Source: https://www.deq.virginia.gov/Programs/EnvironmentalImpactReview/FederalConsistencyReviews.aspx
Timestamp: 2019-04-21 06:05:49+00:00

Document:
The Federal Consistency Information Package for the Virginia Coastal Zone Management (CZM) Program is available on this web page or as a document. Use the menu on the left to navigate the page.
This information is intended to help federal agencies, applicants for federal permits, licenses, or approvals, and recipients of federal assistance to comply with the federal consistency requirements of the Coastal Zone Management Act (CZMA) of 1972, as amended. Pursuant to the CZMA, in 1986, National Oceanic and Atmospheric Administration (NOAA) approved the Virginia CZM Program.
Accordingly, federal activities which are reasonably likely to affect any land or water use or natural resources of Virginia’s designated coastal resources management area must be consistent with the enforceable policies of the Virginia CZM Program. The Virginia CZM Program is a networked program with several agencies administering the enforceable policies. Virginia also has several advisory policies which were established to serve as a discretionary guide during project planning.
As the lead agency for the Virginia CZM Program, the Department of Environmental Quality (DEQ) is responsible for coordinating the Commonwealth’s review of federal consistency determinations and certifications with cooperating agencies and responding to the appropriate federal agency or applicant. At the federal level, NOAA, through its Office of Ocean and Coastal Resource Management (OCRM) oversees DEQ’s use of consistency, mediates consistency disputes, and processes appeals to the Secretary of Commerce.
The Federal Consistency Information Package for the Virginia CZM Program incorporates and reflects recent changes to the federal consistency regulations. Effective January 8, 2001, NOAA revised the regulations implementing the federal consistency provisions of the CZMA of 1972. The revisions were necessary based on new provisions in the 1990 Coastal Zone Act Reauthorization Amendments (CZARA) and the 1996 Coastal Zone Protection Act. Among the amendments were revisions to the federal consistency requirement contained in section 307 of the CZMA. The 1990 CZMA amendments clarified that all federal agency activities meeting the “effects” standard are subject to CZMA consistency and that there are no exceptions, exclusions or categorical exemptions from the requirement. The regulations were further revised in 2006 in response to The National Energy Policy Development Group’s Report (May 2001) (Energy Report) and the Energy Policy Act of 2005. Section 319 of the CZMA was amended by Section 381 of the Energy Policy Act of 2005 (Pub. L. No. 109-58) to mandate deadlines for decisions on appeals of consistency determination under the CZMA. Section 382 specified that the initial record to be used for CZMA appeals of energy projects is the record consolidated by the lead federal permitting agency.
The federal consistency regulations implement the CZMA requirement that federal actions (regardless of location) that have reasonably foreseeable effects on any land or water use or natural resource of the coastal zone (also referred to as coastal uses or resources, or coastal effects) must be consistent with the enforceable policies of a coastal state’s federally approved coastal management program, before they can occur. If the project is outside of the coastal zone and federal consistency is being considered, contact DEQ OEIR first to determine applicability.
Effects include both direct effects which result from the activity and occur at the same time and place as the activity, and indirect (cumulative and secondary) effects which result from the activity and are later in time or farther removed in distance, but are still reasonably foreseeable. Cumulative effects are effects resulting from the incremental impact of the federal action when added to other past, present, and reasonably foreseeable actions, regardless of what person(s) undertake(s) such actions. Cumulative effects can result from individually minor but collectively significant actions taking place over a period of time.
Some examples of coastal uses include such activities as: public access, recreation, fishing, historic or cultural preservation, development, energy infrastructure and use, hazards management, marinas, floodplain management, scenic and aesthetic enjoyment, and resource creation or restoration. Coastal resources include biological or physical resources that are found within a state’s coastal zone on a regular or cyclical basis. Biological and physical resources include, but are not limited to, air, tidal and non-tidal wetlands, ocean waters, estuaries, rivers, streams, lakes, aquifers, submerged aquatic vegetation, land, plants, trees, minerals, fish, shellfish, invertebrates, amphibians, birds, mammals, and reptiles, etc.
The official 2007 version of the CZMA federal consistency regulations is available at Federal Consistency Regulations – 15 C.F.R. part 930.
There are four types of federal actions: Federal agency activities, federal license or permit activities, outer continental shelf (OCS) plans, and federal assistance to state and local governments.
Federal assistance to state and local governments (15 C.F.R. part 930, subpart F) - included in this category are Federal Highway Administration funds to state and local governments, construction grants for wastewater treatment works, and U.S. Department of Housing and Urban Development grants (HUD).
The Virginia Coastal Zone Management Program was authorized by Virginia Executive Order (EO) Number Thirteen (86), and continued by subsequent Executive Orders, the most recent being EO 35 (2014).
Federal Lands: federal lands, the use of which is by law subject solely to the discretion of or which is held in trust by the federal government, its officers or agents, are excluded from Virginia’s coastal management area. However, activities on federal lands with any reasonably foreseeable coastal effects must be consistent with the Virginia CZM Program.
Fisheries Management - The program stresses the conservation and enhancement of finfish and shellfish resources and the promotion of commercial and recreational fisheries to maximize food production and recreational opportunities. This program is administered by the Marine Resources Commission (MRC) (Virginia Code §28.2-200 through §28.2-713) and the Department of Game and Inland Fisheries (DGIF) (Virginia Code §29.1-100 through §29.1-570).
The State Tributyltin (TBT) Regulatory Program has been added to the Fisheries Management program. The General Assembly amended the Virginia Pesticide Use and Application Act as it related to the possession, sale, or use of marine antifoulant paints containing TBT. The use of TBT in boat paint constitutes a serious threat to important marine animal species. The TBT program monitors boating activities and boat painting activities to ensure compliance with TBT regulations promulgated pursuant to the amendment. The MRC, DGIF, and Virginia Department of Agriculture and Consumer Services share enforcement responsibilities (Virginia Code §3.1-249.59 through §3.1-249.62).
Subaqueous Lands Management - The management program for subaqueous lands establishes conditions for granting or denying permits to use state-owned bottomlands based on considerations of potential effects on marine and fisheries resources, wetlands, adjacent or nearby properties, anticipated public and private benefits, and water quality standards established by the DEQ Water Division. The program is administered by the MRC (Virginia Code §28.2-1200 through §28.2-1213).
Wetlands Management - The purpose of the wetlands management program is to preserve tidal wetlands, prevent their despoliation, and accommodate economic development in a manner consistent with wetlands preservation.
The tidal wetlands program is administered by the MRC (Virginia Code §28.2-1301 through §28.2-1320).
The Virginia Water Protection Permit program administered by the DEQ includes protection of wetlands -- both tidal and non-tidal. This program is authorized by Virginia Code § 62.1-44.15.5 and the Water Quality Certification requirements of §401 of the Clean Water Act of 1972.
Dunes Management - Dune protection is carried out pursuant to the Coastal Primary Sand Dune Protection Act and is intended to prevent destruction or alteration of primary dunes. This program is administered by the Marine Resources Commission (Virginia Code §28.2-1400 through §28.2-1420).
Non-point Source Pollution Control - Virginia's Erosion and Sediment Control Law requires soil-disturbing projects to be designed to reduce soil erosion and to decrease inputs of chemical nutrients and sediments to the Chesapeake Bay, its tributaries, and other rivers and waters of the Commonwealth. This program is administered by DEQ (Virginia Code §62.1-44.15:51 et seq.).
Point Source Pollution Control - The point source program is administered by the State Water Control Board pursuant to Virginia Code §62.1-44.15. Point source pollution control is accomplished through the implementation of the National Pollutant Discharge Elimination System (NPDES) permit program established pursuant to §402 of the federal Clean Water Act and administered in Virginia as the VPDES permit program. The Water Quality Certification requirements of §401 of the Clean Water Act of 1972 is administered under the Virginia Water Protection Permit program.
Shoreline Sanitation - The purpose of this program is to regulate the installation of septic tanks, set standards concerning soil types suitable for septic tanks, and specify minimum distances that tanks must be placed away from streams, rivers, and other waters of the Commonwealth. This program is administered by the Department of Health (Virginia Code §32.1-164 through §32.1-165).
Air Pollution Control - The program implements the federal Clean Air Act to provide a legally enforceable State Implementation Plan for the attainment and maintenance of the National Ambient Air Quality Standards. This program is administered by the State Air Pollution Control Board (Virginia Code §10.1-1300 through 10.1-1320).
Coastal Lands Management is a state-local cooperative program administered by DEQ's Water Division and 84 localities in Tidewater, Virginia established pursuant to the Chesapeake Bay Preservation Act (Virginia Code §§ 62.1-44.15:67 through 62.1-44.15:79) and Chesapeake Bay Preservation Area Designation and Management Regulations (Virginia Administrative Code 9 VAC 25-830-10 et seq.).
Although not required for the purposes of consistency, in accordance with 15 CFR §930.39(c), the federal agency should consider the advisory policies (recommendations) of the Virginia CZM Program as well.
Virginia Public Beaches. Approximately 25 miles of public beaches are located in the cities, counties, and towns of Virginia exclusive of public beaches on state and federal land. These public shoreline areas will be maintained to allow public access to recreational resources.
Virginia Outdoors Plan. Planning for coastal access is provided by the DCR in cooperation with other state and local government agencies. The Virginia Outdoors Plan (VOP), which is published by the Department, identifies recreational facilities in the Commonwealth that provide recreational access. The VOP also serves to identify future needs of the Commonwealth in relation to the provision of recreational opportunities and shoreline access. Prior to initiating any project, consideration should be given to the proximity of the project site to recreational resources identified in the VOP.
Parks, Natural Areas and Wildlife Management Areas. Parks, Wildlife Management Areas, and Natural Areas are provided for the recreational pleasure of the citizens of the Commonwealth and the nation by local, state, and federal agencies. The recreational values of these areas should be protected and maintained.
Waterfront Recreational Land Acquisition. It is the policy of the Commonwealth to protect areas, properties, lands, or any estate or interest therein, of scenic beauty, recreational utility, historical interest, or unusual features which may be acquired, preserved, and maintained for the citizens of the Commonwealth.
Waterfront Recreational Facilities. This policy applies to the provision of boat ramps, public landings, and bridges which provide water access to the citizens of the Commonwealth. These facilities shall be designed, constructed, and maintained to provide points of water access when and where practicable.
Waterfront Historic Properties. The Commonwealth has a long history of settlement and development, and much of that history has involved both shorelines and near-shore areas. The protection and preservation of historic shorefront properties is primarily the responsibility of the Department of Historic Resources. Buildings, structures, and sites of historical, architectural, and/or archaeological interest are significant resources for the citizens of the Commonwealth. It is the policy of the Commonwealth and the Virginia CZM Program to enhance the protection of buildings, structures, and sites of historical, architectural, and archaeological significance from damage or destruction when practicable.
All federal development projects inside the coastal zone are automatically subject to the consistency regulations and require a federal consistency determination. Also, any federal action outside the coastal zone which has the potential to affect Virginia’s coastal uses and resources is subject to consistency review since there are no geographical boundaries. Consistency is triggered by the “reasonably foreseeable effects” test.
Step 1. The federal agency determines whether coastal effects are reasonably foreseeable. Effects can be direct, indirect, cumulative, or secondary. Also, effects are not limited to environmental impacts but include coastal uses such as public access and recreational uses. It is beneficial if the federal agency consults with agencies administering the enforceable policies early in the planning process to determine potential impacts of a proposal.
Step 2. (a) If there are no effects, the federal agency provides the DEQ with a negative determination at least 90 days prior to final approval (15 CFR § 930.35). (b) If there are effects, the federal agency submits a consistency determination to the DEQ at least 90 days prior to final approval. The Commonwealth has 60 days to review both consistency determinations and negative determinations and reserves the right, when necessary, to request an additional 15 days to complete its review. The 60-day review period begins when DEQ receives the consistency determination and sufficient supporting information as described in 15 CFR Part 930, §930.39(a).
Step 3. DEQ publishes the consistency determination for public review. In the absence of public comments, if prior consultation with agencies occurred prior to submittal of the negative determination and agencies concurred with the federal agency’s determination, DEQ sends a response to the federal agency concurring with the determination. If agencies were not previously contacted by the federal agency, DEQ distributes the consistency determination to agencies administering the coastal policies. Federal agencies may provide 20 copies of the consistency document to DEQ for distribution unless the documents were sent directly to the reviewers. As an alternative the federal agency may submit one hard copy and an electronic copy (email attachment, ftp site, web site, cloud based storage, etc.).
Step 4. Reviewers send comments on federal agency determinations to DEQ. If reviewers indicate that the information is inadequate, DEQ attempts to obtain the additional information within the 60-day review period. If the federal agency is unable to provide the necessary information in a timely manner, DEQ may object based on insufficient information (15 CFR §930.43(b)). In this case, DEQ’s objection would describe the information necessary to determine consistency of the federal action with the enforceable policies of the Virginia CZM Program. A copy of each objection is sent to the Director of OCRM.
Step 5. If agencies have completed their reviews, DEQ prepares the Commonwealth’s coordinated response to the federal agency. DEQ resolves any conflicts in reviewers’ comments or seeks clarifications from reviewers before responding to the federal agency. DEQ requests time extensions when needed for agencies to complete their review.
Step 6. If there are effects, the federal agency must conduct the activity in a manner that is consistent with the Virginia CZM Program to the maximum extent practicable as defined in 15 CFR §930.32.
Step 7. If there is a dispute, DEQ will attempt to resolve the differences between the federal agency and state agencies within the remaining portion of the 90-day notice period. At the end of the 90-day period, if a resolution has not been reached, DEQ or the federal agency can request mediation by the Secretary of Commerce or OCRM.
National Environmental Policy Act (NEPA). In instances where a project is subject to the requirements of NEPA, DEQ encourages the federal agency to include its consistency determination in the NEPA document as a matter of administrative convenience as well as to provide environmental information to support the consistency determination. See 15 CFR §930.37.
All activities located within Virginia’s designated coastal management area (Tidewater) requiring a federal permit, license, or approval must be consistent with Virginia’s Coastal Zone Management Program.
Step 2. For a listed activity (see Table 2) occurring in Tidewater, the applicant must submit a federal consistency certification (FCC) to the responsible federal agency and the DEQ. The applicant must provide DEQ with the necessary data and information (15 CFR §930.58) to allow the agencies administering the enforceable policies to assess the project’s effects. The review of listed activities outside of the coastal zone and unlisted activities inside or outside the coastal zone will be reviewed on a case-by-case basis following the procedures for unlisted activities pursuant to 15 CFR §930.54.
Step 3. DEQ establishes deadlines and distributes the documents to reviewers. If there are applicable enforceable policies, DEQ will coordinate a consistency review for those activities. The six-month review begins upon receipt of the required information. If the only applicable enforceable policies are permit programs under the jurisdiction of Virginia’s laws, and the applicant has received all the applicable permits or approvals, DEQ may decide to do an in-house review of the consistency certification. To facilitate this uncoordinated or limited review, the applicant must attach the pertinent approvals to the FCC.
Step 4. DEQ publishes the public notice pursuant to 15 CFR §930.61. In some instances, DEQ requires that the applicant publishes the notice or may combine the notice with the notice by the federal agency (if the federal agency agrees). Public participation may include public hearings.
Step 5. DEQ responds within 90 days either concluding the review or providing an update of the status of the review (15 CFR §930.62). No further action is necessary if the Commonwealth concurs. For projects still under review, DEQ will notify the federal agency and the applicant of the status of the review and the basis for further delay. DEQ will respond within the 6-month legal deadline.
Step 6. The federal agency cannot issue its approval if Virginia objects (15 CFR §930.64).
Step 7. The applicant may work with DEQ and state agencies administering the enforceable policies to remove the Commonwealth’s objection or appeal the objection to the Secretary of Commerce within 30 days of the objection. If the Secretary overrides Virginia’s objection, the federal agency may approve the project.
Any state agency or local government applying for federal financial assistance (grant or contractual arrangements, loans, subsidies, guarantees, insurance or other forms of financial assistance) to conduct activities in Virginia’s designated coastal zone which can affect coastal resources or uses must certify that the proposed activity will be conducted in a manner which is consistent with the Virginia CZM Program (15 CFR §930.94).
Step 1. Virginia, with OCRM approval, determines activities with coastal effects (see Table 3).
Step 3. For listed activities, DEQ conducts the review concurrently with the intergovernmental review. If none of the enforceable policies are applicable, no further action is required for the purposes of consistency. If the applicable enforceable policies are administered through permit programs, DEQ may issue a conditional concurrence contingent upon the applicant obtaining all applicable permits. If the applicant claims an exemption from the Commonwealth’s permitting process, DEQ contacts the agencies administering the enforceable policies to ensure the project is consistent with the enforceable policy although a permit is not required.
Step 4. DEQ determines coastal effects of unlisted activities inside the coastal zone during the intergovernmental review process. No further action is taken for the purposes of consistency for projects with no coastal effects. For projects with coastal effects, DEQ informs the applicant and the federal agency that the project will be reviewed under the federal consistency provisions of the CZMA.
Step 5. The federal agency may not issue funding until Virginia has concurred that the project is consistent with the Virginia CZM Program (15 CFR §930.97).
Step 6. The applicant can work with state agencies to remove the Commonwealth’s objection or appeal the objection to the Secretary of Commerce within 30 days of the objection.
Any OCS plan submitted to the Secretary of the Interior, or designee, which describes in detail federal license or permit activities affecting any coastal use or resource must ensure that such activities will be conducted in a manner which is consistent with Virginia’s Coastal Zone Management Program. The procedure for reviewing OCS plans is similar to the procedure for reviewing Federal Permit, License, and Approval Activities.
DEQ ensures that consistency reviews comply with the public participation requirements of Section 306(d)(14) of the Coastal Zone Management Act of 1972, as amended, and 15 CFR §930.2, §930.42, §930.61, and §930.77(b). Virginia utilizes several different procedural options to notify the public of projects under review. These options include: joint federal/state notices, publications in local newspapers, notices published in the Virginia Gazette, electronic notices published on DEQ’s web site and Federal agencies’ websites, and joint federal/state public hearings.
This document is an outline for Federal agencies to use when making a Consistency Determination under the Coastal Zone Management Act, sections 307(c)(1) and (2). Although not required for the purposes of consistency, in accordance with 15 CFR §930.39(c), the federal agency should consider the advisory policies (recommendations) of the Virginia CZM Program as well.
[Describe the Federal agency activity or reference relevant pages of National Environmental Policy Act (NEPA) document].
[Provide analysis of effects or reference relevant pages of NEPA document].
[List and/or briefly describe the State’s applicable enforceable policies and describe any reasonably foreseeable effect on each enforceable policy].
Based upon the following information, data, and analysis, the [name of Federal agency] finds that the [activity] is consistent to the maximum extent practicable with the enforceable policies of the Virginia Coastal Zone Management Program.
[Provide information, comprehensive data, and analysis supporting the determination of consistency with the applicable enforceable policies].
[Provide Federal agency contact information].
This document is an outline for non-federal applicants to use when making a consistency certification under the Coastal Zone Management Act, Sections 307(c)(3)(A) and 307(d). Although applicants are not required to make findings with respect to the coastal effects of the advisory policies, applicants shall demonstrate adequate consideration of policies which are in the nature of recommendations (see 15 CFR 930.58(a)(3).
This document provides the Commonwealth of Virginia with the [name of applicant’s] Consistency Certification and necessary data and information under CZMA Section 307(c)(3)(A) and 15 CFR Part 930, subpart D, for the [name of activity].
[Name of applicant] certifies that the proposed activity complies with the enforceable policies of Virginia’s Coastal Zone Management Program and will be conducted in a manner consistent with the Virginia CZM Program.
2. [Provide additional information required by the State pursuant to 15 CFR Section 930.58(a)(2) and 930.58(a)(3). For example, the location of the project must be clearly identified on a U.S. Geological Survey topographic map or its equivalent and a site plan provided for development projects. The certification must fully describe the project and, in particular, aspects of the project that may cause direct or indirect environmental impacts. Description of the site must be thorough and include information on existing conditions. The purpose of this section is to make the reviewer aware of what is being proposed, important design features, how the facility will be operated, and the purpose of the facility.
By this certification that the [project] is consistent with the Virginia Coastal Zone Management Program, Virginia is notified that it has six months from the receipt of this letter and accompanying information in which to concur with or object to [applicant’s name] certification. Pursuant to 15 CFR Section 930.63(b), if Virginia has not issued a decision within three months following commencement of State agency review, it shall notify [name of applicant] and the federal agency of the status of the matter and the basis for further delay. The State’s concurrence, objection, or notification of review status shall be sent to: [provide applicant and federal agency’s contact information].
Federal agencies and their activities for which consistency determinations must be prepared if the activities can have any reasonably foreseeable effects on Virginia’s coastal uses and resources. Whether an activity is listed or not, it is the federal agency’s responsibility to provide the Virginia CZM Program with consistency determinations for federal agency activities affecting the coastal zone.
Army Corps of Engineers – Public works projects including but not limited to dredging, breakwaters, navigation aids, reservoirs, beach nourishment, etc.
Federal permits or licenses which require federal consistency reviews if the permitted activity affects land or water uses in the coastal zone.
Federally funded state and local government activities for which consistency certifications must be submitted if the activity directly affects the coastal zone.

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