Dragon Run access plan

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

FY 1992 FINAL PRODUCT Task 36
Technical Assistance

DRAGON RUN ACCESS PLAN

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

DRAGON RUN ACCESS PLAN

Jim Uzel

Environmental Programs Coordinator
Middle Peninsula Planning District Commission

Dragon Run Steering Committee

October, 1993

The Dragon Run--A Unique Place

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

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

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

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

The Need for A Plan

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

(1) Development Management

(2) Forestry Management

(3) Agricultural Management

(4) Recreational Access

(5) Wildlife Management

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

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

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

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

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

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

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

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

Types of Uses

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

Hunting

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

Fishing

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

Canoeing

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

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

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

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

Hiking and Camping

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

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

Conservation Education

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

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

Present Access Sites

Route 17

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

New Dragon Bridg&-Route 603

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

Wares Bridge-Route 602

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

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

Upper Reaches Crossings

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

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Route 17

New Dragon Bridge-Route 603

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Wares Bridge-Route 602
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Access Policies

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

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

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

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

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

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

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

Access Management

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

Private Management

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

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

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

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

Public Management

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

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

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

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

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

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

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

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

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

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

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

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

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

Site Development

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

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

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

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

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

e Land area of 1.5-2.5 acres.

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

e Access road which meets secondary road standards.

100' buffer zone at the shoreline.

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

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

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

Dock to include fishing stations parallel to shoreline.

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

CONCEPT LAYOUT for CANOE and FISHING ACCESS

Stormwater Control

Buffer
Stream

Parking
Launch Ramp

P.
ier

Access Road

State Route

Bibliography

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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