Natural Resources 070213 Gloucester, Virginia

Gloucester County

Comprehensive Plan 2013

1

NATURAL RESOURCES

Gloucester County’s environment includes

many natural resources, including woodlands,

rivers, creeks, and wetlands. These assets, along

with abundant farm land, have provided a

means of livelihood and a high quality of life for

county residents for more than 350 years.

Watermen benefit from the extensive shoreline

and proximity to the Chesapeake Bay, farmers

profit from plentiful good quality soils, and

everyone reaps the rewards of living in a place

of broad rivers, forests, rural landscapes and

waterfront vistas. Maintaining the resources

that support this traditional way of life is a

priority for Gloucester County and serves as a

guiding principle in its growth management

philosophy.

The effects of population growth and land

development impact the natural environment in

many ways. These include, but are not limited

to:

• loss of plant and wildlife habitat;

• contamination of groundwater;

• saltwater intrusion arising from increased

groundwater withdrawals;

• degradation of surface water quality;

• decrease in groundwater recharge and

availability;

• disruption of natural drainage systems;

• air pollution;

• increased solid wastes; and,

• loss of the County’s visual quality.

The impact of growth and development on the

quality of Gloucester’s environment is an issue

of public concern, but environmental

deterioration is not an inevitable consequence

of population growth. Patterns of development

that are detrimental to natural resources can be

identified and mitigated by encouraging growth

in appropriate areas and by ensuring that new

development is designed and constructed in an

environmentally sensitive manner. Areas of

Gloucester County that are more susceptible to

environmental degradation should be identified

and development directed away from them and

guided to areas of the County where

environmental impacts will be less severe. The

County’s “contained growth” philosophy,

together with countywide land use and zoning

ordinances, provide the framework to manage

the location and character of anticipated future

growth in an environmentally sensitive manner.

Legal Framework

Localities are required by state laws and

regulations to address environmental issues

through their comprehensive plans. The same

enabling legislation that allows and requires

localities to create comprehensive plans

specifies what information those plans should

contain. Specifically, localities should designate

areas for various uses such as agriculture,

mineral resources, and flood plains.1 In

addition, localities should designate areas in

order to implement ground water protection

measures and provide maps showing

agricultural and forest areas. To ensure that

comprehensive plans are based on sound data,

localities are required to study a variety of

conditions, including the use of land, the

preservation of agricultural and forestal land,

natural resources, ground and surface waters,

geologic and environmental factors, drainage,

1 Code of Virginia § 15.2-2223

2 Gloucester County


and flood control. Beginning in 2013, localities

will also be required to include coastal resource

management guidance currently being

developed by the Virginia Institute of Marine

Science.2

The Commonwealth also requires localities to

address environmental issues via the

Chesapeake Bay Preservation Act and its

associated regulations.3 The Chesapeake Bay

Preservation Act explicitly authorizes local

governments to protect the quality of state

waters through their police and zoning powers,

and requires them to incorporate the

protection of the quality of state waters into

their comprehensive plans, zoning ordinance,

and subdivision ordinances. The Chesapeake

Bay Preservation Act is enforced by the

Commonwealth through the Chesapeake Bay

Preservation Area Designation and

Management Regulations, which specify the

steps local governments must take to be in

compliance. Localities are required to develop a

local program incorporating several elements,

including:

1. a map delineating Chesapeake Bay

Preservation Areas (CBPAs)

2. performance criteria applying to

developments within those CBPAs

3. a comprehensive plan that incorporates the

protection of CBPAs and of the quality of

state waters

4. a zoning ordinance and a subdivision

ordinance that incorporate measures to

protect the quality of state waters in CBPAs

and require compliance with state

regulations

5. an erosion and sediment control ordinance

or revision that requires compliance with

state regulations, and

2 Code of Virginia § 15.2-2223.2

3 Code of Virginia § 10.1-21

6. a plan of development process that

assures that development within CBPAs

will protect the quality of state waters

prior to the issuance of any building

permits

The regulations go into further detail for each

program element. Comprehensive plans are

required to incorporate data collection and

analysis, policy discussions, maps, and

measures to implement local and state water

quality goals. Specific topics mentioned in the

regulations for data collection and policy

discussions are the location and extent of

CBPAs, physical constraints to development,

fisheries and other aquatic resources, shoreline

and streambank erosion problems, land use,

existing and potential water pollution sources,

public and private waterfront access, the

mitigation of development impacts on water

quality, and the use of redevelopment to

improve water quality.

In response to concerns about water quality

and the health of the Commonwealth’s coastal

resources, the General Assembly passed

legislation in 2011 that established “living

shorelines” as the preferred alternative in

Virginia for shoreline management in terms of

erosion control and water quality protection.

This legislation required the Virginia Marine

Resources Commission (VMRC) to develop and

implement a general permit that “authorizes

and encourages the use of living shorelines as

the preferred alternative for stabilizing tidal

shorelines in the Commonwealth” and the

Virginia Institute of Marine Science (VIMS) to

develop comprehensive coastal resource

management guidance for local governments.4

Beginning in 2013, localities will be required to

include this guidance in their comprehensive


Gloucester County


3

plans and plan updates.5 Although VIMS has not

developed specific guidance for Gloucester

County, general guidance, tools, and best

management practices have been completed;

this information is included in a later section of

this chapter.

Existing Conditions and Trends

Location and Climate

Gloucester County occupies the southernmost

part of Virginia’s Middle Peninsula, bounded by

King and Queen, Middlesex, and Mathews

Counties, and by the York River, Piankatank

River, and the Chesapeake Bay. Gloucester

County encompasses a total land area of 225

square miles and is characterized primarily by

flat terrain with a few areas of steep slopes

(defined as over a 15 percent grade) in the

northern and western areas of the County.

Gloucester’s climate is influenced by its

proximity to the Chesapeake Bay and Atlantic

Ocean, generally resulting in mild winters and

warm, humid summers. National Weather

Service (NWS) monitoring stations are located

nearby in Mathews County and in the Town of

West Point in King William County. Data from

both stations indicates that the average annual

temperature in the Gloucester area is 57°F to

59°F. January is normally the coldest month,

while July is the hottest. The average annual

rainfall is about 45 inches and is well distributed

throughout the year.

According to the National Climatic Data Center

(NCDC), the most frequently reported weather

events in the County are thunderstorms, severe

lightning, high winds, and flash flooding. In


addition to summer thunderstorms, major

producers of rainfall in Gloucester include

northeasters and tropical storms. Hurricanes

occasionally bring heavy rain, high winds, and

tidal flooding. The most significant weather

events in recent years include Hurricane Isabel,

which struck on September 18, 2003 and an

April 2011 tornado. Flooding from the storm

surge of Hurricane Isabel caused extensive

property damage in the region and many trees

were uprooted. The April 2011 tornado

destroyed homes, cost lives, and rendered Page

Middle School unsuitable for use. Storms like

the November Nor’easter of 2009 also caused

flooding in the County. Increased flooding from

“typical” weather events has been noted over

the last decade, with less severe storms causing

flooding in portions of the County.

Soils

A current survey of Gloucester soils is available

from the Natural Resources Conservation

Service (NRCS), part of the U.S. Department of

Agriculture.6 Map NE-1 shows soil types in the

County, according to the NRCS. The soils of

Gloucester County are formed from

unconsolidated marine sediments and vary

from east to west. Most of the area west of a

line running from Hayes north to Dutton

contains generally deep, well-drained

permeable soils, although it also contains some

sandy ravines. The majority of agricultural land

and forests are located in this part of the

County. To the east of this line, the County is

characterized by lower elevation and a high

percentage of soils with wetness problems.

These soils also have a high clay content that

6 This data can be viewed online through the

NRCS Web Soil Survey Tool at http://websoilsurvey.nrcs.usda.gov/app/HomePage.htm

4 Gloucester County


restricts the movement of water and limits its

utility for a variety of land uses.

Soils are classified using a taxonomy developed

by the Natural Resources Conservation Service,

which has six levels: orders, suborders, great

groups, subgroups, families, and series.

Gloucester County's numerous soil types fall

under five different soil orders: histosols,

ultisols, alfisols, inceptisols, and entisols.

Histosols are composed mainly of decomposed

organic matter, such as that found in wetlands

or bogs. Ultisols are forest soils that have lost

much of their minerals which can support

agriculture. Alfisols are also forest soils, but

have retained more of their mineral nutrients

so are favorable for agriculture. Inceptisols are

relatively undeveloped soils. Entisols are the

most undeveloped, consisting of

unconsolidated material.7 Specific soil types, as

cataloged by the NRCS, are described in Table

NENR-1 and shown on Map NENR-1.

7

http://soils.cals.uidaho.edu/soilorders/index.htm

Gloucester County


5

Table NENR-1: Soil Types

SOIL NAME ORDER DESCRIPTION

Alaga Entisols The Alaga series consists of very deep, excessively drained, rapidly

permeable soils on uplands and non-flooding stream and marine terraces

of the Coastal Plain. These soils consist of loamy sand. They formed in

sandy marine or fluvial sediments.

Caroline Ultisols The Caroline series consists of very deep, well drained soils of moderately

slow or slow permeability on marine terraces of the Coastal Plain. These

soils consist of loam, clay, and sandy clay loam. They formed in clayey

fluvial and marine sediments.

Craven Ultisols The Craven series consists of very deep, moderately well drained soils of

slow permeability found on marine terraces and uplands of the Coastal

Plain. These soils consist of silt loam, clay, and sandy clay loam. They

formed in marine deposits.

Dogue Ultisols The Dogue series consists of very deep, moderately well drained soils of

moderately slow permeability found on stream terraces of the Coastal

Plain. These soils consist of fine sandy loam, clay loam, and sandy loam.

They formed from marine deposits.

Emporia Ultisols The Emporia series consists of very deep, well drained soils of moderately

slow to slow permeability found on marine terraces and uplands of the

Coastal Plain. These soils consist of sandy loam, clay loam, and sandy clay

loam. They formed from marine deposits.

Eunola Ultisols The Eunola series consists of very deep, moderately well drained,

moderately permeable soils that formed in fluvial or marine sediments.

These soils consist of fine sandy loam and sandy clay loam. They are on

low stream or marine terraces of the Coastal Plain.

Fluvaquents Entisols Fluvaquents are found on flood plains on the Coastal Plain. They are very

deep, poorly drained, and moderately permeable. These soils consist of

loam, sandy clay loam, and gravelly sand. They formed from alluvium.

Fluvaquents,

saline

Entisols Fluvaquents are found on flood plains on the Coastal Plain. They are very

deep, poorly drained, and moderately permeable. These soils consist of

very fine and fine sandy loam. They formed from alluvium.

Hapludults Ultisols Hapludults are found on marine terraces of the Coastal Plain. They are

very deep, moderately well drained, and of moderately slow

permeability. These soils consist of fine sandy loam and sandy loam. They

formed from marine deposits.

Haplaquepts Inceptisols Haplaquepts are found on flats of the Coastal Plain. They are very deep,

somewhat poorly drained soils of moderately rapid permeability. These

soils consist of loam, sandy loam, and loamy sand. They formed from

marine deposits.

6 Gloucester County



Johns Ultisols The Johns series consists of very deep, moderately well drained soils of

moderate permeability. They are found on stream terraces of the Middle

or Upper Coastal Plain or river valleys. These soils consist of sandy loam,

sandy clay loam, and loamy sand. They formed from alluvium or

fluviomarine deposits.

Kalmia Ultisols The Kalmia series consists of very deep, well drained soils of moderate

permeability. They are found on stream terraces on the Coastal Plain and

river valleys. These soils consist of sandy loam, sandy clay loam, and

loamy sand. They formed from marine deposits.

Kempsville Ultisols Soils of the Kempsville series are very deep, well drained, and moderately

permeable. These soils consist of fine sandy loam, sandy clay loam, and

stratified sandy loam. They formed in loamy sediments on the upper

Coastal Plain.

Kenansville Ultisols The Kenansville series consists of very deep, well drained, soils of

moderately rapid permeability found on Coastal Plain uplands and stream

terraces. These soils consist of loamy fine sand, sandy loam, and loamy

sand. They have formed in marine and fluvial sediments.

Lumbee Ultisols The Lumbee series consists of very deep, poorly drained soils of moderate

permeability found on stream terraces and flats on the Coastal Plain and

river valleys. These soils consist of sandy loam, sandy clay loam, and sand.

They formed from marine deposits.

Meggett Alfisols The Meggett series consists of very deep, poorly drained soils of slow

permeability found on marine terraces on the Coastal Plain. These soils

consist of sandy loam, sandy clay, and very gravelly sandy loam. They


Ochlockonee Entisols The Ochlockonee series consists of very deep, well drained soils of

moderately rapid permeability that formed from marine deposits. These

soils consist of sandy loam, stratified loamy sand, and stratified sandy clay

loam.

Ochraquults Ultisols Ochraquults are found on flats of the Coastal Plain. They are very deep,

poorly drained soils of moderate permeability. These soils consist of fine

sandy loam and loam. They formed from marine deposits.

Okeetee Alfisols The Okeetee series consists of very deep, somewhat poorly drained soils

of very slow to slow permeability found on marine terraces and stream

terraces on coastal plains and river valleys. These soils consist of sandy

loam and sandy clay. They formed from marine deposits.

Osier Entisols The Osier series consists of very deep, poorly drained, rapidly permeable

soils found on flood plains or low stream terraces of coastal plains. These

soils consist of loamy fine sand. They formed from marine deposits.

Pactolus Entisols The Pactolus series consists of very deep, moderately well drained soils of

rapid permeability found on marine terraces of coastal plains. These soils

consist of loamy sand. They formed from marine deposits.

Gloucester County


7


Pamlico Histosols The Pamlico series consists of very deep, very poorly drained soils of

moderate to moderately rapid permeability found on depressions on

coastal plains. These soils consist of muck and sand. They formed from

organic material.

Portsmouth Ultisols The Portsmouth series consists of very deep, very poorly drained soils of

moderate permeability found on depressions on coastal plains. These

soils consist of loam, silt loam, and stratified loamy sand. They formed

from marine deposits.

Psamments Entisols Psamments are found on marine terraces on coastal plains. They are very

deep, moderately well drained soils of rapid permeability. These soils

consist of fine sand and sand. They formed from marine deposits.

Rumford Ultisols The Rumford series consists of very deep, well drained soils of moderately

rapid permeability found on marine terraces on coastal plains. These soils

consist of loamy fine sand, fine sandy loam, and stratified fine sand. They


Suffolk Ultisols The Suffolk series consists of very deep, well drained soils of moderate

permeability found on marine terraces on coastal plains. These soils

consist of fine sandy loam, sandy clay loam, and loamy sand. They formed

from marine deposits.

Sulfaquents Entisols Sulfaquents are found on salt marshes on coastal plains. They are very

deep, very poorly drained soils of very slow to slow permeability. These

soils consist of mucky silty clay loam and mucky silty clay.

Wrightsboro Ultisols The Wrightsboro series consists of very deep, moderately well drained

soils of moderate permeability found on stream terraces on coastal

plains. These soils consist of fine sandy loam and sandy clay loam. They


Source: Natural Resources Conservation Service, U.S Department of Agriculture

Soils are evaluated for their suitability for

common uses, primarily agriculture and

conventional septic systems. Typically, soils best

suited for agriculture are also the soils best

suited for conventional septic tank use.

Farmland classification of soils is shown on Map

NENR-2. Highly permeable soils are unsuitable

for conventional septic drain fields and are

shown on Map NENR-3. These classifications

help identify which areas are more suitable for

development.

Map NENR-4 shows that the majority of the

soils in the southeastern part of Gloucester are

classified as hydric, meaning that inundation

occurs for periods of time that are sufficient to

create anaerobic conditions. Hydric soils are

also found along streams and rivers throughout

the County. Although not all areas with hydric

soils are classified as wetlands, these areas

generally have a high water table and are

susceptible to poor drainage and flooding. They

are unsuitable for development or for

traditional septic systems.

8 Gloucester County


Prior to the implementation of environmental

and land use regulations in the County,

residential and commercial uses developed in

the southeastern half of the County where the

soils are poorly suited for residential

development. Wastewater disposal and

protecting groundwater quality are soil-related

problems that could be aggravated by unguided

future development. The previous Gloucester

County Comprehensive Plan generally

coordinated the proposed Bayside District and

Resource Conservation District, which shows

large areas of soils unsuitable for traditional

septic system use or otherwise unsuitable for

high density or commercial development due to

physical constraints. The issues of water quality

and groundwater protection are discussed in

greater detail later in the chapter.

Slopes

Most of the County is relatively flat. Areas with

slopes greater than 15% are generally not

considered appropriate for building structures.

However Gloucester County does not have any

prohibition against building on steep slopes. In

Gloucester County, most of the areas with high

slopes are along streams and other water

bodies. These are shown on Map NENR-5.

Prime Farmland

Agriculture is an important part of Gloucester

County’s history and economy. Identifying areas

that are well suited for farming is an important

step in preserving those areas for agricultural

uses. The NRCS identifies areas that are

appropriate for farming through its soil surveys.

Gloucester County possesses over 53,000 acres

of prime farmland, over 22,000 acres of land

that would be considered prime farmland if

properly drained, and over 7,500 acres of

farmland that is of statewide importance. The

NRCS classifies farmland based on its potential

agricultural productivity. Prime farmland is

considered the best for agricultural use in terms

of climate, location, physical and chemical

properties, available water supply,

permeability, and erosion potential. Farmland

of statewide importance is land that is not quite

as good as prime farmland for agricultural uses

or that requires additional treatment to

produce high agricultural yields. The precise

definition of farmland of statewide importance

varies by state, while prime farmland meets a

national standard. The County’s prime farmland

is shown on Map NENR-2. When considering

areas of the County for future land use, it is

important to identify the prime soils so that the

areas identified on the future land use plan for

agriculture and forestry coincide with these

prime soils.

Watersheds and Drainage

A watershed is an area of land from which all

water, sediments, nutrients, and other

dissolved materials drain into a common outlet.

When precipitation occurs, water runs to the

lowest point, usually a stream, river, or lake and

eventually the ocean. Gloucester County lies

entirely within the Chesapeake Bay Watershed,

which includes parts of six states (Delaware,

Maryland, New York, Pennsylvania, Virginia, and

West Virginia) and the District of Columbia.

These watersheds, or drainage units, cover

Gloucester County's entire land surface and

eventually contribute to the major rivers.

Everything that happens to a watershed can

affect what ends up in the water.

Gloucester County


9

Table NENR-2: Gloucester County Streams

STREAM NAME DRAINAGE

AREA

(SQ. MILES)

LENGTH

(MILES)

ELEVATION

AT SOURCE

(FEET)

ELEVATION

AT MOUTH

(FEET)

MOUTH IN

COUNTY

Sandy Creek 0.94 2.0 42 0 Gloucester

Jones Creek 4.37 3.9 93 0 Gloucester

Aberdeen Creek 3.26 3.4 84 0 Gloucester

Carter Creek 8.51 6.4 90 0 Gloucester

Cedarbush Creek 2.57 3.7 61 0 Gloucester

Timberneck Creek 3.83 4.1 62 0 Gloucester

Sarah Creek 5.22 0.3 0 0 Gloucester

Northwest Branch 2.96 2.5 11 0 Gloucester

Northeast Branch 2.16 2.3 7 0 Gloucester

Poropotank River 39.19 15.6 123 0 King & Queen,

Gloucester

Unnamed Stream 2.44 3.3 135 0 King & Queen,

Gloucester

Woods Mill Swamp 4.92 4.6 131 0 King & Queen,

Gloucester

Poplar Spring Branch 6.26 4.6 107 0 King & Queen,

Gloucester

Adams Creek 2.87 4.5 100 0 Gloucester

Purtan Creek 1.47 2.9 101 0 Gloucester

Leigh Creek 1.40 2.2 100 0 Gloucester

Bland Creek 5.74 4.7 102 0 Gloucester

Fox Creek 2.92 1.7 52 0 Gloucester

Source: Gloucester County

Thus, effective flood control, conservation of

fresh water, enhancement of water quality, and

control of soil erosion and sedimentation make

land use practices throughout the watershed

almost as important as those located directly on

the shorelines.

The land area occupied by Gloucester County is

drained by the York, Piankatank, North, Ware,

and Severn rivers and their tributaries. Major

stream segments in the County that drain

watersheds to the County's creeks and rivers

are identified in Table NENR-12. The County’s

subwatersheds (Hydrologic Unit Code 12), as

cataloged by the United States Geological

Survey (USGS), are shown on Map NENR-6.

Sources of Potable Water and Water

Use

Present water use is a product of local

geography, water needs, transportation

patterns and requirements, social and economic

forces, and development patterns. Water

10 Gloucester County


resources are critical to the physical and

economic health of the community as well as

the natural environment. Many practices have

the potential to severely degrade the water

quality and quantity. Many of these practices

and threats were cataloged through the

Hampton Roads Source Water Assessment

Program. This program resulted in a Regional

Source Water Assessment for the region’s

surface water sources, which documented land

uses and threats within critical areas related to

surface water supplies.8

Gloucester County began delivering water

services from the Beaverdam Reservoir and

associated water treatment plant in July 1990.

The Beaverdam Reservoir is located north of

the Gloucester Court House area and is

surrounded primarily by low density zoning with

two to five acre minimum lot sizes. The County

owns an approximately 300-foot to 600-foot

wide buffer surrounding the reservoir, which

makes up Beaverdam Park. The Park is used for

passive recreational activities such as fishing,

boating, nature study, picnics, hiking, bicycling,

and horseback riding. Water quality is

monitored weekly through algae counts. A

survey is conducted every three years to

evaluate development around the reservoir.

Other than the various County ordinances

affecting land use and development, there are

no special requirements or overlay district

around the reservoir to prevent or manage

pollution of the surface water. The existing

buffer area and low density zoning have been

sufficient thus far to protect water quality. The

8 CH2M Hill. Regional Source Water

Assessment. Prepared for the Hampton Roads Planning District Commission Directors of Utilities Committee and Hampton Roads Source Water Assessment Program Subcommittee. July 2001

County should consider additional requirements

if deemed necessary as a result of routine water

quality monitoring. Increasing regulations with

regard to surface water protection will require

the County to adopt more protective measures

should the development around the reservoir

continue. The County also has two wells. More

information regarding the county water supply

is found in the Community Facilities section of

this plan.

Regional Water Supply Planning

In 2007, sixteen cities and counties and eight

towns signed a Memorandum of Agreement to

develop a Regional Water Supply Plan for

Hampton Roads. In July 2011, the Hampton

Roads Planning District Commission accepted

the plan and authorized its distribution to local

governments for adoption. The regional plan

enables the localities to meet the water supply

planning requirements of the Commonwealth

of Virginia, 9 VAC 25-780. The purposes of this

regulation are to (1) ensure that adequate and

safe drinking water is available to all citizens of

the Commonwealth, (2) encourage, promote,

and protect all other beneficial uses of the

Commonwealth’s water resources, and (3)

encourage, promote, and develop incentives for

alternative water sources. The regional plan

covers the existing water supply, future water

needs and alternatives, and water demand

management information and drought response

plans.

In accordance with the Code of Virginia as well

as the State Water Control Board

implementation regulations a regional water

supply plan was prepared by staff of HRPDC.

This Plan was prepared for the Cities of

Chesapeake, Franklin, Hampton, Newport

News, Norfolk, Poquoson, Portsmouth, Suffolk,

Gloucester County


11

Virginia Beach, and Williamsburg and the

Counties of Gloucester, Isle of Wight, James

City, Southampton, Surry, and York as well as

the Towns of Boykins, Branchville, Capron,

Claremont, Courtland, Dendron, Ivor, Newsoms,

Smithfield, Surry, and Windsor. The plan was

adopted by the Gloucester County Board of

Supervisors in August of 2011. As of November

2011, all of the localities had adopted the plan,

which was then submitted to DEQ. The Plan

includes elements describing existing water use,

assessment of projected water demand,

statement of need, alternatives analysis,

descriptions of water management and drought

response actions. In the Plan Gloucester is

classified as part of the Peninsula sub-region.

Groundwater Framework

Gloucester County is located within the Virginia

Coastal Plain Physiographic Province, which

extends from the Fall Line in the west to the

Atlantic Ocean in the east, and from the

Maryland border in the north to the North

Carolina border in the south. The surface of the

Virginia Coastal Plain consists of a series of

broad, gently sloping, highly dissected north-

south trending terraces bounded by seaward

facing, ocean cut escarpments. The subsurface

is characterized by wedge-shaped

unconsolidated sedimentary deposits that slope

and thicken towards the east. The thickness of

this wedge ranges from 0 feet at the western

edge to over 6,000 feet along the Atlantic coast

(McFarland and Bruce, 2006). These deposits

consist of clay, silt, sand, and gravel, with

variable amounts of shell material. These

sediments overlay a bedrock basement of

igneous and metamorphic rocks that also slopes

gently to the east.

Many different depositional environments

existed during the formation of the Virginia

Coastal Plain deposits. In general, the

stratigraphic section (vertical profile) consists of

a thick sequence of non-marine (riverine and

alluvial) sedimentary deposits overlain by a

thinner sequence of marine (near shore beach,

estuarine, and delta) sedimentary deposits.

Beneath Gloucester there are also breccia type

sedimentary deposits associated with the

Chesapeake Bay Impact Crater (see Map NR-7).

The groundwater flow system in the Coastal

Plain of Virginia is a multi-aquifer system. The

most recent study of the hydrogeologic

framework was completed by USGS in 2006

(McFarland and Bruce, 2006). Based on the

framework, there are eight water bearing

hydrogeologic units (aquifers) and eleven less

permeable units that restrict groundwater flow

(confining zones and confining units). The

aquifers and confining units are stacked on top

of each other and often alternate. Because of

this configuration, flow in the aquifers primarily

is lateral instead of vertical. The flow moves

eastward and toward large withdrawal centers

and major discharge areas near large rivers and

the Atlantic coast. However, the flow pattern is

disrupted by the Chesapeake Bay Impact Crater,

which was formed over 35 million years ago

when an asteroid or comet landed near the

mouth of the Chesapeake Bay and created a

crater over 50 miles in diameter. The impact of

the asteroid or comet obliterated the deepest

aquifers. A mixture of materials rushed into the

crater and created a layer of sediments

(breccia) unique from the non-marine

sediments present before the impact.

As illustrated in Figure NE-1, the groundwater

system beneath Gloucester County is comprised

of five aquifers and five confining units. The



Columbia aquifer, also referred to as the

surficial aquifer, is the water table aquifer

throughout most of Gloucester. In some areas,

the Columbia aquifer and confining unit below

it have been incised by the bay so the

Yorktown-Eastover aquifer is the water table

aquifer. In other parts of the county, the

Yorktown-Eastover aquifer is a confined aquifer,

covered by the Yorktown-Eastover confining

unit.

The Piney Point aquifer, Aquia aquifer, and the

Potomac aquifer are all deeper confined

aquifers underlying Gloucester. The confined

aquifers are separated from aquifers above and

below by confining beds. The northwest portion

of the Chesapeake Bay Impact Crater covers the

southern third of Gloucester. The Aquia and

Potomac aquifers existed before the crater

impact so both aquifers were obliterated in the

southern portion of Gloucester. They were

replaced by the breccia formed by the impact.

The breccia has a low conductivity and contains

stagnant saltwater in its pore spaces. The

regional groundwater flow appears to diverge

and flow around the crater rim. The Piney Point

aquifer was deposited after the crater impact

and is present across the entire county. The

following paragraphs provide a general

description of the aquifers identified in

Gloucester from youngest to oldest (top to

bottom).

Columbia Aquifer

The Columbia aquifer is the uppermost aquifer

and is unconfined throughout its extent. It

consists of sand and gravel. The Columbia

aquifer is used primarily for domestic water

supplies (drinking water and irrigation). Because

it is shallow and easily accessible, it has

historically been an important water source.

However, it is susceptible to drought and

contamination and is less reliable than confined

aquifers. In favorable conditions, wells may

yield 10 gallons per minute or more (McFarland

and Bruce, 2006).

Yorktown-Eastover Aquifer

The Yorktown-Eastover aquifer is composed of

sand with some interbedded silt. The Yorktown-

Eastover aquifer is separated from the

Columbia aquifer by the Yorktown confining

zone. The confining zone leaks more than a

confining unit and in some areas the Yorktown

confining zone may function as an aquifer. In

cross section, the Yorktown-Eastover aquifer is

wedge-shaped, sloping, and thickening to the

east. In Gloucester, the top of the aquifer is

roughly 50 to 75ft below ground surface.

Numerous wells withdraw water from the

Yorktown-Eastover aquifer and it typically yields

high-quality water. Wells commonly produce 10

to 30 gallons per minute.

Piney Point Aquifer

The Piney Point aquifer is a homogenous, sandy

aquifer. It extends over the entire county

including the impact crater. In Gloucester, the

top of the Piney Point aquifer is approximately

250 to 400ft below ground surface and wells

commonly yield 10 to 50 gallons per minute

(McFarland and Bruce, 2006). The Piney Point

aquifer includes two formations. The upper

formation is rarely used for water supplies

because of low yields and the prevalence of

hydrogen sulfide. The lower formation is a more

effective water producing zone. However, the

Piney Point aquifer as a whole is not used

across the crater where sediments contain

brackish water.

Gloucester County


Figure NE-1: Hydrogeology of the Coastal Plain of Virginia

Source: The Virginia Coastal Plain Hydrologic Framework

Aquia Aquifer

The Aquia aquifer only exists in the northwest

portion of Gloucester. It is composed of

medium to coarse sands. It is less than 50ft

thick and is approximately 400ft below ground

surface. Wells in the Aquia aquifer may yield as

little as 5 gallons per minute or as much as 50

gallons per minute. Typically, the glauconitic

sands found in the Aquia aquifer eventually

weather and clog well screens and produce

poor water quality. Also, it is very likely that in

Gloucester the Aquia aquifer contains brackish

water (McFarland and Bruce, 2006).

Potomac Aquifer

The Potomac aquifer is the deepest and thickest

aquifer in Virginia’s Coastal Plain. The aquifer is

composed of sand and gravel with many large

clay interbeds. In previous studies, the Potomac

aquifer was defined as three aquifers.

the most recent hydrogeologic stud

that it is hydraulically continuous on a regional

scale and the clay interbeds affect flow on a

1: Hydrogeology of the Coastal Plain of Virginia

Source: The Virginia Coastal Plain Hydrologic Framework

The Aquia aquifer only exists in the northwest

It is composed of

It is less than 50ft

thick and is approximately 400ft below ground

Wells in the Aquia aquifer may yield as

little as 5 gallons per minute or as much as 50

Typically, the glauconitic

sands found in the Aquia aquifer eventually

weather and clog well screens and produce

Also, it is very likely that in

Gloucester the Aquia aquifer contains brackish

water (McFarland and Bruce, 2006).

is the deepest and thickest

aquifer in Virginia’s Coastal Plain. The aquifer is

composed of sand and gravel with many large

In previous studies, the Potomac

aquifer was defined as three aquifers. However,

the most recent hydrogeologic study indicated

that it is hydraulically continuous on a regional

scale and the clay interbeds affect flow on a

localized scale. In Gloucester, the top of the

aquifer is roughly 500ft below ground surface in

the western part of the county and dips to over

1000ft below ground surface in the eastern part

of the county. The Potomac aquifer is the most

heavily used groundwater resource in the

Virginia Coastal Plain. In 2005, about 90 percent

of the reported annual withdrawals were from

the Potomac aquifer. Major wa

completed in the central and southeastern

parts of the Coastal Plain have yielded 100 to

500 gallons per minute (McFarland and Bruce,

2006). However, the water is generally brackish

and desalination is required to make it suitable

for domestic or industrial use.

Groundwater Recharge and

Discharge Areas

Groundwater flow in unconfined aquifers tends

to reflect surface water flow. Groundwater

flows from areas of relatively high elevation to

adjacent areas of relatively low elevation.

13

In Gloucester, the top of the

aquifer is roughly 500ft below ground surface in

the western part of the county and dips to over

ft below ground surface in the eastern part

The Potomac aquifer is the most

heavily used groundwater resource in the

In 2005, about 90 percent

of the reported annual withdrawals were from

Major water supply wells

completed in the central and southeastern

parts of the Coastal Plain have yielded 100 to

500 gallons per minute (McFarland and Bruce,

However, the water is generally brackish

and desalination is required to make it suitable

stic or industrial use.

Groundwater Recharge and

Groundwater flow in unconfined aquifers tends

to reflect surface water flow. Groundwater

flows from areas of relatively high elevation to

adjacent areas of relatively low elevation.



Groundwater recharge can occur across almost

any upland surface. Land surfaces with steep

slopes are less effective groundwater recharge

areas than broad and relatively flat grassy

uplands. Groundwater recharge occurs when

rainwater that percolates into the ground

enters the unconfined (water table) aquifer.

Research also suggests that in some areas of

the Coastal Plain groundwater recharge occurs

between aquifers (Meng, A.A. III, and Harsh,

J.F., 1988). This occurs when the hydraulic

pressure of groundwater in one aquifer forces

water through a leaky confining unit into an

adjacent aquifer. This movement can be either

up or down based on the hydraulic properties

of the aquifers. The location and magnitude of

recharge between the aquifers, however, has

not been well documented.

Groundwater discharge areas are located in

low-lying areas and are characterized by rivers,

springs, and wetlands. Discharge areas for the

confined aquifers may occur off the coast

beneath the Atlantic Ocean or beneath the

Chesapeake Bay.

Air Quality

As a requirement of the Clean Air Act, the

Environmental Protection Agency (EPA)

maintains National Ambient Air Quality

Standards (NAAQS) for certain criteria

pollutants including ozone, carbon monoxide,

and particulate matter (40 CFR 50). These

standards are implemented in Virginia by the

state Department of Environmental Quality and

are designed to protect the public health and to

prevent harm to the environment. When a

geographic area meets these standards, the

area is known as an attainment area, however if

an area fails to meet these standards, then the

EPA designates the area as nonattainment.

A designated nonattainment area must develop

a plan to bring the region into compliance with

the NAAQS which it is failing to meet. In

addition to developing this plan, known as a

State Implementation Plan (SIP), the area must

also implement transportation conformity

requirements. Transportation conformity

requires all regional transportation plans,

programs, and projects to be analyzed to

ensure conformity with the EPA’s

Transportation Conformity Rule (40 CFR 93).

The EPA must review and concur with this

analysis before the Federal Highway

Administration can approve it. Any changes to

the regional Air Quality transportation plans,

programs, and projects after a conformity

approval is received, must be re-analyzed and

approved before the change can occur.

Transportation conformity is required for 20

years after an area is able to demonstrate

compliance with the NAAQS. During this 20-

year maintenance period, the maintenance

area, as classified by the EPA, must maintain a

SIP to ensure continued compliance with the

NAAQS.

Hampton Roads is currently classified as an 8-

hour ozone maintenance area. The Hampton

Roads ozone maintenance area includes the

counties of Gloucester, Isle of Wight, James

City, and York, along with the cities of

Chesapeake, Hampton, Newport News, Norfolk,

Poquoson, Portsmouth, Suffolk, Virginia Beach,

and Williamsburg. EPA is expected to revise the

ozone standard sometime in the next few years.

This is likely to result in the reclassification of

Hampton Roads as a nonattainment area for

ozone. The main contributors to air quality

deficiencies are heavy industry and automobile

traffic. Although Gloucester lacks heavy

industry that contributes to air pollution,

Gloucester County


15

surrounding areas do contain industries and

high levels of traffic that impact local air quality.

Current limits on open burning and potential

alternative transportation plans that reduce

traffic congestion will produce positive effects

on local air quality, although these measures

will not prevent regional nonattainment

designation.

Plants and Animals

The Virginia Department of Conservation and

Recreation, Division of Natural Heritage (DCR-

DNH), and the Department of Game and Inland

Fisheries' Fish and Wildlife Information System

maintain inventories of wildlife resources and

habitats for Gloucester County. The Virginia Fish

and Wildlife Information Service Website

currently lists 446 different species found in

Gloucester County. These include quail, dove,

rabbit, wild turkey, hawks and owls, songbirds,

turtles and amphibians, raccoon, beaver,

opossum, muskrat, skunk, squirrel, woodchuck

and white-tailed deer. Bald Eagles have nest

sites established in the County. Tidal

marshlands attract Sora Rail and Clapper Rail,

and numerous varieties of wild ducks and other

waterfowl. Freshwater fish include large and

small-mouth bass and bream. Saltwater fish

include shad, croaker, spot, bluefish, channel

and black sea bass, menhaden, mackerel, eel,

white and silver perch, and a variety of other

saltwater species.

Natural Heritage Resources

The Virginia Department of Conservation and

Recreation’s Division of Natural Heritage

defines natural heritage resources as the

habitat of rare, threatened, or endangered

plant and animal species, unique or exemplary

natural communities, and significant geologic

formations such as caves and karst features.

Twenty-eight species and communities in

Gloucester County have been designated by

DCR as natural heritage resources (Table NENR-

X3).

DCR identifies and protects natural heritage

resources statewide and maintains a

comprehensive database of all documented

occurrences of natural heritage resources in

Virginia. DCR has developed conservation sites

that contain known populations of natural

heritage resources and include adjacent or

surrounding habitat vital for their protection.

Conservation sites do not represent protected

lands; rather, they are recommended for

protection and stewardship because of the

natural heritage resources and habitat they

support, but are not currently under any official

protection designation. Conservation sites are

areas that contain one or more rare plant,

animal, or natural community and are designed

to include the element, its associated habitat

(where possible), and a buffer or other adjacent

land thought necessary for the element’s

conservation. Conservation sites can be used to

screen development projects for potential

impacts to natural heritage resources, aid local

and regional planning, identify targets for

acquisitions and easements and guide priorities

for restoration activities.

A prominent example of a conservation site in

Gloucester County is the Dragon Run

Conservation Site, which contains multiple rare

species and habitat types. The Dragon Run

supports an abundance of fish, wildlife, and

plants, including ancient cypress trees. There

are six natural heritage resources associated

with the Dragon Run Conservation Site: the Bald

Eagles, the Red Turtlehead, Bald Cypress Mixed

Tupelo Intermediate Swamp, Northern Coastal

Plain Tidal Bald Cypress Woodland, Tidal



Oligohaline Marsh (Narrow-leaved Cattail –

Eastern Rose – Mallow Type), and Tidal

Freshwater Marsh (Wild Rice – Mixed Forbs

type). The Dragon Run’s natural ecosystem has

survived primarily because the area is largely

undeveloped – about 80 percent of the area is

forested and the rest is primarily agricultural.

Conservation sites are given a biodiversity

significance ranking based on rarity, quality, and

the number of element occurrences they

contain; rankings are based on a scale of one to

five, with one being the most significant. The

Dragon Run Conservation Site has been given a

biodiversity ranking of B2, which represents a

site of very high significance. In addition to the

Dragon Run Conservation Site, there are

twenty-four (24) other conservation sites in

Gloucester County (Table NENR-X 4 and Map

NENR-X8).

The Dragon Run watershed is one of the most

important, largely undisturbed natural areas

remaining in Gloucester County. Located along

Gloucester’s northern boundary, this still

pristine spring-fed waterway has been the

subject of intensive study by local, regional, and

state agencies. The Dragon Run Special Area

Management Plan, produced by a partnership

between the Dragon Run Steering Committee,

the Middle Peninsula Planning District

Commission, and the Virginia Coastal Zone

Management Program, part of the Department

of Environmental Quality (DEQ), was completed

in November 2003. The plan represents a

common vision developed by multiple

stakeholders and contains an action plan and

benchmarks to measure progress in the effort

to conserve the resources of the Dragon Run

watershed. Gloucester County adopted the

Dragon Run Watershed Management Plan as an

addendum to the Comprehensive Plan in

November 2004.

The Dragon Run and its surrounding landscape

owe their extraordinary state of preservation to

the landowners in the area that have pursued

compatible land uses such as farming and

forestry. Recent scientific studies have also

highlighted the watershed’s critical ecological

importance to the region and its ecological

value, including the purity of its water, the

wealth of rare and unusual natural species it

harbors, and the rural character of this pristine

watershed. The rural way of life and traditional

landscape in the Dragon Run Watershed are

both valued by the residents of the area and

considered worthy of conservation. One of the

objectives of the Watershed Management Plan

is to “Achieve consistency across county

boundaries among land use plans and

regulations in order to maintain farming and

forestry and to preserve natural heritage areas

by protecting plants, animals, natural

communities, and aquatic systems.” As a result,

the future land use plan identifies the

watershed as the Dragon Run Conservation

District and provides recommendations for this

area to continue to remain largely rural, with

low intensity uses, so as to sustain its key

natural areas, water quality and rural character.

Gloucester County


17

Table NENR-X3: Natural Heritage Resources

GROUP

NAME

SCIENTIFIC NAME COMMON NAME LAST YEAR

OBSERVED

GLOBAL

RANK

FWS

SPECIES OF

CONCERN

STATE

RANK

FEDERAL

STATUS

STATE

STATUS

Terrestrial

Natural

Community

Acer rubrum - Fraxinus

pennsylvanica / Packera

aurea - Carex bromoides -

Pilea fontana - Bidens

laevis Forest

Coastal Plain Calcareous

Seepage Swamp

2010 G2 SOC S2

Vertebrate

Animal

Ambystoma mabeei Mabee's Salamander 2010 G4 S1S2 LT

Vertebrate

Animal

Ammodramus caudacutus Saltmarsh Sharp-tailed

Sparrow

1992 G4 S2B,

S3N

Vascular

Plant

Cardamine pratensis Cuckooflower 2010 G5 S1

Vascular

Plant

Carex reniformis Reniform Sedge 1964 G4? SH

Vascular

Plant

Chelone obliqua Red Turtlehead 1999 G4 S1

Vertebrate

Animal

Circus cyaneus Northern Harrier 1992 G5 S1S2B,

S3N

Vascular

Plant

Cuscuta cephalanthi Button-bush Dodder 1970 G5 S1?

Vascular

Plant

Cuscuta indecora Pretty Dodder 1997 G5 S2?

Vascular

Plant

Eleocharis tricostata Three-angle Spikerush 1938 G4 S1

Vascular

Plant

Eriocaulon parkeri Parker's Pipewort 1986 G3 S2



GROUP

NAME


OBSERVED

GLOBAL

RANK

FWS

SPECIES OF

CONCERN

STATE

RANK

FEDERAL

STATUS

STATE

STATUS

Terrestrial

Natural

Community

Fagus grandifolia - Acer

barbatum - Quercus

muhlenbergii /

Sanguinaria canadensis

Forest

Coastal Plain Calcareous

Ravine Forest

2005 G2? SOC S2

Terrestrial

Natural

Community

Fagus grandifolia -

Quercus (alba, rubra) -

Liriodendron tulipifera /

(Ilex opaca var. opaca) /

Polystichum

acrostichoides Forest

Northern Coastal Plain /

Piedmont Mesic Mixed

Hardwood Forest

2010 G5 S5

Terrestrial

Natural

Community

Fagus grandifolia -

Quercus (alba, velutina,

montana) / Kalmia

latifolia Forest

Northern Coastal Plain /

Piedmont Oak - Beech /

Heath Forest

2010 G4 S3

Vertebrate

Animal

Falco peregrinus Peregrine Falcon 1994 G4 S1B,

S2N

LT

Vertebrate

Animal

Haliaeetus leucocephalus Bald Eagle 2002 G5 S2S3B,

S3N

LT

Vascular

Plant

Isotria medeoloides Small Whorled Pogonia 1997 G2 S2 LT LE

Aquatic

Natural

Community

NC-Great Wicomico-

Piankatank First Order

Stream

NC-Great Wicomico-

Piankatank First Order

Stream

2011 G3 S3

Aquatic

Natural

Community

NC-Great Wicomico-

Piankatank Fourth Order

Stream

NC-Great Wicomico-

Piankatank Fourth Order

Stream

2011 G1G2 SOC S1S2

Aquatic

Natural

Community

NC-Great Wicomico-

Piankatank Second Order

Stream

NC-Great Wicomico-

Piankatank Second Order

Stream

2011 G3 S3

Gloucester County


19

GROUP

NAME


OBSERVED

GLOBAL

RANK

FWS

SPECIES OF

CONCERN

STATE

RANK

FEDERAL

STATUS

STATE

STATUS

Vertebrate

Animal

Nyctanassa violacea Yellow-crowned Night-

heron

1976 G5 S2S3B,

S3N

Vascular

Plant

Sabatia campanulata Slender Marsh Pink 1965 G5 S2

Vascular

Plant

Schoenoplectus fluviatilis River Bulrush 1995 G5 S2

Terrestrial

Natural

Community

Taxodium distichum -

Nyssa (biflora, aquatica) /

Itea virginica / Saururus

cernuus Forest

Bald Cypress - Mixed

Tupelo Intermediate

Swamp

2000 G3G4 S3S4

Terrestrial

Natural

Community

Taxodium distichum -

Nyssa biflora - Fraxinus

profunda / Peltandra

virginica - (Bignonia

capreolata) Tidal Forest

Northern Coastal Plain

Tidal Bald Cypress

Woodland

2000 G3 S2

Vascular

Plant

Trillium pusillum var.

virginianum

Virginia Least Trillium 1984 G3T2 SOC S2

Terrestrial

Natural

Community

Typha angustifolia -

Hibiscus moscheutos Tidal

Herbaceous Vegetation

Tidal Oligohaline Marsh

(Narrow-Leaved Cattail -

Eastern Rose-Mallow Type)

1999 G4G5 S3?

Terrestrial

Natural

Community

Zizania aquatica -

Pontederia cordata -

Peltandra virginica -

Polygonum punctatum

Tidal Herbaceous

Vegetation

Tidal Freshwater Marsh

(Wild Rice - Mixed Forbs

Type)

2000 G4? S4?



TERM DEFINITION

S1 Critically imperiled in the state because of extreme rarity or because of some factor(s) making it especially vulnerable to extirpation

from the state. Typically 5 or fewer populations or occurrences, or very few remaining individuals (<1000).

S2 Imperiled in the state because of rarity or because of some factor(s) making it very vulnerable to extirpation from the state. Typically 6

to 20 populations or occurrences or few remaining individuals (1,000 to 3,000).

S3 Vulnerable in the state either because rare and uncommon, or found only in a restricted range (even if abundant at some locations),

or because of other factors making it vulnerable to extirpation. Typically having 21 to 100 populations or occurrences (1,000 to 3,000

individuals).

S4 Apparently secure; Uncommon but not rare, and usually widespread in the state. Possible cause of long-term concern. Usually having

>100 populations or occurrences and more than 10,000 individuals.

S5 Secure; Common, widespread and abundant in the state. Essentially ineradicable under present conditions, typically having

considerably more than 100 populations or occurrences and more than 10,000 individuals.

S#B Breeding status of an animal within the state.

S#N Non-breeding status of animal within the state. Usually applied to winter resident species.

S#? Inexact or uncertain numeric rank.

SH Possibly extirpated (Historical). Historically known from the state, but not verified for an extended period, usually > 15 years; this rank

is used primarily when inventory has been attempted recently.

S#S# Range rank; A numeric range rank, (e.g. S2S3) is used to indicate the range of uncertainty about the exact status of the element.

Ranges cannot skip more than one rank.

LE Listed Endangered

LT Listed Threatened

SOC Species of Concern species that merit special concern (not a regulatory category)

Federal designations are developed by the U.S. Fish and Wildlife Service. State designations are developed by the Virginia Department of

Conservation and Recreation, Division of Natural Heritage.

Gloucester County


21

Table NENR-X4: Natural Heritage Conservation Sites

SITE NAME BIODIVERSITY RANK LEGAL STATUS

Bar Neck B5 SL

Beaverdam Creek Slopes B2 NL

Beech Swamp Uplands B5 SL

Bena Woodlands B5 SL

Carvers Creek at Route 198 (SCU) B4 NL

Carvers Creek B5 SL

Catlett Islands B5 SL

Church Hill Pond B4 SL

Coleman Bridge B5 SL

Dragon Run B2 SL

Dragon Run (SCU) B2 NL

Ferry Creek Ravine B2 NL

Ferry Creek Upstream Route 198 (SCU) B4 NL

Four Point Marsh B5 NL

Harper Creek B5 SL

Heywood Creek B5 SL

Leigh Creek B5 SL

Maryus – Guinea Marshes B5 SL

Piankatank B5 SL

Robins Pond Headwaters B3 FL

Rosewell B2 SL

Shepherdsville Church B5 SL

Signpine B5 SL

White Marsh Pond B5 SL

Woods Mill Swamp B5 SL

Source: Virginia Department of Conservation and Recreation, Division of Natural Heritage

TERM DEFINITION

SCU Stream Conservation Unit

B1 Outstanding Significance

B2 Very High Significance

B3 High Significance

B4 Moderate Significance

B5 General Interest

FL Federally listed species present

SL State listed species present

NL No listed species present



Important Bird Areas

The Important Bird Areas (IBA) program is a

global conservation effort coordinated by the

National Audubon Society. IBAs are sites that

provide essential habitat for one or more

species of birds. IBAs may be a few acres or

thousands of acres, but they are usually discrete

sites that stand out from the surrounding

landscape. IBAs may include public or private

lands, or both, and they may be protected or

unprotected. The Virginia IBA Program is a

grassroots effort representing all regions of the

state. The program identifies areas that are

most important for nesting, mating, feeding,

and wintering birds and, once identified, works

to protect these areas through partnerships

with local and state agencies and other groups.

IBAs in Gloucester County are shown on Map

NENR-79. These areas can be considered for

protection or conservation status as part of the

County’s future land use plan.

Forest and Farmland

Vegetation serves important functions in

maintaining the land and supporting

development by stabilizing the soil, preventing

erosion, increasing soil permeability, and

decreasing stormwater runoff. Vegetation also

serves as a buffer for adjacent land uses,

lessens the impact of noise, wind and heat,

improves air quality, and provides habitat for

wildlife. Although much of the land in the

southeast portion of Gloucester County (which

is the most suitable for growing loblolly and

Virginia pine) has been lost to residential

development, there are still large undeveloped

portions of the County devoted to forestry uses.

Good to fair soils occur throughout most of the

northern and western portions of the County

where the majority of forested acres include

loblolly and Virginia pine. Other species grown

and harvested as sawtimber commonly include

yellow poplar, red oak, white oak, sweet and

black gum, sycamore, ash, and some red maple.

About 800 to 1,000 acres are planted by the

Virginia Department of Forestry each year in

Gloucester County. Almost all reforestation

involves loblolly pine seedlings planted at 450

to 500 trees per acre. Even with reforestation at

this level, it is doubtful that the present

production of forest products in Gloucester can

be maintained in the future due to the large

scale conversion of forest land to other uses.

The latest available forest surveys indicated

that total forested acres in the County included

approximately 89,000 acres of privately owned

forest land and 500 acres of public land (U.S.

Forest Service, 2007). The 2007 Census of

Agriculture, published by the U.S. Department

of Agriculture, indicated that there were 159

active farms in Gloucester. Land in farms

totaled 22,957 acres with an average farm size

of 144 acres. Most of the farms, approximately

70%, were devoted to cropland. Soybeans, corn,

and wheat were commonly produced crops.

The 2007 Census also reported that Gloucester

County had 3,738 acres of farmland being used

as woodland, down 741 acres from 2002. Many

more acres are currently being utilized by the

forest industry or fall under private ownership.

Figures are continually changing due to trends

in absentee ownership and corporate land

holdings.

One of the County’s future land use goals is to

preserve the rural character of the community.

This can be achieved in a variety of ways;

however the preservation of an active

agricultural economy contributes to rural

character while also providing economic

benefits. In order to preserve viable agriculture

and forestry in the midst of a growing

Gloucester County


23

residential population, more active support of

agriculture and forestry may be needed. This

can be done through practical land use policies

and local regulations that support profitability

of these industries while also recognizing and

accommodating for the changing nature of

agriculture.

Critical Areas

The regulations of the Chesapeake Bay

Preservation Act (CBPA) require that local

comprehensive plans address existing natural

limitations of the land that can act as physical

constraints to development. These may include:

flood prone areas, highly erodible soils, highly

permeable soils, wetlands, steep slopes, hydric

soils, seasonally high water tables, groundwater

recharge areas, significant wildlife habitat areas,

prime agricultural lands, and protected lands.

An assessment of soils for septic tank suitability

is also required, although engineered septic

systems now allow for development where soils

are unsuitable for traditional septic systems.

Gloucester County adopted a CBPA ordinance

as the cornerstone of its response to state and

interstate efforts to help protect and restore

the Bay. As part of the ordinance, Gloucester

designated CBPA areas that apply to all

property in the County. Sensitive areas such as

tidal shores, wetlands, and highly erodible soils

are designated as Resource Protection Areas

(RPAs) and include minimum 100-foot wide

riparian buffers landward of these

environmentally sensitive areas. All other lands

in the County are classified as Resource

Management Areas (RMAs), and are intended

to protect the integrity of the RPAs. As a result,

the County’s CBPA Ordinance acts as an overlay

district for the entire County regardless of the

zoning district. Gloucester County’s Site Plan

Handbook summarizes the County’s

Chesapeake Bay regulations in checklist form

and includes stormwater calculation

worksheets that can be used by developers to

achieve compliance with pollutant removal

requirements.

Shorelines

Shoreline conditions are described along

primary and secondary shorelines, and

characteristics are described for all contiguous

navigable tidal waterways. The report covers

492.46 miles of the total 506.6 miles of

shoreline, with approximately 98 miles coded

remotely.9 The shoreline of Gloucester County

is made up primarily of various types of marsh.

The only segments of the Gloucester shore not

considered low shore are along the York River

from the Poropotank River to Sarah Creek. In

this area, much of the land is classified as

moderately low shore with bluffs ranging in

height from 20 to 40 feet. The rest of the shore

zone is composed of beaches. According to the

Virginia Institute of Marine Science (VIMS),

three beaches – near Fox Creek, around

Gloucester Point, and on lower Jenkins Neck

around Sandy Point – have the potential for

medium- to high-intensity recreational uses

(2008).

Natural and Altered Shoreline Features

The Gloucester County, Virginia Shoreline

Inventory Report produced by VIMS indicates

9 The Gloucester County Shoreline Inventory

Report includes thirty-four map plates and a summary table describing shoreline conditions. They are available online through the VIMS Center for Coastal Resources Management website at http://ccrm.vims.edu/gis_data_maps/shoreline_inventories/index.html.



that the natural shoreline consists primarily of

marsh, accounting for approximately 90% of the

total shoreline. There are also areas of beach,

the most significant of which are located near

Fox Creek, around Gloucester Point, and on

lower Jenkins Neck around Sandy Point. Areas

of forested shoreline are also noted throughout

the County.

Map NENR-8 10 shows manmade shoreline

protection features identified as part of the

shoreline inventory. Bulkheads and riprap

revetments protect about 28 miles of shoreline

in the County. Map NR-11 shows shoreline

recreational structures, such as marinas,

boathouses, docks, and boat ramps. The highest

concentrations of altered shoreline features are

found around Gloucester Point and Sarah

Creek.

Adjacent Land Uses

Gloucester’s Shoreline Inventory Report shows

that the majority of the shoreline in the County

is either forested (44%) or scrub-shrub (29%).

Residential land uses account for the largest

remaining portion of shoreline (20%), with the

rest divided among grass, agriculture,

commercial uses, paved, and timbered areas

(VIMS, 2008).

Impacts of Land Development

Land uses adjacent to the shoreline, both

existing and proposed, are required by the

Chesapeake Bay Preservation Act to be

considered in comprehensive planning studies.

This allows for the identification and analysis of

land and water use conflicts and water quality

issues. Activities on land and water regularly

impact the utilization and quality of water

resources. Potential impacts include increased

nutrients, sediment, and pesticides carried in

runoff and increased flows, which can cause

stream bank erosion. In developing areas such

as Gloucester County, local governments have

the opportunity to direct conflicting land and

water uses away from sensitive natural

resources through the comprehensive planning

process. Redevelopment efforts in waterfront

areas within Gloucester County may also utilize

higher densities and other techniques in

conjunction with preservation of open space to

help reduce impacts to the Chesapeake Bay.

Redevelopment

Runoff from developed areas carried from

impervious surfaces can potentially degrade

local water quality. Paved areas cannot absorb

rainwater and the resultant runoff can

transport nutrients, pollutants, and toxic

substances into local waterways. Some of the

older areas of the County were developed prior

to the enactment of environmental regulations

that require water quality protection measures

in their design. In this situation, redevelopment

provides the primary means of making

significant water quality improvements. During

redevelopment of these older areas, water

quality improvement measures such as

stormwater best management practices (BMPs)

and shoreline restoration activities can be

incorporated. Redevelopment activities must

also comply with impervious area limitations,

preserve existing vegetation, and may require

connection to existing sewer service. Several of

these existing developed sites are working

waterfronts and considered to be cultural

resources in Gloucester. Redevelopment of

these sites should be consistent with their

current use.

Potential Shoreline Development Sites

In Gloucester, most of the seafood processing

plants and marinas where boats are moored

have existed for decades and may be

Gloucester County


25

candidates for redevelopment. Redevelopment

of older sites will also provide the opportunity

for implementation of greater water quality

protection measures. Some of the areas

between Gloucester Point and Achilles, such as

along Guinea Road (Route 216), Terrapin Cove

Road, Tidemill Road, and Yacht Club Road are

served by a Hampton Roads Sanitation District

sewer force main, and the opportunity exists for

marinas to connect for disposal of sanitary

sewer wastes.

Flood Prone Areas

Flood prone areas are those sites in the County

that are predictably subject to overflows from

nearby water bodies. Development in flood

prone areas is potentially both costly and

hazardous. Several factors can determine the

amount of damage caused by flooding, such as

rate of water rise, depth and duration of

flooding, geographic orientation of the

shoreline, topography of the land, and the

amount of threatened development.

Development in flood prone areas can worsen

flooding by increasing the amount of

impervious cover, which prevents the natural

infiltration and absorption of water into the

soil. Preserving floodplains can have many

benefits, including enhancing water quality,

allowing recharge of groundwater aquifers,

reducing flooding, providing fisheries and

wildlife habitat, providing recreational

opportunities, and protecting historic lands.10

Many flood prone areas in the County were

developed before they were identified as part

of a Special Flood Hazard Area and before the

creation of federal and state floodplain

protection programs. This historical

development limits the opportunity to realize

10

DCR-CBLA, 1989

the full benefits of floodplain preservation. The

County’s floodplain management efforts will

continue to focus on the identification,

reduction, and mitigation of flood hazards

within developed areas. There may also be

some opportunities for targeted restoration of

floodplains through buy-out and relocation

programs.

The Federal Emergency Management Agency

(FEMA) identifies flood prone areas in

Gloucester County on a series of Flood

Insurance Rate Maps (FIRMs), which were most

recently revised by FEMA in September 2010.

As part of the revision FEMA also provided the

County the FIRM in digital format, which has

been incorporated into the County’s online

Geographic Information System (GIS).

Elevations range from 0-160 feet above mean

sea level, and approximately 27,000 acres of the

County are within the 100-year flood plain. All

new structures within these areas are required

to be built with their finished floors above the

100-year flood levels indicated on the maps.

Map NENR-9 12 illustrates the flood prone

areas as indicated on the FIRMs. According to

FEMA, Zone AE is the flood insurance rate zone

that corresponds to the 1-percent annual

chance floodplains. In most instances, Base

Flood Elevations are determined within this

zone and mandatory flood insurance purchase

requirements apply. Zone VE is the flood

insurance rate zone that corresponds to areas

within the 1-percent annual chance coastal

floodplain that have additional hazards

associated with storm waves. Mandatory flood

insurance purchase requirements also apply

here. Zone A indicates areas with a 1% annual

chance of flooding and a 26% chance of

flooding over the life of a 30-year mortgage.

Because detailed analyses are not performed



for such areas; no depths or base flood

elevations are shown within these zones

(Source: FEMA). Areas shown as X-500 have a

moderate flood hazard, usually between the

limits of the 100-year and 500-year floods. All

other areas have a minimal flood risk.

Gloucester County is a FEMA Community Rating

System (CRS) member. Being a CRS member

means that the County is audited annually by

the Insurance Services Office (ISO) on how well

the floodplain regulations in the community are

administered and enforced. The CRS program is

designed to recognize and encourage

community floodplain management activities

that exceed the minimum National Flood

Insurance Program (NFIP) standards. In 2010,

Gloucester County earned “Class 7” status in

the CRS program. As a result, Gloucester

landowners who have flood insurance receive a

fifteen (15) percent discount on their annual

premiums.

Gloucester County has addressed the potential

hazards of development in flood prone areas

through the adoption and revision of a

Floodplain Management Ordinance, through

inclusion of floodplain protections in its

Subdivision Ordinance, and through

development of a Floodplain Management Plan

(FMP). The Floodplain Ordinance establishes

performance requirements for development

and redevelopment in floodplains. The

ordinance was revised on August 3, 2010 to

provide for increased flood protection

standards of structures in the Flood Prone areas

of the County. The Subdivision Ordinance

directs that land subject to flooding be set aside

for uses that would not be endangered by a

periodic or occasional inundation. Lastly,

County staff finalized a standalone floodplain

management plan for the County that analyzes

the causes of coastal flooding and identifies

vulnerabilities, evaluates existing coastal flood

management practices, and provides feasible

solutions to strengthen the County’s overall

coastal flood management system. Hazard

mitigation strategies for Gloucester County are

also addressed, and recommendations for

improving existing strategies are provided. The

plan incorporated input gained from citizens

during three public meetings and

communications with local, regional, state, and

federal agencies and organizations. A sixteen

(16) member planning committee made up of

County staff and citizens from flood prone areas

in Gloucester is charged with monitoring

implementation, reviewing progress, and

recommending revision to the plan in an annual

report. The plan must be updated at least once

every five years per the requirements of the

CRS program.

Dam Break Inundation Zones

Localities are required to study dam break

inundation zones and the potential impacts to

downstream properties and incorporate that

information into comprehensive plans. In

general, dams are regulated if they exceed a

certain height and capacity; exemptions are also

made for specific uses. The hazard potential of a

dam (low, significant, or high) is calculated

based on its structural integrity and the various

land uses that lie within its dam break

inundation zone. The Middle Peninsula Planning

District Commission covered dams and the

potential for dam failures as part of its Middle

Peninsula Natural Hazards Mitigation Plan,

completed in 2010. According to the Virginia

Department of Emergency Management, there

is one high hazard dam (Beaver Dam, with a

maximum storage capacity of 20,523 acre-feet)

in Gloucester County and one significant hazard

Gloucester County


27

dam (Cow Creek Dam, with a maximum storage

capacity of 931 acre-feet). There are nine

additional dams that are not rated for their

hazard potential by DCR. Dam break inundation

zones for the two regulated dams in Gloucester

County are shown on Map NENR-1013.

Tidal and Non-Tidal Wetlands

Wetlands are defined in Chapter 13 of Title 28.2

of the Code of Virginia and are classified as non-

vegetated or vegetated wetlands. Non-

vegetated wetlands means non-vegetated lands

lying contiguous to mean low water and

between mean low water and mean high water,

including non-vegetated areas subject to

flooding by normal and wind tides, but not

hurricane or tropical storm tides. Vegetated

wetlands are defined as lands lying between

and contiguous to mean low water and an

elevation above mean low water equal to the

factor one and one-half times the mean tide

range with certain types of vegetation present.

They consist of mostly visible marshes and

swamps. The type and extent of wetlands in

Gloucester County are shown on Map NENR-

1014. Estuarine wetlands are tidal wetlands.

Lacustrine wetlands are wetlands formed

around interior bodies of water or dammed

rivers. Palustrine wetlands are non-tidal

wetlands. Riverine wetlands are those wetlands

found along rivers before they reach lakes or

salinity levels rise near oceans.

According to the Virginia Wetlands

Management Handbook (1996), there are five

major benefits of wetlands. First, wetlands are

important sites of food and energy production

for the marine ecosystem. Second, they provide

important waterfowl and fish and wildlife

habitat. Third, wetlands provide natural

protection from shoreline erosion. Fourth,

wetlands help to filter pollutants, such as

sediment and nutrients, from urban runoff,

minimizing impacts to local water quality.

Finally, wetlands help to reduce flooding

through their capacity to absorb large amounts

of water.

In 2008, the Virginia Institute of Marine Science

(VIMS) published a shoreline situation report

for Gloucester County that describes its tidal

wetlands. Of the more than 492 miles of

shoreline studied, 90% percent is comprised of

wetlands, including fringe, embayed, and

extensive marshes. The total marsh and

wetland acreage of Gloucester County ranks

fifth among political jurisdictions in the

Commonwealth, behind only the counties of

Accomack and Northampton and the cities of

Chesapeake and Virginia Beach. Gloucester

County's more than 12,000 acres of wetlands

are comprised of high and low marshes, creeks,

ponds, wooded areas, and tidal flats. At least

5,000 of these acres are marsh, 3,500 acres are

in creeks, 1,800 acres are comprised of tidal

flats, and nearly 600 acres are swamp land less

than five feet above sea level. Hammocks are

areas elevated above the surrounding marsh

and usually dominated by pines, cedars, and

wax myrtle. They comprise about 1,000 acres of

the County's wetlands and account for about 40

percent of the state's total hammock-type

physiography, more than in any other County.

Existing Wetlands Protection Policies

Gloucester County currently protects wetlands

through its Wetlands Zoning Ordinance. Under

the Ordinance, any proposal to develop any

vegetated or non-vegetated tidal wetland must

first apply for a permit from the local wetlands

board or the Virginia Marine Resources

Commission (VMRC). The Board works in

conjunction with VMRC and the U.S. Army



Corps of Engineers’ Section 404 permit program

in reviewing applications. In addition, tidal

wetlands are protected as Resource Protection

Area (RPA) features by the County’s

Chesapeake Bay Preservation Ordinance. This

ordinance provides protection by requiring a

buffer between development and the RPA

feature. Non-tidal wetlands and other areas not

included in the RPA are protected by

designating them as Resource Management

Areas. Some shoreline projects may include

impacts under both the Wetlands Ordinance

and the Chesapeake Bay Preservation

Ordinance and may require coordinated

reviews to address the requirements of both

programs. Map NENR-11 15 depicts the

approximate location of CBPA Resource

Protection Areas in Gloucester County.

In Virginia, tidal wetlands are also protected by

the 1972 Wetlands Protection Act, as amended.

The Act enabled the County to adopt its

Wetlands Ordinance. This law established the

joint permit process for construction, dredging,

or filling in a tidal wetland and serves as the

source of authority for actions taken on permits

by the Gloucester County Wetlands Board.

VMRC coordinates the joint permit with all

appropriate agencies for review. VMRC also

administers the Wetlands Protection Act and

reviews all decisions handed down by the

County board.

Non-tidal wetlands are currently regulated at

the federal level by Section 404 of the 1977

Clean Water Act, as amended, which prohibits

disposal of dredged or fill material into waters

of the United States and adjacent wetlands. A

permit from the Army Corps of Engineers is

required for non-tidal wetlands impacts. In

addition, the Virginia Nontidal Wetlands Act of

2000 governs activities affecting non-tidal

wetlands within the state and includes the

following provisions. The law:

• Requires permittees first to avoid, then

minimize and, if wetlands must be

destroyed, to replace their acreage and

function.

• Adopts the scientifically accepted definition

of wetlands currently used by the federal

government and the State Water Control

Board.

• Requires permits and mitigation from those

proposing to drain, dredge, excavate, ditch,

flood or impound, fill or discharge into non-

tidal wetlands.

• Requires the state to seek a Corps of

Engineers' State Programmatic General

Permit (SPGP) for most activities, thereby

streamlining the permitting process. This

SPGP has been issued. The Virginia

Department of Environmental Quality (DEQ)

issues state permits based on this general

permit.

• Exempts normal agricultural and

silvicultural activities and homeowner

landscaping and maintenance.

• Requires general permits for a variety of

activities, including sand, coal and gas

mining activities, linear easements for

public utilities and transportation projects,

and activities affecting less than one-half

acre. These general permits are issued by

DEQ.

Green Infrastructure

As new residential and commercial

development take place in Gloucester County it

will be important to plan carefully for the

protection of rural character and environmental

resources that support a high quality of life for

the County’s citizens. Green infrastructure is a

systematic approach to conservation planning

that can address a broad range of community

needs. A green infrastructure approach can be

used to identify a network of lands that is

Gloucester County


29

valuable for a variety of reasons including

natural resource protection, water quality

protection, recreation, and protection of

working lands and cultural resources. Green

infrastructure planning is also useful in

differentiating between areas that are suitable

for future development and those that are not.

The Hampton Roads Planning District

Commission (HRPDC) has completed a series of

reports identifying important environmental

areas in the region for inclusion in a regional

green infrastructure network. This network

extends from Gloucester County through the

Peninsula to the Southside and Western

Tidewater, and includes areas that provide

water quality and wildlife habitat benefits. The

most recent version of the Gloucester portion

of the regional green infrastructure network is

shown on Map NENR-1216. This network is

documented in a series of reports11 that

describe the methodologies used to identify the

network. It also contains an inventory of

resources such as parks and recreational areas.

The regional network will be a starting point for

the development of a more detailed network

for the County. This county network can be

used to connect the County’s rich natural

resources with additional cultural and historic

resources. It can also be used as a tool to plan

for connections between important County

assets. Even as the County grows and develops,

existing rural and cultural landscapes and scenic

views can be protected for residents and

tourists visiting recreational and historic sites

throughout the County.

11

HRPDC Green Infrastructure reports include A Green Infrastructure Plan for Hampton Roads (2010), Green Infrastructure in Hampton Roads (2007), and The Hampton Roads Conservation Corridor Study(2006).

The HRPDC regional green infrastructure

network identifies areas that are high value for

water quality, habitat protection, and both. In

Gloucester County, the 2010 green

infrastructure plan identified approximately 900

acres that were high value for water quality,

over 16,000 acres that were high value for

habitat protection, and nearly 26,000 acres that

were high value for both. This analysis can be

used to prioritize areas for conservation,

preservation, or outdoor recreational use. It can

also be used to design a network of active and

passive recreational areas that connect to

environmental resources, as well as cultural and

historic resources.

Major Issues

Soil Suitability for Septic Systems

As discussed earlier, the majority of the soils in

the southeastern part of Gloucester are

classified as at least partially hydric, meaning

that inundation occurs for periods of time that

are sufficient to create anaerobic conditions.

Hydric soils are also found along streams and

rivers throughout the County. Although not all

areas with hydric soils are classified as

wetlands, these areas generally have a high

water table and are susceptible to poor

drainage and flooding. They are unsuitable for

development or for conventional septic

systems.

Prior to environmental and land use regulation,

residential and commercial development

occurred in the southeastern half of the County

where the soils are poorly suited for residential

development. Wastewater disposal and

protecting groundwater quality are soil-related

problems that could be aggravated by unguided



future development. The Future Land Use Plan

identifies those areas of the county that are

unsuitable for septic system use or are

otherwise unfit for intensive residential,

commercial, or industrial development due to

physical constraints.

Shoreline Erosion and Erosion

Rates

Severely eroding shorelines are defined by the

Virginia Chesapeake Bay Local Assistance

Manual as eroding at a rate greater than 3 feet

per year. Although generally small in size, there

are several areas of high bank erosion noted in

Gloucester County. These include the Carmine

and Mumfort Islands in the York River, isolated

areas around Timberneck Creek, and much of

Mill Creek. Areas with high marsh erosion rates

are reported near Morris Bay, Monday Creek,

and along the Ware River in the vicinity of Page

Creek, Goat Point Creek, Four Point Marsh, and

Mud Point. However, areas of high erosion

account for only about 4% of the marshy

shoreline in the County and the remainder

appears to be generally stable.

A recommended hierarchy of possible shoreline

stabilization measures for low, moderate, and

severely eroding shorelines is provided below.

The following ranking, summarized in Table NR-

5, is consistent with the goals of the

Chesapeake Bay Preservation Act and may help

to guide recommendations on applications for

installing new stabilization structures or

replacing existing structures. It is important to

note that although erosion control options are

ranked individually, often a combination of

erosion control methods is necessary. The

measures are listed by ranking, with #1 being

the most preferable option. In 2011, the

General Assembly adopted living shorelines as

the preferred shoreline stabilization measure as

opposed to shoreline hardening measures such

as bulkheads.

Where shoreline stabilization is necessary, a

unified area approach, rather than an individual

site-by-site approach, is recommended. When

such an approach is taken, individual costs can

be lessened and worsening erosion problems

for neighboring properties can be avoided. For

more information on erosion control options,

refer to Section V - Shoreline Erosion Control

and Access Policy Options of the HRPDC

Regional Shoreline Element of Comprehensive

Plans, Part I: Guidance Manual. An additional

source of information on shoreline erosion

control options that is useful for homeowners is

Shoreline Management in Chesapeake Bay

(Hardaway and Byrne, 1999). A series of in-

house studies titled Shoreline Erosion Control

Guidelines, by the Virginia Department of

Conservation and Recreation (1993), states that

maintenance and establishment of marsh

grasses should be considered as the first choice

for shoreline erosion control in low energy

areas with adequate site conditions.

Gloucester County


31

Table NENR-X5: Hierarchy of Possible Shoreline Stabilization

Measures Ranking Stabilization Measure

Areas with a Low Erosion Rate (<1 foot/year)

1 Vegetative stabilization with/without bank regrading (if applicable)

2 Revetments

3 Bulkheads

Areas with a Moderate Erosion Rate (1-3 feet/year)

1 Vegetative stabilization (depending on site-specific conditions)

2 Beach nourishment

3 Revetments

4 Breakwaters

5 Groins

6 Bulkheads (depending on site-specific conditions)

Areas with a Severe Erosion Rate (>3 feet/year)

1 Relocation

2 Beach nourishment

3 Revetments

4 Breakwaters

5 Groins

6 Seawall

Generally speaking, for enhancing water quality

and aquatic habitat, the Living Shorelines

approach using vegetative and non-structural

forms of erosion control is preferred over other

forms of shoreline stabilization. However, non-

structural forms of erosion control are not

always effective at shoreline stabilization as

wave energy increases and erosion becomes

more severe. Along shorelines with less than 0.5

nautical miles of fetch, marsh planting may be a

viable form of shoreline erosion control. Along

interior creeks where erosion is more severe,

marsh plantings may be protected by a

breakwater type of structure, such as a

submerged sill, to protect the marsh toe. This

approach has been shown to be successful

throughout the Chesapeake Bay.

Gloucester County Code, §7.5-10, allows the

County to designate erosion impact areas under

the Erosion and Sediment Control Ordinance.

Additionally, approval of a conservation plan for

any erosion impact area can be required and

made subject to all review, bonding, inspection,

and enforcement provisions that apply to

approved land-disturbing permits. The plan

must be submitted by the property owner.

Currently, the County has not determined a

need to designate any areas as erosion impact

areas. It appears that most of the areas with

erosion problems are areas that have already

been developed. Where new development is

considered, the County’s existing regulations



provide for protection of shorelines through

avoidance (buffers) and mitigation. In areas

where erosion affects already developed land,

erosion control is the responsibility of the

property owner.

Stormwater Management

Managing stormwater is an important local

government function in Virginia. Gloucester

County does not have a municipal stormwater

system along the lines of those in cities such as

Norfolk or Virginia Beach. Instead, it manages

stormwater primarily through regulations such

as the County’s Chesapeake Bay ordinance and

its Erosion and Sediment Control ordinance,

both of which are part of the County Code. This

type of stormwater management program

works best in mostly rural counties like

Gloucester. However, parts of Gloucester such

as Gloucester Point are growing. This may result

in Gloucester being required to manage its

stormwater through a dedicated treatment

program. The United States Environmental

Protection Agency is studying potential changes

to federal stormwater regulations for coastal

communities. This, along with the results of the

2010 U.S. Census, has the potential to redefine

Gloucester as a more urban or highly populated

locality, which would require additional

investment in stormwater infrastructure. The

Chesapeake Bay TMDL and recently-adopted

Virginia state stormwater regulations could also

result in changes to how the County will have to

manage its stormwater system.

Coastal Resources Management

Coastal ecosystems reside at the interface

between the land and water and are naturally

very complex. They perform a vast array of

functions, including shoreline stabilization,

water quality protection, flood protection, and

fish, wildlife, and plant habitat, all of which

provide direct and indirect benefits to coastal

communities like Gloucester County. Research

on coastal ecosystem resource management

has revealed that traditional resource

management practices limit the ability of the

coastal ecosystem to perform many of these

essential functions. The loss of these services

has already been noted throughout coastal

communities in Virginia as a result of

development in coastal areas coupled with

common erosion control practices. For

example, beaches and dunes are diminishing

due to a reduction in a natural sediment supply.

Also, wetlands are drowning in place due to the

combination of sea level rise and barriers to

inland migration resulting from the construction

of bulkheads and revetments. Continued

armoring of shorelines and development in

coastal areas threatens the long-term

sustainability of coastal ecosystems adapting to

sea level rise.

In response, the General Assembly has

designated “living shorelines” as the preferred

alternative for shoreline stabilization in

Virginia’s coastal areas. The term living

shoreline encompasses a full spectrum of

design options appropriate for various wave

energy settings and erosion problems; they

range from marsh plantings to the use of rock

sills in combination with beach nourishment.

These approaches combat shoreline erosion,

minimize impacts to the natural coastal

ecosystem, and reinforce the principal that an

integrated approach for managing tidal

shorelines enhances the probability that the

resources will be sustained. Therefore, local

governments should adopt the guidance and

practices recommended by VIMS to ensure that

functions performed by coastal ecosystems will

Gloucester County


33

be preserved and the benefits derived by

humans from coastal ecosystems will be

maintained into the future. The guidance

developed by VIMS recommends:

- utilizing VIMS Decision Trees to review and

select appropriate erosion control and

shoreline management practices12

- adopting these shoreline best management

practices as the recommended approach

and requiring justification by applicants

seeking to use another approach

- training local staff on these decision-making

tools

- making local policies consistent with the

general permit being developed by VMRC

- educating citizens and stakeholders on the

benefits of living shorelines

- evaluating and considering a locality-wide

permit to promote living shorelines

- considering preserving available open

spaces adjacent to marshlands to allow for

inland retreat in response to sea level rise

- evaluating and considering cost share

opportunities for construction of living

shorelines

Sea Level Rise

The Hampton Roads region is highly vulnerable

to damages from storm surge and potential sea

level rise. Much of the region is relatively flat

and low-lying, which allows storms to push

ashore and flood large areas. While related,

vulnerability to these two hazards creates

different sets of risk for Gloucester County.

Storm surge vulnerability impacts the County

now. A significant part of the County lying east

of Route 17 lies in a Category 1, 2, 3, or 4 Storm

Surge Area, as shown in Table NENR-36. The

most vulnerable areas of the County are found

12

More information on the VIMS Decision Trees is available on the website for the Center for Coastal Resources Management at http://ccrm.vims.edu/decisiontree/index.html

along Mobjack Bay and include Jenkins Neck,

Maryus, Severn, Achilles, Bena, Perrin, Robins

Neck, Glass, Dutton, Ware Neck, White Marsh

and portions of Gloucester Point. This is

illustrated on Map NR-1317.

Table NENR-36: Area Vulnerable to Storm Surge

in Gloucester County (Areas are cumulative)

STORM SURGE CATEGORY AREA (ACRES)

1 21,476

2 35,518

3 40,254

4 43,904

Source: Hampton Roads Planning District

Commission

Hurricanes and other storms can cause

significant damage to buildings. Tidal and surge

flooding is limited to coastal areas. In addition

to impacts on structures, these storms can have

significant impacts on the natural environment.

Storms can erode beaches and blow down trees

and other vegetation. Many of the most critical

environmental areas in Hampton Roads are

located in areas that could be affected by storm

surge. For example, an analysis by the Hampton

Roads Planning District Commission calculated

the amount of green infrastructure in the region

that is vulnerable to a Category 1 storm surge at

approximately 84,000 acres, or 16.5% of the

region’s entire green infrastructure network.

Sea level rise could potentially result in the

inundation or severe erosion of a significant

part of eastern Gloucester County, as shown on

Map NR-1417. Global sea level rise is the result

of melting ice, which adds to the amount of

water in the oceans, as well as the warming of

the oceans, which results in their thermal

expansion. At the local scale, sea level rise is a

combination of global sea level rise, local and

regional currents, and the vertical movement of



land. Gloucester, like much of Hampton Roads

and eastern Virginia, is sinking, or subsiding,

due to several geological processes. The end

result is that the entire region is experiencing

significant local sea level rise. According to the

National Oceanic and Atmospheric

Administration (NOAA), the long-term trend of

sea level rise at the Gloucester Point/Yorktown

Tide Station is about 0.15 mminches/year, or

approximately 1.25 feet every 100 years.

However, climate change is projected to

increase the rate of global sea level rise, which

could result in much higher rates of sea level

rise experienced in Gloucester and across

Hampton Roads. Current projections of global

sea level rise by the end of the 21st century

range from about half a meter to two meters,

according to the U.S. Army Corps of Engineers.13

Surface Water Quality

Point Source Pollution

Point source pollution is a major source of

surface water quality issues. Point sources of

pollution include municipal and industrial

dischargers and individual waste treatment

systems. The Clean Water Act requires

wastewater dischargers to have a permit

establishing pollution limits and specifying

monitoring and reporting requirements.

National Pollutant Discharge Elimination System

(NPDES) permits regulate household and

industrial wastes that are collected in sewers

and treated at municipal wastewater treatment

plants. Permits also regulate industrial point

sources and concentrated animal feeding

operations that discharge into other

wastewater collection systems or that discharge

directly into receiving waters. The types of

13

U.S. Army Corps of Engineers Engineering Circular 1165-2-212, “Sea-Level Change Considerations for Civil Works Programs”

pollutants regulated include conventional

pollutants (human wastes, food from sink

disposals, laundry and bath waters), toxic

pollutants (organics and metals), and

nonconventional pollutants, (such as nitrogen

and phosphorus), that may require regulation.

In Virginia, NPDES permits are administered by

the Virginia Department of Environmental

Quality (DEQ) and are identified as Virginia

Pollution Discharge Elimination System (VPDES)

Permits. According to data from DEQ, there are

four current holders of VPDES permits in

Gloucester County.

Thirteen Hampton Roads localities, including

Gloucester County, are currently under a

Special Order by Consent with the Virginia

Department of Environmental Quality (DEQ)

concerning sanitary sewer overflows. The

Hampton Roads Sanitation District (HRSD) has

separately entered into a Consent Decree with

the U.S. Environmental Protection Agency

(EPA). This consent order is the result of the U.

S. EPA’s expanded enforcement priorities,

which target sanitary sewer systems serving

populations over 1 million. This Consent Order

requires local and regional wastewater utilities

to assess and test their conveyance systems for

failures and capacity related issues, making

necessary replacements and system

enhancements. The affected Hampton Roads

localities and HRSD are working together in this

compliance effort, which will result in a

Regional Wet Weather Management Plan that

will guide prioritization and investment in larger

scale projects.

The Toxic Release Inventory (TRI) contains

information about more than 650 toxic

chemicals that are being used, manufactured,

treated, transported or released into the

environment. Hazardous waste information is

Gloucester County


35

contained in the Resource Conservation and

Recovery Information System (RCRIS), a

national program management and inventory

system about hazardous waste handlers. In

general, all entities that generate, transport,

treat, store, and dispose of hazardous wastes

are required to provide information about their

activities to state environmental agencies.

According to the EPA, there were no TRI permit

holders in Gloucester in 20102011, the latest

year for which data is available. EPA’s Resource

Conservation and Recovery Act Information

(RCRAInfo) database lists 46 48 RCRIS permit

holders in Gloucester as of October 2011June

2013. Both RCRAInfo and VPDES permit holders

are listed in Table NENR-67.

The release of hazardous materials at

designated hazardous material facilities on

major transportation routes within the County

poses potential threat to both surface water

and groundwater resources. Gloucester County

has established a Local Emergency Planning

Committee (LEPC) to address this threat. In

addition to the benefits to public safety, the

LEPC works to reduce the threat of surface

water and groundwater contamination through

quick response to transportation accidents and

release of hazardous materials.

Non-Point Source Pollution

Non-point sources, which have the most

significant impact on surface water quality in

Gloucester County, encompass all those inputs

to surface water that cannot be identified as

having originated from a distinct discharge

point. These include stormwater runoff from

agriculture, urban or forested land surfaces;

atmospheric inputs; solid waste disposal; land

application of sludge and wastewater; septic

tanks; dredging; development/construction

material spills and leaks; marinas, and

shipyards, as well as impacts from the natural

environment such as weathering of soils which

provides metals, acids, etc. These types of

pollution are not readily quantified, although a

relationship does exist with the amount of

precipitation. More precipitation produces

more runoff and thus a greater non-point

source impact. In Gloucester County,

agricultural runoff, residential septic system

discharges, stormwater runoff, or marina

discharges are generally linked to the

condemnation of shellfish grounds due to non-

point source pollution. Many of the same

sources affecting surface water quality impacts

also have the potential to impact groundwater

resources.



Table NENR-67: Gloucester County Potential Sources of Pollution

PERMIT TYPE FACILITY LOCATION

RCRA 7-11 #10848 - Rt 17 & 641 Gloucester Point

RCRA 7-11 #19634 – Route 17 North Gloucester

RCRA 7-11 #20570 Glenns

RCRA Advanced Finishing, Inc. Hayes

RCRA Borden Chemical Gloucester

RCRA Cleo Huskeys Body Shop Hayes

RCRA Colony Metalsmiths, Inc. Hayes

RCRA Control Products USA Hayes

RCRA East Coast Oil #54 Gloucester Point

RCRA East Coast Oil #74 Gloucester

RCRA Farm Fresh #6290 Hayes

RCRA Fast Fare Inc. Hayes

RCRA Ferguson Enterprises, Inc. Ordinary

RCRA Glass Marine, Inc. Hayes

RCRA Gloucester Auto Body Repair Hayes

RCRA Gloucester Convenient Care Hayes

RCRA Gloucester County Public Schools Gloucester

RCRA Gloucester Laundry And Cleaners Gloucester

RCRA Gloucester Lumber Products, Inc. Gloucester

RCRA Green Gates Gifts Gloucester Point

RCRA Gunns Body Shop, Inc. Gloucester

RCRA Home Depot #4650 Gloucester

RCRA Hudgins Bill Olds Pontiac GMC Gloucester

RCRA Industrial Resource Tech, Inc. Gloucester

RCRA Industrial Resource Tech, Inc. Gloucester

RCRA Jordan Marine Service, Inc. Gloucester Point

RCRA Ken Houtz Chevrolet Buick Gloucester

RCRA Mega Contractors, Inc. Glenns

RCRA Merchant’s LLC #420 Gloucester

RCRA Merlin Auto Machine Hayes

RCRA Mid-County Center Gloucester

RCRA Middle Peninsula Landfill Glenns

RCRA Middle Peninsula Landfill Hayes

RCRA Quinn Motors Gloucester

RCRA Rappahannock Community College Glenns

RCRA Riverside Walter Reed Hospital Gloucester

RCRA Southern States Gloucester

RCRA Southern States Gloucester

RCRA Star Metal Finishing, Inc. Hayes

RCRA Star Metal Finishing, Inc. Hayes

Gloucester County


37

PERMIT TYPE FACILITY LOCATION

RCRA Tidewater Newspaper, Inc. Gloucester

RCRA VIMSVirginia Institute of Marine Science Gloucester Point

RCRA VEPCO Gloucester

RCRA Wal-Mart #1759 Gloucester

RCRA Wal-Mart Supercenter #1759 Gloucester

RCRA Waste Management Gloucester High Gloucester

RCRA Wawa Food Market #652 Hayes

RCRA York River Yatch Haven Gloucester Point

VPDES Gloucester County Wastewater Water Treatment

Plant

Gloucester

VPDES Gloucester Lumber Products Inc. - Dutton Gloucester

VPDES Rappahannock Community College – Glenns

Campus

Glenns

VPDES VIMS Toxicology LaboratoriesGloucester Point Gloucester Point

Source: DEQ; EPA Resource Conservation and Recovery Act Info

Impaired Waters

The most recent Virginia Water Quality

Assessment, published in 2010, identifies

several types of water quality problems in

Gloucester County’s waterways, including

polychlorinated biphenyls (PCBs) and mercury

in fish tissue, dissolved oxygen, E. coli, and fecal

coliform contamination. DEQ’s 2010

305(b)/303(d) Water Quality Assessment

Integrated Report for Virginia shows

impairments for shellfishing, fish consumption,

aquatic life, and recreation (Table NENR-78). Of

particular concern in Gloucester is the number

of shellfish condemnations due to the presence

of fecal coliform bacteria. These closures affect

numerous creeks throughout the County. In

addition, due to PCBs found in fish tissue, a fish

consumption advisory has been issued for the

main stems of both the Chesapeake Bay and the

York River. The most recent draft of the 2012

report is available by accessing the Department

of Environmental Quality’s website.Department

of Environmental Quality’s website.14

14

http://www.deq.virginia.gov/Programs/Water/Wat

Total Maximum Daily Loads

The Commonwealth of Virginia has set a goal

for all streams to support beneficial uses, which

include primary contact/swimming, fishing,

shellfishing, drinking water, and aquatic life. In

order to achieve this goal, the state is

responding to mandates from the

Environmental Protection Agency by developing

Total Maximum Daily Loads (TMDLs), or

“pollution diets”, for impaired waterways.

TMDLs specify a given amount of a pollutant

that can be put into a water body on an annual

basis. A TMDL Study identifies sources of

pollution and reductions needed from the

identified pollutants to attain water quality

standards. Pollution from both point sources

such as residential, municipal, or industrial

discharges and non-point sources such as

residential, urban, or agricultural runoff are

included in the TMDL study (DEQ, 2010).

erQualityInformationTMDLs/WaterQualityAssessments.aspx



The Virginia Department of Environmental

Quality (DEQ) has completed seven TMDLs for

Gloucester County as of March 2010. These

address water quality impairments in the

following waterways:

• Browns Bay and Monday Creek

• North River

• Severn River Watershed

• Ware River Watershed

• Poropotank River and Adams Creek

• Sarah Creek and Upper Perrin River

• York River shellfish waters (growing area

47)

Implementation plans need to be developed for

each of these TMDLs to produce improved

water quality, and additional TMDLs are

planned to address other impaired waterways

in the County. Gloucester County will continue

to support this process and assist in effectively

implementing these plans to improve water

quality.

Chesapeake Bay-Wide TMDLs

Because the water quality goals set forth in the

Chesapeake 2000 Agreement were not met by

2010, and because impaired segments of the

Chesapeake Bay remain on the states' Clean

Water Act section 303(d) lists, the U.S.

Environmental Protection Agency established a

Total Maximum Daily Load for nutrients and

sediment for the entire Chesapeake Bay and its

tidal tributaries. The final version of the

Chesapeake Bay TMDL was released in

December 2010, and Virginia submitted its

completed Phase II Watershed Implementation

Plan to EPA in March 2012.

(http://www.dcr.virginia.gov/vabaytmdl) The

TMDL assigns nutrient allocations for nitrogen,

phosphorus, and sediments by major river

basin; because these allocations are currently

exceeded, reductions will be required.

Gloucester is located in the York River and

Chesapeake Bay Coastal basins. Virginia, based

on the Chesapeake Bay TMDL allocations, has

assigned allocations and prescribes reductions

in its Phase I Watershed Implementation Plan

(WIP) by sector: agriculture, atmospheric

deposition, forest, septic systems, urban areas,

and wastewater. The state also assigns theses

allocations by segment sheds, or sub-basins.

Virginia will issue its Phase II WIP in March 2012

that will include allocations by locality and

propose strategies to meet those allocations.

Implementing the Chesapeake Bay TMDL has

the potential to impose significant costs on the

County. Most of the reductions (60%) will have

to be met by 2017, with the rest by 2025.

Significant requirements will be placed on new

development and redevelopment, in the form

of reductions in nutrient loads or required steps

to eliminate load increases beyond the

designated undeveloped standard. Agricultural

lands will have to reduce their loads through

increased use of agricultural best management

practices (BMPs). Developing management

plans for reducing its nutrient loads across all

sectors will be a major responsibility for

Gloucester County over the life of the TMDL.

Gloucester County


39

TABLE NENR-78: Water Body Segments Not Meeting Quality

Standards

WATERBODY USE NOT BEING MET IMPAIRMENT

Lower York River Aquatic Life Aquatic Plants (Macrophytes)

Mobjack Bay Aquatic Life Aquatic Plants (Macrophytes)

Piankatank Mesohaline Estuary Aquatic Life Aquatic Plants (Macrophytes)

York Mesohaline Aquatic Life Aquatic Plants (Macrophytes)

Unnamed Tributary to Bland Creek Aquatic Life Benthic-Macroinvertebrates

Crany Creek Aquatic Life Dissolved Oxygen

Dragon Swamp Aquatic Life Dissolved Oxygen

Fox Mill Run Aquatic Life Dissolved Oxygen

Fox Mill Run, UT Aquatic Life Dissolved Oxygen

Lower York River Aquatic Life Dissolved Oxygen

Mobjack Bay Aquatic Life Dissolved Oxygen

Northwest Branch Severn River Aquatic Life Dissolved Oxygen

Piankatank Mesohaline Estuary Aquatic Life Dissolved Oxygen

York Mesohaline Aquatic Life Dissolved Oxygen

Lower York River Aquatic Life Estuarine Bioassessments

Dragon Swamp/Piankatank River Fish Consumption Mercury in Fish Tissue

Chesapeake Bay Mainstem & Tidal

Tributaries

Fish Consumption PCB in Fish Tissue

York River Mainstem Fish Consumption PCB in Fish Tissue

Burke Mill Stream Recreation E. coli

Crany Creek Recreation E. coli

Fox Mill Run Recreation E. coli

Northwest Branch Severn River, UT Recreation E. coli

Ferry Creek Recreation Enterococcus

Harpers Creek Recreation Enterococcus

Northwest Branch Severn River Recreation Enterococcus, E. coli

Aberdeen Creek - Upper Shellfishing Fecal Coliform

Adams Creek Shellfishing Fecal Coliform

Back Creek Shellfishing Fecal Coliform

Belleville Creek Shellfishing Fecal Coliform

Carter Creek - Middle Shellfishing Fecal Coliform

Carter Creek - Upper Shellfishing Fecal Coliform

Cedarbush Creek - Mouth Shellfishing Fecal Coliform

Cedarbush Creek - Upper Shellfishing Fecal Coliform

Dancing Creek Shellfishing Fecal Coliform



WATERBODY USE NOT BEING MET IMPAIRMENT

Davis Creek Shellfishing Fecal Coliform

Elmington Creek Shellfishing Fecal Coliform

Elmington Creek Shellfishing Fecal Coliform

Ferry Creek Shellfishing Fecal Coliform

Free School Creek Shellfishing Fecal Coliform

Frenchs Creek Shellfishing Fecal Coliform

Heywood Creek Shellfishing Fecal Coliform

Jones Creek Shellfishing Fecal Coliform

Morris Bay Shellfishing Fecal Coliform

North River Shellfishing Fecal Coliform

North River Shellfishing Fecal Coliform

Northwest Branch Severn River Shellfishing Fecal Coliform

Northwest Branch Severn River/Vaughns

Creek

Shellfishing Fecal Coliform

Perrin River Shellfishing Fecal Coliform

Piankatank River, UT Shellfishing Fecal Coliform

Piankatank River/Harpers Creek Shellfishing Fecal Coliform

Piankatank River/Harpers Creek Shellfishing Fecal Coliform

Poropotank River Shellfishing Fecal Coliform

Purtan and Leigh Creeks Shellfishing Fecal Coliform

Sarah Creek - Western Branch, Upper Shellfishing Fecal Coliform

Sarah Creek, Western Branch and Eastern

Branch, Upper

Shellfishing Fecal Coliform

Thorntons Creek Shellfishing Fecal Coliform

Timberneck Creek - Upper Shellfishing Fecal Coliform

Ware River Shellfishing Fecal Coliform

Ware River/Fox Mill Run Shellfishing Fecal Coliform

Wilson Creek Shellfishing Fecal Coliform

Wilson Creek Shellfishing Fecal Coliform

Source: DEQ, 305(b)/303(d) Water Quality Assessment Integrated Report for Virginia, 2010

Gloucester County


41

Groundwater Protection

In Gloucester County, the unconfined aquifer is

the Columbia Aquifer. In the context of potable

drinking water supplies, the Columbia Aquifer is

not the aquifer of choice due to relatively low

yields, poor water quality, and the propensity

for groundwater contamination. Some older

homes, however, may still rely on the Columbia

aquifer for consumptive use. Groundwater

contained in the upper confined aquifers is a

much better choice for drinking water than the

Columbia Aquifer.

The Aquia and Potomac aquifers in Gloucester

are likely to contain brackish water that

requires desalination to make it potable. The

Yorktown-Eastover and Piney Point aquifers are

the best groundwater resources available in the

county. The USGS study of domestic water use

estimated that 94% of wells serving individual

homes or businesses in Gloucester are in the

Yorktown-Eastover aquifer or confining zone

and 6% are in the Piney Point aquifer. The total

domestic use is approximately 1.87 million

gallons per day.

Based on a review of literature and DEQ

records, there are seven high priority threats to

groundwater in Southeastern Virginia. These

are (1) inefficient septic systems; (2) leaky

underground storage tanks; (3) spills and

improper disposal of hazardous materials; (4)

leaky surface waste impoundments: (5) leaky

landfills; (6) improper pesticide and fertilizer

applications; and (7) pumping induced saltwater

encroachment.

Local Groundwater Protection

Decisions made by local governments have the

greatest potential to impact groundwater

quality. Developing a groundwater

management plan that incorporates

community-specific goals and locally

appropriate management techniques and

reflects local groundwater protection needs is a

key step in creating an effective groundwater

protection program. Several management

techniques should be combined to maximize

effectiveness and minimize costs. The Ground

Water Protection Handbook for Southeastern

Virginia (1990) prepared by the Hampton Roads

Planning District Commission (formerly the

Southeastern Virginia Planning District

Commission) provides local guidance for

developing a groundwater management plan.

Some steps that Gloucester County has already

taken to minimize negative impacts on

groundwater resources involve septic systems.

Traditional septic tanks are only allowed in

areas where soils allow those systems to

percolate; they are not allowed in areas with

hydric soils, for instance, which include many of

the County’s Chesapeake Bay Resource

Protection Areas. Minimum drain fields are also

required for septic system use. However, these

soil-based regulations do not apply to

engineered alternative onsite sewage systems

(AOSS).

The County’s Chesapeake Bay Preservation Area

Ordinance is of particular importance in

protecting groundwater quality. This ordinance

requires mitigation measures, including best

management practices, vegetative buffers,

protection of sensitive environmental

resources, and limitations on impervious cover,

on all development sites. These measures help

to protect both surface and groundwater from

pollution, and also better enable water to

percolate through the soil to groundwater.



In 2009, the Department of Environmental

Quality began considering expansion of the

Groundwater Management Areas. Gloucester is

in the proposed expansion area. Section 9 VAC2

5-600-20 would have to be amended to add

more localities to the groundwater

management program. Within Groundwater

Management Areas, withdrawals over 300,000

gallons per month (e.g. large industrial users

such as paper mills, nurseries, or golf courses)

require a permit from DEQ. The state reviews

requests for withdrawals. It considers many

factors including whether or not there is

enough groundwater available to meet the

request and if the withdrawal amount is

justified by beneficial uses. The groundwater

withdrawal permit fee is $6,000 and the term of

the permit is ten years.

Potential Groundwater Pollution

Sources

Defective Septic Systems

On-site sewage disposal systems, if improperly

designed, installed or poorly maintained, can

pose threats to surface water and groundwater

supplies. Pesticides, herbicides, household

cleaning products, and septic tank cleaning

products can enter groundwater systems

through septic systems. Nutrients such as

nitrogen and phosphorus dissolved in

wastewater can also negatively impact the

water quality of adjacent surface waters. The

County’s Chesapeake Bay Preservation Area

Ordinance requires that all conventional on-site

sewage disposal systems be pumped-out at

least once every five years. The County’s

Department of Codes Compliance coordinates

monthly with local septic system contractors to

maintain a database of all septic systems that

have been pumped out. Notices are sent to

those that have not pumped out their systems

within the five-year period from the start of the

database. The County holds periodic workshops

regarding septic tank maintenance and has

included a section explaining the need to pump

out septic tanks in its “Natural Resource Map

and Assistance Guide” published in January

1999. The County also requires primary and

reserve drain fields areas outside the RPA on all

new lots and a reserve location on prior

recorded lots where an acceptable percolation

site is available.

Problems with failing septic systems have been

documented by the Virginia Department of

Health (VDH) during shoreline sanitary surveys.

Failing septic systems are of particular concern

in the lower eastern quadrant of the County

where hydric soils and tidal and non-tidal

wetlands prevail on developed properties. The

Three Rivers Health District of the VDH has

committed additional personnel to address the

problems of failing septic systems documented

during the shoreline surveys. A database has

been designed to track violations and VDH is

actively involved in instituting corrective

measures, either through enforcement or by

facilitating septic repair through a cooperative

effort with agencies offering financial assistance

through grants or low interest loans. One

element not addressed in these shoreline

surveys is the number of properties that lack

indoor facilities. Homes that rely on “pit” or

“vault” privies (outhouses) are not cited unless

the privy is unusable or is expressing sewage

onto the ground surface.

Gloucester County’s Commissioner of Revenue

office estimates there are approximately 13,700

homes on private septic systems. According to

the VDH staff in Gloucester County, the

approximate failure rate of septic systems in

the County is estimated at ten to fifteen

Gloucester County


43

percent (10-15%) with a replacement rate of

approximately every twenty (20) years.

In July 2000, the state implemented new

regulations governing the installation of sewage

disposal systems (12 VAC 5-610). These

regulations shift attention from mere disposal

of household water effluent to treatment and

protection of groundwater resources. One

major change is that the repair of existing septic

systems must comply to the greatest extent

possible with the new regulations, not just

merely replace what currently exists. Because

of the soil types encountered in the southeast

portion of the County, most repairs will need

engineered systems that provide secondary

treatment of sewage effluent prior to disposal.

Due to the economic level of many of the

residents in the affected areas, the higher cost

of the technology required is not easily

attainable. These regulations also may permit

the use of pre-treatment systems where, under

the previous regulations, they may not have

been permitted. In addition to the economic

issue, these engineered systems require

continued maintenance in order to be effective.

If properly installed and maintained, pre-

treatment systems are very effective. However,

without proper maintenance, these systems

may result in the discharge of unacceptable

effluent into surface and groundwater

resources. Continued maintenance of pre-

treatment systems is an important issue to be

addressed. In 2006 the County revised its

ordinance to require any new lot less than two

(2) acres in size to connect to public water and

sewer. This was done to reduce the County’s

susceptibility to failing septic systems on

smaller lots.

In June 2011, the Virginia Department of Health

(VDH) adopted new regulations for alternative

onsite sewage systems (AOSS), or engineered

septic systems; these regulations took effect on

December 7, 2011. Alternative onsite sewage

systems are treatment systems that do not

result in point source discharges. These new

systems do not require drain fields or need to

percolate like conventional septic systems. They

can be installed and used in areas with soil

conditions that would not support conventional

systems. State law allows for the installation of

these systems under a general permit without

the need for a specific VDH permit. However,

the regulations contain specific requirements

for the operation and maintenance of these

systems, including responsibilities for system

owners.15 These responsibilities include:

1) Maintaining a relationship with an operator

2) Having the AOSS operated and maintained

by an operator

3) Having an operator visit the AOSS at the

required frequency

4) Having an operator collect any required

samples

5) Keeping a copy of the log provided by the

operator on the property where the AOSS is

located, making the log available to VDH

upon request, and making a reasonable

effort to transfer the log to any future

owner

6) Keeping a copy of the Operation and

Maintenance Manual for the AOSS on the

property where the AOSS is located, making

the manual available to VDH upon request,

and making a reasonable effort to transfer

the O&M Manual to any future owner

7) Complying with the onsite sewage system

requirements contained in local ordinances

adopted pursuant to the Chesapeake Bay

Preservation Act and the Chesapeake Bay

Preservation Act Designation and

Management Regulations when an AOSS is

15

12VAC5-613-140



located within a Chesapeake Bay

Preservation Area.

The regulations also specify setback

requirements for drinking water sources,

shellfish waters, sinkholes, and wetlands. In

general, AOSS must be tested every five years

by a certified operator. This new development

potentially opens up large areas of the county

to residential development where previously it

was not possible due to septic system

restrictions. Map NENR-15 19 shows which

areas of the County, as surveyed by the NRCS,

have limited favorability for the installation,

use, and maintenance of conventional septic

tanks. This favorability is determined by a

number of factors, including depth to water

table, depth to bedrock, soil permeability,

subsidence rates, and slope.

Leaking Underground Storage Tanks

Leaking above and underground storage tanks

can be a significant source of pollution. These

storage tanks contain hazardous substances,

such as petroleum, gasoline, diesel fuel,

acetone, or kerosene. Over time, underground

storage tanks can corrode and begin to leak. If a

storage tank is leaking, the surrounding soil can

become contaminated. In addition, the shallow

groundwater aquifer may become

contaminated. Once contaminants enter the

shallow groundwater aquifer, they can be

transported into local waterways.

The Department of Environmental Quality

(DEQ) is charged with regulating underground

storage tanks in Virginia. DEQ annually receives

federal funds to clean up leaking underground

storage tanks (LUSTs). To prevent leaks from

developing in the future, LUST regulations

required that after December 22, 1998, all new

tanks be made of non-corrodible materials and

be equipped with overfill and spill prevention

devices. Tanks in existence prior to that date

were required to be replaced or retrofitted to

meet the new standards by the deadline. Tanks

are also required to possess leak prevention

devices and monitoring equipment to help

detect leaks. Underground storage tank

regulations do not apply to residential

underground storage tanks.

DEQ’s database lists 88 96 Petroleum Release

Clean-up sites in Gloucester County in

September June 20112013. Six of these release

files are still open. As may be expected,

concentrations of leaking underground storage

tanks are found in the Gloucester Courthouse

area, and in the Gloucester Point area along

Route 17 from Hayes to the Point. Smaller

concentrations (three to four instances) were

found in the White Marsh and Glenns areas of

the County.

Aboveground and underground petroleum

storage tanks used for business purposes are

now subject to regulatory requirements for

preventive measures designed to reduce the

likelihood that the tanks will leak. The

Gloucester County Department of Codes

Compliance, Building Inspection Office will

continue to work with the state to implement

its UST and LUST permitting, monitoring and

inspection program for the removal and

installation of underground storage tanks.

Solid Waste Management Facilities

Gloucester County has three state regulated

solid waste management facilities. The

Gloucester County landfill, located on the east

side of Route 17 south of the Courthouse area

and behind the shopping center north of

Beehive Drive, was permitted in 1972 and

closed in 1994. The landfill has been capped

Gloucester County


45

and meets all state and federal post-closure

requirements. The Middle Peninsula Landfill

and Recycling Center, located off of Route 17 in

Adner, is permitted under state regulations as

an active landfill, transfer station, and yard

waste composting facility. Industrial Resources

Technologies, located within the County’s

Industrial park, is permitted as a materials

recovery facility for toner and recycling

products. Virginia’s Department of

Environmental Quality lists this site in

compliance with all procedural requirements.

In addition to the landfill, Waste Management

operates five waste disposal convenience

centers within the County:

• Adner-Glenns (3741 Waste Management

Way)

• Belroi (5122 Hickory Fork Road)

• Courthouse (6550 Beehive Drive)

• Dutton (10430 Burkes Pond Road)

• Hayes (7599 Guinea Road)

These centers are available to County residents

and businesses for waste disposal and recycling.

Gloucester County’s Clean Community Program

sponsors a harmful household waste collection

through Waste Management twice per year.

Collection and proper disposal of hazardous

household wastes such as pesticides and

solvents reduce the potential for these wastes

to be improperly discarded and potentially

impact water resources. Gloucester’s solid

waste management facilities are shown on Map

NE-16CF-5.

Land Conversion and Use Conflicts

Gloucester continues to experience population

growth and residential development, faster

than any other locality on the Middle Peninsula.

Much of this growth is tied to the County’s

connection to the greater Hampton Roads

region and the economic opportunities it

provides. With this growth comes pressure to

build on currently undeveloped lands, including

agricultural or forestry lands as well as natural

areas. Part of Gloucester County’s identity

comes from its connections to agriculture and

the waters of the York River and the

Chesapeake Bay. The conversion and loss of

working lands to residential development is a

concern for the County as it continues to grow

and become more tied to the rest of Hampton

Roads. In addition, residential development can

result in use conflicts between homeowners

and agriculture or forestry interests. Developing

a comprehensive policy to address and mitigate

land use conflicts may be an effective way to

promote development that complements the

County’s environmental protection goals.

Preserving lands in their natural states or as

working lands can have many practical benefits.

Designating areas as working lands can help to

preserve important parts of the local economy

and culture that focus on agriculture, forestry,

and water industries. These sectors provide jobs

to Gloucester residents and maintain a

connection to the County’s history and rural

character. One potential option for helping to

preserve these areas and industries is through

agritourism. Ecotourism and cultural and

historic tourism are also opportunity to achieve

economic benefits from protecting our natural

and cultural resources. This would promote the

County’s agricultural and water resources as

historical and cultural assets, while also

enhancing their economic potential. Preserving

agricultural lands can also have environmental

benefits.



Goals Objectives Implementation Strategies Short

Term

Long

Term

Preserve Gloucester’s rural

character

Encourage growth away from areas such as farms

and other working lands

Zone for increased density and

development in development district

and Village Areas

��

Identify areas that should be protected as working

lands and zone them accordingly

Maintain Agricultural Zoning for

Working Lands and Develop a Working

Waterfront Zoning District

��

Consider the creation of a Transfer of

Development (TDR) program or Purchase of

Development Rights (PDR) program to provide

incentives to preserve working lands

Initiate a study to determine

appropriate transfer and receiving

areas as well as determine incentives

and a process for use of TDR or PDR

��

Allow working lands as part of the open space

requirement for cluster developments

Modify the Zoning Ordinance related

to conservation subdivisions ��

Consider the creation of a Purchase of Agricultural

Conservation Easements program to provide

incentives to preserve working lands

Work with local land trusts and state

agencies to encourage Conservation

Easements

��

Encourage new forms of agriculture and natural

resources-based businesses such as agri-tourism

Modify Zoning Ordinances to

encourage and support natural

resource based businesses

Promote and provide support for

natural resource based businesses for

both local business and tourism based

��

��

Encourage development in areas where public

utilities such as water and sewer are provided

Zone for increased density and

development in development district

and Village Areas

Develop incentives for connection to

public water and sewer

��

��

Gloucester County


47


Term

Long

Term

Protect and Improve Water

Quality

Restore the quality of Gloucester’s surface waters

to meet standards for swimming, shellfish

harvesting, and other uses

Work with the State to Ddevelop

TMDLs for impaired waterways

Develop Work with the State to

develop TMDL implementation plans

for impaired waterways to reduce

current excess nutrient loads and offset

future loads

Implement water quality BMPs on

public riparian properties

Encourage the implementation of

water quality BMPs on private property

��

��

��

��

Work with state and regional agencies to educate

farmers and residents about and encourage the

use of agricultural and other best management

practices, nutrient management planning, and

available state and federal cost-share programs

Partner with other agencies to inform

and educate the community

Provide continued information and

education during staff interaction with

the public

��

��

Work withSupport state and regional agencies to

that educate farmers and residents about proper

fertilizer and pesticide use and efficient irrigation

and watering practices to protect surface and

groundwater resources

Continue to support agencies that

provide these resources for the

community such as Cooperative

Extension and Tidewater Soil and

Conservation District

��

Utilize a growth management strategy to protect

groundwater recharge areas and surface water

sources

Identify appropriate groundwater

protection areas

Identify appropriate buffers for the

protection of surface water sources

Implement low-density zoning near

groundwater recharge areas and

surface water sources

��

��

��




Term

Long

Term

Work with the Virginia Department of Health and

other agencies to address issues with failing septic

systems and their replacement through alternative

designs or connections to the County’s sewer

system

Support and promote low cost loan

and replacement grants offered by

other agencies and non-profit groups

Continue to seek enabling legislation

from the General Assemble to allow

the county to require mandatory

connections to public water and sewer

if the county invests in extension of

the system to address failing septic

systems

��

��

Work with the Virginia Department of Health and

other agencies to educate residents about the

importance of maintaining septic systems, both

conventional and alternative

Continue educational outreach

regarding septic maintenance through

multimedia approach and through

staff interaction during permitting and

inspection.

��

Consider the use of impaired water bodies as the

basis for watershed management planning to

improve water quality based on the source of the

impairment

Participate in the state’s preparation

of Implementation Plans for local

impaired water bodies

Coordinate land use plans and

development proposals with

recommendations found in TMDL

implementation plans

��

��

Consider water quality benefits when deciding

when and where to extend public water and sewer

infrastructure

Coordinate with VDH to identify areas

most susceptible to failing septic

systems

Develop a cost-benefit analysis tool to

determine the effectiveness of

extending public utilities and the costs

to the environment and the economy

of impaired water bodies

��

��

Gloucester County


49


Term

Long

Term

Consider impacts to water quality caused by

private and public development decisions,

including capital project and public improvements

Ensure compliance with the

Chesapeake Bay Preservation

Ordinance on all projects

��

Encourage or require nutrient management plans

for agricultural and land-based uses (such as

athletic fields, golf courses, parks, etc.)

Support and promote educational

efforts of regional agencies such as

TWSCD

Develop Nutrient Management Plans

for public properties

Encourage developers to provide

nutrient management plans and

maintenance on private developments

��

��

��

Consider the adoption of a Clean Marina program Support and promote participation in

the state’s program

��

Identify areas as appropriate for designation as

“No Discharge” zones

Explore the possibility and

requirements to establish “No

Discharge Zones”

Develop the process for designation

and evaluate the resources needed to

implement “No Discharge” zones

��

��

Continue to work with the state to register

existing and proposed underground storage tanks

and identify leaking tanks through the building

permit process

Maintain active database of UST and

enforce corrective action on Leaking

UST

��

Designate watershed management areas and

consider impacts to watersheds when reviewing

development proposals

Develop Watershed Management

Plans for each watershed in the

County

��




Term

Long

Term

Monitor the location and effectiveness of

stormwater Best Management Practices to

implement the County’s Chesapeake Bay Total

Maximum Daily Load Watershed Implementation

Plan

Inventory existing BMP’s in the County

Develop and maintain a database of

BMP

Monitor the effectiveness of the

existing BMPs

Monitor and enforce long term

maintenance of BMPs

��

��

Protect Air Quality

Promote alternative modes of transportation such

as walking, bicycling, and carpooling to reduce

congestion and automobile emissions

Allow and encourage pedestrian scale

development in Village Areas

Encourage carpooling through

maintenance of park and ride lots

Support local carpooling and transit

providing agencies

Promote and enforce local and state

burning ordinances

��

��

��

��

Encourage the preservation of existing tree

canopy on new developments and

redevelopments

Evaluate and modify local ordinance to

provide for tree protection and

canopy cover

Provide incentives for tree

preservation

��

��

Encourage the planting of trees and native

vegetation on public and private property

Coordinate with state and regional

agencies to identify appropriate native

plants

Provide incentives for use of native

species in new developments

��

��

Conserve and manage

Gloucester’s natural

resources

Gloucester County


51


Term

Long

Term

Consistently and effectively enforce and

implement the Zoning, Subdivision, Erosion and

Sediment Control, Wetlands, Floodplain, and

Chesapeake Bay Preservation Ordinances

Review and modify development

ordinances for effectiveness and

efficiency

��

Update the County’s ordinances as appropriate to

comply with state laws and regulations

Continue to process development applications

such that the early identification of wetlands in

the development process is ensured

Use available on-line resources to

determine the potential for wetlands

Work with local, state and federal

agencies to evaluate properties for

potential impacts and design

developments to reduce impacts

where possible

��

��

Work withSupport the Virginia Department of

Conservation and Recreation to in conduct ing

additional natural heritage and habitat planning

studies of the County’s natural resources

Consider impacts to natural heritage

features and species in future planning

efforts

��

Protect wetlands and other natural resources from

unnecessary destruction due to drainage, filling, or

construction that would unnecessarily hamper or

destroy vegetation, water storage, erosion control,

or plant and wildlife habitats

Work with developers and other

agencies to design projects to

minimize impacts

��

Prepare a Countywide open space and natural

resources inventory and evaluation as a baseline

for an open space plan, which would guide the

County’s land use, preservation, and infrastructure

decisions

Develop a green-infrastructure plan

for the county or for various regions

within the county

��




Term

Long

Term

Protect and preserve open space through

ordinances and policies

Consider requiringDevelop incentives

for Cluster Zoningcluster development

in areas zoned used for agriculture or

conservation lands

Consider the use of a Conservation

Zoning ordinance to require critical

natural resource features to be

preserved during development

Create a Green infrastructure plan

identifying open spaces and potential

connections

Review Ordinances to better define

“open space” and provide appropriate

protection based on the use of the

open space as buffers, natural habitat

or recreation areas

��

��

��

��

Consider adopting a Transfer of Development

Rights program that would incentivize

development away from ecologically valuable

areas

Consider adopting a Purchase of Development

Rights program that would incentivize

development away from ecologically valuable

areas Cluster zoning

Consider the use of local programsEvaluate

opportunities to educate residents about the

benefits of preserving and protecting natural

resources

Promote and support local and

regional opportunities and agencies

that inform residents about the local

environment and the benefits

provided by natural resources

��

Gloucester County


53


Term

Long

Term

Promote public awareness and community

participation in natural resources protection

through educational programs and events

Continue collaborative educational

efforts and events in the county and

look for opportunities for new events

and programs that promote the

county’s abundant natural resources

��

Identify appropriate sites for public waterfront

access and boating facilities and preserve those

that exist

Inventory existing public access sites

and identify their current and

potential uses

Work with the Chesapeake Bay Public

Access Authority, FEMA and other

agencies to identify new site for public

access

Develop management plans for open

space and public access parcels

Develop a county policy for acquiring

new sites through dedication,

donation or acquistion

��

��

��

��

Technology

Natural Resources 070213 Gloucester, Virginia