Regulatory Effectiveness Study for theArmand Bayou Coastal Preserve

OPrinted on recycled paper

Regulatory Effectiveness Study for theArmand Bayou Coastal Preserve

Gary Mitchell, AICPPrincipal Investigator

Houston-Galveston Area Council

and

Duane Windsor, Ph.D., SubcontractorLynette S. Autry Professor of ManagementJones Graduate School of Administration

Rice University

The Galveston Bay National Estuary Program

Publication GBNEP-13December, 1991

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This project has been funded in part by the United StatesEnvironmental Protection Agency under assistance agreement# CE-00655-01 to the Texas Water Commission. The contents ofthis document do not necessarily represent the views of theUnited States Environmental Protection Agency, the TexasWater Commission, nor the Galveston Bay National EstuaryProgram, nor does mention of trade names or commercialproducts constitute an endorsement or recommendation foruse.

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Policy Committee

The Honorable Rodney Ellis, ChairTexas Senate

Mr. John HallChair,

Texas Water Commission

Ms. Linda SheadExecutive Director

Galveston Bay Foundation

Ms. Eileen CrowleyFormer President

Greater Houston PartnershipChamber of Commerce Division

Mr. Buck J. Wynne, III, Vice-ChairRegional Administrator, EPA Region 6

Mr. John Wilson KelseyVice-Chair,Texas Parks and Wildlife Commission

Mr. Charles W. JennessChair,Texas Water Development Board

The Honorable Jon LindsayCounty Judge, Harris County

Local Governments Advisory Committee

The Honorable Ray Holbrook, Chair

Management Committee

Mr. Myron 0. Knudson, Chair Ms. Barbara Britton, Vice-Chair

Scientific/Technical Advisory Committee

Dr. Frank M. Fisher, Jr., Chair Dr. Robert McFarlane, Vice-Chair

Citizen's Advisory Steering Committee

Ms. Sharron Stewart, Chair Ms. Glenda Callaway, Vice-Chair

Galveston Bay Public Forum

Dr. Martin Arisco, Chair Dr. Don Bass, Vice-Chair

Program Director

Dr. Frank S. Shipley

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H-GAC Natural Resources Advisoiy Committee

The Honorable Ed Matuszak, ChairCouncilmember, City ofLaPorte

Mr. Dennis Caputo, Vice-ChairProler Corporation

Mr. Jim AdamsSanJacinto River Authority

Ms. Barbara BainLeague of Women Voters

Mr. Steve BrooksMetropolitan Transit Authority

Mr. Robert ChaseClean Houston, Inc.

Mr. Cristopher ClaunchClaunch and Miller, Inc.

Mr. Jim DannenbaumDannenbaum Engineering Corporation

Mr. Leo DavisSam Houston RC&D Area, Inc.

Ms. Betty HartWaller Chamber of Commerce

Dr. Sherrill JenningsPrivate Citizen

Mr. Tom KesslerGalveston County Engineering

Mr. Aubrey A. LaFargueCity of Houston Public Works Dept.

Mr. William S. O'Donnell, Sr.Greater Houston Builders Association

Mr. Allison R. PeirceHarris County Pollution Control

Mr. Enrique QuevedoCity of Houston Health Department

Mr. Reagan RovshachCamp, Dresser McKee

Ms. Cathy SiskHarris-Galveston Coastal Subsidence District

Mr. Ed FeithHouston Lighting and Power

Mr. Dan GerkenFort Bend County Engineering

Mr. James GibsonQiambers County Sanitation Department

Mr. James B. GreenHarris County Flood Control District

Mr. Mac HallMalcolm Pirnie, Inc.

Mr. Joe P. TellerGulf Coast Waste Disposal Authority

Mr. Stephen G. WavroExxon

Mayor Veta WinnickCity of Dickinson

Commissioner E.R. VacekMatagorda County

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GBNEP Coastal Preserves Task Force

Dr. Larry McKinney, ChairTexas Parks and Wildlife Department

Dr. Neil BishopTurner, Collie & Braden, Inc.

Mr. James BlackburnGalveston Bay Foundation

Ms. Glenda CallawayEKISTICS Corporation

Ms. Sally DavenportTexas General Land Office

Dr. Frank M. Fisher, Jr.Rice University

Dr. Hal IrbyTexas General Land Office (formerly)

Mr. Fred LeblancTexas Parks and Wildlife Department

Mr. Rollin MacRaeTexas Parks and Wildlife Department

Mr. Don MooreNational Marine Fisheries Service

Mr. David NeleighEnvironmental Protection Agency

Mr. Ken TeagueEnvironmental Protection Agency

Dr. Jerry WermundUniversity of Texas at Austin

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H-GAC Project StaffJeff Taebel, AICP, Manager of Community and Environmental Planning

Carl Masterson, Senior Environmental PlannerGary Mitchell, AICP, Environmental Planner (Principal Investigator)

Ed Polasek, Environmental PlannerAnn Weinle, Administrative Assistant

SubcontractorDuane Windsor, Ph.D.

Lynette S. Autrey Professor of ManagementJones Graduate School of Administration

Rice University

Houston-Galveston Area CouncilCommunity and Environmental Planning Department

P.O. Box 22777, 3555 TimmonsHouston, Texas 77227

713/627-3200

Fax: 713/621-8129

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TABLE OF CONTENTS

EXECUTIVE SUMMARY 1Overview of Armand Bayou Management Concerns 2

READER'S GUIDE 5

INTRODUCTION ,. 7Purpose 7Scope 7Study Area Description 8Methodology 8

CHAPTER ONE: MANAGEMENT OVERVIEW 13General Recommendations for Preserve Management 15

CHAPTER TWO: POINT SOURCE DISCHARGES 17Summary of Findings 17Action Recommendations 18Management Framework 22Management Concern: Point Source Discharges 27

Background 27Nature of the Problem at Armand Bayou 27

Key Management Agencies 27U.S. Environmental Protection Agency 27Texas Water Commission 31Railroad Commission of Texas 37Harris County Pollution Control Department 40

Management Evaluation Findings 41

CHAPTER THREE: STORM WATER RUNOFF 55Summary of Findings 55Action Recommendations 56Management Framework 60Management Concern: Storm Water Runoff 62

Background 62Nature of the Problem at Armand Bayou 62

Key Management Agencies 63U.S. Environmental Protection Agency 63Texas Water Commission 69

Management Evaluation Findings 71

CHAPTER FOUR: WETLANDS PROTECTION 79Summary of Findings 79Action Recommendations 80Management Framework 83Management Concern: Wetlands Protection 89

Background 89

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Nature of the Problem at Armand Bayou 91Key Management Agencies 91

U.S. Army Corps of Engineers 91U.S. Environmental Protection Agency 98U.S. Fish and Wildlife Service 101National Marine Fisheries Service 103Texas Parks and Wildlife Department 104Texas General Land Office 107

Management Evaluation Findings 109

CHAPTER FIVE: HABITAT PROTECTION 117Summary of Findings 117Action Recommendations 118Management Framework 119Management Concern: Habitat Protection 122

Background 122Nature of the Problem at Armand Bayou 122

Key Management Agencies 123U.S. Fish and Wildlife Service 123Texas Parks and Wildlife Department 125National Marine Fisheries Service 127

Management Evaluation Findings 129

CHAPTER SIX: ILLICIT WASTE DISPOSAL 133Summary of Findings 133Action Recommendations 133Management Framework 135Management Concern: Illicit Waste Disposal 136

Background 136Nature of the Problem at Armand Bayou 137

Key Management Agencies 137Harris County Pollution Control Department 137Other Involved Agencies 138

Management Evaluation Findings 139

APPENDIX A: Legislation and Regulations 143APPENDIX B: List of Agencies Contacted 145APPENDIX C: Survey Form Example 147APPENDIX D: Agency Directory 153

SELECTED BIBLIOGRAPHY 157

LIST OF FIGURESFigure 1: Agency Acronyms 11Figure 2: EPA Program Areas Involved in Point Source Regulation 29

LIST OF MAPSArmand Bayou Study Area 9

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PREFACE

The National Estuary Program (NEP) was established by the Water Quality Act (WQA)of 1987. The Act authorizes the Administrator of the United States EnvironmentalProtection Agency (EPA) to convene Management Conferences to developComprehensive Conservation and Management Plans (CCMPs) for estuaries of nationalsignificance that are threatened by pollution, development or overuse.

Galveston Bay was named for priority consideration for inclusion in the NEP in theWater Quality Act. The Governor of Texas submitted a Supplemental Nomination forGalveston Bay in May 1987. EPA accepted the nomination and initiated theManagement Conference for Galveston Bay in July 1988. A cooperative agreementbetween Texas and the U.S. EPA was signed in October 1988, enabling developmentalwork to begin on the Galveston Bay National Estuary Program (GBNEP). (AManagement Conference overview and member directory is available from the GBNEPProgram Office.)

The GBNEP received approval for an Action Plan Demonstration Project from EPA'sOffice of Marine and Estuarine Protection in July 1989, and EPA Region 6 providedfunding in September 1989. Such projects are designed to show near-term positiveactions by National Estuary Programs. Under the GBNEP project, two new coastalpreserves, Armand Bayou and Christmas Bay, were created under the existing jointTexas General Land Office (GLO)/Texas Parks and Wildlife Department (TPWD)Coastal Preserves Program. Armand Bayou, the focus of this regulatory survey, wasrecommended for Coastal Preserve designation due to its importance as an aesthetic andeducational resource.

This report contains a description and evaluation of essential regulatory activitiesgoverning Armand Bayou and its watershed. This report will be used in managementplanning for the preserve, and will also contribute to the baseline regulatory data fordeveloping the Galveston Bay Comprehensive Conservation and Management Plan. Acompanion report was prepared for the Christmas Bay Coastal Preserve.

This study was conducted by the Houston-Galveston Area Council and Duane Windsor,Ph.D., of Rice University, under contract to the Galveston Bay National EstuaryProgram.

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