903R89008
Chesapeake Executive Council
TD
225
Submerged Aquatic
Vegetation Policy for the
Chesapeake Bay and
Tidal Tributaries
.i-'i "ic-'ecton Agsiicjf
.o;;'jon Resourca
19107
Chesapeake
Bay
Program
Agreement Commitment Report
July 1989
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j**° **>•«*
Regional Center for Environmental Information
US EPA Region 111
1650 Arch St.
Philadelphia, PA 19103
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Submerged Aquatic Vegetation Policy for the
Chesapeake Bay and Tidal Tributaries
An Agreement Commitment Report from
the Chesapeake Executive Council
U.S. Envi-'COTontr.! Protection Agency
region III Information Resource
Cenlor (3PM52)
641 Chestnut Street
Philadelphia, PA 19107
Annapolis, Maryland
July 1989
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ADOPTION STATEMENT
We, the undersigned, adopt the Submerged Aquatic Vegetation Policy for the
Chesapeake Bay and Tidal Tributaries, in fulfillment of Living Resources Commitment Number 3
of the 1987 Chesapeake Bay Agreement:
"...to adopt a schedule for the development of Bay-wide resource management
strategies for commercially, recreationally, and selected ecologically valuable
species."
We agree to work together to implement the major focus areas of the Policy:
1) Resource Assessment
2) Protection of Existing Resources
3) Restoration
4) Education and Research
We recognize the need to commit long-term, stable financial support and human resources
to the task of conserving, protecting, and enhancing submerged aquatic vegetation. In addition,
we direct the Living Resources Subcommittee to prepare reports addressing the progress attained
in implementing the Policy's recommendations.
Date
For the Commonwealth of Virginia
For the State of Maryland
For the Commonwealth of Pennsylvania
For the United States of America
For the District of Columbia
For the Chesapeake Bay Commission
31,
L-i^
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SUBMERGED AQUATIC VEGETATION POLICY
FCR HIE CHESAPEAKE BAY
AND TIDAL TRIBUTARIES
Philosophy
Submerged aquatic vegetation are underwater vascular plants sometimes
referred to as bay grasses. They occur in the shallow areas of the
Chesapeake Bay and its tidal tributaries. There are 13 principal species
distributed around the Bay according to their individual salinity
requirements. Submerged aquatic vegetation serves several important
ecological functions. It provides shelter and nursery areas for small fish
and shellfish as well as a structural habitat in the water column for
various invertebrates and epiphytes. Submerged aquatic vegetation has long
been recognized as an essential food source for certain waterfowl. In
addition to these roles, it also performs such processes as removing
nutrients and heavy metals from the water and sediments. Submerged aquatic
vegetation also helps to remove suspended sediments and bind substrates
while dense plant beds dissipate wave energy which can protect shorelines
from erosion.
Submerged aquatic vegetation is not only important as a habitat, but
also because it acts as an indicator of the condition of the Chesapeake
Bay. The successful growth and reproduction of submerged aquatic
vegetation can be used as a measure of the progress of the Chesapeake Bay
restoration and protection program because its environmental requirements
include good water quality that is low in suspended sediments, dissolved
nutrients and phytoplankton. Further definition of the relationships
between water quality conditions and submerged aquatic vegetation abundance
is necessary. This will be essential information for Bay managers
responsible for insuring the long-term viability of the Bay and its living
resources.
The abundance of submerged aquatic vegetation in the Bay and its tidal
tributaries declined sharply in the early 1970s. This accelerated an
earlier downward trend observed since the 1960s, when an estimated 100,000
acres of one species alone, Eurasian watermilfoil, were present. Aerial
photography and mapping of all submerged aquatic vegetation throughout the
tidal Bay in 1984, documented a total of 38,000 acres for all species.
Some improvement occurred in 1985-1986, when just over 47,000 acres were
estimated to be present, and in 1987 an estimated 50,000 acres were
documented. Despite this slight increase, submerged aquatic vegetation is
still missing from large areas of its former distribution.
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Based on evidence of the declines noted above, a survey program was
developed to assess the problem within the tidal portion of the Bay. This
program has generally continued on an annual basis since the initial
survey in 1984. The fact that this survey does not presently include the
freshwater, non-tidal portions of the Basin should not be construed to mean
that submerged aquatic vegetation in these areas has less resource value.
The current annual survey will remain in the tidal portions of the Bay
unless research demonstrates a need to survey the non-tidal areas.
Submerged aquatic vegetation is a key living resource component of the
Chesapeake Bay and its tidal tributaries, justifying continued research,
monitoring, protection and restoration activities.
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HOTBCTICN AND KESTCRKE1CN POLICY
It is the intent of the Chesapeake Executive Council to set forth this
policy to guide the protection and restoration of all submerged aquatic
vegetation within the Chesapeake Bay and its tidal tributaries.
For the purpose of this policy, the following definition will be
used:
Submerged aquatic vegetation are vascular plants that, except for
some flowering structures, live and grow below the water surface.
Because of their requirements for sufficient sunlight, they are
found in the shallow areas of the Chesapeake Bay and its tidal
tributaries.
The goal of the Submerged Aquatic Vegetation Policy is to achieve a
net gain in submerged aquatic vegetation distribution, abundance, and
species diversity in the Chesapeake Bay and its tidal tributaries over
present populations by:
1. protecting existing submerged aquatic vegetation beds from
further losses due to increased degradation of water quality,
physical damage to the plants, or disruption to the local
sedimentary environment;
2. setting and achieving regional water and habitat quality
objectives that will result in restoration of submerged aquatic
vegetation through natural revegetation; and,
3. setting regional submerged aquatic vegetation restoration goals
in terms of acreage, abundance, and species diversity considering
historical distribution records and estimates of potential
habitat.
The policy places emphasis on four components key to the future
restoration and protection of submerged aquatic vegetation: 1) assessment
of historical, current and future distribution and abundance; 2) protection
of existing populations; 3) restoration of former populations; and 4)
increasing our knowledge of the resource through research and continued
education of the public.
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Within each of these four components, specific policy statements have
been defined. Action items designed to implement the policy statements are
provided to successfully achieve the goal of a net resource gain. Ihe
signatories, as appropriate, are committed to seeking the necessary
authority, funding and personnel resources to carry out these actions,
including the enactment of adequate legislation and regulations to protect
and restore submerged aquatic vegetation.
A submerged aquatic vegetation resource implementation plan will be
developed and adopted by July 1990.
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ASSESSING THE RESOURCE
Progress towards the goal of a net resource gain in submerged aquatic
vegetation distribution, abundance, and species diversity, can only be
measured through an established, consistent and regular survey of
populations over time. Effective protection of the existing resource and
planning for future habitat restoration initiatives depends on the timely
availability of information regarding current status and historical trends.
Accessibility to such an informational data base is critical to guide
resource protection and restoration actions and to support education and
research initiatives.
Policy:
o The signatories, as appropriate, shall collectively fund, design
and institute a submerged aquatic vegetation resource assessment
and monitoring strategy which will provide for a continuing
quantitative evaluation of submerged aquatic vegetation
distribution and abundance and the quality of their supporting
habitats. This strategy shall be consistent with the
recommendations for submerged aquatic vegetation addressed in the
Chesapeake Bay Program's Living Resources Monitoring Plan, as
adopted by the Chesapeake Executive Council in July, 1988.
Action:
Develop and execute a comprehensive assessment and monitoring plan
which includes, but is not limited to, the following actions:
o Conduct an annual survey of the distribution and abundance of
submerged aquatic vegetation throughout the Chesapeake Bay and
its tidal tributaries using aerial photography and appropriate
groundtruthing.
o Conduct an annual analysis of the above survey. This analysis
shall include photointerpretation, mapping of submerged aquatic
vegetation beds, computer digitization and storage of acreage and
location data, and a report on the current distribution,
abundance and trends.
o Develop composite maps of all known historical to present
submerged aquatic vegetation distributions in the Chesapeake Bay
and its tidal tributaries using Geographic Information System
capabilities. These maps shall be at scales appropriate for
intended management use.
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Develop new remote sensing techniques (e.g. satellite imagery
and computerized image processing systems) which can improve data
quality, and reduce the time and expense of data collection and
processing requirements.
Implement a monitoring program for shallow water habitat. The
data collected from this program will be used to define the
habitat criteria necessary for successful revegetation and
propagation of submerged aquatic vegetation in all salinity
regimes present in the Chesapeake Bay and its tidal tributaries.
Maintain a centralized data base, accessible to all agencies and
institutions, that includes both point and digital data from
historical, ongoing, and future submerged aquatic vegetation
survey programs. The data base will be updated annually.
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H. PROTECTION OF EXISTING SUBMERGED t&JKFIC VEGEEATICW
Before a net gain in submerged aquatic vegetation distribution and
abundance can be realized, a concerted effort must be made to protect those
areas where submerged aquatic vegetation currently exists. Impacts which
result in losses of submerged aquatic vegetation must be curtailed.
Impacts may result from direct alterations to a vegetated area, indirect
actions within a watershed, or from natural causes. Given the limited
success of submerged aquatic vegetation transplanting based on past
research studies, transplanting is not an acceptable means of mitigation
for losses. Because submerged aquatic vegetation habitat requirements are
similar to those of many living resources, controlling the type, extent,
intensity and duration of impacts which damage submerged aquatic vegetation
will further other efforts to restore and protect the Chesapeake Bay and
its living resources.
Policy:
o Ihe signatories, as appropriate, will use existing regulatory and
resource management programs, and develop new programs, to limit
permanent and irreversible, direct and indirect impacts to
submerged aquatic vegetation and their habitats. Only in rare
circumstances will losses of submerged aquatic vegetation be
considered justifiable.
Action:
o Review and evaluate the effectiveness of existing regulatory and
resource management programs for protection of existing submerged
aquatic vegetation and their habitats.
o Develop consistent guidelines between the signatories and
involved agencies for implementation of this Submerged Aquatic
Vegetation Policy. These guidelines would include methods of
addressing:
- proposed activities including, but not limited to, shallow
water and shoreline alterations for their impact on potential
submerged aquatic vegetation habitat (e.g. areas with known
historical submerged aquatic vegetation presence);
- the rare circumstances where damage to submerged aquatic
vegetation beds may be allowed and the appropriate
mitigation procedures that will be required;
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protection of areas with documented historical submerged
aquatic vegetation presence;
proposed dredging windows during the submerged aquatic
vegetation growing season; and,
conditions pertaining to harvesting of submerged aquatic
vegetation by vise of mechanical means.
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III. KESTCRKTICN OF SUBMERGED AQUATIC VEGETKTION
A net gain in submerged aquatic vegetation distribution and abundance
will not be attained by protecting existing vegetation. Efforts must be
made to restore submerged aquatic vegetation to former levels by inproving
the habitat conditions necessary for natural revegetation.
Policy:
o In recognition of the valuable role of submerged aquatic
vegetation in the Chesapeake Bay and its tidal tributaries, the
water quality and habitat quality needs of this resource will be
established as regional goals for strategies to reduce influx of
nutrients, toxics and conventional pollutants to the Chesapeake
Bay. The signatories, as appropriate, will implement regulatory
initiatives and management practices designed to achieve the
established regional habitat quality goals and provide an
environment suitable for natural revegetation and propagation.
Action:
o Establish regional ambient habitat requirements for submerged
aquatic vegetation.
o Meet the regional habitat requirements for submerged aquatic
vegetation by implementing nutrient, toxics and conventional
pollutant reduction actions on those watersheds which exceed the
established regional habitat requirements. Monitor the progress
towards achieving the regional submerged aquatic vegetation
habitat restoration requirements.
o Set regional restoration goals for submerged aquatic vegetation
acreage, abundance and species diversity considering historical
records of abundance and distributions and estimates of potential
habitat. Monitor the progress towards reaching these resource
restoration goals.
o Review the Nutrient Reduction Strategy during the 1991
reevaluation and periodically thereafter, to determine its
effectiveness towards attaining the submerged aquatic
vegetation habitat requirements. For example, mainstem nutrient
reduction levels may not be adequate for submerged aquatic
vegetation in shallow water habitats in the Chesapeake Bay and
its tidal tributaries.
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Develop a management plan for the restoration of submerged
aquatic vegetation based on a watershed approach within the
Chesapeake Bay and its tidal tributaries. Both the individual
species requirements and the Chesapeake Bay Program's regional
living resource habitat quality goals shall be considered.
Implement best land management practices that will promote the
necessary improvements in submerged aquatic vegetation habitat
quality.
Investigate the utility of establishing water quality
standards that would, when achieved, result in conditions that
would allow the natural revegetation of submerged aquatic
vegetation in the Chesapeake Bay and its tidal tributaries.
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IV. EDUCA1TCN AND SCEQUL'IFTC RESEARCH
A comprehensive policy to protect and restore submerged aquatic
vegetation would not be complete without provisions for education and
scientific research. Education is important to increase public awareness
of this valuable resource. An informed public will provide a firm
foundation of support for protection and restoration efforts. Through
scientific research, we will irnprove our knowledge and understanding of
submerged aquatic vegetation to ensure that efforts to protect and restore
this resource will be effective.
Education
The Chesapeake Executive Council recognizes that protection and
restoration of submerged aquatic vegetation depends upon public awareness
of this valuable resource. Sufficient information must be made available
to resource managers responsible for implementing specific protection and
restoration practices for submerged aquatic vegetation.
Policy:
The signatories, as appropriate, will develop and maintain education
materials and activities that will improve public understanding of the
value, habitat requirements, status, and trends of submerged aquatic
vegetation.
Action:
o Through the mechanisms described in the Chesapeake Bay Program's
Communications Strategy, develop and distribute public awareness
materials such as brochures, posters, factsheets and reports
emphasizing the values of, and need for, protection and
restoration of submerged aquatic vegetation. These materials
will be targeted towards specific audiences in the Bay
governmental, research and public community.
o Support special promotions involving citizens' activities such as
groundtruthing of remotely sensed and mapped submerged aquatic
vegetation locations.
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Scientific Research
Apparent gaps in knowledge of submerged aquatic vegetation still
remain. Further information on growth, physiology, reproduction, life
cycles, transplanting, and environmental requirements is needed to
effectively protect and restore submerged aquatic vegetation.
Policy:
o Ihe signatories will promote and support those research projects
which will improve our knowledge of submerged aquatic vegetation
to refine and enhance protection and restoration activities.
Action:
o Ihe Living Resources Subcommittee will provide the Research
Planning Committee with research recommendations. At a
minimum, these recommendations should include the following
items:
- research on the relationships between submerged aquatic
vegetation in, and the environmental quality of, the Chesapeake
Bay and its tidal tributaries. This would include the
development of specific habitat requirements for submerged
aquatic vegetation taking into consideration the different
species and different regions of the Chesapeake Bay and its tidal
tributaries.
- research into transplanting submerged aquatic vegetation to a)
improve methodologies, b) define specific habitat requirements of
submerged aquatic vegetation, and c) determine the ecological
functioning of transplanted vs. naturally vegetated areas.
- research to improve our understanding of the relationships
between submerged aquatic vegetation and important Chesapeake Bay
species (e.g. waterfowl, fish, and shellfish).
- research on the effects of eutrophication, sediment loading,
toxics, and natural perturbations on growth and survival of
submerged aquatic vegetation.
- research on the relationships between non-tidal submerged
aquatic vegetation and environmental quality.
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S-U.S. Government Printing Office : 1989 - 244-S69/UU34
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