903R81002
                                      A Land  Use
                      Decision  Methodology
                            for  Mine Lands
                                     in  Appalachia
                                         Final Report

                 ARC Contract No. 80-14CO-7105-79-MNTER-0711
                                             Submitted to—

           THE APPALACHIAN REGIONAL COMMISSION
                                    1666 Connecticut flvenue, N.UU.
                                    Washington, D.C 20009
                                    and
THE ENVIRONMENTAL PROTECTION AGENCY,  Region III
                                    6th and UUalnut Streets
                                    Philadelphia, Pennsylvania 19106
           U S Environmental Protection Agency
              III Inictmation Resource
                    12107
           Center (3
           8*1 C-!,vv' ' * -'
                                             Submitted bu—
ENGINEERS-CONSULTANTS
2601 North Front Street
Harrisburg, Pennsylvania 17110
                                                  Moy 1981

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                                       TABLE OF CONTENTS

                                                                                   Page
|            EXECUTI VE SUMMARY [[[     1
_            INTRODUCTION AND OVERVIEW ...........................................    15
'                     INTRODUCTION ...............................................    17
•                     AN OVERVIEW OF ISSUES ASSOCIATED WITH DEVELOPING
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           MINED LANDS	   19
LAND USE DECISION METHODOLOGY	   27
         BACKGROUND	   30
         ESTABLISHING A MINED  LANDS  CONTEXT	   35
         A FRAMEWORK FOR LAND  USE  DECISION MAKING	   62
         ILLUSTRATIVE SITE DEVELOPMENT STRATEGIES	   78
 INSTI TUT IONAL ANALYS IS	   93
         ABANDONED MINED LANDS	   96
         ACTIVE MINE REGULATION	   126
         SUMMARY	   147
MANAGEMENT RECOMMENDATIONS	   149
         LAND USE PLANNING AGENC IES	   152
         ECONOMIC DEVELOPMENT	   153
         MINE OPERATORS	   154
         ABANDONED MINED LAND RECLAMATION	   155
         EXAMPLE - AN LDD BASED RECLAMATION/LAND USE
           PLANNING PROGRAM	   155
THE SETTLERS CABIN CASE STUDY	   161

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                   TABLE OF CONTENTS (Cont'd.)
         SETTLERS  CABIN  RECLAMATION/ABATEMENT	  174

         SETTLERS  CABIN  PROJECT MANAGEMENT STUDY	  176

         PROJECT SUMMARY	  200

         IMPLICATIONS  FOR  THE  LAND USE DECISION METHODOLOGY	  209

         APPLYING  THE  LUDM TO  SETTLERS CABIN	  213

APPEND ICES	

         APPENDIX A -  CURRENT  MINING METHODS AND RECLAMATION
           PRACTI CES	  A-1

         APPENDIX B -  LAND USE AND SITE  DEVELOPMENT BACKGROUND
           INFORMATION	   B-1

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                          LIST OF FIGURES


No.                                                                   Page

 1        UNRECLAIMED STEEP SLOPE  CONTOUR MINE	    40

 2       UNRECLAIMED MODIFIED AREA MINE	    41

 3       REFUSE PILE ON STEEP SLOPE	    43

 4       TERRACE METHOD BACKF ILL ING	    53

 5       LAND USE DEC IS ION METHODOLOGY	    64

 6       LAND USE DEC IS ION MATRIX	    73

 7       TYPICAL SITE - APPALACHIAN PLATEAUS PROVINCE	    79

 8       TYPICAL SITE - APPALACHIAN PLATEAUS PROVINCE	    81

 9       REGIONAL RECLAMATION/DEVELOPMENT PLAN	    83

10       RECLAMATION PLAN SKETCH	    85

11       SCHEMATIC CONTOUR RECLAMATION FOR HOUSING	    88

12       SITE PLAN SKETCH - HOUSING	    88

13       SCHEMATIC CONTOUR RECLAMATI ON FOR TRUCK FARM I NG	    89

14       SITE PLAN SKETCH - TRUCK FARMING	    89

15       SCHEMATIC MOUNTAINTOP RECLAMATION FOR FORESTRY/GAME LANDS..    90

16       SITE PLAN SKETCH - FORESTRY	    90

17       SCHEMATIC MOUNTAINTOP RECLAMATION FOR TOURISM/
           RECREATI ON	    91

18       SITE PLAN SKETCH -RECREATION	    91

19       AML PROGRAM AND MILESTONE CHRONOLOGY	    97

20       TYPICAL "205" PROJECT FUNDING SCHEME	    99

21       ORGANIZATION OF TVA SPONSORED ORPHAN LAND PROGRAM -
           TENNESSEE EXAMPLE	   102

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                     LIST OF FIGURES (Cont'd.)


No.                                                                   Page

22       OSM ABANDONED MINED LAND RECLAMATION PROGRAM ORGANIZATION
           AND FUNCTIONS	   105

23       TYPICAL AML ACTIVITIES FLOWCHART	   111

24       OSM MINING REGULATION ORGANIZATION AND FUNCTIONS	   132

25       RECOMMENDED MANAGEMENT STRUCTURE	   160

26       PROJECT AREA LOCATION MAP	   166

27       EXISTING AND PROPOSED PARK FACILITIES	   170

28       MINED LAND INVENTORY MAP	   173

29       PROPOSED RECLAMATION	   177

30       SETTLERS CAB IN PROJECT MILESTONE CHRONOLOGY	   181

31       PENNSYLVANIA DER ABANDONED MINE RECLAMATION
            IMPLEMENTATION FRAMEWORK	   195

32       SITE CONDITIONS	   219

33       PROJECT EVALUATION MATRIX AND LAND USE WEIGHTING	   221

34       LAND USE	   223

A-1      TYPICAL SURFACE MINE  IN ROLLING TERRAIN	   A-3

A-2      MODIFIED BLOCK-CUT CONTOUR MINING	   A-5

A-3      CROSS-R IDGE BACKSTACKING MOUNTAINTOP M IN ING	   A-7

A-4      HIGHWALL REDUCTION  IN STEEP SLOPE CONTOUR MINING	   A-9

A-5      FINAL GRADING  IN MOUNTA INTOP REMOVAL	   A-11
                                 -  i v  -

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                                    LIST OF TABLES
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            No.                                                          Page
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1       ESTIMATED COSTS	  176
                            - v -

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EXECUTIVE SUMMARY

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                        EXECUTIVE SUMMARY





INTRODUCTION






         The purpose of  the Land  Use  Decision  Methodology  is to provide




a methodology for  implementing  an economic  development  program for  "mine



lands" areas In Appalachia.  In this  context,  the term  "mine  lands" will



include both those areas which  have been  mined in the past, and those




areas which are minable  in the  future. Thus,  the methodology presented



here is to be linked with abandoned mine  lands (AMD reclamation  and



active mine reclamation.



         The key elements of this methodology  are:   1)  the institutional




arrangements to conduct  an economic development program In mine  lands



regions; and 2) a land use decision tool  to determine reclamation/devel-



opment projects for particular  sites.  It Is not the goal  of  this meth-




odology for it to be used in comprehensive  land use planning.   It is to



formulate a methodology  for the land  use  development of prioritized sites



with the framework of mine lands  reclamation.






THE FRAMEWORK FOR LAND USE DECISION-MAKING





         The framework  is structured  as a six-stage process.   The elements



 included in this framework dictate development of  a planning  data base,



since different levels of regional, local,  and site information  explicitly



feed  into the process at every level.  It should be pointed out,  however,




that this framework  is not a technically  complex procedure requiring new
                                 -  3 -

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research or generation of expensive new data.  It is intended only to

provide decision makers and planners a tool  for decision-making based

on readily obtainable or existing data.


                  Basis for Development of the Framework


         This framework for land use decision-making was developed with

explicit consideration of the following three points:

         1.  The framework should be suitable for addressing two
             important types of  land use decisions specifically for
             mined lands.

             .  What are the optimum  land uses for particular mine
                sites?

                What are the optional mine sites  in a particular
                area or region for subsequently developing par-
                ticular  land use?

         2.  The framework should address decision-making for the
             major land use decision types - preservation, protec-
             tion, development,  reclamation  and management.

         3.  The framework should address the  five general groups
             of site suitability criteria discussed  later in this
             report as  being integral to effective  land  use  deci-
             sion-making.

                Site environmental characteristics
                 Infrastructure characteristics
                Environmental hazards
                Development  impacts
                 Institutional concerns

         With these  factors explicitly  considered, the  framework,  as pre-

 sented  in  the following  figure,  was  developed  for mined  land/land  use de-

 cision-making.  Following  are descriptions of  the major  components of this

 framework.
                                 -  4  -

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                    Land use decision methodology.
                                       Feedback and Reiteration
V

GENERAL
SITE
SCREENING


v

DETAILED
SITE
ANALYSIS
— *•

1

RECLAMATION
DEVELOPMENT
REQUIREMENTS
/mft
(ANAL
                         INSTITUTIONAL
                         CONSTRAINTS
                                                                ^IMPLEMENTATION^



Identified Development Needs


         The first component in this process  is an assessment of  the  de-

velopment needs for the planning area.   It  Is assumed that the  ongoing

planning process of organizations utilizing this  framework will  define  the

development needs for their planning area.  Specific programs funded  by

HUD, FmHA, EDA, ARC and other agencies have narrowed development  needs  to

be addressed during a particular planning period.  For  example,  housing

needs may be the highest priority in the steep slope Appalachian  region of

Kentucky.  Therefore, this  land use decision  framework  may be directed

toward analysis of housing  development on mine  lands.


Identification of Principle Constraints

         This second element actually  involves a  general  analysis to

identify environmental constraints which pertain  to  development of land.
                                  - 5  -

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These Include factors such as floodplains,  steep slope areas,  and land-



scape features or characteristics that are  regionally significant because



of recognized resource conservation or hazard avoidance considerations.



         Existing Inventory and planning data and mapping wiI I I  generally




permit ready identification of these concerns.  For example,  regional



floodplaln maps would suffice for identifying floodplain boundaries.   In



addition to floodplains and steep slopes, other such areas may include




regionally significant wetland areas, scenic areas, already built up land,



and areas with such obvious poor accessibility that  immediate development



potential is limited.






General Site Screening






         Those areas not  in conflict with principle  development  con-



straints are to  be further narrowed  in this stage of analysis.   This ele-



ment of the framework  involves the first actual  look at mined land sites.



The  focus will be on planned,  active, reclaimed, and abandoned sites.



         Data  for active  or proposed mining may  be obtained from the



state of mining  regulatory agency.  As part of permit  review, planning



agencies are able to review surface mine permit  applications for compli-



ance  with  land use plans. Once  mining or  a mine plan  has  been  identified,



described,  and  located,  it may be  examined  in the context  of a potential



reclamation/development project.



         With  the recent  advent  of a  national program  for  the reclamation



of abandoned  mine  lands,  intensive mapping efforts  will  be undertaken  in
                                  - 6 -

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the early 1980's to identify AML sites for reclamation funding.   All  major



AML features including any underground mine workings should be located



during this inventory.  Site priorities in the state AML reclamation  pro-



gram will also be noted.  This priority determination will  be made by the




AML designated agency once the inventories have been completed.   High pri-



ority sites, based on the states' selection criteria may be identified



since they are to be prime candidates for AML reclamation funding.






Institutional Constraints
         This element of the framework is directed toward institutional



constraints and/or incentives to land use development.  Institutional  con-



straints and/or incentives are defined as public sector plans, programs,



or policies which affect land use decisions.  There are numerous plans,




policies, and programs at federal, state, and local levels of government



which will affect decisions regarding development of mine sites.



         Development of abandoned mines to a productive land use will  re-



quire less institutional interaction than will be required to develop ac-



tive or  future mines.  Since abandoned mines already exist, they are not



necessarily  in conflict with future development or comprehensive plans.



 If there are conflicts, they are probably to be remedied by site develop-



ment  if,  In  fact, the plan calls for expansion of certain  land uses Into



the mined region.  An example might be industrial park siting in an aban-



doned mine area.  However, since future mining is not conceptualized yet



for a given  site, that site may play an alternative or conflicting role  in
                                  - 7 -

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a regional  comprehensive plan,  zoning code,  scenic or natural  area desig-



nation, or  a site which has been declared "unsuitable for mining" under



Section 522 of PL 95-87.  These examples represent local, state,  and fed-



eral institutional constraints  to active or  future mine development.  Data




sources to be reviewed for this level of analysis include:



         .   Comprehensive Plans



            Zoning Ordinances



         .   "522" Petitioned Areas (Lands Unsuitable for Mining)



            Wild and Scenic Rivers Designations



         .  Other Natural Areas Designations






Detailed Site Analysis






         Once specific candidate sites have been  identified, detailed  in-



formation regarding site conditions  must be evaluated.   Depending on past



 (or present) mining techniques and other factors, conditions of a site may



 limit  certain development considerations.  Problems  caused by the myriad



potential site conditions may deter  any type of  development, whereas cer-



tain conditions  may not  affect the considerations.   Unpolluted water  in  an



abandoned mine,  for example, may prove to be an  incentive to recreation



 development,  while  it  may  also  be a  deterrent to residential development.



         Following  is  a  listing of parameters which  are  recognized  as  the



 major  environmental problems associated  with mined  lands.  The  list re-




 flects nearly the total  range of  frequently encountered  environmental



 hazards.

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         -  unsealed mine openings
         -  polluted mine drainage
         -  subsidence hazard
         -  blowout hazard
         -  highwalI
            impounded water
         -  spoil  configurations
         -  toxic  spoil  on surface
         -  vegetation
         -  overburden (% sandstone)
         -  refuse piles (condition)
         -  refuse piles (acreage)
         -  structures

These parameters must be identified during a detailed mine site environ-

mental  problems analysis.  The specific organization of and methods for

performing this analysis are described later in the report.


RecIamat i on/DeveIopment Requ i rements


         Complementing site analysis is the development of reclamation/

development requirements.  These requirements should include a generic

reclamation design (e.g., contour reclamation with all  spoil to head-of-

hollow fill).  This reclamation scheme must be analyzed with respect to

the designation for the final  land use to assure that the reclamation

and development were compatible.  This analysis should be done by a civil

engineer and would involve only a cursory study of the proposed plan.


jmpact Analysis


         An  Impact analysis of a proposed reclamation/development plan

involves a two-stage approach.   Initially, a sensitivity analysis evalu-

ation should be conducted.   Site plans should be varied to note if the

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final  evaluation score can be improved.  Once a proposed reclamation op-



tion has been refined through a sensitivity analysis, an environmental



impact assessment must be conducted.  This assessment would include a de-



scription of how each characteristic of site evaluation matrix was evalu-



ated.  This description would provide all the necessary background materi-



als:  description of study area; description of existing environment; and




description of proposed action.  A standard analysis of primary and sec-



ondary  impacts can then occur focusing on the relationship between the



local short-term use of the site and the maintenance and enhancement of



the long-term productivity and amenity of the region.






ImpIementat i on






          Implementation of the  land use  decision technique is the deci-




sion-making element of the recommended management framework presented  in



a  later  section of this report.   Its use by  a public agency is thus  struc-



tured within a project formulation, analysis, and grant  funding system.






                       The Land  Use Decision Matrix






          A matrix has  been developed as  the  primary  data analysis  device



for  the land  use decision framework.   The framework  is composed of  a se-



ries  of analyses and  decision  elements which range  from "Identified  De-



velopment  Needs" to  "Impact  Analysis"  and "Implementation."   Critical



regional and  site analysis considerations are Included in the "General



 Site  Screening,  Institutional  Constraints" and  "Detailed Site Analysis"



 portions of the framework.   These elements are addressed In the  Land Use



 Decision Matrix.
                                  -  10  -

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         It must be pointed out here that a matrix is but one option for



implementing a mined land planning framework.   Other workable options in-



clude total mapping/overlay techniques,  statistical  methods (i.e.,  regres-



sion analysis), and combined cartographic/tabular data analysis methods.



A matrix approach was selected because the matrix format best presents the



opportunity to concisely display and analyze a number of related site and




regional characteristics or parameters.




         It should be noted that the matrix is focused chiefly on aban-



doned mined land site parameters.  This  is because properly reclaimed



sites present fewer development obstacles.  In addition, the LUDM is in-



tended to  be a flexible planning tool.  Different situations or applica-



tion contexts will certainly warrant modification to the parameters which



are  included  in the matrix.  For example,  if application to only active



rather than abandoned sites  is to be stressed, then a number of the aban-



doned mine site parameters may be omitted  (i.e., abandoned structures)  and



additional more appropriate  parameters substituted to reflect the condi-



tions which are more  likely  to be encountered on active  mine sites.  Such



act!ve/reel aimed site parameters would  include soil permeability, slopes,



soil shrlnk-swell  potentials,  depth to groundwater, etc.  - traditional



site land  use  analysis  parameters.   In summary,  the  LUDM is  intended to



function as a  flexible  framework rather  than a collection of etched-in-



stone site parameters which  will  not  fit every site/planning  situation.



         Each  of  these  parameters are defined  (assigned)  value  within  the



matrix.  Parameters have been  structured in a  straightforward,  unambiguous



manner  to  allow operational  ease  in application.
                                 -  12 -

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         It should be noted that the relative weightings are constructed



to evaluate how each factor Imposes negative considerations on each poten-



tial  or proposed land use.  Involved in these negative considerations are



engineering construction costs, hazards associated with use, infrastruc-




ture I  costs, and aesthetic disamenities.  Positive considerations are



largely political  in nature because this is a public program to supple-



ment (or modify) private sector development.  These considerations must be




taken into account at the "identified development needs" stage discussed



earlier.



         Criteria are given scores of 0-2 depending on the magnitude of



the problem or opportunity.  This score is multiplied by the relative



weighting factor for a final score.  Once all parameters affecting site




development have been scored and weighted, a final summation score can be




determined.  This system can be used to evaluate one site's potential for



development relative to another site.



         Weighting factors have been assigned to each type of  land use de-



velopment.  The weighting factor represents the magnitude of the mine  land



problem for one type of land use versus another type of  land use.  For ex-



ample, the  impact of having unsealed deep mine openings would  be greater



on housing development than on returning  land to forest or agriculture.



         Site analysis may require some technical expertise for  Implement-



 ing the matrix.  Coordinating  with the state reclamation authorities could



generally provide the level of expertise necessary to provide  Input to the



matrix regarding mine site factors which are not common knowledge to other



professional planners.

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 INTRODUCTION
AND OVERVIEW

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                 INTRODUCTION AND OVERVIEW


INTRODUCTI ON


         The purpose of this study is to provide a methodology  for  imple-

menting an economic development program for  "mine lands"  areas  in  Appa-

lachia.  For this report, the term "mine lands"  will  include both  those

areas which have been mined in the past, and those areas  which  are mlnable

in the future.  Thus, the methodology presented  here  is to be linked with

abandoned mine lands (AMD reclamation and active mine reclamation.

         The key elements of this methodology are:  1) the institutional

arrangements to conduct an economic development  program in mine lands re-

gions; and 2) a  land use decision tool to determine reclamation/develop-

ment projects for particular sites.   It is not the goal of this study to

generate a methodology to be used for comprehensive land  use planning.

Rather it  is to  formulate a methodology for systematically examining the

development potential of  land which has been mined and reclaimed;   land

which  is actively being mined; abandoned unreclaimed  sites; and areas

proposed for future mining or where future mining is  likely.

         The scope of this study  is further circumscribed by several

criteria:

            The  methodology must  be a simple, highly practical  sys-
            tem  (noncomputerized) which can be utilized by  local
            public agencies without requiring an extensive primary
            data collection effort.

            The  methodology should be "tailored" toward mountainous
            areas where topographical constraints intensify con-
            flicts among  land uses due to the scarcity of develop-
            able land.

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            The methodology must utilize an institutional framework
            which can operate in an efficient and timely fashion in
            pursuit of predetermined economic development objec-
            tives.

By satisfying each of these criterion, a methodology will be developed

which can be utilized immediately within Appalachia to support  land use

decision making in the region.

         The remainder of this report is organized in the following

manner:

            Land Use Decision Methodology - The  logical  development
            of a methodology for assessing the land use  potential
            of past, current, and proposed mine  sites; example  or
            typical reelamation/land development projects are
            included.

             Institutional Analysis - Descriptions of the public
            programs affecting mining,  land use, and economic
            development  in Appalachia.

          .  Management Recommendations  - A plan  of action for  im-
            plementing  land  planning and development program  for
            mine  lands regions  in Appalachia.  Recommendations  in-
            clude  appropriate  institutional/management  structures
            for  applying the Land Use Decision Methodology.

            The  Settlers Cabin  Project  Case  Study - A  review  of a
            previous reclamation project undertaken by  a cooper-
            ating  team of  federal,  state,  and  local agencies;  this
            also  serves  as  a case  study for  a  demonstration of  the
            Land  Use Decision  Methodology.

             Appendix - Discussions  of mining techniques, land  use
            decision theory, and annotated bibliographies of:   1)
             reclaiming  mined lands  to specific land  use; 2)  public
             programs affecting  mining/land  use/economic development
             in Appalachia;  and  3)  the public forces  affecting the
             Settlers Cabin  Case Study.

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It is anticipated that this information will be useful to the Appalachian

Regional Commission (ARC), ARC's Local Development Districts, and County

governments throughout Appalachia to  link private and public sector land

use planning with abandoned and active mine reclamation.  Appalachia's

pursuit of these two objectives - land development and mine  lands recla-

mation - can be pursued in a more expeditious manner through this linkage.
AN OVERVIEW OF  ISSUES ASSOCIATED WITH DEVELOPING
  MINED LANDS
         The process of converting mine  lands to more intensive  land uses

can and does occur throughout the mine lands regions of Appalachia.  How-

ever, the extent to which this occurs is  limited by several factors:

         1. Such development requires cooperation among a diverse
            set of individuals -  landowners, mining/reclamation
            contractors, financial institutions, land developers,
            state regulatory bodies and,  local governments - over a
            number of years.  Coordination efforts result  in "in-
            formation and transaction costs" which are often pro-
            hibitively high.

         2. Normal reclamation planning  does not take into con-
            sideration certain types of  social benefits that can
            occur among  land uses viewed  from a regional perspec-
            tive (e.g., provision of public recreation can enhance
            residential  land values in an area).

         3.  Inadequate reclamation associated with past mining con-
            tributes to severe environmental degradation,  which
             limits land use development  opportunities on the site
            and adjacent properties.

         4. The presence of coal  resources on a site can conflict
            with  land use development in  a reciprocal fashion.   To
            develop a site prior  to resource recovery may  Isolate
            reserves, while mining and reclamation which occur
            prior to materialization of  development demand pres-
            sures may preclude the development of a socially opti-
            mal  land use pattern.

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         Programs for economic development can be developed to provide

procedural  mechanisms and organizational  frameworks for overcoming these

obstacles to land use development.  Each of these obstacles, and potential

public sector responses to them, are discussed below.


                  High Information and Transaction Costs


         Increasing organizational and procedural complexity in any devel-

opment project generates increased information and transaction costs.

These costs  involve deriving a consensus of action among all parties,

closing all contractual agreements, and maintaining the specified rela-

tionships over the  life of the development project.  Such actions require

data gathering and  information exchange to assure profitability for all

private parties, and compliance with all public regulatory  agencies.   Spe-

cifically, this  information would be gathered:

         1.  To assure  the  fwo major private parties -  the mining/
             reclamation contractor and the  land developer - of each
             other's mutual capacity and project feasibility.

         2.  To obtain  regulatory  approval  from the myriad of gov-
             ernment agencies  involved  in a  development project
             (joint  pub Iic/private development).

         3.  To provide regulatory organizations such as local
             zoning  boards  with  adequate background and project
             specific  data  on  which  informed decision making is to
             be based.

These  efforts can  generally be  termed  "entrepreneurial  requirements,"

since  inputs to  land  development  projects  are being  mobilized.

         Private sector  involvement  in these  entrepreneurial efforts  Is

restricted  by the  long time frame of  the  overall  project;  significant re-

turns  on the investment  would not accrue  until the land use development
                                  - 20 -

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I
I
               portion  of  the project was  completed,  but  more  organizational  costs will

H             be imposed  prior  to the mining  and/or  reclamation.   Thus,  the  relative


_             profitability of  such an entrepreneurial effort will  be small, although


™             significant social  benefits may be generated in the long run.


I                      Public sector responses to this type of private market failure


               could include incentives for private companies  to take on  the  entrepre-


I             neurial  role, or  simply the designation of .a government agency as the


—             entrepreneur.  Complexities involved in determining the appropriate in-


•             centive  and initiating the  mechanisms for  public accountabiIiIty largely

               preclude the use  of private contractors.   Public policy would  be more


               efficiently expedited by a  public agency providing the leadership role in

               these types of development  projects.



                                      Unrecognized Social Benefits



                        A pattern of  land  uses for a given region involves a  complex set


               of economic interrelationships  by which the use of a particular site af-

               fects, and is affected by,  the  use of surrounding sites.  Comprehensive

               land use planning and zoning should attempt to exploit these relationships

               by spatially grouping various  land uses which are mutually beneficial.

               Incompatible uses are similarly excluded or  isolated from each other.

                        In theory,  land use development  in a region that follows a com-


               prehensive plan will produce a socially optimal  land use pattern.  How-


               ever, in many mine  land regions, comprehensive plans do not exist; and

               even when they do exist, reclamation need not result in the highest and

               best final land use.  Reclamation normally proceeds only to the minimum
                                                - 21 -

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extent required by law, and does not take into consideration benefits that

may accrue to surrounding land uses.  These "externalities," by defini-

tion, are external to the private decision-makers cost-benefit analysis.

         To internalize these benefits into future development decisions

would require a public agency to identify specific sites within a mine

lands region where economic pressures and natural resource characteristics

lead to optimal development sites.  Post-reclamation land uses must be

designated, and the physical mechanisms to achieve these uses must be de-

fined.  Thus, a planning tool is required to be utilized by a public

agency which will choose these optimal sites through a process incorporat-

ing economic development pressures  and assessing environmental impacts.
                     Existence of Abandoned or Poorly
                           Reclaimed Mine Lands
         Abandoned mine  lands  (AMD complicate the process of  land conver-

sion  in mine  lands areas by providing  strong disincentives to  site devel-

opment.  Not  only do  unreclaimed  areas increase  site  development  costs

 (earthwork  and  revegetation),  but adverse  environmental  impacts also  re-

strict the  development potential  of adjacent sites.   For  example, second

home  development or outdoor recreation site development would  not usually

take  place  on land adjacent AML sites  due  to many  reasons including  aes-

thetic disharmony, environmental  problems, and hazard potential.

         When viewed  from  a temporal  perspective,  mining  constitutes a

 transitional  land  use.   A  site experiencing no development pressure  would

 normally be reclaimed to its  pre-mining land  use.   However,  a  site  exper-

 iencing  development  demand might  be expected  to  be reclaimed to a more
                                  - 22 -

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intensive or higher land use.  Abandoned mine lands are the outcome when



this transitional  process is arrested.  Not only has potential  development




demand remained unexploited, but in most cases,  the site has been left in




a state where due to on-site and off-site environmental degradation, de-



velopment potential of the entire area is reduced.



         When seen in this historical perspective, abandoned mine lands



constitute a temporal  (and spatial) external iIty; the historical actions



of a mining operator have imposed costs on existing and future development




opportunities.  The existence of this externality provides a rationale for



public action to correct this problem in those cases where the costs of




remedial action are less than the social benefits to be accrued by AML



reclamation.  Typically, the widespread existence of AML impacts in a par-



ticular region restricts the benefits to be achieved by a private sector



developer; however, public action can provide the comprehensive approach



to AML problems to achieve the necessary level  of benefits to justify



reelamation.






                 Presence of Additional Mineable Resources





         The presence of a mineable  resource on a given site complicates



the analysis of that site's  development potential within the context of



public policy.   If  intensive  land use development were to occur above a



mineral deposit, the mining of this  resource at a  later date could have



severe  impacts:   1) the  deposit may  have been economically extracted had



the site remained  undeveloped - relocation  of any  improvements  and surface
                                  - 23 -

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extraction could prove prohibitively costly; or 2) impact of underground



extraction to the development could prove to be severe.  Under these con-




ditions,  land use development may preempt extraction of the reserves (or




"isolate" those reserves).



          In similar fashion, mining can preempt particular  land uses.  For



example, when a mining operator reclaims a surface-mined site to approxi-




mate original contour (AOC) as required under current Federal surface min-



ing regulations, consideration of the highest and best  land use for that



particular site will not occur.   It may be the case that by not regrading




the site to a more gentle slope,  its development potential  will remain un-




exploited.  A more obvious example of this  interaction  is the utilization



of underground room and pillar techniques to extract a  coal seam.  Where



regulations allow pillars to be "robbed," long-term subsidence can result.



Under these conditions, any type  of residential, commercial, or  industrial



development cannot  be undertaken.



          As shown above,  the presence of a  mineral resource implies  the



potential  for mining.   In addition, mining  and  land use development  often



 interact  in mutually  adverse ways - one  activity  occurs without  considera-



tion of the  future  application of the other.   Thus, a  long-term  develop-



ment plan for a  mine  lands  region must consider the timing  of  mineral  ex-



traction  and  land  use development to assure that  these activities  occur  in



 a manner  beneficial to  both.   Given the  long time involved  in  this type  of



 planning, only  a public program  that  identifies and executes mining/devel-



 opment  projects  can assure  the success of a comprehensive plan in  a mine



 lands  area.
                                  -  24  -

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                                  Summary


         The preceding discussions detail complexities in reclaiming mined

lands to designated post-mining land uses.  Each factor constitutes an ob-

stacle to the development of an optimal   land use pattern in a mine lands

region.  The need for public sector actions to resolve these "market fail-

ures" is indicated.

         A specific strategy to initiate an economic development program

in a mine lands region may include the following actions:

         1.  Designation of a public sector "entrepreneur" to co-
            ordinate the various public and private entities in-
            volved in a mine lands development project.

         2.  Program planning mechanisms must be established for the
            designated agency to identify appropriate development
            sites  in the mine  lands region; specifically, a
            planning tool is required to select these sites.

         3.  Specific  institutional arrangements must be established
            to attack abandoned mine  lands problems in mine lands
            regions.  A comprehensive, programmatic approach is re-
            quired,  involving both those agencies involved directly
            in AML reclamation and agencies concerned with economic
            development.

         4.  Specific  institutional arrangements must be established
            to link economic development projects with ongoing min-
            ing operations to ensure that both activities occur in
            a mutually acceptable manner.  Here again, the need for
            a comprehensive, programmatic approach  is  Indicated,
            involving private mining concerns, private  land devel-
            opers, public regulatory and development agencies, and
            the public sector "entrepreneur."

         These actions will result  in a  public program designed to achieve

economic development  objectives in mine  lands areas.
                                  -  25  -

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LAND USE DECISION
     METHODOLOGY

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              LAND USE DECISION METHODOLOGY


         This section summarizes the issues associated  with  the  develop-

ment of a methodology for determining appropriate land  uses  for  mined

lands In Appalachla.  In this context, mined lands are  defined  as pre-

viously mined and currently active, as well as unmined  land  which has

high potential  for future mining.  This section also presents specific

procedures for utilization of the methodology.

         In general, land use decisions are a response  to one or both of

the following questions:

         1.  What is the optimum land use for a particular site or
             parcel?

         2.  Which sites are optimal for particular land uses in a
             given region of concern?

         In site and regional planning these questions  may be asked separ-

ately or simultaneously.  Asking them separately, land  managers, develop-

ers and owners are generally most  interested  in determining appropriate

land uses  for specific parcels or are searching for sites suitable for  de-

velopment  of particular  land uses.  Likewise, asking the questions simul-

taneously, public planning, management, and development organizations are

often concerned with  locating and  identifying  land protection and develop-

ment potentials comprehensively on a regional basis.  This type of plan-

ning is often undertaken to:  take stock of a region's resources and de-

velopable  land; establish a  data base  for  making development decisions

with regional implications;  and  provide a  defensible base for public in-

volvement  In growth  guidance (zoning, comprehensive planning) or actual

 land development.
                                   - 29 -

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         The discussion which follows is divided into three general sec-

tions.  First, an overview discussion of site development Issues and plan-

ning methods is presented.  The next section summarizes development issues

that are specific to abandoned and active mine sites.  Building on these

sections, the final  section presents a  land use decision methodology, a

decision matrix, and illustrative site development strategies for typical

reclamation situations.


BACKGROUND


         The development and application of systematic or formalized pro-

cedures  for  land use decision-making are a  fairly recent phenomenon.  This

is evidenced  in the  large percentage of Appalachia's  historic metropolitan

development that has occurred  in areas  where access and environmental

amenities are poor;  in areas with hostile microclimate  (north slopes) and

hazard situations (floodplains); and on  land that  is  physically  unsuited

for  intensive development.   This growth has  also  historically degraded

and/or destroyed numerous valuable  regional  landscape resources.

         Regardless  of the  technical sophistication,  accuracy or  complex-

 ity  of a given  land  use  decision methodology,  an  actual  land  use  decision

 involves one  or  more general types  of  decisions,  each of  which  address

different,  though sometimes overlapping  requirements.  These  decisions  re-

 late to  land  preservation,  protection,  development,  reclamation,  and man-

agement :

          .   Preservation -  attempts to maintain a piece of  land  in
             its  existing state.  Indirect  benefits  to society gen-
             erally  accrue merely  from  the  act  of preservation.
                                   - 30 -

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         .   Protection - involves the use of the land within rigid-
            ly defined limits.   Such limits are generally developed
            to protect the attributes of a particular area (i.e.,
            prime farmlands,  aquifer recharge,  etc.)

         .   Development - involves decisions that result in the
            erection of structures, and/or a concentration of human
            activities and infrastructure facilities.

         .   RecIamatI on - is  focused on undoing the damage caused
            by previous development (mining) or management (clear-
            cutting) decisions.

         .   Management - is actually the strategy(ies) for managing
            and implementing  any or all of the above land use deci-
            sion options.

         All  land use decisions may be placed  into one of these categor-

ies.  Land  use decision-making may also be viewed as the process of appro-

priately matching a region's available land resource to these  land use

strategies.  Within this definition the key phrase is "appropriately

matching."   Three general land use/site development principles, if adhered

to, will insure this "appropriate matching" of  land use and  land.   These

principles  are:

         1.   Development should be discouraged  In areas of sig-
              nificant resource value.  Many  local, regional  and
              national resource scarcities may  be avoided by  iden-
              tifying the  location of these biological, physical,
              and energy resources within a region and acting to
              prevent their obliteration.

         2.   Development should be discouraged In areas of natural
              and man-made hazards.  The  losses that often  result
              from such  development are felt by those  immediately
              Impacted and often by society  in  general.

         3-   Development should be encouraged  in  areas best  suited
              for It.  The costs of site development are greatly de-
              pendent on a myriad of physical,  contextual,  and  loca-
              tlonal site parameters.
                                  - 31 -

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         A number of points pertinent to these principles may be raised.



First, these principles may be mutually contradictory.  For example, the



land most suitable for development may also be in a hazardous floodplain



overlying a major source of potable groundwater.  Therefore, trade-offs



between conflicting goals are often required.  Secondly, implementation of




these goals depends on the availability and use of techniques for econom-




ically and accurately assessing the presence, extent, significance, and



location of the  landscape characteristics that determine resource value,



hazard criticality, and development suitability.






                  Techniques  for Land Use Decision-Making






         Techniques for  land  use decision-making  fall  into one of three



classes:   1) techniques for determining appropriate  land use(s)  for a



given  site; 2) site selection models given  Identified  land  uses; 3) and



comprehensive  land  use allocation  techniques.



         As the  focus of this effort  is development  of  a  land  use deci-



sion  methodology for mined  lands,  (specific  site(s)  and/or  specific  land



use(s)), Class 1  and  Class  2  land  use  decision  methodologies are most  per-



tinent to  the  objectives of this  project  and, therefore,  were reviewed in



detail.  However, comprehensive  land  use  techniques  (Class  3)  were  also



examined  for parameters  or  elements  relevant to developing  a procedure



specifically for mined  lands.



          A number of  techniques  were identified that fall  Into each of



these classes.  Examples Include the numerous general  land  planning pro-



cesses such as those  popularized by  Ian McHarg  (Class 3)  that are  being
                                   - 32 -

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used by numerous community and regional  planning agencies.  An example of

an Identified Class 1  procedure is an SCS approach to determining site

suitability for twelve classes of outdoor recreation.  And a typical Class

2 procedure is that of a New England State's Cooperative Extension Service

for selecting optimal  sites for campground development.  The individual

procedures/methodologies that were reviewed are too numerous to include in

this report.  However, their salient characteristics are summarized below.


               Land Use Decision Methodology Characteristics


         There is a tremendous range in complexity and organization of the

land use decision methodologies that are currently being utilized in site

and regional planning.  Some are totally cartographic while others are

statistical.  Some include matrices and weighting schemes, some are manual

and others computerized.

         A review of these procedures revealed close similarities between

them in terms of the environmental/1 and use characteristics that are con-

sidered.  Five general groups of  land use decision characteristics were

identified:

         1)  Site characteristics that determine physical develop-
             ment capabilities.  Examples  include:

              .  depth to bedrock
                depth to water tab Ie
              .  soil shrink-swell potential
              .  soil stoniness
              .  sol I permeabiI ity
                slope
              .  aspect
                 I and cover
                                   -  33  -

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        2)  Site and regional  infrastructure characteristics

               road system
             .  distance to  sewer  services
               water resources
             .  distance to  schools
               distance to  employment

        3)  Critical environmental  hazards

               floodplains
             .  slopes
               earthquakes
               polIutIon

        4)   Development  impacts

             .  key landscape resources
             .  socioeconomics

         5)   Institutional  concerns

                zoning  ordinances
                land ownership
             .  comprehensive plans
             .   subdivision ordinances

         These  characteristics were then examined for potential utility in

the land use framework which  is being developed.  It appeared that many of

these identified  land use characteristics could be appropriately  incorpo-

rated while others would not  be relevant to a mined site specific applica-

tion.  Characteristics in groups 2, 3, 4, and 5 were judged to be equally

applicable to mined and unmined sites and, therefore, could be utilized in

the proposed framework.  However, the characteristics in group 1  (site

characteristics)  do not address the site conditions which are encountered

on active or abandoned mine  sites.  Therefore,  it was decided that a  set

of site characteristics which appear to be determinants of  land use poten-

tials on mined sites would  have to  be  identified and  incorporated  into the
                                   -  34 -

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proposed decision-making framework together with pertinent characteristics




from groups 2, 3, 4, and 5.



         In this context, the next background discussion is presented to



establish a frame of reference for the selection of pertinent abandoned



and active mine site parameters for inclusion in the land use decision




framework.  Following this discussion, the proposed framework is outlined.



Then within this framework, a set of  implementation procedures are de-




I Ineated.






ESTABLISHING A MINED LANDS CONTEXT






         As stated  previously, the framework or procedures which are to be




developed should be equally applicable to abandoned and active/reclaimed



mine sites.   In this context, abandoned mined lands are defined as unre-




claimed, improperly reclaimed, or partially reclaimed  lands for which



there  is no additional mine operator  reclamation responsibility.  Such



lands  were generally mined prior to today's environmental control  laws and



regulations.  Active/reclaimed  lands  are defined as recently reclaimed,



currently active, or proposed mines which have been or  will be reclaimed



to  a stable productive condition.  Following  is an overview of abandoned



and active mine  reclamation focusing  chiefly on the conditions typically



encountered on those sites.
                                   -  35  -

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                 An Introduction to Abandoned Mined Lands





         This discussion presents an overview of abandoned mined land re-



lated problems; procedures for problem abatement; and implications for



land use planning on these lands.  This information is presented to pro-



vide a general  data base for the selection of abandoned mined land site



characteristics which are important site land use feasibility determi-



nants, and as such should be included in the land use decision method-



ology.



         Coal mining today incorporates control technologies capable of



minimizing operational  impacts on  land, water, and air.  As this technol-



ogy was absent until recently, past mining has created a backlog of dam-



aging and potentially damaging conditions resulting  in environmental and



health and safety problems such  as acid mine drainage, subsidence, burn-



ing and unstable refuse banks, abandoned surface and  underground mine



Instability, and abandonedfhazardous mine shafts (USBM 1979).



         Over the years a number of  federal, regional, and state agencies



have  initiated programs focused  toward  repairing these environmental scars



and health and safety hazards  from the  past.   For  example, a  number of



mined  land Inventory  and mine  sealing projects were  completed during the



1930's as Works  Progress Administration/State  cooperative  projects.   In



addition, the  U.S.  Bureau of  Mines has  been  involved  in  reclamation  activ-



ities  such as  subsidence and  mine  fire  control  since the 1950's.   EPA  and



the  Corps of Engineers  have completed  a number of  comprehensive basin  wide
                                   - 36 -

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mine drainage Inventories and planning studies, and the Appalachian Re-



gional  Commission and Tennessee Valley Authority have also conducted AML



reclamation programs.



          In the recent past, several states have also attempted to deal




with these problems, or at  least to begin the process.  Pennsylvania,



through Operation Scarlift, has studied a number of watersheds ravaged by



mining; but their approach to these studies and to subsequent follow-up




actions has been piecemeal.  Ohio, on the other hand, has completed an



abandoned mined  lands and mine drainage Inventory which set  logical prior-



ities  for subsequent abatement and reclamation activities.   Follow-up work




has been  slow, however.  Limited activities have also be conducted by



other  states, but for the most part, the problems caused by  abandoned




mines  in  Appalachia continue.



          On August 3, 1977, Congress enacted Public Law 95-87, Title  IV of



which  provides for cooperative Federal-State programs to reclaim  the aban-



doned  scars of past mining  activities.  The Office of Surface Mining, Soil



Conservation  Service, and  State Reclamation Programs will form the nucleus



of the reclamation piannIng/implementation management system under the



 law.



          Specifics of this  management system are described  later  in the



 Institutional Analysis  discussion.  Following  Is a discussion of  environ-



mental problems  and  hazards often associated with abandoned  mines.   In-




cluded are general descriptions of  applicable  reclamation/restoration
                                   -  37  -

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techniques.  Also included are a general  overview of abandoned mined land

use potentials and a summary of implications for land use planning and

development.


Associated Environmental Hazards


         There are four general classes of abandoned mined  land related

problems:

            Unreclaimed surface mines -  including ungraded  high-
            walls, spoil piles, impounded water, exposed toxic
            spoil, and eroding slopes.

          .  Abandoned  underground mines - with numerous unsealed
            portals and air shafts and subsidence-prone areas.

            Unreclaimed coal refuse - exposed toxic materials,  un-
            stable  Impoundments, burning material and associated
            hazardous  structures.

            Mine  Drainage - mining related point sources seriously
            polluting  streams, rivers, and  lakes.

          Following are brief discussions of  specific problems and hazards

associated  with  these  general  problem types.


                          Unreclaimed  Surface Mines


          The  most visible environmental  disturbances  from  past coal  mining

are associated  with  ungraded  and/or  unvegetated  surface  mined areas (Fig-

ures 1  and 2).   UnconsolIdated and  unvegetated  spoils  erode and contribute

to sedimentation of  neighboring  streams.   Open  pits are  visual  eyesores

which reduce  the aesthetic  quality  of the  surrounding  landscape.  Exposed

 highwalls, open auger  holes,  and  unstable,  slipping outslopes may pose
                                   -  38 -

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I
I
I
I
I
I
I
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I
I
I
I
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significant health and safety hazards.  Wildlife and land use potentials

are lessened and land values on mined sites and adjacent lands are severe-

Iy Impacted.

         The environmental  problems/hazards generally associated with un-

reclaimed strip mines that present the most critical development deter-

rents, and the means of dealing with those problems are noted below:

         .  Ungraded, unstable hlghwalls - health and safety haz-
            ards as well as aesthetic disamenlttes.  HIghwalI re-
            duction/elimination by blasting and/or dozer grading Is
            the primary reclamation method being utilized.

         .  Ungraded spoil  - irregular steeply sloping erosion-
            prone spoil banks must be regraded, stabilized and re-
            vegetated to create land suitable for use.

            Impounded water - areas must be drained and regraded or
            stabilized to control  runoff and minimize the potential
            for future slope failures.

         .  Toxic spoil - must be removed and/or isolated as  it  is
            both a source material for acid mine drainage formation
            and a significant deterrent to plant growth.

            Unstable overburden - overburden constituents (i.e.,
            shale, sandstone, etc.) determine the erodib11 ity/sta-
            bility of unreclaimed slopes, benches, and haul  roads.
            Burial of extremely unstable materials  Is desirable  If
            volumes are small, if not a number of specialized sta-
            bilization materials are available, plus establishment
            of vegetation.

Once required earthwork has been completed, many areas may require mechan-

ical and/or chemical treatment prior to revegetation.  Revegetatlon then

involves planting suitable trees, shrubs, groundcovers, or grasses to

achieve a  stable vegetative cover.
                                  - 39 -

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Figure  1. Unreclaimed steep slope  contour mine.
            Shown  in this figure  is an ungraded steep slope contour mine.



   This  Illustration, typical of  past contour surface mining techniques  in



   Appalachia, depicts the remnants of the "shoot and shove" methodology.



   Overburden was  blasted and pushed over the low wall,  inconsiderate of



   associated environmental  problems such as extensive sedimentation of



   streams  this  illustration depicts a two-seam mine.  HIghwalls are  left and



   pioneer  vegetative species are beginning to proliferate.
                                      -  40  -

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Figure 2. Unreclaimed modified area mine.
            This figure depicts a typical abandoned modified area mine.  Such



   mines have received essentially no reclamation at all.  This illustration



   displays several rows of ungraded spoil banks, no vegetation and a totally



   exposed hfghwalI.  The multiple spoil banks result from the ability of the



   miner,  in most  shallow slope areas, to make a number of strip "cuts" or



   passes  along the hlghwalI before the  strip ratio becomes uneconomical Iy



   high.   The picture also  shows a water  impoundment, which is common  In many



   unreclaimed surface mines.  The pool  often fills the final cut and very



   often  is acidic.
                                      -  41  -

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                        Abandoned Underground Mines





         Historically, abandoned underground mines have been the source of



the most serious abandoned mined land related environmental and health and



safety problems.  The most prevalent of these problems are surface subsi-



dence and the existence of unsealed mine openings.



         Subsidence, which is caused when natural or artificial supports



employed in underground mining fall, is a health and safety hazard to



nearly all  developed  land uses.  Industrial, commercial,  institutional,



and residential uses are generally  incompatible with subsiding or subsi-



dence-prone areas unless special planning and/or structural design mea-



sures are  implemented.  Backfilling of subsidence-prone areas  prior to



subsidence  is the most effective means of achieving  land  surface sta-



bilIty.



         Open mine  portals and shafts, of which there  are many thousands



throughout  Appalachla, are safety  hazards and are  frequently sources of



acid mine  drainage.   Reclamation  Involves the closure  of  entries and other



openings using  any  number of materials - concrete, timber, earth, rocks,



bricks, and grout.   Improper sealing  Is  also a major problem where  the



sealed mines  inundate  with water  imposing unexpected pressure  on the  seals



with  subsequent failures  and seal  blowouts.





                       Abandoned  Refuse  Disposal  Sites





         Nearly all  abandoned  waste banks and  impoundments are potential



 health  and safety hazards.   Slides and  Impoundment failures have  a  history
                                   - 42 -

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of causing significant downstream damage.  These problems are particularly



visible In the steep slopes of central Appalachla, where so many of the



old sites were developed on steep mountain hillsides (Figure 3) and are



now slipping and Infringing upon adjacent stream channels.
      Figure 3. Refuse pile  on steep  slope.
                REFUSE
                                          ORIGINAL GROUND LINE
                          Scale: 1 In. = 3OO ft.
         Reclamation of  such  areas generally  Involves  leveling or  reducing




the slopes, grading and  compacting of the waste material to blend  with  the



surrounding  landscape.   Unless topsoiled, vegetation  is  extremely  diffi-



cult  to  estabI ish - the  dark  refuse  is  often  toxic  and  heats  up  tremen-



dously  in  the  full sun.   A commonly  used alternative  to  in-place reclama-



tion  of  smaller  refuse sites  Is  complete removal  of unstable  material  and



redeposition on  a more stable site  such as  an abandoned  strip pit  or an



abandoned  underground mine.   In  addition, when the  refuse  material  Is



burning, quenching may be required  for  extinguishment prior to reclama-



tion.
                                   - 43 -

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         Unused tipples and cleaning plants are often associated with



abandoned refuse sites.  Such structures may be hazards because of struc-



tural  instability, easy access (improper closure), or simply because of



proximity to populated areas.  As such they are important when considering



institutional, residential  or recreational  uses for adjacent sites.






                            Acid Mine Drainage






         Acid drainage from abandoned underground and surface mines




strongly impacts numerous streams and rivers throughout Appalachia.



Treatment requirements greatly  increase user costs for  industrial, munic-



ipal and residential water users.  Recreation potentials are also  lessened



by the presence of acid drainage.



         Mine sealing, drainage diversion, and treatment are the primary




control  and abatement  measures  that are utilized.






Land Uses for Abandoned Mine  Sites






         Prior  to enactment of  today's  comprehensive reclamation  laws  and



regulations,  land use  on mined  land was determined chiefly  by  the  mine



operators and/or  landowners with  little or no  planning  involved.   In the



case of  abandoned mined  lands with  no or  limited  reclamation,  operators



 implemented  few land  uses  beyond  simple tree planting.   Most  sites were



 abandoned with  no intended  final  land  uses.  However, federal  and  state



 reclamation  programs  are now  reclaiming these  unreclaimed  disturbed areas



 to a  variety of land  uses.
                                  -  44  -

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         Specific examples may be found of abandoned mines reclaimed to

recreation uses such as swimming, boating, fishing, picnicing, camping,

and off-road vehicle usage, as well  as more developed uses such as housing

and industrial  park developments.  Following is a partial  list of land use

options and the reclamation methods which would be required to properly

implement those land uses.
                 Land Use
         Crop Iands
         Pasture!and
         Range I and


         Wildl ife Areas
         Ponds


         Housing




         Stream Restoration
            Reclamation

Grading to nearly level topography,
segregation and burial  of large
rocks, spreading finer material and
organic matter on surface, providing
adequate drainage control, soil con-
ditioning and planting.

Grading for proper drainage and slope
not exceeding 15 percent to permit
safe use of equipment to harvest for-
age crops, soil spreading and condi-
tioning, and planting.

Strike-off grading, impoundment
formations, planting.

Some grading, erosion controls,
drainage controls, water hole and
wetlands development, access road
building, and game food planting.

Some grading, erosion and sediment
controIs.

Intensive grading, compacting ma-
terial, soil spreading and condi-
tioning, erosion and sediment con-
trols  and some planting.

Stream bank grading, erosion and
sediment control measures, spawning
area development, and rip-rapping.
                                  - 45 -

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land Use/Development Implications






         Abandoned mined lands present much of the Appalachian Region with




a potentially developable land resource.  Factors such as site location,



land values, costs of required reclamation and the availability of unmined



developable land regionally and locally determine the extent to which



these lands will be utilized for development.






                               Site Location






         Many abandoned mined areas are in close proximity to Appalachian




population centers  (i.e., Norton, Va.; Hazard, Ky.), major highways, and



navigable waterways.  Therefore, many of the  infrastructure elements and



development demands necessary for utilization of such sites are present



throughout Appalachia.  However, many other sites will likely never be



considered for  development as they are not easily accessible or are far



removed  from population centers with  few or no viable transportation




routes.





                                Land  Values






         The high  availability  and  low  per acre  cost  of  abandoned mined



 lands  is often  the most attractive consideration In  assessing the utility



of  such  lands  for  various  development options.   Much  of  this  land is



available  at costs far  below the  costs  for adjacent  unmined  areas.   For



example, a previous study  (Skelly and Loy  1975)  found abandoned mined



 lands  in central  Pennsylvania were  valued  at  less than $100/acre  and  land
                                   -  46  -

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suitable for residential  development $2,500/acre and up.  The same study

showed unmined steep slope areas in central  Appalachia to have low land

values ($100-$500/acre) but flat developable lands In proximity to devel-

opments often cost $10,000 to $20,000/acre.   Relatively flat unreclaimed

areas were essentially worthless because of  location and/or high site

development costs.


                             Reclamation Costs


         Prior to site development, nearly all abandoned mined lands re-

quire some degree of reclamation.  The nature and extent of the problems

that are present will determine the reclamation/abatement methods and

costs that will be required.  Johnson and Miller (1979) and Skelly and Loy

(1978) present the following generalized reclamation cost ranges for

typical abandoned mined  lands.

         Abandoned surface mines     range - $1,600 to $14,000/acre
                                     median - $7,700/acre

         Subsidence control          median - $30,000/acre

         Mine opening  sealing        range - $5,000 to $45,000/seal
                                     median - $20,000/seal

         Refuse sites                range - $5,000* to $500,000/acre**
                                     *regradJng and revegetatlon
                                     **removal, transport and  stabll-
                                     Ization

         Mine  drainage               median - $.04/cu.  ft. of  water
                                     treated

          It must  be  noted  that  problems  such as mine drainage  and subsi-

dence  are  not  generally  restricted  to readily definable sites  and may  be
                                  -  47  -

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encountered on properly reclaimed sites or sites with no surface mining.




Such sites may be severely Impacted or rendered unsuitable for development



because upstream off-site mined areas may be causing stream sedimentation




and flooding, slides, and polluted surface water flows or because adjacent



mined areas render the unaffected site inaccessible.  Therefore, a proper



accounting of abandoned mined  land problems should include adjacent off-




site problems as well as the more definable on-site problems.






                             Land Aval lab 11  ity






         The availability of unmined or reclaimed  land for development  is




also a significant determinant of the  eventual utility of abandoned mine



sites.  The  high  investments that are  often required  for abandoned mine



reclamation  and site development are difficult to  offset given the pres-



ence of developable  land.  However, abatement of environmental problems



and  health and  safety  hazards  not provision of new developable  land  is



usually the  driving  force behind  in the planned reclamation.



         Many abandoned  mine sites will be  utilized  for  various  intensive



 land  uses  In the  future.  Location,  land  value and availability,  and  the



availability of other  developable  land are  all primary  determinants  of



site suitab11Ity/potential utility.   However,  reclamation  represents the



single greatest cost that  Is  incurred  In  preparing abandoned  mine sites



for  development.   This reclamation  will generally  be accomplished through



one  of the various federal and state  reclamation  programs  or  following  new




 active mining on  abandoned sites for  additional resource recovery.  Spe-



cific elements  of these reclamation  programs  as they relate to land  use
                                   - 48 -

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decision-making on mined lands are addressed In the section of the report



entitled "Institutional  Framework."



         In summary, this discussion has presented a brief overview of



abandoned mined land associated environmental  problems.  A number of these




problems are obviously key land use feasibility determinants on sites In




which they occur.  The specific characteristics which are to be Incorpo-



rated into the land use decision methodology are  included  later in this




section of the report.






                     Current Reclamation Requirements






         By legislative mandate, reclamation is now  incorporated  into the



mining operation.  Timing, operational specifications, and design criteria



for regrading, revegetation, special reclamation  problems  (i.e.,  water



control structures) and  land use selection are the cornerstone of PL



95-87, the federal regulations, and state regulations that are currently



being enacted to comply with that  law.  Following are the  provisions  in



these regulations that appear to most strongly  impact  land use selection



and development plans for mined land sites.  Specific  Implications of



these provisions are then addressed in the section  following this dis-



cussion.



         Requirements for backfilling and regrading  stipulate the timing



and methodology to be used  In eliminating all spoil  piles, hlghwalls, and



depressions concurrently with mine  progression.   These rules mandate  that



rough backfilling and grading  following coal removal must  be accomplished



within 60  days or 1500  linear  feet  of the advancing  face  for contour  strip
                                  -  49  -

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mines, and 180 days or within four spoil ridges of the active mine pit for



area mining operations.



         Regulations state that the backfilled materials are to be placed



and graded In a controlled manner, In order that all disturbed areas shall



be returned to their approximate original contour.  These tasks are to be



accomplI shed  In such a manner as to protect the hydro I ogle conditions on



or off the site area, ensure stability  and support the proposed post-



mining use.   The post-mining backfilled areas are not required to be of



uniform slope.



         Mine operators are also required to cover all remaining exposed



coal  seams and acid-forming toxic-form ing, combustible, or any other ma-



terials as identified by the authority,  with a minimum of four feet of



cover.  The materials used as cover are to be of a non-toxic and noncom-



bustible  form.   In order to prevent water pollution and sustained combus-



tion,  and to  minimize adverse effects  on plant growth and  land uses,



treatment of  materials before covering  may be required by the regulatory



authority.  Where  deemed  necessary, a  thicker  layer of cover, special



compaction or isolation  from groundwater contact may be required.   These



actions prevent  upward migration  of salts, exposure by erosion,  and  for-



mation of acid or  toxic  seeps;  and  they provide an  adequate  soil  depth  for



plant growth. The storage or  burial of acid  or toxIc-formIng materials



near  a drainage  course  is  prohibited because  of possible  water pollution.



          Reclaimed slopes  cannot  exceed approximate pre-mlnlng  slopes or



 any approved  lesser  slopes.   The  slope need  not  be  uniform,  but  it  should
                                   - 50 -

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approximate pre-minlng topography.  Approximate original  contour is de-

fined or calculated by measuring the slope inclination of areas to be

mined for a zone extending 100 feet above the highwall, and 100 feet below

the coal outcrop.  If the area to be mined was previously disturbed, the

100 foot measurement should extend from the toe of the disturbance on the

downslope to 100 feet above the disturbed area on the highwall side.  The

average slope may be calculated as a slope Inclination as follows:

         Average slope ($) = VeMJ^aldlfference   OQ   wnere
              3     K        Horizontal distance

         vertical difference and horizontal distance are for points  100
         feet above and below the area to be mined or existing disturbed
         area.

         Slope measurements may also account for natural  variations  in

slope.  Exact measurements are not required.   In addition, topographic

maps (at least 5 foot contour  interval,  1" - 100' scale)  may be utilized

to realistically estimate slope values.  More general maps do not provide

sufficient detail to estimate  slope and may compound problems, since

slopes  are often much steeper  than suggested by maps.

         Special regrading conditions may apply  in the following situ-

ations.

             Surface mining activities  are reaffecting  previously
             mined areas that have not  been restored  In compliance
             with new  standards;

         .   Thick overburden contour and modified area mining
             situations;

             Steep slope contour mines; and

         .   Mountaintop removal mining.
                                  - 51 -

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         Stipulations for previously affected mine areas require the re-



tention of all  overburden and spoil  on the solid portion of the new or ex-



isting benches.  Thus, this provision could aid the operator, since the



existing bench may be utilized as excess spoil  storage, saving the time,



labor, and expense of developing a new storage area.  The operator can



benefit from reaffecting a previously abandoned mine, for he will ulti-




mately improve the disturbed area, and therefore establish better rela-



tions with both the authority and the public.  Backfilling and grading  for



the reaffected areas should be accomplished to the most moderate slope



possible while eliminating the hlghwall.  The angle of repose, or such



lesser slope as may be required to achieve a static safety factor of  1.3,



should not be exceeded.



         The operator who decides to reaffect a previous strip mine may




also  be permitted to construct a terraced  final grade  line.   In  this  case,



the authority permits cut-and-fill terraces to be constructed  in order  to



conserve soil moisture,  ensure stability  and control erosion.   The ter-



races must be compatible with post-mining  land  use  and  an  appropriate sub-



stitute for construction of  lesser grade  slopes.  Maximum  terrace widths



are set at 20 feet,  while the vertical  distance between  terraces will  be



specified by the  regulatory  authority  to  provide  for optimum long-term



stability and erosion control.   Greater bench  widths as  necessary  for sta-



bility, erosion control, or  roads  included as  part  of  the  post-mining



plan, must  be  approved  by the regulatory  authority. The terrace outslopes



are  limited to  1v:2h, although  greater slopes  may be constructed with
                                   - 52 -

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      authority  approval, provided a minimum static safety factor of 1,3 can be

      obtained.

              Figure 4  illustrates final cut-and-fill terrace construction

      requirements.


Figure 4. Terrace method backfilling.
          : Original  Ground
                                                            No Scale
                              Backfill
                              Surface
                                                                 Downslope
                                                                 Spoilage From
                                                                 Previous Mining
  COAL
  SEAM
      Wt = Width  of Terrace (Max. 2O')
       h = Vertical Distance Between
           Terraces
Wp = Width of Pit
  H - Height of Highwall
              The use of culverts or underground  rock  drains on the terrace  is

     only permitted with the approval  of the regulatory  authority.  However,

     small  depressions,  if approved  by the regulatory  authority, may be con-

     structed to minimize erosion, conserve soil  moisture or promote vegeta-

     tion.   These depressions must not restrict normal access and shalI not be

     used as substitutes for lower grades on the  reclaimed  lands.  Also, the

     final  grading and preparation of  overburden  before  and during the place-

     ment of topsofl  shall  be accomplished in such a manner as to minimize

     erosion and provide stability.
                                       -  53  -

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         Very detailed standards for revegetation are included in the

final  federal  regulations.  The intent of these standards Is to ensure

that mine reclamation results in a "diverse, effective and permanent"

vegetative cover of native or introduced plant species that supports the

approved post-mining land use.  Major provisions under revegetation stan-

dards require that:

         .  revegetation must be in compliance with a plan approved
            by the regulatory authority;

            all disturbed land must be seeded with or planted to
            achieve a vegetative cover the same as the season
            variety native to the area;

            the vegetative cover must stabilize the disturbed  land
            to prevent erosion;

             introduced species may be used only when approved by
            the regulatory authority;

            seeding and  planting must be done during the  first
            normal  period for  favorable planting conditions after
            final  preparation;

          .  mulch  or  an  approved temporary  cover of  small grains or
            grasses  is required to control  erosion and promote
            germination;  and

             livestock grazing  on revegetated  land must at least
             Include the  last  two years  of the  liability  period.

         Minimum criteria for  determining the  success of  revegetation of

 mine  sites,  which  is  a primary requisite  for  bond release,  are included in

 the regulations.   The regulations  specify that  ground cover  and  produc-

 tivity at  least be equal  to  that of  an  undisturbed reference  area.   Equal

 productivity  is defined  as 90 percent of  the  ground  cover or  productivity

 of the reference  area.
                                   - 54 -

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         A pre-mlnlng inventory of trees, shrubs and half shrubs must be

conducted for the reference areas according to methods approved by the

regulatory authority.  At a minimum, this inventory must include:

            site qual ity
         .  stand size
         .  site and species relationships
            forest land utilization considerations

         The results of this study will form the basis for determining the

success of revegetation at the time of bond release.

         For mines in Appalachia (more than 26 inches of annual precipita-

tion) equal cover and productivity must be maintained each year for a per-

iod of five (5) consecutive years after the last year of revegetation.

Variances to the equal productivity criteria can be granted by the regu-

latory authority under three conditions:

            ground cover on previously mined areas must not be  less
            than that which can be supported by the best available
            topsoil  and overburden;

            revegetation on areas to be developed for industrial or
            residential use within 2 years must provide ground
            cover sufficient only to control erosion; and

            revegetation success  In cropland is based on yield.

         SmalI operations with permit  areas less than 40 acres and annual

precipitation more than 26  Inches are  granted a variance from meeting the

equal cover and productivity criteria.  Under these variances, vegetation

reference  areas are  not required.   However, areas planted  in herbaceous

species must  sustain a vegetative ground cover of 70 percent for  five (5)

consecutive years.   If the  area  Is  planted  with a mixture  of woody and

herbaceous species,  It must sustain a  vegetative ground cover of  70 per-

cent  and 400  woody plants per  acre  after five (5) years.
                                  - 55 -

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Mining, Reclamation and Land Use Planning


         In addition to requirements for environmental  control  and assured

long-term mine site stability, the new regulations present a number of new

land use planning requirements.  Land use plans must now be developed with

the following considerations:

            The proposed land use is compatible with adjacent land
            uses and applicable local, state and federal land use
            pians.

         .  The land use Is feasible as determined by regional   land
            use trends and markets.

         .  Commitment is obtained for construction of required
            public  facilities and utility  Infrastructure.

         .  Plans,  supporting plan documentation, and  If required
            supporting letters of commitment are submitted.

            Plans are  developed under supervision of a professional
            engIneer.

            The proposed use  presents no probable health,  safety or
            pollution  potential.

          .  No  unreasonable  delays  in reclamation will  result.

            Measures  for minimizing  effects on  important environ-
            mental  values  (i.e., endangered species) are developed.

          .  Required management must be  compatible  with other ap-
            plicable  federal,  state  and  local  laws  and  regulations.
             In  addition, soil  conditions and water  availability
            must  be suitable for the proposed  land  use  and manage-
            ment  practices.

         Reclamation  land  use plan  compatibility  Is a  critical  considera-

 tion  in  plan  development and regulatory  agency  review  and  approval.   Com-

 patiblility must  take  Into account  on-slte conditions  such as  soil produc-

 tivity,  soil  mechanics,  topography,  vegetation, and surface and subsurface
                                   -  56 -

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hydrology.  Plan documentation must also include the site's past produc-



tivity and potentials after reclamation.  Productivity must be estimated



based on site yield histories (most importantly for agriculture or yield



estimates) histories for adjacent sites with similar conditions.  If a



mine site was previously mined, and the information Is available, the site



reclamation plan documentation must discuss the impacts of this past min-



ing, extent of resource recovery, and land uses preceding past mining ac-



tivity.



         Where subdivision or zoning ordinances and/or comprehensive plans



exist, plan compatibility  Is determined by conformance to those documents.



In addition, compatibility Is also a function of the extent of potential



functional conflicts between proposed land uses and the surrounding exist-



ing  land uses.



         Two additional Important requirements mandate documentation of



private or public site developer/entrepeneur commitments to implementing



proposed  land use plans.   First, available resources must be outlined to



document the financial feasibility of the proposed project.  Secondly,



required commitments of public resources must also be documented  in full.



         Currently, the most frequently implemented post-mining  land uses



in Appalachla are pasture/hayland and agriculture.   In addition,  forestry



and  fish and wildlife  habitat development are also significant.   However,



there  are  numerous examples of  intensive  land uses being developed on sur-



face mined  lands.  For example,  following  is a partial list of  land use



developments that have occurred  on mined  lands  In West Virginia.
                                  - 57 -

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                     LAND USE
  LOCATION
              COMMERCIAL LAND USES

               1.  Airport
               2.  Airport
               3.  Sanitary LandfiI I
               4.  Airport
               5.  Deep Mining Complex
               6.  Deep Mining Complex
               7.  Coal Preparation Plant
               8.  SawmiI I
               9.  Sawmill
              10.  CanneI ton Farms
              11.  Apple  Orchard
                      LAND  USE
          II.   HOUSING

                1.  Residential  Developments
                2.  Residential  Developments
                   (With  private  airfield)
                3.  Residential  Developments
                4.  Residential  Development
                   (Rush  Creek)
                5.  Mobile Home Park
                6.  Mob Ile Home Park

         III.   PUBLIC FACILITIES

                1.  County Airport & Complex
                2.  Consolidated High School  &
                   Vocational/Athletic Complex
                3.  Consol[dated High School
WiI Iiamson
Logan
Logan
Hazard
Bui I  Creek
Upshur County
Kayford
Walkersvtlle
Preston County
Ward
Buffalo

  LOCATION
Beckley
Corrine

Peach Creek
Rush Creek

Buckhannon
Os age
 Logan
 Welch

 Coal  City
                 Implications for Land Use Decision-Making


         The mining and reclamation methods that are currently mandated

and practiced through Appalachia are critical determinants of the eventual

developabi1 ity of mined land sites.  Mining method determines the size,

duration and spatial progression of the operation.   It also strongly  In-

fluences reclaimed acreages, the mine's location In the  landscape (i.e.,
                                  - 58 -

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side hill  vs. mountalntop), and the configuration of the final  reclaimed

site.  For example, mountaintop removal  operations result in large flat to

gently rolling tracts of reclaimed land.  Excess spoil  is deposited in

stable fills.  Often hundreds of acres of land are mined and reclaimed

during the life of these operations.

         Likewise, small contour operations result in bands of reclaimed

land that progress around hillsides and mountain slopes on contour.  The

majority of the overburden is returned to the mined area approximating the

pre-mining topography of the site.  Terraced slopes are often graded for

environmental control  and provision of flat land for continued existence

of haul road that may be required for maintenance of the operation.  Such

sites are often very narrow (80'-100f)  interconnecting for many miles.

         Following is a brief summary outline of mining and reclamation

considerations  in assessing the eventual development potentials of these

sites.

         1.  Regrad ing

             A.   In steep slope regions - reclaimed mountaintop
                 removal sites present the greatest opportunities
                 for recreational, agricultural and  intensive  land
                 use development.   In particular, cross-ridge mined
                 sites  provide considerable design flexibility, as
                  large  amounts of developable space can be supplied
                 by spoil disposal  in valley  fills.  Regional aes-
                 thetics can also be  heightened by creatively back-
                 stacking spoil on the  excavated bench.   In addi-
                 tion,  on many sites, such operations may be de-
                 signed to alleviate  a  recurring AML reclamation
                 problem by reclaiming  abandoned contour stripping
                 as part of the operation  in  a  fashion suitable for
                 desired  long-term  land  use development.
                                  - 59 -

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   B.  Steep slope contour mines offer few real develop-
       ment opportunities beyond forestry, pasture and
       wildlife management.  On bench backfilling re-
       quirements are such that very little gently slop-
       ing  land results when these sites are reclaimed to
       the  letter of the  law.  Reaffectlng abandoned con-
       tour cuts  is the primary exception as such opera-
       tions are generally reclaimed to partial or ter-
       raced backfill configurations, increasing the
       amounts of available flat land.

   C.   In gently rolling  to hilly  landscapes nearly all
       properly reclaimed surface mines are developable.
       Where smalI contour mines (5 to 20 acre mines are
       common) are involved, these areas may be readily
        linked to adjacent unmined areas creating  larger
       developable parcels.  Modified area operations
       which are  prevalent  in  such conditions generally
        involve  large acreages  and therefore may present
       significant development opportunities.  However,
       such regions generally  possess other non-mined
       developable  land.

   D.   With the stringent environmental control mandates
       of PL 95-87, many  of the environmental  and health
       and  safety problems  associated with surface mining
       are  no  longer of critical concern.  For example,
       the  potential for  encountering unsafe  hlghwalls,
        unplanned  impounded  water,  toxic spoil  on  the  sur-
        face, and  ungraded spoil on reclaimed  mine sites
        Is now virtually nonexistent.  However,  if a site
        was  also  deep mined  in  the  past then unsealed  mine
        openings,  mine  drainage, subsidence-prone  areas,
        and  mine  seals  with  potential  for  leakage  or blow-
        out  may  be present.   In addition,  unsafe/environ-
        mentally  unsound conditions may be present above
        or upstream  from properly reclaimed sites.   There-
        fore, the  reclamation of adjacent  areas, as  well
        as the  deep mining history  of  a given  site may be
        as critical  as  the site's reclamation  in determin-
        ing  the  development  potential  of  a reclaimed mine
        site.

2.  Revegetatlon

        The  success  of  revegetatlon efforts Is determined
        by conformance  to  cover and productivity stan-
        dards.   Mined areas proposed  for  development such
                         - 60 -

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                as developed  land  uses, cropland,  fish and wild-
                life management, and  forest  land may be eligible
                for exemptions to  vegetation productivity require-
                ments.   However, the  establishment of ground
                covers  suitable  for soil stabilization and erosion
                control  is required.  As such, vegetative mixes
                that are appropriate  for the selected  land use may
                be pi anted.

         3.   Special Reclamation  Requirements

                Pertinent requirements  include standards for con-
                struction of  permanent  roads and environmental
                control  facilities such as stream  diversions and
                Impoundments.  Permanent roads must be surfaced
                and plowed,  stepped and keyed on steep slopes.
                Roads must not significantly contribute to site
                erosion and  sedimentation during and after recla-
                mation.

                Water  features must comply with a  number of de-
                sign, construction and  maintenance regulatory  pro-
                visions.  Water  quality and  flow,  safety and pub-
                 Iic access must  be addressed on development of
                mine reclamation plans.

                Areas  within a site that may be particularly prone
                to rilling and gullying must be managed and reme-
                dial work done as  required until these areas are
                a I so stab Ie.

         4.   Land  Use  Planning

                All  proposed land  uses  must  be  at  least as  inten-
                sive as the  pre-mining  land  use.   Land  use  selec-
                tion criteria Include compatib11 ity,  feasibility,
                economics, planning considerations and  potential
                 impacts.  These  have  been traditional  concerns In
                 land  planning and  development,  but are relatively
                 new  to  mining and  reclamation  planning.

                 Feasibility  must be  documented  with  evidence of
                 private and/or public sector commitments  for  im-
                 plementation of  the  proposed plan.

         In  summary, many reclaimed mine sites  in  Appalachia  present op-

portunities  for development.   Current  mining, reclamation  and environ-

mental  control  standards ensure the availability of stable,  manageable.
                                  - 61

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environmentally viable reclaimed mine sites.  In particular, mountaintop



removal  sites in steep slope regions offer significant development oppor-



tun ities.



         Procedurally, consideration of mine sites as potential  sites for



development requires a continuing awareness of mining and reclamation ac-



tivities in the region or area of interest.  The majority of regional and



local public bodies may accomplish this by monitoring and reviewing mining



and reclamation permit applications as they are submitted for approval.



In this way site reclamation and development options may be examined and



potentially affected as such opportunities arise.  (Specific methods for



this will be discussed later.)



         Likewise, regulatory compliance  is the principle prerequisite  for



mining companies, landowners, and developers who plan any type of devel-



opment or site  utilization  strategy  involving a mined land  site or sites.





A  FRAMEWORK FOR LAND  USE DECISION MAKING





         A framework  for a  selection  and  evaluation  of  potential  land  uses



for  abandoned,  reclaimed and  potential mine sites  is presented  in this



discussion.   The  framework  is structured  as a  six  stage process.  The



vehicle  for  technical  implementation  of the framework Is a  matrix which



addresses  the  major  factors (discussed  in previous sections)  which  deter-



mine the developabiI ity  of  mined sites  for specific  land uses.   Figure 5



displays this  framework, and  its various  parts are described  in  the fol-



 lowing  discussions.   The supporting matrix will  also be presented  and  de-



 scribed  later  in  this section.
                                   - 62 -

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         The elements included In this framework dictate development of a

planning data base, since different levels of regional, local, and site

information explicitly feed into the process at every level.  It should be

pointed out, however, that this framework is not a technically complex

procedure requiring new research or generation of expensive new data.  It

is intended only to provide decision makers and planners a tool  for de-

cision-making based on readily obtainable or existing data.


                  Basis for Development of the Framework


         This framework for land use decision-making was developed with

explicit consideration of the following three points:

         1.  The framework should be suitable for addressing two
             important types of  land use decisions specifically for
             mined lands.

             .  What are the optimum  land uses for particular mine
                sites?

                What are the optimal mine sites  in a particular
                area or region for subsequently developing a par-
                ticular  land use?

         2.  The framework should address decision-making  for the
             major land use decision types - preservation, pro-
             tection, development, reclamation and management.

         3.  The framework should address the five general groups
             of site suitability criteria discussed earlier  in this
             section as being  integral to effective  land use deci-
             slon-maki ng.

                Site environmental characteristics
                 Infrastructure characteristics
                Environmental hazards
              .  Development  Impacts
                 Institutional concerns
                                  - 63 -

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         In addition, a number of other factors guided the development of



this decision framework.  For example, the methodology was explicitly de-



veloped as a simple practical system usable by local planning/economic



development agencies and organizations.  Secondly,  it is tailored toward



mountainous areas typical of Appalachia where topography Is a primary de-



velopment constraint.  Thirdly, the framework Includes an environmental



assessment component to enable any proposed project to be evaluated within



a framework of  Impact assessment.



         With these  factors explicitly considered,  the framework, as



presented  in Figure  5, was developed  for mined I and/land use decision-



making.  Following are descriptions of the major components of this frame-



work.
               Figure 5. Land use decision methodology.
                                       Feedback and Reiteration
                                   - 64 -

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Identified Development Needs





         The first component In this process Is an assessment of the de-



velopment needs for the planning area.  It Is assumed that the ongoing



planning process of organizations utilizing this framework will  define the



development needs for their planning area.  Specific programs funded by



HUD, FmHA, EDA, ARC and other agencies have narrowed development needs to



be addressed during a particular planning period.  For example, housing



needs may be the highest priority in the steep slope Appalachian region of



Kentucky.  Therefore, this  land use decision framework may be directed



toward analysis of housing development on mine  lands.



         Data base needs for this initial  level of analysis are Economic



Development Plans, Local Land Use Plans, Comprehensive Plans and other  in-



formation which explicitly denote the development goals of the planning



area.





 Identification of Principle Constraints





         This  second  element actually  Involves  a general  analysis to



 identify environmental  constraints  which  pertain to  development of  land.



These  include  factors such  as floodplalns, steep slope areas, and  land-



scape  features or characteristics that are regionally significant because



of  recognized  resource  conservation or hazard  avoidance considerations.



          Existing  inventory and planning  data  and mapping will  generally



 permit ready  Identification of  these  concerns.   For  example,  regional



 floodplaln  maps  would suffice  for  Identifying  floodplaln  boundaries.   In



 addition  to floodplalns and steep  slopes,  other such areas may  Include
                                   -  65  -

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regionally significant wetland areas,  scenic areas,  already built up land,



and areas with such obvious poor accessibility that  Immediate development



potential is Iimited.





General Site Screening





         Those areas not In conflict with principle development con-



straints are to be further narrowed in this stage of analysis.  This ele-



ment of the framework involves the first actual look at mined land sites.



The focus will be on planned, active, reclaimed, and abandoned sites.



         Data for active or proposed mining may be obtained from the state



mining regulatory agency.  As part of permit review, planning agencies are



able to  review surface mine permit applications for compliance with  land



use plans.  Once mining or a mine plan has  been Identified, described, and



located,  it may be examined  in the context  of  a potential reclamation/



development project.



          A difficult  but essential analysis is determining the potential



minability of currently unmlned  sites or the remlning  potential of  part-



ially  mined sites.   State  geologic surveys  and mining  regulatory  agencies



may be of assistance  in determining the  physical suitability  of  sites  for



future underground  and surface  mining.   However, much  of  the  data which  is



utilized to actually make  such  determinations  is proprietary  data which  is



guarded  by  the mining companies.  Therefore, often  only  general  assess-



ments  of minability may be completed.



          This  determination is  important to minimize  potential conflicts



between  future coal  recovery and site  development  planning.   In  general  it
                                   - 66 -

-------
should be assumed that future plans will  be developed for mining reserves



for all  areas which are currently mlnable, marginally mlnable or mlnable



in the future given likely new extraction technologies or improved econom-



ics, such a cautious approach would minimize future land development/coal



extraction confllets.



         With the recent advent of a national  program for the reclamation



of abandoned mine lands, intensive mapping efforts will be undertaken in



the early 1980's to identify AMI sites for reclamation funding.  All major



AMI features including any underground mine workings should be  located



during this  inventory.  Site priorities  in the state AML reclamation pro-



gram will also be noted.  This priority determination will be made by the



AML designated agency once the inventories have been completed.  High



priority sites, based on the states' selection criteria may be  Identified



since they are to be prime candidates for AML reclamation funding.



         The State AML Reclamation Agencies are also trying to  identify



sites which may be suitable for additional mining rather than reclama-



tion.  This  analysis  is an essential element  In their project priorl-



tization and selection procedures.





 Institutional Constraints
         This element of the framework  is directed toward  Institutional



constraints and/or  Incentives to  land use development.   Institutional con-



straints and/or  incentives are defined  as public sector  plans,  programs,



or policies which affect  land use decisions.  There are  numerous plans.
                                   - 67 -

-------
policies, and programs at federal, state, and local  levels of government




which will  affect decisions regarding development of mine sites.




         Development of abandoned mines to a productive land use will re-



quire less institutional  Interaction than will be required to develop ac-




tive or future mines.  Since abandoned mines already exist, they are not



necessarily  in conflict with future development or comprehensive plans.




If there are conflicts, they are probably to be remedied by site develop-



ment if, in  fact, the plan calls for expansion of certain  land uses  into



the mined region.  An example might be  Industrial park siting In an  aban-



doned mine area.  However, since future mining Is not conceptualized yet



for a given  site, that site may play an alternative or conflicting role  in



a regional comprehensive plan, zoning code, scenic or natural area desig-



nation or a  site which has been declared "unsuitable for mining" under




Section 522  of PL 95-87.  These examples represent  local,  state, and fed-




eral institutional constraints to active or  future mine development.  Data



sources to be reviewed for this  level of analysis  Include:



             Comprehensive Plans



             Zoning  Ordinances



          .   "522" Petitioned Areas  (Lands  Unsuitable  for  Mining)



          .   Wild and  Scenic Rivers  Designations



             Other Natural Areas  Designations



          Review of  these documents  and  designations  will  not always  pre-



clude  mining and  development,  but may  provide an Incentive for  development



of  a mine site  to a state which  puts it in harmony with  planned  uses or



designations of  adjacent or other local  sites.   For  example, an  abandoned
                                   - 68 -

-------
or active contour mine on a slope which overlooks a scenic valley, may be

reclaimed to enhance the tourist potential of a scenic overlook and recre-

ation area.  Mining may also provide the excavation activity for  indus-

trial site development or to another extreme - a sanitary landfill or

toxic waste disposal site (given the requisite other environmental condi-

tions) .


Detailed Site Analysis


         Once specific candidate sites have been  identified, detailed  in-

formation regarding site conditions must be evaluated.  Depending on past

(or  present) mining techniques and other factors, conditions of a site may

limit certain development considerations.  Problems caused by the myriad

potential site conditions may deter any type of development, whereas cer-

tain conditions may not affect the considerations.  Unpolluted water  in an

abandoned mine, for example, may prove to be an  incentive to recreation

development, while  it may also be a deterrent to residential development.

         Following  is a  listing of parameters which are recognized as the

major environmental problems associated with mined  lands.  The  list re-

flects  nearly the total range of frequently encountered environmental

hazards.  Most of these parameters were also discussed  in detail  in pre-

vious active mining and abandoned mine descriptive  discussions.

            -  unsealed mine openings
            -  polluted mine drainage
            -  subsidence hazard
            -  blowout  hazard
               highwalI
                impounded water
                                   -  69  -

-------
            -  spoil  configuration
            -  toxic  spoil  on surface
            -  vegetation
            -  overburden (% sandstone)
            -  refuse piles (condition)
            -  refuse piles (acreage)
            -  structures

         These parameters must be identified during a detailed mine site

environmental problems analysis.  The specific organization of and methods

for performing this analysis are also described in the Appendix.


RecIamatIon/DeveIopment Requ i rements


         Complementing site analysis is the development of reclamation/

development requirements.  These requirements should include a generic

reclamation design (e.g., contour reclamation with all  spoil to head-of-

hollow fill).  This reclamation scheme must be analyzed with respect to

the designation for the  final  land use to assure that the reclamation and

development  were compatible.   This analysis should be done by a civil

engineer and  would involve only a cursory study of the proposed plan.


 Impact Analysis


         An  impact analysis  of a proposed reclamation/development plan  in-

volves a two-stage approach.   Initially, a  sensitivity analysis evaluation

should be  conducted.   Site plans should  be  varied  to note  if  the  final

evaluation score can  be  improved.  Once  a proposed  reclamation  option  has

been  refined through  a sensitivity analysis,  an environmental  impact as-

sessment must be conducted.   This assessment  would  include a  description

of how each characteristic of site evaluation matrix was  evaluated.   This
                                   - 70 -

-------
description would provide all  the necessary background materials:  de-

scription of study area, description of existing environment, and descrip-

tion of proposed action.  A standard analysis of primary and secondary

impacts can then occur focusing on the relationship between the  local

short-term use of the site and the maintenance and enhancement of the

long-term productivity and amenity of the region.  Gonformance with Coun-

cil of Environmental Quality guidelines would be required.  These assess-

ments must be done on a site specific basis and should be prepared by a

disinterested "third party" agency or contractor.

         Environmental assessment procedures are well documented  in a

number of sources:

            Golden, Ouellette, Sarri, and Cheremisinoff, Environ-
            mental  Impact Data Book,  1979.

            Jain, Urban, and Stacey,  Environmental  Impact Analysis,
            1977.

            Heer and Hagerty, Environmental Assessments and State-
            ments,  1977.

Reference to these  documents will assure that all relevant  issues are ad-

dressed.  Specific  application of the Environmental  Statements submitted

by  OSM for Title  IV and Title V programs will also  provide  generic assess-

ments for the relevant  issues.


 Implementation


          Implementation of the  land  use decision technique  is  the deci-

sion-making element of  the recommended management  framework presented  In  a

 later section of this report.   Its  use by  a  publ ic  agency  is thus struc-

tured within  a  project  formulation,  analysis and grant funding system.
                                   -  71 -

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Institutional  frameworks in which the LUDM would likely be useful  are



presented in a later section of this report.






The Land Use Decision Matrix






         As introduced, the LUDM is intended to serve as a framework not



as a hard and fast procedure.  The framework could be utilized using any



of many specific analysis tools such as overlay maps, flowcharts, PERT,



and matrix displays.  This section describes a matrix which has been de-




veloped for analysis; the chief analysis components  in the LUDM.  These



components  include a:  general site screening,  identifying possible




project  institutional constraints, and a detailed site analysis.  This




matrix  is  illustrated  in Figure 6.






Selection of  Matrix Parameters






         The  matrix which  has  been developed  utilizes regional  and  site



analysis parameters which  are  both meaningful  and reasonably  evaluated for



completing  the required  analyses.   Selection  of these parameters  was based



on  the  following  criteria.



         First, the  state-of-the-art  review was utilized  to  identify im-



portant site  land use suitability  determinants.  These  parameters must



address detailed  site characteristics,  possible institutional  constraints,



the regional  Infrastructure, hazards, and  potential  environmental  impacts.




          Secondly, abandoned mined lands literature was used  to Identify



 the surface mine, deep mine, coal  refuse,  and mine  drainage characteris-



 tics which are potential determinants of site developab11Ity.
                                   - 72 -

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         Thirdly, current mining and reclamation methods were reviewed to

identify pertinent site characteristics which are also key indicators of

development feasibility.

         Based on these three criteria, the following site parameters were

selected for inclusion  in the matrix.

         .  Site Screening

            -  site acreage
            -  most narrow site width
            -  flooding hazard
            -  slope hazard
               adjacent to active surface mine
               adjacent to active underground mine
            -  proximity to  incorporated area
               adjacent to highway
            -  adjacent to railroad
            -  adjacent to pub I ic water/sewer
               access to river
            -  access to recreation water

             Institutional Constraints

            -  comprehensive plan
            -  zonIng
            -  "522" designation/status

            Environmental/Health and Safety Problems

               unsealed mine openings
            -  polluted mine drainage
               subsidence hazard
            -  blowout  hazard
            -  highwall
               impounded  water
            -  spoil configuration
               toxic spoil on surface
            -  vegetation
            -  overburden (% sandstone)
            -  refuse  piles  (condition)
            -  refuse  piles  (acreage)
            -  structures
                                   - 74 -

-------
         It should be noted that the above list and the matrix as pre-



sented in Figure 6 are focused chiefly on abandoned mined land site



parameters.  This is because properly reclaimed sites present fewer de-



velopment obstacles.  In addition, the LUDM is intended to be a flexible



planning tool.  Different situations or application contexts will cer-




tainly warrant modification to the parameters which are included  in the



matrix.  For example, if application to only active rather than abandoned



sites  is to be stressed, then a number of the abandoned mine site param-




eters may be omitted (i.e., abandoned structures) and additional more ap-



propriate parameters substituted to reflect the conditions which  are more



likely to be encountered on active mine sites.  Such active/reclaimed site




parameters would  include soil permeability, slopes, soil shrInk-swell po-



tentials, depth to groundwater, etc. - traditional site  land use  analysis




parameters.   In summary, the LUDM  is intended to  function as a  flexible



framework rather  than a collection of etched-in-stone site parameters



which  will not fit every site/planning situation.



         Each of  these parameters  are defined  (assigned) value  within the



matrix.  Parameters  have been structured  in a  straightforward,  unambiguous



manner to  allow operational  ease  in application.



         Criteria are given  scores of 0-2  depending on  the magnitude of



the  problem or opportunity.  This  score  is multiplied by the relative



weighting  factor  for a  final score.  Once  all  parameters affecting  site



development have  been scored and  weighted, a  final summation score  can be




determined.   This system can be  used to  evaluate  one site's  potential for



development relative to another  site.
                                   - 75 -

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         It should be noted that the relative weightings are constructed



to evaluate how each factor Imposes negative considerations on each poten-



tial or proposed  land use.  Involved in these negative considerations are



engineering construction costs, hazards associated with use, infrastruc-




ture! costs, and aesthetic disamenities.  Positive considerations are



largely political in nature because this is a pub Iic program to supplement



(or modify) private sector development.  These considerations must be



taken into account at the "identified development needs" stage discussed



earlier.



         Weighting factors have been assigned to  each type of  land use  de-




velopment.  The weighting factor represents the magnitude of the mine  land



problem for one type of  land  use versus another type of  land use.  For  ex-



ample the  impact  of having unsealed deep mine openings would be greater



on  housing  development than on returning  land to  forest or  agriculture.



Likewise a  factor such as slope  is certainly more crucial to  identifying



sites suitable  for  intensive  agriculture than for pasture  lands  (as  con-



ventional  farm  equipment  is  limited to  slopes of  less than  18$).   As cur-



rently structured, the system does not  address  potential differences in



the importance  these  factors  may assume in  a particular  region or  locale



 (I.e., the  relative  scarcity  of  availability of less than  18/K  slopes in a



particular  region).   Likewise as  it  is  presently  structured  the  matrix



does not  explicitly  address  differences in  the  demand  for  alternative or



competing  land  uses.
                                   - 76 -

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         Rather than specifically address such site specific conditions it



is felt that such parameters, weightings and evaluation perspectives may



be incorporated into the framework of the LUDM as the LUDM presents a



framework for conducting mine reclamation site analyses on any number of



very specific or general premises.  For example, the availability or ab-



sence of less than 18$ slopes may be noted and addressed during the "Prin-




ciple Contraints" analysis rather than during the detailed site analysis.




in this context the parameters which are to be addressed in any portion of



the LUDM may be modified, deleted or added to-to fulfill the analysis re-



quirements of each planning situation.   It must be reiterated that the key




to the LUDM is its value as a framework for analysis rather than being a



set of quantitative analysis parameters.   In this way the necessary flex-



ibility which  is required for regional planning.




         However, any site analysis requires some technical expertise for



implementation.  Coordinating with the state reclamation authorities may



generally provide the level of expertise necessary to provide  input to the



LUDM regarding the mine site factors which are not common knowledge to



many professional planners.



         Complementing the site analysis  is the development of reclama-



tion/development requirements.  These requirements should  include a



generic reclamation design (e.g., contour  reclamation with all spoil to



head-of-hollow fill).
                                 - 77 -

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Summary
         As presented, the framework and the matrix were developed to;

            Structure principle site planning and development con-
            siderations for mined land sites.

            Include appropriate techniques and analysis parameters
            from the state of the art for land use planning and
            decision making, active surface mine reclamation, and
            abandoned mined land reclamation.

            Incorporate easy to utiI ize procedures for mine site
            land use selection for structuring the requisite infor-
            mation to conduct mine site land use analyses.

            Focus on the major concerns associated with developing
            mine sites rather than development of a highly sophis-
            ticated analysis technique.
 ILLUSTRATIVE SITE DEVELOPMENT STRATEGIES


         This section  includes a number of typical site reclamation/devel-

 opment situations for  mined sites  in Appalachla.  These examples  are  in-

 cluded to present a few  illustrations of the types of  development/reclama-

 tion  situations that may be addressed with the  LUDM  and the  matrix.

         The amounts and types of  developable  land varies  considerably

 throughout Appalachia.   For example,  in certain parts  of central  Appala-

 chia, there  is no developable  land outside the  floodplain.  In  other

 areas, scarcity of sites  is  limited to only  a  few types of land uses  such

 as  industrial sites.   For  the  analysis that  follows, the mountainous,

 steep-slope  region of  central  Appalachia  is  discussed  (see artist's sketch

 and corresponding topographic  plan In  Figures  7 and  8).

          Within Appalachia land  use  development is  constrained  by two

 factors:   1)  flood hazard; and 2)  slope  and  related  landslide hazard.  For
                                   - 78 -

-------
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- 79 -

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these reasons, development is restricted to portions of narrow valleys  in



which incompatible land uses must locate adjacent to one another.  Par-



ticular examples include heavy industry/residential and mining/residen-



tial.  The widespread existence of surface mining  (past, present, and



future) in the province affords the greatest opportunity to reshape the




land and provide suitable sites for all types of  land uses  in the area.



Underground mining affords little opportunity for  land  use  development  and




actually constrains  land use development by causing subsidence hazards  and



creating waste disposal areas.



         Two  surface mining methods predominate  in the  Appalachian Pla-



teaus province:  contour mining and mountaintop  removal  (see previous  de-



tailed descriptions).  Historically, contour mining resulted  In  extensive



health, safety, and  environmental problems  (I.e.,  abandoned mine lands).




Current environmental  regulations for  contour mines require spoil  be  re-




placed and graded to approximate original contour  (AX)  with excess  spoil



placed  in controlled fills.  A variance from this  AOC requirement is  al-



 lowed  in  steep-slope situations where  a commitment to a developed final



 land  use  is made.  An  excavated bench  and highwalI can  thus be  left  by



dIsposIng all  spoiI  in a  controI Ied  fill.



          Mountaintop removal mining  also represents  a  special  case where a



developed final  land use  Is  specified.  Spoil  can be  placed in  a variety



of ways;  various  amounts  can be  allocated to  backstack  and fill  areas to



meet the  requirements  of  a predetermined final  land  use.
                                   - 80 -

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         The three cases discussed above - abandoned contour mines, active

contour mines, and active mountalntop removal  - identify the best oppor-

tunities to reclamation/development sites in this province.  Because the

mineral deposit (coal) Is found In multiple seams, which lie nearly hori-

zontal, opportunities for reclamation/development projects abound when the

reserves can be mined by surface techniques.  For example, consider the

reclamation plan shown In Figures 9 and 10.  Only a few of the feasible

sites  In this  locality are specified for reclamation, yet major amounts of

developable land are created.

         Choice of appropriate final land use  is critical to the success

of the reclamation.  Because one the purposes of the mine site development

reclamation is to bring development out of the stream valleys, a disper-

sion of  land  uses and development will be occurring.  Thus,  it is  Impor-

tant that only those  land uses, which are amenable to being  located  in

more remote locations (hollows and mountaintops), be chosen  for this type

of reclamation.   In particular, those functions which draw  from a  large

population  (or work force) should remain  in the  stream  valleys -  indus-

trial, commercial, and pub Iic/institutional.   Land  uses which can  be

dispersed  include residential, agriculture, forestry, and  recreation/tour-

 ism.   In the  recommended  reclamation/development  concepts  that follow

these  uses  which  do not  require central  locations are specified  as the

appropriate final  land  uses  In these schemes.

         Two  types of final  land  uses are  specified  for contour  reclama-

tion;  larger  sites can  be utilized  for  agriculture  while smaller  can  be
                                            Figure 9. Regional reclamation/
                                     82                    development plan.

-------
                                                         c
                                                         0)
                                                        CD
                                                        _,


                                                        1

                                                        1
                                                         0
                                                         0)
                                                        OC
-
«B
0


I

1
0
0
<

» :|*
 -
                                                                    .*•//
-   83  -

-------
Figure 10. Reclamation
           plan sketch.

-------
- 85 -

-------
 designed  for  housing.   Reclamation  can  be  applied  to  both  active  and  aban-




 doned  contour  mines.   Spoil  from  abandoned  spoil piles  (or newly  excavated




 spoil  in  the  case  of  active  mines)  must be stablized  or  excavated and



 placed in head-of-hollow  fills.   Housing or farm buildings can  be con-



 structed  on solid  bench with the  fill to be utilized  as  common  open space



 or  agricultural  land.   Artist's sketches and corresponding schematic plan



 views  are provided in  Figures 11  through 14.




          Mountaintop  removal mining can be used to reclaim abandoned con-



 tour  mines or simply  mine virgin  sites. Because  large amounts  of develop-



 able  space is provided by this mining method, such large scale land uses



 such  as forestry and  tourist recreation are appropriate to reclamation in



 these cases.   Utilization of this scheme would require the construction of




 valley fills  for initial  cut disposal.   Mining can then proceed  in cross-



' ridge fashion from the saddle of  one ridge to another saddle.  Spoil can



 be placed in  the backstack and regraded to minimize deviations from the



 original  contour of the  land.  At the conclusion of mining an excavated




 bench remains which can be utilized as a site for buildings and  related



 faciI  ities.



          Artist's sketches and schematic plan views of concepts  for:   1)



 mountaintop removal/forestry  (and game  lands) and 2) mountaintop removal/



 tourism  (recreation)  are shown In Figures  15 through  18.   Note that  sub-



 stantial  amounts of spoil are allocated to  the backstack  area rather  than




 head-of-hollow  fills.  Major  impacts to the aesthetics of the area are



 thus  avoided.
                                   - 86 -

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         Implementation of these types of reclamation/development projects



can be best accomplished In the surface coal  mining areas of the,Appala-



chian Plateaus.  Economic development needs are current as is the oppor-



tunity to reshape the land.  Operational success of this particular scheme



would require:  1) inventory of all abandoned coal mines in the area; 2)



review of all active coal mine permits; 3) application of the land use



decision technique to test the hypothesis that the site should be devel-



oped for a designated final land use; and 4) proceed with those recrea-



tional/development projects which were evaluated as optimal.
                                   -  87  -

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Figure 11.  Schematic contour reclamation for housing (I).
                             '•^flS:
                                               - LEGEND
                                        IIIMI Highwall

                                         ^^ Forest

                                                        Approximate Scale
                                                            1" = 200'
Figure 12. Site plan  sketch - housing.
                                 -  88 -

-------
Figure 13. Schematic contour reclamation for truck farming (II).
                                                — LEGEND —
                                             Highwall
                                             Road (20')
Trees
Rock
Drain
                                                       [•^•.'^5J Forest
      '&T^J&W$ffiV^r^'»er£rf&t&=:=
      • ;CC?$"'&M$!%*$«f"'^'^'^ ^^^=L
     ^if^^^m?mg^
     %&&&?*&w'$$^^
     : •^
     O •• &.t fff i'rS '•^      ^1

                                                    Approximate Scale
                                                       1" -- 300'
Figure 14- Site plan sketch -  truck farming.
                        '-W$fS, ""'-.; 4'         f, ,

                    ¥*'.. ,snfcf*" ** *ll"r ^i^***^      '-"

                   ,
                                             1 V>". -  1 '
                              - 89 -

-------
Figure  15.  Schematic mountaintop reclamation
for forestry/game lands (III).
                                                                        3S§B
                                                                        ^•.••-v.-v^v..*
                                  COMMERCIAL
                                  FOREST LAND

                               -- TOO' --- ^ X
                  — LEGEND —

                 	Relative Backstack Elevation
                       (to Excavated Bench)
Contour Interval 50 Feet


    Approximate Scale
       1" = 1000'
Figure  16.  Site plan  sketch - forestry.
                 *"»<«^. - *

                                     - 90 -

-------
Figure  17. Schematic  mountaintop reclamation
for tourism/recreation (IV).
                                                                   EXCAVATED
                                                                  •f^, BENCH -V*
                                                                  •-^•••Oft >T.-*Y •*'"_
                                          ^•K-vp-v^'W^SSrSS^SSKSTS
                                          -^"Kfe^^^JS^i^S^

            — LEGEND —
^•r" Access Road         5
 1   Scenic Overlook       6
 2   Pool Complex
 3   Camp Grounds      tf-fc
 4   Visitor Center/
    Lodging
                                                         Contour Interval 50 Feet
                               Theatre
                               Parking
                               Trail
                           -fcyfej Forest
                           150  Relative Backstack Elevation
                               (to Excavated Bench)
Approximate Scale
   1" = 1000'
Figure 18. Site plan  sketch  -  recreation.

                                                      *-«
                                                     -•%'
               t
                                    - 91  -

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INSTITUTIONAL
     ANALYSIS

-------
                    INSTITUTIONAL ANALYSIS


         This section  is structured to present  an  overview  of  the  various

agency organizations,  activities,  interactions,  and  plans which  form  the

mining/reclamation and pollution  abatement  institutional/decision-making

system in Appalachia.   Discussions are organized around  the two  major

components of this system - abandoned  coal  mined  land  reclamation  and

active coal  mine regulation.

         Agency summaries provide a description  of an  institutional con-

text for development and use of the Land  Use  Decision  Methodology.  Plan-

ning contexts, regulatory contexts, and  agency  activities may  be examined

within this institutional overview.  In  addition,  the  agency descriptions

provide an information base for the detailed  agency  descriptions and  in-

teractions that form the Settlers Cabin  Project  Case Study.

         Within the major system  components,  discussions summarize:

            The agencies at the nucleus  of  each  component,  as  based
            on regulatory mandates, funding levels and programs,
            technical  capabilities and interactions  with other
            agencies.

            Agencies with secondary involvements because of man-
            dated planning, coordination, and regulatory responsi-
            b iI it ies .

            Agency programs, involvements and interactions  that  are
            innovative or atypical .
                               - 95 -

-------
            New agency programs or commitments that will  be essen-
            tial  parts of the system in the future, as well  as
            existing programs that are being deemphasized or re-
            directed .
ABANDONED MINED LANDS


         This section provides an overview of the agencies and organiza-

tions that have been involved in various aspects of abandoned mined land

reclamation.  Discussions are focused on pertinent federal, regional,

state, and local  agencies and organizations.  Included are agencies with

mandates for reclamation planning, engineering,  funding, construction, and

monitoring.  Following is a chart which briefly summarizes the historic

involvements of these agencies.  Descriptions of major programs, as well

as their current and future status and activities are now presented.


                             Federal Agencies


         This discussion focuses on the Office of Surface Mining and the

state reclamation agencies as the nucleus of the current AMI reclamation

system.  However, a number of past reclamation programs and current acti-

vities of other  involved agencies are discussed first as the current AMI

planning/management system is a composite of these earlier  involvements.


The  U.S. Bureau of Mines


         The Bureau's first mandated  Involvement  in abandoned mined  land

reclamation  was the result of the Mine Fire  Act of 1954.  This Act gave
                                -  96 -

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Figure 19. AML program and milestone chronology.
    YEAR
                      EVENT
     1928
     1933
     1954
     1955
     1962

     1965

     1968
     1968
     197O
     1971
     1972
     1972
     1972

     1975
     1976
     1977


  198O-1981
FIRST REPORTED MINE SEALING PROGRAM.
FEDERAL MINE SEALING PROGRAM INITIATED IN
7 STATES-SPONSORED BY DEPARTMENT OF PUBLIC
HEALTH, WORKS PROGRESS ADMINISTRATION.
U.S.B.M. - MINE FIRE ACT (MINE FIRE CONTROL).
U.S.B.M. - ANTHRACITE ACT (WATER CONTROL).
ANTHRACITE ACT AMENDMENTS (FILLING AND SEALING).

ARC "205" MINE AREA RESTORATION PROGRAM.

PENNSYLVANIA OPERATION SCARLIFT.
TENNESSEE SURFACE MINE RECLAMATION FUND.
MARYLAND MINE DRAINAGE CONTROL PROGRAM.
WEST VIRGINIA ORPHAN LAND PROGRAM.
KENTUCKY ORPHAN LAND PROGRAM.
OHIO LAND REBORN.
VIRGINIA ORPHAN LAND RECLAMATION PROGRAM.

TENNESSEE VALLEY AUTHORITY  RECLAMATION PROGRAM.
ALABAMA AML PROGRAM.
OFFICE  OF SURFACE MINING NATIONWIDE AML
PROGRAM-FEDERAL, STATE, AND RAMP (SCS) COMPONENTS.

SUBMISSION OF STATE PLANS FOR AML PRIMACY.
                              - 97 -

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the Bureau of Mines primary national  responsibility for control  of under-



ground mine fires.  Subsequently, the Anthracite Act of 1955 and amend-




ments of 1962 charged the Bureau with conducting required water control,



mine void filling, and sealing projects in Pennsylvania's Anthracite Re-



gion.   In both cases, 50/50 (USBM/State) project funding was utilized.




Both programs are still  technically active, although very few projects are



currently being funded or constructed.



         In 1965, the Bureau became involved in comprehensive reclamation/



pollution abatement functioning as the technical support and administering



agency for the ARC "205" Mine Area Restoration Program.  This program  pro-




vided for 75/25 (ARC/State) shared project funding for surface mine recla-




mation on public  lands, pollution abatement, mine fire and subsidence




control, and deep mine sealing.



          Initially, the states could apply for the funds as needed.  ARC



would review the  project request and pass required funds to the Bureau



which then administered and provided technical review  and support services



as required.  The states, as the primary  implementation agencies, would



then merely  invoice the Bureau as project costs were  incurred.   In the



case of mine fire control, the Bureau  is  always the  implementing  agency,



and therefore  invoices the states for  its one-quarter  project funding



share.



         Under Section 205 of the Appalachian  Regional  Development Act,  a




wide  array of  work can be  approved by  ARC on private  property so  long  as



the mine problem  stemmed from an abandoned deep mine.   Only  if  strip mined
                                 - 98 -

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Figure 20. Typical  "205" project funding scheme.
APPALACHIAN
REGIONAL
COMMISSION



"205"
FUNDS



ARC passes all funds
through to U.S.B.M.
U.S.D.I.
BUREAU
OF MINES
i
i
PROJECT
INVOICE
Requestor invoices
U.S.B.M. for expenses
Incurred against ARC
funds.



PENNSYLVANIA
DER-BUREAU OF
OPERATIONS
 land  is  owned  by  a  nonprofit,  private organization, etc., or  is publicly




 owned, can  the ARC  make  grants for  surface mine reclamation.  Only a frac-




 tion  of  the thousands  of acres of  stripped unreclaimed  lands  in Appalachia




 qualify  as  noted  above.   Thus,  the  Bureau's efforts to  date have  involved



 mainly deep mine  reclamation work  - extinguishing mine  fires, mine subsi-



 dence control,  refuse  pile covering, etc.  For example, under the program,



 39  mine  fire,  20  subsidence, 16 surface mine reclamation, and 8 pollution



 control  projects  have  been completed.  Much of this work was completed  in



 Pennsylvania.   Pennsylvania, over  the years, has operated the most aggres-



 sive  and  welI-financed state program  in Appalachia.  As such, the state



 has been  active in  providing the one-quarter funding share.  For example,



 the Bureau  has  been  involved in 45  million dollars worth of reclamation  in
                                 -  99 -

-------
the anthracite region - 20 million from "205" and 25 million from the USBM




anthracite "demonstration" 50/50 cost sharing projects.



         Currently, USBM "205" program activities are focused chiefly on



continued management and completion of existing projects.  New project ac-



tivity is minimal, as ARC reassesses program goals and funding commitments



in light of the OSM and state reclamation programs.   In addition, current



ARC mandated procedures for project selection and funding application dic-



tate the incorporation of these projects into the Local Development Dis-




trict Areawide Plans.  AML reclamation has proven to be a low priority to



the majority of the LDDs through Appalachia.



         The Bureau  is also currently providing technical support to the




OSM Federal Reclamation Program  Interagency Agreements which have been de-



veloped  for a number of mine fire and subsidence control projects.



         Although coordinated  in Washington, the majority of reclamation



work  is  completed or managed by the Pittsburgh Research Center (bituminous



projects)  and the Wilkes-Barre Field Office  (anthracite).





The Environmental Protection Agency





         A number of EPA Offices have been  involved  in various aspects of



AML reclamation/abatement  planning and technology development.   This  in-



volvement  began with the Wheeling  Field  Office of Region  III conducting a



number of  basinwide  acid mine  drainage  inventories.   The first of these



was  initiated  In  the Monongahela Basin  in the mid-60's by the Federal



Water  Pollution Control  Administration - EPA's predecessor.  These  studies
                                 -  TOO  -

-------
were phased out in the early 1970's.  During the mid-1970's, the Water



Planning Division focused R&D activity on AMI reclamation/abatement as




part of early efforts focused on defining roles for the then infant 303(e)



and 208 Programs in mined land reclamation and pollution control.  In



addition, EPA, through its Extraction Technology Branch at the  Industrial




Environmental  Research Laboratory in Cincinnati, has sponsored a number of



AML reclamation/abatement demonstration projects.



         Recently, EPA has made a couple of policy decisions that will




significantly shape their future involvements in AML reclamation/technol-



ogy development.  EPA mandated that state and regional  "208" agencies



should deemphasize mining/pollution abatement as they move from general



regionwide planning to more detailed area and project planning.  This de-



emphasis reflects a lessened EPA's commitment to mining pollution control



abatement as the OSM and state reclamation programs also begin to address



these problems.






The Tennessee Valley Authority






         The TVA initiated an extensive four-state (Alabama, Kentucky,



Virginia, Tennessee) orphan surface mine reclamation program in  1975.  The



program was a cooperative TVA/state effort with the states responsible for



administration and actual project implementation.  The TVA provided tech-



nical advice and assistance in the development and Implementation of proj-



ects.  Actual reclamation projects were generally selected and constructed




through the local Soil Conservation Districts.  With the exception of Vir-



ginia, which operated a centralized program, work crews are hired by the
                                - 101 -

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Figure 21. Organization of TV A sponsored  orphan
land program  - Tennessee  example.
TENNESSEE
VALLEY
AUTHORITY
•
— ^
TENNESSEE
DEPARTMENT OF
CONSERVATION
Division Orphan
Land Reclamation
— ^
SOIL
CONSERVATION
DISTRICTS
— *•
LOCAL
POPULATION
      I   Reclamation Plan   I
             Approval
 Soil Conservation District from the local unemployed.  Surface mine ero-

 sion control, haul road reclamation, and tree planting have been the focus

 of  reclamation activities to date.  The  program will officially wind down

 in  1981, although Virginia is  leaving the program sometime  in 1980 to

 operate their OSM/State Program.


 Appalachian Regional Commission


          Under the previously  described  "205" Mine  Area Restoration Pro-

 gram ARC has funded 97 reclamation  projects, with an  investment of over

 $55 million.  ARC has also sponsored a number of special reclamation

 studies -  regionwide assessments, technology development, etc.  Many of

 these  studies were cosponsored with other federal and  state agencies.
                                 - 102 -

-------
The Subsidence Control  Series, the Monongahela River Basin Study Series,

and Acid Mine Drainage in Appalachia were the most significant of these

projects.

         ARC is also currently instrumental  in an emerging multi-agency

program that is focusing on provision of new housing sites for central

Appalachia.  This program is a joint ARC, Tennessee Valley Authority,

Farmers Home Administration project entitled, "Housing on Surface Mined

Land for Central  Appalachia."  The three agencies are combining their re-

sources for development of housing sites on active and abandoned coal mine

lands.  Counties will be prioritized for further site selection based on

county status as an FmHA target county, TVA priority county, state prior-

ity county, and 601 county.   Initial development will include AML sites,

but the majority of subsequent development will be on reclaimed active

mine sites.


The U.S. Army - Corps of Engineers


         The Corps has completed a number of regional/basinwide mine

drainage and abatement studies throughout Appalachia.   In general, the

Corps has focused on mining/pollution abatement while conducting three

types of projects.

            Authorized mine drainage studies.  Such a study was
            completed  In the Potomac River Basin and another  Is
            currently underway in the Clarion River Basin.  The
            Clarion Basin Study is projected to be the  last major
            mine drainage study as the Corps Is deferring such
            Inventory/planning efforts to OSM and the states.
                                - 103 -

-------
            Comprehensive river basin studies.   These studies are
            initiated in support of Corps comprehensive river basin
            planning.  The Nashville District recently completed a
            comprehensive study for the New River Basin in Ten-
            nessee.

            Flood plan management studies have focused on the im-
            pacts of mining on flooding in Appalachia.  Management
            and abatement measures are developed which specifically
            consider AMI reclamation.  A detailed study on Tug Fork
            in. Kentucky and Virginia is currently underway.
The Office of Surface Mining


         With the passage of PL 95-87, OSM became the central figure in

abandoned mined land reclamation.  Utilizing a per ton fee levied on ac-

tive coal mine production, OSM is engaged in a number of reclamation re-

lated activities.   In addition, a portion of this fee (up to 20$)  is

utilized by the Soil Conservation Service for conducting the Rural Aban-

doned Mined Lands Program (RAMP).

         The following figure provides a general outline of the organiza-

tion and various activities of the OSM/AML Program.  Following also  is a

brief summary of the OSM Title IV agency structure and activities.


                State and Indian Tribe Reclamation Programs


         The general focus of activities  is review and approval of state

and  Indian tribe reclamation plans, review of yearly grant submissions,

and  review of plan  amendments.  To achieve state primacy  (the right  to

conduct  a state program with a portion of the fee collected  by OSM), state
                                - 104 -

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Figure 22. OSM abandoned mined land reclamation
program organization and functions.
                               FEDERAL
                            RECLAMATION
                              PROGRAMS
     SPECIAL
     PROJECTS
SUPPLEMENTS
 TO STATE
 PROJECTS
 PROJECTS
ON FEDERAL
   LAND
EMERGENCY
 PROJECTS
                            RECLAMATION
                              PLANNING
                                 AND
                             STANDARDS
        SPECIAL
    DEMONSTRATION
       PROJECTS
           NATIONAL
              AML
           INVENTORY
              TECHNICAL
               PLANNING
               SUPPORT
                              STATE AND
                             INDIAN  TRIBE
                             RECLAMATION
                              PROGRAMS
        GRANT
     APPLICATION
        REVIEW
       PROCESS
          RECLAMATION
             PLAN
          AMENDMENT
            REVIEW
            PROCESS
             RECLAMATION
                 PLAN
                REVIEW
               PROCESS
                               - 105 -

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and Indian tribes are required to prepare "Reclamation Plans" which con-



tain descriptions of the state agency operating systems, as well  as state




overview data bases.  These plans have been submitted to OSM for review.



Upon submission, state and Indian tribe programs have primary responsibil-



ity for plan review.  In addition, the Office is reviewing first year




project request submissions prior to final approval of the state plans.



Both the plans and project grant submissions are being prepared under OSM/



state cooperative agreements.  Upon plan approval, the states will submit




annual project grant submissions and plan amendments as required.   In ad-



dition, this Office will offer technical assistance to the states upon re-



quests for plan preparation, project review problems, etc.




         Following OSM's Regional/Washington organization, the majority of




review activities are conducted  in the regional offices while policy for-



mulation and major program review activities are completed  in Washington.






                       Federal Reclamation Programs






         The Federal Reclamation Program carries out reclamation on coal



mined  lands not  included  in  state or  Indian reclamation plans; high prior-



 ity emergency projects; special  projects  such as  interstate  and demonstra-



tion  projects; and on state  reclamation  projects  providing  funding  sub-




sidies.



         As the  state programs will be geared to  primarily  address  proj-



ects  identified  in their  state reclamation planning  process, the  Federal
                                 -  106  -

-------
Program will  focus most heavily on emergency projects.  Using the "Secre-



tary's Fund"  portion of the reclamation fee, these projects will  be under-



taken as quick response type projects.  Many of these projects are and



will continue to be done as cooperative projects with the states.  The



U.S. Bureau of Mines is also being used to provide technical  support for



mine fire and subsidence control projects.  The Program conducts reclama-



tion on federal  lands (USDA Forest Service; USDI Bureau of Land Manage-



ment, Bureau of Reclamation; U.S. Fish and Wildlife Service;  etc.).  Spe-



cial case projects such as interstate projects may also be carried out by



this office.  As well, supplements may be given to the states for timely



completion of large high priority projects.  Although the programs for a




number of western states will  likely move into non-coal mine reclamation



as the reclamation of coal lands is completed, the federal program will



continue to be focused on reclamation of coal mined lands.  The federal



program is also going to conduct a number of "demonstration"  or special



reclamation projects.  Projects will  be undertaken in each of the five re-



gions for demonstrating innovative reclamation techniques (i.e., develop-




ment of housing sites, water harvesting, etc.).  The Program is also coor-



dinating their activities with those of a number of other federal agencies



(i.e., HUD, Heritage Conservation and Recreation Service, EPA) facilita-



ting joint multiagency project planning and review.   In addition, OSM



plans to extend cooperation to state and  local agencies for which assis-



tance may be provided for homesite and industrial  land development on



abandoned mined lands.
                                - 107 -

-------
                    Reclamation Planning and Standards


         This office is responsible for developing and maintaining the na-

tional  AMI Inventory..  In addition, its primary charge is related to pro-

viding planning and engineering reclamation technical support to OSM.

Interagency projects, special  projects, and planning studies are also in

the charge of Reclamation Planning and Standards, and they will assume a

role in most reclamation demonstration projects.  The division will also

soon be exploring ways to link the OSM and state programs to other pro-

grams such as EPA's 208 Program and various HUD housing development pro-

grams.   In addition, projects that may be part of OSM/AMI Research Program

will often be comanaged by Planning and Standards Technical Services.


                      The State Reclamation Programs


         All of the Appalachian states with the exception of Georgia and

Mississippi had abandoned mined land reclamation programs prior to OSM's

Title  IV Program.  Some were ambitious, while others were  limited to

little more than demonstration projects.  Funding sources for  these  pro-

grams  included:

            Bond  Issues  (Pennsylvania)
            Excise Taxes  (Ohio)
            General Review Allocations  (Maryland, Kentucky)
            Acreage Fees  (West Virginia)
          .  TVA Cooperative Funding  (Virginia,  Kentucky, Alabama,
              Tennessee)

         The scope of  reclamation  projects  actually  undertaken ranges  from

extensive mine sealing,  earth moving,  and subsidence control projects

(Pennsylvania) to minimal revegetation  and  sediment  control  (Tennessee).




                                -  108  -

-------
A couple of states also plan to maintain these existing reclamation pro-

grams concurrently with approved Title IV reclamation programs.  Most are

restructuring their existing programs as the vehicles to conduct their

Title IV programs.

         Although there has been a great deal  of divergence in the struc-

ture and operation of state programs until  now, achieving Title IV primacy

is resulting in the state programs becoming increasingly similar as Title

IV primacy mandates specific organizational and functional  requirements,

adherence to specific policies, and initiation of certain activities.  For

most states, changes will be most significantly felt in the following two

areas:

            Developing detailed policies for land acquisition and
            disposal, rights of entry, and reclamation on private
            I and.

            Developing new policies for project ranking and selec-
            tion,  interagency coordination, and public participa-
            tion.

         A number of agencies previously operated with poorly defined

policies for land acquisition, management, and disposal.   In addition,  it

was often previous state policy to not acquire  land, use right of entry

powers, and conduct surface reclamation on privately held  lands.  Land ac-

quisition and  long-term management will  likely continue to be only under-

taken to abate emergencies or if  long-term public ownership is desirable

or required (i.e., for construction of treatment plants or conversion to

public parklands).   In fact, a number of states are required to rely on

agencies other than the reclamation agency for  land acquisition and man-

agement.  Because of past problems with windfall profits,  liens, and  land




                                - 109 -

-------
appraisal, many states have not undertaken surface reclamation of private-



ly held land.  However, a legal  backing and policies for private land rec-



lamation and right of entry are now required.



         Secondly, the state's procedures for project ranking and selec-



tion must match with OSM's priority criteria for potential  projects.  In



addition, explicit coordination with the SCS Rural Abandoned Mine Program



and public participation in the state program are now also required.



         Because of these similarities in program organization and manage-




ment, there will also be significant operational similarities between



state programs.  The following "Typical AML Activities Flow Chart" divides



major state agency activities into tasks that are referenced here as




cycles.  Following is a brief description of the major cycles.






Inventory






         To define eligible sites for reclamation, the states are under-



taking  assessments or  inventories of mined  lands.  Required data under



884.13(f)  is collected during this cycle.   This cycle requires the period-



ic  update of the  AML  inventory.   Information will come from field surveys,



inspectors or any  information obtained from outside  sources.   Information



regarding  land  ownership will often be compiled.   Information compiled



during  inventory  efforts provides  input to  other  cycles; e.g., during the



formulation of  projects for the next grant  submission,  information regard-



ing  project  prior itization will come from the  Inventory.   In  addition,




continuous  field  inspections  assistance will be  undertaken  for the Discre-



tionary Cycle and  Reclamation Activities  Cycle  on an "as needed" basis.
                                - 110 -

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                                                              -  111  -

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State Reclamation Plan






         As noted in 30 CFR 872.4(c)(1), the states are responsible for




preparation and submission of the State Reclamation Plan.  This cycle also



requires the periodic update of the State Reclamation Plan.  Any informa-



tion on new aspects of AML reclamation which will  significantly change the



AMI program should be submitted to OSM at a later date to allow new as-




pects of the program to be undertaken.  Public participation in plan de-




velopment  is part of this cycle.






Grant Submission






         As mandated, grant submission activities will undertake the fol-




lowing tasks.  During this cycle, the formulation of reclamation projects




to be undertaken as noted  in 874.13 under the next year's grant will be



made.  All grant submissions will follow the OSM regulations for "State



Reclamation Grants."  Of course, the projects selected will follow goals



and objectives,  project selecting, and ranking procedures as stated  in the



State Reclamation Plan.  Data  regarding projects will come  from the  AML



 Inventory  and  criteria noted earlier.  Cost estimates will  be  undertaken



during this cycle by  staff reclamation  specialists.  Coordination  with



other agencies will be  initiated at this point.  Once the  projects  are



formulated and evaluated,  the  annual  Grant  Submission to OSM will  be made.



Projects  will  be continually evaluated.  A  public  participation program  in



this cycle must  also  be undertaken.
                                 -  112  -

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Reclamation Activities






         After funds have been received for the annual  grant, procedures




for actual reclamation will  begin.  Efforts in this cycle, it is important




to note, are continuous.  After the program has begun and throughout the



life of the AMI program, continuous monitoring and coordination of recla-



mation activities will be required.  There are three general  efforts in




this cycle:  resolution of real estate questions, including acquisition,



management, and disposal of land; reclamation on private land; and, where



required, contracting independent appraisers.



         Design engineering, including contracting, administering and




monitoring, are integral parts of reclamation.



         Actual reclamation construction is the prime activity of the



entire program and requires contracting, administering, and monitoring.



         Public information is part of this cycle, although not required



by the regulations.  News releases regarding actual project work will make




the AML program more visible to the public.






Secretary's (Discretionary/Emergency) Fund





         As specified in 30 CFR 872.11, "Abandoned Mine Reclamation Fund,"



twenty percent (20?) of the nationally collected reclamation fees will be



allocated at the discretion of the Secretary of the  Interior.  Section



872.11(a)(5)(v) allows the Secretary to allocate funds to the states over



and above those funds allocated  in or under the Reclamation Activities



Cycle.   It  is anticipated that the states will receive a continuous flow
                                - 113 -

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of these funds which will be applied to both emergency projects and proj-

ects which are funded through Section 872.11(5).  These projects will

require separate and often "accelerated" planning, administering and moni-

toring from the regular reclamation activities program.

         Regardless of specific organizational titles or structures, these

activities/cycles will form the nucleus of state reclamation programs once

Title  IV primacy is achieved.  Therefore,, specifics of each state's recla-

mation program are not discussed.   Instead, noteworthy aspects of the

state programs that impact or relate to  land  use decision-making on mined

lands are discussed in a  later section of this report.


                       Secondary Agency  Involvements


The  Soil Conservation Service


         The major SCS involvement  is associated with the Rural Abandoned

Mine Reclamation Program  (RAMP).  Using  up to 20% of the allocation  from

each state Reclamation Fund, the SCS reclamation program  is coordinated at

the  state  level, but  is  designed to be a regional/local project  implemen-

tation program.  Following are the  important  elements of the RAMP Program.

            The programs  are to be guided at  the state  level by  SCS
            and a Reclamation Committee  which may be composed of
            personnel from other state agencies, regional agencies,
            and  I ay c itizens .

            Potential projects are  solicited  through a  public par-
            ticipation (project sign-up) program which  is conducted
            by  SCS  local  conservationists and the  Soil  Conservation
            Di str icts.

            SCS/private  landowner cost sharing  projects are
            encouraged but not required.




                                - 114 -

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            Projects are prioritized according to OSM priority
            cI asses.

            Reclamation for agricultural  land reclamation is also
            desired but not required.

         In addition to RAMP, two other SCS programs have also somewhat

addressed AMI reclamation to varying degrees.  Although not directly SCS

sponsored,  Soil  Conservation Districts have often been involved in pre-

paring erosion and sediment control  plans, exploring funding avenues, and

reviewing other agency plans for abandoned mine lands projects.  The Con-

servation Districts have often utilized local SCS district conservationist

technical expertise in these planning and review activities.

         In addition, the SCS has been operating the Resource Conservation

and Development Program which focuses on regional (multicounty) land and

water resource, land use, sediment and flood control, and water quality

management planning and project development.  Roughly 30$ of Appalachia  is

now covered by Resource Conservation and Development Districts.  SCS pro-

vides technical  planning and support and funding, as well as fund avail-

ability  information for project implementation.  In addition, the Farmers

Home Administration makes specific project construction  loan funds avail-

able in designated Resource Conservation and Development Districts.


Other State and Regional Agencies


         A number of state, regional, and local agencies and organizations

have been  involved  in project activities which have complemented, as well

as impacted the activities of the core AMI reclamation/abatement planning

agencies.  Three types of state agencies are included in this  list:
                                - 115 -

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         1)   Agencies that also collect,  maintain,  and analyze
             mining/pollution  related data.

         2)   Agencies that are utilized (mandatory  or voluntary)
             for plan and project review and evaluation.

         3)   Agencies which have regulations and/or issue permits
             which affect the  initiation  and AML reclamation
             projects.

         The most important data gathering and analysis agencies have been

the state and, in some cases,  regional, water resource, and pollution con-

trol agencies involved in the  201, 208, and  303(e)  components of the state

water pollution control programs.  A number  of states have compiled very

detailed river basin mining/mine drainage reports and data bases in sup-

port of various planning activities.  Recently, EPA has guided the state

programs toward heavier emphasis on non-point source control planning and,

as such, AML reclamation planning has received wide attention.  However,

the specific commitment to mining/pollution  abatement appears to be less-

ening.  When designated by state agencies, regional agencies may also

conduct "208" planning activities (i.e., Southwestern Pennsylvania,

Charleston-Four County, and Southwestern Virginia are three examples of

designated regional "208" agencies  in Appalachia).

         A number of  agencies are often  involved in the review of reclama-

tion plans, engineering drawings, and specifications.  For example, state

programs have historically coordinated with the state wildlife management,

Heritage Conservation  and Recreation, stormwater management, water and air

pollution, and active mining  regulation  agencies.   In addition, the state

designated A-95 and project pertinent regional and  local agencies provide
                                - 116 -

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review for any projects completed with federal  funds.  Their involvement

in project review, once the state programs assume primacy, is mandatory.

         There are also a number of permits which must be obtained prior

to initiation of site construction activities.   Following is a partial

listing of agencies and permits that may be involved.

         .  404 (from the FWPCA of 1972) - Any  project potentially
            impacting a navigable waterway must be reviewed by the
            Corps of Engineers and/or EPA for 404 permitting.

            Stream Encroachment Permits - For smaller streams, a
            number of states require potential  construction con-
            tractors or sponsors to obtain encroachment permits.
            Quite often a number of state agencies, as well as the
            local Soil  Conservation Districts,  review projects
            prior to permitting.

         .  Highway Occupancy Permits - State,  county, and local
            highway and road departments often  require industrial
            and construction concerns to obtain highway use
            permits.

         .  Erosion and Sediment Control Permits - Are required  in
            most states for construction or excavation activities.
            Erosion and sediment control plans  must generally be
            prepared and submitted prior to receiving a permit.

         In addition, counties, cities, towns,  and other municipalities

often require construction and/or excavation permits prior to initiation

of construction.  Generally, a nominal fee and  minimum project review are

required for obtaining local permits.  However, municipalities may have

zoning or special use ordinances which may impact plans for special uses

for abandoned mine sites, such as  limits on siting land fills, recreation

facilities, and new housing developments.  Such cases can only be studied

and planned for on a project by project basis.
                                - 117 -

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         Although examples are relatively rare, a number of counties and



municipalities have engaged in abandoned mine reclamation planning.  For




example, Westmoreland and Fayette Counties in Pennsylvania have conducted



detailed AML inventories.  The Westmoreland County inventory specifically



focused on identifying access and land use potentials for abandoned mine



sites.   In addition, Richland Township, again in western Pennsylvania,



conducted a mined land inventory to determine feasible  land uses and po-



tentials for remining.  Counties and municipalities are now recognizing




the need to explicitly consider AML sites  in their planning activities.



         And finally, local conservation and watershed  protection organ-



izations have played major AML reclamation roles in a number of states.




They have been involved  in activities ranging from inventorying and water



quality  sampling to treatment plant operation and project  funding.  Such



local organizations have  also provided a great deal of  logistical support




to the  state agencies for  project implementation.





                 Abandoned  Mine Lands and Land Use Planning






         The Office of Surface Mining, the state AML agencies, and the



Soil Conservation Service now have primary mandates for conducting the



nation's AML reclamation  programs.  These  agencies are  responsible for



project planning, data collection and  analysis, monitoring,  funding,  con-



struction, and post-construction evaluation  in mined  land  reclamation.



The  historic commitments  of  EPA, the Bureau  of Mines, the  Corps of Engi-



neers,  and ARC are  now also  being examined and redefined  in  light of  this



emerging OSM  lead  agency  institutional  infrastructure.









                                 -  118  -

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         Within this infrastructure, the majority of reclamation projects

will  be completed by the state agencies as they may access the largest

percentage of the available reclamation funds.  However, OSM is and will

remain the key decision maker in the system, as it retains a plan, plan

update, and annual grant application review and approval link to the state

reclamation programs.   In addition, OSM has promulgated regulations and

guidelines for reclamation plan preparation, project funding, and project

selection to which the states must comply.

         OSM has mandated explicit consideration of land use in OSM feder-

al, state, and SCS reclamation planning programs.  For example, the state

reclamation plans must detail the methods that the states' programs will

follow in documenting:

            The relationship of proposed projects to existing and
            proposed adjacent and regional  land use patterns;

            The significance land use opportunities or plans assume
            in project selection; and

            The role regional and local planning bodies will play
            in the state's public participation programs

         Nearly all of the Appalachian states' AMI agencies plan to in-

volve regional planning organizations  in their public participation pro-

grams.  This  involvement will provide a vehicle for regional and  local

planning bodies to  input into the state reclamation planning processes.

In general, this  is being done so the states may utilize existing regional

land use planning/plan review capabilities  In their program and project

pIanni ng .
                                - 119 -

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         Although consideration of land use must be explicit in AMI recla-



mation planning, reclamation for particular land use goals or improvement




is actually discouraged by OSM mandated project prioritization criteria.



The OSM priority system assigns highest priority to abatement of eminent



danger, health and safety hazard and environmental  problems.  Land use



potential  is a low priority and lower priority problems may not be ad-



dressed until higher priority projects are considered.  For example, in



the OSM scheme, there are seven priority levels.   In level three, which  is



environmental degradation focused, funds may be used for reclamation for



wildlife, recreational or agricultural land reclamation, while priorities



one and two make no mention of  land use.   In addition, under priority



five, funds may be used  in the  actual construction of public facilities.



 In addition, few if any Appalachian states will progress beyond priority



three projects during the life  of the AML program  (1977-1992) due to the



 large number of high priority problems which must  be addressed.



         Within this framework, there are a number of options available  to



OSM and the states for placing  particular emphasis on projects which may



satisfy specific land use needs or planning objectives.  Although the



Federal Program  is focused on emergency and special projects, a number of



demonstration projects will also be undertaken.   Included  in these demon-



strations are planned projects  such as housing  site development, as well



as other regionally appropriate land  use/site  planning  projects (i.e., ag-



ricultural  land  restoration  in  the midwest).   Such demonstrations may be



 used  for  implementing various desired  site development  strategies.  OSM  is
                                - 120 -

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also signing cooperative agreements with other federal  agencies (i.e.,

HUD, EPA) that which potentially may also become involved in these proj-

ects.

         Secondly, within priority classes, state programs may develop ad-

ditional  criteria which may be based on considerations such as land use

potential and development demand.  These criteria may then be utilized for

project selection.  In addition, in their annual grant submission requests

the states may include special demonstration projects (i.e., reclamation

for housing site development).

         The Soil Conservation Service (RAMP) project prioritization

schemes must also adhere to the OSM priority classes.  However, RAMP

projects have a stated bias toward agricultural  land uses.

         In summary, although AML programs must now consider  land use in

their project planning, these agencies will not be explicitly involved in

land use planning for abandoned mined  lands.  Instead, their activities

specific to land use planning will be centered  in:

            The OSM federal program participation in demonstration
            reclamation projects with other land planning/develop-
            ment organizations;

            The state reclamation agenciesy as participants in
            special/demonstration projects to provide reclamation
            funds in support of site planning and development ac-
            tivities of other federal, state, regional or local
            organizations; and

            The state reclamation agencies developing specific
            project selection/evaluation criteria which address
            land use priorities.
                                - 121  -

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         The discussion now shifts to presenting a brief overview of the



roles that local  and regional  land use planning organizations are assuming




in abandoned mined land reclamation.





Planning Agencies/Organizations and AML Reclamation






         To varying extents, a number of regional and local land planning



and development organizations have been involved in abandoned mined land



reclamation planning.  These involvements have ranged from LDD's function-



Ing as funding applicants for "205" projects and the local Soil Conserva-



tion Districts that were Instrumental  in implementing TVA's four state



orphan  lands program to regional planning agencies  in all of the states



which are constantly looking at land use options for mined lands as part



of their "701" land use planning efforts.   In addition, a growing number



of private and public nonprofit organizations (i.e., Coalfield Housing)




are planning and formulating projects  which entail  utilization of mined



lands as sites for new  intensive  land  use development.




         Throughout Appalachia, Regional Planning and Development Dis-



tricts  also function as ARC LDD's.  These districts are also an  implemen-



tation mechanism for a  number of  EDA and FmHA  loan  and grant development



programs.   In addition, In most states HUD  planning activities are  cen-



tered  in these regional agencies.   County comprehensive plans  are also



often prepared by the technical staff  of these multicounty bodies.



         The activities of these  districts  are  focused  in  five general



areas:
                                - 122 -

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            Regional  land use planning
            Economic development
            Material  resource planning
            Growth polIcy
            Local planning assistance

         In addition, the districts often serve as grantsmen for local

governments in their dealings with state and federal agencies.

         The LDD's have assumed limited roles in AML site/land use plan-

ning.  As stated earlier, they are the initiating organization for ARC

"205" project funding requests.  However, the majority of this activity

has been confined to Pennsylvania as most other states did not fully util-

ize this ARC cost sharing program.  However, the LDD's in most of the Ap-

palachian states are now explicitly involved in the state reclamation

agency public participation programs.  These agencies are also generally

A-95 review agencies, and therefore, are notified of all  such regionally

significant projects which are planned.

         Soil  Conservation Districts are generally county (multicounty  in

West Virginia) organizations which utilize state and local funds for

environmental  control, resource planning, and conservation projects.  Con-

servation Districts are guided by committees of appointed citizens.  They

may have technical staffs or rely on SCS district conservationists for

technical support.  Throughout Appalachia, the Districts have had an his-

toric involvement in mined land reclamation.  In Kentucky, Alabama, and

Tennessee, they are the primary Implementing vehicles for the TVA Orphan

Lands Program.   In addition, they have been  involved In AML programs  in

West Virginia and Maryland.  They have also often utilized various USDA
                                - 123 -

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project monies for AMI cost sharing projects with individual  landowners.



Specific to AMI reclamation or site development, the districts may also be



involved in erosion and sediment control  permit and engineering plan re-



view or preparation.  Currently, the SCS RAMP Program is being implemented



locally through the districts.  Therefore, an AML reclamation/ planning




capability is being developed by many of these organizations.



         Resource Conservation and Development Districts are multi-county



voluntary organizations formed for undertaking conservation, development,



and resource utilization projects.  The districts are sponsored by the



U.S. Department of Agriculture.  Local governments or commissions form



steering committees to conduct  initial planning and file application for



formal designation.  Upon designation a wide range of planning and devel-



opment activities may be undertaken.  Eligible projects have  included



road, school, and health clinic construction; historic preservation; and




job training programs.  A number of surface reclamation projects have also



been undertaken and completed.   In addition, coordinated funding approach-



es may be readily developed  involving a number of federal and regional



agencies.  For example, Farmers Home  has  loan programs specifically for RC



& D Districts.  Coordination  with other agencies such as the  Extension



Service, Soil Conservation  Service, Farmers Home, Rural Electrification,



and other state and regional  planning and development organizations  is



common.   In  particular, RC  &  D  and LDD cooperation  has become  important  in



many  areas of Appalachia.
                                -  124 -

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         Regional  planning and zoning bodies also influence the mined area



land uses through their HUD-701 land use planning and/or zoning activi-



ties.  A number of counties throughout Appalachia have adopted compre-



hensive/land use plans.  Such plans address mined areas together with un-



mined areas.   In addition, for FmHA "601" program participation a number



of counties and regional agencies have prepared or are preparing "Growth



Management Plans" emphasizing areas that are projected to be severely im-



pacted by future mining.  Counties or local governments with zoning also



exert explicit control over possible land use options for reclaimed aban-




doned mines.



         A final group of organizations which are concerned with land use



options for mined lands are Appalachia's nonprofit housing and  industrial



development corporations.  Such organizations have usually been formed  in



response to identified  local site development needs.  Therefore, their  ac-



tivities are often project specific - working with developers,  landowners,



and regional and state agencies.  Up until now, examples of their use of



abandoned mined lands as development sites have been few, but this  is



likely to change due to the recognized unavailability of  land throughout



Appalachia for traditional private sector development.



         This  section has presented the agencies and institutional  func-



tioning which  is central to mined land reclamation.  The next part  of this



"Institutional Analysis" discussion focuses on  institutions and agencies



associated with active mining and reclamation.  The "Institutional  Anal-




ysis"  is then  utilized as a base on which to develop an appropriate
                                -  125 -

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agency/institutional  implementation framework for the Land Use Decision



Methodology which is discussed in the section entitled "Management Recom-




mendations ."






ACTIVE MINE REGULATION






         Prior to development of the first mining regulations, reclamation




began  in the Midwest in the 1920's as voluntary programs undertaken by



coal companies for developing minimal cost-quick growing vegetative cover



on ungraded spoil.  Soon afterward, reforestation was demonstrated suc-



cessfully in West Virginia and pasture and row crop reclamation  in Indiana



and  Illinois.  These demonstrations of reclamation feasibility coupled



with  increased strip mining activity and associated environmental degrada-



tion  led to enactment of the first surface mining laws -  in West Virginia




in  1939,  Indiana  in 1941,  Illinois in  1943,  Pennsylvania  in 1945, Ohio  in



1947,  and Kentucky in 1954.



         The majority of these  laws  intially only addressed coal mining.



The general focus was on revegetation  and sometimes spoil slope  reduction



and recontouring  for developing  land cover types and  configurations that



were  environmentally sound and of economic value.  The  1950's  and 1960's



were  a time  in which many of these laws were revised  to  Include  explicit



surface  water and soil  and erosion control.



          States  also began to expand the coverage of  these  laws  as well  as



pass  new laws and regulations to include minerals other  than  coal.  The



 land  use aspects  of reclamation  were given greater emphasis.   Detailed
                                 - 126 -

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mining performance standards addressing all  major mine site activities



(before, during, and after mining) also became prevalent.  Regulatory




changes addressed control of mining as a temporary land use with detailed



planning required for development of permanent post-mining land uses.  The



1970's saw the increasing regulatory involvements of EPA and state wild-




life, water pollution control, highway, historic preservation and park



agencies because of new permit application reporting requirements and



application review procedures.



         The 1977 Federal Surface Mining Control and Reclamation Act



brought comprehensive federal environmental  standards to the coal indus-



try.  Already governed by state agencies, EPA, and to an extent MSHA, the




industry was now required to comply with rules covering virtually every



aspect of coal  mining.  These standards are far more comprehensive, and



therefore complex, than standards included in previous state programs.



With the exception of EPA clean air and water quality, no such nationwide



regulatory programs address control  of mining minerals other than coal.





Overview of the OSM/State Regulatory Program





         Public Law 95-87, the Federal Surface Mining Control and Reclama-



tion Act of 1977, was signed  into law on August 3, 1977.  Regulations for



implementing the Act were prepared by the Interior Department's Office of



Surface Mining Reclamation and Enforcement (OSM).  Primary responsibility



for implementing and enforcing the federal rules is given to the states
                                - 127 -

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upon OSM approval  of a state program.  For states failing to have an ap-



proved program, a federal  program will  be implemented.  An important fea-




ture in the federal  program is the "state window policy" which allows



states to request variance from the federal  requirements so long as



minimum provisions are met.



         Interim performance regulations came into effect in early 1978,



setting strict requirements for environmental protection during mining.



These interim regulations will remain in effect until a permanent program



has been implemented either by a state or the federal government.



         The impact of these regulations will be strongly felt by the



state regulatory agencies as their responsibilities expand because of  in-



creased permit application review requirements, complex performance stan-



dards requiring intensive  inspection and enforcement efforts, and opera-



tion of the "522" Lands Unsuitable for Mining Programs.   In addition,



performance standard compliance and development of required documentation



for permits will significantly magnify the regulatory compliance efforts



of coal operators throughout Appalachia.  Major provisions relate to:



permit and bonding requirements; major operational/environmental control



provisions; and new provisions for land  use  planning  and  environmental



assessments.






                            Perm i ts  and  Bond i ng






         Federal permit data  requirements exceed most current state permit



application regulations.   This  is particularly true  of  the detailed envi-



ronmental, operation  and reclamation  information and  plans now  required.










                                 -  128  -

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Monitoring of surface and groundwater quality and flows, core boring anal-

yses, geotechnical  analyses, and fish and wildlife surveys are several of

the new studies that operators will be required to complete for permit

approval.

         Since the final regulations were published on March 13, 1979, the

availability of bonding for coal mines has become a major concern, partic-

ularly for small  operators.  The problem stems primarily from the provi-

sion in the Act that will allow an adjustment of the bond amount during

the life of the mine and the long (5 to 10 year) lifetime of bonds.  Major

sureties consider the bonding regulations unworkable and have stated that

they intend to stop issuing bonds to surface mine operators.  The status

of the bonding issue remains undetermined at this time, as states and min-

ing associations are attempting to find alternatives to traditional surety

bonds.


                           Performance Standards


          In addition to permitting, significant changes will be felt  in

mine planning, engineering, equipment utilization, inspection procedures,

and reclamation.  On mine sites, major operational changes will be  in the

followi ng areas:

            TopsoiI  handling procedures
            Road construction
            Surface water control
            Blasting
            Fill  construction
            Return to approximate original contour
            Revegetation
                                - 129 -

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            Auger ing
            Subsidence control
         .   Woody material  disposal
            Downslope spoil  disposal

The performance standards cumulatively provide a comprehensive set of

environmental  standards, design standards, and operating procedures for

minimizing the potential adverse effects of surface coal mining.
                           Land Use Planning and
                         Environmental  Assessments
         Detailed planning is now required for determining potential land

uses for reclaimed coal mines.  For example, plans must be developed

according to the following criteria:

         .  Proposed land uses must be compatible with adjacent
            land uses and pertinent land use plans (involvement of
            local planning agencies in plan review is  implied).

            Land uses must be documented as economically feasible.

            Commitment  is required for planned public  facility and
            utility  infrastructure construction.

            Plans will  not cause unreasonable reclamation delays.

            Land uses must exert minimal  impacts on  important
            environmental values.

            Required  land use management must be compatible with
            applicable  federal, state, and  local  laws  and regula-
            tions.

         Significant procedural revisions are also required because of  522

Program  petition review and  documentation requirements.  Petitioning and

petition review  will be focused on determinations of reelaimabiI ity, po-

tential  environmental  impacts and  hazards,  and  assessments of  land  use
                                -  130 -

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feasibility and plan compatibility.  Beyond potentially critical  time de-



lays, "522" exerts no specific additional  burdens on coal  operators (i.e.,




in terms of reporting, and burdens of proof).  Rather, the state regula-



tory agencies are faced with petition documentation and review activities



which will  likely require significant manpower and resource commitments.




         State regulatory agencies will  also be undertaking assessments of




cumulative watershed mining impacts.  Such assessments will require com-



posite data gathering and maintenance of active mining, "522," and poten-



tial ly AML data on a watershed basis.   In the past, state programs have



not been required to undertake such assessments.  Because of these new



analyses and reporting requirements, a number of state regulatory agencies



now have plans for developing computerized data management and analysis



systems for maintaining and updating required data bases, as well as per-



forming many of the required analyses.






OSM Organization






                         Inspection and Enforcement






         OSM  is developing  inspection programs for a number of different



regulatory contexts - states with approved programs, states without ap-



proved programs, and federal lands.  States without an approved state



regulatory program (Georgia is projected) as well as federal  lands will



require implementation of full inspection programs as OSM assumes primary



regulatory responsibility.  However, for states with approved programs,



OSM activities will focus on inspection for support and monitoring of
                                - 131 -

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Figure 24. OSM mining  regulation
organization  and functions.
                                           INSPECTION
                                              AND
                                          ENFORCEMENT
                                                               ENFORCEMENT
                                      RESPONSE
                                      TO CITIZEN
                                     COMPLAINTS
                                                    ASSESSMENT
                                                       • Points
                                                       • Fines
                                                       • Penalties
                                           STATE AND
                                            FEDERAL
                                           PROGRAMS
                                                                       SMALL
                                                                      OPERATOR
                                                                     ASSISTANCE
                                                                      PROGRAM
     OPERATE
     PROGRAMS
     IN STATES
     WITHOUT
     APPROVED
      TITLE V
     PROGRAMS
 FEDERAL
PROGRAMS
         OPERATE
       PROGRAMS ON
         FEDERAL
          LANDS
  STATE
 PROGRAM
EVALUATION
     SMALL
   OPERATOR
DATA COLLECTION
 AND TECHNICAL
    SUPPORT
                                        -  132  -

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state programs, as well  as functioning as a respondent to citizen com-



plaints.  Enforcement activities will  include enforcement of all pertinent



standards, and when required, assessments and collection of civil penal-



ties.  OSM is currently in the early stages of inspection and enforcement



program design, and as such, few operational  or organizational  details are



avaiI able.






                        State and Federal Programs






         The activities of State Programs are currently focused on review



of the state plans which have been submitted.  In addition, limited tech-



nical support  is being provided for plan preparation and revisions which



may be required.  Once the states assume program primacy, activities will



shift to state program monitoring and evaluation.  Monitoring will be



linked to inspection and enforcement for the majority of data gathering.



Specific procedures and indicators will  be developed for periodic evalua-



tions of state program performance.



         The Division of Federal Programs is responsible for managing the



regulatory programs for states not obtaining primacy and for mine reclama-



tion/regulation on federal  lands.  This also includes ancillary programs



such as "522."




         Small Operator Assistance is responsible for formulation of pro-



cedures and provision of technical asssistance to small operators for aid



in determining the hydrologic impacts of mining and reclamation.   It also




certifies laboratories for participation in the program.
                                - 133 -

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         In addition to the above, Technical  Services and Research may

assume a number of vital  roles in the overall  OSM/state regulatory man-

agement system because of its responsibilities for:

            Formulating policies and procedures and providing guid-
            ance to field activities.  These include environmental
            reports, standards for permits, mining plans, and per-
            formance standards.

            Identifying research needs and providing for technology
            transfer.

            Design of federal and cooperative state programs for
            training necessary reclamation and related specialists.


State Program Status


         Of the nine Appalachian coal mining states, there is a wide vari-

ation in regulatory program development.   In those states with programs

completed or near ing completion, there is variation  in programmatic meth-

odologies regarding  land use planning and development.  The  land  use  im-

plications of the regulatory programs will have  impacts on the coal opera-

tor  in permit preparation, reclamation planning, and  if potential resource

land  is declared  unsuitable  for mining.  The following discussions briefly

discuss the key  land use provisions of each Appalachian state's program

and  variations or highlights  in those programs.  Georgia has been omitted

since a federal  program  is expected to regulate  surface mining  in the

state.
                                 -  134  -

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                                  AIabama





         Alabama was one of the last states to have approved legislation



to obtain primacy of the state's surface mining regulatory program.  The



Alabama Surface Mining Commission has submitted proposed law and regula-



tions to OSM, but does not have legislative authority as of this date.



The legislature is presently debating passage of an Alabama law to comply




with federal requirements and give the Surface Mining Commission the au-



thority to promulgate regulations.  Another bill presently being debated



will create a new agency which will administer surface mining in Alabama.




As noted above, proposed regulations are drafted and are presently being



reviewed by OSM.  Therefore, when the legislature passes the state law,



the regulations will be close behind.



         The proposed regulations are similar to the federal regulations;



however, there  is no legislative backing.  Discussion of programmatic  land



use planning issues in the Alabama regulatory program is premature.





                                 Kentucky






         Kentucky Department for Natural Resources and Environmental  Pro-



tection drafted regulations for the surface mining regulatory program par-



allel to the federal regulations.  DNREP is presently incorporating OSM



comments into a revised draft of their regulations.  As in several other



states, if a coal operator has applied for a post-mining land use change,



it must be advertised in the local newspaper along with the notification
                                - 135 -

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of intent to mine.  The public comment period regarding the intent to con-




duct surface mining is thirty days, whereas the public comment period re-



garding the change in land use is forty-five days.  It is the operator's



obligation during permit preparation to research local or regional land



use plans for that area to assure that mining poses no conflict with



present or future plans.



         The Lands Unsuitable for Mining Program in Kentucky is a very



comprehensive program and is unlike that found in any other state.  DNREP



has staffed a separate group within the Bureau of Surface Mining to estab-



lish a computerized data base and an inventory system which will "permit



proper evaluation of the capacity of different land areas of Kentucky to




support and permit reclamation of surface coal mining operations."  The



data base in Kentucky consists of 28 environmental parameters,  including



land use plan evaluation criteria.  If a site is petitioned for unsuit-




ability, DNREP personnel will contact key planners in the Area Development



Districts of eastern Kentucky for  information regarding development plans.



County  level planning is minimal   in the eastern coalfield.






                                 Mary I and





         The Maryland Bureau of Mines has developed most requisite regula-



tions concerning the Title V program, meeting required deadlines  for pro-




gram submission to OSM.



         The Bureau drafted regulations parallel to the federal regula-



tions.  Land use changes to be conducted by surface mine operators are to
                                - 136 -

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be advertised for four consecutive weeks in local newspapers followed by a



thirty day period prior to permit approval.  The public may comment at any



time during this period.  The Maryland Land Reclamation Committee (LRC)



also serves the purpose of public participation and citizen review of all



surface mining permit applications.  Consisting of thirteen members repre-



senting the Maryland Bureau of Mines, Maryland Department of Water Re-



sources, Maryland Geologic Survey, Soil Conservation Districts, and Mary-



land coal operators, the Committee meets once a month to review applica-



tions, reclamation plans and other pertinent issues regarding mining  in



western Maryland.




         Mechanisms for conducting the "Lands Unsuitable Program" in  Mary-



land are undefined at this time; however,  it is anticipated that other



agencies (e.g., member agencies of the LRC) will be involved in the peti-



tion evaluation and designation processes.  Local and state planning




offices will also be involved in the land  use review under the Section 522



Program.





                                   Ohio






         The Ohio Department of Natural Resources, Division of Reclama-



tion, has submitted its regulatory program to OSM, complete with state



regulations.  The state regulations regarding post-mining  land uses and



compliance with  local  or regional  land use plans are intact.  Ohio relies



on the coal operator to state,  in the permit application,  whether or  not



there are  land use plans for the permit area.   It  Is up to the operator to
                                - 137 -

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research local  or regional  land use plans and determine if the post-mining



land use of the mine site is in compliance with those plans.



         Ohio regulations vary from OSM regarding the post-mining land use



category of "forest land."  Rather than assume the "forestry" definition




or the "undeveloped land" definition as defined by OSM, Ohio has defined




the category as a separate developed land use.  This follows the Ohio DNR



goal of promoting forest land in Ohio.  Ohio landowners, through other



programs, receive a tax incentive if they dedicate their  land to "forest."



Therefore, in order to promote this concept and be consistent with other



Ohio natural  resource goals, the Division of Reclamation  is allowing coal



operators the same benefit as allowed other  landowners, that is to develop



land to forest.






                               Pennsylvania






         Currently, Pennsylvania  is operating and enforcing one of the



most comprehensive surface mine regulation programs  in the country.  The



system centers around review of plans and  issuance of two separate permits



- a mine drainage permit which  is generally obtained for  relatively  large



acreages, and stripping permits which generally cover a much smaller area.



Detailed environmental data  is required  for the mine drainage permit, but



bonding  is associated with the stripping permit as state  regulators  and



coal operators feel the  incremental bonding of smaller acreages  is best



for the operator and the enforcement agency.
                                - 138 -

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         For Title V primacy, the state program is being reorganized so



permit application and permit review activities are focused in five re-




gional offices.  However, many of the other state agencies which provide



specific permit application review support will continue to do so from



Harrisburg.  In addition, the assessments of mining's cumulative impacts



in various watersheds which will  be an important part of the Pennsylvania



program will continue to be focused in Harrisburg.  In addition, the state



"522" program which  is being developed by the Bureau of Environmental Mas-



ter Planning will  be centrally operated from Harrisburg.  Final reorgani-



zation of policy changes are still not complete so more specific informa-



tion  is not yet available.






                                 Tennessee






         The Tennessee Department of Conservation, Division of Surface



Mining has completed its "primacy package" for submission to OSM.  The



state is following the OSM regulations and is not deviating from those



regulations in the state plan.



         Land use change applications by coal operators must follow the



OSM regulations which require the operator to show surface owner accep-



tance with the post-mining land use.  There are no formal hearings regard-



ing land use changes in Tennessee; however, a public comment period of



forty-five days is required under the regulations.  All  land use changes



are reviewed by the  Tennessee State Planning Office.  All petitions for



declaring  lands unsuitable for mining under Section 522 of PL  95-87 will
                                - 139 -

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also be reviewed by the Tennessee State Planning Office for determination



if a coal  operation is compatible with existing land use plans.  This



mechanism has not been defined yet in Tennessee since the program is, of



yet, untested.






                                 Virginia






          In spite of the continuing litigation  in the Commonwealth of Vir-




ginia, testing the constitutionabiI ity of several  provisions of the OSM



regulations, the Virginia Division of Mined Land Reclamation has submitted



its regulatory program to OSM.  The Title V regulations drafted by Virgin-



ia to obtain primacy essentially parallel the federal regulations.  The



submitted program also presents alternatives to those performance stan-



dards which Virginia DMLR feels would adequately reflect conditions  in the



steep slope mining region of southwestern Virginia.




         The  lawsuit begun by the Virginia Surface Mining and  Reclamation



Association and  later enjoined by the Commonwealth of Virginia is testing




the constitutionabiI ity of several key provisions  in the  law  including



provisions requiring return to approximate original contour, steep slope



mining, and Section 522 - Designating Lands Unsuitable  for Mining.  The



U.S.  District Court  in western Virginia  has declared certain provisions of



the law as unconstitutional as they apply to Virginia.  The U.S. Depart-




ment  of Justice  has appealed the decision to the U.S. Supreme  Court.  The



Supreme Court has  issued a temporary  stay on the District Court's decision




until the appeal  is heard  in the fall of  1980 or spring of 1981.  Virginia
                                - 140 -

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DMLR, since they are following the federal regulations, is requiring the



coal  operator to assure compliance with local  or regional  land use plans.




However, permit applications will  be reviewed by the Planning District



Commissions (A-95) to assure compatibility of land uses.  There will also



be a forty-five day public comment period regarding changes in land uses




proposed by the coal operators.  This is similar to most other Appalachian



states.



         DMLR will be consulting with up to thirty other agencies to eval-



uate petitions to declare lands unsuitable.  The Planning District Commis-



sions are among the agencies which will be cooperating  in the 522 process




regarding land use  issues.






                               West Virginia






         The Division of Reclamation in the West Virginia Department of




Natural Resources has drafted regulations to obtain primacy over the sur-



face mining regulatory program in the state.



         Coal operators must, at present, investigate regional land use



plans and obtain a signed letter from the Regional Planning Council that



surface mining/reclamation does not conflict with present or future land



use plans.  This procedure will remain  in the permanent program.   If a



land use change  is planned following mining, the forty-five day public



comment period is used in West Virginia as  in most other states.  A public



hearing is required if requested by any citizen or group.
                                - 141  -

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         West Virginia is not drafting state regulations parallel  to the

federal  regulations.   State regulations will  vary regarding some of the

following parameters:

         .   Wildlife
            Hydrology
            Performance standards
            Permit requirements
            Prospecting

         Since the regulations are not published at this time, no informa-

tion regarding these  variances is available.  The 522 "Lands Unsuitable"

program  is not developed in West Virginia at this time.  WVDNR expects to

have the state regulations drafted and submitted to OSM by June 15, 1980.


                      Environmental Protection Agency


         EPA's activities  in mine reclamation/regulation have been focused

on development and enforcement of air pollution standards, water pollution

control, completion of environmental assessments, and sponsorship of rec-

lamation technology development and transfer research.


Air Pol Iution


         Mining must comply with pertinent parts of the Clean Air Act.  A

particularly critical  area of compliance  involved a recent EPA decision to

consider mining as a point source  for enforcement of strict fugitive dust

control  regulations.   A decision was postponed pending  further research,

as  industry compliance would be extremely difficult.  Under new "State  Im-

plementation Plans," the states are assuming responsibility for adminis-

tration  of the Act.




                                 -  142  -

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Water Pol Iution





         In addition to mining permits, NPDES permits are the only permits




required of all coal mining operations.  In addition, mine water effluent




limitations are enforced.  These limitations are also enforced as part of



the OSM/state regulatory programs.   NPDES permit programs are, in most



cases, managed by state water pollution control  agencies.  In addition,



remaining federal NPDES program states (i.e., West Virginia)  are planning



to assume program primacy in the future.  EPA is currently cooperating



with OSM in the development of a single permit for NPDES/Reclamation



Perm itting.






Environmental  Assessments






         For NPDES regional impact analysis, EPA has undertaken mining en-




vironmental  assessments in eastern Kentucky and West Virginia.  The stud-



ies were undertaken in support of EPA-NPDES permitting in those states.






Research and Development






         During the 1970's, EPA conducted an intensive mining/pollution



control R&D Program at the Industrial  Environmental Research Laboratory in



Cincinnati.  A number of extraction technology and mining pollution con-



trol projects were completed.
                                - 143 -

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                        Tennessee Valley Authority






         TVA has a long history of regulating coal surface mining in the



Tennessee Valley.  TVA is the world's largest coal consumer and public



utility with most of its coal purchased in Alabama, Tennessee, and Ken-



tucky.  Standards for surface mine reclamation for mines from which TVA



bought coal were formulated and enforced with threats of contract defaults




and contract denials.  Surface mining within the view of public highways



was disallowed.  Much of TVA's regulatory activity has ceased with the



coming of OSM.  Nevertheless, through contracts TVA maintains the right to




require special operational and reclamation standards and procedures.






                          Secondary Involvements






         The Forest Service, Bureau of Land Management, Bureau of Mines,



Corps of Engineers, and Mine Safety and Health Administration to varying



degrees have been involved  in surface mine reclamation/regulation and re-



search.  The Forest Service and Bureau of Land Management have been  in-



volved by virtue of managing lands currently being mined or available for



mining.  In addition, BLM has assumed responsibility for coal  leasing on



alI federal lands.



         The Bureau of Mines has conducted an intensive coal mining  re-



search and development program over the years.  Much of this research re-



sponsibility has been transferred to the Department of Energy.  However,
                                - 144 -

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the Bureau has maintained control  over the environmental control and tech-

nology aspects of mining research.  The Mine Safety and Health Adminis-

tration has been involved as the regulatory agency responsible for mine

health and safety regulatory standards and inspection and enforcement.

The Corps of Engineers' primary involvement is through the "404" permit-

ting process.

         Similar to abandoned mined lands, secondary state agency involve-

ments chiefly involve additional permitting and/or surface mine permit ap-

plication review.  Again, the most commonly required permits are highway

occupancy, erosion control, stream encroachment, and excavation/building

permits.  Site specific conditions must generally be examined to assess

the applicability of such permits to given mining situations.  However,

states with NPDES primacy will have a designated water pollution control

agency responsible for permit application review and permitting.  All

mines require NPDES permits.  Once OSM and EPA determine the format of the

proposed common mining/NPDES permits, the state mining regulatory and

water pollution control agencies will  likely follow with common permits.

         Quite a large number of agencies may become involved in the state

permit application review process.  The following generic state agencies

are generally involved either In permit review or at a minimum are noti-

fied of permit applications which may be reviewed upon request.

            Water Quality Management
            Abandoned Mined Land Reclamation
         .  State Parks
            Forestry
            Geologic Survey
                                - 145 -

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         .   Fish and Wildlife
            Highway
            Historic Preservation

         In addition, soil  conservation, stormwater management, and dam

control  agencies are often involved in permit review.  Review periods are

often specified by the mining regulatory agency with meeting of deadline

burdens placed on the reviewing agencies (thirty to sixty day review per-

iods appear to be common).  Many of these agencies are also likely to be-

come involved in the state "522" programs - in both petition review and

petition submission roles.  At the very least, data transfers to the regu-

latory authority will often be required for petition review.


                   Land Use Planning and Surface Mining


         Roles for regional and local  planning conservation, and regu-

latory agencies in surface mine regulation, are limited.  In most states,

county and local agencies are preempted from developing and enforcing sur-

face mining regulations by the state strip mining  laws.  However, regional

and  local governments often possess several important  legal  tools which

provide them with certain controls over strip mining.

            Valid zoning ordinances may be designed to  limit the
            potential  locations for surface mining operations, cer-
            tain off-site effects, and the long range  land uses
            proposed for sites once reclamation is underway.

            Control of traffic on  local roads and  in cooperation
            with state highway departments, highways under val id
            road ordinances.

         .  Limited control over the adverse effects of blasting
            and other surface mining activities by their power to
            prevent or abate public nuisance.
                                - 146 -

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         Regional  and local  land use planning agencies and zoning author-



ities will  often be requested  to provide both operators and regulatory




agencies with historic and adjacent land use data, pertinent zoning regu-



lations and comprehensive plans for developing and/or evaluating land use




plans for mine sites.  In addition, a number of such agencies will  likely




take very active roles in the  state 522 programs.



         Over the years,  the Conservation Districts have been the local



agencies most heavily involved in surface mining.  District technical




staffs often prepare reclamation plans for landowners and operators that



actively participate in their  programs.   In addition, the Districts are



generally notified of new permit applications in their areas.  Permit




review may also be required by the state mining agencies.





SUMMARY






         This section has presented a brief overview of the agencies, or-



ganizations, programs, and activities which are currently part of the in-



stitutional framework which regulates, restores, plans, engineers,  re-



searches, and funds active and/or abandoned mined land reclamation.  The



discussion is presented to introduce an institutional context for mined



area land use decision making.  A number of later sections of the report




will build upon the material  which has been presented.
                                - 147 -

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     MANAGEMENT
RECOMMENDA TIONS

-------
               MANAGEMENT RECOMMENDATIONS


         This section presents a number of general  recommendations con-

cerning effective utilization of the Land Use Decision Methodology (LUDM)

in mined area land use decision making.  Possible project and planning

frameworks for the LUDM are highlighted.  The discussion is organized

around the following topics:

         .  Users of and uses for  the LUDM;

            Possible institutional  frameworks for implementing the
            LUDM; and

            A detailed scenario for initiating and  conducting an
            LDD based reelamation/1 and use decision making  program.

         The LUDM is best viewed as a framework for structuring planning

which supports land use decision making for mined lands.   Involved organ-

izations or parties may range from mine operators responsible for  restor-

ing currently active mined  lands to regional  planning agencies which  may

be evaluating development opportunities for mined as well  as unmined

areas.  The application requirements,  technical  expertise,  available  data

and intended use of the LUDM  will  vary with each potential  user.   There-

fore, in actual  use, the LUDM may  require modification or  adjustment  to

specific planning and project contexts.

         The previously presented  "Institutional  Analysis"  discussed  a

number of potential  LUDM user groups.   Included are:

            Regional and local  agencies which are engaged  in land
            use planning for  mining regions;
                               - 151 -

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            Economic development organizations which formulate,
            plan,  and implement site development projects;

            Mine operators that must implement mine site reclama-
            tion plans;  and

            Abandoned mine reclamation agencies which are planning
            and funding  reclamation projects.
LAND USE PLANNING AGENCIES


         In mined areas a number of regional  and local  land use planning

functions may be supported by the LUDM.  The LUDM is suitable for support-

ing project efforts such as determining site suitabilities and estimating

demands for developable land in particular regions.  HUD "701" planning,

facility siting, infrastructure planning, and to a lesser degree zoning

are activities which require the support of explicit land use analysis

capabilities or techniques such as the LUDM.

         As the state abandoned mine reclamation agencies complete their

inventories, planning agencies will be able to readily access site data

for abandoned mine sites.  In addition, local agencies often review active

mining permits as part of state permit review procedures.  Therefore, in

most situations, these planning agencies will be able to easily access

pertinent mining data interfacing this information with their  lend use,

environmental, and socioeconomic data.   In most cases, few if any formal

institutional  links will be required to complete this data transfer.

         In addition, the LUDM presents planning agencies with a tool for

participating  in state abandoned mined land reclamation programming and
                                - 152 -

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planning.  Consideration of local land use concerns is mandated by new

reclamation laws and regulations and the LUDM would be a suitable vehicle

for structuring regional and local  land use planning inputs.


ECONOMIC DEVELOPMENT


         In addition to the agencies engaged in planning, there is also a

network of economic development organizations throughout Appalachia which

are addressing development problems such as housing and  industrial site

shortages.  For example, there are over twenty public housing agencies

serving many of the counties in steep slope central Appalachia.  The

majority of projects which are planned and implemented by these organiza-

tions (i.e., low income housing) are financed through various federal and

state grant, loan, and  loan guarantee programs.  Such funding generally

requires, before final funding approval, that the suitability of the land

for the  intended development is thoroughly documented.   It  is, therefore,

anticipated that the LUDM could provide a quick easily implemented method

for determining development/site suitabilities for such projects.

         The LUDM is also particularly suited for use by local economic

development organizations as:

            There are no explicit data base development require-
            ments which mandate costly collection of new site or
            regional data.

            The LUDM may be suitably implemented by persons without
            rigorous mining, land use, or engineering training or
            exper ience.
                                - 153 -

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         In applying for development funds, it is important to document



that procedures such as the LUDM were utilized in plan and project form-



ulation.  It is generally not enough that  local  development corporation



members have a working knowledge of an area or region from living there



all their lives.  Such people often quite accurately know the character-



istics of a site or sites which influence development suitability without



using overlay maps or matrices.  Although this type of knowledge is usual-



ly locally recognized, it generally does not go very far in convincing




government or private funding sources that the most suitable possible site



has indeed been selected for the proposed development.



         These organizations will  generally not have ready access to the



mining or environmental data which is required to complete LUDM site and



site context regional analyses.  Again, most of this data will be avail-




able from other sources or from site inspections.  However, formal liai-



sons between these development organizations and other regional and state



agencies for data collection will  generally not be warranted as such data



needs will generally be one-time and project or site specific.





MINE OPERATORS






         Mine operators may appropriately use the LUDM to test site suit-



abilities for various  land uses.  Land use suitability may be documented



based on site and regional infrastructure and environmental characteris-



tics and such documentation would be valuable for permit preparation,
                                -  154 -

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hearings for regulatory variances and for "522" petition response docu-




mentation.  The operators will  have ready access to required site data in




their environmental  baseline surveys and engineering plans.  Additional




regional land use and environmental data would be readily accessible from




appropriate local or regional  planning bodies.






ABANDONED MINED LAND RECLAMATION






         The project selection and ranking criteria to be utilized by a




number of state AML reclamation programs will explicitly consider site




land use potentials.  Such potentials may be readily examined and docu-




mented utilizing the LUDM.  Sites with high  land use potentials may be




isolated and then planned for accordingly.  Again, the AML agency will




have to interface with appropriate state or regional agencies for obtain-




ing the requisite environmental and socioeconomic data.  The state program




public participation components could prove to be ideal vehicles for




assuring this reclamation agency/planning agency interface.






EXAMPLE - AN LDD BASED RECLAMATION/LAND USE PLANNING PROGRAM






         This final  discussion presents a hypothetical management/insti-




tutional framework in which LDD's may assume key mined area land use




decision roles.  In addition, this section also illustrates a larger site



planning/development context in which the LUDM may be effectively util-




ized.  As presented, LDD's are but one of many local, regional, or state




organizations which may appropriately include land use decision making for
                                - 155 -

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mined areas within the scope of their land planning/development activi-

ties.  LDD's are a logical  mined land reclamation planning participant as

throughout Appalachia they are generally "A-95" multi-county agencies.

Linkage of the "A-95" agency as an LDD with Appalachian Regional Commis-

sion (ARC) can provide important regional-state-federal liaison mechan-

isms.  These liaison mechanisms should include cooperative agreements with

other federal agencies and ARC technical  expertise in applying design

techniques,  in addition to direct funding.  This funding would provide the

initial  step in a reclamation/development program by providing funds for

start-up costs and the personnel to carry out the program.

         Cooperative agreements established through ARC leadership can

provide the  basic means to identify and select reclamation/development

projects.  Key agencies for which agreements could be obtained  include:

             U.S. Department of  Interior, Office of Surface Mining -
            Title V  (PL 95-87) permit review and Title  IV (PL
             95-87) grant application review

             State agencies responsible for approval of  surface
             mining permits

             State agencies responsible for abandoned mine lands
             reclamation

Those agreements would pursue two objectives.  First, they will allow the

designated agency expanded review opportunity to study  potential project

sites before reclamation approval occurs; during this period the desig-

nated agency could then test the feasibility and desirability of various

final land uses using the LUDM as well as other suitable planning tools.

Second, cooperative  agreements could specify that the designated agency
                                -  156 -

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may propose certain modifications to initial proposals to incorporate eco-



nomic development objectives into the final design.  The ultimate purpose



of these generic cooperative agreements is to identify, evaluate and



choose those reclamation operations for a given study area most suitable



for economic development projects.  Specific project selection procedures




will come under the aegis of the LDD's Areawide Action Plan.  Under this



system, "packaged" reclamation/development projects will compete against



other public needs for the available funds.  By utilizing the land use



decision technique presented in this report, projects can be prioritized



to  indicate those which will be of most benefit to the  local area.



         The next step in packaging a reclamation/development project is




to provide funding for site acquisition.  To minimize public expenditure,



only surface rights should be purchased.  A small "land banking" program,



financed as a revolving fund and executed by the LDD, could be established



to assure control over development activities.   In the case of abandoned



mine land sites, OSM or state AMI programs (PL 95-87) could be tapped for



funding sources.  In the case of active mining operations, Farmers Home




Administration  (FmHA) "601" energy impact funding could be utilized.  To



facilitate this site acquisition process, cooperative agreements with OSM,



state AML agencies, and the FmHA could specify detailed procedures for ap-



proval  and allocation of funds to the LDD's.



         With site acquisition accomplished, reclamation must be financed.



Approved AML reclamation will be financed by OSM (in states not fully par-



ticipating in Title IV, PL 95-87), the state AML agency (approved Title  IV
                                - 157 -

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programs), or ARC (use of "Section 205" funds for open pit and quarry rec-

lamation) .

         Active mine reclamation costs are normally incurred by the mine

operator.  In the case of reclamation/development projects, extra reclama-

tion may be required (e.g., compaction of fill for use as building site).

The ARC could fund this extra reclamation under its "Section 205" program.

LDD's must establish contractual arrangements with the mine operator,

specifying the extra reclamation required (to include landscaping) and the

associated costs.  ARC could provide technical assistance in evaluating

plans and specifications, determining the appropriate costs, and writing

the contract.

         With reclamation completed, site deveIopment can occur.  A myriad

of FmHA programs are available to assist  in  infrastructure I development -

transportation, utilities, water, and sanitation - in alI types of recla-

mation/development projects.  Where required, the ARC can supplement these

funds with certain specific functional programs currently available:

            Section 200(c) - enterprise development
            Section 201 - highway and access roads
            Section 207 - housing
            Section 212 - sewage treatment facilities
            Section 214 - matching funds

These FmHA and ARC programs will allow the LDD to take a reclaimed site,

either  from an active or abandoned mine,  and develop the desired  land use.

Contracts with private developers (and  in some cases financial  institu-

tions)  will be required here as  in the case  of the reclamation.  Both

types of contracts must be closely monitored to assure that the reclama-

tion and development efforts produce the  planned results.




                                - 158 -

-------
         Coordination throughout this entire process would be maintained



by the LDD.  Grant funding activities with other public agencies, as



established through cooperative agreements, will be a continuous task.



Land acquisition, management, and disposal (i.e., land banking) will  like-



wise occur.  Reclamation and development contracts with private firms must



be established, monitored, and brought to fruition.  Sites will eventually



be returned to the private sector with land disposition under the land



banking program.



         Figure 25 presents a flowchart for an LDD centered management



structure.  A seven-step procedure is  indicated  involving both  land plan-



ning and  land banking.  The necessary cooperative agreements and related



funding programs are  indicated at each stage  in this process.  This flow-



chart may be modified to depict  institutional arrangements/ management



frameworks  involving other equally suitable agencies and organizations.
                                 - 159 -

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Figure  25. Recommended management structure.
       ARC FUNDING
             LDD
  RECLAMATION/DEVELOPMENT
          PROGRAM
                                 LAND PLANNING

                             1. DETERMINE POTENTIAL
                               SITES
                                       I
     AREAWIDE ACTION
     PLAN USE OF LAND
       USE  DECISION
        TECHNIQUE
-•J 2. EVALUATE SITES



-*J 3. SELECT SITES
     ARC SECTION 205
         FUNDING
           I
           ARC
       FUNCTIONAL
        PROGRAMS
        LAND BANKING

      4. ACQUIRE SITES
      5. RECLAIM SITES
        (Private Contractors)
              I
      6. DEVELOP SITES
        (Private Contractors)
                                       I
                               7. DISPOSE SITES
    ARC
COOPERATIVE
AGREEMENTS
                                      OSM TITLE IV

                                      OSM TITLE V

                                   STATE REGULATORY
                                       PROGRAMS

                                 STATE AML PROGRAMS
                                                               OSM TITLE IV
                                                            FMHA "601" PROGRAM
    FMHA
 FUNCTIONAL
 PROGRAMS
                                      - 160 -

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THE SETTLERS CABIN
       CASE STUDY

-------
               THE SETTLERS CABIN CASE STUDY
INTRODUCTION
         Settlers Cabin  is  a  park  of  over one thousand acres which  is  lo-




cated approximately ten  miles west of Pittsburgh,  Pennsylvania.  The park




is an integral  part of the  Allegheny  County  Park System and has been un-




dergoing incremental  facility expansion  and  new development since the mid-



1960's.   Within its boundaries,  there are a  number of unreclaimed strip




mines, deep mined areas  and mine openings, and abandoned oil and gas



we I Is.



         In 1975 the Appalachian Regional Commission and Environmental



Protection Agency sponsored a study which detailed the nature  and extent




of environmental damage  due to past mining within  the park.  A compre-




hensive reclamation and  mine  drainage abatement plan was also  devised.




The plan included a staged  implementation program  for strip mine backfil-



ling, deep mine sealing  and treatment facility construction.   However,  im-



mediately planned reclamation activities only  included reclamation  of  two



strip mine pits totaling approxlmatey eight  acres  and stabilization of



associated subsidence areas which  total  another seventeen  acres.  As of



April 1980, construction had  not yet begun.



         In addition to provision  of planning  and  construction funds for



park reclamation, the reclamation/abatement  project  was  devised as  a study
                                 -  163 -

-------
in interagency cooperation.  It was a specific intent of project initia-

tors within the Environmental  Protection Agency and the Appalachian Re-

gional Commission to involve a number of state, regional, and local agen-

cies  in all aspects of project planning.  Therefore, the objectives of the

Settlers Cabin Park Project were actually twofold:

            Conduct a study in and evaluation of agency cooperation
            and performance.

         .  Provision of actual environmental  improvements to the
            park site.

         Within this framework, the project case study was formulated to

provide:

         .  A study of agency project participation  for a number of
            the agencies described  in the  Institutional/Management
            Study.

         .  A test site and context for a test application of the
            Land Use Decision Technique (Matrix).

          In support the Management  Study and  the Land  Use Decision Method-

ology,  the following  information  is  included  in this section.   First,  is  a

detailed description of the site  and  its regional  context  in the Pitts-

burgh metropolitan area.   This  description  Includes  a  history of mining,

 identified mining-related  environmental problems,  descriptions  of  existing

and  proposed  park  facilities,  and  proposed  reclamation and pollution

abatement  measures.

          Second,  is  a  description  of  the project's institutional setting,

which includes:   a chronology  of  important  project events; a  description

of agency  involvements and interactions; and a general  evaluation  of

 agency performance relative to project  delays, and problems  encountered

 during the project.



                                  - 164  -

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         Third, a test application of the Land Use Matrix and associated




procedures is provided.  The matrix is utilized to examine the past land




use decisions which have resulted in development of the site as a major



regional park.  In addition, hypothetical land use options are examined by



modifying project assumptions regarding the current site ownership and de-



velopment pattern.  This approach permits testing of a number of alterna-




tive land use scenarios based on the site's physical attributes and in-



stitutional /locationaI parameters as addressed by the Land Use Matrix.






DESCRIPTION OF SETTLERS CABIN PARK






                             Regional Overview






         Located near Pittsburgh, Settlers Cabin  is named for a colonial



era log cabin which has been restored at the park.  Well within the Pitts-



burgh metropolitan area, over a million people  live in close proximity to



the park.  Currently, the park offers a wide range of recreational oppor-



tunities - picnic and playground facilities, a pool, trails, a wildlife



refuge  and fishing.   In addition, a Pittsburgh ethnic history study cen-




ter, a  tennis complex, and  additional historic theme facilities are pro-



posed for  future development.  With continued growth within the greater



Pittsburgh area (Figure 26), especially  new housing .within the highway/



development corridor between the city and Greater Pittsburgh Airport, the



role of Settlers Cabin as a major regional recreational  resource  is cer-



tainly  to  be  significant.
                                 -  165 -

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Figure 26. Project area location map.
    GREATER
   PITTSBURGH
    AIRPORT
               SETTLERS
                 CABIN
             PROJECT AR
                                               CHARTIERS
                                                  CREEK
                                            DRAINAGE BASIN
                                        -  166 -

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         Physiographically, the site lies in the Chartiers Creek Drainage



Basin within the larger Allegheny Plateau.  The region is maturely dis-




sected with principal  streams having eroded broad valleys to fairly uni-



form moderate slopes.   Tributaries have further divided upland areas into



numerous narrow ridges and steeper narrow valleys.  These narrow valleys



generally have slopes ranging from 25$ to 40% while the larger rounded




valley divides are more gentle with slopes generally  in the 5$ to 20$



range.  Within the basin, relief varies from a low elevation of 710 feet



where Chartiers Creek meets the Ohio River to 1520 feet at the headwaters




of the creek  in Washington County.



         The geology of the region consists of gently dipping sedimentary



sandstone, shale, limestone, and coal.  Outcropping beds belong to the



Conemaugh, Monongahela, Washington and Greene formations.  The outcrop of




the Monongahela formation  is more extensive than the outcrops of any of



the other formations  in the region.  The Pittsburgh coal seam is the low-



est member of the formation.   In this area, coal mining activity has fo-



cused most heavily on the Pittsburgh coal, which varies between five and




six feet  in thickness.  Throughout the Chartiers Creek Basin mining ac-



tivity has been extensive, with drift mining, slope and shaft mining, and



contour strip mining  all widely employed.



         Two  general  soil  associations predominate throughout the region.



The Westmoreland-Guernsey-Clarksburg Association soils are derived from



 limestones, sandstones, and shales.  Slopes are generally moderate, but



may range  from gentle to steep.  Much of the soil  In  the steeper terrain
                                 - 167 -

-------
in the region is in the Westmoreland-Guernsey Association, which has simi-



lar parent materials - shale, sandstone, and limestone.  Soil  interpreta-




tions rate the potential erodibility of these soils as high, primarily due



to topographic relief and steep slopes.  Soils on flatter slopes through



the area are assigned medium erosion potential ratings.



         Strip and deep mining have severely altered the hydrology of the



Chartiers Creek Drainage Basin.  In addition, a number of streams are se-



verely polluted with acid mine water.  Many of the major sources of mine



drainage are in areas where strip mining break into the abandoned deep



mines.  Such breaks result  in  large amounts of surface water being di-



rected  into underground workings where  it contacts acid-forming  iron sul-




fide minerals and  is discharged through old mine openings at lower eleva-



tions.   In addition,  in abandoned strip mines acid-forming  materials have



been  left exposed  over  larger  acreages.  Oxidation produces sulfate miner-



als.  Runoff dissolves  these minerals, carrying the resultant acid mater-



 ials  into adjacent streams.






                          Jhe  Settlers Cabin  Site






          Within the park  boundaries, there  is roughly  two hundred  feet  of



topographic  relief.   Pinkerton's Run provides a  wide  sloping stream  valley



nearly  dividing the park  in half while  small  tributaries  provide steeper



narrow  valleys.   The site is bordered  on the  north  by  the Parkway  West, a



major traffic thoroughfare  for the  western  portion  of  the Pittsburgh



metropolitan  area.  To the  south  Is Robinson  Run,  a major tributary  of
                                  -  168 -

-------
Chartiers Creek and to the east and west are developing residential areas

in Fayette and Collier Townships.


Park Facilitles


         Figure 27 depicts the major existing and proposed facility devel-

opments for Settlers Cabin Park.  Existing facilities  include picnic

areas, hiking trails, log cabin, an oil well, the interpretive center, and

swimming pool complex.  Proposed facility development  includes the follow-

ing elements:

            additional picnic areas
            the ethnic viI I age
            active recreation area
            historic theme for all facilities
            new trails and bikeways
            major tennis  complex

          In addition, access roads and signs will be  improved.  Expanded

park traffic  is expected, so such facility  improvement  is necessary.


Vegetative Cover


         The  park  is dominated by relatively mature trees.  The heaviest

woodlands within the park are found  in the  lowlands adjacent to streams.

Dominant  species  Include  Oak, Black  Cherry,  Locust, Beech and Maple.   On

the hilltops  within the park, the vegetative cover consists primarily  of

young  Locust, Aspen and Pines.   The  park  was previously contour stripped

over much of  its  area, so many of these trees  are growing on strip mine

spoils.   Prior  to  the commencement of  mining  In  the early  1900's  the re-

gion  was  chiefly  agricultural.   Therefore,  this  forest cover  Is mostly
                                  -  169  -

-------
Figure  27.  Existing and  proposed park facilities.
         — LEGEND —

          Existing Picnic Area
          and Game Fields

          Proposed Picnic Area
          and Game Fields
          Swimming Complex
^% *
       %
  V/////A Game Refuge Area
  hl>-v£S''^al Reforestation Area

    
-------
naturally seeded second growth covering abandoned farmland.  A number of



shrub and grass species are also in evidence throughout the park, provid-




ing cover and food for rabbits, pheasants, and deer.






Hydrology






         The park area is contained within the Robinson Run Watershed.



Pinkerton's Run flows through the park before discharging  into Robinson



Run and finally into Chartiers Creek.  The surface and groundwater of the



Settlers Cabin area is heavily impacted by acid mine drainage.  Acid



drainage most seriously affects Pinkerton's Run, the largest stream  in the



park.  Tributaries vary from being polluted to  Intermittently being  af-




fected by mine drainage.  A major eastern tributary Is relatively clean.



There  is no evidence of other organic or  Industrial pollution in the park




area.






Mining History






         From 1908 through 1937 deep mining activity was extensive




throughout the Chartiers Creek Watershed.  Typical  room and pillar opera-



tions  with drift entries were generally developed.  As the room  and  pillar



areas  were completed, the pillars were recovered, causing  localized  subsi-



dence  and surface and groundwater flow disruptions.  Mine  openings were



generally left unsealed, allowing water and air to  enter the mines,  caus-



ing  formation of acid mine drainage, which subsequently drained  via



gravity through other openings.
                                 - 171 -

-------
         The site was stripped most heavily during the 1940's.  Much of



the coal left in place by previous deep mining was stripped from the coal




outcrop following the contours of the land surface.  Many of these strip



mines were improperly reclaimed and now provide a means for surface water



to enter the deep mines, later discharging as acid mine drainage.  Figure



28 depicts the extent of past deep and strip mining within the park.






Summary of Mining-Related Environmental Problems






                               Mine Drainage






         A study of the entire Chartiers Creek Watershed was  completed  in




1970 which  identified 43 major sources and an additional 250  sources of



acid mine drainage  in the watershed  (where major  sources contribute great-




er than  1,000  Ibs. of acid per day).  A  later study which  focused on Set-



tlers Cabin  Park  identified 25 significant discharges  (none greater than



1,000  Ibs.  per  day to  local streams).  Of the  identified discharges, 23



originated  from abandoned deep mines  and two  from an  abandoned  strip mine.



The  deep mine  discharges accounted  for 95% of the total  documented  acid



 load  in the  park.  Of the  identified  sources,  11  were  outcrop discharges



or seepages, 6  were  discharging  through  adjacent  strip mines, and 6 were



drainage from  collapsed  or partially backfilled deep  mine  entries.



          PInkerton's  Run receives over 30$ of this documented acid  load



 from a total of 11  drainage  sources.   Collectively, the 25 discharges  pro-



 duce 5,000  Ibs./day acid load and 250 Ibs./day of iron.  This drainage has



 continually or intermittently degraded  12  miles of streams within  the



 park.







                                  -  172 -

-------
Figure 28.  Mined land inventory map.
             - LEGEND -
  V/////A Unreclaimed Strip Mines
n? >A-
•"<\
  l£.-V;ff&"il Partially Reclaimed Strip Mines


  I      | Reclaimed Strip Mines


  I      I Deep Mine Areas
             -V
  X////A Subsidence Areas
                                                    -; y        r ^;^'y i-.;
                                                                    *•£

-------
                                Subsidence






         Much of the park surface Is only 20 to 60 feet above the aban-



doned mine workings, thus roof collapse and subsequent surface subsidence



are common.  This subsidence has disrupted normal  surface runoff patterns



and allowed water to enter the abandoned workings through sink holes.  In



addition, subsidence patterns within the park have restricted conventional




facility development In a number of areas.






                          Unreclaimed Strip Mines






         Nearly all of the stripping In the park occurred from the  late



1940's until the early 1960's.  This activity generally  involved contour



cuts following the outcrop of the Pittsburgh seam.  A number of these




mines were partially backfilled forming flat benches  in  the pit areas.




Three stripped areas were adequately reclaimed.  The  remaining mines were



left totally unreclaimed, with  pits and highwalls  left  intact.  A number



of these  unreclaimed strip pits are  located  updip  from  adjacent deep mine



workings.  These areas  impound  surface  runoff,  which  then  Infiltrates  Into



deep mine  workings, becomes  acidified,  and  is gravity discharged through



openings  on  the  downdlp  sides of the underground mines.






SETTLERS  CABIN RECLAMATION/ABATEMENT






                           Proposed RecIamat i on






          A comprehensive reclamation and  pollution abatement  plan  was



first  developed  for the park during  the late 1960's.   Working with  the









                                 -  174 -

-------
Allegheny County Department of Parks, the Pennsylvania Department of Mines

and Minerals sponsored development of this plan.  Construction was slated

to begin when Allegheny County reassessed its position, and all activity

was halted pending further action by the county.

         In 1976, an Appalachian Regional Commission-sponsored mine drain-

age study resulted in development of a comprehensive five phase reclama-

tion and abatement plan.   Important elements of this plan follow:

         .  Phase 1  - Reclamation of an unreclaimed strip mine and
            construction of a mine drainage  Interceptor system for
            Pinkerton's Run.

         .  Phase 2 - Surface mine reclamation on 18 additional
            acres, of which 6 acres were actually outside of the
            park.

         .  Phase 5 - Revegetation of four additional surface mined
            sites.

         .  Phase 4 - Daylighting (stripping out abandoned under-
            ground workings) of two areas within the park.  This
            procedure  involved clearing of all site vegetation,
            excavation, coal removal, regradlng and revegetation.

            Phase 5 - Construction of a  IIme neutralization treat-
            ment facility  located on Robinson Run.  This was viewed
            as the  last element  in a comprehensive plan for abate-
            ment of mine drainage within the park.

          In summary, the five phases  involved 44 acres of strip mine rec-

 lamation, 77 acres of  additional strip mine  revegetation, 34 acres of  deep

mine daylighting, and  construction of a  water collection system and treat-

ment plant.  Total construction costs were estimated at $2,669,000  (1976)

with an  annual operating budget of almost $110,000.  Table 1 summarizes

these  costs.
                                 -  175  -

-------
                          Implementation of Plans


         The only reclamation which is likely to be actually implemented

at Settlers Cabin is backfilling, regrading and planting of two strip

mines totaling 8 acres and stabilization of an additional 17 acres (Figure

29).  As of March 1980, total estimted cost for the proposed reclamation

is $140,000.
                                  TABLE 1
                              ESTIMATED COSTS



Phase
1
1 1
1 1 1
IV
V
Total

Estimated First

Construction
$ 326,000
69,000
42,000
863,000
1,369,000
$2,669,000

Costs

Engineering
$ 17,000
6,000
—
63,000
102,000
$188,000



Total
$ 343,000
75,000
42,000
926,000
1,471,000
$2,857,000
Estimated
Operation
and Maintenance
Costs per Year
$ 11,000
—
—
—
107,000
$118,000

Equivalent
Annual
Costs
$ 43,000
7,000
4,000
87,000
246,000
$387,000
 SETTLERS  CABIN PROJECT MANAGEMENT  STUDY


          The  previous  section  provided  a Settlers  Cabin  site and regional

 environmental  overview.  This  environmental  overview coupled with the sum-

 mary of the various land  use/facility development  and reclamation/abate-

 ment plans which have  been proposed for the site provides a site/reclama-

 tion needs point of reference  for  the Institutional  study which follows.

 In addition,  elements  of  this  site analysis will be requisite input into

 the test application of the Land Use Decision Matrix to Settlers Cabin,

 which is presented in  a later  section of the report.
                                 -  176  -

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Figure  29. Proposed reclamation.
         — LEGEND -
  bff&PJ  Pit Backfilling
  V///A  Stabilization and
          Subsidence Control
  I      I  Strip Mined Areas

-------
         The management study Is structured as a layering of pertinent



project information.  Included are:  a general identification of Involved



agencies; a chronology of major project events and activities; a detailed



examination of agency functional project involvements; and a summary of



project implications for the Institutional/Management Study, as well as



the application of the Land Use Decision Matrix to the Settlers Cabin



site.





                            Agency InvoIvements





         The number of agencies actually involved in the Settlers Cabin



Project reflects the  initial multi-agency participation and coordination



intent of the study.  The Environmental Protection Agency, the Appalachian



Regional Commission, and the Pennsylvania Department of Environmental Re-



sources were all to some extent  involved in project funding,  planning, and



plan review.  The  involvement of ARC and the  selection of county  land for



reclamation additionally mandated  Involvement of the  U.S. Bureau of  Mines,



the  Southwestern Pennsylvania Economical Development  District,  and  Alle-



gheny  County Departments of  Parks  and  Public  Works.   In  addition, the



Pennsylvania Department of Mines and Minerals,  which  later  underwent reor-



ganization  and  assimilation  into the Department of Environmental  Re-



sources, was  involved  in  initial reclamation  planning  activities  at the



site during the late  1960's.   Following is  a  brief summary  listing  of  per-



tinent agencies and the  nature  of  their involvements  In  the Settlers Cabin



Project.
                                  -  178 -

-------
Environmental  Protection Agency, Region III - Initiated
the project in 1974 as a demonstration for non-point
source pollution control.  Specific EPA interest has
been focused on the institutional aspects of project
progress and execution.

Appalachian Regional Commission - has participated with
EPA since project initiation.  ARC funded the site en-
gineering/polIution abatement feasibility study in
1975.  ARC is also providing "205" funding for a 3/4
share of projected construction costs.

Pennsylvania Department of Environmental Resources, Bu-
reau of Resources Management, Division of Mine Area
Restoration - has also been  involved since project  in-
ception.  DER participated in site planning, engineer-
Ing study review, funding (1/4 share for construction
costs), and assumed primary responsibility for project
administration and  Implementation activities.   In ad-
dition, the Division of Mine Area Restoration is re-
sponsible for obtaining required mineral releases.

Pennsylvania Department of Environmental Resources,
Bureau of Design - responsible for design review for
project engineering plans and specifications.

Pennsylvania Department of Environmental Resources,
Bureau of Operations -will participate in project
construction oversight and past construction evaluation
and monitoring.

Pennsylvania Department of Commerce, Bureau of Appala-
chian Development - provided program  link between ARC
and the Local Development District (LDD) for "205"
funding request and processing.

Southwestern Pennsylvania Economic Development Commis-
sion - submitted project funding requests as part of
yearly Action Plans, as required by ARC.

Southwestern Pennsylvania Regional Planning Commission
- was  Involved only to the point of providing regional
 lead  in "A-95" project review process.

Allegheny County Department of Public Works - was  Ini-
tially the  lead county agency for coordination with
DER, EPA, and ARC.  At one point, DPW was  considering
use of youth conservation corps  type  labor  for  a por-
tion of the reclamation work.
                      -  179 -

-------
         .   Allegheny County Department of Parks,  Bureau of Plan-
            ning - has participated primarily in a project review
            role.  They initiated and then halted  reclamation ac-
            tivities in the late 1960's.  They reviewed all plans
            and provided park planning inputs into reclamation/
            abatement plans developed in 1976.

         Apart from the agencies involved in various reclamation activi-

ties, the Pennsylvania Department of Community Affairs, the Economic De-

velopment Administration and the Pennsylvania Bicentennial Commission were

all Involved through funding various park facility development projects.


                            Project Chronology


         The agency activities and  interactions which to one degree or

another have shaped the direction,  progress, and success or failure of the

Settlers Cabin Project are outlined  in Figure 30.  A chronology of project

milestones  is summarized in the  flowchart with brief supporting descrip-

tions.  The events depicted  include key  agency activities, decisions,  in-

teractions, or project milestones  such as engineering study completion or

funding.  The  flowchart does not specifically highlight the most critical

of these events  or  interactions.   Instead,  such analysis  is reserved  for a

 later  discussion.  The  immediate focus  is description of  operational

agency project management,  planning,  funding, and  coordination  activities.

Agency programs  and  operations  are examined for specific  project rather

than generic operational performance.   Specific agency  institutional  char-

acteristics (I.e.,  funding  procedures)  are  also  linked  to any  problems

encountered during  the  project.  Therefore, the focus  of  the  following

discussions Is on key functional elements of the  project:
                                 -  180 -

-------
Figure 30. Settlers cabin project
milestone  chronology.
      ASSEMBLY OF LAND
          FOR PARK
        DEVELOPMENT
     INITIAL PLANNING AND
    FACILITY DEVELOPMENT
     PARK FACILITIES OPEN
          TO PUBLIC
      PARK RECLAMATION
       AND ABATEMENT
      NEEDS  DETERMINED
       DEVELOPMENT OF
      RECLAMATION AND
      ABATEMENT PLANS
         HALT TO ALL
         RECLAMATION
          ACTIVITIES
Park land assembled from privately owned
parcels and donated to Allegheny County
during the 1950's.  Procurement of addi-
tional adjacent parcels has continued.
An initial master plan for "West Park," as
Settlers Cabin Park was  then called, was
completed in  1960.  Development of picnic
areas and hiking trails then proceeded.
Facility development has continued throughout
the 1 970's.  Included  were additional picnic
facilities, cabin restoration, an extensive
swimming complex, and ball fields.

The park opened  to the public in 1968.
Within a couple of years  the park was
averaging 110,000 visitors per summer
season.

The Allegheny County Parks Department
conducted an inventory of mining  associated
problems on all county parklands in 1969.
Acid mine drainage, abandoned mines, and
abandoned oil and gas wells identified.  The
County contacted the Department of Mines
and Minerals exploring potentials for tech-
nical and  funding support.

No funds  were available  for well plugging,
but the Pennsylvania  Department of Mines
and Minerals immediately initiated  develop-
ment of mine reclamation and pollution abate-
ment plans.   Plans finalized to the point of
field visitation with perspective coal opera-
tor/reclamation contractors.

Upon plan review, the county requested a
halt to all reclamation activities.  Potential
incompatibility between park and  reclama-
tion plans and the desire to minimize de-
struction of mine  site  pioneer vegetation
cited as the primary reasons for work
cessation.
                                   - 181  -

-------
Figure 30. Settlern  cabin  project
milestone  chronology (Cont'd.).
         EPA AND ARC
             PLAN
         RECLAMATION
       DEMONSTRATION
       SETTLERS CABIN
        SITE SELECTED
         DER AGREES
         TO PROJECT
        PARTICIPATION
       DER WITHDRAWS
        FROM PROJECT
             DER
          REASSESS
      INVOLVEMENT AFTER
        FURTHER STUDY
         ENGINEERING
          FEASIBILITY
            STUDY
EPA - Region  III developed plans to initiate
a 303(e) water quality planning demonstra-
tion project.   Because of previous success
of EPA/ARC partnership in completing the
Monongahela Basin Study, EPA contacted
ARC for joint  project involvement.  EPA
and ARC signed a Cooperative Agreement
in 1974 with the study to focus on mining-
related pollution abatement planning.

The search for a potential demonstration site
focused in the Monongahela River Basin.
Initial Elk Creek site in West Virginia
dropped because of potential conflict with
other EPA R&D efforts.  Settlers Cabin site
selected with assistance of Pennsylvania
Department of Environmental Resources.

Initial contact established with the Pennsyl-
vania DER and interest in project participation
expressed.  In addition, the  Allegheny County
Departments of Parks and and Public Works
willing to  participate.  Concepts  such as use
of job corp participants for reclamation work
discussed.

DER withdrew support for the project
based on insufficient pollution abatement
benefits as determined by internal agency
project benefit/cost determination procedures.

A  compromise  reached as DER  agreed to hold
final decision  concerning  project partici-
pation until completion of a detailed mine drain-
age/pollution  abatement study.
ARC contract with an engineering consultant
to conduct a detailed mine drainage/mining
problems study of the park.  A detailed five
phase reclamation/abatement  program resulted
from the study.
                                   - 182 -

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Figure 30. Settlers cabin project
milestone  chronology (Cont'd.).
         DER AGREES
          TO LIMITED
        PARTICIPATION
        LDD REQUESTS
         "205" FUNDS
      FOR CONSTRUCTION
       PREPARATION OF
         ENGINEERING
         DOCUMENTS
     NEED FOR ADDITIONAL
         EARTHWORK
         DETERMINED
        ACQUISTION OF
           MINERAL
            RIGHTS
      NEED FOR SECOND
           OVERRUN
         DETERMINED
DER agreed to limited project participation.
Reclamation of two surface mines within the
park decided upon.
Following  standard ARC "205" fund request
procedures, the Local Development District
(LDD) was contacted and construction funds
applied for.  (ARC share 75% from "205")
Engineering consultant retained to prepare
plans and specifications for the two surface
mines (8 acres).  Site visits confirmed the
need for stabilization of an additional 17
acres of subsidence prone land.  Plans  com-
pleted and circulated for review.

Local  Development District  requested overrun
funding to complete additional stabilization
work and accommodate increased costs due
to inflation.
DER - Division of Mine Area Restoration
seeks release of mineral rights.  Allegheny
County guaranteed release for the state in
lieu of obtaining  release from  all mineral
owners.

Due to additional project delays,  inflation
invalidates prior construction cost estimates.
Additional funding needs determined and
second overrun process begun.
                                   - 183 -

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         .   Project Initiation  (Research)



            Planning (including Data Collection and Analysis)



         .   Funding (Financial  Assistance)



         .   Plan Review (Decision-Making)



            Implementation (Construction)



         This listing was also  derived from the "Management Study Schemat-



ic" which ARC initially developed to structure the management study.  The



additional  category "regulation" assumed virtually no role In the Settlers



Cabin Project.  However, regulations would certainly be of critical con-



cern to any project planned for an active coal mine or quarry.






Project Initiation





         As detailed previously, reclamation planning was actually  initi-



ated at the site during the late 1960's with the Allegheny County  Inven-



tory of abandoned mines and associated environmental problems on a I I



county held  lands.  A regional  reclamation/pollution source inventory



(Operation Scarlift - the Chartiers Creek Pollution Abatement Project)  and



development of  park reclamation  and abatement  plans by the Pennsylvania



Department of Mines and Minerals followed soon  afterward.



         The  EPA/ARC project was  initiated  as  an EPA Region  III  "Specific



Non-Point Source Pollution Control  Demonstration Project"  in  1974.  Part



of  a nationwide demonstration  program,  these  projects were mandated to  be



cooperative  efforts of  federal,  state,  and  local agencies and private



groups.  The  projects  were to  address regionally significant  non-point
                                  -  184 -

-------
sources (In this case pollution from abandoned coal  mines).  Regions were



assigned project types such as urban runoff, saltwater Intrusion, and




agricultural  pollution.



         Early in the project, EPA personnel decided to Involve the Appa-




lachian Regional  Commission (ARC) because of ARC's knowledge of Appalachia




and their Involvement with EPA in the Monongahela River Basin Study.  In




addition, ARC was already managing a successful ongoing mine reclamation



program (205).  An interagency agreement between EPA and ARC was prepared.



         Once project preliminaries were completed, a search for a suit-



able project/demonstration site began In the Monongahela Basin.  The Elk



Creek Watershed, upstream from Clarksburg, West Virginia, was Initially




selected for a mine drainage/polIution control project.  Subsequent  inves-



tigation revealed the area to be unsuitable for the type of demonstration



which was planned (a deep mine sealing project was being considered be-



cause ARC was not able to fund surface mine reclamation on privately owned



land).   It was felt that extensive active mining activity, as well as EPA



and West Virginia DNR pollution control demonstration projects already  In




the watershed lessened the utility and attractiveness of Elk Creek as a



demonstration watershed.  Looking for potential sites  in Pennsylvania, ARC



contacted the Pennsylvania DER who agreed to participate In the  project.



Settlers Cabin was then  Identified as an attractive potential demonstra-



tion site because of  its  location in the Pittsburgh metropolitan area, as



well as being in a heavily mined/polluted watershed.   In addition, the
                                  -  185  -

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site was on public land with heavy recreational  usage and planned new fa-



cility development.  The Allegheny County Departments of Public Works and



Parks then agreed to participate in the project at Settlers Cabin.






Planning (Including Data Collection and Analysis)






         Site planning activities have been focused  in two general areas -



park facility master planning and reclamation/pollution abatement plan-



ning.  Although often seemingly running parallel, there have been a number



of attempts at integrating park development and reclamation/pollution



abatement at Settlers Cabin.  For example, park planners are utilizing un-



graded strip mines for tennis court construction - requiring lower earth




moving costs than  neighboring unaffected areas.   In  addition, the reclama-



tion/engineering  feasibility study completed  in  1976 considered  overall



park development  plans  in  its recommended reclamation/abatement  strategy.



On the other hand, reclamation planned by the Pennsylvania Department of



Mines and Minerals in the  late 1960's was halted  when park planners  became



concerned about  potential  park development and reclamation plan  incompat-



 ibilities  (park  planners wanted to minimize the  disturbance to pioneer



vegetation on  a  number of  unreclaimed strip mines).  And very  recently,



questions concerning  the relationship between the two strip pits proposed



for  reclamation  and  a planned access road  for a  new  tennis complex  were



raised.



          Since inception of the  EPA/ARC  reclamation  effort, planning ac-



tivities have  been focused toward:   determining  a suitable scope of work
                                  - 186 -

-------
for the proposed reclamation; detailed data collection; development of a

comprehensive reclamation/pollution abatement strategy; and finally, de-

velopment of engineering plans and specifications.

         Prior to undertaking the feasibility study In 1975, ARC and EPA

envisioned implementation of a comprehensive reelamatIon/abatement program

In the park.  However, these plans were first curtailed in 1975 when DER

withdrew its project support.  DER cited the following reasons for their

project withdrawal:

         .  Pollution abatement benefits were not significant
            enough to warrant project participation.  At this time,
            DER was mandated to consider mine drainage abatement
            benefits above all other factors in project priorltiza-
            tlon and selection.   In addition, it was felt that
            abatement of pollution In Pinkerton's Run would do
            little to improve the quality of Robinson Run, the
            receiving stream.

            Limited money also mandated funding of higher priority
            projects  in Allegheny county.

         In addition, two other factors weighed heavily in the state's de-

cision to not participate.  The state had historically encountered prob-

lems  in conducting reclamation in the Chartiers Creek watershed because of

the region's complex surface and mineral ownership pattern, as well as the

existence of a  large number of small active mining operations.  A portion

of the proposed reclamation was to also take place on neighboring private-

ly held  land.  DER was operating with a policy of JTO surface mine reclama-

tion on private  land.

         Upon completion of the engineering feasibility study, DER was

still hesitant to participate because of disagreement with various ele-

ments of the recommended abatement plan (primarily construction of the



                                  - 187 -

-------
treatment plant and reclamation proposed for neighboring private land).



In addition, the overall project benefit/cost ratio was still insufficient



(DER procedures did not consider factors such as aesthetic/recreational



benefits).  However, additional analysis by the engineering consultant re-



vealed that reclamation of two ungraded strip mines totally within the



park was within a cost/benefit range acceptable to DER.  Therefore, recla-



mation of the two strip mine pits (totaling 8 acres) was planned as the



"first phase" of reclamation for the park.



         However, subsequent site visitation prior to development of de-



tailed engineering plans and specifications revealed that subsidence con-



trol on  an  additional  17 acres adjacent to the strip pits was required.



Therefore,  the  final project scope  included the 8 acres of pit  backfilling



and regrading and 17 additional acres of surface stabilization.






Funding






         EPA, ARC,  and  Pennsylvania DER - Division of Mine Area Restora-



tion have  all been  involved  in  funding elements of the  Settlers Cabin



Project.  Specific  funding  Involvements have varied  according to the  fol-



 lowing general  project components:   1) the  Settlers  Cabin  agency project



management/institutional  study; 2)  the project  planning and  engineering




studies, which  have been  completed;  and 3)  project construction and  post-



construction  monitoring.



          The  elements  of  the project specifically  focused  on documenting



 agency  cooperation/activities In  a  specific reclamation project have been



 funded  by EPA Region III  as part  of the  pollution  control  demonstration









                                  - 188 -

-------
project.  These funds were passed through to ARC under terms of the ARC/



EPA interagency agreement.  Funds were primarily allocated to the "Insti-



tutional Study" and development of the "Land Use Decision Matrix."



         A number of different funding arrangements were used to fund the



first reclamation/pollution abatement feasibility study, as well as more



recently completed engineering plans and specifications.  The 1976 abate-



ment feasibility study was funded by ARC as a pianning/demonstration proj-




ect.  However, funds for preparation of engineering plans and specifica-




tions came from EPA, ARC, and the State.  The EPA share was a portion of



their total demonstration allocation.  ARC funds were allocated through an



ARC/State "205" funding agreement.  The state 1/4 share was allocated from



"Operation Scarlift" funds which have been supporting Pennsylvania's aban-



doned mine reclamation program for over ten years.  State fund allocation



required  internal project review and processing procedures  Involving the




Division of Mine Area Restoration and the Office of the Secretary for Re-




source  Management.  ARC funds, as mandated by "205," were not directly ad-



ministered or managed by ARC.  The funds were passed through to the U.S.



Bureau  of Mines  In Pittsburgh.  Then DER, as the agency with project man-



agement responsibility,  invoiced the Bureau as  costs were  incurred  (this



involved only engineering, as construction has  not yet  begun).  Engineer-



ing costs were met as an element of the total construction  allocation.



Engineering and construction  fund requests were processed as part of the



same "205" project agreements.
                                 -  189 -

-------
         Estimated construction costs have been revised twice with a third




update now required.  Initially, approximately $35,000 was allocated for



backfilling and regradlng the two unreclaimed strip pits (8 acres based on



1976 estimated costs).  But, the additionally identified 17 acres which



required stabilization, as well as inflated construction costs, increaed



project costs to $110,000 in 1979.  Because of delays  in USBM project re-




view, these funds were not allocated.  These additional delays have in-



creased estimated project costs to nearly $140,000.  Application proce-



dures for an additional funding overrun have just recently been initiated.






Plan Review (Decision-Making)






         Plan review  activities generally occur upon completion of data



analysis and planning and prior to selection of final  implementation




strategies or project construction.  For example, project/plan review  Is



often undertaken  to evaluate the  technical quality of  contracted work.



Review may also  include  an  examination and selection of a  preferred alter-



native  from a number  of  alternative  plans.   In  addition, mandated  reviews,



such  as that of  the responsible "A-95" agency,  must  be completed to ensure



project compatibility with  pertinent growth  management, economic  develop-



ment, and  land  use  plans.   And finally, plan review  is often  a major  part



of  the  public  participation program  that may be associated with  a  particu-



 lar project.



          Plan  review  has assumed an  important role in  determining  the di-




rection  and  progress  of  the Settlers Cabin Project.   Following Is  a sum-



mary of each  agency's project  Involvements  specific  to plan review and



 decision-making.






                                  - 190 -

-------
                    The Appalachian Regional  Commission






         The Commission assumed primary responsibility for review of the



1976 reelamation/abatement feasibility study, as that study was executed



solely under an ARC contract.  ARC circulated the document for comment to



other pertinent agencies and coordinated multi-agency efforts focused



toward selection of a preferred implementation strategy.  As the actual




engineering plans and specifications were completed with "205" funds, the



U.S. Bureau of Mines assumed prime responsibility for review of those




plans.






                           U.S. Bureau of Mines






         The Bureau of Mines has been delegated primary technical project



review responsibility for ARC funded mine restoration projects.  For Set-



tlers Cabin, the Bureau participated in the review of all studies, plans,



and specifications  Including the two project cost overrun requests.  A



mix-up  in Bureau engineering plans and specifications review partially



contributed to the  project delays which caused the second cost overrun.



This problem has been corrected and review is now proceeding.





            Pennsylvania Department of Environmental Resources






         The Division of Mine Area Restoration and the Bureau of Design



are primarily responsible for the state review of feasibility studies  and
                                 -  191 -

-------
engineering plans and specifications.  The State's participation in Set-



tlers Cabin was based on a compromise reached with ARC and EPA after re-



view of the reelamation/feasibiIIty study, as that study had recommended



an approach that would have required construction funding levels far In



excess of planned DER project commitments.



         The Bureau of Design assumes primary responsibility for all rec-



lamation engineering, design, and design review (except mine fires) for



projects being conducted with state funds.  As much of the work  In Penn-



sylvania Is contracted, the scope of this effort often Includes  a detailed



design review.





                   AIlegheny County Department of Parks





         The Parks Department  has been  actively  Involved  in plan review



since  project  inception.   As detailed previously,  It  was  a Department  re-



view of  proposed  plans  that halted  reclamation  in  1969.   The Department



was consulted  throughout  development of the  reclamation/abatement



feasibility  study.   Recently,  the county review of  the engineering  plans



for the  strip  mines  nearly resulted In  another  work cessation  as questions



were  raised  concerning  the compatibility of  planned reclamation and a



tennis complex and  access road planned  to be immediately  adjacent  to one



of the strip mines.
                                  - 192 -

-------
                    Southwestern Pennsylvania Regional
                            Planning Commission


         The Commission was the lead agency for provision of local  "A-95"

review.


                    Southwestern Pennsylvania Economic
                          Development Commission


         Being the Regional Local  Development District, the Commission

conducted project review as part of the "205" funding request process (DER

actually compiled the technical data required for the "205" pre-applica-

tlon and application).


                      Project  Involvement Conclusions


         In summary, plan review and subsequent planning decisions Im-

pacted the project most heavily at two points.

         1)  After  initially deciding to participate in the project
             with EPA and ARC, DER withdrew  Its project support af-
             ter a review of regional and site data presented in
             the Chartiers Creek Mine Drainage Study.  This in part
              led to  Initiation of the more detailed reclamation/
             abatement feasibility study undertaken in 1975-1976.

         2)  DER's review of the proposed abatement of the recom-
             mended  reclamation/abatement plan outlined  in the
             feasibility study was also unfavorable.  The scope was
              In excess of what DER was willing to fund.   In addi-
             tion, DER did not agree with construction of the lime
             treatment facility.  The funding to pollution abate-
             ment benefit ratio also did not meet DER criteria.
             Therefore, a revised first phase project was developed
             which  Included reclamation of the two strip mines.
             This project was  well within the range of projects
              fundable  by DER.
                                 - 193 -

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Implementation


         Under most "205" project working agreements, the states assume

primary responsibility for project implementation - management, construc-

tion supervision, and post-construction monitoring.  As detailed previ-

ously, a state simply invoices the Bureau of Mines as work Is completed.

Plans and specifications are generally developed with a percentage of the

estimated construction cost allocation.  Implementation specifically  In-

cludes those activities required to bring a project  from design through

construction to post-construction evaluation.  The important elements of

DER's project  implementation system include:

            Preparation and/or review of engineering plans prior to
            Initiation of construction;

            Procurement of a I  I required permits such as Encroach-
            ment, Highway Occupancy, "404," and Erosion and Sedi-
            ment Control;

            Procurement of required surface and mineral releases;

            Development of bid packages and selection of
            reclamation contractors;

            Construction monitoring (as required);

            Post-construction monitoring  (as  required).

         The  Department of Environmental Resources Is  organized  according

to  specific functional divisions.  Therefore,  a  number of  Divisions  and

Bureaus  are required  to  be  involved as  projects  progress  from  initial

planning through construction and  post-construction  monitoring.   The fol-

 lowing  flowchart depicts  various Division  and Bureau Involvements for a

typical  reclamation  project.   In addition,  these involvements  are summar-

 ized in  the  following discussions.


                                  - 194 -

-------
Fi()ure SI. Pennsylvania DER abandoned mine
reclamation implementation framework.
                           ACTIVITY
              INQUIRY OR
               COMPLAINT
             PROJECT SELECTION
               AND PLANNING
     CONSULTANT
      SELECTION
    (AS REQUIRED)
                               1
                          DETERMINATION
                          OF RECLAMATION
                              NEEDS
                               I
                            DETERMINE
                            FEASIBILITY
                                I
                             DETERMINE
                             PROJECT
                              SCOPE
                                I
     PREPARE
   DESIGN PLANS
AND SPECIFICATIONS
                                I
                              DESIGN
                            REVIEW AND
                           FINAL DESIGN
                           PREPARATION
                              OBTAIN
                             PERMITS
                          (AS REQUIRED)
                                I
                         OBTAIN PROPERTY
                          EASEMENTS AND
                             RELEASES
                               I
                          PUBLIC NOTICE
                               AND
                           BID SCHEDULE
                        COMPLETE PROJECT
                             FUNDING
                          ARRANGEMENTS
                                1
                        NOTICE TO PROCEED/
                      CONTRACTORS  SELECTION
                                1
                          CONSTRUCTION
                            SUPERVISION
  DER
DISTRICT
 OFFICE
                          POST CONSTRUCTION
                            MONITORING AND
                          FACILITY OPERATION
                         INVOLVED AGENCY

                      Citizen Complaints
                      Regional Agencies
                      Mine Area Restpratlon Project Planning
                                                  Division of
                                                  Mine Area Restoration
                                                  Division of
                                                  Mine Area Restoration
                                                  Division of
                                                  Mine Area Restoration
Bureau of Design
                                                  Division  of Mine Area Restoration
                                                  Bureau of Design
                                                  Bureau of Design
                                                  Consultants
                                                  Division  of Mine Area Restoration
                                                  Acquisition Branch
                                                  Bureau of  Operations
                                                  Division of Mine Area Restoration
                                                  Bureau of Operations
                                                  Bureau of  Operations
                      Bureau of Operations

                      Division of Mine Area Restoration
                      Bureau of Operations
                                                   -  195  -

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                             Project Selection


         The majority of potential  projects selected for reclamation by

DER are initially identified either through citizen complaints or internal

department project planning.  The majority of mine drainage projects iden-

tified are the result of planning and detailed data analysis.  However,

mine fire and subsidence projects are nearly always the result of citizen

or local agency inquiries or complaints.  Relatively few projects have

been Initiated similarly to Settlers Cabin, that  is, site selection for

demonstration based on a site search by a single or multiple cooperating

federal an30state agencies.


                     Determining Need and Feasibility
                    and Preparation of a Scope of Work


         These activities often occur as an  interactive process of  site

analysis, needs determination, work scope preparation, review, and  prep-

aration of  a  final scope of work.  Field visits,  extensive  data review,

and  new data  collection and analysis are undertaken as required.

         For  Settlers  Cabin, ARC,  EPA, and DER jointly examined project

options, assessed the  feasibility  of alternative  options  and  selected  the

final  project scope  to be  implemented.  The  Chartiers Creek Mine  Drainage

Study  and the Settlers Cabin Study commissioned by  ARC  provided  primary

technical  Input  into this  effort.
                                 -  196  -

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                              Project Design





         DER reclamation projects have relied on both Bureau of Design and




outside consultant engineer ing/design services.  Designs are also gener-



ally reviewed by the Division of Mine Area Restoration.  For Settlers



Cabin, the Bureau of Design was primarily responsible for design review of




the consultant-prepared plans and specifications.






                          Obtain Required Permits






         Depending on the nature of a particular project, one or more per-



mits may be required prior to construction.  Erosion and Sediment Control,



"404," and  local construction and excavation permits are the most commonly



required permit types.  When  involved, a design consultant generally ob-




tains all required permits.  Only Erosion and  Sediment Control and Highway




Occupancy Permits are required for Settlers Cabin.






                       Obtain Easements or Releases






         The Acquisition Branch of the Division of Mine Area Restoration




has responsibility for acquiring all required  property owner agreements,



easements,  and  releases.  This has often proved to be a troublesome compo-



nent  In the DER project  implementation system.  This has been  particularly



true  in populated, heavily mined areas such as the Chartiers Creek Water-



shed.   In addition,  Allegheny County has poorly maintained the surface  and



mineral owner records that are required for completing deed searches  for



owner contact.  A complex surface and mineral  ownership pattern magnifies
                                  -  197  -

-------
the time required for owner identification, contact, negotiation, release,




and finally legal review.  In addition, releases cannot be obtained for



adjacent recently mined areas until reclamation performance bonds are



fully returned.



         Through negotiation, surface and mineral easements and releases




are generally obtained.  Police power  is available, but policy has dic-



tated its use only for emergency access, exploratory drilling, never for



initiation of actual reclamation.  Eventually, agreements were reached



with all mineral owners for the Settlers Cabin Project.   In addition, the



county provided  DER with a waiver of responsibility - such waivers are



often obtained when property owner identification efforts have been unsuc-



cessful.  Acquisition Branch personnel estimated a  two week effort was




required to obtain all required releases and  agreements for Settlers



Cabin.



         Prior to project  initiation,  all  property  agreements are  reviewed



by  DER's Bureau  of Legal Services  and  filed  in the  courthouse of the



county  in which  the  project  is to  take place.





                         Public Notice and Bidding





         The  Bureau  of Operations  Is  responsible for  all  public  notices



 for potential  bidding, preparation of  bid  schedules,  bid  reviews,  and  con-



 tracts  preparation  prior to  contractor selections.   Contractor  selection



 for Settlers  Cabin  is  pending  receipt of  construction funding.
                                  - 198 -

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                       Complete Funding Arrangements






         Project funding is the joint responsibilities of the Division of



Mine Area Restoration and the Bureau of Operations.  Potential funding



strategies are often formulated in the early stages of project development



by the Division of Mine Area Restoration.  The Division is an important




point of contract between DER and the various federal funding agencies




(ARC, USBM, and, to a lesser extent, EPA).  The Division also prepares a



pre-appl ication for review by the Local Development District and ARC.  The



Bureau of Operations is actually responsible for final completion of fund-



ing arrangements.  The procedures for ARC funding have already been out-



lined.  In addition to ARC, the State has conducted a number of 50/50 cost



sharing projects with the Bureau of Mines.  These projects are generally



intended to demonstrate new techniques for solving problems such as mine




fires, burning refuse, and subsidence control.  The State has also co-man-



aged a number of projects with the Environmental Protection Agency.  These



projects are generally undertaken as one-of-a-kind R&D projects.



         Settlers Cabin funding has proceeded according to standard "205"



practice.  The Division of Mine Area Restoration prepared the required



pre-application and the Bureau of Operations actually requested funding.



With the exception of the  lengthy USBM review of the  first cost overrun



request, funding activities have proceeded typically  (the Bureau review of



the  first cost overrun request actually resulted in project delays of



near Iy one year).
                                 -  199 -

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                           Contractor Selection


         The Bureau of Operations, following standard state bid review and

contractor selection procedures will  select a construction contractor for

Settlers Cabin.


                         Construction Supervision


         The Bureau will either utilize Bureau field office or consultant

personnel for construction supervision.  For particularly  large projects,

a resident project engineer is often assigned to the site  until work  is

completed.  However, Settlers Cabin  is a relatively small  project, and  it

is expected that the design engineers will provide much of the required

construction supervision.


                        Post-Construction Monitoring
                           and Facility Operation


          As project conditions warrant, post-construct ion  monitoring  may

be required.   Such monitoring  is  often the  shared responsibility of Mine

Area  Restoration and  the Bureau of Operations.  Remedial  construction and

project maintenance are often  required.   In  addition,  the Bureau of Opera-

tions asumes operating  responsibility  for  the  treatment  plants that  are

constructed.


PROJECT SUMMARY


          The  project  is actually  still  underway  as  construction has  not

 been  completed.  Therefore,  it is not  yet  possible  to evaluate the proj-

 ect's effectiveness or increased  site  land use potentials.  However,  at


                                  - 200 -

-------
this point It is possible to examine various agency involvements, inter-

actions, and activities to identify project characteristics which present

implications for the larger reclamation/institutional  management study.

These implications may be best examined in terms of the two initial

objectives of the project.

             Initiation of a study in and an evaluation of agency
            performance in a multi-agency environmental improvement
            project.

            Planning and  implementation of an actual environmental
             improvement project at the Settlers Cabin site.

         With respect to the first objective, the following points quickly

summarize the project up to this point:

         .  EPA, ARC, USBM, and Pennsylvania DER did maintain a
            working  liaison throughout the  life of the project.

         .  Overall, major project  involvements and decisions
             appeared to reflect desired inter-agency cooperation
            and participation.

            The project is instructive as a case study of  insti-
            tutional procedures or mandates of different agencies
             which conflict, and how they may be compromised through
             a process of  negotiation.

         .   However, the  project has only limited value as a proto-
             type for  I oca I-state-regional-federal agency coopera-
             tion.  This limited value  is due to:

             1.  The  project being  initiated as a EPA demonstration
                project.  This EPA project  involvement  is  atypical
                as EPA has generally focused only on developing  new
                reclamation/abatement  technologies.  The project
                was  actually developed with 208 and 303 water re-
                source planning funds.

             2.  ARC  also  atypical Iy functioned as a project  ini-
                tiator.   ARC funded the  Initial abatement  study
                as a special planning  project and the  construction
                                  -  201  -

-------
                with  205 funds.   The majority of  205 projects were
                Initiated by regional  or state agencies and not by
                ARC.

            3.   The majority of  the devastated land which is in
                need  of reclamation in Appalachia is privately held
                and not public land.  Settlers Cabin is being
                actively managed and developed for public use.

         In addition, the types  and numbers of agencies involved in AML

reclamation have changed since this project began.  For example, ARC is

reexamining its commitment to reclamation in light of OSM and the states

assuming primary leadership roles in such projects.  In addition, recent

EPA mandates are directing state and regional water resource planning

agencies to lessen their involvements In mining related pollution abate-

ment planning.

         Addressing the second objective, the project did result  in the

documentation of major mining related environmental problems/hazards with-

in the park.  Alternative reclamation and abatement schemes  have  been de-

veloped and a scope of work  for construction prepared.  The  engineering

design has also been completed but  construction has as of yet  not  been

completed.


                      Review and Evaluation  of Agency
                            Project  InvoIvements


         Settlers  Cabin  Is  a useful  case study for  identifying the charac-

teristics  of the reclamation planning  institutional  framework which either

supported  or  inhibited  the  various  Involved  agencies  In  their project  ef-

forts.  However, using  the  project  to  draw  larger conclusions about agency
                                 - 202 -

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operations and effectiveness or the effectiveness of the overall reclama-

tion planning system must be done so cautiously.  Many aspects of the

project are not indicative of numerous other such reclamation projects

which have been initiated and successfully completed.

         A summary overview and evaluation of agency project involvements

is now presented.  The discussion is structured around the five following

project components:

         .  Project  Initiation
            Planning
         .  Funding
         .  Decision-Making
            Implementation

         Within these five components the project will be described  in

terms of the background  information  included in the "Institutional Frame-

work" and  in terms of implications for using the Land Use Decision Method-

ology (LUDM) on the  Settlers Cabin site.


Project Initiation


         The project was  initially formulated as a cooperative  multi-

agency reclamation/abatement effort.   Institutional arrangements  for proj-

ect planning and  implementation were at  least tentatively completed  even

prior to selection of the site,   in the  majority of reclamation projects,

the opposite case  is true as a problem or hazard Is usually  Identified

first and  then the  institutional  arrangements are developed  to  abate that

problem or hazard.

         The site  was actually selected  after EPA and ARC examined and

rejected a previously selected site  in West  Virginia.  Pennsylvania  DER
                                  -  203  -

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assisted with selection of Settlers Cabin as a potential project site.



With Settlers Cabin as the project site, the involvement of a number of



agencies in the project was assured.  In addition to EPA and ARC, other



agencies or organizations which became  Involved in the project included



Pennsylvania DER, the regional LDD, and the County Departments of Parks




and Public Works.  Selection of a privately owned site would have elimi-



nated the two country departments but would have allowed for the  involve-



ment of local or regional zoning and planning boards.  However, selection



of a privately held site would have precluded ARC from contributing  funds



to reclamation of surface mined areas as ARC "205" funds may not  be



utilized for restoring surface disturbances from mining on  private  land.



         In  summary the project began with EPA and ARC as primary project




sponsors and DER as the  lead  agency for reclamation  planning and  implemen-



tation.  In  addition, the U.S. Bureau of Mines and the  Allegheny  County




Department of Public  Works  became  involved because of  institutional  links



to other agencies and the Parks Department as the owner/developer of the



site.






Planning






         Site planning  activities  for the  Settlers Cabin  site  proceeding



on  two  para I I el/coordinated fronts.  Park  planning and  reclamation  plan-



ning  functions were  never  really  structured  Into  a comprehensive planning



effort.  However, each  effort did  apparently  consider  the other  planning



perspective  during the  development  of the  site  plans which were  Imple-



mented .
                                  - 204 -

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         The planning and design of recreational  facilities did not ex-



plicitly consider planned or potential  reclamation.  Facilities were de-



signed so as to avoid unreclaimed potentially troublesome portions of the



site.  However, one exception to this are tennis courts which were sited



using an ungraded strip pit associated grade change to actually lower con-



struction costs.  In general, facility plans were not directly linked to




required reclamation.



         Detailed reclamation planning began with the ARC sponsored recla-




mation/abatement study.  This study was undertaken to provide an updated



detailed description of mining related problems within the park.  A pre-



viously completed "Operation Scarllft" study contained generalized region-



al data which was judged to be inadequate for the detailed reclamation




engineering which was planned.   In addition, early in the project DER



withdrew its support for a reclamation project in the park to focus on



more critical problems  in the region.  The study, then, was also  initiated



to provide DER with additional documentation on which to base a final



project participation decision.



         DER initially  withdrew  Its support because of the results of  a



project evaluation procedure which they utilize for project selection.



This procedure  is based  primarily on cost effectiveness and amounts of



pollution abated.   Increased  land  use potentials,  proximity to urban



areas, and other such  less tangible reclamation benefits are not  explic-



 itly considered  In DER's reclamation planning.  Therefore, reclamation



planning for multiple or secondary benefits  is difficult within DER's



reclamation  planning framework.
                                 - 205  -

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         The ARC sponsored study resulted in a recommended reclamation/



abatement plan for the site.  This plan was comprehensive requiring a



funding level  over ten times greater than the construction funds which



were eventually committed.  However, a comprehensive reclamation/abatement



project which would have eliminated all of the site's major problems was



never really envisioned by any of the  involved agencies.



         Construction of a treatment plant was an integral element of this



overall plan.  However, this was totally opposed by the state as unabated



pollution sources upstream from Pinkerton's Run would have continued to



degrade water  in the receiving stream  even after plant construction.





Project Funding





         ARC formalized its commitment to the project when  it authorized



the reclamation/abatement study which  was prepared.  This study was  not



originally  planned as ARC, EPA, and DER  had hoped to utilize existing  data



from the previously completed "Scarlift"  study  in developing suitable  site



reclamation strategies.



         Once  the study was completed, DER  agreed to provide only  minimal



construction  funding -  It's 1/4 share  for backfilling two upgraded strip



pits.  This  funding  level reflected the  relatively  low  priority which  DER



assigned to  the  project.  A consultant was  contracted to  prepare plans and



specs  for  the  proposed  reclamation.   Initial  fleldwork  revealed that there



was  subsidence associated with  the two pits.   Subsidence  control  for these



areas  was  added  to the  scope  of  work.
                                  -  206  -

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         In addition, funding delays resulted in two cost overruns, the



second of which was recently noted.  The overruns were primarily associ-



ated with delays in Bureau of Mines plan review and sign-off which are



required in support of ARC sponsored reelamation/abatement projects.






Decision-Making






         A number of key decisions determined the eventual scope of the




proposed construction.



         First, the site was selected somewhat intuitively based on the



professional judgement of a number of involved agency personnel and not



through any systematic site evaluation or selection effort.  Settlers



Cabin's  location, ownership, and mining  history appeared to suit per-



ceived site requirements for the project.  ARC, EPA, and DER collaborated



on site selection.




         Once the site was selected, EPA and ARC took the  initiative  in



determining a suitable scope of work for the project.  When DER expressed



concern about the older data being utilized, ARC Initiated their abatement



feasibility study.



         Upon completion and review of this study's findings DER committed



to a minor construction effort - backfilling the strip pits.   DER  decided



to assign  a low priority to the project  based on the severity  of the  Iden-



tified problems as  well as the overall uncertain abatement  benefits to  the



watershed.
                                 - 207 -

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         Under "205" projects,  ARC's funding commitments are directly

linked to the state's 1/4 share.  Therefore, the final  project scope con-

sisted of $30,000 in state funding and $100,000 of ARC funds once the two

cost overruns were accounted for.


Project Implementation


         A number of required implementation tasks have been completed.

Most  importantly, property releases have been obtained.  Problems which

were encountered  in this effort were caused by two factors:

            The site  is  In Allegheny County which in general has a
            very complex mineral ownership pattern; and

            Allegheny County has  Implemented a cumbersome  inade-
            quate system, for maintenance of surface and mineral
            ownership records.

         DER  has  historically encountered problems and  delays  In obtaining

property releases In  more developed areas of the  state.   In  addition,  ac-

tive  mining  In the  watershed Is  continuing  on  a number  of  sites which  adds

to  the  reluctance of  owners to  release their surface or mineral rights for

reclamation.  To  obtain  these rights, a  lengthy process of owner  identifi-

cation, establishing  contract,  and  state-owner negotiation is  nearly al-

ways  required.

         No  major difficulties  were encountered  in obtaining the  required

"Erosion and  Sediment Control"  and  "Highway Occupancy"  permits prior to

construction.  In Pennsylvania,  obtaining  "Stream Encroachment"  permits

has often  caused  major  reclamation  project delays, as  lengthy state and
                                  - 208 -

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local  review periods are required prior to permit issuance; but an "En-

croachments" permit was not required for this project.


IMPLICATIONS FOR THE LAND USE DECISION METHODOLOGY


         Examined in the context of the "Institutional Framework" the

Settlers Cabin project presents an illustrative case study of  land use de-

cision making for mined lands.  This discussion identifies those aspects

of the Settlers Cabin project which would have influenced and  been Influ-

enced by actually using the LUDM in planning the project.  This discussion

focuses on the three following areas:

         .  The key land use decisions which shaped the eventual
            course of the project.

         .  Land use related benefits which will be derived from
            the proposed reclamation.

         .  The potential benefits which would have been derived
            from utilization of a planning tool such as the LUDM
            during the planning of the park.

         The first two points examine the project as  it occurred.  Obvi-

ously,  land use related decisions were made throughout the planning  and

development of the park facilities, as well as during formulation of pro-

posed reclamation and abatement plans.  As well, benefits will  be derived

from the  limited reclamation which  is being  implemented.

         Point three  is more speculative as  it  identifies points  in  the

project at  which utilization of a planning tool such  as the LUDM  would

have  likely altered the eventual outcome of the project.  This material  is

presented primarily to additionally establish  a hypothetical  context for

applying the LUDM to the Settlers Cabin site.
                                  -  209 -

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Key Land Use Decisions


         The following elements of the Settlers Cabin project appear to

have been the key determinants of existing land use patterns and future

development plans for the park.

         1.  The park was initially assembled from privately held
             parcels by a non-profit corporation during the  late
             1950's.  The land was donated to Allegheny County.
             Projected growth  in the region and the availability of
             inexpensive unreclaimed mined lands in the Chartiers
             Creek Basin contributed to initial selection and  land
             procurement for the Allegheny County Park Sytem which
             includes a ring of regional parks around Pittsburgh.
             Of these, Settlers Cabin was the major park planned
             for Western Allegheny County.  Park development or
             expansion utilizing unreclaimed mined land had  been
             undertaken by the county on a number of park sites.

         2.  The initial park master planning was completed  with
             only general consideration of existing mine and pollu-
             tion problems.  No specific assessment of the nature
             and extent of these problems was undertaken until
             1969.  At that point, the county completed an  inven-
             tory to take advantage of "Operation Scarlift"  funds
             which were available up to that time.  More recent
             facililty construction and planning have utilized the
             detailed mining/pollution data which are now avail-
             able.  For example, subsidence-prone areas have been
              Identified and considered  in park  facility planning.

         3.  The comprehensive reclamation/abatement strategy
             developed  In  1976 explicitly considered park master
             plans.  Plan development has focused on coordination
             of  reclamation and  park planning  activities rather
             than development  of  an  integrated  park  facility/rec-
              lamation master  plan.  However, the feasibility study
             provided a suitable  data base for  evaluating the  po-
             tential  impacts  of  unreclaimed mines and associated
             pollution of  new facility  development  In the park.
                                  -  210  -

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         By the 1976 reclamation/abatement study most major facility de-



velopment decisions for the park had been implemented or finalized.  So at



that point it was only possible to develop a reclamation strategy that re-



sponded to these implemented and proposed development plans.  Comprehen-



sive facility/reclamation planning was never really undertaken during the




Settlers Cabin project.






Reclamation Benefits






         The reclamation strategy which is being implemented will  improve



the general aesthetics, surface stability, and overall utility of approx-



imately twenty-five acres of land In the park.  The two surface mines bor-



der existing and proposed picnic and field sport facilities.  Therefore,



twenty five additional acres of stable more aesthetic park  land  is the



primary benefit which will be realized from the reclamation.  Access be-




tween the two picnic areas and other sections of the park will also be



improved.  There are also currently no plans to actually develop either of



the reclaimed sites.



         At Settlers Cabin reclamation has not been required to  provide



additional developable  land as the majority of the park was not  disturbed



by mining.   In addition, a  larger percentage of this  unreclaimed acreage



has been naturally  stabilized and vegetated.  Had the total park area been



smaller or past mining more intense then reclamation  would  likely  have



been required to provide necessary  land for development.  As  it  stands



now, the park encompasses an area of over 1,000 acres of which 700 acres



have not really been  seriously  impacted by the mining which has  occurred.
                                 - 211 -

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Potential Use of the Land Use Decision Methodology (LUDM)





         At this point In the project, there is actually little applied



value to be realized in applying the LUDM to the Settlers Cabin site.  The



development of the park is nearly completed with  little opportunity re-



maining to affect future  land use decisions.  However, it is valuable to



identify the points at which such a procedure could have assisted  in the



park development and reclamation planning which has occurred.



         A planning methodology such as the LUDM has  its greatest  utility



at the very beginning of  a project.  At that point  in the Settlers Cabin



project, a number of  important  land use analyses could have been com-



pleted.  Prior to assembly of the  land and donation of the county, the



site could have been evaluated  for recreational sltability either  as a



single site or with a number of possible  alternative  sites.  And secondly,



prior to  initiating actual site planning  the County Parks Department could



have re-examined the  development suitability of the park.  Within  the  park



boundary  it may also  have been  of  value to examine  the development suit-



ability  of various  sub-areas of the overall  park  area.   In that way  the



LUDM could have been  used for  determining land  use  ratings for areas with-



 in  the  boundaries of  the  park  - prioritizing the  nature  and  extent of  the



environmental  problems  which  have  been  Identified.



          The  next  discussion  presents the application of the LUDM  to the



 Settlers Cabin site.   The section  is  structured to  highlight the following



 elements of  the project:
                                  - 212 -

-------
         .   The procedures and data required to actually Implement
            the LUDM.

            Results of the recreation suitability analysis.

         .   Suitability analysis for a number of alternative land
            uses.
APPLYING THE LUDM TO SETTLERS CABIN


         The LUDM framework and supporting analysis matrix are utilized to

evaluate recreational development suitability of the Settlers Cabin site.

For this application, the procedures presented in the previous "Land Use

Decision Methodology" section were explicitly utilized.

         Prior to presenting the various components of the LUDM  it  is  im-

portant to reiterate a couple of points specific to the potential utility

and limitations of the LUDM and the matrix.  For example:

            The LUDM is  intended to function as a general site
            analysis tool.   It has no applied utility for evalua-
            tions of existing or planned site developments.  The
            LUDM is not  suitable for design evaluation -  it  Is for
            general site selection/analysis.  The LUDM is also a
            framework for decision-making.  Specific data para-
            meters, ratings, weightings and analysis schemes may
            require adjustment for modification for application  to
            specific sites or regions.

            The matrix  is primarily used as a tool for concisely
            depicting the environmental/socioeconomic attributes of
            a site or alternative sites, structuring those
            attributes  in a  decision making framework.

            The matrix  Is but one option for supporting the  LUDM.
            A matrix format  was selected because matrices are suit-
            able for examining a range of  different but related
            data types.  Within the LUDM framework, map overlay  or
            statistical  systems could be utilized equally as well.
                                 - 213 -

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         The remainder of this section presents the application of the



LUDM to Settlers Cabin.  This application specifically followed the LUDM




structure and procedural  outline which was previously introduced.  This



application discussion is organized according to the six main elements of




the LUDM - Identified Development Needs;  Identify Principle Constraints;



General Site Screening;  Institutional Constraints; Detailed Site Analysis;




and Impact Analysis.






                         Identified Development Need






         For the LUDM to have utility  in  land use decision-making  a  local,



regional, or state site  development need  or  set of site development  needs



will be  first  identified.  Such needs  are generally  identified  and quanti-



fied prior to  initiation of  any site  identification/evaluation  effort.



For this case  study,  recreation has been  identified  as  a  regional  site



development  need, and  the site  is  being examined  for potential  suitability



for siting a major regional  park facility -  Settlers Cabin.






                       Identify  Principle  Constraints





         This  component  Is  structured  to  facilitate  an  initial  site  analy-



sis  based  on a set of general  regional  environmental characteristics.  The



key  to this  Is the  Identification  and  analysis  of the landscape components



which  are  key  regional  indicators  of  development  suitability.  For ex-



ample, in  a particular region,  potential  priority sites might include all



moderately sloping,  forested, undeveloped land.  Likewise, typical region-



 ally constrained areas may include floodplains, wetlands, and steep



 slopes.





                                  - 214 -

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         The effort should focus on Identifying the key land use con-

straints for the region or particular area which is being examined.  The

county and regional environmental and land use surveys which have been

completed throughout Appalachia  in support of regional "HUD 701" planning

may be suitably utilized in this analysis.  Using such data a typical

"constraints" analysis can be developed including planning considera-

tions such as:

             Identification and elimination of HUD designated flood-
            plains from further consideration for development.

             Identification and noting of other identified flood-
            plains (from USGS, SCS, etc.) for potential elimina-
            tion.

             Identification and elimination of slopes greater than
            30$ from further consideration for development.

             Identification and elimination of  landslide prone areas
             from further consideration for development.

             Identification and elimination of built up areas from
             further consideration for development.

         As  deemed appropriate, other environmental resource and hazard

considerations may be  included  in this analysis.  Such typically identi-

fied areas  Include prime agricultural lands, groundwater recharge areas,

prime wildlife habitat, and unique cultural features.   In addition to

steep slopes  and floodplains, other common hazard considerations include

earthquake  potential and air pollutant concentration  areas.

         This  level of analysis  is  Intended to serve  a "honing  down"  func-

tion with the end  result being a set of sites or portions of a  region

which will  be subjected to rigorous site  analyses  in  preceding  steps of

the LUDM.
                                 - 215 -

-------
         This "site screening" focuses on those factors which are suit-

abllity determinants for mined as well as unmined sites.  The factors

which are included in this analysis address:  site acreage and configura-

tion; the presence of various natural  hazards; and proximity and access to

regional community facilities and environmental resources.  The factors

included In the matrix (Figure 33) were utilized for applying the LUDM to

Settlers Cabin.  These factors are Intended to serve as first-cut Indica-

tors of site developabiIIty for alternative land use proposals.

         The following list summarizes the site screening factors which

are utilized as we 1 I as  a rationale for their  Inclusion In the Settlers

Cabin Analysis.

                                              Rationale
Factor
         Acreage
          Site Width
          Flood  Hazard


          Slope  Hazard
          Adjacency to
          Active Sur-
          face Mining

          Adjacency to
          Active Deep
          Mining
                   Site acreage is a key determinant of
                   land use plan feasibility - acreage
                   requirements vary for particular
                   land uses.

                   Land uses have general site config-
                   uration requirements  (i.e., distance
                   for noise abatement associated with
                   an  industrial facility).

                   Intensive land uses should not be
                   encouraged on flood prone areas.

                   Land uses are generally  limited by
                   slope (I.e., grade maximums for
                   roads, sidewalks, game fields,
                   etc.).

                   Compatibility with planned  land
                   use(s).
                   Compatibility with planned  land
                   use(s).
                                  -  216  -

-------
         Proximity to          Used as an indicator of population
         Incorporated          location for  work force, market,
         Areas                 and service considerations

         Adjacency to          Indicator of  site accessibility.
         Highway

         Adjacency to          Indicator of  site accessibility.
         Ra iI road

         Access to             Key Infrastructure components.
         Water/Sewer

         Access to             Industrial site feasibility factor.
         River

         Access to Rec-        Indicator of recreation potential.
         reational Water

         Depending on site location and conditions, additional or fewer

factors may actually be appropriately utilized for completing this first-

cut site analysis.   In addition, a number of these factors Impact various

land uses more significantly than others.  A generalized weighting is

therefore  incorporated into the matrix to address these  land use differ-

ences.  However, this weighting scheme  is general and may be refined or

restructured depending on specific requirements of the LUDM application.

         For Settlers Cabin, a number of different data  sources were

utilized to complete this analysis.  The following list  summarizes these

sources.

            Factor                         Data Source

         Acreage               Settlers  Cabin Park Master Plan.

         Site Width            Settlers  Cabin Park Master Plan.

         Flood Hazard          HUD Floodplain Maps (FIRM), USGS 7.5
                               Minute Quadrangles.
                                  - 217 -

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        Slope Hazard
        Adjacency to
        Active  Sur-
        face Mines

        Adjacency to
        Active  Deep
        Mines

        Proximity to
         Incorporated
        Areas

        Adjacency to
        Highway

        Adjacency to
        RaiI road

        Access  to
        Pub I !c
        Water/Sewer

        Access  to  River

        Access  to  Rec-
         reational  Water
USGS 7.5 Minute Quadrangle and Slope
Analysis.

Personnel Communique - David Hogeman
(DER).
Personnel Communique - David Hogeman
(DER).
Allegheny County highway map.



Allegheny County highway map.


Allegheny County highway map.
Allegheny County Planning Department
water/sewer map.
Allegheny  County  highway map.

Allegheny  County  Parks  Master  Plan.
         These sources are only worthy of note as they are indicative of

the data sources which may be tapped for completing such analyses through-

out Appalachia.  Nearly everywhere a combination of published data, gener-

al information maps, and consultation with experts will yield this site

information.

         To complete this analysis a series of simple overlay maps may be

prepared for displaying this data for comparative analysis between alter-

native sites and  land uses (Figure 32).   In composite, these factors pro-

vide a general screening mechanism for evaluating sites based on key loca-

tlonal and site characteristics.
                                 - 218 -

-------
Figure  32.  Site conditions.
      — LEGEND —
           Flood Plain
           Steep Slopes

-------
         Results of the application to Settlers Cabin are depicted in Fig-

ure 33.   To better understand these results it may be valuable to review

the operational  mechanics and theory behind the matrix.

            The matrix is structured to facilitate analysis of a
            number of site and regional environmental, institution-
            al,  and mining related conditions in terms of probable
            impacts on planned land uses for mined sites.

         .  Site factors are referred to as evaluation factors
            which are aggregated into three data  levels based on
            considerations such as acreage, proximity, and problem
            severity.  0, 1, and 2 values are assigned based on the
            extent to which each factor is  likely to negatively  im-
            pact a proposed  land use development  strategy.  A value
            of 0 reflects a suitable condition and a 2 a  less
            suitable site condition.

          .  The factors are then evaluated  specifically to individ-
            ual land uses.  Three value levels are assigned with  1
            being the  least  impact and 3 the greatest on  that par-
            ticular  land use  (i.e., subsidence Is a greater deter-
            rent to  industrial development  than to passive recrea-
            tion).

            The evaluation  factors are multiplied by the  land use
            weightings.  For  each  land use  option the  results are
            then summed.

The ratings for alternative  sites and/or  land  uses may be then compared  or

evaluated, and  planning may  proceed accordingly.

          The  following  general observations were  made  concerning  the

Settlers  Cabin  site  profile which emerged  based on these  "site screening"

factors:

            Based  on acreage and  configuration, the  site  was  rated
            as  Ideal  for  the proposed  development.

            Flooding and  other natural  hazards are  not a  critical
            concern  at Settlers Cabin.
                                  -  220  -

-------
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                                                  -  221  -

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            Based  on  access and  proximity factors,  the site ap-
            peared to be welI  suited  for recreational  development
            (as the majority of  negative impact factors were rated
            as low or moderate).  These ratings reflect the site's
            location  in a rapidly urbanizing portion of Allegheny
            County where access  and infrastructure  parameters rated
            highly.  Such a context Is atypical  for the majority of
            mined  sites in Appalachia.
                         Institutional  Constraints
         A complete "Institutional  Constraints" analysis was not crucial

to the Settlers Cabin project as the site involved public lands and there-

fore was not directly subject to most local  plans or ordinances.  The pri-

mary institutional consideration for the project was actually conformance

of the site development plans to the overall county parks master plan.

However, such conformance was assured during park planning and facility

design.

         For Illustrative purposes other Institutional considerations were

also examined  In terms of their potential impacts had the site been pri-

vately owned.  For example, comprehensive plan conformance  is not required

as there are currently no adopted comprehensive plans for Allegheny County

or any of the municipalities which border the  site.   In addition, zoning

ordinances  for site  adjacent areas provide  a homogeneous  land use context

for the site as "industrial designated"  zones  surround the  site.  The

existing  land  use  pattern around the site is very diverse (Figure 34).  As

such, nearly any  development strategy short of heavy  industry or a major

commercial  development would be compatible  and feasible within  this  land

use context.
                                  -  222  -

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Figure 34-  Land  use.
     — LEGEND —

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         This "Institutional  Constraints" analysis for any given site may

be accomplished quite simply.  A compilation of a I I  potential  land use/

development restrictions Is required.  At a minimum, this compilation

should Include:

             If the land is publicly owned, all agencies, regula-
            tions, or directives potentially  Impacting reclamation/
            development planning for that land.

            -  The land management agency(ies).
            -  General services agencies  (construction,
                 planning, etc.)
            -  Environmental  control agencies (permitting,
                 planning).
            -  Mining reclamation and abatement agencies
                 (regulations, 522 status, EIS status,
                 permits).
               Infrastructure planning agencies (sewer, water,
                 power, pianning).

             If the land  Is privately owned.

             -  Mining reclamation and abatement agencies.
             -  Environmental  control agencies.
             -  Planning agencies (comprehensive plans).
             -  Zoning Board  (ordinances,  hearings,  variances).
               Infrastructure planning agencies.

          .   Any  regulations  or  activities which potentially  impact
             potential  land disposal  or development  must  be  identi-
             fied  and  weighed during  this  site evaluation  effort.


                      Environmental,  Health  and Safety
                      Problems  (Detailed  Site Analysis)


          Previous  site  analyses utilized  evaluation/analysis  site screen-

 Ing  factors which  are equally  appropriate for mined and  unmined sites.

 However,  this  site analysis  component  focuses the LUDM on site  mining

 related  disturbances and Impacts.   The parameters which are utilized are
                                  - 224 -

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specifically mining related - surface disturbances, underground mining

impacts, off-site impacts, and associated water and visual  pollution.

         For Settlers Cabin this analysis was completed utilizing data

from the previously discussed Chartiers Creek Scarlift Study and the ARC-

sponsored reclamation/abatement feasibility study.  Nearly all  of the data

which were required to complete this analysis were available from these

sources.  However, throughout most of Appalachia such studies are not gen-

erally available.  If these studies had not been available for the site,

the following alternative data collection strategy could have been imple-

mented to provide a satisfactory data base for Settlers Cabin.
             Site Factors

         Unsealed Mine Openings



         Polluted Mine Drainage


         Subsidence Potential



         Blowout Hazard
         HighwalIs,  Impounded
         Water,  SpoiI Config-
         urations, Vegetation

         Toxic Spoil, Overburden
         Refuse
  Alternative Data Sources

General  field reconnais-
sance; USBM Mine Map Reposi-
tory In Pittsburgh.

Field sampling program; gen-
eral field reconnaissance.

General  field reconnais-
sance; USBM Mine Map Reposi-
tory.

USBM Mine Map Repository;
general  field reconnais-
sance.

Aerial photographic  inter-
pretation; general field
reconnaissance.

Field sampling program;
aerial photographic  inter-
pretation; general field
reconnaissance.

General field reconnais-
sance.
                                 - 225 -

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         Structures                    General  field reconnais-
                                       sance; aerial photographic
                                       Interpretation.
         Depending on the acreages and locations of sites to be evaluated,

required field work can usually be quickly completed.  A site reconnais-

sance based on visual observation and simple field analysis methods (I.e.,

pH) will supply the required data.

         It is also worth noting that such data will become more avail-

able for many parts of Appalachia in the years to come.  The state AML  in-

ventories and planning programs will be collecting and analyzing a great

deal of pertinent mine site information.

         To complete this analysis  for the Settlers Cabin site, a number

of map overlays were prepared  for summarizing pertinent  data.  Figure 28

presented a portion of this data base as  it was transferred to common

scale overlay maps.  Following are  the procedures which  were utilized to

construct the data base  for Settlers Cabin.  The actual  results are sum-

marized  In Figure 33.

          .  Unsealed mine openings  - The  ARC-sponsored  study mapped
            and  identified on-site  deep mine openings.   Their  area
            of  impact  represented  less than one percent of  the
            total site.

            Polluted mine drainage  - Polluted  surface  water was
             Identified In the  ARC study.   Twelve miles of  inter-
            mittent  and  perennially polluted streams were  Identi-
            fied  during  a summer of 1976  sampling  program.

            Subsidence hazard  -  Extent of potential  hazard  was es-
            timated  from maps.  Actually  subsiding  areas were
            mapped  in  ARC report.
                                  -  226 -

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            Blowout  hazard  -  Was  not analyzed  in  existing  data.
            Review of  maps  appear to indicate  that blowout hazard
            is low.

            Impounded  water - Small  unplanned  ponds were identified
            In ungraded areas by  review of ScarIIft and ARC report
            text and maps.

            Spoil  configuration - Ungraded areas  were remapped from
            ARC study  maps.  Extent  of regrading  was estimated
            based on descriptions of mined areas  in the two re-
            ports.

            Toxic spoil - Estimated  based on mine descriptions In
            the ARC  report.

            Vegetation - Estimated from land cover maps, 7.5 minute
            quadrangle maps,  and  the site description included in
            the ARC  report.

            Overburden - Percent  sandstone was estimated using geo-
            logic data included in the Scar lift and ARC reports.

         .   Refuse piles - No major  refuse disposal sites were
            identified.

            Structures - No abandoned mine structures were
            Identified.

         Resultant site values for each of these factors were aggregated

into the three data  levels included  In the matrix.  Gray overprints hlgh-

I ight the ratings which were  assigned to each factor (Figure 33).  For

eventual compositing 0, 1, and 2  values are assigned to the corresponding

aggregated  factor values.

         For numerically compositing the resultant values for a specific

land use such as recreation the ratings (0, 1, and 2) are multiplied by

the  land use weightings for recreation.  The  individual weighted values

are then summed yielding a composite recreational site suitability rating,
                                 - 227 -

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In and of itself this value is essentially meaningless.  To be of any real

value in a decision-making context the rating must be compared against

other ratings or against predetermined site suitability standards.  This

may involve looking at the land use ratings for a number of sites to

select the most suitable site.  Such an analysis places alternative sites

on a continuum of  least suitable to most suitable for development assuming

that the greater the mining related problems which must be overcome or

dealt with are, the  less suitable the site is for development.  The rating

may be compared against alternative land use ratings for the same site.

Another operational  alternative is using the matrix to develop qualitative

profiles of sites  not relying on numerical values or aggregated weight-

ings.  For Settlers  Cabin  upon completion of this quantitative analysis  a

qualitative profile  of  site  Implications for recreational  development was

completed.  The  important  elements of the profile for  Settlers Cabin  in-

clude:

          .  On-slte  unsealed  mine openings were  Identified, but  due
            to  their location and relatively  low  number, they do
            not exert major  negative  impacts over most of  the site.

          .  Streams  on  the site are generally moderately polluted
            by  acid  mine  drainage.

            Subsidence  had occurred and  evidence  points to the
            potential  for  continued  location  subsidence  In the
            future.

            Ungraded strip pits were  partially  naturally reclaimed
            and as such present only  moderate  to  slight regrading
            problems.

          .  Geologic data points  to  localized  surface  toxic spoil
             areas.

             No  major refuse  areas or  abandoned  structures  were
             identified.



                                  -  228  -

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         The rating scheme permits site/1 and use relationships to be ex-

plicitly examined and evaluated.  Using the rating scheme, the resultant

summed value is a composite site screening. Institutional constraints, and

on-site mining/pollution rating for the site.  The site rating which re-

sults may range from 0 (the ideal  site) to 168 (totally unsuited for any

land use).  The majority of mined sites will fait into a  low to mid-range

on the rating continuum.  A rating of 25 resulted from the application to

the Settlers Cabin site.  This value is well within the  low range (few

significant deterrents to development) of possible site ratings.  A number

of factors contributed to this  low rating.

         Settlers Cabin was assigned unusually positive access, proximity,

and Infrastructure ratings because of the site's  location within the

Pittsburgh metropolitan area.  These values were atypical Iy high for aban-

doned mines in Appalachia as relatively few such areas are located within

heavily developed metropolI tan areas.

         Perhaps more critically, the site  Is  large (over 1000 acres) with

most of this acreage not having been seriously disturbed  by past mining.

 It appears that the  impact of the problems which are present  is diffused

when considering the entire site.  Briefly,  it  is felt that this  low

rating  (high suitability) most  reflects the  following three site charac-

teristics:

            The site's  location In an urbanizing metropolitan area
            where development demand  Is  likely  high and  Infrastruc-
            ture availability and access are also positive develop-
            ment factors;
                                 - 229 -

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         .   The site's mining related environmental,  health,  and
            safety problems are generally not serious; and

            The problems which are present do not impact the capa-
            bility of the majority of the site to support recrea-
            tional  development.

         These results suggest that the Settlers Cabin site was an appro-

priate choice for the development that has occurred.   If the site had been

smaller and/or the mining more intense, the resultant site rating would

have been significantly higher.  For example, If the matrix was applied to

specific heavily mined portions of the overall site, those portions would

be rated as much less suitable for development.  Therefore, it  is the di-

lution of these problems over the entire mined and unmined portions of the

site which caused this  low rating.


                           Alternative Land Uses


         For  illustrative purposes the Settlers Cabin site was  also eval-

uated  for suitability for a  number of alternative  land  uses.  This  is done

to present the site  analysis  results  for  all  the  land uses which  are  In-

cluded on the matrix.   In addition.  It illustrates potential  limits to the

use of the matrix without possible additional project specific  refinement.

         When evaluating the suitability  of  a site or sites for alterna-

tive  land uses the matrix always  scores  In  favor of  the least  intensive

 land  use.  This  is obviously the  case because the  site  requirements  for

unintensive  uses  are much  less stringent  than those  for development  uses

such  as  heavy industry.
                                  - 230 -

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         This inherent pattern can be short circuited.  For example, ad-



ditional  criteria for comparing alternative land uses may be developed.



This could be done in a number of ways.  Perhaps the best way would be



to construct hypothetical  profiles of poor, suitable and excellent sites



given the site requirements of each land use and then compare the values



for actual sites to values along this hypothetical continuim.   In this way




a site could be judged to be most suitable for a particular  land use even



though other land uses may score more favorably.  The point  is that the



LUDM is meant to be a framework for site analysis not a static analyses



tool.  Matrices or any number of other analysis tools may be adequately



utilized, modified or developed for use in the LUDM framework.   In fact,



the LUDM  is perhaps most useful for organizing complete site appraisals




and not as a detailed selection methodology.




          The ratings which resulted from appl ication of the matrix to



Settlers  Cabin ranged from 17 for forestry to 48  for  industry.   All of



this range is well within the  low range of possible scores.  This  is



because the site was actually only partially disturbed and  in fact  is



suitable  for any  land uses which would not significantly conflict with



adjacent  land uses.



          Again, there was a pattern of decreasing suitability with  in-




creasing  land use  intensity.   This was the case as the matrix weighs  in



favor of  less  Intense  land use options as  such  land  uses are nearly always



suited for development on mined  land.  However,  If need be,  a revised



weighting scheme could be developed to add greater emphasis  to  Intense



 land  use  options.










                                 - 231 -

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Impact Assessment





         Actual  impact assessment is difficult as a specific site develop-



ment/reclamation strategy was not developed as part of this project.  Re-



sults of the matrix did indicate that forestry, light residential, and



recreation were the most feasible potential land uses for the site.  All



three options could be implemented with a minimum of reclamation due to



the  large unmined acreage which comprises the majority of the site.



         An evaluation of alternative plans must consider that although



site development factors are being addressed by other LUDM components,



otherwise feasible plans may potentially Impact key regional resources or



socioeconomic factors and such  impacts should be explicitly considered.



 In addition, new reclamation/development may be difficult  in the context



of various  land management schemes, plans, or regulatory contexts  which



 inhibit construction activity.   In addition, apparent secondary effects



may  turn out to be unacceptable In given situations  (I.e.,  Increased  traf-



 fic  through an existing residential area due to a  new recreation  develop-



ment).  Therefore, this component of  the LUDM  is also conceived of as a



 filter  for  testing alternative  plans  or sites  for  major  planning  flaws,



 and  identifying the major  Impacts associated  with  each plan  option.





                                  Summary





          This  section  has  presented  the  Settlers Cabin Case Study.  A de-



 tailed  description of  the  project was Included  to  illustrate actual  agency



 Involvements  and  activities  associated  with  planning and implementing an
                                  - 232 -

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AML reclamation project.  The case study highlights the complexity in



agency functioning and the inter-agency Intel-reactions which are required



to implement even a minor reclamation project.




         The Settlers Cabin site and project context were then utilized



for a test case application of the Land Use Decision Methodology.  The



application was not undertaken to affect land use planning at Settlers



Cabin but merely to illustrate the operability of implementing the LUDM



and matrix on a "typical" AML site.  The application focuses on the data



sources and specific parameters and procedures which were utilized, and an



explanation of the results which were obtained.  These results indicate



that Settlers Cabin was an appropriate site for the recreational develop-



ment which has occurred.
                                 - 233  -

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                            APPENDIX A
CURRENT MINING METHODS AND RECLAMATION PRACTICES

         The  following pages  provide  an overview of the mining related
factors which determine the developabiI ity of active and reclaimed mine
sites.  Important topic areas in  this section include a discussion of:
the mining regions of Appalachia; the mining and reclamation methods asso-
ciated with those regions; and an overview of mining/reclamation  implica-
tions for developing mine sites.
         To fully appreciate  the  land use decision-oriented terminology
presented throughout this report, it  would be advantageous to briefly re-
view the surface mining methods that  are most commonly employed throughout
Appalachia.  These mining methods have been  developed to provide  the most
effective ways of extracting  coal In  the region's  diverse geologic, topo-
graphic, and natural conditions.   This combination of environmental condi-
tions also influences the reclamation techniques that technically and
economically may be implementable on  a given site.
         Mining method is a  critical  parameter  In  the development of rec-
lamation plans.  Mining method determines the duration of  an operation;
total site acreage affected  once  the  operation  has been terminated; and
the  configuration of the mined site (i.e., narrow  banded,  nearly  rectan-
gular, etc.).  The method employed also influences the availability of
equipment  for  implementing reclamation plans.   Resultant  site slopes and
topographic features are a function of mining method  (i.e., contour re-
grading vs. scalped mountaintop removal  sites)  and equipment.   In addi-
tion, mining method determines the completeness of coal recovery, thus
                                   A-i

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influencing the potential for later additional  surface or underground


mining (i.e., partial  recovery contour vs. complete recovery mountaintop


removal operations).


         Within Appalachia there are two distinct mining regions with


distinctly different associated mining methods.  The first region Includes


Pennsylvania, Maryland, Ohio, Georgia, and Alabama, where topography  is


characterized by gently rolling hills vegetated with pasturelands and for-


ests.  Mining methods here include box cut, modified area, and block  area


mining.  West Virginia,  Virginia, eastern Kentucky, and Tennessee form the


second region,  in which topography Is relatively steep with many mining

                                            o
operations working on slopes  in excess of 30 .  Commonly used mining  meth-


ods  include  contour haulback, block cut contour, and mountaintop removal,


with  augering often associated with contour mining operations.



Mining and Reclamation  In Flat and Rolling Terrain



         Prevalent mining methods  in  gently rolling terrain  include  box


cut  and modified  area mining.   Initially, with  box cut mining a dozer


equipped with a ripper  will  clear  vegetation from  the  initial cut area  and


the  area upon which the  first "cut" volume will be placed, creating  a


windrow of trees, brush,  and grasses.  The topsoil  is  removed and stock-


piled by either a dozer  or scraper  specially brought  in  for  the task.  The


 initial excavation  by  the dozer  then  opens a box-shaped  area over  100 feet


by TOO feet  and 30-40  feet deep  by pushing the material  onto the  cleared


area downslope, leaving  an outcrop barrier.  This  material  may  require
                                    A-2

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                                         1
                   t     I
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A-3

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blasting or dozer ripping before excavation.  Coal  exposed after this ex-



cavation is loosened by ripping and loaded into coal  haulers by a small



front-end loader.  Following coal removal, the dozer clears and constructs



a level  bench, one cut wide (100-125 feet), on the outslope by pushing the



woody material and excess overburden into the previously opened pit.  Top-



soil is removed between the vegetation clearing and bench construction



operations.  During the drilling and blasting phase, the dozer executes a



cycle identical and immediately  adjacent to the initial box cut.



         Modified area mining  is usually  incorporated  where a coal seam



outcrops on opposite sides of  a  hi I I or ridge, with maximum overburden



thickness through the hill being no greater than 150 feet.  Modified  area



mining  is also  labeled hilltop removal or ridge removal and is accom-



plished by establishing an  initial  box cut through the hill, exposing and




removing coal  from outcrop to  coutcrop.   Successive cuts are taken,  with



overburden from each new cut placed  in the previous one.  Regrading  re-



places  the terrain to  its near original contour, a major difference  from



mountaintop removal.



         Especially applicable to  some abandoned contour  stripptngs,  modi-



fied area mining  can enable mining  of coal  previously  thought  unrecover-



able, and  at  the  same  time  reclaim those  orphan strip  mines whose aban-



doned benches provide  excellent  storage  area  for  initial  box cut  spoils.






STEEP SLOPE  MINING AND RECLAMATION






         Haul back and  block cut  contour  mining  and  mountaintop removal  are



the prevalent mining methods throughout  steep slope Appalachia.   A typical
                                   A-4

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                                                  o
                                                  "-O
                                                  •o
                                                  I
A-3

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contour mine progresses along the outcrop of a coal  seam or seams, usually

excavating in a single direction.  Total  length of the affected area may

exceed several  miles over the life of a mine.  Pit widths and highwall

heights are determined by the topography, stripping ratio, and capabil-

ities of the equipment at the mine.  Initial cut spoil is often excavated

using bulldozers and loaders and hauled by trucks to fills or ridges.

          In haul back operations, dozers push blasted overburden to front-

end  loaders.  The overburden is then loaded and transported to a deposi-

tion site.  Once in place, dozers will  regrade the spoil and prepare  It

for  reclamation.  Box cut mining  is similar except that mining often  pro-

gresses  in both directions along the outcrop from a central point along

the  mining area.  Spoil  from the  first cut  is placed  in a permanent fill

or temporary storage area, after  which overburden  is  excavated  in blocks

and  placed  in previously cut blocks.  The process becomes cyclic  in suc-

ceeding  cuts until completion.   Reclamation grading is conducted  as the

final  load of spoil  is pushed  into each mined out cut, with revegetation

of graded  blocks occurring as  soon as weather permits.

          Apart  from  the  mines  discussed  in  the  previous section,  contour

mines  will generally be  following  steep  slope regrading requirements,

 (steep slopes  are those  which  exceed 20  degrees)  or any  lesser  slope

designated by  the regulatory authority.   Specific to  backfilling  and

grading, critical steep  slope  requirements  are:

             A  prohibition  on downsi ope  spoiling.

             Highwall  elimination (grading  is  not  specifically
             limited  to return  to original contour).
                                    A-6

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A-7

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         Because most contour mining reaffects previously mined areas,



sufficient spoil may not always be available for approximating original



contour.  Variances may be granted to permit disturbances above the high-



wall  in order to approximate original contour.  The amount of disturbance



is limited to the distance required to cover and blend the highwalI  to the



existing and surrounding topography as shown In Figure A-4.




         Mountaintop removal mining, as its name impl ies, removes the en-



tire top of a mountain ridge, creating a level surface.  Having grown  in



popularity over the past decade, this method makes possible 100 percent



recovery of coal (with the exception of outcrop barriers.)  Serving as an




excellent alternative to contour mining in hilly and  mountainous  areas,



using the same  equipment  (dozers, trucks, front-end  loaders, and, some-



times,  power shovels), mountaintop removal mining affects  large blocks of



land, rather than  sinuous bands characteristic of contour  methods.



         The excavation operation begins along the deepest economically



removable coal  seam outcrop  parallel to the ridge.   An undisturbed outcrop



and overburden  barrier,  15 to  20  feet wide  at the outslope,  is left to



serve  as a  natural  seal  around the  entire base of the bench to retain



surface and mine water  within  the active operation.   This  barrier later



helps  to provide support  for the  backfilled overburden and to  confine



groundwater  within the  graded  spoil.



          To provide adequate operating  room,  the  ample first  cut  is  trans-



 ferred by  rock trucks to a  pre-planned  storage  area, usually a valley



 fill.   Excavation  takes place  after overburden  drilling  and  blasting:  the
                                    A-8

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  Figure A-4. Highwall  reduction in  steep slope contour mining.
                  ORIGINAL SLOPE
                       > 2O%
                                   Original Ground Surface
  FINAL SLOPE LINE
   COAL SEAM
                               No Scale
front-end loader or power shovel  and rock truck teams work progressively

towards the center of the mountain.   Concentrically circling  the mountain,

the lower benches or cuts advance ahead of the upper excavations.  This

excavation continues with rock trucks hauling material  to the storage

areas via ramps connecting the series of benches until  only a level  sur-

face remains.  The bench heights are determined either by the occurrence

of a coal seam or by equipment reach limitations.

         A variation of mountaintop removal mining Is termed "Cross-

Ridge."  Cross ridge mining excavation differs from conventional mountain-

top mining by advancing cuts perpendicular to the axis of the mountain

ridge from crop Iine to crop IIne.
                                  A-9

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         After initial  site preparation, clearing and grubbing of vegeta-



tion, and excavation of an adequate Initial  cut, a perpendicular cut bench




or lift is established.  This lift advances ahead of each subsequent



bench.  Material  is removed by common equipment (dozers, front-end  load-



ers, power shovels, and rock trucks) and stored in adjacent valley  fills.



Once this stepped advance has progressed to where the lowest predetermined




recoverable coal  seam has been removed, overburden material is then depos-



ited on the lowest seam bench.  As the removal sequence continues,  the



rock trucks continue to haul to this area, forming a backstack via  con-




necting ramps.  Since the excavated material  is piled in lifts on the



mined out bench, fewer and  less extensive valley  fills are required, hold-



ing truck haulage to a more consistent, balanced  operation.  The sequence



of advancing  cuts with haulage to the  backfill or backstack area for dis-




posal  will continue completely through the mountain  ridge.  The end effect



is a  smooth rounded ridge  line.



          Chief areas of concern  for regrading  mountaintop  mining sites  are



slope  limitations and  surface drainage placement.  The outslope of  the  re-



graded  area must not exceed  1v:2h,  while  the  ins I opes cannot  exceed 1v:5h.



All  inslopes  must slope away  from the  outer edge  of the  mountaintop and



may  drain down only through  stable  channels  In hollows  where  no fill  has



been  placed.   Throughout  the  duration  of  backstacking operations,  drainage



plans should  be  followed  carefully  because  the inward sloping of  the re-



graded areas  may cause the diversion of excessive runoff to  the active



mining area.   The  following figure  illustrates typical  drainage networks



and  regrading schemes  for mountaintop  mine  sites.
                                   A-10

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                   APPENDIX B

     LAND USE AND SITE DEVELOPMENT

          BACKGROUND INFORMATION



This Appendix presents the  following background  information;

   Information Summary - Land Use Decision  Analysis

   An Annotated Bibliography:  Determining  Land  Uses in a
   Mine  Lands Area

   An Annotated Bibliography:  Economic Development of
   Mine  Lands in Appalachia

.  An Annotated Bibliography:  Settlers Cabin  Case Study
                         B-1

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                           INFORMATION SUMMARY -
                        LAND USE DECISION ANALYSIS
         Historically, land use decision analysis has been approached from

a number of different academic disciplines.  These include geography,

planning, landscape architecture, economics, sociology, and political

science.  In spite of the multiplicity of approaches taken in analyzing

land use decision making, the literature can be divided into two groups:

studies designed to explain land use decisons (positive approach), and

research used to recommend alternative land use patterns or decision

methodologies (normative approach).

         The earliest significant contributions to this area come from

geographers in the nineteenth century.  Central to these discussions was

the question of city  location:  what were the factors influencing the

location of cities?  Early works by German authors circumscribed the scope

of the "positive approach" to urban location theory, in particular:

            Kohl, J.G., Per Verkehr und die Ansiedlungen der
            Menschen  in  Ihrer Abhanglgkeit von der Gestaltung der
            ErdoberfI ache, 1843.

            Sax, E., Die Verkehrsmlttel In Volks; und Staatswirths-
            shaft, 1878.

            Ratzel, F., Anthropogeographle, 1891.

         These early studies formulated theories on city location based on

the industrialization of a region and  its transportation network.

         American authors quickly adapted the experience of America's

period of settlement  in the eighteenth and nineteenth centuries to this

research in location theory.  Notable  studies  included:
                                  B-2

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            Coo ley, D.H., The Theory of Transportation, 1894.

            Weber, A.F., The Growth of Cities In the Nineteenth
            Century:  A Study In Statistics, 1899"!

         These studies saw city location determined by economic facotrs,

where cities are most efficiently located at "breaks of transportation."

These breaks can be due to junctions of two different transport modes,

caused by physical barriers, political boundaries, or disaggregation of

the distribution system.

         At the turn of the century, a number of writers diverged from

this economic tradition, and produced location theories based on environ-

mental factors.  Works by Friedrick Ratzel  (discussed previously) antici-

pated this environmental approach by emphasizing the natural resource base

of a region, along with such factors as "craving for protection," "divi-

sion of labor," and "streams of traffic."  American writings taking an

environmental approach included:

            Ripley, W.Z., "Geography as a Sociological Study,"
            Political Science Quarterly, December, 1895.

            Semple, E.G., Influences of Geographical  Environment on
            the Basis of Ratzel's System of Anthropo-Geography^
            1911.

Semple's work postulated that "man  is a product of the earth's surface."

To display this principle, she noted how differences  in topography in-

fluenced different types of commercial cities:  coast, pass, piedmont,

river, and seaport.

         To this point in time,  researchers were concerned with explaining

land use decisions as a process in  its own right (positive approach).  The

normative approach was presented by the "possibiI ist" thinking of French
                                 B-3

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geographers.  Jean Brunhes', Human Geography;  An Attempt at a Positive



Classification, Principles and Examples (1920), presented the view that



city location was influenced by the same factor "which influence the loca-



tion of a house" - sunlight, water, transportation topography, forests,



climate, and vegetation.  In this thinking, certain locations were deter-



mined to be more suitable for settlement than others,  and thus there would



be a settlement pattern most in harmony with the geographic base of the



region.



         Prior to this exposition of the normative approach in the academ-



ic literature, various other individuals contributed to this area.  Not-




able among these were English landscape architects of the eighteenth cen-



tury (Temple, Kent, Brown, Price, Knight and Shenstone); the philosophy of



Henry David Thoreau; the American  landscape planners Charles Eliot and



Frederick Law Olmstead; and Scottish urban planner and teacher Patrick



Geddes.  Working from this tradition of environmental  planning toward



creating a more "natural" environment for man, planner-philosophers like



Benton MacKaye and Lewis Mumford began to reshape the American Landscape



beginning in  1920's.  Among their  important contributions are the Appala-



chian Trial  (MacKaye) and the New York Regional Plan  (Mumford).  The



essence of this normative tradition is that man should perceive nature as



a value and plan his settlements to maximize that value.



          In recent years, this environmental approach has reached a bench-



mark plateau  with  Ian McHarg's, Design with Nature  (1969).   In this book,



McHarg explains his planning philosophy and synthesizes his  landscape
                                 B-4

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planning experience since World War II Into a land use decision methodol-

ogy.  He coins the term "physiographic determinism" to describe this meth-

odology, although the term environmental  determinism might be equally as

appropriate.  In this methodology matrices portray various environmental

interrelationships, which are then "overlayed" on mapping for a region, to

produce individual physiographic areas with homogenous characteristics.

each of these areas has an appropriate land use or mix of land uses.

         McHarg's approach has been further refined by Julius Gy. Fabos'

group at the University of Massachussetts.  Their METLAND model combines

McHarg's ecological planning method with  the recent advances in computer

technology and remote sensing.  These advances allow greater degree of

detail  in characterizing an area, and facilitate the rapid manipulation of

data to produce alternative land use schemes.

         At this point in the discussion, it will be useful  to review

several important characteristics of the  environmental approach to  land

use decision analysis:

            The environmental  approach diverged from the economic
            approach at the turn of the century and has evolved
            independently since that time.

            During the 1920's the environmental  approach was
            strongly influenced by planners, and thus took on a
            normative perspective (to advocate land use decision
            rather than to explain the decisions).

            The approach has culminated in a land use decision
            methodology incorporating overlay mapping and matrix
            displays, which attempts to incorporate intrinsic
            natural values of the landscape Into the decision-
            making process.
                                B-5

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         With these facts In mind, we cannot go back and trace the evolu-

tion the economic approach to land use decision analysis.

         Economic approaches to land use decision analysis during the

early twentieth century evolved into classical  location theory.  An early

study by Johann Heinrich von Thunen, Die Isol ierte Staat in Beziehung auf

Landwirtschaft and Natlonalokonomie, (1826), provided the foundation for

other German writers to complete this theory.   Important contributions

included:

         .   Weber, A., Ueber den Standort der  Industrlen, 1909.

            Christaller, W., Die zentralen Orte in Suddeutschland;
            Elne okonomlsche - geographlsche Untersuchung uber die
            Gesetzmasslgkeit der Verreltung and Entwlcklung der
            Siedlungen mlt stadtlschen Funktlonen, 1933.

            Losch, A., Die raumliche Ordnung der Wlrtschaft; eine
            Untersuchung uber Standort, WIrtschaftsgeblete und"
            internetlonaI en Handel, 1943.

         The crux of these studies was to apply the principles of econom-

ics to the spatial distribution of  land uses.   This topic of classical

location theory (often called central place theory) was historically ne-

glected as a subject for study in economics.

         After World War II, a wealth of empirical studies emerged as

location theory was being applied to real-world situations.  Contributions

at this time were still  largely "positive"  in their perspective - to ex-

plain  land use decisions rather than to recommend them.  These empirical

studies can be divided  Into several disciplines, although differences  in

scope  and emphasis are not readily apparent.   Important disciplines and

leading researchers include:
                                 B-6

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            regional  science - Walter I sard

         .   urban geography - Brian J. L.  Berry

            urban economics - Edgar Hoover

An important component of this emphasis an empirical studies has been a

reliance on complex modeling - linear programming (optimization tech-

niques), factor analysis (statistical  correlation studies), and input-

output analysis (matrix algebra).

         Emphasis on problem solving,  although not totally absent in

previous years, became an underlying concern during the 1960's.  With

increasing public concern over urban problems, studies emphasized the

nature of public problems (notably housing and the environment) and

potential mechanisms to resolve those problems.  These analyses relied

heavily on the theories of welfare economics to explain these problems as

"market failures" of a free enterprise economy.  Theoretical works in this

area include:

         .   Pigou, A.C., The Economics of Welfare, 1920.

            Arrow, K.J., Social Choice and Individual Values, 1951.

         .   Coase, R.H., "The Problem of Social Cost," Journal of
            Law and Economics, 1960.

Solutions to market failure emphasized placing the full social cost on the

actions of individuals who are Imposing costs on others (Internalizing the

"externality").  Alternative solutions have included the precise delinea-

tion of proper rights to avoid "the tragedy of the commons," along with

such actions as providing subsidies to Induce socially acceptable behav-

ior, or simply regulating behavior by fiat.  Examples of these procedures
                                 B-7

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in land use decision analysis include the interpretation of zoning as reg-




ulation by fiat to avoid situations where adjacent land uses impose a neg-



ative spillover effect of externality on each other:  the interpretation of



open space easements as subsidies to private landowners to maintain land



uses in a socially desirable manner; or the interpretation of severance



taxes as internalizing the external or social  costs of mineral  extraction




(additional road maintenance and community facilities for example) on the



mineral producer.




         To summarize, the economic approach to land use decision analysis



has merged classical  location theory with welfare economics to analyze and




resolve urban and environmental  problems.  From this perspective, problems



result from flaws in the economic system, and thus should be corrected by



manipulating the system.  This approach contrasts starkly with the envi-



ronmental approach  in which market forces are totally replaced by a land-



scape design process.



         A particularly good example of the current state of modeling,



using the economic approach is described  in Walter I sard's EcoI ogle-



Economic Analysis of Regional Development, 1972.  Using an input-output



approach,  Isard traces the flow of residuals (pollutants) for a given  land



use pattern, and places monetary values on the costs of the various eco-



nomic activities associated with the land use pattern.   In theory, pollu-



tion costs could then be managed to arrive at a socially acceptable land



use pattern, although the author recognized the complexities of system



make its practical application quite suspect.
                                 B-8

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         Before moving on to a discussion of the relevance of  land use



decision theory to mine  lands problems, an area of  investigation (prag-



matic approach), which developed totally independent of the academic tra-



dition must be explored.  This work was accomplished under the direction



of the National Sand and Gravel Association.




         Historically, the sand and gravel  industry has been involved




with, and affected by, land use planning and controls.  Beginning in the



early 1960's their industry association sponsored a series of studies to



aid the industry in its relationship with land use planning groups and the



community in general.  These studies concentrated on determining appro-



priate final land uses for sand and gravel  operations, thus recognizing



the extraction as a transistory land use.  A compilation of these studies



is presented in Kenneth L. Schellie's (ed.), Sand and Gravel Operations -



A Traditional  Land Use (1977).




         In recent years, this practical approach to land use decision



making in mine lands areas has been taken a step further by the Resource



and Land Investigations (RALI) Program of the U.S. Department of Interior.



This program sponsored a series of projects on "Integrated Mined-Area Rec-



lamation and Land Use Planning."  Volume 2 of this series presents a meth-



odology for this type of planning in detail.  Relying on an impact assess-



ment format, the discussion recommends procedures to develop an appropri-



ate information system, display of data on  overlay maps, and generage im-



pact analysis  for alternative land use schemes incorporating public par-



ticipation.   In this land use decision methodology,  matrices are not spe-



cifically recommended although matrix display could  provide the scheme for
                                 B-9

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a non-computerized data base/information system.  A good example of a ma-



trix approach to evaluating environmental  impact is presented in Luna



Leopold's (and others), A Procedure for Evaluating Environmental Impacts,



(1971 ).



         The relationship of these various traditions in land use decision



theory to mine lands problems can best be analyzed by posing the following



question:  How can the results of the economic (Isard) and environmental



(McHarg) approaches to land use decision analysis be synthesized into the



pragmatic approach (RALI) to produce an improved land use decision process



for mine lands areas?  To incorporate the economic approach would require



a method to evaluate externalities among land uses both temporally and




spatially for mine lands areas.  To incorporate these two tasks would re-



sult In a delineation of the appropriate individual  land units  in a mined



land region along with the influences or externalities these individual




land uses exert on each other.



         An elementary attempt at this type of synthesis is described  in



James E. Rowe's, "A Suitability Matrix for Selecting Land Use Alternatives



for Reclaimed Strip Mine Areas," Landscape Planning, (September, 1977)..



In this study, Rowe utilized econometrics (multiple  regression) to evalu-



ate economic development potential  in terms of transport access and prox-



imity to urban areas.  Combining this with a natural resource/land use




suitability analysis (as In McHarg's approach), he produced a matrix  in-



dicating those  land uses most appropriate for a given site after reclama-



tion.
                                 B-10

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         Efforts under this contract will work toward extending the RALI




model  as described above.  Rowe's work to synthesize these different ele-




ments of land use decision analysis into a decision tool will thus be ex-




panded to include a full analysis of land use externalities  in mine land




areas and natural resource constraints to land use potential.
                                B-11

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LIST OF REFERENCES

 1.  MacKay, B., The New Expi orat Ion-A Philosophy of Regional  Planning,
     1928.

 2.  Mumford, L., The Culture of Cities, 1938.

 3.  Smith, R.H.T., E.J. Taaffe, and L.J. King (eds), Readings in Eco-
     nomic Geography, 1968.

 4.  McHarg, I., Design with Nature, 1969.

 5.  Berry, B.J.L., and F.E. Morton, Geographic Perspectives on Urban
     Systems, 1970.

 6.  Clawson, M., Suburban Land Conversion in the United States, Resources
     for the Future, Inc., 1971.

 7.  Leopold, L.B., F.E. Clarke, B.B. Hanshaw, and J.R. Balsey, A Pro-
     cedure for Evaluating Environmental Impact, U.S. Geological Survey,
     1971.

 8.  Isard, W.,  Introduction to Regional Science, 1975.

 9.  Fabos, J.G., and S.J. Caswell, Composite Landscape Assessment, 1977.

10.  LeFevers,  J.R., and E.A.  Imhoff, "Land Use Planning in Surface Mine
     Areas," Processings of the Fifth Symposium on Surface Mining and
     Reelamation, 1977.

11.  Rowe, J.E., "A Suitability Matrix for Selecting Land Use Alternatives
     for Reclaimed Strip Mine Areas," Landscape Planning, September 1977.

12.  Scheillie, K.L. (ed.), Sand and Gravel Qperations-A Transitional Land
     Use, National Sand and Gravel  Association, 1977.

13.  Imhoff, E.A., W.J. Kockelman,  J.T. O'Connor, and J.R. Lafevers,  Inte-
     grated Mined-Area Reclamation and Land-Use and Resources Planning  in
     Surface Mined Areas, U.S. Geological Survey, 1979.
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                        AN ANNOTATED BIBLIOGRAPHY:
                DETERMINING LAND USES IN A MINE LANDS AREA
         The following annotated bibliography has been designed to assist

planners integrate final  land use considerations into reclamation plan-

ning.  Thus, it concerns  itself with the general  problem of determining

the appropriate land uses in a mined lands environment.  The literature

has been segregated into  six categories reflecting various land uses:

            agriculture

            multiple uses

            recreation

            timber

            urban/industrial

            waste disposal

Not considered here is the wealth of literature on reclamation techniques

designed for conservation and aesthetic purposes.

         Among the land use categories listed above, the "multiple uses"

category comprises those studies involving decision-making among alter-

native uses, or reclamation to meet multiple use objectives.  The other

categories  include studies where a final  land use was predetermined  and

reclamation was specifically designed to  incorporate that  land use.

         Preparation of this annotated bibliography relied on four sources

(shown in order of importance):

            Gleason, V.E., Coal and the Environmental Abstract
            Series - Bibliography on Mined Land Reclamation, U.S.
            Environmental Protection Agency, April, 1979.
                                 B-13

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            Lewis,  L.R.,  J.R.  LeFevers,  A.O.  Perry,  and W. Rice,
            Jr.,  Integrated Mined  Area Reclamation  and Land  Use
            Planning,  Vol.  4,  A  Bibliography  of  Integrated Mined
            Area  Reclamation and Land  Use Planning  with Annota-
            tions,  U.S.  Geological  Survey,  December,  1976.

            Czapowskyj,  M.M.,  Annotated  Bibliography on the  Ecology
            and Reclamation of Drastically Disturbed Land, U.S.
            Forest  Service, 1976.

            Rowe, J. E.  (ed.),  Coal  Surface Mining:   Impacts  of
            Reclamation,  1979.

Extensive research  in  this  area  is currently  done by the  Resource and  Land

Investigations (RALI)  Program of the U.S. Geological  Survey.  RALI  spon-

sored publications  will  be  incorporated  into  this bibliography throughout

this study.
                                B-14

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MULTIPLE USES
 1.  Hall, H.H., "The Romance and Reclamation of the Coal Lands of South-
     eastern Kansas," Kansas Academy of Science Transactions, 1940.

            A brief history of strip mining for coal in Kansas is pre-
     sented.  Examples of conversion of waste land for profit are shown
     such as a quail farm, state park, and orchard.

 2.  Riley, C.V., "An Ecological  and Economic Study of Coal Stripped Land
     in Eastern Ohio," M.S. Thesis, Ohio State University, 1947.

            This field study of Tuscarawas County, Ohio  included  a study
     of the extent of volunteer revegetation, the success of planned vege-
     tation, and the use of the area as wildlife habitat.  Economic re-
     turns available to surface mined  land were evaluated for agricultural
     and forest uses as compared to abandoned land.  The study concluded
     the reclamation for wildlife management and tree production would
     have the most value.

 3.  Limstrom, G.A. and R.W. Merz, "Rehabilitation of Lands Stripped For
     Coal  in Ohio," Ohio Reclamation Association, 1949.

            Most strip mined land  in Ohio was adaptable to three general
     uses:  forestry, recreation/wildlife, and agriculture.  More  inten-
     sive uses, such as industry or settlements, are of minor importance
     except near municipalities or near major transport routes.  Based on
     the beneficial environmental  impacts of reforestation, this study
     recommends that stripped land is best suited for forestry in Ohio.

 4.  Foresman, F.J., "Stripped Land Rehabilitation," American Mining Con-
     gress, 1952.

            Describes how strip pits have been converted  into forest,
     farming, pasture, and recreation  land.

 5.  Wells, J.R., "The Reclamation of Strip Mined Scars  in Southeastern
     Kansas," Kansas Academy of Sciences Transactions, 1953.

            Spoi (banks offer a habitat for a variety of plants without
     leveling.  Conditions in the  area favor grazing as a final land use
     over orchards or forests.  Spoils can provide habitat for fish and
     wiIdIi fe a I so.

 6.  Flowers, A.E., "Profitable Stripping - Productive Reclamation," Coal
     Age, 60  (5), 1955.
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           A recreational  facility, nursery, game production  (pheasants),
     and  corn field  is  incorporated  into  reclamation of strip mined  land
     i n Kansas.

 7.   Guernsey, L., "Land Use Changes Caused By a Quarter Century of  Strip
     Coal Mining  in  Indiana,"  Indiana Academy of Sciences Proceedings, 69,
     1959.

           Land  use  data  is presented on the transition of  former
     cropland to  orphan  land,  reclaimed  land, cropland, and  recreation
     uses after strip mining.  County data  in  Indiana  is utilized.

 8.   StrolIman,  I., Land Use Control  in the Surface Extraction  of Min-
     erals, Part  I, American Society of Planning Officials,  December,
     1951.

           The process of  mineral  extraction  is examined relative  to
     planning problems, zoning law,  and  judicial  interpretation.   Individ-
     ual  mineral  industries are  examined  separately  in  addition to  coal.

 9.   Case Histories:  Rehabilitation  of Worked Out Sand  and Gravel Pits,
     National Sand  and  Gravel  Association,  1961.

           Examples  of successfully rehabilitated  land after  sand  and
     gravel  deposits  have  been excavated  are  presented.

10.   Guernsey,  L.,  "Settlement Changes Caused  by Strip  Coal  Mining  in
     Indiana,"  Indiana  Academy of  Sciences  Proceedings,  70,  1961.

           Population  and  land  use changes  in  the  coal  mining region of
     Indiana  are  compared  to the non-coal mining region.  The  study con-
     cludes  that  strip  mining  causes instability  in  settlement patterns.
     Mining  impacts include:   1) a decrease  in  the  number of farms,  2)
     creation of  irregular  and smaller  fields,  and  3)  transition from
     single  farm  units  to  more complex tracts.  Major  impacts  were  not
     present, although  improved  roads  and more  semi-urban settlements were
     noted  in the mined area.

11.   Seastrom,  P.M.,  "The  United Electric Coal  Company's Land  Use
     Program,"  American Mining Congress  Committee  on  Strip  Mining,  August
     28,  1963.

            The company's  Fidelity Mine  in  southern Illinois has been
     reclaimed  to 2000  acres of  pine and  hardwoods,  1200 acres of pasture
     (with  500  head of  cattle),  135 acres of  orchard,  and  hunting and
     fishing  areas.
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12.   Knabe,  W.,  "Methods and  Results of  Strip  Mine Reclamation  in
     Germany," Ohio Journal of  Science,  1964.

            This is a report  on the trends in  mining  and  reclamation in
     Germany.   Topics include coal  regions,  integrated  mining  and  recla-
     mation, the agricultural value of overburden, reclamation  equipment,
     agricultural  reclamation,  reforestation,  and amelioration  of  spoil
     banks.

13.   Conservation  and Land Use  in the Surface  Coal Mine Industry,  Mine
     Land Conservation Conference,  October 5,  1964.

            Speeches discuss  laws,  enforcement history, and reclamation  of
     str ip mining.

14.   Hyslop, J., "Strip Mining  in Eastern Ohio:   Blessing or Curse?",
     Rotary Club,  St. Clairsville,  Ohio, May 18,  1964.

            Speech  discusses  aesthetic  land  use,  and  monetary  effects  of
     strip mining  in eastern  Ohio.

15.   Jones,  C.D.,  "From Waste to Profits," Coal  Mining  and Processing, 1
     (7), 1964.

            Resource recovery by an Ohio coal  company of  coal  waste
     products into lime, brick, and pipe is discussed.   Surface areas  are
     reclaimed to  commercial  forest and  pasture.

16.   Sitlerly, J.H., "Future  Land Use in the Appalachian  Plateau and its
     Relation to Strip Mine Reclamation," Ohio Journal  of Science, 64,
     1964.

            The dominant factors influencing land use changes  to 1980  in
     Appalachia will be environmental regulations and recreation develop-
     ment rather than agricultural  development.   Economic and  sociologic
     reasons for this hypothesis are presented.

17.   Conversation  and Land Use  in the Surface  Coal Mine Industry,  Mined
     Land Conservation Conference,  October 5,  1964.

            Various papers on private sector reclamation for productive
     land uses are presented.

18.   Reilly, J.D.,  "Planning  Surface Mine Reclamation Before Mining,"
     Mining Congress Journal, 51 (11),  1965.

            A need for planning of  reclamation before mining is stressed.
     Economics, revegetation, erosion,  water conservation and  aesthetics
     and potential  land use for recreation,  forage, timber, and urban
     development must be considered.
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19.  "Varied Uses of Surface Mine Spoil  in West Virginia," West Virginia
     State Soil  Conservation Commission,  (n.d.).

            This report presents various  examples of land uses on
     reclaimed lands including farms,  forests,  churches,  and school
     bu iId i ngs.

20.  "The Way to New Land Uses," Mined Land Conservation  Conference,
     (n.d.).

            Reclamation incorporating  land uses are described.

21.  Guernsey, L., "Selected Effects of Glacial Till on the Physical
     Characteristics and Existing Land Use of  Indiana's Strip Mined
     Lands," Indiana Academy of Science Proceedings, 77,  1967.

            Based on samples from 22 sites, improved soil characteristics
     due to higher percentages of till material were found to influence
     more intense land uses on reclaimed   land.

22.  Goodwin, F.W.,  Planning for Mining of Construction Materials, New
     Jersey Federation of Planning Officials, Nov., 1967.

            The role of planning in the wise use of mineral resources is
     discussed in this brief report.  The author provides a review of the
     effectiveness of regulations and  performance standards, and outlines
     an approach to planning for surface mining and rehabilitation from a
     regional viewpoint.  Emphasis  is placed on the need to return to pro-
     ductive use for community and private purposes.

23.  Jensen, D.R., Selecting Land Use for Sand and Gravel Sites, National
     Sand and Gravel Association, 1967.

            Criteria and procedures for the selection of post-mining  land
     use are discussed and site development procedures are outlined.
     Potential land uses are examined in terms of their respective
     requirements and possible future benefits.  Fill types and soil
     comparisons are briefly presented in an appendix.

24.  SchelIie, K.L., and A.M. Bauer, Shaping the Land;  Planned Use of
     Industrial  Sand Deposits, National Sand and Gravel Association,  1968.

            The historical and current background of the  industrial sand
     industry is reviewed  in  light of extractive methods, processing, rec-
     lamation, and their respective Impact on  land  use.  A careful dis-
     tinction is drawn between reclamation and Planned Extraction and
     Development.  The authors examine potential  land uses and planning
     procedures designed to realize predetermined post-mining and  land use
                                 B-18

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     goals.  The importance of pre-mining studies and site planning to re-
     duce reclamation costs and improve extraction efficiency is empha-
     sized.  The development of a Master Plan during the early stages is
     recommended, with input from local  and regional  officials.

25.  Miller, E.L. and J.R.  DeTuerk,  "A Landscape Architectural  Approach to
     Reclamation and Development of  Deep Anthracite Strip Pits," Depart-
     ment of Landscape Architecture, The Pennsylvania State University,
     1968.

            Characteristics of mined areas are analyzed and used as the
     basis for plans to develop and  beautify three strip pits.

26.  Callahan, J.C., an J.G. Callahan, "Effects of Strip Mining and Tech-
     nological Change on Communities and Natural Resources in Indiana's
     Coal Mining Region," Purdue University Agricultural Experiment Sta-
     tion, January, 1971.

            This detailed study of Indiana's surface mining industry
     includes an analysis of land uses for reclaimed land.

27.  Weber, L.S., "The Development and Use of Coal Surface Mined Lands in
     Minois," I  I I  inois State Geolog ical Survey, May, 1971.

            The history of surface mining in Illinois is presented with
     emphasis on trends in reclamation techniques.  Various land use
     options  in reclamation are described.

28.  Coates, W.E.,  "Landscape Architectural Approach to Surface Mining
     Reclamation," First Research and Applied Technology Symposium on
     Mined Land Reclamation, 1973.

            Landscape planning will  take mined  land (an interim use) to
     its final and best use through planned reclamation.  Specific recla-
     mation techniques utilized in landscape planning are described.

29.  Fanin, P.J., "The Mining Industry and Federal Land Use an Surface
     Mining Policy," American Mining Congress Convention, September 9-12,
     1973.

            The Senator from Arizona discusses two bills - land use con-
     trol and surface mining regulation - pending  in Congress.  Adverse
     impacts on the mining  industry are predicted with passage.

30.  Fenton, M.R.,  "Landscape Design Principles for Strip Mine Restora-
     tion," Ecology and Reclamation of Devastated Land, Vol. 2, Hutnik and
     Davis (ed.), 1973.

            The development of Moraine State Park on reclaimed surface
     mines  in western Pennsylvania Is described.
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31.  Montgomery,  H.B.,  "Land Use Planning of Surface Mined Land," Sympo-
     s I urn on Surface Mine Reclamation and Land Use Reclamation,  October,
     1973.

            Land  use policy in areas affected by surface mining  is con-
     sidered.  Enabling legislation, interagency cooperation,  and public
     participation in land use policy formulation and development is dis-
     cussed.

32.  Olschowy, 6., "Landscape Planning on an Ecological  Basis,"  Ecology
     and Reclamation of Devastated Land, Vol. 2, Hutnik an Davis (eds.),
     1973.

            Larger scale reclamation in German is discussed in which en-
     tire settlements are removed and then restored as mining  proceeds.
     Reclamation  can restore the land to other productive uses,  including
     recreation.

33.  Paller, W.,  and D.A. Schulz, "Planning Approaches to Surface Mining
     on the National Forests," First Research and Applied Technology
     Symposium on Mined Land Reclamation Preprints, 1973.

            Phosphate mining  in Caribou National Forest  in Idaho  is ex-
     amined relative to the problems of strip mining.  Mine Planning to
     promote a multiple land use policy  is demonstrated.  Specific anal-
     ysis of trade-offs between the extraction of the non-renewable re-
     source with timber production, wildlife needs, water quality, fish-
     eries, and groundwater  is presented.

34.  Thirgood, J.V., "Planned Reclamation," First Research and Applied
     Technology Symposium on Mined Land Reclamation Preprints, 1973.

            This study recommends that the previous and  intended  use of
     the mined land and surrounding area be considered  in reclamation
     pianning.

35.  SchelIie, K.L., and D.A. Roger, Site Utilization and Rehabilitation
     Practices for Sand and Gravel Operations, National  Sand and Gravel
     Association, 1973.

            Directed at the sand and gravel producer, this volume  is pre-
     sented as a guide for preplanning and useful adaptation of  land after
     extraction of sand and gravel.  With projected growth levels of the
     nation,  it  is the problem of the sand and gravel  industry to get  com-
     munity acceptance in establishing new sites and reserving resource-
     rich  areas for future growth by participating  in zoning  law modifica-
     tions.  This objective  is possible through cooperation with  community
      land  use planning authorities.
                                 B-20

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36.  Kundrna, F.L.,  "The Prairie Plan," Journal  of Urban Planning and
     Development, September, 1973.

            The Prairie Plan is described in which sewage sludge from
     Chicago is applied to strip mine land in Fulton County,  Illinois.
     Part of the study area is used for reclamation purposes.  Costs of
     the project are summarized.

37.  Land Reborn, Ohio Board on Unreclaimed  Strip Mined Lands,  January 1,
     1974.

            Orphaned mines are examined in detail.  The report  includes
     all relevant environmental data on the  affected area and makes recom-
     mendations for  reclamation and the possible future use of  the land.

38.  Osterhoudt, F.H., "Social  and  Economic  Impacts of Potential  Coal
     Development in  the Northern Great Plains,"  Second Research and
     Applied Technology Symposium on Mined Land  Reclamation Preprints,
     1974.

            This paper discusses the impacts which may occur to the entire
     socioeconomic fabric of the northern Great  Plains with increased coal
     development.  Important variables studied include population growth,
     support services, housing, transportation,  income, employment, gov-
     ernment policies, changes in lifestyle, and Indian problems.

39.  LaFevers,  J.R., "A Cost and Benefit Analysis of the Reclamation on
     Land Surface Mined for Coal in Vigo County,  Illinois," Ph.D. Dis-
     sertation,  Indiana State University, 1974.

            Most land use planning  is done after reclamation is completed.
     In this study it was shown that mined areas can be as much as ten
     times as attractive for housing sites as adjacent unmined  areas.
     However, in most cases, development occured on sites reclaimed for
     other purposes  - forestry, pasture, and agriculture.

40.  "A Balanced Approach to Resource Extraction and Creative Land Devel-
     opment Associated with Open-Pit Copper  Mining in Southern  Arizona,"
     College of Architecture and Mines, University of Arizona,  1974.

            The activities of an open-pit mining operation in Arizona pro-
     duces disruptions of the earth's surface that seem to stretch from
     horizon to horizon.  Immense amounts of solid waste are generated.
     Ore processing  consumes sizable amounts of  fresh groundwater, which
     has multiple demands in Arizona's arid  climate, and produces tailing
     ponds that are  miles in dimension.  Dried tailings produce dust and
     grit problems and require vegetative screening.  After examining num-
     erous existing  sites, a number of alternatives in mining procedures
     and their feasibility are discussed.  Generally, solid waste dumps,
                                 B-21

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     tailings ponds and waste water are handled  in such  a  way  as to  yield
     land for a predetermined and  desirable reuse, such  as residential
     development of wildlife habitat.   The study  was a joint effort  of
     local  government,  private industry,  and educational  institutions.

41.  Gartner, E., "Exploiting Rheinish Brown Coal  Deposits in  Deep Open
     Cast Mines Followed By Landscaping and Recultivation," Energy Engi-
     neering Convention, 1975, Lines of Development In Energy  Engineering,
     May 5-7, 1975.

            Brown coal  surface mining in  Germany  displaces entire settle-
     ments which are relocated into totally planned communities.  Reclama-
     tion to forest, agricultural, and recreational uses is described.

42.  Green, J.E., Selected Materials For  Planning the Reclamation of Land,
     Council of Planning Librarians, May, 1975.

            This report is a short bibliography of reclamation planning
     with emphasis on Appalachia and the Eastern  Interior  Coal  Field.

43.  Moran, S.R., G.H.  Groenwold,  L. Hemish, and  C. Anderson,  "Development
     of a Pre-Mining Geologic Framework for Landscape Design Reclamation
     in North Dakota,"  Proceedings of the Fort Union Coal  Field Symposium,
     Vol. 3, April 25-26, 1975.

            The  integration of soil data, characteristics  of spoil,  hy-
     drology, and pre-mining ecology into landscape planning is described.
     A definition of a "reclamation unit" is derived  in relation to  the
     North Dakota  lignite area.

44.  Research and Demonstration of  Improved Surface Mining Techniques In
     Eastern Kentucky.   Surface Mine Pollution Abatement and Land Use Im-
     pact  Investigation;  Volume  III.  Cosiderations of Post-Mining  Land
     Use, Mine Inventory and Abatement Plan for  the Quicksand  Watershed,
     Eastern Kentucky University,   (n.d.).

            Post-mining  land use  in this Appalachian watershed  is analyzed
     in reference to demand,  location, development costs,  environmental
     baseline characteristics, and environmental   impacts of the mining.
     An  inventory and analysis of 33 surface mines  is included.

45.  Rowe, J.E., "An Inventory of the Unique Uses for Reclaimed Strip
     Mined Land  in the Appalachian Region," University of  Tennessee Envi-
     ronmental Center,  1975.

            When surface mine  legislation Is enacted, mine operators,
     regional planners, and regulatory agencies  will be required to con-
     sider alternative uses as presented  in this study.
                                 B-22

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 I

 I
               46.  Friz, T.O., "Mineral  Resources,  Mining and Land Use Planning in Wis-
 •                  consin," Geological  and Natural  History Survey, University of Wiscon-
 •                  sin Extension. 1975.

 I

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 I

 I

 I

 I

 I

 I

 I

 I

 I

 I

 I

 I

I

I
     sin Extension,  1975.

            This report provides background information that can be used
     by individuals,  local  and state governments,  industry and planning
     units as the basis for assessing concerns over matters such as rising
     mineral costs,  mining methods, reclamation,  and land use conflicts.

47.  Greenwald, E.H., Jr.,  "A Landscape Architect Looks at Site Planning
     for Mines," Mining Congress Journal,  June, 1976.

            The author, a  landscape architect, presents a "design process"
     that can be used for  planning site development and surface facilities
     of coal mines.   The "design process"  consists of  six phases that in-
     clude program definition, site analysis,  master plan development
     schematic design,  design development, and contract documents/field
     services.  This "design process" method was  used  in the development
     of a master plan for  a proposed deep  mine in southwestern Pennsyl-
     vania.  The author outlines the Pennsylvania site development.

48.  Ballou, S.W., "Socioeconomic Aspects  of Surface Mining:  Effects of
     strip Mine Reclamation Procedures Upon Assessed Land Values," Surface
     Mining and Reclamation Fourth Symposium Preprints, October 19-20,
     1976.

            Impacts of  assessed land valuation were examined on the degree
     of reclamation for Mahosta County, Iowa.   Procedure evaluated sites
     with 1) no reclamation, 2) graded spoils, 3)  revegetated spoils, 4)
     utilization as sanitary landfill, and 5)  topsoiI  replacement.  Pre-
     mining and post-mining assessments were then used to determine the
     extent of land devaluation following  strip mining.

49.  Clover, F.W., "Use of Surface Mined Lands,"  Surface Mining and Rec-
     lamation, Fourth Symposium Preprints, October 19-20, 1976.

            Four examples of final  land uses for  surface mined lands in
     West Virginia are described:  Feed lot operation, rifle range, pas-
     ture, and potential housing development.   In addition, 86 actual uses
     of reclaimed land   in  West Virginia are cited.

50.  Verma, T.R., and J.L.  Thames, "Multiple Uses of Mined Land in the
     Southwest," Surface Mining and Reclamation,  Fourth Symposium Pre-
     prints, October 19-20, 1976.

            Water and  land resources at strip mined land on the Black Mesa
     of Arizona are analyzed for  land use  potential.  Agrosystem, grazing,
     livestock production, and recreational uses are evaluated.  Specific
     reclamation techniques to achieve multiple land use planning objec-
     tives are described.
                                B-23

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51.  LaFevers, J.R.,  and E.A.  Imhoff,  "Land Use Planning in Surface Mine
     Areas," Surface  Mining and Reclamation, Fifth Symposium Preprints,
     October 18-20,  1977.

            The study examines the current state of knowledge with regard
     to reclamation  and land use planning.  A paucity of information is
     discerned.  The  need for more research is addressed relative to the
     1977 Surface Mining Control and Reclamation Act.

52.  Rowe, J.E., "A  Suitability Matrix for Selecting Land Use Alternatives
     Reclaimed Strip  Mine Areas," Landscape Planning, September, 1977.

            This study describes a procedure which combines a landscape
     architectural suitability analysis with econometrics and matrix dis-
     plays to determine the appropriate land uses in a mining environment.
     Physical parameters are evaluated in a manner similar to McHarg's
     Design With Nature approach.  Spatial parameters were evaluated using
     on econometric  model relating land use to two demand terms:  trans-
     portation access and proximity to urban centers.  Matrices display
     the degree to which land uses are appropriate under various access,
     proximity, and  natural resource characteristics.

53.  Imhoff, E.A., W.J. Kockelman, J.T. O'Connor, and J.R. LaFevers,
     Integrated Mined Area Reclamation and Land Use Planning, Vol. 2,
     Methods and Criteria for Land Use and Resources Planning in Surface
     Mi ned Areas, U.S. Geological Survey, April, 1978.

            The concept of the  integration of reclamation planning with
     land use planning  is traced historically through this report.  Ex-
     amples are given to successful efforts to  integrate these two types
     of planning  in  various extractive industries.  The processes of land
     use planning and plan  implementation are described as they relate to
     resource protection, extraction regulation, and site reclamation.   In
     addition, a model  for  integrating land use planning and reclamation
     planning  is developed to  illustrate procedures  for achieving, and
     factors which might prevent, effective  integration of the various
     planning processes.
                                  B-24

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WASTE DISPOSAL
 1.  Deasy, G.F. and P.R. Griess, "Strip Pits and the Sanitary Land Fill
     Process," Mineral  Industries, the Pennsylvania State University,
     November, 1960.

            The use of  strip pits as sanitary land fills is recommended.
     Aesthetic and population access factors are considered.  Specific
     application to abandoned mine areas is recommended.

 2.  "Surface Mining, Solid Waste Disposal  Combined at Pennsylvania
     Operation," Coal Age, 76 (11), 1971.

            The experience of Aloe Coal Company west of Pittsburgh is
     described.  Strip  mining, solid waste disposal, and land reclamation
     were combined at this site.

 3.  Badner, R.M. and W.T. Hemsley, "Evaluation of Abandoned Strip Mines
     as Sanitary Land FiI Is," Proceedings of the Third Minera logical  Waste
     Utilization Symposium, 1972.

            Methods to  combine abandoned mined land reclamation and solid
     waste disposal are explained.  Specific reclamation techniques are
     described which ensure minimum environmental impacts.  Suitability
     factors are developed and case studies are described.

 4.  Kundra, F. and G.  Kelly, "Implementing the Chicago Prairie Plan,"
     Symposium on Recycling Treated Municipal Waste Water and Sludge on
     Forest and Croplands, August 21, 24, 1972.

            The Metropolitan Sanitary District of Chicago will use a 7,000
     acre tract of strip mined  land to dispose recycled municipal  wastes.
     The land  is utilized as a natural filter.

 5.  Dalton, F.E. and R.R. Murphy, "Land Disposal IV:  Reclamation and
     Recycle," Journal  of the Water Pollution Control Federation,  45  (7),
     1973.

            Strip mine areas  in Fulton County, Illinois are identified as
     disposal  sites for  solid waste.  Costs for the project are estimated.
     Environmental monitoring systems are described.

 6.  Use of Abandoned Strip Mines for Solid Waste Disposal  in Maryland,
     Maryland Department of Health and Mental Hygiene, June, 1973.
                                 B-25

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           This EPA-sponsored study described projects demonstrating the
    feasibility of using abandoned strip mines for solid waste disposal
    by sanitary land fill  techniques.   The demonstrations at two sites
    analyzed hydrogeological, chemical, microbiological, and settlement
    data to determine environmental  impact.   No public health problems
    were found.  The Appendix includes information on land fill  tech-
    niques, costs, job description,  relevant laws and regulations,  and
    environmental  baseline data.

7.  Kundra, F.  and G. Kelly,  "Implementing the Chicago Prairie Plan,"
    Conference on Recycling Treated Municipal Waste Water Through Forest
    and Cropland,  Sopper and  Kardos (eds.),  March, 1974.

           The disposal  of sewage sludge on surface mine land in Fulton
    County, Illinois is described.
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AGRICULTURE
 1.  Edwards, J.H.,  "Unleveled Spoil  Brings Good Return as Farming Proj-
     ect," Coal  Age, 52 (2) 1947.

            The experience of the reclamation of a Fulton County, Illinois
     strip mine is described.  Six hundred acres were purchased and re-
     claimed into a  farm which supported a herd of beef cattle.

 2.  "Strip Mine Farming," Medowlark  Farms, Inc., August, 1952.

            The experience of a farm  on a reclaimed strip mine incorpor-
     ating hogs, cattle, sheep, grain crops, and an orchard.

 3.  Foresman,  F.J., "Strip Grazing for Prize Angus," Coal  Age, 60 (9),
     1955.

            Pittsburgh and Midway Coal  has a cattle ranch in  Kansas on
     reclaimed  strip mined land.  Black Angus and Hereford graze on clover
     and Koreanm Lespedeza.  Some hay is also produced.

 4.  "A New Land," United Electric Coal Companies, (n.d.).

            The companies experience  in reclaiming strip lands to agricul-
     tural, grazing, and forest land  is provided.  Emphasis is on reclaim-
     ing for orchards and vineyards.

 5.  Sappenfield, V., "Spoil  Bank Lands Return Farm Profit in  Indiana,"
     Coal age,  61 (5), 1956.

             Indiana coal company grows corn and raises cattle on reclaimed
     land.  Methods to determine potential farm  land are discussed.

 6.  "Reclamation Project Yields a Profit," Coal Age, 66 (11), 1961.

            Hanna Coal Co. of Cadiz,  Ohio planted crown vetch on reclaimed
     spoil banks.  Cattle now graze and a seed recovery plant  is estab-
     lished, which sells excess seed  to seed houses.

 7.  "Reclaiming Land for Profit", Coal Age, 68, (10), 1963.

            Ayrshire Collieries over  the past ten years reclaimed over
     3,000 acres, creating eight working farms and donating the remainder
     of the  land to various public institutions.

 8.  "Reclaimed Strip Lands to Produce Elderberries," Coal Age, 70 (3),
     1965.

            Hanna Coal Company will plant elderberries on 20  acres of
     reclaimed  strip  land near Cadiz, Ohio.
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 9.   Morgan,  M.  and  W.L.  Parks,  "Reclamation  of  Mined  Phosphate Land,"
     Tennessee Agricultural  Experiment Station,  1967.

            Productive capacity  of  soil  mined for phosphate was evaluated
     for growing agricultural  crops.   Responses  to lime and fertilizer  are
     given.   Physical  and chemical  properties of mined and  unmined  areas
     are discussed.

10.   Cornforth,  C.L.,  "Farming for  Profit on  Reclaimed Land,"  Coal  Mining
     and Processing, 8 (8),  1971.

            The Ayrshire  Coal  Co. runs farms  on  mined  land  which profit-
     ably produce port, beef,  and grain.  The farms are located in  Illi-
     nois and Indiana.

11.   "Land Reclamation Can Even  be  Profitable,"  Mining Congress Journal,
     57 (12), 1971 .

            The scientific farming  of the Ayrshire Coal Company or  re-
     claimed land is described.   Reforestation is used only when reclaimed
     land is not suitable for  farming.

12.   "Capital Fuels' Strip Mine Fruit Orchard,"  Coal Mining and Proces-
     sing, 9 (7), 1972.

            An active strip pit was converted into a fruit  orchard  in one
     year.

13.   Higgins, T., "The Planning and Economics of Mined Land Use for Agri-
     cultural Purposes,"  First Research and Applied Technology Symposium
     on Mined Land Reclamation Preprints, 1973.

            The experience of  Peabody Coal's reclamation program is de-
     scribed.  Specific procedures  to reclaim for agricultural purposes
     include ameliorating toxic spoil problems by mining methods, soil
     treatment, and plant selection.  Experiences with beef cattle oper-
     ations, dairying, hay, row crops, and cereal grain as  final land uses
     or reclaimed land are described.

14.   Swanson, E.R., "Two Environmental Analyses  Involving Agriculture,"
     Seventh Annual Symposium - Interface Workshop on Decision and Envi-
     ronmental Analyses,  October, 1973.

            This study analyzes cropping systems which can  be utilized on
     a solid waste  disposal project on mined  lands.  The Fulton County,
     Illinois case  study  is presented.  Crops which use large amounts of
     sludge nitrogen  are shown to be most appropriate here.
                                 B-28

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15.   "Profitable Farming is the Goal  at Medowlark," Coal  age,  79 (10,
     1974.

            Amax's experience in reclaiming land  to agricultural  land  is
     described.   On this reclaimed land,  150 tenant farmers grow crops,
     raise livestock,  and harvest timber.

16.   Reiss,  I.H., "We  are Farmers not Miners," Coal  Mining and Processing,
     H_ (5),  1974.

            Amax's subsidiary,  Medowlark Farms, is described.   In 1973,
     they produced over 1 million bushels  of grain and sold more than  1
     million pounds of cattle from reclaimed land.  In addition,  over
     1,000 acres of water had been created for recreational  use.

17.   Reiss,  I.H., "Total  Utilization  of a  Land Resource," Mi ni ng Congress
     Journal,  63 (10)  1977.

            The  experience of Medowlark Farms of  returning land to farm-
     ing after mining  is described.   The author argues that land original-
     ly in corn  can be improved by returning it to an alfalfa/beef cattle
     operat ion.
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URBAN/INDUSTRIAL
 1.  Flowers, A.E.,  "Effective Reclamation Sets Stage for Industrial
     Development," Coal  Age,  71  (12),  1966.

            A 22 year reclamation project in Pennsylvania includes an
     industrial  plant, swimming pool,  park,  lake,  airport,  high school,
     and nursery.

 2.  Blakely, J.W.,  "New Cities for Appalachia -Will They  be Denied?",
     Coal  Mining and Processing, 11 (1),  1974.

            Community development associated with  mountaintop removal/
     head-of-hollow fill mining is discussed.  A proposal to use a 53-acre
     site constructed in this manner is presented  which incorporates a
     high school and some residential  development.

 3.  Maneval, D.R.,  "Abandoned Mine Areas Can be Valuable Assets," Coal
     Mining and Processing, 13  (8), 1976.

            Two case histories of reclamation of mined areas to industrial
     parts are described.  Appalachian Regional Commission  support activ-
     ities are described for these Delano, Pennsylvania and Coshocton,
     Ohio projects.

 4.  Rowe, J.E., "The Strip Mining Dilemma:  the Case of Virginia.  Land:
     Issues and Problems," V.P.I.S.U.   Cooperative Extension Services,
     1976.

            Strip mining can create level land that can  later be employed
     for  industrial  or commercial development.  Residential areas offer
     greater design flexibility, but often  increase costs.
                                 B-30

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TIMBER
 1.  "Two Thousand Acres of New Forests Planted:   Reforestation of Strip
     Mine Land to Provide Future Timber Supply,"  Outdoor Indiana,
     November, 1943.

            Strip mine reclamation by tree planting is described using
     pine seedlings.  Effort done in response to  Indiana's 1941  strip mine
     I aw.

 2.  "Spoil  Reclamation - Assures Good Income Without Level ing," Coal Age,
     51_ (7), 1946.

            Tree growth is found to be better on  unleveled spoil.   Fruit
     trees were planted using airplane seeding.

 3.  Sawyer, L.E., "The Use of Surface Mined Land," Journal of So!I  and
     Water Conservation, October, 1949.

            The experience of the Indiana Coal Producers Association is
     described.  Trees planted on mine spoils produced valuable forest
     products by 1949.  Discussions of the superior growth of trees on
     ungraded spoils  is provided.

 4.  Flowers, A.E., "Sunnyhill Makes its Money do a Job," Coal Age,  59
     (5), 1954.

            An Ohio strip mine is reclaimed to commercial  locust and
     hardwood trees.  An economic analysis of reclamation costs versus
     return  is presented.

 5.  Davis,  G. and R.D. Melton, "Plantations on Strip Mine Banks Can Yield
     Timber Products," Pennsylvania State Forest School, 1962.

            Tree stands on upgraded spoils were evaluated on a 25 year
     basis on their ability to produce timber products.

 6.  "First Pulpwood Harvest from 'New Forest',"  Pennsylvania Conservation
     Foundation, October 6, 1964.

            News release reports delivery of pulpwood from reforested
     spoil bank area  in Appalachia.

 7.  "Pulpwood Harvested from Spoil Bank Forests," Coal Age, 69 (11),
     1964.

            Reforested spoil areas supply pulpwood in Clearfield County,
     Pennsylvania.  Plantings of red and white pine, Norway Spruce and
     Douglass Fir occurred fourteen years prior to delivery.
                                B-31

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 8.   Jones,  W.G.,  "Coal  for  Today  - Timber  for Tomorrow," The Northern
     Logger,  June,  1964.

            Cooperative  efforts  of federal,  state,  and  industry  organi-
     zations to transform  mine  lands  to  commercial  timbering are de-
     scribed.

 9.   Rickard,  D.,  "Miracle of Spoil Banks -  A New Beauty and a New  Indus-
     try," Philadelphia  Inquirer Magazine,  March 28,  1965.

            The Pennsylvania Conservation Association has planted trees
     for commercial  timbering on-central Pennsylvania mined  lands.  First
     commercial cutting  expected after  six  years.

10.   Buckner,  E.R.  and J.S.  Kring, "A Crop  for Mine Spoils," Keep Tennes-
     see Green, 1967.

            This study examines  the  potential  for Christmas tree nurseries
     on stripped land.  They provide  a  profitable,  short rotation crop
     suitable to wide variations in  site conditions.

11.   PI as, W.T. and J.D. Burton, "Pulpwood  Production Potential  on  Strip
     Mined Land in the South,"  Journal  of  SoiI  and  Water Conservation,  22
     (6), 1967.

            Experiements in  Alabama,  Kentucky,  and  Tennessee  indicate
     slower pine growth  or spoil areas  relative  to  good sites.   Spoils  of
     pH 4 or less will not support tree grwoth  sufficient  for  pulpwood
     production.

12.   Davis, G. and W.H.  Davidson,  "Coal  Mine Spoil  Banks Offer Good
     Potential for Timber  and Wildlife  Production," Pennsylvania Forests,
     Winter-Spring, 1968.

            About one-quarter of spoil  sites offer  good timbering poten-
     tial.  Confiers do  well, but  valuable hardwoods do not.   A  hybird
     poplar does do well;  however, specific plantings can  be  designed to
     enhance wildlife habitat.

13.   Jones, W.G., "On Reclaimed Land  -  Timberl  - and In Nine  Years  at
     That," Coal Age. 76 (11 ),  1971 .

            Reforestation of mined land at Karthaus, Pennsylvania produced
     a  lumber value of $40 per  acre   in  nine years.   Hybird  poplar and
     canifers were successful  during these nine years in which abnormally
     low rainfall occurred.
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RECREATION
 1.  "More Strip Pits for Fishin'!," Outdoor Indiana, December, 1951.

            Regulations encouraging the construction of lakes in reclaimed
     areas are described.  Opportunities for recreation are discussed.

 2.  Verts, B.J., "A Place to Hunt," WiIdlife,  December, 1956.

            Wildlife development on 924 acres of strip mined land is
     described.

 3.  Collins, F.W., "Game Management Practices on strip Mined Land," Pro-
     ceed ings of the Tenth Annual  Conference, Southeastern Association of
     Game and Fish Commissioners,  October 7-10, 1956.

            Discussions center on game management of surface mined land in
     Kentucky.  Observations over a four year period indicate wildlife
     migration into these areas.

 4.  Verts, B.J., "An Evaluation of Wildlife and Recreational Values of a
     Strip Mined Area," M.S. Thesis, Southern Illinois University, 1956.

            Mammal and bird populations were studied in detail  on a re-
     claimed Illinois surface mine.  Vegetation characteristics are also
     noted.  Hunting and trapping use  is examined.  Reclamation modifi-
     cations to  improve recreational values were recommended.

 5.  Arata, A.A., "Trapping the Striplands," WiIdlife, September, 1957.

            The trapping of muskrats, raccoons, opossums, and mink on the
     banks of strip mine ponds in Illinois is discussed.

 6.  "Outdoor Recreation and  its Relation to the Mining Industry," Amer-
     ican Mining Congress, 1961.

            Mining opportunities to create outdoor recreation sites are
     presented.

 7.  Roseberry, J.L., "Report on a Survey of Potential Recreation Utili-
     zation of Illinois Strip Mined Land," Midwest Coal Producers Insti-
     tute, 1962.

            Reclaimed strip mine land  in Illinois is an I ayzed for recre-
     ation potential.  Acreage, ownership,  present recreational acreage,
     and potential recreational acreages are tabulated for  individual
     counties.  Suitability factors for recreation are discussed.
                                 B-33

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 8.   Klimstra,  W.D.,  P.A.  Vohs,  and  J.W.  Cherry,  "Strip  Mined  Land  for
     Recreation,"  Wi Idlife,  1953.

            The devetpment and  use of  strip  mine  lands for  recreation on  a
     specific tract of  land  is  described.

 9.   Roseberry, J.L.  and  W.D. Klimstra,  "Recreational Activities  on Illi-
     nois Strip Mined Land," Journal of  Soil  and  Water Conservation,  19
     (3), 1964.

            Status of Illinois'  strip  mined  land  is  examined with special
     attention placed on  recreational  land  uses.   Opportunities to  create
     new recreational  sites  from current mining  are  discussed.

10.   "Tourist Recreation  Resources  in  Southern  Indiana," Department of
     Recreation and Park  Administration,  Indiana  University, October,
     1964.

            Specific  locations  where strip  mine  areas were  reclaimed for
     recreational  purposes are  presented.

11.   Dalrymple, B.W., "They're  Mining  for Bass  in Kansas,"  True's Fi shing
     Yearbook No.  16, 1965.

            This article  describes  fishing  areas  in  Kansas  which  once were
     strip pits.

12.   Gwynn, T.A.,  "Reclaiming Strip  Mined Lands  in North Dakota  by  Estab-
     lishing Game Management Areas," Knife  River  Coal Mining Company,
     January 1, 1965.

            Potential for wildlife,  recreation,  and  grazing is analyzed
     for the lignite-stripping  area  of North Dakota. Costs of reclamation
     are presented.

13.   Gwynn, T.A.,  "Reclaiming Strip  Mined Lands  by Establishing  Game Man-
     agement Areas -  An Update," Knife River Coal Mining Company, July 15,
     1966.

            Revegetation  success is  reported.  Problems  of  alkaline
     drainage and overbrowsing  by wildlife  are present.   Willows  doing
     well for deer forage.

14.   Pickels, G.,  Realizing the Recreation  Potential of  Sand  and  Gravel
     S i tes, NationeFi  Sand and Gravel Association, 1968.

            The sand  and  gravel industry can provide cheap  construction
     material  if  large tracts of reserves are kept from  other  preemptive
     uses near population centers.   Careful  planning of  site  development
                                 B-34

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     can provide concurrent and post-operational  recreation  areas.   Often
     extractive and  processing  operations will  last from  15  to 30 years.
     With adequate screening, adjacent unmined  land can be used for  out-
     door recreation with the  industry volunteering construction of  park
     facilities.  Possible uses of  a depleted  site are numerous and  depend
     upon site characteristics  and  community needs.

15.   "Friendship Park has Potential  to become  Recreation  Mecca on Re-
     claimed Land,"  Consol News, 8  (5) 1969.

            This reclaimed site in  Jefferson County, Ohio is a planned
     recreational  development and is described  here.

16.   "Reclamation Creates a New Resource," Coal  Age, 74  (12),  1969.

            Reclamation efforts of  the Ohio Power Company has  created
     recreation land for fishing, camping, picnicking, and hunting.

17.   McNay,  L.M.,  Surface Mine  Reclamation, Moraine State Park, Penn-
     syI van ia, U.S.  Bureau of Mines, 19707

            177 acres of mined  land were reclaimed to specific recre-
     ational  land uses.  Landscaping procedures and costs are  described.

18.   "Trauax-Traer Mines by Master  Land-Use Plan," Consol News, 9 (5),
     1970.

            A mine plan is presented which includes a golf course and
     other recreational uses in the final reclamation plan.

19.   Brunei",  C.C., "Fishery Management in Strip Mine Lakes," First  Re-
     search  and Applied Technology  Symposium on Mined Land Reclamation
     Preprints, 1973.

            Ten strip mine lakes in Kansas and six  in Indiana  demonstrated
     that strip mine lakes can  support good quality sport fishery.   Physi-
     cal parameters and stocking guidelines are suggested.

20.   Fowler,  O.K.  and C.H. Perry, "Three Years Development of  a Public  Use
     Wildlife Area on a Mountain Coal  Surface Mine  in Southwest Virginia,"
     First Research and Applied Technology Symposium on Mined  Land  Recla-
     mation  Preprints, 1973.

            The development of  the  Hagy Wildlife Management  Area in  south-
     western Virginia  is described.  Cooperative agreements  among public
     and private organizations  established the area to demonstrate  that
     surface mined  land could  be incorporated into this recreational/
     wildlife area.   Cooperative agreements among the Penn Virginia Coi—
     poration (landowner), Virginia Division of Mined Land Reclamation,
     Virginia Commission of Game and Inland Fisheries, and the TVA  are
     exami ned in detaiI.
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21.   Proceedings Digest;   Mid-Atlantic Regional  Conference on Surface
     Mined Land for Outdoor Recreation, Pennsylvania State University,
     December 12-14-1973.

            Discussion center on the needs and factors involved in con-
     verting mined lands  into recreation areas.

22.   Proceedings, Regional  Conference on Surface Mined Land for Outdoor
     Recreation, Kent State University, May 22,  1973.

            Papers discuss reclamation planning  for recreational  purposes
     in the surface mining industry.

23.   Zande, R.D., "Friendship Park - One Use of  Reclaimed Strip Mined
     Land," First Research and Applied Technology Symposium on Mined Land
     Reclamation Preprints, 1973.

            Plans to transform 1,100 acres of strip mined land in Jeffer-
     son County, Ohio into park lands are reveiwed.  Plans calI for a
     lake, for fishing and boating, an airport,  picnic areas, and hiking
     trails.

24.   Krause, R.R., "Industry's Role in Reclamation for Recreation,"
     National Conference,  Surface Mined Land for Outdoor Recreation, May
     14, 1973.

            The potential  and use of strip mined  lands for recreation are
     discussed.  The case study of Friendship Park in Ohio is cited.

25.   Preplanning;  Surface Mining for Outdoor Recreation, U.S.D.I. Bureau
     of Outdoor Recreation, 1974.

            The specific example of Friendship Park in Jefferson County,
     Ohio  is studied.  Factors considered  in this analysis of this 1,100
     acre  site are public  land,  industrial development, economic develop-
     ment, recreational use, and the value of preplanning.

26.   Sources of Assistance  in Reclaiming Surface Mined Lands  for Outdoor
     Recreation, U.S.D.I.  Bureau of Outdoor Recreation,  (n.d.).

            This report described the  functions of 27 government agencies
     which can provide assistance  in reclaiming  land.  Existing mined  land
     reclamation regulations and programs are also discussed.

27.   Maneval, D.R., "Reclaiming Land for Recreational Development, Part
     I," Coal Mining and Processing, 12  (4), 1975.
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            Cost advantages of reclaiming mined land for recreation are
     described.   Other factors considered are access,  availability of
     utilities,  and potential  for water recreation.   Government agencies
     which can provide technicial and financial  assistance are noted.

28.  Maneval, D.R., "Recreational Development on Reclaimed Land, Part II,"
     Coal  Mining and Processing, 12 (6), 1975.

            Several reclamation projects in Pennsylvania are described in
     which recreation facilities were developed.

29.  "Transform this Surface Mined Land into this Recreation Mecca,"
     Consol News, April-May, 1975.

            The article describes Friendship Park, Jefferson County, Ohio
     which was created from mined land.

30.  Andreuzzi,  F.C., Reclaiming Strip Mined Land for Recreational Use in
     Lackawanna County,  PA. - A Demonstration Project, U.S. Bureau of
     Mines, 1976.

            This reclaimed park's facilities  include picnic grounds, play
     areas, camping grounds, and winter sports area.  The "Anthracite
     Museum"  is also a major attraction.
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                        AN ANNOTATED BIBLIOGRAPHY:
             ECONOMIC DEVELOPMENT OF MINE LANDS  IN APPALACHIA
         A myriad of public programs are available as funding  mechanisms

for economic development projects.   The Appalachian Regional  Commission

has utilized many of these programs, which will  be useful  for  land use

development in mine lands areas.

         In the descriptions that follow, programs have been  divided into

three categories:

            Economic and community development

            Environment, conservation, and natural resources

            Transportation

Descriptions have been excerpted from the Catalog of Federal  Domestic

Assistance.  Numbers designated for each program refer to its number in

the catalog.


                    Economic and Community Development


Appalachian Regional Commission


23.002  Appalachian Supplements to  Federal Grant-in-Aid

        Objective  is to meet the basic needs of  local areas and assist  in
        providing community development opportunities by funding  such
        development facilities  as water and sewer  systems, sewage treat-
        ment plants, recreation centers,  Industrial sites, and other
        community development facilities.  Grants  may supplement  other
        federal  grants or, when sufficient funds  are  unavailable, funds
        may be provided entirely by this  program.

        The grants may be  used  for  providing  supplemental funds under  any
        federal  grant-In-ald programs  authorized  on or before December  31,
        1978.  To be eligible for special basic grants, projects  must  be
        of  high  priority  In the state's  Appalachian  Development Plan and
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        either of critical  importance to a phased investment and develop-
        ment program for a multi-county area, or of unusual  economic bene-
        fit to such area.  This program is considered suitable for joint
        funding with closely related federal  financial  assistance programs
        in accordance with the provisions of  OMB Circular A-111.
23.005  Appalachian Housing Assistance

        Objective is to stimulate low and moderate income housing con-
        struction and rehabilitation, and to assist in developing site and
        off-site improvements for low and moderate income housing in the
        Appalachian region.

        Project planning loans may be used for costs of planning federal
        (HUD and FmHA) and/or state low and moderate income housing proj-
        ects and obtaining project funding.  Included may be preliminary
        site engineering and architectural  fees,  consultant fees, site
        options, federal and/or state agency fees, and construction loan
        fees and discounts.  Site Development and Off-Site Improvement
        Grants may be used only for reasonable site development costs and
        necessary off-site improvement costs when used in conjunction with
        federal  (HUD and FmHA) and/or state low and moderate income hous-
        ing programs.  The grants must be essential to the economic feasi-
        bility of housing constructed or rehabilitated for low and moder-
        ate income families and individuals.  The ARC may provide, or con-
        tract to provide, technical  assistance for constructions, rehabil-
        itation, and operation of low and moderate income housing.
23.011   Appalachian Demonstration Projects

        Objective is to expand knowledge of the region to the fullest
        extent possible by means of state-sponsored research (including
        investigations, studies, and demonstration projects) in order to
        assist the ARC in accomplishing its objectives.

        Funds may be used to research and demonstrate the feasibility of
        plans and programs for concerted economic and social development.
        Priority will  be given to research of region-wide significance and
        application.  States can carry out investigations, research,
        studies, evaluations, and assessments of needs, potentials, or
        attainments; and technical  assistance, training programs, demon-
        strations, and the construction of necessary facilities incident
        to such activities.  Demonstration programs include rural  trans-
        portation, Indigenous arts  and crafts, timber development, junk
        car and solid  waste disposal, and energy-related enterprise
                                 i-39

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        development.   All  developments resulting from such research and
        demonstration projects must be made freely available to the
        general  public.  Existing research by other agencies is to be
        utilized as much as possible.  This program is considered suitable
        for joint funding with closely related federal financial  assis-
        tance programs in accordance with the provisions of OMB Circular
        A-111.
Economic Development Administration
11.300  Grants and Loans for Public Works and Development Facilities

        Objective is to assist in the construction of public facilities
        needed to initiate and encourage long-term economic growth in
        designated geographic areas where economic growth is lagging
        behind the rest of the nation.

        Grants are provided for such public facilities as water and sewer
        systems, access roads to industrial parks, port facilities, rail-
        road sidings and spurs, public tourism facilities, vocational
        schools, and site improvements for industrial parks.  Qualified
        projects must fulfill a pressing need of the area and must:
        1) tend to improve the opportunities for the successful establish-
        ment or expansion of industrial  or commercial plants or facili-
        ties; 2) assist in the creation of additional long-term employment
        opportunities; or 3) benefit the long-term unemployed and members
        of low income families or otherwise substantially further the
        objectives of the Economic Opportunity Act of 1964.  In addition,
        proposed projects must be consistent with the currently approved
        overall economic development program for the area in which it will
        be located.  This program is considered suitable for joint funding
        with closely related federal financial assistance programs in
        accordance with the provisions of OMB Circular A-111.


11.307  Special Economic Adjustment Grants

        Objective is to assist state and local areas in the development
        and  Implementation of strategies designed to arrest and reverse
        the problems associated with long-term economic deterioration.

        Grants may be made to develop a strategy for the arrest and
        reversal of  long-term economic decline or for any of the follow-
        ing activities to carry out such a plan:  publ ic facil  ities,
        public services, business development, technical assistance,
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        training, and revolving loan funds.  No grant may be made to a
        private profit-making entity, but loans may be made to such
        entities.
Department of Housing and Urban Development
14.155  Mortgage Insurance

        Objective is to provide mortgage insurance for the purchase or
        refinancing of existing multi-family housing projects, whether
        conventionally financed or subject to federally insured mortgages
        at the time of application for mortgage insurance.

        HUD insures lenders against losses on mortgage loans.  Insured
        mortgages may be used to finance the purchase of  or the refinance
        of existing multi-family housing projects.  As a  matter of policy,
        only rental  housing projects now requiring substantial rehabilita-
        tion are acceptable under this program; however,  minimal  repairs
        may be included up to 15 percent of the mortgage  amount.
14.156  Housing Assistance

        Objective is to aid lower income families in obtaining decent,
        safe, and sanitary housing in private accommodations and to pro-
        mote economically mixed existing, newly constructed, and substan-
        tially rehabilitated housing.

        Provides housing assistance payments to participating private
        owners and public housing agencies to provide decent, safe, and
        sanitary housing for lower and very low income families at rents
        they can afford.  Housing assistance payments are used to make up
        the difference between the maximum approved rent due to the owner
        for the dwelling unit which is reasonable in relation to compar-
        able market units and the occupant family's required contribution
        toward rent.  Assisted families are required to contribute not
        less than 15 percent, nor more than 25 percent, of their adjusted
        family income toward rent.
14.218  Community Development Grants/Entitlement Grants

        Objective is to develop viable urban communities,  including two
        decent housing, and a suitable living environment, and expand
        economic opportunities, principally for  persons of low and mod-
        erate income.
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        Cities  may  use  funding  to  undertake  a  wide  range  of  activities
        directed  toward neighborhood  revitalization, economic  development,
        and  provision of improved  community  facilities  and services.  Some
        of the  specific activities that  can  be carried  out with  block
        grant funds include  acquisition  of real  property, relocation and
        demolition, rehabilitation and provision  of public facilities and
        improvements, such as water and  sewer  facilities, streets,  and
        neighborhood centers.   In  addition,  block grant funds  are  avail-
        able to pay for certain public services which are necessary and
        appropriate to  support  other  block grant  activities.   Units of
        local  government may contract with other  local  agencies  or  non-
        profit  organizations to carry out part or all of  their programs.
        Generally,  communities  are restricted  from  constructing  or  reha-
        bilitating  public facilities  for the general conduct of  government
        and  certain community-wide facilities  (i.e., stadiums, sports
        arenas, cultural  centers,  central  libraries, convention  centers),
        and  from  underwriting the  cost of constructing  new housing, or of
        making  housing  allowance - or other  income  maintenance-type pay-
        ments.  Neighborhood-based non-profit  organizations,  local  devel-
        opment  corporations, or small business investment companies may
        act  as  subgrantees to carry out  neighborhood revital ization or
        community of block grant objectives.  Cities have the  discretion
        to design programs and  establish priorities for the  use  of  funds,
        so  long as  the  programs conform  to the statutory  standards  and
        program regulations. All  projects or  activities  must  either
        principally benefit  low and moderate income persons, aid in the
        prevention  or elimination  of  slums and blight,  or meet other
        community development needs having a particular urgency.
14.219  Community Development  Grants/SmalI  Cities  Program

        Objective is  to assist communities  in  providing  decent  housing  and
        a suitable living  environment,  and  expanded  economic  opportuni-
        ties,  principally  for  persons of  low and moderate  income.

        Generally, grants  may  be used for the  acquisition,  rehabilitation,
        or construction of certain  public works  facilities  and  improve-
        ments, clearance,  housing rehabilitation,  code enforcement,  relo-
        cation payments and assistance, administrative expenses,  economic
        development,  and completing existing urban renewal  projects.  Com-
        munities are  restricted from constructing  or rehabilitating  public
        facilities for the general  conduct  of  government and  certain com-
        munity-wide facilities (i.e., central  libraries, stadiums,  sports
        arenas, cultural centers, convention centers), and  from underwrit-
        ing the cost  of constructing new housing or  of making housing
        allowance or  other income maintenance-type payments.   This  program
                                B-42

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        is considered suitable for joint funding with closely related
        federal  financial  assistance programs in accordance with provi-
        sions of OMB Circular A-111.
Farmers'  Home Administration
10.411   Rural  Housing Site Loans

        Objective is to assist public or private non-profit organizations
        interested in providing sites for housing, to acquire and develop
        land in rural  areas to be subdivided as adequate building sites
        and sold on a non-profit basis to families eligible for low and
        moderate Income loans, and broadly based non-profit rural  renting
        hous ing appl icants.

        Loans  may be used  for the purchase and development of adequate
        sites, including necessary equipment which becomes a permanent
        part of the development; for water and sewer facilities if not
        available; payment of necessary engineering, legal  fees, and
        closing costs; for needed landscaping and other necessary facil-
        ities  related to buildings such as walks, parking areas, and
        driveways.  Loans are limited to $100,000 without national office
        approval.  Funds may not be used for refinancing of debts; payment
        of any fee or commission to any broker, negotiator, or other
        person for the referral  of a prospective applicant or solicitation
        of a loan; or to pay operating costs or expenses of administration
        other  than actual  cash cost of incidental administrative expenses
        if funds to pay those expenses are not otherwise available.
10.415  Rural  Rental  Housing Loans

        Objective is  to provide economically designed and constructed
        rental  and cooperative housing and related facilities suited for
        independent living of rural  residents.

        Loans  can be  used to construct,  purchase,  improve, and repair
        rental  or cooperative housing.  Housing as a general  rule will
        consist of multi-family units with two  or  more family units and
        any appropirately related facilities.  Funds may also be used to
        provide recreational and service facilities appropriate for use in
        connection with the housing  and  to buy  and improve the land on
        which  the buildings are to be located.   Loans may not be made for
        nursing, special  care, or institutional-type homes.
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10.418  Water  and  Waste Disposal  Systems
        Loans  and  Grants

        Objective  is to provide  basic  human  amenities,  alleviate health
        hazards, and promote the orderly growth  of  rural  areas  of the
        nation by  meeting  the need  for new and  improved rural  water  and
        waste  disposal  facilities.

        Funds  may  be used  for the installation,  repair, improvement, or
        expansion  of a  rural  water  facility  including  distribution lines,
        wells, pumping  facilities,  and costs related thereto.   The instal-
        lation, repair, improvement, or expansion of a rural  waste dis-
        posal  facility  includes  the collection  and  treatment  of sanitary,
        storm, and solid wastes.  This program  is considered  suitable for
        joint  funding with closely  related federal  financial  assistance
        programs in accordance with the provisions  of  OMB Circular A-111.
10.422  Business and  Industrial  Loans

        Objective is  to assist public,  private,  or cooperative organiza-
        tions organized for  profit or non-profit,  Indian tribes and indi-
        viduals in rural  areas to obtain quality loans for the purpose of
        improving, developing or financing business,  industry and employ-
        ment; and improving  the economic and environmental climate In
        rural  communities including pollution abatement and control,  and
        the conservation, development and utilization of water for aqua-
        culture purposes.

        Financial  assistance is provided by the  FmHA or in joint financing
        with other federal,  state, private, and  quasipublic financial in-
        stitutions for  improving, developing, or financing business,
        industry and  employment; and improving the economic and environ-
        mental  conditions In rural areas.  No financial assistance can be
        extended:  1) except for  loans of under  $1 million or where direct
        employment is 50 or  less where it is calculated to or is likely to
        result in the transfer from one area to  another of any employment
        or business activity provided by operations of the applicant; 2)
        except for loans of  under $1 million or  where direct employment is
        50 or less where it  is calculated to or  likely to result in an
        increase  in the production of goods, materials, commodities,  or
        the availability of  services or facilities in an area when there
        is not sufficient demand for such goods, materials, commodities,
        services, or  facilities, to employ the efficient capacity of
        existing competitive commercial or industrial enterprises; 3)
        where the Secretary  of Labor certified within 30 days after the
        matter has been submitted to him by the  Secretary of Agriculture
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        that the items In "1"  and  "2"  above have  not  been  complied  with;
        4)  to pay off a creditor  in excess  of  the value of the  collateral;
        5)  for distribution  or payment to the  owner,  partners,  sharehold-
        ers, or beneficiaries  of the applicant or members  of  their  fami-
        lies when such persons shall  retain any portion of their  equity in
        the business; 6)  projects  for  production  of  agricultural  products;
        &)  for transfer of ownership of a business unless  the loan  will
        keep the business from closing, or  prevent the  loss of  employment
        opportunities in the area,  or  provide  expanded  job opportunities;
        8)  for the guarantee of lease  payments; and  9)  for guarantee of
        loans may be banks for Co-ops, Federal  Land  Bank or Product Credit
        Associations.  Not more than 90 percent of the  loss on  principal
        advanced and accrued interest  and principal  and accrued interest
        on  secured protective  advances may  be  guaranteed to the lender.
        An  insured loan may  be made when the applicant  and FmHA agree that
        a guaranteed lender  is not  available,  if  not  otherwise  restricted.
10.423  Community  Facility  Loans

        Objective  is  to construct,  enlarge,  extend,  or  otherwise improve
        community  facilities providing  essential  services  to rural  resi-
        dents.

        Loans may  be  made for community facilities including,  but not
        limited to, those providing or  supporting overall  community devel
        opment  such as fire and rescue  services;  transportation; traffic
        control; community, social, cultural,  health and recreational
        benefits;  industrial  park sites;  access  ways; and  utility exten-
        sions.   All facilities financed in  whole  or  in  part with FmHA
        funds shall be for  public use.
10.424  Industrial  Development Grants

        Objective is to facilitate the development of  business,  industry,
        and related employment for improving  the economy in  rural  communi-
        ties.

        Grant  funds may be used to finance industrial  sites  in  rural  areas
        including the acquisition  and development of  land  and  the  con-
        struction,  conversion, enlargement, repair, or modernization  of
        buildings,  plants, machinery, equipment, access streets  and  roads,
        parking  areas,  transportation serving the site, utility  exten-
        sions,  necessary water supply and  waste disposal  facilities,  pol-
        lution  control  and abatement  incidental  to site development,  fees,
        and refinancing.  This program is  considered suitable  for  joint
                                B-45

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        funding with closely related federal  financial  assistance programs
        in accordance with the provisions of  OMB Circular A-111.
10.430  Energy Impacted Area Development Assistance Program

        Objective is to help areas Impacted by coal  or uranium development
        activities by providing assistance for the development of growth
        management and housing plans and in developing and acquiring sites
        for housing and public facilities and services.

        Grant funds may be used for the preparation of growth management
        and/or housing plans and up to 75 percent of the actual  cost of
        developing or acquiring sites for public facilities, housing or
        services for which other resources are otherwise not available in
        an approved designated area.  Projects funded by this program
        should be coordinated with other planning activities for the araa.
        This program is considered suitable for joint funding with closely
        related federal financial  assistance programs in accordance with
        the provisions of OMB Circular A-111.
             Environment, Conservation, and Natural  Resources


Appalachian Regional  Commission


23.010  Appalachian Mine Area Restoration

        Objective is to further the economic development of the region by
        rehabilitating areas presently damaged by deleterious mining prac-
        tices and by controlling or abating mine drainage pollution, and
        to meet the objectives stated of the ARC.

        Grants may be used to seal  and fill voids in abandoned coal mines
        and abandoned oil and gas wells; reclaim, and rehabilitate lands
        affected by strip and surface mining and by processing of coal and
        other minerals including land affected by waste piles; and control
        or abate mine drainage pollution and planning and engineering for
        above.  Activities to reclaim strip-mined areas are limited to
        lands owned by federal, state, or  local bodies of government or by
        private non-profit entities organized under state law to be used
        for public recreation, conservation, community facilities for
        public housing, otherwise meeting the restrictions of the ARC.   In
        addition to actual construction costs, grants may be awarded sep-
        arately for planning and engineering of potential mining area
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        restoration projects.  This program is considered suitable for
        joint funding with closely related federal  financial  assistance
        programs in accordance with the provisions of OMB Circular A-111
Environmental  Protection Agency
66.418  Construction Grants for Wastewater Treatment Works

        Objective is to assist and serve as an incentive in construction
        of municipal sewage treatment works which are required to meet
        state and federal  water quality standards.

        Grants can be used for construction of municipal wastewater treat-
        ment works  including privately owned individual  treatment systems,
        if a municipality applies on behalf of a number  of such systems.
        Such works may serve all  or portions of individual  communities,
        metropolitan areas or regions.  A project may include, but may not
        be limited to, treatment of any industrial wastes which would
        otherwise be detrimental  to efficient operation  and maintenance,
        or grantee must prevent the entry of such waste  into the treatment
        plant.  The grantee must initiate an acceptable  system of user
        charges, and in addition, recover from industry  capital costs
        associated with the treatment of industrial  wastes.  This program
        is considered suitable for joint funding with closely related
        federal  financial  assistance programs in accordance with the
        provisions of OMB Circular A-111.


66.451  Solid and Hazardous Waste Management Program Support Grants

        Objective is to assist state, interstate, regional, county, muni-
        cipal, and  intermunicipal agencies, authorities, and organizations
        in the development and implementation of state and local programs
        and to support rural  and special communities in  programs and proj-
        ects leading to the solution of solid waste management problems
        and the control of solid waste management systems.

        Funds may be used for the development and implementation of auth-
        orized state hazardous waste programs.  Funds may also be used for
        the development and implementation of state solid waste management
        plans, and for the implementation of programs to provide solid
        waste management, resource recovery and resource conservation ser-
        vices, and hazardous waste management.  Such assistance includes
        facility planning and feasibility studies, expert consultation,
        surveys and analyses of market needs, marketing  of recovered
        resources, technology assessment, legal  expenses, construction
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        feasibility studies, source separation projects, and fiscal  or
        economic investigations or studies.  Such assistance does not in-
        clude any other element of construction, or any aquisition of land
        or interest in land, or any subsidy for the price of recovered
        resources.  Funds may be used by special communities for conver-
        sion, improvement, or consolidation of existing solid waste dis-
        posal facilities, or for construction of new solid waste disposal
        faciI ities.  Ass istance is a I so avai I abIe to mun icipal ities with
        low populations for closing or upgrading of existing open dumps,
        or meeting requirements or restrictions on open burning or other
        requirements arising under the Clean Air Act or the Federal  Water
        Pollution Control Act.  This program is considered suitable for
        joint funding with closely related federal financial assistance
        programs in accordance with the provisions of OMB Circular A-111.
Farmers'  Home Administration
10.414  Resource Conservation and Development Loans

        Objective is to provide loan assistance to local  sponsoring
        agencies in authorized areas where acceleration of program of
        resource conservation, development, and utilization will increase
        economic opportunities for local  people.

        Loan funds may be used for:  1) rural community public outdoor-
        oriented water based recreational  facilities; 2)  soil  and water
        development, conservation, control, and use facilities; 3) shift-
        in- I and use facilities; 4) community water storage facilities; and
        5) special  purpose equipment to carry out the above purposes.
        Project must be located in an authorized RC&D area.  A  loan for a
        single RC&D measure cannot exceed $500,000.
10.419  Watershed Protection and Flood Prevention Loans

        Objective is to provide loan assistance to sponsoring local
        organizations in authorized watershed areas for share of cost for
        works of improvement.

        Loan funds may be used to help local  sponsors provide the  local
        share of the cost of watershed works of improvement for flood
        prevention, irrigation, drainage, water quality management, sedi-
        mentation control, fish and wildlife development, public water
        based recreation, and water storage and related costs.  The total
        amount of WS loans outstanding in any one watershed cannot exceed
        $10,000,000.
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Soil  Conservation Service
10.901   Resource Conservation and Development

        Objective is to assist local  people in initiating and carrying out
        long range program of resource conservation and development for
        purposes of achieving a dynamic rural  community with satisfactory
        level  of income and pleasing  environment, and creating a favorable
        investment climate attractive to private capital.

        Technical  and financial assistance is available only for RC&D
        areas authorized for assistance.  Technical and financial  assis-
        tance is available for the planning and installation of approved
        measures specified in RC&D area plan serving purposes such as
        floor prevention, sedimentation and erosion control, public water
        based recreation, fish and wildlife developments, agricultural
        water management purposes, water quality management, and the con-
        trol and abatement of agriculture-related pollution.
10.902  Soil  and Water Conservation

        Objective is to plan and carry out a national  soil  and water
        conservation program, and to provide leadership in conservation,
        development, and productive use of the nation's soil, water, and
        related sources.

        Technical  assistance is provided to individuals and groups In
        planning and applying soil  and water conservation practices, and
        furnishing technical  soil and water conservation Information to
        units of government.
10.904  Watershed Protection and Flood Prevention

        Objective is to provide technical  and financial  assistance in
        planning and carrying out works of improvement to protect,
        develop, and utilize the land and  water resources in small
        watersheds.

        Assistance is provided In planning, designing, and installing
        watershed works of improvement; in sharing costs of flood pre-
        vention, irrigation, drainage, sedimentation control, and public
        water based  fish and wildlife and  recreation; and in extending
        long-term credit to help local interests with their share of the
        costs.  Watershed area must not exceed 250,000 acres.  Capacity of
        a single structure Is limited to 25,000 acre-feet of total capa-
        city and 12,500 acre-feet of floodwater detention capacity.
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10.910  Rural  Abandoned Mine Program

        Objective is to protect people and the environment from the ad-
        verse affects of past coal  mining practices and to promote the
        development of soil  and water resources of unreclaimed mined
        Iands.

        Cost share funds are available only for conservation practices
        determined to be needed for the reclamation, conservation, and
        development of up to 370 acres per owner of rural  abandoned coal
        mine land or lands and waters affected by coal  mining activities.
        Practices must be applied in accordance with a reclamation plan
        and contract provisions.  Practices are limited to those which
        will provide land stabilization, erosion and sediment control, and
        development of soil, water (excluding stream channelization),
        woodland, wildlife,  recreation resources, and the  agricultural
        productivity of such lands.
Corps of Engineers
12.107  Navigation Projects

        Objective is to provide the most practicable and economic means of
        fulfilling the needs of general  navigation through projects not
        specifically authorized by Congress.

        Corps of Engineers designs and constructs the project.  Each proj-
        ect selected must be engineer ing Iy feasible, complete within it-
        self, and economically justified.   The non-federal  sponsoring
        agency must agree to assume full  responsibility for all  project
        costs in excess of the federal  cost limit of $2,000,000; contri-
        bute toward project costs for construction and maintenance in view
        of recreational benefits, land enhancement benefits and other spe-
        cial  benefits; provide all  necessary lands, easements, rights-of-
        way; hold and save the United States free from damages; and pro-
        vide adequate public landing or wharf piers, access roads, parting
        areas, and other needed public facilities open and available to
        all on equal terms.  Local  cost participation requirements and
        procedures for determining the local share of project cost are
        similar to those for navigation projects specifically authorized
        by Congress under regular authorization procedures.
12.106  Flood Control  Projects

        Objective Is to reduce flood damages through projects not specif-
        ically authorized by Congress.
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        Corps of Engineers designs and constructs the project.  Each proj-
        ect selected must be engineering Iy feasible, complete within it-
        self, and economically justified.   Non-federal  sponsoring agency
        must be responsible for alI  lands  and damages,  and project costs
        in excess of the federal cost limit of $2,000,000 or $3,000,000 if
        project is located in an area that has been declared a disaster
        area in a period of five years prior to its authorization; provide
        a cash contribution for land enhancement benefits and for project
        costs assigned to project features other than flood control; pre-
        vent future encroachment which might interfere  with proper func-
        tioning of the project for flood control; and maintain the project
        after completion.  Local cost participation requirements and pro-
        cedures for determining the local  share of project cost are simi-
        lar to those for flood control  projects specifically authorized by
        Congress under regular authorization procedures.


12.110  Planning Assistance to States

        Objective is to cooperate with any state in the preparation of
        comprehensive plans for drainage basins located within the boun-
        daries of such state.

        The state must have a planning program for the  development, util-
        ization, or conservation of the water and related land resources
        underway or laid out in sufficient detail  so that the relationship
        of a state's request for Corps'  input for some  particular aspect
        of the program may be appraised.  All input from the Corps is to
        be on an effort or service sharing basis in lieu of an outright
        grant basis.  The program is limited to $14,000,000 annually
        except that no more than $200,000  shalI  be expended in any one
        year in any one state.
Bureau of Outdoor Recreation
15.400  Outdoor Recreation - Acquisition, Development, and Planning

        Objective is to provide financial assistance to the states and
        their political  subdivisions for the preparation of comprehensive
        statewide outdoor recreation plans and acquisition and development
        of outdoor recreation areas and facilities for the general  public
        to meet current and future needs.

        Acquisition and development grants may be used for a wide range of
        outdoor recreation projects, such as picnic areas, inner city
        parks, campgrounds, tennis courts, boat launching ramps, bike
        trails, outdoor swimming pools, and support facilities such as
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        roads,  water supply,  etc.   Facilities must be open  to the general
        public  and not limited  to  special  groups.   Development of basic
        rather  than elaborate facilities is favored.   Priority considera-
        tion generally is given to projects serving urban populations.
        Fund monies are not available for  the operation and maintenance of
        facilities.  Grants are also available to  states only for revising
        and updating existing state outdoor recreation plans, preparation
        of new  plans, and for statewide surveys, technical  studies, data
        collection and analysis, and other planning purposes which are
        clearly related to the  refinement  and improvement of the state
        outdoor recreation plan.  This program is  considered suitable for
        joint funding with closely related federal financial assistance
        programs in accordance  with the provisions of OMB Circular A-111.


                              Transportation


Appalachian Regional Commission


23.008  Appalachian Local Access Roads

        Objective is to provide access to  industrial, commercial, educa-
        tional, recreational, residential, and related transportation
        facilities which directly or indirectly relate to the improvement
        of the  areas determined by the states to have significant devel-
        opment  potential, and to meet the  objectives of the ARC.

        Grants  may be used for  engineering, right-of-way, relocation, and
        construction of projects relating  to the objectives stated above,
        and those identified in the State  Appalachian Development Plan  as
        submitted to, and accepted by the  Commission.  Total access road
        construction may not exceed 1,400  miles and the roads must be
        accepted by the Federal Highway Administration and the state.  The
        state  is responsible to see that they are  properly maintained.
        This program  is considered suitable for joint funding with closely
        related federal financial  assistance programs in accordance with
        the provisions of OMB Circular A-111.


Federal Highway Administration


20.205  Highway Research, Planning, and Construction

        Objective  is to assist state highway agencies in constructing  and
        rehabilitating the interstate highway system, and building or  im-
        proving primary, secondary, and urban systems roads and  streets;
        to provide aid for their repair following disasters; to  faster
        safe highway design; and to replace or rehabilitate unsafe
        br idges.
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        Funds may be used for planning,  surveying,  research,  engineering,
        right-of-way acquisition,  new construction, reconstruction,  re-
        pair, improvement,  restoration,  rehabilitation,  resurfacing, road-
        side beautification, and recreation.   Funds may  be applied to
        highways, bridges,  bikeways,  pedestrian walkways,  fringe and coor-
        idor parking facilities, and  rest areas.  All  capital  projects in
        urban areas  of more than 50,000  population  must  be based on  a con-
        tinuing comprehensive planning process.  These funds  cannot  par-
        ticipate in  any maintenance activities.  Some county  and local
        roads and streets may be part of a federal-aid system and are eli-
        gible for improvement, but only  through state highway agency coor-
        dination and action.  Selected interstate and non-interstate auth-
        orizations may be used for mass  transit capital  improvements at
        the request  of state and local governments.  Special  programs for
        highway safety, bridge reconstruction, and  railroad grade crossing
        protection are also available for roads both on  and off federal-
        aid systems.  This  program is eligible for  joint funding, but the
        initiative lies with the state highway agency.  The state highway
        agency is responsible for  reviewing and rejecting  or  approving on
        a final  basis specific state projects.  This program  is considered
        suitable for joint  funding with  closely related  federal financial
        assistance programs in accordance with the  provisions of OMB
        Circular A-111 .
Urban Mass Transit Administration
20.500  Urban Mass Transportation Capital  Improvement Grants

        Objective is to assist in financing  the acquisition, construction,
        and improvement of facilities and  equipment for use, by operation,
        lease, or otherwise,  in mass transportation service in urban areas
        and in coordinating service with highway and other transportation
        in such areas.

        Grants can be applied to facilities  and equipment including land,
        buses, other rolling  stock, and other real  and personal  property
        needed for an efficient and coordinated mass transportation sys-
        tem.  Ordinary governmental or project operating expenses are ex-
        cluded.  Adequate public notice must be given of intent; social
        and economic impact on environment must be considered; and project
        must be consistent with official  plans for comprehensive develop-
        ment of urban areas.   This program is considered suitable for
        joint funding with closely related federal  financial assistance
        programs in accordance with the provisions of OMB Circular A-111.
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20.501   Urban Mass Transit Capital  Improvement Loans

        Objective is to finance the acquisition,  construction,  reconstruc-
        tion, and improvement of facilities and equipment for use, by op-
        eration, lease, or otherwise, in mass transportation service in
        urban areas.

        Loans require adequate public notice be given of intent; social
        and economic impact on environment must be considered;  and project
        must be consistent with official plans for comprehensive develop-
        ment of the urban area.  Maturity dates of loans shall  not exceed
        40 years.   Interest rate is determined by the U.S.  Treasury in
        accordance with policy at time of approval.
Federal  Aviation Administration
20.102  Airport Development Aid Program

        Objective is to assist public agencies In the development of a
        nationwide system of public airports adequate to meet the needs of
        civil  aeronautics.

        Grants can be made for constructing, improving, or repairing a
        public airport or portion thereof consisting of:  1) land acquisi-
        tion;  2) site preparation; 3) construction, alteration, and re-
        pair of runways, taxiways, aprons, and roads within installation
        of lighting utilities, navigational  aids, and certain off-site
        work;  5) safety equipment required for certification of airport
        facility; 6) security equipment required of the sponsor by the
        Secretary of Transportation by rule or regulation for the safety
        and security of persons or property on the airport; 7) snow re-
        moval  equipment; 8) noise suppressing equipment, construction of
        physical barriers, landscaping and land acquisition for noise
        compatibility; and 9) terminal development.  Grants may not be
        made for the construction of hangers, parking areas for automo-
        biles, or for buildings not related to the safety of persons on
        the airport.  Technical advisory services are also provided.
                     Appalachian Regional  Development


        The objective of the ARC mandate is to stimulate substantial  pub-

I ic investments in public facilities that will start the region on its way

toward accelerated social and economic development; to help establish a
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set of insitutions in Appalachia capable of permanently directing the



long-term development of the region; and on a joint federal/state/local



basis, to develop comprehsensive plans and programs to help accomplish the



overall objectives of Appalachian development, including meeting the spe-



cial demands created by the nation's energy needs and policies.



        Appalachian funds enable the states and local areas to develop




networks of facilities and services.  The individual  programs following



this description illustrate the types of investments that can be made.  In



considering programs and projects to be given assistance under this Act,



and in establishing a priority ranking of the requests for assistance pre-



sented to the Commission, the Commission follows procedures insuring con-



sideration of the following factors:  1) the relationship of the project



or class of projects to overall  regional development, including its loca-



tion in an area determined by the state as having a significant potential




for growth; 2) the population and area to be served by the project or



class of projects including the relative per capita  income and the unem-




ployment rates in the area; 3) the relative financial resources available



to the state or political subdivision or Instrumentalities thereof which



seek to undertake the project; 4) the importance of the project or class



of projects in relation to other projects or classes of projects which may



be  in competition for the same funds; 5) the prospects that the project



for which assistance is sought will  improve, on a continuing rather than a



temporary basis, the opportunities for employment, the average level  of




income, or the economic and social development of the area served by the
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project; and 6) no financial  assistance can be used (a) to assist estab-



I ishments relocating from one area to another; (b) to finance the cost of



industrial  plants, commercial facilities, machinery, working capital, or



other industrial  facilities or to enable plant subcontractors to undertake



work theretofore performed in another area by other subcontractors or con-



tractors; (c) to finance the cost of facilities for the generation, trans-



mission, or distribution of electric energy; or (d) to finance the cost of




facilities for the production, transmission, or distribution of gas (nat-



ural, manufactured, or mixed).  (Note: restriction (b), (c), and (d) on



financial assistance may be waived for energy enterprise development and



indigenous arts and craft projects).  Each state  is required by the Com-



mission to file a state Appalachian development plan annually, appraising



prospects for development in its Appalachian area and relating to them all



projects for which Appalachian funding is requested in that year.  All



projects proposed for funding must be included in an annual  Implementing



Investment Program.  Once an application is submitted for the individual



projects and given final approval, the grant  is administered by the basic



federal  agency involved in that type of program except for state research,



technicial  assistance, and demonstrations; LDD assistance; state housing



technical assistance special  transportation related planning, research,



and demonstrations; and energy enterprise development, which are adminis-



tered by ARC.
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                        Local  Development Districts





        The objective of this program is to provide planning and develop-




ment resources in multi-county areas; to help develop the technical compe-



tence essential  to sound development assistance; and to meet the objec-




tives stated under the program entitled Appalachian Regional Development.



        Uses and Use Restrictions:  For administrative expenses, including




technical  services of certified local development districts; in addition



to the uses and use restrictions detailed in the Appalachian Development



Program, the local development district may not use grant funds for real



estate, vehicles, space improvement, vehicle repair and maintenance,



entertainment, professional  dues and generally furniture, equipment and




construction.  Funds may be used only in the performance of grantees pro-



gram and in accord with the budget, and amendments thereto, as approved by



the Commission.  This program is considered suitable for joint funding



with closely related federal  financial  assistance programs  in accordance



with the provisions of OMB Circular A-111.



        The primary planning mechanism of LDD is the Areawide Action Pro-



gram.  Simply stated, the areawide action program (AAP) is a process a



local development district (LDD) can use to make decisions and pool re-



sources to attack its problems.  The process is long-range and comprehen-



sive.   It links development planning to project programming.   It describes



the projects and programs that the LDD believes will meet Its needs and




solve its problems, stimulate economic growth within its boundaries and



achieve its strategic objectives.   It ranks these projects and programs
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according to both one-year and multi-year priorities.  And it lists all  of



the possible funding sources for all  projects and programs included.  It



is the intent that the AAP be accepted by as many funding sources as pos-



sible as the answer to their funding requirements.



        The process is designed to develop a single method for planning,



setting priorities for projects and programming funds.  An AAP should



combine into one document the requirements (reports, statistics, project



priorities, etc.) set by a number of different funding agencies for the



review of projects or programs for funding.  This combined approach avoids



dupl ication of effort because the one document can meet the requirements



of different funding sources.  Furthermore, it will assist in informing



the private sector of funding priorities, ensure the greatest return pos-



sible on public money expended and show how projects and programs are con-



sidered in relationship to one another; it should make joint funding of




projects by several different agencies easier.



        The key work in this description of the AAP  is process.  Process




has two parts - planning and programming.  The planning part of the pro-



cess  involves an analysis of the major issues, needs, problems, assets and



resources of an area and the definition of development policies, strate-



gies and major priorities designed to improve the area.  The programming



part of the process involves the preparation of both one-year and multi-



year funding schedules for projects and activities of areawide signifi-



cance.  The planning phase identifies the pieces of an economic develop-



ment program; the programming phase ties the pieces together by slating
                                B-58

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them for implementation with local, state, Appalachian Regional commission

(ARC) and federal funds.

         In addition to being a process, however, the AAP is also a docu-

ment - a document that flows from the organization of a consolidated de-

velopment investment program and is designed to meet the planning, pri-

ority-setting and other funding requirements of many funding agencies.

This is possible because the pieces required in planning and programming

process are relatively stable and common to the needs of many agencies; a

document that includes them can satisfy funding requirements of a variety

of agencies and programs.  For some programs, additional documentation may

be necessary, but the heart of the document need not be changed. (Note:

Because this is a new effort at coordinating and consolidating the common

areawide planning requirements and priorities of a number of agencies,

many questions have arisen about the specific needs of these various agen-

cies.  At this time they have not all  been answered, but the results of

initial negotiations with the Economic Development Administration, Envi-

ronmental Protection Agency, Soil Conservation Service, U.S. Department of

Housing and Urban development and Rural Development Service may be found

in Appendix A.)

        The areawide action program, then, may be simply diagrammed as

follows:

        An areawide action program should Include these elements:

        1)  Analysis of the problems, needs, issues and potentials
            of the district making use of existing plans and
            programs affecting the district

        2)   Identification of growth areas and any related
            development opportunities
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        3)  Establishment of the district's goals,  objectives,
            policies,  strategies and priorities for development

        4)  Setting the district's project and  program priorities,
            including  a one-year and multi-year schedule of fund-
            ing by various agencies and a listing of other com-
            mitments necessary to implement these projects and
            programs

        5)  Participation by representatives of local  governments
            and agencies, the private sector and local citizens

        6)  Preparation of a document (and supplementary material
            when necessary).

        Putting these elements together and making the program  operate

effectively is not an easy task.  Although a suggested approach will  be

detailed  later, a general summary of the steps  and terminology  may be

useful  now as a way of removing some of its mystery.

        The process and document resulting from these steps is  meant to

identify those public expenditures necessary for attracting and retaining

economic development.   As such, the AAP could become the single most im-

portant method an LDD has available to influence the allocation and ex-

penditure of funds through local, state, ARC and federal programs.  Effec-

tive planning and programming always increases  the chances for  implementa-

tion, and these procedures are heavily emphasized  in the AAP.

        The LDDs provide the means through which local governments working

together can participate in the Appalachian program.  Over the twelve-year

history of ARC, the LDDs have been involved in  a number of ways, including

the development of program and project priorities, but Congress has man-

dated that they be further involved  in the Appalachian development process

and  in coordinating areawide programs and projects.  This  is one of the

primary reasons for devising the AAP.
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        The intent of this new planning and development approach is to

build upon the major features of the existing Appalachian Development Pro-

gram, to give added emphasis to the role of the LDDs and to coordinate

state agencies, federal  departments and other funding sources providing

financial  assistance to programs or projects in the Region.  Some addi-

tional  features are:

           The need, because of the multiple functional programs
           being carried out by LDDs, to eliminate duplication of
           effort by concentrating LDD efforts on a single consoli-
           dated process that will meet the planning and program
           requirements of local, state, ARC and federal funding
           agencies;

           The need to provide a method for efficient  interagency
           coordination and funding of projects and programs;

           The need to help in the realization of state and nation-
           al  policies and priorities at the areawide and local
           level;

           The need to relate areawide comprehensive planning to
           action programming (investments) to achieve development
           objectives;

           The need for a common planning policy basis for A-95
           reviews; and

        .   The need to provide a basis for improving the monitor-
           ing management and evaluation of local and areawide pro-
           grams and projects by the Appalachian states.

        The investment decisions made at the local level to help ARC

achieve its objectives will  be set forth in a district's AAP.  A dis-

trict's approach to guiding and controlling the quantity and quality of

development will also be found in its AAP in the form of a set of coordi-

nated,  sequentially arranged project and program  Investments.  This kind

of long-term thinking and planning allows the LDDs and ARC to recognize
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new trends and to alter current trends as well  as to solve immediate

problems and needs.

        The Appalachian Regional  Development Act Amendments of 1975, under

Section 225, stress the importance of local  participation in the Commis-

sion's development program and encourage the preparation and execution of

AAPs.  This approach recognizes that the LDDs certified by the state under

the Act provide the linkage between state and substate planning and de-

velopment.  It also recognizes that states must consult with the districts

and take their goals, objectives and recommendations into consideration in

formulating the state Appalachian development plans.   In the past, each

state in the Region has considered the priorities and recommendations of

its LDDs, but the degree of LDD participation in the state development

planning process has varied considerably throughout the Region and still

does today.  Now...

        "The Commission's development planning process will place
        increased emphasis on an areawide development strategy.
        While state development plans will continue as the mecha-
        nism for governing investment strategy and project selec-
        tion, LDD areawide action programs, nevertheless, can pro-
        vide an enhanced substate areawide contribution into the
        state planning process.  An action program can present
        development policies and priorities of the area to allow
        local  leaders a better strategy for the use of local funds
        and to present to the state as broad a range of recommenda-
        tions as possible for the use of state and federal funds
        with areawide significance, as well  as for selection of
        projects proposed for Appalachian funding."  (Senate Report
        to accompany S. 1513, July 14, 1975)

        The AAP is envisioned as a continuous process through which an up-

dated annual document is produced and adopted by the district board each

year and sent to local, state and federal agencies and the Appalachian
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Regional Commission.  The LDDs should develop and approve and AAP with



consultation and input from affected local public and private interests,




including individual citizens.  For effective intergovernmental  planning




and inplementation, the AAP must also give careful consideration to  local



development plans and state Appalachian development plans.  While it is up



to the Commission and the states to provide the policy guidance for area-



wide planning and development, the LDDs translate these policies and other



federal program requirements  into specific action programs designed to



meet their specific needs, objectives and priorities.
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                        AN ANNOTATED BIBLIOGRAPHY:
                         SETTLERS CABIN CASE STUDY
         Very little published information exists on the Settlers Cabin

Project.  Most information for the case study was derived from  interviews

with persons directly involved in the historical evaluation of the

project.  A list of the persons contacted, their historical agency

involvement, and their current professional status  is presented below.
   Contact

Dave Hogeman

Bud Frederick

David Maneval
Joseph Blatt

Tom Stojek


Pat Fl ynn
John Kim

Al Ranjene

Al Victor

Karen Glotfelty
     Case Study Agency

PA DER - Mine Area Restoration,
  Harrisburg
PA DER - Mine Area Restoration,
  Harrisburg
ARC
Allegheny County Parks Department,
  Pittsburgh
PA Department of Community
  Affairs - Bureau of App. Dev.,
  Harrisburg
USBM, Washington, D.C.
Southeast PA Econ. Dev. Dist.,
  Pittsburgh
PA DER - Bureau of Design,
  Harrisburg
PA DER - Bureau of Operations,
  Harrisburg
PA DER - Env. Master Planner,
  Harrisburg
   Current
Professional
   Status

    Same

    Same

     OSM
    Same

    Same


    Same
    Same

    Same

    Same

    Same
File data from these  individuals were also useful  for this  study.   In-

cluded  in this file data was correspondence between key  actors  and  inter-

nal memorandums.

          Important source documents  (unpublished)  for this  case study

included:
                                 B-64

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         1.   EPA Region III  Settlers Cabin Project File

             This file includes a proposal  (1975)  to do a demon-
             stration of  reclamation and park development at
             Settlers Cabin.   Supporting documents include:  1)  an
             annual  report of EPA activities in this area; 2)  proj-
             ect outlines; 3) correspondence between key individu-
             als; 4)  project  application from Pennsylvania DER to
             ARC; and 5)  on  interagency agreement  between EPA  and
             ARC.

         2.   Pennsylvania DER's Pre-Application for a "Section 205"
             Reclamation  Grant (1777,  most recent)

             This document provides background information on
             socioeconomics,  technical  information on the design of
             the project,  funding arrangements, and other support-
             ing documents.

         3.   "An Intergovernmental  Project to Improve Environmental
             Qual ity  in an Area of  Abandoned Mines" by Robert  S.
             Davis and D.  R.  Maneval  (no date)

             This report  describes  ARC "Section 205" efforts,  the
             Settlers Cabin  Project, a site description, analysis
             of  site  data, and the  recommended reclamation plan.
             Costs and benefits are estimated.

         Two published sources were tapped.  Their distribution, however,

is severe!y  I im ited :

         1.   "Aerial  Photographic Survey - Mine Drainage Study Area
             - Allegheny  County, Pennsylvania," by the EPA (July
             22, 1975)

             This map portfolio presents reference mapping from  7.5
             minute  USGS  quadrangel  maps and aerial  photographs  of
             the study area.

         2.   "Settlers Cabin  Park - An Environmental  Assessment  of
             Mine Drainage Pollution," by Ackenhell  and Associates
             (July 1976)

             This report  provides a detailed analysis of site  con-
             ditions  and  potentials for reclamation for Settlers
             Cabin.   An environmental  impact approach to analyze
             the proposed  reclamation  was utilized.
                                B-65

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3.  "Preliminary Planning Report for West Park, Site No.
    6," by Simonds and Simonds for Allegheny County
    Department of Regional  Parks (1960)

    Provides natural  resource information for the Settlers
    Cabin Site.
                        B-66

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BIBLIOGRAPHIC DATA
SHEET
1. Report No.
3. Recipient's Accession No.
4. Title and Subtitle
  A  Land Use Decision Methodology for Mine   Lands  in Appalachia
                                                 5. Report Date
                                                   May,  1981
                                                                      6.
7. Author(s)
  Charles Yuill, William T. Gorton, Michael Frakes
                                                 8. Performing Organization Rent.
                                                   No.
'. Performing Organization Name and Address
  Skelly and Loy
  2601 North Front Street
  Harrisburg, Pennsylvania  17110
                                                 10. Pro|ect/Task/Work Unit No.
                                                 11. Contract/Grant No.
                                                    80-14 CO-7105-79-1
                                                    INTER-0711
12. Sponsoring Organization Name and Address
   The Appalachian Regional Commission
   1666 Connecticut Avenue, N.W.
   Washington, D.C.  20235
                                                 13. Type of Report Si Period
                                                    Covered
                                                 14.
IS. Supplementary Notes
16. Abstracts
   This report summarizes the issues associated with the development of methodology for
   determining appropriate land uses for mined lands in Appalachia.   The methodology
   which has been developed presents a framework which is useful for examining land
   use options for previously mined land, currently active mine sites  and unmined land
   which has a high value or likelihood for future mining.
 17. Key Words and Document Analysis.  17o. Descriptors

   Surface Mine Reclamation
   Mined Land Reclamation
   Land Use
   Mining Regulations
17b. Identifiers/Open-Knded Terms
    Land Use in Appalachia
    Mine Site Development
    Land Use Planning
    Environmental Impact Analysis
    Land-Planning Methodologies


 17c. COSATI  Field/Group
 18. Availability Statement
                                      19. Security Class (This
                                        Report)
                                      	UNCLASSIFIED
                                                          20. Security Class (This
                                                             Page
                                                          	  UNCLASSIFIED
           21. No. of Pages
                                                           22. Price
 FORM NTIS-3B IREV. 10-73)  ENDORSED BY ANSI AND UNESCO.
                                                    THIS FORM MAY BE REPRODUCED
                                                                                USCOMM-DC 82SS-P74

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