOURCES 235 THAT WOULD BE INVOLVED IN THE PROPOSED ACTION SHOULD IT BE IMPLEMENTED Part VIII: CONSULTATION AND COORDINATION 237 APPENDICES A. Secretarial Findings Index B. The Coastal Planning Process: 1973-1978 C. Federal Agency Participation: 1975-1978 D. Local Government Participation: 1975-1978 E. Coastal Zone Boundary F. Excluded Federal Lands 241 243 250 254 258 278 G. Memorandum of Understanding between DEP and DOE on Coastal Zone Management 280 H. Legal Authorities I. Legal Commentary J. Glossary K. Data Sources for Location Policies L. Using the Coastal Resource and Development Policies M. Comments and Responses on the NJCMP-Boss and DEIS (May 1978) LIST OF FIGURES Figure 1 - New Jersey Bay and Ocean Shore Segment Boundary, 1978 Figure 2 - New Jersey CAFRA Inland Boundary, 1973 Figure 3 - Segment Inland Boundary 286 300 306 317 323 329 15 16 18 TABLE OF CONTENTS - Cont Figure 4 - Coastal Regions Figure 5 - Dunes Figure 6 - Central Barrier Island Corridor Figure 7 - Water Body Types Figure 8 - Natural Water's Edge Figure 9 - Retained Water's Edge Figure 10 - Filled Water's Edge Figure 11 - Infill Diagram Figure 13 - Pine Barrens Exclusion Area Figure 14 - Flood Hazard Areas Figure 15 - Coastal Permit Jurisdiction Figure 16 - Coastal Permit Process Figure 17 - Higbee Beach GAPC Figure 18 - Federal Agency Participation Figure 19 - Wetlands Landward of CAFRA Boundary Figure 22 - Selected Salinity Data Page 22 47 50 66 84 86 89 97 Figure 12 - Outer Continental Shelf - Present and Potential Oil and Gas Leasing Areas 127 129 162 166 167 203 251 262 Figure 20 - New Jersey Coastal Zone Region Proposed Coastal Zone - 1977 264 Figure 21 - New Jersey Coastal Zone Boundary Index Map and Maps at 1:250,000 Scale 265 275 Figure 23 - Major Federal Lands Excluded from the Bay and Ocean Shore Segment 279 XII PART I INTRODUCTION The New Jersey Coastal Management Program - Bay and Ocean Shore Segment has been prepared t~o determine and describe New Jersey ' s s t rategy to manage the future protection and development of the coast. The State of New Jersey is seeking approval of the Program by the U. S. Department of Commerce to obtain the benefits of the federal Coastal Zone Management Act, which will aide State efforts to manage the often conflicting pressures facing the coast. This document serves as a combined Coastal Management Program for the Bay and Ocean Shore Segment and as a Final Environmental Impact Statement, because federal approval of a state coastal management program is considered a "major action" requiring an environmental impact statement under the National Environ- mental Policy Act (NEPA). The New Jersey Department of Environmental Protection, Office of Coastal Zone Management (DEP-OCZM) prepared the Coastal Management Program, in part with funding provided by the National Oceanic and Atmospheric Administration ( NOAA) . New Jersey is preparing its coastal management program in two phases. The geographic area addressed by this first part of the New Jersey Coastal Management Program includes a 1,382 square mile land area and related coastal waters in a region stretching from the Raritan Bay along the Atlantic oceanfront to the Delaware Bay. This is the area defined by the State Legislature in the Coastal Area Facility Review Act (CAFRA) of 1973, plus coastal wetland areas inland of the CAFRA boundary which are regulated under the Wetlands Act of 1970. This document defines and explains the Coastal Resource and Development Policies and the management system the Department of Environmental Protection and the Department of Energy will use in managing activities in this Coastal Program Segment. The Coastal Policies are divided into three groups: (1) Location Poli- cies evaluate specific types of coastal locations, such as wetlands and prime farm land; (2) Use Policies are directed at different uses of the coastal zone, such as housing and energy facility development; and (3) Resource Policies focus on con- trolling the effects of development, such as water runoff and soil erosion, and on the protection of natural and cultural resources. The major choices and basic direction provided in the many specific policy statements are represented by four Basic Coastal Policies: 1 . Protect the coastal ecosystem . 2. Concentrate rather than disperse the pattern of coastal residential , commercial , industrial , and resort-oriented development, and encourage the preservation of open space . 3. Employ a m ethod for decision-making which allows each coastal location to be evaluated in terms of both the advantages and the disadvantages it offers for development . 4. Protect the health, safety and w elfare of people who reside, work, and visit in the coastal zone. The Coastal Management Program will be implemented through existing laws and . agencies. The principal legal authority will be the coordinated use of the Coastal Area Facility Review Act (CAFRA) , Wetlands and Waterfront Development (riparian) permit programs, shore protection program and the regulatory activities of the Department of Energy. The Coastal Area Facility Review Act (N.J.S.A. 13:19-1 e t seq . ) is New Jersey's major coastal law. In CAFRA, the Legislature entrusted the Department of Environmental Protection with the responsibility to regulate the location, design, and construction of housing developments of 25 or more units and most major industrial, sewer, and energy facilities in the legislatively-defined "Coastal Area". Since CAFRA took effect in September 1973, DEP has received 267 applications for CAFRA permits. To date, 179 applications have been approved, while 18 residential projects and one sanitary landfill have been denied CAFRA permits . DEP also has authority to regulate certain activities on mapped coastal wetlands, under the Wetlands Act of 1970 (N.J.S.A. 13:9A-1 et seq.). Virtually any development in a mapped tidal wetland must receive a Wetlands permit before con- struction can begin. In addition, certain activities are prohibited in the wet- lands, including dumping solid waste, discharging treated or untreated sewage waste, storing or disposing of pesticides, applying persistent pesticides, and applying pesticides on significant stands of wetlands vegetation. New Jersey's third major coastal law is the set of riparian statutes which apply to the lands now or formerly flowed by tidal waters. Under these statutes, DEP and the Natural Resource Council (an autonomous but closely related citizen body, with members appointed by the Governor with the consent of the State Senate) can sell or lease these lands, and manage most activities on the lands through the administration of the Waterfront Development permit program. Through the riparian statutes, DEP requires a permit for construction or alteration of facilities such as a dock, wharf, pier, bulkhead, bridge, pipeline or cable, and dredging and filling involving lands flowed by the tide. New Jersey's fourth key coastal law concerns the shore protection program of state aid to municipalities to finance structural and non-structural solutions to shoreline erosion. The policies and procedures outlined in Part II, Chapter Four have been adopted as rules by the Commissioner of Environmental Protection. The Coastal Program will also rely upon the consistency of federal actions and actions of other agenies to carry out the Basic Coastal Policies, to the extent statutorily permissible. Finally, the Coastal Program will serve as guidance to municipal, county and regional agencies with coastal decision-making responsibilities The Draft Environmental Impact Statement (DEIS) issued in May 1978 was a revision of the Coastal Management Strategy for New Jersey-CAFRA Area submitted by DEP to the Governor, Members of the State Legislature, and the general public in the Fall of 1977. More than 80 individuals, groups, and agencies submitted com- ments on the Strategy either in writing or at one of the eight public meetings convened by DEP and attended by more than 300 people. Although the Basic Coastal Policies and the Use Policies remained substantially the same, the public comments led to numerous revisions and additions between the Strategy and the DEIS. The most significant change was the total reorganization and rewriting of the Location Policy, defined in the Coastal Management Strategy as the Coastal Location Accept- ability Method or CLAM. The individual comments and DEP responses to them wer»* summarized in Appendix C and E of the DEIS and presented in greater detail in a separate document, Coastal Management Strategy-Public Comments and DEP Responses (May 1973). The Draft EIS of the New Jersey Coastal Management Program-Bay and Ocean Shore Segment was distributed to, and reviewed by the public between May and July 1973. The review process and public comments are described in detail in Appendix H. The award of federal funds will allow New Jersey to: a) continue to refine, develop and implement the Program's Coastal Resource and Development Policies, also referred to as the Coastal Location Acceptability Method (CLAM), including identification of more specific site locations appropriate for specific uses. b) undertake mapping programs which will chart the natural, social and economic land and water features of the coastal zone. c) promote appropriate uses of coastal resources, by encouraging acceptable economic develpoment and undertaking projects such as the Beach Shuttle Service . d) increase coordination on coastal decision making among federal, state, and local governmental agencies. e) continue educational and information programs and projects to increase coastal awareness. f) develop more specific energy facility siting criteria and policies jointly with the New Jersey Department of Energy. g) coordinate with Atlantic City and Atlantic County officials in the planning and redevelopment of Atlantic City and its region. h) support and promote access to beaches and other waterfront areas. i) improve coastal management enforcement and monitoring programs in DEP. j) fully consider the national interests in the use of coastal resources. History of the Federal Coastal Zone Management Act The Coastal Zone Management Act of 1972 (P.L. 92-583 was passed in recognition of the importance of the coastal zone of the United States and the potentially adverse affects of intense pressures upon this national resource. The Act author- ized a voluntary program of financial assistance to states to manage their coasts and is administered by the Secretary of Commerce, who in turn delegated this responsibility to the National Oceanic and Atmospheric Administration (NOAA), Office of Coastal Zone Management. The program was substantially modified by the Coastal Zone Management Act Amendments of 1976 (P.L. 94-370). The CZMA opens by stating "there is a national interest in the effective management, beneficial use, protection, and development of the coastal zone" (Section 302(a)). The statement of Congressional findings goes on to describe how competition for the utilization of coastal resource brought on by the increased demands of population growth and economic expression has led to the degradation of the coastal environment, including the "loss of living marine resources, wildlife, nutrient-rich areas, permanent and adverse changes to ecological systems, decreas- ing open space for public use, and shoreline erosion." The CZMA then states, "the key to more effective protection and use of the land and water resources of the coastal zone is to encourage states to exercise their full authority over the land and waters in the coastal zone by assisting states ... in developing land and water use programs ... for dealing with coastal land and water use decisions of more than local significance" (Section 302(h)). The state level of government has prime responsibility for achieving "effec- tive management, beneficial use, protection, and development of the coastal zone" (Section 302(a)). Under Section 305 of the federal Act, up to four years of grants are available to 34 coastal states and territories (the Great Lakes States are included) to finance up to 80 percent of program development costs. General guidelines for the preparation of management programs are provided in 15 CFR 920.50. After developing a management program, the state may submit its program to the Assistant Administrator for approval. If a program has deficiencies which can be remedied but prohibit full approval under Section 306, the state is eligible for additional funding under Section 305(d). Funds provided under this Section can be used for initial program implementation and continued program development efforts (15 CFR 920.61). If approved, the state is then eligible for annual grants under Section 306 to administer its management program. NOAA-OCZM has published criteria to be used for approving state coastal management programs and guidelines for program administration grants (15 CFR Part 923, Federal Register 40 (6): 1683-1695). These criteria and guidelines set forth (a) the standards to be utilized by the Assistant Administrator in reviewing and approving coastal management programs developed and submitted by coastal states for approval, (b) procedures by which coastal states may qualify to receive program administration grants, and (c) policies for the administration by coastal states of approved coastal management programs. The Assistant Administrator will review the management program in accordance with the following general requirements: 1) That the management program is comprehensive. The Coastal Zone Manage- ment Act emphasizes that important ecological, cultural, historic and aesthetic values such as living marine resources, wildlife habitats, open space and nutrient rich areas are being lost or adversely affected by population growth and economic development in the coastal zone. 2) That the policies, standards, objectives and criteria upon which deci- sions pursuant to the program will be based are articulated clearly and are sufficiently specific to provide (i) a clear understanding of the program and how, and (ii) a clear sense of direction and predictability for decision makers who must take actions pursuant to or consistent with the management program; and 4 3) That there are sufficient policies of an enforceable nature to insure the implementation of and adherence to the management program. As of August 1, 1978, 33 out of 34 eligible coastal states and territories had received program development grants and seven states (Washington, Oregon, Cali- fornia, Massachusetts, Wisconsin, Rhode Island, and Michigan) and two segments had received program approval under Section 306. The New Jersey Coastal Management Program - Bay and Ocean Shore Segment is one of several programs proposed for approval prior to October 1978. The 1976 Amendments established a new assistance program called the Coastal Energy Impact Program (CEIP), consisting of grants, loans, and bond guarantees to states impacted by OCS oil and gas or other forms of energy development. In order to be eligible for assistance, a state must be receiving development (305) or administration (306) grants, or, in the Assistant Administrator's view, be devel- oping a management program consistent with the policies and objectives contained in Section 303 of the Coastal Zone Management Act. Other sections of the Act provide grants to states to coordinate, study, plan, and implement interstate coastal management programs (Section 309); allow the Assistant Administrator to conduct a program of research, study, and training to support state management programs (Section 310) and provide grants to states to acquire lands for access to beaches and other public coastal areas (Section 315). Besides the financial assistance incentive for state participation, the Coastal Zone Management Act stipulates that federal actions affecting the coastal zone shall be, to the maximum extent practicable, consistent with approved state management programs, the "federal consistency" requirement, Section 307(c)(1) and (2). The state must concur with any applicant's certification that a federal license or permit affecting land and water uses within the coastal zone is con- sistent with the state's coastal management program before the federal license or permit can be issued. Section 307 of the Coastal Zone Management Act requires that any outer continental shelf oil and gas activity described in an exploration, development or production plan be certified prior to any approval by the Department of Interior. All ■ direct federal development activities and certain forms of federal assistance to state or local governments must also be consistent with the approved program. Section 307 further provides for mediation by the Secretary of Commerce when serious disagreement arises between a federal agency and a state with respect to the administration of a state's program and shall require public hearings in the concerned locality. PART I I NEW JERSEY COASTAL MANAGEMENT PROGRAM - BAY AND OCEAN SHORE SEGMENT DESCRIPTION OF THE PROPOSED ACTION This Part presents the New Jersey Coastal Management Program - Bay and Ocean Shore Segment in eight chapters, as prepared by the State of New Jersey. Chapter One presents background information. Chapter Two defines the geographic scope of the Program. Chapter Three describes a vision of the future coast this program is designed to help create. Chapter Four presents the heart of the Program, the policies on what should or should not take place in the coastal zone. All of Chapter Four has been adopted, with appropriate revisions based on public comments, as an agency rule according to the provisions of New Jersey's Administrative Procedures Act. Chapter Five indicates how decisions will be made to carry out the Program. Chapter Six addresses the national interests, federal consistency, and uses of regional benefit. Chapter Seven addresses specific coastal resource and development policy concerns required under the federal Coastal Zone Management Act. Chapter Eight concludes with the next steps in the coastal management process in New Jersey. Several appendices in this document are also part of the Program. Ch p p t e r On e : COAS TAL MANAGEMENT IN NEW JERSEY Purpose Major Issues and Opportunities Coastal Management Efforts in New Jersey New Jersey's Approach to the Federal Coastal Zone Management Program ******************************** Furpose The Department of Environmental Protection (DEP) has prepared the New Jersey Coastal Management Program - Bay and Ocean Shore Segment to protect the state ' s coastal resources while accommodating needed future development. The Program provides the statements of policy which will be followed by DEP in making coastal decisions and which will guide other public and private actions affecting the coast. The Coastal Program is also designed to enable New Jersey to meet the requirements, and thereby reap the benefits of the federal Coastal Zone Management Act, particularly greater consistency between state and federal actions in the coastal zone and federal funds for New Jersey's coastal management efforts. This document describes the Coastal Program for the Delaware and Raritan Bay and Atlantic Ocean Shore Segment of the New Jersey Coastal Zone. The Coastal Program for the Segment includes a boundary description, statements of policy, and a management system to apply the policies within the described boundary, as well as a discussion of the next steps in the coastal planning process. Most regulatory determinations will be made through the permit application process. The Coastal Program also presents the standards DEP will use to determine the consistency of actions proposed in the coastal zone by federal, state, and local agencies. New Jersey's coastal policies will be used to determine the con- sistency with the approved program of federal activities, development projects, licenses, permits, and financial assistance to the State and local governments under Section 307 of the federal Coastal Zone Management Act. The Coastal Program will aide DEP when it is called upon to review federal domestic financial assist- ance applications under the A-95 Project Notification and Review Process, as well as Environmental Impact Statements prepared under the National Environmental Policy Act. From time to time, DEP is also likely to receive requests for advice or comments on the adequacy or appropriateness of plans and proposals by government agencies and private interests. The Coastal Policies provide a visible basis for offering an informed comment on the consistency of these plans and proposals. State funding decisions that affect coastal resources will also be guided by the Coastal Program. In particular, several important State aid, and direct State financing programs administered by DEP involve decision-making in the Bay and Ocean Shore Segment: (1) the Green Acres Open Space Acquisition and Outdoor Recreation program of grants to local governments and direct DEP efforts, (2) the Shore Protection program of matching grants to local governments, and (3) the wastewater treatment facilities construction grants program. 8 This Coastal Management Program is a tool for making decisions, but it is not a panacea. It is important to understand that this document is not a detailed, rigid plan indicating only one activity which can or should take place on each site, block, or acre in the coastal zone. New Jersey has deliberately designed a program which accommodates the creativity, interests, and initiative of individual land owners, developers, citizens, and others, and recognizes the State's historic commitment to a strong role for local governments in land use decision-making. The Program, therefore, focuses on coastal resource management decisions with greater than local significance that the Legislature has entrusted to State agencies. The Coastal Program provides enforceable policies to form predictable and consistent decisions which will best manage New Jersey's coast. Major Issues and Opportunities Sand dunes, power plants, surf clams and tankers all share the resources of New Jersey's coast. Over the years, numerous competing and often conflicting activities have converged on the Jersey Shore. New Jersey residents and tourists from all regions of the country spend their vacations at the Jersey Shore which accounts for the vitality of New Jersey's second largest revenue-producing indus- try, tourism. Boaters, fishermen, divers, young and old enjoy the ocean breezes and salt air. Rapid development of the shore area to accommodate those seeking relief from hot summers in the city, as well as those desiring permanent residence in a healthy environment, however, has created many competing pressures for the coast's fragile resources. New Jersey's wetlands were disappearing until the passage of the Wetlands Act. The barrier islands are overbuilt. The shoreline is eroding. Fish and shellfish resources are under intense pressure from recreational, commercial and industrial interests. The energy industry continues to examine the coast for potential sites for energy facilities. How can the Jersey coast be maintained as a healthy ecosystem and guard against the depletion of natural resources, while accommodating those resort-oriented and other activities and facilities which belong on the coast? Recognizing the coast as one of the nation's and state's most important resources, coastal laws were passed in 1970 and 1973 at the state level in New Jersey and 1972 and 1976 at the federal level to provide funding, regulatory techniques and governmental and public focus on the management of coastal areas. One of the major issues the Coastal Program addresses is water quality. The water bodies in the coastal area are crucial to the vitality of the coastal ecosystem and the protection of the health and safety of coastal and many inland residents. Proper management can alleviate problems of contaminated ground and surface water, stream turbidity and land and bank erosion. Good water quality is also essential to the fish and shellfishing industry, as well as to sport fishermen and boaters. Recent storms and increased development have contributed to New Jersey's eroding shoreline. Beach restoration and preservation are essential for main- taining New Jersey's thriving tourist industry. Construction along the beach and waterfront areas can also limit public access to the shore. High-rises built in the past have obstructed some panoramic vistas, and some beachfront development interferes with passive and active coastal recreation. The coast does not just include pristine areas. Many of the once thriving urban waterfronts in New Jersey are now vacant land and unused, poorly maintained docks. Atlantic City faces a unique set of development pressures from casino gambling and offshore oil and gas exploration. Energy is one of the most complex issues facing the entire country. The Jersey coast currently has two operating nuclear plants and four more are under construction. The prospect of oil and gas exploration and development off New Jersey's coast is now a reality. New Jersey will have to grapple with the new demands which will be placed on the coast's resources by the activities and facilities associated with exploration, and later, possible development and production of offshore oil and gas. Public concern for prudent coastal management reflects a general concern for the quality of life. People want to live in a healthy environment, and provide a healthy environment for all the other living resources which are part of the coastal ecosystem. However, the public often expresses concern over the morass of regulations at all levels of government directed toward management of public goods and resources. Often, the applications, fees, permits and time delays appear to overshadow the intended benefits of a resource management program. Despite the federal and state legislation for coastal management in New Jersey, the coastal program faces several constraints. The real property tax system has led to inter-municipal rivalry for ratable-producing property. Con- struction and development often take precedence over concern for open space in some financially hard pressed municipalities. New Jersey's strong tradition of home rule has meant that some municipalities make individual development decisions with little regard for regional impacts, posing severe constraints for the proper management of coastal regions. In addition, the actions, or lack of action, of neighboring states can affect New Jersey's coast. Coastal management in New Jersey is a delicate process, balancing fragile and sensitive environmental resources with development essential to the economy of the state. The public wants to work, live, and play, in the coastal zone, as well as to develop, restore and protect the coast. The agenda of coastal zone manage- ment ranges from dredge spoil disposal to offshore oil, from protection of surf clam beds to preservation of dunes. This requires a program that is dynamic and flexible to change, and, most important, responsive to the concerns of the citizenry while being sufficiently specific to indicate to public officials and private interests the implications of the program. Coastal Management Efforts In New Jersey In New Jersey, the Legislature has given increasing responsibility for coastal management to the state government. The State's active involvement in coastal management dates back to 1776 when it became owner of all tide-flowed lands, as a result of the American Revolution. During the past 200 years, the state's policies and practices have reflected the concerns and perception of the time. In the late 1800's and early 1900's for example, the State sold considerable amounts of riparian land to railroad and land development companies at bargain rates. In the early 1900's the State began to more actively regulate construction along the tidal waterfronts of New Jersey. 10 Within the past decade, however, as the public's environmental consciousness has grown, the State's role has increased. The Department of Environmental Pro- tection, created in 1970, has had the lead responsibility for the state's coastal management activities. Through the Shore Protection Program, DEP has disbursed millions of dollars for shore protection structures and programs. In recent years, DEP has used that funding as an incentive to encourage municipalities to provide public access to adjacent waters and shorefront areas. In 1970, the Legislature passed the Wetlands Act and, in 1973, the Coastal Area Facility Review Act (CAFRA). The two resulting regulatory programs, together with the State's responsibility to approve all activities on riparian land, solidi- fied the State's role in coastal management. The pressures faced by the New Jersey coast for oil and gas, recreation, casino gambling, and many other activities, along with the opportunities provided by the federal Coastal Zone Management Act of 1972, have further intensified and concentrated the State's efforts to manage the coast . New Jersey Approach to the National Coastal Zone Management Program The federal Coastal Zone Management Act of 1972 (P. L. 92-583, as amended in 1976 by P.L. 94-370) established a voluntary national program to encourage coastal states to define and carry out comprehensive programs to manage coastal areas. Administered by the National Oceanic and Atmospheric Administration's Office of Coastal Zone Management (NOAA-OCZM) in the U. S. Department of Commerce, the basic national program offers states two chief incentives: First, funds for coastal planning and management, and second, an opportunity to increase the con- sistency of federal actions in a stage's coastal zone with the state's own coastal policies . It it important to note that unlike the Clean Air Act and the Federal Water Pollution Control Act, no direct federal coastal management standards or regula- tions will be imposed if New Jersey fails or declines to develop a federally acceptable coastal management program. New Jersey began participating in the national coastal management program in June 1974, by receiving its first coastal planning, or program development, ^rant from NOAA-OCZM. Since 1974, federal grants have provided more than two-thirds of the funds, or approximately $1.9 million, used by the Department of Environmental Protection and other state and county agencies for coastal planning. Federal approval of New Jersey's coastal management program entitles the State to continue receiving federal grants. The federal Coastal Zone Management Act and the NOAA-OCZM regulations con- cerning the approval of management programs (15 CFR 923, Federal Register, Vol. 43, No. 41, March 1, 1978, pp. 8378-8431) define the framework, program approval standards, and options available to states in formulating a coastal management program. The New Jersey approach to the national program features submission of a management program for federal approval in two phases and reliance upon direct state controls to carry out the program. The region defined by state law as the "Coastal Area" in the Coastal Area Facility Review Act of 1973, and commonly referred to as the "CAFRA Area", gen- erally defines the geographic extent of the first phase, or segment, of New Jersey's coastal management program submitted for federal approval. Approximately 3,750 acres of Coastal Wetlands already regulated under the Wetlands Act, located inland of the CAFRA boundary, are also included in the geographic scope of the Bay and 11 Ocean Shore Segment. New Jersey's use of the option to pursue federal approval of the Segment recognizes the fundamental adequacy of the State's coastal management program in the major, Delaware Bay, Raritan Bay and Atlantic Ocean front portion of New Jersey's coastal zone. This document constitutes the Bay and Ocean Shore Segment management program submission to NOAA-OCZM. The second phase, completing the management program for the entire coastline of the state as described in Chapter Seven, is expected to be submitted for federal approval in 1979. State coastal management programs vary across the nation, and properly so given the diversity of resources and pressures facing the shorelines of the United States. One important distinction between state coastal programs is the approach to governmental decision-making. New Jersey's program has been fashioned by drawing upon New Jersey's pattern of selected State involvement in coastal land and water use decision-making, within a tradition of strong municipal land use decision- making. The federal Coastal Zone Management Act offers a state three broad options for implementing its coastal program: Technique A - Local Implementation - Section 306(e)(1)(A) Technique B - Direct State Control - Section 306(e)(1)(B) Technique C - Case-by-Case Reviews - Section 306(e)(1)(C) Technique A means that states may establish criteria and standards for local implementation, under state review and enforcement procedures. Technique B means that states may engage in direct regulation. Technique C means that states may operate through the administrative review of local plans, projects and regulations for consistency with statement management. New Jersey opts for the direct state control approach (Technique B), relying upon exist ing state laws which entrust the Department of Environmental Protection and Department of Energy with direct state control over selected coastal areas and selected uses of coastal resources. This is the only feasible option under current New Jersey law. In particular, the DEP enabling legislation, and the Coastal Area Facility Review Act (CAFRA), Wetlands Act, and riparian and shore protection statutes, as well as the Department of Energy Act, provide a strong mandate and basis for direct State agency involvement in key decisions involving the coastal region. The strong direct State role does not mean that DEP will regulate every proposed use of coastal resources within the defined coastal zone. Local govern- ments in the coastal zone will continue to be solely responsible for the consider- able amount of land and water use dec is ion -making in the coastal zone which has no regional impact, as defined by State law. New Jersey's management program for the Bay and Ocean Shore Segment has three interrelated, basic elements: First, a boundary defining the general geographic scope of the program; Second, Coastal Resource and Development Policies defining the standards for making decisions on what activities may take place within the boundary; and Third, a management system defining the types of decisions subject to the program, and the process by which those decisions will be made. The Coastal Management Program, a guide to decision-making, resembles a tripod. All three 12 legs, or elements, must be firmly in place for the Program to stand and work. All three elements function together and must be read and understood together, espe- cially because of New Jersey's direct state control approach. For example, if read out of the context of the overall management program, the Coastal Resource and Development Policies could be applied to every land and water use decision in the coastal zone, from the location of a single gas station to a nuclear generating station. That is not the intent here. Rather, the Coastal Resource and Development Policies are to be applied as substantive standards for decision-making for only those selected coastal decisions defined in the management system, particularly on CAFRA, Wetlands, and riparian permit applications. The Coastal Policies could, however, because of their comprehensive nature, be used to guide other decisions not strictly subject to the New Jersey Coastal Program. The heart of the program remains, however, the combination of boundary definition, policy statements, and decision-making processes that in concert spell out New Jersey's approach to managing its coastal resources. C£NfR/VL "BARK(£R rSLAN D CO£RlC>0£ j I DuNE BBACH I OCEAN KV£LOP£0 Oukes 4? inland limit of dunes is defined topographically. Typically, the land surface rises above a beach as a foredune, flattens on a ridge line, and then falls as a back dune. This is the primary dune. Sometimes the surface rises and falls again one or more times, creating secondary or tertiary dunes. The term dune includes all areas between the inland limit of the dry, sandy beach and the foot of the most inland dune slope. Two types of dune areas exist along the New Jersey shoreline: natural dunes and developed dunes. Natural dunes modified, but not totally destroyed by man, are defined as "developed dunes" (See Figure 5). 3.2.13.2 Policy (a) Development on dunes is prohibited with the the exception of the construction of very limited pedestrian walkways which do not unreasonably damage the structure of the dunes, such as pathways supported above the dune surface. (b) Development that destroys dunes must restore and revegetate the natural dune area, based on a long range plan for the area. (c) The stabilization of existing dunes and the creation of new dunes compatible with natural beach profiles are encouraged. (d) Development adjacent to High Risk Beach Erosion Areas and developed dunes is conditionally acceptable provided that the dune form and volume are adequate to protect the proposed inland development. 3.2.13.3 Rationale Dunes serve as valuable physical storm wave protec- tion, wildlife habitat, aesthetic and educational resources. The number and extent of dunes and barrier beach vegetation have diminshed along New Jersey's Atlantic coastline, due largely to extensive and intensive development on barrier islands. Most of New Jersey's dunes are located either in publicly- owned areas such as Sandy Hook (Gat'eway National Recreation Area), Island Beach State Park, Little Beach in the Brigantine National Wildlife Refuge, and Higbee Beach in Cape May County (proposed for state acquisition), as well as adjacent to the developed parts of barrier island. Additional small but significant remaining dune areas are in public ownership at Sea Girt at the State Police Academy, Ocean Crest State Park (undeveloped) at Ocean City, Strathmere Natural Area at Corson's Inlet, and Cape May Point State Park. Avalon has a 10 block stretch of primary and secondary dunes with thick, mature barrier island vegetation. 48 3.2.14 Central Barrier Island Corridor 3.2.14.1 Definition The Central Barrier Island corridor is that portion of barrier islands and spits or peninsulas (narrow land areas surrounded by both bay and ocean waters and connected to the mainland) that lies upland and between the Coastal Wetlands, Beaches, Retained Water's Edge and Filled Water's Edge areas that line the ocean and bay sides of a barrier island or spit. The Central Barrier Island Corridor excludes Dunes Special Area and begins at the foot of the most inland slope of Dunes. The Central Barrier Island Corridor also excludes wash-over areas. Central Barrier Island Corridor does not apply to the head- lands of northern Ocean County, Monmouth County, and the tip of Cape May County, which are part of the mainland (See Figure 6). 3.2.14.2 Policy New or expanded development within the Central Barrier Island Corridor is conditionally acceptable provided that the criteria for High Development Potential are met, as defined in the policy for Land Areas (see Section 3.5.5). The acceptable density of new development shall be determined using the high- rise policy for residential structures. 3.2.14.3 Rationale All of New Jersey's barrier islands and spits, except for Pullen Island in the Brigantine National Wildlife Refuge, are developed to varying degrees, largely as a result of incremental decisions made beginning more than one hundred years ago. Because the public facilities (roads and utilities) necessary to support urban and resort development already exist, and should be protected on New Jersey's barrier islands, and because development pressure is intense on barrier islands, the acceptability for development is to be determined by the Location Policy's criteria for residential development on Land Areas. Use of the high development potential criterion will gener- ally accept infill projects and discourage exten- sions of development on barrier islands and spits. The high-rise policies will limit sharp increases in density on the presently developed islands. The policy recognizes the diversity of New Jersey's barrier islands, from Absecon Island with the resort city and urban center of Atlantic City to Long Beach Island with largely single-family seasonal homes. 49 LAMD •ass ! b *«™ IK |2UU5t«=o"=.iK ! i!'S.i> ■ V I LAND* SACRlCR DUN6 OCEAN 1^1 51ms in -i» ^-{Z, I #K**v L^ 1 ^* 1 - "BARKER INLAND COeeiDoR-CgoS^-SBCTloM Ye r wash ASJEA W&TLAHD9 tftf* •.•.^.;.v;.;.v, •'•."•'*."■'■."•"".*•;."•*• ^TlANT/c OCEAN PtUED "EDGE CENTRAL BARRIER ISLAND CORRlbOft WAT6^'< ETJSt Central Barrier ISLAND CcRRibOR E3 BEACH- DUME EJ CNERWA.SR. 13 WETLANDS ESI FILLED WATERS EC&E S3 Detained water-*. ei&£ □ WATER F|&URC4, bC£NTrAlp3Ar P-1ER ISLAND CORRIDOR. 50 Implementation of the policy is expected to reinforce the existing character of New Jersey's developed barrier islands and not add appreciably to the public service costs and emergency evacuation (in times of hurricanes) problems of these islands. 3.2.15 Historic Resources 3.2.15.1 Definition Historic resources include objects, structures, neighborhoods, districts, and man-made or man- modified features of the landscape, including archae- ological sites, which either are on or are eligible for inclusion on the State or National Register of Historic Places. The criteria for eligibility are defined by the U.S. Department of Interior, Heritage Conservation and Recreation Service. 3.2.15.2 Policy (a) Development that detracts from, encroaches upon, damages, or destroys the value of historic resources is discouraged, unless it causes minimal practicable degradation of the resource. (b) Development that incorporates historic resources in adaptive reuse is encouraged. (c) Scientific recording and/or removal of the his- toric resources or other mitigation measures must take place, if the proposed development would irreversably and/or adversely affect historic resources. 3.2.15.3 Rationale The range of historic resources along the coast is broad and diverse, from the oceanfront Victorian "gingerbread" architecture, to examples of New Jersey's maritime heritage, to colonial homes, to Indian artifacts. The public interest requires the preservation of both representative and unique examples of historical and archaeological (cultural) resources of the coast, in order to provide present and future generations with a *ense of the people, who lived, worked, and visited the coast in the past. DEP's Office of Historic Preservation main- tains an up-to-date list of properties on the New Jersey State Register of Historic Places (N.J.S.A 13:1B-15.128 et seq.) and the National Register of Historic Places. As the State Historic Preservation Officer, the Commissioner of DEP, and staff of DEP's 51 Office of Historic Preservation and Office of Envi- ronmental Review advise DEP's Division of Marine Services on the historic resources aspects of coastal decisions . 3.2.16 Specimen Trees 3.2.16.1 Definition Specimen trees are the largest (diameter at 4.5 feet above ground) known individual trees of each species in New Jersey as listed by DEP-Bureau of Forestry (see New Jersey Outdoors , September-October 1977 for a listing of specimen trees). A specimen tree site is the area directly beneath the crown, also known as the drip line. In addition, large trees approaching the diameter of the known largest tree shall be considered Specimen Trees. 3.2.16.2 Policy Development is prohibited that would significantly reduce the amount of light reaching the crown, alter drainage patterns within the site, adversely affect the quality of water reaching the site, cause erosion or deposition of material in or directly adjacent to the site, or otherwise injure the tree. The site of the tree extends to the outer limit of the buffer area necessary to avoid adverse impacts, or 50 feet from the tree, whichever is less. 3.2.16.3 Rationale Many interested citizens have assisted DEP, over decades, in locating specimen trees. This process includes reporting large trees that can be considered specimens even though they may not be the largest in New Jersey of a species. Specimen trees are an irreplaceable scientific resource. Often these trees have also been associated with historical events. 3.2.17 White Cedar Stands 3.2.17.1 Definition Low lying areas supporting Atlantic White Cedars (Chamaecyparis thyoides), where white cedars compose a significant percentage of stems within a given area. Generalized location maps of white cedar stands can be found in J. McCormick and L. Jones, The Pine Barrens Vegetation (1973), and forest type maps within the N.J. Bureau of Forestry. 52 3.2.17.2 Policy Development that adversely affects White Cedar Stands is prohibited. 3.2.17.3 Rationale White cedar stands, as well as other lowland swamp forests, play an important role in purifying water in coastal streams, retarding runoff, providing scenic value, and serving as a rich habitat for many rare and endangered plant and animal species, as well as game species, such as deer. White cedars also act as forest fire breaks. White cedar stands most commonly occur in flood plains and in the fringe areas of drainage ways and bogs, which are frequently under- lain with saturated organic peat deposits. This material is particularly unsuited for development unless highly altered. Many of these locations are Natural Water's Edge Areas. White cedar is New Jersey's most valuable timber species and grows in discrete stands. The wood has a long tradition of maritime and local craft uses. Unfortunately, white cedars have been eliminated from much of their previous range in New Jersey. 3.2.18 Endangered or Threatend Wildlife or Vegetation Species Habitats 3.2.18.1 Definition Land, Water's Edge, or Water Areas known to be the habitat of any wildlife (fauna) or vegetation (flora) identified as "endangered" or "threatened" species on official federal or state lists of endangered or threatened species are considered a special area. The definition also includes a sufficient buffer area to insure continued survival of the species. DEP intentionally restricts dissemination of data showing the geographic distribution of these species habi- tats, in order to protect the habitats. 3.2.18.2 Policy Development that would adversely affect the habitats of endangered or threatened species is prohibited. DEP will review proposals on a case-by-case basis. 3.2.18.3 Rationale Endangered and threatened species are organisms which are facing possible extinction in the immediate future due to loss of suitable habitat, past over- exploitation through human activities or natural 53 causes. Extinction is an irreversible event and represents a loss to both future human use, educa- tion research and to the interrelationship of all living creatures with the ecosystem. At present (1978), the official list of endangered wildlife (fauna) species in New Jersey, available from DEP, Division of Fish, Game and Shellf isheries (see N.J.A.C. 7:25-11.1), includes the following species: Shortnose sturgeon, Blue-spotted salamander, Eastern tiger salamander, Bog turtle, Bald Eagle, Peregrine Falcon, Osprey, Cooper's Hawk, and Indiana Bat, as well as various marine mammals and marine reptiles. Additional species have threatened status. At present (1978), no official state or federal list exists of endangered or threatened vegetation (flora) species, although the Smithsonian Institution did in 1975 submit a report to the U.S. Fish and Wildlife Service identifying fifteen species of New Jersey plants for consideration for adoption on federal lists (see 40 FR 27863-27864, July 1, 1975). 3.2.19 Critical Wildlife Habitats 3.2.19.1 Definition Critical Wildlife Habitats are specific areas known to serve an essential role in maintaining wildlife (fauna), particularly in wintering, breeding, and migrating. Rookeries for colonial nesting birds such as herons, egrets, ibis, terns, gulls, and skimmers, stopovers for migratory birds, such as the Cape May Point region, and natural corridors for wildlife movement merit a special management approach through designation as a Special Area. Ecotones, or edges between two types of habitats, are a particularly valuable Critical Wildlife Habitat. Many Critical Wildlife Habitats, such as salt marsh water fowl wintering areas, and muskrat habitats, are singled out as Water or Water's Edge Areas. 3.2.19.2 Policy Development that would adversely affect Critical Wildlife Habitats is discouraged, unless: (a) minimal feasible interference with the habitat can be demonstrated, (b) there is no prudent or feasible alternative location for the development, and (c) the proposal includes appropriate mitigation measures. DEP will review proposals on a case by case basis. 54 3.2.19.3 Rationale The State of New Jersey, as custodian of a particular portion of the national wildlife heritage, has the obligation of stewardship on behalf of the people of the state and nation to perpetuate wildlife species within its borders for the use, education, research, and enjoyment by future generations. 3.2.20 Public Open Space 3.2.20.1 Definition Public Open Space constitute land areas owned and maintained by state, federal, county and municipal agencies or non-profit private groups (such as conservation organizations and homeowner's associa- tion) and dedicated to conservation of natural resources, public recreation, or wildlife protection or management. Public Open Space also includes State Forests, State Parks, and State Fish and Wildlife Management Areas and designated Natural Areas (N.J.S.A. 13:1B-I5.12a et seq .) within DEP-owned and managed lands. 3.2.20.2 Policy (a) New or expanded public or private open space development is encouraged at locations compat- ible or supportive of adjacent and surrounding land uses. (b) Development that adversely affects existing public open space is discouraged. (c) Development within existing public open space, such as campgrounds and roads, is conditionally acceptable, provided that the development complies with the Coastal Resource and Develop- ment Policies and is consistent with the charac- ter and purpose of the public open space. 3.2.20.3 Rationale As the rapid urbanization of New Jersey continues and leisure time increases, open space will play an increasingly important role in maintaining a desir- able living environment for the residents of New Jersey. Even though the supply of open space has decreased under the growing pressure for development, the State's expanding population will require more public open space to satisfy its needs. 55 Not only is open space the basic resource for recrea- tion facility development, it also performs other worthwhile functions. Open space can create public spaces in densely settled areas, shape urban growth, provide buffers for incompatible uses, retain con- tiguous farmland, insure the preservation of wildlife corridors, increase the economic value of adjacent land, and preserve distinct architectual , historic, and geologic sites. The distribution of open space should not only be centered around the preservation of unique areas, but must also respond to the needs of people. Where possible, open spaces should be contiguous both visually and physically to promote a sense of con- tinuity and to afford users continued movement through the public open spaces. 3.2.21 Steep Slopes 3.2.21.1 Definition Steep slopes are areas with slopes greater than 10%. 3.2.21.2 Policy (a) Development on steep slopes greater than 15% is prohibited, unless the regrading of a very small part of a site is essential to the overall landscaping plan for the site, in which case the grading shall be done to less than a 10% slope. (b) Development on steep slopes between 10-15% is discouraged, unless: (i) limited stabilization structures and measures, such as terracing and paving, are consistent with the natural character of the site, to the maximum extent practicable, (ii) The design of the development is compatible with the slope characteristics of the site in visual, physical, and engineering terms, (iii) minimal feasible site disturbance and maximum practicable revegetation take place. 3.2.21.3 Rationale Only a few Steep Slopes Areas exist in the rela- tively flat Coastal Plain of New Jersey. Steep slopes occur in the Bay and Ocean Shore Region along 56 certain tributaries of the Delaware River, and the Raritan River, in the northeastern portion of Monmouth County known as the Highlands, which is bounded by Sandy Hook Bay and the Naves ink River. Slope maps are available from NJDEP/OCZM based on U.S.G.S. Topographic Quadrangle sheets (1:24,000 scale). Isolated steep slope areas are also found near headwaters of coastal streams. Preservation of steep slopes controls soil erosion, protects up-slope lands, minimizes pollution surface waters, and reduces flooding. When vegetation is stripped, rainfall strikes surface soils causing soil particle movement through surface water flow and gravity, which result in increased surface runoff and downstream flooding. When this silty water enters a surface water body, increased turbidity and sedimen- tation usually follow which can cause reduction of productivity and flood water storage capacity. Aesthetics are also affected when erosion occurs and topsoil is lost. 3.2.22 Farmland Conservation Areas 3.2.22.1 Definition Large, contiguous areas of 20 acres or more (in single or multiple tracts) with soils of classifica- tions in the Capability Classes I, II and III as mapped by the U.S. Department of Agriculture, Soil Conservation Service, in National Cooperative Soil Surveys, and Special Soils for Blueberries and Cran- berries, which are actively farmed, suitable for farming, or forested, and located in Cape May, Cumberland or Salem Counties are defined as Farmland Conservation Areas. The Farmland Conservation Areas should not be confused with the Farmland Preservation Demonstration Project in Burlington County. 3.2.22.2 Policy (a) Farmland Conservation Areas shall be maintained and protected for open space or farming purposes to the maximum extent practicable. (b) Continued, renewed, or new farming is encouraged in Farmland Conservation Areas. (c) Conversion of Farmland Conservation Areas to development is acceptable only when the pre- dominant surrounding pattern of development is urban or suburban and continued, renewed, or new farming is likely to produce unacceptable urban-agricultural conflict. 57 3.2.22.3 Rationale Farmland Conservation Areas are an irreplaceable natural resource essential to the production of food and fiber, particularly in the "Garden State." Conservation of large, contiguous areas of these lands for farming serves both private and public interests, particularly in terms of ready access to locally-grown food, jobs and open space preservation. At the same time, the policy here recognizes the desirability of minimizing conflicts between farm and urban areas. Only the three southern counties within the Bay and Ocean Shore Region have significant Farmland Conser- vation Areas located in a manner generally compatible with present or future farming. In Cape May County, approximately 39.8% of the county's soils qualify as Capability Classes I and II (including areas outside of the coastal zone boundary). Some of these irreplaceable soil resources have already been converted to urban uses. Other areas which are of a sufficiently large scale to make farming feasible should be reserved for farming purposes, provided that rural-urban conflicts are minimized. 3.2.23 Bogs and Freshwater Wetlands 3.2.23.1 Definition Bogs and freshwater wetlands are local, natural or man-made, vegetated undrained topographic depressions with the seasonal high water table at surface, fed by groundwater, usually underlain with peat and other organic material. Water in bogs is acidic, nearly free of dissolved nutrients. 3.2.23.2 Policy Development that would adversely affect the natural functioning of the bog or ephemeral pond environment is prohibited. 3.2.23.3 Rationale Bogs, while limited in extent in the Bay and Ocean Shore Region, are the habitat for many rare and endangered species of plants and animals. Bogs are inappropriate development sites due to poor drainage and load bearing capacity of the underlying soils. Bogs also assist in flood control. 58 3.2.24 Ephemeral Stream Corridor 3.2.24.1 Definition The Ephemeral Stream Corridor is the area adjacent to an ephemeral or intermittent stream, as indicated on USGS topographic quadrangles or National Cooperative Soil Survey maps prepared by the U.S. Department of Agriculture, Soil Conservation Service, that has a depth to seasonal high water table of less than or equal to one foot. 3.2.24.2 Policy Coastal development that would adversely affect the natural functioning of Ephemeral Stream Corridors is prohibited. In particular, paving, filling, effluent discharge, vegetation disturbance, and disturbance of drainage patterns are prohibited. 3.2.24.3 Rationale Ephemeral Stream Corridors serve vital functions in the water cycle of the coastal ecosystem. These areas serve as groundwater discharge areas that help maintain the quality of the water regimen of streams, and directly protect the quality of coastal waters. Ephemeral Stream Corridors may only be approximately depicted using USGS or SCS maps. Site surveys may well be required. 3.2.25 Special Hazard Areas 3.2.25.1 Definition Special Hazard Areas include areas with a known actual or potential hazard to public health, safety, and welfare, or to public or private property, such as the navigable air space around airports and potential evacuation zones around major industrial and energy facilities. 3.2.25.2 Policy Coastal development that would increase the potential danger of Special Hazard Areas is discouraged, unless appropriate mitigating measures are adopted. 3.2.25.3 Rationale Management of the coastal zone requires a concern for development that would directly or indirectly increase potential danger to life and property. Mitigating measures such as height limits near airports and evacuation plans for industrial facili- ties may adequately address the concern in this area. 59 3.2.26 Excluded Federal Lands 3.2.26.1 Definition Excluded Federal Lands are those lands that are owned, leased, held in trust or whose use is other- wise by law subject solely to the discretion of the United States of America, its officers or agents, and are exlcuded from New Jersey's Coastal Zone as required by the federal Coastal Zone Management Act . 3.2.26.2 Policy Federal actions on Excluded Federal Lands that significantly affect the coastal zone (spillover impacts) shall be consistent with the Coastal Resource and Development Policies, to the maximum extent practicable. 3.2.26.3 Rationale While the federal Coastal Zone Management Act requires that federal lands be excluded 'from a state's coastal zone, it is important that New Jersey's Coastal Resource and Development Policies explicitly note the location of these special areas in order that the spillover impacts of actions in these areas may be properly evaluated. 3.2.27 Borrow Pits 3.2.27.1 Definition Borrow pits are topographic depressions resulting from the extraction of unconsolidated sediments. They may be wet or dry depending on whether the extraction extends below the water table. 3.2.27.2 Policy (a) The conservation of wet borrow pits is encour- aged for water amenity and wildlife habitats provided that: (i) Unstabilized slopes at the water's edge are not more than 1:3 and are planted with adapted vegetation. (ii) Slopes greater than 1:3 are stabilized with either rip-rap or bulkheads of environmen- tally suitable materials. 60 (iii) Unstabilized slopes are maximized and stabilized slopes minimized to the maximum extent practicable. (b) The use of borrow pits as detention areas for runoff is acceptable provided that the applicant can demonstrate: (i) That the input of nutrients to well borrow pits will not cause eutroph icat ion to standing water. (ii) That the input of other contaminants will not cause unacceptable surface or ground water degradation. (iii) That the percolation rate can accommodate peak storm runoff or that an overflow is provided that satisfies the runoff policy. If these conditions cannot be met, site grading shall be used to direct surface runoff away from borrow pits. (c) Extensive filling of large wet borrow pits is discouraged. (d) Filling of small wet borrow pits, areas of large wet borrow pits, and dry borrow pits is accept- able providing: (i) The fill sediments are non-toxic and of a sediment size suitable for proposed uses. Some dredge spoil sediments could satisfy this condition. (ii) That impacts on surrounding ground and surface water movement are acceptable. (e) Dry borrow pits may be acceptable as solid waste landfill sites providing: (i) The fill is chemically inert or if the fill is chemically active that the pit is lined and the leachate collected and treated before release to ground or surface water. (ii) That impacts on surrounding ground or surface water movement are acceptable. (iii) The fill is compatible with surrounding land uses. 61 3.2.27.3 Rationale Borrow pits are man-made land forms that offer special opportunities and constraints to development and therefore merit special policies, rather than being included in the Land Areas policy. Lakes and ponds of varying depth and area form in pits where extraction has cut through the water table. These lakes are valuable as open space and wildlife habi- tats. These lakes should be incorporated into recreation or residential developments. Wet pits often require special development and management practices to preserve their open space value. Surrounding slopes may be steep and liable to slump and erosion. Stabilization may be required. Borrow pit lakes typically have little or no flow, being fed only from ground water, and are very sensitive to imputs of nutrients, heavy metals, pesticides, petrochemical wastes and other contami- nants. There is little or no flushing to remove contaminants. Evaporation tends to concentrate even small inputs over a period of time. Eutrophi- cation and biomagnif ication of toxicity are parti- cular problems. If wet borrow pits are used as runoff detention areas, therefore special care is needed to maintain water quality. Large wet borrow pits have high amenity and habitat value and should be preserved where possible. Small wet borrow pits and dry pits may, however, unreason- ably obstruct optimum site plans. In these cases, filling may be acceptable providing the fill is clean and offers sufficient load bearing capacity for the proposed use. Also, the surrounding hydrologic systems must not be unacceptably disturbed. Filling these areas offers an opportunity for land disposal of some dredge spoils. The disposal of solid waste in the coastal area is a growing problem. The type of waste varies widely, with building rubble, domestic and industrial waste and the less usable sediments from dredging opera- tions all requiring disposal. Dry borrow pits offer disposal opportunities if the filling is compatible with surrounding uses and the chemical, biological and physical impacts of the fill and leachate can be contained and mitigated. 62 3.3 Water Areas 3.3.1 General Definition of Water Areas Areas below the mean high water line, including intertidal areas, and nontidal permanent surface water features are classified as "Water Areas". Water Areas include various specific types of basins and channels. 3.3.2 General Policy on Uses of Water Areas The location policy for coastal Water Areas varies according to the depth of the water basin, flow of the water channel, and proposed use of the water areas. For this reason, specific water basin and water channel types and specific uses of water areas are defined below. Specific coastal policies are articu- lated in a Water Acceptability Table for specific uses, con- sidering both the advantages and disadvantages (sensitivity and development potential) of various types of locations, using the Coastal Location Acceptability Method (CLAM). In addition to the Water Areas policies presented here, proposed coastal development must also comply with applicable state and federal surface and ground water quality statutes and regulations. 3.3.3 General Rationale for Water Areas Policy The sensitivity of water areas to environmental impacts depends primarily on the assimilative capacity of the specific water area. Assimilative capacity indicates the amount of adverse impact or pollutants that a water body can absorb and neutra- lize before it begins to display a significant reduction in biological diversity, chemical, or physical water quality. Two factors — water volume and flushing rate (the rate that water in a channel or basin is replaced) — are used in CLAM to determine the approximate assimilative capacity of water basins and water channels respectively. Other factors may also be important in reaching a specific decision. Water volume depends upon the surface area and depth of a water body. The Location Policy for Water Areas considers flushing rate in terms of six types of water channels and two types of bays. 3.3.4 Water Acceptability Table The Water Acceptability Table indicates the Coastal Manage- ment Program's location policy toward the introduction of the various uses into each of the coastal water body types. This table uses the following key: P = The use is prohibited (except in areas where the State of New Jersey has conveyed a riparian grant, in which case the use is discouraged, although a waterfront development permit is required for use of the water area). &3 cunQMua.Oia.QQft p.' co §25 * 01 b > 32 ■5U 5 5 ?5 h a c n m a "8 a 0) c I c • 1 - .0 .9 - ,5j + .9 I s ! - .0 .9 - ,% + .9 ,9 - .0 ,81 - .9 + .81 ,81 - ,0 + .8T g> g r3 O U 3 jj o u u 8 3 8 3 * SI p oi a. a o ii ii H c- a cj P 6 I n n 3B a u 3 t3 auaauoo.aauQuaaa,QtxQU SOQSNSBiSiBi WV.CJ UUU&&U \UQU\QhAhU\\ubuU c a cj cjcj auoao.aauoouuuuo qq cj ou auuaa.o,auuuuuou q cj cj ocj QWuQ0<&'OUOUUUaU0.UU uoaafccilaciQii.HB.uo.UNUU \uau\Q&&.au\Oiau&.u Q a o UUQUOQO'O.QUUO.DUP.Ofl'JU ucjQcjuboiCuQ.uue.aoa.ucuuu uuaooauo-aoun.DOB Q uoaa ) o.CL.uDo.DOB.o\uu U\DQUDMl.\OD(l l QU(liU\UU CJ OQU\CUO.QUa.O.\0\U\DU O \QD\OUft\QP-U\U\U\0 01 a 1 o tn 2 o 4-> -~l 03 Cm . ca a 3 c s ii £ z I I 5 IM o ■a s -5 -5 Q B> Pi r< 8«1 'S s Q D •5 c? oi a a. a, c U T3 2 to tn tn c gS oi c re cj (1) cpoJ; H S2 u, , CQ CJ oi 3 CJ ^£ r-l OT CO CU cu X X ' l - c w cj CO 0) CO cu « s ii X cu 60 CO (-4 D O a C cu CO cu CO 3 cu X H II CO o u CO ^1 cu B •H CO •H CU CO cu X H cu X) O XJ Vm CU ■u CO XI CU X) •H > o u Cu CO •H CO CU O CU CU X u o <4-l CU vO 3« o en CO ■u cu cj X cu H CO ^-irNf-iTTi.')vDr~cocrvo>-<(Nm»rmvor~oocTi 64 3.3.5 Definitions of Water Body Types The water areas of the coastal zone have been classified into twelve water body types, as defined below. Some Special Area polcies, such as Navigation Channels, also apply to Water Areas. In addition, some water body types are further classi- fied according to the depth of the water body type, or its bathymetry (see Figure 7). 3.3.5.1 Ocean This basin type has two depth levels (0'-18' and 18' + ) and includes all areas of the Atlantic Ocean out to the limit of New Jersey's territorial sea, three nautical miles from the shoreline. The ocean extends from the marine boundary with the State of New York in Raritan Bay and Sandy Hook Bay south to the marine boundary with the State of Delaware in Delaware Bay, near Cape May Point. 3.3.5.2 Open Bay This basin type has three depth levels (0'-6', 6'-18 l , and 18+) and is defined as a large, somewhat confined estuary with a wide unrestricted inlet to the ocean and with a major river mouth discharging directly into its upper portion. Delaware Bay, Raritan Bay, Sandy Hook Bay, and Upper New York Bay are the only representatives of this water body type in New Jersey. 3.3.5.3 Semi-enclosed and Back Bay This basin type is a partially confined estuary with direct inlet connection and some inflow of freshwater. Semi-enclosed bays differ from back bays in depth, degree of restriction of inlet and level of fresh- water inflow, but the initial location policy is identical for two water body types. Great Bay and Great Egg Harbor are examples of semi-enclosed bays, Barnegat Bay, Little Egg Harbor, the Shark River estuary and other bays in Atlantic and Cape May Counties are back bays. This combined water body type has three depth levels (0-1/2', 1/2 '-6', and 6' + ). 3.3.5.4 Inland Basins This basin type includes enclosed freshwater basins, both shallow and deep, with little or insignificant flow, such as lakes, ponds, and reservoirs. 65 Figure 7 WATER BODY TYPES LARGE RIVER CANAL BACK BAY INLET BACK BAY SEMI- ENCLOSED BAY INLET GUTS SEMI- ENCLOSED BAY LOCATION OF DETAILED MAPS STATE OF NEW JERSEY DEPARTMENT OF ENVIRONMENTAL PROTECTION BACK BAY GUTS INLET AN MADE HARBOR OCEAN § ■faU. i— r SCM-C m**.um 'tn 1— A- 66 WATER TYPES OCEAN I I OPEN BAY V///A LARGE RIVER i8$S888 •••■••■a ■ ■ •••«• ■ back bay :•:•:•:•:•:•:■:• semi- enclosed bay '^//////a X l \ ?* * 1 1 , / £ ; - / ^ i O 1 ^ O' 6 INTERMITTENT <5TpCAU--fi^r^-?^i%; " w^=.-; medium river ^^SS^S^¥i^B£*-^^S£*iw^-*t3v^ - — >w.-c "»' a - wcJsoJyc >- -' — ^ c*v33£x>^* -°~ „ v ~-~>'x-- r - v -— — ■ *^S X- - - - »»=»,— .-s"^- — \>jtt - — } ~ -a. - WATER TYPES OCEAN OPEN BAY LARGE RIVER BACK BAY SEMI- ENCLOSED BAY MEDIUM RIVERS CREEKS a STREAMS GUTS INLETS CANAL MAN MADE HARBOR INTERMITTENT STREAMS c '////A • ••■••• 1 .••••»■• ••••••• I " 11 1 1 i ij i N i \- 24,000 IOOO' EOOO' I I JOOO' llllll^ :-x-x->x-:':¥:':-:¥scc!jaass^~,; ::X : : : : : : : : : x : :XxXxff n ^-t r -(^' P^piav S-- 3.3.5.5 Man-Made Harbor This basin type includes existing ports, marine terminals, marinas and other semi-enclosed water bodies protected by man-made structures, such as a breakwater. This type also includes the water area of existing dead end lagoons, both linear and branched. 3.3.5.6 Large River This channel type includes flowing waterways with watersheds greater than 1,000 square miles, which means the Delaware, Hudson, and Raritan Rivers. 3.3.5.7 Medium Rivers, Streams and Creeks This channel type includes waterways with a watershed area of less than 1,000 square miles. This includes watercourses such as the Navesink, Manasquan, Toms, Wading, Mullica, Great Egg, Maurice, Cohansey, Salem and Rancocas and smaller streams. This water body type has three depth levels (O'-l/l', l/2'-6*, and 6'+) 3.3.5.9 Intermittent Streams This channel type includes ephemeral streams that appear intermittently, depending upon the season, the depth of the water table, and precipitation, with watersheds of less than one square mile. 3.3.5.10 Guts This channel type includes tidal waterway connections between two estuarine bodies of water. Also known as thorofares, guts have no significant freshwater drainage . 3.3.5.11 Inlets This channel type includes natural narrow connections between estuaries and the ocean. 3.3.5.12 Canals This channel type includes man-made canal between water bodies, specially the Cape May Canal and the Bay Head-Manasquan Canal. 71 3.3.6 Rationale for Policies by Water Body Type 3.3.6.1 Ocean The largest water body found within the coastal zone is the Atlantic Ocean. The vast volume of water together with strong wind induced mixing, surface and subsurface currents, and tidal pulse make the ocean the water body most able to assimilate human induced stresses. The assimilative capacity of the ocean is not unlimited, nor are all the benthic and pelagic and surface organism equally resilient to stresses. The high energy marine system simultaneously provides opportunity for various uses such as recreation and waste disposal and imposes several constraints to human structures. Marine waters are divided into two depth categories: the shallower portion is most commonly thought of as the surf zone, which is of national recreational value. Uses which would impact the recreational values are consequently discouraged from these location. Uses located within deeper portions have less potential to adversely impact coastal resources or induce impacts such as ocean shoreline instability 3.3.6.2 Open Bays Open bays include Delaware Bay and Rar itan/Sandy Hook/Lower Bay Complex. These are the largest estuarine systems within the New Jersey coastal zone. All estuaries provide essential nursery habitat for marine finfish and shellfish while providing organic nutrients for marine/estuarine food webs. Open bays have traditionally been used as commer- cial shipping entrances to the New Jersey/New York harbors and New Jersey/Pennsylvania/Delaware harbors, and have consequently suffered from extensive human pertebat ions , with the northern area being more severly disturbed. Open bays have large rivers discharging into their upper portions. Although a less rigorous environment than the coastal sea, surface wave action can be high during strong wind conditions. Open bays are exten- sively used for commerce and recreation, although recreation and commercial fin and shellfish has been constrained by sewage pollution. These water bodies are subdivided into three cate- gories based solely on water depth. The criteria of depth was used as this factor is closely related to dilution potential. 72 3.3.6.3 Semi-Enclosed and Back Bays Semi-enclosed water bodies are the estuaries behind barrier beach islands with restricted, indirect, or shallow inlets to the open ocean. This category includes all non-riverine estuarine water bodies including embayments and back bays. These areas are more sensitive to human disturbance, because of the very limited to moderate freshwater inflow, slower tidal flushing, and smaller water body volume . The semi-enclosed estuaries are critical to the protection and perpetuation of the coastal ecosystem. Their physically protected geography allows more sensitive or fragile organisms to survive than in the more rigorous ocean and open bays. The vast majority of important marine finfish, shellfish and aquatic birds utilize these areas as critical nursery habi- tats. The contiguous coastal wetlands perform the essential role of photosynthesis, resulting in natural organic material export into the coastal sea through the action of tidal and storm induced flush- ing. These estuarine water bodies are subdivided into three categories based solely upon the criteria of relative water depth. Deeper water portion are the areas most intensively used by man for water surface activities such as navigation. Deeper water areas have a greater physical ability to dilute pollutants and ,biological detoxified toxic agents. This assimu- lative capacity is not unlimited however. Shallow water area generally have less potential dilution and flushing. 3.3.6.4 Inland Basins This category includes lake, ponds, and reservoirs virtually all of which in the unglaciated coastal plain of southern New Jersey are man-made (impound- ments). These types are relatively small water bodies with no tidal influence or salinity. Many inland basins are groundwater fed, while others are known to serve as surface aquifer recharge areas. Inland basin have a severely limited ability to flush pollutants owing to limited freshwater inflow and lack of tidal inundation. Pollutants which enter these areas can precipitate to the bottom, remaining a continuing source of contamination. Certain basins also serve as potable surface water sources. 73 Due to the limited extent of this type, no depth subdivision are made. 3.3.6.5 Man-made Harbors This category includes all created water body fea- tures that were previously land or water's edge features, including marine terminals, major ports, marinas and lagoons, whether linear or branched. Man-made harbors were created for the purpose of facilitating navigation, for commercial or recrea- tional purposes. Harbors are non-natural water features with dredged bottoms and bulkheaded shore- lines. Since these areas have been previously devoted to intensive human use, which helps generate monies to local ecnomic and recreational use, policies prepetuating these values are appro- priate. 3.3.6.6 Large Rivers Large rivers include the Delaware, Hudson and Raritan Rivers. These water bodies have a long history of intensive human use, especially in com- merce. These economic interests must be accom- modated. Large rivers are all drained by watersheds in excess of 1,000 square miles, and are tidally influenced within the Bay and Ocean Shore Segment. These factors allow for flushing of pollutants, although extensive portions of each are presently over-stressed with sewage and industrial wastes. 3.3.6.7 Medium Rivers, Creeks, and Streams This category includes all flowing riverine water bodies within the Bay and Ocean Shore Segment except as listed above. Medium rivers have from moderate to small discharge rates. Many within the Segment are tidally influenced and most are relatively shallow, and of smaller volume. These factors combine to render these features more susceptible to degradation through human activities. Medium rivers, creeks, and streams are subdivided by water depth, which reflects the presumed abilities of water areas with greater volume and circulation to dilute and assimilate potential pollutants or accom- modate the intensity of surface water activities. 74 3.3.6.8 Intermittent Streams These are permanent surface and ground water drain- ageways where flow rates fluctuate, with no surface water during dry seasons. Due to the discontinous presence of surface water, many water dependent uses are not feasible or would require extensive altera- tions . 3.3.6.9 Guts Guts, also called thorofares, are connecting water features within the estuarine system. They have no upland freshwater drainage, their flow rates vary, all are tidally influenced, and their natural water depths vary. Guts serve as important access ways for human navi- gation, physical water circulation and tidal flushing of estuaries. Also aquatic organisms migrate in and out of upstream tidal areas through guts. 3.3.6.10 Inlets Inlets are a channel type which connect estuarine areas with the ocean. All inlets are tidally influenced. These areas serve a critical function as access ways for human navigation, water circulation, tidal flushing of estuaries, upland freshwater drainage, aquatic organism migration or movements in and out of estuaries, and for estuarine produced natural organic material. 3.3.6.11 Canals Canals are artificial water bodies created to promote and aid navigation. Along the Intra-coastal waterway between upper Barnegat Bay and the Manasquan River and between Cold Spring Harbor and Delaware Bay near Cape May Point. This type has no significant fresh- water drainage. Tidal flows are strong. Use within this type must not constrain navigation. 3.3.7 Definitions of Water Uses Numerous developments or activities seek locations in New Jersey's coastal waters. Some uses involve locations both above and below the mean high water line, in both Water and Water's Edge areas. This section defines generally the important uses of water areas managed by the Coastal Management Program. Some uses involve combinations of uses, such as retaining strucutres, dredging, and filling. Other uses, such as Shore Protection uses, are defined elsewhere under Use Policies. 75 3.3.7.1 Aquaculture Aquaculture is the use of a permanently inundated water area, whether saline or fresh, for the purposes of growing and harvesting plants or animals in a way to promote more rapid growth, reduce predation, and increase harvest rate. Oyster farming in Dela- ware Bay is a form of aquaculture. 3.3.7.2 Boat Ramps Boat ramps are inclined planes, extending from the land into a water body for the purpose of launching a boat into the water until the water depth is suffi- cient to allow the boat to float. Boat ramps are most frequently paved with asphalt or concrete, or covered with metal grates. 3.3.7.3 Retaining Structures Retaining structures are retaining walls stabilizing shorelines. Bulkheads are vertical retaining struc- tures. Revetments are inclined retaining walls for the same purpose. Sea walls are bulkheads or revetements that face the ocean. 3.3.7.4 Docks and Piers Docks and piers are large or small structures in the water for the purpose of gaining access to moored boats for commercial or recreational purposes or for fishing or recreational purposes. Docks are usually supported on pilings driven into the bottom sub- strate, but docks can float on the surface. Docks made of fill and retaining structures are considered under the water use types of filling and retaining structures . 3.3.7.5 Dredging-Maintenance Maintenance dredging is the removal of accumulated sediment from areas where dredging has taken place in the past, such as navigation channels, marinas, or boat moorings, for the purpose of maintaining a required water depth for navigation purposes. 3.3.7.6 Dredging - New New dredging is the removal of sediment from the bottom of a water body that has not been previously dredged or excavated, for the purpose of increasing water depth. 76 3.3.7.7 Dredged Spoil Disposal Dredged spoil disposal is the discharge of sediments (spoils) removed during dredging operations. 3.3.7.8 Dumping (Solid Waste or Sludge) The dumping of solid waste or sludge is the discharge of solid or semi-solid waste material from industrial or domestic sources or sewage treatment operations into a water area. 3.3.7.9 Filling Filling is the deposition of inorganic material (sand, soil, earth, dredge spoils, etc.) into water areas for the purpose of raising water bottom elevations . 3.3.7.10 Piling Piling is the insertion of columnar structural members into the water bottom substrate. 3.3.7.11 Mooring A boat mooring is a temporary or permanent, piling or floating anchored facility in a water body for the purpose of attaching a boat. 3.3.7.12 Sand and Gravel Extraction Sand and gravel extraction is the removal of sand or gravel from the water bottom substrate, usually by suction dredge. 3.3.7.13 Bridges Bridge construction is the building of a vehicle or pedestrian access route across a water body. 3.3.7.14 Cable Routes Cable routes are the lines along which telecommuni- cation cables or electrical transmission lines are laid. 3.3.7.15 Overhead Transmission Lines Overhead transmission lines are electrically con- ducting wires hung between supporting pylons for the transmission of electrical power from generating plant to the site of consumption. 77 3.3.7.16 Pipeline Routes Pipeline routes or corridors are linear sites along which hollow pipes are laid, buried, or trenched for the purpose of transmitting fluids. Examples would be crude oil, natural gas, raw or potable water, petroleum products or sewage pipelines. Construction of an underwater pipeline may involve trenching, temporary trench spoil storage, and back filling, or jetting as an alternative to trenching. 3.3.7.17 Dams and Impoundments Dams and impoundments are structures that obstruct natural water flow patterns for the purpose of forming a contained volume of water. Impoundments include dikes with sluice gates and other structures to control the flow of water. 3.3.7.18 Pipes Pipes are tubular structures of metal, concrete, plastic, or other material that are located in Water Areas for the purpose of intake or discharge of effluent . 3.3.7.19 Miscellaneous Miscellaneous includes uses of Water Areas not specifically defined in this section or addressed in the Use Policies. 3.3.8 Water Acceptability Conditions The Water Acceptability Table identified numerous uses that are conditionally acceptable or discouraged at various water loca- tions. This section defines those conditions, in addition to the Use and Resource Policies of the Coastal Management Program. 3.3.8.1 Aquaculture Aquaculture is conditionally acceptable in many water body types, providing that water recreation and resort uses are not unacceptably restricted, and that aquaculture practices do not cause adverse off-site environmental impacts. 3.3.8.2 Boat Ramps Boat ramps are conditionally acceptable on ocean shores providing that there is a demonstrated need that cannot be satisfied by existing facilities; that the shoreline is not a high risk erosion area; and that the adjacent shorefront areas are intensely developed with resort-related uses. 78_ Boat ramps are conditionally acceptable on shallow ocean and bay shores and river banks providing that (a) they cause minimal practicable disturbance to intertidal flats or subaqueous vegetation, (b) there is a demonstrated need that cannot be satisfied by existing facilities, (c) there is access to an existing navigation channel of adequate depth, and (d) the location policies for the water's edge areas are satisfied. Boat ramps shall be constructed of environmentally acceptable materials such as concrete or oyster shell. Public use ramps have priority over re- stricted use and private use ramps. Applications for restricted and private use ramps will be approved only if they can demonstrate that a public use ramp is not feasible. Refuse barrels shall be provided as part of a boat ramp. 3.3.8.3 Retaining Structures Bulkheads, revetments, and sea walls and other retaining structures are generally discouraged in Water Areas. On a case by case basis, shoreline retention structures may be considered for accepta- bility if it can be shown that without shoreline stabilization there is danger to life or property or that water dependent uses that satisfy the Location Policy requirements for Water's Edge Areas cannot feasibly operate without the structure. A small retaining structure that connects two existing lawful retaining structures may be considered for accept- ability if it would provide a net benefit to the environment. Rip-rap is a preferred construction material for retaining structures as it provides a habitat for aquatic life and helps absorb wave energy. The Coastal Engineering Use Policies pro- vide more detailed conditions. 3.3.8.4 Docks and Piers New docks and piers are conditionally accept- able in some water body types provided that: (a) there is a demonstrated need that cannot be satisfied by existing facilities, (b) the adjacent shorefront is intensely used for coastal recreation, (c) the location policies for water's edge areas are satis- fied, (d) the construction minimizes adverse environ- mental impact to the maximum extent feasible, (e) the docks and piers are located so as to not hinder navigation or conflict with overhead transmission lines, and (f) there is minimum feasible interruption of natural water flow patterns. Docks and piers on 79 pilings shall be preferred to solid constructions on fill. Applicants shall demonstrate why floating docks and piers cannot serve the required purpose. Repairs and maintenance of existing docks and piers are generally acceptable. 3.3.8.5 Dredging - Maintenance Maintenance dredging is acceptable to the authorized depth in all existing navigation channels, access channels, and boat moorings to ensure that adequate water depth is available for safe navigation, pro- vided that an acceptable spoil disposal site exists. Maintenance dredging is acceptable to provide access to marinas., docks, ports, and other appropriate water-dependent facilities. Maintenance dredging is impractical in a number of water body types at locations outside of the Navigation Channels Special Areas . 3.3.8.6 Dredging-New New dredging is generally discouraged. On a case by case basis, new dredging may be considered for acceptability for boat moorings or navigation chan- nels providing that: (a) there is a demonstrated need that cannot be satisfied by existing facilities, (b) the facilities served by the new dredging satisfy the location requirements for water's edge areas, (c) the adjacent water areas are currently used for recreational or commercial boating, (d) the dredge area causes no significant disturbance to intertidal flats or subaqueous vegetation, (e) the adverse environmental impacts are minimized to the maximum extent feasible, (f) an acceptable dredge spoil disposal site exists, and (g) the dredged area is reduced to the minimum practical. New dredging or excavation to create new lagoons for residential development is prohibited. 3.3.8.7 Dredged Spoil Disposal Subaqueous disposal of dredge spoils is prohibited in most water body types, until the acceptabiity of this technique is demonstrated by appropriate research. Clean dredge sediments of suitable particle size are acceptable for beach nourishment on ocean or open bay shores. Additional conditions for Dredge Spoil Disposal are indicated in the Coastal Engineering Use Pol ic ies . 80 3.3.8.8 Dumping The dumping of solid or semi-solid waste of any description in any coastal waters is prohibited. 3.3.8.9 Filling Filling is generally discouraged in all coastal waters. Clean sediment of suitable particle size and composition is acceptable for beach nourishment projects (see the Coastal Engineering Use Policies). Limited filling may be considered elsewhere for acceptability on a case by case basis provided that: (a) the use that requires the fill satisfies the location policies for the water's edge, (b) there is a demonstrated need that cannot be satisfied by existing facilities, (c) there is no feasible or practical alternative to filling and that filling is essential to the functioning of the use, (d) the minimum practical area is filled, (e) the adverse environmental impacts are minimized, and (f) inter- tidal flats and Special Areas are not disturbed. 3.3.8.10 Piling Piling is usually associated with docks, shoreline structures, and piers and must satisfy the conditions set out above for these uses. Piling that is an elment of a use addressed in a Use Policy must satisfy the Use Policy. 3.3.8.11 Mooring Temporary or permanent boat mooring areas are condi- tionally acceptable in some water body types provided that the mooring area is adequately marked and is not a hazard to navigation. 3.3.8.12 Sand and Gravel Sand and gravel mining for mineral extraction or beach nourishment is conditionally acceptable in the deep ocean and inlets providing that: (a) areas of finfish and shellfish concentration are neither directly or indirectly degraded, (b) the physical and chemical impacts associated with turbidity and release of toxic agents from substrate layers are minimized to the maximum extent practicable, and adhere to applicable water quality standards, and (c) the visual impact of dredging machinery from shore areas is acceptable. 81 3.3.8.13 Bridges Bridges are conditionally acceptable over rivers and streams provided that there is a demonstrated need that cannot be satisfied by existing facilities and that the secondary impacts of the new or improved bridge are acceptable (see the Secondary Impact Policy in the Resources Policies). 3.3.8.14 Cable Routes Cable routes are conditionally acceptable provided that (a) the route avoids Special Areas to the maximum extent practicable, (b) the route avoids areas where anchors may foul the cable, and (c) the alignment of the cable route is marked at the land- fall and by buoys at the surface. 3.3.8.15 Overhead Transmission Lines Overhead transmission lines are prohibited, except over specified water body types where transmission lines will be considered for acceptability provided that: (a) there is a demonstrated need that cannot be satisfied by existing facilities, (b) there is no feasible alternate route that avoids crossing water bodies, (c) further development likely to be induced by the transmission lines is acceptable, (d) adequate safety precautions are included to prevent a broken cable touching the water in case of accidental breakage, and the transmission line provides adequate vertical clearance for masts. 3.3.8.16 Pipeline Routes Pipeline routes are conditionally acceptable provided that (a) they are not sited within Special Areas, unless no prudent and feasible alternate route exists, (b) trenching take place to a sufficient depth to avoid puncturing or snagging anchors or sea clam dredges, and (c) the pipeline is sufficiently deep to avoid uncovering by erosion of water cur- rents, (d) the conditions outlined for pipelines in the Use Policies (See Section 7.0) are satisfied. Temporary trench spoil storage and back filling as part of pipeline trenching is acceptable provided that bottom contours are reestablished following trench spoil removal to the original bottom contours, to the maximum extent practicable. Jetting pipelines into bottom sediments is conditionally acceptable provided that trenching and backfilling are imprac- tical . 82 3.3.8.17 Dams and Impoundments Dams and impoundments are impractical in many water body types, prohibited in other water body types, and discouraged in specified water body types, unless essential for water supply purposes or the creation of special wildlife habitats. 3.3.8.18 Pipes Pipes and outfalls for the intake or discharge of effluent are conditionally acceptable provided that the use associated with the pipe meets the Coastal Resource and Development Policies and the effluent meets all applicable water quality statutes and regulations. The Water Areas policy applies only to the location of the pipes, not to the effluent. 3.3.8.19 Miscellaneous Uses of Water Areas not identified in the Water Acceptability Table or addressed in the Use Policies will be analyzed on a case-by-case basis. 3.4 Water's Edge Areas 3.4.1 General Definition of Water's Edge The Water's Edge is a strip of natural or disturbed land and water areas at the interface between Water Areas (both tidal and non-tidal) and Land Areas. The Water's Edge includes three broad categories: Natural Water's Edge, Retained Water's Edge, and Filled Water's Edge. In general, the Water's Edge extends from the mean high water line to either the landward limit of soils with a seasonal high water table at the surface or the cultural feature closest to the Water Area, whichever is the lesser distance. 3.4.2 Natural Water's Edge 3.4.2.1 Definition On the mainland, the Natural Water's Edge includes natural, undisturbed land and water features that are contiguous with Water Areas and stretch from Water Areas to the landward limit of soils with a seasonal high water table at the surface excluding Atsion soils, or the first cultural feature such as a road, whichever lies closest to the water. On barrier islands, spits, and headlands, the seasonal high water table criterion does not apply. (However, the Special Area policies of Wetlands, Beaches, Dunes and Central Barrier Island Corridor do apply.) The upper 83 VmCWMUm. — i ..,„.,. i,^. ■M "i >••' ■a* ■-.. ■ • ■ ATLANTtC OCEAN BARKER ISLAND mm wetlands Cnatukal WATER'S Special VAUJE AREA" REACHES Cn MURAL WATER'S 3jS FIGURE 8. NATURAL WATER'S EDGE. (Ill NATURAL WATEf&§ ISltiEAo+C^^ gg. YiETLAN&S (MvA/E) □ WATER broads 84 limit of the Natural Water's Edge is defined by either the landward limit of Coastal Wetlands and/or Beaches Special Areas. The limit of soils with a seasonal high water table at the surface may be determined using reports from the National Coopera- tive Soil Survey prepared by the U.S. Department of Agriculture, Soil Conservation Service, or by a specific soil survey at the site (See Figure 8). 3.4.2.2 Policy In general, development is discouraged in the Natural Water's Edge, unless the development satisfies all of the following conditions: (a) Requires water access or is water-oriented as a central purpose of the basic function of the activity (this condition applies only to devel- opment proposed on or adjacent to waterways), (b) Has no prudent or feasible alternative on a non Natural Water's Edge site, (c) Is immediately adjacent to existing Water's Edge development, and (d) Would result in minimal feasible alteration of on-site vegetation. 3.4.2.3 Rationale The land-water interface is among the most sensitive parts of the coastal ecosystem. When left undevel- oped, the Natural Water's Edge serves several import- ant functions: maintenance of estuarine producti- vity, control of stream flow variation, erosion and sediment control, flood control, water purification, channel stabilization, open space and recreation, and maintenance of wildlife habitats. Also, construction in the Natural Water's Edge usually requires costly drainage, filling, excavation, or piling, which further adversely affects coastaL resources. If left undisturbed, the Natural Water's Edge provides a valuable buffer to protect Water Areas from upland activities. The Natural Water's Edge also includes areas such as freshwater wetlands and lowland swamp forests. 3.4.3 Retained Water's Edge 3.4.3.1 Definition of Retained Water's Edge Retained Water's Edge Areas are adjacent to either Water Areas or Natural Water's Edge Areas as defined above and stabilized with existing bulkheads, revet- ments or sea walls. The lower limit of the Retained 85 stream fbULkHEAD UPLAND limit op FILL BAffRtBR ISLAND 3AC|cBAV,GoT5 PLAND UMrr OF FILL FiRVT CULTURAL F£AToi?6 fcVukHEAfc CROATS OR -&OARO WALK) ATLANTIC OCEAN BEACH gxisriHG UfcoON RETAINING STROCTUgg 62J FILL I* | £3 Reach | gtf] NNETLAND^ L3 WATER -r^ (?OADS B i ■**... riGORe9. RETAINED WATER'S HDfeE 86 Water's Edge is the line of the retaining structure. The upper limit of the Retained Water's Edge is the upland limit of fill or the first public cultural feature inland from the retaining structure (such as a road or boardwalk) whichever is the lesser. Two types of Retained Water's Edge Areas exist, along both open water bodies and those along man-made lagoons (See Figure 9). 3.4.3.2 Policy Development is acceptable in Retained Water's Edge Areas along open water bodies providing that: (a) the development is either water dependent or the site is proposed for a public recreation or resort use (This latter category would include waterfront parks) and is compatible with adjacent land uses, (b) the structural condition of the existing retaining structure is adequate to protect the structure, or the proposed development provides for adequate repair of the structure, and (c) the site would not contri- bute to the extension of Central Barrier Island Corridor through development. Development is conditionally acceptable on Retained Water's Edge Areas along existing non-developed, man-made lagoons providing that: (a) the develop- ment is compatible with adjacent land uses, and (b) the structural condition of the existing retaining structure is adequate to protect the proposed devel- opment or the proposed development provides for adequate repair of the structure. 3.4.3.3 Rationale Retained Water's Edge areas are of less environmental concern than undisturbed water's edge areas. The buffering functions of the water's edge have already been largely lost through excavation, filling and the construction of retaining structures. It is accept- able to allow certain kinds of develoment up to the line of the existing retaining structure. Because the waterfront is a scarce resource, it is desirable to limit development in these areas to uses that are either dependent on direct water access or uses that are related to shoreland recreation and benefit the most number of people. The construction of new private housing along built up open water bodies would be an inefficient use of this scarce resource, but such uses as public waterfront parks, hotels and restaurants acceptable. 87 3.4.4 Filled Water's Edge 3.4.4.1 Definition of Filled Water's Edge Filled Water's Edge areas occur when existing filled areas lie immediately adjacent to Water or Natural Water's Edge Areas including streams, and there is no retaining structure along the shoreline. The land- ward limit of the Filled Water's Edge is the first cultural feature landward of the adacent Water Area, or the upland limit of fill, whichever is the lesser. Two types of Filled Water Edge are defined: those along open water bodies and those along existing man-made lagoons. Some existing or former dredged spoil and excavation fill disposal sites are Filled Water's Edge Areas (See Figure 10). 3.4.4.2 Policy The development of Filled Water's Edge Areas along open water bodies is discouraged, except for public- oriented or water-dependent uses that demonstrates that site reclamation is infeasible. Development on Filled Water's Edge Areas along existing but undeveloped man-made lagoons is condi- tionally acceptable provided that, (a) reclamation of the site is infeasbile, (b) the development is compatible with adjacent land and water uses, (c) stabilization of the slope of the Filled Water's Edge occurs using natural materials to provide an appropriate buffer, to the maximum extent practicable, and (d) causes minimal feasible adverse impact on adjacent land and water areas. 3.4.4.3 Rationale Filled lands adjacent to water areas represent potential problems for water quality. The slope must be stabilized in order to prevent erosion, turbidity and loss of estuarine productivity. These problems have been well documented in Grant F. Walton, et al, Evaluation of Estuarine Site Development Lagoons (New Brunswick, N.J.: Rutgers- Water Resources Research Institute, 1976). Thousands of undeveloped building lots exist in the Bay and Ocean Shore Region along stabilized and unstabilized 83 UPLAND EXTENT OF PlLU ISLAND ATLAHflC OCEAN £51 PILLED WATER'S EDGE (3 BEAO* £3 WETLANDS Q V/ATER <~££OAD F\C>UR£'0 o RLLED WATERS E=T>6£ 89 lagoons created by destroying wetlands in the 1950's and 1960's. Development of these residential lots is acceptable provided that water quality standards are met and the banks of the filled areas are revege- tated, or retained, since the fundamental and near irretrievable damage to the environment of these areas took place a decade or more ago. 3.5 Land Areas 3.5.1 General Definition of Land Areas Land Areas include all mainland land features located upland of the Water's Edge, which is typically defined by the limit of soils with a seasonal high water table at the surface. 3.5.2 General Policy for Land Areas The acceptability for development of Land Areas is defined in terms of three levels of acceptable development intensity. Three factors determine the acceptable development intensity for various locations in Land Areas: (a) Coastal Region, (b) Environmental Sensitivity, and (c) Development Potential. Assessment of these three factors indicates the appropriate pattern of development from a broad, regional perspective and provide a method for determining the acceptable intensity of development of specific sites, as well as entire regions, Determination of the specific policy for a Land Area site is a four step process. First, the Coastal Region in which the site is located is determined. Second, the Environmental Sensiti- vity and Development Potential of the site are determined. Third, the Land Acceptability Table for the appropriate region is consulted to determine the acceptable intensity of develop- ment of the site, given the three possible combinations of Development Potential and Environmental Sensitivity factors for the site or parts of the sites. Fourth, the proposed intensity of development of the site is compared with the acceptable intensity of development for the site. Coastal development which does not conform with the acceptable intensity of development of a site is discouraged. 3.5.3 Coastal Regions 3.5.3.1 General The Bay and Ocean Shore Region of the coastal zone is classified into ten different regions on the basis of the varied patterns of coastal development and resources. For these regions, DEP uses three broad regional growth strategies: (a) High Growth, (b) 90 Moderate Growth, and (c) Low Growth. High Growth means that infill, extension, and some scattered development patterns are acceptable, from a regional coastal management perspective. Moderate Growth means that infill and some extension development patterns are acceptable. Low Growth means that only infill development is acceptable (See Figure 4 in Chapter Three) . 3.5.3.2 Barrier Island Region The oceanfront barrier islands and spits constitute the Barrier Island Region. The Land Areas Policy does not apply to the Barrier Islands Region, which is composed entirely of various Special Areas. 3.5.3.3 Northern Region The Northern Region includes those portions of Monmouth and Middlesex County that are within the Bay and Ocean Shore Region and is designated a High Growth Region. 3.5.3.4 Central Region The Central Region includes those portions of Ocean County within the Bay and Ocean Shore Region that are north of State Highway 37 and west of the Garden State Parkway, and those parts of the county north of Cedar Creek and east of the Parkway, and is desig- nated a High Growth Region. 3.5.3.5 Western Ocean County Region The Western Ocean County Region includes those portions of Ocean County west of the Garden State Parkway and south of State Highway 37, and is designated a Moderate Growth Region. 3.5.3.6 Barnegat Corridor Region The Barnegat Corridor Region includes those portions of Ocean County south of Cedar Creek and north of State Highway 72, and is designated a Moderate Growth Region. 3.5.3.7 The Mullica-Southern Ocean Region The Mullica-Southern Ocean Region includes those portions of Ocean County south of State Highway 72, all of Burlington County, and those portions of Atlantic County north of County Road 561, located within the Bay and Ocean Shore Region, and is desig- nated a Low Growth Region. 91 3.5.3.8 Absecon-Somers Point Region The Absecon-Somers Point Region includes those mainland protions of Atlantic County south of County Road 561, and east of Garden State Parkway, and is designated a High Growth Region. 3.5.3.9 Great Egg Harbor River Region The Great Egg Harbor River Region includes those portions of Atlantic County southwest of County Road Alternate 559 and those portions of Cape May County east of State Highway 50, north of County Road 585, and west of U.S. Highway 9, and is designated a Low Growth Region. 'o ■ 3.5.3.10 Southern Region All of Cape May County, within the Bay and Ocean Shore Region, except for that portion in the Great Egg Harbor River Region, is designated a Moderate Growth Region. 3.5.3.11 Delaware Bayshore Region All of Cumberland County and Salem County within the Bay and Ocean Shore Region is designated a Low Growth Region. 3.5.4 Environmental Sensitivity 3.5.4.1 General Environmental Sensitivity is a composite indication of the general suitability of a land area for devel- opment based on three factors — (a) vegetation, (b) fertile soils, and (c) high percolation wet soils — that are combined to indicated High, Moderate, or Low Environmental Sensitivity on a site or parts of a site. This section first defines these rankings and then defines specifically the three factors. 3.5.4.2 High Environmental Sensitivity High Environmental Sensitivity Areas are land areas with: (a) forest vegetation, and (b) high soil productivity or high percolation wet soils which are adjacent to a stream channel (permanent or ephemeral), as defined below. 3.5.4.3 Moderate Environmental Sensitivity Moderate Environmental Sensitivity Areas are neither High nor Low Environmental Sensitivity Areas. 92 3.5.4.4 Low Environmental Sensitivity Low Environmental Sensitivity Areas are low areas with: (a) onsite paving or structures or (b) areas with bare earth or herbacious vegetation or early successional meadow with low soil fertility, and low depth to seasonal high water table. 3.5.4.5 Definitions of Environmental Sensitivity Factors (a) Forest vegetation is defined as a natural commu- nity of trees and shrubs with tree species predominantly those of the late successional stage for the region. (b) High soil productivity is defined as soils with Agricultural Capability Class I, as defined by the U.S. Department of Agriculture, Soil Con- servation Service in National Cooperative Soil Surveys. Low soil productivity is any soil defined Agricultural Capability Class IV-VIII. (c) High percolation wet soils are soils with a depth to seasonal high water table of three feet or less and with textures equal to or coarser than loamy sand within a 24 inch depth from the surface, as indicated in National Cooperative Soil Surveys and includes primarily the following coastal soils series: Atsion (At), Hammonton (HaA), Klej (KmA) , and Lakewood (LaA, LeB, and LeC). (d) Low depth to seasonal high water table is defined as a depth to seasonal high water table of more than five feet. 3.5.4.6 Rationale (a) High environmental sensitivity This ranking is given to land areas where combinations of environmental factors either make the area particularly valuable as a resource or particularly sensitive to impacts, or a combination of the two. Two area types are important. First, a combination of valuable resources exists where forest vegetation coincides with the most productive soils. In addition, undeveloped areas are valuable as open space, for screening, as wildlife habitats, for ground and surface water purification, and as areas that could be used in the future for local food production and/or nutrient absorp- tion. These areas have value both for the 93 functions they now perform in a developing area and as a limited land bank of the most produc- tive soils. Second, where forest vegetation coincides with a rapid soil percolation rate and a shallow water table, there is a combination of resource value and impact sensitivity factors of special concern where there is an adjacent stream or water body. Areas of high soil percolation and shallow water table are espe- cially sensitive to ground water impacts because the rapid percolation offers little pollutant filtration and the distance to ground water is small. When these areas coincide with forest vegetation, itself a valuable resource in developing areas, the physical and biological processes of tree roots contribute to ground water protection by taking up nutrients and other contaminants. The combination of loss of forest vegetation and degradation of ground water that occurs when these areas are developed raises the level of sensitivity. (b) Medium Environmental Sensitivity These are land areas that are neither especially sensitive or insensitive to development. (c) Low Environmental Sensitivity This ranking is given to areas where there would be particularly little loss of valued resources or sensitivity imapcts of concern if development took place. All paved areas are included, because in these areas most of the adverse impacts associated with development have occurred and further development will minimally diminish natural resources or generate new adverse impacts. The second category of low sensitivity has a low resource value since the soils are infertile and there is little or no vegetation. Since the soils are coarse and have low erosion potential, there is a relatively large distance to ground water and therefore little potential for transferring adverse impacts . 3.5.5 Development Potential 3.5.5.1 General Development Potential has three levels -- High, Medium and Low -- depending upon the presence or absence of certain development-oriented elements at 94 or near the site of the proposed development, as defined below. The Development Potential rating applies to the entire site. Different sets of Development Potential criteria are defined below for different categories of development. Also, some of the criteria vary depending upon the regional type. If a specific set of Development Potential criteria is not defined for a particular category or type of development, then the Location Policy assumes a Medium Potential for that category until specific criteria are adopted by DEP. Recommended criteria from an applicant or the public may be considered in the course of the permit application process for a particular development prior to adoption by DEP of specific criteria. 3.5.5.2 Residential Development Potential Criteria 3.5.5.2.1 Scope The Residential Development category includes housing, retirement communities, hotels, motels, minor commercial facilities of a neighborhood or community scale, and intensive, community scale recreation facilities, such as parks, ball fields, and golf courses. 3.5.5.2.2 High Potential sites meet all of the following criteria: (a) Roads - Direct access from the site to an existing paved public road with sufficient capacity to absorb satis- factorily the traffic generated by the proposed development, or in High Growth Regions, direct access to roads which either in their existing state, or with improvements included in the proposed coastal development, provide adequate capacity, or adjacent to roads that have been approved but not built. (b) Sewage - Direct access to a wastewater treatment system, including collector sewers and treatment plant, with adequate capacity to treat the sewage from the proposed development, or soils suitable for on-site sewage disposal systems that will meet applicable ground and surface water quality standards, or in High Growth Regions, access to existing or an approved wastewater treatment system. 95 (c) Infill - At least 50% of the boundaries of the site are either immediately adjacent to or directly across a public road from sites with existing residential developments or a closely related and associated type of devel- opment such as schools (See Figure 11). 3.5.5.3.3 Medium Potential sites do not meet all of the criteria for High Potential sites and do not meet any of the criteria for Low Potential sites. 3.5.5.3.4 Low Potential sites in Low or Moderate Growth Regions meet any one of following criteria : (a) Roads - Site located more than 1,000 feet from the nearest paved public road, (b) Sewage - Site located more than 1,000 feet from an adequate wastewater treatment system, or soils unsuitable for on-site sewage disposal systems, (c) Infill - No development is adjacent to the site boundary. In High Growth Regions, Low Potential sites meet either of the following criteria: (a) Roads - Site located more than 1,000 feet from the nearest existing paved or proposed public road, or (b) Sewage - Site located more than 1,000 feet from existing or approved adequate wastewater treatment system. (c) Infill - No requirement. 3.5.5.3 Major Commercial and Industrial Development Potential Criteria 3.5.5.3.1 Scope The Major Commercial and Industrial Devel- opment category includes all industrial development, warehouses, manufacturing plants, wholesale and major regional shopping centers, and major parking facili- ties . 96 Figure 11 INFILL DIAGRAM j y •-•■• I DEVELOPED [ I UNDEVELOPED THIS IS INFILL < 507. 0^ BOUNDARY LENGTHS THIS IS INFILL l ■•■! DEvELOPEO I I UNDEVELOPED 1 THIS IS NOT INFILL lv.v.v.1 OEVELOPED 1 I UNDEVELOPED 97 3.5.5.3.2 High Potential sites meet all of the following criteria: (a) Roads - Direct access from the site to a paved public road with sufficient capacity to absorb satisfactorily the traffic generated by the proposed development, or in High Growth Regions direct access to roads which either in their existing state, or with improvements included in the proposed development, provide adequate capacity. Sites shall also be within two miles of an existing intersection with a limited access highway, parkway, or expressway, or for industrial development, be a site within one-half mile of a freight rail line with adequate capacity for the needs of the industrial development and with an agreement to build a spur to serve the industrial development. (b) Sewage - Direct access to a waste- water treatment system, including collector sewers and treatment plant, with adequate capacity to treat the sewage from the proposed development, or soils suitable for on-site sewage disposal systems that will meet applicable ground and surface water quality standards. In High Growth Regions, where the existing sewage collection or treatment capacity is inadequate and the soils are unsuit- able for septic systems, an applicant may include an agreement with a sewage authority to increase service to provide the required capacity. This will qualify the proposal for a high potential rating, provided that secondary impact analysis demonstrates that any development likely to be induced by new sewage capacity above the requirements of the proposal is acceptable . (c) Infill - A part of the site boundary shall be either immediately adjacent to, or immediately across a road from, 98 existing major commercial or indus- trial development. 3.5.5.3.3 Medium Potential sites do not meet all of the criteria for High Potential sites and do not meet any of the criteria for Low Potential sites. 3.5.5.3.4 Low Potential sites meet any one of the following criteria: (a) Roads - A site located more than 1,000 feet from the nearest paved public road and more than 5 miles from the nearest intersection with a limited access highway, parkway or expressway, except in High Growth Regions where the site may be located more than 1,000 feet from the nearest paved public road. (b) Infill - A site located more than one-half mile from the nearest exist- ing commerical or industrial develop- ment of more than 20,000 square feet building area. 3.5.5.3 Campground Development Potential Criteria 3.5.5.3.1 Scope A campground development provides facili- ties for visitors to enjoy the natural resources of the coast. Typically, this type of development seeks sites somewhat isolated from other development and with access to water, beach, forest and other natural amenities. 3.5.5.3.2 High Potential sites meet all of the following criteria: (a) Roads - Sites shall have direct access to a paved public or private road of adequate capacity to serve the needs of the development. (b) Sewage - Direct access to a wastewater treatment system, including collector sewers and treatment plant, with adequate capacity to treat the sewage from the proposed development, or soils suitable for on-site sewage disposal systems that will meet applicable ground and surface water quality standards. 99 (c) Region - The region surrounding the site is natural, undeveloped and contains either beaches, streams, or forests, and is readily accessible by foot to campground users. 3.5.5.3.3 Medium Potential sites do not meet all of the criteria for High Potential sites and do not meet any of the criteria for low potential sites. 3.5.5.3.4 Low Potential sites meet any one of the following criteria: (a) Roads - More than one-half mile to the nearest public paved road. (b) Sewage - More than 1,000 feet to the nearest sewer with sufficient capacity for the needs of the development and soils unsuitable for subsurface sewage disposal systems. (c) Region - The region surrounding the site Is at least partially developed or is not accessible by foot to campground users. 3.5.5.4 Energy Facility Development Potential Criteria [This section is reserved pending completion of joint coastal energy facility siting studies by DEP and NJDOE. In the interim, the development potential of energy facilities is assumed to be moderate.] 3.5.5.5 Rationale High Development Potential sites satisfy the major siting requirements of coastal uses and may be most desirable from the developer's viewpoint. The Development Potential factor also considers the extent to which the development of a site would carry out the basic coastal policy to concentrate the pattern of development by serving as infill to existing patterns of development, or whether the proposed development site would extend or scatter the pattern of development. DEP recognizes that other factors may be important in siting decisions from a developer's perspective. Use of the development potential factor stresses the advantages of existing settled areas and emphasizes the disadvantages of sparsely settled areas in determining the accept- ability of locations. This factor promotes efficient capital investment in public infrastructure and community facilities, as well as conservation of open space . 100 3.5.6 Definition of Acceptable Intensity of Development 3.5.6.1 General The Location Policy for Land Areas is expressed in terms of three acceptable intensit it ies of develop- ment of the site or parts of a site, as determined by consulting the Land Acceptability Tables for the appropriate region. The acceptable intensities of development are expressed in terms of maximum and minimum acceptable percentages of the site, or of different parts of a site, that may be, or must be used for structures, herbs and shrubs, or forests. Permeable paving provides a 10% bonus over the permitted maximum level of structures and impervious paving. 3.5.6.2 High Intensity Development This level of development permits extensive develop- ment of paving and structures. Typically, if analy- sis showed that most of a large area was acceptable for intensive development, the landscape that would be produced would be urban or heavily industri- alized. The photomaps below show examples of typical High Intensity Development landscapes. 101 For parts of a site classified for High Intensity Development, the acceptable range of development is: High Intensity Deve lopment Maximum Minimum Structures and Impervious Paving 80% Permeable Paving 90% Herb and Shrub 95% 5% (Dash symbol (-) indicates no maximum or minimum) Forest 5% This range allows most of each part of the site in this category to be developed with structures or paving, while preserving at least a small minimum of open space in herbs, shrubs and trees for micro- climate control, aquifer recharge and visual screen- ing. A developer planning to use pervious paving can, as a bonus, develop a larger percentage of the area. The required percentage of forest shall either be preserved, or, if there is no forest on the site, shall be planted. Tree species shall be those of the native mature forest, and saplings shall be at least 6 feet high at a minimum density of 1 per 100 sq. ft. Forest areas shall be protected from tramp- ling. Shrubs and herbs shall be suitable to the substrate conditions. In the acid sandy soils common in the coastal area, this requirement excludes many species common in more inland areas. High Intensity Development must be compatible in density with its surrounding region. 3.5.6.3 Moderate Intensity Development At this level of development, between 30 and 40 percent of an area can be developed in paving and structures. Typically, if analysis showed that most of a large area was acceptable for moderate intensity development, the landscape that would be produced would be suburban. The photomaps below show examples of Moderate Intensity Development landscapes. For parts of a site classified for moderate intensity development, the acceptable range of development elements is as follows: Moderate Intensity Development Maximum Minimum Structures and Impervious Paving 30% Permeable Paving 40% Herb and Shrub 80% Forest 20% This range allows, for example, development of residential subdivisions of up to approximately 4 dwelling units per acre or, if the porous paving allowance is used and the dwellings are clustered, up to approximately 8 dwelling units per acre. A minimum 20 percent of forest is required to ensure that forest vegetation is preserved or planted for microclimate control, energy conservation, soil stabilization, aquifer recharge and wildlife habitat. Where the site has no existing forest, this percen- tage shall be met by planting native forest species of the mature forest. It is not intended that this should be costly planting. Whip saplings (less than 3 feet high) at a density of 1 per 200 square feet are acceptable. The forested areas shall be protected from trampling. The herbs and shrubs shall be adapted to the environmental conditions of the site to reduce the adverse impacts associated with extensive liming, fertilization and irrigation. The acid sandy soils common in coastal areas exclude many species common in inland areas, including most lawn grasses. 3.5.6.4 Low Intensity Development At this level of development intensity, the existing conditions of the site are not to be disturbed, with removal of vegetation for clearing or maintenance 103 J purposes, and no grading, paving or structures. Typically the landscape of Low Intensity Development areas would be rural, agricultural, or forest, as shown below in the photomaps. 3.5.7 Land Acceptability Tables 3.5.7.1 General The Land Acceptability Tables, one for each of the three regional growth types, indicate the acceptable intensity of development of a site or parts of a site, for each of the nine possible combinations of Environmental Sensitivity and Development Potential factors in each table. Since Development Potential applies to an entire site, each site can have a maximum of three different levels of acceptable intensity, if it has three areas with different levels of Environmental Sensitivity. 104 3.5.7.2 Land Acceptability Table: High Crowth Region (Northern, Central, and Absecon-Somers Point Regions) ACCEPTABLE DEVELOPMENT ENVIRONMENTAL DEVELOPMENT POTENTIAL SENSITIVITY INTENSITY Line High Moderate Low Number High Medium Low Low Medium High Intensity Intensity Intensity IX X X ' 8 X X XX X X XX X X X X 105 3.5.7.3 Land Acceptability Table: Moderate Growth Region (Southern, Western Ocean, and Barnegat Corridor Regions) DEVELOPMENT POTENTIAL ENVIRONMENTAL SENSITIVITY ACCEPTABLE DEVELOPMENT INTENSITY Line High Moderate Low Number High Medium Low Low Medium High Intensity Intensity Intensity X X X 5 6 7 8 9 X X X X X X X X X 106 3.5.7.4 Land Acceptability Table: Low Growth Region (Mul lica-Southern Ocean, Great Egg Harbor River Basin, and Delaware Bayshore Regions) DEVELOPMENT POTENTIAL ENVIRONMENTAL SENSITIVITY ACCEPTABLE DEVELOPMENT INTENSITY Line Number High Medium Low Low Medium High High Intensity Moderate Intensity Low Intensity X X 2 X 3 X • 4 X 5 X 6 X 7 X 8 X 9 X X X X X X X X 107 3.5.7.5 Rationale The Land Acceptability Tables represent a striking of balances between the environmental sensitivity and development potential of sites, and balances among regions, in order to indicate both which land areas are appropriate locations for development and how the design of the development should use the land fea- tures of the site. • Environmental Sensitivity is weighed more heavily in Low Growth Regions than in High Growth Regions. Development Potential is weighed more heavily in High Growth Regions. The ten regions of the coast are divided into three regional growth types as follows: High Growth: Northern, Central (excluding Western Ocean County and Barnegat Corridor) and Absecon-Somers Point; Medium Growth: Western Ocean County, Barnegat Corridor, and Southern; Low Growth: Delaware Bayshore, Mullica- Southern Ocean and Great Egg Harbor River Basin. The definition and rationale for the geographic distribution and general growth policies are dis- cussed in Chapter Three. These general growth policies are the basis for the distribution of the development acceptability. The three land accept- ability tables show that in high growth areas, development potential is favored to promote growth, and in low growth areas environmental sensitivity is favored to promote conservation. This general policy affects the tables as follows: High Growth Regions (Northern, Central, and Absecon- Somers Point) General The general policy in these regions is to promote growth through infill and lightly limited extension. In the Northern and Absecon areas, most growth will take place in high potential infill sites because of the pattern and density of existing development. In the eastern Central region, growth may occur through both infill and extension. The question here is how much to limit the extension and scattering of devel- opment so that orderly growth is promoted that does not induce sprawl without unreasonably interfering with the sequence in which sites are developed. 108 In this high growth category, the criteria of both high and low development potential are changed to make it easier to obtain a high or medium ranking. For example, proposals that have adequate access to roads and sewers that have been approved but not built may qualify for high development potential status. Proposals that are within 1,000' of roads and sewers that have been approved but are not built qualify for medium development potential. In these areas of planned growth, the requirement that a site must be infill to qualify for medium development potential does not apply. This definition identifies areas where growth is currently planned and then assigns acceptable development intensities as if the infrastructure were in place, which allows non- sequential development. The definition of levels of environmental sensitivity is the same throughout the tables. Lines 1, 2, 3 In these lines development potential is high. Basically these are infill sites. In a high growth area these are prime development areas, satisfying the policy of concentration, so development potential is weighed heavily. Line 1. There is no conflict in this line. Sites with high development potential and low environmental sensitivity are suitable for any intensity of devel- opment compatible with their surroundings. Line 2. There is little conflict in this line. In high growth areas the high development potential overrides medium environmental sensitivity. Impacts can generally be contained by mitigation. Development of any intensity compatible with the surroundings is therefore appropriate to promote growth. Line 3. This is a line of high conflict. Development in these areas encroaches upon fertile forests and forested areas around streams with wet high percola- tion soils. However, because of the high potential and high growth designations, moderate intensity development is considered acceptable to promote growth. Development on sites, or parts of sites, that are included on this line shall minimize dis- turbance to the maximum extent practicable and shall distribute the limited areas of structures and paving acceptable in the moderate intensity class as much as possible in areas with a deeper water table and less valuable forest. Mitigation measures to reduce ground and surface water impacts are essential. 109 Lines 4, 5, 6 In these three lines the development potential moves to medium. In high growth areas development potential is also weighed heavily, though less than in the first three lines. The balance is designed to conserve the limited areas of high sensitivity that occur in high growth regions as open space for surrounding developments. Line 4. The environmental sensitivity is low and development of any compatible intensity is appropriate to promote growth . Line 5. Development potential overrides the moderate envi- ronmental sensitivity to promote growth. The accept- able development intensity is high, rather than medium, because the resource loss is moderate and, to promote clustering, intensive growth is desirable. The open space necessary in - a developing high growth region is better provided in larger contiguous areas which may also conserve high sensitivity land types, than dispersed through lower density development in moderately sensitivity areas. Line 6. This is a line of conflict. Here high environmental sensitivity overrides development potential. Almost all the high sensitivity areas in the high growth regions are limited areas of forested Atsion, Lake- wood or Klej soils adjacent to streams and water bodies. In these moderate development potential growth extension areas, the preservation of these water related areas is desirable for a number of reasons . - They are linked to the water's edge corridors and so many become parks and wildlife habitats linked to an integrated non vehicular movement system providing recreation and diversity for surrounding areas of development. - They conserve the most valuable and sensitive land areas of a developing region improving water quality and adding to the mitigating effects of the water's edge areas. - Development of these areas is relatively difficult and expensive: vegetation must be cleared, filling is necessary for foundations and paving and special mitigation measures are necessary for the release of sewage and runoff effluents. Conservation therefore benefits both the community and the environment. 110 Lines 7, 8, 9 In these three lines, development potential is low, sites are distant from existing or approved roads and sewers, and soils are unsuitable for septic systems. The criteria for low development potential in high growth areas allows scattered non-sequential development in areas where growth is planned. Environmental sensitivity must be weighed more heavily in these three lines to prevent sprawl into unsewered areas where soils are unsuitable for septic systems. This is particularly common in the sandy soils of high growth regions. Line 7. This is the only line of these three where conflict arises between the policy of promoting development in high growth areas and the policy of discouraging sprawl. The criteria for low potential in high growth areas are designed more narrowly than in other areas to allow most sites to qualify for medium development potential. Environmental sensitivity overrides development potential in this line to restrict scattered development in unsewered sandy soils . Lines 8 & 9 In these two lines, environmental sensitivity over- rides development potential to prevent scattered development into areas of low potential where resource loss and impacts are of concern. Medium Growth Areas (Western Ocean County, Barnegat Corridor, and Southern) General The general policy in these areas is to promote nodal growth based on existing centers of development and to limit ribbon and scattered development along minor roads. It is desirable in these areas to promote settlement patterns that could be served by public transportation systems, particularly buses. Because of this policy, development acceptability is more limited in areas of extension. Environmental sensitivity is weighed more heavily than in high growth areas. The criteria for inclusion in high and medium development categories are also more rigorous for this reason. Sites must be adjacent to existing roads and sewers to qualify for high potential and adjacent to existing developed sites and within 1,000 feet of existing roads and sewers to qualify for medium potential. These more rigorous standards are set to increase the limitations to sprawl in moderate growth areas. Ill Lines 1, 2, 3 In these three lines, development potential is high, sites infill or round off, and the necessary infrastructure is available. These are the nodes where growth is to be promoted. Development poten- tial is weighed more heavily than environmental sensit ivity . Lines 1 & 2 Here development potential overrides environmental sensitivity. The acceptable development intensity is kept high in both lines to promote clustering in the growth nodes. Line 3. This is a line of conflict, with development en- croaching upon highly sensitive areas. In order to promote concentration at nodes, development potential partly overrides environmental sensitivity to permit moderate intensity development. Developers building on sites or parts of sites that are regulated by this line shall place structures and paving in a way that avoids the most sensitive parts of the area as much as possible and mitigate impacts according to the Resource Policies. Lines 4, 5, 6 In these three lines, development potential is medium, sites are extensions of existing development and within moderate distances of roads and sewers. If development acceptability is moderate or high, ribbon development along roads is possible conflict- ing with the policy of nodal development. In moderate growth regions in the south, extensive land areas fall within the Farmland Conservation Area. In western Ocean County, there are few land areas adjacent to existing roads. Little ribbon development is therefore possible. To allow limited growth, development potential partly overrides environmental sensitivity in all but the most sensi- tive areas to allow moderate intensity development. Lines 4 & 5 Here moderate intensity development is acceptable to allow very limited extensions of existing road- side developments. Line 6. Here the most sensitive areas are conserved from ribbon development both to prevent sprawl in moderate growth areas and to protect valued and sensitive land areas. Lines 7, 8, 9 In these areas development potential is low, sites are distant from roads, and sewers and soils are unsuitable for septic tanks. To prevent scattered sprawl development in limited growth areas, the acceptable intensity of development is low. 112 Low Growth Areas (Delaware Bayshore, Mul lica-Southern Ocean Great Egg "Harbor River Basin) General The general policy in these areas is that conserva- tion is more important than development and environ- mental sensitivity is therefore weighed more heavily than other areas. In the Delaware Bayshore, the concern is the conservation of agricultural land. In v the Mullica-Southern Ocean and Great Egg Harbor River Basin regions the concern is conservation of the natural environment. The spread of development must, therefore, be highly restricted. In order to satisfy these policies, development has been limited to infilling and rounding off in areas of moderate and low environmental sensitivity. Lines 1 & 2 These lines show moderate intensity development acceptable in infill sites. This allows a limited amount of growth within existing settlements espe- cially where development had leapfrogged in the past leaving pockets of undeveloped land. Lines 3 to 9 In these lines development is restricted in low growth areas either because the lower development potential implies ribbon or scattered sprawl in conflict with the subregional growth policy or, to conserve the environmentally sensitive areas which are more valuable in low growth areas than elsewhere. 3.5.8 Determination of Location Acceptability The location acceptability of a coastal development proposed for Land Area is determined by comparing the site plan of the proposed development, and the proposed percentages of the site to be used for structures, paving, herb and shrub vegetation, and forest vegetation, with the acceptable minimum and maximum percentages of the site to be used for structures, paving, herb and shrub vegetation, and forest vegetation, as specified in the three levels of acceptable development intensity that apply to the site or parts of the site according to the Land Acceptability Tables. The percentages of the proposed develop- ment's site plan shall conform with the percentages determined using the Land Acceptability Tables, to the maximum extent practicable . 3.6 Policy on Location of Linear Development A linear development, such as but not limited to a road, sewer line, or offshore pipeline, that must connect two points to function shall comply vith the specific location policies to determine the most accept- able route, to the maximum extent practicable. If part of the proposed alignment of a linear development is found to be unacceptable under the U.3 specific location policies, that alignment (perhaps not the least pos- sible distance) may nonetheless be acceptable, provided the following conditions are met: (a) there is no prudent or feasible alternative alignment which would have less impact on sensitive areas, (b) there will be no permanent or long term loss of unique or irreplace- able areas, (c) appropriate measures will be used to mitigate adverse environmental impacts to the maximum extent feasible, such as restoration of disturbed vegetation, habitats, and land and water features, (d) the alignment is located on or in existing transportation corridors and alignments, to the maximum extent practicable. 3.7 General Location Policy A location may be acceptable for development under the specific location policies above, but the DEP may reject or conditionally approve the proposed development of the location as reasonably necessary to: (a) promote the public health, safety, and welfare, * (b) protect public and private property, wildlife and marine fisheries, and . (c) preserve, protect and enhance the natural environment. 114 4.0 USE POLICIES 4.1 Purpose 4.2 Housing 4.3 Resort-Recreation 4.4 Energy 4.5 Public Facility 4.6 Industry-Commerce 4.7 Ports 4.8 Coastal Engineering ****************************************************************************** 4.1 Purpose Many types of development seek locations in the coastal zone. The second stage in the screening process of the Coastal Resource and Development Policies spells out a set of policies for particular uses of coastal resources. The Use Policies often reinforce and highlight Location Policies. 4.2 Housing Use Policies 4.2.1 Definition Housing in the Bay and Ocean Shore Segment includes both large and small developments of single family detached houses, multi-family units with apartments or town houses, high rise buildings and mixed use developments. The Housing Poli- cies which follow will apply to all proposed housing on wet- lands or riparian lands and to housing projects of 25 or more units in other parts of the Bay and Ocean Shore Segment. 4.2.2 Water's Edge Housing Policy New housing development is prohibited in Water Areas and the Natural Water's Edge. The stabilization of existing lagoons through revegetation, bulkheading or other means is condi- tionally acceptable provided that the conditions of the Retained Water's Edge and Filled Water's Edge are satisfied. Rationale Housing is not dependent on water access, and does not qualify for any exceptions to the policy of restricting development in sensitive areas. Housing in these areas would require new lagoons, dredging, and filling. 115 4.2.3 Cluster Development Policy Housing developments that cluster dwelling units on the areas of sites most suitable for development are encouraged. Rationale Clustering is defined as an increase of net density realized by reducing the size of private lots and retaining or increasing the gross density of a project. The open space that is pro- duced by clustering can be returned to the community as common open space. The location policies define certain sensitive areas where development is limited. When such areas are present on a site, the acceptable gross density may have to be reduced, unless the net density can be increased by clustering. Where municipal zoning requires minimum lot sizes that preclude clustering, applicants are encouraged to seek local approval, through new ordinances and/or variances, to maintain the permissible gross density by clustering. DEP will aid this endeavor by providing a rationale and testimony, as appro- priate, especially for the protection of sensitive areas. Cluster developments lessen the impact of construction by preserving valued soil, open space, vegetation and aquifer recharge resources. Some cluster developments also increase insulation and reduce energy consumption due to shared walls between units. 4.2.4 Residential Mix Policy Housing development that provides for a mix of dwelling types and for persons of different age and income groups is encouraged Rationale The quality of life improves when residential areas provide a diversity of dwelling types, at different cost levels, so that people of different ages, life styles, and incomes can live together, rather than the traditional pattern of highly strati- fied development that has taken place in the process of subur- banization of the coastal zone. At the same, the coastal region already provides specialized dwelling types for parti- cular groups, such as senior citizens. 4.2.5 Fair Share Housing Policy Housing developments which contribute to a municipality's efforts to accommodate its fair share of low and moderate income housing are encouraged. Housing developments shall provide least cost housing where feasible. 116 Rationale In March 1975, the New Jersey Supreme Court, in Southern Burlington County NAACP v. The Township of Mount Laurel 67 N.J. 151 (1975) declared that a municipality must "presumptively make realistically possible an appropriate variety and choice of housing ... at least to the extent of the municipality's fair share of the present and prospective regional need ..." In April 1976, the Governor issued Executive Order No. 35, (amended by Executive Order No. 46 of December 19 76) which directed the Division of State and Regional Planning in the Department of Community Affairs to prepare a statewide fair share housing allocation plan. Developments in the coastal zone that contribute to meeting defined municipal fair shares are encouraged. 4.2.6 Barrier Free Design Policy Residential developments without barrier free design in public areas are prohibited, and multi-family developments of more than 250 units without barrier free design in some of the units are discouraged. Further, barrier free design must be included in all buildings and spaces used by the general public accord- ing to State Law (N.J.S.A. 52:32-4). Barrier free design is encouraged in units of private residential developments, especially at grade changes in public space within those private developments. Rationale Housing in the coastal zone should be available to all people, including those whose physical handicaps have precluded such accommodation in the past. "Barrier Free Design Regulation", published by the State of New Jersey, Department of the Treas- ury, Division of Building and Construction on July 15, 1977, defines the barrier free design requirements of public buildings 4.2.7 Housing and Public Transportation Policy The development of housing at locations and densities that contribute to the feasibility of public transportation is encouraged. Rationale Public health and welfare concerns about air quality, as well as the necessity to limit energy consumption, require that public policies and decisions encourage public transportation. 117 4.2.8 Housing Rehabilitation Policy Residential development involving the demolition and rede- velopment of existing structures is discouraged, unless rehabilitation of the existing structures is demonstrated to be impractical, infeasible, and contrary to the public interest. Rationale The preservation, restoration, or rehabilitation of existing structures is preferable to demolition and redevelopment in order to save structures and neighborhoods with historic and aesthetic interest. Rehabilitation can often be more labor intensive than construction of a new building which means that more jobs are created" and less energy is consumed through the production of new building materials. Applicants who build on developed sites must demonstrate that existing structures cannot be rehabilitated. 4.2.9 High Rise Housing Policy All high rise housing developments, defined as structures for residential use more than six (6) stories or more than sixty (60) feet from grade, are encouraged to locate in areas of existing high density, high-rise and/or intense settlements. High rise housing is acceptable subject to the following condit ions : (a) high-rise structures within the view of coastal waters must be separated from coastal waters by at least one public road or an equivalent park distance, (b) the largest dimension of any high-rise structure must be oriented perpendicular to the beach or coastal waters, (c) the proposed structure must not block the view of dunes, beaches, horizons, inlets, bays, or oceans that are currently enjoyed from existing residential structures, public roads or pathways, (d) the structure must not overshadow beaches between May and October, (e) the proposed structure must be in character with the sur- rounding transitional heights and residential densities, or be in character with a comprehensive development scheme requiring an increase in height and density, (f) the proposed structure must not have an adverse impact on traffic and air quality. 118 Rationale Considerable recent residential development along the coast, from the Palisades to the barrier islands, has taken the form of high-rise, high-density towers. While conserving of land, some high-rise structures represent a visual intrusion, cause adverse traffic impacts, and casts shadows on beaches. Under CAFRA, DEP has approved several high-rise structures in Atlantic City and denied two CAFRA applications for high-rise proposals, one in downtown Toms River (Ocean County) and another in Brigantine (Atlantic County) . This policy strikes a balance, between banning high-rises and allowing tall residen- tial structures anywhere in the coastal zone. 4.2.10 Large Scale Planned Residential Development Policy Large scale, free-standing planned residential developments, such as planned unit developments, shall be evaluated on a case-by-case basis to determine the extent that the proposed development carries out the basic coastal policy to concentrate the pattern of development, contributes to regional housing needs, and does not cause significant adverse secondary impacts. Rationale Large planned communities offer advantages of scale in creating new modes of development and providing housing. Such large projects may, however, detract from or alter appropriate regional patterns of development. 4.3 Resort/Recreational Use Policies 4.3.1 Definition Resort-recreation uses include the wide range of small and large developments attracted to and often dependent upon locations along the coast, particularly in the Bay and Ocean Shore Segment. Resort-recreation uses include hotels, motels, marinas, boating facilities, campgrounds, amusement piers, parks and recreational structures such as bath houses and fishing piers. 4.3.2 Recreation Priority Policy Resort/Recreation Uses shall have priority in the Bay and Ocean Shore Segment over all other uses, with highest priority reserved for those uses that serve a greater rather than a lesser number of people, and those uses that provide facilities for people of all ages and for people with physical handicaps. 119 Rationale The national and state interests in recreation are clearly indicated in the coastal economy and are essential for the quality of life. The coastal environment provides numerous opportunities for recreation which should be expanded by public policy and action, including priority setting. 4.3.3 New Recreation Areas Policy Recreation areas shall be incorporated in the design of all residential and industrial development, to the maximum extent practicable. Rationale 4.3.4 The recent national recognition that recreation is physically and mentally important for people of all ages should be accom- modated by new development. Recreational facilities are important near places of employment, as well as in residential areas, since many people only have opportunities for recreation during the working day. Public Access Policy All public and private resort-recreation development adjacent to coastal waters must provide for reasonable public access to the shorefront. Rationale Shorefront areas maintained and protected by state tax reve- nues, as well as by local funds, must be made available to all state residents and visitors. Access includes visual access to the shorefront, direct physical access, and indirect physical access such as provision of transportation and supporting facilities . 4.3.5 Hotel-Motel Developments Policy New, expanded or improved hotel-motel developments are condi- tionally acceptable in existing resort-oriented areas, provided that the development: (a) complies with the high-rise housing policy, if appropriate, (b) promotes public recreational uses of the coast, and (c) is compatible in scale, site design, and architecture with surrounding development. Hotel-motel devel- opments are discouraged in other areas. Resort areas are existing concentrations of development that serve visitors to the coastal zone. 120 Rationale Hotels and motels enable New Jersey residents and tourists to visit the coast. They thereby support the tourist economy of the area. The buildings must be located, however, so they do not harm or threaten the resources which attract people to the coast. 4.3.6 Hotel-Casino Development Policy Hotel-casino development in Atlantic City shall be located in the city's traditional resort area (along the Boardwalk), to the maximum extent practicable. Hotel-casino development is discouraged in existing residential areas and in areas where access by public transportation and between the proposed hotel-casino and the Boardwalk is limited. Rehabilitation and renovation of existing hotels for hotel-casino purposes is encouraged. Hotel-casino development shall comply with the high-rise housing policy. Rationale: This hotel-casino location policy serves several purposes: (1) protecting Atlantic City's existing diverse neighborhoods, (2) facilitating public tranpsortation solutions (such as bus, jitney, park-and-ride, or rail) to the problem of increased access to and in Atlantic City, (3) promoting pedestrian movements, (4) reducing pressure on vehicular systems, and (5) preserving the historic and low-rise residential character of the Gardiner's Basin and Inlet area. 1 4.3.7 Marinas Policy New or expanded marinas for recreational boating are condi- tionally acceptable if: (a) the demonstrated regional demand for recreational boating facilities cannot be met by the upgrading or expansion of existing marinas, and (b) the proposed marina includes the development of an appro- priate mix of dry storage areas, public launching facili- ties, and berthing spaces, depending upon the site condi- tions and (c) the proposed marina provides adequate pump out stations for wastewater disposal from boats in a manner con- sistent with federal and state water quality laws and regulations . 121 New marinas that provide primarily for sail and oar boating are encouraged . Expansions of existing marinas shall be encouraged by limiting non-water dependent land uses that preclude support facilities for boating. Recreational boating facilities are acceptable provided that they are designed and located in order to cause minimal feas- ible interference with the commercial boating industry. Rationale The location of marinas requires the use of sensitive lands at the waters edge which exist in only limited supply and are also valued for other activities. The policies aim to ensure that the area devoted to marinas is fully and efficiently utilized to keep the size of the area required to a minimum. Facilities for sail and oar boating are encouraged because such boats consume less energy and have less of a polluting impact on the water than motor boats. A. 3.8 Amusement Piers, Parks and Boardwalks Policy New amusement piers are prohibited, except in areas with riparian grants where they are discouraged. Expanded or extended amusement piers, parks, and boardwalks at the water's edge or in the water and the on-site improvement or repair of existing amusement piers, parks and boardwalk areas are dis- couraged unless the proposed development meets the following conditions : (a) the amusement pier, parks, or boardwalk does not unreason- ably conflict with aesthetic values, ocean views, other beach uses, and wildlife functions, and (b) public access to the shorefront is not limited, and (c) the surrounding community can adequately handle the activity and uses to be generated by the proposed devel- opment. Rationale Amusement piers, amusement parks, and boardwalks form an essential element of the resort and recreational character of some of the communities fronting on the Atlantic Ocean. The carnival atmosphere of these areas provides fun and excitement 122 annually for hundreds of thousands of people. However, new piers for amusement purposes are an inappropriate use of scarce coastal resources, due to the natural hazard of the desired ocean location and the importance of maintaining the visual quality of the oceanfront. Also, amusement parks are not a water-dependent use; these facilities may be located inland on less sensitive land and water features. 4.4 Energy Use Policies 4.4.1 General Definition of Energy Uses Energy uses include facilities, plants or operations which produce, convert, distribute, or store energy. Under the Department of Energy Act, the term "energy facility" does not include an operation conducted by a retail dealer. 4.4.2 General Energy Facility Siting Procedure Policy (a) The acceptability of all proposed new or expanded coastal energy facilities shall be determined by a review process that includes both NJDEP and the New Jersey Department of Energy (N.J.S.A. 52:27F-1 et seq.) according to the procedures defined in the Memorandum of Understanding between NJDEP and NJDOE Coordination of Permit Reviews. (b) NJDOE will determine the need for future coastal energy facilities according to three basic standards. NJDOE will submit an Energy Report to DEP with its determination of the need for a coastal energy facility based on three required findings: (i) the existing sources of supply will not be adequate to meet future levels of demand, including careful consideration of the potential effects of conserva- t ion, (ii) that no better technological alternative exists to meet future levels of demand, (iii) that no better locational alternative to the proposed site exists. (c) NJDEP will determine the acceptability of coastal energy facilities using the Coastal Resource and Development Policies . (d) If NJDOE has submitted an Energy Report to DEP, the DEP decision document shall refer to the NJDOE Energy Report and indicate DEP's reasons for differences, if any, between the DEP decision and the NJDOE Energy Report. 123 (e) Where NJDOE and NJDEP disagree on the acceptability of a specific proposed coastal energy facility (for example, on a specific proposed site for one type of energy facil- ity), the disputed decision shall, in accord with state law, be submitted to the State's Energy Facility Review Board for final administrative action. Rat ionale NJDOE and NJDEP share responsibility for carrying out the energy facility siting planning and project review elements of the New Jersey Coastal Management Program. The State Energy Master Plan and its appendices, the Coastal Resource and Development Policies, and the Memorandum of Understanding between NJDEP and NJDOE provide a clear framework for decision- making by these two State agencies on the review of proposed facilities, as well as a basis for continued consultation and cooperative planning. 4.4.3 Outer Continental Shelf (PCS) Oil and Gas Exploration and Development Policy Rapid exploration of the Mid-Atlantic, North Atlantic, and other offshore areas with potential reserves of crude oil and natural gas is encouraged, as long as all related onshore activities do not conflict with existing land uses and are conducted in accordance with the policies of the program. Onshore activities for development and production of offshore hydrocarbons shall be carried out according to the specific energy facility policies of this section. Rationale The decision of the U.S. Department of Interior to lease offshore tracts for crude oil and natural gas exploration presents New Jersey with new onshore and marine-related envi- ronmental problems and opportunities (See Figure 12). New Jersey supports offshore exploration, recognizing the national need to identify new energy supplies, as long as this new industrial activity does not conflict with the State's second most important industry, tourism, which depends upon the maintenance of a high quality coastal environment. In the event that commercial finds of oil and gas are made off the Jersey coast, there may be considerable building activity during the initial years while the industry prepares for production. This activity will diminish once production gets underway. To minimize the impact of needed facilities, DEP encourages the location of OCS-related facilities in developed areas where the inf rastrucure and labor market already exist to absorb such act ivity . 124 Figure 12 OUTER CONTINENTAL SHELF OIL a GAS LEASING - _• --■*- Leased Areas (Sale No. 40) Proposed Lease Areas (Sale No. 49) 150 miles 4 During the construction of onshore oil and gas facilities, there may be an influx to the coastal zone of the marine service and engineering industry. This service sector office- oriented activity will be encouraged to locate in urban cen- ters, such as Atlantic City, which because of its proximity to OCS Lease Sale 40 has already been selected by industry as the take-off point for helicopters to the offshore rigs and plat- forms. Also, the U.S. Geological Survey (U.S.G.S.) has located its mid-Atlantic field office in Atlantic City to supervise and monitor offshore operations. 4.4.4 Onshore Support Bases Policy New or expanded onshore support bases and marine terminals to support offshore oil and gas exploration, development, and production (including facilities for work boats, crew boats, pipeline barges, helicopters, and limited, short-term storage facilities), are encouraged at locations in built-up urban areas of the state outside of the Bay and Ocean Shore Segment and discouraged in less developed areas of the coastal zone. Preferable locations for water-dependent onshore support bases include urban waterfront areas, where onshore adverse physical, economic, and institutional impacts will be less than the impacts likely to be placed on less industrially developed areas which are more dependent upon tourism and the resort industry. Small facilities for storing oil spill containment and cleanup equipment for offshore operations will, however, be accepable within the Bay and Ocean Shore Segment where such a location would facilitate and expedite offshore emergency operat ions. Rationale Offshore exploratory activity began off New Jersey in the Baltimore Canyon on March 29, 1978. If the exploratory drill- ing is successful, the offshore oil and gas industry is likely to seek onshore support bases closer to the offshore tracts than the present temporary bases established by the major oil, gas, and offshore service and supply companies at Davisville, Rhode Island. Because of shallow inlets in the Bay and Ocean Shore Segment, few locations in this part of New Jersey meet industry's siting requirements. This policy recognizes that the New Jersey coast is favored by proximity to the offshore tracts as a site for onshore staging bases, and carries out the basic policy to concentrate rather than disperse industrial development in the coastal zone. 4.7.5 Platform Fabrication Yards and Module Construction Policy Platform fabrication yards and module construction will be encouraged in built-up areas of the coastal zone, outside of the Bay and Ocean Shore Segment which have the requisite acreage, adequate industrial infrastructure, ready access to 126 the open sea, and adequate water depth, and where the operation of such a yard would not alter existing recreational uses of the ocean and waterways in the areas. Rationale If offshore exploration proves successful, the development phase of OCS activity in the Mid-Atlantic may require one or more sites for constructing the steel platforms used offshore, in addition to the platform construction yard tentatively planned for Cape Charles in Virginia. Platform yards typi- cally do not have the adverse air and water quality impacts associated with some other industries. However, platform construction yards require large tracts of land and are labor intensive. The operation of a platform construction yard could severely disrupt the economy and social fabric at less developed communities and areas. For these reasons, offshore platform construction yards are encouraged to seek locations in the already developed areas of the New Jersey coast. However, the height restrictions of bridges on the Delaware River and other New Jersey waterways may sharply limit the suitability of sites in New Jersey. Existing underutilized shipyards may be used, however, for platform module construction. 4.4.6 Repair and Maintenance Facilities Policy Repair and maintenance facilities for vessels and equipment for offshore activities will be encouraged, particularly at under- utilized existing shipyards within the Bay and Ocean Shore Segment . Rationale Existing small shipyards within the Bay and Ocean Shore Region, such as these along the Maurice River in Cumberland County, may serve valuable repair and maintenance support functions for offshore operations without requiring construction of new shipyards . 4.4.7 Pipe Coating Yards Policy Pipe coating yards are discouraged in the Bay and Ocean Shore Segment and encouraged along the Delaware River and in the area under the jurisdiction of the Port Authority of New York and New Jersey, in such communities as Middlesex, Union, Essex, and Hudson Counties. Rationale Pipe coating yards constitute an industrial activity that is generally incompatible with the suburban and rural character of the Bay and Ocean Shore Region. Further, pipe coating yards typically require 100-150 acres, and wharf space with a pre- ferred depth at the wharf of 20 to 30 feet. These siting 1-29 requirements suggest that highly industrial port areas, located outside of the Bay and Ocean Shore Region, are preferred locations. 4.4.8 Pipelines and Associated Facilities Policy Crude oil and natural gas pipelines to bring hydrocarbons from offshore New Jersey's coast to existing refineries, and oil and gas transmission and distribution systems and other new oil and natural gas pipelines will be conditionally acceptable, subject to the following conditions: (a) For safety and conservation of resources, the number of pipeline corridors, including trunk pipelines for natural gas and oil, shall be limited, to the maximum extent feasible, and designated following appropriate study and analysis by the Department of Environmental Protection and the New Jersey Department of Energy, and interested federal, state and local agencies and affected industries, (b) The pipeline corridors for landing oil or natural gas are conditionally acceptable provided they follow existing already developed or disturbed road, railroad, pipeline, or other rights-of-way (such as the Atlantic City Express- way) , to the maximum extent practicable, (c) Pipeline corridors for landing oil are prohibited in the Central Pine Barrens area of the Mullica River, Cedar Creek watersheds and portions of the Rancocas Creek and Toms River watersheds, defined as the 760 square mile region adopted by DEP as a "critical area" for sewerage purposes and non-degradation surface and ground water quality standards — see N.J.A.C. 7:9-4. 6(i), (j), and N.J.A.C. 7:9-10. 1(b) and Figure 13 — and discouraged in other undeveloped parts of the Pine Barrens, (d) Pipeline corridors for natural gas are discouraged in the Central Pine Barrens as defined above, unless the developer can demonstrate that the proposed pipeline will meet the adopted non-degradation standards for water quality and cause no long term adverse environmental impacts, (e) Proposals to construct offshore oil and gas pipelines, including all of the contemplated ancillary facilities along the pipeline route such as, for example, gas pro- cessing plants, oil storage terminals, booster stations, surge tanks, and other related facilities, shall be evaluated by DEP and the New Jersey Department of Energy, in terms of the entire new potential pipeline corridor through the State of New Jersey. 128 Figure 13 PINE BARRENS EXCLUSION PINE BARRENS VEGETATION OFFSHORE ori_ OR GAS PIPELINE EXCLUSION AREA (f) To preserve the recreational and tourism character of the coastal areas, new major pumping stations and other ancillary facilities to the offshore oil and gas pipelines shall be prohibited from locations in the Bay and Ocean Shore Segment, except for major gas processing plants and required compressor stations. Ancillary facilities shall be protected by adequate visual, sound, and vegetative buffer areas. Platforms for pumping or compressor sta- tions shall be located out of sight of the shoreline, and (g) Pipeline corridors through the state coastal waters shall, at a minimum and to the maximum extent feasible, avoid offshore munitions, chemical and waste disposal areas, heavily used waterways, geological faults, wetlands and significant fish or shellfish habitats. Pipelines shall be trenched to a depth sufficient to withstand exposure by scouring, shipgroundings, anchors, fishing and clamming and other potential obstacles on the sea floor. Rationale New Jersey recognizes that pipelines, rather than other modes of surface transportation such as tankers and barges, are the preferred and more environmentally sound method of bringing crude oil and natural gas ashore from offshore wells. Pipe- lines affect their immediate surroundings most dramatically during construction. If construction is carried out properly, there will be short term impacts, most visible during the period of revegetation . At the same time, the potential onshore effects of pipelines on the sensitive ecosystem of the coast and the Pine Barrens, and the visual, noise, and odor impacts potentially created with the ancillary facilities associated with OCS pipelines, require that New Jersey proceed cautiously and prudently in selecting pipeline corridors, specific alignments, and locations for ancillary facilities. New Jersey along with the numerous public and private interests at the local, state, and national levels involved in pipeline siting, expects to participate in the proposed intergovern- mental offshore oil and gas transportation planning process being established by the U.S. Department of Interior, Bureau of Land Management. The Federal Energy Regulatory Commission with responsibiity for siting gas pipelines, has also endorsed the concept of utility corridors. 4.4.9 Oil Refineries and Petrochemical Facilities Policy Oil refineries and petrochemical facilities are prohibited in areas where they might conflict with the resort-tourism indus- try or areas of recreational or biological value. New oil refineries and petrochemical facilities are prohibited in the 130 Bay and Ocean Shore Segment. Expansion in capacity of exist- ing oil refineries and petrochemical facilities at existing sites, which are all located outside of the Bay and Ocean Shore Segment, will be acceptable if such expansion does not violate applicable state water quality standards. Rationale Based on the best available information, oil recovered from the Baltimore Canyon and the Georges Bank is expected to be routed by pipeline and tanker to the existing New Jersey, Pennsylvania or Delaware refineries, to replace existing imported oil Consequently, no new refineries are expected to be necessary in New Jersey. However, the Draft EIS prepared by the U.S. Depart- ment of Interior on OCS Lease Sale No. 49 (May 1978, Vol. 3 p. 614) indicates that additional refinery capacity might be needed on the East Coast. With the five of the mid-Atlantic region's ten refineries (with one out-of-operation since 1974), New Jersey has already more than contributed its regional fair share of coastal lands to refineries. Also, refineries are large-scale industrial facilities that are neither coastal- dependent nor compatible with the character of the Bay and Ocean Shore Segment . 4 . 4 . 10 Gas Processing Plants Policy Gas processing plants, including partial processing plants, between the offshore pipeline landfall and commercial natural gas transmission lines shall be excluded from sites within the Bay and Ocean Shore Segment and the Central Pine Barrens Critical Area, to the maximum extent practicable, and shall be located the maximum feasible distance from the shoreline. Such plants should be located close to existing petrochemical plants to which they may provide feedstock. The siting of gas pro- cessing plants will be reviewed in terms of the total pipeline routing system. Rationale Gas processing plants will be needed if gas is found off New Jersey's shore, but these facilities do not require locations on the shoreline. Gas is best transported by pipeline. To promote the most efficient use of land, gas plants should be located close to existing gas distribution lines. Alterna- tively, where gas is associated with oil in oil pipelines, gas separation plants should be located close to refineries to which the oil pipelines will be routed. m 4.4.11 Storage of Crude Oil, Gases and Other Potentially Hazardous Liquid Substances Policy The storage of crude oil, gases and other potentially hazardous liquid substances as defined in N.J.A.C 7:1E-1.1 under the Spill Compensation and Control Act (N.J.S.A. 58:10-23.11) related to offshore oil and gas production is prohibited on barrier islands and discouraged elsewhere in the Bay and Ocean Shore Segment. Major new storage facilities for crude oil and gas, in the absence of processing facilities, will be permitted only outside the Bay and Ocean Shore Segment in the Port of New York and New Jersey and the Delaware River Port and where such storage will not contribute unacceptably to overall regional air or water quality degradation. Facilities for storing and distributing finished petroleum products on a wholesale or retail basis will be reviewed on a case-by-case basis. Rationale Major storage facilities for hazardous substances are not coastal-dependent and will not be permitted where storage might limit or conflict with recreational or open space uses of the coast. 4.4.12 Tanker Terminals Policy New or expanded tanker facilities will be acceptable only in existing ports and harbors outside of the Bay and Ocean Shore Segment where the required channel depths exist to accommodate tankers. Multi-company use of existing and new tanker ter- minals will be encouraged in the Port of New York and New Jersey and in the area bounded by the Delaware River Port Authority, where adequate infrastructure exists to accommodate the secondary impacts which may be generated by such terminals, such as processing and storage facilities. New tanker ter- minals will be discouraged on other parts of the coast, including the Bay and Ocean Shore Segment. Offshore tanker terminals and deepwater ports are discouraged from the Bay and Ocean Shore Region, pending a thorough evaluation of the implications of such a facility, on a case-by-case basis. Rationale Onshore tanker facilities pose potential adverse environmental impacts and could encourage secondary development activity that is not necessarily coastal dependent. Also, even medium sized tankers require minimum channel depths of 30 feet, which excludes locations within the Bay and Ocean Shore Region. New or expanded tanker terminals are therefore directed toward New Jersey's established port areas. Deepwater ports appear 132 attractive to industry due to increasingly larger tankers, limitations on dredging and the scarcity of waterfront land. However, a deepwater port may, depending on its location, cause severe adverse primary and secondary impacts on the built, natural, and social environment. 4.4.13 Electric Generating Stations Policy New or expanded electric generating facilities (for base load, cycling, or peaking purposes) and related facilities are conditionally acceptable subject to the following conditions: (a) The construction and operation of the proposed facility shall comply with the Coastal Resource and Development Policies, with special reference to air and water quality standards and policies on marine resources and wildlife, (b) NJDEP and NJDOE shall find that the proposed location and design of the electrical generating facility is the most prudent and feasible alternative for the production of electrical power that NJDOE has determined is needed, including a consideration, evaluation, and comparison by the applicant of alternative sites within the coastal zone and inland , (c) Fossil fuel (coal, oil or gas) generating stations shall not be located in particularly scenic or natural areas that are important to recreation and open space purposes, (d) Nuclear generating stations shall be located in generally remote, rural, and low density areas, consistent with the criteria of 10 CFR 100 (U.S. Nuclear Regulatory Commission rules- on siting nuclear generating stations and population density) and/or any other related federal regulations. In addition, NJDEP shall find that the nuclear generating facility is proposed for a location where the appropriate low population zone and population center distance are likely to be maintained around the nuclear generating facility, through techniques such as land use controls or buffer zones, (e) The construction and operation of a nuclear generating station shall not be approved unless DEP finds that the proposed method for storage and disposal of the spent fuel to be produced by the facility: (i) will be safe, (ii) conforms to standards established by the U.S. Nuclear Regulatory Commission, and (iii) will effectively remove danger to life and the environment from the radioactive 133 waste material. This finding is required under present state law (N.J.S.A. 13:19-11) and will be made consistent with judicial decisions (see Public Interest Research Group v. State of New Jersey, 152 N.J. Super. 191) and federal law. (f) The construction of electric generating facilities using renewable forms of energy such as solar radiation, wind, and water, including experimental and demonstration projects, is encouraged in the coastal zone provided that the facilities do not significantly adversely affect scenic or recreational values. Rat ionale The siting of an electric generating station is an extraor- dinary event with far-reaching impacts, when compared with the typical day-to-day decisions made under the State's coastal management program. Such siting decisions therefore require special scrutiny using: (a) the State's authority in its management of state-owned tidelands and submerged lands con- templated as sites for all or part of an electric generating station, (b) the State's regulatory authority, and (c) the State's influence in federal proceedings on aspects of the siting process. New Jersey's coastal zone, and especially the Bay and Ocean Shore Segment has experienced the consequences of several major siting decisions in the past decade and already has a diverse mix of existing, proposed, and potential fossil fuel and nuclear generating facilities, both onshore and offshore. For example, in 1978 two nuclear generating units are in operation in the coastal zone; Salem Unit I on Artificial Island on the Delaware River in Salem County and at Oyster Creek near Barnegat Bay in Ocean County. Four additional nuclear generating units are under construction in the Bay and Ocean Shore Segment and have received the appropriate federal and state approvals, including Forked River on the Oyster Creek site in Ocean County, and Salem 2 and Hope Creek 1 and 2 on Artificial Island. The Hope Creek project, which DEP approved under CAFRA in 1975, had its genesis in a project contemplated at Newbold Island in the Delaware River, less than five miles south of Trenton. In 1973, the U.S. Atomic Energy Commission (the predecessor to the Nuclear Regulatory Commission), acting in accord with the view of New Jersey, recommended that Arti- ficial Island would be a more suitable site than Newbold Island because of population density concerns. New Jersey's coastal zone is also the site of the proposed floating nuclear plant, the Atlantic Generating Station, Units 1 and 2, at a site in the Atlantic Ocean east of Little Egg Harbor; however, the sponsor of the project, Public Service Electric and Gas 134 Company, announced in 1978 a delay of at least three years in tht?. timetable for this unprecedented project. The Bay and Ocean Shore Region also includes generating stations that have used various fossil fuels depending upon the price and avail- ability of fuel as well as well as upon the applicable air quality rules. New Jersey recognizes the interstate nature of the electric power system. Some electricity is produced in New Jersey at facilities owned partially by utilities in other states and exported to those states. New Jersey also imports electricitiy produced in adjacent states. In short, New Jersey is an integral part of the Pennsylvania-New Jersey-Maryland inter- connecting grid system, importing and exporting electricity from the system at different times of the day, season and year in order to generate electricity efficiently and achieve the lowest achievable cost to electricity users throughout this multi-state region. New Jersey also recognizes that most electric generating facilities may not be coastal-dependent but do require access to vast quantities of cooling waters, a siting factor that, from the perspective of utilities, increases the attractiveness of coastal locations. This siting policy strikes a balance among various competing national, regional, and state interest in coastal resources, and recognizes some of the differences in the siting requirements of fossil fuel and nuclear generating stations. The policy directs fossil fuel stations toward built up areas in order to preserve and protect particularly scenic and natural areas important to recreation and open space purposes. New Jersey has articulated this policy with a conscious recog- nition of the state's progress in attaining and maintaining high air quality. Given the use of appropriate control tech- nology, coal-fired generating stations, for example, appear feasible at various coastal locations. The siting of coal- fired power plants in urban areas also promotes efficient energy use due to the proximity of power plants to load centers, The nuclear siting policy recognizes public concern for the disposal of spent fuel, as mandated in 1973 by the New Jersey Legislature in CAFRA. 4*4.14 Liquefied Natural Gas (LNG) Facilities Policy New marine terminals and associated facilities for trans- ferring, tranforming and storing liquefied natural gas, prior to distribution by pipeline, are discouraged in the Bay and Ocean Shore Region unless the proposed facility is located or constructed so as to neither unduly endanger human life nor property nor otherwise impair the public health, safety and 135 welfare, as required by N.J.S.A. 13:19-10f, and complies with the Coastal Resource and Development Policies. In determining the acceptability of proposed LNG facilities, DEP shall also consider siting criteria such as: (a) applicable federal siting criteria, (b) the risks inherent in tankering LNG along New Jersey's water ways and rivers, (c) the risks inherent in transferring LNG onshore, and (d) the compatibility of the facility with surrounding land uses, population densities, and concentrations of commercial or industrial activity. Rationale New Jersey's policy on LNG facility siting recognizes the responsibilities of various federal agencies, including the Coast Guard and Office of Pipeline Safety Operations in the U.S. Department of Transportation, the Economic Regulatory Administration in the U.S. Department of Energy (US DOE) , and the independent Federal Energy Regulatory Commission within USDOE, for management of various aspects of the siting and operations of LNG facilities. New Jersey seeks and welcomes rigorous and consistent federal LNG siting standards. In fact, the State of New Jersey petitioned the former Federal Power Commission in May 1976 for the issuance of such siting cri- teria. The petition (RM76-13) is still under consideration by the Federal Energy Regulatory Commission. LNG facilities have been proposed in the 1970's in New Jersey's coastal region along the Delaware River at sites in Logan Township (Transco) and West Deptford Township (Tenneco) in Gloucester County, as well as on Staten Island, New York (Distrigas and Eastcogas) , with a proposed natural gas pipeline connection to New Jersey under the Arthur Kill. As of mid- 1978, none of these proposals have received the required federal approvals. The New Jersey policy on LNG policy is based in part on the results of the Federal Power Commission staff alternative LNG terminal site analysis and recommendation that the West Deptford site not be approved (see Federal Power Commission, Bureau of Natural Gas, Draft Environmental Impact Statement for the Construction and Operation of a Liquefied Natural Gas Import Terminal in West Deptford, New Jersey , Docket No. CP 76-16, Tenneco LNG, Inc., December 1976). The tankering, transfer, and storage of LNG pose significant risks to public health, safety and welfare and may cause serious adverse environmental impacts which may not be restricted to one state, given the likely potential locations of LNG ter- minals along interstate waterways. New Jersey therefore recommends that the siting of LNG facilities be treated as a regional issue on an interstate basis, ideally by the adoption of consistent federal siting criteria. At the same time, NJDEP and NJDOE will continue to explore the potential and likely impacts of onshore and offshore sites for LNG facilities. 136 4.5 Public Facility Use Policies 4.5.1 Definition 1 Public Facilities includes a broad range of public works for the production, transfer, transmission, and recovery of water, sewerage and other utilities, as well as public transportation facilities. The presence of an adequate infrastructure makes possible future development and responds to the needs created by present development. 4.5.2 General Public Facilities Policy New or expanded public facility development is conditionally acceptable provided that: (a) The public facility would serve a demonstrated need that cannot be met by an existing public facility at the site or region, (b) Alternate technologies, including conservation, are an impractical or infeasible approach to meeting all or part of the need for the public facility, and (c) The public facility would not generate significant second- ary impacts inconsistent with the Coastal Resource and Development Policies. Rationale Public, facilities provide important public service, but can also adversely affect the coastal environment and economy if improperly located, designed, or constructed. In particular, the secondary impacts of new public facility construction and the need for the facility require scrutiny. 4.5.3 Roads Policy Proposals to build new roads or expand existing roads must demonstrate a need, and indicate why alternate solutions, including, as appropriate, upgrading existing roads and/or the use of public transportation are not feasible. Rationale Only minor road improvements are likely to take place in the more densely populated coastal regions, which have adequate road systems. Selective road improvements should always be evaluated in the context of public transportation alternatives. New or expanded roads should facilitate public transportation and pedestrian and bicycle use. 137 4.5.4 Public Transportation Policy New and improved needed public transportation facilities, including bus, rail, air, and boat travel and related parking facilities, are encouraged. Rationale A basic premise of the coastal management program is concen- trating the pattern of development, in part to facilitate public transportation. While new air transportation facilities appear unlikely, bus facilities and parking systems appear appropriate, particularly as a solution to the transportation problems of barrier island resorts. 4.5.5 Bicycle and Foot Paths and Fishing Platforms Policy The construction of bicycle and foot paths, in residential projects, and fishing catwalks and platforms on new or improved bridges, is required, to the maximum extent practicable. Rationale Paths for pedestrians and bicycles provide active outdoor recreation and may lead to reduced dependency on cars, par- ticularly with increasingly compact settlement patterns. Fishing platforms also provide for outdoor recreation and must be seriously considered in the design process for new or improved bridges. 4.5.6 Solid Waste Policy Solid waste conservation techniques such as recycling, resource and energy recovery and volume reduction, must be explored and proved infeasible before a solid waste disposal facility, preferably at a regional scale, is deemed acceptable. Sanitary landfills that locate in the upland must demonstrate that the leachate will not adversely impact the ground or surface waters, by using a lining and/or a leachate filtration plant. Acceptable plans for restoring the site must be sub- mitted with the original proposal. Rationale Solid waste is a resource whose potential for recovery must be evalauted before locating new sanitary landfills. Further, regional solutions to solid waste management are mandated under 138 State law. In addition, the development of new landfills is subject to the regulations of DEP's Solid Waste Administration. 4.5.7 Wastewater Treatment Policy (a) Coastal developments that do not employ the most energy- efficient wastewater treatment system practicable are discouraged. Energy efficient systems are encouraged. (b) On-site sewage disposal systems are encouraged where the design, installation, operation, and maintenance will be consistent with applicable ground and surface water quality statutes and regulations. (c) Wastewater treatment systems that recharge the ground- water with highly treated effluents are encouraged, provided that consistently high quality effluents and acceptable recharge techniques are demonstrated. Rationale Wastewater treatment systems range in scale from on-site sewage disposal systems to regional treatment systems with centralized plans, major intercepters , and ocean outfalls. In the past decade considerable wastewater treatment system construction has taken place or been authorized, in the more developed parts of the Bay and Ocean Shore Segment, with corresponding improvements in water quality. New wastewater treatment systems must be carefully eval- uated in terms of water quality impacts and secondary impacts . 4. 6 Industry-Commerce Uses Policies 4.6.1 Definition Industry-commerce uses includes a wide variety of industrial processing, manufacturing, storage, distribution, service sector, retail and similar uses. 4.6.2 General Industry-Commerce Policy New or expanded coastal dependent industrial or commercial development is encouraged at or adjacent to existing sites, to the maximum extent practicable. Marine resource dependent industry, such as commercial fishing, is encouraged and shall have priority over other waterfront uses, except for recrea- tion. If existing sites are demonstrated to be impractical or the development is not coastal-dependent, then new sites may be acceptable provided that: 139 (a) The development can demonstrate a high ratio of jobs created to the acres of the site used for the development, and (b) the development poses no conflict with resort-recreation uses of the coast and is compatible with adjacent uses. Rat ionale The sensitive land and water features of the Bay and Ocean Shore Segment, the relatively small amount of available land, and the significant adverse impacts of many forms of industrial development mandate a restrictive policy. At the same time, new and expanded light industrial parks and waterfront fish processing activities are desirable uses at appropriate loca- tions. 4.6.3 Mining Policy New or expanded mining operations on land, and directly related development, for the extraction and/or processing of construc- tion sand, industrial sand, gravel, ilmenite, glauconite, and other minerals are conditionally acceptable, provided that the following conditions are met (mining is otherwise exempted from the Land Areas policy, but shall comply with the Special Areas, Water Areas, and Water's Edge Areas policies): (a) the location of mining operations, such as pits, plants, pipelines, and access roads, causes minimal practicable disturbance to significant wildlife habitats, such as lowland swamp forests and stands of mature vegetation, (b) the location of new or expanded mining operations is generally contiguous with or adjacent to sites of existing mining operations, or probable locations of mineral resources on nearby sites, in order to concentrate and not scatter the location of mineral extraction areas within a region, recognizing that mineral resources occur only in certain limited areas, (c) adequate buffer areas are provided, using existing vegeta- tion and/or new vegetation and landscaping, to provide maximum feasible screening of new on-land extractive activities and related processing from roads, water bodies, marshes, and recreation areas, (d) the mine development and reclamation plan, including the timetable, phasing, and activities of the new or expanded mining operations, has been designed with explicit and adequate consideration of the ultimate reclamation, restoration, and reuse of the site and use of its sur- rounding region, once the mineral resource is depleted, 140 (e) the mineral extraction areas shall be reclaimed, contoured and replanted, to ensure slope stability, control erosion, afford adequate drainage, provide as natural an appearance as possible, and increase the recreation potential of the restored site, (f) the mining operations control and minimize to the maximum extent practicable adverse impacts from noise and dust, surface water pollution, disposal of spoils and waste materials and conform to all applicable federal, state, and local regulations and standards, (g) the mineral extraction will not have a substantial or long-lasting adverse impact on coastal resources including local economies, after the initial, adverse impact of removal of vegetation, habitat, and soils, and not includ- ing the long term irretrievable impact of use of the non-renewable mineral resource. Rationale New Jersey's coastal zone includes important deposits of minerals. Mining these non-renewable resources is vital to certain sectors of the economy of selected regions of the coastal zone, the entire state and in some cases the nation, depending upon the specific type of mineral. For example, the high quality silica sands of Cumberland County supply an essential raw material for New Jersey's glass industry. Other industrial sands mined and processed in Cumberland County serve as basic ingredients in the iron and steel foundry industry. Ilmenite deposits in Ocean County produce titanium dioxide which is used in paint pigment. Construction grade sands are used in virtually all construction activity. 1 The extraction and processing of minerals from mines on land also produces short and long term adverse environmental impacts. For example, open-pit mining removes all vegetation and soil, destroys wildlife habitat, changes the visual quality of the landscape, and irretrievably consumes the depletable mineral resource. Many of thse impacts can be ameliorated by incorporating proper, imaginative and aggressive reclamation and restoration planning into the mine development process. However, the location of mineral deposits is an unquestionably limiting factor on the location of mining operations. Reason- able balances must therefore be struct between competing and conflicting uses of lands with mineral deposits. Depending upon the diversity and strength of a local economy, depletion of mineral deposits through extraction may lead to serious adverse long term economic consequences, particularly if the planned reclamation does not replace the direct economic cotir ribution of the mining industry. The non-renewable nature of mineral resources must also be considered carefully in light of the uses of some of the mined minerals. For example, 141 certain high quality silica sands, coupled with another non- renewable resource, natural gas, are used to make non-return- able glass bottles. 4.6.4 Parking Facilities Policy Major parking lots, structures, garages and large paved areas serving industrial-commercial complexes are conditionally acceptable, provided that the extent of paved surfaces is minimized, the development does not cause unacceptable air or water quality degradation and the development is compatible with its surroundings and satisfies the Location Policies. Rationale Parking facilities provide a necessary transportation facility, but one that may cause air and water impacts. 4.7 Ports Uses Policy Port-related development and marine commerce [shall be] is acceptable only in established port areas. Water dependent development shall not be preempted by non water dependent development in these areas. New major port facilities will only be permitted when there is a clear demonstration of the inadequacy of an existing port. In such cases, expansion may only occur adjacent to an existing built-up port. Rationale New Jersey's port areas are a regional, national and inter- national resource. The existing ports, located largely north and west of the Bay and Ocean Shore Segment, contain unused and underused areas which can be refurbished to meet increases in demand. The state must nevertheless allow for possible unanticipated future needs for port areas. Also, limited water-dependent, port-related activity is acceptable at the small comercial ports of harbors in the Bay and Ocean Shore Region, such as commercial fishing support facilities and emergency oil spill clean up storage. 4.8 Coastal Engineering Use Policies 4.8.1 Definition Coastal Engineering includes a variety of structural and non-structural measures to manage water areas and the shoreline for natural effects of erosion, storms, and sediment and sand movement. Beach nourishment, sand fences, pedestrian control on dunes, stabilization of dunes, dune restoration projects, 142 and dredged spoil disposal are all examples of coastal engi- neering. The policies on Water Areas and Special Areas are directly relevant to most coastal engineering uses. 4.8.2 Shore Protection Priorities Policy Non-structural solutions to shoreline erosion problems are preferred over structural solutions. The inf easibility and impracticality of a non-structural solution must be demon- strated before structural solutions may be deemed acceptable. Rationale Past reliance on costly structural shore protection measures, such as groins and jetties to retard the longshore transport of sand by the littoral drift, and seawalls, bulkheads and revet- ments to prevent waves from reaching erodible materials has proven to be an inadequate and incomplete solution. Bulkheads are deteriorating. Groins are starving the natural longshore transport of sand. Man has modified and destroyed dunes that provide natural protection against storm surges. Inlets frequently develop shoals which prevent safe navigation. The natural processes along the shoreline must be carefully eval- uated over reaches or regions of the coast to determine the likely long term effects of shore protection measures. Non- structural measures realistically recognize the inevitability of the ocean's advancement and the migration of barrier islands. Yet this concern must be balanced against the short term benefits of structures to protect the present intense recreational use of the narrow strip of oceanfront land in New Jersey. 4.8.3 Dune Management Policy Dune restoration and maintenance projects as a no n- structural shore protection measure, including sand fencing, revegetation, additions of non-toxic appropriately sized material, control of pedestrian and vehicular traffic, are encouraged. Rationale A natural dune field provides a strong measure of natural protection for adjacent land uses. 4.8.4 Beach Nourishment Policy Beach nourishment projects, as a non-structural shore protec- tion measure, are encouraged, provided that: (a) the particle size of the fill material is compatible with the existing beach K3 material to ensure that the new material will not be removed to a greater extent than the existing material would be by normal tidal fluctuations, (b) the elevation, width, slope, and form of proposed beach nourishment project are compatible with the characteristics of the existing beach, and (c) the sediment deposition will not cause unacceptable shoaling in downdrift inlets and navigation channels. Rationale Beach nourishment depends upon an adequate quantity and suit- able quality of beach nourishment material, otherwise the material may quickly return to the ocean. 4.8.5 Structural Shore Protection Policy The construction of new shore protection structures, to retard long shore transport or prevent waves from reaching erodible material, including jetties, groins and seawalls, and the modification, repair or removal of existing structures, is acceptable only under the following conditions: (a) The structure is essential to protect heavily used public recreation beach areas in danger from erosion, (b) The structure is essential to protect coastal-dependent uses, (c) The structure is essential to protect existing structures and infrastructure in built-up, urban shorefront areas in danger from erosion, (d) The structure is designed to eliminate or mitigate adverse impacts on local shoreline sand supply, (e) The structure will not create net adverse shoreline sand movement conditions downdrift, including erosion or shoaling, (f) The structure will protect and enhance public access to the shorefront, including fishing and other recreation opportunities, (g) The structure will cause minimum feasible adverse impact to living marine resources, and (h) The structure is an essential element of a regional shoreline management plan. 144 Rationale Structural solutions to shore protection are appropriate and essential at certain locations, given the existing pattern of urbanization of New Jersey's shoreline. However, the creation, repair, or removal of publicly-funded shore protection struc- tures must serve clear and broad public purposes and must be undertaken only with a clear understanding of the regional consequences of natural shoreline sand systems. 4.8.6 Dredged Spoil Disposal Definition Dredged spoil disposal is the discharge on Land, Water's Edge, or Water Areas of sediments, known as spoils, removed during dredging operations. Policy The acceptability of a site for dredged spoil disposal depends first upon the extent of contamination of the spoil material. If the dredge spoils are contaminated typically with heavy metals and other toxic materials, and not decontaminated, then the dredge spoil disposal is conditionally acceptable at only approved and established land based disposal areas, new land sites or ocean sites, under the following conditions: (a) ocean sites may be used only a land disposal site is not feasible, (b) sediments disposed in the ocean will not be carried by currents inland of the 18' contour, (c) the mater- ials disposed in the ocean will cause minimal feasible inter- ference with living marine resources, and (d) sediments dis- posed on land, such as borrow pits are covered with appropriate clean material that is similar in texture to surrounding soils. If the dredge spoils are not contaminated, or are decontami- nated, then disposal in the deep ocean (depth greater than 18') is conditionally acceptable provided that a land disposal site is not fesible. The use of uncontaminated dredge material of appropriate quality and particle size for beach nourishment is encouraged. The use of uncontaminated "dredge material for purposes such as restoring landscape, enhancing farming areas, building islands, creating marshes, capping contaminated spoil areas, and making new wildlife habitats will be evaluated on a case-by-case basis. Rationale Dredge spoil disposal is an essential coastal land and water use that is linked inextricably to the coastal economy and has serious impacts on the coastal environment. Evolving state and federal policies on protection of the marine and estuarine coastal environment have sharply limited the creation of new 145 dredge spoil disposal areas in the past decade. Yet selective dredging must continue if inlets and navigation channels are to be maintained. The coastal policy recognizes the importance of this use of coastal resources. 146 .5.0 RESOURCE POLICIES 5.1 Purpose The third step in the screening process of the Coastal Resource and Development Policies involves a review of a proposed development in terras of its effects on various resources of the built and natural environment of the coastal zone, both at the proposed site as well as in its sur- rounding region. These policies serve as standards to which proposed development must adhere. 5.2 Marine Fish and Fisheries 5.2.1 Policy Coastal actions are conditionally acceptable to the extent that minimal feasible interference is caused to the natural func- tioning of marine fish and fisheries, including the reproduc- tive and migratory patterns of estuarine and marine estuarine dependent species of finfish and shellfish. 5.2.2. Rationale Finfish (freshwater, estuarine, and marine) and shellfish resources provide significant recreation experiences for residents of New Jersey and interstate visitors. These resources also help the State's economy, by leading to expen- ditures approximately $375.8 million per year, with fishing yielding aproximately $217.2 million and shellfishing yielding $158.6 million. DEP also estimates that 1,868,000 people participated in marine/estuarine recreational fishing in 19 76 in New Jersey. Commercial landings for all finfish and shell- fish in New Jersey during 1976 were 226,988,000 lbs., valued at $34.55 million dockside and an estimated $86.3 million retail value, according to Department of Commerce statistics. Interference with fish resources includes blockage of ana- dromous finfish spawning runs, reduction in the critical capacity of estuaries to function as finfish nursery areas, reduction of summer dissolved oxygen level below 4 ppm (leading to anoxic phytoplankton blooms) , introduction of heavy metals or other toxic agents into coastal water, rise in ambient water temperature regime especially during summer and fall periods, unacceptable increases in turbidity levels, siltation, or resuspension of toxic agents, and introduction of untreated effluents from domestic and industrial sources. 5.3 Water Quality 5.3.1 Policy Coastal development shall conform with all applicable surface and groundwater quality statutes, regulations and standards, as established and administered by DEP's Division of Water Resources (see N.J.A.C. 7 :9-4.0 et seq .) . 147 5.3.2 Rationale Most of the natural, commercial, recreational, industrial, and aesthetic resources of the coastal zone affect or are affected by surface and ground water quality. Specific coastal zone water quality problems include pollution by nutrients, patho- genic organisms, toxic and hazardous wastes, thermal dis- charges, suspended sediments, and saline intrusion into fresh- water resources. These pollutants can lower water quality sufficiently to prevent desired water uses. This policy incorporates by reference New Jersey's water quality related statutes and regulations adopted as required by the federal Clean Water Act of 1977. 5.4 Surface Water Use 5.4.1 Policy Coastal development shall demonstrate that the anticipated surface water demand of the facility will not exceed the capacity, including phased planned increases, of the local potable water supply system pr reserve capacity and that construction of the facility will not cause unacceptable surface water disturbances, such as drawdown, bottom scour, or alteration of flow patterns. 5.4.2 Rationale The surface waters of the New Jersey coastal zone are an invaluable natural resource. Fresh waters maintain the pro- pagation of established and natural biota. They serve as commercial, recreational, industrial, agricultural, and aes- thetic resources. Any development that affects surface water quantity and quality will have a negative impact on these uses. 5.5 Groundwater Use 5.5.1 Policy Coastal development shall demonstrate, to the maximum extent practicable, that the anticipated groundwater withdrawal demand of the development will not cause salinity intrusions into present potable groundwater well fields, significantly lower the water table, or significantly decrease the base flow of adjacent water courses. Coastal development shall conform with all applicable DEP requirements for groundwater withdrawal and water diversion rights. 5.5.2 Rationale Groundwater, defined as water beneath the land surface, is a primary source of water for drinking and industrial use. In 148 some areas of the coastal zone, especially areas in Monmouth, Salem and Cape May Counties, excessive amounts of groundwater are being withdrawn. The problem stems from the overpumping of groundwater and reduction of aquifer recharge caused by increased development and population. This has led to a lowering of the water table that may change the base flow conditions of streams, or increase salt water intrusion into the groundwater. 5.6 Runoff Policy (a) Coastal development shall minimize off-site storm water runoff, increase on-site infiltration and simulate natural drainage systems, to the maximum extent practicable, depending upon the soil, land, vegetation, topography, existing drainage system and other site characteristics . (b) The quantity of off-site storm water runoff, both during the con- struction and operation of a development, shall not exceed the quantity of runoff that would occur under the existing pre-develop- ment conditions of the site, to the maximum extent practicable. For some sites, with existing pre-development conditions such as culti- vated land, bare earth, or partial paving, the requirement to reduce runoff to the maximum extent practicable means to achieve the runoff standard for good condition pasture land (SCS TR-55 Curve Number 39) which may result in a greater quantity of on-site retention and infiltration than under the existing pre-development conditions. (c) If the site is in a built-up urban area, or if the coastal runoff policy conflicts with runoff management requirements of local governmental agencies, then the acceptable quantity of off-site storawater runoff may exceed the standard of existing pre-develop- ment site conditions, provided that DEP can determine, on a case-by- case basis, that the following requirements are met: (i) the runoff policy of (a) and (b) of existing pre-development site conditions has been met using the best available tech- nology authorized by local regulations, (ii) the off-site storawater sewers do not discharge into sanitary sewer systems, (iii) the amount of pollutants in the storawater runoff discharge to surface water bodies is minimized and the discharge satis- fies, to the maximum extent practicable, the applicable DEP- established surface water quality standards of the receiving water body using measures such as sediment traps, oil skimmers and vacuum street cleaners, and (iv) the volume of storawater discharged off site will not cause significant adverse impacts to the receiving water body, and must conform with the requirements of the DEP Stream Encroach- ment Permit Program (N.J.S.A. 58:1-26 and rules). 149 (d) Coastal development shall maximize the time of concentration of runoff and maximize the recharge of runoff onsite, to the maximum extent practicable, using measures such as retention or detention ponds, recharge trenches,, porous paving, contour terraces, and swale-lagoon systems. Groundwater infiltration areas shall be sited as far horizontally from surface water and as far vertically from groundwater as is practicable, and should avoid soils with a seasonal high water table of less than 3 feet with high percoation rates. (e) In designing the site plan, including detention and retention facilities, the stormwater runoff calculations shall be based on 24 hour storm of 25 years and 100 years (where appropriate) frequencies, using standard methods of calculation, such as the so-called "Rational Method" or the SCS Tabular Method of Determining Peak Discharge, as defined in U.S. Department of Agriculture, Soil Conservation Service, Urban Hydrology for Small Watersheds, Tech- nical Release No. 55, January 1975. Rationale Stormwater runoff is a natural process of surface hydrology. Development changes this process as the volume and rate of runoff increase as the natural landscape is modified and replaced by impervious surfaces. Unless managed properly, stormwater runoff may adversely affect the coastal environment in several ways: increased erosion, increased storm surges in streams, destruction of flood plain vegetation, degraded water quality from contaminants in runoff from paving, increased turbidity, decreased aquatic productivity, lowered water tables, reduced groundwater quality supply. The policies anticipate these concerns and treat a development site as a closed system within which drainage systems must be designed to interfere as little as possible with the natural process of surface and groundwater hydrology. The policies intentionally provide a measure of flexibility in stormwater runoff management that recognizes differences in both site conditions and approaches to runoff management by governmental, agencies. Examples of stormwater runoff management techniques may be found in two source books: J. Tourbier and R. West- macott, Water Resources Protection Measures in Land Development - A Handbook (Newark, Delaware: University of Delaware, Water Resources Center, April 1974) and New Jersey State Soil Conservation Committee, Standards for Soil Erosion and Sediment Control in New Jersey (Trenton, New Jersey: State Soil Conservation Committee, 1972). 5.7 Soil Erosion and Sedimentation <> 5.7.1 Policy Coastal development is required to restrict soil loss and control soil erosion and sedimentation during the construc- tion of development to the standards specified in the Soil Erosion and Sediment Control Act (Chapter 251, P.L. 1975), as administered by the State Conservation Committee and local Soil Conservation Districts under the joint authority of DEP and the N.J. Department of Agriculture. 150 5.7.2 Rationale Erosion is the detachment and movement of soil or rock par- ticles by water, wind, ice or gravity. Erosion can be signi- ficantly increased by human activities including construction practices such as the clearance of vegetation, excavation, grading, and stockpiling, agricultural cultivation and silvi- culture (timber harvesting). Erosion and sedimentation causes numerous adverse environmental impacts, such as loss of productive soils, destabilization of slopes, increased flooding due to reduced capacity of storm sewers and natural drainage channels, increased turbidity and siltation of streams, and decreased wetland productivity. By controlling the erosion generated on a site within the site boundary, these adverse impacts are contained and prevented from reaching and affecting coastal waters. Many techniques are available to control sediment loss, includ- ing minimizing the area of soil exposed at one time, baling and contour terracing the edge of construction, mulching and using swale lagoon drainage systems, and building wet and dry detention basins. Other illustrative techniques are found in Standards for Soil Erosion and Sediment Control in New Jersey available from the State Soil Conservation Committee. 5.8 Vegetation 5.8.1 Policy Coastal development shall preserve, to the maximum extent practicable, existing vegetation within a development site. Coastal development shall plant new vegetation, particularly appropriate native coastal species, to the maximum extent practicable. 5.8.2 Rationale The steady loss of vegetation is a nearly inevitable result of urbanization. Terrestrial vegetation stabilizes soil, retards erosion and runoff, promotes infiltration of surface water, reduces the force of wind, provides foods, shelter and breeding sites for wildlife, and adds to aesthetic values for recreation and domestic life. Trees release life-giving oxygen, filter particulate pollutants, provide foods and fuel, with no energy input necessary by man. Because each site is unique, the degree of vegetative preservation required will depend upon the environmental conditions within and adjacent to the development site. In general, the greater the intensity of development permitted, the less vegetation preservation required. "Appropriate native coastal species" means that species selec- tion must reflect the natural physiological limitations of species to survive in distinct habitats, which include all environmental processes (natural and artificial) that operate within a site. Non-suitable species plantings will do poorly 151 or die, or, if preserved through an intensive maintenance program of 'ph' adjustment fertilization and irrigation, will cause unacceptable ground and surface water impacts. New vegetative plantings should reflect regional geophysical suitability. Illustrative appropriate species can be grouped into three categories: (a) Barrier Beach Sites - Plants tolerant of salt spray and occasional saline flooding, such as American holly, red cedar, black cherry, beach plum, beach grass, bayberry, beach heather, etc. (b) Pine Barrens Sites - Plants tolerant of infertile sandy soils, frequent fires, and acidic water, such as pitch and short-leaf pines, Atlantic white-cedar, dogwood, American holly, oaks, blueberry, etc. (c) Inner Coastal Plain and Southern Outer Coastal Plain - Plants compatible with fertile, well drained soils; such as oaks, beach, hickory, dogwood, black cherry, white pine, gray birch, laurel, etc. Within these regional groupings, the selection of individual species should take into consideration the depth to seasonal high groundwater table. Species which provide food for wild- life or other desirable traits are favored for new planting. 5.9 Wildlife 5.9.1 Policy The design of coastal development shall incorporate management techniques which favor or maintain native wildlife habitats, diversity, and numbers, to the maximum extent practicable. Development that would significantly restrict the movement of wildlife through the site to adjacent habitats and open space areas is discouraged. 5.9.2. Rationale Wildlife isl important natural resource of the coast. Desirable on-site wildlife management techniques which could mitigate adverse impacts, and favor minimal feasible interference include preservation and dedication to open space of sensitive habitats of sufficient width, especially along drainageways and waterways, to preserve wildlife movement corridors, place- ment of nesting boxes, and planting of vegetative wildlife food species. 152 5.10 Air 5.10.1 Policies Coastal development shall conform to all applicable state and federal emissions regulations, ambient air quality standards, prevention of significant deterioration criteria, nonattainment criteria, and other regulations and guidelines established to meet requirements of the federal Clean Air Act as amended in 1977. 5.10.2. Rationale The attainment and maintenance of high air quality is vital for the health of and welfare of New Jersey's residents and visi- tors. The federal Clean Air Act Amendments of 1977 require almost all states to develop a State Implementation Plan (SIP) to attain National Ambient Air Quality Standards (NAAQS) for photochemical oxidants. Since the principal source of hydrocarbons and oxides of nitrogen, the precursors of oxidants, is the automobile, the strategies to attain the NAAQS must include, in addition to emission control on vehicles and industrial sources, measures to reduce vehicle miles travelled, by inducing a shift to car pools and other modes of transportation. The Coastal Program policies on transportation address these objectives, as do the policies concerning concentration of development. Furthermore, new major stationary sources of hydrocarbons will continue to be subject to restrictions, such as the current requirement to offset emissions. Emission tradeoffs may allow for the siting of new facilities in non attainment areas of the coastal zone. The severity of the restrictions will depend on the progress made in reducing emissions during the next decade* The problem of attainment and maintenance of carbon monoxide NAAQS in urban areas such as Atlantic City and Toms River is one primarily of traffic congestion. DEP's Division of Environmental Quality administers the State's air quality program and determines compliance with the coastal policy on air quality. Also, under the Clean Air Act Amendments of 19 77, major wild- erness areas of over 5,000 acres are mandatory Class I-Preven- tion of Significant Deterioration (PSD) or Pristine Areas. In New Jersey's Bay and Ocean Shore Segment, this designation applies to the wilderness areas of the Brigantine National Wildlife Refuge, and restricts industrial activities within the region that could significantly affect the air quality of the wilderness areas. This may pose conflicts in the future as the pace and intensity of the development of the Atlantic City region increases. 5.11 Public Services 5.11.1 Definition Public services include a variety of essential facilities provided by either public or private institutions. Health, education, welfare, fire, police and community facilities are principal examples. Others such as child care and home services for the elderly may be important for certain develop- ments . 5.11.2 Policy Coastal development shall insure, to the maximum extent prac- ticable, that adequate levels of public services will be provided to meet the additional demands for public services likely to be generated by the proposed development. 5.11.3 Rationale New development places additional demands on public services. Unless the existing supply can satisfy these demands or exten- sions to the supply can be available when development is complete, the deficiencies may adversely affect the health, safety, or welfare of the proposed new users. In coastal areas there are special problems associated with the high seasonal population fluctuation and the relatively high percentage of senior citizens who typically make greater demands on health services. These coastal issues make the demonstration of adequate service supply during peak demand periods an especially critical issue. 5.12 Public Access to the Shorefront 5.12.1 Policy Coastal development adjacent to coastal waters shall provide maximum practicable public access to the shorefront, including both beach and built-up waterfront areas and both visual and physical access. Shorefront development that limits public access and the diversity of shorefront experiences is discour- aged . 5.12.2 Rationale New Jersey's coastal waters and adjacent shorelands are valu- able public resources which are limited in area. They are protected by New Jersey's Shore Protection and Waterway Main- tenance Program and patrolled by the New Jersey Marine Police which are both financed by all state residents. 154 Past developments have often blocked the waters from public view and/or made physical access to the waterfront difficult or impossible. In addition, some municipalities which own land immediately inland of the state-owned riparian land have enacted laws or regulations making waterfront access incon- venient, expensive or impossible for non-residents. These policies have served to limit the opportunity of inland resi- dents for waterfront recreational activities. Projects such as the experimental Beach Shuttle operated by DEP in the summer of 1977 to Island Beach State Park from Toms River serve to carry out the policy of providing maximum practical public access to the shorefront. The basis for the Shorefront Access policy came in part from the research in the report entitled Public Access to the Oceanfront Beaches: A Report to the Governor and the Legis- lature of New Jersey. April 1977, prepared in part by DEP-OCZM. 5.13 Scenic Resources and Design 5.13.1 Policy New coastal development that is visually compatible, in terms of scale, height, materials, color, texture, and geometry of building and site design, with surrounding development and coastal resources, to the maximum extent practicable, is encouraged. Coastal development that is significantly dif- ferent in design and visual impact than existing development is discouraged, unless the new development upgrades the scenic and aesthetic attributes of a site and its region. 5.13.2 Rationale Inappropriate design that ignores the coastal landscape and existing patterns and scale of development can degrade the visual environment and appearance of communities. New Jersey's coastal regions have strong architectural traditions which should be encouraged. 5.14 Secondary Impacts 5.14.1 Policy Coastal development that induces further development shall demonstrate, to the maximum extent practicable, that the secondary impacts of the development will satisfy the Coastal Resource and Development Policies. The level of detail and areas of emphasis of the secondary impact analysis are expected to vary depending upon the type of development. Minor projects may not even require such an anaylsis. Transportation and wastewater treatment systems are the principal types of devel- opment that require a secondary impact analysis, but major industrial, energy, commercial, residential, and other projects may also require a rigorous secondary impact analysis. 155 Rationale Further development stimulated by new development and the cumulative effects of coastal development, including develop- ment not directly managed by DEP, may gradually adversely affect the coastal environment. The capacity of existing infrastructure does, however, limit the amount and geographic extent of possible additional development. Secondary impact analysis, particularly of proposed infrastructure, enables DEP to ascertain that the direct, short term effects, and the indirect or secondary effects of a proposed development will be consistent with the basic objectives of the Coastal Management Program. Secondary impact analysis enables DEP to evaluate likely cumulative impacts in the course of decision-making on specific projects. Secondary impact analysis must include, to an appropriate level of detail, an analysis of the likely geographic extent of induced development, an assessment of likely point and non- point air and water quality impacts, and evaluation of the induced development in terms of all the applicable Coastal Resource and Development Policies. A study by the New Jersey Department of Community Affairs, Division of State and Regional Planning, Secondary Impacts of Regional Sewer Systems (1975) provides one model for carrying out secondary impact analysis. 5.15 Buffers and Compatibility of Uses 5.15.1 Policy Development shall be compatible with adjacent land and water types, as defined in the Location Policies, to the maximum extent practicable. In particular, development that is likely to adversely affect adjacent or surrounding Water's Edge Areas or Special Areas is discouraged. Developments that are incompatible with adjacent developments shall provide vegetated and other types of buffers at the site boundary of sufficient width to reduce the incompatibility, to the maximum extent practicable. 5.15.2 Rationale The juxtaposition of different uses may cause various problems. One activity may cause people to experience noise, dust, fumes, odors, or other undesirable effects. The most common incompatibility of this type in the Bay and Ocean Shore Segment are housing developments adjacent to industry, high speed roads or railroads. The juxtapositions of very different housing densities or of housing and agriculture also have potential for conflict. Vegetated buffer areas between uses can overcome, or at least ameliorate, many of these problems, especially if 156 earth berms are included. Buffers can benefit users of both areas. Where farms operate near a residential area, for example, a buffer can protect the residents from the noise and smells of farming, while protecting the farmers from local regulations controlling the hours in which machinery can be used . 5.16 Solid Waste 5.16.1 Policy Coastal development shall recover material and energy from solid waste, to the maximum extent practicable, as required by the New Jersey Solid Waste Management Act (N.J.S.A. 13:1E-1 et seq.) and the federal Resource Conservation and Recovery Act (P.L. 94-580). If resource and energy recovery are imprac- tical, solid waste, including litter, trash, refuse, and demolition debris shall be handled and disposed of in a manner acceptable to the standards of DEP's Solid Waste Administration. 5.16.2 Rationale Solid waste is a valuable resource to be recovered and managed on a district-wide basis. The review of individual projects in terms of solid waste will consider the waste type and volume expected, disposal method employed, and effects on disposal sites. 5.17 Energy Conservation 5.17.1 Policy Coastal development shall incorporate energy conservation techniques, including passive and active solar power, to the maximum extent practicable. 5.17.2 Rationale This policy assists the Departments of Energy and Community Affairs in implementing New Jersey's Energy Conservation Plan , State Energy Master Plan , and the energy subcode of the Uniform Construction Code (N.J.S.A. 52:27D-119 et seq .) . New Jersey's 1977 Energy Conservation Plan administered by the New Jersey Department of Energy derives from the federal Energy Policy and Conservation Act of 1975. The plan contains 22 measures to reduce the state's energy use by 6% by 1980. The measures include thermal and lighting efficiency standards, provision of car and van pools, and waste oil recycling. These measures are intended to save New Jersey approximately 110 trillion British Thermal Units annually (or the equivalent of 5,000 barrels a day). The Department of Community Affairs is responsible for the implementation of the energy subcode of the state building code. Possible energy conservation techniques 157 include the siting of buildings with an understanding of the micro-climate conditions of a site, use of clustering, provi- sion of bicycle paths, and the location of housing close to public transportation. 5 .18 Neighborhoods and Special Communities 5.18.1 Policy Coastal development that protects and enhances the physical coherence in neighborhoods and special communities is encour- aged. Development that would adversely affect neighborhoods and special communities is discouraged. 5.18.2 Rationale Neighborhoods, small towns, and communities are discrete districts and areas along the coast with a degree of social stability as well as special architectural, ethnic, cultural, aesthetic, or historical qualities that distinguish these places from other areas along the coast. The diversity of the coast is in part due to the existence and vitality of various small towns, communities, and neighborhoods within larger urban areas. These neighborhoods that display a strong sense of community should be valued, reinforced, and preserved. 5.19 Traffic 5.19.1 Policy Coastal development that induces marine and/or land traffic is conditionally acceptable provided that it does^cause unaccept- able congestion and safety problems. 5.19.2 Rationale The improper location of development may exacerbate existing traffic problems or produce new difficulties in the marine and/or land traffic system. Coastal development should be designed and located in a manner to cause the least possible disturbance to traffic systems, or be rejected. 5.20 High Percolation Wet Soils 5.20.1 Definition High Percolation Wet Soils are soils with a depth to seasonal high water table less than or equal to five feet and with a loamy sand or coarser soil, as indicated in National Cooperative Soil Surveys prepared by the U.S. Department of Agriculture, Soil Conservation Service, and contiguous with stream channels. 158 5.20.2 Policy Coastal development shall avoid filling, building, paving, disturbing soil, or discharging effluent to groundwater on High Percolation Wet Soils, to the maximum extent practicable. In particular, coastal development shall be designed such that onsite roads, parking lots, structures, subsurface sewage disposal areas, and discharge basins avoid High Percolation Wet Soils, particularly in the proximity of surface water bodies and wells. Development that is determined by DEP to be accept- able in these areas shall conform to the wet soils policy. 5.20.3 Rationale Soils with shallow seasonal high water tables and sandy or gravelly textures facilitate percolation, the vertical and horizontal movement of groundwater. Coarse sediments, however, have a limited capacity to trap and filter contaminants. Further, the high lateral transmissibility along the top of shallow seasonal high water tables aggravates the problems of water borne pollutants eventually reaching surface water bodies or wells. New Jersey's standards for subsurface sewage dis- posal systems (so-called Chapter 199, N.J.A.C. 7:9-2.1 et seq.) recognize this concern by requiring that the bottom of the trench or bed of disposal fields be at least four feet above the seasonal high groundwater table. 5.21 Wet Soils 5.21.1 Definition Wet soils are soils with a depth to seasonal high water table less than, or equal to, three feet, as delineated by the U.S. Soil Conservation Service in a National Cooperative Soil Survey. 5.21.2 Policy Development in wet soils is discouraged unless the following conditions are met: (a) Basements are prohibited. (b) ^-Effective engineering techniques are used to ensure the stability of foundations and protect them from movement, including excavating organic substrates and backfilling with less compressible sediments, short-bore piles, special footings and floating slabs. Techniques that minimize interference with natural ground and surface water movement, such as short-bore pile and suspended slab techniques, are encouraged. (c) The air spaces beneath ground floor slabs are adequately ventilated, using mechnical ventilation, if necessary. i c;q (d) The stability of roads and paved areas assured, using techniques such as removal of compressible sediments and replacement with a firmer substrate and thicker than normal road base. (e) Subsurface pipes are stable and waterproofed to avoid contamination of groundwater, using dewatering of trenches during construction, extra pipe base thickness, waterproof gaskets, sealed joints and other techniques as necessary. (f) Porous concrete is prohibited, although other porous pave- ments such as lattice concrete or gravel are acceptable. (g) The lowering of the water table by pumping that would disturb adapted vegetation is prohibited. 5.22 Fertile Soils 5.22.1 Definition Fertile soils are soils that have Agricultural Capability Ratings, as defined by the U.S. Department of Agriculture, Soil Conservation Service in the National Cooperative Soil Surveys of I, II, Hie and a K value of less than 0.20, and IIIw if well drained, or Woodland Suitability Rating of 1. Policy Coastal development shall avoid disturbing fertile soils, to the maximum extent practicable, and shall carefully remove, stockpile and reuse the topsoil when onsite fertile soils cannot be preserved. 5.22.2 Rationale Fertile soils are the product of millenia of soil forming processes and, once paved, are irreperably lost. The Farm Con- servation Special Area policy preserves large contigious acreages of fertile soils for commercial production of food and fiber, but smaller areas of fertile soils in the open spaces between development are a natural resource of considerable value. The landscaping of development is promoted by fertile soils but, more importantly, the preservation of fertile soils near development offers the opportunity of home gardens. Applicants shall show the distribution of fertile soils rela- tive to proposed structures and paving in site plans. If these development elements are shown on fertile soils, applicants shall demonstrate why alternative positions are not feasible. 160 4.23 Flood Hazard Areas 4.23.1 Definition Along rivers and streams, the flood hazard area (fluvial) consists of the floodway and any additional portions of the flood plain inundated during flood periods where the flow exceeds the capacity of the channel. The floodway consists of the stream channel and portions of the adjacent flood plain necessary to carry and discharge the flood water or flood flow of any natural stream. Floodways can carry waters of 100 year flood without increasing the water surface elevation by more than 0.2 feet at any point. Fluvial flood hazard areas are delineated by DEP by a complex engineering method. The resulting water surface profile elevations are superimposed on topographic maps to identify areas of inundation. DEP is presently delineating all flood hazard areas. Delineations have been completed for the entire Raritan River Basin, outside of the Bay and Ocean Shore Segment. Of 6,500 mile of streams in New Jersey, 618 miles have been delineated and an additional 216 miles are scheduled for completion by the end of 1978. The U.S. Army Corps of Engineers has defined, for certain streams, the water surface profiles which have been developed for both the floodway and the flood hazard area design floods. However, the delineation of the flood hazard area must be determined on a case by case basis due to lack of accurate elevation maps. A complete list of streams affected by this delineation can be found in the N.J.A.C. 7:13-1.11 et seq. In areas where the delineation of flood hazard areas using this engineering method is not com- plete, DEP determines the flood hazard areas on a case by case basis using detailed elevation and stream profile information submitted by the applicant as required by ijEP. Where data gaps exist, flood hazard areas can be preliminarily identified by the use of U.S. Geological Survey Flood Prone Areas maps (scale of 1:24,000), supplemented with alluvial soil information for the small watersheds in the upland alluvial flood plains. In the tidal areas, 100 year tidal elevations have been identified for most municipalities within the Bay and Ocean Shore Segment by the U.S. Army Corps of Engineers, and are known as the Intermediate Regional Tidal Flood. The geographic extent of tidal flood hazard areas are indicated on USGS topographic maps as "flood prone" areas (there are no floodways in tidal flooding) . Figure 14 depicts fluvial and tidal flood hazard areas. 4.23.2 Policy (a) In general, coastal development is discouraged in flood hazard areas. 161 Figure 14 FLOCP HAZAPD AK©\ FLOOD WAY J Fluvial flood \>JL Mil 100 VEAR TlDAU^LEVATfoN ito VUL ML W ^ WETLANDS w . jw OR FLATS Si ^ T v ML \fc uu \\!i \Ul \U lit, SU- ^ Mtt >ft/ B8L Co gSTAL Flo od HAZARD ARE A OCEAN- IA AC k BAY FLOOD HAZARD AR EAS (b) Certain land uses are prohibited, under State Flood Plain law and rules, in the floodway portion of fluvial flood hazard areas, including uses such as placing, depositing or dumping solid wastes on the delineated floodways; processing, storing or disposal of pesticides, domestic or industrial wastes, radioactive materials, petroleum products or hazardous materials; erection of structures for occupancy by humans or livestock or kennels for boarding of domestic pets; storage of materials or equipment or construction of septic tansk for residential or commercial use (see N.J.A.C. 7:13-1.2 et seq.) . Not affected by this policy are hazard-free activities such as recreation, agriculture, soil conservation projects and similar uses which are not likely to cause obstruc- tions, undue pollution, or intensify flooding. According to N.J.A.C. 7:13-1. 4(c), any lawful, pre-existing prohi- bited uses may be maintained in a delineated floodway provided, that if expanded or enlarged, they do not increase the flood damage potential. Property owners in delineated floodways may rebuild damaged structures, providing that any expansion or enlargement will not increase the flood damage potential. (c) Most land uses are also regulated, under State Flood plain law and rules, in the flood fringe. Structures for occupancy by humans are conditionally acceptable provided that : (a) the first habitable elevation is one foot above the 100 year flood prone line established by HUD Flood Insurance Maps, and (b) the structure will not increase flood damage potential, by obstructing flood waters. (d) Construction acceptable in flood hazard areas must conform with applicable flood hazard reduction standards, as adopted by the Federal Insurance Administration in HUD ( Federal Register , Vol. 41, No. 207, Part II, October 26, 1976), as amended. 4.23.3 Rationale Past development of lands susceptible to flooding in New Jersey has led to flood damages, with sometimes tragic social, economic and ecological consequences. Intensive development of flood plains leads to increased runoff, reduction in flood storage capacity, increased size and frequency of downstream flooding, erosion of stream banks and downstream deposition of sediments with consequent reduction in estuarine productivity. Flood plains serve as important wildlife habitat for endan- gered and threatened species, game and fur-bearing species, and rare species of vegetation. Chapter Five: MANAGEMENT SYSTEM - POLICIES ON DECISION-MAKING PROCESS Introduce ion Department of Environmental Protection (DEP) Division of Marine Services Coastal Area Facility Review Act (CAFRA) Wetlands Act Riparian Statutes Shore Protection Program Other Programs in DEP Division of Water Resources Division of Environmental Quality Division of Parks and Forestry Division of Fish, Game and Shellf isheries Solid Waste Administration Office of the Commissioner Department of Energy Other State Departments Department of Agriculture Department of Community Affairs Department of Labor and Industry Department of the Public Advocate Department of Transportation Municipal and County Government Regional and Interstate Agencies Public Participation Conflict Resolution - Appeals ***************************** ************************************************* Introduction The Coastal Resource and Development Policies defined in Chapter Four will be implemented primarily through the State legal authority administered by the Depart- ment of Environmental Protection (DEP), particularly the Division of Marine Services, which administers the Coastal Area Facility Review Act (CAFRA), Wet- lands,' and Riparian permit programs and the State's Shore Protection Program. Other Divisions within DEP will act consistently with the Program policies to the maximum extent permitted by their enabling legislation (see Commissioner's letter) with respect to any activity that may have a direct and significant effect on coastal resources. This will assure consistency between the Coastal Management Program and State plans dealing with air quality, water quality, solid waste, water supply and outdoor recreation. Energy siting decisions will be made jointly by DEP and the New Jersey Department of Energy. The actions of other State agencies will also follow the Coastal Policies to the maximum extent permitted by law. The enforcement of the Coastal Policies is assured by their formal adoption as sub- stantive administrative rules and regulations. The New Jersey approach to coastal decision making corresponds to manage- ment technique B - "Direct state land and water use planning and regulations" - described in Subsection 306(e)(1) of the federal Coastal Zone Management Act. The Coastal Policies also will form the basis for New Jersey's discussions with, and responses to, local governments, regional and interstate agencies, and agencies from other states with an interest in the coast. 164 This chapter describes New Jersey's coastal management system. The public role, which is described in a section of the Chapter, is an integral part of all coastal decisions. The chapter concludes with an analysis of potential decision- making conflicts and the methods for their resolution. Department of Environmental Protection The Department of Environmental Protection (DEP) is responsible for imple- menting the New Jersey Coastal Management Program, and for continued coastal planning. Created by the Legislature in 1970, the Department was given broad authority to "formulate comprehensive policies for the conservation of the natural resources of the State..." (N.J.S.A. 13:lD-9). Specific authority for the coastal program was delegated by the Governor when he designated DEP as New Jersey's coastal planning agency under Section 305 of the federal Coastal Zone Management Act. DEP will also serve as New Jersey's lead agency to administer the federally approved program, under Section 306 of the Act. Division of Marine Services The Department's Division of Marine Services is specifically responsible for the development and implementation of the New Jersey Coastal Management Program. In the Division, the Office of Coastal Zone Management (DEP-OCZM) is the lead agency for coastal planning. DEP-OCZM also administers Coastal Area Facility Review Act (CAFRA) permit program. The Division's Office of Wetlands Management administers the Wetlands permit program. The Division's Office of Riparian Lands Management administers the waterfront development permit and riparian real estate programs. Decisions made under all three coastal permit programs are signed by th • Director of the Division of Marine Services. The "90-Day Construction Permit Regulations" (N.J.A.C. 7:1C-1 et seq.) apply to all three permit programs, insuring that coastal permit decisions will be made in a timely manner. The Division also regulates water activities such as clamming, skin diving, and vessel anchoring to protect human health and safety. Failure to comply with these laws results in fines and injunctions. , Violations are reported to the Department by inspectors of the Division of Marine Services and concerned citizens. DEP has adopted Chapter Four of this document as rules in furtherance of the Department's specific coastal management powers under CAFRA, the Wetlands Act, and the riparian statutes. The adopted rules bind DEP to issue decisions under the three permit programs consistent with the Coastal Policies. The principal legal authorities and their corresponding procedures for imple- mentation of the coastal policies in the Bay and Ocean Shore Segment involve several DEP-administered laws. The Coastal Area Facility Review Act, the Wetlands Act, and the Department of Energy Act are reprinted in Appendix H. Copies of all other laws and regulations referred to in this chapter are available from DEP upon request. Figure 16 illustrates the CAFRA, Wetlands and Waterfront Development permit review processes. The Figure is admittedly complex primarily as a result of the multiple opportunities for requesting additional information which serves to incorporate the suggestions of other agencies and of the public and to improve designs for projects. Coastal Area Facility Review Act (CAFRA) - The Coastal Area Facility Review Act, (N.J. S.A. 13: 19-1 et seq.) provides a list of selected facilities which must be reviewed and approved by DEP before they can be constructed within the sta- tutorily-def ined "Coastal Area", which includes the entire area of the Segment 165 u 9<£ o^ \o t U- Of 3 < ^> -£ o z o z 3 o UJ a < o. o cc Li- CC UJ < Q < CO Q UJ 3* 2^ z ?^ >- 3 < 0. o. UI o x 2 U o UJ < ui 5 => I X < o -.*=>- UJ O 3 X < 2 to a > ■ a. ui i o "^z to; o-- 'u.2- _." < : a -° m 1 * , 2 i o * < o < . £c a. <>*> < N I- o- < < X < m o 8 _.' UJ -, ui z Q u. 5 u 1-* = « Z -1 t- J < o < <-> z z J £ o a B — a. uj £: < w o i 5 18 except for approximately six square miles of regulated wetlands. The list, which is available in detail in the Act, and also in the CAFRA Procedural Rules and Regulations (N.J.A.C. 7:7D-2.0 et seq . ) includes all facilities proposed for the following purposes: 1) Electric power generation, including oil, gas, coal fired, or nuclear facilities ; 2) Public facilities and housing, including housing developments of 25 or more dwelling units, roads and airports, parking facilities with 300 or more spaces, waste water treatment systems, and sanitary landfills; 3) Food and food by-products production, paper production and agri-chemical production; 4) Mineral products, chemical processes, metallurgical processes and inor- ganic salt and salts manufacture; 5) Marine terminals and cargo handling facilities, and storage facilities. The application process begins with an optional pre-applicat ion conference at which an applicant and DEP staff will candidly discuss the applicability of the Coastal Resource and Development Policies to the contemplated project, and possible revisions or alternatives which would increase the likelihood of permit approval. DEP staff then send the applicant a letter reiterating the conclusions of the conference. An application for a CAFRA permit must include twenty copies of an environ- mental impact statement (EIS). Often discussion at the pre-applicat ion conference can lead to a reduction in the amount of information required in the EIS. The twenty copies are necessary so that other appropriate state and local agencies can review and comment upon the application. Copies of the application are distributed to offices within the Departments of Community Affairs, Energy, Labor and Industry, Transportation and other agencies within DEP, as well as to the relevant county and municipal planning boards and environmental commissions, soil conservation dis- tricts, and regional planning agencies. DEP-OCZM staff review the responses of the commenting agencies, analyze the project and issue a staff preliminary analysis. Next a public hearing is held near the site of the proposed project. The Director of DEP's Division of Marine Services then issues the permit decision based upon the Coastal Resource and Development Policies. The decision incorporates public comments submitted to the Department at the hearing and in writing, and comments of other governmental agencies. The permit decision can be appealed as described in the last section of this chapter. In addition to the facilities managed under CAFRA, the Coastal Management Program will manage a more extensive range of facilities proposed on coastal wetlands and riparian lands. These activities are described in detail in the Procedural Rules and Regulations (N.J.A.C. 7:7A-1 et seq.) adopted under the authority of the Wetlands Act of 1970 and the state's riparian statutes, and are summarized below. The application process for these two permit programs is similar to that for CAFRA permits, except that a public hearing is held only for major projects . 169 Wetlands Act - New Jersey's authority to regulate activities on wetlands is derived from the Wetlands Act of 1970 (N.J.S.A. 13:9A-1 et seq) and the Procedural Rules and Regulations adopted in 1972. The Act defines "coastal wetlands", and maps of the regulated wetlands are available from DEP ' s Office of Wetlands Manage- ment. The activities on wetlands regulated by the Act include virtually any form of development or disturbance, except for mosquito control and continued commercial production of salt hay or other agricultural crops or activities. Riparian Statutes - Riparian lands, defined as lands now or formerly flowed by the t ides , are owned by the State of New Jersey. An individual or municipality wishing to develop or improve these lands in any way must first receive the approval of the Natural Resource Council to buy or lease the tidelands from the State. The Council is composed of twelve citizens appointed by the Governor with the advice and consent of the State Senate. The Coastal Resource and Development Policies will be the basis for DEP staff recommendations to the Council. If the Natural Resource Council makes a real estate decision inconsistent with the Coastal Program, the Commissioner of DEP will block the action by refusing to sign the minutes of the Council meeting. After applicants receive a lease or license from the Natural Resource Council, they must obtain a Waterfront Development Permit for any planned development from DEP's Office of Riparian Lands Management. The types of development construction generally contemplated on riparian lands includes dredging or the construction or alteration of a dock, wharf, pier, bulkhead, bridge, pipeline, or cable. While the Natural Resource Council will use the Coastal Resource and Develop- ment Policies in making its real estate decisions, the consistency of riparian actions with the Coastal Program will be assured by DEP's authority to approve, condition, or deny the Waterfront Development Permit applications. Shore Protection Program - The fourth element of New Jersey's authority to implement the Coastal Program is the State's Shore Protection and Waterway Mainte- nance Program. This program is administered by the Office of Shore Protection, which is also in DEP's Division of Marine Services. The Office is the lead agency for beach erosion control programs and efforts to maintain state waterways. This Office also establishes priorities for spending shore protection and harbor cleanup funds, including the $20 million five year shore protection bond issue approved by New Jersey voters in 1977. The Department has pledged publicly to prepare a shore protection master plan to assure that the funds from the bond issue are used wisely. The Plan will delineate a "park line" indicating an area within which dunes must be protected and public access must be assured. DEP will enforce the plan by allocating shore protection funds and issuing riparian and CAFRA permits only to areas where such policies are in effect. Other Programs In DEP The other divisions in the Department of Environmental Protection will contri- bute to the Coastal Program in three ways. First, like a private developer, any development project they initiate, sponsor, or propose which is regulated by CAFRA, the Wetlands Act, or riparian statutes will have to be consistent with the Coastal Resource and Development Policies to receive the appropriate permit. The 170 Division of Parks and Forestry, for example, would need a Wetlands Permit before a structure could be built on regulated wetlands within a state park. This is likely to be the most significant type of involvement in the coastal program for DEP's other divisions. Second, the actions of the Department's other divisions will be consistent with the Coastal Policies, to the maximum extent permissible under their enabling statutes. Permit programs administered by the Division of Water Resources, for example, may be able to apply some of the Coastal Policies to facilities or areas not regulated by the Coastal Program. Strictly speaking, this consistency is not necessary for federal approval of New Jersey's program, since the three permit programs administered by the Division of Marine Services provide authority suffi- cient to enforce the program. Such consistency, however, is desirable within New Jersey to insure that decisions by the different parts of DEP are coordinated and predictable . Third, the other divisions in DEP will help the Division of Marine Services to suggest and carry out projects which can be funded with federal Coastal Manage- ment Program Administration grants. Such a grant could, for example, fund selected studies by the Division of Fish, Game and Shellf isheries . The sections which follow summarize the functions of DEP's divisions most likely to affect, or be affected by the Coastal Program. Although other divisions also have planning responsibilities, the Coastal Program is one of the first major plans to be completed and, therefore, can serve as a focal point for more specific discussions to insure consistent and cooperative planning. Division of Water Resources - The Division of Water Resources is responsible for water quality planning and maintenance, and flood plain management. The Divi- sion is the designated water quality planning agency under Section 208 of the Federal Water Pollution Control Act (FWPCA) and, under the New Jersey Water Pollu- tion Control Act (N.J.S.A. 58:10A-1 et seq.), has the authority to administer the National Pollution Discharge Elimination System (NPDES) permits once US EPA dele- gates this responsibility to DEP. The standards set by the Division under the FWPCA are incorporated into the coastal policies as required by Section 307(f) of the federal Coastal Zone Management Act. The Division also has the authority to regulate the building or alteration of structures within stream areas under the Stream Encroachment Act, (N.J.S.A. 58:1-26), and to regulate development and land use in designated floodways under the Flood Hazard Areas Act, (N.J.S.A. 58:16A-50 et seq.). Within the seventeen New Jersey counties with coastal waters, area-wide water quality planning (also known as 208) is being conducted by county planning boards in four counties, by the Delaware Valley Regional Planning Commission in four counties, and by the Division of Water Resources in the remaining nine counties. The plans are being completed between 1978 and 1980 in different parts of the state. Through a federal agreement between the Department of Commerce and the Environmental Protection Agency, and through a working relationship at the state level between the Office of Coastal Zone Management and the Division of Water Resources, the policies of the two programs will be coordinated and made consistent for both point and non-point sources of pollution. The water quality planning seeks institutional and technical alternatives to control and abate water pollu- tion. The key policies of the program are to protect the sources of potable water supply, control toxic and hazardous substances, control pollution from areawide 171 sources, and protect environmentally sensitive areas. Water quality planning programs may utilize and refine the Coastal Location Acceptability Method for activities not esssential for program approval, and in parts of the state outside the coastal zone. The method could, for example, be modified and used in making land and water use decisions on and near non-tidal portions of the Delaware River and in other areas of the State where a decision-making method is needed to protect water quality. The Division of Water Resources is also responsible for supervising the development of a Water Supply Master Plan. The plan, financed by the State Water Conservation Bond Fund, will assess near and long-terra water needs, evaluate various alternatives for meeting those needs, and provide a framework for the future planning and management of the State's water supplies. Specific recom- mendations will be made including those for near-term water supply development projects, conservation and management policies, interconnection programs, and drought and emergency response plans. The plan is expected to be completed by December of 1979. The Office of Coastal Zone Management will continue to work with the Division of Water Resources to assure consistency between the Water Supply Master Plan and the Coastal Policies. Division of Environmental Quality - The Division of Environmental Quality is responsible for air quality planning and monitoring and is the agency designated to administer the federal Clean Air Act in New Jersey. The Division also is respon- sible for the State's radiation, noise, and pesticide control programs. Under the requirements of the Clean Air Act, the Bureau of Air Pollution Control in the Division has enacted and is developing programs to attain National Ambient Air Quality Standards. The attainment of standards for photochemical oxidants for the entire state, for carbon monoxide in central business districts, and for particu- lates in Camden and Jersey City, and the maintenance of clean air levels throughout the state are the luajor problems to be addressed. The strategies for the attainment of standards and the analysis of maintenance issues are required to be submitted to EPA by the end of 1978. DEP-OCZM will work closely with the Division of Environmental Quality as it develops programs directed toward attainment of the National Ambient Air Quality Standards. Coordination will assure consistency between Coastal Policies and the State Implementation Plan for air quality. In addition, attention will be given to the impact of Coastal Policies on air quality outside of the Bay and Ocean Shore Segment- . Coordination with the Division of Environmental Quality should result in the use of Coastal Policies to help attain statewide air quality goals as well as use of the State Implementation Plan to further Coastal Management Program goals. Division of Parks and Forestry - The Division of Parks and Forestry manages the state s parks and is responsible for acquiring, operating and maintaining historic sites. The Division reviews CAFRA permit applications in addition to coordinating with DEP-OCZM on park and recreation policies. The Office of Historic Preservation within the Division evaluates the potential impact of CAFRA permit applications on cultural resources. This Office also maintains the State Register of Historic Places and recommends to the Commissioner state nominations to the National Register of Historic Places. 172 Green Acres and Recreation - The Green Acres Program determines where and how sTate funds should be spent for park and open space acquisition, development and maintenance. DEP can purchase land under this program and through the Division of Parks and Forestry, by condemnation if necessary. DEP-OCZM reviews expenditures of Green Acres funds proposed in the coastal zone. The New Jersey Comprehensive Outdoor Recreation Plan (SCORP), prepared by the Green Acres Program, addresses the adequacy of open space for existing and projected demands, and the accessibility of recreation resources for all segments of the population. The plan will qualify New Jersey for funding under the Federal Land and Water Use Conservation Fund Program. In addition to studying recreation needs and uses, SCORP will also include inventories of federal, state, county, municipal and private recreation resources. The major policies in SCORP include emphasizing open space in urban areas, recreation facility development, increasing public access to recreation resources through mass transit, and developing barrier free recreation facilities. Division of Fish, Game and Shellf isheries - The Division of Fish, Game and Shellf isheries Is responsible for managing the fish and wildlife resources of the State. This includes research and educational programs as well as enforcement of state fish and game laws and maintenance of state fish and wildlife management areas. The Division also administers the federal Endangered Species Act of 1973 which provides funds for the purchase or management of land for research and for other activities to protect wildlife. Solid Waste Administration - The Solid Waste Administration (SWA) in DEP is responsible for the development of a statewide plan to maximize use of resource recovery and minimize the adverse environmental impacts of solid waste. The state has been divided into twenty-two districts (21 counties and the Hackensack Meadow- lands Development Commission District). Each district is responsible for develop- ing a ten-year plan to meet the solid waste needs for each municipality within the region. The SWA is responsible for coordinating the district planning through the development of a statewide plan and for providing guidelines, especially in the area of hazardous waste, for use by the twenty-two planning districts. Coordi- nation between DEP-OCZM and the Solid Waste Administration will assure consistency between the Coastal Policies and the district and statewide solid waste planning. Office of the Commissioner - Lastly, the Office of the Commissioner in DEP conducts a number of functions relating to the Coastal Management Program. First, the Office of Environmental Review coordinates the review of major development proposals likely to require more than one DEP-adrainistered permit, as well as applications circulated through the A-95 Project Notification and Review Process. This coordinated review helps speed the permit review process and insures the application of consistent policies. This Office reviews CAFRA applications in terms of possible archaeological impacts. In addition, the office serves as staff to the Commissioner in the capacity as the State Historic Preservation Officer. DEP's Assistant Commissioner for Science administers the New Jersey Spill Control and Compensation Act (N.J.S.A. 58:1-23.11 et seq.) In addition, under his direction, the Office of Cancer-Causing and Toxic Pollutants is conducting research with the assistance of computer facilities funded by the U.S. Council on Environ- mental Quality. The information produced by this research will be incorporated 173 into the Coastal Policies, and could conceivably alter certain siting policies. In addition, this computer project is serving as a model for DEP to test the feasibility of digitizing much of the information necessary to apply the Coastal Pol icies . The Tidelands Delineation Program, conducted by the Office of Environmental Analysis also under the direction of the Assistant Commissioner for Science, is a multi-year project to map the extent of State-owned tidelands by delineating the mean high tide line. The program will require several years to complete because of the complex issues of land ownership to be resolved. Department of Energy While serving as the lead coastal agency, DEP will continue to work closely with other state agencies. The most important of these is the Department of Energy (DOE). The Costal Resource and Development Policies on Energy in both the Draft EIS and in their final document were formulated and agreed to by both DOE and DEP. The Department of Energy Act (N.J.S.A. 52:27F-1 et seq.) provides that the Department of Energy (DOE), has, at a minimum, a shared authority over every energy related decision in the State, including the siting of facilities. Recognizing this coextensive jurisdiction over energy facility siting in the coastal zone, and also recognizing the importance of such siting decisions to a successful coastal managment program, the Departments of Energy and Environmental v Protection have entered into a memorandum of understanding (Appendix G) . The memorandum has three important features: a procedure for DOE review of coastal permit applications, a commitment by DEP and NJDOE to make their findings on the basis of the state's Coastal Resource and Development Policies as well as on the State Energy Master Plan, and a procedure for resolving disagreements between the two agencies. The New Jersey Department of Energy is also the lead agency for the Coastal Energy Impact Program (CEIP). The 1976 Amendments to the federal Coastal Zone Management Act created Section 308, the CEIP, to provide financial assistance to help coastal states respond to the growth and impacts of new energy exploration and development. A second objective of the CEIP is to balance the two national goals of encouraging development cf domestic energy resources to further energy self- sufficiency, and protecting and managing the nation's coast in a manner consistent with the objectives of a state's Coastal Management Program. To be eligible for assistance under the CEIP, a coastal state must be receiving a grant under Section 305 of the Act, have a coastal management program which has been approved under Section 306, or be making satisfactory progress which is consistent with the policies set forth in Section 303 of the Act. New Jersey meets these criteria. As the lead agency for CEIP, the New Jersey Department of Energy is respon- sible for administering the program, including soliciting applications, providing technical assistance, and evaluating and approving project applications to distri- bute funds according to the program's intrastate allocation process. Since CEIP assistance is to be administered in close harmony with the purpose and spirit of the state's Coastal Management Program, DEP-OCZM will work closely with DOE in reviewing and approving applications for CEIP assistance. DOE and DEP coordi- nation is further required by the federal CEIP regulations which state that CEIP 174 assistance cannot be granted without DEP-OCZM certification of compatibility with the goals and policies of the developing Coastal Management Program or consistency with the approved Coastal Management Program. To facilitate such a finding, and to satisfy the requirement that the state's coastal planning agency review CEIP applications, the memorandum of understanding provides that all such applications will be forwarded to DEP for consistency review. In addition, the Department of Energy has prepared a State Energy Master Plan . This plan considers the production, distribution, consumption and conservation of energy in the state and surrounding region. The Plan and the more specific reports it promises will become a primary resource for energy facility siting decisions by DEP. The State Energy Master Plan is expected to be formally adopted in October 1978. The Board of Public Utilities, which is in, but not of, the Department of Energy, has broad regulatory authority over public utilities. Included in this authority is the power to supercede local zoning decisions when necessary if the service conveniences the welfare of the public (N.J.S.A. 40:55D-19). This author- ity comes into play only when a proposed utility facility has received required state permits (including coastal permits) and is denied required local permit. The potential role of the Board in coastal decisions is discussed in "Uses of Regional Benefit" in Chapter Five. Other State Departments In addition to the Departments of Environmental Protection and Energy, five other state departments have important responsibilities which relate to the Coastal Program. These are the Departments of Agriculture, Community Affairs, Labor and Industry, the Public Advocate, and Transportation. Coordination between the departments provides greater consistency of state policy, as well as opportunities to test the application of the Coastal Policies on activities and areas not regu- lated under the Coastal Program. In addition, DEP will, as appropriate, work with other agencies, including the State Health Planning Council and the Mortgage Finance Agency, which can contribute to the Coastal Program. Department of Agriculture - This Department shares with DEP the regulatory responsibility of the Soil Erosion and Sediment Control Act (N.J.S.A. 4:24-39 et seq . ) . The Act is administered by the State Soil Conservation Committee, which includes the Commissioners of the two Departments, and local Soil Conservation Districts. The law controls erosion and sediment during the construction phase of development. The Coastal Resource and Development Policies pertaining to soil are based on the Act, thereby assuring conformity between the two. Department of Community Affairs (DCA) - The Department of Community Affairs will continue to participate in the review of CAFRA permit applications, as it has since the beginning of the permit program. Although this review is not required by law, as it now is for the Department of Energy, DCA can provide valuable informa- tion on the potential impact of a proposal on nearby social services. In addition, because DCA is responsible for the development of a State Development G uide Plan (Preliminary Draft - September 1977) under Section 701 of the Federal Housing and Community Development Act, it can evaluate the consistency of a permit application with that plan. The major policies of the Guide Plan are to maintain the quality of the environment, preserve the open space necessary for an expanding population, 175 provide space and services to support continued economic expansion and enhance the quality of life in urban areas. These policies are consistent with the Coastal Management Program. Lastly, the Department of Community Affairs has developed, under Executive Order No. 35, a fair share state allocation process for low and moderate income housing. DEP will continue to work with DCA officials to promote such housing in the Bay and Ocean Shore Region. Department of Labor and Industry - The Department of Labor and Industry also participates in the review of CAFRA permit applications. In addition, the Office of Business Advocacy in the Department plays a particularly important role during the pre-application phase of the CAFRA permit process in helping to guide industry to appropriate locations. The Department's Division of Travel and Tourism shares a common goal with DEP-OCZM of seeking to promote the resort and tourism industry of the coast. Lastly, the Economic Development Authority, which arranges low interest, long-term financing for commercial and industrial development, can help stimulate the revital izat ion of coastal cities. Department of the Public Advocate - This Department has taken positions on the appeal of several CAFRA permit applications. In addition, the Public Advocate has a particular interest in planning for the coastal zone and offered extensive comments on the Coastal Management Strategy and on the Draft EIS. DEP will con- tinue to include the Public Advocate in coastal planning activities. Department of Transportation (DOT) - The principal involvement of DOT in the Coastal Program is as an applicant for a permit for the construction of roads, highways, or airports. All but minor transportation projects in the Bay and Ocean Shore Segment require a CAFRA permit, and projects crossing wetlands or riparian lands require the appropriate additional permit as well. DOT administers additional permit programs for transportation facilities as well as having grants for transportation projects and eminent domain powers. As part of its responsibility for long-term planning for the state's transpor- tation needs, DOT has a working relationship with DEP to meet the transportation requirements of Atlantic City and other coastal areas. Municipal and County Government Municipal and county land use authority will continue without change under the New Jersey Coastal Management Program. Development proposed in the coastal zone will be subject to all applicable local regulations as well as to state standards or permits. A locally approved proposal cannot be constructed without receipt of relevant state approvals, and likewise, a state-approved project must receive appropriate local approvals with certain exceptions (see Chapter Six, Regional Benefit Decisions). All municipalities in the Segment, and in the proposed coastal zone, will have an opportunity to comment en the draft program for the entire coastal zone and on any proposed policy or procedural amendments or additions to the program for the Segment. DEP-OCZM will solicit local comment, at least in part through use of its mailing list which includes the Mayor, Planning Board, and Environmental Commission of each municipality and county in the Segment. (See Appendix D for a discussion of local government participation in the coastal planning process, including an analysis of possible conflicts between state and regional plans . ) 176 In addition, as required by the CAFRA Procedural Rules and Regulations, DEP will continue to offer CAFRA permit applications for comment to county and muni- cipal planning boards and environmental commissions. DEP is also sponsoring a state-county coastal coordination project for a second year. Using funds made available to New Jersey under the federal Coastal Zone Management Act, DEP has contracted with every county in the Segment and several in other parts of the proposed coastal zone for the provision of informa- tion and analysis to be used for continuing program development. The next task in this program is an assessment by the counties of the consistency of local plans and ordinances with the Coastal Resource and Development Policies. The final reports of the project will include summaries of each county's findings on state-local coastal policy consistency and recommendations for future state-county relation- ships. After the contract is completed, DEP may choose to adopt the county and municipal plans which adequately address coastal issues and do not conflict with the state policy as specific elements of the State Coastal Program. The New Jersey Coastal Management Program can influence other levels of government with coastal responsibilities, even though it may have no direct statu- tory power over their decisions. Municipal and county governments, and regional and interstate agencies have significant planning and, in some cases, regulatory roles in the Segment. DEP and other state agencies will use the Coastal Resource and Development Policies as a basis for advice, discussion and debate with these other governmental agencies. This advisory role must be distinguished from the already mentioned regulatory tools which will be used to implement the Coastal Program, but it is, nevertheless, important for the long-term improvement and acceptance of the Coastal Policies. Regional and Interstate Agencies Thirteen interstate and regional agencies have jurisdictions which include part of the coastal zone. Some have largely a planning and advisory function, while others have significant decision-making responsibility. The past and future decisions and sharing of draft and final documents with these agencies, together with DEP's regulatory authority in the coastal zone, will ensure that regional agency actions will not be inconsistent with the Coastal Management Program. These agencies are only discussed briefly here because their jurisdictions are largely in the parts of the coastal zone outside the Bay and Ocean Shore Segment. Each of the agencies has been invited to play a role in designing the program for the remainder of the coastal zone, and their roles will be described in greater detail in the Draft EIS for those regions. The planning agencies and organizations include the Mid-Atlantic Regional Fishery Management Council, the Wilmington Metropolitan Area Planning Coordinating Council (WILMAPCO) , Tri-State Regional Planning Commission, the Delaware Valley Regional Planning Commission (DVRPC), and the South Jersey Resource Conservation and Development Council. These agencies have professional planning staffs and a strong interest in the future of the Delaware, Pennsylvania, New Jersey, and New York region. DEP-OCZM will continue to solicit and welcome their comments and advice. The Tri-State Regional Planning Commission has specific responsibility for assessing consistency between state plans funded by the U.S. Departments of Housing and Urban Development, and Transportation, and federally funded state Coastal Management Programs . 177 Other agencies with administrative and regulatory responsibilities will be more formally integrated into the implementation of the New Jersey Coastal Manage- ment Program. Memorandums of understanding between DEP-OCZM and selected regional agencies nay be desirable or necessary to insure consistency between state and regional coastal policies. These agencies include the Port Authority of New York and New Jersey. Interstate Sanitation Commission, Palisades Interstate Park Commission, Delaware and Raritan Canal Commission, Delaware River and Bay Authority, Delaware River Port Authority, South Jersey Port Corporation and Delaware River Basin Commission. As appropriate, specific agreements will be made with each agency during the preparation of the program for those parts of the coastal zone. Public Participation The Department of Environmental Protection will work to involve the many individuals and public and private groups concerned about the coast in decisions on proposed development and in continued coastal planning. The three coastal permit programs (CAFRA, wetlands, and riparian) all have public notice and hearing requirements, providing the opportunity for public participation in the implementation of the coastal policies. DEP will ensure public notice of pending applications through notification of the appropriate county planning board, county environmental commission, municipal planning board, county environmental commission, soil conservation district, and the Delaware Valley Regional Planning Commission and Tri-State Regional Planning Commission for proposals in Burlington or Monmouth and Middlesex Counties respectively. In addition, owners of land adjacent to the site proposed for .development will be informed of the application. .All pending applications are also listed in the DEP Weekly Bulletin which is distributed free and has a current circulation of 1,600 people. The Department is also cooperating with the "coast watch" program, spon- sored by the American Littoral Society, to inform more people about pending coastal decisions and other events. DEP hold? a public hearing near the site of a proposal for every CAFRA permit application, and for major Wetlands and Waterfront Development permit applications. In addition, any interested person can review DEP's file on a pending application and submit written comments. Decisions to lease or sell riparian lands are made by the Natural Resource Council at meetings which are open to the public. DEP will continue to involve coastal residents, workers and visitors in planning for the future of the Bay and Ocean Shore Segment and the other parts of the coastal zone. This involvement will take several forms, and the Department will remain open to additional public participation techniques which may be sug- gested. Substantive changes in the Coastal Management Program and its policies will be subject to the notice and hearing requirement of both the federal regula- tions and the New Jersey rule-making process. The Office of Coastal Zone Management will continue to publish The Jersey Coast several times each year to inform interested people of future public meetings, available reports, and coastal planning and regulatory activities. DEP-OCZM staff will continue to make themselves available to meet with interested groups and the Office will continue to convene a series of public meetings throughout the coastal zone at least twice a year. In addition, DEP-OCZM staff will continue to meet periodically with the leaders of statewide environmental groups, builders groups, and other representative groups which express interest. 178 Part of public participation is public education, and DEP will continue to try to prepare and to assist others in preparing informative, understandable publica- tions about the coast and the coastal zone management program. The Department will supplement governmental publications with the use of newspapers, magazines, radio and displays in public places such as libraries, shopping areas and conventions. Conflict Resolution - Appeals The permit decisions made under the New Jersey Coastal Management Program, as described in this chapter, can be appealed administratively. A CAFRA permit decision can be appealed by any interested person within 21 days of the final DEP action, to the DEP Commissioner or to the Coastal Area Review Board composed of the Commissioners of Environmental Protection, Community Affairs, and Labor and Industry. The decision of the Commissioner or of the Review Board can be further appealed through the courts. A Wetlands permit decision may be appealed to the DEP Commissioner and then to the courts. A Waterfront Development permit decision may be appealed to the Natural Resource Council, and then to the courts. The Department of Energy (DOE) may appeal decisions affecting the construction or location of an energy facility to the Energy Facility Review Board described previously. Under the Department of Energy Act, the Board will be called into existence by the Department of Energy if it disagrees with the decision of any state agency to grant or deny a permit for an energy facility. The Memorandum of Understanding in Appendix G explains this process. The Management System of the Coastal Program does not appear likely to raise other conflicts which will require a resolution mechanism. If a proposal requires approval under several laws with different sets of criteria, the applicant will have to meet them all. A project managed by the Coastal Program and encouraged by the plans or actions of another agency could not be constructed unless it received the required coastal permits. At the same time, a project which conforms with all the Coastal Resource and Development Policies could not be constructed until the applicant received all other required state, federal, and municipal approvals. i The next chapter describes how the New Jersey Coastal Management Program will avoid the exclusion from the coastal zone of "uses of regional benefit". The chapter also discusses Federal Consistency and New Jersey's consideration of national interests. 179 CHAPTER SIX: MANAGING T HE COAST: N ATIONAL INTERESTS, CONSISTENCY OF FEDERAL ACTIONS, AND REGIONAL BENEFIT DECISIONS Introduct ion National Interests Consistency of Federal Actions Regional Benefit Decisions Introduct ion This chapter describes the national interests which were considered during program development, how various conflicts between the national interests are balanced in the program, and the process to assure the continued considerations of such issues. The Chapter then describes the process of assuring that federal actions are consistent with the Coastal Program to the maximum extent practicable. The third part of this Chapter describes how the New Jersey program ensures that uses of regional benefit are not excluded from the Bay and Ocean Shore Segment. National Interests The federal Coastal Zone Management Act requires that the State's program provide "for adequate consideration of the national interest involved in planning for, and in the siting of, facilities ... which are necessary to meet requirements which are other than local in nature." [Subsection (306) (c)] Although this document focuses only on the first segment of the Coastal Program, this section describes New Jersey's consideration of the national interest for the entire coastal zone. The "national interest" is a collection of the diverse, and occasionally conflicting, interests of the 13 United States departments, councils, and commis- sions with involvement in the preservation or development of New Jersey coastal lands and waters. To determine and balance the national interests, New Jersey has met with representatives of the federal agencies with responsibilities affecting the coastal zone. The comments of those agencies choosing to submit written statements and comments or testimony at public meetings on New Jersey's evolving coastal program have contributed to New Jersey's understanding of the national interests. Contacts with federal agencies are summarized in Appendix C. In addi- tion to the comments of federal agencies, the New Jersey program used Presidential statements, federal legislation and federal, state, and interstate agency reports to help its consideration of the national interests. The New jersey program recognizes that national, as well as state, interests and priorities may shift in response to new and/or unforseen circumstances. Under an approved program, New Jersey will, therefore, continue to seek and evaluate information from the same sources. Changes in the national interests will be reflected in the Coastal Program through administrative action including amendments to the substantive rules and regulations which incorporate the Coastal Resources and Development Policies. 180 The Process for Continu ed Consideration of National Interest Issues The process for balancing the national interests in the coastal zone will be the employment of the three-step decision-making process of Location Policies, Use Policies, and Resource Policies described in Chapter Four. Decisions made under the program will follow the four Basic Coastal Policies: (1) Protect the coastal ecosystem, (2) Concentrate rather than disperse the pattern of coastal residential, commercial, industrial, and resort development and encourage the preservation of open space. (This does not apply to nuclear and LNG facilities); (3) Employ a method of dec is ion -making which allows each coastal location to be evaluated in terms of both the advantages and the disadvantages it offers for development; and (4) Protect the health, safety and welfare of people who reside, work and visit in the coastal zone. The decisions will reflect the first Congres- sional finding enunciated in the Coastal Zone Management Act that "there is a national interest in the effective management, beneficial use, protection and development of the coastal zone" [Section (302) (a)]. » The New Jersey program has considered, and will continue to monitor, the national interests raised by the planning and siting of four types of uses and the treatment of twelve categories of resources. An annual review of the Coastal Resource and Development Policies in Chapter Four and the coastal permit appli- cation procedures described in Chapter Five will serve as the processes for assur- ing continued consideration of the national interests in the planning for and siting of facilities which are necessary to meet requirements which are other than local in nature. All of the facilities identified below (national defense, energy production and transmission, recreation and transportation) are of sufficient size to require a CAFRA permit if they occur on non-f ederally controlled land. Furthermore, these facilities and any other development which would significantly effect the eleven resources described below as in the national interest, (e.g. water, air, etc.) are required to receive a CAFRA permit. Although other state permits would be needed in some resource areas, i.e., wetlands, the CAFRA permit would cover all these issues and thus has been identified as the single process during implementation of the Coastal Management Program - Bay and Ocean Shore Segment for assuring the continued consideration of identified national interests. The CAFRA law states that the Commissioner of DEP "shall issue a permit only if he finds that the proposed f acility . . . is located or constructed so as to neither endanger human life or property nor otherwise impair the public health, safety and welfare." (N.J.S.A. 13:19-10f) The Commissioner has interpreted "public welfare" to include a full consideration of national interests as described in this program. This interpretation is contained in Chapter Four of this document which has been adopted as regulations. In addition, the Department of Energy will interpret its mandate "... to contribute to the proper siting of energy facilities necessary to serve the public interest..." (N.J.S.A. 25:27f.2) as sufficient authority to consider the national interest in the siting of coastal energy facili- t ies . The following have been defined as facilities or resources which may be in the national interest. Greater specificity on the policies described below can be found in Chapter Four. 181 National Defense National defense is of obvious importance to all states. To define the national interest in national defense, DEP-OCZM shared reports, received comments from, and met with the designated representatives of the U.S. Air Force, U.S. Navy, U.S. Army, and U.S. Army Corps of Engineers. The New Jersey Coastal Program excludes from the coastal zone all federally owned or leased lands, where defense operations are concentrated. The Coastal Program will actively consider defense activities only when agencies of the Depart- ment of Defense propose to buy additional land or to build new facilities with' potential impacts beyond the borders of the federally owned land. The New Jersey program will not question the national security justification for such proposals. Rather, DEP will review the proposal for consistency with the Coastal Program, and will approve it if it can make one of two findings: 1. The proposal is consistent with the Coastal Resource and Development Policies, or 2. The proposed facility is coastal dependent and will be constructed with maximum possible consistency with the Coastal Resource and Development Policies . In addition, the New Jersey program will seek to involve local Department of Defense representatives in planning the use of lands and waters surrounding mili- tary installations. The only current or projected defense activity addressed by the Coastal Program is the possible purchase of land by the U.S. Navy in the vicinity of the Leonardo-Earle Naval Ammunition Depot. DEP has reviewed with Navy representatives the uses of this site that would be acceptable under the Coastal Program. Energy Production and Transmission In determining the national interest in energy production and transmission, the following plans and federal agencies were consulted: - The National Energy Plan, April 29, 1977 - U. S. Department of Energy (formerly ERDA and FEA) - Federal Energy Regulatory Commission (formerly Federal Power Commission) - Nuclear Regulatory Commission - U.S. Department of Interior - Bureau of Land Management - U.S. Geological Survey - U.S. Department of Transportation - U.S. Coast Guard - Office of Pipeline Safety - Department of Defense - U.S. Army Corps of Engineers - Maritime Administration - Environmental Protection Agency The most useful articulation of the national interest in energy is found in the National Energy Plan , which has three overriding objectives: - as an immediate objective that will become even more important in the future, to reduce dependence on foreign oil and vulnerability to supply interrupt ions ; 182 - in the medium term, to keep U.S. imports sufficiently low to weather the period when world oil production approaches its capacity limitation; and - in the long term, to have renewable and essentially inexhaustible sources of energy for sustained economic growth. (Plan Overview, page IX) The salient features of the National Energy Plan are: - conservation and fuel efficiency, - national pricing and production policies, - reasonable certainty and stability in Government policies, - substitution of abundant energy resources for those in short supply; and - development of nonconvent ional technologies for the future (Plan Overview, page IX-X) Elements of the National Energy Plan with particular application to the New Jersey Coastal Management Program Segment are as follows: Conservation - "The cornerstone of the National Energy Plan is conservation." (Page 35 of the Plan) . New Jersey's recognition of the need for energy conservation was one factor leading to the second Basic Coastal Policy which states: "Concentrate rather than disperse the pattern of coastal residential, commercial, industrial, and resort-oriented development, and encourage the preservation of open space". Specifically, the Coastal Program encourages the clustering of development within a site, the use of renewable and recoverable sources of energy, mass transportation, and the incorporation of energy conservation techniques into all proposed coastal development in accordance with the Energy Conservation Plan being administated by the N.J. Department of Energy pursuant to the Energy Policy and Conservation Act of 1975. Oil and Gas Facilities Given the national interest in recreational and resource protection in the Bay and Ocean Shore' Segment, pipelines, and pumping and compressor stations will be permitted in the coastal zone to the extent that they can meet existing federal and state requirements, although non-coastal dependent facilities which are not part of a pipeline system will be encouraged to locate outside of the Segment. This position has been reached as a result of weighing the competing and conflict- ing national interest in recreation and resource protection with energy as called for in the CZMA. The decision to discourage oil and gas facilities other than pipelines in the Segment was reached in part because areas of the state outside the Segment already house many oil and gas production facilities including five refi- neries, one of which is out of operation, and New Jersey believes these areas will be better able to support needed additional facilities than will areas within the Segment. A study undertaken for DEP by Rutgers University Center for Coastal and Environmental Studies (Onshore Support Bases for OCS Oil and Gas Development: Implications for New Jersey , 1977) contributed to this decision by concluding that possible sites for oil and gas facilities exist along the Raritan Bay and River which may be acceptable to industry, DEP and local officials. Onshore Support Bases - are necessary to support off-shore oil and gas explor- ation and development. New Jersey encourages the storage of emergency oil clean-up equipment in the Segment and location of onshore support bases in built-up urban areas of the state outside of the Segment. Applications for the siting of such bases must comply with all applicable laws and are reviewed in the same manner as other facilities of similar impact and size. 183 Oil Refineries - could be necessary to process oil and gas discovered through currenl explorat ion in the Baltimore Canyon. The Coastal Program prohibits the location of refineries in the Segment. Application for oil refineries outside the Segment will be subject to all applicable laws and will be handled in the same manner as other facilities of similar impact and size. While New Jersey was assured by the Department of the Interior, on page 17 of the Final Environ- mental Statement (FES) for OCS Lease Sale No. 40 that the state's existing refinery capacity is sufficient to handle the likely output from the Baltimore Canyon, the Draft Environmental Statement for OCS Lease Sale No. 49 (May 1978) indicates that additional refinery capacity might be needed in the event of a high find. Pipelines - New Jersey expects to identify petrochemical pipeline corridors through" the intergovernmental offshore oil and gas transportation planning process being established by the' Department of the Interior's Bureau of Land Management. At a minimum New Jersey will require the following conditions to be met: that the number of pipelines be limited to the maximum extent feasible; that the pipelines use existing rights of way to the maximum extent feasible; that they avoid the undeveloped regions of the Pine Barrens; that any pipeline proposal be evaluated in terms of the entire new potential pipeline corridor; and that the pipeline avoid to the maximum extent feasible offshore munitions, chemical and waste disposal areas, heavily used waterways, geologic faults and significant fish or shellfish habitats. Although many possible pipeline routes have been proposed, New Jersey expects no new pipelines to be proposed until the potential yield from the Baltimore Canyon is better known. (See Chapter Four, Sections 4.4.8 and 4.4.10) Electric Power - The Coastal Program directs additional fossil fueled generat- ing stations away from particularly scenic or natural areas that are important for recreation and open space purposes, and directs that they be, consistent with applicable air and water quality standards. (See Chapter Four, Policy 4.4.13). In considering the national interest in the development of nuclear power, New Jersey found applicable the following two quotes from The National Energy Plan : "The United States will need to use more light-water reactors to help meet its energy needs. The Government will give increased attention to lightwater reactor safety, licensing, and waste management so that nuclear power can be used to help meet the U.S. energy deficit with increased safety." (page 70) "In addition, the President is requesting that the (Nuclear Regulatory) Commission develop firm siting criteria with clear guidelines to prevent siting of future nuclear plants in densely populated locations, in valuable natural areas, or in potentially hazardous locations." (page 72) New Jersey was one of the first states to recognize the potential of nuclear power to meet U. S. energy needs. The State has six operating or fully approved nuclear plants, including the Hope Creek I and II Generating Stations which received a CAFRA permit from DEP in 1975. The most recent application for a nuclear facility filed in New Jersey was a 1974 application to construct two floating plants, which has been postponed by the applicant. The New Jersey Coastal Program states in Chapter Four, Section 4.4.13, that: 184 "New or expanded electric generating facilities facilities (for base load, cycling, or peaking purposes) and related facilities are conditionally acceptable subject to the following conditions: (a) The construction and operation of the proposed facility shall comply with the Coastal Resource and Development Policies, with special reference to air and water quality standards and policies on marine resources and wildlife, (b) NJDEP and NJDOE shall find that the proposed location and design of the electrical generating facility is the most prudent and feasible alterna- tive for the production of electrical power that NJDOE has determined is needed, including a consideration, evaluation, and comparison by the applicant of alternative sites within the coastal zone and inland, (c) Fossil fuel (coal, oil or gas) generating stations shall not be located in particularly scenic or natural areas that are important to recreation and open space purposes, (d) Nuclear generating stations shall be located in generally remote, rural, and low density areas, consistent with the criteria of 10 CFR 100 (U.S. Nuclear Regulatory Commission rules on siting nuclear generating stations and population density) and/or any other related federal regulations. In addition, NJDEP shall find that the nuclear generating facility is proposed for a location where* the appropriate low population zone and population center distance are likely to be maintained around the nuclear generating facility, through techniques such as land use controls or buffer zones, (e) The construction and operation of a nuclear generating station shall not be approved unless DEP finds that the proposed method for storage and disposal of the spent fuel to be produced by the facility: (i) will be safe, (ii) conforms to standards established by the U.S. Nuclear Regula- tory Commission, and (iii) will effectively remove danger to life and the environment from the radioactive waste material. This finding is required under present state law (N.J.S.A. 13:19-11) and will be made consistent with judicial decisions (see Public Interest Research Group v. State of New Jersey, 152 N.J. Super. 191) and federal law, (f) The construction of electric generating facilities using renewable forms of energy such as solar radiation, wind, and water, including experi- mental and demonstration projects, is encouraged in the coastal zone provided that the facilities do not significantly adversely affect scenic or recreational values. Liquified Natural Gas - The National Energy Plan contains the following statements applicable to New Jersey: "Due to its extremely high costs and safety problems, LNG is not a long-term secure substitute for domestic natural gas. It can, however, be an important supply option through the mid-1980s and beyond, until additional gas supplies may become available. . .The previous Energy Resources Council guidelines are being replaced with a more flexible policy that sets up no upper limit on LNG imports. Under the new policy, the Federal Government would review each 185 application to import LNG so as to provide for its availability at a reason- able price without undue risks of dependence on foreign supplies. This assessment would take into account the reliability of the selling country, the degree of American dependence such sales would create, the safety conditions associated with any specific installation, and all costs involved." (p. 57) LNG facilities have been proposed in recent years for West Deptford and Logan Townships in Gloucester County, and on Staten Island, New York from where the LNG would be pipelined to New Jersey. The New Jersey Coastal Program states that LNG terminals are discouraged unless they are constructed so as to neither unduly endanger human life nor property nor otherwise impair the public health, safety and welfare, and comply with the Coastal Resource and Development Policies. Because the tankering of LNG could pose potential risk to life and property adjacent to New Jersey's waterways which also serve as boundaries with the states of Pennsylvania along the Delaware River and the state of New York in the Port of New York and New Jersey, the state considers decisions concerning the siting of LNG terminals to be an interstate matter. New Jersey is still awaiting a response in this regard to the petition (RM 76-13) it filed, along with its neighboring states, to the Federal Energy Regulatory Administration (former Federal Power Commission) in May 1976 (See Section 4.4.14 of Chapter Four). Recreat ion The New Jersey coast is a national recreational resource. In considering the national interest in recreation, New Jersey reviewed the Nation-wide Outdoor Recreation Plan, the evolving New Jersey State Comprehensive Outdoor Recreation Plan (SCORP), the Land and Water Conservation Fund Act, and the Historic Preser- vation Act of 1966 as amended. In addition, New Jersey offered draft coastal documents including the Coastal Management Strategy (September 1977) for review to the National Marine Fisheries Service, Bureau of Outdoor Recreation and its successor Heritage Conservation and Recreation Service, Fish and Wildlife Service, National Park Service and staff of Gateway National Recreational Area-Sandy Hook, and the Advisory Council on Historic Preservation. Major objectives of the national interest in recreation are: - To consider recreation as an equal among competing uses of the coastal region. - To provide high quality recreational opportunities to all people of the United States, while protecting the coastal environment. - To increase public recreation in high density areas - To improve coordination and management of recreation areas. - To protect existing recreation areas from adverse contiguous uses. - To accelerate the identification and no-cost transfer of surplus and under- utilized federal property. New Jersey will consider the recreational potential of a site in each decision under the Coastal Program. The highest priority for use of waterfront sites will be recreation, and residential and industrial projects will include recreation areas to the maximum extent practicable. The Policies are consistent with the New Jersey State Comprehensive Outdoor Recreation Plan (SCORP), which was also prepared by DEP. 186 Recreation is particularly important in New Jersey where tourism is the state's second largest industry. The recreational use of the ocean waterfront has long been recognized, while the use of bay and river waterfront, particularly in urban areas is of growing importance in New Jersey. (See Chapter Four, Sections A. 3 and 5.12) DEP provides for the national interest in recreation through its ability to acquire and manage state parkland and recreation areas and through the state Green Acres program which makes funds available to local governments for acquisition and development of recreation and open space. The federal government, which owns and operates a public beach and open space area at Gateway National Recreation Area (Sandy Hook), further provides for the national interest in recreation in New Jersey. Transportation and Ports The need for adequate transportation both to, and within, the coastal zone is an important national interest. To determine the national interest in transporta- tion, and ports, New Jersey consulted the U.S. Department of Transportation, U.S. Coast Guard, Federal Aviation Administration, Federal Highway Administration, Federal Railroad Administration, Urban Mass Transit Administration, Maritime Administration and U.S. Army Corps of Engineers. The maintenance of existing transportation facilities is unaffected by the New Jersey Coastal Program. New public transportation facilities will be encouraged while additional roads will be permitted only if a need for them is demonstrated and alternative solutions are not feasible. In addition, other types of proposals, such as residential projects and development in Atlantic City, will be evaluated in terms of their potential impact on transportation. New Jersey's ports also contribute to the national transportation interest. Ports will be encouraged only in established port areas. New facilities will be permitted when there is a clear demonstration of the inadequacy of an existing port. In New Jersey, the existing ports contain unused and under-used areas which can be refurbished to meet increases in demand. The Coastal Policies nevertheless allow for possible unanticipated future needs for port areas. (See Chapter Four, Sections 4.4.12, 4.5.3, 4.5.4, 4.7 and 5.19) Water The New Jersey Coastal Program has been designed to support the attainment of national water quality goals. New Jersey has considered the national interest in water quality by review of the Federal Water Pollution Control Act as amended and consultation with the Environmental Protection Agency, Fish and Wildlife Service, National Marine Fisheries Service and the Council on Environmental Quality. These goals, and the other resources in which there is a national inter- est which follow in this section, are recognized by the first Basic Coastal Policy which states "Protect the coastal ecosystem", as well as by other more specific policies. Water quality is addressed by the Location Policy on Water Areas and Special Areas, by Use Policies on Wastewater Treatment, and by Resources Policies on Soil Erosion, Runoff, Ground and Surface Water Use, Water Quality, and Marine Fish and Fisheries. DEP's Division of Marine Services has a close working rela- tionship with DEP's Division of Water Resources. The former has responsibility for the Coastal Zone Management Act in New Jersey and the latter administers New Jersey's participation under the Federal Water Pollution Control Act of 1977, as amended (Clean Water Act). (See Chapter Four, Sections 3.2, 3.3, 4.5.7, 5.4, 5.5, 5.6 and 5.21) 187 Air The New Jersey Coastal Program supports the attainment and maintenance of clean air. The State has considered this national interest through review of the federal Clean Air Act and consultation with the Environmental Protection Agency and the Council on Environmental Quality. A policy on Air in the Resources Policies section of the Coastal Resource and Development Policies requires that all develop- ment subject to the Coastal Program must conform with the Clean Air Act and other applicable air regulations and standards. DEP's Division of Environmental Quality is responsible for improving and maintaining air quality in New Jersey. (See Chapter Four, Section 5.10) Wetlands The New Jersey Coastal Program has considered the national interest in wet- lands through review of the President's Executive Order 11990 on Protection of Wetlands of May 24, 1977, Section 404 of the Federal Water Pollution Control Act, and the National Environmental Policy Act, as well as through consultation with the Soil Conservation Service, U.S. Army Corps of Engineers, Fish and Wildlife Service, Environmental Protection Agency, National Marine Fisheries Service, and the Council on Environmental Quality. The major objectives of the national interest in Wetlands are: - To protect basic values of wetlands as habitat and food sources for water- fowl and aquatic life; - To protect the functioning of wetlands for flood prevention, storm buffer- ing, water supply, and nutrient exchange, and as a recreational resource. - To regulate alteration of wetlands and the disposal of dredged materials in U.S. waters and associated wetlands. The New Jersey Coastal Program addresses the national interest in protection of coastal wetlands through their designation as a Geographic Area of Particular Concern. Wetlands are also addressed in a Use Policy on Housing discouraging lagoon development, a Resource Policy on "Buffers" which states that adjacent development must allow a buffer to protect sensitive areas such as wetlands, and the Location Policy which specifically identifies wetlands as areas where develop- ment proposals must meet very high standards. The use of New Jersey's Wetlands Act of 1970 in the Coastal Program will allow enforcement of these policies. In New Jersey, considerable wetlands acreage was being lost to development each year until the Wetlands Act was passed. (See Chapter Four, Sections 3.2.11, 3.2.23, 3.4.1, 5.8.1 and 5.15.1) Endangered Flora and Fauna, and Wildlife Refuges and Reserves New Jersey has addressed the national interest in endangered flora and fauna, and wildlife refuges and reserves by reviewing the Endangered Species Act of 1973, and the Federal Aid to Wildlife Restoration Act of 1938 (Pittman-Robinson) , and by seeking the advice and comments of the U.S. Forest Service, Environmental Protec- tion Agency, Fish and Wildlife Service and the Council on Environmental Quality. The major objectives of the national interest in endangered flora and fauna are : 188 - To provide a means whereby the ecosystems upon which endangered and threat- ened species depend may be conserved. - To provide a program for the conservation of such endangered and threatened species . - To take steps as may be appropriate to achieve the purposes of treaties and conventions in which the United States has pledged its support for the worldwide conservation of wild flora and fauna. The national importance of wildlife is addressed in the Coastal Program by the Special Areas Policies on "White Cedar Stands", "Endangered or Threatened Species Habitats" and "Critical Wildlife Habitats" and by Resource Policies on "Vegetation", "Wildlife", and "Buffers" which state that development must protect and preserve vegetation and wildlife by use of buffers and other techniques to the maximum extent practicable. The Coastal Program also discourages development of sites with endangered species. (See Chapter Four, Sections 3.2.17, 3.2.18, 3.2.19, 3.2.23, 5.8, 5.9, and 5.15) New Jersey has four National Wildlife Refuges located on excluded federal land in the coastal zone. In addition, the State operates several fish and wildlife management areas within the coastal zone. Living Marine Resources In determining the national interest in living marine resources, the following documents, specific legislation, and agencies were consulted: - Fishery Conservation and Management Act of 1976. - A Compilation of Federal Laws relating to Conservation and Development of our Nation's Fish and Wildlife Resources, Environmental Quality, and Oceanography . The Library of Congress, Congressional Research Service. January, 1975. - Living Coastal Resources; A Marine Fisheries Program for the Nation. U.S. Department of Commerce /NO AA, National Marine Fisheries Service and U.S. Department of Interior, Fish and Wildlife Service; July, 1976. - U.S. Fish and Wildlife Service. - U.S. Army Corps of Engineers - National Marine Fisheries Service - Marine Mammal Commission The major objectives of the national interest in living marine resources are expressed as follows: - To conserve, enhance and manage in a rational manner commercial fishing which constitutes a major source of employment and contributes significantly to the food supply, economy and health of the nation. - To strengthen the contribution of marine resources to recreation and other social needs. - To develop and protect all species of wildlife and their habitat, and to control losses by damage to habitat areas through coordination with other features of water resource development programs. The key features of the national interest in living marine resources are, therefore: - emphasis on commercial fisheries - relationship of marine resources to recreation - protection of marine resources - protection of wildlife habitat 189 The Coastal Program addresses these issues in the Location Policies and Resource Policies in Chapter Four. Development will be discouraged in shellfish beds, submerged vegetation, surf clam areas, navigation channels, finfish migration pathways, and prime fishing areas. In addition, development will be required to cause minimal feasible interference with marine fish and fisheries. In addition to continuing coordination with the appropriate federal agencies, DEP is working with NOAA to identify and plan for the management of marine sanctuaries in the state. (See Chapter Four, Sections 3.2.2, 3.2.3, 3.2.4, 3.2.5, 3.2.6, 3.2.7, 3.2.8, 3.2.9, 3.2.11, and 5.2) Floodplain and Erosion Hazard Areas New Jersey has considered the national interest in flood plains and erosion hazard areas through review of the Flood Disaster Protection Act (P.L. 93-234), National Flood Insurance Act of 1968 and the President's Executive Order of May 24, 1977 on Floodplain Management, and through consultation with the Federal Insurance Administration, U.S. Array Corps of Engineers, U.S. Geological Survey, Federal Disaster Assistance Administration and the National Heritage Program. The major objectives of the national interest in these areas is to avoid the long and short term adverse impacts associated with the occupancy and modification of floodplains. The national interest in flood control is reflected in the Coastal Program's restrictive designation of the Water's Edge land area in the Location Policies in Chapter Four, Section 3.4. Flood plains protection is also addressed by the Resource Policy on Flood Hazard Areas. (See Chapter Four, Section 4.23) Barrier Islands The national interest in barrier islands was considered through consultation of the same sources noted under "Floodplain and Erosion Hazard Areas" as well as participation in the efforts of the national Barrier Island Task Force. This national interest is directly reflected in the Coastal Program through the Special Areas designated as High Risk Beach Erosion Areas, Dunes, and Central Barrier Island Corridor which restrict or prohibit major development, and through the Use Policy on "Shore Protection" which gives preference to non-structural over struc- tural approaches to shore protection. The protection of barrier islands is par- ticularly crucial in New Jersey after the damaging winter storms of 1977-78. (See Chapter Four, Sections 3.2.12, 3.2.13, 3.2.14, and 4.8) Historic Sites and Districts and Areas of Unique Cultural Significance The national interest in historic sites and districts and areas of unique cultural significance, including shipwrecks, was considered through review of the Archaeological and Historical Preservation Act of 1974 (P.L. 93-291) and National Historic Preservation Act of 1966, and consultation with the National Park Service, the Heritage Conservation and Recreation Service and the Advisory Council on Historic Preservation. The major objectives of the national, state and local interests in archaeo- logical historic sites and districts are: - To afford protection from adverse impacts to designated historic and archaeological sites. - To consider cultural resources in assessing the environmental impacts of proposed activities. 190 The New Jersey Coastal Program recognizes the national interest of preserving representative and unique archaeological, historical and cultural resources of the coast. The Program reflects this recognition, through the designation of Historic Places as a Special Area which encourages the protection of historic and cultural resources. (See Chapter Four, Sections 3.2.8, 3.2.15, and 5.18) Minerals New Jersey has considered the national interest in minerals through consulta- tion with the U.S. Bureau of Mines and the U.S. Geological Survey. Although raining is not a major industry in New Jersey, its national importance is reflected by the Use Policy on "Mining" which spells out conditions on the acceptability of mining. DEP will continue to coordinate with U.S. Bureau of Mines on the Coastal Management Program. (See Chapter Four, Section 4.6.3) Prime Agricultural Lands New Jersey has considered the national interest in agriculture through con- sultation with the Soil Conservation Service and the Fish and Wildlife Service. The national importance of prime and unique agricultural lands is reflected in the Coastal Program by the Location Policy on Farmland Conservation Areas in Chapter Four which discourages development of prime farmland unless continued farming is infeasible or incompatible with surrounding land uses. The Location Policies also consider soil fertility as an important variable in determining the acceptability for development of a site. (See Chapter Four, Section 3.2.22) Forests New Jersey has considered the national interest in forests through consul- tation with the National Forest Service. The state's major forest — the Pine Barrens — is located in the central portion of New Jersey, most of which is outside the coastal zone. The Coastal Program, through the Location Policies and the "Secondary Impact" Resource Policy in Chapter Four, encourages the protection of prime forest areas. (See Chapter Four, Sections 3.2.17 and 3.5.4) FEDERAL CONSISTENCY Federal agencies play a significant role in the coastal zone. They issue permits and licenses for activities such as dredging and the construction and operation of nuclear power plants, as well as activities associated with explora- tion and development of the Outer Continental Shelf. They also provide financial assistance such as grants for watershed protection and flood prevention, and undertake direct activities and development projects such as national parks and highway construction. The federal consistency provisions of the Coastal Zone Management Act, Section 307(c)(1) and (2), require federal activities and development projects to be consistent to the maximum extent practicable with the State Coastal Zone Managemnt Program. Section 307(c)(3)(A), 307(c)(B) and 307(d) require federal licensed and permitted activities, federally licensed and permitted activities described in detail in OCS plans and Federal assistance to State and local governments to be consistent with the State coastal program. 191 New Jersey will use the goals, objectives and policies of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment as the basis for making consistency determinations. Specifically, New Jersey will consider a federal action consistent if it does not inherently conflict with the Coastal Resource and Development Policies as stated in Chapter Four, and is the available alternative most supportive of the New Jersey Coastal Program. General Guidelines on Federal Consistency The federal consistency requirements outlined in the Bay and Ocean Shore Segment follow the requirements set forth in the federal consistency regulations, 15 CFR 930. Following aproval of the Segment , New Jersey will prepare working papers with guidelines for the procedures it will use to make federal consistency operat ional . Geographic Scope New Jersey will review federal actions conducted within the boundary of the New Jersey coastal zone (Bay and Ocean Shore Segment) for consistency with the state program. However, certain federal actions conducted outside the boundary of the Bay and Ocean Shore Segment of the coastal zone may significantly affect coastal resources, and therefore, require state review for consistency. New Jersey may request a consistency review by a federal agency (for federal activities and development projects) or by an applicant (for licenses, permits, and financial assistance) for certain actions conducted outside the coastal zone. For example, federal actions outside the Bay and Ocean Shore Segment of the coastal zone subject to a state consistency review may include, but are not limited to actions concern- ing chemical or petroleum processing, transfer or, storage facilities, deepwater ports, OCS leases and exploration, development, and production plans, sewage treatment and disposal, solid waste disposal facilities, and transportation projects . Contents of a Consistency Determination or Certification A federal agency or applicant for a federal license or permit or federal assistance is encouraged to consult the New Jersey Department of Environmental Protection, Office of Coastal Zone Management as early as possible for its views and assistance regarding the means for insuring an activity will be conducted in a manner consistent with New Jersey's coastal program. A consistency determination or certification should include: 1) a detailed .description of the activity and its associated facilities which is adequate to permit an assessment of their probable coastal zone effects, 2) a brief assessment relating the probable coastal zone effects of the proposal and its associated facilities to the relevant elements of the management program and 3) findings based on the assessment indicating whether the activity is consistent with the provisions of the management program. General Procedural Requirements New Jersey will provide public notice on pending consistency determinations through the same mechanisms used for the three state coastal permit programs: CAFRA, wetlands, and riparian. Written notice will be sent to landowners adjacent to the site proposed for development, appropriate municipal and county agencies and newspapers. Each project requiring a consistency determination will also be listed 192 in the DEP Weekly Bulletin. The public notice will state that more detailed information is available from DEP and that comments to DEP on the proposal are welcome . In addition, a public hearing will be held in the local area concerned on all projects requiring a CAFRA permit and on major projects requiring a Wetlands or Waterfront Development Permit. A public hearing will also be held in the event of a serious disagreement between DEP and a federal agency concerning a federally licensed or permitted activity described in OCS oil and gas production and develop- ment plans. DEP will work with each Federal agency to provide joint written notices and public hearings on proposals whenever possible. Both DEP and the New Jersey Department of Energy (DOE) will participate in the decision of the State of New Jersey to issue a determination of consis- tency on coastal energy facilities. As required by federal regulation (15 CFR 930.18), DEP shall receive, and forward promptly to DOE, all materials necessary for consistency determination on coastal energy facilities. In the event of a disagreement, the Energy Facility Review Board will be convened to make a recom- mendation to the Governor, who shall make the final determination within the applicable time limits. As required by federal regulations (15 CFR 930.18), DEP will then transmit the final federal consistency determination to the appropriate federal agency. Below are lists of federal activities and development projects, federally licensed and permitted activities, federally licensed and permitted activities described in OCS Plans, and federal programs providing assistance to state and local governments likely to occur in, or affect, New Jersey's coastal zone. Preceeding each list are the procedures New Jersey will employ to enhance state- federal cooperation and to insure consistency. New Jersey will use the federal consistency procedures described in 15 CFR 930. (Federal Register, Vol. 43, No. 49, March 13, 1978, pp. 10510-10533). Federal Activities and Development Projects Federal activities and development projects which are located in or signifi- cantly affect the Bay and Ocean Shore Segment must be consistent to the maximum extent practicable with the State Coastal Management Program. New Jersey will consider an activity consistent to the maximum extent practicable if it does not conflict with the Coastal Resource and Development Policies and is the available alternative most supportive of New Jersey's coastal program unless compliance with New Jersey's program is prohibited based on existing law applicable to the Federal agency's operations. Ongoing federal activities initiated prior to management program approval will require a consistency determination. The federal agencies shall notify the New Jersey Department of Environmental Protection, Office of Coastal Zone Management as early as possible of all proposed activities and development projects to be located in or significantly affecting the coastal area in the Bay and Ocean Shore Segment. The agencies will also notify DEP of all proposed activities or projects on federal lands which may have an impact on water quality, air quality, noise levels, visual amenities, transportation and infrastructure network, or the need for housing and support services in the coastal area. The federal agency can notify DEP directly of a pending action or when 193 possible, the federal agency can use the existing State A-95 process. The notifi- cation will include the federal agency's consistency determination for the proposed action. The State will respond within the time designed in the regulations (15 CFR 930.41). The following federal activities and development projects will be subject to the federal consistency provisions: GENERAL SERVICES ADMINISTRATION - Location and design of proposed federal government property acquisition and building construction. - Disposal of surplus federal lands. U.S. DEPARTMENT OF DEFENSE Army Corps of Engineers - Proposed project authorization for dredging, channelworks, breakwaters, other navigation works, erosion control structures, reservoirs, dams, beach nourishment and other public works projects in the coastal zone or with the potential to impact coastal lands and waters. Air Force, Array and Navy - Location, acquisition and design of new or enlarged defense installations. Actions conducted on federal lands with potential impact on coastal lands and waters. U.S. DEPARTMENT OF THE INTERIOR Bureau of Land Mangement - OCS Leases (New Jersey reserves the right to review proposed OCS Lease Sales when the question whether lease sales are eligible for consistency has been resolved. ) Fish and Wildlife Service - Management of national wildlife refuges and proposed acquisition. National Park Service - National Park and seashore management and proposed acquisition. - Preservation of historic and cultural sites. U.S. DEPARTMENT OF TRANSPORTATION Federal Highway Administration - Highway construction. 194 Federally Licensed and Permitted Activities Applicants for federal licenses or permits for activities significntly affecting the coastal zone shall provide to DEP a certification that the proposed activity is consistent with the coastal policies. An applicant may demonstrate, for a federally licensed or permitted activity, consistency by receipt of an approved CAFRA, Wetlands, or waterfront development permit. Prior to or concurrent with submission of the application to the federal agency, the applicant must submit to DEP the appropriate state permit application and a detailed description of the proposed activity and associated facilities including maps, diagrams and technical data sufficient to allow DEP to evaluate independently the proposal's consistency. The applicant should include an assess- ment relating the probable coastal zone effects of the activities and their assoc- iated facilities to the relevant elements of the management program. From the assessment, the applicant should indicate how the proposed activities and assoc- iated facilities are consistent with the management program. DEP will circulate the list of permits and licenses which are subject to a state consistency certification to all federal agencies. This will enable the federal agency to alert all potential applicants of the need to obtain a DEP consistency certification. DEP will adhere to the same schedule for responding as described for Federal Activities and Development Projects. If DEP finds the proposal inconsistent with the Coastal Management Program, the federal agency will not issue the requested permit or license, unless and until the proposal is revised to eliminate the inconsistencies. In addition to the permits and licenses listed below, DEP reserves the right to review and comment on the consistency of other federal permit and license applications which may significantly affect the coastal zone. DEP will request appropriate information on the proposal within 45 days from the notice date of the federal application. DEP will make a consistency determination within six months as required by federal regulation, following commencement of review of the appli- cation according to procedures outlined in the federal consistency regulations. DEP will attempt to shorten this time period whenever possible. DEP will review renewals and major amendments to federal licenses and permits which significantly affect the coastal zone as defined by the federal regulations 15 CFR 930.51. The following federal permits and licenses will be subject to the federal consistency provisions: U.S. DEPARTMENT OF DEFENSE Army Corps of Engineers - Permits to regulate construction of any dam or dike across any navigable water of the U.S. under Section 9 of the Rivers and Harbor Act of 1899. - Permit to regulate the obstruction or alteration of, the construction of any structure in or over, and the excavation from or depositing of material in any navigable water of the U.S. under Section 10 of the Rivers and Harbor Act of 1899. 195 - Permits and licenses to regulate transportation of dredged material for the purpose of dumping it in ocean waters under Section 103 of the Marine Protection, Research and Sanctuaries Act of 1972. - Permits and licenses for the discharge of dredged or fill materials into the waters and adjacent wetlands of the U.S. at specified disposal sites under Section 404 of the Federal Water Pollution Control Act of 1972 and amend- ments unless such permitting activity has been delegated to the State. FEDERAL ENERGY REGULATORY COMMISSION - Licenses required for non-federal hyrdoelectr ic projects and associated transmission lines under Section 4(e) of the Federal Power Act. - Certificates required for the construction and operation of natural gas pipeline facilities, defined to include both interstate pipeline and ter- minal facilities under Section 7(c) of the Natural Gas Act. - Permission and approval required for the abandonment of natural gas pipe- line facilities under Section 7(b) of the Natural Gas Act. U.S. DEPARTMENT OF THE INTERIOR U.S. Geological Survey - Permits and licenses for geological and geophysical exploration. U.S. DEPARTMENT OF TRANSPORTATION U.S. Coast Guard - Permits for construction and operation of deepwater ports under the Deep- water Port Act of 1974 (PL 93-627). - Permits for construction of bridges under 33 USC 401, 491, 525. Federal Aviation Adminstrat ion - Permits and licenses for construction, operation, or alteration of airports. U.S. ENVIRONMENTAL PROTECTION AGENCY - National Pollutant Discharge Elimination System (NPDES) permits under the Federal Water Pollution Control Act of 1972. - Decisions under Prevention of Significant Deterioration (PSD) regulations under the Clean Air Act of 1976. NUCLEAR REGULATORY COMMISSION - Permits and licenses required for the construction and operation of nuclear facilities under the Atomic Energy Act of 1954, Sections 6, 7, 8 and 10. U.S. DEPARTMENT OF ENERGY Economic Regulatory Administration - Opinions and orders for permission for delivery of imported LNG. 196 Federally Licensed and Permitted Activities Described in OCS Plans The 1976 Amendments to the Federal Coastal Zone Management Act added Section 307(c)(3)(B), stating in part that: "... any person who submits to the Secretary of the Interior any plan for the exploration or development of, or production from any area which has been leased under the Outer Continental Shelf Lands Act ... and regulations under such Act shall ... attach to such plan a certification that each activity which is described in detail .in the plan complies with such state's approved management program and will be carried out in a manner consistent with such program." Applicants for federal licenses or permits, described in detail in OCS explor- ation or, development plans, which significantly affect the coastal zone must supply to DEP a detailed description of all proposed federally licensed or per- mitted activities and facilities for OCS activities including, but not limited to, construction and operation of drilling platforms, other structures in navigable waters, waste and dredged material disposals, temporary or permanent service bases, repair and maintenance yards, steel or concrete platform fabrication yards, steel platform or pipeline installation service bases, pipelines and landfalls, pipe coating yards, partial processing facilities, gas processing and treatment plants, marine terminals and tank, farms, and petrochemical complexes. DEP will review OCS plans in accord with the procedures set forth in Subpart E of the Federal Consistency Regulations. DEP will require consistency certifica- tion for the following: - OCS exploration, development and production plans. - Federally licensed and permitted activities described in detail in OCS plans including, but not limited to: U.S. DEPARTMENT OF DEFENSE Army Corps of Engineers - Permits for artificial islands and fixed structures located on the Outer Continental Shelf under the Rivers and Harbor Act of 1899 as extended by 43 U.S.C. 1333(f). U.S. DEPARTMENT OF THE INTERIOR Bureau of Land Management - Permits and licenses for rights-of-way for common carrier pipelines. U.S. Geological Survey - Permits to drill - Permits and licenses for other post-leasing activities related to OCS exploration, development, and production will be subject to a consistency certification (refer to section on federally licensed and permitted activi- t ies) . 197 Federal Assistance to State and Local Governments Federal assistance to state and local governments for projects significantly affecting the coastal zone may be granted when DEP certifies that the activity will be consistent with the coastal program. DEP will use the A-95 review process to monitor proposed federal assistance projects in the coastal zone. The State also reserves the right to comment on other federal assistance projects brought to its attention through the media and other avenues. When such monitoring indicates a potentially significant impact on the state's coastal zone, DEP will notify the applicant agency, involved federal agencies, and the federal Assistant Administrator for Coastal Zone Management of its intention to make a consistency determination and will request the applicant to provide DEP with a consistency certification if the applicant has not included it in the application. At that time, DEP will aslo ask the applicant agency for any additional information necessary for the consistency determination. DEP will notify the applicant agency and the New Jersey Department of Commu- nity Affairs, in its role as State A-95 Clearinghouse, of its objection, if any, to proposed projects. The Department of Community Affairs is required to forward notification of any consistency objections to appropriate federal agencies. The DEP comments will describe how the proposed project is inconsistent with specific Coastal Resource and Development Policies and, where possible, will recommend alternatives which would alleviate the inconsistencies. The DEP comments will also refer to the appeal procedures set forth under Subpart G of the adopted NOAA regulations on federal consistency published (15 CFR 930, Federal Register, Vol 3, No. 49, March 13, 1978). NJDEP will monitor state and local federal assistance applications affecting the coastal zone including, but not limited to the following programs: U.S. DEPARTMENT OF AGRICULTURE Soil Conservation Service - Watershed protection and flood prevention, and Resource Conservation and Development . U.S. DEPARTMENT OF COMMERCE Economic Development Administration - Economic Development Planning Grants, and Economic Development Grants for Public Works and Development Facilities. U.S. DEPARTMENT OF ENERGY - State Energy Conservation Program U.S. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT - Housing Assistance Grants, Community Development Block Grant, and Section 701 Planning Assistance Grants 193 U.S. DEPARTMENT OF THE INTERIOR Heritage Conservatio n and Recreation Service - Land and Water Conservation Fund Fish and Wildlife Service - Endangered Species Act of 1973. U.S. DEPARTMENT OF TRANSPORTATION Federal Aviation Administration - Airport Development Aid Program Federal Highway Administration - Federal Aid Highway Program Urban Mass Transportation Administration - Urban Mass Transportation Grants ENVIRONMENTAL PROTECTION AGENCY - Air Pollution Control Program Grants, Construction Grants for Wastewater Treatment Works, State and Interstate Program Grants for Water Pollu- tion Control. Demonstration Projects under S 144 of the Safe Drinking Act, and Solid Waste Facilities Program under S. 3254(b) of Solid Waste Disposal Act REGIONAL BENEFIT DECISIONS The federal Coastal Zone Management Act requires that states provide a "method of assuring that local land and water use regulations within the coastal zone do not unreasonably restrict or exclude land and water uses of regional benefit." (Subsection 306(e)(2)). In New Jersey, uses of regional benefit include energy generating and distri- bution facilities operated by public utilities (not refineries and tank farms), water and sewer facilities, solid waste collection and disposal systems, roads and highways, parks, housing for people with low or moderate incomes, facilities necessary for state or national defense, and the use of wetlands and wet beach areas. Local governments are prevented from unreasonably excluding these uses by one or more of three factors. The most significant factor is the State's power to overrule a local decision denying approval to any public utility. 199 The Board of Public Utilities in the Department of Energy has broad regulatory authority over public utilities, which comprise the bulk of the defined uses of regional benefit. This authority includes the power to supercede local^ zoning laws when necessary if the service conveniences the welfare of the public (N.J.S.A. 40:55D-19). The standard of necessity has been defined by the courts as that service "reasonably requisite to service public convenience". (Petition of Public Service Corordinat ion Transport, 103 N.J. Super 505, 1968). The terra public utility includes roads, street railway, traction railway, autobus, canal, express subway, pipeline, gas, electric light, heat power, water, oil, sewer, solid waste collection, solid waste disposal, telephone or telegraphic system, or plant or equipment for public use (N.J.S.A. 48:2-13). This override authority can be applied only to projects that have received all required state approvals. The authority of the Board of Public Utilities to override local siting decisions can be invoked at the request of the aggrieved utility whenever "reason- ably requisite to service public convenience". This is an effective method of protecting uses of regional benefit from reasonable restriction or exclusion by local governments. The agreement between NJDEP and NJDOE on the energy siting policies and processes for resolving conflicts ensures that the coastal management program's policies concerning uses of regional benefit will be recognized by the Board, because the NJDOE intervention authority may be used in proceedings before the Board. Under the Solid Waste Management Act, (N.J.S.A. 13:1E-1 et seq.), DEP also has authority to override the local exclusion of a solid waste facility. Second, the State of New Jersey has the power of eminent domain for any facilities necessary for state or national defense (N.J.S.A. 20:1-3.1), Airports (N.J.S.A. 20:1-3.1), State highways (N.J.S.A. 27:7-44.6) and parks and open space under the Green Acres Program (N.J.S.A. 13:8A-24). Third, New Jersey has addressed the regional benefit provided by housing for people with low and moderate incomes largely through the Judiciary since low and moderate income housing often does not provide great economic benefits to a muni- cipality and cannot be required by a state agency. The New Jersey Supreme Court has established in Southern Burlington County NAACP v. Township of Mt . Laurel , 67 N.J. 151 (1975) that municipalities must "presumptively make realistically possible an appropriate variety and choice of housing ... at least to the extent of the municipality's fair share of the present and prospective regional need ...". The Department of Community Affairs is developing guidelines to implement this ruling. A developer whose application is denied local permits to build such housing has legal standing to appeal tbe denial on the grounds that the municipality has not provided its fair share of low cost housing. A recent Superior Court decision in New Jersey, though not in the coastal zone, has demonstrated the validity of this technique. ( Round Valley Inc. v. Clinton Township , Superior Court (January, 1978). 200 Chapter Seven: SPECIAL COASTAL RESOURCE AND DEVELOPMENT PO LICY REQUIREMENTS OF ■ THE FEDERAL COASTAL ZONE MANA GEMENT ACT Introduct ion Geographic Areas of Particular Concern Areas of Preservation and Restoration ************************************************ Introduction The federal Coastal Zone Management Act contains five requirements relating to specific uses or areas of the coastal zone. This chapter describes how the New Jersey Coastal Program meets the requirements for Geographic Areas of Particular Concern and for Areas of Preservation and Restoration. The other three require- ments, relating to Energy Facility Siting, Shorefront Access Planning and Shoreline Erosion Planning, were added to the Act by the Amendments enacted in 1976. New Jersey will describe how its coastal program meets these requirements for the entire coastal zone in its program to be submitted for the other parts of the coastal zone; states are not required under federal law to include these elements in a management program until after October 1978. The New Jersey Coastal Program addresses many of the issues raised by all five requirements in other Chapters. For this reason, the sections which follow liberally refer the reader back to other parts of the document, particularly Chapters Four and Five. Geographic Areas of Particular Concern Section 305 (b)(3) of the federal Coastal Zone Management Act requires that the state provide "an inventory and designation of areas of particular concern within the coastal zone." A draft paper prepared by NOAA-OCZM (May 24, 1976) indicates that the designation must lead to "specific recognition and action within the framework of the management program". New Jersey has designated Geographic Areas of Particular Concern (GAPC) on the basis of the following three criteria: A. Regional or state-wide significance of the area; B. Need for special attention based on threat to the preservation of the area or obstacles to its development consistent with the policies of the New Jersey Coastal Program, and C. Availability of State legal authorities to promote desired uses of the areas. Using the criteria, New Jersey proposes two generic GAPCs and nine specific GAPCs . Clearly, many other areas in the coastal zone are important, but designation of them as GAPC's would not be meaningful or feasible, due to criteria C above. The New Jersey Coastal Program, therefore, relies primarily upon the Coastal Resource and Development Policies in Chapter Four and the Management System in Chapter Five to promote the wise use of each site in the Coastal Zone Segment. 201 When DEP-OCZM asked the public to nominate areas of particular concern, virtually every possible site in the potential coastal zone was mentioned. DE? used the public nominations to confirm and refine the Coastal Resouce and Development Policies. In addition, the Department distributed a report entitled Nominated Areas of Public Concern in the New Jersey Coastal Zone to other State, municipal, county and federal agencies. The Department is preparing a supplement to this report describing how each nominated area is addressed by this coastal program. Copies of both the report and the supplement are available from DEP-OCZM. New Jersey's Geographic Areas of Particular Concern are the following: 1. All Coastal Wetlands - Wetlands are valuable to New Jersey because they serve as natural flood controls, water purifiers, and essential nurseries for marine creatures. (See also the rationale for the Wetlands policies in Chapter Four). The threat to wetlands posed by development was recognized by the Governor and Legislature in 1970 when they enacted the Wetlands Act. This Act has effectively reduced the average annual loss of wetlands to development from 1900 acres to 55 acres. Under the Coastal Program, New Jersey will continue to use the Wetlands Act to preserve coastal wetlands. The priority of uses in coastal wetlands is as follows: (a) Open Space (No development or disturbance). (b) Development which (1) requires water access or is water oriented as a central purpose of the basic function of the activity, (2) has no prudent or feasible alternative on a non-wetland site, (3) will result in minimum feasible alteration or impairment of natural tidal circulation, and (4) will result in minimum feasible alteration or impairment of the natural contour of the natural vegetation of the wetlands. (c) Other development has lowest priority. 2. Higbee Beach - Pond Creek Meadow Area - This unique area of 440 acres, in Lower Township in Cape May, includes five mini-ecosystems of bayshore beaches, dunes, wooded uplands, fields, and freshwater and tidal meadows. The area is valued by residents of, and visitors to southern New Jersey as a place to sunbathe and swim, and to observe wildlife. Over 200 species of birds have been recorded in the area. The area has been threatened by repeated efforts to build a campground within it. New Jersey has used the CAFRA permit program and funding from the Green Acres Program and the Endangered Species Act administered by the Division of Fish, Game and Shel 1 fisher ies described in Chapter Five, to protect the area exclusively for recreation and wildlife. Figure 17 indicates that boundary of the area which has been purchased by the State of New Jersey. The set of uses with priority in the Higbee Beach-Pond Creek Area includes only recreation compatible with protection of the area's wildlife. All other uses have lowest priority. 3. Wet Sand Beaches - New Jersey's 127 miles of ocean shorefront form a natural resource which is valued directly by residents and indirectly as the mainstay of the state's tourism industry. The wet sand beach area seaward of the mean high water line is known as Public Trust Land and is a Geographic Area of Particular Concern. This area is owned by the State of New Jersey unless the State has conveyed a "riparian grant" for the tide-flowed land. In all parts 202 / Figure 17 iorth J«ltV Light inal Entrance., juth Jetty Light PROPERTY PURCHASED BY STATE OF NEW JERSEY SITE OF HIGBEE BEACH CAMPSITE CAFRA PERMIT DENIED I : 24, OOO 1 000' 20OO" SOOO' —I 1 1 of the area, whether or not it is owned by the State, public access must be provided for navigation, commerce and recreation, and any new development requires a riparian "waterfront development" permit, as described in Chapter Five. The priority of uses in the wet sand beaches areas is: (a) recreation (b) navigation and commerce (c) development with no prudent or feasible location on a non-beach (wet sand) location (d) all other uses have lowest priority. In addition to the three GAPCs listed above, eight specific state-owned areas in the coastal zone have been labelled "natural areas" under the Natural Areas System Act of 1976, N.J.S.A. 13 : 1B-15. 12(a) et seq., and its regulations (N.J.A.C. 7:2-11.1 et seq.). A natural area is defined as "an area of land or water which has retained its natural character, although not necessarily completely undisturbed, or having rare or vanishing species of plant and animal life or have similar features of interest which are worthy of preservation for the use of present and future residents of the State." N.J.A.C. 7:2-11. 2(A). The Department of Environmental Protection, Green Acres Program, on July 13, 1978, designated 38 state owned areas to be preserved and managed as natural environments. The nine areas which are in the Bay and Ocean Shore Segment are also designated GAPCs under the federal Coastal Zone Management Act. Two of the areas are parts of Island Beach State Park, an oceanfront natural barrier island. The Natural Areas system regulations divide the areas into three types for management purposes ( 7: 2-11. 5 .B) : Class I Natural Areas: a) The Department shall manage such areas for eco- logical research and study. When compatible with other uses they may be used for guided nature tours ;' and b) All of Class I natural areas shall be restricted to entry by permit or with a designated Department employee. Class II Natural Areas: a) The Department shall manage Class II areas for the specific purpose of interpretation, of natural processes, flora and fauna of this State. Class II areas may be used for ecological research and study; and b) Use of Class II areas shall be limited to interpretive purposes or shall be restricted to entry by permit for research purposes. Class III Natural Areas: a) The Department shall manage Class III areas for recreational use, interpretive study, wildlife propagation, and succession control; and b) Use of Class III shall be limited to interpretative purposes, swimming, canoeing, rowboating, hiking, trailside camping, and recreational hunting, fishing and trapping as provided in the natural areas system rules and regulat ions . The nine geographic areas of particular concern in the Bay and Ocean Shore Segment, and descriptions from the Natural Areas regulations are listed below: 204 4. Cape May Point Natural Area: An area of 100 acres in Cape May State Park, it demonstrates typical southern New Jersey sand dune and fresh- water marsh habitats, and is a bird sanctuary. The beach area is classi- fied type III, the rest type II. 5. Cape May Wetlands Natural Area: An area of 2,000 acres acquired through the Green Acres program, it demonstrates the ecosystem complex of salt- marsh habitats, and is a sanctuary for colonial nesting and migratory birds. It is classified type III. 6. Strathmere Natural Area, Corson Inlet, Cape May County. An area of 80 acres, it demonstrates dune habitat and the erosion effect of tidal movements confluent with outwash currents. Type III. 7. North Brigantine Natural Area: An area of 968 acres acquired with Green Acres funds and adjoining the Brigantine National Wildlife Refuge, it demonstrates both sand dune and salt marsh habitats and serves as a refuge for coastal birds. Beach area is type III, remainder type II. 8. Great Bay Natural Area, Bass River, Ocean County. An area of 330 acres, it is a salt marsh habitat and an excellent example of New Jersey Bay ecosystem. It is a highly productive oyster area, and is a resting area for coastal birds. Type I. 9. Island Beach State Park: Island Beach State Park has been statutorily recognized by the New Jersey State Legislature as is one of the few natural expanses of barrier beach remaining along the eastern edge of North America; that Island Beach State Park is highly valued for its topography, flora and fauna; that Island Beach State Park serves the citizens of this State as a unique recreational and educational resource (N.J.S.A. 13:6-2 et seq.). This Act, requiring the park's continued preservation, further provides that the Park "shall be preserved, main- tained and improved in such a manner as the Division of Parks and Forestry in the Department of Environmental Protection determines will best perpetuate the park's present physical state. Through state ownership of Island Beach State Park and the terms of the Law, New Jersey will manage the entire Park as a Geographic Area of Particular Concern. In addition, two parts of the park are designated "Natural Areas" under the Natural Areas System Act of 1976. Permissible uses of these areas are defined more speci- fically below: (a) Island Beach Research Area and Wildlife Sanctuary: An area of 1,200 acres encompassing the width of Island Beach State Park and running " north for 3.3 miles, it demonstrates a sand dune habitat, it is a wildlife sanctuary, and will serve as a research area. Beach area type III, remainder type II. (b) Island Beach Natural Area: An area of 1,000 acres of the State park, encompassing its width and running 3.3. miles south (excepting maintenance area and offical residence), it demonstrates dune habitat and is a botonical preserve. Beach area type III, remainder type II. 10. Swan Point Natural Area, Brick Township, Ocean County: An area of 104 acres acquired through the Green Acres program, it demonstrates salt marsh habitat, and is a part of the Barnegat Bay ecosystem. Type II. 205 11. Manahawkin Natural Area: An area of 64 acres and a national natural Landmark, it demonstrates a mature bottomland hardwood forest. Type III. (Maps of designated natural areas are available from the Green Acres Program, New Jersey, DEP, Box 1389, Trenton, N.J. 08625) Areas of Preservation and Restoration Section 306 (c)(9) of the federal Coastal Zone Management Act requires that the state establish "procedures whereby the specific areas may be designated for the purpose of preserving or restoring them for their conservation, recreat ional, ecological or esthetic values". This is a requirement that a' process to identify areas for preservation or restoration, rather than a list of areas themselves, be available to the state coastal agency. The Department of Environmental Protection administers several approved programs through which areas can be designated for preservation or restoration. Because these programs are all in the same Department, administrative procedures are already in place to insure their coordination with the coastal program. Through the Green Acres Program (N.J.S.A. 13:8A-35 et seq . ) , DEP can purchase land or provide grants to local governments for land purchase and park development. The amount of money available is established by voter approved bond issues and legislative appropriations. The Green Acres Program also administers two other programs which provide DEP with the ability to indicate concern for the preservation or restoration of an area without the absolute certainty of success provided by land purchase. Under the Natural Ar^as Systems Act (N.J.S.A. 13:1B-I5.12a et seq.) described in the Geo- graphic Areas of Particular Concern section, DEP can identify additional natural areas within DEP-owned and managed lands in need of preservation or protection and available implementation options. The Wild and Scenic Rivers System Act, passed in 1977, requires that DEP classify, designate, and administer river areas as wild, scenic, recreational, or developed recreational rivers. The rules and regulations for these two programs further describe the process for designation. The Division of Fish, Game and Shellf isheries can apply funding available under the federal Endangered Species Act to the preservation of species habitats through land purchase or management. This is one of the major tools being used to preserve the Higbee Beach - Pond Creek Geographic Area of Particular Concern. Another procedure for the designation of areas for preservation or restor- ation is through the New Jersey Register of Historic Places and the National Register of Historic Places. The Commissioner of DEP, as the State Historic Preservation Officer, may approve nominations to the keeper of the National Register of publicly or privately owned areas and sites for inclusion on the Register . Such inclusion prohibits any federal, state, county or municipal agency from undertaking a project which would harm the historic place, without the approval of DEP, and, in the case of the National Register, the approval of the Advisory Council on Historic Preservation. These historic places are also iden- tified as a Special Land Area in the Location Policies of Chapter Four. 206 Chapter Eight: NEXT STEPS IN COASTAL MANAGEMENT IN NEW JERSEY Managing the Bay and Ocean Shore Segment Completing the State's Coastal Management Program Changing the Coastal Management Program ************************************************* Managing the Bay and Ocean Shore Segment Federal approval of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment by NOAA-OCZM is a major, but not the final step toward com- pleting coastal planning. While the Coastal Program for the Segment is completing the federal review process, New Jersey has submitted its first Coastal Zone Management Program Administration (Section 306) Grant Application to NOAA-OCZM. The application defines a series of projects for the twelve months following Program approval, to add increasingly greater specificity to the Coastal Resource and Development Policies, as well as improved coastal awareness and monitoring of coastal deci- sions. Greater specificity will come in part from mapping programs, and will build upon the environmental sensitivity and development potential studies to be carried out as part of the further development of the Coastal Location Acceptability Method (CLAM). DEP will also work with the NJDOE, the Attorney General of New Jersey and NOAA-OCZM in the next year to resolve boundary issues between New Jersey, Delaware and New York. To resolve the New Jersey-Delaware issues, DEP will work particu- larly closely with Salem County officials and representatives of affected muni- cipalities . DEP also plans to explore many other possible uses of the funding available under Program Administration Grants. A special coastal zone management grant in the summer of 1977, for example, enabled DEP to run a Beach Shuttle to Island Beach State Park. Similar projects might be feasible in the future. The Division of Marine Services and the Division of Fish, Game and Shellf isheries will work with the Mid-Atlantic Regional Fisheries Management Council to promote interstate coordination of plans for the management of fishery resources. Specifically, DEP will identify and establish priorities for a set of fishery management tasks including preparation of an inventory of living coastal resources, and may then request funding from NOAA-OCZM under the Coastal Fisheries Assistance Program. DEP and NJDOE have received funding under the Coastal Energy Impact Program to conduct a joint Major Energy Facility Study, to specify appropriate energy facility development potential criteria and candidate areas for use in the Coastal Manage- ment Program's Location Policies. DEP will also continue its analysis of coastal land and water features and development opportunities, in cooperation with State and local planning agencies, in order to articulate increasingly specific coastal policies, concerning the appropriate function and character of various coastal regions. DEP will continue the elaboration of a prospective concept of the coast outlined in Chapter Three, providing a context for decision-making that recognizes the appropriate and desirable differences between regions and communities of the coast . 207 DEP will continue in its efforts to make the management system for the coastal program increasingly equitable, understandable and efficient. This will involve consideration of administrative changes such as further permit coordination and simplification, and legislative changes such as permit consolidation, as well as preparation of handbooks and other publications to make the permit application and review processes more clear. The expertise and insights of the coastal planning agencies participating in the 1978 cooperative DEP-County Coastal Planning project is providing valuable information for this prospective effort. The 1978 project involves three major elements. First, the counties are responsible for reviewing the coastal management program and recommending county-specific revisions. Second, the counties are submitting comments and recommendations on specific coastal permit decisions pending before DEP. Third, the counties are acting as regional coastal clearing- houses to the public, thereby increasing public participation and promoting inter- governmental coordination. During the next year, DEP will also prepare a "critical resource report" analyzing the extent to which cumulative impacts on critical coastal resources are adequately managed, and recommending appropriate administrative or legislative action. At the conclusion of the county contracts in November 1978, DEP, with county officials and other interested citizens, will evaluate the results and recommenda- tions. In particular, DEP will consider the recommendations made by the counties for future coastal activities including studies, pilot projects, and admini- strative functions, to be funded under the Program Implementation Grant. Lastly, the Department of the Public Advocate has strongly encouraged a program to fund people wishing to actively participate in the permit review of particular applications. DEP will work with the Public Advocate and other inter- ested people to explore whether this idea would be workable and beneficial. Completing the State's Management Program Federal approval of the Bay and Ocean Shore Segment marks a major achievement, but the entire management program for New Jersey's coastal zone must also be completed promptly. DEP will continue its coastal planning efforts under the Fourth Year Coastal Zone Management Program Development Grant. In particular, DEP will complete a major Estuarine Study to increase the specificity of the environ- mental sensitivity factors considered in the Program's Location Policies. Also, DEP will initiate a Development Potential Study, complementing the Estuarine Study, by identifying the key siting factors for a wide range of coastal development activities frcm the developer's perspective. The study will concentrate on the conventional types of development that take place in the coastal zone. The results of these projects should markedly increase the level of detail of the standards in the Location Policies. The second major DEP-OCZM staff coastal planning effort in 1978, in addition to work on the Segment, is preparation of the management program for the Delaware Waterfront, Northern Waterfront and Hackensack Meadowlands portions of the pro- spective coastal zone, as defined in Appendix E. Considerable coastal planning has taken place in these more built-up, urbanized coastal regions, and many of the 208 coastal policies in Chapter Four are equally applicable to these areas. However, detailed coastal planning in terms of the boundary, policies, and management system will be carried out in order to prepare a draft coastal management program lor the entire state's coastal zone, incorporating the Bay and Ocean Shore Segment by 1979. DEP's contract with coastal counties will produce results contributing to the program for these areas since Hudson, Union, Middlesex, Camden, Gloucester and Salem Counties are among the participants. In addition, as part of the development of the coastal program for the Northern Waterfront area, DEP-OCZM will be under- taking an analysis of the Hackensack Meadowlands Development Commission's (HMDC) master plan to determine consistencies with the coastal management program. The study will help define an appropriate coastal zone boundary, based in part on water quality, wetlands, and aerial photographic analyses. New Jersey's Fourth Year Coastal Zone Management Program Development Grant Application to NOAA-OCZM defines the specific tasks and budget for DEP's coastal planning for 1978 and early 1979. DEP has requested that NOAA extend this grant through June 1979. Copies of the grant application are available from DEP-OCZM. If funding is available, DEP may request an additional program development grant to complete preparation of the New Jersey coastal program. New Jersey will follow the following timetable for preparation of the parts of the coastal zone outside the Bay and Ocean Shore Segment and integrate these elements into a single state-wide program. August, 1978 DEP, with NOAA, completed Final Environmental Impact Statement for Bay and Ocean Shore Segement , which the Governor has submitted to the NOAA for review. Early September, 1978 NOAA review (Rest of timetable assumes approval.) October, 1978 New Jersey anticipates receipt of first Program and Administra- tion (Section 306) Grant for Bay and Ocean Shore Segment, estimated to be $800,000 in federal funds. December, 1978 (approx. ) DEP publishes preliminary working draft, for public comment, of Coastal Management Program for entire state, and holds work- shops and meetings. March, 1978 (approx. ) DEP and NOAA publish Draft Environmental Impact Statement for the entire Coastal Zone and DEP and NOAA hold public meetings and hearings. July, 1979 (approx. ) Governor submits complete State Coastal Management Program Final Environmental Impact Statement on the Coastal Zone to NOAA. September, 1979 New Jersey receives Program Administration Grant for entire coastal zone, estimated to be $1.4 million. 209 Changing the Coastal Management Program The last five years of coastal planning in New Jersey have amply demonstrated the dynamic nature of the issues and opportunities that confront the coast. Onshore planning for offshore oil and gas activities, sound management of barrier islands, revitalizat ion of all New Jersey's urban areas, including the special case of Atlantic City, and other policy areas have moved to the top of the coastal management agenda in 1978, but the future may bring new management needs. The federal Coastal Zone Management Act wisely recognizes the importance of change and flexibility and provides mechanisms for states to refine or amend approved coastal management programs. In the short term, changes to the Bay and Ocean Shore Segment will be con- sidered and proposed, as appropriate, in the course of drafting the management program for the Delaware River, Northern Waterfront and Meadowlands regions of the coastal zone, and integrating the boundary, policies, and management system for those regions with the initial Coastal Program for the Bay and Ocean Shore Segment. In the long term, New Jersey will seek federal approval for major changes in the management program when such changes seem imperative to maintain a responsive, coherent, and up-to-date approved coastal management program. Any changes will be incorporated into the Coastal Program according to NOAA regulations 923.81. Federal consistency would not be applicable to such changes until these processes would be completed. 210 PART III PROBABLE IMACTS OF THE PROPOSED ACTION ON THE ENVIRONMENT Introduct ion Section 1 - Summary of Environmental Impacts Section 2 - Summary of Socio-Economic Effects and their Associated Environmental Impacts A) Impacts on New Development and Land Values B) Resorts/Recreation C) Social Effects and their Associated Environmental Impacts D) Institutional Impacts Section 3 - Impacts of the Coastal Resource and Development Policies A) Location Policies 1. Special Areas 2. Water Areas 3. Water's Edge Areas a) Natural Water's Edge b) Retained Water's Edge c) Filled Water's Edge 4. Land Areas B) Use Policies 1. Housing 2. Resort/Recreation 3. Energy 4. Public Facilities 5. Industry-Commerce 6. Ports 7. Coastal Engineering C) Resource Policies ******************************* INTRODUCTION Significant environmental, social and economic impacts will result from federal approval of the New Jersey Bay and Ocean Shore Segment. In order to fully understand the impacts associated with federal approval, it is necessary to evaluate the probable impact of program implementation by the State of New Jersey. The following description of program impacts is divided into three sec- tions. Section One summarizes the environmental impacts associated with program approval. Section Two summarizes the socio-economic effects and their associated environmental impacts associated with program approval. Section Three is a more detailed analysis of the Coastal Resource and Development Policies and their probable impacts. Section 1 - SUMMARY OF ENVIRONMENTAL IMPACTS The DEP ' s regulation of activities in the Segment's coastal waters, as strengthened by the Segment policies, will continue to minimize many of the detri- mental environmental effects associated with coastal development and will have a positive long range impact on the productivity of natural resources. Dredging activities in port areas will be conditioned to minimize possible adverse effects on water quality and aquatic habitats. Transportation of oil and transfer of gas 211 and oil in coastal water will be conditioned to reduce the possibility of oil spills. Pipelines on land are specifically prohibited from being located in sections of the Segment where routes would lead through the Pine Barrens; and pipelines must also avoid sensitive areas where possible. The Segment policies will facilitate protection and management of certain natural resources of the coast, such as salt marshes, beaches, barrier islands, fish and shellfish spawning grounds, endangered species habitats and prime agri- cultural land. The policies will help preserve the coast's aesthetic qualities for public enjoyment and promote the various types of recreational opportunities available along the shore. By preserving these valuable natural resources, Segment policies will discourage further inappropriate development in hazardous areas which could result in destruction of property and loss of life. Costs associated with these policies include short term increases in construction costs for new develop- ment and long term changes in land values depending on the level of development considered appropriate under the Coastal Policies. Of particular note are the policies related to wetlands, beaches and barrier islands. In general, development is discouraged in wetlands. Some exceptions are outlined in Chapter Four of Part II. Dumping solid or liquid wastes and storing pesticides on wetlands are prohibited. The benefits of preserving wetlands accrue to the major coastal industries. Fish and shellfish industries depend directly on wetlands which are the main support of estuarine and marine food webs and provide spawning grounds for valuable commercial and sport species of fin and shellfish. Since filling is required to build in wetlands, avoiding wetlands on a project site can reduce the development costs. Prohibiting wetlands development reduces land available for new growth in the coastal area and reduces the value of real estate with large areas of wetlands. However, the value of land adjacent to wetland areas may be enhanced. Paving and structures are prohibited on beaches unless the proposed develop- ment is publicly funded and has no prudent or feasible alternative elsewhere. This policy provides vital support to maintaining the recreational assets of the shore- line. Since beaches are subject to coastal storms and erosion from offshore currents, prohibiting development protects property as well as public health and safety. The short term costs associated with restricting development on beaches will be the same as those associated with the restrictions on wetlands. Barrier islands, which are composed entirely of various Special Areas, are identified as one of ten different regions of the coast. The policies specific to barrier islands address the problems of the tourist industry, energy siting, and the natural functions of the islands with their associated water bodies. The tourist industry has produced a highly developed set of islands on which the extensive private investments are not easily protected from the ravages of the ocean. The policies for barrier islands prohibit construction of oil refineries, petrochemical facilities and crude oil storage facilities on the islands. Other policies relevant to the barrier islands address high risk erosion areas, dunes, and the central Barrier Island Corridor. The first two policies discuss the vulnerability of the islands and the need to protect them, while the third discusses where location of uses can occur with minimal expected damage. Also, the housing and resort/recreation sections identify desired uses on the 212 islands like water dependent uses, public access, and special Atlantic City devel- opment. The shore protection policies attempt to protect the existing development and non-structural land uses through dune restoration where possible and through structural means where necessary. The policies addressing barrier islands and dunes will apply to those develop- ments which require a coastal program permit. The cumulative effect of small scale development on barrier islands is not addressed by the program. However, the program recognizes that cumulative effects could have some long term environmental impact on barrier islands. The program will provide some control over barrier island development. The Segment policies are intended to preserve natural processes and resources; however, DEP also recognizes that the coast will continue to experience significant new growth. Water dependent energy development, off-shore mineral mining, and port and harbor development with their attendant dredging, spoil disposal and bulk- heading activities will be permitted in certain locations and under certain condi- tions. The impacts of these activities include lowering water quality, reducing fishery productivity as a result of habitat destruction and increased water tur- bidity, deterioration of coastal aesthetic amenities, and potential interference with recreational uses of the beaches. Policies used for evaluating the costs and benefits of proposed developments are designed to mitigate these impacts. The Location Policies include a methodology for determining the acceptability of a site for development. Implementing these policies should have a positive long term environmental impact by preserving unique, exceptionally productive or irreplaceable resources and assuring that development will be compatible with the environment in which it is located. In particular, development will be restricted in areas with a high potential to degrade water quality. The costs associated with these policies will be a trade-off of relatively scarce coastal natural resources for inland natural resources, which are more abundant. Thus, the location of activities inland will require commitment of resources in other parts of New Jersey outside the Segment. , Under the Use Policies, most types of major development located in the Segment will be regulated by the State of New Jersey. However, the Segment leaves land use decisions of predominantly local impact to the discretion of local governments. For example, community character and regulation of housing development for projects of 24 units, or less, outside of riparian lands or wetlands locations, will remain the responsibility of local governments. Thus, residential or commercial develop- ments that may not be detrimental individually and are not regulated by the State could well have cumulative adverse impacts on the coastal zone. This problem is not addressed by the Bay and Ocean Shore Segment. The Resource Policies address prevention or mitigation of adverse environ- mental impacts on both natural and cultural resources. Implementing these policies should result in long term beneficial environmental impacts related to protecting water quality and water supply, preventing the loss of prime agricultural land through erosion, protecting air quality, protecting historic sites and other recreational attractions, and increasing effective management of fisheries and wildlife resources. The costs associated with these policies would include the potential for adverse impacts on air and water quality or natural resources outside the coastal zone as a result of shifting development pressures inland. 213 Section 2 - SUMMARY OF SOCIO-ECONOMIC EFFECTS AND THEIR ASSOCIATED ENVIRONMENTAL IMPACTS Within the context of a statewide coastal zone management strategy, the New Jersey Bay and Ocean Shore Segment has been developed to conserve and protect key renewable natural resources and recreational amenities that form the economic base of the area. Under these policies, large scale energy production and storage facilities, heavy industrial uses and most additional port development must locate outside the Segment. Other types of new development will be encouraged to locate in the already developed areas. Implementing the Segment policies will not reduce either develop- ment pressures or the rate of growth in New Jersey, especially regarding housing development. However, policy implementation may shift some development activity, such as energy storage facilities, to more suitable inland locations. Short term costs of energy development may increase as a result of these policies, but, over the long term, concentrating development near existing infrastructure and away from coastal flood prone areas will be more cost effective. Implementing the Segment policies will improve the process for determining coastal land and water uses, siting facilities in the national interest and for predicting what types of development will be allowed in the coastal region. The Segment plan concentrates development in or adjacent to developed areas and existing infrastructure. Thus, over the long term, as land suitable for development along the coast is committed to that development, public sector investments in infrastructure will increasingly determine the location of new growth in the coastal zone. The need for these investments can be anticipated and planned for in an efficient way. Also, development may occur in higher densities and in fewer places, reducing the long term costs for infrastructure to support this development. Short terms costs to developers, such as land prices, may increase. A. Impacts on New Development and Land Values Managing sensitive coastal resources will enhance the desirability of some coastal areas for future development, while limiting the use of other land for development. Property owners with land designated as acceptable for development which is also located adjacent to protected amenities like open space, recreation areas, or historic places will realize an increase in the value of their property. Owners of land which include other special areas like endangered species habitat, productive wetlands, prime agricultural land or high risk beach erosion areas may not be able to realize the level of financial gain they had anticipated. Examples of these patterns in New Jersey can already be seen in wetlands areas, where the resale price of land declined markedly after passage of the Wetlands Act of 1970, and in Atlantic City, where land values rose dramatically after passage of the Casino Referendum in November 1976. Long term effects on property values are harder to predict. For example, the value of property in areas designated for preservation by the Segment policies may decline initially, but may later rise on selected parcels either because of increased tourism or because acceptable develop- ment techniques may become economically feasible. 214 Requirements to minimize environmental disruption during construction of new developments may increase the short term costs of housing and increase infra- structure investments. The long term benefits of avoiding construction on haz- ardous sites and preventing shoreline erosion will be a reduction in destruction of property and loss of life. Other long term economic benefits include maintenance of viable recreation, agriculture and fisheries industries in the coastal zone. B. Resort s/Recreat ion Recreation and tourism will continue to be the largest industry in the Bay and Ocean Shore Segment of New Jersey's coastal zone and will perhaps expand as a result of development in Atlantic City. Other industries will be located in inland parts of the coastal zone or outside the Segment boundaries altogether. Single family detached housing will continue to be common, but the Bay and Ocean Shore Segment will have increasing numbers of cluster development which will contribute to more efficient settlement patterns for recreational and year round use. The ocean waterfront from Sandy Hook to Cape May will be devoted almost exclusively to recreational uses and commercial fishing. An exception may be made for limited areas near developed coastal areas to serve as onshore support bases for oil and gas exploration and development of outer continental shelf resources. The inland areas of the coastal zone nearest the ocean will continue to provide housing and commercial services for seasonal and year round residents. Portions of the coast further inland will accommodate housing and agricultural operations as well as some industries. As the Segment policies are implemented, some of the benefits will be immedi- ately visible, such as a halt in the indiscriminate high-rise construction along the Atlantic Ocean shoreline. Other changes will occur over a longer period of time, but will ultimately have greater benefits for recreational uses of the shore, such as improved water quality to permit resumption of swimming in areas currently designated as unsuitable for water contact sports, and reduction of condemned shellfish areas. In addition to the land value changes discussed above, imple- menting policies in the Segment will have other costs related to recreational development. There will be a need for public infrastructure investments for transporting people to and from recreation areas, providing water and sanitary facilities and maintaining the land and facilities under the pressures of increased public use. C. Social Effects and their Associated Environmental Impacts Several Segment policies require that public and private developments provide both physical and visual access to the shorefront. Use policies related to transportation address the need for alternatives to automobile dependence in coastal areas. Also, clustered facilities, which are encouraged in the program, are more amenable to public transportation than scattered development. The cumula- tive benefits of these policies will be to open more coastline for public use and to provide better access to it with less public cost for infrastructure such as roads and parking facilities. The costs associated with these policies include the potential for overuse of some shore areas and an increase in public costs for maintenance of the beaches, water and sanitary facilities to accommodate more users . 215 Policies requiring barrier free design for large scale housing developments and beach access pathways will have long terra benefits for handicapped persons and residual benefits for society by increasing their productive participation in the economy. Short term increases in construction costs to provide these facilities will also be an impact of implementing this policy. Policies which encourage development of campgrounds in appropriate locations will offer the benefit of low cost shelter for families who otherwise might not be able to vacation within the coastal area as well as a residual benefit to the coastal economy. Costs associated with these policies include the potential for overuse of natural areas opened for recreation and increases in local public investments for maintenance of infrastructure and campground facilities. D. Institutional Impacts The use of federal money in the program will allow the state to provide: - Implementation of the new policies in Chapter 4 promulgated as rules and regulations of DEP - Greater enforcement of existing regulations - Increases in the permit staff of programs comprising the BOSS program - Increases in technical studies on coastal processes - Federal consistency - New equipment to managing coastal resources Adjusting to the new regulations may cause some temporary delays in permit review and program development. In the long run, however, coastal regulatory and management decisions should be made more efficiently and with better coordination among state agencies. All agencies within DEP will be required to act consistently with the coastal program. This should lead to better and more consistent expendi- ture of state funds in the coastal zone. Improvements in the decision-making process which will reduce the time for permitting and licensing procedures will have positive long term environmental and economic impacts to both state and local governments and private industry. Section 3 - IMPACTS OF THE COASTAL RESOURCE AND DEVELOPMENT POLICIES The Coastal Resource and Development Policies form a three-stage screening process designed to increase the predictability of coastal decision-making. The policies are based on the three key regulatory authorities - CAFRA, the Wet- lands Act, and the riparian statutes, as well as the Shore Protection Program. This discussion is divided into three parts to coincide with the three-stage screening process. (See Part II, Chapter Four for greater detail on this process). A. Location Policies One of the basic goals of the Bay and Ocean Shore Segment policies is to aid decision makers in determining the acceptability of locations for development. The location policies were developed to evaluate the advantages and disadvantages of sites for development, and to determine the types and intensities of development suitable for a site. Easically, the method integrates an analysis of the natural and cultural features of a coastal area site along with its growth and development potential. The system is generally outlined as follows: 216 1. Identify and map site and surrounding region. ■ 2. Identify and map Special Areas. 3. Identify and map Water Areas. 4. Identify and map Water's Edge Areas. 5. Identify and map Land Areas. 6. Determine Location Acceptability a. Identify coastal region in which site is located. b. Determine development potential and environmental sensitivity of the site. c. Consult land acceptability table. d. Compare proposed intensity with acceptable intensity. 7. Make the decision on the project. This process works within the framework of the Location Policies which address the Special, Water, Water's Edge and Land Areas of the ocean and bay area of New Jersey discussed below. 1. Special Areas These are land and water areas with a resource value so great that special policies are merited. These areas are listed below: Shellfish Beds Surf Clam Areas Prime Fishing Areas Finfish Migration Pathways Submerged Vegetation Navigation Channels Shipwrecks and Artificial Reefs Marine Sanctuaries Beaches Coastal Wetlands High Risk Beach Erosion Areas Dunes Special Hazard Areas Central Barrier Island Corridor Historic Places Specimen Trees White Cedar Stands Endangered or Threatened Wildlife or Vegetation Species Habitat Critical Wildlife Habitats Public Open Space Steep Slopes Farmland Conservation Areas Bogs and Freshwater Wetlands Ephemeral Stream Corridor Excluded Federal Lands Borrow Pits Location of any development in these areas is discouraged if the development would harm the special values associated with these areas. Most of these special areas have unique properties or provide basic needs of the fishing and recreation industries which require protection. They are described in more detail in Chapter Four of Part II. If all the areas listed in the Segment functioned within their assessed resource capacity, the waterways would be corridors of vegetation, wildlife, and water, with limited, concentrated development for water dependent uses; the land prime for farming in contiguous acreages would grow food; the dunes would be 217 preserved or restored to enable them to protect beaches and inland areas against the storms; unique places would remain undisturbed; and food-producing water areas would be managed for increased productivity and recreation. Protection of special natural and cultural resources will have positive environmental, economic and social benefits depending on the resource protected. The costs and tax loss resulting from non-development of an area will be shared by the developer and the local municipality in the short-term, but the long-term cumulative gain by protection and enhancement of the resources should offset the immediate loss. 2. Water Areas Within the Coastal Location Acceptability Method, various types of water areas are identified: Ocean Man-Made Harbor Open Bay Large River Semi-Enclosed Bay and Back Bay Medium Rivers, Creeks and Streams Intermittent Streams Inland Basins Guts Inlets Canals Specific policies address certain water uses and are incorporated on a Water Acceptability Table which indicates whether a use is prohibited, discouraged, conditionally acceptable, encouraged or impractical within the type of water area. Policies sensitive to resource protection and development potential specify condi- tions for acceptability and govern the following uses: Aquaculture Piling Boat Ramps Mooring Retaining Structures Sand and Gravel Extraction Bridges Cable Routes Docks and Piers Overhead Transmission Lines Dredging - Maintenance Pipeline Routes Dredging - New Dams and Impoundments Dredged Spoil Disposal Pipes Dumping (Solid Waste or Sludge) Miscellaneous Filling The conditions are discussed in detail in Part II, Chapter Four. Short and long terra environmental, economic and social benefits should be derived from these policies by *".he protection of productivity of marine flora and fauna and their sensitivity to the importance of water quality The short term costs to developers or units of government should be offset by the long term gains. 3 . Water's Edge Area a) Natural Water's Edge In general, development within the jurisdiction of the Segment is prohibited in Natural Water's Edge Areas. (Exceptions are outlined in Chapter Four of Part II.) This area includes contiguous, undisturbed land and water features, marine wetlands and beaches. It is one of the most sensitive parts of the coastal ecosystem. When left undeveloped the area serves several important functions. It 218 can act as a buffer which would provide natural water purification to protect surface water quality from the adverse effects of erosion, and contaminated surface runoff. The vegetation provides stream channel stabilization by reducing bank erosion, thereby preserving water quality. These zones also provide natural flood control by reducing the variations in water flow during heavy rains thereby reduc- ing property loss. Other benefits include detritus production which is the base of estuarine food webs, provision of habitat for wildlife, and provision of open space greenways for public recreation. The costs are the same as those for not develop- ing wetlands. b) Retained Water's Edge Development is acceptable in Retained Water's Edge Areas providing that it is either water dependent or is proposed for public recreation or resort use. Certain conditions for uses in Retained Water's Edge Areas are outlined in Chapter Four, Part II. This policy will have long term positive environmental, economic and social benefits by restricting uses that would not be water dependent and reserving the water's edge for public recreation. c ) Filled Water's Edge Filled Water's Edge Areas occur when existing filled areas lie immediately adjacent to Water or Natural Water's Edge Areas. Development of these areas along water bodies is generally discouraged except under certain conditions outlined in Chapter Four of Part II. Filled land areas adjacent to Water Areas represent potential problems in water quality so the policy to assure their sound management represents a positive environmental impact. 4. Land Area The specific location policies regarding Land Areas are based upon the deter- mination of the acceptability of a site for the proposed development. Development acceptability is determined by analyzing the soils, vegetation and other accepta- bility factors, along with the regional growth and development considerations which dictate the most suitable areas to build. The policies encourage consolidation of growth within the limits of existing public facilities. These policies should have numerous beneficial impacts as well as certain adverse impacts. The benefits include reduced pressure for development of outlying critical environmental resources, such as wetlands and flood plains; possible preservation of open space and agricultural land; revitalizat ion of urban or community centers; improved efficiency of prior public investments; and improved energy efficiency. For example, air and water quality may be degraded if too many industrial sources of pollution are concentrated in one area or if clustering does not reduce vehicular use. The Program's policies, including those relating to public investments, are not expected to reduce the rate of development in the coastal zone. However, it is expected that new development will be concentrated to at least some degree in already developed areas. As a result, while some landowners may receive unexpected profits, others might receive smaller profits from commercial or residential development than they might otherwise have received. 219 Conformance to the standards which outline the allowable intensity of use will have long and short term positive impacts by protecting and conserving the land resource in question and the surrounding areas, especially by minimizing development in areas where impacts on surface or groundwater may degrade coastal water quality. B. Use Policies Use policies describe how decisions will be made for various types of develop- permits. Decisions will be made to prohibit, discourage, conditionally accept, accept, or encourage a use. The criteria for determining the acceptability of a proposed use are described in detail in Chapter Three of Part II and sum- marized below. (1) Housing The Bay and Ocean Shore Segment policies will control decisions on all new development of 25 or more dwelling units and on all housing in coastal wetland and riparian areas. Housing managed by the program will be located and constructed to minimize disruption of coastal environmental resources. Most new housing will be located within or close to existing developed areas. Housing developments of greater than 250 units must include barrier free public space and some barrier free units to accommodate handicapped persons. New high rise housing will be constructed only where it will be in character with surrounding transitional heights and residential densities. Near the water's edge, high rises will be constructed only if they can provide the public physical and visual access to the water and avoid casting shadows on the beach areas. New development involving construction of lagoons, or other bulkheading, or the filling or dredging of wetlands is prohibited. The Segment policies also encourage, but do not require, certain other housing considerations: clustering dwelling units; constructing housing for low and moderate income families, providing for the needs of senior citizens by locating housing near services such as shops and health care facilities and locating housing on sites suitable for public transportation, and providing on-site energy generation from sun and wind. The impacts of the housing policies can best be seen from the pattern of past decisions under CAFRA. In the four years from September 1973 through September 1977, CAFRA permit decision on 95 proposals used many of the policies contained in the Segment program. Eighty proposals for a total of 13,314 units were approved, while 15 proposals for 3,309 units were denied. Many of the approvals were contin- gent on meeting specified conditions. Since the passage of the Wetlands Act in 1970, twelve residential Wetland permit applications have been approved for a total of 134 uni^-.s, 9 have been withdrawn by the applicants and none have been denied. The policies regarding concentration of development and barrier free design were not in effect before September 1977, and can be expected to alter the location and design of new housing developments. The housing policies reinforce the location policies in preserving open space by encouraging concentrated development. Other benefits include preserving shorefront views and water access which increase the attractiveness of the coastal area for recreation. The prohibitions on certain types of development may limit 220 the number of new housing units in the coastal area which would increase the price of housing. This cost should be offset by the policy encouraging construction of low and moderate income housing. The Segment policies will not regulate housing developments of less than 25 units except in coastal wetland and riparian areas. Adverse impacts could result over the long term if developers choose to build in increments of 24 units. The costs would be uncontrolled sprawl development with its attendant water quality problems, destruction of special land and water areas, and increases in demand for public services. The local governments must bear the major responsibilty for ensuring that these impacts do not occur as a result of their decisions. The secondary impact analysis required for the construction of roads and utilities, as well as the resource policies, will also help to control cumulative impacts. (2) Resort/Recreation The Bay and Ocean Shore Segment indirectly manages the use of some land for recreation through its direct authority over facilities regulated under CAFRA and its coordination with funding decisions made under the Green Acres Program. Under Segment policies, more waterfront land will be allocated for recrea- tional use. No new development regulated by CAFRA, the Wetlands Act or riparian statutes will block visual or physical access to the water. In addition, new residential and industrial development will include recreational use areas whenever possible. New amusement and theme parks will be limited. Dredging to maintain existing navigation channels will be encouraged. New marinas for recreational boating will be allowed if the demand cannot be met by expanding existing facili- ties, in which case the new marinas will be adjacent to existing waterfront development. Campgrounds will be prohibited from locating in sensitive areas defined by the Location Policies or in areas which would contribute to traffic congestion and air pollution. All resort/recreation facilities are required to be consistent with the Resource Policies. The benefits of these policies are related to concentrating new recreational development in already developed areas. In addition to preserving open space and natural habitat, the costs for public services and infrastructure investments can be kept to a lower level so the costs to year round residents of expanding recrea- tional uses of the coastal zone may be offset by the economic benefit of bringing more tourists into the area. Impacts of water runoff from roads and parking lots, disposal of dredge spoil, air quality degradation and local costs for wastewater treatment facilities can be reduced by concentrating recreational activities in already developed areas. The policies also provide the long term benefit of preserving public access to the water. The costs associated with these policies are related to imposing limits on the use of waterfront land. Private land owners may not realize the economic gains from development or resale of their land they had anticipated as a result of implementing these policies. As use of facilities increases, the concentration may lead to further air quality problems. In addition, costs of maintaining the public areas will increase with increased use; these costs must be borne by the communities where the facilities are located. These communi- ties are usually the ones which also realize the economic benefit of tourism. 221 (3) Energy The Segment policies direct the location of major energy development and production facilities and their support facilities, such as storage tanks and construction yards, to already built up areas outside the Segment area to protect the environmental and recreational values of the bay and ocean shore region. Only marine terminals and pipeline landfalls which are coastal-dependent, and gas processing plants and pumping stations, which may need to be sited in the coastal zone for technical and economic reasons, will be permitted. Crude oil refineries are prohibited from barrier islands and liquified natural gas (LNG) storage tanks can be built only at sites remote from concentrations of human population. Since existing refineries have unused capacity and New Jersey has five of the ten refin- eries in the region, requests for new refinery permits are not anticipated, although gas processing is a possibility. The DEP and New Jersey Department of Energy will both review applications for new facilities to ensure they are also consistent with the state energy master plan, being developed to direct orderly growth to the most suitable sites. Pipelines and associated facilities will be subject to a number of conditions. Since New Jersey has 40 percent of the oil refineries and storage facilities in the region, the number of pipeline corridors will be limited and must be located along existing rights-of-way whenever possible. New pipeline corridors will be routed to avoid undeveloped areas and will be prohibited from locating in certain parts of the Pine Barrens. Tanker terminals will be encouraged to locate in either the New York/New Jersey port or the Camden/Philadelphia port where induced growth and new support facilities can be accommodated. Location of terminals will be discouraged from other parts of the coast. - Since there are six nuclear facilities existing or under consideration in the Segment, no further facilities will be approved until DEP and the Department of Energy have had time to investigate the feasibility of alternative energy production methods. Location of fossil fuel stations will be discouraged in Special Areas and environmentally sensitive areas. Concentrating major energy facilities inland of the coastal region will benefit both the coastal environment and the inland employment centers which have a ready work force. Resort areas would be unable to provide schools, hospitals, fire and police protection and other public services to the influx of population associated with energy development, while these services are already in place in many inland urbanized areas. The cost is that of trading off protecting natural resources in the coastal area at the expense of potential loss of natural resources inland. Other environmental costs, such as water quality and air quality degredation associated with energy facility development, will be borne by inland communities. (4) Public Facilities New and improved public transportation and related facilities will be encour- aged. Bike and footpaths as well as fishing catwalk construction are encouraged. Transportation facilities will be prohibited if they block physical or visual access to the waterfront. These policies should have positive long-term and social impacts by fostering alternative transportation and by making the coast more accessible to a greater number of people. 222 Public utilities, such as sewer lines and railroads, will be allowed in environmentally and culturally sensitive areas provided that special impact control measures are used assuring that these facilities do not create short or long term negative impacts. (5) Industry-Commerce Industrial or commercial development is encouraged at or adjacent to existing sites. Marine resource dependent industry, particularly commercial fishing has priority over other waterfront uses. The small amount of land available for industrial development and the sensitive land and water features of the Bay and Ocean Shore Segment provide the basis for a restrictive industry-commerce policy. However, new and expanded light industrial parks and waterfront fish processing activities are recognized as desirable uses at appropriate locations. (6) Ports Port related development and marine commerce will be located adjacent to already developed waterfront areas, and will be allowed only when a need is demonstrated. Non-water dependent development shall be allowed only if water dependent marine commerce uses are not pre-empted. Dredging of existing navigation channels will continue to take place as necessary, and dredging elsewhere will occur only in selected situations where the bottom disturbance is acceptable. Subaqueous disposal is generally discouraged. By concentrating port development and controlling dredging activity, positive long term environmental impacts will accrue by preserving marine life and the undeveloped coastline. Long term economic and social benefits will be derived by the concentration of marine commerce in high employment and industrial areas. (7) Coastal Engineering Coastal engineering includes a variety of structural and non-structural measures to manage water areas and the shoreline. Shoreline erosion and sand and sediment movement are problems addressed in the Bay and Ocean Shore Segment. The Segment's policies give preference to non-structural rather than structural solu- tions to shoreline erosion problems. Non-structural measures recognize the inevi- tability of the ocean's advancement and the migration of barrier islands. However, the program's policies recognize that the short term benefit of structures to protect the intense recreational use of New Jersey's oceanfront must be balanced against the costs of trying to perpetually control the natural and inevitable forces of the ocean. The Bay and Ocean Shore Segment policies encourage dune restoration and beach nourishment projects. Construction of new shore protection structures, including jetties, groins, and seawalls is acceptable under certain conditions listed in Chapter Four, Section Two. Because of the existing pattern of urbani- zation of New Jersey's shoreline, structural solutions to shore protection are essential and appropriate. C. Resource Policies The Resource Policies stand in partnership with the Location and Use Policies previously discussed — a third filter through which a permit application must pass. They form a body of policies which serve as performance standards, designed 223 to mitigate the adverse impact of coastal development on the natural and built environment and thus, taken as a whole, have positive long and short term impacts on the environment. In many instances, negative economic impacts will fall on the party who must pay for the added protective measures. Very often the developer pays, but equally as often the cost is passed on to the consumer. By encouraging a more healthful and viable environment, these policies should have positive social benefits . Policies which address the problem of soil erosion and sedimentation and run- off call for development to control the adverse impacts to the maximum extent practicable by adherence to specified performance standards. The need to protect ground and surface water is articulated. Coastal development must conform with all applicable effluent and ambient air quality and deterioration standards. Vegetated and other types of buffer must be provided to protect sensitive natural features, screen impacts and separate incompatible uses. Design which considers energy conservation is encouraged. Where practical, solid waste should be recycled. Flora and fauna are protected by the policies calling for the preservation of existing vegetation, and for the planting of new vegetation appropriate to the site area where development occurs. To protect habitats and spawning areas, coastal development shall incorporate techniques which preserve wildlife and maintain diversity of species. Public and private actions and developments adjacent to coastal waters must provide for public access (both physical and visual) to the shorefront. This policy has beneficial social impacts as it assures public access to the shorefront and prevents exclusionary practices. In the short-term land owners who must forfeit desired building dimensions will experience negative economic impacts. In the long run, however, increased access and the overall enhancement of the environ- ment created by the Segment policies will increase property values. The visual compatibility of new development sensitive to scenic resources and design in terms of scale, height, materials and color is stressed. The protec- tion of historical and cultural resources is called for. Measures taken to protect these values will result in positive social and economic impacts by preserving the integrity of the built environment and the cohesiveness of the area's heritage. The short term negative economic impacts will be offset in most cases by increased property values, and by commercial and residential interest in areas as well as by the multiplier effect that restoration activity generates. Development is encouraged that protects the special features of neighborhoods and communities. The probable secondary impacts of a development will be considered along with the proposed development itself. 224 PART IV ALTERNATIVES TO THE PROPOSED ACTIO N This Part describes the five most likely reasons the Assistant Administrator might deny or delay program approval, as well as the five most likely State alternatives to submitting the proposed program. In order to determine the full implications of these alternatives, the reader should consider the impacts described under each Federal alternative. The proposed action is Federal approval of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment. The essential alternative to be considered by the Assistant Administrator is whether to approve the Segment. He must determine whether or not to approve the Segment as submitted. In-deciding whether to approve? - the Bay and Ocean Shore Segment he must determine whether the Program meets the requirements of the Coastal Zone Management Act as specified in the twenty-six findings needed for Program approval. This determination ultimately requires that discretion be used in interpreting the intent of Congress as expressed in the Act. This environmental impact statement and public comments are intended to assist the Assistant Administrator in determining the adequacy of the proposed program. A variety of alternatives are available to the State, represented by all possible amendments to the Bay and Ocean Shore Segment that might be adopted. Clearly, however, the alternatives that will be considered by the State will depend on what action is taken by the Assistant Administrator. In particular, if the Assistant Administrator delays or denies approval the State will be required to consider a wide range of options. If the Segment is approved, the State is unlikely to consider alternatives to Program implementation. These Federal and State alternatives could be carried out in several different ways. As indicated, Federal approval would probably lead to implementation of the Segment under Section 306. On the other hand, a decision by the Assistant Admini- strator not to approve the Segment as submitted could lead New Jersey to withdraw from the Federal Program and wait to submit an entire State Coastal Zone Management Program. i A. FEDERAL ALTERNATIVES 1. The Assistant Administrator could delay or deny approval if the State does not have the authority necessary to implement the Bay and Ocean Shore Segment at the time of segment approval . The Federal Office of Coastal Zone Management has made an initial determina- tion that the authorities that will be in place at the time of Segment approval will be adequate to carry out the Bay and Ocean Shore Segment management program and meet the objectives of the CZMA. This impact statement solicits the views of the public and affected government agencies on the specific issues outlined below. The Coastal Area Facility Review Act (CAFRA) of 1973 (N.J.S.A. 13:19-1 et seq . ) is New Jersey's major coastal law. In CAFRA, the Legislature entrusted the Department of Environmental Protection with the responsibility to regulate the location and construction of housing developments of 25 or more units and most 225 major industrial, sewer and energy producing facilities in a defined "Coastal Area" stretching from Raritan Bay and Sandy Hook to Cape May and from Cape May to the Delaware Memorial Bridge. The inland boundary established by the Legislature varies from several thousand feet to 24 miles. This coastal area includes 17 percent of the land and more than 75 percent of the waters in New Jersey, including coastal waters out to the three mile limit of the State's jurisdiction in the Atlantic Ocean. Other relevant laws that apply include the Wetlands Act, Riparian Statutes and Shore Protection Statutes. If the Assistant Administrator determines that these authorities were not adequate to meet the requirements of the Coastal Zone Management Act, he could delay or deny approval until the State 1) submitted the entire State program, 2) unified through legislation the Wetlands Act, Riparian Statutes and CAFRA, or 3) waited until new legislation was passed for the entire coastal zone of New Jersey. The implications of this alternative include a delay in Bay and Ocean Shore Segment implementation, no increase in Federal funds for New Jersey under Section 306, and the possibility that Federal actions affecting the New Jersey Segment might be inconsistent with the policies of the Segment. Therefore, under this alternative, the monetary and Federal consistency benefits of Federal approval would be deferred for some period of time. Improved environmental protection anticipated under a Federally approved program would not be achieved as rapidly. Momentum for effective protection of the State's coastal resources, gained through preparation of this Bay and Ocean Shore Segment might be lost. 2. The Assistant Administrator could delay or deny approval of the New Jersey Bay and Ocean Shore Segment if the segment does not adequately achieve the goals of the Coastal Z one Management Act as expressed by Congress in Section 303 of the Act. Section 303 of the Coastal Zone Management Act states that it is national policy "... to achieve wise use of the land and water resources of the coastal zone giving full consideration to ecological, cultural, historic and esthetic values as well as to needs for economic development." The initial determination of approval on this issue was based on the policies adopted pursuant to this program regarding housing, major facility policies, recreation, performance standards and case law under CAFRA (i.e. Toms River Condo- minium high rise case CA #73-003 decided July 10, 1974, CAFRA Opinion No. 1). The majority of visual and cultural concerns are left to the discretion of local governmencs if they do not involve major facilities as defined by CAFRA. However, the Department of Environmental Protection will have a direct role in determining the visual aspects of the New Jersey coast by precluding certain major facilities in some areas, while encouraging development in other areas. The implications of selecting this alternative include a delay in Segment implementation, no increase in Federal funds for New Jersey under Section 306, and the possibility that Federal actions affecting the New Jersey coast might be inconsistent with the policies of the Segment. Therefore, under this alternative, the monetary and Federal consistency benefits of Federal approval would be deferred for some period of time. Improved environmental protection anticipated under a Federally approved coastal program would not be achieved as rapidly. 226 3. If the nat ional in terest in the siting of faciliti es in the Bay a nd Ocean Shore Segment: were not adequately considered, the Assistant Admini - strator could delay or deny approval of the Program Segment . The Federal Coastal Zone Management Act states that prior to granting approval of a segmented management program the Secretary shall find "the segmented management program provides for adequate consideration of the national interest involved in planning for, and in the siting of, facilities (including energy facilities...) necessary to meet requirements which are other than local in nature." Chapter Four of the revised program document will serve as the process for balancing the national interests in the coastal zone, through the use of the three step decision process outlined in the program. The Commissioner of DEP has inter- preted the "public welfare" clause of CAFRA (Cl3:19-10f) to include a full con- sideration of the national interest as descr-fbed in the -program. In addition, in the MOU between DEP and DOE, the Department of Energy has interpreted its mandate "to contribute to the proper siting of energy facilities necessary to serve the public interest" (Section24: 27F-2) as sufficient authority to consider the national interests in the siting of coastal energy facilities. No major facility is excluded from the coast through the CAFRA permit appli- cation program However, each facility must be consistent with the policies and performance criteria established by the Department of Environmental Protection. If it is shown that New Jersey has not adequately considered the national interests in the planning for and siting of facilities which are other than local in nature, then the Assistant Administrator could delay or deny the Program. This Federal alternative could result in a delay in Program implementation, loss of Federal funding that would otherwise be available, and allow Federal actions in the coastal zone to be inconsistent with the management program. 4. The Assistant Administrator could deny or delay approval of the Bay and Ocean Shore Segment if the Segment could not be unified with the entire State program . This alternative would encompass a finding by the Assistant Administrator that a delay in Segment approval was necessary until it was unified into the entire State program, so that all necessary authorities were in place. The Assistant Administrator could find that the Bay and Ocean Shore Segment could not be unified into the entire State program due to a lack of adequate authorities outside the Segment area. 15 CFR 923:61 outlines the requirements for approval as a segment under the CZMA. Each segment of a management program must demonstrate that: (1) The segment includes a geographic area on both sides of the coastal land water interface; (2) A timetable and budget have been established for the timely completion of the remaining segment(s); and 227 (3) The State will exercise policy control over each segment of its manage- ment program prior to and following its integration into a complete State management program. Demonstration of this control will include (i) completion of the management boundary determination for the entire coastal zone throughout the State and (ii) consideration of the national interest throughout the State's entire coastal zone in the planning for the siting of facilites cited in S 923.52. If it was shown that the program has not met the requirements of 923.61, the Assistant Administrator could deny or delay the program. The three primary impacts of a negative decision would be that New Jersey would not receive necessary funds to implement the Program; Federal consistency would not apply to Federal agencies' activities in the coastal zone; and national interest would not be taken into account. ;:---- ...... *■ In addition some delay in Program implementation would occur; the length of the delay would depend on the type of Program deficiency that was found and the types of remedial action taken by the State. 5. The Assistant Administrator could delay formally approval for the BOSS Program under the requirements of Section 305(d). This alternative would encompass a finding by the Assistant Administrator that the entire State program could receive preliminary approval under Section 305(d). This finding would include a determination that: (1) The program will be sufficiently developed, designed and described to warrant consideration for preliminary approval at the time described; (2) There are elements of the State's management program eligible for imple- mentation funding as part of preliminary approval; (3) The content and detail of the EIS which must accompany the State's pre- liminary approval submission; and (4) And EIS will be necessary prior to granting preliminary approval. 15 CFR 923.74(f) does not allow segments to receive preliminary approval under Section 305(d) of the CZMA. However, the Assistant Administrator could find that the entire State was eligible for section 305(d) funding and provide this funding until a unified State program was submitted for approval. The positive impacts of this alternative would be that, 1) management for the Segment program would not be delayed, and 2) the entire State program would be submitted as a unified document. The negative impacts of this decision would be 1) loss of Federal consistency review under an approved segment, 2) reduction in the amount of funding available to the State between FY 78 and FY 79, in both Section 305 and 306 funding. 228 B. STATE ALTERNATIVES 1. The State would withdraw its application and not seek Federal assistance . The State could withdraw its application and not seek Federal assistance. The Department of Environmental Protection would continue to manage that area of the New Jersey coast under its regulatory jurisdiction. The State has spent $1.2 million in Federal money in preparation of its State coastal zone management program. Without Federal assistance, the DEP would continue to operate the coastal program but at reduced funding levels. The State under this alternative would not be subject to Federal regulations in the management of the Segment.. The coastal management efforts in New Jersey began prior to the passage of the Coastal Zone Management Act and will contitttfe- even if-. Federal approval is not- received. However, the State would not receive (1) Federal money to assist in the day to day management of the program (2) the provisions of the Federal consistency section of the Coastal Zone Management Act and (3) loan guarantees and credit assistance to help mitigate onshore impacts of outer continental shelf development. Federal funding support will greatly help in the DEP's implementation of the Segment . 2. The State could wait to submit the Bay and Ocean Shore Segment as part of the entire State Coastal Program . The State could wait until 1979 to submit a unified State coastal zone management program including the areas outside CAFRA jurisdiction, along the Delaware River and in Northern New Jersey and the area under the Hackensack Meadow- lands Development Commission. Section 306(h) allows a state to submit a segment of the management program as long as it is consistent with the state's coastal program. This will allow Section 306 funds to be used in managing the Bay and Ocean Shore portion of the coastal zone. Tasks for this area have been completed under Section 305, and the State can now implement the policies and plans in this region of the coast. The negative impact of this alternative include: (1) the State will lose Section 305 funding by December, 1978, and (2) the effects of federal con- sistency would not apply to this critical area of the state. 3. The State could wait until new legislation is passed combining the three key coastal laws. The State could submit legislation recodifying the present Wetlands Act, Riparian Statutes and CAFRA into one unified Act. This alternative might eliminate any conflicts which might develop between these three Acts. The negative impacts include: (1) the uncertainty of legislative action and (2) the State will lose Section 305 funding by December, 1978. 4. The State could diminish the CAFRA boundary and then submit a segmented management program. The area under CAFRA permit jurisdiction was established by the New Jersey Legislature in 1973 on the basis of the location of coastal resources. (See Appendix E) . 229 A change in this boundary would require that an amendment be passed by the Legislature. Depending on its formulation, such a change might not meet the requirements of the CZMA for federal approval of a State program. 5. The State could seek legislation delegating authority for major facility siting in the coastal zone to the local governments . The State could seek legislation which would delegate authority for major coastal facilities to local governments. The coastal program could wait until this legislation was passed and then submit an expanded program. The Legislature chose in 1973 not to delegate this authority to local governments, but to give this authority to the DEP. 230 PART V PROBABLE ADVERSE ENVIRONMENTAL EFFECTS WHICH CANNOT BE AVOIDED The probable effects of New Jersey Bay and Ocean Shore Segment implementation will, on the whole, be environmentally beneficial. However, there will probably be a number of adverse impacts to both the natural and socio-economic environments which cannot be avoided. Numerous adverse impacts will continue to be associated with the siting of major facilties for purposes of defense, transportation, energy requirements and others in which both the State and Federal governments have interest. The Program makes provisions for consideration of the siting of facilities which are in the national interest. It is important to note, however, that under the federal Coastal Zone Management Act and related Federal Acts (e.g., National Environmental Policy Act), each such project will be evaluated as to the impacts on the natural coastal environment. That is, investigations will be made, alternatives considered, etc. 231 PART VI RELATIONSHIP BETWEEN LOCAL SHORT-TERM USES OF THE ENVIRONMENT AND THE MAINTENANCE AND ENHANCEMENT OF LONG-TERM PRODUCTIVITY While approval of the New Jersey Coastal Management Pr ogram - Bay and Ocean Shore Segment will restrict some local, short-term uses of the environment , it will also provide long-term assurance that the natural resources and benefits provided by the Bay and Ocean Shore Region will be available for future use and enjoyment, by more effectively administering existing resource protection laws. The New Jersey Bay and Ocean Shore Segment does the following: A. Short-Term Uses 1. Does not prohibit future development but encourages medium-high intensity growth to occur in existing developed areas or areas contiguous to them. 2. Recognizes that some energy facilities and coastal-dependent devel- opments have adverse environmental consequences, but that they may still have to be located in the coastal zone to protect the inland environment as well as help provide for orderly economic develop- ment, and meet national interest. B. Long-Term Uses 1. Recognizes the coastal zone as a delicately balanced ecosystem. 2. Establishes a process of balanced management of coastal resources. 3. Allows growth to continue while protecting key resources. 4. Provides for a framework which can protect regional State and national interests by assuring the maintenance of the long-term productivity and economic vitality of coastal resources necessary for the well-being of the public, and to avoid long-term costs to the public and a diminished quality of life resulting from the misuse of coastal resources. 23JP PART VII IRREVERSIBLE OR IRRETRIEVABLE COMMITMENTS OF RESOURCES THAT WOULD BE INVOLVED IN THE PROPOSED ACTION SHOULD IT BE IMPLEMENTED The approval of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment will not in itself lead to the loss of resources , while resources might be lost if a specific development proposal were approved under the program. Trade-offs will have to be made based on the policies of the program. For instance, some urbanized areas or less intensive industrial areas may receive greater develop- ment pressures and a commitment of the surrounding resources because of the policy to concentrate development of sewer projects to serve already developed areas. Also, the program provides that priority - will be given to coastal-dependent ~ development (certain energy facilities, port and harbor development, etc.) which in turn is often the most damaging to the environment and is located in the coastal zone to utilize its resources. Most of the nine environmentally critical develop- ments will occur outside the Bay and Ocean Shore area and are encouraged to do so. However, the Segment establishes standards for siting and requires that alterna- tives be considered and mitigation measures be taken in the Segment area itself. The New Jersey Bay and Ocean Shore Segment will continue to channel such activity toward environmentally suited land areas. Without the implementation of rationally based land and water uses management programs, some intense short-term uses and gains, such as provided by residential or industrial development might be realized in natural resource areas of the coastal zone. However, such uses would most likely result in long-term limitations on coastal resource use and benefit because of degradation of the environment. Without proper management, the traditional conflicts between shoreline resources uses — residential, commercial, industrial, recreational, and wildlife — could be expected to occur. Implementation of the Bay and Ocean Shore Segment will result in minimization of the social costs which inevitably accompany environmentally destructive develop- ment, the mitigation of which requires public investment. 235 PART VIII CONSULTATION AND COORDINATION Extensive consultation, coordination, and input has been received in devel- oping the New Jersey Coastal Management Program. Because the Program was developed with the natural and human environment in mind, many alternatives have been con- sidered. The Federal Office of Coastal Zone Management requires that a State conduct an environmental impact assessment on its coastal management program prior to any approval of the Program. This assessment was used in developing the draft Environ- mental Impact Statement. Additional input tva&^.been received from various Federal agencies throughout the duration of the State's Program development period, on such things as the impact of the Program on the Federal agency program, as well as an analysis of the Program. Coordination with all local, State, public, and private interests remains a key component of the New Jersey Coastal Management Program. The Program will provide for the public notice of major State actions, provide technical assistance to coastal communities as to how local plans may be made consistent with the Coastal Management Program assist the private sector through the publication of handbooks and other means of communication on meeting coastal management policy requirements, and continue coordination with Federal agencies to resolve potential conflicts during implementation. 23? APPENDICES APPENDIX A: SECRETARIAL FINDINGS INDEX The Federal Coastal Zone Management Act of 1972, as amended (16 U.S.C. 1451 et seq.) and the program approval regulations adopted as an interim final rule by NOAA-OCZM (15 CFR Part 923, Federal Register , Vol. 43, No. 41, March 1, 1978, pp. 8378-8432) define twenty-six required findings that must be made before the Sec- retary of Commerce may approve a state's coastal management program. 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O cj CO C o •1-t J-l CO u CO CO CO OJ V OJ c c o co 4J CJ 3 r-l OO 1 *-! 3 cr U c o cj CO u ai ai cm 4-1 > O CO rH •H O CO C CO U QJ CJ r4 & o CX E TJ CO 0) rH C O OJ u x c o CJ H-l o CO C o rH oo OJ Vj OJ 3 CT14H •rH O 4J 3 CM CM XX-OJDXJ3XXIXI CJCJCJCJOOCJCJO OJ OJ 4-1 •rH rH CO 3 o- u a) 4-J CO r« •o c «0 rH •H CO c o CO c OJ 4J B cO OJ u u O -rH ex 3 c OJ rH OT X w O QJ ft o a» CJ U OJ CO QJ c ir\ir\inir»irii/^ioi/*\io vo ooooooooo o COCOCOCOCOCOCOCOCO CO >OvO>OvO*0'OvOvO\D OOOOOOOOO COCOCOCOCOCOCOCOCO vO V40 VO vO vO r-» O o o o O o CO CO CO CO CO CO 242 APPENDIX B: THE COASTAL PLANNING PROCESS: 1973-1 978 The New Jersey Coastal Management Program Bay and Ocean Shore Segment is based on DEP-OCZM staff research, contractual studies by private consultants, university research teams, and state and local government agencies, and considerable public debate, suggestions, questions, and comments over the past five years. The most tangible evidence of the coastal planning process is this document, together with numerous studies and reports published by DEP-OCZM. Many of the planning reports produced and widely distributed by DEP-OCZM are available upon request, while others, intended as in-house working documents, are available for review by inter- ested people. Other evidence of the coastal planning process may be less visible, but just as significant as printed documents. This appendix sketches some of the highlights of the coastal planning process to date, both the clearly tangible reports and the public participation efforts.---- ^ -- Major Planning Documents Since 1975,. DEP-OCZM has prepared six major coastal planning reports which were widely shared with public groups, individuals, and agencies. These reports and the reaction to them have shaped the direction and policies of the Coastal Program. In September 1975, DEP published an Inventory of the New Jersey Coastal Area which defines and discusses the diverse resources, problems and opportunities of New Jersey's coast in order to indicate the range of issues that constitute the agenda for coastal zone management. In July 1976, DEP released Interim Land Use and Density Guidelines for the Coastal Area of New Jersey, prepared with the assistance of Rivkin Associates of Washington, D.C. This document classifies land and water features in the coastal area in terms of relative suitability for development. The Interim Guidelines and the companion publication, Guiding the Coastal Area of New Jersey — The Basis and Background for Interim, Land Use and Density Guidelines, provided an advance indi- cation to developers, municipal officials, and others, of the likely decision on CAFRA permit applications, and have also served as a focal point for discussion and debate in the development of the Coastal Management Strategy (September 1977) and the Coastal Mangement Program for the Bay and Ocean Shore Segment. In October 1976, Alternatives for the Coast - 1976 was published to indicate the scope of policy alternatives DEP-OCZM was evaluating for the coastal zone, their implications and the principles that helped shape them. DEP-OCZM expanded upon the policy alternatives in twenty-two issue papers published between November 1976 and early 1977. The topics covered were: Agriculture and the Coast, Air Resources, Cultural Resources, Flooding, Groundwater Quantity and Quality in the New Jersey Coastal Zone, Housing, Ocean Resources (Living, Mineral, and Physical Resources), Sand Movement and the Shoreline, Solid Waste and the Coast, Surface and Coastal Water Resources of New Jersey, Upland Living Resources (Endangered, Threat- ened and Rare Animals, Endangered and Rare Vegetation, and Upland Wildlife Habi- tats), and Upland Mineral Resources and the Coast. A separate paper on the value of Atlantic White-Cedar Stands was completed in May 1976. In December 1976, DEP-OCZM released Alternative Boundaries for New Jersey's Coastal Zone . This report presented ten possible coastal zone boundaries and served as a basis for debate on the issue. 2A3 DEP submitted the Coastal Management Strategy, for New Jersey-CAFRA Area to the Governor, Legislature, and public in the fall of 1977. The Strategy introduced the Coastal Location Acceptability Method (CLAM), a method of coastal resource management developed by DEP-OCZM in 1976-1977 using a pilot study area in Lower Cape May County. Prepared in part to satisfy the statutory mandate of the Coastal Area Facility Review Act of 1973 that called for the selection of an environmental management strategy for the coastal area in four years, the document also served as a discussion draft of the Coastal Management Program for the Bay and Ocean Shore Segment. DEP distributed 3,000 copies of the Coastal Management Stategy, conducted eight public meetings throughout the state to discuss and debate the coastal program, held twenty additional informal meetings with public agencies and received nearly one hundred written statements with comments on the Strategy . DEP then revised the Strategy substantially in the course of preparing the Draft EIS for the Bay and Ocean Shore Segment document. The formal federal approval process fot^New Jersey's coastal program began _ in May 1978 with the publication of the Coastal Management Program - Bay and Ocean Shore Segment and Draft Environmental Impact Statement. DEP distributed more than 3,000 copies of the draft document, and held numerous meetings with various interest groups to discuss and debate the coastal program. In addition, DEP with NOAA-OCZM convened three public hearings to receive testimony on the DEIS. This final Environmental Impact Statement is the result of revisions made to the May 1978 document, based on public comment gathered at the hearings, in informal meetings, and in written statements. Publication of the draft EIS also initiated the process for the adoption of the Coastal Resource and Development Policies of the Bay and Ocean Shore Segment as agency rules and regulations according to the provisions of New Jersey's Administrative Procedures Act. Public Shorefront Access and Erosion DEP's Office of Coastal Zone Management served as staff to the Commissioner of DEP in his capacity as an active ex-officio member of the New Jersey Beach Access Study Commission. In 1976-1977, DEP-OCZM staff helped prepare the Commission's report to the Governor and Legislature on beach access in April 1977. This report, entitled Public Access to the Oceanfront Beaches , examined beach use, budgets, and fees and ownership. A study on shoreline erosion was prepared under contract to DEP-OCZM by Rutgers University - Center for Coastal and Environmental Studies. The Coastal Geomorphology of New Jersey , in two volumes printed in December 1977, deals with the management techniques, strategies, and the technical basis and background for shoreline erosion management strategies. The study was a large step forward in understanding how to make decisions regarding development along the shoreline. Its influence is seen in many of the policies (high risk erosion, shore protection, dune protection) of Chapter Four of the Bay and Ocean Shore Segment . Energy In December 1975, the Department of Environmental Protection invited energy industry representatives to provide basic information on coastal energy siting to be used in preparing the energy facility element of New Jersey's coastal zone management program. The results of this "Call for Information" were published by DEP-OCZM in March 1977. The state's three major electric utilities responded in considerable depth to the "Call". 244 DEP-OCZM's concern with the development of energy facilities is further reflected in tv/o contractual studies undertaken by research groups at Princeton and Rutgers Universities. The study by Princeton's Center for Environmental Studies, entitled Who's in Charge? - Governmental Capabilities to Make Energy Siting Deci - sions in New Jersey, received financial support from the Federal Energy Admini- stration, which sponsored a similar effort in each of the states associated with the Mid-Atlantic Governors Coastal Resources Council (New York, New Jersey, Delaware, Maryland and Virginia). It was published in September 1977. The Rutgers study, prepared by the Center for Coastal and Environmental Studies and entitled Onshore Support Bases for Offshore Oil and Gas Development: Implications for New Jersey, was released in February 1978. In addition, DEP-OCZM staff completed a report entitled Energy Facility Siting Issues in New Jersey's Coastal Zone, which was released for distribution in December 1977. Most recently, DEP-OCZM staff prepared a brief "Fact Sheet on Offshore Drilling in New Jersey" in June 1978. Legal Framework In June 1976, DEP-OCZM compiled "An Inventory of Environmental Law in New Jersey", which includes a description of major New Jersey land use, water quality, air pollution, and living resources laws related to coastal zone management. This is an in-house document which is continually updated. In June 1977, DEP-OCZM completed "Areawide (208) Water Quality Planning and the New Jersey Coastal Zone Management Program: Opportunities for Interagency Coordination," a paper detailing the relationship between coastal zone management planning and water quality planning being conducted in New Jersey under Section 208 of the Federal Water Pollution Control Act. Economics and Land Use DEP-OCZM had contracts in 1975 and 1976 with the New Jersey Department of Community Affairs (DCA) and the Department of Labor and Industry (DLI) to prepare background land use and socio-economic studies about the coast. DCA produced information concerning: "Coastal Zone Housing Issues", County Land Use Issues in Atlantic, Cape May, Cumberland, Monmouth, Ocean and Salem Counties (six papers), "Growth Centers and Their Implications", "Sewerage Facilities", "Transportation Systems", and "Water Supply". The Department of Labor and Industry prepared the following papers: "Back- ground Paper: Economic Perspectives on New Jersey Tourist Industry", "Economic Inventory", "Economic Issues and Problems in Northeastern Region of New Jersey Coastal Zone", "Some Taxes", "Economic Profiles" on Atlantic, Burlington, Camden, Cape May, Cumberland, Gloucester, Monmouth, Ocean, and Salem Counties (nine papers), and "Municipalities in Burlington and Middlesex Counties". Information Systems and Public Participation In February, 1975, in cooperation with the American Arbitration Association, DEP began an experiment to validate the environmental data for the Coastal Program. This experiment involved two large public meetings and several subsequent workshops. By January 1976, agreement was reached on data in nine natural resource categories. The categories are: bathymetry, flood areas, geology, groundwater, land use, slope, soils, tidal wetlands and vegetation. 245 DEP-OCZM also tested the development of information packages on an automated basis, in cooperation with the American Arbitration Association, Rockefeller Foundation, Rutgers University, and Princeton University. The 1976-1977 project, called the "Intuitive-Interactive Model", produced draft information packages on air pollution, construction noise, physical impact, industrial energy demand, odor pollution, residential energy demand, solid waste and waste demand, and urban runoff. One distinctive feature of the model is the ability of interested users such as developers or municipal officials to work directly, or "interact", with the computer. The findings of the project will be used by DEP in considering the ultimate design of an information system to assist coastal and perhaps statewide land and water use decision-making. Nominated Areas of Particular Concern In December 1977. DEP-OCZM completed a report for public release entitled Nominated Areas of Public Concern in the New Jersey Coastal Zone . The report describes 176 areas of the state nominated"' _ by 140 interested individuals and organizations in 1976-1977, in response to DEP's invitation that the public suggest sites and areas for preservation, development, historic, recreation, visual, or other purposes. The enthusiastic public response to this invitation led to detailed and wide ranging nominations, which were used in part to confirm and refine the DEP-OCZM staff recommendations on Special Land Areas and Special Water Areas in preparing the Location Policy of Chapter Three. Also, the Geographic Areas of Particular Concern identified in Chapter Seven were among those areas nominated by the public. DEP also distributed its report describing the nominations to other state, county and municipal agencies which can make decisions affecting the sites. Finally, the information DEP-OCZM gained about specific sites through the Nominated Areas of Particular Concern program has been used in the past and will be used in the future as supplemental information to be reviewed in individual coastal permit decisions. Coastal Awareness Rutgers University Center for Coastal and Environmental Studies, under con- tract to DEP-OCZM, produced four booklets on coastal issues for public distribution in 1976-1977. The booklets, which are available from DEP are: "State Government and Coastal Zone Management", "Coastal Zone Legislation", "Oil Spills Reaction and Responsibility in New Jersey", and "New Jersey's Fishing Industry". Mapping During 1976-1978 DEP-OCZM published several map series, which are available to the public. The Inventory of the New Jersey Coastal Area - 1975 describes where these maps are located and how to use them. The Third Year Coastal Zone Management Program Development Grant Application provides a detailed list of the mapping in the first two years of the program. During the third year (1976-1977), extensive mapping wad also done as part of DEP-OCZM's pilot study in Lower Cape May County. Samples can be found in Appendix Four of the Coastal Management S trategy (September 1977). The Interim Land Use and Density Guidelines also includes maps of developed and selected environmentally sensitive areas in the Bay and Ocean Shore Segment. Wetlands maps are on file with each county recording officer and are also available for public inspection or purchase in DEP's Office of Wetlands Management. Flood hazard area maps, as delineated by DEP's Division of Water Resources, are available for public inspection. 246 Tn addition, DEP-OCZM funded a study by Rutgers University - Center for Coastal and Environmental Studies to develop an underwater aerial photographic methodology suitable for surveying submerged vegetation in the coastal estuaries of New Jersey. The study culminated in the report, entited Analysis and Delineati on of the Submerged Vegetation of Coastal Ne w Jersey: A Case Study of Little Egg Harbor (January 1978) , which describes the aerial underwater photographic method, identifies and maps distributions of species, and discusses the ecological func- tions and associated problems of each of the dominant species. In July 1978, DEP-OCZM released a staff working paper entitled Definition of the Preliminary Coastal Zone Boundary for the Delaware River and Northern Water- front Regions of New Jersey's Coastal Zone. This paper identifies the process used by DEP-OCZM to prepare an initial boundary for the coastal zone outside of the Bay and Ocean Shore Segment . Public Participation DEP's Office of Coastal Zone Management is committed to wide public partici- pation by law, by practicality, and by principle. DEP-OCZM's involvement efforts have two objectives, to raise the level of public awareness regarding both threats to, and attributes of the coast, and to identify and meet with individuals and groups who can contribute knowledge and opinions to coastal planning efforts. DEP-OCZM works to involve people early in the planning process and continues to encourage such involvement. Draft documents are made available. Possible policies are discussed in public long before they are even formally proposed, much less adopted. The objective is for the DEP-OCZM staff to be exposed to as much information as possible, and for initial staff ideas and work products to receive a wide and critical reading. The reason is simple: a coastal zone management program cannot be prepared just from Trenton. The state's coastal zone is too large and too diverse. Public input and feedback is critical. Ideas which appear attractive on a planner's desk may be impossible to apply. DEP-OCZM uses varied forums and publications to hear and explore varied information and viewpoints. To attract coastal residents, DEP-OCZM convened several series of public meetings in coastal counties during 1975-1977. The first meetings, held in Toms River and Trenton in February and May 1975. were focused on introducing the program and DEP's Data Validation Project. A second series of meetings were held in the summer of 1976 following publication of the Interim Land Use and Density Guidelines for the Coastal Area . A third series of seven meetings were held in the early winter of 1976 after release of Alternatives for the Coast. A fourth series of eight public meetings took place around the state in November- December 1977. following public release of the Coastal Management Strategy. These public meetings often began with a slide presentation and talk by a DEP-OCZM staff member and then turned to the specific concerns of the assembled. Discussion at these meetings flows from the questions, and many topics are each discussed rela- tively briefly. In addition, DEP-OCZM holds periodic workshops focused on specific, pre-announced subjects. Workshops on Agriculture, for example were held in October 1976 in two locations (Bridgeton and New Brunswick). Additional workshops were held in February 1977 in Trenton and Toms River on Biological Resources, Physical Resources, Housing, Air Resources and Transportation, and Recreation and Boating. 27 Upon publication and distribution of the Draft Environmental Impact Statement on the Bay and Ocean Shore Segment in May 1978, DEP-OCZM held numerous workshops throughout the state with municipal officials, environmentalists, and industry and trade representatives prior to the document's more formal review at public hearings in June. The workshops were held primarily to further acquaint participants with the Coastal Location Acceptability Method (CLAM). DEP staff used a step-by-step process with illustrations to work through a CLAM case study. The workshops also provided a forum for additional comments about the document, so that interested parties could receive clarification on specific points within the document, or suggest and discuss particular issues in greater detail than is possible at hear- ings. DEP-OCZM, in conjunction with NOAA-OCZM, then held three public hearings on the Coastal Management Program in June 1978 in Bridgeton, Toms River, and Trenton. Approximately 180 people attended the hearings at which a total of 35 persons offered testimony. DEP presented a slide sh_ow at the start of each hearing to_ serve as an introduction to the coastal program. DEP also meets regularly with representatives of builders and environmental groups. Officials of the New Jersey Builders Association and leaders of New Jersey's environmental groups hold regular meetings with the Commissioner, which are often focused on coastal management . DEP-OCZM has shared and discussed with these groups early drafts of several coastal reports including the Interim Land Use and Density Guidelines, CAFRA Procedural Rules and Regulations and the Coastal Management Strategy. Prior to the May 1978 publication of the Coastal Management Program - Bay and Ocean Shore Segment and Draft Environmental Impact Statement, DEP-OCZM distributed 150 copies of a pre-publication version of the document for quick review and comment by other state agencies, coastal county planning boards, builders, and energy, industry and environmental group representatives who have been active in the coastal planning process. Recipients of the pre-publication draft were also invited to a special Saturday review working session. Since November 1976, DEP-OCZM has held monthly meetings with an Environmental Advisory Group composed of leaders of statewide civic and environmental groups. These meetings have been regularly attended by representatives of the American Littoral Society, American Association of University Women, League for Conservation Legislation, Sierra Club, Association of New Jersey Environmental Commissions, Natural Resources Defense Council, and the League of Women Voters, and occasionally by the Citizens Association to Protect the Environment, New Jersey Audubon Society, New Jersey Conservation Foundation, New Jersey Public Interest Research Group, and the Youth Environmental Society. DEP-OCZM also convened a series of workshops on energy involving oil and gas industry representatives from Louisiana and Texas, as well as from the New Jersey Petroleum Council and the American Petroleum Institute in Washington, D.C., county energy planning representatives, researchers from Rutgers and Princeton, fishing groups, representatives from several state agencies and representatives from environmental groups. As the Newark Star Ledger noted on April 24, 1977, "It comes as somewhat of a surprise to find many of the combatants meeting across tables to discuss the issue informally, almost casually, in New Jersey." 248 The hearings held by DEP-OCZM on each CAFRA permit application provide anorh^r forum for public input. The hearings are held near the site proposed for felop- ment , and range, depending on the interest aroused by the application, from five minute meetings attended only by the applicant to four hour sessions with up to 300 people . The coastal meetings and workshops are announced primarily through The Je rsey Coast, the DEP-OCZM newsletter. This periodical is mailed to all interested persons and organizations known to DEP-OCZM. The mailing list currently inci more than 5,000 names. Meetings are also announced through press releases and the PEP Weekly Bulletin . DEP-OCZM recognizes that reliance on a mailing list may neglect many poten- tially interested persons. To expand interest and knowledge of coastal management issues, the DEP-OCZM staff have spoken before : -a-wide variety of municipal, county, - state, and regional agencies, and civic, interest and professional groups in New Jersey and in other states. This provides an opportunity to talk with many people who may be well aware of some of the problems, but unaware of the coastal zone management program and possible solutions. Through these meetings, proposed policies are debated, interested individuals identified, and new people added to the mailing list who may later contribute to an element of the program. DEP-OCZM also participates in other events to raise public awareness of coastal issues and again to identify more people who are interested in partici- pating in the coastal management process. In June, 1976, for example, the DEP Commissioner led federal, state and local officials, interested citizens, and reporters on a six day walk along New Jersey's 125 mile ocean shoreline. This innovative event sparked considerable publicity and interest in the coast both in New Jersey and nationally. The Beach Shuttle experiment operated by DEP in the summer of 1977, and the return of the service in 1978, have provided another vehicle for probing public views on selected coastal management issues. In addition, DEP-OCZM has had exhibits at boat shows and county fairs. In May 1978, DEP developed a portable display describing New Jersey's coastal management program. This display' can be easily updated as DEP progresses through the Federal approval process and begins to emphasize different areas of the State's coastal zone. The exhibit has been placed at several environmental and ecological fairs around the state, in libraries, and in the rotunda of the State House. 249 APPENDIX C: FEDERAL AGENCY PARTICIPATION: 1975-1978 Sections 306 and 307 of the federal Coastal Zone Management Act require that the state coordinate coastal management program development and implementation efforts with all interested federal agencies- This Appendix documents New Jersey's compliance with this requirement. New Jersey recognized the importance of having policies and plans well integrated with all levels of government at the start of the coastal planning process. Early federal involvement in New Jersey's program can be traced to public meetings held in 1975 and to the request for responses to the Call for Information in early 1975. The chart on the following page, Figure 16, summarizes federal agency participation since 1975. Intensive effort to seek federal participation in New Jersey's coastal program began with DEP-OCZM's meeting with federa*T~~agencies~ potentially interested in coastal zone management in New Jersey in August 1976. Following the August meeting, DEP-OCZM sent a questionnaire to thirty-one federal agencies identified as having an interest in New Jersey's coast, requesting them to indicate their activities and level of involvement in a broadly defined New Jersey coastal area. All but three federal agencies responded to the questionnaire by March 1977. In November 1976, DEP-OCZM invited all federal agencies to attend a meeting to discuss the Alternatives for the Coast, a compilation of the issues to be addressed in the evolving coastal program. In addition, through late fall and early winter 1976-77 each federal agency was invited to attend six series of workshops conducted on numerous issues concerning coastal zone management. To stimulate discussion, DEP-OCZM forwarded to each federal agency copies of the particular staff issue papers pertinent to its interests and work. Throughout the process, representatives of federal agencies have been encour- aged to contact and meet with DEP-OCZM staff. On several occasions, DEP-OCZM staff arranged and attended meetings with individuals or groups of agencies including the Federal Regional Council (Summer 1976), Department of the Interior (September 1976), Environmental Protection Agency (December 1976), U.S. Fish and Wildlife (February 1977) the U.S. Navy (July 1977) and the U.S. Coast Guard (July 1978) to discuss special issues and policies. In addition, a DEP-OCZM staff person was designated as the federal coordinator to maintain open communication with each of the federal agency representatives and notify them of all New Jersey coastal program developments. In September 1977, each of the federal agencies received a copy of New Jersey's Coastal Management Strategy . New Jersey encouraged federal comment on the Strategy to provide further input into the document DEP-OCZM was preparing to submit to NOAA-OCZM as the first New Jersey Coastal Management Program. In addi- tion to providing written comments, the federal agencies were invited to attend a meeting with DEP-OCZM in Trenton in November 1977 to discuss the Strategy in general and to meet with individual staff responsible for preparing various parts of the document. As a result, DEP-OCZM received comments, which have been incor- porated into the New Jersey Coastal Program, from the following 14 agencies: 250 nrasrites innnis uujju X X X s. „ X X ^. ^ pue ABg uo sjuduauuD apxAOjj J 'i ! ' '• ! 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I I 1 > il S 4| a ■~n -H i i — a -5 < ti . a 4. — — 1 4- o> ~ 3 41 « a w — eg u > a c - 41 s 2 E ■< c E- 03 01 K 1 = 3 5 u d ■ • E — 1- 01 41 d E u > — a 0. : d 1 5 — . < a c — > 4 a ■•n H -J 41 i > c E 01 el •d C C 44 CI 41 E 0. •H •J C 1 a u — I > (V «~: 5 • > a. — 1 L O U CJ u C O C *j — • , 00 - •+4 Q = > u O t£ CJ <-» u •^ 3_ O I u > -3 c a m a el i 3 c 4* 251 Department of Agriculture Soil Conservation Service Department of Commerce National Marine Fisheries Service National Oceanic and Atmospheric Administration Department of Defense US Air Force US Army Corps of Engineers US Navy Department of Energy Department of Housing and Urban Development Department of the Interior Bureau of Land Management Bureau of Mines Fish and Wildlife Service Department of Transportation US Coast Guard Federal Aviation Administration Environmental Protection Agency Comments from the Federal agencies touched on all sections of the Coastal Management Strategy from use and resource policies, to particular questions on federal consistency and excluded federal land. The comments and DEP responses are summarized in detail in a separate document entitled Coastal Management Strategy for New Jersey - CAFRA Area; Public Comments and DEP Responses, available from ______ After releasing the Draft Environmental Impact Statement for the Bay and Ocean Shore Segment in May 1978, DEP received comments on the document from the following federal agencies: Department of Agriculture Soil Conservation Service Department of Commerce National Marine Fisheries Service Department of Defense U.S. Army Corps of Engineers U.S. Air Force U.S. Navy Department of Energy Department of Housing and Urban Development Department of Interior U.S. Fish and Wildlife Service Department of Transportation Environmental Protection Agency Federal Energy Regulatory Commission Nuclear Regulatory Commission As with the comments on the Strategy , federal agency comments on the DEIS covered all elements of the program. DEP met with DOE, FERC and NRC to discuss their concern with the energy policies. Other comments praised the program's recognition of the importance of protecting valuable coastal resources for fish, wildlife and recreational purposes. Comments on the management section expressed concern over the effort being made to coordinate with other water and air quality 252 planning in the State. The revisions to the final KIS have considered all of these comment. In addition, respon3es to all federal agency comments on th< LS, prepared by NOAA-OCZM and DEP, are in Appendix M. In addition to submitting written comments, federal agencies were provided with the opportunity to discuss and comment on the DEIS at a meeting conducted by NOAA-OCZM with DEP staff in Washington on May 25, 1978. The New Jersey Coastal Management Program for the Bay and Ocean Shore Segment was also included on the agenda for the Federal Regional Council meeting, in New York in May at wh ich staff from NOAA-OCZM and DEP attended the meeting to explain the program and receive comments . 253 APPENDIX D: LOCAL GOVERNMENT PARTICIPATION: 1975-19 78 DEP-OCZM has worked to involve county and municipal officials in coastal planning for New Jersey. The involvement has taken many forms, including sharing draft documents, convening and attending meetings in many localities and conducting many one-on-one conversations. County governments have participated largely through the offices of the county planning directors. In particular, the New Jersey County Planners Association anized a Coastal Committee to work closely with DEP-OCZM on coastal zone manage- ment. The major product of this cooperation to date has been a special state- county partnership to study and plan for possible onshore impacts of offshore oil and gas exploration and development, and coastal program policies and implementa- tion in general. ;=-- -. -. In 1977, DEP contracted with twelve coastal counties, including all eight counties in the Bay and Ocean Shore Segment, to provide assistance to DEP in developing the energy facility siting element of the New Jersey Coastal Program. Each county was awarded $15,000, for the 12 month study. The joint State-county projects had three main objectives. The primary prupose was for counties to become familiar with oil and gas industry operations and the other energy facilities likely to locate in the coastal area. A second objective was for counties to identify sites that might be potentially suitable or non-suitable for energy facilities and provide documentation for their findings. The study also became a learning experience for both DEP and the counties. DEP,* for example, invited representatives and arranged field trips for the study team to visit energy facili- ties. DEP also held monthly meetings with the county representatives around the state, in order to increase communications between the two levels of government. The final reports submitted by the counties reflected this learning process and showed an increasing grasp of the greater than local issues involved in energy facility siting. While not all the county reports were site specific, the counties did demonstrate an understanding of the concepts involved in coastal energy facility siting. This knowledge provides a useful background for further energy siting studies and specific siting decisions. As expected, counties with local economies largely based on tourism showed a greater concern for the environment than did other counties. 8, DEP has continued this cooperative relationship by passing through to most of the same coastal planning boards to allow them to contribute county and municipal input to the entire range of issues addressed by coastal management. The counties will comment on state coastal planning documents, eval- uate their consistency with municipal plans and ordinances, and comment on specific coastal permit applications. DEP has continued to meet monthly with the County representatives who are participating in coastal program development efforts. As part of the county work in coastal management, some of the counties are conducting meetings with their municipal governments to discuss coastal issues identified in the program. 254 DEP-OCZM relied heavily upon county planning directors in the preparation of the Interim Land Use and Density Guidelines for t h^ Coastal Ar^a, particularly in the period from October 1975 through March 1976, for critical review and comment on drafts of working papers. County officials have also commented on Alternat ives for the Coast, Alternative Boundaries for New Jersey's Coastal Zone , selected issue papers, the Coastal Mangement Strategy in both draft and final form, the prepubli- cation draft of the Bay and Ocean Shore Segment (DEIS) and the published DELS. At the municipal level, DEP-OCZM has worked closely with the mayor, planning board and environmental commission of the municipalities in which CAFKA permit applications or other coastal issues have been particularly prominent. Dover Township in Ocean County is the location of considerable CAFRA permit activity and was also the site used for DEP-OCZM's demonstration project on coastal decision- making called the "Intuitive-Interactive Model". Lower Township was the site used for DEP-OCZM's pilot study of Lower Cape May County. Atlantic City has been subjected to many potentially conflicting development initiatives, and DEP-OCZM staff have participated in many meetings with city officials. In addition, DEP-OCZM staff have met with officials from many other municipalities both within, and outside the proposed coastal zone, to discuss the coastal program in general and in terms of its local implications. County and municipal groups and officials in the coast are included on the DEP-OCZM mailing list. They have each received copies of the CAFRA Rules and Regulations, Interim Land Use and Density Guidelines, Alternatives for the Coast, Coastal Management Strategy, Bay and Ocean Shore Segment-DEIS, and issues of The Jersey Coast . DEP-OCZM has intentionally held and attended public meetings in varied loca- tions so that officials and other citizens of many municipalities would have an easy opportunity to learn about, and comment on the evolving coastal program. From 1975 to 1978, DEP-OCZM staff attended public meetings in in more than 50 munici- palities, in addition to holding public hearings on CAFRA permit applications in more than 60 municipalities. Officials from neighboring municipalities also attended many of these meetings. Prior to the public hearings on the Bay and Ocean Shore Segment, in early June 1978, DEP held three workshops in Ocean City, Neptune Township and Salem to discuss the draft with county and municipal officials. DEP-OCZM's implementation of CAFRA has created a working relationship with many county and municipal governments. With the county energy facility planning project and planning for the remainder of the program, this direct involvement has spread beyond the CAFRA boundary to include jurisdictions covering all of the potential coastal zone. Conflicts Between Coastal Program and Local Govern ments, Regional and Interstate Agencies This section of Appendix D indicates New Jersey's compliance with Section 923.56(a) of the Federal Regulations for the federal Coastal Zone Management Act. 255 Local governments designated pursuant to regulations established under Section 204 of the Demonstration Cities and Metropolitan Development Act of 1966 and regional and interstate agencies with plans affecting the Segment are listed on the next page. Coordination has been carried out with each of these agencies in development of Coastal Policies. Agencies and counties submitting comments on the draft Coastal Management Program are listed in Appendix M. The county governments have limited authority to regulate development in accordance with their plans. There is no conflict between their use of this authority and coastal zone management. Coordination of county policies with Coastal Policies is discussed in Chapter Five. The three regional planning agencies with A-95 review functions have no regulatory authority. Each was given an opportunity to comment on possible Coastal Policies presented in the draft Coastal Management Program and plans for their regions. The Delaware River Basin Commission holds significant regulatory auttfority for "' implementing its Compre- hensive Plan. NJOCZM is proposing a coordination project with DRBC to determine if there are any inconsistencies between the DRBC Comprehensive Plan and the Coastal Policies. The use of DRBC regulatory authority for the implementation of mutual policies is to be considered in 1978-1979. 256 0) 1-4 co 3 d 4-1 cO ct) t— 1 55 ex, >, ,d )-i 4-J O •H 4-1 & CO r-l CO d 4-1 60 CJ CU •H Pi i— 1 M-t CO c o •4-1 o o CD CD 01 CD d d (3 d o o o o o> d o 53 o> d o 53 0> d o 52 >> 60 1 > d J-4 •H CJ J! 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In December 1976, DEP-OCZM released a staff working paper entitled Alternative Bound- aries for New Jersey's Coastal Zone, which began public discussion on New Jersey's approach to addressing this requirement. That discussion has culminated in the Bay and Ocean Shore Segment boundary presented in Chapter Two. This Appendix describes the background of the CAFRA boundary, lists the municipalities within the CAFRA Area, identifies the coastal wetlands considered part of the Bay and Ocean Shore Segment, and presents the preliminary boundary for the coastal zone of the entire state. History of the CAFRA Boundary New Jersey defined the present CAFRA boundary in 1972-1973 by a process of combining scientific analysis, public hearings, and legislative compromise. In early 1972, a bill was introduced in the Legislature (A-722) proposing a "Coastal Area" from the head ot tide of the Delaware River around the state's shoreline to the center line of the Raritan River at its mouth, with an inland boundary at the 10 foot contour interval above mean sea level and a seaward boundary at the mean high water line. An alternative inland boundary, recommended by DEP, was included in a substitute bill (A-1429) introduced in mid-1972. The DEP prepared the recom- mended "Coastal Area" boundary by analyzing the geography of New Jersey in terms of five criteria: (1) Limit the Coastal Area to the Coastal Plain geological province, (2) Include Wetlands, (3) Include tidal portions of streams, and their adjacent fast lands, that empty into the Raritan Bay, Atlantic Ocean, Delaware Bay, and Delaware River, (4) Include areas with soils limitations such as poor drainage, propensity for flooding, poor septic tank suitability, poor landfills suitability, limited agricultural value, regions with muck, tidal marsh, swamp, and bog soils, and areas with depth to seasonal high water table, (5) Include densely populated areas whose sanitary wastes could affect water quality. 258 DEP then interpreted aerial photography and soil surveys to delineate a recommended inland boundary by using fixed, legal ] y-descr ibable cultural features such as roads and railroads to define the land area that met the boundary criteria. This recom- mended boundary also extended along the Delaware River from Trenton around the bay and ocean shorelines to the Raritan River. Various legislators, local government officials, business interests, organized public interest groups and citizens expressed strong and often conflicting views on the DEP-prepared inland boundary for the "Coastal Area" during the legislative process of hearings and debate in 1972-1973. In June 1973, after numerous amend- ments to the bill revising the boundary, the Legislature passed what is now known as the Coastal Area Facility Review Act. The revised and final "Coastal Area" boundary deleted the Delaware River waterfront, excluded a small area around the Cape May County Airport to facilitate economic development, and reduced the scope of the Coastal Area in Middlesex and Monmouth .counties. ... .. Eight of New Jersey's 21 counties are represented in the CAFRA Area, including parts of Middlesex, Monmouth, Ocean, Burlington, Atlantic, Cape May, Cumberland, and Salem. The portions of each county within the area vary considerably from less than one percent of Middlesex to 57 percent of Ocean and 93 percent of Cape May. A total of 127 municipalities, as diverse as urban Asbury Park in Monmouth County, suburban Dover Township in Ocean County, and rural historic Greenwich Township in Cumberland County, are wholly or partially within the statutory Coastal Area. This appendix lists these 127 municipalities. Municipalities Within the Bay and Ocean Shore Segment All or parts of 127 of New Jersey's 567 municipalities lie within the CAFRA Area, and are included within the geographic scope of the Bay and Ocean Shore Segment. In addition, part of Alloway Township in Salem County is included in the Bay and Ocean Shore Segment as it contains coastal wetlands inland of the CAFRA boundary. The 127 municipalities included, in whole or in part, within the Bay and Ocean Shore Segment are listed below, by county: Atlantic County Absecon City Atlantic City Brigantine City Corbin City Egg Harbor City Egg Harbor Township Estell Manor Township Galloway Township Hamilton Township Linwood City Longport Borough Margate City Mullica Township Northfield City Pleasantville City Port Republic City Somers Point City Ventnor City Weymouth Township Bass River Township Burlington County Washington Township 259 Cape May County Avalon Borough Cape May City Cape May Point Borough Dennis Township Lower Township Middle Township North Wildwood City Ocean City Sea Isle City Bridgeton City Commercial Township Downe Township Fairfield Township Greenwich Township Old Bridge Township (Madison) Cumberland County Middlesex County Stone Harbor Borough Upper Township West Cape May Borough West Wildwood Borough Wildwood City West Wildwood Crest Borough Woodbine Borough Hopewell Township Lawrence Township Maurice River Township Millville City Stow Creek Township Aberdeen Township (Matawan) Aberdeen Borough (Matawan) Allenhurst City Asbury Park City Atlantic Highlands Borough Avon-by-the-Sea Borough Belmar Borough Bradley Beach Borough Brielle Borough Deal Borough Eatontown Borough Fair Haven Borough Hazlet Township Highlands Borough Holmdel Township Interlaken Borough Keansburg Borough Keyport Borough Little Silver Borough Barnegat Light Borough Barnegat Township (Union) Bay Head Borough Beach Haven Borough Beachwood Borough Berkeley Township Brick Township Dover Township Eagleswood Township Harvey Cedars Borough Island Heights Borough Monmouth County Ocean County Loch Arbour Village Long Branch City Manasquan Borough Middletown Township Monmouth Beach Borough Neptune City Neptune Township Ocean Township Oceanport Borough Red Bank City Rumson Borough Sea Bright Borough Sea Girt Borough Shrewsbury Borough South Belmar Borough Spring Lake Borough Spring Lake Heights Borough Union Beach Borough Wall Township West Long Branch Borough Jackson Township Lacey Township Lakehurst Borough Lakewood Township Lavallette Township Little Egg Harbor Township Long Beach Township Manchester Township Mantoloking Borough Ocean Gate Township Ocean Township 260 Ocean County - Cont Pine Beach Borough Point Pleasant Beach Borough Point Pleasant Borough Seaside Heights Borough Seaside Park Borough Salem County Allow ay Township (not in CAFRA Area) Elsinboro Township Lower Alloways Creek Township Mannington Township Wetlands Landward of the CAFRA Boundary Ship Bottom Borough South Toms River borough Stafford Township Surf City Borough Tuckerton Borough Pennsville Township Quinton Township Salem City Upper Penns Neck Parts of 47 of DEP's wetlands maps incftrde wetlands areas considered to be within the inland boundary of the Bay and Ocean Shore Segment, as defined in Chapter Two. The numbers of these maps are listed below: 133-1932 140-1920 140-1926 161-1902 168-1908 168-1914 175-1914 175-1980 182-1902 182-1914 189-1902 203-1890 217-1836 224-1788 224-1794 224-1800 224-1980 231-1788 245-1782 252-1788 259-1788 266-1776 266-1782 266-1788 266-1794 273-1782 273-1794 280-1782 280-1788 280-1794 287-1752 294-1746 294-1788 294-1794 294-1998 301-1776 301-1782 301-1788 301-1794 308-1776 539-2154 546-2160 553-2160 574-2118 574-2154 581-2106 588-2106 Figure 16 shows the approximate locations of these wetlands, by map number. Preliminary Boundary of the Coastal Zone - Entire State While New Jersey is submitting only the Bay and Ocean Shore Segment for federal review and approval at this time, federal regulations [15 CFR 923.61(a)(3)] require the coastal zone boundary to be determined initially for the entire coastal zone throughout the state at the time of segment submission. The Coastal Manage- ment Strategy for New Jersey - CAFRA Area (September 1977) defined an initial, proposed state-wide "coastal zone", under the federal Coastal Zone Management Act. That proposal included the entire CAFRA Area, as well as all coastal waters to the limit of tidal influence, a narrow strip of adjacent shorelands, and the Hackensack Meadowlands Development Commission District. Figure 17 depicts generally this proposed coastal zone, and its four regions. Figure 18 presents an index map followed by eight maps at a scale of 1:250,000 showing this boundary. This pro- posed "coastal zone" is based on a definition of coastal waters, an inland boundary drawn along easily-recognized roads and railroads immediately landward of the defined coastal waters, and the jurisdiction of the Hackensack Meadowlands Develop- ment Commission. 261 Figure 19; NEW JERSEY BAY AND OCEAN SHORE SEGMENT BOUNDARY - WETLANDS LANDWARD OF CAFRA BOUNDARY jr" s 574-2154 54S-2WO 2»0-IT»2 2«0-lTSi 273-I7B2 2M-I7 7* 2*4-ITS2 133-1932 TATE > Mt* £RUV NOTE * THE NUMBERS REFER TO SPECIFIC DEP WETLANDS MAPS 4 < ® The coastal waters of New Jersey include: the Atlantic Ocean to the limit of New Jersey's seaward jurisdiction; the Hudson River, Upper New York Bay, Newark Bay, Arthur Kill, and Raritan Bay to the New York boundary; Delaware River and Bay to the State of Delaware boundary; Delaware River to the Pennsylvania boundary; and the tidal portion of the Delaware Raritan, Passaic, and Hackensack Rivers, includ- ing the tidal portions of their tributaries and other tidal streams of the Coastal Plain. The landward extent of coastal waters can be defined either by the limit of waters containing a specified percentage of salinity, the extent of the salt wedge, or tidal influence. Figure 19 displays selected salinity levels at various points along New Jersey's coastal waters, using the limited available data. Salinity levels are highly variable geographically throughout the seasons and from year- to-year, and therefore not appropriate for fixed boundaries, given the complexity and diversity of New Jersey's estuaries. -*=T-he landward penetration of tidal- influence in a watercourse does, however, provide a readily measurable dividing line for coastal and non-coastal waters. (The tidal limit also coincides with the extent of State-owned tidelands and permit regulation under the riparian lands management program) . Two methods have been used to define the upstream limit of tidal activity. First, the approximate tidal limits specified in the annual Compendium of New Jersey Fish Laws , published by DEP's Division of Fish, Game, and Shellf isheries have been used where available. These limits are typically defined as bridges or dams. Second, the point where the 20 foot contour interval crosses the water course is used to define the approximate limit of tidal influence along other tidal water courses. In the future, DEP's completed tidelands delineation maps, prepared by the Office of Environmental Analysis in the Office of the Commissioner, will precisely and legally define New Jersey's tidal limits. These delineations will become part of the official boundary of the coastal zone. This proposed coastal zone includes at least a small part of a total of 243 municipalities in seventeen of New Jersey's twenty-one- counties, including munici- palities in the Bay and Ocean Shore Segment. The - next section of this appendix lists these municipalities. Only Hunterdon, Morris, Sussex, and Warren counties have no coastal waters and are excluded from the coastal zone. This relatively large zone, united by the presence of coastal waters, is quite diverse, stretching from the port at Camden to the vast wetlands along Delaware Bay, to the beaches of the barrier islands along the ocean, to the industrialized waterfront of northern New Jersey. Tidal influence makes the Delaware River region immediately adjacent to these waters "coastal" in the sense intended by the federal Coastal Zone Management Act. Although the CAFRA boundary stops south of the Delaware Memorial Bridge, the tidal influence on the Delaware River extends 60 miles further north to Trenton. Because of the flat topography of the Coastal Plain, tidal tributaries from the Delaware River extend up to 10 miles inland. NOAA-OCZM does not require inclusion of the Delaware River within New Jersey's coastal zone as the quantity of seawater is less than 5 parts per thousand. However, the State of New Jersey does today manage the wetlands and riparian lands along this part of the coast and prefers to include these areas within the proposed coastal zone for the second phase of New Jersey's coastal management program under federal law. 263 Figure 20 NEW JERSEY OASTAL ZONE REGIONS- PROPOSED COASTAL ZONE 1977 HACKENSACK MEADOWLANDS DISTRICT ! NORTHERN WATERFRONT AREA 1 ••••*••«••*••«••••*•••*«•••**•* ••*•«••**•• •♦■ Kil l ^ ••♦fffWtWMtWMfONtlMt 1 ■ *j , 9'' A*- ' •5 :: - ~n r IK- Figure 21 NEW JERSEY COASTAL ZONE BOUNDARY INDEX MAP LEGEND 265 ! r;e?» Source : , USGS 7j minute Topo Quads. NJDEP Wetlands Maps. County Road Maps. Redl Tax Maps. MS J Lo%r ft $2 A" £ s 20 &-&£! ^ /to V J "^£ZA iff /> yw»ding R? 'U ^ay» Uarv dip a Cit (saT NWR nithvitle >M Cre^/-.., \ ScullviSe L BKIGANTINHl' '^NT ■'■«( ' r BRK/CNTi.VE nUtio.val ldl3fe refuge COASTAL ZONE BOUNDARY MAPS T 462- 2168 (559) -in wood Jomerj-f'o Northfield Brie Light ANTIC CITYC Ventnor City largate City *r , CAPE. MAY Cb y ' Bej^sfeys Pali rterabur4 T / .8« Ocean _; Jcean C ity Longport WETLANDS MAP, LANDWARD OF CAFRA I I OUTSIDE OF COASTAL ZONE BOUNDARY SCALE !•• 250,000 H N S^7 0ltJ 4 I 1 1 1 I .11,. Source 1 USGS 7 j- minute Topo Quads. NJDEP Wetlands Mops. County Road Maps. Redi Tox Maps. L fM^F* ' u -*'»dJ ( n - — V_ 462- 2168 WETLANDS MAP, LANDWARD OF CAFRA ™ [ OUTSIDE OF COASTAL ZONE \ [^1 BOUNDARY . SCALE |i 250,000 1*34 I I T I I milt* >trathmere. / Tjj^sea Isle Cily > z Townsends Inlet Source ; USGS 7j- minute Topo Quads. NJDEP Wetlands Maps. County Road Maps Redl Tax Mops. 15/ A yi\ i s ( /o — % _ 9 , IE A BAY ' \ ■' irth W Idwopd V Cape May — Lighthouse Cope Moy valon 996 L-iO-x^ / ' 72 30 | The preliminary inland boundary of the proposed coastal zone in this region is, therefore, the first road or cultural feature (such as a railroad or transmis- sion line) that is parallel to the coastal watercourse, usually a river or stream. This definition includes wetlands and transitional areas between the tidal waters and the appropriate road or cultural feature. Moreover, this area should be part of the coastal zone under federal law because several land use activities are dependent on coastal waters, such as marine terminals. In addition, the area's coastal location provides certain attributes for recreation and industry- The Delaware River Area includes parts of Camden, waterfront residential communit ies such as Riverside, historical areas in Roebling and Bordentown, and two oil refin- eries in West Deptford and Greenwich Townships. Tidal influence in New Jersey also extends north of the Bay and Ocean Shore Segment on the east side of the state. The t.idally influenced water bodies in this: region includes the Hudson River, Upper New York Bay, Newark Bay, Kill van Kull, Arthur Kill, Passaic River, Hackensack River, and Raritan River and Bay, and their tributaries. The proposed inland coastal boundary in the Northern Waterfront Area would be the first road or cultural feature along the Hudson River. This narrow preliminary boundary is appropriate because the highly developed state of this area confines direct coastal impacts. This region includes the industrialized water- front with outmoded docks, abandoned piers, and closed industrial plants, as well as modern container ports, refineries, tank farms, shipyards, and new indust- rial facilities. The area also includes the developing Liberty State Park and other waterfront sites which could one day accommodate future parks. The Hackensack Meadowlands Development District is a 19 600 acre area in Bergen and Hudson counties defined by the 1968 legislation establishing the Hacken- sack Meadowlands Development Commission (N.J.S.A. 13:17-1 et seq.), an autonomous agency associated with the New Jersey Department of Community Affairs. The District includes a large undeveloped expanse of salt marsh, disturbed land and built-up areas covering parts of 14 municipalities. The District also includes the New Jersey Sports Complex. Inclusion of some portion of the shorelands of the Meadowlands District within the coastal zone is required under the federal Coastal Zone Management Act because the salinity level of some of the tidal waters of the District is above the NOAA-OCZM threshold of 5 parts per 1000. Also, DEP already exercises coastal management responsibilities in the Meadowlands District in the riparian lands management program, as much of the District includes land now or formerly flowed by the mean high tide. Further, DEP's present riparian lands management and tidelands delineation programs in the Meadowlands are already carried out in close coordination with staff of the Hackensack Meadowlands Develop- ment Commission. In conclusion, the inland boundary of the coastal zone beyond the boundary of the Bay and Ocean Shore Segment is a proposal to be debated and refined as DEP conducts further coastal planning in 1978. The final boundary for the entire coastal zone will depend in part upon the legal authority to carry specific coastal policies to be defined for these regions of the coast. At this stage, however, the most important boundary is the one defined in Chapter Two for the Bay and Ocean Shore Segment . 274 Figure 22 Mun ic ipal it ies Within the Preliminary Boundary of the Coastal Zone of the Entire State All or part of 238 of New Jersey's 567 municipalities are included in the preliminary state-wide coastal zone. These municipalities, in addition to those listed above for the Segment, are listed below, by county, by regions, either Delaware River Area or Northern Waterfront Area (which includes the Hackensack Meadowlands District). It is important to note that this is only a proposal at this stage. The definition of the state-wide or the coastal zone will become final only after the Governor's submission of the coastal management program for the entire State to NOAA-OCZM, which is expected to take place in 1979. DELAWARE RIVER AREA Beverly City Bordentown City Bordentown Township Burlington City Burlington Township Chesterfield Township Cinnaminson Township Delanco Township Delran Township Edgewater Park Township Fieldsboro Borough Florence Township Hainesport Township Burlington County Lumber ton Township Mansfield Township Maple Shade Township Medford Township Moorestown Township Mount Holly Township Mount Laurel Township Palmyra Borough Riverside Township Riverton Borough Southhampton Township Westharapton Township Willingboro Township Audubon Borough Barrington Borough Bellmawr Borough Brooklawn Borough Camden City Cherry Hill Township Gloucester City Gloucester Township Haddon Township Hi-Nella Borough Camden County Laurel Springs Borough Lindenwold Borough Magnolia Borough Mount Eraphraim Borough Pennsauken Township Runnemede Borough Somerdale Township Stratford Borough Deptford Township East Greenwich Township Greenwich Township Mantua Township National Park Borough Paulsboro Borough Gloucester County Swedesboro Borough Wenoah Borough West Deptford Township Westville Borough Woodbury City Woolwich Township 276 Hamilton Township Olmans Township Penns Grove Township NORTHERN WATERFRONT AREA Mercer County Salem County Trenton City Pennsville Township Pilesgrove Township Alpine Borough Bogota Borough Carlstadt Borough East Rutherford Borough Edgewater Borough Englewood Cliffs Borough Fairview Borough Fort Lee Township Garfield City Hackensack City Little Ferry Borough Belleville Town Newark City Bayonne City East Newark Borough Guttenberg Town Harrison Town Hoboken City Carteret Borough East Brunswick Township Edison Township Highland Park Borough New Brunswick City Old Bridge Township Bergen County Essex County Hudson County Middlesex County Clifton City Franklin Township Elizabeth City Linden City Passaic County Somerset County Union County Lyndhurst Township Moonachie Borough New Milford Borough North Arlington Borough Oradell Borough Ridgefield Borough River Edge Borough Rutherford Borough Teaneck Township Teterboro Borough Walington Borough Nut ley Town Jersey City Kearny Town North Bergen Township Secaucus Town West New York Town Perth Amboy City Piscataway Township Sayreville Borough South Amboy City South River Borough Woodbridge Township Passaic City Rah way City 277 APPENDIX F: EXCLUDED FEDERAL LANDS - BAY AND OCEAN SHORE SEGMENT Under the federal Coastal Zone Management Act, lands that are owned, leased, held in trust or whose use is otherwise by law subject solely to the discretion of the Federal Government, its officers, or agents are excluded from New Jersey's coastal zone. Several large-scale federal holdings are located within New Jersey's statutory "Coastal Area" and are excluded from the Bay and Ocean Shore Segment under federal law. Below is a list of all major federal lands located entirely or partially in the area defined by the Bay and Ocean Shore Segment. "Major" is defined as greater than 100 acres. These areas are also indicated in Figure 27. In addition to the areas noted, numerous Coast Guard stations and smaller federal land holdings are excluded from the Bay and Ocean Shore Segment. The listing below notes the federal agency responsible for the land and the county in which it is located. Army Corps of Engineers Artifical Island Disposal Area (Salem) Cape May Canal (Cape May) Kilcohook Spoil Disposal Area (Salem) Army Fort Monmouth (Monmouth) Highlands Army Air Defense Site (Monmouth) Navy Leonardo-Earle Naval Ammunition Depot (Monmouth) Fish and Wildlife Service Barnegat National Wildlife Refuge (Ocean) Brigantine National Wildlife Refuge (Atlantic) Kilcohook National Wildlife Refuge (Salem) Supawana Meadows National Wildlife Refuge (Salem) National Park Service Gateway National Recreation Area - Sandy Hook (Monmouth) Coast Guard Coast Guard Receiving Center-Cape May (Cape May) Coast Guard Electronic Engineering Center (Cape May) The State of New Jersey considers the acquisition of new federal lands to be a direct federal action subject to the consistency provisions of Section 307 of the federal Coastal Zone Management Act. Also, federal actions on excluded lands that have spillover impacts that significantly affect coastal resources subject to the jurisdiction of the Bay and Ocean Shore Segment must also be consistent with State coastal policies. Chapter Six discusses the Program's federal consistency provi- sion in greater detail. 2 78 Figure 23 MAJOR FEDERAL LANDS EXCLUDED FROM THE BAY AND OCEAN SHORE SEGMENT LEONARDO - EARLE NAVAL AMMUNITION DEPOT GATEWAY NATIONAL RECREATION AREA HIGHLANDS ARMY AIR DEFENSE SITE FORT MONMOUTH. KILCOHOOK SPOIL DISPOSAL AREA KILCOHOOK NATIONAL WILDLIFE REFUGE SU PA WAN A NATIONAL WILDUFE REFUGE ARTIFICIAL ISLAND DISPOSAL AREA BARNEGAT NATIONAL WILDLIFE REFUGE BRIGANTINE NATIONAL WILDLIFE REFUGE CAPE MAY CANAL COAST GUARD RECEIVING AREA COAST GUARD ELECTRONIC ENGINEERING CENTER 279 5 ; ■ . i • k . r i APPENDIX G: DOE-DEP MEMORANDUM OF UNDERSTANDING Memorandum of Unders tand mg New Jersey Between Department of Energy and New Jersey Department~~"o"f Environmental Protection on Coordination of Permit Reviews A. Purpose This Memorandum of Understanding sets forth the areas of responsibilities and operating procedures to be followed effective, immediately by the Department of Energy (DOE) and Department of Environmental Protection (DEP) under the State of New Jersey's coastal management program, as developed and as to be administered under the federal Coastal Zone Management Act of 1972 as amended (16 U.S.C. 1451 et seq . ) . The DOE and DEP agree to the procedures and responsibilities that follow, recognize the statutory limitations of both agencies, and do not intend this Memorandum of Understanding to expand or limit their existing statutory powers in any way. B. Definitions As used in the Memorandum of Understanding, the following words and defini- tions shall have the following meanings unless the context indicates or requires another or different meaning or intent. 1. Complete for Review means that supplemental information requested by either the Department of Environmental Protection and Department of Energy on permit applications has been submitted and both agencies are satisfied as to form and content of such information. 2. Energy Report means the report in form and content specified by the Department of Energy Act N. J.S.A. 52:27F-13(c) or as further specified by Administrative regulation of the Department of Energy. 3. Energy Facility means any facility which produces, converts, distributes or stores energy or converts one form of energy to another consistent with applicable statutory authority and regulations of the DOE and DEP. 4. Final Agency Action means a final decision of the Commissioner of Envi- ronmental Protect ion or designated representative on a pending permit application except as noted in Section F. 5. Permi t s means administrative regulatory instruments issued by the Department of Environmental Protection on the construction or location of energy facilities, under the Coastal Area Facility Review Act (N.J.S.A. 13:19-1 et seq.), Wetlands Act (N.J.S.A. 13:9A-1 et seq.), and waterfront development permit program (N.J.S.A. 12:5-3). The definition of "Permits" may be extended by mutual agreement between DEP and DOE. -280- Statement of Existing Agency Responsibilities 1. The DEP is responsible for formulating comprehensive policies for the conservation of the natural resources of the State, promoting environ- mental protection, and preventing pollution of the environment (N.J.S.A. 13:lD-9). 2. The DEP is the agency designated by the Covernor to develop and admini- ster the State's coastal management program under Sections 305 and 306 of the federal Coastal Zone Management Act. 3. The DEP has selected and presented to the Governor and Legislature the Coastal Management Strategy for New Jersey - CAFRA Area ^(September 1977) as required by the Coastal Area Facility Review Act (hereafter CAFRA) (N.J.S.A. 13:19-16). 4. The DEP exercises regulatory respons iblity over the construction of energy facilities in the coastal zone under three coastal permit pro- grams: the Coastal Area Facility Review Act (N.J.S.A. 13:19-1 et seq . ) , the Wetlands Act (N.J.S.A. 13:9A-1 et seq.), and waterfront development permit program (N.J.S.A. 12:5-3). 5. The Coastal Area Review Board (hereafter CARB), in but not of DEP, may hear appeals of CAFRA permit decisions by DEP (N.J.S.A. 13:19-13, N.J.A.C. 7:7D-1 et seq.). DEP also provides a plenary hearing appeals procedure complying with the Administrative Procedures Act for CAFRA (N.J.A.C. 7:7D-2.8), Wetlands (DEP Administrative Order No. 12, December 8, 1977), and waterfront development (N.J.A.C. 7:1C-I.9(b)) permit decisions by DEP's Division of Marine Services. 6. The DOE is responsible for the coordinated regulation and planning of energy-related. matters in the State (C. 146, L. 1977, N.J.S.A. 52:27F-1 et seq . ) . 7. The DOE, through its Division of Energy Planning and Conservation, is preparing the State Energy Master Plan for the production, distribution, consumption, and conservation of energy in the State, which will include the siting of energy facilities in the coastal zone (N.J.S.A. 52:27F-12). 8. The DOE, Division of Energy Planning and Conservation is empowered and directed to intervene in any proceeding and appeal from any decision of DEP with respect to the siting of energy facilities in the coastal zone. The DOE is a party of interest in any proceeding before DEP on coastal energy facility siting (N.J.S.A. 52:27F-13(a) ) . 9. The DOE has coextensive jurisdiction with DEP over permit applications on the siting of any energy facility in the State, including the coastal zone. The DEP must solicit the views of DOE prior to making a decision on the siting of an energy facility in the coastal zone. DOE ' s views must be transmitted to DEP in a report (hereafter Energy Report) within 90 days of DOE ' s receipt of the application. If the Energy Report differs from the decision of DEP, the conflict shall be referred for resolution to the Energy Facility Review Board (N.J.S.A. 52 : 27F-13(c ) ) . -281- 10. The DOE is the agency designated by the Governor to administer the State's participation in the Coastal Energy Impact Program (CEIP) under Section 308 of the federal Coastal Zone Management Act. DEP, as the state coastal management agency, must be involved in the CEIP Intrastate Allocation Process. D. Coastal Planning and Energy Planning DOE and DEP agree to work together, to the maximum extent practicable, to formulate, review, and revise plans, policies, and guidelines on the siting of energy facilities in the coastal zone, including but not limited to planning documents such as the State Energy Master Plan, Coastal Mangement Strategy for New Jersey - CAFRA Area, and New Jersey Coastal Management Program - Bay and Ocean Shore Segment . E. Joint DEP-DOE Coastal Permit Applicat ion ^jPr-oces sing Sequence DEP and DOE agree that coastal permit applications for energy facilities over which DOE has coextensive jurisdiction shall be processed according to the following sequence of steps and timetable. 1. DEP receives energy facility permit application and begins internal DEP permit application review process. 2. When complete for review, DEP promptly refers a copy of the energy facil- ity permit application to DOE, Division of Energy Planning and Conserva- tion for its review. The Division shall submit an Energy Report on the application to DEP within 90 days of DOE receipt of the complete applica- tion. The DOE Energy Report shall be transmitted to DEP at least thirty (30) days prior to the v application statutory or regulatory deadline for decisions by DEP on CAFRA, Wetlands, or waterfront development permits (see the 90 Day Construction Permits Law, C. 232, L. 1975, N.J.A.C. 7:1C-1.8) in order to insure both timely consideration by DEP of DOE's views as well as expeditious decision-making on energy facility permit applications. The time period may be extended by mutual consent of both agencies and the applicant as deemed appropriate. Consistent with the provisions of the 90 Day , Construct ion Permits Law C. 232, L. 19p, no decision will be made on energy facility permit applications until the DOE Energy Report or a memorandum from the DOE Commissioner that such a report will not be issued, is received by DEP. 3. For CAFRA permit applications, DEP shall request additional informa- tion from applicants, as reasonably requested in a timely manner by DOE, prior to declaring an application complete for filing (N.J.A.C. 7:7D-2.3(e)l. ) , at the required public hearing (N.J.A.C. 7:7D-2.3 (e)5.iv.), or within 15 days after the public hearing (N.J.A.C. 7:7D-2.3 (e)6.i.), prior to declaring the application complete for review (N.J.A.C 7 : 7D-2. 3(e)6 . iii . ) , to insure that DOE has adequate information to prepare its Energy Report. At its discretion, DOE may submit a Prelim- inary Energy Report to DEP at least 15 days prior to the date of a scheduled public hearing on a CAFRA permit application, in order to assist DEP in preparing its Preliminary Analysis of the application (N.J.A.C. 7:7D-2.3(e)4.). -282- 4. For Wetlands and waterfront development permit applications, DEP shall request additional information from applicants, as reasonably requested in a timely manner by DOE, before declaring an application complete (N.J.A.C. 7: 1C-1. 7(a)2. ) , to insure that DOE has adequate information to prepare its Energy Report. 5. For proposed coastal energy facilities that require a CAFRA permit and either or both of a Wetlands and waterfront development permit, DEP shall coordinate the review process, including review of the adequacy of submitted information, public hearings, and decision documents, uni^r the auspices of the review process for the CAFRA permit application, including its information requirements. Specifically, a Wetlands or waterfront development permit application shall not be declared complete, triggering the 90 day permit decision period under the 90 Day Construc- tion Permits Law (C. 232, L. 1975), until the CAFRA permit application is declared complete for review (N.J.Ar'f€=s 7: 7D-2% 3(e)6. iii . ) . 6. DEP issues decision on the energy facility permit application. If DOE has submitted an Energy Report in a timely manner, the DEP decision document shall refer to the Energy Report and indicate DEP's reasons for differences, if any, between the DEP decision and the DOE Energy Report . F. Appeals of DEP Coastal Energy Facility Permit Application Decisions DEP's decisions on CAFRA, Wetlands, and waterfront development permit applica- tions may be appealed administratively by an applicant or an interested third party. DOE shall refer a DEP decision that differs with DOE's Energy Report to the Energy Facility Review Board for a decision binding upon DEP. Since multiple possible avenues of appeal exist on DEP coastal energy facility permit applica- tions, DEP and DOE agree that appeals shall be heard according to the following procedure, to be incorporated by appropriate regulations of DEP: the Coastal Area Review Board, the Natural Resource Council and the Energy Facility Review Board. 1. DOE may convene the Energy Facility Review Board only if its Energy Report submitted to DEP differs with the DEP decision. 2. If an applicant and/or an interested third party appeals a CAFRA permit decision to the Coastal Area Review Board, or appeals a CAFRA or Wetlands decision by DEP's Division of Marine Services to the Commissioner for a plenary (quasi-judicial) hearing, or appeals a waterfront development permit decision by DEP's Division of Marine Services to the Natural Resource Council (N.J.A.C. 7: 1C-1 . 9(b)) , DOE shall be a party of interest at the appeal. If the final decision on appeal of either the Coastal Area Review Board, Commissioner, or Natural Resource Council differs with the DOE Energy Report submitted to DEP before the initial administrative decision, then DOE shall convene the Energy Facility Review Board. 3. The Energy Facility Review Board may affirm, reverse, or modify the initial DEP administrative decision or the decision on appeal. The DOE and DEP members of the Board agree that DOE shall, by September 28, 1978, promulgate regulations to establish the operating procedures of the Board, including, but not limited to a provision binding the Energy Facility Review Board to limit its review to the DEP decision and the -283- Energy Report, prepared pursuant to Section G of this Memorandum of Understanding, and to follow the New Jersey Administrative Procedures Act. 4. Appellant parties may seek judicial relief as appropriate. G. Basis of Energy Report 1. DOE and DEP agree to accept the New Jersey Coastal Manag eme nt Program - Bay and Ocean Shore Segment (and subsequent segment ) , as approved by the Governor, and particularly its Coastal Resource and Development Policies, and the State Energy Master Plan, as the basis for the formulation of the DOE Energy Report with respect to the siting of energy facilities in the coastal zone. 2. DOE and DEP agree that the DOE Energy Report shall include an evaluation of the need for the proposed energy facility, considering local, state, regional, and national interests, as one of many factors to be considered in preparation of the Energy Report and decision, respectively. H. Coastal Energy Impact Program 1. DOE and DEP agree to work cooperatively in DOE ' s administration of the federal Coastal Energy Impact Program in New Jersey. 2. DEP will participate fully in the New Jersey CEIP Intrastate Allocation Committee's deliberations, as the designated lead state agency for coastal zone management. 3. One copy of all CEIP applications submitted to DOE shall be referred by DOE to DEP for an initial review of the application's compati- bility or consistency, as appropriate, with the State's developing or approved coastal management programs (15 CFR 932.26(a)(3), Federal Register , Vol. 43, No. 37 - February 23, 1978, p. 7554). 4. One copy of all final work products and reports prepared with financial assistance under the Coastal Energy Impact Program shall be transmitted to DEP, as a standard condition of CEIP grants passed through to state agencies and units of local governments by DOE. I . National Interests in Energy Facility Siting DEP and DOE agree to consider the national interests in New Jersey's coastal zone, as defined in the New Jersey Coastal Management Program - Bay and Ocean Shore Segment , as approved by the Governor, in the DEP permit application processes and the DOE Energy Report preparation process and the DOE State Energy Master Plan . DEP agrees to interpret the opportunity under CAFRA To consider the "public health, safety and welfare" (N.J.S.A. 13:19-4) as sufficient authority to con- sider these national interests. DOE agrees to interpret its mandate to "... contribute to the proper siting of energy facilities necessary to serve the public interest ..." (N.J.S.A. 25:27F-2) as sufficient authority to consider the national interests in the siting of coastal energy facilities. -284- J. Federal Consistency DEP and DOE agree that both agencies shall participate in the State's decision to issue a determination of consistency under Section 307 of the Federal Coastal Zone Management Act for coastal energy facilities. As required by federal regula- tions (15 CFR 930.18), DEP shall receive, and forward promptly to DOE, all mater- ials necessary for consistency determinations on coastal energy facilities. In the event of a disagreement between DEP and DOE, the Energy Facility Review Board shall be convened and shall make a recommendation to the Governor, who shall make the final determination within the applicable time limit. As required by federal regulations (15 CFR 930.18), DEP will then transmit the final federal consistency determination to the appropriate federal agency. K. Effective Date This Memorandum, of Understanding shall take effect on September 28, 1978. DOE and DEP agree to continue discussions and agree to agree^-pn a revision of this Memorandum of Understanding to extend its scop? tcy other DEP permits. ft ii I S o^ Jacobson ommissioner/ e'partment of Energy AUG 2 2 1978 Date WJfW %k (r%^J "Daniel IT 7~J5 'Hern Commissioner Department of Environmental •otect ion AUG 2 2 1973 Date -285- APPENDIX H: LEGAL AUTHORITIES Introduction The New Jersey Coastal M anagement Program - Bay and Ocean Shore Segment relies upon certain New Jersey State laws and adopted rules for its legal authority and the enforceability of its Coastal Resource and Development Policies. This Appendix briefly describes these key legal authorities and gives the appropriate citation reference to either the New Jersey Statutes Annotated (N.J.S.A.) or the New Jersey Administrative Code (N.J.A.C.). In addition, this Appendix concludes by reprinting three laws in their entirety: the Coastal Area Facility Review Act, the Wetlands Act; and the Department of Energy Act. The CAFRA Procedural Rules and Regulations and regulations governing the wetlands and riparian permit processes are also published in the New Jersey Administrative Code and are available upon request from DEP . Coastal Area Facility Review Act Law N.J.S.A. 13:19-1 et_ seq. enacted June 20, 1973; effective September 19, 1973 (reprinted in this Appendix). Rules N.J.A.C. 7:7D-1.0 et seq . - Coastal Area Review Board; effective November 18, 1975. These rules establish the procedures of the Coastal Area Review Board, a body composed of three cabinet members and created by N.J.S.A. 13:19-13, and which may hear appeals from decisions on CAFRA permit applications by the Director of the Division of Marine Services. N.J.A.C. 7-.7D-2.0 et seq . - CAFRA Procedural Rules and Regulations; effective April 5, 1977. These rules establish the permit application and exemp- tion request procedures of DEP under the Coastal Area Facility Review Act. Administrative Order No. 32, November 3, 1975, by DEP Commissioner David J. Bardin; effective November 10, 1975. This Administrative Order delegated decision-making authority on CAFRA permit applications from the Commissioner to the Director, Division of Marine Services. No. 35, December 4, 1975, by DEP Commissioner David J. Bardin, effective December 8, 1975. This Administrative Order established the Office of Coastal Zone Management in DEP's Division of Marine Services. Under the Administrative Order, the Chief of the Office of Coastal Zone Management reports directly to the DEP Commissioner with respect to planning under N.J.S.A. 13:19-16 and under the federal Coastal Zone Management Act, but reports to the Director of the Division of Marine Services with respect to the CAFRA permit program. -286- Wetlands Act Law N.J.S.A. 13:9A-1 et seq . ; effective November 5, 1970 (reprinted in this Appendix) Rules N.J.A.C. 7:7A-1.1 et seq .; effective April 13, 1972. The New Jersey Wetlands Order Basis and Background, adopted in 1972, defined the rationale for the regulation of coastal wetlands. Independent contractors for DEP prepared maps of wetlands at a scale of 1:2,400 (one inch = 200 feet). DEP then adopted the Wetlands Order, including the maps delineating wetlands areas, on a county-by-count^_ rule-making process, with notice to affected property owners, from 1972-1977 (N.J.A.C. 7:7A-1.2). The order defines regulated activities, and prohibits certain activities on wet- lands, while the Procedural Regulations (N.J.A.C. 7:7A-1.3 et seq . ) establish permit application procedures and project review criteria, and list the wetlands maps. Administrative Order No. 12, December 8, 1977, by DEP Commissioner Rocco D. Ricci; effective December 8, 1977. This Administrative Order delegated decision-making authority on Wetlands permit applications from the Commissioner to the Director, Division of Marine Services and specified that appeals of the Director's decision shall be submitted to the Commissioner. Riparian Statutes Law N.J.S.A. 12:3-1 through 12:3-71; enacted at various dates beginning 1869. These laws define the procedures and standards for leases, grants, and conveyances of riparian lands. N.J.S.A. 12:5-1 through 12:5-11; enacted at various dates . beginning 1914. These laws define the procedures and standards for the management of waterfront and harbor facilities, including waterfront development permits . N.J.S.A. 13:1B-10, 11, 12; enacted at various dates beginning 1948. These laws define the powers, functions, and duties of the Natural Resource Council, which decides riparian lands management real estate matters and reviews some waterfront development permit applications. N.J.S.A. 13:1B-13; enacted 1948. This law defines the procedure for approval of riparian leases and grants. N.J.S.A. 13.-1B-13.1 through 13:1B-13.51; enacted 1968. This law, part of the statute creating the Hackensack Meadowlands Development Commission, mandates tidelands delineation studies and the surveys in the Meadowlands and defines procedures for conveyances of State-owned riparian lands in the Meadowlands. •287- 90 Day Construction Permits Law Law C.232, L. 1975 (supplements N.J.S.A. 13:1D-1 et seq ., amends N.J.S.A. 12:5-2, 12:5-3, 58:1-26 and 58:1-27, and repeals N.J.S.A. 12:5-4); enacted October 23, 1975; effective December 22, 1975. The law provides for the approval, conditional approval, or disapproval of applications under five DEP-administered construction permit programs within 90 days of comple- tion of an application, otherwise the application is deemed approved. Rules N.J.A.C. 7:1C-1.0 et seq .; effective December 22, 1975; revised October 10, 1977. These "rules implement the 90 Day Construction Permits Law, and govern the riparian permit process . .-.---^ Shore Protection Law N.J.S.A. 12:6A-1 et seq.; enacted at various dates beginning 1940. The law authorizes DEP to carry out structural and non-structural shore protec- tion programs and undertake dredging of waterways and streams. Department of Energy Law N.J.S.A. 52:27-1 et_ seq. ; enacted and effective July 11, 1977. This law created a new cabinet-level executive department, with co-extensive jurisdiction with other State agencies, including DEP, on energy facility siting. It should be noted that pending State legislation (s-1179) would amend the Department of Energy Act and increase and clarify the authority of the Commissioner of Energy. N.J.S.A. 40:55D-19; effective August 1, 1976. This section of the municipal Land Use Law empowers the Board of Public Utilities to supercede any local action taken with respect to a public utility if the Board finds the service "necessary for the service, convenience, or welfare of the public". Reprinted Laws The Coastal Area Facility Review Act, the Wetlands Act, and the Department of Energy Act are reprinted in full on the following pages. -288- CHAPTRK 1*>. LAWS OF UT73 CHAPTER 185 A An Act to provide for the review of certain facilitiee in the coastal area and making an appropriation therefor. Bb it bhaotiid by the Senate and General Assembly of the State of New Jersey: C ISi 19-1 Short rid*. 1. This act shall be known and may- be cited as the "Coastal Area Facility Review Act" C 13ll9-3 Dod«r»lH»« of p*H«r. 2: The Legislature finds and declares that New Jersey's bays, harbors, sounds, wetlands, inlets, the tidal portions of fresh, saline or partially saline streams and tributaries and their 'adjoining upland fastland drainage area nets, channels, estuaries, barrier beaches, near shore waters and intertidal areas together constitute an exceptional, unique, irreplaceable and delicately balanced phys- ical, chemical and biologically acting and interacting natural en- vironmental resource called the coastal area, that certain portions of the coastal nrea are now suffering serious adverse environmental effects resulting from existing facility activity impacts that would preclude or tetid to preclude those multiple uses which support diversity and are in the beat long-term, social, economic, aesthetic and recreational interests of all people of the State; and that, therefore, it is in the interest of the people of the State that all of the coastal area should be dedicated to those kinds of land uses which promote the pnblio health, safety and welfare, protect public and private property, and are reasonably consistent and compatible with the natural laws governing the physical, chemical and bio- logical environment of the coastal area. It is further declared that the ••m*\n\ area and tb» Stain will suffer continuing and over ru-ce I e rating »eriout adverse economic, social and aesthetic effects unless the Stale assists, in vronitt • with the provisions of this act. in the MNMMal of impart i, stemming from the future location and kinds of facilities within the coastal area, on th<- d«di<:it«-lv bulMcwd IIUJIWIIMPl of that area. The Legislature further recognizes the legitimate economic aspirations of the inhabitants of the coastal area and with** to encourage the development of compatible land M in order to improve the overall economic position of the inhabitants of th»t ar»a within the framework of a comprehensive environmental design strategy which preserves the most ecologically sensitive and fragile area from inappropriate development and provide* ade- quate environmental safeguards for the construction of any facil- ities in the coastal area. C I J. IV- 1 DtAniliou. 3. For the purposes of this act, unless the context clearly requires a different meaning, the following words shall have the following meanings: a. "Commissioner" mean* the State Commissioner of Environ- mental Protection. b. "Department" means the State Department of Environmental Protection. • -.-C. "Facility" includes any of the facilities designed or utilized for the following purposes: (1) Electric power generation — Oil, gas, or coal fired or any combination thereof. Nuclear facilities. (2) Food nnd fo<~l byproducts — Beer, whiskey and wine production. Fish processing, including the production of fish meal and fish oil. Slaughtering, blanching, cooking, curing, and pickling of meals and poultry. Trimming, culling, juicing, and blanching of fruits and vege- tables. Animal matter rendering plants. Operations directly related to the production of leather or furs such as, but not limited to, unhairing, soaking, deliming, baiting, and tanning. Curing and pickling of fruits and vegetables. CHAPTER 185, LAWS OF 1973 Pasteurization, homogenization, condensation, and evaporation of milk and cream to produce cheeses, soar milk, and related products. Coffee bean and cocoa bean roasting. (3) Incineration wastes — Municipal wastes (larger than or equal to 50 tons per day). Automobile body (20 automobiles per hour or larger). (4) Paper production — Pulp mills. Paper mills. Paperboard mills. Building paper mills. Building board mills. (5) Public facilities and housing- Sanitary landfills. Waste treatment plants (sanitary sewage). Road, airport, or highway construction. New housing developments of 25 or more dwellmg units or equivalent . „. Expansion of existing developments by the addition of 25 or more dwelling units or equivalent (6) Agri-chemical production — Pesticides manufacture and formulation operations or either thereof. Superphosphate animal feed supplement manuf acrnre. Production of normal superphosphate. Production of triple superphosphate. Production of diammonium phosphate. (7) Inorganio acids and salts manufacture — Hydrofluoric acid and common salts. Hydrochloric acid and common salts. Nitric acid and common salts. Sulf urio acid and common salts. Phoephorio acid and common salts. Chromic, acid, including chromate and dienromat* salts. (8) Mineral products — Asphalt batching and roofing operations including the prepara- tion of bituminous concrete and concrete. Cement production, including Portland, natural, masonry, and pozzotan cements. Coal cleaning. CUy, day mining, and fly-ash sintering. CHAPTER 185, LAWS OF 1973 Calcium carbide production. Stone, rock, gravel, and sand quarrying and processing. Frit and glass production. Fiberglass production. Slag, rock and glass wool production (mineral wool). Lime production, including quarrying. Gypsum production, including quarrying. Perlite manufacturing, including quarrying. Asbestos fiber production. (9) Chemical processes- Ammonia manufactare. Chlorine manufacture. Caustic soda production. Carbon black and charcoal production, including channel, furnace, and thermal processes. Varnish, paint lacquer, enamel, organic solvent and inorganic or organic pigment manufacturing or formulating. Synthetic resins or plastics manufacture including, but not limited to, alkyd resins, polyethylene, flnorocarbone, polypropylene, and polyvinylchloride. Sodium carbonate manufacture. Synthetic fibers production including, but not limited to, semi- synthetics such as viscose, rayon, and acetate, and true synthetic* such as, but not limited to, nylon, orlon, and dacron, and the dyeing of these semi and true synthetics. Synthetic, rubber manufacture, including but not limited to, butadiene and styrene copolymers, and the reclamation of synthetic or natural rubbers. The production of high and low explosives such as, but not limited to, TNT and nitrocellulose. Soap and detergent manufacturing, including but not limited to, those synthetic detergents prepared from fatty alcohols or linear alkylate. Elemental sulfur recovery plants not on the premises where petroleum refining occara. Used motor or other oil or related petroleum product reclamation operations. Petroloum refining, including but not limited to, distillation, crack- ing, reforming, treating, blending, polymerization, isomerization, alkylation, and elemental sulfur recovery operations. Organic dye and dye intermediate manufacturing. Hydrogen cyanide or cyanide salts manufacture or us*. -?R9- CHAPTER 185, LAWS OF 1971 Olue manufacturing operations. Manufacturing, fabricating, or preceding medicinal *nA pw- maceutical prodccU including lha grading, grind.og, or milling 01 botanicals. (10) Storage— „ Bulk storage, handling, and transfer facilities for crude Oil, ?" and finished petroleum product* not on the premises where petro- leum refining occurs. » Bulk storage, handling, transfer and manufacturing facilities 01 pu manufactured from inorganic and organic materials including coal gas, coke oven gas, water gas, prodacer, and od gases. (11) Metallurgical processes— Production of aluminum oxids and aluminum metal and all com- mon alloys, such as those with copper, magnesium, and silicon. Production of titanium metal, salts, and oxide*. Metallurgical coke, petroleum coke, and byproduct coke manu- f acta ring. . Copper, lead, rino, and magnesium smelting and processing. Ferroalloys manufacture such as, but not limited to, those com- bined with silicon, calcium, manganese and chrome. Integrated steel and iron mill operations including, but not limited to, open hearth, basic oxygen, electric furnace, sinter plant, and rolling, drawing, and extruding operations. Melting, smelting, refining, and alloying of scrap or other suo- stances to produce brass and bronie ingots. Oray iron foundry operations. Steel foundry operations. .!__:„,, Beryllium metal or alloy production, including rolling, drawing and extruding operations. Operations involving silver, arsenic, cadmium, copper, mercury, lead, nickel, chromium, and lino including, but not limited to, pro- duction, recovery from scrap or salvage, alloy production, salt formation, electroplating, anodiring, and meUllo-organicsi com- pound products preparation. Stripping of oxides from and the cleaning of metals prior to plating, anodiring, or painting. (12) Miscellaneous— Operations involving the scouring, desizing, cleaning, bleaching, and dyeing of wooL Wood preserving processes which nse coal or petroleum based products such as, but not limited to, coal tars and/or creosotes. CHAPTER 183, LAWS OF 1973 Manufacture, use, or distillation of phenols, eresols, or coal tar materials. Manufacture of lead acid storage baitenes and/or storage batteries produced from other heavy metals, such as nickel or cad ro' mm Installation of above or underground pipelines designed to transport petroleum, natural gas, and sanitary sewage. Operations involving the dyeing, bleaching, coating, impregnat- ing, or glazing of paper. Dyeing, bleaching, and printing of textiles other than wool. Chemical finishing for water repelling, fire resistance, and mildew proofing, including preshrirJring, coating and impregnating. Sawmill and planing mill operations- Marine terminal and cargo handling facilities. d. "Person" means and shall include corporations, companies, associations, societies, firms, partnerships and joint stock companies as well as individuals and governmental agencies. e. "Governmental agencies " means the Government of the United States, the State of New Jersey, or any other states, their political subdivisions, agencies, or instrumentalities thereof, and interstate agencies. 4. The "coastal area" shall consist of all that certain area lying between the line as hereinafter described and the line formed by the -"^State's seaward- (Raritan Bay and Atlantic ocean) territorial jurisdiction on the east thereof, the State's bayward (Delaware Bay) territorial jurisdiction on the south and southwest thereor, and the State's rivenvard (Delaware River) territorial jurisdiction on the west thereto. Beginning at the confluence of Cbeesequaka Creek with the Raritnn Bay; thence southwesterly along the center line of Cheesequake Creek to its intersection with the Garden State Parkway; thence southeasterly along the Garden State Parkway to Exit 117 at State Highway 36; thence northeasterly along State Highway 36 to the intersection of Middle Road (County 516) • thence easterly along Middle Road to the intersection of Palmer Avenue (County 7); thence northeasterly on Mam Street to the intersection of State Highway 36; thence easterly on State Highwav 36 to the intersection of Navesink Avenue; thence south- erly on Navesink Avenue to the intersection of Monmouth Avenue at Navesink; thence westerly on Monmouth Avenue to its intersec- tion with Browns Dock Road; thence southerly on Browns Dock CHAPTER 185, LAWS OF 1973 Road to its intersection with Cooper Road; thence southwesterly on Cooper Road to the intersection of State Highway 35; then** southerly on State Highway 35 to its intersection with State High- way 71; thence soulheasterly on State Highway 71 to its crossing of the Central Railroad of New Jersey tracks; thence southerly along the Central Railroad of New Jersey tracks to its intersection of 6th Avenue (County 2) ; thence westerly on 6th Avenue (County 2) to the intersection of State Highway 33; thence westerly along State Highway 33 to the crossing of State Highway 18; thence southerly on State Highway 18 to its intersection of Marconi Road; thence southeasterly on Marconi Road to Adrienne Road, continu- ing south on Adrienne Rond to Belmar Boulevard; thence easterly on Belmar Boulevard and 16th Avenue to the intersection of State Highway 71; thence southerly on State Highway 71 to the intersec- tion of State Highway 35; thence northwesterly along State High- way 35 to State Highway 34 at the Brielle Circle; thence north- westerly along State Highway 34 to the Garden State Parkrvay at Exit 96; thence southwesterly along the Garden State Partway to the intersection of the Monmouth, Ocean County boundary; thence westerly along said boundary to the intersection of the Central Railroad of New Jersey tracks; thence southwesterly along the tracks of the Central Railroad of New Jersey to its junc- tion with the tracks of the Pennsylvania Railroad near Whiting; thence easterly along the tracks of the Pennsylvania Railroad to its intersection with the Garden State Parkway near South Toms River; thence southerly along the Garden State Parkway to ita intersection with County Road 539 at Garden State Parkway exit 58; thence northerly along County Road 539 to its intersection with Martha Stafford Forge Road; thence westerly along Martha- Stafford Forge Road to its intersection with Spur 563; thenoe northerly along Spnr 563 to ita intersection with County Road 563; thence southerly along County Road 563 to its intersection with Coonty Road 542 at Green Bank; thence northwesterly along County Road 542 to its intersection with Weekstown-Pleasant Mills Road; thence southeasterly along Weekstown-Pleasant Mills Road to its intersection with County Road 563 at Weekstown; thence south- easterly along County Road 563 to its intersection with Clarks Landing Road lending to Port Republic; thence easterly along Clarks Landing Road to its intersection with the Garden State Parkway; thence southerly along the Garden State Parkway to ita intersection with Alt. 559, and thence northwesterly along Alt. 559 to its intersection nith County Road 559 at Oravelly Run; thence CHAPTER 185, LAWS OF 1973 northwesterly along County Road 559 to its intersection with U. S. 40 and S. R. '50 at Mays Landing; thence westerly along combined U. S. 40 and S. R. 50 to its intersection with S. R. 50; thence southerly on S. R. 50 to its intersection with Buck Hill Road near Buck Hill; thence westerly along Bnck Hill (River Road) Road to ita intersection with S. R. 49; thence south- easterly along S. R. 49 to its intersection with S. R. 50; thence southeasterly along S. R. 50 to its intersection with County Road 585; thence southwesterly along County Road 585 to its intersection with S. R. 47 at Dennisvitle; thence northwesterly along S. R. 47 to its intersection with State Road 4!) at Millville; thence through Millville along State Road 49 to its intersection with County Road 555; thenoe southerly along Connty Road 555 to its intersection with County Road 27; thence southerly along County Road 27 to its intersection with County Rood 70; thence southerly on County Road 70 to the Center of Mauricetowm; thence through Mauricetown westerly on County Road 548 to its intersection with the tracks of the Central Railroad of New Jersey; thence northwesterly on the tracks of the Central Rail- road of New Jersey to ita intersection with County Road 98; thence easterly along County Road 98 to the intersection with County Road 38; thence northerly along County Road 38 to its intersection with S. R. 49 east of Bridgeton; thence westerly along S. R. 49 through Bridgeton to its intersection with County Road 3 (Roadstown Road) ; thence westerly along Coonty Road 5 (Roads- town Road) to Roadstown; thence northwesterly along the Roadstown Road to County Road 47; thence southwesterly along County Road 47 to its intersection with County Road 19; thence along Connty Road 19 northwesterly to Gum Tree Corner; thence northwesterly along Connty Road 19 from Gum Tree Corner across Stowe Creek to its intersection with Salem County Road 59 (Hancock's Bridge Road) ; thence northwesterly along Connty Road 59 to its intersection with County Road 51 at Coopers Branch; thence northeasterly along County Road 51 to its-intersection with S. R. 49 at Qninton; thence northwesterly nlong S. R. 49 to its intersection with County Road 50; thence southwesterly along County Road 50 to its intersection with County Road 58; thence southerly on County Road . r >8 to its inter- section with County Road 24; thence westerly along County Road 24 to its intersection with County Road 65; thence northerly along County Road 65 (Walnut Street) to its intersection with County Road 4; thence westerly along County Road 4 and northerly along -290- CHAPTER 185, LAWS OF 1073 CHAPTER IV., LAWS OF l'/73 County Road 4 and thence easterly along County Road * to its intersection with State Road 49; thence northerly along State Road 49 (Front Street) to ita interaeotion with County Road 57: thence easterly along County Road 57 to iU intersection with Stale [toad 45; thence northerly along State Road 45 to it« intersection with County Road 540 at Pointers; thence northerly and northwesterly along County Road 540 (Deepwater-Slapes Corner Road) to ita intersectiou with the New Jersey Turnpike; thence westerly along the New Jersey Turnpike to its intersection with County Road 33; thence southerly along County Road 33 to ita intersection with State Road 49; thence southeasterly along S. R. 49 to its inter- section with County Road 26; thence northwesterly along County Road 26 to the Killcohook National Wildlife Refuge; thence north- westerly along this northeasterly boundary to the limits of the State's territorial jurisdiction on the Delaware River; provided, however, that the coastal area shall not inolade all that certain area in Cape May County lying within a line beginning at the inter- section of S. R. 47 and County Road 54; thence westerly on County Road 54 ; to the intersection of County Road 3 ; thence southeasterly on County Road 3 through the intersection of County Road 3 with County Road 13 to the intersection with County Road 47; thence easterly and northerly a]png County Road 47 to its intersection with State Road 9; thence northerly along State Road 9 to its intersection with State Road 47 ; thence westerly along State Road 47 to its intersection with County Road 54. C I3il9-S Permit In tmncl fadlirr. 5. No person shall construct or canse to be constructed a facility in the coastal area until be has applied for and received a permit issued by the commissioner; however, the provisions of this act shall not apply to facilities for which on-site coast motion, including site preparation, was in process on or prior to the effec- tive data of this act C 111 19* Application foe permit. 6. Any person proposing to construct or canse to be constructed a facility in the coastal area shall file an application for a permit with the commissioner, in such form and with such information as the commissioner may prescribe. The application shall include an environmental impact statement as described in this act C. 13 1 19-7 Content* of environmental trapart atatenaent. 7. The environmental impact statement shall provide the in- formation needed to evaluate the effects of a proposed project upon the environment of the coastal area. The statement 'hall include: a. An inventory of existing environmental conditions at th* project site and in the -.ur rounding region which »haJl dencnoe «-lt quality, water quality, water supply, hydrology, geology, aoili, topography, vegetation, wildlife, aquatic organism*, ecology, demography, land u*'\ 3e«th"ti'e. hiilory, and arrheolosry; for housing, the inventory xiiall describe water quality, water eupply, hydrology, geology, soils and topography; b. A project description which shall specify what is to be done and how it is to be done, doring construction and operation ; c. A listing of all licenses, permits or other approvals as required by law and the status i f each; d. An assessment of tbe probable impact of the project upon all topics described in a. ; e. A listing of adverse environmental impacts which cannot be avoided; f. Steps to be taken to minimize adverse environmental impacts doring construction and operation, both at tbe project site and in tbe surrounding region ; g. Alternatives to all or any part of the project with reasons for their acceptability or nonacceptability ; b_ A reference list of pertinent published information relating to the project, the project site, and the s-urroonding region. C llilM Declaration of rompU,, — _ ef appUcetion. 8. a. Within 30 d.iys following receipt of an application, th» -eommissioner shall .notify the applicant in writing regarding its completeness. The commissioner may declare ths application to be complete for filing or may notify the applicant of speciBo defi- ciencies. The commissioner, within 15 days following the receipt of additional information to correct deficiencies, shall notify the applicant of the completeness of the amended application. The application shall not be considered to be filed until it has been declared complete by the commissioner. b. The commissioner, within 15 days of declaring the ap- plication complete for filing, shall set a date for the hearing. Tbe date for the hearing shall be set not later than 60 days after the application is declared complete for filing. i C 13 ■ 19-9 Heerine. 9. a. The commissioner, or a member of the department desig- nated by him, shall hold a hearing to atTord interested parties stand- ing and the opportunity to present, orally or in writing, both their CHAPTER 185, LAWS OF 1973 position concerning the application and any data they may have developed in reference to the environmental effects of the proposed facility. b. The commissioner, within 15 days after the hearing, may re- quire an applicant to submit any additional information necessary for the complete review of the application. C lSi 19-10 Review of application*! reqnlreel findinan, 10. The commissioner shall review filed applications, including the environmental impact statement and all information presented at public hearings. He shall issue a permit only if he finds that the proposed facility: a. Conforms with all applicable air, water and radiation emission and effluent standards and all applicable water quality criteria and air quality standards. b. Prevents air emissions and water effluents in excess of the existing dilation, assimilative, and recovery capacities of the air and water environments at the site and within the surrounding region. c Provides for tbe handling and disposal of litter, trash, and refuse in such a manner as to minimize adverse environmental effects and the threat to the public health, safety, and welfare. d. Would resnlt in minimal feasible impairment of the regenera- tive capacity of water aquifers or other ground or surface water supplies. e. Would canse minimal feasible interference with tbe natural functioning of plant, animal, fish, and human life processes at the site and within the surrounding region. f. Is located or constructed so as to neither endanger human life or property nor otherwise impair the public health, safety, and welfare. g. Would result in minimal practicable degradation of unique or irreplaceable land types, historical or archeological areas, and exist- ing scenic and aesthetic attributes at the site and within the snrroanding region. C 13il9-U Croonde (or denial of permit appDcatloat conditional penal U approval of aneleer eleerrleilv a ; mo ating faeiHrf. 11. Notwithstanding the applicant's compliance with the criteria listed in section 10 of this act, if the commissioner finds that the proposed facility would violate or tend to violate the purpose and intent of this act as specified in section 2, or if the commis- sioner finds that the proposed facility would materially contribute CHAPTER 185, LAWS OF 1973 to an already serious and unacceptable level of environmental degradation or resource exhaustion, he may deny the permit application, or he may issue a permit subject to such conditions as he finds reasonably necessary to promote tbe public health, safety and welfare, to protect public and private property, wild- life and marine fisheries, and to preserve, protect and enhance the natural environment. In addition, the construction and opera- tion of a nnclear electricity generating facdity shall not be ap- proved by the commissioner nnless he shall find that tbe proposed method for disposal of radioactive waste material to be produced or generated by sueli facility will be safe, conforms to standards established by the A tomic Energy Commission and will effectively remove danger to life and the environment from such wasts material. C 13i 19-12 NotiGratleR to applicant. 12. The commissioner shall notify the applicant within 60 days after the hearing as to the granting or denial of a permit The reasons for granting or denying the permit shall be stated. In the event the commissioner requires additional information as pro- vided for in Bection 9, he shall notify the applicant of his decision within 90 days following tbe receipt of the information. C 111 19-13 Coealal Arm Review Beard | creation, nenbenaif, rode*, p ea c e a. 13. There is hereby created the Coastal Area Review Board, in but not of the Department of Environmental Protection, wbich shall consist of three voting members who shall be the Commissioner of Environmental Protection or his designated representative, the Commissioner of Labor and Industry or his designated representa- tive and tbe Commissioner of Community Affairs or his designated representative. No vote on a permit request shall be taken unl?ss all voting members n re present Tbe Coastal Area Review Board shell have the power to hear appeals from decisions of the commissioner pursuant to section 12. The board may affirm or reverse tbe decision of the commissioner with respect to applicability of any provision of this act to a pro- posed use: it may modify any permit granted by the commissioner, grant a permit deni"d by him, deny a permit granted by him, or confirm bis grant of a permit The board shall review filed applica- tions, inclndins; the environmental impact statement and all in- formation presented at public hearings and any other information the commissioner nvikes available to (be board prior to tbe affirma- tion or reversal of n decision of tbe commissioner. -291- CHAPTER 185, LAWS OF 1973 C 13il9-U C«-«i».*«« 1. (— W lmm-1 |nll 14. In the event of rental, le&ae, sale or other convey- ance*) by an applicant to whom a permit is issued, such permit, with any condition*, shall be continued in force and shall apply to the new tenant, le?"**, owner, or aasigne* so long: aa there is no change in the natnre of the facility set forth in the origins! application. C 13. I*- IS Effacl a* aaalal ,1 aapUeatioa. 15. The denial of an application shall in no way adversely affect the future submittal of a new application. C 13aa»ealal nuiafOHill an-ataaj—i c»Wr ™ an»«-aui ulil are*. 16. The commissioner shall, within 2 years of the taking; effect of this act, prepare an environmental inventory of the environ- mental reeourcea of the coastal area and of the existing facilities and land use development* within the coastal area and an estimate of the .capability of the various area within the coastal area to absorb and react to man-made stresses. The commissioner shall, within 3 yoars of the taking effect of this act, develop from this environmental inventory alternate long-term environmental man- agement strategies which take into account the paramount need for preserving environmental values and the legitimate need for economio and residential growth within the coastal area. The com- missioner shall, within 4 years of the taking effect of this act, select from the alternate environmental management strategies an en- vironmental design for the coastal area. The environmental design ■hall be the approved environmental management strategy for the coastal area and shall include a delineation of various areas appro- priate for the development of residential and industrial facilities of various types, depending on the sensitivity and fragility of the adjacent environment to the existence of such facilities. The en- vironmental inventory, the alternate long-term environmental man- agement strategies and the environmental design for the coastal area shall be presented to the Governor and the Legislature within the time frame indicated herein. C 13il»-17 Rale* mmi rofalariaa*. 17. The department is hereby authorized to adopt, amend and repeal rules and regulations to effectuate the purposes of this act C 13: LMI lafaactfea r»Ue/| pemaWa*. 18. If any person violates any of the provisions of this act, rule, regulation or order promulgated or issued pursuant to tho provisions of this act, the department may institute a civil action in CHAPTEB 185, LAWS OF 1973 the Superior Court for injunctive relief to prohibit and prevent such violation or violations and said court may proceed in a summary manner. Any person who violates any of the provisions of this act, rule, regulation or order promulgated or issued pursuant to this act shall be liable to a penalty of not more than $3,000.00 to be collected in a summary proceeding or in any case before a court of competent jurisdiction wherein injunctive relief has been requested. If the violation is of a continuing natnre, each day during which it con- tinues shall constitute an additional, separate and distinct offense. The department is hereby authorized and empowered to compromise and settle any claim for a penalty under this section in such amount in the discretion of the department as may appear appropriate and equitable under the circumstances. C 13 19-19 Applicability of ad. 19. The provisions of this act shall not be regarded as to be in derogation of any powers now existing and shall be regarded as supplemental and in addition to powers conferred by other laws, including municipal zoning authority. The provisions of this act shall not apply to those portions of the coastal areas regulated pursuant to enforceable orders under the Wetlands Act, C. 13 :9A-1 et seq., section 16 however shall apply to the entire area within the boundaries described herein. C 13:19-20 Conjunction of act. 20. This act shall be liberally construed to effectuate the purpose r "Tthd intent thereof; • C 13:19-21 Partial hiTalidltr. 21. If any provision of this act or the application thereof to any person or circumstances is held invalid, the remainder of the act and the application of such provision to persons or circum- stances other than those to which it is held invalid, shall not be affeoted thereby. 22. There is hereby appropriated to the Department of En- vironmental Protection for the purposes of this act the sum of $100,000.00. 23. This act shall take effect 90 days from the date of enactment, except that section 22 shall take effect immediately. Approved June 20, 1973. -292- CHAPTER 27.', LAWS OF 1970 CHAPTER 272, LAWS <»F 1970 CHAPTER 272 Am Act concerning (Ik* protection 'it natural rc-oiiue* in ci>..-;.il wetlands, providing tor the dcsi'.nmti.iii l> the I 'oimMiasioiii ■<■ Knvi roiiiiiciit il Protection of certain co.Mai .vrli;. I. ..Ip •• mi .:, ■ hi'iirilll*, mill requiiiic: p-rmil- flow lliu .■■.•in:':- ioi -r prior in tho dredging, removing, tilling or otherwise ll'tulil;.' or p >llir ug coastal wetlands. Be it ewacted by the Senate unit (klivrul Assembly of the Stale of New Jersey: C |3i9A-1 Legi»lalnre*e findings and declaration »* poller; imenl'ifv ir.u m«i>- ping of tidal wcllandsl filing of up.. 1. a. The Legislature hereby rinds and declare* iniit tu,e of tlie most vital and productive areas of our natural world \- the -o- callcil "estuarine zone.'" that ureir lietwicii tin- *ea anil the Imul; that this urea protects the laud from the force of tho .-ea. moderates our weather, provides a home for water fowl and for -.a of all our fish und shellfish, ami assists in absorbing sewage discharge by the rivers of the laud; and that in order to promote the public safety, health and welfare, and to protect public and private prop- erty, wildlife, murine fisheries and the natural environment, it is necessary to preserve the ecological balance of this area and prevent its further deterioration and destruction by regulating the dredging, tilling, removing or otherwise altering or polluting thereof, all to the extent and in the manner provided herein. b. The Commissioner of Environmental Protection .-kill, ".-'(hill 2 years of the effective date of this act, make an inventory and maps of all tidnl wetlands within the State. The boundaries of mic'ii wet-" lands shall generally define the areas that are at or below high water und shall be shown ou suitable maps, which may he reproductions or aerial photographs. Each such map shall be tiled in the office of the county recording officer of the county or comities in which the wet- lands indicated thereon are located. Each wetland map shall l>ear u certificate of tlie commissioner to the effect that it is made ai.d filed pursuant to this act. To be entitled to filing no wetlands mnp j?ed meet the requirements of R. S. 47:1-6. C 13i9A-2 Authority to regulate alteration of roaelal wetland-*; definillo ■ - 2. The Commissioner may from time to time, for the pprposv of promoting the public safety, heiilth and welfare, and protecting pub- lic and private property, wildlife and marine nile-iie*, adopt, amend, modify or repeal orders rcgtllatimt* ic«.trictiug or prol ibit- ing dredging, lilliuir, retooling or otherwise! alterinv, or polluting, coastal well. n;d-. For llie purposes of this act the term "rountal wetlands" shall mean any bank, marsh, ftwamp, liu-fltbtw, flat or other low ' . t r. ■ I subject to tidal action in the Slate oi New Jgfavy along the Delaware bay and Delaware river. Itaritaii hay. ItarticrJl bay, Sandy Hook buy, Sbewsbury river unhiding N.tti.-iiuk river, Shark river, and the coastal inland waterways extending southerly from Manasquan Inlet to Cape ilay Harbor, or at any inlet, estuary or tributary waterway or any thereof, im lading those areas now or formerly connected to tidal waters whose surface i< at or Mc**J M elevati in of 1 foot above local extreme high v. tiler, and upon which may gow or is capable of growing some, but not necessarily all, of the following: Salt meadow grass (Spartine patens), spike gnu* (Disticblis spicatn), hlnck crass (Juncns gcrnrdi), *nltm:irsh grns* (Spartina alterniHora), saltworts (Salicornia Europaea, and Sali- cornia bigelovii). Sea Lavendar (Limonium carolinianuin), salt- marsh bulrushes (Scirpus robustus and Scirpus pnludosu* var. atlanticus), sand spurrey (Spergnlaria marina), switch era»» (Panicum virgatum), tall cordgrass (Spartina pectinata). bightidc bush (Iva frnlencens var. oraria), cattails (Typba angustifolia, and Typha latilolia), spike rush (Eleocharis ro-tellata), chairmaker's rnsh (Scirpus amcricana), bent grass (AgTostis palustris), and sweet grass (Hierochloe odorata). The term "coastal wetlands" -■shall not includerany-land or real property subject to the jurisdiction- - of the Hackensack Meadowlands Development Commission pur- suant to the provisions of P. L. 1968. chapter 404, sections 1 through 84 (C. :>:17-1 through C. 13:17-60). C 13:' A-.1 Adoption, change or repeal of ordrri benriac aatlca; recaedlng. indexing and filing of ordrri mailing. 3. The commissioner shall, liet'oro adopting, amending, raoli- fying or repealing any such order, bold a public hearing thereon in the county in which the coastal wetlands to l>e affected are located, giving notice thereof to each owner having a recorded interest in such wetlands by mail at least 21 days prior thereto addressed to his address as shown in the municipal tax office records and by publication thereof at least twice in each of the % weeks next preceding the date of such hearing in a newspaper of general circulation in the municipality or municipalities in which such castal wetlands are located. CHAPTER 272, LAWS OF 1970 Upon the adoption of any such order or any order amending, modifying or repealing the same, the commissioner shall cause a copy thereof, together with a plan ,of the lanils affected, including reference to the filed wetlands map or maps on which the same are shown and a list of the owners of record of such lands, to be re- corded in the office of tho county clerk or register of deeds, where it shall be indexed and lih-d as a judgment, and shall mail a copy of such order and plnn to each owner of record of such lands af- fected thereby. C 13i9A-4 "Regulated ertirir." defined; permit! application, nauaU) laapac- lion) effect of work to be considered. 4. a. For purposes of this section "regulated activity" includes but is not limited to draining, dredging, excavation or removal of soil, mad, sand, gravel, aggregate of any kind or depositing or dumping therein any rubbish or similar material or discharging therein liquid wastes, either directly or otherwise, and the erec- tion of structures, drivings of pilings, or placing of obstructions, whether or not changing the tidal ebb and How. "Regulated activ- ity" shall not include continuance of commercial production of salt hay or other agricultural crops or activities conducted under section 7 of this act. b. Xo regulated activity shall be conducted upon any wetland without a permit. e. Auy person proposing to conduct or cause to be conducted u regulated activity upon any wetland shall file nn application for a permit with the commissioner, in snch form nnd with such information as the commissioner may prescribe. Snch appli- cation shall include n detailed description of tiie promised work and a map showing the area of wetland directly affected, with the location of the proposed work thereon, together with the names of the owners of record of adjacent land nnd known claimants of rights in or adjacent to the wetland of whom the applicant has notice. All applications, with any maps and documents relating thereto, sliall be open for inspection at the office of tlie Department of Environmental Protection. M lo be reatriefeeL 7. No action by the commissioner under this act shall prohibit, restrict or impair the exercise or performance of the powers and duties conferred or imposed by law on tho State Department of Environmental Protection, the Natural Resource Council nnd the State Mosquito Control Commission in said Department, tlie State Department of Health, or any mosquito control or other project or activity operatim; under or authorized by the provisions of chap- ter 9 of Title 2C of the Revised Statutes. C !3i9A-S Riparian right* or ebb'gatiaa* na4 affected. 8. Nothing in this act or any permit issued hereunder shall affect the rights of the State in, or the obligations of a riparian owner with respect to. riparian lands. C 13i9A-9 Liabibre in e->eal ml »ieleliae>ei penalty. 9. Any person who violate* any order by tbe commissioner, or violates any of the provision* of this act. slmll be linhli to the State for the cost of restoration of the affi-cted wetland to -?5n« C1IAPTKH 27J, LAWS OF 1070 its condition (iiinr to -urli \ iul.ilinn insofar as tliat i< |MM««il>tei siiwl shall U punislK-il h\ a fine of nol more (li.in Sl.OHO.OO, to bn collected in accordance with the provisions of the Penalty KnfouemerK l»aw (N. .1. S. tAsiB-1 et am.). C ISl«4>M 5W« liltr. III. This art may be cited as "The WetlamN Act of 1970." II This art shall take efTert immediately. Approved November 5, 1970. -294- P. L. 1977, CHAPTER 146, approved July 11, 1077 1977 Senate N"o. 3179 (Official Copy Reprint) As Act concerning the production, distribution, conservation, and consumption of energy, establishing a Depai tinent of Energy as a principal department in the Executive Branch of State Government 'and repealing parts of the statutory law''. 1 Be it enacted by the Senate and General Assembly of the State . 2 of New Jersey: 1 1. This act shall be known and ninv be cited as the "Department 2 of Energy Act." 1 2. The Legislature hereby finds and determines that a secure, 2 stable, and adequate supply of energy at reasonable prices. is vital 3 to the State's economy and to the public health, safety, and welfare ; 4 that this State is threatened by the prospect of both near- and 5 long-term energy shortages; that the existing dispersion of ro- 6 sponsibilities with respect to energy and energy-related matters 7 among various State departments, divisions, agencies, and com- S missions inhibits comprehensive and effective planning for our 9 future energy needs; and that the State government does not now 10 possess either sufficient, information or adequate authority to 11 provide for and insure the wise and efficient production, distribu- 12 tion, use, and conservation of energy. 13 The Legislature further finds and determines that only an agency 14 with comprehensive powers can collect, collate, and analyze the la information necessary to determine the amount of energy that is 1G or may be available; develop mechanisms to insure a fair and 17 equitable distribution of existing supplies; conduct the long-term 15 planning and management needed to eliminate or alleviate the 19 potential adverse effects of a supply of energy insufficient to meet E.VLA.1ATIOK — Mailer enclosed in bold-faced brockets Ilhos] in the above bill I» not enacted and ia intended In be omitted in tbe law. 20 21 22 23 24 25 2f.\ 26 27 23 29 30 31 12 33 34 35 36 1 2 3 4 5 6 7 8 .9.. T0~ 11 12 13 14 15 16 17 18 19 20 21 22 23 24 23 legitimate needs or from practice* of production, distribution, and consumption detrimental to the quality of life or tlie environment; "contribute to the proper tiling of energy facilitif.i Decenary to serve the public interest;' coordinate New Jersey's energy policies and actions with Federal energy policies; and secure for Sew Jer- sey the maximum amount of Federal funding availu'u'e for energy related research, dvelopnvnt. and demon •( ration pro jec t*. The Legislature further find* and determines that shortage-, of energy have the potential at certain times and in certain place-* Jo so seriously affect the public interest that it is necessary for State government to possess emergency powers sufficient to pr e re 1* 1 or minimize health disasters ar.d grave economic disruptions which conld occur during said times. The Legislature, therefore, declares it to be in the best interest of the citizens of this State to establish a principal department in the Executive Branch of State Government to coordinate au- thority*, regulation* and planning by the State in energy related matters. 3. As used in thi3 act: a. "Commissioner" means the Commissioner of the Department of Energy; b. "Department" means the Department of Enersry established by thi3 act; c. "Distributor" means and includes each person, wherever resident or located, who imports into this State faels for use. distribution, storage, or sale in this State after the same shall reach this State; and also each person who produces, refines, manufacture** blend.?, or compounds fuels and sells, uses, stores, or distributes the same within this State. In no case, however, shall a retail dealer be construed to be a distributor; d. "Energy" means all power derived from, or generated by, any natural or man-made agent, including, but not limited to, petroleum products, gases, solar radiation, atomic fission or fusion, mineral formations, thermal gradients, wind, or water. e. "Energy facility" means any plant or operation which produces, converts, distributes or stores energy or converts one form of energy to another: in no case, however, shnll an operation conducted by a person acting only as a retail dealer be construed as an energy facility; f. "Energy information" means any statistic, datum, fact, or item of knowledge and all combinations thereof relating to energy; g. "Energy information system 7 ' means the composite of energy information collected by the office; 25 h. *E"Energvy3* "'Energy* industry" means auy person, com- 27 pauy, corporation, business, institution, establishment or other 2S organization of any nature engaged in the exploration, extraction, 29 transportation, transmission, refining, processing, generation, dis- 30 tribution, sale or storage of euergy; 31 i. "Fuel" means coal, petroleum products, gases aud nuclear 32 fnel, including enriched uranium, U233 aud L'23S, and plutonium, S3 U239; 34 j. "Ga3es" means natural gas, methaue, liquefied natural gas, 35 synthetic natural gas, coal gas and other manufactured gases; 36 k. "Person" means natural persons, partnerships, firms, nsso- 37 ciations, joint stock companies, syndicates and corporations, and 38 any receiver, trustee, conservator or other officer appointed pur- 33 suiuit to law or by any court, State or Federal; "person" also 40 means the State of New Jersey, counties, municipalities, authori- 41 ties, other political subdivisions, and all departments and ageucies 43 within the aforemeutioned governmental entities: 43 L "Petroleum products" means and includes motor gasoline, 44 middle distillate oils, residual fuel oils, aviation fueL propane, 45 butane, natural gasoline, naphtha, gas oils, lubricating oils and any 46 other similar or dissimilar liquid hydrocarbons ; 47 m. "Public building" means any bnildinjr. structure, facility 48 or complex used by the general public, including, but not limited 49 to, theaters, concert halls, auditoriums, museums, schools, libraries, 50 recreation facilities, public transportation terminals and stations, 51 factories, office buildings, business establishments, passenger 52 vehicle service stations, shopping centers, hotels or motels and 53 public eating places, owned by any State, county or municipal 54 government agency or instrumentality or any private individual, 55 partnership, association or corporation; 56 n. "Purchase" means and includes, in addition to its ordinary 57 meaning, any acquisition of ownership or possession, including, 58 but not limited to, condemnation by eminent domain proceedings: 59 o. "Retail dealer" means any person who engages in the busi- 60 ncss of selling fuels from a fixed location such as a service station, 61 filling station, store, or garage directly to the ultimate users of 62 said fuel ; 63 p. "Sale" means and includes, in addition to its ordinary mean- 64 ing, any exchange, gift, theft, or other disposition. Tn sneh case 65 where fuels are exchanged, given, stolen, or otherwise disposed of, 66 they shall be deemed to have h»ten sold ; -295- 67 q. "Supplier of fuel" means any refiner, importer, marketer, 6S jobber, distributor, terminal operator, firm, corporation, whole- 69* saler, broker, cooperative or other person who supplies, sells, 70 consigns, transfers, or otherwise furnishes fueL In no case, how- 71 ever, shall a retail dealer be construed to be a supplier of fuel; 72 r. "Trade secret" means the whole or any portion or phase 73 of uny scientific, technical or otherwise proprietary information, 74 design, process, procedure, formula or improvement which is used 75 in one's business and is secret and of value: and a trade secret 76 shall be presumed to be secret when the owner takes measures to 77 prevent it from becoming available to persons other than tho»e 7S selected by the owner to have access thereto for limited purposes; 79 8. "Wholesale dealer" means any person who engages in the 80 business of selling fuels to other persons who resell the said fuel. 81 In uo case shall a retail dealer be considered as a *£whoesale3* 82 'wholesale" dealer. 1 4. There is hereby established in the Executive Branch of the 2 State Government a principal department which shull be known 3 as the Department of Energy. 1 5. The administrator and chief execntive officer of the depart- 2 ment shall be a commissioner who shall be a person qualified by 3 training aud experience to perform the duties of his office. Tire 4 commissioner shall be appointed by the Governor with the advice 5 and consent of the Senate, and shall serve at the pleasure of the 6 Governor and until the appointment and qualification of the commis- 7 sioner's successor. He shall devote his entire time to the duties of S his office and shall receive such salary as shall be provided by law. 9 Any vacancy occurring in the office of the commissioner shall !>e 10 filled in the same manner as the original appointment. 11 *5.1.a. There is hereby established in the department the Board 12 of Public Utilities; provided, however, that such board shall ie 13 independent of any supervision or control by the department or 14 by any officer or employee thereof, except as othencisc expressly 15 provided in this act. 16 b. The Department of rublic Ctilitics is abolished and i's firoc- 17 lions, poners and duties are hereby transferred to the Board of IS Public Utilities, except as provided in section 25 of this act. 19 c. Tlie Board of Public Utility Commissioners and the positions 20 of president and commissioners thereof shnll be rontiitued as the 21 Board of Public Utilities end the prcsidrut and commissioners 22 thereof in the Board of Public Utilities. This act shall not a feet 23 the terms of office of, nor the salaries received by. the present w»m 2-4 bets of the Hoard of Public Utility Commissioners, or of any 25 oificns or employees thereof. Tlte Department of Civil Service 26 shaii :'o.' rrtimSJify nw7 title or position transferred from the Be- it pnr'.mtnt of Public Utilities pursuant to this act without the ap- 2i> prois.i of the board. The President and Commissioners of the 29 Boaid of Public L'li-ities shall be appointed ra the manner provided TO b ' exist : »i teut for the appointment nf He President and Commis- si sioners of the Loan! of Public Utdily Commissioners, and sliall 32 reeeire such snlurus as shall be" provided by li'iv. 33 d. At! functions, powers and duties note vested in the Board of 34 Public Utility Commissioners and in the positions of president and 3.1 CMUMSMNCn Ihcrcnf err hereby transferred !o and assumed by 35 the Board of Public Utilities and the president and commissioners 37 thereof. 3S e. Whenever \n any law, ride, regulation, order, contract, docu- 39 tment. jndicial or administrative proceeding or othencise, reference 40 is made to the Department of Public Utilities or the Board of Public 41 Utility Conmissinners, the same shall mean and refer to the Board 42 of Public Utilities. 43 5J2.a. There is hereby established in the department the Division 44 of Energy Planning and Conservation. 45 o. The Division of Energy Planning and Conservation shall be 46 under the immediate supervision of a director who shall be ap- 47 pointed by the Governor, with the advice and consent of the Senate, +8 and who shall serve at the pleasure of the Governor during the 49 Governor's term of office and until the appointment and qualifica- 50 lion of his successor. Tlie director shall receive suck salary as 51 shall be provided by law.' 1 6. The commissioner shall organize tbe work of the department 2 and establish therein such administrative subdivisions as be nay 3 deem necessary, proper ocd expedient He may formulate and 4 adopt rnles and reflations and prescribe duties for the efficient 5 conduct of the business, work and general administration of the 6 department. He may delegate to subordinate officers or employees 7 in the department snch of his powers ns he may deem desirable S to he exercised under his supervision and control. 1 7. Subject to the provisions of Title 11 of the Revised Statutes, 2 and within the limits of funds appropriated or otherwise made 3 available, the commissioner may appoint such officers and em- 4 ploycc* of the department as he may deem necessary for the 5 performance of its duties, fix and determine their qualifications, 6 duties, and compensation and retain or employ engineers and 7 private consultants on a contract basis or otherwise for rendering 6 professional or technical assistance. 1 S. 'a.* Tbe commissioner shall inako an annual report to the 2 Legislature and tho Governor of the department's operations and 3 render such other reports as they shall from time to time request 4 or as may be required by law. These reports shall include, but not 5 be limited to, an analysis of existing problems and guidelines rc- 6 lating to future energy use and availability. 7 *b. Within 6 months of the effective date of this act, the com- S missioner, after consultation with the Director of the Division of 9 Energy Planning and Conservation, the Board of Public Utilities, 10 tlte Attorney General, and the commissioners of appropriate cxeca- 11 live departments, including but not necessarily limited to the Dc- 12 partments of Environmental Protection and Transportation, shttll 13 prepare and submit a report to the Legislature mid the Governor 14 identifying (1) those functions and duties currently exercised by 15 other departments, divisions, agencies, commissoins, councils, 16 boards, or bureaus of State Government relating to energy that 17 might be appropriately transferred to the department; and (2) 18 those functions and duties transferred to the department pursuant 19 to the provisions of this act that might be appropriately transferred 20 to other departments. Such transfers may be effectuated by erccu- 21 live order or law, as the case may be.* 1 9. The commissioner shall, *£by and]* on behalf of the depart- 1a ment 'through the Division of Energy Planning and Conservation' : 2 a. Manage the department as the central repository within the ,.3_ _Statc Government for the collection of energy information; "T b. Collect -irtcf -analyze data relating to present and future- 5 demands and resources for all forms of energy; 6 c. Hnve authority to require all persons, firms, corporations or 7 other entities engaged in the production, processing, distribution, 8 transmission or storage of energy in any form to submit reports 9 setting forth such information as shall be required to carry out the 10 provisions of this act; 11 d. Have authority to require any person to submit information 12 necessary for determining the impact of any construction or 13 development project on the energy and fuel resources of this State ; 14 e. Charge other State Government departments and agencies 15 involved in energy-related activities*, including the Board of 16 Public Utilities,' with specific information gathcriug goals and 16a require that said goals be fulfilled; 17 f. Establish an energy information system which will provide IS all data necessary to insure a fair and equitable distribution of 19 available energy, to permit a more efficient and effective use of 20 available energy, find to provide the basis for long-term planning 21 related to energy needs; 22 g. Design, implement, and enforce a program for the conservation 23 of energy in commercial, industrial, and residential facilities, which 24 program shall provide for the evaluation of energy systems as they 25 relate to lighting, heating, refrigeration, air-conditioning, building 26 design and operation, and appliance manufacturing and operation; 27 aud may include, bnt shall not be limited to, the requiring of an 23 annual inspection and adjustment, if necessary, of oil-fired heating 29 systems in residential, commercial and industrial buildings so as to 30 bring such systems into conformity with efficiency standards 31 therefor prescribed by the department; the setting of lighting 32 efficiency standards for public buildings; tho establishment of 33 mandatory thermostat settings and the use of seven-duy, day-night 34 thermostats in pnblic buildings; the development of standards for 35 efficient boiler operation; nnd, the preparation of a plan to insure 36 the phased retrofitting of existing gas furnaces with electric igni- 37 tion systems and to require that new ga3 '[faniaces,]* ranges'f,]^ 38 and dryers be equipped with electric ignition systems*, aud new 3Sa gas furnaces with electric ignition systems and automatic vent- 38a dampers'; 39 h. Conduct aud supervise a State-wide program of education 40 including the preparation and distribution of information relating 41 to energy conservation; 42 L Monitor prices charged for energy within the State, evaluate 43 policies governing the establishment of rates and prices for energy, 44 and mn«e recommendations for necessary changes in such policies 45 to other concerned Federal and State agencies*, including the Board 46 of Public Utilities' and to the Legislature; 47 j. Have authority to conduct and supervise research projects 48 and programs for the purpose of-incrcasing the efficiency of energy 49 use, developing new sources of energy, evaluating energy conserva- 50 tion measures, and meeting other goals consistent with the intent 51 of this act; 52 k. Have authority to distribute and expend funds made available 53 for the purpose of research projects and programs; 54 1. Have aathority to enter into interstate compacts in order to 55 carry out energy research and planning with other states or the 56 Federal Government where appropriate; 59 60 (il 62 63 C4 65 66 67 67a fiS 69 70 71 72 73 74 75 76 77 78 79 80 81 32 83 84 S5 36 87 SS 89 50 91 92 fC 01 o\vers, responsibilities and duties with respect to such businesses, in- dustries or utilities. *e. With respect to the siting of any energy facility in any part of Xew Jersey, the department shall, the provisions of any law to the contrary notirith.itanding. have jurisdiction coextensive nri'h that of am/ other Stale instrumentality, and to that erd, no Stale instrumentality irith the povcr to grant or deny c.nn permit for the construction or location of any energy facility shall exercise its poirers icithout referring to the Division of Energy Planning and Conservation, for its review and comments, a copy of snch appli- cation and all papers, documents and materials appnrtrnanl thereto filed hy the applicant uith such Stale instrumentality. Prior to making a final decision uith respect to any such application, the State instrumentality with poner of approval over s^teh application shall solicit the views of the department thereitpon. Such views -297- 50 51 52 53 54 55 56 57 5S 59 60 61 62 63 64 65 6C 6T SS 69 70 71 74 75 76 1 1 7S 79 PO SI S2 83 S4 S5 ?fi P7 1 9 shall 6» coiHiHiniicatcd lo the State instrumentality with the power of approval over such application in the form of a report describing the findings of the department with respect to such application. Suck report shall be prepared by the Director of the Division of Energy Planning and Conservation und shall be signed by said director and by the commissioner. In the event that such report is not prepared and transmitted to the State instrumentality with power of approval over such application within 90 days after the department's receipt of such application, such State instrumen- tality shall act upon such application pursuant to the law providing its power of approval thereof. In the event that the views of the department, as contained in its report, with respect to any such an[tlicalion differ from t!ie views of the State instrumentality with the power of approval over such application, there shall be estab- lished an Energy Facility Review board ichich shall consist of the Director of the Division of Energy Planning and Conservation, the director or chief executive officer of the Slate instrumentality with the power of approval over such application, and a designee of the Governor. The decision of the Energy Facility Rcvietv Board cre- ated with respect to a specific energy facility application shall be binding with respect lo such facility and shall be implemented forth- with by the State instrumentality ivith the power of approval over such application. In implementing its responsibilities pursuant to this subsection, the department shall banc the power to adopt , by regulation, a fee schedule for reviewing applications for the construction or location of energy facilities; provided, however, that fees shall be charned to applicants for permits to construct or locate energy facilities onln in those instances where the nature and extent of the proposed energy facility are such as to necessitate the employment of con- sultants or other expert personnel from without the department before the department can make its determination with respect to any such application, and that such fees shall in any event be the minimum amount necessary/ lo.permit the department to fulfill its resjionsibilities under this section. The provisions of this section shall not be regarded as to be in derogation of any powers notr existing and shall he regarded as supplemental and in addition to powers conferred b>/ other laws, indudina municipal zoning authority.* 14. The commissioner shall prepare and adopt an emergence allocation plan specifying- actions to be taken in the event of ail impending serious shortage of energy which poses grave threats o 6 7 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 13 19 20 21 22 23 24- 25 26 2? 23 29 30 31 32 33 34 35 36 37 38 39 to the public health, safety, or welfare. Tbe commissioner shall direct all State Government departments and agencies*, including the Board of Public Utilities,' to develop, subject to his approval, contingency plans for dealing with said emergencies. 15. a. Upon a finding by the commissioner that there exists or impends an energy supply shortage of a dimension which endan- gers the public health, safety, or welfare in all or any part of the State, the Governor is authorized to proclaim by executive order a state of energy emergency for a period of op to 6 months. The Governor may limit the applicability of any such state of emergency to specific kinds of energy forms or to specific areas of the State in which such a shortage exists or impends. b. During the duration of a state of energy emergency the com- missioner to the extent not in conflict with applicable Federal law or regulation but notwithstanding any State or local law or contractual agreement, shall be empowered to: (1) Order any person to reduce by a specified amount the use of any energy form; to make use of an alternate energy form, where possible; or to cease the use of any energy form: (2) Order any person engaged in the distribution of auy energy form to reduce or increase by a specfied amouut or to cease the distribution of such energy form; to distribute a specified amount and typo of energy form to certain users as specified by tbe •[administrator* 'commissioner' ; or to share supplies of any energy form with other distributors thereof; (3) Establish priorities for the distribution of any energy form; (4) Regulate and control the distribution and sale of any energy "form by: a *-~ -■• -~- — (a) Establishing such limitations, priorities, or rationing procedures as shall be necessary to insure a fair and equitable distribution of available supplies ; (b) Establishing minimum and maximum quantities to be sold to any purchaser; (c) Fixing the days and hours of access to retail dealers : (d) ConipeHmg sales to members of the general public dur- ing times when, a retail dealer is open for the sale of an energy form; (e) Establishing methods for notifying the public by ffass. symbols, or other appropriate means whether such retail dealers are open and selling the subject en«rey form; (5) Direct the heads of those departments and agencies within State Government that were ordered to develop contingency plans pursuant to section 14 of this act to implement said plans; 40 41 42 43 44 43 46 47 43 4!) 50 51 52 53 54 05 56 57 58 59 60 61 62 63 64 65 66 67 63 a 70 71 1 2 3 4 5 6 7 fi 9 10 (C) Adopt and promulgate such rules and regulations as are necessary and proper to curry out the purposes ofthis section. c. During the existence of a state of energy emergency, the Gov- ernor may order the suspension of any laws, rides, regulations, or orders of any department or agency in State Government or within any political subdivision which deal with or affect energy and which impede his ability to alleviate or terminate a state of energy emergency. d. Any aggrieved person, upon application to the commissioner shall be granted a review of whether the continuance of any order Issued by the commissioner pursuant to this section is unreason- able in light of then prevailing couditions of emergency. e. During a state of energy emergency the commissioner ranv require any other department or other agency within Stato Gov- ernment to provide such information, assistance, resources, and personnel as shall be necessary to discharge his functions' and responsibilities under this act, rules and regulations adopted here- under, or applicable Federal law and regulations. f. The powers granted to the Governor and the commissioner under this section shall be in addition to and not in limitation of any emergency powers now or hereafter vested in the Governor, the commissioner, or any other State Government department or agency pursuant to any other laws, including but not limited to any power '£aow2' vested in the Board of Public '[Utility Com- missioners} • 'Utilities' to require utility companies to allocate available supplies of energy; provided, however, that upon declar- ing a state of energy emergency, the Governor may supersede any other such emergency powers. g. The state of energy emergency declared by tbe Governor pur- suant to tliis section shall remain in effect until the Governor declares by a subsequent executive order that the state of energy emergency has terminated. 16. a. Tbo commissioner shall adopt rules and regulations requiring the periodic reporting by energy industries of energy information which shall include but not be limited to the following: (1) Electrical generatirur capacity in the State; long-range plans for additions to said capacity; efficiency of electrical feneration; pi-ice and cost factors in electrical generation ; types and quantities of fuels used; projections of future demand, consumption of elec- tricity by sectors; time.', duration, and levels of peak demand; (2) Petroleum refining capacity; amount and type of fuel pro- duced; amount and type of fuel sold; interstate transfers of fuel; -298- n 12 13 14 15 16 17 13 19 20 21 22 23 24 25 26 27 23 29 30 31 32 1 2 3 1 2 3 4 5 6 o 10 11 1 o 3 4 5 6 price and cost factors in refining, production, and sale; lontj-tenu plans lor alterations or additions to refilling capacity; location amount, and type of fuel storage; (3) Storage capacity for gases; amount and end uses of -uses sold; price and cost factors in the sale and use of gu^cs; aud " (4) Such other information as the commissioner may determine accessary for carrying out the purposes of this act. b The commissioner shall at least annually publish a report analyzing all energy information collected. c. The commissioner shall have the discretion to obtain cnei"v information from uu affiliate of any energy industrv or from an association or organization of industries of which nuv such e:io,-., y wdustry is a member. Whenever energy information supplied by an energy industry is so obtained by the commissioner, tbo Offerer industry- to which stu-h information pertains shall be promptTv notified of the energy information so obtained and shall be eivi-n an opportunity to correct or amplify such information. d. irade seorets collected under this section shall be exempt from the requirements of P. L. 1963, c. 73 (C. 47:1A-1 et sen.). Tl* commissioner shall promulgate rules and regulations for the conauct of administrative hearings on the issue of whether certain energy information should not be disclosed to the public 17. No person who is an official or employee of the department shall participate m any manner in any decision or action of tbe department wherein he has a direct or indirect financial interest lfc. lho coi:mns«;oner may issue subpenas requiring the at- tendance and testimony of witnesses and the production of book, documents, paper.., statistics, data, information, and records for the l>»rpo:-e of carrying out any of his responsibilities under this net. AVbcnever there arises a refusal to honor his subpena the commissioner may petition a court of competent jurisdiction for an order requiring the attendance and testimony of a witucss or tin. production of the requested books, documents, paper, statistic C.ntfl, information, and records. Any failure to obey such a:, order thereof * C ° Urt Sba " ^ P" nisb « 1 . b *' tlle ~url n» a contempt 19. Upon a violation of this act or of any rule*, regulations, or orders promulgated hereunder, the commissioner, the com.tr prose- cutor of the county in which the violation occurs if he 'taw the SS r ' t, ! e , c ° m,m3 . si . onp '-. or any aggrieved person shall be entitled to institute a cm action in a court of competent j,,„>- d.ct.on for mjunchve relief to restmin such violation and for such s a 10 n 12 l 2 3 4 5 6 7 1 9 3 6 7 S !) 10 11 12 13 14 15 ir> 17 IS 10 20 21 22 23 other relief as tbe court shall deem proper. The court may proceed in n summary manner. Neither tbe institution of such action, nor any of the proceedings therein shall relieve any party to such proceedings from other fines or penalties prescrilwd for such a violation by this act or by any nilc, regulation or order adopted hereunder. 20. Any person who fails to provide energy information in his official custody when so required by tbe commissioner shall he liable for a penalty of not more than $3,1X10.00 for each offense. If the violation is of a continuing nature, each day during which it con- tinnes shall constitute an additional and separate offense. Penalties shall be collected iu a civil notion by a summary proceeding under the Penalty Enforcement Law (X. J. S. 2A:5S-1 et seq.). 21. Any officer or employee of the State who, having obtained by reason of his employment and for official use, any confidential energy information, publishes or communicates such information for reasons not authorized by this or any other act shall be fined not more than $2,000.00 or imprisoned not more tlian 2 years or both. 22. a. Any person purchasing or attempting to purchase energy iu violation of section 15 of this act or any rules, regulations, or orders promulgated thereunder, shall be subject to a penalty of, not more than $25.00 for the first offense, not more than $100.00' for the second offense, and not more than $200.00 for the third offense or subsequent offenses. b. Any retail dealer who violates section 15 of this act or any rules, regulations, or orders promulgated thereunder, shall be subject to a penalty of not more than $25.00 for the first offense, not more than $200.00 for the second offense, and not more than $400.00 for the third offense or subsequent offenses. c. Any distributor or any otlr?r supplier of energy who violates any of the provisions of section 15 of this act or of any rules, regulations, or orders promulgated thereunder, shall be subject to a penalty of not more than $1,0.00.00 for the first offense, not more than $5,000.00 for the second offense, and not more than $10,000.00 for the third offense or subsequent offenses. d. In addition to any other penalties provided under this or any othor act, the commissioner may recommend to the appropriate agency the suspension or revocation of the license of any retail dealer, gasoline jobber, wholesale dealer, distributor, or snpplicr of fuel, who has violated this act or any rules, regulations, or orders promulgated hereunder. 24 25 26 27 23 29 30 31 32 33 33a 34 35 36 37 38 39 1 2 3 4 5 6 7 8 9 • IP- ~TX~ 12 13 14 15 16 17 13 19 20 21 21a 22 23 24 e. All penalties imposed pursuant to this MetUw shall be collected iu a civil action by a summary proceeding under the I'rr.u'.l/ Enforcement Law (>>". J. S. 2.\ 53-1 et seq.). If the violation ii of a continuing nature, each day during which it continue i shall constitute au additional and separate oSXtWUf. "22J. The department shall transmit copies of all rnlt4 end regulations proposed pursuant to this net "by or on behalf of the Division of Eneryg Planning and Contei VOtlOn-** to the Senate ""''■ General Assembly on a dag on which both Houses shall be meeting in the course of a regular or special session. The provisions of the "Administrative Procedure Act" or ang other low to the contrary notwithstanding, no such rule or regulation, except a rule or regu- lation adopted pursuant to an energy emergency declared by the Governor, shall take effect if, unthin 00 days of the date of its transmittal to the Senate and General Assembly, the Legis'atare shall vaM a concurrent resolution stating in substance that the Legislature docs not favor such proposed rule or regulation.' 23. a. All appropriations, grants, and other moneys available to the State Energy Office ate hereby transferred to the department created hereunder and shall remain available for the objects and purposes for which appropriated, subject to any terms, restrictions, limitations or other requirements in! posed by Federal or State law. b. The employees of the State Energy Office are hereby trans- ferred to the department created hereunder. Nothing in thi3 act shall be construed to deprive said employees of any rights or protec- tions provided them by the civil service, pension, or retirement laws of thi3 State. c. All filespiobks, paper, records, equipment, and other property of the State Energy Office are hereby transferred to the depart- ment created hereunder. d- The rules, regulations, and orders of the State Energy Office shall continue with full force and effect a3 the rules, regulations, ar.d orders of the department created hereunder until further amended or repealed. e. Except as otherwise provided by this act, nil the functions, powers, and duties of the existing State Energy Office and its administrator are hereby continued in the department and the •^commissioner thereof^* 'Director of the Division- of Energg Planning and Conservation* created hereunder. f. This act shall not affect actions or proceedings, civil or crim- inal, brought by or against the State Energy Office and pending on the effective date of this act, but such actions or proceedings 25 20 2Y 28 29 30 31 32 33 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 1 2 3^ 4 5 1 2 3 4 1 2 3 1 2 3 4 5 6 may be further prosecuted or defended in the same manner and to the same effect by the department created hereunder. g. Whenever in any law, rule, regulation, order, contract, docu- ment, judicial or administrative proceedings, or otherwise, refer- ence is made to the State Energy Office or the administrator thereof, the same shall be considered to mean and refer to the State Department of Energy and the '[commissioner thereof]* 'Director of the Division of Energg Planning and. Conservation' . created hereunder. 24. All the functions, powers and duties heretofore exercised by the Department of Community Affairs and the Commissioner thereof relating to the adoption,- amendment and repeal of the energy subcode of the State Uniform Construction Code pursuant to P. L. 1975, c 217 (C. 52:27D-119 et seq.) are hereby transferred to, and vested in the Department of Energy and the Commissioner of the Department of Energy; provided, however, that nothing in this section shall be construed so as to interfere with the enforce- ment of such energy subcode by the Commissioner of the Depart- ment of Community Affairs pursuant to the aforecited P. L. 1975, c 217*; provided further, however, that this section shall not take effect until 00 dags after the effeclice date of this act, and ang energy subcode adopted by the Department of Community Affairs xvithin said 00 days shall continue in force and effect until amended or repealed by the department as herein provided*. 25. The Bureau of Energy Resources in the Department of Public Utilities, together with all of it3 functions, powers and duties, is hereby transferred to the "Division of Energg Planning and Conservation in the' Department of Energy established pur- suant to this act 26. The transfer of responsibilities directed by this act, except as otherwise provided herein, shall be made in accordance with the "State Agency Transfer Act," P. L. 1971, c. 375 (C. 52:14D-1 et seq.). 27. All acts and parts of acts inconsistent with any of the provi- sions of this act are, to the extent of such inconsistency, superseded ami repealed. 28. If any section, part, phrase, or provision of this act or the application thereof to any person be adjudged invalid by any court of competent jurisdiction, snch judgment shall be confined in its operation to the section, part, phrase, provision, or application directly involved in the controversy in which such judgment shall have been rendered and it shall not affect or impair the validity 7 of the remainder of this act or the application thereof to other S persons. 1 29. The object and design of this act being the protection of the 2 public health, safety and welfare by means of the coordination of 3 State planning', regulation" and authority in energy related roat- 4 ters. this act simll bo liberally construed. 1 30. This act shall take effect immediately. -299- APPENDIX I - LEGAL COMMENTARY Introduct ion Judicial decisions in New Jersey courts have upheld the constitutionality of the State's key coastal laws, the Coastal Area Facility Review Act (N.J.S.A. 13:19-1 et seq .) and the Wetlands Act (N.J.S.A. 13:9A-1 e£ seq . ) . New Jersey courts have also expanded the Public Trust Doctrine to protect beach access and recreational uses of the waterfront, as well as the traditional navigation, com- merce and fishing rights of the public at the water's edge. Also, the State of New Jersey is actively establishing its claim of ownership of the riparian lands now or formerly flowed by the mean high tide. This Appendix provides a legal commentary to the principal recent judicial decisions involving the laws concerning coastal management in New Jersey. Coastal Area Facility Review Act In the case of Toms River Affiliates and Lehigh Construction Company v . Department of Environmental Protection and Coastal Area Review Board 140 N.J. Super 135 (App. Div.), certif den. 71 N.J. 345 (1976), the Appellate Division of Superior Court upheld the constitutionality of CAFRA. The case arose after DEP denied a CAFRA permit application for a ten story, high-rise luxury apartment complex on a 9.5 acre tract of land in Toms River, Ocean County. The developer then admini- stratively appealed to the Coastal Area Review Board. The Coastal Area Review Board unanimously upheld the Department's decision. The applicant then filed an appeal for relief to the Appellate Division, challenging the constitutionality of the CAFRA statute on five points. The applicant contended that: (1) CAFRA did not provide adequate standards for the administration of the Act prior to the prepara- tion of the studies mandated in Section 16 of the Act; it therefore was in viola- tion of Article III, Paragraph I of the New Jersey Constitution; (2) The Act granted zoning powers to the DEP in contravention of the constitutional delegation of such powers to a municipality in violation of Article IV, Paragraph II of the New Jersey Constitution; (3) the Act created an invalid classification by desig- nating a delineated coastal area and omitted other coastal areas in violation of Article I, Paragraph I of the New Jersey Constitution; (4) The Act denied equal protection of the laws in contravention of the Fourteenth Amendment to the Con- stitution of the United States; and (5) The Act constituted the taking of property in violation of Article I, Paragraph 20 of the Constitution of New Jersey. f . On the issue that the CAFRA statute lacked reasonably adequate standards to guide the administrative agency in processing permit applications, the Court stated that Sections 10 and 11 of the Act set forth specific criteria by which the Envi- ronmental Impact Statement required for a CAFRA permit could be evaluated. The Court rejected the applicant's contentions that the statutory delegation of power to the DEP to grant or deny permits for construction of housing was in violation of the constitutional provision authorizing the Legislature to enact general laws under which municipalities may adopt zoning ordinances and that CAFRA did not provide guidelines parallel to those incorporated in the Municipal Zoning Enabling Act (N.J.S.A. 40:55-30 et seq.). -300- The Court stated unequivocally that the police power of the State was not exhausted by the delegation of zoning power to the municipality. The State re- tained a quantum of reserved police power to delegate such authority to one or more agencies of the State government as the Legislature may deem appropriate. The State's delegation of such authority to the Hackensack Meadowlands Development Commission provided a precedent on this issue. On the issue of conflict between a local zoning regulation and CAFRA, the Court noted that the exercise of such power by the State was a valid exercise of police power and that the conflict represents no constitutional infirmity. The assertion by appellants that CAFRA violated Article IV, Section 7, Para- graph 9 of the New Jersey Constitution and the Fourteenth Amendment . to the United States Constitution because it classified one section of the coastal area and excluded others was struck down as without substance. The Court noted that the CAFRA Statute should be read in light of the=-- intent ion., of the Legislature which recognized that the coastal area was a unique and irreplaceable portion of the state. Its importance to the public health and welfare supports the reasonableness of the special legislative treatment regulating that area. In view of the pre- sumption of the constitutional validity, the court noted, the limitation of the Act to the portion delineated by the statutory boundaries constituted a valid exercise of discretionary power vested in the Legislature. Boundaries of areas demanding regulations cannot be formulated with mathematical perfection. The mere fact that the property of the appellants is subject to the Act's provision, while property in other parts of the state is not so regulated does not establish a Fourteenth Amendment deprivation of equal protection. In addition, the Court stated that the appellants presented no evidence for the claim of arbitrariness in the classifica- tion adopted by the Legislature. If the classification is not arbitrary and all persons within a controlled area are treated alike, the legislation is not a special law nor violative of the Fourteenth Amendment. The Court labeled the taking issue in this case as specious. A particular use of property may be frustrated, but so long as alternative uses for development exist, no taking of private property can be claimed by the appellants. In the case of Public Interest Research Group of New Jersey, et. al. v. Department of Environmental Protection and Public Service Electric and Gas Co. , 152 N.J. Super 191 (App. Div.), certif . den. 73 N.J. 538 (1977), the Court upheld the decision of DEP, as upheld unanimously on appeal by the Coastal Area Review Board, to approve a CAFRA permit for the Hope Creek Nuclear Generating Station (Units 1 and 2) at Artificial Island in Lower Alloways Creek Township, Salem County. The Court rejected the appellants' procedural contention that DEP should have conducted an adversarial hearing with cross-examination of witnesses and findings of fact and conclusions of law, instead of the two quasi-legislative, fact-finding hearings held before the DEP decision. The Court also ruled that the DEP decision to grant a conditional permit was reasonable. The Court concurred with DEP that Public Service Electric and Gas Co. complied with the findings of Section 10 and 11 of the Act. The Court also rejected the contention of appellants and the Public Advocate, who submitted an amicus brief, that the environmental impact statement submitted by Public Service Electric and Gas Company was legally deficient. -301- The Court further rejected appellants claim that the Commissioner's finding in the method for disposal of radioactive waste, as required by N.J.S.A. 13:19-11, was unsupported by the available data in the record. The Court noted the compre- hensive federal legislation and regulations in the area of radiation hazards and stated that the Commissioner must satisfy himself that the applicant has conformed to the standards of the Nuclear Regulatory Commission. If such standards are met, the Court noted, the Commissioner has no authority to impose either lower or higher safety standards to regulate radiation (152 N.J. Super, at 216). Wetlands Act In the case of Sands Point Harbor, Inc. v. Richard J. Sullivan , Docket No. A-765-73, (App. Div. 1975) , the New Jersey Superior Court found that the Wetlands Act of 1970, N.J.S.A. 13:9A-1 et seq . and the regulations N.J.A.C. 7:7A-1 et seq . adopted pursuant to the Wetlands Act did not violate the Constitutions of the State of New Jersey and of the United States. The applicant, a private developer, alleged that both the statute and regula- tions both deprived him of equal protection under the law as guaranteed by the Fourteenth Amendment of the Constitution of the United States and by Article I, Paragraph I of the New Jersey Constitution, and further that the statutes and regulations constituted a taking of property without just compensation in violation of Article I, Paragraph 20 of the New Jersey Constitution. The applicant's "equal protection" argument was predicated upon the fact that only coastal wetlands were regulated by the Wetlands Act and that wetlands subject to the Hackensack Meadowlands Development Commission (N.J.S.A. 13:17-1 et seq . ) were specifically excluded from the Wetlands Act. The Court tersely noted that classification in legislation is not constitutionally prohibited, and that the Legislature is granted a wide range of discretion to treat subject matter of legislation differently, so long as the classification is reasonable and related to the basic object of the legislation. The Appellate Division stated that classi- fying coastal wetlands as a separate object of protection was reasonable, con- sidering that wetlands north of Raritan Bay are characterized by heavy industrial, commercial, or residential development. The only other broad contiguous area of wetlands in the state was within the special legislatively defined Hackensack Meadowlands Development District, and a classification by statute of this area afforded reasonable grounds for the disparate treatment of land in these different areas of the State. On the so-called "taking issue", the applicant relied upon a New Jersey Supreme Court case which struck down a municipal zoning ordinance severely restrict- ing the use of swamp land ( Morris County Land, Parsippany, Hills Township , 40 N.J. 539, 1963). The restrictions in this case, however, were of such a nature that the only practical use which could be made of the property was as a hunting or fishing preserve. The taking test, as defined by the New Jersey Supreme Court, was whether no practical use could be made of the land so as to constitute a taking without just compensation. The Appellate Division found in the Sands Point case that the only activities absolutely prohibited under the Wetlands Act were the dumping of solid waste, discharging of sewage, and storage and application of pesticides. Since the Commissioner of Environmental Protection must consider the effect of a proposed activity upon the public health and welfare, marine and shellf isheries , wildlife, -302- and the protection of property from flood, hurricane or other disasters, such criteria were reasonable and did not so restrain virtually all activities so as to be in violation of the New Jersey Constitution. In Carton et al vs. State of New Jersey, Commissioner of Environmental Pro- tection (Docket No. A-638-73, 1978) , argued before the Appellate Division of the Superior Court in December 1977, the plaintiffs argued that the Wetlands Act constituted a taking of private property without just compensation. The plantiffs contended that the Act was vague, unreasonable and unconstitutional, but the Court, citing Sands Point Harbor held that the Act was a valid exercise of governmental power and did not constitute a taking. A petition for appeal was denied by the New Jersey Supreme Court on May 16, 1978. In American Dredging Co. v. State (Docket C-278-73 and C-1097-73) , the Chancery Division, Superior Court held, on July 31, 1978, that DEP's Wetlands Order of 1973 was not a "taking", in a case involving- a wetlands site along the Delaware River in Gloucester County. Tidelands and Riparian Cases Numerous issues concerning riparian or tidelands management in the coastal zone of New Jersey are not expressly addressed or resolved in Titles 12 and 13 of the Revised New Jersey Statutes, which contain the bulk of riparian statutory authority. The case law decisions described in this section have established key principles in riparian law. The case of O'Neill v. State Highway Department 50 N.J. 307 (1967) involved an ownership dispute of lands along the Hackensack River. The State asserted title to these lands. In its opinion, the Court laid down several principles. First, the State owns in fee simple all lands that are flowed by the tide up to the high water line or mark. The high water line or mark is the line formed by the inter- section of the tidal plain of mean high tide with the shore. In establishing this line, the average to be used should be, if possible, the average of all the high tides over a period of 18.6 years. Second, the State cannot acquire interior land by its construction of artificial works such as ditching which enables the tide to ebb and flow on lands otherwise beyond it. The riparian owner cannot, however, enlarge his holdings by excluding the tide. Third, the party who challenges the existing scene must satisfy the court that the tidelands status of the property was changed by artificial measures. Rules concerning erosion and its effect on riparian ownership were discussed in the case of Leonard v. State Highway Department of New Jersey , 29 N.J. Super 188 (App. Div. 1954) . Where erosion is by natural means, the riparian owner loses title to the State. The owner suffers no such loss, however, in the event of a sudden and perceptible loss of land. The high water mark may shift from time to time through erosion, and persons who own or purchase tide-flowed land are well aware of this natural process. Where there is erosion, they lose title to the State. Where there is accretion, they gain title at the expense of the State. The State's procedure for tidelands delineation was challenged in the case of the City of Newark v. Natural Resources Council , 133 N.J. Super 245. (Law Div. 1974) . Two riparian statutes relevant to the State's tideland delineation procedure provided that "the (Natural Resource) Council is hereby directed to -303- undertake title studies and surveys of meadowlands throughout the State and to determine and certify those lands which it finds are State owned lands." (N.J.S.A. 13:13-13.2.) "Upon completion of each separate study and survey the Council shall publish a map portraying the results of its study and clearly indicating those lands designated by the Council as state owned lands". (N.J.S.A. 13:1B-13.4) The Natural Resource Council is a twelve member citizen body appointed by the Governor, with the advice and consent of the State Senate. In 1970 the State issued a grey and white map of New Jersey which designated grey portions of the State as representing lands claimed by the State. However, in 1971 the Court held that these maps did not comply with the intent of the legisla- t ion. The State then began a new delineation of tidelands based on aerial photo- graphy. This mapping procedure resulted in thirty-seven panels of land, each of approximately 964 acres, mapped at a scalers? 1:2,400'.' In 30 of the 37 panels the maps produced resulted in substantial claims to the land by the State. However in seven of the panels it was very difficult for the State to determine ownership, and so these areas were characterised as "hatched" (areas of filled meadowlands adjacent to virgin meadowlands). The "hatched" areas indicated a claim by the State that the filled areas were once tide flowed, and so the State was likely to own them. The court held that the "hatching" procedure did not conform with the statutory requirement that the State define its interests in unequivocal terms. (N.J.S.A. 13:1B-1 et seq.). The State was ordered to prepare new maps clearly indicating the riparian lands. The Office of Environmental Analysis in DEP began the mapping based on new overlay techniques. The State filed these maps with the Court in Janaury 1978. A decision by the Court on whether to accept their validity is now pending. If the validity of the maps is accepted, the Court will then have to determine the claims to the land. An appeal by an owner of a riparian grant whose application for a waterfront development permit was denied by the Natural Resource Council was reviewed in Kupper v. Bureau of Navigation, Council of Resources, etc ., Docket No. A-737-71 (unpublished opinion of Appellate Division, decided April 9, 1976). The applica- tion involved a request to construct a bulkhead connecting two existing bulkheads in a substantially developed residential area. The Court observed that although they were sympathetic to DEP ' s efforts to preserve the ecological balance in any area of the State, they were equally sympathetic to the rights of individual property owners who would be deprived of the economic use of their land. The Court felt that the trial evidence suggested that granting of a riparian permit in this case would lead to only a minimal effect on the immediate environment. Public Access to Shorefront Areas Increasing and maintaining public access to the shorefront in the coastal zone of New Jersey is public policy evolved from the Public Trust Doctrine as defined by New Jersey case law. (See Martin v. Waddel's Lessee 81 U.S. (PET) 367 (1842), Arnold v. Mundy 6 NJL 1 (Sup. Ct. 1821) , and Avon v. Borough of Neptune , 61 N.J. 296 (1976).) ' " "~ The cases concerning shorefront access have dealt with public access to publicly owned land rather than public access to privately owned land. This latter issue which concerns public access across privately owned land in order to reach publicly owned land, has not been decided by the courts although the issued was raised in Le Compte v. State of New Jersey, 65 N.J. 447, 450, (1975). The court -304- indicated that it would like to consider the problem at a suitable time. However, the court is expected to discuss this issue in Mathews v. Bay Head Improvement Association , (Docket No. L-23410-73). The Avon case expanded the Public Trust Doctrine to cover recreational uses of the shoreline beyond the traditional public rights of navigation, commerce, and fishing. The New Jersey Supreme Court held that tidal lands between the mean high and mean low water marks, as well as the oceanland seaward, are owned by the public. In this case the beach front had been dedicated to the public. The court held that this dedication was irrevocable, and for the municipality to charge a discriminatory fee to users of the beach was analogous to erecting a physical barrier. The Avon Court and the trial court in the case of New Jersey v. Borough of Deal 139 N.J. Super 83 (Ch. Div. , 1976); rex'.d 145 U. ,J. Super. 368 (App. Div._ 1976); cert, granted 74 N.J. 262 (1976), held that the upland or dry sand areas may be subject to the Public Trust Doctrine and, in the Deal case, that a municipality cannot exclude a non resident from using the upland and beach area upon payment of a reasonable non-discriminatory fee. In the Deal case there was not a clear public dedication of land and the trial court decided the case on statutory construction. The court held that a municipality does not have the right to exclude people from beach front properties. However, in 1976 the Appellate Division of the Superior Court overturned a portion of the Deal trial court opinion which stated that a municipality's "residents-only policy , with respect to the upland beach areas was not beyond the scope of authority delegated to the municipality by State statutory enactment. The Appellate Division did not address the applicability of the Public Trust Doctrine to the dry sand area, but decided the case on whether a municipality had statutory authority to make a reasonable differentiation between residents and non-residents using a municipal beach, in a town which provides for equal access at an adjoining non-restricted beach. New Jersey Supreme Court heard oral argument on Deal in July 1978 (Supreme Court Docket No. 13,081). The case of Allenhurst v. New Jersey A-1429-75 (1976), decided in the Appel- late Division of Superior Court, partially modifies the Public Trust Doctrine with respect to artificial improvements placed in the dry sand area. The Appellate Division narrowly distinguished the Avon and Deal cases and noted that the Public Trust Doctrine applies only to access to natural resources and not to man-made improvements which may be placed upon the dry sand area. In the Avon case, there were no man-made improvements on the dry sand area. However, the Appellate Division left intact a section of the Allenhurst trial court opinion which required equal fees for both residents and non-residents. Thus, the central holding of the Avon case remains unchanged. The New Jersey Supreme Court heard oral argument on Allenhurst in July 1978 (Supreme Court Docket No. 13,709). Board of Public Utilities It has been held that the Board of Public Utilities, when exercising its authority under N.J.S.A. 40:55D-19 to supercede local actions taken with respect to utilities when necessary if the service conveniences the welfare of the public, may make a finding that such service is necessary if found to be "reasonably requisite to service public convenience" (emphasis added). Petition of Public Service Coordinated Transport , 103 N.J. Super 505 (1968). Under the Coastal Management Program, the Board's authority insures that key "uses of regional benefit" will not be unreasonably excluded by actions of local governments. -305- I. APPENDIX K: DATA SOURCES FOR LOCATION POLICIES This appendix lists sources of the data needed to apply the Location Policies of Chapter Four of the New Jersey Coastal Management Program - Bay and Ocean Shore Segment. Data sources are indicated by groups, according to the sequence of steps in using CLAM, with the same reference number (in parentheses) that appeared in Chapter Four. In some cases, different data sources are indicated for the pre- application and application stages of the coastal decision-making process. DATA ELEMENT PRE-APPLICATION APPLICATION SPECIA1 AREAS (3.2) Shellfish Beds (3.2.2) NJDEP Shellfishing Areas Charts 1-10l Haskin "Distribution of Shellfish Resources in Relation to New Jersey Intracoastal Waterway" Site survey Surf Clam Areas (3.2.3) NJDEP Condemned Area Charts 1-10 Site survey Prime Fishing Areas (3.2.4) B. L. Freeman & L. A. Walford "Angler's Guide to the United States Atlantic Coast Fish, Fishing Grounds and Fishing Facilities, Sections III and IV" The same Finfish Migratory H. E. Zich "New Jersey Anadromous Pathways Fish Inventory" (3.2.5) The same Submerged Vegetation (3.2.6) NJDEP "A Case Study of Little Egg Harbor of the Submerged Vegetation" Site survey Navigation Channels NOAA/National Ocean Survey Navigation The same (3.2.7) Charts Shipwrecks and Artificial Reefs (3.2.8) Marine Sanctuary (3.2.9) NOAA/National Ocean Survey Navigation The same Charts W. Krotee, R. Krotee "Shipwrecks off the New Jersey Coast" (to be designated) -317- DATA ELEMENT PRE-APPLICATION APPLICATION SPECIAL AREAS (3.2) Beaches: (3.2.10) Lower Limit Mean High Water Line Upper Limit Natural limit of unvegetated sandy beach Developed first cultural feature Coastal Wetlands (3.2.11) Either USGS. 7 1/2 minute Quads or NJDEP Riparian, or maps where available Either NJDEP Photoquads (1972) or A more recent air photograph or Site survey o7 NJDEP Wetlands Maps where available Either NJDEP Photoquads (1972) or A more recent air photograph or Site survey NJDEP Wetlands map Either NJDEP Riparian- maps where available or Topographic site survey identifying mean high water level as established by the National Ocean Survey of the National Oceanic and Atmospheric ,„ Administration (NOAA-NOS) Site survey Site survey NJDEP Wetlands Map High Risk Beach Erosion Areas (3.2.12) Dunes (3.2.13) Central Barrier Island Corridor (3.2.14) Rutgers University "Coastal Geomor- phology of New Jersey". Volumes I & II Either USGS 7 1/2 minute Quads or NJDEP Wetlands Map where available Either USGS 7 1/2 minute Quads or NJDEP Wetlands map or NJDEP Photo Quad Site survey Site survey The same Historic Resources NJ State Register of Historic Places (3.2.15) and National Register of Historic Places; DEP/Office of Historic Pres- ervation, Historic Sites Inventory Specimen Trees (3.2.16) White Cedar Stands (3.2.17) NJDEP-Bureau of Forestry (New Jersey Outdoors, Sept. -Oct. 1977) Either J. McCormick and L. Jones, "The Pine Barrens Vegetation Geogra- phy", or NJDEP Bureau of Forestry Maps The same Site survey \ Site survey -318- DATA ELEMENT PRE-APPLICATION APPLICATION SPECIAL AREAS (3.2) - Cont . Endangered or Site survey Threatened Wildlife or Vegetation Species Habitats (3.2.18) Site survey Critical Wildlife Habitats (3.2.19) Public Open Space (3.2.20) Steep Slopes (3.2.21) Farmland Conser- vation Areas (3.2.22) Bogs (3.2.23) Emphemeral Stream Corridor (3.2.24) Special Hazard Areas (3.2.25) Excluded Federal Lands (3.2.26) Site Survey Either REDI Tax Maps or NJDEP Major Public Open Space and Recreation Areas in N.J. as of Oct. 1977. NJDEP 7 1/2 minute Slope Maps and SCS County Soil Survey. SCS County Soil Survey and available county land use maps and/or aerial photography interpretation or N.J. Department of Agriculture Prime Open Agricultural Lands Maps. Either SCS County Soil Surveys in combi- nation with/or NJDEP Wetlands map where available or_ NJDEP Photo Quads or site survey. Either SCS County Soil Survey or Site Survey. DEP review and site survey The same plus Municipal Planning Boards NJDEP 7 1/2 minute Slope Maps and site survey Site survey Site survey Site survey USGS 7 1/2 minute type quads and data The same obtained from U.S. Dept . of Transportation, Federal Aviation Administration such as flight path and horizontal air surface, and NJDEP, Office of Radiation Protec- tion and Dept. of Civil Defense. NJDEP Major Public Open Space and The same Recreation Areas in New Jersey. -319- DATA ELEMENT PRE-APPLICATION APPLICATION WATER AREAS (3.3) Basin Types Ocean (3.3.4.1) Open Bay (3.3.4.2) Semi-Enclosed and Back Bay (3.3.4.3) Inland Basins (3.3.4.4) Man-Made Harbor (3.3.4.5) Either NOAA/Nat ional Ocean Survey Survey Navigation Charts £j_ USGS 7 1/2 minute Quads or_ NJDEP Photo Quads. Either NOAA/Nat ional Ocean Survey Survey Navigation Charts or USGS 7 1/2 minute Quads or NJDEP Photo Quads. Either NOAA/NOS Charts or USGS 7 1/2 minute Topo Quads or NJDEP^Photo Quads Either NOAA/NOS Charts or USGS 7 1/2 minute Topo Quads or_ NJDEP Photo Quads Either NOAA/NOS Charts or USGS 7 1/2 minute Topo Quads or NJDEP Photo Quads The same The same The same The same The same Channel Types Large River (3.3.4.6) Medium Rivers, Streams, Creeks (3.3.4.7) Either NOAA/NOS Charts or USGS 7 1/2 minute Topo Quads 0£ NJDEP Photo Quads Either NOAA/NOS Charts or USGS 7 1/2 minute Topo Quads or NJDEP Phot Quads. The same The same Intermittent Streams (3.3.4.9) Either SCS County Soil Survey or Site Survey. Site survey Guts (3.3.4.10) Inlets (3.3.4.11) Canals (3.3.4.12) Either NOAA/NOS Charts or USGS 7 1/2 minute Quads c>£ NJDEP Photo Quads or NJDEP Wetlands Map. Either NOAA/NOS Charts or USGS 7 1/2 minute Quads or NJDEP Photo Quads or NJDEP Wetland" Map. Either NOAA/NOS Charts or USGS 7 1/2 minute Quads or NJDEP Photo Quads or NJDEP Wetlands Map where available. The same The same The same -320- DATA ELEMENT P RE -APPLICATION APPLICATION WATER'S EDGE AREAS (3.4) Natural Water's Edge SCS County Soil Surveys and USGS 7 1/2 Site survey (3.4.2) minute Quads and NJDEP Wetlands Maps and a more recent aerial photograph Retained Water's Edge Either USGS 7 1/2 minute Quads and NJ Site survey (3.4.3) DEP Wetlands Maps where available or NJDEP Photoquads (1972) or More recent air photo or Site Survey Filled Water's Edge Either USGS 7 1/2 minute Quads or NJ Site survey (3.4.4) DEP Wetlands Maps whejie. available, jor NJDEP Photoquads (1972) or More recent air photo or Site Survey -321- DATA ELEMENT PRE-APPLICATION APPLICATION LAND AREAS (3.5) Coastal Regions (3.5.3) Definitions of Envi- ronmental Sensitivity Factors (3.5.4.5) NJDEP Coastal Regions Map The same (a) Forest Vegetation Either NJDEP Forest Types Maps or NJ State Museum "The Pine Barrens: Vegetation Geography" (b) High Soil Fertility Either SCS County Soil Survey o£ Site Survey Site survey Site survey (c) High Percolation Wet Soils (d) Low Depth to Seasonal High Water Table Either SCS County Soil Survey or Site Site survey Survey Either SCS County Soil Survye or Site Site survey Survey Development Potential (3.5.5) High Potential (3.5.2.2.2) (a) Roads (b) Sewage Either USGS 7 1/2 minute Quads or_ Site Site survey Survey Either NJDEP Atlas of New Jersey The same pre- sewer overlays or County or munici- application pal surveys or Utility company surveys or NJDEP Division of Water Resources (c) Infill (d) Shopping (e) Schools Either NJDEP Photoquads £r a more recent air photograph or Site Survey Municipal Clerk Municipal Clerk Site survey The same as pre- application The same as pre- application -322- APPENDIX L: USING THE COASTAL RESOURCE AND DEVELOPMENT POLICIES INTRODUCTION For the purpose of illustrating the use of the Location Policy step of the Coastal Resource and Development Policies (See Chapter Four), this case study assumes that either a development application has been received by DEP for a residential development with boat launching and mooring facilities or that DEP has initiated a prospective analysis of acceptable development of the area. The site to be studied is located in Pine Beach and Ocean Gate Townships in Ocean county (see location maps). This site is in the Central Region which is designated High Growth. The site is one of those used in the DEIS, to allow for comparision. The study area was selected because it has a good mix of Water, Water's Edge, and Land Areas, variation of development potential and some Special Areas. The distribution of development acceptability in the site is characteristic of the Central Region. The policies, as revised in the FEIS, have not altered the dis- tribution of use acceptability in the Water or Water's Edge areas, except to vary slightly the extent of the Filled Water's Edge. The policy regarding the White Cedar Area also remains unchanged. On land, however, the implications of various policy revisions are illustrated in this case. For example, forested Atsion soils adjacent to stream channels are categorized as high environmental sensitivity areas. Also, medium development potential does not override high environmental sensitivity in growth regions. The area of Atsion soils near the center of the study area is thus designated for low intensity development, whereas in the "DEIS this area had been acceptable for moderate intensity development constructed to wet soil standards. In another revision, the land areas of medium development potential and medium or low environmental sensitivity have been designated as acceptable for high, rather than medium development intensity. The result of these revisions in high growth areas is, therefore, to conserve some larger areas of the most sensitive land within a more intensely developed settlement pattern, rather than distributing open space among dispersed moderate intensity development. The reason for this change is the general policy of promot- ing concentrated development in high growth regions. -323- CLAM CASE STUDY ILLUSTRATIVE EXAMPLE STUDY AREA LavaU Seaside Seaside REGIONAL LOCATION MAP SCALE: |: 100,000 I I I 1 N LOCATION MAP SCALE: 24,000 I OOO 1 000 I I _l k sooo _J rctT ;c.i*ct' us c.s. TcrocKtPMtc cuiar.ikSLt >_IfiJLS Riyxfi_ ■f -324 - STUDY CLASVI GAS! ILLUSTRATIVE EXAMPLE DETAIL STUDY AREA "" ' ^r-."! LOCATION MAP SCALE- |: 2400 O IOC too 300 1 1 * 1 1 SOi*CE' WETLANDS MAP 399- 2142 T Nl -^-r— • -325- Step 1: Identify Site and Surrounding Region For the purposes of illustration, it has been assumed that an application has been received by DEP for residential development with boat launching and mooring facilities on a site adjacent to the Toms River in Ocean County. Mill Creek diagonally cuts through the site as it flows into the river. The site and its surrounding region are therefore located and mapped on the appropriate USGS topographic quadrangle . Step 2: Identify and Map Special Areas There are two Special Areas located on this particular site: an Anadronous Fishing Area (Finfish Migratory Pathway) and an area with White Cedar Stands. Data Source: H. E. Zich "New Jersey Anadromous Fish Inventory" J. McCormick and L. Jones, "The Pine Barrens Vegetation Geography", or NJDEP Bureau of Forestry Maps. AF-ANAD^OMO^S "FlSH WC- WHITE CEDAR STANDS Step 3: Identify and Map Water Areas The only Water Area present in the study site is a small creek. Data Source: NOAA/NOS Charts or USGS 7 1/2 minute Topo Quads or NJDEP Photo Quads. Water Areas -326- S = Small Streair K = F.arbor Area Step 4: Ident i f y and Map Water's Edge Area This site has Filled and Natural Water's Edge Areas . Data Source: SCS County Soil Survey or USGS 7 1/2 minute Quads or NJDEP Wetlands Map. FW " FlLLtt) WATER'S =D6-£ NW- NATURAL V\*AT£-ft-S £:>^£ Step 5: Identify and Map Land Areas The development potential for this site is generally medium; however, a few tracts north of Mill Creek have high development potential. All the Land Areas on the site are medium environmental sensitivity areas, except, for one tract south of Mill Creek which is a high environmental sensitivity area. This site is in a High Growth Region. Data Source: (a) Roads UGSG 7 1/2 1 minute Quads or Site Survey (b) Sewage NJDEP Atlas of New Jersey sewer overlays or County or municipal surveys or Utility company surveys or NJDEP Division of Water Resources (c) Infill NJDEP Photoquads or a more re- cent air photograph or Site Survey Development Potential Environmental Sensitivity -327- Step 6: Determine Location Acceptability — -•, -- ' • ■ -i • V * ' • * •.-• ■ -j r . . r* ■ -.■ - .* --, -■'• ? .i r .- ■ --4 .-: r" »" ' £^~- LOCATION ACCEPTABILITY MAP SPECIAL VALUE Photoquad of sample area 1. Finfish Migratory Pathways - Development conditional on mitigation measures. 2. White Cedar Stands - Development prohibited. WATER'S EDGE 3. Natural - Development conditional on water access, prudent alternatives, adjacency to existing water development, minimum altera- tion of on-site vegetation. A. Filled - Development conditional on water dependent use, and if site reclamation is infeasible . LAND 5. Low Intensity Development 6. High Intensity Development CONCLUSION In brief, on the basis of the Location Policy, high density residential development is acceptable in areas marked with a "6". -328- APPENDIX M - COMMENTS AND RESPONSES ON THE NJCMP - BOSS AND DEIS "If we are going to use littoral acronyms, we may complement CLAM with Method for Use Siting in Suitably Elected Locations (MUSSELS), or even Finding Industries Suitable Homes (FISH)" Roger Thomas Committee for Better Environment June 30, 1978 TABLE OF CONTENTS I. INTRODUCTION LIST OF COMMENTORS II. RESPONSE TO GENERAL QUESTIONS A. Legal Authority B. Segmentation Requirements C. Soc io-Economic Impacts D. Consideration of Cumulative Impacts E. Master Plan F. National Interests G. Geographic Areas of Particular Concern H. Relationship Between Departments of Energy and Environmental Protect ion Comment Number Comment Number 1 General Questions III. COMMENTS BY TOPIC FROM NEW JERSEY AGENCIES, GROUPS AND INDUSTRIES COASTAL POLICIES 49 NEPA Summary 54 General Coastal Policies 84 Basic Coastal Policies 93 Boundary 101 General Location Policies 126 Special Water Areas 154 Water Areas 157 Water Acceptability Tables 170 Water Acceptability Conditions 190 Special Waters Edge and Land Areas 194 High Risk Erosion Areas 204 Dunes 208 Central Barrier Island Corridor 215 Flood Hazard Areas 219 Historic Resources 222 Specimen Trees 224 Prime Forest Areas 227 Prime Wildlife Habitats 231 Public .Open Space 236 Prime Agricultural Area 243 Bogs 245 Stream Heads 246 General Waters Edge 247 Lower Water Edge 261 Upper Water Edge 267 Retained Waters Edge 275 Filled Waters Edge 277 General Land Areas 278 Depth to Sasonal High Water Table 280 Soil Permeability Factor 284 Soil Fertility 289 Vegetation Index 283 Development Potential 341 Regional Growth Potential 353 Land Acceptability Tables 375 Composite Mapping 379 General Location Policies -329- Comment Number 386 Housing Use Policies 423 Resort/Recreational Use Policies 454 Public Facility Use Policies 465 Ports 466 Industry Commercial Use Policies 476 Shore Protection Use Policies 483 General Resource Policies 485 Marine Fish and Fisheries 488 Water Quality 489 Surface Water Use 492 Groundwater Use 496 Run Off 513 Soil Erosion and Sedmimentat ion 514 Vegetation Comment Number 514 Wildlife 520 Air 521 Public Services 522 Public Access to Shorefront 530 Scenic Resources and Design 532 Secondary Impacts 539 Buffer and Compatibility of Uses 544 Solid Waste 546 Energy Conservation 547 Neighborhoods and Special Communitie 549 Traffic 550 Clam Case Appendix ENERGY 552 564 568 581 584 589 590 596 599 600 603 609 620 627 634 General Energy Federal Preemption General Energy Facility Siting Policy General Outer Continental Shelf Policy Onshore Support Bases Pipeline Coating Yards Pipelines and Associated Facilities Gas Processing Plants Storage of Crude Oil, Natural Gas, and other Potentially Hazardous Liquid Substances Tanker Terminals Base Load Electric Generating Stations Nuclear Electric Generating Stations Liquid Natural Gas Conservation and Alternative Technologies Federal Consistency MANAGEMENT SYSTEM 638 General 677 Procedures 694 Local Authority 711 Uses of Regional Benefit 716 National Interest 718 Participation 714 Next Steps 769 Detail Changes IV. COMMENTS BY ORGANIZATION FROM FEDERAL AGENCY AND THE NATIONAL GROUPS 778 NEW JERSEY PETROLEUM COUNCIL 836 NATURAL RESOURCES DEFENSE COUNCIL 938 FEDERAL AGENCIES -330- 938 Department of Agriculture 962 Department of Commerce - NOAA 965 Department of Defense 971 Department of Defense (Air Force) 974 Army Corps of Engineers 986 Department of Energy 1003 Department of Housing and Urban Development 1009 Department of Interior 1046 Department of Transportation 1055 Environmental Protection Agency 1125 Federal Energy Regulatory Commission 1136 Nuclear Regulatory Commission Introduct ion This appendix identifies the commentors and presents responses to the issues raised during the public review period for the New Jersey Coastal Management Program - Bay and Ocean Shore Segment and Draft Environmental Impact Statement (May 1978), including Part II, Chapter Three, Coastal Resources and Development Policies, which was proposed for adoption as a rule under the New Jersey Administrative Procedures Act (See 10 N.J.R. 184, New Jersey Register, May 4, 1978, p. 4). This appendix makes no attempt to distinguish between comments on the Coastal Management Program - Bay and Ocean Shore Segment, or Program, prepared by the State of New Jersey, comments on the Draft Environmental Impact Statement (DEIS), prepared by NOAA-OCZM, and comments on the Proposed Rules on Coastal Resource and Develop- ment Policies, or Proposed Rules, proposed for the adoption by the Commissioner of the New Jersey Department of Environmental Protection, due to the combined format of the document and the interrelated nature of the comments. For a list of the recipients of the combined Progr am-DEIS , see Appendix H of the DEIS (May 1978). The State and Federal responses to those comments have been coordinated between NOAA-OCZM and DEP-OCZM- The responses to the comments take one of a combination of formats: (1) Expansion, clarification, deletion or revision of the NJCMP-BOSS and DEIS, including the Proposed Rules, (2) Comments by DEP-OCZM and NOAA-OCZM in response to issues raised. Several general issues were raised by a 'number of commentors; this appendix pre- sents detailed responses to these issues. All other comments are answered spe- cifically, usually with reference to specific changes in the Program and revisions reflected in the Final Environmental Impact Statement. This Appendix will be of most value if readers refer to the Draft EIS released in May 1978 as well as the present document. Copies of the DEIS are available from DEP. The comments are divided into three sections. Part II includes responses to central questions and some of the specific comments which led to the responses. Part III lists and responds to each other comment made by all commentors not included in Part IV. These comments are arranged by topic. Lastly, Part IV notes and responds to the comments made by the New Jersey Petroleum Council, Natural Resources Defense Council and federal agencies. List of Commentors NOAA-OCZM and DEP-OCZM received comments from public agencies, interest groups, companies and individuals both in writing and at the three public meetings conducted jointly by NOAA-OCZM and DEP-OCZM officials at Bridgeton (June 13), Toms River (June 14), and Trenton (June 15). Verbatim transcripts of the three hearings, prepared by certified shorthand reporters, may be consulted at the NOAA-OCZM and DEP-OCZM offices. This appendix identifies all commentors, and indicates whether the comments were made in writing or at a public hearing. In some cases, the same source provided comments on several occasions, but is -331- counted as only one source. In addition, several organizations commented on behalf of the New Jersey Builders Association and New Jersey Petroleum Council; each of those organizations is counted separately. Comments were recieved from the following sources: Federal Agencies 13 State Agencies 7 Regional Agencies 4 County and Municipal Agencies 18 Special Interest Groups 25 Private Sector Individuals 9 TOTAL 85 —332- Comment or Federal Agencies Date Hear i ng Wr i 1 1 (■ n Department of Agriculture Soil Conservation Service P.O. Box 2890 Washington, D.C. 20013 R.M. Davis, Administrator June 16 X Department of Commerce National Oceanic and Atmospheric Adrninistrat ion National Marine Fisheries Service Federal Building, 14 Elm Street Gloucester, Mass. 01930 William G. Gordon, Regional Director July 3 Department of Defense Deputy Assistant Secretary of Defense (Installations and Housing) Washington, D.C. 20301 Perry J. Fliakas, Deputy Assistant Secretary June 19 Department of the Army Office of the Chief of Engineers Washington, D.C. 20314 Drake Wilson, Deputy Director of Civil Works June 16 X Department of the Air Force Regional Civil Engineer, Eastern Region 526 Title Building, 30 Pryor St.,S.W. Atlanta, Georgia 30303 Robert L. Wong, Chief Environmental Planning Division June 27 Department of Energy Deputy Assistant Secretary Oil, Natural Gas & Shale Resources Washington D.C. 200461 Dobie Langenkamp No date Federal Energy Regulatory Commission Washington, D.C. 20426 Carl N. Shuster, Jr. Coordinator, Coastal Zone Management Affairs June 19 -333- Comment or Federal Agencies (continued) Date Hearing Written Environmental Protection Agency Region II 20 Federal Plaza New York, New York Michael Bonchonsky, Acting Chief, Environmental Impacts Branch June 26 Department of Housing and Urban Development Assistant Secretary for Community Planning and Development Washington, D.C. 20410 Robert C. Erabry, Jr., Assistant Secretary June 23 Department of Interior Assistant Secretary - Policy, Budget and Administration Washington, D.C. 20240 Larry E. Meierotto, Deputy Assistant Secretary June 21 Fish and Wildlife Service 112 West Foster Avenue State College, Pa. 16801 Edward Perry, Environmental Planner June 28 Department of Transportation Regional Representative of the Secretary 26 Federal Plaza, Room 1811 New York, New York 10007 Norman H. Huff, Senior Staff Officer No date Nuclear Regulatory Commission Washington, D.C. 20555 Robert G. Ryan, Director Office of State Programs June 20 -334- Comment or Date Hear ing Wr i 1 1 <-n State Agencies New Jersey State Legislature Office of Fiscal Affairs State House, Suite 232 Trenton, New Jersey 08625 Thomas L. Bertone, Director Budget Review June 16 Department of Community Affairs 363 West State Street Trenton, New Jersey 08625 Patricia Q. Sheehan, Commissioner Richard A. Ginman, Director Division of State and Regional Planning Jay T. Fiedler Bureau of Urban Planning June 15 June 28 July 11 X X Department of Education New Jersey State Museum 205 West State Street Trenton, New Jersey 08625 Karen Flynn, Registrar Bureau of Archaelogy & Ethnology June 16 Department of Labor and Industry Labor and Industry Building Trenton, New Jersey 08625 John J. Horn, Commissioner Department of the Public Advocate Division of Public Interest Advocacy P.O. Box 141 Trenton, New Jersey 08625 R. William Potter, Deputy Director June 30 -335- Comrnentor Date Hearing Written Regional Agencies Delaware River Basin Commission P.O. Box 7360 West Trenton, New Jersey 08628 J.W. Thursby, Head Environmental Unit July 3 Delaware River Port Authority World Trade Division Bridge Plaza Camden, New Jersey 08101 James R. Kelly, Director June 30 Port Authority of New York and New July 3 Jersey Planning & Development Department One World Trade Center 72S New York, New York 10048 Clayton Pcavey, Deputy Director Tri-State Regional Planning Commission June 2 Regional Development Division One World Trade Center New York, New York 10048 Stephen C. Carroll, Director X -336- Comment or Date H'-r'(r i ng Wr it ten County and Municipal Agencies Atlantic County Executive's Office 741 Guarantee Trust Bldg. Atlantic City, New Jersey 08401 Charles D. Worthington, County Execut ive June 16 Camden County Environmental Agency Camden, New Jersey Prepared by William G. Hengst, Consultant to the Camden County Environmental Agency. Cape May County Planning Board Cape May Court House, New Jersey 08210 Elwood R. Jarmer, Director June 30 June 13 June 19 X X Cumberland County Planning Beard 800 East Commerce Street Bridgeton, New Jerey 08302 John Holland, Director Czeslawa Zimolzak, Senior Planner Cumberland County Board of Chosen Freeholders, Freeholder Director Charles Fisher, by James Oglive, Public Relations for Cumberland County 134 North Pearl Street Bridgeton, N.J. 08302 June 13 June 30 July 5 X X X Cumberland County Economic Development Board Dr. Phillip Phelon, Chairman July 1 Gloucester County Planning Department Clayton, New Jersey 08312 Charles E. Romick, Coastal Management Program Coordinator Cumberland County Agricultural Extension Agent County Court House Bridgeton, N.J. 08302 Harry H. Fries June 13 -337- Commentor Date Hear ing Written County and Municipal Agencies (continued) Middlesex County Planning Board 40 Livingston Avenue New Brunswick, New Jersey 08901 Douglas Powell, Director June 14 Deborah Malek, Staff June 30 Lower Raritan/Middlesex County 208 June 30 Water Quality Management Program Middlesex County Planning Building 40 Livingston Avenue New Brunswick, New Jersey 08901 John Runyon, Chairman, PAC Monmouth County Planning Board July 1 1 Lafayette Place Freehold, New Jersey 07728 Robert W. Huguley, Principal Environmental Planner June 14 Ocean County Planning Board June 14 1 Madison Avenue Toms River, New Jersey 08753 Alan Avery, Assistant Planner Salem County Planning Board "-June 11 Court House Salem, New Jersey Christopher J. Warren, Acting Planning Director X X X X X Borough of Carteret Middlesex County, N.J. Lawrence Township Planning Board Lawrence Township, N.J. Alvin Griffith, Secretary June 21 June 13 Middletown Township Environment Commission July 6 Kings Highway Middletown, N.J. 07748 Lynden J. Kibler, Chairman City of Ocean City City Hall Ocean City, New Jersey 08226 Stephen Gabriel, Mayor's Staff Advisor for Coastal Zone Mgt . Alicia Gregg, Public Relations Dept. Borough of Sea Bright Environmental Com. Monmouth County, New Jersey Loretta C. Hanley, Secretary June 14 June 21 June 14 No date X X ^338- Comment or Date Hearing Wr i 1 1 e n Special Interest American Association for University Women, New Jersey Division 9 West Beardsly Avenue Brant Beach, New Jersey 08008 Winifred D. Meyer, Legislative Chairwoman June 14 American Littoral Society Sandy Hook Highlands, New Jersey 07732 D.W. Bennett Dana Rowan Anna Penna Citizen Association to Protect the Environment (CAPE) South Dennis, New Jersey 08245 Ruth Fisher June 14 July 7 June 15 June 15 X X X X X X Committee for A Better Environment P.O. Box 209 Holmdel, New Jersey 7737 Roger Thomas June 30 X Lacey Township Chamber of Commerce Joseph Heeney June 14 League for Conservation Legislation Box 205 Teaneck, New Jersey 07666 Michael Havrisko, Legislative Agent June 15 League of Women Voters Of New Jersey 460 Bloomfield Avenue Montclair, New Jersey 07042 Kathleen H. Rippere Water Chairman June 27 X Marine Trades Association of New Jersey P.O. Box 70 Island Heights, New Jersey 08732 Michael Redpath, Executive Director Mercedes Johnson Natural Resources Defense Council, Inc 917 Fifteenth Street, N.W. Washington, D.C. 20005 Frances Beinecke, Atlantic Coast Project June 13 June 14 June 16 June 15 June 15 July 5 X X X X X X X X X -339- Commentor Date Hearing Written Special Interest (continued) New Jersey Conservation Foundation 300 Mendhara Road Morristown, New Jersey 07960 Darryl F. Caputo, Assistant Director July 5 New Jersey Independent Liquid Terminal Association 60 Park Place Newark, N.J. 07102 by Thomas V. O'Neill of Regional Public Relations, Inc. June 22 July 3 X X New Jersey Petroleum Council 170 West State Street Trenton, New Jersey 08608 Leonard Ruppert, Executive Director N.J. Builders Association June 15 Joseph Todino, Chairman CAFRA Committee June 14 Comments prepared by Michael J. Gross, Esq. Giordano, Halleran & Crahay 1005 Hooper Avenue Toms River, N.J. 08753 June 14 'June 22 June 30 X X Additional comments submitted on behalf of the N.J Builders Association by the seven following builders and consultants Barrymor Enterprises Inc. 81 River Avenue Lakewood, New Jersey 08701 Barry Weshnak, Vice President June 9 X Canetic Corporation Taunton Avenue P.O. Box 41 Berlin, New Jersey 08009 Craig Cunningham June 19 Dresdner Associates Land Use and Environmental Consultants P.O. Box 624 Summit, New Jersey 07901 Allen Dresdner June 12 -340- Commentor Special Interest (continued) Date Hearing Wr it ten Fellows, Read and Weber, Inc. Consulting Engineers 310 Main Street CN 25 2546 Toms River, New Jersey 08753 Joseph R. Read Maestro Associates 3 Spencer Lane ' RD #1 Absecon, N.J. 08201 Robert Maestro June 20 June 15 Townplan Associates 26 Main Street Dover Township Toms River, New Jersey 08753 Thomas A. Thomas, President June 30 Wilcox, Gravatt & Kacunda, Inc. Rt . 9 and Murray Grove Lane P.O. Box 756 Forked River, New Jersey 08731 George A. VanSant New Jersey State Chamber of Commerce 5 Commerce Street Newark, New Jersey 07102 Donald H. Scott, President June 16 July 5 Sierra Club 360 Nassau Street Princeton, New Jersey 08546 Diane Graves, New Jersey Chapter West Jersey Group United States Labor Party Robert Bowan June 15 July 15 June 15 X X Daniel O'Connor Save Our River Environment Port Norris, New Jersey June 13 -341- Commentor Private Sector Date Hearing Written Columbia Gas System Service Corp. 20 Montchanin Road Wilmington, Delaware 19807 Robert W. Welch Jr. , Vice President-Environmental Affairs June 19 Debevoise and Liberman 700 Shorehara Bldg. 806 15th Street, N.W. Washington, D.C. 20005 On behalf of Public Service Electric and Gas, Jersey Central Power and Light, and New Jersey Natural Gas; Comments addressed to NOAA-OCZM on NJCMP-BOSS and DEIS. June 21 On behalf of Public Service Electric and Gas, Jersey Central Power and Light, and New Jersey Natural Gas; Comments addressed to NJDEP on Pro- posed Rules on Coastal Resource and Development Policies. July 5 Jersey Central Power and Light Co. Madison Avenue at Punch Bowl Rd. Morristown, New Jersey 07960 by Riker, Danzig, Scherer and July 5 Debevoise and Hyland 744 Broad Street Newark, N.J. 07102 Jesse S. Morie and Son, Inc. June 15 P.O. Box 35 Noble Street June 27 Mauricetown, New Jersey 08329 "by Gary Caprenter, Director of Governmental Affairs, on behalf of Pennsylvania Glass Sand Corp, Whitehead Brothers Co. , George F. Petinos, Inc., and Unimin Corporation Public Service Electric & Gas Co. June 15 80 Park Place Newark, New Jersey 07101 James A. Schissias, General Manager, Environmental Affairs X X -342- Comment or Date Hearing Written Private Sector (continued) Unimin Corporation Greenwich Office Park 4 Greenwich, Connecticut 06830 Kenneth Brunk, Vice President for Technology June 30 Individuals Mrs. Leo B. Bicher Jr . Normandy Beach, New Jersey June 14 Al Coleman Pennsville, N.J June 13 Mary and John Dowdy 2111 River Street Camden, New Jersey 08105 June 15 Fred Gentile Fairfield Township June 13 Thomas Henry Sea Isle City, New Jersey June 13 L.R. Hudson Bay Point, New Jersey June 13 Katherine Kievitt Ocean and Second Avenues S. Seaside Park, N.J. 08752 June 14 Alexander Ogden Port Norris, New Jersey June 13 Alvin Wagner Secretary-Treasurer of Sunrise Beach, Inc. June 14 -343- RESPONSES TO GENERAL QUESTIONS Eight issues were raised by a sufficient number of comment ors that they have each been addressed in detail. This section phrases the general questions and provides DEP's response. The specific comments from which the general questions were formed are listed after the eight responses. A. DOES THE STATE HAVE ADEQUATE LEGAL AUTHORITIES TO MEET THE REQUIREMENTS OF THE FEDERAL COASTAL ZONE MANAGEMENT ACT (CZMA)? • The New Jersey Bay and Ocean Shore Segment has been submitted as a direct state control program (Section 306(e)(1) B) to meet the requirements of the CZMA. This particular section of the Act allows a state to develop a program based on a "single, comprehensive piece of legislation specific to coastal management and the requirements of this Act, or on the basis of several different, often pre-existing State authorities which are compatible with and applied on the basis of the coastal management policies." [923.42(d)(1)]. For the Bay and Ocean Shore Segment, the policies of the program have been promulgated as regulations for the Coastal Area Facility Review Act, Wetlands Act, Waterfront Development Fermit Program and Shore Protection Program, thus assuring that these programs will be operating consistently with the program. In addition, the policies applicable to the the Spill Control and Compensation Act and the Soil Ercsion and Sediment Control Act as well as to the Federal Clean Air Act and Federal Water Pollution Control Act have been drawn directly from those acts or their existing regulations or are incorporated by reference, thus assuring consistency with the program. Other DEP programs such as the Stream Encroachment Act, Flood Hazard Areas Act, Waterway Maintenance Program and the Green Acres Program will be consistent with the program by being subject to receiving permits "from the CAFRA, Wetlands and riparian programs and/or by virtue of the. Commissioner's letter at the beginning of the FEIS which states that each agency within DEP will act consistently with the policies of the Bay and Ocean Shore Segment as outlined in Chapter Four. Spe- cifically, Section 1.3 of the adopted rules (Chapter Four) states that the policies of the program will apply, to the extent statutorily permissible, to all coastal management and planning actions of DEP. Also, Chapter Five has outlined a conflict resolution process for resolving conflicts within DEP on actions affecting the coastal zone. Portions of the Department of Energy Act will also apply to the program as described in General Question H, Chapter Five and the Memorandum of Understanding in Appendix G. Under the requirements of Section 306(e)(1) B, the State must demonstrate control over a sufficiently broad range of activities that have a direct and significant impact on coastal resources. Local governments need not be directly involved under this option. NOAA has determined that the range of authoritites New Jersey has outlined in the Bay and Ocean Shore Segment is sufficiently comprehen- sive to meet the requirements of Section 302 and 303 of the CZMA and to meet the authorities requirement of Section 306(e)(1)(B). New Jersey is not required to identify the authorities upon which it will rely outside the Segment until it submits the second, and final, part of its program. -344- B. HOW DOES NEW JERSEY MEET THE REQUIREMENTS OF SECTION 306(h ) -PROGRAM SB4 ' NA- TION? Many commentators questioned whether New Jersey has met the requirements of CZMA regulation 923.61 which establishes that states must identify the boundary and a means for consideration of the national interest throughout the entire coastal zone. The state has proposed a management boundary for the entire state (see Chapter Two and Appendix E) based on: *•) Bay an d Ocea n Shore Segment The landward and seaward boundary as defined in Chapter Two of the FEIS., 2.) Hackensack M eadowlands The area defined by the jurisdiction of the Hackensack Meadowlands Development Commission. ^•^ Del aware River Waterfront from the Delaware Memorial Bridge to Trenton:' The area from the water's edge inland to the first read or cultural feature . 4.) Northern Waterfront from Raritan Bay to the New York border: The area from the water's edge inland to the first road or cultural feature . The Hackensack Meadowlands, Delaware River, and Northern waterfront areas will be combined with the Bay and Ocean Shore to form the entire State program in 1979. The State has established a timetable and budget for completing the remainder of the State program to meet the requirements of 923.61(a)(2), (See Chapter Eight). There seems to be confusion by some of the commentors over the requirements of 15 CFR 923.61(a)(3) of the federal regulations. This section recognizes that, before a program segment can be approved, it must meet approval requirements in the Coastal Zone Management Act and implementing regulations, just as a total program must. It also provides that the state must demonstrate that it will exercise policy control over each segment of its management program with respect to future segments. This requirement refers to control to be exercised in the future, after adoption and approval of such additional segments. If total policy control were in effect at the present time, the whole purpose of segmented approval would be obviated. In section 923.61(a)(3), two elements are specified which, at a minimum, must be considered by states at the time of segment approval: (a) boundary deter- mination and (b ) national interests in major facilities. Although such elements for future segments need not be in effect or operation at the time of approval of an earlier segment, the state must include at such earlier time a general descrip- tion of its consideration of at least these two elements. New Jersey has completed the management boundary for the Bay and Ocean Shore Segment and has proposed a management boundary for the remainder of the State's coastal zone. The state does not need to identify the authorities upon which it will rely in this area at this time. -345- New Jersey has also met the requirements defined in Section 923.61(a)(3) of the federal regulations for consideration of the national interests in a coastal zone segment. The state considered the national interests throughout the entire coastal zone in preparing the program for the Segment. Such consideration is demonstrated by the policies in Chapter Four, and is described specifically in Chapter Six. In addition, New Jersey will continue to consider the national interests in its preparation of a program for the rest of the coastal zone. NOAA will not approve the second, and final, part of New Jersey's program unless such consideration is demonstrated, and continued consideration is assured as the program is implemented. NOAA has determined that this is adequate to meet the requirements of Section 306(h). C. DOES THE BAY AND OCEAN SHORE SEGMENT ADEQUATELY EVALUATE THE SOCIO-ECONOMIC IMPACTS OF PROGRAM IMPLEMENTATION? It is not possible to discuss in an EIS the literally limitless decisions affecting environmental, social and economic variables that may be made by indivi- duals and organizations influenced by the implementation of the state coastal zone management program. The program itself generally provides a broad rationale for the more important decisions which are reached, and specific rationales for each pol icy . The principal concern of the commentors is a more detailed discussion of such potential socio-economic factors as the gain or loss of jobs, shifts of economic benefits to individuals or corporations, or the increase or loss of tax revenues to local governments which might result from program approval and imple- mentation. The summary of Social and Economic Impacts in Part III, while general and intentionally concise, fully satisfies any requirements that the National Environmental Policy Act (NEPA) may impose as to discussion of socio-economic impacts. The impacts of a program on specific sites cannot be discussed because of the broad range of actions by individual land owners, interest groups and municipal and other governmental agencies. Thus, this EIS cannot be as specific as an EIS on a particular project. Furthermore, the purpose of NEPA is to insure that the broad range of environ- mental factors are adequately analyzed prior to federal actions which will signi- ficantly affect them. Courts have consistently held that socio-economic impacts alone are not protected by the National Environmental Policy Act. Rather they are significant only in conjunction with related environmental impacts. Neverthe- less, it should be noted that New Jersey has used social and economic factors as criteria for designing its coastal program. Although consideration of these factors does not lend itself to useful quantification, the many specific policies demonstrate the state's consideration of these issues. D. HOW WILL THE COASTAL PROGRAM MANAGE THE CUMULATIVE IMPACTS OF SMALL PROJECTS NOT REGULATED UNDER CAFRA AND OF COASTAL DEVELOPMENT IN GENERAL? Some commentors of the DEIS for the Bay and Ocean Shore Segment questioned how the State would address the cumulative impacts of developments not regulated under CAFRA. In 1973, the New Jersey Legislature established the threshold for coastal development permits under CAFRA at 25 or more dwelling units for new housing developments. On April 1, 1977, DEP adopted Procedural Rules and Regu- lations under CAFRA which defined the threshold limit for CAFRA review of com- mercial facilities at 300 or more parking spaces for motor vehicles. (N.J.A.C. -346- 7:7D-2.2.) This definition of commercial facilities is presently under litigation ( New Jersey Home Builders vs. PEP) and any changes to this administrative rule will require a revision to this program reflecting such changes. The interim final federal regulations (15 CFR 923) promul gated pursuant to the CZMA do not require that a state address the cumulative impact of a series of small scale developments. The regulations speak instead in terms of issues of concerns to the state in its effort to protect and manage coastal resources. Given the developed nature of much of the shoreline of this proposed segment, NOAA believes that the decision of New Jersey to review all subdivisions in wetlands and riparian land and to limit review to major projects elsewhere in the Segment is a reasonable interpretation of the program approval requirements. This is not to say that the New Jersey program does not consider and, to a large extent, manage cumulative impacts from a number of sources. First, the Resource Policy on Secondary Impacts (Section 5.14 of Chapter Four) insures that each decision subject to the Coastal Program will consider the potential impact on future development. Furthermore, the Coastal Location Acceptability Method is designed such that each decision will be influenced by existing development in the area.. Second, the small developments not directly regulated by the Coastal Frograra are indirectly affected by program decisions. The funding and siting of infra- structure, such as sewers, roads, and shore protection structures, has a major impact on future development. Similarly, the setting of air and water quality standards by DEP influences the pattern of development. Several commentors particularly note.d the impact of the increasing number of boats using New Jersey waters. Decisions made by DEP regarding marina location and size, dredging and maintenance of channels, and boat operation can all help control future boat usage as necessary. E. WHY HAS THE STATE NOT PREPARED A COASTAL MASTER PLAN? DOES THE COASTAL LOCATION ACCEPTABILITY METHOD PROVIDE A SUFFICIENTLY REASONED AND PREDICTABLE TECHNIQUE FOR COASTAL DECISION MAKING? A master plan is a collection of published geographic criteria sufficient to enable coastal policy to be determined in any location. Many commentors are uneasy because New Jersey has not prepared the colored maps traditional to master planning. The inclusion of a new chapter entitled "A Vision of the Coast" (Chapter Three) and a "Coastal Region" section in Chapter Four (Section 3.5.3) have been added to the FEIS in response to these concerns. DEP chose not to produce a traditional "master plan" for two reasons. The first is that experience with master plans has shown that a static two-dimensional representation showing single use zoning cannot easily adapt to the changing circumstances of development. The second is that master planning and zoning, in the sense of assigning single uses to all areas within a jurisdiction, is the responsibility of local government in New Jersey. For a state agency to pre-empt this role to the extent of designating single use zones would be to deny the major role individual land owners and developers, and local officials play in planning the future of the coast. -347- The role of a state government should be to address regional concerns, to identify where development should be restricted, to protect regional resources, and to identify where development is especially appropriate because of existing regional infrastructure distribution or desired future regional growth patterns. In some cases, it is desirable that regional guidelines be somewhat use specific. The New Jersey program does this, for example, in the planning of scarce area-types such as waterfronts or mineral concentrations, or the identification of development areas for uses with very different location criteria such as housing and energy facilities, or the identification of uses that would bring maximum benefit to economically depressed areas such as labor intensive industry. In general, however, regional planning should be concerned with the patterns of growth of different intensities without proscribing the exact positions and design of individual projects. The fact that the criteria detailed by Chapter Four have not been mapped coast-wide does not mean they cannot be. DEP-OCZM has completed more than fifty case studies in all areas of the coast. In all the cases, the application of the Coastal Resource and Develoment Policies produced acceptability designations. This demonstrates that the technique has general applicability as a reactive process suitable for the permiting programs which are DEP-OCZM's implementation tools, and that the method can be applied to hypothetical or real situations to provide predictability. The Coastal Policies may also be used for prospective planning. The Cape May County Planning Board has completed sub-regional analyses and found that the area-wide application of the geographic criteria of CLAM produces a well reasoned and useful basis for master planning. The analysis produces a general idea of the pattern and extent of buildable acreage "available in a region without degrading stated coastal resources or promoting extensive sprawl. The revised secondary impact policy provides an opportunity to assess impacts on regional carrying capacity . Some of the commentors questioned whether the criteria of the policies are sufficiently reasoned. Brief qualitative rationales were included throughout the Draft EIS and these have been refined and expanded in the final EIS. Wherever possible, DEP-OCZM has used thresholds that have gained consensus through use elsewhere. Frequently in the FEIS the use of single numerical thresholds has been changed to case-by-case maximizations or minimisations of certain elements to allow for the application of new understanding and impact mitigation technology and to allow some flexibility to address the individual variations of sites. The language "to the maximum or minimum extent practicable" has been used in some cases to allow this flexibility. Several commentors have expressed fear that this phrase represents an unacceptable loophole. Experience with the CAFRA legislation which also contains this language has shown that the flexibility in language adds to the workability of the program without sacrificing the intent of the policies. See the "Principles" section of Chapter Four (Section 2.2.). Many comments have also addressed mapping. All the spatial information necessary to make preliminary acceptability determinations under CLAM is presently publicly available as published maps. The soil surveys, the USGS topographic quadrangles, the wetlands maps, the tax records and the bathymetry maps are the chief information sources. Others are specified in the FEIS. The difficulty -348- with this mapped information is that the scale varies widely and therefore com- posite mapping is difficult. DEP-OCZM, in its first application for 306 funding, is proposing mapping efforts to improve the utility of existing data. See Chapter Eight which discusses "Next Steps". F. HAS THE STATE ADEQUATELY CONSIDERED THE NATIONAL INTEREST IN PLANNING FOR AND SITING FACILITIES IN THE STATE'S COASTAL ZONE? Some comments concerned the program's adequacy in considering the national interest in energy facility siting as required by Section 306(c) (8) of the CZMA. The comments suggest that the program's preference for oil fired generation over nuclear and coal-fired generation clearly conflicts with the national goal to encourage nuclear and coal-fired generation to reduce use of oil for generation of electric power. The comments criticized the program's failure to adequately consider the national interest in the orderly exploration, development, and trans- mission of domestic oil and natural gas and importation of LNG. ■v. The coastal program as revised in the Final EIS does not express a preference for oil, natural gas or any other type of electric generation, nor does it exclude LNG or nuclear facilities. The program asks that facilities comply with applicable state and federal regulations, that a need for energy facilities be demonstrated in the State Energy Master Plan, that safeguards be in place, and that the facilities not conflict with areas of environmental sensitivity. The energy policies were written to provide adequate consideration of national health, welfare, and economic well-being. The process for considering the national interest in planning for and siting facilities includes the three step decision-making process outlined in Chapter Four of the Bay and Ocean Shore Segment and utilizes the Energy Report prepared by the New Jersey Department of Energy (DOE) in accordance with the Memorandum of Under- standing (MOU) in Appendix G. Furthermore, Section I of the MOU indicates that DOE will interpret its mandate to "... contribute to the proper siting of energy facilities necessary to serve the public interest ..." as sufficient authority to consider the national interest in the siting of coastal energy facilities. Chapter Four has been adopted as Administrative Rules of DEP which shall apply to CAFRA, the Wetlands Act and the riparian statutes. Thus, whenever a facility requires any one of these permits, the process for consideration of the national interest shall be Chapter Four of the Bay and Ocean Shore management program. If a permit appli- cation for an energy facility is submitted, DEP will forward copies of the appli- cations to DOE which shall submit an energy report for consideration by DEP during its review process. The report shall describe national interests, if any, in the facility. DEP's decision must explain any differences with the report and, if necessary an Energy Facility Review Board can be convened to resolve such dif- ferences. NOAA feels this process is sufficient to meet the requirements for segmentation under 923.61(3)ii. Further, under CAFRA, DEP shall issue a permit only if it finds the proposed facility is located or constructed so as to neither endanger human life or property nor otherwise impair the public health, safety and welfare. The clause "public welfare" has been defined in Section 1.1 of Chapter Four, which has been adopted as Administrative Rules, to include a full consideration of national interests. NOAA feels this process fully meets the continued consideration of the national interest requirement (923.52(3) of the CZMA. -349- G. HAS THE PROGRAM ADEQUATELY ADDRESSED THE GEOGRAPHIC AREAS OF PARTICULAR CONCERN REQUIREMENTS OF THE CZMA? Some comment ors have questioned the State's designation of Areas of Parti- cular Concern (APC) as being too limited. The State has added eight areas to the three noted in the DEIS. Each designated APC has established guidelines regarding priority of uses in these areas which meet the requirements of 923.21(4). The 176 publicly nominated APC's have been distributed to county and local planning groups for incorporation in local master plans. Also, many of the publically nominated APC's have been directly incorporated into Chapter Four as part of the management program. Ninety percent of the nominations fall into four categories (water's edge areas, wetlands, beaches and wildlife habitats) that are specifically addressed in Chapter Four. The remaining to percent of the nominations fall outside the Segment region and will be considered for designation upon completion of the entire state program. DEP has analyzed each nominated area and will publish further analyses by November 1978. H. IS THE RELATIONSHIP BETWEEN NJ DEP AND THE NJ DOE SATISFACTORY FOR PROGRAM APPROVAL, AND IS THE MEMORANDUM OF UNDERSTANDING BETWEEN THE TWO AGENCIES LEGALLY ENFORCEABLE? Several com:nentors questioned the relationship between the Department of Environmental Protection and the Department of Energy. Section 305(b)(b) of the federal CZMA requires a state's management program to include a description of the organizational structure proposed to implement the program. Comment (c) to 15 CFR 923.45 (organizational structure) says "The main purpose of this requirement is to provide a closer understanding of the entities that have responsibility for administering various aspects of the management program and the interrelationship of these entities." NOAA believes that the memorandum of understanding in Appendix G accomplishes this. The Memorandum outlines the decision making process to be followed and the policies on which such decisions will be based. Because both agencies are involved, it insures that all the various interests and needs addressed by the federal Act will be considered in any decision. In short, it clearly outlines the inter-relationship of the two agencies. The procedure outlined by the memorandum has as its end product a CAFRA, Wetlands, or riparian decision, which not only makes the decision accountable to the coastal management policies, but also subject to appeal by affected persons. Assume, for example, that the Energy Department's report failed to adequately consider the national interest, and assume further that the CAFRA permit decision was made on the basis of the Energy report and was therefore in violation of the management policy by virtue of this failure. That decision would be subject to appeal by any aggrieved party. Through this process, the DOE report, would be held responsible to the program's policies. Should a decision be referred by DOE to the Energy Facility Review Board, and keeping in mind that DOE has committed itself to the coastal management policies as well as the Energy Master Plan as the basis for its report, it then becomes a matter of resolving the different interpretations of the coastal policies by DEP and DOE. Such a procedure is recognized as valid in the federal regulations, 15 CFR 923.42 (control techniques). The revised memorandum reflects this in section F.3. -350- Procedural regulations governing the Energy Facility Review Board will be adopted during the first year of Coastal Program implementation (see revised memorandum). Because there are no current, active proposals for energy facilities, in New Jersey, NOAA does not believe that the short-terra absence of such regula- tions will in any way delay or otherwise affect energy facility siting in New Jersey. Several commentors also questioned the fact that the memorandum does not appear to bind the Board of Public Utilities, which would assure state authority to override local decisions that unreasonably restrict or exclude uses of regional benefit (as required by the Federal Coastal Zone Management Act). Because of the procedural posture of appeals to the Board of Public Utilities, it is not necessary that the Board be bound to the Coastal Resource and Developin-nt Policies by a memorandum of understanding. This is because the Board's override authority is limited to municipal siting decisions and does not apply to state, including coastal, decisions. In fact, binding the Board is expressly forbiden by the Department of Energy Act, which provides that "... [the] Board shall be independent of any supervision or control by the Department or by an officer or employee thereof, except as otherwise expressly provided in this Act" (N.J.S.A. 52:27F.6). NOAA recognizes that the Board is not a statewide planning agency. 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