NAO-2019-01099/23-V0598 (Elbow Road widening, Chesapeake, Virginia)

Published April 17, 2023
Expiration date: 5/17/2023

April 17, 2023


The District Commander has received a joint permit application for Federal and State permits as described below:

APPLICANTCity of Chesapeake
Department of Public Works
P.O. Box 15255
Chesapeake, Virginia 23328

PROJECT LOCATION:  Along Elbow Road beginning at the eastern property line of the Bethel Baptist Church, extending approximately 2.1 miles, and terminating approximately 1,500-feet west of the City of Virginia Beach border in Chesapeake, VA.

PROJECT SIZE: The project consists of a 2.1 mile-long corridor encompassing 35.3 acres.

NEAREST WATERWAY: Intracoastal Waterway

LATITUDE AND LONGITUDE: 36.710179, -76.200588

PROJECT DESCRIPTION AND PURPOSE:  The proposed Elbow Road Widening Phase II project is designed to address various transportation concerns along Elbow Road. A traffic study was conducted by Clark Nexsen in October 2019 and revealed current and anticipated traffic needs for the existing roadway. According to the report, the two-lane roadway currently operates at a Level of Service (LOS) D and is projected to degrade to a LOS E by the year 2030-2031. Therefore, to address traffic/congestion needs, the report recommended a four-lane road section.

The proposed work involves adding 2 new lanes to the south of the existing Elbow Road and sidewalks/bike/multiuse lanes on each side of Elbow Road.

The proposed work will impact 14.21 acres of wetlands. 


The applicant has proposed utilizing a previously impacted, maintained emergent utility easement to extent feasible located south of existing Elbow Road. By limiting encroachment into un-disturbed forested wetlands to the north of the existing roadway and instead constructing the two additional 12-foot travel lanes and nine stormwater ponds to the south, Alternative 2 takes advantage of an existing 50-foot-wide maintained utility easement. This design reduces impacts to forested wetlands by approximately 11.5 acres.

The applicant reduced the width of the raised median from 30 feet to 16 feet. The City of Chesapeake Comprehensive Plan includes a standard 30-foot-wide raised median for the proposed roadway. By reducing the median width to 16 feet, impacts to forested wetlands were reduced by approximately 2.5 acres.

The applicant will utilize upland areas within the southwestern portion of the project corridor. Alternative 2 was designed to take advantage of the maximum available upland space practical within the southwestern portion of the project corridor. Of the nine proposed stormwater BMPs, three are located within upland fields north and south of the southwestern project corridor terminus. This design reduced impacts to forested wetlands by approximately 2.4 acres.

COMPENSATORY MITIGATION: The applicant plans to purchase 28.42 wetland mitigation credits from the Great Dismal Swamp Restoration Bank- Davis Wetland Bank serving hydrologic unit code 03010205.

In addition, the applicant must obtain an Individual Section 401 Water Quality Certification or waiver from the Virginia Department of Environmental Quality (DEQ) assuring that applicable laws and regulations pertaining to water quality are not violated.  

A copy of the joint permit application can be found on the Virginia Marine Resources Commission’s website at and search for 20230598 and click on additional docs to access the permit application and drawings.


( )        Section 10 of the Rivers and Harbors Act of 1899 (33 U.S.C. 403).

(X)       Sections 401 and 404 of the Clean Water Act (Public Law 95-217) and Title 62.1 of the Code of Virginia.

( )        Section 103 of the Marine Protection, Research and Sanctuaries Act of 1972 (33 U.S.C. 1413).

FEDERAL EVALUATION OF APPLICATION:  The decision whether to issue a permit will be based on an evaluation of the probable impact including cumulative impacts of the proposed activity on the public interest.  The decision will reflect the national concern for both protection and utilization of important resources.  The benefits which reasonably may be expected from the proposal must be balanced against its reasonably foreseeable detriments.  All the proposal's relevant factors will be considered, including conservation, economics, aesthetics, general environmental concerns, wetlands, cultural values, fish and wildlife values, flood hazards, flood plain values, land use, navigation, shoreline erosion and accretion, recreation, water supply and conservation, water quality, energy needs, safety, food and fiber production, mineral needs, consideration of property ownership and, in general, the needs and welfare of the people.  The Environmental Protection Agency's "Guidelines for Specification of Disposal Sites for Dredged or Fill Material" will also be applied (Section 404(b)(1) of the Clean Water Act).

The Corps of Engineers is soliciting comments from the public, federal, state, and local agencies and officials; Indian Tribes; and other interested parties in order to consider and evaluate the direct, indirect, and cumulative impacts of this proposed activity.  Any comments received will be considered by the Corps of Engineers to determine whether to issue, modify, condition, or deny a permit for this proposal.  To make this decision, comments are used to assess impacts on endangered species, historic properties, water quality, general environmental effects, and the other public interest factors listed above.  Comments are used in the preparation of an Environmental Assessment and/or an Environmental Impact Statement (EIS) pursuant to the National Environmental Policy Act.  Preliminary review of the application indicates that no EIS will be required.

Comments are also used to determine the need for a public hearing and to determine the overall public interest of the proposed activity.  Anyone may request a public hearing to consider this permit application by writing to the District Commander within 30 days of the date of this notice, stating specific reasons for holding the public hearing.  The District Commander will then decide if a hearing should be held.

ENDANGERED SPECIES: After conducting the Norfolk District Endangered Species Act (ESA) Project Review Process, the Corps has made the preliminary determination that:

There may be an effect to listed/proposed/candidate species and/or designated/proposed critical habitat under the ESA of 1973. The U.S. Fish and Wildlife Service (FWS) Information and Planning and Consultation (IPaC) Official Species List and Species Conclusion Table are attached for review and comment by the FWS and the National Marine Fisheries Service (NMFS).

Additional information might change any of these findings.


No known Historic Resources eligible for inclusion or included in the National Register of Historic Places (NRHP) are in or near the Corps permit area or would likely be affected by the proposal.

Additional information may change any of these findings.

ESSENTIAL FISH HABITAT: The Magnuson-Stevens Fishery Conservation and Management Act, as amended by the Sustainable Fisheries Act of 1996 (Public Law 104-267), requires all Federal agencies to consult with the NMFS on all actions, or proposed actions, permitted, funded, or undertaken by the agency, that may adversely affect Essential Fish Habitat (EFH).

There is no EFH in the Corps area of responsibility.

VIRGINIA’S COASTAL ZONE MANAGEMENT PROGRAM: For compliance with the Coastal Zone Management Act of 1972, as amended for projects located in Virginia’s Coastal Zone, the applicant must certify that federally licensed or permitted activities affecting Virginia's coastal uses or resources will be conducted in a manner consistent with the Virginia’s Coastal Zone Management Program (Virginia CZM Program), and obtain concurrence from the Department of Environmental Quality (DEQ), Office of Environmental Impact Review (OEIR). It is the applicant’s responsibility to submit a consistency certification to the OEIR for concurrence or objection, and proof of concurrence must be submitted to the Corps prior to final permit issuance. A template federal consistency certification can be found in the Federal Consistency Manual here: .  For more information or to obtain a list of the enforceable policies of the Virginia CZM Program, contact the DEQ-OEIR at (804) 659-1915 or e-mail:

The applicant has not submitted concurrence.

VIRGINIA’S SECTION 401 WATER QUALITY CERTIFICATION PROGRAM: The Clean Water Act (CWA) Section 401 Certification Rule (Certification Rule, 40 CFR 121), effective September 11, 2020, requires certification, or waiver, for any license or permit that authorizes an activity that may result in a discharge. The scope of a CWA Section 401 certification is limited to ensuring that a discharge from a Federally licensed or permitted activity will comply with water quality requirements. To comply with the Virginia Section 401 Water Quality Certification Program and the Certification Rule, the applicant is responsible for adhering to the procedures outlined in the Certification Rule when requesting certification from the certifying authority, the Virginia Department of Environmental Quality. In accordance with Certification Rule part 121.12, the Corps will notify the U.S. Environmental Protection Agency Administrator when it has received a Department of the Army (DA) permit application and the related certification. The Administrator is responsible for determining whether the discharge may affect water quality in a neighboring jurisdiction. The DA permit may not be issued pending the conclusion of the Administrator’s determination of effects on neighboring jurisdictions.

COMMENT PERIOD:  Comments on this project should be in writing and can be sent by either email to, or by regular mail, addressed to the Norfolk District, Corps of Engineers (ATTN:  CENAO-WRR), 803 Front Street, Norfolk, VA  23510-1011, and should be received by the close of business on May 17, 2023.

PRIVACY AND CONFIDENTIALITY:  Comments and information, including the identity of the submitter, submitted in response to this Public Notice may be disclosed, reproduced, and distributed at the discretion of the U.S. Army Corps of Engineers.  Information that is submitted in connection with this Public Notice cannot be maintained as confidential by the U.S. Army Corps of Engineers.  Submissions should not include any information that the submitter seeks to preserve as confidential.

If you have any questions about this project or the permit process, contact Mr. Robert Berg via email at or by phone (757) 201-7793.