[From the U.S. Government Printing Office, www.gpo.gov]
AUG Adwk gawk IrI ,Illy MET YU R E, V DRAFT fit. For Public Review ir J IS" 51 @t@ J Are Ak" iA rj WR A 00 @Oo j7- .-@VrI Report of the Southeastern New England Water and Related Land Resources Study, dh Includes Draft Environmental Impact Statement. New England River Basins Commission, 408 Atlantic Avenue Boston, Massachusetts 02210 May 1975 HOW TO GUIDE GROWTH IN SOUTHEASTERN NEW ENGLAND READER'S GUIDE: HOW TO REVIEW THIS REPORT � In five minutes Read the OVERVIEW which folds out as one large sheet. There are two extra copies in the pocket in the rear for FOR A "THUMBNAIL SKETCH" those who would like to mount it on the wall. � In a half hour or less Read the SUMMARY. It comes immediately after the overview. You can read it in either of two ways: TO LEARN THE MAIN POINTS 0 SELECTIVELY. Read the Chapters on Goals and Approach and Guiding Growth, plus any others that interest you. Chapters are boldly labeled to facilitate selective reading; or 0 ENTIRELY. Read the full summary for a fuller understanding of the highlights of the SENE Study. � In one day or less Read the REGIONAL REPORT. 0 SELECTIVELY. It is organized exactly like the TO UNDERSTAND THE DETAILS summary. Wherever your interests lie, you can turr, to those sections for additional background, amplifica- tions, analysis of rejected alternatives, and especially for the full text of each recommendation, including who should do what and when. Also, remove the Development Capabilities Maps and the Actions Maps in the rear pocket and examine the legend to appreciate the type of infoirnation the maps portray; or 0 ENTIRELY. Read the full report for full apprecia- tion of all recommendations, and how they interrelate. In an additional 10 minutes to Get the PLANNING AREA REPORT for your locale. 2 hours Scan it or read it to see how the broader recommendations presented in the Regional Report may apply to the area FOR APPLICATION TO YOUR AREA where you live or work. HOW TO GUIDE GROWTH IN SOUTHEASTERN NEW ENGLAND Parts 1, 11, and IV of the draft report Southeastern New England Study New England River Basins Commission Study Office Central Office 408 Atlantic Ave. 55 Court St. Boston, Mass. 02210 Boston, Mass. 02108 CZIC FILE COPY Review Draft/May 1975 HD 1695, n 45 U5329 1975 U.S. DEPARTMENT OF COMMERCE NOAA COASTAL SERVICES CENTER 2234 SOUTH HOBSON AVENUE CHARLESTON , SC 29405-2413 Contains draft environmental impact statement required by the National Environmental Policy Act of 1975. Property Of CSC Library Southeastern New England Water and Related Land Resources Study NEW ENGLAND RIVER BASINS COMAUSSION 408 Atlantic Avenue Boston, Massachusetts 02210 617-223-4431 Spring, 1975 To the People of Southeastern New England: In August 1968, the New England Governors and the U. S. Water Resources Council approved a New England River Basins Commission proposal for a comprehensive water and related land resources study of the'southeastern portion of New England. The Study, funded by Congress in 1971, was to "identify and recommend management actions to all levels of government and the private sector to provide the people of Southeastern New England with the full range of benefits which might be derived from a balanced program of conservation and development of the region's water and related land resources". We are pleased to present the draft report of that effort for your review and comment. The Study, has yielded two principal products. First, it has developed a base of information on the regions natural resources - what and where,they are, what kinds of pressures and conflicts they face - and come to some analytic -conclusions about the development capabil- ities and limitations of these resources. This information has been developed at a level of consistent detail which will be of great use to local, state, and regional decision-makers as they struggle to guide the future growth of Southeastern New England. Second, the Study presents a suggested program of management actions designed to encourage growth and develop- ment in ways which are more public investment efficient than in the past, and which are mindful of the contributions South- eastern New England's remaining natural landscape can make to future economic development and the well-being of the region's people. This management program is presented from a regionwide point of view in the Regional Report and then' deals more narrowly with subregional and local issues in the ten Planning Area Reports. By presenting the recommendations in this manner, the Study exhibits the belief that while certain regional imperatives exist, the social and political realities are such that any useful plan of action must be directed to state and local solutions. In developing this management program, we have consulted oft .en with the people of the region and the public and private caretakers of their resources. Through this process we hope to have developed a program responsive to public prefer- ences and supportive of ongoing state resource management programs - a rational program which makes sense for South- eastern New England's economic needs and environmental aspirations. So once, again, we ask you to respond. To make it easier, a guide to reviewing the reports has been provided. Main points -of the recommended management program can be found in the Overview and Summary which follow. A 90-day period has been provided for review, but we urge you to comment within the next two months to allow us time to give those comments thoughtful consideration. Moreover, while we will welcome general observations, we encourage detailed specific suggestions for revising the text. In short, this is not a "closed book,." and if you need further clarification in order to comment, call our offices. Yours very truly, FFrank regg Chairman ,kregVg @11 Main Office: 55 Court Street Boston, Massachusetts 02108 617-223-6244 FOREWORD Southeastern New England today accommodates, with varying degrees of success, the complex needs of nearly 50 percent of New Eneand's people on barely seven percent of its land. It is the economic nerve center of New England, an international center for education and research, a major eastern playground, and home to more than five million people. The economic opportunities of its urban centers and the richness and variety of its natural landscape have been irresistable growth inducers. And yet we have become increasingly aware that that growth could well destroy the magnetic amenities which stimulated it in the first place. The fundamental question is: Can we accommodate growth, provide adequate economic opportunities, and still protect the amenity values of the region's resources which make SENE such an attractive place in which to live? The Southeastern New England Water and Related Land Resources Study is one response to that question and to the complex natural resources issues facing the region now and in the future. It is a comprehensive planning effort of the federal government, Massachusetts and Rhode Island, and led by the New England River Basins Commission. Assisting the Study's staff were dozens of federal, state, regional, local, and private professionals, as well as a Citizens Advisory Committee of key citizen interests, individual local river basin advisory committees, and a Regional Scientific Task Force from the region's academic community. The purpose of the Study is to identify and recommend actions to be taken by all levels of government and by private interests to secure for the people of Southeastern New England the full range of uses and benefits which may be derived from the balanced conservation and development of the region's water and related land resources. The Regional Report and Environmental Impact Statement details for Southeastern New England as a whole the nature of the 'resource base, its capabilities and limitations for development, the demands placed on those resources now and in the future, and provides a comprehensive management program responsive to the purpose of the Study. Accompanying the regional volume are detailed reports of ten individual planning areas within the Study region. These include: 1. Ipswich-North Shore 6. Taunton 2. Boston Metropolitan 7. Blackstone and Vicinity 3. South Shore 8. Pawtuxet 4. Cape Cod and Islands 9. Narrag@nsett Bay and Block Island 5. Buzzards Bay 10. Pawcatuck The individual Planning Area Reports are designed to be read by citizens and officials in concert with the Regional Report. In order to provide recommendations which meet the specific area needs, some similarity in content from planning area to planning area is necessary in the interest of completeness. Each Planning Area Report, taken together with the Regional Report, will provide a complete action program. Priorities for action have been suggested for regionally important recommendations and described in the Regional Report. Local priorities have, in most cases, been left to the discretion of substate regional and municipal officials and citizens with the view that their knowledge and understanding of local circumstances can be used to great advantage in establishing priorities based on the regional perspective provided by the SENE Study analysis. v REPRESENTATIVES OF CONTRIBUTING STATE AND FEDERAL AGENCIES FEDERAL - STATE New England River Basins Commission R. Frank Gregg, Chairman" Robert D. Brown, Staff Director" Robert Kasvinsky, Study Manager* Jane F. Carlson Cornelia V. H. Ferber A Ion Jacobs Ernesta Kracke James Luty William, Mahoney Priscilla P. NewbuU William E. Arothdurft William E. Richardson Philip Tab,2s New England Regional Commission Thr-masFitzpatrick" Tilath Gupta* (consultant) Robert Boken * STATE - MASSACHUSETTS Resources Management Policy. Council Department of Natural Resources Vincent Ciampa Arthur W. Brownell, Commissioner" (to February 1975) Coastal Zone Management Program Division of Water Resources Matthew Connolly Charles Kennedy ** Dan Calano Emerson Chandler* (as of June 1975) Department of Health Clinton Watson* (to June 1974) Division of Environmental Health Department of Community Affairs George Coogan Lewis S. W. Crampton, Commissioner (to February 1975) David Terry* STATE - RHODE ISLAND Rhode Island Statewide Planning Program Coastal Zone Management Program Daniel W Varin, Chief" Coastal Resources Management Council Bradford South worth" John Lyons, Chairman Patrick V. Fingliss* Coastal Resources Center Stuart 0. Hale Malcolm Grant FEDERAL Department of Agriculture Department of Commerce Soil Conservation Service National Weather Service Dr. Benjamin Isgur" Norman L. Canfield" Philip H. Christensen" National Marine Fisheries Services Stephen Claughton* Russell T Norriss** Economic Research Service Christopher Mantzaris* John Green* Bureau of Economic Analysis Forest Service Henry DeGraff Kenneth Johnson Gene Janisch Sam Becker (to December 19 73) Maritime Administration Neil Lamson (to March 19 74) * William S. Chambers Douglas Monteith (as of March 19 74) Robert L. Safarik A FEDERAL CONT'D Department of Defense, Department of the Interior Department of the Army, Roger Sumner Babb (as of December 1974)** Corps of Engineers Mark Abelson (to June 1973)** Planning Division Kenneth Young (to May 1974)** William Patterson (as of September 1974)** Joseph Ignazio, Chief" (to June 1974) Bureau of MinesI Policy and Long Range Planning Branch Robert D. Thompson* Lawrence Bergen, Chief" (as of June 1974) Joseph Krickich (to March 1974)*, John Landall* Peter Morey (as of March 1974)* Gardner Blodgett* Paul Pronovost Bureau of Outdoor Recreation Plan Formulation Branch James Donoghue (to March 1973)* Steven Onysko Eric Finstick (to September 1974)* Alan Hutchings (as of September 1974)* Coastal Development Branch Earl Nichols (as of September 1974) Harvey Minsky Fish and Wildlife Service Department of Housing and Urban Development Melvin Evans* DavidPrescott (to September 1974)** Roy Landstrom* Sheldon Gilbert (as of September 1974)** Dewey Castor JGAIWallace, Floyd Ellenzweig (consultants)* Dave Ferguson Fred Benson Department of Transportation Tom Oliver National Park Service Federal Highway Administration David Clark* Stanley R. Davis" David Kimball U. S. Coast Guard Richard Giamberdine Capt. Bernard Thompson (to October 1973)* University of Massachusetts Capt. Alvin P. Durgin, Jr. (October 1973 to August 1974)* (consultants fox NPS) Cdr. C. R. Lindquist (to February 1974)* Ervin Zube Capt. Royal E. Grover, Jr. (as of. August 1974)* Julius Guy Fabos Environmental Protection Agency R. Jeffrey Riotte* Water Quality Branch U. S. Geological Survey Walter Newman, Chief** Michael Frimpter* Roger Duwart* Clyde Shufelt* Federal Power Commission Water Supply Branch Jerome Healey* Martin Inwald** Stephen Lathrop* Jonas Barish Alma Rojas (to February 1974)* REGIONAL PLANNING AGENCIES CONSULTANTS (not otherwise shown) Merrimack Valley Regional Planning Commission Margaret Concannon Urban Waters Special Study Stephen Aradas Skidmore, Owings & Merrill Metropolitan Area Planning Council (also HUD, SENE Study Consultants) Economic Analysis James Miller Nathaniel Clapp Lawrence Brennan Barry C. Field Old Colony Planning Council John M. Gates Daniel Crane Thomas Grigalunas Robert McMahon J. G. Sutinen Cape Cod Planning and Economic Development Commission Gregory A. Vau t Robert Robes Legal and Institutional Analysis Paul Doane Dukes County Planning and Economic Development Commission Thomas Arnold Morton Gorden, Development Sciences, Inc. Robert Kornives Frances X. Cameron, Interface Nantucket Planning and Economic Development Commission Edward R. Kaynor William R. Klein Edward Selig Central Massachusetts Regional Planning Commission Planning Analysis David H. Kellogg James Arnold William V. McGuinness, Jr. Southeastern Regional Planning and Economic Development District Robert Gidez and Paul Merkens, Intasa William Toole Eric Savolainen Harry Schwarz Alexander Zaleski Steven Smith Public Participation Southeastern Connecticut Regional Planning Agency Survey Research Program Richard B. Erickson Stephen Logowitz vii CITIZEN ADVISORY COMMITTEE AND REGIONAL SCIENTIFIC TASK FORCE Gordon Abbott Bill Graves Spencer Potter Milton, Ma. Raynham, Ma. Jamestown, R.I. Dr. Daniel Aldrich X Rolf Hardy Ted Prall North Dartmouth, Ma. Boston, Ma. Boston, Ma. Nancy Anderson Robert A. Harpell Martha Reardon Reading, Ma. Cumberland, R.I. Quincy, Ma. Arthur Barnes AlfredHawkes James Rogers West Newton, Ma. Providence, R.I. Lexington, Ma. Gerry Beals Paul Hicks Dr. Neils Rorholm* Easton, Ma. Providence, R.I. Kingston, R.I. Leo Bouchard Dorothy Hunnewell John T. Scanlon Smithfield, R.I. Wellesley, Ma. East Greenwich, R.I. Prof Derek Bradford Nancy Hustpedt Dr. William Seifert* Providence, R.I. Woburn, Ma. Cambridge, Ma. Jack Conway John Kellam Roland Sherman Hanover, Ma. Providence, R.I. Worcester, Ma. John Davis Water Kelly Barbara Sjoberg Pawcatuck, Conn. Waltham, Ma. Pawtucket, R.I. Peter Donovan* Dr. Boswick Ketchum* Frederick Smith* Brighton, Ma. Woods Hole, Ma. Cambridge, Ma. Charles E. Downe Ken Lagerquist Reed Stewart West Newton, Ma. Seekonk, Ma. Marshfield Hills, Ma. Dr. Madge Ertel Maurice Leduc Merlin Szosz Amherst, Mass. Coventry, R.I. Foster, R.I. Dennis Ducsik Frank Lee Dr. Clarence Tarzwell* Cambridge, Mass. Boston, Ma. Wakefield, R.I. Michael Everett* Elwood Leonard Marshall Taylor Providence, R.I. Ashton, R.I. West Somerville, Ma. Dr. John W. Farrington Glenn McNary Jens 77iornton Woods Hole, Ma. North Falmouth, Ma. Quincy, Ma. Barbara Fegan, Chairman Dr. Sanford Moss Bruce Tripp South Wellfleet, Ma. Westport, Ma. Woods Hole, Ma. Michael Frucci Herbert Nickerson Ivan Valiela Hyannis, Ma. Gloucester, Ma. Woods Hole, Ma. Dr. Frederick Glantz EdPlumley Thomas Weaver Boston, Ma. Westboro, Ma. Kingston, R.I. *RSTF Member viii TABLE OF CONTENTS Reader's Guide . . . . . . . . . . . . . . . Inside Front Cover Title Page . . . . . . . . . . . . . . . . . . . ... . . Letter of Transmittal . . . . . . . . . . . . . . ... . . Foreword . . . . . . . . . . . . . . . . . . . . . . . v Participants . . . . . . . . . . . . . . . . . . . . . . . A Table of Contents . . . . . . . . . . . . . . . . . . . . . ix Deve) lopment Capabilities Maps (Plates 1, 2,,3) . . . . . . . Back Pockets Recommended Actions Maps (Plates la, 2a, 3a) . . . . . . . Back Pockets Overview (extra copies) . . . . . . . . . . . . . . Back Pocket List of Where Reports Can Be Found . . . . . . . . . . Back Cover Public Meeting Locations and Dates . . . ... . . . .... . Back Cover PART I OVERVIEW ........................... Fold out with 2 Extra Copies in Back Pocket THE SUMMARY ............................... S-1 1. THE KEY FINDINGS S-1, Enhancing the Environment enhances the region's economy S-1, Anticipated growth can be accommodated, but needs guidance S-1, Existing knowledge, programs, and institutions can provide the tools for achieving results S-2, 2. CARRYING OUT THE SOUTHEASTERN NEW ENGLAND STUDY S-2, 3. GUIDING GROWTH S-3, 4. WATER SUPPLY S-5, 5. WATER QUALITY S-7, 6. OUT- DOOR RECREATION S-9, 7. MARINE MANAGEMENT S-10, 8. FLOODING AND EROSION S-13, 9. UNWELCOME FACILITIES S-14, 10. STRENGTHENING THE MANAGEMENT SYSTEM FOR NATURAL RESOURCES S-17, 11. TYING THE RECOMMENDATIONS TOGETHER S-19, THE SENE STUDY: WHAT IT IS AND HOW TO USE IT S-20. PART II REGIONAL REPORT CHAPTER I GOALS AND APPROACH . . . . . . . . . . . . . . . . . . . . . . . Study Goals 1-1, Major Regional Planning Objectives 1-1, The SENE Recommendations 1-1, The Major Characteristics of the SENE Recommendations 1 -1, Using the Plan 1-2, Formulating the SENE Study Recommendations 1-2, Functional Analysis 1-2, Alternative Plan Development 1-2, Analysis ofImplica- tions 1-2, Major Conclusions 1-3, Enhancing the environment also enhances the economy 1-3, Antici- pated growth can be accommodated, but it needs guidance 1-3, Existing knowledge, programs, and institutions provide the most realistic tools for achieving results 1-4, Compilation of Base Data 1-5 CHAPTER 2 THE SETTING . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-1 Physical Characteristics 2-1, Boundaries 2-1, Geology and Topography 2-1, Climate and Water 2-3, Coastal Resources 2-3, Population: Today and Tomorrow 2-3, The Structure of the Economy 2-4, An Historical Sketch of the Economic Base of SENE 2-5, Current Structure and Projected Changes in the SENE Economy 2-5, Per Capita Income 2-5, Employment 2-6, Industry Mbc 2-6, Sub-Regional Differ- ences Within the SENE Economy 2-9, Implications 2-11, Relatively Lower Growth in Direct Demand for Natural Resources 2-9, 2-11, Opportunity for Decentralization of Economic Activity 2-11, Con- tinuing Need to Upgrade Region's Labor Force 2-11, Changed Nature of Economic F7;uctudflons 2-11, Conflicts Between Economic and Environmental Objectives 2-12, Conclusion from an Economic-Re- sources Perspective 2-12, Resource Management Institutions 2-13, Federal 2-13, Interstate and Re- gional 2-13,'State 2-13, Massachusetts 2-13, Rhode Island 2-14, Local 2-14, Current Public Perceptions 2-14 ix TABLE OF CONTENTS Contd. CHAPTER 3 GUIDING GROWTH . . . . . . . . . . . . . . . . . . . . . . . . . 3-1 The Setting 3-1, The Situation 3-2, General Growth Trends 3-2, Land Use Changes 3-2, Population Growth 3-Z Land Consumption 3-2, Sewering and Water Supply 3-2, Employment 3-3, Development Pressure 3-3, Effects of Growth on Water and Related Land Resources 3-6, Wetlands 3-6, Beaches, Dunes, and Bluffs 3- 7, Water Bodies 3- 7, Well Sites 3- 7, Estuaries 3- 7, Food Plains 3- 7, Pfime Agricultural Lands 3- 7, Unique Natural and Cultural Areas 3-8, Aquifer and Recharge Areas 3-8, Upland Wildlife Habitat and High Landscape Quality Areas 3-8, Sdils with Development Limitation 3-8, Developments of Regional Impact 3-8, Key Facilities 3-8, Large Scale or Growth Inducing Development 3-8, The SENE Resource Development Capability Analysis 3-9, Criteria for Classifying Resources 3-9, A Water and Related Land Use Classification System 3-10, Critical Environmental Areas 3-10, Developable Areas Requiring Manage- ment 3- 10, Preempted Use Areas 3-11, The Implications of the Development Capability Analysis for Accommodating Growth 3-12, The Solutions 3-12, Alternatives 3-12, Continuing Current Programs and Recommendations 3-14, Increase Protection of Critical Environmental Areas 3-16, Improve Management of Developable Areas 3-17, Recommendations 3-20, Implications 3-24 CHAPTER 4 WATER SUPPLY . . . . . . . . . . . . . . . . . . . . . . . . . . 4-1 The Setting 4- 1, The Situation 4-2, The Solutions 4-3, Alternatives 4-3, Managing Water Demand 4-3, Developing Ground Water 4-5, Developing Surface Water 4-9, Achieving Self-Sufficiency 4-11, Using Emerging TechnoloAy 4-11, Improving Water Supply and Water Quality 4713, Making Interbasin Trans- fer: 7he MDC 4-14, Expanding or Forming Regional Systems 4-17, Improving Institutional Arrange- ments 4-18, Alternative Plans 4-20, Recommendations 4-20, Recommendations applicable throughout the region 4-20, Recommendations for communities relying wholly or partially on ground water 4-21, Recommendations for municipalities relying on surface water 4-22, Implications 4-22 CHAPTER 5 WATER QUALITY . . . . . . . . . . . . . . . . . . . . . . . . . 5-1 The Setting 5-1, The Situation 5-5, Why Cleanup is Desirable 5-5, Existing Organizations and Programs 5-5, The Water Quality Goals 5-7, Scope of the Chapter 5-7, URBAN STORMWATER RUNOFF/COMBINED SEWER OVERFLOWS 5-8, The Situation 5,8, The Solutions 5-8, Alternatives 5-8, Stormwater sampling 5-9, Attenuation of Runoff 5-9, Better Street Geaning 5-9, Separation 5-9, In-System Controls 5-9, Off-System Storage 5-9, Treatment 5-9, MUNICIPAL DISCHARGES 5-11, The Situation 5-11, The Solutions 5-11, Alternatives 5-11, Additional Sewering 5-11, Higher Degree of 7)-eatment 5-11, Better Effluent Disposal Methods 5-11, Better Sludge Disposal Methods 5-14, Greater Regionalization 5-14, INDUSTRIAL DISCHARGES 5-15, The Situation 5-15, The Solutions 5-16, Alternatives 5-16, SOME NON-POINT POLLUTION SOURCES 5-16, Septic Systems 5-17, The Situation 5-17, The Solu- tions 5-17, Alternatives 5-17, Low Streamflows 5-18, The Situation 5-18, The Solutions 5-19, Agricul- tural Runoff 5-19, Leachate, from Landfills 5-19, The Solutions 5-19, Alternatives 5-19, Instream. Pol- lution 5-19, The Situation 5-19, The Solutions 5-19, Alternatives 5-19, OIL POLLUTION 5-20, WATERCRAFT WASTES 5-20, AREAWIDE MANAGEMENT 5-21, ALTERNATIVE PLANS 5-21, RECOMMENDATIONS 5-22, General Strategy 5-22, Preservation 5-22, Restoration 5-23, Planning Area Priorities 5-24, Costs 5-25, Implications 5-26 CHAPTER 6 OUTDOOR RECREATION . . . . . . . . . . . . . . . . . .. . . . . . 6-1 The Setting 6-1, Introduction 6-1, SWIMMING 6-4, The Situation 6-4, The Solutions 64, Alternatives 64, Adding Facilities to Existing Public Parks and Beaches 6-4, Acquiring Public Access to the Shoreline 6-5, Acquiring New Beaches for State Parks 6-5, Alternative Plans 6-6, Recommendations 6-6, RECREATIONAL BOATING 6-7, The Situation 6-7, The Solutions 6-8, Alternatives 6-8, Expansion of Existing Facilities (Public and Private) 6-8, Consider Development of New Facilities 6-8, Alternative Plans 6-8, Recommendations 6-8, TABLE OF CONTENTS Cont'd. RECREATIONAL SALT WATER FISHING 6-9, The Situation 6-9, The Solutions 6-9, Recommen- dations 6-9, CAMPING AND PICNICKING 6-10, The Situation 6-10, The Solutions 6-10, Alternatives 6-10, Expansion of Existing Facilities (Public and Private) 6-10, Development ofNew Facilities (Public and Private) 6-11, Alternative Plans 6-11, Recommendations 6-11, WILDLIFE AND FRESH WATER FISHERIES PRODUCT10N 6-12, The Situation 6-12, The Solut ions 6-13, Alternatives 6-13, Acquiring Wetlands 6-13, Acquiring Upland Wildlife Management Areas 6-13, P@,oviding Public Access to Privately Owned Wildlife Habitat 6-13, Wetlands Legislation 6-13, Acquiring Public Access to Ponds 10 Acres and Larger 6-13, Acquiring Streambank Access 6-14, Alternative Plans 6-15, Recommendations 6-15, PASSIVE OUTDOOR RECREATION 6-15, The Situation 6-15, The Solutions 6-16, Alternatives 6-16, Developing Boston Harbor and Narragansett Bay Island'Parks 6-16, Making Recreational Use of Currently Inaccessible Urban Resources 6-16, Acquiring Critical Environmental Areas 6-16, LimitedPublic Access to Water Supply Watersheds 6-17, Multiple Use of Pails 6-17, Scenic Rivers Legislation 6-18, Alternative Plans 6-18, Recommendations 6-18, PRIORITIES 6-19, IMPLICATIONS 6-20 CHAPTER 7 MARINE MANAGEMENT . . . . . . . . . . . . . . . . .. . . . . . 7-1 The Setting 7-1, OFFSHORE FISHERIES 7-2, The Situation 7-2, Foreign Offshore Fishing Activity 7-5, The State of the bomestic Fishing Industry 7-5, The Fishing Regulation System 7-7, Marketing Underutilized Species 7-7, Related Environmental Issues 7-8, The Solutions 7-8, Alternatives to Assure Future Fishing Sup- plies 7-8, Continue the Existing Intemational Commission for Northwest Atlantic Fisheries (ICNAF) 7-8, Improve and Strengthen ICNAF 7-8, Enact a U. S. Interim 200 Mile Economic Zone 7-8, Alternatives for Improving the Domestic Fishing Industry's Competitive Base 7-8, Continue the Present Situation 7-8, Increase Tariffs on Imported Fish Products 7-9, Govemmental Subsidies to the Fishing Industry. 7-91 Im- prove Opportunities for Financing Domestically Built Boats 7-9, Allow Privately Financed Purchase of Foreign-Built Boats 7-9, Improve the Market for Underu tilized Fish Species 7-9, Accommodate Fishing Industry Facilities 7hrough Improved Coastal Planning 7-9, Alternative Plans 7 -9, Recommendations 7 -10, Implications 7-10, SHELLFISH AND AQUACULTURE 7-11, The Situation 7-11, Shellfish Production 7 -11, Aquacultural Development 7-12, Institutional Constraints on Aquaculture 7-IZ Wastewater Use Research 7-13, The Solutions 7-13, Alternatives 7-13, Delegate Management of Shellfish to the State 7-13, Increase State Assistance in Massachusetts for Local Shellfish Management 7-13, Develop Market for Underutilized Shellfish Species 7-13, Research Removal of Virus and Bacteria to Enhance Shellfish Habitats 7-13, Site New Wastewater Dischargesaway from Estuaries 7-13, Subsidize Aquaculture Industry Using State and Federal Funds 7-14, Enact Specific Aquaculture Legislation in Rhode Island 7-14, Increase State Guid- ance for Aquaculture Development 7-14, Recommendations 7-14, Implications 7-15, PORT DEVELOPMENT 7-15, The Situation 7-15, Port Development in Boston and Providence 7-15, Dredging Projects and Dredged Materials Disposal 7-16, Need for Coordinated Port Planning 7-16, The Solutions 7-16, Alternatives for Port Development 7-16, Continue to Plan Local Port Improvements on an Individual Basis 7-16, Plan Port Development Based on a Regional Study 7-17, Recommendations for Port Development 7-17, Alternatives for Dredged Materials Disposal 7-17, Treat Dredged Materials 7-17, Incineration 7-17, Dispose Dredged Materials on Land 7-17, Create Artificial Islands 7-18, Ban All Dredg- ing 7-18, Continue Disposal to Ocean Waters 7-18, Recommendations for Dredged Materials Disposal 7-18, Implications 7-18, OFFSHORE SAND AND GRAVEL EXTRACTION 7-18, The Situation 7-18, Market and Environmental Considerations 7-18, Offshore Mining Technology 7-19, The Solutions 7-20, Alternatives 7-20, Use Near- Shore Small Conventional Bucket Dredges 7-20, Use HopperDredges without Onboard Processing Capa- bility 7-20, Use Hopper Dredges with Onboard Processing and De- Watering Capacity Operating in Far- Shore Areas 7-20, Recommendations 7 -20, Implications 7-2 1, Xi - TABLE OF CONTENTS Cont'd. URBAN WATERFRONTS 7-21, The Situation 7-21, The Solutions 7-22, Alternatives 7-22, Recom- mendations 7-22, Implications 7-24 CHAPTER 8 FLOODING AND EROSION . . . . . . . . . . . . . . . . . . . . . . 8-1 The Setting 8-1, COASTAL AND INLAND FLOODING 8-1, The Situation 8-1, Extent of Flood Damages 8-1, Causes of Flooding 8-2, Principal Existing Flood Control Structures 8-4, Ongoing Federal Programs 8-5,Houst .ng and Urban Development 8-6, Corps of Engineers 8-6, USDA (SCS) Programs 8-6, National Weather Serv- ice 8-6, Ongoing State Programs 8-7, The Solutions 8-7, Alternatives 8-7, Controlling uses of the Land Using Non-Structural Controls 8- 7, Bringing the River (or Ocean) Under Control Using Structures 8-8, Protection of Existing Development Already Subject to F7ooding 8-8, Alternative Plans 8-8, Recommen- dations 8 -9, Non-Structural Recommendations 8-9, Structural Recommendations 8-12 ' Implications 8-13, INLAND EROSION 8-13, The Situation 8-13, The Solutions 8-13, Alternatives 8-13, Alternative Plans 8-13, Recommendations 8-14, Implications 8-14, COASTAL EROSION 8-14, The Situation 8-14, The Solutions 8-15, Alternatives 8-15, Alternative Plans 8-15, Recommendations 8-15, Implications 8-16 CHAPTER 9 UNWELCOME FACILITIES . . . . . . . . . . . . . . . . . . . . . . 9-1 The Setting 9-1, ONSHORE SAND AND GRAVEL EXTRACTION 9-2, The Situation 9-2, The Solutions 94, Alternatives 94, Importing Sand and Gravel from Outside the SENE Region 9-4, The Use of Crushed Stone to Produce Sand and Gravel 9-4, Offshore Mining of Sand and Gravel 9-4, Identifying, and Prepa@ing a Plan for Sequen- tial Uses of Onshore Deposit Sites 94, Alternative Plans 9-5, Recommendations 9-5, Implications 9-6, ELECTRICAL POWER 9-6, The Situation 9-6, The Energy Crisis and Projecting Demand 9-6, Meeting Fu- ture Power Needs 9-7, Cost Implications of Alternative Sites 9-7, State Institutional Arrangements for Siting 9-7, The Solutions 9-9, Alternatives for Demand Management 9-9, Effilcienff)lcing ofElectrical Power 9-9, Revising the Rate Structure 9-9, Alternatives for Power Plant Siting 9-9, Continue the Present Siting System 9-9, Create One-Stop Coordinated Federal-State Review ofProposals 9-10, Establish Program of State Identiftcation and Protection of Potential Power Plant Sites 9-,10. The Technical Innovations Alterna- ting 9-10, Alternative Plans 9-10, Recommendations 9-10, Demand Management and Conservation 9-10, Sit- ing 9-11, Implications 9-12. PETROLEUM FACILITIES 9-12, The Situation 9-12, Market and Environmental Considerations 9-13, In- stitutional Considerations 9-13, The Solutions 9-13, Facilities Alternatives 9-15, Delivery 9-15, Refining 9-15, Distribution 9-15, Alternative Plans 9-15, Recommendations 9-16, Demand Management 9-16, Facili- ties Siting 9-16, Facilities Configuration 9-17, Implications 9-17, SOLID WASTE MANAGEMENT 9-17, The Situation 9-18, The Solutions 9-18, Land Disposal Site Selec- tion to Minimize Leachate Inffltration 9-18, Established Landfill Operations Regulated to Minimize Impact 9-19, Encourage Community Participation in State Solid Waste Recovery Programs 9-19, Recommendations 9-19, Implications 9-19 CHAPTER 10 STRENGTHENING THE MANAGEMENT SYSTEM I II FOR NATURAL RESOURCES . . . . . . . . . . 10-1 The Setting 10-1, Some Key Assumptions 10-1, Elements of a Strategy for State Leadership 10-1, The State Role 10-2, Yhe Federal Role 10-2, The Role ofRegional Agencies 10-2, The Ideal: A State Re- source Policy Mechanism 10-3, The Real: Significant Opportunities in Current Ongoing Programs 104, Massachusetts 10-5, RhodeIsland 10-6, Federal and Interstate 10-7, Recommended Strategy 10-7, Al- tentative Approaches to Key Elements of a Comprehensive Resources Management Program 10-9, Massachusetts 10-9, Rhode Island 10-15, An Index for Decision Makers 10-19 to 10-28 xii TABLE OF CONTENTS Cont'd. CHAPTER 11 TYING THE RECOMMENDATIONS TOGETHER .. . . . . . . . ... . . How Planning Objectives Achieve the Goal I 1 -1, How Recommendations Satisfy the Planning Objec- tives 11-1, How Activities Satisfy the Recommendations 11-9, How Agencies Carry Out the Activities 11-11, How the SENE Study Objectives Relate to National Criteria 11-11, How the Major Conclusions for SENE Were Reached 11 -17 PART III PLANNING AREA REPORTS UNDER SEPARATE COVER: I .Ipswich-North Shore Planning Area Report 2. Boston Metropolitan Planning Area Report 3. South Shore Planning Area Report 4. Cape Cod and Islands Planning Report 5. Buzzards Bay Planning Area Report 6. Taunton Planning Area Report 7. Blackstone and Vicinity Planning Area Report 8. Pawtuxet Planning Area Report 9. Narragansett Bay and Block Island Planning Area Report 10. Pawcatuck Planning Area Report PART IV ENVIRONMENTAL STATEMENT Summary EIS, ENVIRONMENTAL STATEMENT EIS 1, Description of the Proposed Actions EIS-2, Relationship to E3dsting Programs EIS-8, The Probable Impact of the Proposed Actions on the Environ- ment EIS-8, Alternatives to the Proposed Actions EIS-10, Probable Adverse Environmental Effects Which Cannot Be Avoided EIS-14, TIiie-Relationship Between Local Short-Term Uses of Man's Environment and the Maintenance and Enhancement of Long-Term Productivity EIS- 15, Irreversible and Irretrievable Com- initments of Resources EIS-1 5, Discussion of Problems and Objections Raised by Other Federal, State, and Local Agencies, and by Private Organizations and Individuals in the Review Process EIS- 15 METHODOLOGY BACKGROUND M-1, Definition of a Level B Study M-2, Other Major Legislative and Ongoing Program Requirements M-3, NERBC Approach M-3, The SENE Study: Key Participants M-5, New England River Basins Commission M-5, Coordinating Group M-5, Study Management Team M-6, Study Manager M-6, Citizen Advisory Committee M-6, Basin Advisory Committees M-6, Developing Study Recommendations M-7, Develop Environmental and Socio-Economic FramewQrkM-7, Develop Resource Inventory Analy- sis M-8, Formulate Preliminary Single-Purpose Alternative Plans M-8, Formulate Preliminary Multi- Purpose Alternatives M-9, Review and Refine Preliminary Multi-Purpose Alternatives, Produce Best Economic and Best Environmental Plans, and Formulate a Recommended Plan M-9, Evaluation M-1 0, Review and Transmit Rnal Plan M-1 0, How the SENE Study Can Be Used by Decision Makers M -10, INDIVIDUAL METHODOLOGIES FOR FUNCTIONAL AREAS M-1 1, The Setting M-1 1, Guiding Growth M-1 1, Development Pressure M-12, Tabular Land Use Data M-12, Environmental Holding Ca- pacityM-12, Critical Environmental Areas and Management Areas M-13, 0itical Environmental Areas Requiting Protection M-13, Developable Areas Requiring Management M-13, Preempted Use Areas M-14, Production of Capability Maps M-14, Water Supply M-14, Water Quality M-15, Outdoor Recreation M-16, Boating M-1 6, Salt Water Fishing M-16, Hunting and Fishing M-1 7, Swimming M-1 7, Marine Management M-1 7, Offshore Fisheries M-1 7, Shellfish and Aquaculture M-1 7, Port Development M-1 7,. Offshore Sand andGraveIM-17, Urban Waterfronts M-18, Flooding and Erosion M-18, Unwelcome Facilities M-18, xiii TABLE OF CONTENTS Cont'd. Onshore Sand and Gravel M-18, Electrical Power M-19, Petroleum M-1 9, Solid Waste M-1 9, Streng- thening the Management System for Natural Resources M-19, Tying the Recommendations Together M-20, MATERIAL WRITTEN OR CONTRACTED BY THE SENE STUDY M-20, Chapter I M-20, Chapter 2 M-20, Chapter 3 M-2 1, Chapter 4 M-23, Chapter 5 M-24, Chapter 6 M-24, Chapter 7 M-25, Chapter 8 M-26, Chapter 9 M-26, Chapter 10 M-27, Chapter 11 M-27, General Information Publications M-27, Citizen Participation Publications M-27 xiv Part I 0 OVERVIEW and SUMMARY 40 0 OVERVIEW A Brief Look at the Findings and Recommendations of the Southeastern pite this finding, the Study concludes that to continue to consume land as MARINE MANAGEMENT (Chapter 7). The history of the region's ties New England Water and Related Land Resources Study we have in the 1960's would be grossly inefficient, both environmentally to the sea is a long and colorful one. Yet for the last several decades and economically. State development policies and comprehensive land use SENE's ports, fisheries, and urban waterfronts have been declining. Severe is programs are badly needed. In the interim the Study recommends (on the overfishing by highly efficient foreign fleets has drastically, in some cases reverse) increased protection of the third of the region termed "Oltical Enm irreversibly, reduced the yield of the traditional fishing grounds. SENE's vironmental Areas "and calls for improved management of the developable own fleets are antiquated, inefficient, unable to complete. Only in the A central question facing eastern Massachusetts and Rhode Island today third (see multi-colored plates in pockets at the back of the Regional Port of Boston is any planning being done to expand and revitalize port is: Can we accommodate growth and provide adequate economic oppor- Report for definition and location of these areas). The use of existing and facilities, and dfedging to maintain existing channels is complicated by tunities for the people of the region and at the same time protect the proposed expansions of infrastructure water, sewers, and roads - to the problem of disposing of dredged material. The potential for offshore amenity values of the region's natural resources - those amenities which guide growth in a way which reinforces land use policy is strongly recom- sand and gravel mining exists but such operations may conflict with more make this such an attractive place in which to live? mended. traditional uses of the marine erIvironment. Aquaculture, although opera- ting at a very small scale, could increase the domestic production of some fish and shellfish. To help the region cope with these problems and op- portunities, the Study presents 25 recommendations (listed on the reverse). WATER SUPPLY (Chapter 4). To meet the 38 percent increase in water Highest priority is given for (1) establishing a 200-mile offshore "economic The conclusion of the Southeastern New England (SENE) Study is that use expected by 1990, the Study presents 14 recommendations (listed zone" and (2) developing a port planning and development program for we can. Three key findings support this important conclusion: on the reverse) which emphasize protecting and fully developing local the New England region. ground water and regional surface water supplies and instituting modest � ENHANCING THE ENVIRONMENT ENHANCES THE REGION's conservation measures. For the Boston area, which uses nearly half the ECONOMY, The export of services - education, medicine, research, water used in all of SENE, the proposed diversion of Connecticut River FLOODING AND EROSION (Chapter 8). The region is characterized by and others - is rapidly becoming the dominant economic activity water at Northfield Mountain is needed immediately and diversion of extremely high tidal, but relatively low riverine flood damages. With few of the region. It is expected to outstrip manufacturing before 1990. water from the Millers River will be needed by the late 1980's. Full opportunities for flood storage dams, protection of the region's remaining The region's pleasant living environment is the force which attracts development of local sources of water by communities adjacent to the flood storing wetlands and flood plains is critically important. It has been and holds such businesses and the personnel they require. The Boston metropolitan system and, if necessary, diversions from a cleaner 20 years since the last disastrous hurricane and much of the region's dam- region's amenities are its competitive economic advantage today, Merrimack River, may preclude the nee 'd for further diversions from the age prone coastline has been heavily developed. To prevent further in- as water power and ports were in the past. Connecticut River or its tributaries after the Millers diversion. In Rhode creases in potential flood damages the Study presents 18 recommendations Island, supplies from the proposed Big River Reservoir should be sufficient (listed on the reverse). While some flood control projects are recommended, � ANTICIPATED GROWTH CAN BE ACCOMMODATED AND to meet the additional demands of many municipalities beyond 1990. the emphasis is on non-structural solutions, such as flood plain zoning, to SHOULD BE GUIDED TO PROTECT FRAGILE RESOURCES minimize increases in present flood damages. AND MAKE DEVELOPMENT MORE EFFICIENT. We can pro- WATER QUALITY (Chapter 5). About two-tWrds of the total length of tect those fragile resources so critical to the region's environment the region's streams are below established water quality standards. Along UNWELCOME FACILITIES (Chapter 9). Power plants, petroleum facil- and economy and stfll have enough developable land to accommo- the coast, water quality is generally high, except in certain major harbors. ities, sand and gravel extraction operations, and solid waste disposal facil- date growth through 2020, even if we continue to consume land at The worst sources of pollution, in descending order of importance, are ities are critical to the economy and the public health and safety. Indeed, the exorbitant rate of the last decade. But in many cases we can (a) urban stormwater runoff and combined sewers, (b) municipal dis- the availability and cost of energy have become New England's most serious no longer afford, either fiscally or environmentally, to consume charges, (c) industrial discharges, (d) non-point sources, (e) oil spills, and economic problems. The Study concludes that wh-ile the demand for these land as we have in the past. We need to guide growth to those areas (f) watercraft wastes. A massive local, state, and federal cleanup effort is facilities can be significantly reduced, the protection of sites suitable for already served by sewer, water, and transportation services and underway to meet the national goal of achieving "swiminable-fishable" their development is as important as the protection of Critical Envifon- channel growth through the expansion of these services. waters wherever possible by 1983. The Study presents 15 recommenda- mental Areas. The Study presents 34 recommendations designed to meet tions (listed on the reverse) designed to support these efforts. Those with the region's needs for the services these facilities provide. Highest priority � EXISTING KNOWLEDGE, PROGRAMS, AND INSTITUTIONS the highest priority are (1) protection of waters already clean enough for is given to (1) setting state goals for reducing enerV (electrical and petro- PROVIDE THE TOLLS FOR ACHIEVING RESULTS. Not only swimming and fishing, (2) treatment of combined sewer effluents, (3) leum) consumption, (2) reorganizing and simplifying power plant licensing can the region's natural system accommodate future growth, its accelerating federal grants for municipal wastewater treatment, and (4) procedures, and (3) establishing state authorities for facilities siting. political system is capable of guiding that growth. Broad state continuing the successful industrial permit system. responsibility tempered by the tradition of local control can still HOW TO PROTECT OUR NATURAL RESOURCES (Chapter 10). achieve results. The Study chose achievability over novelty, proven Existing institutions and programs can generally provide the necessary institutions over grand schemes. OUTDOOR RECREATION (Chapter 6). Southeastern New England is a tools for implementing the Study recommendations. Several options for recreational and tourism center of national significance, each year drawing integrating water and related land resources policy making and program millions of visitors. It is a region of exceptional beauty. And yet hun- management into other state economic and social programs are examined dreds of thousands of the region's urban residents are either unable to for both Rhode Island and Massachusetts. They range from comprehen- reach, or are denied access to, its recreational opportunities. To meet sive and centralized statewide natural resources management and regulation, 1990 recreational demands from the region's residents alone, about 2,000 through several mechanisms emphasizing shared state, regional, and local A "thumbnail sketch" of the major chapters in the Regional Report is more acres of developed ublic beach Will be needed, 14,000 more picnic authority, to completely local control under state guidelines. p I presented below. For reference, a complete listing of every recommenda- tables, 500 more boat launching lanes, 20,000 more slips and moorings, tion and the relative priority of each is presented on the reverse side. 20,000.more campsites, and about 130,000 more acres of natural areas TRYING THE RECOMMENDATIONS TOGETHER (Chapter 11). for such less intensive activities as hunting and hiking. To meet as much Through text and charts, the integration of recommendations with the GUIDING GROWTH (Chapter 3). Between 1960 and 1970, land was of this demand as is feasible, the Study presents 21 recommendations Study's goal and planning objectives are displayed, with special focus on consumed in the SENE region at a rate four times higher than the histori- (listed on the reverse). Highest priority is given to expanding the grossly the contributions the Study makes to national economic efficiency, en- cal average. While the population grew by only eight percent, urbaniza- inadequate recreational opportunities available to urban dwellers by (1) vironmental quality, regional economic development, and social *ell be- tion increased by 45 percent. Low density urban "sprawl" increased by urging states to execute their plans to acquire and develop the Boston ing. The picture wWch emerges is that the Study strongly recommends almost 70 percent. Today, one-third of the region is urbanized (though even Harbor Islands and the Narragansett Bay Islands Park, and (2) expanding better resource management programs and emphasizes regional planning in urban areas there is room for growth), one-third is too fragile to be de- and increasing access to existing facilities at State beaches and parks. Much to accomplish better resource management. In addition, a modest and veloped, and one-third is legitimately developable. It appears that the de- of the acreage needed for less intensive activities can be provided by pro- balanced mix of research and development, private investment and public Mopable third is sufficient to meet future growth needs through 2020 even tecting and managing Critical Environmental Areas as described in Chap- projects is recommended along with a minimum of new acquisition and if we continue to consume land as rapidly as we did in the last decade. Des- ter 3, Guiding Growth. legislation. RECOMMENDATIONS' GUIDING GROWTH (Chapter 3) FLOODING AND EROSION (Chapter 8) Planning Objective: To suggest strategies for protecting the critical water OUTDOOR RECREATION (Ia@ter 6) Planning Objective: To reduce flood damages in the region, both riveline and related lands resources of SENE while accommodating economic activities and guiding growth. and coastal; and to reduce critical coastal erosion. Planning Objective: To meet 1990 recreation needs in economically, Flooding environmentally, and socially acceptable ways. oI . Prepare flood plain programs with non-structural emphasis. * 1. Increase protection of Critical Environmental Areas: priority pro- Swilluning 2. Adopt zoning to prevent new flood plain construction. tection and other protection areas. o 1. Expand facilities at existing state beaches and parks. 3. Establish local regulations to control runoff and erosion. * 2. Improve management of Developable Areas by resource capability, 2. Study beach erosion c rol. 4. Provide technical assistance to local officials. judicious use and expansion of infrastructure, and regulation of 3. Study beach expansion. 5. Acquire key flood plains and wetlands. large-scale development. o4. Acquire public access to oreline at frequent intervals. 6. Locate in existing safe buildings in the flood plain. Boating 7. Require relocation out of flood plains where appropriate. WATER SUPPLY (Chapter 4) o 5. Form state boating advi! ory committees to encourage the private *8. Discourage reconstruction or redevelopment after storm damage. sector. 9. Update and establish flood warning and evacuation programs. Planning Objective: To meet municipal needs for adequate supplies of 6. Undertake authorized cl annel and anchorage improvements. 10. Increase funding for storm forcasting. 'fresh water in the most economically feasible and environmentally 7. Investigate new regional marina basins. * 11. Amend and strengthen administration of wetland laws. sound manner. Salt water fishing *12. Construct flood protection projects selectively. Everywhere o 8. Construct public boat ramps and fishing piers. Erosion I . Prefer local ground water to intertown surface water to interbasin 9. Encourage private constAction of boat ramps and fish piers. 13. Establish local sediment and erosion control ordinances. transfer. Camping and picnicking o14. Manage critical erosion areas through state coastal zone programs. 02. Maintain and protect existing water resources. *10. Expand state forests and kiks near tourist centers. *15. Protect critical coastal erosion areas under local regulations. *3. Acquire key watersheds and potential well sites. ol 1. Form state recreational a sory committees. *16. Encourage natural stabilization of coastal erosion area. *4. limit water consumption through pricing (for high volume users) and Hunting and fishing 17. Construct erosion control projects selectively. education. *12. Acquire SENE's most im ortant upland and wetland wildlife 18. Build or restore salt marshes. 5. Study advanced technologies leading to new sources of water. habitat. 6. Establish regional water management agencies. 13. Acquire SENE's most im ortant streambanks. UNWELCOME FACILITIES (Chapter 9) Ground water dependent areas 14. Acquire public acc onds. 0 7. Survey ground water location, quantity and availability. 15. Enforce wetlandss legisla i n and local zoning regulations. Planning Objective: To provide certain vital services to society - power, * 8. Restrict activities shown to be hazardous to ground water quality. Passive outdoor recreation fuel, construction materials, solid waste disposal - in a manner * 9. Monitor saltwater encroachment in coastal aquifiers. o16. Develop Boston Harbor I lands and Narragansett Bay Islands Park, which supports continued economic growth and minimizes the 10. Provide recharge basins to capture storm runoff. o17. Provide outdoor recreation on reservoir lands. negative environmental impacts such facilities have traditionally had 11. limit ground water withdrawal to maintain stream levels. o18. Make multiple use of urb in lands. Onshore sand and gravel extraction 12. Establish state ground water boards. *19. Expand existing forests a id parks near urban centers. oI . Centralize minerals management authority in state DNR. Surface water dependent areas 20. Develop a regional trail s, stem. *2. Conduct state minerals resources survey in Massachusetts. *13. Expand MDC sources with Northfield Mt. and Millers R. facility. o2l. Implement or develop sc nic rivers legislation. 3. Create public education program for minerals management. 14. Encourage regionalization of water supply systems. *4. Provide state guidance to municipalities on extraction permits. MARINE MANAGEMENT (Ch ipter 7). *S. Promulgate state extraction operation and rehabilitation standards. WATER QUALITY (Chapter 5) Planning Objective: To maintain the region's renewable marine resources 6. Establish state program for licensing mineral extraction operators. 7. Reclaim selected abandoned extraction sites for recreation. at a level sufficient for a stained future use and to develop the Electrical power Planning Objective: To achieve swimmable-fishable waters by 1983 region's nonrenewable e resources in an environmentally wherever realistically attainable economically, socially, and sensitive manner 0 8. Create state energy conservation education program. technically. *9. Set state energy consumption rate reduction goals. Offshore fisheries o10. Implement program of mandatory and voluntary energy saving Preservation oI .Declare interim offshore 200-mile economic zone. measures. * 1. Stress anti-degradation in areas now swimmable-fishable. 2. Adopt national fisheries ilianagement policy. *11. Revise electric rate schedules; encourage off-peak power use. o 2. Carry out current state anti-degradation policies. 3. Increase tariffs on impo t d fish products. * 3. Attenuate runoff from new urban developments. o12. Identify and secure power plant sites for future use. 4. Improve financing oppor nities for domestic built fishing boats. *13. Avoid critical environmental areas for future sites. * 4. Negotiate acceptable low-flow regimes with upstream communities. 5. Allow privately financed urchase of foreign built fishing boats. 014. Maximize development capabilities at existing power plant sites. 5. Provide streambank buffer strips. 6. Improve market for unde tilized fish species. *15. Upgrade or phase out inefficient fossil units near cities. Restoration 7. Accommodate coastal fishing facilities through improved planning. *16. Put transmission and distribution lines underground in urban rede. 6. Emphasize treatment of urban stormwater flows. Shellfish and aquaculture velopment Programs. 7. Accelerate federal grants for municipal wastewater treatment. 8. Increase Mass. technical assistance for local shellfish management. *17. Provide interim recreational use of undeveloped power plant sites. 8. Continue current industrial permits program. 9. Increase shellfish license foes. o]8. Reorganize and simplify procedures for power plant licensing. o 9. Begin regionwide stormwater and wet-weather stream sampling. 10. Develop underutilized shel[Ifish market. Petroleum facilities oI0. Make towns responsible for scavenger waste disposal. *11. Research removal of virus land bacteria to enhance shellfish habitats. o19. Revise new building standards to improve heating-cooling efficiency. *11. Determine municipal sludge disposal policy on plant-by-plant basis. *12. Site new wastewater disch irges away from estuaries. *20. Provide tax incentives for voluntary energy-conservation measures. *12. Place burden on industry for disposing of hazardous wastes. 13. Enact aquaculture legislati cm in Rhode Island. *21. Set state energy-consumption rate reduction goals. 13. Study and define the landfill leachate problem. 14. Investigate potential aqua(ulture sites. *22. Fund mass transit systems. 14. Provide pumpout facilities and treatment for watercraft wastes. 15. Increase technical assistan e to towns for aquaculture. o23. Establish petroleum facilities siting authority in Rhode Island. 16. Increase research on use o 'wastewater for aquaculture. o24. Establish petroleum facilities siting authority in Massachusetts. Port development *25. Defer to New England-wide implications of siting decisions. Area priorities o17. Plan regionwide port development. o26. Establish standards and criteria for refinery siting and operation. 015. Give priority to Cape Cod, New Bedford, Providence, and Boston. 18. Continue interim dredged materials disposal procedure. *27. Use SENE Study development capability analysis in siting decisions. Offshore sand and gravel o28. Establish deepwater ports; evaluate sites individually. *19. Restrict near-shore mining,of sand and gravel. o29. Locate refineries or related development inland near infrastructure. The priority of the recommendations is indicated by the symbol 20. Coordinate future federal far-shore leasing with adjacent states. *30. Distribute refined products by pipeline wherever feasible. preceding it: 21. Develop predictive modelifig techniques. *3 1. Use most advanced technologies in facilities operation. 0 Highest priority recommendations (17) Urban waterfronts Solid waste management * High priority recommendations (27) 22, Coordinate local water ro t anning an evelopment. *32. Enforce existing sanitary landfill regulations. * Other priority recommendations (41) o33. Fund the Rhode Island solid waste management Program. o23, Provide guidance and set riteria for priority waterfront uses. 34. Accelerate local participation in state recovery programs. (Blank) Remaining recommendations (45) 24. Review and coordinate w, terfront use at state and substate regional Priority was assigned to the recommendations according to their sigaifi- level. HOW TO PROTECT OUR NATURAL RESOURCES (Chapter 10) cance in meeting the objective of each chapter. Consideration was given *25. Support state and local w. terfront development plans. to those policies and actions which are expected to meet the greatest needs] the fastest and which support, most directly, the three themes of the Study. Planning Objective: To ensure appropriate action taken with regard to P planning recommendations 1. Maximize use of existing resource policy institutions. THE SUMMARY The southeastem comer of New England, consist- economic opportunities, and still protect the amen- ing essentially of Rhode Island and eastern Massa- ity values of the region's resources which make chusetts, today is home to nearly 50 percent of SENE such an attractive place in which to live? New England's population on barely 7 percent of its lands. The conclusion of the Southeastern New England Study is that we can. There is room for this growth. Southeastern New England (SENE) is a kind of But, if the patterns of growth continue as they have urban frontier - a transition zone between the in the past decade, the natural resource amenities dense press of people, commerce, and industry which stimulated it in the first place will be des- characteristic of the Northeast Megalopolis and t.royed. There will be real, even agonizing, local the small cities and towns, open salt marshes, agri- conflicts over specific uses of certain resources. cultural and forested lands characteristic of much And a degree of control over certain types of de- of New England. The rich variety of this land- velopment and the use of certain fragile resources scape has attracted millions of visitors to the re- will be necessary. But, overall, we have both the gion, and thousands have stayed on as residents. land and the technical and political means to pro- vide both sites and resources for job-producing The goal of the Southeastern New England Study economic activities and still have an attractive en- was to find ways to accommodate the sometimes vironment in which to live. Moreover, it may well conflicting demands for conservation and growth. be that we can guide this growth in a way which increases the efficiency of public investments in 1. THE MY FINDINGS water, sewer, transportation, and other facilities. There is every likelihood that this growth will con- Three key findings support this conclusion: tinue, although it will probably taper off by the turn of the century. The central question facing o ENHANCING THE ENVIRONMENT EN- the people of Massachusetts and Rhode Island is: HANCES TftE REGION'S ECONOMY. The Can we accommodate growth, provide adequate export of services - education, medicine, research, S-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made and development - is rapidly becoming the domi- SENE Study provides a detailed analysis of the de- nant economic activity of the region. It is expected velopment capability of the region's water and re- to outstrip manufacturing well before 1990. In lated land areas and is an important first step tow- light of the economic climate of SENE, this trend ard guiding growth. But to ensure that the region's is not surprising. The region is remote from raw dual needs for economic growth and a decent liv- materials, its transportation links are inadequate for ing environment are satisfied, a comprehensive de- industry, and the cost of energy and labor is high. velopment policy is badly needed. The transition from manufacturing to a service economy has not been a smooth one. Major dislo- e EXISTING KNOWLEDGE, PROGRAMS, AND cations have occurred in both Massachusetts and INSTITUTIONS CAN PROVIDE THE TOOLS FOR Rhode Island, and these will probably continue. ACHIEVING RESULTS. No massive changes are Despite its relative decline, manufacturing is still needed in the resource management systems in the an important economic activity in the region, and two states to implement the recommendations of efforts are underway to attract new light manufac- the Southeastern New England Study. The Study turing industries to lessen the impact of the domi- concludes that not only can the natural system ac- nance of services on the region's manufacturing commodate projected growth, but the political sys- work force. The trend to services and certain light tem is capable of guiding that growth. The Study re- manufacturing activities has clear implications for cognizes the leadership of the states in natural re- the region's resources. These businesses, with their source matters. It endorses many ongoing state re- national markets, are free to locate anywhere in the source management programs and seeks to modify country. Yet they choose to locate in SENE. One so ,me others. The recommendations will be helpful to of the most important reasons they do so is because the states as they try to meet their responsibilities the region's exceedingly attractive living environ- for managing land and water resources (including ment helps them draw and keep the labor they re- requirements of recent federal water quality and quire. As a result, efforts to enhance the environ- coastal zone management legislation). At the same ment serve to enhance the region's economy as well. time, however, the Study recognizes that resource The region's amenities are its competitive economic decisions are made daily in town halls through advantage today, as waterpower and ports were in conservation commissions, planning boards, and the past. zoning boards of appeal. Local government in Southeastern New England has been taking the ANTICIPATED GROWTH CAN BE ACCOMMO- business of guiding growth very seriously for over DATED BUT SHOULD BE GUIDED TO PROTECT 300 years, and in most cases that local autonomy FRAGILE RESOURCES AND MAKE DEVELOP- has served both the people and their resources well. MENT MORE EFFICIENT. The Study has found The political reality of broad state responsibility that even if Critical Environmental Areas are pro- tempered by the strong tradition of local autonomy tected, enough legitimately developable land exists sharply influenced which solutions to resource prob- to meet the region's development requirements, not lems were chosen from among many alternatives, only in the near future but through the year 2020. and which actors were best suited to carry out a This is true even if development continues to con- recommendation. To make the recommendations sume land at the 1960's rate of one-half acre per work, the Study deliberately chose achievability person - a rate four times higher than the historical over novelty, proven institutions. over grand average for Southeastern New England. But experi- schemes. ence tells us that development will not always occur in the most suitable places. In order to reduce the 2. CARRYING OUT THE SOUTHEASTERN NEW negative effects of growth, new development must ENGLANDSTUDY be guided to lands which can support development. And to decrease the cost of growth to local tax- The SENE region was identified by the New England payers, new development should be guided to those River Basins Commission in 1968 as among the high- areas already served by essential water, sewer, and est priority areas in New England for joint federal- transportation services, whenever possible. The state resources planning. In the same year, the pro- S-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made posed study was endorsed by the New England Gov- marized below. In every subject area a wide variety ernor�' Conference and was funded by Congress in of alternative solutiofis were investigated. In the 197 1. The Study's purpose was to identify and interest of brevity, only the major points and recom- recommend a management program for the conser- mendations are presented here. A complete list of vation and development of the region's water and the recommendations and priorities can be found in related land resources. the Overview. The complete text can be found in the Regional Report, and further details can be found in In developing this management program, we have each of the ten Planning Area Reports. consulted often with the people of the region and the public and private caretakers of their natural resources. More than 100 regional, state, and fed- 3. GUIDING GROWTH eral government officials, and 900 local residents and officials of the ten planning areas in the Study The region is urbanizing at an incredible region have had a voice in shaping the Study's rate. However, it appears that we can recommendations. protect Critical Environmental Areas and still have enough land suitable for devel- The Study has yielded two principal products. First, opment to meet our needs. State devel- it has produced a base of information on the region's opment policies and comprehensive land natural resources - what and where they are, and use programs are badly needed to guide what kinds of pressures and conflicts they face - and shape that growth. and has reached some conclusions about their devel- opment capabilities and limitations. Second, the The Situatiori Between 1960 and 1970 the popu- Study presents a program of action recommenda- lation of Southeastern New England increased from tions designed to encourage growth and develop- 4.4 million to 4.8 million - roughly 8 percent. Un- ment in ways which will make public investments der the most conservative estimates, almost one in key water, sewer, transportation, and other serv- million more can be expected by 1990. The gross ices more efficient than has been the case in the rate of land consumption in the sixties - one-half past. acre per person - was four times higher than the historical average for the region. In the same de- Southeastern New England is the economic heart cade, the area of SENE covered by urban develop- of New England, a center for education and re- ment increased by about 45 percent, increasing search, an area rich in history and cultural develop- from 15 to 21 percent of the region's total land ment, and it contains nationally significant recre- area, and consuming 28 percent of the region's ational areas. The region is tied together econom- agricultural lands, 9 percent of its open wetlands, ically and geographically, and the resource manage- and 5 percent of its forests. Low density urban ment issues it must deal with at the regional level sprawl increased 68 percent. are detailed in the Study's Regional Report. One third of the region is already urbanized or in Yet those of us within the region are more familiar public ownership. Another third is composed of with its parts - the North Shore; South Shore; lands which are either too fragile to support any Boston, Providence, and Worcester metropolitan development or which pose a hazard to public areas; Cape Cod; Narragansett and Buzzards Bays - safety if developed. Included within this third are than we are with the whole. These areas are char- inland water bodies, wetlands, estuaries, flood acterized by a strong geographic and economic plains, and prime agricultural lands. The remain- identity which the residents are anxious to preserve. ing third is suitable for new development and, with As a result, and in an effort to deal with basic local appropriate guidelines, can fully meet the region's resource issues, ten individual Planning Area Reports development needs through 2020, even if land con- have also been produced by the Study. Each of the tinues to be consumed at the high rate of the sixties. major elements of the Study, corresponding to Chap- ters 3 through 11 of the Regional Report, is sum- Rhode Island has established a state growth policy S-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made and is reviewing a state land use plan. Massachu- 2. Manage Areas Suitable for Development. setts is currently investigating several different op- Land uses and densities of development tions for exerting more effective leadership in the should be carefully managed on those management of growth. lands suitable for varying degrees of de- velopment. These lands, the Developable A study of community growth patterns sponsored Areas, include aquifer recharge areas, by the President's Council on Environmental Qual- best wildlife habitat, high landscape ity indicates that there are significant economic, as quality areas, ledge, steep slopes, and well as environmental, advantages to encouraging septic system limitation areas. Yhe clustered development in areas served, or to be region's future growth must be guided served, by "infrastructure," such as water, sewer, to these lands according to their capac- and transportation facilities. Excess capacity in ity to sustain it. Mthin the recommen- sewer facilities already planned for 1990 could dation of managing developable lands, serve all the population projected for that time. A a number of significant opportunities strengthened relationship between development exist for increasing public investment and infrastructure would also allow use of infra- efficiency in meeting the needs of structure investment policy to facilitate emergence growth. 7hey include: of, and to carry out, public growth policy. 0 guiding growth to areas already The Solutions. The region badly needs a system for served by infrastructure such as allocating land uses to meet the projected popula- water, sewer, and transportation fa- tion on the diminishing amount of available land in cilities. 7he provision of such serv- such a way that economic opportunities as well as ices should become a determinant environmental quality will be enhanced. of growth patterns, not a reaction to them. Major public investment These actions are of regional significance and be- savings can be achieved by maxi- yond the scope of local jurisdictions. Because of mum use of existing services. this, state assistance is needed and the state will have to reassert some of its authority previously 0 clustering and other higher inten- delegated to municipalities. Opportunities for do- sity land uses. Recently released ing so are presented in Chapter 10, Strengthening federal figures show that savings the Management System for Natural Resources. of up to 50 percent are achievable Meanwhile, most of the following recommenda- in energy, water, sewer service, tions can be accomplished by concerted actions on and transportation needs under the part of local planning boards, zoning boards of clustering. While sufficient de- appeal, conservation commissions, local health of- velopable land for continued ficials, and building inspectors. sprawl exists, the Study suggests that it may no longer be responsi- 1. Protect Critical Environmental Areas. ble, either fiscally or environmen- Areas which are too fragile to support any tally, to encourage such develop- development, or whose development might ment. constitute a hazard to public health and safety, should be protected. These areas 3. Regulate Developments of Regional Impact. constitute the region's Critical Environ- The states should control the location mental Areas and include water bodies, of developments of key facilities - well sites, inland and coastal wetlands, power plants, petroleum facilities, critical erosion areas, beaches, flood plains, airports - necessary for continued prime agricultural lands, coastal flood haz- growth but a potential hazard to the ard areas, and unique natural and cultural region's resources, by regionally sites. agreed upon siting criteria. Sites S-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made meeting criteria for such facilities The Situation. Direct consumer demand for water should be considered as valuable as in Southeastern New England in 1970 averaged Critical Environmental Areas and 655 million gallons per day (mgd). By 1990, this secured and protected from preemp- demand is expected to increase by nearly 36 per- tion. Criteria should also be estab- cent to 890 mgd and to roughly double by 2020 lished for the location of large-scale, for a total of from 1200 to 1400 mgd. Most of or growth-inducing, developments the region's communities today are dependent on such as shopping centers and high- ground water and small reservoirs, more, often than way interchanges. not managed by small private or municipal water supply systems. For the most part, these existing systems will be unable to meet anticipated demands Implications. The relative abundance of land suit- with their present supplies. Moreover, the quality able for development in the region provides a great of available sources is threatened by forces beyond opportunity to assure adequate growth oppo'rtuni- local control - highway runoff, salt storage, and ties without sacrificing the region's environmental other pollutants. amenities. Directing future growth will require close cooperation between the state and local offi- 7he two largest regional water supply systems in cials and developers who have traditionally held SENE are the Metropolitan District Commission the responsibility for development decisions. Clus- (MDC) and the Providence Water Supply Board tering and judicious expansion of water-related (PWSB). In 1970 the MDC supplied forty-one infrastructure - water supplies and sewering - can municipalities in eastern Massachusetts, either become valuable tools for directing growth in the wholly or partially, with supplies averaging 307 most investment and resource efficient manner mgd. The MDC's principal source of water is a possible. series of diversions from tributaries of the Con- necticut and Merrimack Rivers. The Providence 4. WATER SUPPLY: PROVIDING AN ADE- Water Supply Board provides an average total of QUATE SUPPLY OF WATER 55 mgd to seven municipalities in Rhode Island from the Scituate Reservoir, which has an esti- The projected 1990 water needs of most of mated safe yield of 72 mgd. While both systems the region's communities can be met by will have to find new sources of supply by 1990, protecting and developing local ground water the MDC's needs are more immediate. and regional surface water supplies. The SENE Study places highest priority on pro- The Solutions. To meet the Study's objective of tecting these local supplies. Nevertheless, the providing the people of Southeastern New Eng- Metropolitan District'Commission (MDC), land with an adequate supply of fresh water for whose members use nearly half of all the all uses, the economic, environmental, and social water used in SENE, must proceed immedi- impacts of a number of alternatives were examined. ately with the Northfield Mountain diversion The Study found that, in many of the communi- of the Connecticut River. To meet late 1980 ties in Southeastern New England, local ground and post-1 990 needs, an additional diversion water is available. and is the most economical from the Millers River Basin, tributary to the source of supply. The degree to which ground Connecticut River, is needed. Full develop- water can be developed in these communities, ment of local sources of water by communi- however, varies. Over-pumping. wells can signifi- ties adjacent to the MDC service area may cantly lower strearnflow and pond levels, resulting preclude the need for any additional diver- in a corresponding degradation of the environ- sions from the Connecticut or itstributaries. ment. Where ground water is undevelopable, re- In Rhode Island, supplies from the proposed hance on regional surface water sources becomes Big River Reservoir should be sufficient to a more economically feasible and environmentally meet the additional demands of many muni- sound alternative. Reliance on local surface water cipalities through 1990. sources, however, can be extremely expensive. The PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made op acquisition of land, construction of reservoirs, sys- 3. Expand MDC supplies with Northfield Moun- MW tem maintenance, and water treatment can be more tain and Millers River Basin diversions. efficiently handled by a group of municipalities in The MDC should proceed with the North- a regional water supply system than by the same field project at once. Planningandde- municipalities acting independently. sign for the Millers River diversion should also begin, with a scheduled completion The Study's key recommendations for ground and in the late 1980's. surface water supply applicable to the region as a whole are: For Rhode Island, the recommended maximum de- L Prefer local ground water development to velopment of local ground water supplies may take inter-town in-basin surface water devel- some pressure off major water supply systems. The opment to interbasin transfers. To main- proposed Big River Reservoir should provide an tain future options for water supply, adequate additional supply of water to many ground water should be protected and Rhode Island municipalities well through 1990: fully developed wherever available be- fore surface water is considered. In ter- 4. Construction of the Big River Reservoir basin transfers should be considered should begin immediately to provide an after local resources have been used as additional 26 mgd to Rhode Island fully as is economically feasible and municipalities. The reservoir will be environmentally sound. managed by either the State or by the Providence Water Supply Board. 2. Encourage regionalization of surface water supply systems. Where surface water Other priority recommendations include: development is the only alternative, (a) maintaining the quality of existing water towns should be encouraged to form supplies; (b) acquiring key watersheds and regional water supply systems to maxi- potential well sites; (c) reducing water use mize cost efficiency and quality con- through pricing (for high volume users) and trol, and to allow cost sharing. New or public education; (d) establishing regional expanded regional systems should be comprehensive water supply and quality established in the Ipswich River, Taun- management agencies in key areas; (e) re- ton, Brockton, Providence, and South stricting activities harmful to ground water Shore areas. quality; and (f) monitoring salt water en- croachmen t in coastal aquifers. To meet the rapidly expanding needs of the Metro- politan District Commission, the U. S. Army Corps Implications. The efficient use and protection of of Engineers and the Massachusetts Water Resour- existing sources of water, coupled with careful ces Commission have recommended two additional planning and development of additional sources, diversions from the Connecticut River Basin: a 72 should provide the residents and industries of the mgd diversion directly from the Connecticut River SENE region with an adequate supply of fresh via the Northfield Mountain pumped storage hydro- water over the next 50 years. Because of the electric plant'and a 76 mgd diversion from the intimate relationship between water supply and tributary Millers River Basin to meet demands water quality, coordinated water supply and through 1990. After exhaustive investigation of lo- quality planning can provide more efficient cal ground water and inter-town surface -water al- methods of water management and environmen- ternatives for MDC municipalities, the SENE Study tal protection. Maximum use of in-basin resour- has concluded that both diversions are necessary. ces will help to maintain local autonomy, will However, the Study has also determined that these minimize reliance on out-of-region soiirces, and two projects will be sufficient to meet projected will preserve flexibility in water supply policies. demands through 2020; additional diversions from In addition, advanced technologies such as de- the Connecticut River Basin may not be necessary: salination. and wastewater recycling could be- S-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made come more economically feasible after 1990. The major sources of water pollution are listed be- Such technologies may allow the development of low in decreasing order of regionwide significance. new sources of water without placing increased In any particular part of the SENE region, the or- stress on the region's natural resources. der could be different. The Providence Water Supply Board should be a. Urban Stormwater RunofflCombined Sewers. able to rely on the Scituate and Big River reser- In most of the major cities in SENE, the stormwater voirs well through 1990. Similarly, the longer runoff systems and the sanitary waste systems are communities near the MDC service area can rely combined. Any heavy rain overtaxes the capacity on local sources, the longer planned diversions of the combined sewer and treatment system, and can serve the MDC's needs. After 1990, ad- the wastes are in most cases flushed untreated into vanced technology may provide new sources for the nearest river or harbor. These occasional MDC communities, and water quality improve- surges probably add more pollutants to the water ments may make diversions from the Merrimack over the course of a year than the continuous dis- River feasible. charges from municipal wastewater treatment plants. The major problem is handling the sudden 5. WATER QUALITY: CLEANING UP THE RE- high volume of water. Urban stormwdter runoff GION'S RIVERS AND HARBORS and combined sewer problems are particularly severe around Boston, New Bedford, Worcester, A massive local, state, and federal cleanup Fall River, Newport, and Providence. effort is under way in each state in an at- tempt to reach the national goal of swim- b. Municipal Discharges. About 80 municipal mable-fishable water by 1983. However, wastewater treatment plants now serve 3.4 mil- inadequate funding appears to preclude at- lion people, about 70 percent of the region's tainment everywhere in the region by that population. Of these, 2.4. million are still con- date. Current federal and state priorities nected to plants providing only primary treat- are aimed at buying the most wide-spread ment (solids removal), while most of the rest are attainment of swimmable-fishable water connected to plants providing secondary treat- with the funds available, and preserving ment (90 percent removal of organic matter). already clean water. The Study concurs. In some places, advanced treatment (nutrient removal) is already being provided. The remain- The Situation. About two-thirds of the total ing 30 percent of the population use septic tanks. length of major streams in SENE are below estab- Municipal discharge problems are most severe lished water quality standards. In contrast, the around Boston and Buzzards Bay, and in the quality of coastal waters is generally high, except Taunton, Blackstone, and Pawtuxet River Val- in harbors that receive stormwater runoff and leys. Only about 15 percent of the states' re- inunicipal wastewater. Overall, water pollution quests for federal grants for municipal sewage problems are worst near Boston and Providence collection and treatment systems are currently and in the Taunton and Blackstone River Valleys, being provided. The Environmental Protection the very areas where clean water would benefit Agency feels that this level of funding is about the most people. The Massachusetts Division of all that can be realistically expected in the fu- Water Pollution Control and the Rhode Island ture. Department of Water Supply and Pollution Con- trol and the states' respective health departments c. Industrial Discharges. Of 78 major existing are working with the U. S. Environmental Protec- industrial discharges, 22 will be connected to tion Agency to make as much of the region's water municipal systems or eliminated by subsurface clean enough for swimming and fishing as possible disposal methods, by process changes,or by by 1983. Despite their efforts, it is unrealistic to the closing or moving of a firm. The remaining assume that the national goal of no discharges by' 56 are on schedule to meet the national goal of 1985 will be reached. best practicable treatment of industrial dis- S-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made charges by July 1, 1977. Industrial pollution is ing waters clean, than it is to restore them currently severe around Boston, and in the Taun- once they have become polluted. ton, Blackstone, and Pawtuxet River Valleys, but great strides are being made to eliminate these 2. Emphasize treatment of combined sewer discharges. overflows. Combined sewers are probably the biggest source of pollution in SENE. d. Non-Point Sources. While it generally enters Although treatment is costly and presents our waterways by way of a combined sewer out- many technical problems, it is generally fall, urban stormwater runoff, discussed above, far more effective than treating storm- is probably the worst non-point source of pollu- water and wastewater separately. tion. Septic systems serve about a third of the - SENE region's population. Seepage from these 3. Accelerate federal grants for municipal systems is a major cause of,ground water con- wastewater treatment. Municipal dis- tamination. The problem is most serious in two charges are the second biggest source of planning areas - Ipswich-North Shore, and Cape pollution in SENE. Rhode Island and Cod and the Islands. Agricultural runoff prob- Massachusetts have already prepared, or lems are generally confined to Buzzards Bay and are preparing, comprehensive water qual- the Taunton River Basin. The extent of pollution ity plans, but implementation is bogged from water draining through landfills is poorly down by delays in federal grants, and documented, but it is believed to be generally lo- the lead time needed for treatment plant cal and minor. construction. e. Oil Pollution. Oil spills are a-special problem, 4. Continue current industrial permits program. particularly around Boston, but also near Provi- Industrial discharges are the third biggest dence and in Narragansett Bay where large vol- source of pollution in SENE. The cur- umes of petroleum products are transported and rent program to eliminate them is on stored. Other sources probably discharge more schedule and working well. Program ad- hydrocarbons, but large oil spills are visible and ministrators and private industry deserve concentrated, and their long-term effects are not more public recognition of their achieve- clearly understood. ments. f Watercraft Wastes. These discharges are prob- Other high priority recommendations include: ably not regionally significant but are particularly (a) implementing current state non-degrada- unpleasant in popular harbors and near beaches tion policies; (b) beginning a systematic, and shellfish harvest areas. ne impact is intensi- regionwide stormwater and wet-weather fied by the mobility of watercraft, permitting dis- stream sampling program as a first step charges at almost any location. toward understanding non-point source pollution; (c),making the towns or area- The Solutions. The SENE Study endorses the inter- wide management agencies responsible im national water quality goal of making our water for the disposal of pumpings from cess- clean enough for swimming and fishing wherever pools and septic tanks; and (d) giving possible by 1983. To reach that goal, the Study preservation priority to Cape Cod, and gave highest priority to the following recommenda- clean up priority to New Bedford, Provi- tions: dence, and Boston, in that order. 1. Stress non-degradation in areas now swim- Implications. If the Study's water quality recom- mable-fishable. To accomplish the objec- mendations are carried out, water already clean tive of maximizing swimmable-fishable enough for swimming and fishing will be pre- waters, it is much easier, less costly, and served and polluted water will be restored by more politically appealing to keep exist- 1983, wherever restoration is realistically attain- S-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made able. Direct'costs to government, industry, and boat launching ramps, about 20,000 slips and taxpayers may approach $5 billion. However, moorings, and about 130,000 acres of natural area improved water quality will have important eco- for such passive outdoor recreation pursuits as na- nomic as well as environmental value. Outdoor ture study andhiking. Existing facilities can ac- recreation and tourism will be stimulated, shell- commodate about two-thirds of the 'demand for fishing will resume, and land values will increase. slips and moorings and passin outdoor recreation, In the long-run, cleaner water will mean a more about half the swimming demand, and about one- pleasant living environment, and that will be im- third of the demand for picnicking, camping, and portant if the region is to attract and hold the boat ramps. Through such ongoing programs as the skilled workers it will need for its increasingly Land and Water Conservation Fund of the U. S. services-oriented economy. The recommended Bureau of Outdoor Recreation, and the programs program should also be politically attractive; it of the Departments of Natural Resources in Massa- adopts or gives new emphasis to popular, ongoing, chusetts and Rhode Island, and local governments, long-range programs that have already won politi- many more of the region's requirements can be cal support. Past experience has indicated that met. Much more remains to be done,however. individual municipal efforts to improve water quality are costly, difficult tomanage, and may Efforts to meet the region's recreational demands not always achieve environmental objectives. are frustrated by a number of basic problems. Over- Areawide approaches linking groups of com- simplifying somewhat, the centers of greatest recre- munities and industries are therefore essential ational demand and the facilities for meeting that to the success of the clean up effort. demand are not in the same place. Many of the residents of Boston, Providence, and Worcester, 6. OUTDOOR RECREATION: PROVIDING fully one-third of whom lack automobiles, have no RECREATION OPPORTUNITIES FOR ALL way to reach existing recreation facilities. More- THE REGION'S PEOPLE over, the capacity of the region's recreational fa- cilities to meet all of the urban and tourist demands Southeastern New England is a recreational is questionable. and tourist center of national significance, each year drawing millions of visitors. It is Despite these problems, the SENE region is rich in a region of exceptional natural beauty. And recreation potential - its miles of streams and yet hundreds of thousands of the region's coastline, and acres of lake and forestland offer urban residents are either unable to reach, considerable Opportunity to meet much, if not all, or are denied access to, its recreational op- of the region's needs for recreation. Converting portunities. For many, a shoreline recrea- this potential into new facilities, however, faces tional experience means fishing in a dirty two important hurdles. First, recreational use of harbor from a decaying wharf. Wecanand these lands is in direct competition with other should do more, legitimate uses of the land, primarily residential and commercial development. Moreover, short of The Situation. Perhaps the most widespread use outright acquisition, public access to private lands of SENE's water and related land resources is for is very limited. At present, only 225 of the re- outdoor recreation. As the region's population gion's 1540 miles of coastline are open to the pub- continues to grow, the demand for outdoor rec- lic for recreation. Only one out of every 10 acres reation opportunities and facilities will also grow. has guaranteed public access. Most of the nearly In fact, recreation demands are expected to rough- 1200 streambank miles are privately owned and ly double in the next 50 years. closed to the public. There simply are not enough funds to directly acquire new land for recreational If the anticipated increase in demand by 1990 is activities to keep pace with increasing demands. to be met, it will require about 2,000 acres of de- New solutions are needed. veloped public swimming beach, about 14,000 picnic sites, about 20,000 camp sites, about 500 S-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Solutions. The protection and management of possibility of adding sand to 17 other beaches KNE's Critical Environmental Areas, through the - such as Plum Island in Newbury, Massachu- Study's proposals for guiding growth, should pro- setts, Oakland in Warwick, Rhode Island, and vide land to satisfy some of the demand for hunt- Allen Harbor in North Kingstown, Rhode Is- ing, hiking, canoeing, sport fishing, and certain pas- land - to combat erosion and especially to in- sive forms of outdoor recreation. To satisfy the crease their capacities. region's other more intensive recreational needs, the Study developed 21 specific recommendations. Implications. It is difficult to measure the benefits Highest priority was given to the following: of recreational programs. Clearly the greatest ad- vantage, particularly of the two priority recom- 1. The respective states should execute their mendations, is the improvement they would bring current plans to acquire and develop the to the quality of life of the people living in the re- Boston,ffarbor Islands and Narragansett gion's largest urban centers. In addition, direct Bay Islands Park. With inexpensive ac- economic benefits in the commercial recreation cess and well-developed day use facilities, business could be substantial. Meeting all of the these two plans would help meet the re- currently unmet needs for outdoor recreation gion's most critical unmet recreational through 1990 has an estimated value of about a demands. That such an opportunity quarter of a billion dollars annually. Moreover, should occur twice in the region, adja- providing facilities and increased recreational op- cent to the largest demand centers, is portunities will improve the region's attractive- astounding. The opportunity should be ness as a place to live, and strengthen its ability to seized at once. draw and hold the skills essential for its increas- ingly services-oriented economy. 2. The respective states should begin to (a) increase capacities of existing beaches, 7. MANAGING THE REGION'S MARINE RE- such as Revere and Nan tasket near Bos- SOURCES! ton, and Conimicut near Providence; (b) acquire additional undeveloped beach The history of the region's ties to the sea is area for current and future needs, especi- a long and colorful one. Yet for the last ally along the South Shore near Boston, several decades SENE's ports, fisheries, and near Providence, and near Horseneck urban waterfronts have been declining, The Beach in Buzzards Bay; and (c) improve Study concludes that this is not an inevitable public transportation access, including park- result of progress, but the result of external ing facilities, and the use of shuttle buses. pressures and the internal problems of a num- ber of related marine industries. Other high priority recommendations include: (a) providing developed public access to the The Situation. As part of its objective to improve shoreline, roughly every five miles, where pos- the management of the region's marine resources, sible, and at much closer intervals near cities; the Study investigated offshore fisheries, shellfish (b) adjusting current policy so as to permit and aquaculture, port development, offshore sand limited public recreational use of water supply and gravel extraction, and the status of the region's reservoir lands at least for picnicking, hiking, urban waterfronts. fishing, and passive outdoor activites; (c) des- ignating parts of the Charles, North, Ipswich, There are two key issues facing offshore fisheries: and Taunton as Massachusetts Scenic Rivers, intense international harvesting pressure and the and the Wood, Beaver, and Pawcatuck as inability of the region's fishing industry to effi- Rhode Island Scenic Rivers; and (d) develop- ciently compete with subsidized foreign fleets. In ing new recreational boating harbors at Salem, the last decade, key species have been depleted by Plymouth, Warwick-East Greenwich, and sequentially "fishing out" specific stocks, result- Providence-East Providence; (e) studying the ing in whole fishing areas being closed. Between S-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 1964 and 1965, foreign landings of silver hake shipping. Major changes in global trading patterns were six times higher than the previous average. require regional coordination of port improvements These were followed in 1965 and 1966 with had- if the SENE region is to regain a portion of world- dock (580 percent higher), in 1968 and 1969 with wide shipping and commerce. The port of Boston, herring (450 per cent higher), and in 1969 and 1970 through the innovative leadership of the Massachu- with yellowtail flounder (300 percent higher). Most setts Port Authority, leads the way in development recently, in 1971 and 1972, mackerel landings have of new shipping techniques, such as containeriza- aver aged an astounding 12 7 times the average land- tion, and more significantly, planning for deepwater ings for the period from 1961 through 1966. In oil terminals. However, extremely high capital in- each case, markedly lower catches followed these vestments are required and complex infrastructure inordinately high foreign landings. is needed to support a major oil terminal. This in- dicates that, in a market as small as SENE's, co- The SENE region's fishing industry also has inter- ordination of port development, rather than com- nal and operational problems. In addition to the petition, would yield the highest returns to the re- adverse impact of foreign competition, the high gion. The problem of disposing of dredged mate- cost of harvesting, labor, management, processing, rials from channel improvements is an 'other con- and new capital has diminished the efficiency of tributing factor to the stagnation of some of the the industry. Nevertheless, the industry is impor- region's ports. A nationwide U. S. Army Corps of tant to the region's economy, providing nearly Engineers study on disposal options will lead to 30,000 jobs and representing $160 million invested improved regulations in several years. Existing in vessels in Massachusetts alone. If the fishing interim feder a] guidelines for disposal of dredged grounds continue to be overfished, a significant materials give careful consideration to economic world food source will be lost. If the domestic and environmental benefits and costs. These fishing industry is not revitalized, a significant re- guidelines are felt to be adequate for continued gional economic asset will be lost. interim uses. Shellfish flats in Massachusetts are managed by Sand and gravel mining in offshore waters is a rela- town wardens at varying levels of efficiency and tively new concept in the United States, although productivity. The Rhode Island Department of in.uch experience has been gained with such opera- Natural Resources has jurisdiction over the shell- tions in Northern European waters. Initial analy- fish beds along its coastline. Properly managed, sis shows that while it may prove a useful supple- the region's shellfish flats can yield harvests as ment to conventional onshore sources, mining in valuable as $ 1,000 per acre. However, many of the near-shore waters may pose unacceptable environ- SENE region's 30,000 acres are closed due to pol- mental and economic costs. One significant draw- lution or are otherwise underproductive. In an ef- back, in addition to the need for a low conflict fort to supplement stocks of shellfish available site further offshore, is the need for a significant from natural sources, private aquacultural opera- market immediately adjacent to the land area for tions have been initiated on a small scale in the such a system to be cost-effective. Only Boston region with varying degrees of success. Even meets that qualification in SENE. though a lot of well-researched scientific informa- tion is available, it has been difficult to produce SENE's urban waterfronts are a major resource marketable quantities of commercially grown whose potential has long been neglected. Exten- shellfish at economically competitive prices. sive wharfage, now decayed and no longer suitable for modem shipping needs, is available for multiple- Port planning is conducted by individual city or use planning in several of the region's ports. Of the metropolitan agencies with little regard for re- many activities already located on the waterfront gional coordination. In both major ports, Boston today, few have any real need for the waterfront and Providence, an excess capacity of storage location and the Study encourages relocation of sheds, warehouses, and wharfage exists - evidence this valuable land to water related and comple- of the overall decline in conventional dry cargo mentary uses. S-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Solutions. Although the SENE Study ad- Other marine management recommendations re- dressed a number of separate marine management ceiving somewhat lower priority include: issues, several priority recommendations emerged: (a) increase state techn,ical assistance to. towd ish wardens in Massachusetts to 1. The United States should immediately es- i.nerease shellfish bed productivity; (b) in- tablish a 200-infle offshore economic zone crease license fees for shellfishing permits; and effectively manage Georges Bank as .(c)-continue use of interim federal dredged an important world food resource bqfore materials disposal guidelines, (d) develop it is over exploited. In light of the ap- predictive modeling techniques for deter- parent inability of the existing interna- mining impacts of offshore sand and gravel tional commission to manage the re- extraction, and (e) require modem dredg- source, unilateral control-by the U. S. ing equipment with on-board gravel pro- - while still permitting foreign fishing cessing capability. Yessels - would assure that no area or species was being overfished Implications. Exerting control over the offshore fishery can have profound national and interna- 2. The federal government should assist the tional economic and social benefits. Revitalizing fishing industry by improving financing the region's sagging fishing industry will have sub- opportunities for the purchase of domes- stantial economic benefits for the region. Local tically buflt vessels and permitting pur- and regional income should be stimulated by a chase of lower cost foreign vessels. more vigorous fishing industry. Moreover, a bet- ter managed offshore fishery retains the potential 3. Initiate a regional port planning and devel- for being a major international food source for the opment program. The New England world. In addition to the fishing industry, eco- coastal states and appropriate federal nomic, social, and environmental benefits can ac- agencies, working through the New crue from the revitalizatioh of this region's poten- England Regional Commission, and tially scenic and vibrant urban waterfronts. Boston with the assistance of the New England has already begun such a redevelopment, as have River Basins Commission, should under- Nantucket and Newburyport, Massachusetts. It take a regional port planning study to was not within the scope of the Study to deter- determine the most efficient port de- mine whether significant economic benefits might velopment system for handling the re- accrue from regional port specialization and inte- gion's shipping and cargo distribution gration, although it appears that both regional and needs, with an emphasis on developing national benefits would be generated. an oil handling policy. A cautious go-ahea .d is given to the extraction of 4. Prohibit near-shore extraction of sand far-shore mineral resources if conventional onshore and gravel; establish stringent licensing resources become unavailable or uneconomical. and operating standards for far-shore ex- If the technology can be perfected, the region's off- traction. shore deposits are more than adequate to meet our needs. The Study also urges greater cooperation be- 5. The states' coastal zone management pro- tween local and state governments in guiding the grams should review the redevelopment development of aquaculture industries. Better man- potential of the region's decaying urban aged natural shellfish beds and successful aquacul- waterfronts using block grants through ture can provide economic and social benefits to the the Community Development act of 1974. region at relatively little cost. Overall, the Study's Responsibility for redevelopment should recommendations on marine management are de- continue at the local level under state signed to redevelop SENE's historic tiCs to its leadership and coordination of federal coastal and marine resources. funding programs. S-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 8. FLOODING AND EROSION: LIVING WITH A multitude of federal and state programs are pro- THE FORCES OF NATURE posed or in progress in the region to reduce flood damages. Some of the federal programs include High tidal and relatively low riverine flood Soil Conservation Service and Corps of Engineers damages characterize the SENE region. flood control projects; the Corps of Engineers With few opportunities for flood storage Pawcatuck-Narragansett Bay Study, initially de- dams in the region, we must protect flood signed as a comprehensive flood management pro- storing wetlands and flood plains. Butit gram but recently proposed to be expanded to in- has been 20 years since the last disastrous clude wastewater management, water supply, navi- hurricane and we have. built on a lot of gation, and other considerations; the Corps' land- land that belongs to the sea. Some day, mark Charles River flood plain acquisition program inexorably, the sea will take some of it and dam; and the Department of Housing and Ur- back. The conclusion of the Study is -_ that ban Development's National Flood Insurance Pro- it is to the region's economic advantage, as gram, under which every community in SENE has well as its environmental and social advant- been declared flood prone. Both states have en- age, to keep people away from floods, acted legislation designed to protect, critical inland rather than fighting the expensive losing and coastal wetlands. battle of keeping the floods away from the people. The Solutions. To mitigate the region's flooding and erosion problems within the existing system The Situation. Southeastern New England's major of state and federal programs, the Study recom- coastal communities have a long history of dam- mends both structural and non-structural measures. ages from hurricanes and "northeasters". 7he 19S4 However, non-structural flood plain management hurricane caused $70 million in damages along the measures are emphasized wherever possible: (1) to Rhode Island coast and within Narragansett Bay. be sensitive to the natural role of wetlands and A 1959 "northeaster" caused damages totalling flood plains in modifying the forces of nature; (2) $6 million along the Massachusetts coast, from to reflect the Study's finding that growth can be Newburyport to Plymouth. In contrast, damages accommodated without developing on wetlands or from inland riverine flooding have been relatively flood plains; (3) to reflect the reality that few op- minor, except for the heavily developed reaches of portunities exist for structural solutions in SENE; rivers such as the Blackstone and Pawtuxet. The (4) to concur with the conclusion of the North At- 1955 flood of record..in the Blackstone River lantic Regional Water Resources Study that non- caused over $65 million in damages. Elsewhere, structural measures can reduce projected average the region's inland flood damages have been sur- annual damages by up to 75 percent by 2020; (5) prisingly low because, unlike many other parts of to recognize the importance of Section 73 of the New England, the SENE region retains vast ex- Water Resources Development Act of 1974 author- panses of flood flow holding wetlands and flood izing federal cost-sharing in non-structural solutions; plains. Thus, the opportunity exists for the re- (6) to reflect the consistent rejection of structural gion to continue to experience only minor dam- solutions by a number of the most flood prone ages, if these critical lands remain undeveloped. communities in the region; and (7) to reflect Corps of Engineers studies which concluded that there The inland and coastal erosion situation closely was no economic justification for federally funded parallels flooding. The region's topography and coastal protection projects. soils are such that inland erosion is relatively in- significant. In contrast, however, many of the re- Accordingly, the Study's key recommendations gion's most heavily used beaches are eroding more for flood damage reduction are: than three feet per year. Key problem areas are Plum Island on the North Shore, the northern portion of the South Shore, portions of Cape Cod and the Islands, Block Island, and coastal Rhode Island. S-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 1. Prepare comprehensive flood plain man- tion operations, and solid waste disposal is agement programs. Federal and state facilities are as critical to the economy and agencies working with municipalities the public health and safety as are wetlands should prepare comprehensive flood or food plains. It is the Study's conclusion plain management programs by basin, that the protection of suitable sites for making use of non-structural solutions these needed facilities should be given as wherever possible. First priority should high a priority as preserving "Critical En- be given to the Ipswich, Nepo'nset, and vironmental Areas". Taunton River basins. The Situation. The onshore extraction of sand and 2. Full participation in the National Flood gravel is noisy, dirty, and brings with it heavy equip- Insurance Program is urged for all ment traffic. Power plants, refineries, and solid communities. waste disposal sites are unsightly, and are potential polluters. Considering the generally negative ef- 3. Restrict further development, or redevel- fects such key facilities have traditionally had on opment, in inland or coastal flood prone the physical landscape, the "put them in someone areas and coastal erosion areas. Zoning else's backyard" attitude prevalent in most com- to carry out this recommendation munities is understandable. But the region's should take advantage of existing economy depends on these services,'and we would wetlands legislation, protect barrier be worse off without them than we are with them beaches, and be consistent with state - at least for the forseeable future. The objective, coastal zone programs. then, is to determine how badly we need these fa- cilities and then to provide for them in a manner 4. Strengthen state wetlands legislation. which minimizes their effects on our landscape. 5. Acquire key wetlands and flood plain Production of sand and gravel, two of the region's areas where necessary to guarantee most valuable resources, was 15.3 million tons in the public health and safety. 1970. Demand projections for the future range be- tween 23 and 28 million tons in 1990, and between 6. Selectively construct flood control pro- 33 and 49 million tons in 2020. Similarly, the pro- jects where the area to be protected duction of crushed stone was 6.2 million tons in is of high value to the community and 1970; demand for it in 1990 is projected at 10.5 the cost of construction is less than ac- to 13.5 million tons, and between 17.4 and 27.9 quisition of the food hazard area. million tons in 2020. However, these 1972 U. S. Bureau of Mines projections may be somewhat Implications. The region's network of wetlands overestimated, because the rate of growth of road and flood plains provide an ideal opportunity to construction and housing, and the industrial de- use non-structural measures, established at the mands for sand and gravel have begun to slow. local level under state guidance, to reduce dam- Road construction alone decreased 25 percent in ages. The importance of these natural areas to Massa@husetts between 1971 and 1972. Technic- public health, safety, and welfare is reemphasized ally, regardless of projections, we probably have in the Study's priority recommendation to strictly enough sand and gravel deposits to meet our needs. control development on wetlands and flood plains But the known deposits are rapidly being preemp- (discussed above under Guiding Growth). ted by other land uses as development pressures spread outward from the region's urban centers. 9. FINDING PLACES FOR NEEDED BUT As convenient deposits disappear, extraction op- UNWELCOME FACILITIES erators are forced to move further away. As a result, the availability of the commodity is decreas- Electric power plants, oil tank farms, pipe- ing and the cost, because of transportation distance, lines, and terminals, sand and gravel extrac- is increasing. S-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The availability of energy - and, by extension, its further, over 50 percent of that oil is imported. cost - has become the Achilles heel of Southeastern The energy crisis has made everyone hesitant New England. The region's deepening energy short- about making projections of future demand. Like ages depress the economy and threaten to eclipse electrical power, consumption of oil is responsive environmental concerns. The atmosphere of crisis to many market and public policy factors. How- is not conducive to careful decision making. ever, according to the best available information, consumption of petroleum in SENE by the year Electrical power peak market demand in the SENE 2000 could vary between 2 million and 4 million service area was 5,000 megawatts in 1971. By way barrels per day. The higher figure is based on the of comparison, the Plymouth nuclear unit produces unlikely continuation of the pre-energy crisis rate 665 megawatts. The staff of the Federal Power of four percent annual increase. The lower figure Commission predicts that the annual rate of growth is based on a 50 percent cut in that rate of in- in power consumption will decrease from 7.6 per- crease. Even the lower figure is four times our cent in 1971 to 4.0 percent in 2020. Yet even under current consumption. SENE neither produces nor those conditions, the production of power will have refines oil. This massive dependence on importa- to increase fourfold by 1990 to meet the demand. tion of refined products has led to a multitude of No one is entirely confident of these or any other refinery construction and supertanker develop- projections of energy needs these days. Energy con- ment proposals. sumption is responsive to many forces: price, per- sonal income, population growth, technology, pub- The SENE Study had neither the scope nor the lic policy, conservation programs, changes in style authority to look into the policy questions invol- and taste, and the cost and availability of alterria- ved in drilling for oil on Georges Bank or in deter- tive sources of fuel. Although a number of gener- mining the most appropriate configuration of re- ating technologies are available, present fossil- fineries, pipelines, and terminals. These problems fueled power plants have serious drawbacks. Oil- are being studied in depth by others. The SENE fired plants can cause air pollution in excess of Study has been concerned with providing insight federal air quality standards. Although new tech- into the nature of petroleum demand and water nologies are being researched, they will not be And land resource guidelines for siting major fa- available for some time. Despite the drawbacks, cilities, should their need be determined. Two there appears to be no acceptable baseload alterna- issues are most important. First, unless significant tive to nuclear power for meeting most of SENE's steps are taken to slow the region's oil consump- short-range future needs, at least through 1990. tion growth rate, the region will have to become Under these circumstances, two issues are para- a major refining center or depend on increasingly mount. Unless Southeastern New England re- unreliable foreign supplies. Second, unless both duces its electricity consumption growth rate sig- states establish some mechanism for identifying, nificantly, a score of new power plants will be securing sites for, and reviewing proposals for pet- needed in the next 15 to 40 years. Unless sites roleum facilities, they will have little control of, for new power plants are identified and secured and experience no significant benefits from, the now, the region will have to resort to either mas- operation of such facilities. sive importation of power from elsewhere in the Northeast, which may not always be available, or Solid waste disposal is another important but often accept significant risk of environmental degrada- unwelcome service. Together both states produced tion. over eight million tons of solid waste in 1973 and can expect to handle almost ten million tons in Petroleum facilities siting - refineries, tank farms, 1980. The Study is confident, however, that the deepwater ports - is a major issue in SENE. The new solid waste recovery programs established in United States is the most oil-hungry country in the each state will, with funding and community sup- world, New England is the most oil-hungry region port, be adequate to reduce the resource degrada- in the nation, and 50 percent of New England's tion currently caused by dumps and poorly man- consumption is in SENE. To complicate things aged sanitary landfills. S-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Solutions. For each of these four vital services, Under this new authority, the DNR's siting is the key issue. For power and petroleum, should be the technical backbone of the importance of siting is matched by the need to the recommended local sequential land manage consumption. Highest priority recommen- use program designed to permit extrac- dations include: tion of minerals and restoration before preemption by other forms of develop- 1. Establish, immediately, energy demand ment. State programs should include: management and conservation programs public education program .s to encourage in each state. For both electrical power protection of deposits, guidance to mu- and petroleum, immediate steps should nicipalities for permit programs, state- be taken in both states to establish state wide operating and site rehabilitation demand reduction goals, set voluntary standards, state licensing of extraction and mandatory conservation measures, operators, and state reclamation of make changes in building code standards, high-value abandoned extraction sites. and provide tax in cen tives to reduce de- mand. 7he success of such a program Other high priority recommendations include: will depend in large part on the success (a) revising the electrical rate structure to of a recommended state energy awareness eliminate decreasing block rates; (b) maxi- program. Both programs would be direc- mizing development at existing power- ted by the respective state energy offices. plant sites; (c) upgrading or phasing out in- efficient power plants; (d) providing one- 2. Establish comprehensive energy facilities stop power plant licensing; (e) locating siting authorities in each state; secure future petroleum facilities inland near in- sites for the future. The authority of frastructure, (f) distributing refined prod- the Rhode Island Coastal Resources ucts by pipeline; (g) enforcing existing Management Council and Massachusetts landfill regulations; (h) funding. the public Energy Facility Siting Council should Rhode Island Solid Waste Management be expanded as required to give both Corporation; and (i) conducting a Massa- agencies the authority to approve or chusetts mineral survey. reject energy facility siting proposals and to identify and or reject energy Implications. Implementation of the Study's facility siting proposals and to identify recommendations on major facilities - power and secure economically and environ- plants, petroleum facilities, sand and gravel ex- mentally desirable sites for power traction operations, solid waste disposal sites - plants, refineries, tankfarms, and will give the states a much stronger, and much other energy-related key facilities. more direct, method for controlling the impacts, Lands classified by the Study as Olt- both economic and environmental, of major de- ical Environmental Areas (described velopments with greater than local impact. The above under Guiding Growth) should minor adjustments to the institutional mechan- be avoided. isms discussed will allow the states to become more responsive to the economic, social, and en- 3. Centralize mineral management authority vironmental needs of the entire region, rather in each state department of natural than simply reacting to the proposals of individ- resources; manage sequential land ual developers. Both states have begun to move use program. Authority for minerals in the direction of controlling development which resources policy-making, monitoring, has major regional impact. 71he Study's recom- and regulation should be centralized mendations are merely an extension of current in each state Department of Natural state siting initiatives. Finally, if the economy of Resources (DNR). Yhere is no coher- the region is to be viable at all, specific measures ent program in either state at present. S-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made to slow the growth of total energy consumption gional, local, and private resource management pro- in the region must be implemented immediately. grams and policies belongs to the state. 10. STRENGTHENING THE MANAGEMENT Integrating Resource Policy Making with Other SYSTEM FOR NATURAL RESOURCES State Programs and Policies. Both states have al- ready established an institutional mechanism for Many of the tools we need to carry out the achieving overall integration ofresource programs Study's recommendations already exist. with other state programs. The Rhode Island State What is needed is a way to ensure that re- Planning Council (SPQ is responsible for oversee- sources management policies are integrated ing the preparation and adoption of the State with the states'social and economic de- Guide Plan. It is also responsible for integrating velopment policies. Without such integra- the resource policies and programs of a number of tion, growth will continue to be unguided state agencies. One exception, however, is that and the quality of life in Southeastern long-range water resources planning and manage- New England will deteriorate - slowly, ment policies and programs are determined sepa- steadily, inexorably. rately by the State Water Resources Board. This arrangement in some ways hinders effective state- The Situation. The findings and recommendations wide program integration. In contrast, the Massa- outlined in the preceding sections of this summary chusetts Cabinet, as it is organized to deal with re- constitute a comprehensive management program source management issues, approaches the ideal in for the water and related land resources of South- statewide coordination because it provides a way eastern New England. The program includes some for the various cabinet Secretaries to ensure that new ideas, and some ideas which have been raised their programs interrelate. before, but which are still valid or which have been refocused by the Study. The Solutions. It is the responsibility of the State Planning Council in Rhode Island and the Cabinet Existing government agencies have the tools to in Massachusetts to review and adopt, in whole or implement many of the individual recommenda- in part, the resource management policies and pro- tions. For some other recommend ations, however, gains outlined in the preceding recommendations, new enabling legislation or additional funding may and to oversee the implementation of specific re- be required. commendations by state administrative agencies within the context of the state's overall social and It is important to remember that the recommenda- economic, as well as environmental goals. tions were developed not only from the point of view of natural resources management, but with an 1. Maximize use of existing resource policy eye toward the economic and social goals of the re- institutions. The resource management gion as well. The policy implications of the program policies and programs recommended by recommendations must be evaluated within the con- the SENE Study should be reviewed and text of both states' social and economic develop- appropriate state policies adopted by the ment programs. Implementation cannot be success- Massachusetts Cabinet and Rhode Island ful unless the recommendations are integrated with State Planning Council as currently con- the full range of state human service, economic de- stituted. velopment, and environmental programs. Alternative Approaches to Implement Key Ele- That the states are the appropriate level of govern- ments of the SENE Plan. To assist the states in ment to provide this integration is an accepted con- translating adopted policies into action programs clusion. Both the New England Governors'Con- designed to implement key recommendations of ference and the federal-state New England River the SENE Study, a number of alternative imple- Basins Commission have recognized that responsi- mentation approaches were investigated. Each bility for leadership in integrating federal, state, re- alternative approach illustrates a slightly different S-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ,'NNW balance between state, substate regional, and local be appealable either to the RPA's or a resource management decision making. For each state level agency. state, the approaches illustrate three concepts: protection of Critical Environmental Areas, control ID) State regulation of critical areas over developments of regional impact, and the de- with municipal administration. Here the gree to which long-range water resources planning Cabinet would supervise a process for can be a tool for guiding growth. direct state zoning of critical areas for In Massachusetts, the first set of approaches illus- particular uses. Municipalities would trates the range of resource management powers administer this system, and only in their between the state and its municipalities. abdication would an appropriate state agency assume regulatory control of the ]A) State development guidelines for use area. by local government. TheCabinetwould supervise the preparation of a "State De- The final two approaches demonstrate the possi- velopment Guide", for developments of bilities of indirectly guiding growth through com- greater than local impact. Development prehensive water resources management programs. proposals consistent with the Guide would 2A) Regional management of water and be facilitated and those inconsistent would related land resources. An inter-agency have to undergo full impact analysis under commission would develop long-range poli- an expanded Massachusetts Environmental Policy Act. cies for all water uses for approval by the Cabinet for: (1) quality, quantity, and 1B) Mandatory local planning and zoning. availability of water resource.; (2) coordin-, Every municipality would be directed by ation of water supply development with statute to adopt a plan designating areas of demand; (3) allocation of water supply; critical environmental concern, establishing and (4) regulation of land activities rele- procedures for regulating development in vant to protecting the water resource. those areas, and setting forth a program of Substate regional or areawide entities directed growth consistent with state cri- would be responsible for implementing teria. Local governments would exercise plans by establi.shing performance stand- regulatory authority, and state and re- ards and regulations to be observed by gional bodies would be guided, to the ex- local authorities in granting permits, and tent practical, by local plans. in some cases constructing or operating water resources facilities, including treat- C) State designation and local regulation ment works and reservoirs. of Critical Environmental Areas. Inthis approach, the Cabinet could supervise a 2B) State planning and management of process to identify Critical Environmental water and related land resources. Alter- Areas, on the basis of inputs from inter- natively, such a commission could pre- ested state agencies, such as the Depart- pare a plan containing all of the elements ment of Community Affairs and work al- of the above approach, as well as admin- ready done by the SENE Study. It would ister a use permit system over water and then promulgate guidelines for municipal related land resources. A statewide agency, regulation of development in these areas. or series of regionally oriented state agen- The municipalities would be required to cies, would implement management activi- adopt implementing controls. Failure to ties for the approved plan. Local controls do so would enable a regional planning would remain intact, but would be subject agency (RPA) or the Cabinet to prepare to supervening state powers to protect, al- the regulations. Municipal denial of de- locate, and manage the water resource. velopment permits for these areas would S-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ing areas of critical environmental con- Because of the distinguishing organizational fea- cern, which would be implemented tures of Rhode Island, the approaches have been through regulatory controls. The RMC applied slightly differently. The first set illus- would be similar to the existing Coastal trates the direct control of land uses in areas of Resources Management Council (CRMC) critical concern to the state (including areas de- which performs similar functions for the fined by the Study as Critical Environmental coastal zone. The State Guide Plan would Areas and those areas which, for reasons of state supercede where necessary. In addition economic or social policy, have been given a high to any applicable municipal permit, de- priority for development or redevelopment) with velopment would also have to be ap- varying degrees of state and local responsibility. proved by the RMC or the CRMC. ]A) State development guidelines for use The next approach offers an option to integrate by local government. The State Planning planning and management of water and related Council, through the Statewide Planning land resources with other resource policies, as Program, would prepare guidelines for the the state is presently attempting to do. location of developments of regional im- pact, including various key facilities, based 2A) State planning and management of on policies embodied in the State Guide water and related land resources. Here, Plan, and the State Lane Use Policies and the State Planning Council would formu- Plan, and on the work of the SENE Study, late overall policies and plans for integrat- Development proposals consistent with ing the management of the state's water the guidelines would be facilitated, and and related land resources. As a first step those inconsistent would be more care- to bringing this about, and consistent with fully scrutinized. in the pen-nitting process. current efforts in the state, the responsi- bility for long-range water resources plan- 1B) _41andatory local planning and zoning. ning would be transferred to the Statewide Similar to the Massachusetts approach I B, Planning Program from the Water Resour- this option would lodge primary responsi- ces Board (WRB). The WRB would retain bilities with localities, subject to state existinj responsibility for project planning, legislative criteria. construction, and management in the field of water supply, and would acquire a par-' 10 State designation and local regula- allel responsibility with respect to the waste- tion of areas of critical concern to the water management, while the Solid Waste state. A state agency such as the State- Management Corporation would carry out wide Planning Program, with guidance solid waste and sludge disposal functions, from the State Planning Council, would where necessary, to protect the water re- designate areas of critical concern to the sources. state and establish guidelines for protect- ing, managing, and developing them. 11 - TYING THE RECOMMENDATIONS Municipalities would then formulate TOGETHER controls pursuant to state guidelines for areas within their jurisdictions, and ab- This summary has briefly described nearly half of dication of this responsibility would the 130 recommendations the participants in the authorize state prescription of controls. SENE Study felt were necessary to fulfill the Study's purpose of "securing for the people of 1D) State regulation of critical areas the Southeastern New England region the full with municipal administration. A Re- range of uses and benefits of the region's resour- source Management Council (RMC) ces." A complete list of the recommendations is could be established with authority to found in the "Overview" of the main report. formulate plans and policies for protect- S-19 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made A look at the whole "forest" of recommendations sources of eastern Massachusetts and Rhode rather than the individual "trees" reveals a detailed Island. In many ways it is the start toward, natural resources management program emphasiz- state development policies and plans, at least ing a need throughout the region for better regional from a natural resources point of view. planning. This management program is backed up by recommendations calling for a modest amount 2. It is a Guide for Future Development. Not a of research and development, private investment blueprint,but a guide. A balanced and inte- and a minimum of new acquisition and legislation. grated program of actions for managing, de- veloping, protecting, and conserving our nat- The package of recommendations has significant ural resources. Not a completed picture of implications for the region's people and their re- what the future should look like, but a series sources. It gives nearly equal emphasis to the need of steps which must be taken to set the . fu- for protection of ecologically sensitive lands and ture in motion. the identification and acquisition of sites for devel- opments having major economic impact, such as HOW THE SENE STUDY IS USEFUL power plants. It gives special attention to the need 1. It can be used to set priorities for action by to increase the cost effectiveness of future growth and improve the stability and diversification of the the states or the federal government in their region's economic base. The recommendations, programs to improve the management of our for the most part, support the region's long history resources. of local decision making, but recognize that where decisions on the uses of resources affect more than 2. It can be used to evaluate the plans, projects, just one town, a higher authority is needed to pro- and actions of others. Since it is the only tect the interests of all. Most significantly, since common fra me of reference about South- the package emphasized better management through eastern New England's resources, it can be existing institutions, rather than creation of new used so that we can know the effects of the institutions, legislation, and major land acquisitions, development proposals of others before it the program will not increase the cost of living and is too late. the cost of government, two problems of overriding concern to the region's.people. WHO SHOULD USE THE STUDY The SENE Study can be useful at many levels. But THE SENE STUDY: WHAT IT IS AND HOW to begin to implement its recommendations, com- TO USE IT mitment is needed at the highest level. Establish- ing this commitment will probably require an Ex- If you have read this far you deserve a useful re- ecutive Orderfrom each Governor calling attention @cap. Stepping back from the details of the Study's to the Study and requiring individual state resource recommendations, then, just what is the SENE agencies to adopt relevant portions as state policy. Study? How is it useful? Who should use it and Or the Governor could simply call a meeting of ap- what actions should they take? propriate Cabinet members to work through the detailsof the Study and determine how well it WHAT THE SENE STUDY IS meets state goals, perhaps using Study findings and recommendations as a point of reference. The foi- L It is a Planning Tool. It is an objective des- lowing chart suggests how various levels of govem- cription and display of the development ca- ment might use the Study and what action they pabilities and limitations of-the natural re- might take. S-20 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Chanps can be made WHO HOW ACTION At the State Level Governor As support for economic and Issue Executive Order re4uiring environmental policies state agencies to use it Mass. Cabinet and Rhode Island Identify ways to integrate social, Review and adopt, where appro- State Planning Council economic, and environmental priate, SENE Study policy objectives recommendations Individual To initiate and evaluate agency Enforcing Governor's Executive Department Secretaries programs, review proposals, and Order identify opportunities for co- operation among agencies Subordinate To develop resource management Carrying out. Governor's Execu- Agency Heads programs and set priorities tive Order in day-to-day activities Legislature As basis for land use legislation, Enact laws and appropriate monies reviewing funding proposals, and making appropriations At the Regional Level Regional Planning Agencies As a planning guide; siting guide; Review and adopt geographically and checklist for review of devel- appropriate portions of Study; opment and project proposals use as reference At the Local Level Town Planning Boards As a basis for revising zoning, Adopt relevant policies and subdivision regulations, or other recommendations of Study; use land use controls them as basis for local action Conservation Commissions To select appropriate lands for Adopt relevant policies and acquisition; to review develop- recommendations of Study; use ment proposals them as basis for local action Economic To identify land appropriate for Adopt relevant policies and Development Commissions industrial development; show recommendations of Study; use attractiveness for economic them as basis for local action development Interested Citizens As a starting point for voicing Voting referenda and as needs and as a basis for lobbying educational tool. efforts At the Federal Level Congress and As the framework for funding Take official action and refer to Federal Agencies project and program evaluation it in making appropriations and developing legislation S-21 Part 11 REGIONAL REPORT Chapter 1 Themes Chapter 2 The Setting Chapter 3 Guiding Growth Chapter 4 Water Supply Chapter 5 Water Quality Chapter 6 Outdoor Recreation Chapter 7 Marine Management Chapter 8 Flooding and Erosion Chapter 9 Unwelcome Facilities Chapter 10 Strengthening The Management System for Natural Resources Chapter 11 Tying The Recommendations Together CHAPTER 1 GOALS AND APPROACH This chapter is intended to outline, briefly, how the recom- Analysis of these concerns and objectives led to the emer- mendations for Southeastern New England were developed gence of the understanding that the development of a and to highlight the major conclusions of the Study. publicly acceptable regional growth policy is basic to mak- ing intelligent water and related land resource planning The principal goals of the Study are presented first, followed and management decisions. by a brief description of the major planning objectives which influenced the direction of the Study. A brief characteriza- The Regional Report does not attempt to define a single tion of the SENE Study recommendations and the process growth policy for the SENE region. It does, however, in used to develop them is explained next, followed by a sum- Chapters 2 and 3, clearly identify the major elements which mary of the major themes or conclusions which emerged must be considered in such a policy. Moreover, in Chapter from the Study effort. 10, the Study identifies several alternative approaches for implementing such a policy within the political and social Study Goals realities of Southeastern New England. The Southeastern New England (SENE) Water and Related The Study's special emphasis is to detail a comprehensive Land Resources Study was authorized by Congress and program which establishes the vital role that water resources funded in 1971 in response to the increasingly troublesome and certain water related land resources play in such a re- pressures the region's rapid urbanization was exerting on its gional growth policy. Thus SENE Study recommendations rich and varied natural resources. The SENE Study had two have consciously and deliberately been formulated in a man- principal goals: ner which contribute to the development of a regional growth policy and to potentially have an important influence on its � "To identify and recommend actions to be articulation and implementation by the region's decision taken by all levels of government and by private makers. interests to secure for the people of the region the full range of uses and benefits which may be The SENE Recommendations provided by balanced conservation and develop- ment of the region's water and related land re- The SENE Study presents in this Regional Report (and in sources" (From the Plan of Study), and the ten Planning Area Reports) a program of recommended actions and policies which includes development projects, � To provide a compilation of base data on the management programs, land acquisition activities, institu- region's water and related land resources for the tional modifications, and legislative changes. These are de- benefit of future planners and researchers. tailed in each of the functional chapters and summarized and evaluated in Chapter H, Tying the Recommendations To- The attainment of these goals is documented in the four- gether. part SENE Study Report: Part I is the Summary; Part Il is the Main Regional Report; Part III is the Draft Environ- The Major Characteristics of the SENE mental Impact Statement and Methodology; and Part IV Recommendations is composed of the ten sub-regional Planning Area Reports. The recommendations and the resource capability analysis Before the recommendations can be presented, it is import- which forms its foundation are supported by literally doz- ant to understand their major characteristics and how they ens of technical reports and maps available in the library of determined the scope of the Study. the New England River Basins Commission. The SENE recommendations are broad, comprehensive, Major Regional Planning Objectives long-range, multi-agency, water and related land resource oriented, and coordinated. The initial step toward the stated Study goals was to iden- tify the major regional planning concerns within SENE. The SENE recommendations are broad because principal These ranged from such purely technical objectives as the emphasis was placed upon major regional policies and pro- provision of a safe water supply, to such political and so- grams. They are comprehensive in that all principal water- cial objectives as the maintenance wherever possible of lo- related resource uses are addressed for all parts of the re- cal autonomy in resource decision making. Objectives such gion, for all levels of government, and for the private sector as these served to focus the Study effort and are the foun- as well. Since they are long-range, they not only consider dation upon which the recommendations are built. current conditions, but also attempt to anticipate condi- 1-1 .PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Charips can be made tions, problems, and solutions for the year 1990 and to dations and their supporting rationale - and the SENE gauge the compatibility of these solutions with conditions Study files - can also be used as a starting point for more which might be present in the year 2020. The recommen- detailed work. dations are multi-4gency in that the states of Massachusetts and Rhode Island, eight federal agencies, two other regional Formulating the SENE Study Recommendations agencies, a Citizen Advisory Committee, a Regional Scien- tific Task Force, and ten Basin Advisory Committees ... To serve as a guide for meeting expressed needs and to con- helped prepare and review them under the direction of the tribute to orderly future growth, the Study recommenda- New England River Basins Commission, a regional federal- tions were formulated by systematically appraising alter- state planning organization. native programs aimed at both meeting needs within indi- vidual functional areas (water supply, recreation) and The Study focuses on water and related land resources. To synthesizing the functional programs to determine how they make the study manageable, the tendency to expand into contributed to the future regional growth objectives. ever-widening circles had to be resisted. It is important to recognize, for example, that the treatment of land use in Thus, three basic steps were followed: Chapter 3 was developed primarily from a water resources point of view. Other major growth concerns - such as 0 analysis of problems and issues and alternative economic development, housing, transportation, and edu- solutions within individual functional areas; cation - were considered to the extent necessary to de- termine how water resources programs could contribute 0 development of alternative plans within func- to objectives associated with these concerns. tional areas; and The Study is coordinated: One of the principal benefits of 0 analysis of implications for future regional the Study was the bringing together of major federal and growth. state ageneies as a team during the organization, prepara- tion and review of this report. Everyone could see what Functional Analysis. Each area of functional concern everyone else was doing. All of the recommendations have begins with an assessment of the resource situation which been exposed to all participants, who have been given an provides background, describes problems and opportunities extended opportunity to voice objection or support. Most, and explains the effects if the problems are not resolved. Al- but not all, of the recommendations thus have the support ternative solutions are then described and evaluated in terms of the participating federal and state agencies and the other of their major environmental, economic, and social impacts. members of state government with whom they judged it Choices are made in the form of recommendations indicat- desirable to coordinate. In instances where agreement was ing who is to do what, and often how it might best be done. less than complete, prominent divergent views were inclu- ded in the analysis. Thus, it is correct to say that the SENE Alternative Plan Development. After the alternative recommendations represent a generally agreed-upon, con- solutions were described and evaluated, they were grouped sistent set of proposed actions, coordinated with the feder- to form three distinct alternative plans emphasizing differ- al and state governments. The recommendations should ent objectives. One emphasized environmental quality, se- therefore be particularly useful for coordinated planning, lecting only those measures which favored, or at least did for programming, for assigning priorities and, to a lesser not detract from, environmental enhancement. Another extent, for budgeting. emphasized economic development. The third plan, more often than not the recommended plan, sought a middle road Using the Study providing opportunities for economic development consist- ent with the region's environmental aspirations. 77ze SENE recommendations are a guide for meeting the needs of people, developed in a manner consistent with Analysis of Implications. Finally, the recommended their desire to manage future growth. The recommenda- functional plan was discussed in terms of its broad economic, tions are intended for continuous use by those having re- social, and environmental implications on regional growth sponsibilities for, or interests in, the management of the policy. water and related land resources of the region. To use them, agreement with every recommendation is not neces- In applying this approach, a separate report was developed sary. Associated with each recommendation are the alter- for each of seven broad functions corresponding to Chap- native solutions with which it competed. Others may ters 3 through 9 of the Regional Report, for each of ten weigh the pros and cons differently; but, at least if they planning areas - a total of 70 reports. These reports were use this guide, their solutions will have been formulated then condensed and combined into ten planning area re- with an awareness of what they have chosen to gain and ports. The ten reports were then synthesized into this Re- what they have thereby chosen to forfeit. The recommen- gional Report with added coverage given to the alternatives, 1-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made rationale, and policy aspects. Finally, new insights gained In the SENE region it has been found that these generally in preparation of the Regional Report were fed back into polar cases tend to merge for several reasons: the individual planning area reports. (1) Population growth is slowly leveling off; The process by which the recommendations were formu- lated is in many ways similar to the requirements for an (2) Per capita income will remain high; and environmental impact statement - it identified critical en- vironment areas, and analyzed alternative measures (the (3) The region's economy is getting "cleaner", environmental and economic impacts). Despite this simi- i.e. less resource-consuming, more services- larity, a separate environmental impact statement was pre- oriented. pared and is included in Part III of the SENE Study report. Almost all of these socio-economic trends will tend to lessen Major Conclusions tension between environmental and economic aspirations. Indeed, achievement of environmental goals should actually At the end of the Study three major conclusions, or themes, reinforce economic goals. In recognition of its regional dis- emerged around which all of the recommendations appear advantages of remoteness from bulk raw materials, of poor to revolve. These themes or conclusions are that: transportation links, of high power rates, and of high labor costs, the region's basic economy in the future will prob- 0 Enhancing the environment also enhances ably increasingly rest on its ability to export essential the economy. services and pioneer in high unit value, state-of-the-art, and prototype manufacturing. To attract and hold the neces- 0 Anticipated growth can be accommodated, sary skills - which could really be located almost anywhere but it needs guidance. in the nation - the region's principal drawing power will be a clean, attractive environment - a good place to live, work, 0 Existing knowledge, programs, and institu- and raise a family. There are many other environmentally tions provide the most realistic tools for attractive places in the nation. Therefore, SENE's success achieving results. cannot be taken for granted. If SENE does not maintain and improvesthe quality of its natural landscape, not only Enhancing the environment also enhances the will its environmental future be degraded, but its long-range economy. It is the major conclusion of this Study that economic future will probably also falter. environmental enhancement and economic development will tend to reinforce each other in Southeastern New Notwithstanding the above general strategic harmony of England. Environmental and economic goals are often long-range environmental and economic aspirations in this considered polar opposites. The Study has found, however, region, several major current conflicts need to be resolved. that while society may have to be prepared to pay some They are considered principally in Chapter 9 on Unwelcome 46 opportunity cost" for preserving a given resource or en- Facilities. They provide the services everyone needs but no vironmental value in the short run, it will gain significant one wants nearby. In general, the recommendations empha- economic values in the long run. Both environmental and size the importance to public welfare of providing for these economic objectives seek to improve the overall quality of facilities and then gives priority equal to that given to pre- life, but in different ways. servation of critical environmental areas. A future favoring environmental values would enhance the Anticipated growth can be accommodated, but it quality of life by giving first preference to clean air and needsguidance. 7he Study has found that, overall, suf- water, to natural beauty, to open space, to opportunities Pcient legitimately developable land exists in the region to for outdoor recreation or solitude. meet development requirements not only in the near future but through the year 2020. This fitiding is true even if the A future favoring economic values would enhance the region continues to consume land at the current rate of quality of fife by giving first preference to employment, to one-half acre per person - a rate four times higher than the a high economic standard of living, to upgrading the labor historical average in Southeastern New England. Should force through education, to increasing the use which people current population trends and the tendency among devel- can make of their natural resources for material and recrea- opers to cluster development continue, the development tional benefits, to improving the region's infrastructure* picture could even be brighter. The implication for resource and generally upgrading the efficiency with which the re- management is that we can encourage and support the eco- gion produces or acquires goods and services. nomic development the region needs so badly without sacri- Infrastructure means the facilities required to support development. It includes interrelated basic services such as energy sources, utilities systems, and communication and transportation links. 1-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ficing critical or fragile natural resources or risking public sisted. The Study accepted the conclusion that "no de- safety. cision" is indeed a decision. In cases of doubt, the general tendency was to recommend reversible action coupled To assure that development is guided to those lands most with research to permit adjustments to be made if new capable of supporting it, the Study concludes that a re- knowledge should suggest them. Full use of ongoing pro- gional growth policy or regional land use plan is essential. grams, notwithstanding some inadequacies, was viewed as Such a plan would seek to influence the location of our a pragmatic way of "piggy-backing" on programs that had future development investments in order to emphasize already weathered most of the realities of the political economic efficiency, and reflect the region's social prefer- process. For example, at every reasonable opportunity the ences and environmental values. In addition to water and SENE Study sought to mesh with the federal Coastal Zone related land resources input, that plan needs input from Management Act of 1972 and the Federal Water Pollution other diverse spheres of human interest such as employ- Control Act Amendments of 1972. The Study also sought ment opportunities, transportation, utilities, housing, and ways to,use the existing institutions to get things done ra- urban renewal. ther than search for new arrangements that might have been slightly better if judged from a parochial water re- The SENE Study presents what it considers to be a power- sources point of view. In choosing these strategies the ful beginning. As will be seen in more detail in Chapter 3, Study traded off novelty to increase achievability. Guiding Growth, and on the development capability maps in the rear pocket, the SENE Study has categorized every Therefore, the SENE Study recommendations strongly parcel of land and water in the SENE region; suggested bring out the need for a comprehensive management sys- whether it ought to be protected, managed, developed with tem with the following major elements: controls, or developed fully; and given the reasons for this choice. In general, the suggested protection areas are those 0 State leadership and control; Critical Environmental Areas which are essential to the environmental quality of life described earlier, especially the 0 Federal agency support; preservation of open space to give visual variety to growth. Use of the more developable areas, if properly managed, can * Implementation frequently at local level; generally improve the economic quality of life, which was and also discussed earlier. 0 A modest continuing planning process, capable In addition to offering a specific framework for strategic of linking all three levels of government. land use planning for endorsement or modification by other decision makers, the Study's water and related land use man- Within this system, the emphasis throughout the SENE agement recommendations can influence land use decisions. Study recommendations has been on delegation of author- Setting priorities for the provision of water supply and ity - placing decision making at the lowest level commen- sewer systems, the rational intensification or relaxation of surate with the anticipated scope of the decision, but pre- environmental standards, and the enhancement or carefully scribing the policy framework and the types of external considered sacrifice of amenities, can all play a very impor- considerations that should be referred to a higher level. tant part in implementing any consensus as to how growth Here the recommendations ran into an administrative can best be distributed. Once a general land use consensus management problem. To recommend that "every com- is achieved, water resources management can become one munity should (do what)" would have unquestionably of the major tools for implementing growth policy, rather produced an unevenness of awareness, interpretation, and than simply responding to development, as has been the performance that could have destroyed the overall intent case up to now. of the recommendation. A consistent leadership, a cata- lyst, was needed, and for this the SENE Study focused re- Existing knowledge, programs, and institutions sponsibility primarily on the states of Massachusetts and provide the most realistic tools for achieving results. Rhode Island. The typical wording chosen was "the De- The SENE Study's recommendations were developed with partment of (what) in the state of (what) should encour- special attention to "implementability". There was a delib- age municipalities to (do what) by providing leadership, in- erate effort to avoid "grand schemes". Instead, the recom- formation, technical advice and (sometimes) seed money." mendations emphasize better use of existing knowledge, This approach casts the state in a leadership role but leaves programs, and institutions as the most realistic way of the details to be elaborated and implemented to those clos- achieving its first major goal. Effort was concentrated on est to the decision, including federal and local governments collecting and analyzing existing information. Expensive and substate regional agencies. additional field surveys and research were avoided. The in- clination to postpone recommendations until, somehow, more research could be accomplished was generally re- 1-4 PUBLIC REVIEW DRAFT, SUBJECT TO REVISION Line by Line Changes can be made Compilation of Base Data portions of SENE, this is the only information available at uniformly comparable scales. For other portions of SENE, As indicated earlier, one goal of the Study is "to provide a much more detailed information is available at the local compilation of base data on the region's water and related level. It is now, however, possible in these areas, using the land resources for the benefit Of future planners and re- SENE Study data, to compare the local situation with the searchers". This goal is satisfied by the creation and filing regional perspective. This multi-purpose framework for of a massive amount of unpublished material on the region's decision-making has never before been available for South- resource base. It is available for inspection and abstracting eastern New England. The Study has codified and con- at the offices of the New England River Basins Commission densed the results of a myriad of previous work in order (NERBQ at 55 Court Street, Boston, Massachusetts 02108 to take a broad comprehensive geographic viewpoint and This wealth of material could not be adequately reflected in relate individual functions to broad regionwide policies. the SENE Study report itself. Draft documents have been prepared for each of the functions covered in Chapter 3 Table 1.1 lists the type of material contained in the SENE through 9 for each of the ten planning areas. A mass of files. The material and the processes followed are available raw and analyzed data and information has been assembled. to assist other planners in increasing the store of knowledge Much has been graphically depicted on a common map about SENE's natural resources. scale and integrated into a multi-purpose map. For many TABLEIA TYPICAL INFORMATION CONTAINED IN THE SENE STUDY FILES 1. General Information Publications. Plan of Study, pamphlets, newsletters, a map overlay packet, and an annotated bibliography. 2. Base Reports. A socio-economic and environmental framework, an environmental base study, data books, and population projections. 3. Inventory Reports. For each of 10 basins, a separate report on 18 individual subjects including flood plain zoning and streamflow management; water quality control; ground water management; water supply; land use patterns, allocations, and management; special environmental factors; fish and wildlife; outdoor recreation; inland wetlands mangement; navigation; coastal resources; power; minerals; irrigation and drainage; sediment and erosion; health aspects; climate, meteorology, hydrology, water quality, geology and ground water availability; and related land - - a total of 216 reports. 4. Maps. Mainly at a scale of I inch = about 1 mile (1:62, 500), occasionally at 1 inch = 2000 feet and I inch = 4 miles (1:24,000 and 1:250,000, respectively): 0 ) maps showing physical characteristics such as surficial geology, soils classifications, slopes, depth to bedrock, depth to seasonal high water table, flood plains, water quality, ground water recharge areas, coastal resources, physical characteristics, and tidal flooding; (2) maps showing land use, ownership, and services such as land use patterns, land use capability groups, transportation systems, zoning, town functional environments, unique natural areas, unique cultural areas, recreation areas, navigation, sewer service areas, existing and potential water supply sources and service areas, power generation stations, and ownership and use of coastal resources; and (3) suitability analyses on basic resource configurations, limitations for septic tank wastewater disposal, special environmental factors, Fish and wildlife habitats and corridors, freshwater fisheries, salt water sport fishing, quality of wildlife wetlands, existing and potential navigation developments, suitability for base load power plant siting, potential sand and gravel resource areas, and many others. S. Special Economic Reports. Economic considerations, economic criteria, economic implications, economics of power plant siting, economic analysis of coastal resource allocation. 6. Special Legal and Institutional (L& 1) Reports. Design of L &I arrangements, changes in wetlands law, fiscal policy and related land use control, ensuring access, proposed legislation and implementation of the SENE study. 7. Citizen Participation Publications. Tabulations of major watershed problems by workshop participants and citizen- preferred solutions, summaries of news releases about public workshops and Regional Citizen Advisory Committee meetings. 1-5 CHAPTER 2 THE SETTING Southeastern New England (SENE) is the northern terminus Although the Study area contains five separate urban areas of the Northeast Megalopolis, a belt of dense urban growth and contains three complete Standard Metropolitan Statisti- reaching from Norfolk, Virginia, to Boston. SENE is the cal Areas (SMSAs), the Study area was expanded to include commercial, industrial, financial, and cultural center of New information from outside of the Study area wherever sig- England. Fifty percent of the total population of New Eng. nificant influence on the region was being exerted by an land lives and works in SENE, though it contains only seven outside market or supply. The need for this is most obvious percent of New England's land area. in cases determining recreation demands on the Cape and Narragansett Bay, electrical power needs, port facilities, and The dense press of people, commerce, and industry which water supply requirements of the metropolitan Boston area. characterizes most of the Megalopolis has not yet blanketed SENE. A coastally-oriented region, SENE has its major In contrast to studies of single major river systems, the ac- urban centers; but it also has vast expanses of open space - tual SENE Study area is composed of some twenty sipifi- extensive forests, broad wetland networks, productive farm- cant river and coastal drainage areas in Rhode Island and land. Indeed, the diversity of its natural and human land- Massachusetts. By generalizing the hydrologic boundaries scape makes SENE difficult to describe as a "region". While to include whole towns, and by combining basins which people in SENE perceive a sense of "place" in the South drain into the same harbor, the twenty river basins were Shore, Cape Cod, or Narragansett Bay, few see Southeastern grouped into ten planning areas. A separate report was pro- New England as a distinct "region". Yet the nature of de- duced for each of the ten planning areas. In each planning velopment and the resource conflicts which result from that area report, the policy issues discussed in this Regional Re- development exhibit distinct similarities throughout the port are refined to a much greater level of detail. As a re- SENE region. The region can be described, then, in a vari- sult, SENE Study recommendations attain a level of speci-, ety of physical and human terms, and one of the goals of ficity not generally found in past regional studies. Figure.' the SENE Study planning effort has been to gain a better 2.1 is a map of the SENE region showing the planning understanding of how these physical and human characteris- areas and the towns within them. tics interact and to apply these insights to solve some of the region's problems. Geology and Topography The physical characteristics include hydrology, geology and The SENE Study area is primarily confined to the low coast- topography, climate, water, and coastal resources. These al border forming the margin of the interior uplands of the characteristics have played a major role in the evolution of states of Massachusetts and Rhode Island. This seaward- the human characteristics of the region - the growth and sloping margin is a portion of the New England geologic distribution of its people, the structure of the economy, and province known as the seaboard lowland. The principal the nature of the institutions created to manage and develop characteristic of this coastal region is that it is lower and their resources. Together, these characteristics form the smoother than the adjacent upland areas,to the north and .setting within which the Study was conducted and within west. The smoothness of the surface is locally broken by which its recommendations must be carried out. rock hills rising above the lowland surface north and south of the city of Boston. Topographically, the region presents Physical Characteristics a mature, gently sloping drainage pattern rising to its high- est point of approximately 1400 feet above mean sea level Boundaries in the northwesterly portion of the Study area. The chrys- talline bedrock which underlies much of the region is gen- The Study region Is 4400 square miles include the entire erally more than 10 feet from the surface, but ranges from state of Rhode Island and all or portions of Essex, Middle- hilltop outcroppings to several hundred feet deep in valleys. sex, Suffolk, Worcester, Norfolk, Plymouth, Bristol, Barn- In contrast to the bedrock, the softer sedimentary rocks of stable, Nantucket, and Dukes counties in Massachusetts. A the Boston and Narragansett geologic basins have produced small corner of Connecticut lying within the Pawcatuck a drowned coast allowing the radial arrangement of streams River basin is also included. entering the basins to be navigable even at low tide, a fea- ture which provided early transportation corridors and de- All 39 cities and towns in Rhode Island are included in the termined the location of the major population centers of Study area, as well as 171 municipalities in Massachusetts, the region. encompassing forty-one percent of the state, and 3 munici- The surface topography and soils of the region were formed palities in Connecticut, encompassing one percent of the during the advance and retreat of the Wisconsin ice sheet state. 2-1 J MASSAcmilserrs fAr 4 A r 4 A ri c oerA# IV 7 E S ACK tAC I N IV- r "of cm oldr t J ....... It 4 0 CID CAPE COD &.ISLANDS mA#rvcffzr sw#o W NARRAGANSETT BAY& BLOCK ISLAND SILOCK ISLA" SOVAID 0 2 t f MILES KILOMETER@ NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. PLANNING AREAS 2.1 SOUTHEASTERN NEW ENGLAND WATER AND RELATED LAND RESOURCES STUDY 2-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made some ten thousand years ago. These glacial movements pro- Coastal Resources duced the extensive terminal moraines of Cape Cod and are responsible for the formation of Nantucket, Martha's Vine- The SENE region's irregular 1540-mile coastline has b 'een yard, and the Elizabeth Islands. Till covers the higher eleva- its most valuable resource. The bays and coves, carved by tions in the northern parts of the Study region. Outwash glaciers during the Ice Age, offered sheltered anchorages to deposits fill valleys in the north and form broad plains in the early fishermen and were later developed by a burgeoning south. mercantile industry into world-leading ports. Today, there is a great demand for sea-coast land as prime residential or Each of these landforms and their physical properties estab- second-home property. Recreational boating, salt water lish parameters for economic and environmental planning sportfishing and swimming at the many broad, sandy and development. For example, in water supply planning, beaches have established a national reputation for the re- deep stratified valley deposits afford excellent opportunities gion's significant tourism industry. This combination of for wells capable of yielding sufficient quantities of ground coastal ambience, of a physical link to the sea, and a sense water for municipal or industrial use. These ground water of heritage mellowed by the sea, contribute largely to the reservoirs are usually of high quality and can transmit as region's quality of life. much as 300 gallons of water per minute or more to indi- vidual wells. In contrast, bedrock or till deposits w1iich Following the retreat of the ice sheets, the rising ocean may lie only a few yards away, rarely yield one hundred chewed into the moraines of sand and gravel. It scoured gallons per minute and generally are capable of being and molded the Cape and Islands and flooded the Boston pumped at only twenty-five gallons per minute. Such wells and Narragansett basins. Bluffs were eroded and the sand are adequate only for individual domestic uses. cast up into long barrier beaches backed with saltmarsh estuaries. The rocky headlands of Cape Ann, Marblehead, Septic tank limitations and bearing capacity are also devel- and Newport project into the Atlantic surf in sharp con- opment parameters determined by soils overlying SENE's trast to the nearby sandy beaches and quiet tidal marshes. landforms. In a glaciated region such as SENE, septic tank capability can vary drastically within a few hundred In these estuaries lie an abundance of fishery and shellfish yards, Such physical characteristics have in the past and resources. The coastal clam and scallop industry have be- will continue to present significant limitations and oppor- come nationally known, and as much as seventy percent of tunities to shape the location and scope of urban develop- the commercially valuable offshore fisheries rely on these ment. same coastal waters as nurseries and feeding grounds. Climate and Water Population: Today and Tomorrow Although the annual precipitation is relatively high, avera- ging 44 inches per year and evenly distributed throughout As discussed earlier, the physical landscape has had s signifi- the year, the Study region must still rely on an outside cant effect on the location and growth of the population source for some of its water supply. Average runoff is centers in the region. SENE's four urban centers are Boston, about 2.1 cubic feet per second for every square mile, ac- Providence, Worcester, and New Bedford/Fall River, and counting for roughly fifty percent of the average annual nearly 80 percent of the region% approximately five million rainfall. The remaining runoff is lost to evaporation, both people have settled in these four areas. While a surprisingly directly and indirectly through plants and soil. large amount of open space still exists, the average popula- tion density is about 960 persons per square mile compared The low landforms of SENE have other fundamentally to averages of about 180 for New England as a whole and important implications in that lack of topographic relief 60 for the nation. restricts the use of dams for surface water supply reser- As elsewhere in the nation, SENE experienced a steady voirs or for flood control reservoirs. The larger rivers, migration of population away from the older central cities which have adequate flows for water supply, have been to less densely settled suburban areas during the last decade. polluted by two centuries of urbanization and industrial Predictably, the direction of these movements of people development. Consequently, parts of the region, as with was, and continues to be, strongly influenced by major virtually every other urban center in the world, have his- transportation systems. Yet, with the exception of the torically supplemented their water supply with imports Route 128 industrial development around'Boston, most of from outside of the region. The major importer of water the employment opportunities in the region continued to in the SENE area is the Metropolitan District Commission be in the four urban centers, which serves the greater Boston area and provides approxi- mately 90 percent of its members' supplies from out-of- However, in the last two years the migration from Boston region sources. has reversed and the city is once again experiencing a slow 2-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made but steady increase in population. While these population what less reliable. (It should be noted that work on im- movements are discussed in more detail in Chapter 3, Guid- proving the population projections used in this Study is ing Growth, it should be clear that it is just as important to continuing. Depending on the availability of data, the be able to determine where people will be as it is to know latest projection information will be incorporated into the how many there will be. final report, after the 90-day review period is complete.) To determine the magnitude of the demand which can be On Table 2.1, the 1990 and 2020 OBERS E population expected to be placed in the region's resources in the next projections are shown for Southeastern New England and 20 to 50 years, the Study used the Series E projections for each of the ten planning areas. Also shown for com- made by the federal Office of Business Economics (OBE) parison purposes are projections made by state and sub- and the Economic Research Service (ERS). These projec- state regional planners. The differences illustrate the diffi- tions, called "OBERS E", are based on the very low birth culty in population forcasting, particularly in smaller areas, rate that the nation is currently experiencing which may and point out the need for periodic updating based on ac- ultimately produce a zero population growth rate. How- tual occurrances and changing trends. Nevertheless, it is ever, because of the disproportionately large number of believed that the OBERS E projections provide a reason- young adults in our population, even this low birth rate able and useful basis for anticipating demand for water will not actually result in a leveling off of the population and related land resources and for developing policies to for almost 50 years. cope with that demand. Any projections, including OBERS E, represent only an The Structure of the Economy educated guess based on observed or expected trends. For the long-range, population projections are likely to be more While by definition a water and related land resources accurate for larger areas, such as the United States as a planning effort, the Southeastern New England Study whole, or multi-state regions, in which variations in the was established, and its recommendations are presented, actual growth of smaller areas will tend to offset each other. in, response to the demands placed on the region's resour- Thus, the projections for the Southeastern New England Re- ces by continuing economic growth. As discussed in de- gion can be used with some confidence, while the figures tail throughout the report, the goal of the SENE Study is for the planning areas and in turn for the towns are some- to accommodate and guide this growth in a manner Which TABLE 2.1 COMPARATIVE POPULATIONS (in 1,000's) Past Projected 1960 1970 1990 2020 PLANNING AREA U.S. Census RPAa-/ StateV OBERSE/ StatetJ OBERSc-/ 1 Ipswich-North Shore 514 584 778 705 772 796 1,035 2 Boston Metropolitan 2,064 2,115 2,329 2,242 2,303 2,904 2,399 3 South Shore 77 116 235 218 238 213 461 4 Cape Cod & Islands 80 107 120 152 165 125 251 5 Buzzards Bay 163 178 215 183 200 204 271 6 Taunton 341 399 559 484 512 583 703 7 Blackstone & Vicinity 810 824 894 886 920 8 Pawtucket 130 154 193 228 318 9 Narragansett Bay 231 291 372 384 553 10 Pawcatuck 54 70 102 88 118 Southeastern New England 4,464 4,838 5,545 5,776 7,029 Massachusetts Portion 3,868 41361 4,605 5,590 Rhode Island Portion 949 1,147 1,144 1,404 Connecticut Portion 21 37 27 35 a/ RPA - Projections by Regional Planning Agencies in Mass. State - Projections by Mass. Office of State Planning & Management and R.I. Statewide Planning Pro- gram (& Southeastern Conn. RPA) c/ OBERS - OBERS SERIES E projections by Office of Business Economics (U.S. Dept. of Commerce) and Economic Research Service (U.S. Dept. of Agriculture) 2-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes ran be made enhances the region's economic opportunities and is con- tivities in Taunton and Brockton, Massachusetts. sistent with its environmental aspirations. What follows, then, is a brief history of the economy of the region, a The, needs of these rising industries fostered the growth of more detailed discussion of its current structure, and an ex- other industrial concerns producing steam engines and tex- amination of the remarkable compatibility between the tile machinery and related items throughout these basins. needs and demands of the region's economy and regional With the opening of the Blackstone Canal from Providence and national environmental goals to Worcester, the completion of the railroad access, Wor- cester, although not on a natural waterway, grew rapidly An Historical Sketch of the Economic Base and became one of the largest and most diversified manu- of SENE facturing centers in the United States. The introduction of the railroad in 1833 played a definite role in'accellera- America's industrial revolution began in mill towns scat- ting, as well as integrating, the productive activity. of the tered throughout New England. The metropolitan areas of growing economy. The economic development of the Boston, Providence, and Worcester which constitute the SENE region began to be handicapped during this stage by hub of the SENE region were the most important centers the shift in primary transportation from water to land. In of economic activity even in the 19th century. Farming, addition, electric power transmitted over great distances the principal occupation'of the early settlers in SENE, be- reduced the role of water power and SENE's streams were gan to give way to shipbuilding and commerce before the generally too small to turn hydroelectric turbines. SENE's end of the 17th century. Newburyport, Salem, Medford, ports were overshadowed by the ports of New York, Balti- and North River, which served as primary shipbuilding more, and Philadelphia which were larger, provided excel- centers, led the nation in the development of mercantile lent overland facilities such as rail connection, and offered trade. By the mid-18th century, trading with foreign ports a faster and more diversified range of auxiliary services to had built major commercial centers all along the region's shippers. coast. - Newport, which was the chief commercial center on Narragansett Bay, also became a summer resort of note dur- With the loss of comparative advantage in water power and ing this period. port facilities, as well as several other dislocations, SENE began to lose industry, especially textiles, to southern Availability of water (an 'd consequently water power) had a states. The stage for the decline of the textile industry in crucial role in early industrial location decisions. The sig- New England was set well before World War 1, but the nificance of the role of water in shaping the economic his- sharpest decline came at the end of the first half of this tory of the region may be seen in the following exqanples. century. Between 1950-1970, the SENE region's share of national textile earnings dropped from 14.7 to 6.0 per- The rivers of the Narragansett Bay drainage basins were cent. harnessed for power production shortly after settlement began. A communal grist mill was operating on the Despite the economic dislocations in the older mill towns, Moshassuck River at Providence as early as 1646. A grant the overall economy of the region has continued to fare for a sawmill on the Pawtuxet River was issued in 1669, well, keeping pace with, or occasionally falling slightly be- and in 1671 a water wheel was installed at Pawtucket low national averages. Falls in the Blackstone River in conjunction with a saw- mill, carpentry shop, and iron foundry. Iron works be- came commonplace and, at the outset of the American Current Structure and Projected Revolution, production in Rhode Island exceeded that in Changes in.the SENE Economy any other colony. An appreciation of regional trends can be gained by examin- ing demographic and employment changes among, and with- The Old Slater Mill, constructed in 1793 in Pawtucket, was in, industry sectors in the region and comparing these chan- the first successful cotton textile mill in America. Soon jes with those in the nation. These are summarized in Table thereafter, cotton textile plants were set up in the Paw- 2.2, which appears on the following page, and serve'as a tuxet Valley at Centerville, Coventry, and Warwick; in Fall basis for the discussion of population and economic trends River, Massachusetts, at the head of Mount Hope Bay; and which follows. in the Blackstone Valley at such places as Woonsocket, Rhode Island and Worcester, Massachusetts. Woolen and Per Capita Income. Per capita income in SENE, a com- worsted textile manufacture came into these river basins mon measure of economic well-being, has consistently been more slowly but gained considerable importance during above the national average. As shown in Table 2.2 in con- the first half of the 19th century. These industries were stant (non-miflated) 1967 dollars, mean per capita income further stimulated by the introduction of steam power in was $2,226 in 1950 and rose to $3,775 in 1970. Current the latter half of that century. During this period, leather projections show an increase to $6,600 in 1990 and $13,900 working and shoe manufacturing became important ac- in 2020 - an almost four-fold increase between 1970 and 2-5 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be mad e Aml@ 2020. Combining this increase in per capita income with total earnings, data in Table 2.3 and Figure 2.2 show the population projections produces a five-and-a-half fold in- changing relative significance of industry sectors for BEA crease 'in total personal income - from $24 billion in 1970 Economic Area 4 and the nation. Figure 2.2 shows that, to $135 billion in 2020. when measured as a percentage of the region's total earnings The implications are considerable. Even allowing for nor- in 1950, 1970, 1990, and 2020, the manufacturing sector mal increases as well as inflationary increases in the relative as a whole shows a decline from 38 to 29 to 22 to 17 per- cent, respectively. Even within the important manufactur- share of the total income used for food, clothing, shelter, ing sector, most of the "dirtier" industries such as textiles, and other necessities, the share available as disposable in- paper, and primary metals are expected to drop in relative come will increase significantly. As leisure time and income importance. The fastest growing sector of the SENE econ- increase, the demands, both direct and indirect, on the re- omy is services - primarily health, business, education, and, gion's resources - land, energy, water - can be expected to the professions. Using the percentage notation employed increase as well. above for manufacturing, the services sector is expected to Employment. From 1950 to 1970 total employment in grow from 12 to 19 to 26 to 33 percent of total SENE SENE increased by over 660--,000. Total in-anufacturing em- earnings. Agriculture, forestry, and fishing are relatively ployment expanded very slowly during the period with most low in regional earnings, although significant in their value rapid growth in the manufacturing sector registered by elec- for ensuring an adequate supply, in quantity and price, of tronic and related machinery, fabricated metals, and ord- some of the region's food and fiber needs. The other eco- nance. By far the greatest growth was in the services and nomic sectors which make up about half the region's earn- financial sectors, increasing 54 and 50 percent respectively; ings, are expected to maintain their current shares. In or- both above the national rate. Within services, professional der of regional economic importance, they are the retail services, including private education, research and medicine, and wholesale trade which together provide about a quarter and business and repair services including consulting firms, of SENE's earnings, and the following four sectors which programmers and other highly skilled activities were the share about evenly the remaining quarter: government, fastest growers. The growth patterns indicate a clear move- finance-insurance-real estate, contract construction, and ment towards an increasingly specialized, service -oriented, transportation-utilities. All, except the last two, of these highly technical economy. sectors can be characterized as generally clean and environ- mentally compatible activities. Industry Mix. With the highly skilled labor force and the region's reputation as a center for technological and scien- Table 2.4 provides location quotients which reflect regional tific development, the trend towards specialization in pro- specialization among selected SENE industries relative to fessional services is expected to continue. With respect to the nation as a whole. The location quotient is determined TABLE 12 POPULATION, PER CAPITA INCOME, EMPLOYMENT, AND EARNINGS: BEA Economic Area 4*; Selected Historical and Projected Years Indicator 1950 1970 1990 2020 Population, midyear 5,163,100 6,354,600 7,739,800 9,707,900 (Comparative figures (4,836,800) (5,776,000) (7,029,800) for SENE) Per capita income 2,226 3,775 6,600 13,900 (1967) Per capita income 1.08 1.09 1.09 1.05 relative (U.S.=1.00) Total employment 2,039,058 2,639,691 3,561,700 4,446,900 Employment/population ratio .42 .46 .46 Employment/population .39 .43 .44 Source: 1972 Series E OBERS Projection Data analyzed for this section are for OBERS (Office of Business Economics and Economic Research Service) Economic Area 4. This area is composed of ten of Massachusetts fourteen counties - Barnstable, Bristol, Dukes, Essex, Middlesex, Nantucket, Norfolk, Ply;inouth, Suffolk, and Worcester; half of New Hampshire's ten counties - Belknap, Carroll, Hillsborough, MerrimacW, and Rockingham, and the whole state of Rhode Island. Parts or all of the ten Massachusetts counties, and all of Rhode Island, are included in the SENE Study area. None of the New Hampshire counties are part of the study area. Thus, the OBERS or BEA (Bureau of Economic Analysis) Economic Area 4 does not exactly conform to the study area, but offers an approximate source of statistics useful for purposes of providing perspective. 2-6 4&47 A 4 2@33 29XI6 26.10 24.78 21 7.23 182 6.7 6.8 a49 1.0 .23 1950 .1970 1990 2020 Agriculture, NOTE: National level figures Forestry & are denoted by Fishing Manufacturing Finance, Insurance & Real Estate Services AII.Others NEW ENGLAND RIVER BASINS COMMISSION PERCENTAGE FIG. BOSTON, MASSACHUSETTS NO. CONTRIBUTION OF SELECTED INDUSTRY SECTORS 2.2 SOUTHEASTERN NEW ENGLAND, TO TOTAL EARNINGS: WATER AND RELATED LAND RESOURCES STUDY BEA ECONOMIC AREA 4 AND THE U.S. 2-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made TABLE2.3 RELATIVE CONTRIBUTION OF INDUSTRY SECTORS TO TOTAL EARNINGS: BEA Economic Area 4 and the U.S., Selected Historical and Projected Yens Sector 1950 1970 1990 2020 Total Eaminp 100 100 100 100 Agriculture, Forestry, 2.00 0.69 0.40 0.23 & Fishing (9.11) (3.49) (1.96) (1.10) Mining 0.07 0.05 0.04 0.02 (1.99) (1.00) (0.62) (0.37) Contract Construction 5.68 6.48 6.24 5.63 (5.97) (6.13) (6.06) (5.53) Manufacturing 37.91 29.06 22.15 17.23 (29.01) (27.79) (24.78) (21.39) Transport, Communication, 6.45 6.26 6.52 6.37 & Public Utilities (8.17) (7.10) (6.90) (6.68) Wholesale & Retail Trade 19.41 17.06 15.54 13.56 (18.94) (16.55) (15.22) (13.65) Services 11.82 18.85 26.10 .32.33 (11.18) (15.13) (19.94) (23.49) Professional Services 12.58 19.29 24.60 (9.28) (13.75) (17.51) Government 11.78 15.41 16.29 17.72 (11.39) (17.66) (18.37) (19.97) Finance,lnsurance, 4.89 6.14 6.71 6.91 & Real Estate (4.23) (5.14) (6.15) (6.81) Source: 1972 Series E OBERS Projection Figures in pertain to the U.S. TABLE 2.4 LOCATION QUOTIENTS*-FOR SELECTED INDUSTRIES: IBEA Economic Area 4, 1950,1970, 1990, and 2020 (Ranked by 1990) Selected Industry 1950 1970 1990 2020 Forestry & Fishing 2.41 2.71 2.62 2.57 Miscellaneous Manufacturing 2.35 --- 1.65 1.44 Professional Services 1.19 1.36 1.40 1.41 Business & Repair Service .94 1.3 1.24 1.18 Wholesale & Retail Trade 1.02 1.03 1.02 .99 Utilities 1.00 1.02 .99 .97 Textile Mill Products 4.12 1.71 .97 .63 Electrical Machinery --- 1.19 .96 .82 Apparel & Other Products I.15 1.12 .81 .61 Paper & Allied Products 1.40 1.05 .75 .62 Food & Kindred Products .79 69 .69 .70 Transport Equipment .90 .57 .51 .46 Lumber & Furniture .59 .56 .44 .38 Chen-dcals & Allied Products .55 .46 .46 .44 Primary Metals .73 .53 .41 .36 Railroad Transport .47 .31 .32 .31 Nonmetallic Mining .25 .30 .32 .31 Agriculture .19 .16 .15 .15 Source: 1972, Series E OBERS Projections Location Quotient = Area industry as percent of total area earnings U.S. industry as percent of total U.S. earnings 2-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made by dividing the proportion of earnings stemming from a Sub-Regional Differences Within given industry in a given region by the proportion of national the SENE Economy earnings accounted for by this industry. A ratio greater than one means that the industry is proportionately more import- While this chapter deals with the SENE economy as a whole, aInt in the region than in the nation. This is taken to repre- there are marked differences among sub-regions within sent a degree of regional export specialization in that in- SENE. For example, coastal portions of Massachusetts and dustry, and the larger the ratio, the more export oriented Rhode Island represent small but rapidly growing residential the industry. A change in an industry's location coefficient and retirement areas with strong Irecreation, and until recent- over time reveals a change in the export specialization in ly, military sectors in their economic structure , In other. the industry. areas, manufacturing and services play important roles, with greater Boston prominent in this group. A review of Table 2.4 underscores several interesting devel- opments and features of the industrial mix in the SENE By any measure of population, earnings or per capita income, economy relative to the rest of the nation. The industries the greater Boston sub-area dominates the remaining sub-areas with the largest location quotient in 1950 were forestry of SENE (Figure 2.3). Boston serves as the regional center for and fishing, and textiles. By 1970, the picture was consid- government, profe ssional services,. finance, insurance, real es- erably different for textiles. 'Both textiles and apparel are tate, business, and repair services, wholesale and,retail trade, also the sectors which are projected to greatly decline in printing-publishing, and technical manufacturing (electrical specialization between now and 2020. In addition, the re- and computer equipment). No other area in the region en- gion's deficiency in nonrenewable natural resources is em- joys such diversification of economic activity. phasized by the extremely low quotient in the mining sector and also in the chemicals sector which, in large mea- Providence-Pawtucket-Warwick, Fall River-New Bedford, sure, depends on the availability of minerals, natural gas and Worcester-Fi.tchburg-Leominster are important manu- and oil, and low-cost energy in the region. On the other facturing areas, although each contains a small amount of hand, the development of greatest significance is the in- services activity. Wholesale and retail trade, finance, insur- creasing strength of professional services as an export ance, and real estate have recently become more significant oriented industry. In 1950, its location quotient was 1. 19, in.the Providence sub-area. roughly indicating self-sufficiency. But, by 1970, the quo- tient had risen to 1.36 and is expected to rise further. FIGURE 2.3 POPULATION AND EARNINGS OF SUBAREAS AS PERCENT OF BEA ECONOMIC AREA 4,1969 Greater Boston .58.6 163.8 Providence-Pawtucket-Warwick 12.1 1 111.1 Worcester-Fitchburg-Leominster 10.1 r7y;0 Fall River-New Bedford 7.0 55.5 Coastal Rhode Island 2.8 H2.4 1.7 Coastal Massachusetts P1.2 92.3 SENE 193.4 ===I 100.0 BEA Economic Area 4 1100.0 KEY: Population Earnings 2-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Variations in per capita income within SENE are shown in tional average in 1950 to below the national average in AdilkL Table 2.5, The higher than average income found in the 1969 suggests local, but substantial, continuing economic greater Boston and Providence-Pawtucket-Warwick sub- distress. These subregional differences in per capita income areas is charact@ristic of larger metropolitan areas. During reflect a certain amount of non-integration of the economic the period 1950-1969, greater Boston's per capita income activity within the region, following the departure of tex- increased from eleven percent to sixteen percent above the tiles into the 1950's. national average. This is explained by employment of a larger proportion of population than the U. S. average, In summary, an analysis of the current and projected struc- higher per capita property incomes than the U. S., slightly ture of the SENE economy yields three major conclusions: higher occupational skill of labor force, and an increasingly favorable industry mix. (1) Earnings and employment in manufacturing have become relatively, but not absolutely, On the other hand, the decline in per capita income in less important when compared with other Providence from eleven percent to three percent above the sectors. The direction of this structural national average during the same period, is indicative of change is much stronger in SENE than in the the fact that Rhode Island's labor force is not as well- nation as a whole. educated or well-trained in high demand skills as the labor force for the region as a whole. Further, that area is in a (2) Within the manufacturing group, employ- transition in its industrial mix, moving from an economy ment in non-durable industries has decreased based on textiles and military installations to one where markedly while employment and earnings in durable goods manufacturing and services play more im- durable goods industries, particularly machin- portant roles. ery production, has increased sharply. The condition found in the Worcester-Fitchburg- (3) Several sectors, such as financial, civilian, gov- Leominster sub-area and the Fall River-New Bedford sub- ernment, and services, have expanded at a ra- area where per capita income declined from above the na- pid rate. However, the most substantial in- TABLE 2.5 PER CAPITA INCOME: SOUTHEASTERN NEW ENGLAND STUDY AREAS; 1967 Dollars and as a Percent of National Average, 1950 - 2020 Per Capita Income 1967 Dollars Study Area 1950 1969 1990 2020 Greater Boston 2,283 3,965 6,809 14,870 (1.11) (1.16) (1.10) (1.04) Providence-Pawtucket- 2,291 3,515 6,281 14,518 Warwick (1.11) (1.03) (1.02) (1.02) WOTcester-FitchbWg- 2,245 3,352 6,122 14,128 Leominster (1.09) (.98) (.99) (.99) Fall River-New Bedford 2,113 3,220 5,805 13,238 (1.02) (.94) (.94) (.93) Coas-tal Rhode Island 1,944 3,127 5,710 13,308 (.94) (.92) (.93) (.93) Coastal Massachusetts 1,949 2,781 S,181 12,407 (.94) (.81) (.84) (.87) SENE 2,255 3,736 6,530 14,530 (1.09) (1.09) (1.06) (1.02) BEA Economic 2,226 3,696 6,600 13,900 Area 4 (1.08) (1.08) (1.05) (1.02) Source: U.S. Department of Commerce, Bureau of Economic Analysis Figures in show percent of national average 2-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made creases have occurred in the professional serv- of economic growth, and preservation and management of ices and business and repair service industries. the environment in SENE. In short, there is a clear trend away from low skill and non- Moreover, the strong trend towards specialization in pro- durable industries and towards high skill, high education, fessional services and other high-skill industries implies and high technology activities. The region is expected to that the economic health of the region is dependent upon continue to show a strong orientation in these directions. its ability to attract creative people and industries which, in turn, is partially a function of the quality of the natural As a result of these trends, a fairly clear picture of the re- environment. This implies that the natural resources of the gion's development atmosphere emerges. There are both region will gain importance as "consumer" goods as opposed positive and negative features. The positive features are: to "producer" goods in the conventional sense. (a) a mature and highly urbanized economy; Opportunity for Decentralization of Economic (b) clearly established metropolitan centers of Activity. The service sectors are currently concentrated in growth, metropolitan areas (particularly around Boston), yet an op- (c) a relatively highly educated and well trained portunity exists for their decentralization without loss in labor force, economic efficiency. This is especially true for finance, in- (d) a national reputation as a center of technologi- surance, and consulting firms. The point may be clarified cal and scientific development; through the use of the concept of a "foot-loose" industry. (e) a comparatively good location for import of in- dustrial raw materials; and An industry is "foot-loose" if not constrained by the neces- (f) an aesthetically pleasing environment within a sity of close proximity to its input and output markets. In short distance of the metropolitan areas. other words, procurement or distribution costs are not overriding locational factors and, thus, the industry is rela- On the other hand the area has certain negative economic tively free to locate anywhere good personnel, transporta- features. They include: tion, and communication conditions exist. (a) declining traditional industries creating tem- The nature and requirements of these relatively "foot-loose" porary labor and capital dislocation; industries afford a good opportunity for public policy to in- (b) a higher cost of living than the national average; fluence the development of an overall locational pattern. (c) a higher than national average rate of property That is, this kind of industry has the potential for being and state taxes; amenable to public locational controls, and thus offers (d) higher unemployment than the national average; planners and policy-makers an opportunity to guide growth (e) higher energy costs than the national average; and enhance the natural landscape without adversely affect- (f) with the exception of sand and gravel and ing overall economic efficiency. stone, a lack of economically extractable min- erals; and Therefore, with policy direction, the Worcester- Fitchburg- (g) poor access with respect to national markets. Leominster, Fall River-New Bedford, and Providence- Pawtucket-Warwick sub-areas may be able to gain a larger implications share of future economic activity than might otherwise be the case. This may lead to lower and more manageable In the light of the region's major economic trends and the rates of increase in pressures on land use, and costs of con- resulting development atmosphere, what are the implica- struction in other metropolitan areas. tions for future economic development and the demands placed on the resource base? Continuing Need to Upgrade Region's Labor Force. The trend towards continued growth of profes- Relatively Lower Growth in Direct Demand for sional services also points to a continuing need for programs Natural Resources. The changes in the industrial com- to upgrade the professional ability of the region's labor position of the region imply that the economic activity re- force. This, in turn, implies that more and more funds may lated to the production of marketable goods and services have to be devoted to expand and improve educational, re- will place a relatively lower demand on the region's water search, and training facilities. Policy decisions will be and related land resources in the form of direct require- needed however to determine where, both geographically ments. This implies that the chances for meeting national and economically, such investments will yield the greatest environmental goals for cleaner water and air may be some- returns. what more favorable than one might expect for SENE. This situation tends to underscore at least in one area, the non. Changed Nature of Economic Fluctuations. A conflicting nature of the relationship between the objectives heavy reliance on activities such as education, research, ord- 2-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made nance, and electrical machinery, has led to the expression of SENE. The economy of the region benefits from recrea- of some concern that the workers in these industries are tional activities through the generation of seasonal and full more directly exposed to the vagaries of the public budget time employment, tax revenues, and the ready availability processes than workers in other industrial sectors. In any of recreational opportunity for the work force. On the period of fiscal austerity, the problem of unemployment in other hand, exploitative and unabashed use of the resources these industries can be severe, though temporary. However, for recreational activities will conflict with the objective of the long-term economic and social implications of such restoring and maintaining the quality of the environment. fluctuations are expected to be much less severe than would The issue is not merely one of quantity of natural resources be the case if the economy continued to rely heavily on the to be devoted to recreational uses, but also of maintaining production of non-durable consumer goods. Moreover, to (or even improving) the quality of the recreational experi- the extent that the threat of severe economic fluctuation is ence and the physical environment of the region. reduced, a community's willingness to address itself to en- vironmental quality issues will be more likely to increase. The issue is further complicated by the fact that over 85 per- cent of the total recreational shoreline in SENE is privately Conflicts between Economic and Environmental owned and a vast proportion of this land is not accessible Objectives for public recreation. This situation is not likely to improve if private market forces are allowed to continue to dominate Unfortunately, the situation may not be as simple as the the allocation of the use of coastal lands. foregoing discussion indicates. Conflicting demands on water and related land resources exist and must be con- Conclusion from an Economic-Resources sidered. Perspective As discussed in Chapter 9 of this report, there are increasing It should be apparent from the above discussion that, while pressures for the location of one or more refineries in the the conflict between conventional economic and environ- SENE region. The petroleum iefining industry is known to mental use of the region's resources has, to some extent, be a major water user and discharger of pollutants. More- been alleviated by the transition towards a service economy, over, the region's power generating capacity will have to be it has not been resolved completely. expanded, even with strict consumption rate reduction mea- sures. Thus, without strong siting and operating guidance, The Iregion's physical character is one of its major assets the water and land requirements of power plants and refin- with direct and indirect potential for economic develop- eries have the potential to be in conflict with environmental ment. The region may be unique in the nation in that re- quality objectives. gard. Direct resource related industries such as tourism, recreation, forestry, and aquaculture have strong growth In addition, the future consumption of land for urban pur- potential. Indirectly, the quality of the environment is a poses will be an important factor. During the 1960's, about potent factor in the region's ability to attract and retain 182,000 acres were developed for residences, businesses, in- the highly skilled, highly selective, and amenity-oriented dustries, institutions, and transportation facilities while the labor force, and the growth industries which employ them. region was growing by almost 375,000 people. This amounted Having lost its initial competitive advantage in manufac- to a rate of urbanization of about one-half acre per capita turing, the future economic health of the region depends in during that 10-year period - four times higher than the av- large part in maintaining the competitive advantage it now erage rate of land consumption since the Pilgrims landed in enjoys in services and "foot loose" industries. To maintain 1620. that advantage the region must maintain its natural land- scape, the main attraction. To improve its competitive ad- If this recent rate of urbanization should continue, the pro- vantage, the region must improve its natural landscape. jected increase in population in Southeastern New England Growth achieved by the misuse of the quality of the re- of 939,000 people between 1970 and 1990 would consume gion's water and related land resources will have adverse' another 470,000 acres, almost equal to the present area de- effects on its long term economic stability. The contribu- voted to urban uses. Even if the projected population tion that the remaining natural resources in the SENE growth occurs, however, the rate of land consumption need region can make to the economy is significant. The recog- not be as high. Both the need and the opportunity for strong nition of the mutual importance of economic growth and environmental management are indisputable. environmental quality in the SENE area is-a key to en- lightened natural resource policy-making and is the funda- The likelihood of a significant per capita increase in demand mental theme of this Study. for outdoor recreational facilities from the SENE residents has already been pointed out. Additionally, the region's recreational resources are also going to be pressured by out- siders, 50 million of whom are within an easy one day drive 2-12 PUBLIC REVIEW, DRAFT SUBJECT TO REVISION Line by Line Changes can be made Resource Management Institutions State In order to further understand the dynamics of the region, The role of the states of Massachusetts, Rhode Island, and it is important to have a sense of the actors and institutions Connecticut in resource management decisions in the re- which make natural resources decisions in SENE. This sec- gion is a potentially strong one. Federal committment to tion will briefly describe the governmental responsibilities this policy is evidenced by th *e role the states play as a re- in the region. More detailed discussion is found in Chap- suit of such key legislation as the Federal Water Pollution ter 10. Control Act Amendments of 1972 (FWPCAA, 1972), and the Coastal Zone Management Act. An example from the Federal FWPCAA of 1972 characterizes the state role: A large number of federal agencies are involved in resource "It is the policy of Congress to recognize, pre- planning, regulation, technical and financial assistance, and serve, and protect the primary responsibilities policy development. Areas of resource management include and rights of states to prevent, reduce, and eli- water, land, air, and wildlife. Because of the number of minate pollution, to plan the development and agencies involved in these activities, a discussion of all of use (including restoration, preservation, and the specific federal programs would be impractical at this enhancement) of land and water resour- point in the report. However, the agencies involved in ces. . . ." (Section 101). carrying out functional recommendations are discussed in the chapters which follow in this report. State level agencies are currently involved in program ad- ministration, provisionof funding, and technical assistance, Interstate and Regional and regulatory activities in resource management. Because of the primary role the states will be playing in natural re- The most prominant interstate bodies in the SENE area in- source management, it is worth reviewing the current re- clude the New England Regional Commission and the New sponsibilities of the existing institutional framework for England River Basins Commission. The former, established the two states which comprise the largest portion of the under Title V of the Public Works and Economic Develop- SENE area. ment Act of 1965, is responsible for strengthening regional economic development. The latter, established under Title Massachusetts. In Massachusetts, policy development 11 of the Water Resources Planning Act of 1965, serves as for the state's physical resources is currently the responsi- the principal agency at the regional level for coordination bility of the Cabinet, replacing what was formerly the re- am .ong the major federal-state natural resource decision- sponsibility of Resource Management Policy Council making programs, and is charged with the preparation of a (RMPQ. This Council was designed to aid program coordi- comprehensive, coordinated, joint plan for management of nation among state air quality, water quality, coastal zone, water and related land resources of the region. This is land use, and rural development programs. carried out by the Commission through its studies of re- gional problems and needs as inputs to state decision- The RMPC's Coastal Zone Task Force, under the direction making processes, and through its comprehensive, multi- of the Secretary of Environmental Affairs, prepared the purpose management programs such as the Southeastern state's application for federal funding under the Coastal New England Study, the Long Island Sound Study, and the Zone Management program. Funds have now been Connecticut River Basin Program. awarded to the Office of Environmental Affairs for plan- ning and program development. Yhe RMPC Task Force on The New England Governors' Conference, which is composed Land Use, under the leadership of the Department of Com- of the six New England governors, also exists to coordinate munity Affairs, developed alternative comprehensive land state activities with. regard to natural resources. A Federal use strategies for the state as a whole, including some of Regional Council has also been established for the New Eng- the features of the recently enacted Martha's Vineyard law land region. This council is to improve the administration which provides for regional review of development and of federal grant programs in the region by improving pro- areas of critical concern. gram operations, developing funding programs in- coopera- tion with state and local officials, and encouraging joint and Under the state government reorganization, the Executive integrated grant applications. Finally, other special-purpose Office of Environmental Affairs will be authorized to plan organizations, such as the New England Interstate Water and carry out the state's environmental policies, and will Pollution Control Commission, exist to coordinate specific combine the functions of the present Department of functional activities in the region. Natural Resources, the air quality programs of the De- partment of Public Health, the solid waste functions of the Department of Public Works, th 'e Department of Agricul- ture, and the Metropolitan District Commission (MDQ into 2-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made six major departments: Environmental Quality Engineer. Local ing, Environmental Management, Food and Agriculture, Fisheries, Wildlife and Recreational Vehicles, and the As is typical of the rest of New England, the SENE region is MDC. The state has also recently created an Energy Fa- characterized by a tradition of strong local involvement in cilities Siting Council authorized to review long-range plans resource decision-making. Local governments make many and proposed site locations for electrical power generation of the most critical water and related land management de- and natural gas refinement. cisions. Local governments regulate the many land uses (including flood plains) through the administration of zon- Water management programs are currently the responsibil- in- ordinances, bylaws, subdivision controls, and permit ity of the Water Resources Commission and administered in systems for a variety of developments and land-disturbing that Commission by the Division of Water Pollution Control activities. The existence of local conservation commissions and the Division of Water Resources. gives a focal point to local environmental interests, and by law in Massachusetts, they are charged with responsibility Rhode Island. In Rhode Island, the State Planning for administering the wetlands protection program and Council composed of state, local, and federal representa- also have a role in open space acquisition. With one or two tives, provides overall resource policy direction insofar as it notable exceptions, water supply is also a local matter, us- reviews and adopts elements of the State Guide Plan. The ually limited to supply development on a town-by-town State Guide Plan outlines policies for land use, water and basis by municipal agencies and private water companies in sewer service, water quality, transportation, recreation, eco- conformance with state standards to ensure protection of nomic development, and historic preservation. The plan is public health and water quality. Special interest organiza- prepared by the Statewide Planning Program, the central tions, such as the various watershed associations and citizen planning agency for the state government and the clearing- gr oups, proliferate at the local level and have played a vital house for federal grant administration. The Department of role in influencing decision making. Because the communi- Natural Resources administers many programs related to ties ratify actions proposed by their selectmen at town parks and recreation areas, forests, fish and wildlife, agri- meetings, the towns can bring significant pressure to bear culture, land acquisition, freshwater wetlands, shoreline and on resource management in Southeastern New England. In tidewaters. Close coordination between the activities of light of this political and social reality, special emphasis on the Department of Natural Resources and the Coastal Re- local issues and control must be given to the design of any sources Management Council (CRM[C) is maintained since water and related land management program for SENE. the department, through its Division of Coastal Resources, The SENE region contains more than two hundred munici- provides staff to the CRMC. pal bodies which makes the securing of local concensus on resource management an extraordinarily difficult task, The CRMC is responsible for planning and management of coastal resources, and administers programs in the coastal Although county government does exist in the SENE region, area such as those for wetlands. It also regulates selected it is largely an anacronism. Substate regional institutions uses and activities in that area, such as power plants, sewer are not altogether lacking, however. In Massachusetts there treatment plants and solid waste plants, so as to assure are eight regional planning agencies whose responsibilities consistency of uses with standards and plans for protection include, in addition to reconciling various local plans within of coastal resources. The CRMC is also involved in the their jurisdiction, a role in reviewing local grant applications state's coastal zone management program under the Coastal as part of their designation as A-95 clearinghouse agencies. Zone Management Act. In Rhode Island, the Statewide Planning Program provides these functions over the entire state. A number of special Water quality, air quality and solid waste disposal are regu- purpose organizations, such as watershed districts and sewer lated by the state's Department of Health. The Department districts also exist in both states. In the Boston metropoli- of Community Affairs provides technical planning assistance tan area, water supply, wastewater management, and other and administers federal grants to local governments. municipal services are performed by the Metropolitan Dis- trict Commission. Although it is a creature of state gov- ernment, the commission services and supplies only the Long-range water resources planning is conducted by the Boston rhetropolitan region. Water Resources Board, which also approves water supply distribution systems. With the approval of the Governor, this Board is authorized to acquire dams and construct or Current Public Perceptions purchase reservoirs. Finally, the Economic Development Corporation, designed to stimulate industrial and economic More often than not, the perceptions of the planner and the growth in the state, is authorized to construct and develop general public on priority natural resource problems differ. utility facilities and port projects. The planner in metropolitan Boston is worried about the area's critical water shortage. The citizen whose faucet con- 2-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made tinues to yield water is not. The citizen is angry that he can- formly concerned about the slow pace of water quality not swim in local streams and rivers. The planner knows improvements and unwilling to make commitments, whe- that water quality improvements are proceeding well. For ther financial or otherwise, to actions which depend on a plan to work, it must recognize and address these differ- clean streams and rivers. Finally, the citizens who partici- ences in perception. pated, probably more so than the general public are less concerned about the future availability of water supplies Southeastern New England's people are unusually well ac- than they are about the effect water supply development quainted with environmental issues. In Massachusetts es- can have on patterns of growth. pecially, the town conservation commissions keep environ- mental concern near the forefront of public discussion. As While the several major issues as described above, surfaced a result a proportionately larger segment of the general at most public meetings, SENE is unique in that its public public in SENE can be considered citizen environmental is primarily concerned with its perceptions of local issues. activists than in the nation as a whole. Active watershed associations, and other citizen groups identify with their own concerns: growth and its effect on To understand their perceptions of the key resource issues water supply and wastewater management on Cape Cod; and determine their preferences among the many alterna- water supply in the Ipswich-North Shore and Greate 'r tive solutions to these problems, the SENE Study created a Bosto regional Citizens Advisory Committee and ten individual n area; and management of regional beach opportuni- river Basin Advisory Committees, and held meetings ties in the Pawcatuck Planning area in Rhode Island are a throughout. the Study region at each critical step in the few examples. The perceptions of the public based on un- planning effort. It was not always easy for planners and derstanding of its locale are as fundamental to resource citizens to reach concensus. On occasion interest flagged planning in New England as the recognition that local gov- and attendance at meetings dropped. But on the whole, ernment is a major decision force. both planners and citizens benefitted, and to a great extent This chapter has described the setting of the Study area in the Study's recommendations reflect the key concerns and terms of its geography and its people. The changes toward preferred solutions of those many citizens who chose to a service based economy in SENE may alter some precon- take advantage of the opportunity to participate. ceived notions about the potential for a continuing and in- While variations in emphasis exist from one sub-area of the creasing threat of serious pollution problems. The steady Study region to the next, there was surprising unanimity shift in the industrial composition of the region to one among those citizens who attended SENE's many work- which places a lower direct demand on the region's water shops and public meetings. Sprawl and the related effects is encouraging. The past decade has been characterized by of uncontrolled growth is their major concern. Within the a significant environmental awareness. The next decade, limits of reasonable economic opportunities, most people given the current state of economy, may see a shift in the prefer some method of directing future growth in such a other direction. As shown in this chapter, the complemen- manner as to preserve some sense of open space and the tarity does exist between economic growth and the main- natural beauty which drew them to, or kept them in, the tenance of a quality environment. region in the first place. In most areas of the Study region, The Study was guided by these concerns and its recommen- participants agree about the value of enhancing recreation ded resource management program, to a very great degree, opportunities for the tourism value but worry more about responds directly to them. Ultimately, if the recommenda- the general disappearance of natural areas. They are uni- tions are to be implemented, they must be responsive. 2-15 CHAPTER 3 GUIDING GROWTH The Setting interceptor sewers, influence the location of development. Proposed national land use legislation would put the states The growth of a region and the quality and quantity of its in firmer control through state review or guidance of sig- water and, related land resources are closely interrelated. nificant local actions. The link may be somewhat less direct than it was when most of the people in Southeastern New England farmed This chapter concentrates on setting forth basic principles or fished for their livelihood, but it is there nevertheless. upon which an overall strategy for natural resources man- New development creates demand for water - for drinking, agement can be built. It draws on Chapter 1, Goals and for waste disposal, for recreation, and many other purposes. Approach, and Chapter 2, 1he Setting, which provide a New development consumes land and often encroaches on framework and an order to deal with water and related such water related lands as flood plains, wetlands, and lands lands from an integrated, resource perspective. Many overlying ground water. The degree to which water demand cross-references to other portions of this report are made, and land consumption becomes a problem depends not emphasizing the strong interrelationships which exist with simply on the amount of development, but also on its type, functions covered in other chapters. The material pre- density, and location. When water demand and land con- sented in this chapter is fundamental to virtually every sumption do become problems, the effects of growth be- other chapter i n this report. This is demonstrated in Chap- come inhibitors of future growth, and the quality of life ter 11, 7@zng the Recommendations Together. There, the suffers. interrelationships of all Study recommendations are set forth on tables in summary fashion. Decision-making which affects the character of growth is multi-faceted. Decisions by private landowners, developers, The principles and rationale set forth in Chapter 3, Guid- businesses, and others have the prime impact on land use, ing Growth, provide a sound basis for guiding growth not determining the exact location, type, and timing of devel- only in Southeastern New England, but in other regions in opment according to their needs. Local governments have the nation as well. The institutional structures necessary the primary responsibility for governmental regulation to implement these recommendations will vary according through zoning, subdivision controls, building codes, and to location; they are treated in Chapter 10, Strengthening other regulations; local investments in streets, sewers, and the Management System for Natural Resources, near the water facilities also strongly influence development pat- conclusion of the Regional Report. terns. The objective of Chapter 3, Guiding Growth, is to suggest. Substate regional planning agencies, like those in Massachu- strategies for protecting the critical water and related land setts, presently are responsible for planning on a multi-town resources of Southeastern New England while accommodat- basis but have no power to execute the plans. Their role is ing future economic activities; and to suggest ways that increasing and may include greater authority to represent growth might be guided to preserve the amenities of the the concerns of their constituents in state program decisions. region and the quality of its resources. The chapter first Other substate agencies, such as transportation authorities, investigates recent growth trends in Southeastern New Eng- regional water and sewer authorities, and counties, influ- land and examines the effect that growth has had on the ence development through public investments; some spe- region's resources. Second, alternative ways of protecting cially formed institutions such as that on Martha's Vineyard critical environmental areas and guiding growth to areas have broad land use regulatory authority, suitable for development are examined. Finally, several recommendations are made to provide for the expected State government plans and regulates to varying degrees; growth of the region in a manner which is sensitive to the Rhode Island has formulated but not adopted a land use development capabilities of the region's water and related policy and plan, and regulates only with respect to certain lands and to the contribution they make to the quality of resources such as those in the coastal zone and wetlands. life in Southeastern New England. Massachusetts has not formulated a land use policy or plan but has enacted comprehensive regulation on Martha's This Chapter does not present a comprehensive land use Vineyard in addition to regulations for power plant siting plan for Southeastern New England because major growth and wetlands preservation. States also influence develop- concerns such as housing, transportation, and housing, ment through other regulatory programs, investment deci- which should be part of such a plan were considered only sions, acquisitions, and fiscal policies. Federal governmen- to the extent of their interrelationships with water resour- tal agencies, such as the Environmental Protection Agency ces. However, the detailed analysis of the several steps through its air and water quality programs and funding of recommended. to control the use of water and related land PUBLIC RliVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made resources while accommodating needed growth, constitute to change? The reasons are found by examining a number a basic first step in the development of a regional growth of important trends. policy and comprehensive land use plan. Population Growth. Between 1960 and 1970, The Situation SENE's population grew from 4,460,000 to 4,838,000, an 8.5 percent increase. As might be expected, however, this General Growth Trends growth was not evenly distributed. Of the major urban centers, the area encompassing Boston and its southern Land Use Changes. Table 3.1 shows that between suburbs grew the fastest with a 15 percent increase. The 1960 and 1970 lands used for urban development increased Providence metropolitan area followed with an I I percent by almost 50 percent, primarily at the expense of agricul- rise. Fully 81 percent of SENE's population now lives in tural and forest lands. In 1970, of SENE's 2,865,000 acres, urban areas. Some of the less densely populated parts of 5 percent was in water, about 56 percent was covered by the region, however, experienced much higher rates of forest ( a 5 percent reduction from 1960), about 6 percent growth-. Barnstable County registered a 38 percent increase. was open space (an increase of 0.6 percent, but the cate- gory includes a 9 percent decrease in wetlands), about 12 Land Consumption. Since 1946, new residential de- percent was in agriculture (a decrease of 24 percent), and velopment has consumed land at an increasingly rapid rate. the remaining 21 percent was urban. Similar disaggrega- Between 1960 and 1970, land in SENE was consumed at tions are shown in Table 3.2 for each planning area. These the rate of one-half acre for every new addition to the pop- figures emphasize', as noted in Chapter 2, The Setting, the ulation, compared to an historical average rate of only one- conflict between the simultaneous demands of a growing eighth of an acre per person. population for land for development and for preservation of the natural areas that make for a pleasant living envi- Populations for SENE and its ten planning areas for 1990 ronment. and 2020 were shown in Chapter 2 on Table 2.1, The 0.8 percent annual rate of population growth during the 1960's Why has the use of land changed and why will it continue is expected to continue through 2020. If projected popu- TABLE 3.1 LAND USE CHANGES IN SENE, 1960 to 1970 Acres (in 1000's) % Total Area % Change Category 1960 1970 1960 1970 By Category Water Area 133 144 4.6 5.0 + 8.3 Land Area 2,732 2,721 95.4 95.0 0.4 Fprest 1,693 1,601 59.1 55.9 5.4 Open (160) (161) (5.6) (5.6) (+0.6) Salt Wetlands 51 44 1.8 1.5 -13.7 Freshwater Wetlands 71 67 2.5 2.4 - 5.6 Other incl. Recreation 38 50 1.3 1.7 +31.6 Agriculture (459) (350) (16.0) (12.2) (-23.7) Agriculture 287 205 10.0 7.2 -28.6 Open Transitional 172 145 6.0 5.0 -15.7 Urban (420) (609) (14.7) (21.3) (+45.0) Low Intensity 22 37 0.8 1.3 +68.2 Medium Intensity 71 98 2.5 3.4 +38.0 High Intensity 261 382 9.1 13.4 +46.4 Transportation 30 42 1.0 1.5 +40.0 Industry 19 26 0.7 0.9 +36.8 Extractive & Disposal 17 24 0.6 0.8 +41.2 Total Area 2,865 2,865 100% 100% 0% Source: See Methodology Forest flgures include forested freshwater wetlands which totaled 224,000 acres in 1970. 3-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made lations are accommodated in the SENE region at densities or septic tanks) f6r disposal of wastewater. It is estimated similar to those experienced in the 1960's, about 37 per- that more than half of these individual disposal systems cent of the region will be urbanized by 1990, and about will have to be replaced by sewer connections because the 50 percent by 2020. lots are too small to assure continued protection of surface and ground water. Sewering and Water Supply. Of the region's 1970 population of 4.8 million, 70 percent lived in dwellings In 1970, 95 percent of SENE's 4.8 million people were which were connected to public sewers. As shown in served by municipal water supply systems; the remainder Table 3.3 sewer service varied from a high of 87 percent of relied on individual wells for their water. Municipal water the population in the Boston Metropolitan area to only 12 supply systems served a high of over 99 percent of the percent on Cape Cod and the Islands. The remaining popu- South Shore planning area population and a low of 61 lation was dependent on individual on-lot systems (cesspools percent of the Pawcatuck planning area population. 4 TABLE 3.2 LAND USE IN SENE PLANNING AREAS IN 1970 Acres Percent (%) of Planning Area Planning Area (in 1000's) Water Forest* Open Agriculture Urban Ipswich-North Shore 274 6 47 11 10 26 Boston Metropolitan 421 3 42 5 9 41 South Shore 172 5 61 7 8 19 Cape Cod & Islands 378 9 57 8 11 is Buzzards Bay 205 6 57 6 17 14 Taunton 351 5 60 4 13 18 Blackstone & Vicinity 410 3 59 3 13 22 Pawtuxet 180 4 73 2 9 12 Narragansett Bay 212 5 41 5 24 25 Pawcatuck 262 4 72 4 12 8 SENE 2,865 .5.0% 55.9% 5.6% 12..2% 21.3% Source: See Methodology *Figures for forest include forested freshwater wetlands TABLE 3.3 POPULATION SERVED BY SEWERS IN SENE PLANNING AREAS 1970 Population (in 1,000's) Served by Sewers Unserved but Planning Area Total No. % Requiring Sewers Ipswich-North Shore 584 410 70 101 Boston Metropolitan 2,115 1,832 87 183 South Shore 116 .19 16 52 Cape Cod & Islands 107 13 12 14 Buzzards Bay 178 123 69 25 Taunton 339 219 55 115 Blackstone & Vicinity 824 609 74 145 Pawtuxet 154 91 59 36 Narragansett Bay 291 75 26 168 Pawcatuck 70 15 21 15 SENE 4,838 3,406 70% 854 Source: See Methodology Assuming that all unserved dwellings on lots of 1/2 acre or less will require sewer service to protect water resources. 3-3 - ----------- 1970 1990 2020 Current and projected areas with population density greater than 1000 people per square mile. Source: OBERS Series E. NEW ENGLAND RIVER BASINS COMMISSION FIG. NO. BOSTON, MASSACHUSETTS URBANIZATION PATTERNS 3.1 SOUTHEASTERN NEW ENGLAND OF THE SENE REGION WATER AND RELATED LAND RESOURCES STUDY 3-4 LEGEND High Medium-high Medium-low Low Based on indices relating to past rates of growth, accessibility _j and land availability. Other more detailed data may produce different results. MAS,SAcm&srr" I AwrAw RAY 4 vl-@;@@..i_^) 4 t A r L A m ri c ocrAm WAS 'r@30MIICWCUT g -Z'T , nl ITV 7 "PC COD SAY T Ir ....... co@ for mA#rycxEr sou## 00 EFLOCIf ISLANAV ......... 54WND 0, -ILES r KILOMETERS NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. DEVELOPMENT PRESSURES 3.2 SOUTHEASTERN NEW ENGLAND WATER AND RELATED LAND RESOURCES STUDY am 3-5 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Employment. The core cities and the metropolitan soils with septic system limitations, shellfish flats, well sites, 10@ areas are still the employment centers, but their share of and beaches. NOW the region's employment is decreasing. The urban and ur- banizing centers of Boston, Narragansett Bay, Buzzards The development capability of such lands is limited for a Bay, Cape Cod, and Worcester, still account for almost 80 number of reasons. Some are vital to the preservation of percent of the growth in employment in the region. The drinking water supplies. Others are sites for a necessary fastest growing area was Cape Cod where employment grew segment of the marine food chain or serve as wildlife habi- 13 percent faster than population during the 1960's. tats. Still others would cr"eate a threat to public health and safety if developed. The decision as to whether such lands Development Pressure. The direction of future ur- are to be developed or preserved involves weighing the bene- ban expansion - development pressure - is influenced by fits of development against the benefits of preservation (or the location of existing residential development, and eco- the costs of development). Each of these water related nomic and cultural activities, the relative cost and length of lands is examined in greater detail below. travel time between residences and jobs, and the amount and location of land available for development at any given Wetlands. Wetlands are among the most fragile of the time. Seven indices can be used to estimate the potential region's water and related land resources. According to development pressures that may affect each community: Table 3.1, salt water wetlands decreased by 13.7 percent (1) absolute and (2) relative population change 1960-1970; between 1960 and 1970. Fresh water wetlands decreased (3) absolute and (4) relative employment change 1960- by 5.6 percent in the same period, Both Rhode Island and 1970; (5) relative accessibility by automobile to popula- Massachusetts now protect these areas by law, but the cur- tion and (6) to employment in all other municipalities in rent level of regulation and enforcement may not be suffi- the region; and (7) the acreage of developable land having cient to reduce the rate of loss significantly. moderate to no septic tank limitations. Wetlands perform several basic functions: they recycle nutrients used by fish and wildlife, serve as nursery areas Figure 3.1 was developed by applying these indices to for many species and provide habitat for wildlife. Coastal each town in SENE. The figure gives an indication of the wetlands act as buffers for storms and as stabilizers of probable levels of development pressure over the next 20 shorelines, and inland wetlands serve as natural storage years. Note that the pressures are generally high in the areas for excess flows, releasing them slowly and modify- towns peripheral to the major cities. Figure 3.2 is a gen- ing downstream flood stages. The Corps of Engineers, in eralized picture of towns with population density exceed- a recent study, determined that a forty percent loss of ing 1000 people per square mile in 1970, with projections Charles River wetlands (Boston Metropolitan planning through 1990 and 2020. This density was selected be- area) could increase flood stages in the middle and upper cause it is equivalent to one acre residential lots covering river from two to four feet, for a flood of the magnitude half of the area of a town, with the remaining half devoted experienced in 1968. According to studies conducted at to commercial, industrial, institutional, and transportation the University of Massachusetts, wetlands common in uses or to undeveloped land. SENE are capable of holding and transmitting .25 to 3.0. million gallons of water per day. The slightest alteration Figures 3.1 and 3.2 give some indication of the location and of the delicate balance of waters, land, and vegetation can extent of development that can be expected to occur in significantly diminish the ability of wetlands to perform SENE if urbanization proceeds in the future according to these functions. the patterns which have occurred in the past. Figure 3.1, in particular, if modified by state, regional, and local land It is worth noting that coastal wetlands are valuable for use planners based on their more intimate knowledge, can water quality enhancement because of the flushing action be used to anticipate future pressure on critical water and caused by the normal change of tide. The water quality related lands. benefits of inland wetlands are less certain, however, be- cause of their tendency to collect decaying vegetation Effects of Growth on Water and Related which increases oxygen demand, thereby to some degree Land Resources negating filtration benefits. Inland wetlands do, however, aid water quality in rivers through their capacity to re- The SENE Study is concerned primarily with the relation- lease stored water gradually, providing an even flow. ships between growth and water and related land resources. Water related lands are generally those which, because of More detailed discussion of the characteristics above are their soil characteristics and/or location over, under, or included in Chapter 7, Marine Management, and Chapter near water resources, are important for use, protection, 8, Pooding and Erosion. The recreational value of wet- management, or development of that resource. Such water lands is discussed in Chapter 6, Outdoor Recreation. related lands include, but are not limited to: wetlands, res- ervoir watersheds, flood plains, ground water recharge areas, 3-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Beaches, Dunes, and Bluffs. The region's coastal charges and other types of water pollution. Significant beaches, dunes, and bluffs are major aesthetic attributes; amounts of shellfish beds have been closed for public they attract literally millions of tourists annually. They health reasons due to inordinately high pollution levels are also the region's first line of defense from coastal (see Chapter 7, Marine Management). In addition to these storms and tidal flooding. Development on these often "estuary related" species, however, many more are in some critically eroding lands has disrupted their ability to per- manner "estuarine-dependent". Sources at Woods Hole form these functions. The problem is critical along such Oceanographic Institute estimate that about 70 percent areas as Plum Island (Ipswich-North Shore planning area) of New England's commercially-valuable fish species are and Scituate (South Shore planning area) in Massachusetts, either directly or indirectly dependent upon estuaries at and along the southwestern coast of Rhode Island (Pawca- various stages of their fife cycles. While these offshore tuck planning area). For the region as a whole, over 70 species may never actually enter estuarine waters, they miles of shoreline is eroding at a rate of more than three feed on the many species which do, and are therefore tied feet per year; 55 miles of this total'is along the beaches to estuarine habitats through the food chain. Unfortu- and bluffs of the Cape Cod and Islands planning area. nately, these species are being threatened by continued loss of these coastal habitats and by pollution of coastal Problems associated with the development of these critical waters. Estuaries and other areas critical for marine life areas are discussed more fully in Chapter 8, Flooding and are discussed in more detail in Chapter 7, Marine Manage- Erosion and in the appropriate planning area reports. ment. Water Bodies. Programs of water quality preservation Flood Plains. Some water related lands can retain and restoration in SENE should improve the region's capa- their usefulness under limited kinds of development. Flood bility to attract and hold the skilled personnel it needs for plains, discussed in Chapter 8, Flooding and Erosion, are its service-oriented future (Chapter Z 77ze Setting). Water capable of supporting certain limited forms of develop- bodies must be protected not only for their aesthetic value, ment, including agriculture and recreation. Such develop- but for their irreplaceable benefits such as recreation sites and ment would neither impede natural flood flows nor incur sources of water supply. Land use measures needed to pro- substantial damages if flooded. But encroachment of tect water quality include control of non-point source pol- larger scale development, which occurs in several parts of lution, particularly polluted stormwater runoff from urban the region, not only escalates local damages and loss of concentrations and sediment from erosion. Management of life, but by altering flood stages causes greater damage present and proposed reservoir watershed lands must ensure both upstream and downstream. The National Flood In that significant pollutants do not enter the water bodies. surance Program of the Department of Housing and Ur- Development must be restricted in these areas in order to ban Development will be of some assistance, but because protect water quality. More complete treatment of surface it does not require prohibition of development, it may water sources could permit more use of surface water bodies encourage development in some flood plain areas by en- and their surrounding watershed lands. However, the growing abling property owners to obtain insurance. trend toward complete treatment of all surface sources In the last few years, steadily increasing development in should not preclude a general policy of water quality pro- flood plains, particularly in the Pawtuxet and Blackstone tection. planning areas, has greatly increased the potential for heavy flood damages. Recurrence of floods of record in Well Sites. In addition to surface water sources, well these two planning areas alone could cause an estimated sites must be shielded from development. Pollutants en- $53 million in damages. New development, even flood- tering the ground in these locations may filter directly into proofed, in flood plain areas, will cause the present flood water supplies. Details are discussed in Chapter 4, Water levels to rise and subject areas to flooding that had not Supply, particularly with respect to the pressures being been exposed before. placed on existing and potential well sites as a result of population growth. Prime Agricultural Lands. The availability of high quality agricultural soils is decreasing rapidly in SENE. Ac- Estuaries. Tidal rivers and their associated salt water cording to the Massachusetts Governor's Commission on wetlands are also vulnerable to deterioration and outright Food, the acreage of farms in the state has declined from destruction due to careless land use practices. In some 2 million in 1945 to about 700,000 today. In SENE as a planning areas in SENE, most of the salt water wetlands whole, 29 percent of the region's prime agricultural land that once existed are already gone. All but one of was converted to urban use (Table 3. 1) between 1960 and SENE's tidal estuaries have been dammed, and the re- 1970. This rapid conversion of agricultural land threatens maining one, the North River, is noted for its high-quality to pose serious problems for the long-range national pro- sport fishery and is the site of the first salmon restoration duction of food and fiber. But significant potential exists project in the region. Many of SENE's estuaries are also for increasing the proportion of the regional food market adversely affected by wastewater treatment plant dis- held by local production, thereby reducing cost to the con- 3-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can'be made sumer and the vulnerability of the region to disruptions in Developments of Regional Impact the distribution system. In addition to their food and fiber function, these lands may serve as important recharge areas Just as it is important to protect or manage critical water for ground water and are important factors in the physical resources and related lands, it is important to guide the attractiveness of the region.' development of facilities which will have greater than local impact on people and their resources. The Study defines Unique Natural and Cultural Areas. As a coastal developments of regional impact as those likely to present region, many of the unique natural and cultural areas are issues of statewide or regional significance as a result of their water related. Although a minor portion of the region's magnitude or of the magnitude of their direct or indirect total area, these areas play a major part in the high quality effects. Included within this definition are key facilities, of life characteristic of Southeastern New England. such as power plants, oil receiving or refining sites, and airports; large scale or growth inducing development, such Aquifer and Recharge Areas. As explained more as housing projects, industrial parks, and shopping centers; fully in Chapter 4, Water Supply, ground water is now, and and major public facilities, such as highways, interchanges, will continue to be, an important source of water supply mass transit terminals, and water and sewer line extensions. for many of the region's people. But in many areas of the All are vital to the continuing economic health of the region region, development of lands which serve as recharge areas and the well-being of its people. They also have a history of for aquifers threatens the future viability of ground water more or less negative effects on natural resources and envi- quality and therefore the viability of water supplies. High ronmental quality. In a region as densely populated and density development increases the possibility of pollutants rapidly growing as SENE, both the need to find sites for, and infiltrating the aquifer. Moreover, the greater the percent- the concern over the impacts of, such major facilities are age of pavement and other impervious surfaces, the lesser steadily increasing. the replenishment of ground water supplies by rainfall. Other hazards to ground water quality and quantity include Key Facilities. It is the SENE Study's conclusion, sanitary landfills, highway deicing salt, industrial wastes, explained more fully in Chapter 9, Unwelcome agricultural runoff, and sand and gravel mining where ex- Facilities, that the same priority should be given to the traction goes below the watertable. identification and preservation of sites for such key facilities as power plants, petroleum facilities, solid waste disposal Upland Wildlife Habitat and High Landscape sites, and sand and gravel extraction operations, as is given Quality Areas. Productive upland wildlife habitat is us- to the identification of fragile natural areas. Both kinds of ually found along edges of field, forest, and wetland. Ur- areas are critical to the public health and safety and the long- banization has continuously encroached on these lands, term health of the region's economy. The most important steadily reducing the region's total wildlife habitat. Other step needed is to place such decisions within a statewide - land uses are almost always judged to have higher economic in some cases regionwide - context. Decisions which affect returns than wildlife production. Similarly landscape quality all the people of the region should not be left to one munic- rarely counts in land use decisions. In 1970, best upland ipality. wildlife habitat and areas with high landscape quality - de- fined by land use diversity and relief - accounted for some- Large Scale or Growth Inducing Development. where between 10 and 20 percent of the total area of SENE. In some cases the sheer magnitude of a development can have long-range impacts on water and related land resources. -Soils, with Development Limitations. Some areas Such projects as major shopping centers and industrial parks, can sustain many types of development, but they have apartment complexes, and highway and interchange const- values that will be lost without careful management of ruction have a history of far greater than local impacts. that development. For example, soils with limited capac- Perhaps the classic example is the industrial development ity to absorb septic wastes, and areas of steep slopes or which appeared along Route 128 as it encircled Boston. The ledge - all common in SENE - can bear only limited same phenomenon is repeating itself on either side of the development before deteriorating or creating health more distant Route 495 in rural towns far less able to cope hazards. with the new development. As with key facilities, the long- range impacts of large scale development on resources and The production and management of the water and related people, on commercial and industrial activity, and patterns land resources outlined above are a major concern of the of residential development, dictate that detailed resource SENE Study. Both deliberate and unconscious evolu- capability analysis be conducted prior to initiation of any tionary land use decisions have deleterious effects on project and that the local decision be shared with state or these resources. Most of them come under the heading of substate regional agencies able to recognize the potential for 16critical environmental areas" as detailed by the Coastal regional impact. Zone Management Act, the National Environmental Act, and proposed federal land use legislation. 3-8 PUBLIC REVIEW 'DRAFT SUBJECT TO REVISION Line by Line Changes can be made The SENE Resource Development Capability were subsequently grouped into one of several development Analysis capability classifications on the basis of five criteria: It became clear that if the Study was to provide any guid- Intrinsic Resource Values: Resources which pro- ance to the region for its future economic growth, some vide services to man, as wetlands provide natural system was needed for displaying not only the location of valley flood storage; renewable resources which the region's water and related land resources, but also how are needed for production such as wildlife habit, the characteristics of those resources presented opportuni- and non-renewable resources such as sand and gra- ties or limitations to growth. vel needed in construction; and resources which have amenity value such as scenic, recreational, or The Study's Resource Development Capability Analysis educational areas. and the maps which are the product of that analysis (Plates 1, 2, and 3) provide that needed information. Resource Sensitivity and Retrievability. Resources which are particularly vulnerable to development, Criteria for Classifying Resources. Federal and such as barrier beaches or shoreward dunes, or state Study participants mapped and analyzed dozens of not easily retrieved once developed such as filled- discrete water and related land resources. 1he resources in wetlands. TABLE 3.4 THE SENE RESOURCE DEVELOPMENT CAPABILITY SYSTEM CRITICAL ENVIRONMENTAL AREAS REQUIRING PROTECTION Water Bodies (Category A), blue. [Includes estuaries, shellfish flats, and fish spawning areas.] Priority Protection Areas (Category A), dark green: wetlands, well sites, beaches, and critical coastal erosion areas. Other Protection Areas (Category B), light green: flood plains, class I and II agricultural soils, unique natural and cultural sites, [proposed reservoir sites and related watersheds, and upland erosion areas] excluding all "A" areas. DEVELOPABLE AREAS REQUIRING MANAGEMENT, Excluding All A & B Areas WATER RESOURCE LIMITATIONS Aquifers and/or Recharge Areas (Category Cl) black dots: highest yield aquifers in each basin. WILDLIFE AND SCENIC RESOURCE LIMITATIONS Wildlife Habitat (Category C2), black diagonal lines: best upland wildlife habitat other than publicly owned land and [commercial fishing grounds]. Landscape Quality Areas (Category C3), black vertical lines: land characterized by high landscape quality other than categories Cl and C2. SOILS RESOURCE LIMITATIONS Ledge and/or Steep Slope (Category C5), brown: land with slope greater than 15 percent and/or with rock near the surface. Severe Septic System Limitations (Category C4), orange: land with severe septic system limitations other than Category C5. Moderate to No Septic System Limitations (Categories F and G), yellow: land with moderate or no septic system limitations. PREEMPTED USE AREAS Urban Areas (Category E), gray: residential@ institutional, commercial and industrial development. Publicly Owned Lands (Category D), beige: major public parks, forests, watersheds, and military lands. Notes: All categories above, except those within brackets, are depicted on the development capabilities maps (plates 1, 2, in the rear pocket of this report. Categories in brackets are included to show where they would fit in the overall classification hierarchy, were they included on the plates in the pocket. All categories above, including those within brackets, are depicted on large-scale, unpublished maps available for inspection as part of the SENE Files. Categories Cl, C2 and C3 overlap with categories C4, C5, F, or G. Thus, Category C2-C4 is a wildlife habitat located on ledge or steep slopes. YMapped urban areas (Category E) include all-residential development, although the legend on Plates 1, 2, and 3 reads .'residential areas on less than one acre lots." 3-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Threat to Public Health and Safety: Resources on Critical Environmental Areas. Resources which which development would present a threat to public have been classified as Critical Environmental Areas health and safety, such as the threat of flooding include the following: presented by flood plain or beach development. Water Bodies. Displayed in blue, the region's Resource Scarcity or Uniqueness: Resources water bodies have as high a priority for protec- which are particularly scarce, unique and therefore tion as the following categories and are included valuable, such as high yield aquifers in ground water in category A, Priority Protection Areas; how- dependent areas, scenic promontories in generally ever they are separated for mapping purposes. flat landscapes, habitats for rare and endangered Included in this category but more difficult to species, or regionally or nationally significant his- pinpoint were certain salt water areas - shellfish torical sites. flats, estuaries, fish spawning areas. Institutional Criteria: Resource s which are Priority Protection Areas. Displayed in dark similarly regulated or which have already been green, this category (A) includes those fragile classified by such acts or guidelines as the: resources which have the lowest tolerance for development and highest value for water re- � Water Resources Planning Act of 1965 source protection. Uncontrolled or incompat- � National Environmental Policy Act of 1969 ible use of these lands would result in the loss � Federal Water Pollution Control Act or reduction of resource productivity and would Amendments of 1972 pose a resultant risk to public safety and wel- � Coastal Zone Management Act of 1972 fare. The category, as shown on Plates 1, 2, and related Committee Reports and 3, contains well sites, coastal and inland � Rural Development Act of 1972 wetlands, beaches and critical erosion areas � U. S. Water Resources Council, Principles which were mappable at the scale used. To- and Standards gether they constitute 445,000 acres or 16 per- � Proposed federal land use bills cent of the region's land area. � Massachusetts Wetlands Act � Massachusetts Environmental Policy Other Protection Areas. Displayed in light Act (M EPA) green, resources in this category (B), within � Martha's Vineyard Land Use Act the classification of Critical Environmental � Proposed Nantucket Sound Islands Trust Areas, are suitable for certain kinds of ex- � Rhode Island Statewide Land Use Plan tremely limited development, such as recrea- tion. The category includes riverine and tidal A Water and Related Land Use Classification flood plains, class I and 11 prime agricultural System. On the basis of these five criteria, the soils, and unique natural and cultural sites. water and lands of Southeastern New England were Proposed reservoir sites and related water- grouped and mapped into eleven development capa- sheds, and upland erosion areas, though not bility subcategories, each with its own color or pat- included on the Development Capability Maps, tern of lines, and placed into three major classifica- are included in this category and have been de- tions: Critical Environmental Areas, Developable lineated on maps in the SENE files. Note that Areas Requiring Management, and Preempted Use Category B areas such as flood plains which Areas. The large multicolored plates (in pockets in are also wetlands are excluded from Category the back of this report) are drawn at a scale of one B and included instead in Category A. Cate- inch equalling two miles (1: 125,000) and, in addi- gory B lands constitute about 42 1 000 acres tion to the resource data, display every municipality or 15 percent of the region. in the region, and all major existing and proposed highway, rail, airport, and ferry transportation sys- Developable Areas Requiring, Management. tems. Table 3.4 summarizes the land and water ele- Again, on the basis of five criteria, a number of ments of the classification system and is, in fact, the region's resources were classified as suitable for identical to the map legend. A brief description of development in some manner. Within this classifi- each subcategory of resources, grouped according cation, which corresponds to map categories C, F, to their suitability for development, follows, in the and G, the resources were further classified by fac- same order as they appear in the legend on Plates 1, tors which, in varying degrees, limit their develop- 2, and 3.. ment: water resource limitations, wildlife and scenic resource limitations, and soils resource limi- tations. Together the three sub-categories described 3-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made below consititute about 1,044,000 acres or 36 per- Ledge and Steep Slope. Displayed on the maps cent of the land area of the SENE region. in brown, lands in this category (C5) have bed- rock within three feet of or at the surface, or Water Resource Limitations: The first sub- have slopes greater than 15 percent. Both these category under Developable Areas Requiring characteristics pose difficult development prob- Management is: lems. Steep slopes are often susceptible to ero- Aquifer and/or Recharge Areas. Displayed on sion when disturbed, and septic tanks have only the map as a pattern of black dots overlaying limited feasibility on either type of land, except the soils information, high yield aquifers and at high cost. their recharge areas (Category C 1) (other than those recharge areas under Categories A and B) Severe Septic System Limitations. Displayed can sustain a limited degree of development, in light orange, lands in this category (C4) are but must be strictly managed in ways which suitable for development as long as sewers are protect the quantity and quality of ground installed or density is limited to prevent over- water beneath them. As mentioned earlier, loading the land's ability to absorb wastewater. and as discussed in detail in Chapter 4, Water Without such precautions, the threat of con- Supply, ground water is available to most of tamination to local ground water, among other the towns in the region and will be needed to things, is considerable. meet 1990 water demands. At the same time, however, where surface water is readily avail- Moderate to No Septic System Limitations. able for long-term needs, towns may wish to Displayed in yellow, lands in this Category trade-off the benefits of protecting ground (F and G) have almost unlimited development water aquifer and recharge areas in favor of capability. They are generally flat and well- more intensive development, provided this drained and, because of ease of development trade off the benefits of protecting ground and virtually unlimited capability to accommo- water resources of an adjacent town. date septic systems, have a tendency to be de- veloped as a "sprawl". Yet their developabil- Wildlife and Scenic Resource Limitations include ity gives them great flexibility for many other the following sub-categories: kinds of development as well. Wildlife Habitat. Displayed as a pattern of Preempted Use Areas. To a greater or lesser diagonal black lines overlaying the soils infor- degree the suitability for development of a significant mation, lands in this category (C3) include portion of the region's total land area has already been, the best upland wildlife habitats, other than to a large degree, preempted. These lands are either publicly owned land or wetlands, which are already urbanized or publicly owned. in other categories. For this report, best up- land wildlife areas are defined in terms of a Urban Areas. Displayed in gray, lands in this range and transition of vegetation cover. How- Category (E) include all urban land uses. However, ever, the character of these lands changes ra- even though urbanized portions of this urban land pidly, and local decision makers using their remain vacant. Because much of the land in this own more detailed information may wish to category is already served by infrastructure - water vary the degree to which development can be and sewer service, transportation systems - it rep- permitted or restricted as conditions change. resents a valuable opportunity for future develop- ment if problems preventing its development are Landscape Quality Areas. Displayed as a pat- identified and overcome. tern of black vertical lines also overlaying soils information, lands in this category ((2) include Publicly Owned Areas. Displayed in beige, lands areas of striking variation in topography and in this category (D) are predominantly in federal vegetative cover. These lands are capable of or state ownership. Some are open space and supporting a number of development uses, if recreational areas or water supply watershed those uses are designed in a manner compatible holdings. A few large government holdings - with the intrinsic value of the resource. such as Otis Air Force Base on Cape Cod - may be released from public ownership and become Soils Resource Limitations include the following available for other uses.@ In that event, they can three sub-categories: be readily reclassified under the foregoing system - in fact all such areas have already been mapped by the SENE study. 3-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made It is important to note that Plates 1, 2, and 3 are a final F, and G) exists to accommodate the development demands composite of dozens of maps produced during the course of the SENE region through the year 2020, even at the of the Study. These originals, many at greater levels of very high consumption rate (one-half acre per capita) of detail, are available in the files of the New England River the past decade. Moreover, if OBERS projections of a Basins Commission. Table 1.1 in Chapter I summarizes leveling off of population due to the declining birth rate are accurate, the 2020 population may be the largest the the data available. region has to accommodate.. Some sub-regional incon- sistencies to this rule are to be expected. For example, if The Implications of the Development Capability the land consumption rate of one-half acre per personcon- Analysis for Accommodating Growth. Table 3.5 tinues, the Ipswich-North Shore, South Shore, and Narra- displays the percentage of critical environmental area, de- gansett Bay planning areas would occupy all their develop- velopable area and preempted use area in each planning able land by 1990-2000. On the same basis, developable area and for the region as a whole. The table indicates lands would last until about 2020 in the Boston Metro- that while generally similar distributions prevail through- politan, Taunton, and Pawtuxet planning areas. Four out most of the region, some disproportions exist. A higher planning areas would have abundant developable lands percentage of the Taunton planning area is in critical envi- long after 2020 - Cape Cod and the Islands, Buzzards ronmental areas than in the other planning areas, and the Bay, Blackstone and Vicinity, and Pawcatuck. lowest percentages are in the Blackstone and Pawtuxet planning areas. The highest percentage of developable land is in Buzzards Bay with the Boston Metropolitan lowest. The Solutions However, it is important to note that while the percent- ages of land classified as critical environmental area vary It bears repeating that the SENE Study is a water and re- significantly, the availability of developable land is surpris- lated land resources study and that while comprehensive ingly uniform from planning area to planning area. The in scope with respect to these resources, it does not pur- Boston Metropolitan planning area has the greatest amount port to be a comprehensive land use plan for the region. of land in preemptive use while the Taunton and Pawca- Nevertheless, we have seen that these resources are deeply tuck have the least. affected by growth, that they may often determine how much we can grow, and that we can use their capability to Table 3.6 translates percentages to acres. According to this support various forms of development as tools for guiding table, roughly one-third of the region's land area can be growth. classified as in preempted use, one-third in critical environ- mental areas, and one-third developable. Alternatives The most significant implication of the analysis, however, can be found in Table 3.7. The conclusion of the analysis Within this context, the Study examined three alternative is that enough legitimately developable land (categories C, strategies for guiding the future growth of the region to TABLE 3.5 PERCENT OF LAND AND WATER RESOURCE CATEGORIES IN EACH PLANNING AREA Total Percent (7o) of Planning Area Critical Environmental Develop- Preempted (in 1000's of Areas able Areas Use Areas Planning Area acres) A* B* A&B C, F, G* D, E* Ipswich-North Shore 274 19 13 32 34 34 Boston Metropolitan 421 14 9 23 30 47 South Shore 172 17 13 30 43 27 Cape Cod & Islands 378 10 23 33 32 35 B117-7Ards Bay 205 17 16 33 47 20 Taunton 351 19 22 41 37 22 Blackstone & Vicinity 410 10 11 21 38 41 Pawtuxet 180 11 7 18 41 41 Narragansett Bay 212 16 16 32 34 34 Pawcatuck 262 27 12 39 40 21 SENE 2,965 16% 15% 31% 36% 33% Sources: See Methodology in the Regional Report. The location of these lands is depicted on the multi-colored development capabilities maps in the rear pocket. 3-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made TABLE 3.6 AMOUNT OF EACH LAND AND WATER RESOURCE CATEGORY BY PLANNING AREA Acres (in 1,000's) % of Total SENE Area Pre- Total Pre- Total Develop- empted Land Develop- empted Land Critical Environ- able Use & Critical Environ- able Use & mental Areas Areas Areas; Water mental Areas Areas Areas; Water Planning Area A B A&B C,F,G D, E Area A B A&B C, F, G D, E Area Ipswich- North Shore 52 36 88 92 94 274 1.8 1.3 3.1 3.2 3.2 9.5 Boston Metropolitan 61 38 99 124 198 421 2.1 1.3 3.4 4.3 7.0 14.7 South Shore 29 23 52 74 46 172 1.0 0.8 1.8 2.6 1.6 6.0 Cape Cod & Islands 36 89 125 122 131 378 1.2 3.1 4.3 4.3 4.6 13.2 Buzzards Bay 34 33 67 98 40 205 1.2 1.2 2.4 3.4 1.4 7.2 Taunton 68 78 146 129 76 351 2.4 2.7 5.1 4;5 2;6 12.2 Blackstone & Vicinity 42 45 87 154 169 410 1.5 1.5 3.0 5.4 5.9 14.3 Pawtuxet 19 13 32 74 74 180 0.7 0.4 1.1 2.6 2.6 6.3 Narragansett Bay 34 34 68 71 73 212 1.2 1.2 2.4 2.5 2.5 7.4 Pawcatuck 70 32 102 106 54 262 2.4 1.1 3.5 3.7 2.0 9.2 SENE 445 421 866 1044 955 2865 1&5 14.7 30.2 36.5 33.3 100.0% Some public lands are included in Categories A, B, and C, F, and G. Thus, the Prempted Use Column, D-Public & E-Urban, is understated. TABLE 3.7 PROJECTED POPULATION INCREASES IN SENE PLANNING AREAS COMPARED TO THE POPULATION CAPACITY OF THEIR DEVELOPABLE LANDS AND SEWERED LANDS (in 1,000's) Projected Increase (OBERS E) Unused Capacities in 20 years in 50 years Developable Existing and Planning Area 1970-1990 1970-2020 Lands Proposed Sewers Ipswich-North Shore 189 451 185 (-22) Boston Metropolitan 188 284 248 349 South Shore 122 345 148 91 Cape Cod & Islands 58 145 244 79 Buzzards Bay 22 92 195 45 Taunton 113 303 259 122 Blackstone & Vicinity 62 97 308 127 Pawtuxet 74 164 148 92 Narragansett Bay 93 263 143 32 Pawcatuck 18 49 212 24 SENE 939 2,193 2,090 939 These figures represent the number of people that could be accommodated on developable lands (categories C, F & G) if the average rate of land consumption in Southeastern New England between 1960 and 1970 (i.e., 0.5 acres per capita) were to continue. Unused sewer capacity is the design capacity of existing and proposed treatment facilities less the 1970 population alwady served or needing service (i.e., on lots of 1/2 acre or less). 3-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made guarantee the protection and wise use of its water and re- and 1960's; federal highway aid also encouraged this lated lands: movement which continues today. Most importantly, the Environmental Protection Agency (EPA) grants 1. Continuing current programs and regulations; for construction of wastewater management facilities 2. Increasing protection of critical environmental have made funds available to communities, expanding areas; and their capacity to accept new development. Any di- 3. Improving management of developable areas. rected growth program must coordinate the location of infrastructure under this program with the desired The Study's detailed resource development capability location of growth. EPA air quality standards will analysis will be a useful tool for each of these alternatives. also influence the location of growth, especially While the analysis is most closely associated with the sec- through regulations establishing antidegradation ond and third alternatives, it is just as applicable to the standards and limiting permissable pollution levels continuation of existing programs, particularly state from automobiles and indirect sources. Section 208 coastal zone management and land use planning and man- of the 1972 Water Pollution Control Act Amend- agement efforts. ments requires that areawide wastewater management plans be formulated consistently with regional growth The three alternatives approach the problem of accommo- policy. Finally, since 1954, the Department of Hous- dating needed growth and protecting valuable resources ing and Urban Development (HUD) has been adminis- from decidedly different directions. The first recognizes tering grant programs to enable the preparation of that in many ways state and local governments in Massa- community master plans, and most recently, has as- chusetts and Rhode Island have a history of leadership in sumed responsibility for administering the Flood In- resources management. This alternative emphasizes con- surance program, designed to prevent inappropriate tinued use of available tools to manage the future growth development of flood plains. of the region. The second alternative seeks simply to re- move certain critical environmental areas from considera- State Efforts. The most important function of the tion for most forms of development, permitting future state is one of setting development policies and goals. development and relatively unrestricted use of most other The Massachusetts Resources Management Policy lands, yet assuring integrated maintenance of the future Council had been in the process of developing quality and quantity of water resources. The third alter- policies respecting state growth (this function native seeks to guide growth on the basis of ability of the will now be undertaken by the Cabinet), while region's water and related lands to support avariety of the Rhode Island State Planning Council, based on forms of development, to increase the efficiency with the Statewide Planning Program's State Land Use which public investments in services needed to accommo- Policies and Plan, is in the process of adopting its date growth are made, and to control the location of official policies. those forms of development having major impacts on the region's water and related land resources. Many state agencies and other bodies with responsi- bilities greater than the municipality also influence 1. Continuing Current Programs and Recom- development directly by investing in facilities and mendations. The region's growth is determined utilities, and in some cases, state regulatory pro- for the most part by individual private development de- cesses intervene in local decisions. For example, cisions, but the extent to which that growth is directed both states have strong regulatory programs protect- depends on public regulatory programs. It is therefore ing water quality, including standards and permit important to understand how the various levels of gov- systems directing the location of well sites, sanitary ernment currently influence the region's development. landfills, septic tanks, and dredge spoil disposal. To do this it is necessary to examine the nature of fed- State legislation also exists for protecting wetlands, eral, state and local controls and then to evaluate what beginning in most cases with administrative process is currently being done as one alternative method to before local conservation commissions. Through the guide growth. Massachusetts Energy Facilities Siting Council and the Rhode Island Coastal Resources Management The Federal Program. Some federal government Council, both states are begi nning programs to decisions, such as those on locations of federal instal- regulate power plant siting. lations, have direct impacts on location of growth. Generally, however, the federal government has cre- The state also manages and can acquire a great num- ated inducements to growth rather than making de- ber of resources, which indirectly influences the pat- cisions as to its location. Indeed, federally insured tern of development, including park and recreation mortgages, for example, were to a large degree re- facilities, and nature preserves. Also, the state's .sponsible for the suburban boom during the 1950's capacity to construct highways, mass transit, and 3-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made port facilities provides the necessary infrastructure government. Zoning establishes districts in which to support new development. Under the Massachu- categories of uses are allowed, but within broad setts Environmental Policy Act, state actions signifi- limits the exact location, timing, and type of use is cantly affecting the environment must be accompan- determined by the market. Administrative solutions ied by environmental impact reports. As with federal to variations in uses and conditions are often neces7 agencies under NEPA, this requirement has helped to sary and because of the issuance of variances or sensitize government officials to the environmental amendments, some areas bear little resemblance to consequences of their decisions. the original zoning. Building codes and other ordi- nances are also typical tools used to control the type Emerging state programs in coastal zone management of development which occurs. and areawide waste management also indicate the di- rection that states are taking to manage critical areas Theoretically, local zoning is based on, and imple- and resources and at the same time provide a vehicle ments, the local plans for growth prepared by local to coordinate various functional. activities to guide planning boards. Local plans, however, often either growth. do not exist or are dissimilar to the zoning schemes. They do attempt to describe the types and location To the extent that the state provides financial assist- of particular developments which the community ance to municipalities through its Department of wishes to encourage. Community Affairs, its ability to coordinate local planning efforts serves to give some direction to state In form, these regulations have not generally changed growth policies. since their origin early in this century, when they were designed to protect private property from the State level fiscal policy, too, influences development nuisance of incompatible uses. With greater under- decisions. State policy respecting capital investments standing, some regulations are Dow being made which attracts development indirectly and real property tax recognize the interrelationships of land uses and the policies do so directly. Both states' farmland assess- consequences of their locations in terms of soil, in- ment acts, designed to encourage retention of farm- frastructure, and other requirements. land in agricultural uses by allowing its tax assessment to remain low, are examples of the latter policy. Impact zoning is an example of this approach. As adopted in Duxbury, Massachusetts, uses are per- At the regional level, and only in Massachusetts, sub- mitted depending upon their impact on site topog- state regional planning agencies such as Old Colony raphy, soil, and required municipal services. 1he Planning Council, Metropolitan Area Planning Council, most notable example of this concept has been in and Merrimack Valley Planning Commission have Ramapo, New York, which established a use permit prepared open space, sewer, and water supply plans rating scheme, discussed later in this chapter. Other which are important vehicles guiding growth. Also zoning innovations such as cluster zoning, planned the new Massachusetts Martha's Vineyard Land Use unit development, and incentive and compensatory Act creates a prototype regional mechanism for regu- zoning, provide benefits to the landowner if he re- lating critical areas and developments of regional im- sponds positively to zoning requirements; these have pact. not yet been used extensively, however. Local Authority. By far, municipalities have had The other authority which municipalities exercise to the primary responsibility for guiding growth and influence the location of growth is that of acquisition. development. Traditionally, the state has delegated Public ownership of land not only protects critical re- powers to local governments, through home rule sources, but allows public use, and the amenity value provisions, to enable them to act on their- own and may influence the location of other development. to regulate activities to further the public health, Municipal acquisition may take many forms. Outright safety, and welfare. Generally, local governments purchase, purchase of easements, and purchase of op- regulate land and other resource use under police tions are all well within local authority. power authority; the extent of regulation, however, must meet certain constitutional requirements. Then, Municipal bonds may be authorized to raise funds for too, local governments are empowered to acquire acquisition: installment contracts can be used to land for public purposes by eminent domain under space payments to the landowner to spread his capital authority delegated by the state. gains over a period of years. If the benefits of a land purchase will occur in the future, discount bonds can Zoning, subdivision controls, and development or use be authorized to defer payment of both interest and permits are the traditional regulatory tools of local principal. To reduce cost, partial interest in the land 3-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made such as a conservation easement, can be leased or ac- with any degree of certainty or donot directly deal quired. Finally, the use of saleback or leaseback.pro- with cuff ent problems. visions, in which the municipality sells or leases hack the land to the original owner, offer financial advant- It is evident that although the continuation of present age and a device to control development. Such mea- programs is important, it is even more important to sures have been used to retain farm land for agricul- develop integrated, coherent approaches to growth tural uses. management. Purchase costs may also be reduced by acquiring 2. Increase Protection of Critical Envirorumental development rights or conservation easements, Areas. This alternative seeks to improve on existing, which at the same time act as a growth restricting somewhat fragmented, programs by providing a stronger, tool. Transferable development rights (TDRs) are more integrated approach to the protection of those re- also used to influence development, especially its sources which are critical to the provision of adequate density. Although TDRs have been enacted in Sun- future supplies of high quality water or which provide derland, Massachusetts to preserve agricultural lands, protection from the forces of nature. Flighest priority state enabling legislation may be required to make is given to those highly fragile resources which have the their application widespread. lowest tolerance for development and the highest value for water resource protection: Tax measures can be used to encourage or discourage certain types of uses. Preferential assessment can be a. Priority Protection Areas. Permissible uses used to ease maintenance of land in open condition of Category A resources (water bodies, wetlands, well (e.g., farmland, flood plains) but it is difficult for sites, critical erosion areas, beaches, estuaries, shell- communities to do this to any large extent, since it fish flats, and fish spawning areas) are strictly limited reduces tax revenues. to water supply, fish and wildlife production, scenic and open space and passive recreation (nature study, Opportunities and Limitations. It should be hiking, etc.). clear that not only is much already being done to direct growth, but also that governmental authority Second priority is given to those resources slightly more to do so is extensive. Both states have in the past tolerant to limited types of low density use but still been leaders in resource management programs in having high value for water resource protection and general, and wetlands preservation in particular, and related land resource management: there is no reason to think they will not continue to remain so. b. Other Protection Areas. Permissible uses of Category B resources (riverine and tidal flood plains, Nevertheless, the framework in which those programs Class I and 11 agricultural soils, unique natural and exist does require some improvement for effective cultural sites, upland erosion areas, proposed reser- growth management. First, because of the number voir sites and related watersheds) which are somewhat of agencies and programs involved in land use policy more tolerant to use under strictly managed condi- making, regulation and management decisions and tions, include forest and agricultural production, more programs tend to be uncoordinated and isolated intensive recreational use than permitted on Category from one locality to the next. Without a clearly A lands, and in some cases very low density residential enunciated state policy for growth, development, development. Because of the severe pressures on the and conservation, resource decisions will continue region's remaining prime (Class I and 11) agricultural to be unguided. soils, special efforts could be made to apply the ex- periences gained in Sunderland, Massachusetts, where Second, it is inherent in current regulatory processes the concept of transferable development rights is be- at the local level that they fail to consider the impact ing experimented with; in New York where special of decisions which may be felt beyond local bound- "agricultural districts" have been established with re- aries. There is no present process which incorpo- structions on other forms of development; in Vermont rates greater than local participation in regulatory de- where special capital gains taxes are being levied on cisions. As a result, immediate benefits to a commun- land speculators; and in Long Island where public ac- ity are given greater weight than the external economic quisition of development rights is being attempted. and environmental costs it imposes on the region. In Connecticut, the Governor's Task Force for the Preservation of Agricultural Land has proposed state Third, municipal resources have been inadequate and purchase of development rights within agricultural ineffective in the past in dealing with the problems reserves designated by towns according to state guide- of urban growth. Present controls lack enforceability lines. 3-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made This alternative emphasizes protection of the natural designed to increase the efficiency of public investments functions of a few critical resources - for providing in services to accommodate growth. The third manage- water; forest, agricultural, fish and shellfish products; ment step under this alternative is the regulation of de- natural protection from erosion and flood damages; velopment of regional impact. and a variety of recreational opportunities. On the surface, the alternative appears to be highly "pro- a. Develop. According to Resource Capability. tectionist", that is, heavily biased in favor of environ- The -analysis group& in, the six c.ategorios of develop- mental preservation. Upon closer inspection, how- able areas presented on Plates 1, 2, and 3 by!three ever, it becomes clear that unless growth,and devel- limiting factors: water, wildlife-scenic, and soils. opment are guided away from such resources both Pe rmis@ible uses- are -'grouped accordingly. society and the economy will incur heavy losses. Expensive new sources of water may have to be de- Water Resource Limitations. To protect recharge veloped, damage to property and loss of life due areas for aquifers (black dots, C 1 ) needed for water to flooding will escalate, the availability of indig- supply, density of development without sewering enous products (wood, fish, agricultural products) should be strictly limited. Higher densities are will decrease, and the cost of replacing them will permissible with sewering but must be clustered be high. to allow for continued recharge. Other permissible uses include agriculture and forestry. Development Communities having significantly higher amounts of these lands presents several difficult problems. of critical environmental areas than developable Uses which threaten the quality of the aquifer - lands as defined by the Study will run into severe such as sanitary land fill, highway deicing salt, in- income difficulties if the current property tax struc- dustrial waste disposal and excessive use of septic ture is continued. A number of revisions of the pro- systems - must be prohibited. And while sewering perty tax structure have been suggested including would eliminate this threat to quality, it serves to state takeover of the tax system and major expendi- remove water from the area, reducing the ability of ture burdens (such as schools) and regional pooling the aquifer to meet future needs, unless ground of certain tax revenues. Regardless of the system disposal techniques are employed. chosen, a revision is long overdue. Without substan- tial reform, implementation of this alternative would Wildlife and Scenic Limitations. Lin-dted residen- be difficult in many parts of the region. tial development is permissible on both upland ulldlife habitat areas (diagonal lines, C3) and land- This alternative does not place limitations on devel- scape quality areas (vertical lines, C2). The latter opment in lands other than Category A and B. It is also able to support limited commercial develop- represents a kind of middle ground - stronger, ment if planned to minimize conflict with the better integrated than existing programs and regu- landscape. lations, yet not as comprehensive as a program which would also manage growth on less fragile developable Sogs Resource Limitations. Development on ledge lands. and steep slope (brown, C5) areas must be strictly limited and special precautions taken to control erosion and septic tank seepage. Permissible uses 3. Improve Management of Developable Areas. of areas with severe septic system limitations While Alternative 2 emphasized direct protection of (orange, C4) due to slow permeability are highly critical environmental areas, leaving the management of flexible, varying from low intensity commercial development on other lands to the current system, Al- and limited residential use without sewering, to ternative 3 emphasizes just the opposite. In this case, relatively unlimited commercial/industrial and pressure on the region's most critical resources is re- residential uses with sewering. Permissible uses lieved by guiding development directly to those areas of areas with no to moderate septic system limi- most capable of supporting it, based on the information tations (yellow, F and G) include the full range of gained from the resource development capability analy- residential, commercial, and industrial uses from .sis. The first management step under this alternative, medium intensity commercial/industrial and low discussion of the- types and densities appropriate to the density residential without sewering to high inten- several categories of "developable areas" in the analysis, sity commercial/industrial and high density resi- is presented in two forms. Permissible uses are suggested dential with public sewering and public water. first, followed by a detailed chart entitled "Guidelines for Appropriate Use of Developable Areas" which dis- Table 3.8 presents suggestions for appropriate plays suggested intensities of use. The second manage- uses of developable areas, displaying residential ment step under this alternative is a series of measures and commercial/industrial development intensi- 3-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes canbe made ties, both with public water and sewer facilities investments. But use of infrastructure can also be and without, for every possible combination of direct. Town or city planners may decide to chan- soil limitations (yellow, orange, and brown) and nel public investments in new infrastructure - other resource limitations (black line overlays) water lines, sewer lines - to those areas in which displayed on Plates 1, 2, and 3. they wish to encourage development. The U. S. b. Public Investment Efficiency Options. There Environmental Protection Agency released a re- is every indication that the competition for capital be- port in 1974 which indicated that EPA's funding tween major social programs, the need to develop new for wastewater interceptor sewers with excess energy sources, improvement of mass transit facilities capacity served as a subsidy to future land devel- and environmental quality programs, will continue into opment and encouraged sprawl. Half the land to the indefinite future. It is not sufficient, therefore, be served by the sewers was vacant. Yet despite merely to provide an alternative method to guide fu- what appear to be clear cut opportunities for ture growth based solely on resource development directly influencing the broad goal of guiding capability; if public investments in growth can be made growth through the provision, withholding, or more efficient, every effort must be made to do so, maximum use of infrastructure, the legal prece- Consequently, this alternative of improving manage- dents are limited. In fact there are none at a ment of developable areas also examines three options more-than-local level. for improving public investment efficiency: Clustering. A technique requiring far less regula- Use excess capacity of existing infrastructure. Table tion than the previous two options for reducing 3.7, referred to earlier in this chapter, indicates that, overall infrastructure costs is clustering. The Real for the region as a whole, the unused capacity of ex- Estate Research Institute recently completed a isting and proposed sewer systems is sufficient to study for the President's Council on Environmen- accommodate expected growth for the next 20 tal Quality, EPA, and HUD, entitled The Costs of years. The excess capacity varies from planning Sprawl, in which it examined several different area to planning area. The Ipswich-North Shore combinations of high, medium, and low density area is already severely overtaxed, but the present housing patterns in a hypothetical community. As and proposed facilities in the Boston metropolitan would be expected, the high density (10 units per area have unused capacity to accommodate ex- acre) clustered community cost much less, environ- pected growth over the next half century. Based mentally as well as economically, than a low density on water related infrastructure alone - the Study (2 units per acre) unclustered community. More did not investigate other non-water related infra- open space was available in the high density com- structure - urban areas are capable of absorbing a munity because over half of it remained completely vast amount of the projected growth for the next undeveloped. The low density community con- two decades with far less public investment than tained open space in private yards, but all of its is required by the continual outward spread of de- land was at least partially developed. Improved velopment to unserviced fringe communities. The but vacant land was left by "leapfrogging" develop- decreased dispersion could also facilitate mass ment. Stormwater pollution and sedimentation as transit development and reduce dependence on well as downstream flooding decreased in the high the automobile. Total air pollution (through density clustered community. The clustering pat- probably not urban peak concentrations) and terns turned out to be both resource efficient and overall energy consumption could be reduced, as public investment efficient. Water consumption could the need for more highways. was reduced 6 percent by clustering alone, and 35 percent by high density clustering. Energy con- Use new infrastructure as a toot to guide growth. sumption dropped 14 percent by clustering, and It is only another small step to move from making 44 percent when clustering was combined with maximum use of existing infrastructure to using high density. High density produced lower de- expansion of infrastructure as a tool to guide mands for residential heating and air conditioning, growth. Using infrastructure in this manner can and both density and clustering lowered the use of be either reactive or direct. The town of Ramapo, automobiles. Lowered use of energy for heating New York, for example, reacting to a major de- and automobiles also improved air quality. Public velopment proposal, decided it would not issue a investment costs were lowered by both high den- permit for construction unless an array of serv- sity and clustering. Expenditures for roads and ices - or infrastructure - was already available at utilities were 55 percent less in these communities. the site. The New York Court of Appeals sus- tained the controversial ordinance, which was ac- Given the expected increase in population in the companied by an 18 year plan for public capital next few decades, the opportunities for cost effect- 3-18 TABLE 3.8 SUGGESTED* GUIDELINES FOR USE OF DEVELOPABLE AREAS SHOWN ON PLATES 1, 2, and 3 ................................ MAP PATTERN NONE (color only) ElEnul Other Resource No other Resource High Landscape Quality Upland Wildlife Habitat Aquifer and/or Ground water 0.0 Limitations Limitations (Category C (Category C recharge areas 2) 3) soils (Category C,) Limitations Moderate to No Limitations PW & PS If clustered on no.more than If clustered on no more If clustered on no more than 20% for septic system disposal Any IIC 50% of area - than 30% of area - of area - (Category F & G) Any Res. - PW & PS PW & PS - PW&PS PW only Any IIC Any IIC Any I/C Med. Intensity IIC Any Res. Any Res. Any Res. At least 1/2 ac/DU - PW only PW only - PW only Med. Intensity IIC Med. Intensity I/C Med. Intensity IIC At least 1/2 ac/DU At least 1/2 ac/DU At Least 1/2 ac/DU M Unclustered - Unclustered - Unclustered - Cr Low Intensity IIC Low Intensity IIC Med. Intensity IIC C At least 1.0 ac/DU At least 1.5 ac/DU At least 1/2 ac/DU 0 Unclustered or no PW & PS - M No IIC CD 0 0 -1 At least 3 ac/DU** = -1 03 0 Severe septic system PW & PS If clustered on no more than If clustered on no more If clustered on no more than limitations caused by Any IIC 50% of area - than 30% of area - 20% of area - M M conditions other than Any Res. - PW & PS - PW & PS -PW&PS < slope and ledge soils -I'Wonly Any IIC Any IIC Any IIC (Category C4) Low Intensity IIC Any Res. Any Res. Any Res. 0 At least t.5 ac/DU Unclustered or PW only - Unclustered or PW only - PS only Z Low Intensity IIC Low Intensity I/C Med. Intensity I/C 3 > 0 At least 1.5 ac/DU At least 1.5 ac/DU At least 1/2 ac/DU 0) PW only 0. No I/C At least 3 ac/DU Ledge and/or steep PW & PS No IIC No I/C No IIC slope greater than No IIC At least 3 ac/DU At least 3 ac/DU At least 3 ac/DU 15% At least 1/2 ac/DU 0 (Category C5) PW only No I/C At least 2 ac/DU These are designed to provide a framework for designing guidelines of increasing specificity by state, regional, and local planners, and consultants more intimately knowledgeable with local circumstances. In many cases suggested guidelines for development, particularly for ground water, are estimates of probable safe controls made in the absence of greater knowledge of the effects of development on the pollution of aquifers. Erosion control measures should accompany other restrictions on slopes over 15%. Med. & Low Intensity - refers to water use/effluent discharge/building coverage PW Public Water Supply System Res. Residential PS Public Sewer System ac acre I/C Industry/Commercial DU Dwelling Unit PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made iveness suggested in the above study are important. Act was largely based on the ALI code. Accommodating the region's projected growth un- der current land consumption patterns, even though A rn'ore effective and far more direct way to regulate the study has shown that the land is available, will the location of some key facilities is advance acqui- require an enormous public investment. It appears sition of sites having the greatest environmental and to be both environmentally and fiscally irrespons- economic suitability for these uses. By designating ible to continue making those investments. appropriate site s.1protecting them from preemption by other uses, and either providing interim recrea- c. Regulate Developments of Regional Impact. ti6ril"al, use or leasing them for short-term use, the re- equa Within the alternative of improving the management sioji;could be assu.red'an ad te supply of suitable of developable resources, special attention is given to sites. This alternative, while expensive in the short- those key facilities or major growth inducing develop- run, would pay off handsomely in the long-run - in ments having greater than local impacts. Defined and land costs, and in infrastructure costs if properly discussed earlier in this chapter, these briefly include sited. Moreover, by providing interim leasing or key facilities such as power plants, large scale or growth transferring development rights, even the short-term inducing developments such as shopping centers, and costs could be mitigated. major public facilities such as highways and water and sewer line extensions. While all are vital to the Recommendations. continuing health of the region's economy and, for that matter, to the well-being of the region's people, The SENE Study's Development Capability Analysis has their effects on the natural environment have gen- shown that while occasional shortages may occur in indi- erally been negative. The importance of these facili- vidual planning areas, overall, enough developable land ties and the magnitude of their local and regional exists to accommodate growth through 2020, even if land impacts have been specifically recognized in both the is consumed at the high rate of the last decade. As noted federal Coastal Zone Management Act and the Fed- earlier in this chapter, however, the results of the past dec- eral Water Pollution Control Act Amendments of ade of development have shown that if growth continues 1972. Two strategies for guiding the location and along the same dispersed patterns without careful guid- controlling the impacts of such developments on the ance, significant loss of critical environmental areas will developable areas of SENE have received attention. occur. It is the conclusion of the Study that a land use Two other states in New England have adopted plan is badly needed in Southeastern New England. The procedures for siting developments of regional im- Study's Development Capability Analysis and the follow- pact. Also the Model Land Development Code cre- ing recommended program constitute an important ele- ated by the American Law Institute (ALI) of the ment of such a plan - one which focuses on water and re- American Bar Association contains such procedures. lated land uses. The recommended program is a strategy for guiding growth in a manner which assures adequate Under Maine's Site Selection Act, licensing is re- land for economic development, yet protects the critical quired for any proposed commercial, residential, or natural functions of the region's water and related lands. industrial development which would occupy area in As discussed in Chapter 2, The Setting, this program is de- excess of 20 acres, excavate natural resources, or in- signed to provide support for the growing emphasis on clude a structure with a ground area of more than services in the region's economy. 60,000 square feet. The license may be obtained only if the proposal can pass a state-level review of: The recommended program draws on all three alternatives (a) financial and technical capacity to meet state discussed in the last section. It emphasizes the integrated air and water pollution control standards, to pro- protection of Critical Environmental Areas and suggests vide adequate solid waste disposal, to control odors, ways to minimize negative impacts of development on De- and to secure sufficient water; (b) traffic patterns velopable Areas. At the same time, however, the recom- generated; (c) effects on the natural environment, mendations support and encourage a number of ongoing including existing uses, scenic character, natural re- programs, recognizing the practical advantage of building sources, and property values; and (d) suitability of upon the firm base of existing institutions. soil types for the proposed development. Vermont's Act 250 also includes a review by district commis- The major rec3mmendations are: sions of developments and subdivisions of certain types and sizes, and of any development on land on 1. Increase and Integrate Protection of Critical elevations over 2,500 feet. Massachusetts and Rhode Environmental Areas Island are both considering various means of provid- ing state input into developments of regional impact. 2. Improve Management of Developable Areas The recently approved Martha's Vineyard Land Use 3-20 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Both are extremely complex management issues, involving Protect wetlands by: a wide variety of management and regulation tools and many key actors. The actors have not been designated for *Revision of wetlands legislation as detailed each recommendation below. Almost all of these recommen@ in Chapter 8, Flooding and Erosion. dations can be acted upon immediately by communities, with technical and financial assistance from-regional plan- *Acquisition of the most valuable wetlands. ning agencies and state and federal agencies. However, be- Chapter 6, Outdoor Recreation identified a cause of the earlier stated need for integrated, coherent re- number of wetlands having particular value source management, a comprehensive system should be de- for recreation as well as for flood storage, veloped involving state, substate regional (in Massachusetts), ground water recharge and wildlife. Acqui- and local levels of government. Alternatives for such sys- sition is appropriate because of their multi- tems to carry out the following recommendations are ex- ple values and is necessary to provide public plored in Chapter 10, Strengthening the Management Sys- access for recreation. tem for Natural Resources. 0 Regulation of development on uplands sur- 1. Improve Protection of Critical Environmental Areas. rounding important wetlands through acqui- The region's water bodies, well sites, inland and coastal wet- sition for recreational use or conservation lands, critical erosion areas, beaches, fish spawning areas, easements or other zoning methods. shellfish flats, and estuaries have been classified Priority Protection Areas (category "A" resources). The region's *For coastal wetlands, inclusion on flood flood plains, prime agricultural lands, coastal flood hazard hazard maps for HUD's Flood Insurance areas, and unique and scenic sites have been classified sec- Program. and regulations prohibiting ong priority Other Protection Areas (category "B" re- development in those areas (Chapter 8, sources). Together they form the Critical Environmental Flooding and Erosion). Areas in the region - those lands either too fragile to sup- port any development or whose development would con- Protect critical coastal erosion areas stitute a hazard to public health and safety. by zoning ordinances prohibiting develop- ment and any other use that creates health Priority Protection Areas and safety problems or accelerates erosion rates (Chapter 8, Flooding and Erosion). Protect water bodies from non-point source pollu- tion by: Protect beaches and their immediately adjacent lands by erosion control regula- *Subdivision regulations requiring storm water tions, prohibition of development, or ac- detention ponds for ground water recharge, quisition for recreational use (See Chapter and where feasible, other methods listed un- 6, Outdoor Recreation, and Chapter 8, der recommendations for ground water re- Flooding and Erosion). charge areas. Municipalities, regional plan- ning agencies, and states should develop Protect estuaries, fish spawning areas, and standards for control of runoff and sediment, shellfish flats though not mapped on the De- assisted by federal agencies such as the Soil velopment Capabilities Maps, by prohibit- Conservation Service (USDA) and the Envi- ing outfalls of wastewater treatment fa- ronmental Protection Agency (EPA). (See cilities, power plants, or any other major Chapter 4, Water Supply, and Chapter 5, producers of effluent in these locations. Water Quality). Prohibit dredging, sand and gravel mining, installation of pipelines, and any other Strewn bank and lake shore forest buffer disturbing activity within these areas. strips obtained through acquisition of fee (Chapter 7, Marine Management and simple or of easements (including intercep- Chapter 9, Unwelcome Facilities.) ter rights-of-way) or town shoreline ordin- ances along stretches designated for anti- Other Protection Areas degradation and where erosion and runoff are particular problems. (See Chapter 5, Protect riverine and tidal flood plains Water Quality, and Chapter 8, Flooding by prohibiting further development and and Erosion. See Chapter 5, Water Quality discouraging or prohibiting reconstruction for the recommendations on point-source after substantial storm damage. Acquire pollution.) flood plains for public uses such as recre- 3-21 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ation, relocate public facilities as they are were classified by the Study as Develop- expanded where structural protection is able Areas (category C, F, and G resour- 18 not available or practical. (Chapter 6, ces). The region's future growth must be Outdoor Recreation and Chapter 8, guided to these lands to prohibit destruc- T76oding and Erosion.) tion of Critical Environmental Areas. Protect agricultural sites by state legislation Maximize Public Investment Efficiency by: Options. Wherever possible and desirable guide growth to maximize use of exist- *Clarifying authority for local agencies to ing excess capacity of infrastructure to enact Transferable Development Rights. achieve desired patterns of future growth; and use clustering, planned unit develop- � Reforming tax laws, including strengthen- ment, and impact zoning to increase the ing the preferential assessment laws by efficiency of resource use and decrease establishing penalties for change of use, the cost of public investments in services. providing investment credits for farm re- lated capital costs, sales tax breaks, and Regulate Developments of Regional Impact. or reducing the extent of reliance on the Establish criteria for economically and property tax. environmentally suitable sites for key facilities, large scale or growth inducing � Enabling establishment of "agricultural developments, and major public facili- districts". ties, all of which have greater than local impact on people and resources. To *Providing for limited acquisition of develop- prevent preemption by other uses of ment rights for highest priority lands most the most critical sites, acquire or des- likely to be lost to urbanization. ignate for future public use and lease or specify interim uses. Protect Unique Natural and Cultural Sites by acquisition of conservation or historic ease- A more detailed elaboration of the above, generalized ments, development rights, or fee simple, recommendation for improving management of areas financed by the National Trust for His- suitable for development is as follows: toric Preservation Act and other public and non-profit funds. Use of other tech- Develop According to Resource Capability. niques is described in the Natural Areas Project of New England Natural Re- Manage recharge areas for aquifers neces- source Center. sary for local water supply by: Protect Proposed Reservoir Sites and Their *Zoning ordinances and subdivision regu- Related Watersheds, though not mapped lations restricting density so that septic on the Development Capabilities Maps, by systems will not endanger quality of the prohibition of all but low intensity uses ground water; densities requiring sewers such as agriculture or forestry. Monitor should be allowed only after analysis of the use of tributaries and their banks. the economic and environmental feasi- (Chapter 4, Water Supply). bility of artificial recharge, unless studies show that the aquifer will not be depleted. Protect Erosion Areas also not mapped, (Chapter 4, Water Supply, and Chapter 5 by local sediment and erosion control Water Quality). ordinances. (Chapter 8, f7ooding and Erosion@ *Subdivision regulations ensuring mainten- ance of water level. Storm water deten- 2. Improve Management of Developable Areas. tion ponds with ground water recharge Recommendation has three parts: should be required where feasible. In- crease recharge in urbanized areas by Develop According to Resource Capability. channeling runoff from roofs back to Those lands suitable for development to the soil, installing drains with filters for varying degrees of intensity under several runoff from streets, driveways and park- different levels of management control ing lots, use of permeable drainage ditches 3-22 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made and maximum open space. (Chapter 4, Use new infrastructure as a tool to guide Water Supply, Chapter 5, Water Quality, growth on developable areas by locat- and Chapter 8, F7ooding and Erosion). ing water and sewer systems where growth is desired. The thning of *Special precautions incorporated into development could be controlled regulations to restrict activities hazardous by providing or withholding provi- to ground water quality such as sanitary sion of infrastructure as well. landfill, highway deicing salt, industrial wastes, agricultural runoff, and sand and Use clustering, planned unit development, gravel mining below the level of the water and impact zoning to control distribution table. The operation of sand and gravel and density of development, thereby mining must be carefully regulated to increasing the efficiency of resources prevent subsequent fill by polluting sub- use and public investment in services. stances. (Chapter 4, Water Supply, and Chapter 9, Unwelcome Services). Regulate Developments of Regional Impact Manage best upland wildlife habitat (C2) and Establish criteria for location of areas of high landscape quality (C3) by such key facilities as power plants and zoning ordinances limiting residential develop- petroleum facilities, and large scale ment to extremely low density or be encour- or growth inducing development such aging clustering. In high landscape quality as apartment complexes, recreational areas large scale developments should not development, and highway interchanges. be located on bluffs or hilltops but should These criteria should take into consid- be absorbed in forested regions of lower eration the environmental and eco- areas to lessen their visual impact. nomic ramifications of the siting, and should be incorporated into a review Manage land with ledge and/or steep slopes and regulation process. by zoning ordinances and subdivision regu- lations to limit residential densities. Densi- Identify and protect specific sites for key ties on areas with ledge at, or within three facilities with particular locational needs. feet of the, surface should be determined by For those significant facilities for feasibility of either septic systems or sewers. which few sites meet their require- ments with a minimum of environ- Manage land with severe septic system (C4) mental degradation, sites identified limitations by zoning ordinances and should be protected from preemp- subdivision regulations limiting residen- tion by other uses. The process of tial densities unless sewers are present. site identification should provide Higher densities with sewers should be opportunity for public review and com- encouraged because many of the other ment, ensure orderly development of the land resource categories are only suitable facilities, and allow multiple uses where for low density use. possible, such as in transmission line corridors. It should be based on careful Manage lands with moderate (F) to no consideration not only of the immediate septic system (G) limitations by locational factors (needs and impacts of regulating development on moderate the facility) but also of the regional needs soils according to sewer availability. for the uses and the impacts on desired growth.patterns. Sites could be protected Take Advantage of Public Investment Effi- by: ciency Options 0 Advance land acquisition for future Maximize use of excess capacity of existing facility uses, through purchase, interim infrastructure in urban areas (category E) leasing for compatible uses, and subse- which are vacant and suitable for de- quent transfer to the appropriate user. velopment. It will be necessary to determine and act on problems which 0 Designation of land for future public have previously prevented their de- use and specification of interim uses velopment. consistent with the purposes, making 3-23 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made use of provi'islons spelled out in the affects of development - erosion, flooding, loss of wildlife American Law Institute's Model Land habitat and open space, pollution or loss of water supplies - Development Code. can be mitigated. Implications Enhancing the region's natural landscape through the im- plementation of these recommendations will have import- The SENE Study's detailed Resources Development Capa- ant benefits for the region's economy as well. The Study bility Analysis indicates that both Rhode Island and Mas- emphasizes encouraging economic activities most appro- sachusetts have sufficient developable land to meet their priate to New England. The trends toward light manufac- needs through 2020, The Study's recommended program turing and the increasingly dominant services sector depend is a method for ensuring that the future growth of the re- on the attractiveness of the region's environment to draw gion is guided to those areas most capable of supporting and hold skilled personnel. By taking the recommended new dcvelopment, and for preserving those water and re- steps to build where the land can support it, and protect lated land resources critical to protection of the region's land that cannot, the region's amenity values - in fact its water supplies or important for ensuring public health and major competitive economic advantage - are ensured and safety. The recommendations have important implications improved. We know, through the resource development for national and regional economic development, environ- capability analysis, that enough legitimately developable mental quality, and overall social well-being. Moreover, land exists to meet our needs. It only makes sense, eco- they form the foundation for the rest of the SENE program. nomically and environmentally, to guide growth to those areas. The recommendations, if implemented, will have significant positive effects on national economic efficiency, chiefly by The recommendations, and the development capability reducing the resource and public investment costs of growth. analysis that backs them up, were designed to fit into on- By maximizing the use of the excess capacity of existing in- going state resource management and development pro- frastructure, the cost of accommodating new development grams and the intent of recent federal legislation. Together can be significantly reduced. The clustering of new develop- the recommendations constitute a useful framework --ment, in those areas of the region with only limited develop- through which local, regional, and state planners can carry able land, will bring savings in construction costs, in energy out their increasingly complex resource managementre- consumption, in water consumption, and in the cost of ex- sponsibilities and set priorities for future action - a frame- panding and constructing new infrastructure - water, sewer, work which, for the most part, depends on existing pro- and transportation facilities. By taking the steps outlined grams and institutions. in the recommendations, the region can be assured protec- tion of certain critical resources and yet still have opportuni- In the end, the region's people benefit most. The program, ties for new economic development. if nothing else, provides choice and opportunity: choice of lifestyle - from urban living through clustered suburban It follows that by protecting certain critical environmental development to the more traditional, if highly wasteful, low areas, the overall environmental quality of the region will be density sprawl; and opportunity and flexibility for many enhanced. Perhaps more important, however, since both forms of industrial and commercial development. South- states have already taken steps to protect some of these re- eastern New England is a good place to live and work. The sources, if future growth can be directed to those lands recommended program for guiding growth through resource most capable of supporting it, the traditionally negative development capability is designed to keep it that way. 3-24 CHAPTER 4 WATER SUPPLY The Setting agencies have little effective control over water supply planning and implementation policy. However, at In 1970, 95 percent of the 4.8 million people living in certain points in the decision-making process, non- SENE were served by municipal water supply systems. local agencies have significant powers. In Massachu- The remainder of the population relied on individual setts these non-local powers currently include: private wells. While municipal systems provided 655 million gallons of water per day (mgd) in 1970, the 0 The General Court. Local water supply agencies total average demand in 1990 is expected to be about must seek legislative approval for development out- 890 mgd. In 2020, the projected demand will prob- side of local jurisdictions and for diversions out of ably be between 1200 mgd and 1400 mgd. New re- watersheds. sources must be developed to supply these needs. 0 ne Office of Administration and Finance. Local Development, Management, and Delivery of Water water supply authorities require state approval for Supplies many types of capital expenditure. Massachusetts and Rhode Island differ somewhat in 0 The Department ofPublic Health. This department their institutional arrangements for planning, develop- has important approval and veto powers over deci- ing, managing, and delivering water, although the gen- sions relating to municipal water supply quality and eral characteristics of institutions in both states are allocation. similar. Municipal water supply is generally provided by local institutions. The largest locally-managed 0 The Division of Water Pollution Control. Thisdivi- regional system in SENE is the Providence Water Sup- sion of the Department of Natural Resources can ply Board. On the other hand, the region's largest effectively control the volume and quality of 'water supplier of water, the Metropolitan District Commis- supply through control of waste water disposal. sion (MDC) is not a local institution, but instead is an arm of the state under Massachusetts General Law, 9 The Water Resources Commission. The WRC co- Chapter 92. ordinates the formulation of state water resource policy and programs. Local Institutional Arrangements. Local institutional arrangements take several different forms. The most 0 Regional Planning Agencies. Regional planning common institutions are public municipal water supply agencies in Massachusetts may identify the need for systems, usually created by local legislative action and changes in proposed development's through their developed and managed by local water departments. review powers under A-95 and comparable state Other forms include private water companies chartered review processes. by the state and special water supply systems created by special acts of the legislature to meet the joint 0 The Courts. The courts may resolve particular water needs of a number of communities. Some communi- supply controversies. ties rely wholly or partially on privately owned wells for their municipal water supply. In Rhode Island, the degree of non-local involvement is similar. Additional institutions and requirements include: Historically, municipalities in SENE have depended either on private wells or on a local water supplier who 0 7he General Assembly. Local water supply agencies developed and managed their water resources. This must seek legislative approval for development out- arrangement is most appropriate when local ground side of local jurisdictions and for diversions out of water is the source of supply. Local water supply sys- watersheds. tems allow municipalities to remain independent of regional systems. This historical preference for "home The Water Resources Board (WRB). This board super, rule" in SENE communities must be considered when vises the development and conservation of the state's ' planning the development of water supplies. resources. It accomplishes this objective through long- range, comprehensive planning and implementation State and Federal Arrangements. Most water supply programs. The WRB is authorized to acquire sites and planning, development, and management is accom- to construct and operate facilities for water supply, plished at the local level; regional, state, and federal 4-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 0 Public referenda. A public referendum is required on for Natural Resources, contains a discussion of long-range General Obligation bond issues for water supply de- efforts for regional, integrated management of each state's velopment projects. water quality and supply. Two federal agencies also exercise some control over water It must be emphasized that the reader cannot gain a clear supply management: perspective on water supply or water quality in the SENE region without also reading the other chapters cross- 0 The U. S. Environmental Protection Agency (EPA). referenced in the text. For example, Chapter 4 builds upon The EPA may require Environmental Impact State- the principles presented in Chapter 3, Guiding Growth, by ments from water developers; it also administers recommending policies and actions designed to protect water quality permits. Critical Environmental Areas and by discussing the various constraints on land use imposed by the necessary protec- 0 Ae Department ofHousing and Urban Development tion of significant ground and surface water resources. This federal agency may require the satisfactory Cross-references to other chapters such as OutdoorRecrea- achievement of certain water supply requirements tion (Chapter 6) have also been made. Chapter 11, 7@ving for eligibility for federal grants-in-aid. the Recommendations Together, summarizes the inter- relationships between objectives and recommendations Planning for Water Supply and Water Quality designed to meet water supply needs and those proposed in other chapters of this report. As outlined in Chapters 1 and 2 of this report, the SENE Study has developed a series of recommendations which are The Situation based on the use of existing institutions and programs. Chap- ter 3, Guiding Growth, provides a framework in which water The major objective of the SENE water supply program is supply and water quality plans are developed in the context to meet municipal needs for adequate supplies of fresh of other water and related land resource policies. Planning water in the most economically feasible and environmen- for water supply and water quality, if the basic policies dis- tally sound manner. In addition, wherever possible, the cussed in Chapter 3 are followed, must be accomplished in Study has attempted to accomplish this objective through an integrated manner. consideration of local preferences. The objective was con- sidered in light of alternatives such as demand management, Water supply and water quality are intimately related. Just the use of surface and ground water sources, local self- as the amount of water used by a community affects the sufficiency, reliance on emerging technology, improved efficiency of its wastewater treatment plant, so, too, does water resources management, in-basin and inter-basin trans- the amount of sewering in a community affect the level of fers, and improved institutional management. its ground water resources and its stream flows. Therefore, basic policies involving water supply and water quality is- In 1970, public water supply systems in SENE supplied 655 sues must be resolved in a spirit of coordination and co- million gallons per day (mgd) to 95 percent of the people operation. living in the region. The estimated 1990 and 2020 water consumption needs for the SENE region have been calcu- Ideally, Chapter 4, Water Supply, and Chapter 5, Mter lated on the basis of the Bureau of Economic Analysis Quality, should be treated together. However, because OBERS "Series E" population projections. Theseprojec- water supply and water quality institutions are generally tions estimate a population of 5.8 million in the region by separate in the SENE region, it seemed desirable to pro- 1990 and 7.0 million by 2020. They reflect a significant vide each group with information which emphasized its decrease in the rate of population growth in the region. particular concerns. The Study's recommendations, while fully recognizing the interrelationships between water Using these figures and assuming a one percent (I -KI) quantity and quality, can be implemented by the existing per capita increase in water use per year through water supply and water quality institutions themselves. 1990, the total average demand in 1990 is expected to be approximately 890 mgd (Table 4.1). If such a trend in At the same time, every effort has been made to stress consumption were to continue, the projected demand in water supply and water quality interrelationships through 2020 would be about 1,400 mgd. In this case, about 700 numerous cross-references in each chapter. The section in mgd would have to be developed over 1970 supplies. How- Chapter 4, entitled "Improving Water Supply and Water ever, it may be reasonable to assume a lower rate of increase Quality Management" discusses methods by which greater in water consumption after 1990. The present rate of con- cooperation between water supply and water quality insti- sumption, occasioned by the widespread use of appliances tutions might be achieved. In Chapter 5, a section entitled such as air conditioners, dishwashers, and washing machines "Areawide Management" also deals with this topic. More- will probably level off somewhat in the next 20 years. In- over, Chapter 10, Strengthening theManagement System dustrial consumption may level off as well, as higher water 4-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made quality will allow more industries to recycle their water. 0 Expanding or forming regional systems; and The number of water-using industries in the region may also decrease in the future as SENE becomes more "service-- 0 Improving institutional arrangements. oriented"(Chapter 2, The Setting). In addition, water con- servation and the increased use of efficient water saving ap- The following discussions will consider each of these alterna- pliances will probably also slow the increasing rate of water tives in turn. Generally, a combination of the above mea- consumption. If a lower per capita increase in consumption, sures will provide the best solution for a specific situation. for example 0.5 percent per year, is assumed after 1990, the projected average demand for water will be about 1,200 Managing Water Demand, Even if the SENE popula- mgd by 2020. Even so, the deficit between 1970 and 2020 tion stabilizes sometime during the 2 1 st century as pres- will be about 500 mgd. New resources must be developed if ently appears likely, a decrease or stabilization in the water the residents of the SENE region are to be supplied with suf- consumption increase rate will be necessary to slow down ficient water in the future. the region's demand. Anticipated demands can be signifi- cantly reduced if water conservation measures are instituted. The Solutions Unfortunately, despite recent public concern for the conr servation. of natural resources and the need for planning to Alternatives address environmental issues, the public has not been willing to save water, except in situations of extreme emergency. In order to satisfy the objective of meeting municipal needs The low cost of water - for example, approximately 1 cent for an adequate supply of fresh water, the SENE Study has for 50 gallons in communities served by the MDC - may be considered a number of alternative measures: primarily responsible for the lack of a water conservation ethic. � Managing water demand; Because of the environmental, economic, social, and legal � Developing ground water; constraints which hinder increasing water supplies in SENE, there is a strong need for managing not only supply but � Developing surface water; water demand as well. Since demand is, for some high vol- ume users of water, a function of price, some basic changes 0 Achieving self-sufficiency; in the present structure of water rates should be considered. � Using emerging technology; The price of water should not merely represent the sum re- quired for its transmission to home or business. Under the � Improving water supply and water quality manage- criteria of economic efficiency and social well-being, water ment; should be priced in such a way as to ensure its allocation to those uses for which its value exceeds the cost of increased � Making interbasin transfers; supply. To ensure that this occurs, price needs to be set equal to the marginal cost of production. Those users who TABLE 4.1 AVERAGE DAY WATER USE PROJECTIONS BY PLANNING AREA*: 1990 and 2020 (in rngd) Planning Area 1990 Use 2020 Use Ipswich-North Shore 108.91 189.64 Boston Metropolitan 407.23 525.61 South Shore 31.10 80.38 Cape Cod & Islands 277.40 55.01 Buzzards Bay 31.49 61.50 Taunton 70.20 121.11 Blackstone & Vicinity 141.83 197.09 Pawtuxet 26.38 44.69 Narragansett Bay 40.89 80.50 Pawcatuck 8.27 17.08 TOTAL: 893.70 1372.61 Planning area totals based solely on projected average day water needs at an increase in use of 1% per capita per year. 4-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made value additional water more than its marginal cost will use demand management policies could be instituted for this it, while those who value it less will tend to conserve it. If sector. A case exists for charging the full marginal cost paying the full marginal cost of production precludes cer- price to all users during the peak-load season (June - tain uses and restricts others, it may be argued that those August @ Maximum-day demands (about 160 percent of uses are not in the best economic interest of society when average-day demands) occur during this period. This fact water resources are scarce. Marginal cost pricing tends to assumes significance once it is realized that the water sup- clear the market for water at the point of maximum net ply systems are designed to meet projected maximum-day benefit to society. Therefore, it can be an important instru- demands rather than average-day demands, and the addi- ment of public policy aimed at efficient allocation of water tional unit cost of this capacity expansion is considerably resources. higher than average. Next, certain peak season demands such as lawn sprinkling are known to be price elastic Where the demand for water is elastic (its use drops signifi- (Howe and Unaweaver, 1967, Water Resources Research, cantly with rising prices), price increases can substantially Vol. 3 #1, pp. 13-30). Finally, seasonal rates can be ap- affect not only the total amount used, but also the patterns plied administratively, without requiring any special of use over time and the allocation of water resources among meters. different uses. These adjustments in turn, can strongly in- fluence the size and timing of incremental additions to sup- If other institutional pricing mechanisms fail, a progres- ply capacity, as well as the valuation and distribution of net sive sales tax on retail water sales could be instituted. The benefits from incremental capacity expansion. proceeds from such a tax could be placed in a special fund established for the purpose of financing future water sup- It is generally recognized that the demand for water for ply and wastewater treatment developments, or to com- domestic, institutional, and commercial uses is price pensate the communities whose environment is disturbed inelastic - even doubling the price would probably not by large water supply systems. have a significant effect on demand by the private sector. On the other hand, the price of water is generally elastic In this context, it is important to note that although water for large industrial and agricultural users. Replacing the supply and wastewater treatment are closely related issues, decreasing block rate structure presently charged to these consumers should not be charged twice for wastewater high-volume users with a higher metered flat rate or a treatment by their sewer and water bills. At the same time, schedule of increasing block. rates, would help bring the however, consumers should be aware that an interrelation- prices offered to high-volume users more in line with the ship does exist between water quantity and quality and that cost of developing new sources of supply. The short-run their patterns of water use affect both situations. A pro- effects on commercial and industrial users would be gram of public education, outlining the advantages of largely income-distributional. However, in the longer run, conservation in maintaining water supplies and protecting high-volume users would have an incentive to invest in water quality is another form of "demand management" water-saving equipment and conserve usage in other ways. not accomplished by economic means. Voluntary compliance with the uneconomical aspects of the pricing policy by water utilities is unlikely, however. Additionally, a form of demand management for the pri- Therefore, legislation would be required to implement vate sector can be achieved by requiring the use of water- pricing alternatives. saving devices when their efficiency has been proved. It has been estimated that nearly 50 percent of household con- Some industries are now investigating the feasibility of sumption. of water is accounted for by toilets. Similarly, .f" cling their own wastewater in their manufacturing some washing machines use twice as much water as some recy processes. Such a "closed cycle" would have a marked ef- others. It appears desirable, therefore, that proven water- fect on the amd-unt of water used by industry, and would saving fixtures be considered in all new buildings whenever free supplies for municipal use. The new effect of such a the cost of water saved would exceed the cost of the con- practice will vary with the percentage of municipal water servation device. Again, a public education campaign on supplies used by industries. If industrial use requires 40 the benefits of such fixtures could increase their use and percent of municipal supplies, increasing block rates and reduce unnecessary waste of water. subsequent reduction of industrial use could result in a significant reduction of total municipal water consump- In conclusion, it may be said that although the case for tion. However, if only 20 percent or less of municipal water demand management has not been accepted by the supplies is required, even large reductions on the part of public in water-plentiful parts of the country like the industrial consumers would not result in substantial net Northeast, it has been shown to be effective in other water- savings. short parts of the country. Additional study to determine the true cost of water, including its social and economic Although in general, residential use of wat@r would not be costs, must be carried out. Policy guidelines are also needed affected by all but the highestrate increases "@ for using the revenues collected for social and environmental some water 4-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made improvements. Although it will not solve all our water con- treme drought conditions. All too many SENE communi- servation problems,water demand management appears to ties have been unwilling to spend the money to develop be a useful tool in,. developing a water conscious society and supplies until it has been demonstrated that they do not in encouraging a more efficient use of water. have an adequate safe yield to meet conditions such as drought or increased demand. Developing Ground Water. Even if the rate of increase in water consumption can be reduced or stabilized within The Central Massachusetts Water Supply Study has reCOM7 the next 15,to 25 years, additional sources of supply will mended that all communities with the potentialfor locat- still. hAve,to',betapp9d to meet the 1990 and 2.020 SENE ing and developing additional ground water sources should water demarids.@ As in the past, ground water and surface undertake continuing programs of well exploration, testing, water will be the two major sources of additional future and site acquisition. The objective would be to completely supplies. Figure 4.1 shows which of those sources are pro- evaluate the ground water resources of these municipalities posed to supply the towns of the SENE region. Develop- within a five-year period. Where sufficient water is available, ment of either of these sources presents advantages or prob- communities should acquire well sites at least adequate to lems, according to the specific situation under consideration. supply projected 2020 demands as soon as possible; even Municipalities with a choice between ground and surface wells requiring some treatment should be acquired if they sources must balance these pro's and con's before choosing are the best available. If the municipalities acquire water either alternative or a combination of both. This section supply resources now, and protect and preserve them to discusses the ground water alternative, while the next sec. meet future demands while encouraging compatible interim tion will examine surface water. use, then eventual social, economic, and environmental costs should be significantly reduced. In many cases, ground water is presently the most economi- cal source of supply. At a very general level, the cost of de- In many municipalities, especially in the Blackstone, Paw- veloping ground water might be expected to amount to ap- catuck, and Cape Cod planning areas, geologic conditions proximately $100 per million gallons. This figure includes are favorable for ground water development, and ground the costs of a limited amount of exploration and the devel- water is the most economical alternative. For communities opment and operation of wells at a local level. It includes such as these, the Central Massachusetts Water Study has the price of chlorination, but does not include the price of recommended that the Water Resources Commission, in co- ground water treatment for removal of iron and manganese. operation with the U. S. Geological Survey (USGS) conduct Even the cost of this treatment, which could increase the a survey of ground water location, quantity, and availabflity price of ground water by about 40 percent, might still be in the region. In Rhode Island, the same projects could be less expensive in many cases than development of surface carried out by the Water Resources Board and the USGS. water sources. Moreover, the desirability of ground water Such a survey would provide information to help munici- development is further enhanced by the opportunity for palities design their well-site exploration programs and to municipalities to spread out capital expenditures over time assist regional agencies in evaluating future needs to supple- through phased construction of wells. ment ground water. In addition, the survey would provide data necessary for the regulation, protection, and preserva- Ground water resources are particularly appropriate when tion of ground water resources. supplies are developed and delivered at a local level. The preference of many of the SENE communities for local Such a program could enhance the economic outlook of autonomy has previously been emphasized. Rural com- communities relying on ground water by allowing them to munities in the SENE region are the most likely to con- use this economical source of supply to its maximum ex- tinue, their reliance on ground water supplies. Not only do tent. The communities would benefit from the expertise they have the necessary recharge areas and the limited de- of the Water Resources Commission and the US. Geo- mands, but these communities also tend to have the strong- logical Survey in preserving existing resources and in devel- est feelings about "home rule"And local independence from oping additional supplies. A recent referendum in Barn- regional water districts. stable County has authorized the County Commissioners to appropriate funds for such a program on Cape Cod. The However, municipalities which rely on ground water as a program will be jointly financed by the Divisions of Water local source of supply must be aware of the importance of Pollution Control and Water Resources of the state's Water maintaining and improving their supplies. They must also Resources Commission, Barnstable County, the U. S. Geo. be aware'Of the environmental and economic impacts which logical Survey, and the National Park Service. Figure 4.2 result from ground water use. In addition they must devel- shows all areas. in SENE where ground water studies and op new sources of ground water, if possible. management should be implemented. The drought of the sixties (1963-1966) revealed that many As development encroaches on recharge areas, many kinds municipal ground water supplies were insufficient under ex- of activities tend to threaten the quality of ground water 4-5 LEGEND Surface Water Sources Ground Water and Surface Water Sources Ground Water Sources J# Imm-mm" wAssAmtserrs 'p 0 SAY A rLA&ric OCZAiV y 1-eI. -7 @yl e At I' L "OE CAPE COD SAY v lzk161.11. 1 'w 4 el f L11- #AmrvCjrzr SO&,wo low. AVLOCK ISLAND, ... SOUND 0 2 4 I f MILES 1--4r --- J@ KILOMETER@ 2 16 NEW ENGLAND RIVER.BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS PROPOSED NO. 4.1 SOUTHEASTERN NEW ENGLAND WATER SUPPLY SOURCES WATER AND RELATED LAND RESOURCES STUDY 4-6 Areas where salt water encroachment should be monitored AApply computer simulation models 0Restrict activities hazardous to ground water from prime recharge area, 0Establish recommended pond level and strearnflow depletion limits VIC, NTW, - IA mAssAcmusirrs A rLAmric ocLr AN q, VIC IT( Y L xii er A- - - - - - w- IN 136,1 "Mam IT Me Me ^j ....... Age r cAPr coo &Ar -IV AM I - @4' e' IAN I 'A 011 #A#ri!cxr? sov&D To"111, @(AMIN If A AMF AM I. #A##AsAvsrrr adr OLOCA, ISLAND SOUND MILES KILOMETERS 0 NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. AREASFOR 4.2 SOUTHEASTERN NEW ENGLAND GROUND WATER MANAGEMENT WATER AND RELATED LAND RESOURCES STUDY 4-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made supplies. IN protection of these recharge areas in com- have a high theoretical gafe yield, withdrawal of too much munities relying on ground water is therefore extremely of their water can result in excessively low strearnflows or 41 important. Activities shown to be hazardous to ground pond levels. Pumping permits should be required to con- water quality, such as operating sanitary landfills, storage trol streamflow depletion and pond level lowering in these and use of highway deicing salt, and industrial waste dis- cases. posal, to name only a few, should be restricted from re- charge areas of both existing and potential sites for public The Rhode Island Water Resources Board currently sets supply wells. stream depletion standards in that state. For communities relying on ground water, municipalities or water manage- This alternative would enhance social well-being and envi- ment authorities should establish recommended pond ronmental quality by protecting valuable ground water level and strearnflow depletion limits based on the value sources from pollution. In addition, it corresponds in part not only of water supply, but of other water uses as well. with the land use recommendation included in Chapter 3, Maintaining specific streamflows and pond levels will cor- (Guiding Growth), protecting portions of "Developable rect many social and environmental problems of low or Areas Requiring Management" some of which are aquifers irregular flows. Water quality will tend to improve, recre- and recharge areas, (Category C on plates 1, 2, and 3). ational uses such as boating and fishing will not be im- paired, and fish and biota will live in a more favorable en- It is important that such land use policies be formulated as vironment. Furthermore, higher strearnflows will provide soon as possible by the communities involved, in order to downstream surface sources with a more dependable water avoid degradation of these resources. Municipalities rely- supply. (Note. These same advantages can be achieved by ing on ground water could receive economic benefits from programs of low flow augmentation). (See Chapter 5, this low-cost source. However, they must pay the price for Water Quality.) this advantage by restricting land development over re- charge areas and perhaps by regulating housing density or Maintenance of ground water recharge in municipalities by sewering areas which might otherwise affect ground with increasing development is an important problem. In- water quality. creased development in many towns has covered recharge areas with houses, roads, shopping centers, and other im- In order to maximize the potential of ground water re- permeable surfaces. In order to maintain their groufid sources, it will be necessary for municipalities to maintain water supplies, these communities can create new rapid ground water recharge and to prevent contamination from recharge areas where infiltration may be concentrated. natural as well as man-made sources. Coastal communities The low cost of ground water may be enough to offset the relying on ground water should be encouraged to monitor extra costs in maintaining its supply. Again, trade-offs salt water encroachment and to define acceptable limits must be made by the municipalities, restricting develop- for encroachment caused by well withdrawal. A legal and ment in the new recharge areas so that they may compen- institutional framework should be established to prevent sate for the recharge lands previously lost to development. violation of these limits. Monitoring will provide an early warning system to safeguard ground water quality for A topic of some controversy in SENE .at the present time future use. After the necessary legal authority is provided, is the land application of treated wastewater. (See Chapter individual municipalities Or a regional water management 5, Water Quality@ This process has the benefit of TechaTg- agency, such as the one discussed for Cape Cod in a follow- ing ground water from sources (stormwater and waste- ing section, could maintain ground water levels and control water systems) which would otherwise carry their water and limit salt water intrusion by requiring permits for ground out of the basin. However, land application is also a poten- water withdrawal in excess of 50,000 gallons per day. Further tial source of water quality degradation, and careful atten- water management actions are outlined in the Cape Cod tion must be given to the water quality and health aspects* and Islands planning area report. of such disposal. If future study shows that land applica- tion is economically, environmentally, and medically sound, Regulating ground water withdrawal is also a method of spray irrigation of treated wastewater would be particularly protecting streamflows and pond levels. All rivers in the appropriate in the Taunton and Cape Cod planning areas. SENE region are highly dependent on ground water dis- charge for their flows, especially during the summer This topic is discussed more fully in the Water Supply months. Examples of streams which could be particularly and Water Quality sections of the individual planning sensitive to depletion caused by existing or potential area reports. ground water development are the Ipswich River, the Charles and Aberjona Rivers (Boston Metropolitan plan- In conclusion, where ground water is available, it is an ning area), Abbott Run (Blackstone planning area), the economical source of supply. It also allows municipalities Chipuxet and Usquepaug Rivers (Pawcatuck planning to make the most of local resou 'rces and to remain inde- area), and the Ten Mile River. Even though some aquifers pendent of regional water supply systems. However, in is 4-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made some parts of the SENE region there may be "too much of security of inter-municipal cooperation. Several regional a good thing". For example, Burillville, Rhode Island has water supply systems have been recommended for the seven independent water supply systems. In many cases, SENE region. Some of these are discussed briefly in a fol- local systems may have inadequate financial resources for lowing section, and all are discussed at length in the sepa- maintenance of their property or the expansion of their rate planning area reports. Among the recommendations service areas. The benefits of local autonomy for these are proposals for establishing systems in the Ipswich River, systems must be balanced against the economic and envi- Taunton River, South Shore, and Blackstone planning ronmental losses due to inefficient management. Munici- areas. Extensions of service for existing water supply sys- palities which choose to use ground water must atso be tems such as the MDC, the Providence Water Supply Board, sure to avoid harmful environmental impacts. Moreover, the New Bedford Water Department and the Brockton Wa- they must take decisive steps to maintain or improve the ter Commission, have also been proposed and will be dis- quality and quantity of their resources. If this is accomp- cussed in greater detail in the appropriate planning area lished, their water supply policy will retain a flexibility reports. It thus appears reasonable that, where local greater than that of municipalities which have abandoned water supply development has proven insufficient, where their local ground water sources for other supplies. growth is expected, and where sources of supply are limited, certain municipalities should be encouraged to Developing Surface Water. Many municipalities do join existing regional systems, or to form new ones for not have additional supplies of available ground water, or their organizational and economic benefits. Figure 4.3 if available, its low quality may require a prohibitively , shows the existing and proposed regional water supply costly degree of treatment. Because of the large quantities systems in SENE. of surface water available for use, it is an extremely impor- tant source of supply, though it is often more costly than Surface water, like ground water, must be developed and ground water. The development of local surface water managed to provide adequate supplies for future needs. supplies generally proves to be extremely expensive. While Most important, municipalities having existing sources of local ground water supplies may cost about $ 100 per mil- supply should maintain the quality and yield of those lion gallons (see above) comparable local surface water de- sources to ensure their continued use as long as it is tech- velopments may roughly cost as much as $500 to $700 nically possible and environmentally and economically per million gallons. Acquisition of land, construction of feasible. In addition, to preserve future options for de- dams, aqueducts, and water mains, as well as system main- velopmeni of water supply resources, key watersheds tenance and water treatment, can be more efficiently should be acquired or managed (See Chapter 3, Guiding handled by a group of municipalities working together. Growth@ Management of watersheds should include These municipalities will realize economies of scale by join- monitoring of tributaries to ensure that sources of pollu- ing other cities and towns in regional water supply systems. tion are restricted from the area. A municipality should A rough estimate for the cost of developing regional sur- not foreclose its future water supply alternatives by fail- face water systems, comparable to the local surface and ing to purchase or protect areas which have a potential local ground water systems discussed above, would be ap- for further water resource development. Proposed reser- proximately $400 per million gallons. SENE's largest re- voirs and their watersheds are classified as "OtherProtec- gional system, the MDC, is able to realize significant econo- tion Areas" (Category B) in Chapter 3, and they should be mies of scale. It charges about $240 for a million gallons carefully managed to avoid an irretreivable commitment of water. Of the surface sources in SENE, the Ipswich and of resources. Watersheds which have been proposed for Taunton Rivers in Massachusetts and the Big (Pawtuxet protection are shown on Plates l a, 2a, and 3a in the map planning area) and Tarkiln (Blackstone and Vicinity plan- pocket. ning area) Rivers in Rhode Island, appear to be particularly appropriate as sources of regional water supply. In the past, emphasis has been placed on the protection of surface water resources. However, future state require- Regional surface water supply systems can provide econo- ments will trend toward complete treatment of all surface mies of scale where local systems prove to be inefficient. sources. With the emphasis on treatment rather tharion Cost shaning, operational efficiency, and quality control preservation, municipalities may, in the future, be-able to are benefits provided by the regionalization of surface develop some water sources of low qualitywhich are not water supply systems. As in other businesses, a large oper- presently used. Moreover, if treatment is ma .ndatory,the ation permits careful planning efficient organization, and large amount of watershed acreage now required for reser- the elimination of the duplicaiion of effort involved in a voir protection may not be necessary. Instead, some of number of separate similar operations. For surface water theJan'd could be used for limited recreational purposes dependent areas, regionalization of systems should be (See,Chapter 6, Outdoor Recreation). Use of watershed encouraged. At the same time, it must be noted that lands for such pursuits would, of course, necessitate a regionalization sacrifices the local autonomy of individual degree of treatment to ensure quality. In addition, recent municipalities for economic rewards and the long-term findings onthe health hazards associated with water treat- 4-9 Existing Regional Water Supply Service Area - - 1970 Partially served by an existing regional AMIL Water Supply Service Area - - 1970 Proposed 1990 Water Supply Service Area 0 Not expected to have municipal systems by 1990 All other communities will have individual municipal water supply systems or will have systems sharing urce ofith only one other community. A r i. A Af rt c vrrAo E 6-- 0 T / N ' - AUN "V- 'Clopf coo 04Y If- T1 "D L R sovmq 0 v A It MILES MILOMIETUAD 4 0 10 NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. EXISTING AND PROPOSED 4.3 SOUTHEASTERN NEW ENGLAND WATER SUPPLY SERVICE AREAS WATER AND RELATED LAND RESOURCES STUDY 4-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ment lend support to the policy of protecting our surface However, there are not enough examples of this type of water supplies as well as treating them. technology to recommend it for general use without quali- Surface water, then, will continue to serve as a major source fication. Furthermore, the cost cited in the quotation does of supply in SENE. In general, the smaller, more local water not appear to include transmission and distribution, both of systems will be able to develop ground water more cheaply which are the major components of total water supply costs. than they would surface water resources. However, the larger the system, the more likely it is that surface water Drinking water is only one of the many products of re- will be a more economical source of supply. cycling, however, and some industries are already recyc- ling wastewater for use in their manufacturing processes. Achieving Self-Sufficiency. In the two previous sec- If water quality standards ar 'e met, industrial water sup- tions, a great deal of emphasis has been placed on alterna- plies may become pure enough to make recycling even tives which maintain or encourage development of existing more economically feasible for many high volume water local resources. The alternatives to be considered in this users. Again quoting from the Engineering News Record case are self-sufficiency and dependence on out-of-commun- centennial edition: ity or out-of-basin resources. In general, local self-sufficiency is a more flexible and more popular, but often a more costly "By 1974 or 1975 [Denver] will reclaim 10 alternative than dependence on outside systems. In order million gallons daily of wastewater for industrial to achieve a "hydrologic balance", water should ideally be use; by 1986 about 100 mgd, and by 2000, re- used and disposed of in the basin from which it was with- claimed water will supply 25% of the city's total drawn. Moreover, the economic and social complications needs." of interbasin transfers, to say nothing of the legal complica- tions of interregional transfers, can impede the transport of Thus, while it will probably be many years before recyc- water and minimize its quantity. The use of local ground led wastewater is used for drinking water, it could be water or in-basin regional surface water supply systems are feasible to use it in some industrial processes in SENE in the alternatives which best achieve the goal of self-sufficiency. the near future, thereby making additional water supplies They allow a flexibility in water supply policy which is lost available for municipal use. if in-basin sources are not used to their maximum extent. Although the current energy crisis and a continuing short- If carried to extremes, however, a policy of self-sufficiency age of fossil fuels may have adverse effects on the eco- can militate against concentrated growth patterns - held nomic feasibility of energy -intensive desalination in con- to be the basis of a rational SENE land use policy in Chap- junction with conventional power plants, the use of waste ter 3. Local self-sufficiency should not be encouraged to heat from nuclear power plants for desalination is a topic the point where it identifies the environmental, economic, which should be carefully researched. In addition to pro- and social consequences of scattered growth. After judicious viding a lower cost energy source for the desalination pro- use of in-basin ground water and regional in-basin surface cess, this method would help to reduce the thernial pollu- water, interbasin transfers will be the only alternative for tion presently caused by nuclear power plants. If further supplies to be developed in the near future. Figure 4.4 il- research on this method of desalination - and on methods lustrates the existing and proposed water supply transfers of disposing of the brine it would generate - were success- in SENE. It is apparent that many of them cross hydrologic ful, municipalities on the South Shore might be able to boundaries. Further discussion of specific in-basin and jointly develop an economically feasible desalination fa- interbasin transfers may be found in the ten planning area cility for public water supply with the Pilgrim nuclear reports. power plant in Plymouth. Some distribution facilities already exist for such a source, a fact which increases its Using Emerging Technology. By 1990 or 2020, re- economic viability. search into wastewater recycling, spray irrigation of treated wastewater, and desalination may have made them feasible Spray irrigation, discussed in the ground water section of alternatives to reservoir construction for sources of water this chapter could indirectly provide the SENE region with supply. As far as wastewater recycling is concerned, the a new "source" of water. Spray irrigation of treated waste- Engineering News Record centennial edition of April 30, water provides a way of returning water to the water table 1974 stated: from which it was originally drawn. Additional study of the economic feasibility, environmental impacts, and health "Under present AWT (advanced wastewater treat- aspects of this procedure in SENE must be undertaken. ment) technology, the cost of bringing secondary effluent to drinking water quality is about 40 Advanced technologies may, in the long-run, alleviate some cents per 1,000 gallons in a 10 mgd plant. As the of the future water supply problems which the SENE region volume increases, the price falls. . . faces. Although they may relieve many of the environmen- tal stresses which we are currently placing on our water re- 4-11 Intermunicipal Transfers: 1970 Interflegional Transfers: 1970 X- Proposed 1990 Intermunicipal Transfers 0 Existing Sources of Supply: 1970 (approximate location) Proposed 1990 Reservoirs (approximate location) N.AOSSACIVUSErrs SO/M Harkv BAY A r i A ri Or ccrAA, LP Or ASIO. 0 @k CAPE cap OAY V r f _j .......... % say NANr41C&Er SOUND 14 01OCK MANZ? S041NO co MOLES @ 6L 0 2 1 a 16 NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. EXISTING & PROPUSEII 4.4 SOUTHEASTERN NEW ENGLAND WATER SUPPLY TRANSFERS WATER AND RELATED LAND RESOURCES STUDY 4-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made sources, we should ensure through intensive research, that One method of coordinating water resource management they do not place additional burdens on the environment. would be to establish regional authorities to deal with wastewater treatment and disposal as well as with the de- Improving Water Supply and Water Quality. Water velopment, maintenance, and distribution of water supplies. supply and water quality are intimately related. For ex- These authorities would have regulatory, operational, and ample, removing wastewater from a watershed by sewering management powers in areas of water supply and waste- can lower the level of ground water and deplete strearnflow water disposal. However, conflicts might arise between there, creating a problem for municipalities which rely proposed water management authorities and existing water upon ground water resources for their supplies. On the supply and wastewater disposal systems. If the geographi- other hand, the amount of water consumed in a munici- cal boundaries of the last two interests were not cotermin- pality directly affects the size and efficiency of its treat- ous, a great deal of institutional reshuffling and political ment plants. An effort must be made to coordinate the confusion could result. In addition, the interests of local management practices@ at both ends of the water pipe. municipalities and local water supply and wastewater dis- posal systems in "home rule" are in many cases too en- Water supply systems are generally not institutionally trenched to accept a regional authority which could dic- linked with wastewater disposal. The Metropolitan Dis- tate water supply and disposal policies. Much careful re- trict Commission is probably the only exception to this search and consideration would have to go into recommend- general situation in the SENE region. (@reater coordina- ing the immediate adoption of specific water management tion between water supply and wastewater disposal sys- authorities. The background information available to the tems, however, could result in economic and environmen- SENE Study was not sufficient to provide such a recom- tal benefits for the region, as well as in more efficient mendation. However, over the long-term, conditions for water management policies for both water supply and the establishment of regional water management authorities water quality interests. may become more favorable. Two institutional approaches TABLE4.2 COMMUNITIES SERVED BY THE MDC in 1970 FULLY SUPPLIED MEMBERS: Arlington Marblehead Revere Belmont Medford Saugus Boston Melrose Somerville Brookline Milton Stoneham Chelsea Nahant Swampscott Everett Newton Waltham Lexington Norwood Watertown* Malden Quincy Winthrop PARTIALLY SUPPLIED MEMBERS: Cambridge Peabody Canton Wakefield Lynnfield Weston Needham Winchester NON-MEMBERS SUPPLIED: Clinton Leominster Southborough Chicopee Marlborough South Hadley, F.D. #1 Framingham Northborough Wilbraham *Worcester On an emergency basis only. 4-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made for a more integrated approach to water management are from tributaries of the Connecticut and Merrimack River described in Chapter 10, Strengthening the Management basins. Table 4.2 lists the municipalities served by the System for Natural Resources. In addition, Chapter 5, MDC as of 1970. Water Quality, discusses areawide waste management in the context of recent water pollution legislation. As in the case of other regional developments, the im- portation of water to municipalities in the Boston Mctro- A modification of the regional authority alternative has politan and Ipswich-North Shore planning areas has been been suggested for the Cape Cod planning area and is more primarily due to necessity. Where ground water of suffi- fully discussed in that planning area report. However, in cient quality and quantity is present, it should be devel- general, the recommendation states that a regional water oped. However, local development of ground and surface agency, while not responsible for delivery of water supplies, supplies in MDC towns is generally less satisfactory than will have the authority to manage uses of the Cape's sup- importation of water, because of the lack of high quality plies for protection of their water quality. The economic supplies or the preemption of well sites, recharge areas, and and environmental value of ground water to the area as a watershed lands by urban and suburban development. whole is too great to allow the inconsistency and duplica- tion of effort involved in local water management. Other The existing dependable yield of the MDC system is esti- areas of the SENE region where such agencies may be ap- mated to be 300 mgd. However, the average daily amount propriate for both ground and surface water management of water furnished by the system in 1970 was 307 mgd. are: municipalities in the Ipswich River basin apswich- Above average rates of precipitation since 1971 have en- North Shore planning area); the Upper Charles watershed abled the MDC to supply more water than its theoretical (Boston Metropolitan planning area); and the Pawtuxet safe yield.** planning area (see those planning area reports for details). The existing deficit in the MDC's water supply must be Making Interbasin Transfer: The MDC. Because corrected in the near future. In addition, the system will the major supplier of water in SENE, the Metropolitan require new sources of supply as its member communities District Comn-dssion (MDC), is truly regional - indeed increase their consumption and as additional towns gain interregional - in scope, it is appropriate to include a membership. In 1973, the Northeastern United Statfs discussion of its future options in this report. The MDC Water Supply (NEWS) Study by the U. S. Army Corps of manages the water supply, wastewater treatment, and out- Engineers estimated that by 1990, 24 additional munici- door recreation facilities of many of its member communi- palities (18 of them within the SENE region) will have no ties. It is the largest regional water supply system in New option for water supply other than the MDC. These England. Currently, the MDC supplies the water needs of municipalities are listed on Table 4.3. * * * The C-orps estimated 41 Massachusetts municipalities* (32 within the SENE that these communities and the 41 presently served commun- region) from three major reservoirs: Quabbin, Wachusett, ities will place an additional demand of 141 mgd (over its and Sudbury. These reservoirs impound water diverted present 300 mgd yield) on the MDC by 1990. The Metro- TABLE 4.3 COMPARISON OF NEWS AND SENE FINDINGS: COMMUNITIES WITH NO REPORTED OPTION OTHER THAN THE MDC *Ashland Holbrook Millis Stow Avon Holliston *Natick Sudbury Bolton *Hudson Norfolk *Wellesley Braintree Lincoln Randolph *Westwood *Dedham *Maynard Sherborn Weymouth Dover Medfield *Stoughton *Woburn Communities which the SENE Study finds have no reported option other than the MDC. All Communities listed here have been identified by the NEWS Study as having rio reported option other than the MDC for meeting projected water supply needs. *Worcester also receives emergency supplies from the MDC. Lancaster has an agreement with the MDC to receive water, but has not made use of this agreement since 1963. **Average daily amount of water supplied by the MDC in: 1971 = 322 mgd 1972 = 318 mgd 1973 = 316 mgd MDC is now negotiating with two other municipalities not considered by the NEWS or SENE studies. However, both studies found that these municipalities have alternative sources other than the MDC. 4-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made politan Planning Area Council, in its report on A Iternative Both the NEWS and SENE studies estimate a reasonably Regional Water Supply Systems for the Boston Metropolitan close rate of increase in domestic per capita water consump- Area (Camp, Dresser and McKee, February, 197 1), came to tion between 1970 and 1990. However, while the NEWS a similar conclusion, estimating that the MDC would require Study uses the OBERS "Series C" figures as the basis for its 196 mgd over its 300 mgd yield by 1990. projections, the SENE Study has used a more recent set of figures, the OBERS "Series E" projections. The latter pro- In order to meet its projected demands, the NEWS Study jections assume a continuation of the zero population birth recommended Northfield Mountain and Millers River Basin rate level which the nation is now experiencing, rather than projects would divert an average of 72 and 76 mgd, respec- the higher 1960-70 national growth rate on which the tively, from the Connecticut River Basin during peiords of "Series C" projections are based.* Although the disaggre- high flow. The additional 148 mgd provided by these gated figures may not be totally accurate for individual sources would meet the NEWS Study's projected needs towns and cities, it is felt that, over the total number of for MDC communities in 1990. municipalities considered in this comparison, the Series E figures are reasonable projections. Findings in the SENE Study, however, indicate that reliance of the 65 towns on MDC supplies may not be as great as sug- The second major difference between the SENE and NEWS gested by NEWS. Table 4.4 presents results of the NEWS figures is in the evaluation of sources other than the MDC. and SENE studies for comparison. The SENE Study find- Based on its policy of maximum use of local resources, the ings are based on two factors which differ from those of the SENE Study has investigated the potential local ground and NEWS analysis: lower population projections and a differ- surface water sources for the same 65 municipalities evalu- ent interpretation of existing and potential local resources ated by the NEWS Study and has identified 12 mgd in de- available to meet water needs. velopable local resources. Of the 24 new municipalities TABLE4.4 COMPARISON OF NEWS AND SENE ESTIMATES FOR SUPPLYING WATER TO METROPOLITAN BOSTON THROUGH 1990 @/ Assumptions - DEMAND NEWS SENE Rate of growth, per capita consumption, domestic use 1. 1 gpcd/yrv Total projected population 2,845,000 2,773,000 Total projected demand 524 g&V 493 mgd Assumptions - SUPPLY (in mgd). Existing MDC supply 300 300 Existing local supply 74V 104Y Potential MDC supply (Northfield-Millers) 148 148 Potential local supply 9 12 Total projected supply 531 564 (Total projected demand from above) (524) (493) Net Surplus 7 71 a/Servicearea: Current MDC towns (fully and partially supplied (32), current non-member towns supplied (9), and towns identified by NEWS as having no reported options other than MDC service by 1990 (24). b! graphical; domestic rate (industrial rate not available) Y C/ compounded; domestic and industrial rate d/ total NEWS demand based on domestic and industrial projections 1970 yield of ground water systems reduced to allow for 1970 maximum day demands f / 1970 yield of ground water systems applied to 1990 average day demands Additional supplies available to meet 1990 maximum day demands. *In fact, the OBERS Series E figures closely approximate the "Dispersed" estimates (or the lower limit of county population totals listed in the NEWS study [Miners River Basin Water Supply Project, Volume 11, Appendix B, pp. B-13 to B-14] 4-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made which the NEWS Study assigned to the MDC by 1990, the Millers River Basin diversions to meet the post- 1990 water SENE Study has found that only 9 would have to join the needs of those municipalities which must join the MDC MDC -at that time. These municipalities are marked with between 1990 and 2020. asterisks on Table 4.3. The remaining 15 municipalities ap- pear to have a sufficient amount of water from existing or Based on this analysis, the Millers River Basin project will potential local sources to postpone their membership in the be required by 1990 and can be expected to meet the MDC system. If more detailed investigations of local re- MDCs water needs at least through 2020. Although the source potential reveal that additional supplies are not supply will not have to be "on line" until the late 1980's, available or suitable for use, the affected municipalities it generally takes about ten years from the authorization will require connection to the MDC. A discussion of local of a project to its completion. Therefore, it will be neces- sources may be found in the Boston Metropolitan and swy to purchase the land and to begin design of the project Ipswich-North Shore planning area reports. now. However, the actual diversion of water from the Millers River could be postponed until the MDC requires The last row of figures on Table 4.4 compares the NEWS itssupplies. Such action would allow additional time for and SENE Study estimates of the net surplus of water sup- a clean-up of the river which is essential if the diversion is plies available to the MDC in 1990, if both the Northfield to be successful. Mountain and Millers River Basin diversions were to be con- structed. The results of such a comparison are significant. If the SENE Study's water consumption projections for the The NEWS Study calculates that the MDC would have a period after 1990 are correct, it appears that further diver- surplus of only 7 mgd in 1990. The SENE Study, on the sions from the Connecticut River basin may not be neces- other hand, finds that the surplus would be 71 mgd. There- sary after completion of the Northfield Mountain and fore, although the NEWS Study estimates that the 148 mgd Millers River Basin projects. Diversions from these projects from the diversions will be just enough to meet the MDC's appear to be sufficient to support the MDC municipalities additional needs in 1990, the SENE Study's figures indicate well through 2020 if municipalities in the region rely on that one of the two projects will not have to be "on line" their local resources to the maximum extent economically until the late 1980's. and environmentally feasible. In order to minimize reliance on this out-of-region source, it is also important to encour- The Northfield Mountain project is partially completed and age water conservation through pricing (for high-volume will be required to supply MDC communities almost imme- users), public education, and the use 'of water-saving de- diately. This project should have first priority for the MDC. vices. Additionally, it appears that within the next 10 to However, even the SENE Study projections show that this 25 years, advanced technologies such as desalination or diversion alone will not be adequate to supply additional wastewater re-use (see discussion above) may become MDC demands up to 1990. Based upon a careful assessment viable alternatives to additional diversions for some exist- of available alternative sources which have been proposed ing or proposed MDC municipalities. If, after these mea- for the Boston Metropolitan area, this Study endorses con- sures are instituted, additional sources are still required by struction of the Millers River Basin project to augment MDC the MDC, diversions from a cleaner Merrimack River may supplies prior to and beyond 1990. provide another source of the system s.water, supplies. Such a plan is now under.consideration by the NEWS Study. Municipalities which will have been able to rely on local sources until 1990 may then have to look to the MDC for Population and consumption projections are always open additional supplies. In addition, the rate of water consunip- to question, especially when they are long-range estimates. tion in the 50 municipalities which will require service by In another five to ten years, additional population and the MDC will continue to increase, though probably at a consumption projections for existing and proposed MDC lower rate than at present. If the rate of increase of per communities should be made in order to determine whe- capita water consumption remains At about one I percent ther estimates of the NEWS or the SENE Study are more (I%) per year, MDC municipalities would require An addi- realistic. This will allow time to plan for additional MDC tional 196 mgd over the MDC's current safe yield of 300 sources beyond the Northfield and Millers River projects mgd by 2020 - far more than the two proposed diversions if necessary. Even so, the MDC should be aware of the could supply. For reasons given earlier in this chapter, economic, environmental, and political consequences of however, it appears more likely that the rate of increase continued reliance on interstate resources. The SENE in water consumption will slow down in the future. If Study endorses the MDC's present policy of requiring de- this rate is assumed to be a 0.5 percent increase per capita velopment of its member communities' local resources per year after 1990, the SENE Study estimates that the 50 and encourages it to continue this policy even as addi- municipalities which it recommends be assigned to the tional sources become available. The longer the MDC can MDC will require an additional 117 mgd by 2020, rather rely on the Northfield River and Millers River Basin pro- than 196 mgd. This lower rate of consumption growth jects for its additional needs, the more time is allowed for would provide about 31 mgd from the Northfield and development of advanced technologies and new resources. 4-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Maximum use of local sources, conservation, and possibly ing unused stream rights of up to 6 mgd. Therefore, desalination, along with diversions from the Merrimack this municipality is not expected to use its rights to River, if necessary, should provide alternatives to further 11.5 mgd from the Lakeville Ponds until well after diversions from the Connecticut River basin. 1990. Furthermore, if these rights were exercised, and if Taunton and New Bedford maintained their Expanding or Forming Regional Systems. The Study present levels of withdrawal, the safe yield of the has investigated a number of additional existing and pro- ponds would be exceeded. Taunton and New Bed- posed regional water supply systems. Specific recommen- ford will soon need more water and have few alterna- dations for development of these regional systems have tive sources. Therefore, the SENE Study recom- been made and will be discussed in detail in the ten plan- mends that these two municipalities purchase ning area reports. However, a brief summary of some of Mver's rights to the Lakeville Ponds. the major regional systems is appropriate in this report as well. Should Taunton acquire some of these rights, the city would be assured of 11.0 mgd by 1990, a suffi- Ipswich River System. The Ipswich-North Shore cient yield to supply its own needs and to supple- planning area is one of the only areas in SENE where ment the supplies of several neighboring communi- topographic conditions and water availability favor ties through 1990. Dighton already purchases a large surface water reservoir construction. Existing re- portion of its water supply from Taunton. Attleboro sources are inadequate to meet projected 1990 needs. will need additional supplies in 1975. Moreover, six Water consumption from the planning area's munici- other commununities will need to supplement. their pal sources in 1970 averaged 71 mgd. There is an local resources sometime before 1990 in order to existing safe yield of 79 mgd within the basin, with meet their peak water demands. Therefore, the the MDC supplying an additional 17 mgd. The 1990 SENE Study recommends that all these municipali- maximum-day demand is expected to reach 127 rngd. ties form a regional water system using rights to the Lakeville Ponds acquired from Taunton to supple- The SENE Study recommends that a large regional ment existing public water supplies. reservoir, Reservoir 30-B, proposed by the Water Resources Commission, be constructed to serve eight New Bedford should also purchase a share of Fall municipalities in the planning area by 1990. After River's rights to the Lakeville Ponds. However, this 1990, the reservoir could be expanded to serve addi- action alone will be insufficient to meet the 1990 tional municipalities. Maintenance of the reservoir needs (over 25 mgd) of New Bedford and the four and the distribution of supplies could best be handled other municipalities served by the New Bedford Water by the establishment of an Ipswich River regional Department. Therefore, the SENE Study recommends water supply.system. that New Bedford further develop its Lakeville Ponds source with diversion of flood flows from the Wewean- Despite some local opposition to the reseevoir, this tic River into Great Quittacas Pond. The Taunton plan- source has significant advantages over other altema- ning area report contains a discussion of the Taunton tives and is strongly. endorsed by the Study. Reservoir system and the full texts of the corresponding recom- 30-B would be capable of supplying water at roughly mendations. The Buzzards Bay planning area report the same cost to consumers as expansion of the contains the discussion and recommendations for the Metropolitan District Commission. Some of the re- New Bedford System. quired land has already been purchased, and many municipalities are involved. A number of these com- Brockton Water Commission. The Brockton Water munities will need additional water supplies soon and Commission, with a supply of 13.4 mgd, presently will have no alternative resources. Further discussion satisfies the total demand of Brockton and Whitman of the situation and the full text of the recommenda- and most of Hanson's demand. It also supplies a tions may be found in the Ipswich-North Shore plan- small amount of water to Abington, Avon, and Pem- ning area report. broke. Silver Lake, located in both the Taunton and South Shore planning areas, serves as the source of Taunton and New Bedford Water Departments. The supply for the Brockton system. The Abington- Lakeville Ponds complex, located in the Taunton Rockland Joint Water Works provides water to Ab- planning area, has been developed to provide an esti- ington, Rockland, and Pembroke. Great Sandy Bot- mated yield of 31 mgd to the Taunton, Fall River, tom Pond is the major source of supply for this sys- and New Bedford water departments. Fall River has tem. Because Abington, Rockland, Avon, Brockton, several alternative sources available, such as expand- Hanson, and Whitman will need additional water sup- ing the Copicut Reservoir, further developing and plies before 1990, the SENE Study recommends that treating water from Noquochoke Lake, and exercis- they join in a regional surface water system. Such a 4-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made system would be centered around diversions from Blackstone River basin is served primarily by the Paw- AN& Great Sandy Bottom Pond and Howard and Pine tucket and Woonsocket water supply systems. Both 1W Brooks to the existing Silver Lake supply. systems use a combination of ground and surface sources, providing a total yield of about 28 mgd to Although Avon is the only one of these six munici- the six municipalities which they wholly or partially palities which will require additional water by 1980, serve. This supply appears to be enough to meet the distribution connections between all the municipali- municipalities' 1990 demands, which are estimated at ties should be incorporated into current plans for about 22 mgd. However, in preparation for meeting the regional system. Planning for this system now long-range water needs, the municipalities will have will be an efficient and economical means of assur- to consider alternative sources of supply. The Tarkiln ing the municipalities a dependable source of future and Nipmuc reservoir sites are the most suitable areas water supplies. Additional consideration of the for development in the northern part of Rhode Island. Brockton system may be found in the Taunton Projected additional demands on the Pawtucket and planning area report. Woonsocket systems could be met from the Tarkiln's 5.4 mgd yield alone, well beyond 1990. The SENE Providence Water Supply Board. The Providence Study recommends that the Rhode Island Water Re- Water Supply Board (PWSB) is the second largest sources Board petition the General Assembly to ap- regional system in SENE. At present, this system prove the Tarkiln and Nipmuc projects and provide supplies, either wholly or partially, the needs of for the acquisition of these sites in the near future. By seven municipalities in Rhode Island. Existing de- acquiring the Tarkiln and Nipmuck sites now, long- pendable yield of the system is estimated to be 72 range options for the Pawtucket and Woonsocket sys- mgd. In 1970, the PWSB served a total amount of tems would be assured at considerable savings. This about 55 mgd to its municipalities. topic will receive further consideration in the Black- stone and Vicinity planning area report. The full It appears that four More municipalities may be text of the recommendation may also be found in supplementing their present sources with connec- that report. tions to the PWSB by 1990. However, the SENE Study's demand projections indicate that the capa- Other Regional Systems. In addition to the water city of the system need only be expanded by 8 mgd supply systems described above, a few other systems through 1990. The SENE Study therefore suggests are dis@ussed in the planning area reports. A Wor- that the 26 mgd from the proposed Big River Reser- cester regional system, an Upper Charles water dis- voir would be sufficient to supply PWSB municipali- trict, and a South Shore water district are considered ties well through 1990. The administration of this in the Blackstone and Vicinity, Boston Metropolitan, reservoir, either by the Providence Water Supply and South Shore planning area reports, respectively. Board or by the state Water Resources Board, should The last district could be developed more for investi- assure the multi-purpose uses of the proposed diver- gation of water supply alternatives than for actual sion sites on the Wood River. In addition, either the distribution of resources. PWSB or the Water Resources Board should encourage full development of local ground water resources in Improving Institutional Arrangements. In order the Wood River Valley to minimize costs of water to implement many of the alternatives suggested in this supply and to preclude or postpone the need for any chapter, some legislation must be enacted. This section surface water impoundments on the Wood River. briefly suggests some of the inadequacies of existing legislation and discusses how several of the water supply This recommendation would expand the amount of alternatives may be implemented by legal means. The water available to the Providence water system to discussion of ground water management will be fol- supply future needs in its present service area. It lowed by alternatives for establishing regional water would also allow the system to expand service to sev- supply systems. eral municipalities, such as four communities in lower Narragansett Bay, which may require additional sour- Ground water management. The maintenance and ces of supply after 1990. Further discussion of the protection of ground water quality and quantity will recommendation and its full text may be found in not be achieved unless measures for the implementa- the Blackstone and Vicinity planning area report. The tion of some of the alternatives suggested in the recommendation is also discussed in the Narragansett ground water section of this report are undertaken. Bay planning area report. At present, there are few local and no state regula- tions governing the right to acquire and use ground Pawtucket Water Supply Board and Woonsocket water resources in Massachusetts and Rh 'ode Island. Water Department. The Rhode Island section of the The courts have recognized however, that rights to 4-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made percolating water, as opposed to ground water flow- However, history indicates that municipalities are ing in a definite underground stream, are inherent in unlikely to voluntarily undertake such cooperative the rights of ownership of the overlying land. Thus, or complementary efforts. It is unlikely that they the landowner may use the ground water percolating will forfeit controls to the region or the state for the through his land even though his use interferes with purposes of establishing protection zones and regu- the flow of percolating waters in his neighbor's land lating the extent of pumping from the aquifer. and diminishes the water in his neighbor's well. How- ever, the landowner may not purposefully or negli- Ground water quality should be upgraded or main- gently interfere with his neighbor's use of the ground tained when ground water is a source of supply. Pro- water. visions should be made to ensure that ground water used for supply is protected from the contamination In Rhode Island, an overlying landowner has the same associated with septic tanks and other underground obligation to protect the quality of a subterranean pollution. Agencies which decide the location of stream as he does with regard to surface streams, but ground water supplies must often seek cooperation is not liable for the pollution of percolating ground from those that review the location of potentially waters unless the person claiming injury can demon- polluting sources such as highways and drainage sys- strate that the pollution was the result of negligence tems. Although policies exist to prohibit the impro- on the part of the person controlling the polluting per use of land within several feet of municipal wells, substance. problems of ground water pollution are much too complex to be governed by simple distance regulations. In Massachusetts, under Chapter 546 of the Acts of 1973 (Chapter 21, section 26A), discharges of pollut- Because of the specialized nature of knowledge about ing matter into ground water from point or major ground water, and to acquire the expertise needed to non-point sources is subject to civil and criminal make ground water decisions, it has been suggested penalties unless a permit, based on effluent limita- that legislation ought to be enacted to create a state tions set by the Massachusetts Division of Water Pol- body of expert ground water hydrologists and other lution Control, has been obtained from the Division. professionals. This body would have the responsibility (See Chapter.5, Water Quality). to study and report on ground water matters and to advise municipalities on resource management. Public State administrative regulations are limited to regis- health representatives on the board should determine tering well drillers and requiring the submission of a health policy in matters of ground water quality. The report upon completion of a well. However, the board could have the power to close off the water Massachusetts Department of Public Health exercises supply or to order the cessation of polluting activity ultimate authority as to the quality of public under- where it found a clear danger from activities such as ground water supply. Approval of public health offi- storage or use of highway deicing salts or pesticide cials is required for designation of water sources and application near ground water sources. for acquisition of watershed land for public water supply. If more effective regulation of ground water recharge areas is to occur, and is desired, the state could play Local governments in both states are empowered to an active role in assuring their protection. State inter- enact land use controls to further the public health, vention to regulate these areas could be incorporated safety, and welfare. These controls cover public in a program to manage significant recharge lands. water supply and ground water. Municipalities have The state could, through a variety of institutional the authority, with publich health department ap- mechanisms, ensure that these areas are developed proval, to acquire watershed lands by purchase or compatibly with water supply goals. Some alterna- eminent domain to protect both the water quality tive approaches to this kind of institutional program and safe yield of the water supply. Thus, the acqui- are discussed in Chapter 10, Strengthening the Man- sition process itself can amount to effective protec- agement System for Natural Resources. tion of the resource. Courts have not yet recognized, however, the authority for land use regulations pro- Regional Supply Systems. In order to establish re- tecting aquifers and recharge areas because of the gional water supply systems, discussed earlier, muni- difficulty of precisely specifying the location of such cipalities will require legal and institutional authoriz- resources. ation. A number of alternative arrangements for such systems have been suggested. First, a state Since the most productive aquifers often cross muni- controlled regional authority might be established cipal boundary lines, local authorities could be en- for a given area similar to the MDC model. Second, couraged to provide for their joint management. a system composed of representative municipalities 4-19 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can bemade could be created as an independent special district Recognizing that economic and environmental goals are not with approval by the state. Third, private water necessarily incompatible, as described in Chapter 1, the companies could be encouraged to expand to include recommended program has attempted to combine the two multi-community service, similar to the existing Ded- alternative approaches. It has, however, placed slightly ham Water Company and the Hingham Water Com- more emphasis on the environmental approach. It has also pany. A final option might include establishing fed- stressed the social objective of local sel'f-sufficiency wher- eral field offices with responsibility for at least the ever possible. The recommendations in the next section planning and development of supply sources. How- accordingly emphasize the development of water supplies ever, this alternative is probably unacceptable be- at the lowest reasonable environmental cost. cause it would remove responsibility for a local function to a higher level of government than neces- Recommendations sary. An optimal arrangement would seek solutions at a local or sub-state regional level, then move re- The recommendations for water supply in the SENE region luctantly to the state level only if circumstances can be divided into three groups. The first group consists so require. The extensive participation and the of general recommendations which should apply through- democratic machinery in the process of develop- out the region. The second group applies to municipalities ing supply is legally necessary and popularly de- relying wholly or partially on ground water sources, while manded. For that reason the private water company the third group of recommendations refers to municipali- alternative would prove untenable. ties whose needs are met by surface sources. The first suggestion, based on a commission such Recommendations applicable throughout the as the MDC, would also prove disadvantageous for region. Recommendations which apply throughout the implementing this recommendation. Historically, region, listed in their general order of priority, are as in the case of the MDC, the creation of a regional follows: agency of state government has set the tone for later decisions to expand in anticipation of regional need. I .Prefer local ground water to intermunicipal sur- The expansion of supply in advance of need and the face water to interbasin transfers. In order to provision of services to areas in advance of their - maximize local self-sufficiency, the Department of growth has led to inefficiencies in the tradeoff be- Natural Resources in Massachusetts and the Water Re- tween cost and dependability of supply. Because of sources Board in Rhode Island should encourage SENE its control by a state representative legislative body, municipalities to meet future water demands by judi- such an agency would not only have diminished ef- ciously using in-basin ground water and regional in- ficiency but also a reduced ability to be fair. A basin surface water resources to their maximum extent "board of directors" of several hundred legislators before they consider interbasin transfers of water. is, at best, a cumbersome management scheme. 2. Maintain existing water resources. The Depart- The most efficient and politically expedient way in ment of Natural Resources in Massachusetts and the which to establish a regional system would be on Water Resources Board in Rhode Island should estab- the basis of intermunicipal negotiation and con- lish a program which encourages municipalities to tract. While the impetus for such regionalization maintain the quality and yield of their existing sour- should come from member communities, its author- ces of supply to ensure their continued use as long as ity would be subject to approval by state legislatures technicafly, economically, and environmentally feasible. and public health departments and should be con- sistent with state water resource planning 3. Acquire key watersheds and potential well sites. The Department of Natural Resources in Massachusetts Alternative Plans and the Water Resources Board in Rhode Island should establish a program to help their municipal- In order to. meet the k990 and 2020 water needs in South- ities preserve future options for development of in- eastern New England, 1he SENE Study considered two al- basin water supply resources. The agencies should ternative plans. First; an environmentally oriented plan encourage municipalities to acquire and manage key emphasized the maximum use of conservation and demand watersheds and potential well sites. management, along with,the maintenance and development of local ground water supplies. In addition, the plan at- 4. Limit water consumption through pricing and tempted to make each ba-gin in the region as self-sufficient education. The Department of Natural Resources as possible. Second, an economically oriented plan stressed in Massachusetts and the Water Resources Board in the goal of providing all of the region's required supply at Rhode Island should develop and extend water de- the lowest possible cost. mand management through pricing for high volume 4-20 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made users and through education for residential consum- To assist municipalities in regulating, pro- ers. They should encourage the use of water saving tecting, and preserving their ground water devices for both domestic and industrial uses to in- resources. crease the efficiency of water use and to help stabil- ize or reduce per capita water demand. 8. Restrict activities shown to be hazardous to ground water quality. The states' departments 5. Study advanced technologies leading to new of health, the Department of Natural Resources sources of water. The U. S. Department of the in Massachusetts and the Water Resources Board Interior, in cooperation with the Environmenta 'I in Rhode Island should encourage municipalities Protection Agency, should greatly increase activi- and water management agencies to restrict sani- ties in the investigation of the techniques of desalin- tary landfills, storage and usage of highway deicing ation in conjunction with nuclear power plants. The salt, industrial waste disposal, and other activities Department of Natural Resources in Massachusetts hazardous to ground water quality from re- and the Water Resources Board in Rhode Island charge areas of existing wells and potential should increase research in wastewater re-use (re- sites for high capacity wells. cycling, spray irrigation). In addition, the economic environmental, and public health impacts of the 9. Monitor salt water encroachment in coastal above projects should be carefully researched by aquifers. The Department of Natural Resources the above agencies and by the Department of Pub- in Massachusetts and the Water Resources Board tic Health in Massachusetts and the Department of in Rhode Island should guide coastal municipali- Health in Rhode Island. Such activities could make ties, in defming acceptable limits for salt water these technologies as viable as other water supply encroachment and in establishing a legal and insti- options currently being considered for thepperiod tutional framework for the regulation of ground after 1990. water development. 6. Establish regional water management agencies. 10. Provide recharge basins to capture storm In order to achieve' total water resource manage- runoff. The Department of Natural Resources ment for an area, the Department of Natural Re- in Massachusetts and the Water Resources Board sources in Massachusetts and the Water Resour- in Rhode Island should encourage municipalities ces Board in Rhode Island should encourage to construct (or to have developers construct) municipalities to join together in regional new recharge basins in areas where development agencies. These agencies would manage ac- has covered major recharge lands. tivities which have an impact on water supplies to protect their quantity and quality. 11. I.Amit ground water withdrawal to maintain stream levels. The Department of Natural Recommendations for the communities relying Resources in Massachusetts and the Water Re- wholly or partially on ground water. The SENE sources Board in Rhode Island should guide Study has formulated recommendations for communities municipalities or regional water management which rely either wholly or partially on ground water. For agencies in requiring ground water withdrawal these municipalities, therrecommendations, listed in their permits to prevent undue streamflow depletion general order of priority, are as follows: and pond level lowering. Depletion limits should be based on the values of water for all 7. Survey ground water location, quality, and uses, including supply, recreation, navigation, availability. The SENE Study endorses the gen waste assimilation, and aesthetic needs. eral recommendation from the Central Massachu- setts Water Study, summarized as follows: The 12. Establish state ground water boards. The Massachusetts Water Resources Commission and Massachusetts General Court and the Rhode the Rhode Island Water Resources Board, mi co- Island General Assembly should establish a operation with the U. S. Geological Survey, should state board of qualified ground water hydrol- make a survey of ground water location, quantity, ogists and public health officials within the re- and availability in SENE to provide information: spective state Water Resources Commission and Water Resources Board which should be To assist municipalities in designing their charged with the responsibility for: exploration programs for well sites To assist regional agencies in evaluating future needs to supplement ground water 4-21 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made � Coordinating activities such as ground 14. Encourage regionalization of water supply water exploration, salt water monitor- systems. The Department of Natural ing, and limitation of ground water Resources in Massachusetts and the Water withdrawal. Resources Board in Rhode Island should encourage regionalization of water supply � Developing state land use standards for systems among municipalities wherever it protecting intermunicipal and munici- is technically, economically, and environ- pal aquifers and recharge zones. mentally feasible. � Encouraging the adoption of local land use regulations implementing the state Implications land use standards. As described in Chapters 1 and 3, once overall land use Recommendations for municipalities relying on goals have been developed, water supply policy can be surface water. The SENE Study has proposed additional used as a tool to bring about greater economic efficiency recommendations for municipalities relying on surface and environmental quality in the SENE region. Patterns of water systems for their supplies. Recommendations in this land use which protect recharge areas and which use exist- third group include: ing infrastructure, such as water supply systems, enhance the environmental and economic aspects of life in this re- 13. Expand MDC sources with Northfield Moun- gion. Furthermore, coordinated water supply and water tain and Millers River facilities. To meet quality planning can provide more efficient methods of the 1990 and 2020 needs of its expanded serv- water management and environmental protection. The ef- ice area, the Metropolitan District Commission ficient use and protection of existing sources of water, should acquire water from the Northfield Moun- coupled with careful planning and development of addi- tain and Millers River Basin diversions. The tional sources, should provide the residents and industries Northfield project should be completed at once. of the SENE region with an adequate supply of reasonably The Millers Basin project does not have to be economical, high quality water over the next 50 years. in operation until the late 1980's, but design Where regionalization is selected, beriefits include cost and land acquisition should be initiated now. sharing, operational efficiency, and quality control. Maxi- The use of water conservation practices and mum use of in-basin resources will maintain local and re- advanced technologies, together with options gional autonomy and will preserve flexibility in water such as the diversion of the Merrimack River, supply policies. In addition, advanced technology may should be investigated as alternatives to further allow the region to develop new sources of water without diversions from the Connecticut River. placing increased stress on its natural resources. 4-22 CHAPTER 5 WATER QUALITY The Setting But much remains to be done. The most stubborn pollu- tion problems will exist where the value of dean water to The people of the SENE region yeam for clean water - the most people is highest - in and near urbanized areas - dean streams and ponds, clear harbors, dean shellfish beds, particularly in cities with substantial industrial concentra- clean salt water beaches. They have said so in unmistakable tions and with combined sanitary storm sewers. Boston ways - in their support of strong state water pollution con- Harbor and the Boston area rivers, extreme upper Narra- trol programs, in support (with occasional exceptions@ of gansett Bay and its tributaries, and several stretches of the local bonding proposals for pollution abatement., in unrelent- Blackstone River are key examples. ing pressure on public officials and industry to restore the quality of their waters and keep them that way, and in How can the remaining problems be solved? The answer public meetings held by the SENE Study. to that question is the burden of this chapter. To answer it, it is necessary to take a closer look at how the national Current Program Levels effort to protect and restore water quality works in the SENE area, to define more carefully the nature of pollu- The pace of pollution abatement depends heavily on fed- tion problems and assess priorities for solving them, and eral grant levels for collection systems and treatment plants. to outline a strategy developed on these bases. From the start of the federal grant program in 1956 to the end of Fiscal Year 1974, 245 municipal projects, at a cost How the Water Pollution Control Program Works. of $288.6 million, were approved in Massachusetts. During this same period, 65 projects were approved in Rhode Island, The current pollution control program concentrates heav- at a cost of W.3 million. Fiscal Year 1976 funds for fed- ily on completing construction of secondary treatment eral aid to municipal construction projects amount to $150 plants in 1970's. National goals have been set for 'fishable- million in Massachusetts and S 19.5 million in Rhode Island. swimmable" waters by 1983, and 2"zero discharge" by 1985. However, the states estimate a total of $812 million per year in Massachusetts and $180 million per year in Rhode Island The federal government, through the Environmental Protec- would be required for the next six years in order to meet tion Agency, sets broad goals and grants money to strengthen their 1983 construction goals. This is five to nine times the state water pollution control agencies, and to help construct level of current federal assistance. Thus, a high priority treatment facilities. The federal government also brings en- must be placed on the preservation of existing high quality forcement actions in certain circumstances. The National streams in'these states rather than on costly after-the-fact Pollutant Discharge Elimination System, more commonly restoration. known as the industrial permits program, is also adn-tinistered by the Environmental Protection Agency to abate industrial Present Patterns and Future Trends water pollution. This system is more fully discussed in the Two thirds of major stream miles in the SENE region are "Industrial Discharges" section of this chapter. presently polluted below state standards, as are most waters The states have the primary responsibility for water quality, in urban harbors - where access to clean water is most ur- through the Division of Water Pollution Control, Depart- gently needed and is in shortest supply. By 1977, most of ment of Natural Resources (in Massachusetts) and the Divi- these waters --L except those bearing the heaviest pollution sion of Water Supply and Pollution Control, Department of burdens - will be fishable, and many will be swimmable. Health (in Rhode Island). Both states plan abatement pro- Most presently closed shellfish beds will remain closed be- grams, set schedules and requirements for municipal and cause of stringent requirements, but the spread of "closed" industrial abatement, allocate federal (and state) grant sup- areas should be slowed. The attractiveness of the SENE port for treatment plant construction, and set and enforce region as a place to live and work will be enhanced. water quality standards. About 70 percent of the SENE region's population is served Water Quality and the Regional Report by municipal wastewater systems. The remaining 30 per- cent rely on individual septic systems. Twenty-two of 78 As was stated in Chapter 4, it is necessary to read each major industrial sources are, or will be, treated in municipal chapter in the context of the entire SENE Regional Report. plants, by subsurface disposal, by process changes, or by Elements of each chapter have direct bearing on the water the closing or moving of a business. The remaining 56 in- quality discussion. The,relationship between water quality dustries will be required to provide best practicable treat- and water supply is the most clear-cut. ment (BPT) by July 1, 1977. 5-1 Class A & 8: water suitable at least for bathing and shellfishing Class C: water suitable for all uses except drinking, bathing, and shellfishing Class 0: water unsuitable for most uses (in Massachusetts, Class 0 waters will be reclassi- fied and upgraded to Class C1.) Rivers are marked in two colors if classifications change along reaches. &ASsAcmusirrs BOOM Moto 0.4 r 9 A rLA&ric ocArA& L Wm \A @v &LOCK ISLAND man IC110MUS NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. SOUTHEASTERN NEW ENGLAND EXISTING-WATER QUALITY WATER AND RELATED. LAND RESOURCES STUDY 5-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made In Chapter 4, Water Supply, the interrelationships between long-range alternatives for the integrated management of water quality and water supply were discussed in some de- water supply and water quality are presented in Chapter tail. Again, these interrelationships must be stressed when 10, Strengthening the' Managemen t System for Natural water quality is considered. The SENE Study's recommen- Resources. dations have been developed with existing institutions in mind. Therefore, because most water supply and water There are other chapters of the Regional Report which also quality institutions in the SENE region serve separate func- have a direct or indirect relationship to the contents of tions, the Water Supply and Water Quality chapters were Chapter 5. Chapters I and 2 provide an overall setting in written to recommend policies or.actions which could be which to assess water quality issues. Chapter 3, Guiding implemented by these distinct institutions. However, Growth, deals with the impact that provision or with- throughout each chapter, cross-references serve to empha- holding of sewer service has on growth and with the hmita- size the interdependent nature of water supply and quality. tions imposed on waste disposal by soil type and other fac- tors. Furthermore, waterquality issues also relate to The sections entitled Improving Water Supply and Water issues in the Outdoor Recreation, Marine Management, Quality Management and Areawide Management in and Unwelcome Facilities Chapters (Chapters 6, 7, and 9 Chapters 4 and 5, respectively, present methods by which respectively.) These relationships are summarized in Chap- water quality and water supply institutions may achieve a ter 11, 7)ving the Recommendations Together. higher degree of coordination and integration. In addition, TABLE 5.1 KEY DETERMINANTS OF WATER QUALITY BY PLANNING AREA Detern-dnants of Water Quality Overall Severity Land Use Discharges @20 0 t9 0 PLANNING AREA Ipswich - North Shore 0 - 0 0 0 0 Boston Metropolitan 0 0 0 - 0 9 0 South Shore 0 - 0 0 0 Cape Cod & islands 0 0 -0 Buzzards Bay 0 0 0 0 0 Taunton 0 0 0 0 0 0 10 Blackstone & Vicinity 0 0 0 - - 0 0 0 Pawtuxet 0 Narragansett Bay 0 0 - 0 0 0 Pawcatuck 0 0 0 SENE as a whole 0 0 0 0 0 0 Maj or determinant 0 = Intermediate determinant Minor determinant 5-3 Class A & B: water suitable at least for bathing and shellfishing Class C: water suitable for all uses except drinking, bathing, ___j and shellfishing A Class D: water unsuitable for i@_ostuses (in Massachusetts, ------ Class D waters will be reclassi- fied and upgraded to Class Cl.) Rivers are marked in two colors if classifications change along reaches. o.4ssA,7N,,s_,rrT owlm Marto, 04r .4 r 1 4 R rj C 0 C E40 _J I -7- " r CAPI coo 04y 0 0.0cIr ;544NP SOVIVID 0 NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. PROPOSED WATER allALITY 5.2 SOUTHEASTERN NEW ENGLAND WATER AND RELATED LAND RESOURCES STUDY 5-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line bV Line Changes can be made The Situation. also make it easier to improve the quality of SENE waters. In short, improved water quality improves the future econ- About two-thirds of the total length of major streams in omy, which further improves water quality. the Southeastern New England are currently below the water quality standards set for them by the Massachusetts The second theme is also double-edged as it applies to water and Rhode Island water pollution control agencies. In con- quality programs. Guiding growth eases water quality prob- trast, the coastal waters are generally of high quality and lems, particularly those related to land.use. Conversely, support a variety of uses such as shellfisliing, bathing and early provision of sewering and adequate treatment tends boating. Coastal water quality problem areas are limited to concentrate growth, while its deferment or denial tends to harbors receiving combined sewer overflows and muni- to disperse growth. In brief, water quality programs can be cipal and industrial wastewater discharges. Figure 5.1 sum- both a major beneficiary and a major tool for implementing marizes existing water quality for the major streams and a policy for guiding growth. coastal waters in SENE. Table 5.1 shows the principal types of pollution that Existing Organizations and Programs determine the quality of surface water and ground water in The third study theme - of using existing knowledge, pro- each of the ten SENE planning areas. The determinants are grams and institutions - also fits water quality rather well. listed across the top in descending order of regionwide sig- Recommendations for filling some major knowledge gaps nificance. The table also shows that, among the ten planning for non-point pollution sources will be given later, but in areas, water quality is the worst in three - Boston Metropoli- general the SENE Study recommendations are based upon tan, Taunton, and Blackstone and Vicinity. The two plan- proceeding with existing knowledge. The existing pro- ning areas with the best overall water quality are Cape Cod grams, authorities, and institutions are considered good and the Islands, and Pawcatuck. enough. The basic need is for better use of these tools, not more tools. Why Cleanup is Desirable The responsibility for water quality restoration and pres- The widespread deterioration of water quality in SENE and ervation is shared by federal, state and local governments, in the nation has led to the recognition by the people and private industries, and concerned citizens. Each sector the Congress of the United States that prompt attention must maintain a firm, positive commitment to environ- must be given to this problem. It is clear that water pollu- mental enhancement, if the goal of clean water is to be tion significantly affects the public health and the environ- realized. At the federal level, where the overall program mental and economic well-being of the Nation. is principally coordinated, the key organization is the Environmental Protection Agency (EPA). At the state The Federal Water Pollution Control Act Amendments of level, where the major responsibility for planning and ad- 1972 is an expression of these concerns and states: ministering the program takes place, the key agencies in Massachusetts are: The Divisions of Water Pollution Con- The objective of this Act is to restore and main- trol, and Environmental Health within the Office of En- tain the chemical, physical and biological integ- vironmental Affairs, and the Department of Environmen- rity of the Nation's waters.... [Sec. 101(a)] tal Quality Engineering; in Rhode Island, the key agency. is the Division of Water Supply and Pollution Control of The Act goes on to state: the Department of Health (DOH). In Connecticut the Department of Environmental Protection is responsible It is the policy of the Congress to recognize, for state water quality programs. The above Massachu- preserve, and protect the primary responsibili- setts and Rhode Island agencies will be cited frequently ties and rights of states to prevent, reduce, and throughout the chapter, especially in the re'commenda- eliminate pollution, to plan the development tions. The Connecticut agency should be inferred where and use (including restoration, preservation, appropriate; but for brevity it will not be mentioned, as and enhancement) of land and water resour. only three municipalities in Connecticut (North Stoning- ces. . . . [Sec. 101(b)] ton, Stonington, and Voluntown) are within the SENE boundaries. In all three states, local government and in- The three major themes of the SENE Study are either direct- dustry are particularly important in achieving water ly or implicitly contained in this quote. Enhancing the SENE quality goals because they have the major responsibility environment through water quality programs should improve for building, operating, and maintaining pollution control the region's attractiveness for enticing and holding the skills facilities. These facilities will serve as the framework for it needs for its service s-oriented economic future. Conversely, regional water quality management systems. Local govern- that future, which includes an evolutionary movement away ment also plays a key role in regulating land use 'and sub- from the heavily polluting manufacturing sectors, should surface disposal systems. Both types of control will con- 5-5 Water Guality Limited Effluent Limited JA _j All other stream and coastal waters are classified Anti- degradation (Current high quality waters). M v J NASSACMIISfrrs '3. -4 A rL Amric OCEAN y A9 j kt_ _J r- - - r CAPE coo "r Itz.I L 4 > ... .... r ..... .j@A "Y #A#rvcxrr SO OA V.- I ..' A4 AALOCX ISLAND SOV#19 0 I ? I I MILEG KILON TEAS NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. SEGMENT CLASSIFICATION 5.3 SOUTHEASTERN NEW ENGLAND WATER allALITY WATER AND RELATED LAND RESOURCES STUDY 5-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made tribute to the effectiveness of efforts to preserve waters point-source discharges and municipal treat- which are currently of high quality. ment works. The Water Quality Goals 0 Water quality lirnited - in which water quality will meet applicable water standards only after The ambitious goals of EPA's water quality program, as application of more stringent effluent limita- enunciated in the 1972 Amendments cited above, are: tions. (1) to attain swimmable-fishable waters, where possible, by 1983; and (2) to achieve zero discharge everywhere Both states have so categorized their streams, as illustrated by 1985. Figure 5.2 presents the water quality standards in Figure 5.3. (1977 goals) for SENE waters as determined by the states and approved by EPA. A comparison of this map with For segments classified as "effluent limited", the state must the earlier map in Figure 5.1 (existing water quality) develop an overall management plan to maintain water qual- points out the areas where present water quality is sub- ity. For segments classified as "water quality limited," the standard. The most severely degraded waters are found state must assign maximum daily load limits. In Massachu- in portions of the Charles River, the Taunton River, and setts, the Division of Water Pollution Control has the in-house New Bedford Harbor. For municipal and industrial capability to determine these maximum allowable loadings. sources of pollution, two dates, July 1977 and July 1983, The Rhode Island Division of Water Supply and Pollution are to serve as targets for a base level of technological Control carries out such functions by contracting with pri- control. The period 1973-1977 is referred to as Phase I, - vate firms. This division has completed the Woonasquatucket 1978-1983 as Phase II. basin plan. In addition, preliminary management plans for the Taunton River, and the Massachusetts portion of the Phase I is characterized by the issuance of permits and Blackstone and Ten-Mile Rivers have been developed by the the award of construction grants. It provides the begin- Massachusetts Division of Water Pollution Control. These ning steps for meeting a goal of swimmable-fishable waters. plans were the basis for most of the recommendations in- For some pollution sources, achieving the 1977 treatment cluded in those planning area reports. objectives will be all that is necessary to meet 1983 objec- tives. Most of the pollution problems being addressed in Other plans examined included the Boston Harbor-Eas@ern this phase are well identified, and have been addressed by- Massachusetts Metropolitan Area Wastewater Management local, state, and federal governments in past years. Study and studies done for and by regional planning agencies. Town engineering reports were also investigated if available. Phase Il will be a period in which solutions become more Elements of each are included later in the recommended subtle, the alternatives for abatement more challenging, and program and more specific information can be found in the for which a better understanding of the casual and cost- individual planning area reports. benefit relationships of alternatives will be required. It will be a period for implementing plans for controlling non-point Scope of the Chapter sources and the most formidable point sources of pollution. A solid start toward addressing these problems must be The remainder of this chapter considers each of six major made, however, during Phase 1. - In addition, while Phase 11 sources of water pollution in order of decreasing region- will emphasize treatment techniques for combined sewer wide significance - combined sewer overflows and urban overflows, it is recognized that the best solutions will evolve stormwater runoff, municipal discharges, industrial dischar- as the results of case-by-case studies because treatment may ges, non-point pollution sources, oil pollution, and water- not be necessary in all areas requiring swimmable-fishable craft wastes. For each source, the general situation is des- water quality. cribed and alternative solutions are examined. Following is a brief discussion of areawide water quality management, State water quality planning efforts are also based on the alternative plans are outlined, and a recommended program Federal Water Pollution Control Act Amendments of 1972. is described by arraying recommendations under the head- The states must coordinate their permit process with the ings of preservation, restoration, and planning area priori- overall water quality standards and planning program. It is ties. Lastly, the total cost of the program is broadly esti- their responsibility to ensure that water quality standards mated and the major environmental, economic, and social are met. The states gather basic information and categor- implications of carrying out the program are highlighted. ize all stream stretches as either: 0 Effluent limited - in which water quality will meet all applicable water quality standards after the application of minimum national ef- fluent limitations established by'the EPA for 5-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made URBAN STORMWATER RUNOFF/ Island treatment facility, 125 overflow points have been lo- COMBINED SEWER OVERFLOWS cated. The second largest combined sewer system serves Providence, Rhode Island, and overflows occur to the Provi- The Situation dence, Seekonk, Woonasquatucket, and Moshassuck Rivers. Fifty-six overflow points@ have been located in Providence, A good hard rain is an extremely efficient city street while New Bedford has identified 27 overflow points to the cleaner. It washes suspended pollutants out of the air and Acushnet River and New Bedford Harbor. Fall River has off exposed surfaces where they have settled; dirt, animal 14 to the lower Taunton River and Mount Hope Bay. Other wastes, and debris are flushed from the streets. What dis- areas which exhibit combined sewer problems are Taunton appears down the drains, gutters, and sewers is called "ur- and Worcester in Massachusetts, and Newport (10 overflow ban stormwater runoff". Unfortunately, the problems as- points), Central Falls and Pawtucket in Rhode Island. sociated with such pollutants do not disappear down the These systems serve the most heavily populated areas in the drains as well. They reappear along the riverfront or in the SENE region. About 3.4 million people are currently served harbor, becoming perhaps the most serious water pollution by municipal sewer systems. About 60 percent of these problem in SENE. Although many excellent studies through- people are connected to combined sewers either directly or out the nation have stressed the seriousness of this problem through separate systems'which eventually discharge to for at least a decade, its importance is only now being wide- combined sewers. ly accepted. Recent EPA studies indicate that stormwater runoff in many modern cities is heavily laden with zinc and Significant concentrations of bacteria, oxygen demanding lead and that it probably contributes a greater pollution wastes, and suspended solids are discharged to the receiving load than the city's treated waste outfalls. In some cities waters when overflows occur. In many of the areas des- the oxygen demand of urban stormwater runoff is three to cribed above, it is difficult to determine the contribution five times greater than that of treated wastewater. combined sewer overflows make to water quality degrada- In Brockton, the Massachusetts Division of Water Pollution tion, since inadequately treated municipal and industrial Control sampled strearnflows and found that violations of discharges are also present. However, it is known that com- bacterial standards for swimmable waters occur regularly bined sewer overflows have resulted in periodic closings of during wet weather. Other indicators of water quality Tenean Beach in Dorchester, several shellfish areas in Win- showed similar increases. Such substantive investigation throp Bay, Dorchester Bay, the tidal portions of the Nepon- has been lacking in most other areas of the region and ex- set River, and s.hellfish areas in upper Narragansett Bay. tensive "wet weather" stream surveys are needed. The Rhode Island Department of Health has determined When storm sewers also carry sanitary wastes, the problem that when one-half inch of rain is recorded in Providence in is further aggravated. These combined sewers must then a 24-hour period, the shellfish areas in the Providence River carry (1) urban stormwater runoff, (2) sanitary wastes pro- must be closed for 7 days. For a rainfall of one inch, the duced during the period of high runoff, and (3) resuspended closure is in effect for ten days. The total number of days material from sediments and solid sanitary wastes which had that the shellfish areas have been closed in one year has ex- accumulated on the sewer bottoms during the previous peri- ceeded 200 in the past. In other areas affected by combined od of dry weather flow. sewer overflows, water quality classifications always preclude water contact recreation. The effects of combined systems are twofold. First, since they convey both municipal and industrial wastewater as The Solutions well as stormwater, treatment facilities can become hy- draulically overloaded during times of excessive storm- Alteirnatives water runoff, thus lowering the operating efficiency of the Alternatives for addressing urban stormwater problems in- treatment plant. Second, combined systems are equipped clude: (a) Stormwater Sampling; (b) attenuation of runoff; with overflow points to prevent the "backing up" of sewers. (c) better street cleaning; (d) separation of combined This results in the discharge of untreated mixed wastewater sewers; (e) in-stream controls; (f) off-system storage; and and stormwater directly to streams or coastal waters during (g) treatment of combined sewer overflow. The most im- certain storms. portant measures are treatment, stormwater sampling and There are several major combined sewer systems in the attenuation of runoff; however, a combination of methods will usually provide the best solution. The optimum com- Study area. Their overflows degrade the quality of portions bination depends upon topography of the service area, land of Boston Harbor, the Mystic, Charles, and Neponset Rivers. use patterns, sewer system design parameters, capabilities Approximately 12,350 acres are served by combined sewers of wastewater treatment facilities, location of overflow in portions of Boston, Cambridge, Chelsea, Somerville, and points, desired uses of the receiving waters, and availability Brookline. In the sewer system tributary to Boston's Deer of construction sites. 5@8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Stormwater sampling. One of the first measures to be they allow overflows to prevent back-up in the sewer. Tide- undertaken in dealing with this aspect of non-point pollu- gates prevent salt water inflow into the sewer and intercep- tion is to determine the extent and the severity of the prob- tor during periods of high dde. A malfunctioning regulator lem. Somewhat different water quality sampling techniques can allow untreated wastewater discharges during dry wea- will be required than those customarily used on stream sur- ther, and a defective or missing tide gate will force a treat- veys. For the most part, current water quality sampling is ment facility to accept large volumes of salt water, thus re- geared only towards determining allowable loadings for dis- ducing overall treatment efficiency. The Metropolitan crete discharges of wastewater. Pollution from runoff enters District Comniission in Boston is currently conducting a the subsequent model as an estimated background effect or program of regulator and tidegate maintenance and repair. not at all. Infiltration and inflow of water reduce the capacity of a Attenuation of Runoff. Subdivision controls can atten- sewer system available for the transport of wastewater. uate runoff in new developments by increasing open space, Hency, the frequency and volume of overflows increase by providing safe and attractive stormwater detention ponds, and treatment plant efficiency decreases if much unwanted and by making maximum use of permeable drainage ditches. water finds its way into the system. Poor joints and crushed These measures could also improve ground water recharge. pipes are usually the cause of excessive infiltration and in- flow and are symptomatic of older systems such as those in Runoff can also be attenuated by providing buffer strips Attleboro and North Providence which both experience ex- along streambanks, particularly in suburban and rural areas. cessive infiltration and inflow. The buffer strips should be heavily vegetated and attractive. They should be able to fit gracefully into programs to man- Another effective in-system control measure with possible age category B lands (Chapter 3), to improve picknicking, application in larger systems is computerization. The sys- fishing and passive recreation (Chapter 6), and to manage tems make the most effective use of interceptor and line flood plains (Chapter 8). Furthermore, even when exclu- capacity by employing computer-linked monitoring and sively under private ownership, streambank buffer strips control devices to route and store combined sewer flows. should enhance land values. The computer system allows an operator to divert flows to half-empty interceptors, thus using all available in-system Better Street Cleaning. Most current street cleaning storage and "buying time" until the wet weather passes programs and equipment are designed with no awareness of and the combined flows can be accepted by the municipal the significant polluting effects of stormwater runoff. Better, treatment facility, thus treating the stormwater as well. An more frequent street cleaning might help considerably, but added advantage of this type of system is that individual more information is needed on its cost-effectiveness com- components can be installed as funds become available and pared to treatment and other measures described in this sec- can still produce good results. Possible applications may tion. be found in Boston and Providence. Separation. For years physical separation of stormwater Off-system storage. This measure refers to the use of and wastewater collection systems was considered the only holding tanks to collect combined sewer overflows and to method of abating combined sewer problems. In the older return the collected wastewater to the sewers during periods cities - Boston, Fall River, New Bedford, and Providence - of low or direct flow, thus completely eliminating the dis- complete separation of combined sewers would be a massive charge and providing treatment of overflows at the munici- undertaking resulting in massive social disruption. Now, with pal wastewater treatment facility. Because of the size of the growing realization that the stormwater portion of com- the systems and the highly urbanized character of Boston bined sewer overflows can be as detrimental to water quality and Providence, widespread use of this method is not feas- as the sanitary wastewater portion, alternatives which will ible. Fall River and New Bedford should consider this manage the entire problem are being considered and imple- measure, however. mented. Treatment. Perhaps the most cost-effective measure is In-system Controls. These measures include mainten- additional treatment wherever feasible. Generally, physical ance of overflow regulators and tide gates, use of improved or physical/chernical treatment is applied to the combined regulators, infiltration and inflow control, and the use of sewer flows, followed by chlorination. Also, the flow computerized sewer system controls. They vary in cost. could be conveyed to an existing wastewater treatment The degree to which they can be implemented depends on facility. All but the small combined. systems should strive the nature of the specific system. to implement treatment measures for managing the entire Regulators are devices which control the flow of waste- problem. water and stormwater between the local collecting sewer, The Cottage Farm Station on the Charles River is an exist- the interceptor sewer, and the outfall. During wet weather, ing example of combined sewer overflow treatment. When 5-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made flow exceeds the capacity of existing downstream treat- interceptor and treated at the Deer Island primary tTeat- ment plants and their interceptors, all the excess combined ment facility. A second combined sewer overflow -treat- sewer flow is diverted to the Cottage Farm station for de- ment facility on the Charles will be built by the Metropoli- tention, chlorination, and release. When runoff exceeds tan District Commission in conjunction with a new dam interceptor capacity moderately, diversion and detention at Warren Avenue. can be very effective. In the case of major excess runoff, however, detention is decreased and treatment is minimal. An alternative concept should be evaluated while planning From May 1971, to December 1973, the Cottage Farm other combined sewer overflow treatment plants. The valve, station received 769.8 million gallons of Wastewater and arrangements could allow the plant to retain and treat to discharged 674.5 million gallons of treated flow. The re- high standards all of the initial very contaminated runoff maining 95.3 million gallons of flow were returned to the and bypass all of the later relatively clean flow. Overall TABLE 5.2: CONSTRUCTION GRANTS PROJECTS LIST - FISCAL YEAR 1975 Applicant Name Planning Type of by Priority Area Grant Project Description?J In Massachusetts: Hull BM PDC 1, PS, FM, outfall Lynn INS PD 1, PS, S Nahant INS PD PS & FM to Lynn Mattapoisett BB PD, 1, PS & FM to Fairhaven Hopedale BL PDC A Charles R. P. C. District BM PD 1, PS, A Metro. District Cominission BM PDC Stormwater detention Newburyport INS I'D PS, S Metro. District Commission BM PDC Incinerators Attleboro BL Pl) I, PS, A North Attleboro BL PD 1, PS, A Grovelarid INS PDC I & PS to Haverhill South Essex Sewer District INS PD S Fairhaven BB PD I Taunton, TA PDC 1, PS, FM, A Brockton TA PD A Milford BM PD A Uxbridge BL I'D 1, PS, S South Essex Sewer District INS PDC PS & FM from Marblehead Middleboro TA PDC A Falmouth cc PDC PS, FM, S Weston BM PDC PS, FM to MDC Sutton BL PDC 1, PS to Millbury Essex, INS PDC 1, PS, A Blackstone BL PDC 1, PS to Woonsocket Millbury BL PDC I Raynham TA PDC I, PS & FM to Taunton In Rhode Island: Providence BL W S, combined sewers Woonsocket BL Cv I"S Quonset Point NB PV H, S, sewers Newport 1 & 2 NB C@/ I, PS, FM, sewer separation Barrington NB C 1, PS, FM Burrillville BL C I'S Westerly PTCK C 1, PS, FM, S New Shoreham (Block 1.) ND Cv 1, PS, FM, S Lincoln BL CY I P:;, Planning, D = Design, C Construction 2/ 1 = Interceptor, II = Infiltration/inflow, PS = Pumping Station, FM Force Main, S Secondary Treatment Plant, A = Advanced Treatment Plant V Awarded before November 5.1974 5-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made abatement efficiency could thus be greatly improved by The Solutions concentrating on the more contaminated early portion of the total flow. However, in extensive systems, detailed Alternatives sampling must be undertaken in order to determine whether or not this "first flush" treatment alternative would yield General approaches for solving municipal wastewater prob- economically and environmentally justifiable results. lems include (a) additional sewering, (b) higher degree of treatment, (c) better effluent disposal methods, (d) better sludge disposal methods and (e) greater regionalization. A MUNICIPAL DISCHARGES combination of several methods will usually be required. The Situation Additional Sewering. It should be clear from the land use discussion in Chapter 3 that the provision or withhold- About 80 municipal wastewater facilities are currently dis- ing of sewer service can be a powerful means of determining charging to the waters and land areas of the region. They growth patterns. Sewers allow high density development in serve 3.4 million people, about 70 percent of SENE. As some areas and thus help to preserve open space in others. indicated in Table 5.1, effluent from some of these facilities At the same time, however, a large treatment facility with a contributes substantially to water quality problems in each large wastewater volume to be assimilated at the disposal of the 10 planning areas. The problem is particularly severe site necessitates a higher degree of treatment. In addition, in the following five planning areas, which are listed from the runoff associated with the higher densities generally north to south: Boston Metropolitan, Buzzards Bay, Taun- contribute more to the degradation of water quality than ton, Blackstone and Vicinity, and Pawtuxet. the runoff from areas of lower density on individual sub- surface systems. EPA provides 75 percent of the required funding for the planning, design, and construction of publicly owned waste- The 1990 design capacity for presently existing treatment water treatment facilities. The states contribute an addi- facilities and new facilities proposed by the SENE Study tional 15 percent and communities usually bear the remain- would serve 5.2 irtillion people. Figure 5.4 locates the ex- ing 10 percent. Massachusetts also administers a 90 percent isting and potential sewer service areas in SENE. Waste- grant program for certain projects not federally funded. The water from the potential service areas would be treated1by Gloucester Treatment Facility is one such project. the proposed facilities, shown in Figure 5.5. In general, the proposals for these facilities follow state and regional plan- The grant requests for Fiscal Year 1975 are listed in Table ning agency recommendations. 5.2. They are arranged by state according to state-established priorities. Higher Degree of Treatment. Three general degrees of treatment are provided in the region: primary, secondary, The low level of funding slows construction progress. While and advanced (tertiary). All should be followed by disin- EPA continues to attempt to meet the goals of the Act, it is fection. Primary treatment is provided by most of the com- generally felt, both in and out of government, that the -dead- munities along the coast with sewer systems. Of the 3.4 lines in the Act will not be met for all publicly owned treat- million people served' by sewer systems in the region, 73 ment facilities unless substantial funding increases occur. percent are connected to primary facilities, 23 percent are Even if fully funded, engineering and construction could connected to secondary treatment plants, and 4 percent probably not be completed in time. are connected to systems which receive no treatment. Be- cause of the inefficiencies of such an arrangement, and Fiscal Year 1976 funds for federal aid to municipal con- since 1972 Act requires secondary treatment, this condi- structi on projects amount to S 150 million statewide in tion should change. Advanced treatment is currently pro- Massachusetts and $19.5 million in Rhode Island. Total posed for all but one stream discharge in order to meet the needs estimated by each state amount to $6.5 billion in 1983 swimmable-fishable goal. Massachusetts and $1.4 billion in Rhode Island. At 75 per- cent, the federal share would be 4.9 billion and $ 1.1 billion, Better Effluent Disposal Methods. There are three respectively. If the last projects funded take two years to basic methods of disposing of effluent from treatment construct in order to meet the 1983 goals, about $812 plants: stream disposal, ocean disposal, and land disposal. million in Massachusetts to t 180 million in Rhode. Island Of the three, the inost widely used in the SENE area are will be needed annually for the next six years. This is stream and ocean disposal. The largest discharges are to the five to nine times the current level of federal assistance. coastal waters of the region since most of the cities are on For these and other reasons EPA has developed a policy the coast. However, the most severe water quality prob- of strict preservation of streams closest to standards in lems result from municipal wastewater discharges into the order to reach the goals of the Act in as many areas of streams of the region. The Worcester treatment facility on the region as possible. the Blackstone River, the Brockton @acility on the head- 5-11 LEGEND Existing Proposed (1990) NASSACNIISErrs *AV 11, N@ A rL A A, r/ c oc",ir 4 e 7 C@l ft ft t ^j CAPE COD *Ar t r Iv- I Ll. ' ,,@ I --- 4 J1 mAmrucKEr souma #ARRA"w$frr "r &LOCK ISLAND SOUND MILES KILOMETERS NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS NO. EXISTING & PROPOSEI) 5.4 SOUTHEASTERN NEW ENGLAND SEWER SERVICE AREAS WATER AND RELATED LAND RESOURCES STUDY 5-12 Sewer Service by Town Town with no sewer service system Town with local sewer service system (one or two towns served by a system) Town with regional sewer service system (three or more towns UKM served by !he same system) Town with both local and regional sewer service system Type and Location of Wastewater Treatment Facility Secondary MASSACNIISErrs o Secondary, ground discharge Advanced Ak 0 AWSW J'AY 4 A rLANric OCEAN Ye '7r, f @n 6-- @Cur ........... CAPE COD &A y V r- If 4 Y: L c@ soy #AmrLcxrr sov" NSEff Mr wt., #LOCO ISLAND ...... SOUND c;3 Ot 4 f MILES I KILOMETERS Is NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS PROPOSED NO. WASTEWATER TREATMENT SOUTHEASTERN NEW ENGLAND SYSTEMS AND FACILITIES 1990 WATER AND RELATED LANDRESOURCES STUDY 543 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made waters of the Taunton, the Milford facility on the Charles as siting a solid waste disposal facility. For example, a pro- River, and the Cranston, West Warwick, and Warwick facili- posed incinerator for the MDC's Metropolitan Sewer District ties on the Pawtuxet are prime examples of the above situ- in the Boston area has drawn considerable criticism because ation. of possible airborne nuisances and health hazards. Land Disposal, most commonly by spray irrigation on Land spreading is the only disposal option which takes ad- agricultural or forest land, is not currently used to any vantage of the potential of sludge as a soil building material. great extent in the region. Several communities have used Furthermore, it furnishes an alternative to more concentra- filter beds, a type of land disposal, but not in significant ted inorganic fertilizers which have recently diminished in amounts. Several areas, including the Taunton, Pawcatuck, supply and increased in cost because of the petroleum short- Upper Charles, Blackstone, Buzzards Bay, South Shore, and age. Applied to land in either a liquid or dried state, the Cape Cod, have lands which meet the physical requirements water, nutrients, and organic matter in sludge increase the for land disposal - good drainage and depth of soil; depth, humus content, fertility, and water-retention capacity of quality, and use of ground water; topography; climate and the soil. Both Attleboro and North Attleborough are pres- public access. Because of the contribution this method ently investigating the possibility of using dried sludge as a makes to recharging ground water, it will be particularly ap- soil conditioner. It has also been suggested that the Metro- plicable on Cape Cod if problems of safety, high cost, and politan Sewer District convert its sludge to fertilizer, ra- extensive land requirements can be overcome. Several plan- ther than incinerate it (see above). The principal problems ning areas such as the Taunton have some suitable acreage of land application appear to be the potential long-tei.t., close to urban areas. Therefore, they may be appropriate effects of toxic metals in the sludge and the product's'mar- for small scale land disposal operation. ketability. Better Sludge Disposal Methods. As higher and higher Landfilling is used by most industries and municipalities in degrees of treatment are required to meet water quality Massachusetts and Rhode Island. After the sludge has been goals, sludge disposal problem will increase. Although no treated and dewatered, it is brought to the landfill site and fully reliable data are available on the quantity of sludge buried in accordance with sanitary landfill guidelines. handled in Massachusetts and Rhode Island, Table 5.3 pro- Greater RegionaRzation. This last alternative measure in- vides an estimate of the quantity of sludge that will be gen- volves communities joining together to provide wastewater erated in'SENE in 1990. treatment and disposal at one site. Because of economies Sludge handling and disposal can cost as much as 25 to 50 of scale, regional treatment facilities are generally cheaper percent of the total wastewater treatment plant capital and to build and operate. Because personnel are generally better operating costs. Assuming that the average cost of disposal trained at larger faci.lities, they are usually more effectively is in the neighborhood of $25 per ton of dry solids, the total annual cost at present for sludge treatment and dis- TABLE 5.3 ESTIMATED SLUDGE VOLUMES FOR 1990 posal in Massachusetts and Rhode Island is $11 million BY STATE AND PLANNING AREA* per year. State Volume Sludge disposal alternatives include ocean.dumping, incinera- tion, land spreading, and landfilling. Massachusetts Part of SENE 120.3 Rhode Island Part of SENE 22.9 Ocean dumping is prohibited in Rhode Island. Although it SENE Total 143.2 is not prohibited by state statute in Massachusetts, it is reg- ulated under the federal permit and license systems. At Planning Area Volume present, ocean dumping is allowed at only one site in Massa- Ipswich-North Shore 12.3 chusetts, in Boston Harbor at the Deer Island wastewater Boston Metropolitan 70.2 treatment plant. Since state and federal policies discourage South Shore 4.9 ocean dumping as a means of disposal, it does not appear to Cape Cod & Islands 1.1 Buzzards Bay 5.0 be a@* Taunton 12.6 alternative for the future. Blackstone & Vicinity 28.0 Incini on of sludge containing organic matter reduces the Pawtuxet 5.9 Narragansett Bay 2.1 amount of solids to be disposed. The resulting ash will vary Pawcatuck 1.1 from 15 to 45 percent of the original weight of solids. How- ever, the disposal of this ash is an associated cost of the in- SENE Total 143.2 cineration process. Incineration, moreover, can cause air pollution, and siting an incinerator is perhaps as controversial I/In thousands of cubic feet per day, treated and dewatered 5-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made operated. Of major importance is the fact that fewer water delays are foreseen which will cause an industry to miss the bodies are exposed to potential degradation since fewer dis- 1977 deadline. However, the industries whose* discharges charges result. The recommended prograinsin each planning will be eliminated through connection to a planned munici- area have favored this approach over individual municipal pal system may not be able to meet the deadline because of treatment facilities wherever possible. Regional approaches lack of federal funds for municipal treatment facility con- can also help to achieve preservation goals by limiting dis- struction and other delays. Pretreatment, which is usually charges above the most upstream municipal plant. less than BPT should occur on time, however. Smaller flows have resulted through water conservation, recycling Major regional treatment facilities exist in the Boston Metro- and reuse in order to lower user charges levied by the muni- politan planning area (Metropolitan District Commission), cipal plant. This trend is encouraged and applauded by the in the Ipswich-North Shore planning area (South Essex Sewer SENE Study. District), and in the Blackstone and Vicinity planning area A special aspect of industrial wastes is hazardous wastes - (Upper Blackstone Pollution Abatement District and Black stone Valley Sewer District). These regional districts serve pesticides, radioactive wastes, industrial chemicals and bio- two-thirds of the total sewered pbpulation of SENE. chemicals. The management of hazardous wastes is gen- erally inadequate in SENE. The uncontrolled discharge of Later, a closely related concept will be discussed under the such waste materials into the environment unnecessarily heading of "Areawide Management. " Unlike the regionaliza- threatens the public health and welfare. tion described immediately above, areawide management will In Massachusetts, the Division of Water Pollution Control not be confined primarily to municipal discharges. is charged with the authority and responsibility for hazard- ous and toxic waste disposal. State regulations cover handl- INDUSTRIAL DISCHARGES ing and disposal methods involving the transport of hazard- ous wastes by truck, rail, and vessel. In addition, the Divi- The Situation sion of Water Pollution Control licenses the disposal of hazardous wastes by any person. According to Table 5.1 industrial discharges have a major effect upon the region's water quality, particularly in the Rhode Island does not have specific laws regulating the use following four planning areas: Boston Metropolitan, and disposal of hazardous wasies. Only the use and appli- Taunton, Blackstone and Vicinity, and Pawtuxet. cation of pesticides are regulated by statute; disposal is uncontrolled. In many cases, pesticides are disposed of in In terms of flow, electric power production is the largest municipal sewers, and in other cases, they are disposed of industrial discharge category. In terms of water quality at municipal landfill si*tes. The other hazardous wastes are degradation, other industries in the region are also im- controlled by the state's air and water pollution control portant. Textile dyeing and finishing is the largest contri- laws. butor of biochemical oxygen demanding material (BOD) to the region's waters, and the jewelry and metal finishing in- Pesticides are used only on a small scale in Massachusetts dustries discharge significant quantities of metals in plating because agriculture is not a significant economic activity. wastes. There is a storage facility in Hingham for pesticides dis- posed of by businesses and farmers in the state. It is esti- The abatement of waterbome industrial wastes is managed mated that between eight and ten tons of pesticides are by the industrial permits program. Administered by the stored there annually. U. S. Army Corps of Engineers for the first three years of its existence, the program was modified, renamed the Na- The major sources of radioactive waste in Massachusetts tional Pollutant Discharge Elimination System (NPDES), are the Boston Edison nuclear power plant in Plymouth and transferred to EPA by the Federal Water Pollution Con- and New England Nuclear of Boston, a firm which manu- trol Act Amendments of 1972. factures fuel rods for use in hospitals, research labora- tories, and schools. These hospitals, laboratories, and In general, the program is working well and on schedule in schools, most of which are located in the Boston area, SENE. Based upon permits which have been written or are the other sources of radioactive wastes. drafted thus far, of the 78 major existing industrial dis- charges into surface water bodies in the region, 22 will be The University of.Rhode Island at Fingston, which oper- eliminated by connection to municipal systems, by subsur- ates a small reactor, and the United Nuclear Company of face disposal methods, by process changes, or by the closing Charlestown, which operates a uranium recovery plant, or moving of a firm. The remaining 56 will be required to are the primary sources of radioactive waste in Rhode provide best practicable treatment (BPT) by July 1, 1977. Island. Currently, engineering is proceeding on schedule, and no 5-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Radioactive waste in both Massachusetts and Rhode Land burial is a suitable method for those hazardoirs mate- Island is packaged according to federal regulations and rials thatrequire complete containment and permarient transported to designated disposal sites outside of the disposal, including radioactive and highly toxic chemical SENE region. wastes. The material is deposited either directly into the ground, or is deposited in stainless steel tanks or concrete- Most of the industrial chemical wastes in Massachusetts lined pits beneath the ground. and Rhode Island are generated by the metal plating and finishing industries. These wastes are treated on-site at The geology of the SENE region does hot provide suitable the larger plants. Dewatering and landfilling at the plant deep underground reservoirs to accept wastes by means of usually follows. On occasion, leachate from these on-site deep-well injection. Unless all other alternatives have been landfills has polluted water sources. Cases of pollution found less satisfactory for environmental protection, and have been noted most frequently at plants in the metal unless extensive hydraulic and geologic studies are made, plating industry. The smaller companies usually look to EPA opposes deep-well injection. disposal firms to handle their wastes. Since state and federal policies discourage ocean dumping, Although hospital wastes are similar to those generated and the environmental problems associated with it have by other types of public institutions, they require special long been recognized, ocean dumping is not considered a consideration due to the possibility that pathological ma- viable alternative. Incineration and open burning can result terials may be present. In most cases, the disposal of in air pollution unless adequate controls are employed. pathological wastes is accomplished by incineration (which may affect air quality). Where they are disposed through SOME NON-POINT POLLUTION sewers, however, pathenogenic wastes may contaminate SOURCES the receiving waters. The disposal of biochemical wastes is a potentially danger- In marked contrast to most of the -point sources considered ous problem in the Boston and Providence areas. The above, most non-point sources of water pollution are diffi- larger laboratories hire disposal firms to take care of their cult to measure and control. Prominent non-point sources wastes, but many of the smaller laboratories either store include: (1) stormwater runoff; (2) precipitates from air- these wastes or flush their wastes without pretreatment bome pollution; (3) sediment; (4) septic systems; (5) in- into municipal wastewater treatment. plants. stream pollution sources; (6) agricultural runoff; and (7) leachate from landfills. The first source was considered The Solutions earlier where it is most significant, as urban stormwater run- off. The second will not be discussed directly in this report. Alternatives Its principal manifestation, however, is the form of dust often containing lead and zinc. The dust coats cities and For industrial wastes, there is no need to change the factories near its points of origin. It affects water quality industrial permits program. It seems to be working well. primarily when it is washed into water bodies in the form of urban storm runoff, which was covered earlier. Sedi- The burden of disposing of hazardous wastes is best ment is considered below. placed upon industry or the farmer who uses them. De- termination of the proper disposal method for these wastes Although non-point sources are currently difficult to mea- must be made on an industry-by-industry basis. Geological, sure and their effects are even more difficult to access, air quality, and cost studies must be made for each indust- they must be fully integrated into any comprehensive rial plant. The states could locate, approve, and monitor plan that attempts to improve the quality of water bodies discharges from every significant source of hazardous in an economically efficient way. Increasingly numerous wastes in their state. studies have documented their importance. As treatment efficiency of point sourcesrises, the key question becomes Commonly used alternatives include land burial ' deep-well increasingly more pertinent: might the effort to abate non- injection and ocean dumping. Incineration is used for dis- point sources be just as effective as other efforts to improve posal of some organic chemicals, and biological and flam- water quality? In the future, concurrent efforts should be mable wastes. made to deal with both point and non-point sources of pollution. .Sanitary landfiHs are preferable to dumps for the disposal of hazardous materials. Unless designed properly, however, sanitary landfills have potential for surface and ground wa- ter pollution as well as air pollution from gas venting. 5-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Septic Systems the embankments of rivers, and even on road sides in wooded areas. The Situation The disposal of this pumped waste presents a problem to p Cesspools and septic tanks service 26 percent of the popu- the private contractor. Although some pumpers maintain lation in the SENE part of Massachusetts and 36 percent of private land disposal sites, many feel it is a community ob- the population in Rhode Island. From a quantitative point ligation to provide such an area. Since many communities of view, properly operated septic systems help replenish do not provide disposal areas, contractors discard the waste ground water supplies and maintain strearnflow. Qualita- in the quickest, easiest way possible. tively however, seepage from improperly designed, con- structed, and operated systems is probably a major source Some municipalities, however, do provide disposal facilities. of water pollution. According to Table 5. 1, this problem Brockton accepts waste pumpings from as many as 30 sur- appears almost everywhere, but it is most severe in two rounding communities at its wastewater treatment facility. planning areas - Ipswich-North Shore, and Cape Cod and the Islands. The problem is especially apparent where seep- In Rhode Island, the state Department of Health regulates age from septic systems for homes and cottages hasten septic tank and cesspool waste disposal. The state requires eutrophication in the lakes they border. Other symptoms pumping contractors to be licensed yearly. It also has the include surface wetness and accompanying odors, overland power to establish regulations concerning methods of dis- runoff to streams in wet weather, and contamination of posal and pumping equipment. However, no laws currently ground water supplies. cover disposal methods, although some laws prohibit con- tamination of drinking water. Both states have recently reviewed and updated their regu- lations regarding individual disposal systems and believe The lack of waste treatment and disposal sites is as serious a them to be adequate. With proper enforcement, it is esti- problem in Rhode Island as it is in Massachusetts . Many mated that more than 40 percent of the current population communities do not have treatment and disposal facilities, now dependent on septic systems can remain on such on- and some pumpers are discharging wastes in an unsafe and lot facilities without serious problems. The other 60 per- environmentally damaging manner. Cranston is one of the, cent of the 1970 septic tank users will probably require towns in Rhode Island that does provide an adequate treat- connection to sewers because of undersized lots, poor soil ment and disposal facility for the community. conditions, or other reasons. For new development, limit- ing septic systems to those lands shown on SENE's develop- There are no federal regulations specifically regulating the ment capability maps (Plates 1, 2, and 3) as suitable for disposal of septic tank and cesspool waste. Federal funding such purposes will ensure that individual disposal systems is available for construction of handling facilities at waste- can continue to be useful for an important portion of fu- water treatment plants, and the only condition is that the ture residential development. Without such precautions, plant meet applicable treatment standards. the cumulative failure of individual systems will intensify pressure for even more sewer extensions and new treatment The Solutions works. The result will be new concentrations of effluent in high quality streams, loss of in-basin ground water, and in- Alternatives creased municipal service costs. Towns already facing this problem include sections of Wlmington and North Reading The principal alternative measures for minimizing seepage along the Ipswich River in Massachusetts; and the villages of problems are: (a) establishing and enforcing criteria and Wakefield and Peacedale along the Saugatucket Rivet in compliance procedures; and (b) increasing use of dry dis- Rhode Island. posal systems: The principal alternatives for disposal of septic pumpings are: (c) disposal at existing wastewater Disposal of the solids collected in subsurface disposal sys- treatment plants; (d) land spreading; (e) drying beds; (f) tems is a related problem. Most of the existing treatment lagoons; and (g) land filling. and disposal methods are inadequate to ensure the protec- @ion of public health and'environmental quality, Establishing and Enforcing Effective Criteria and Compli- ance Procedures. This is easily the most important alterna- In Massachusetts, the state Department of Public Health tive. An in-depth look at the criteria for locating, sithig, has delegated the authority for overseeing septic tank and and designing individual subsurface disposal systems might cesspool waste disposal operations to the local boards of disclose some aspects of existing regulations that still allow health. But the lack of community-provided disposal sites problems to develop. For example, high percolation rates has led to violations of the law and potential pcllution coupled with the minimum allowable depth to ground water problems. Private pumpers have dumped septic tank and may result in bacterial contamination, nitrate build-up or cesspool wastes into isolated swamps and streams, down even phosphate build-up in the ground water. Allowing 5-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made systems to be placed in fill material might invite clogging placement of the wastes under the soil. Possible problems conditions at the "fill-old ground" interface. Site inspec- include concentration of heavy metals, plant absorption of tions could be limited to the wet months of the year in the metals, and persistence of viruses in the treated soil order to spot potential water table problems, Deeds for and related ground water. property might be required to state specifically whether tests have, or have not, been conducted, and where the Drying beds..Drying beds treat the septic pumping in a reports may be examined. For more general planning, the shallow, uncovered pit which is underlined primarily with subregional multi-colored land capability maps (Plates 1, sand and gravel. Since the pit is open, it is subject to the 2, and 3) in the rear pocket of this report could be used. inflow of surface water and possible overflow, and it is ex- Four land classifications are particularly relevant to plan- posed to animal and insect contact. Some dewatering of ning and siting septic systems - aquifers, ledge soils and/ the wastes occurs through leaching, which may have an ef- or steep slopes, moderate to no septic system limitations, fect on ground water. The pit apparently does not act as a and severe septic system limitations. stabilization pond due to its insufficient depth. Whatever the criteria, to be effective, they must be en- Lagoons. In lagoons, solids in the waste settle to the bot- forced. Therefore, 'emphasis is focused on institutional tom. When the lagoon is filled and sufficiently dewatered, and legal arrangements for compliance through state and the stabilized sludge can be removed and buried. local regulatory authorities. This is a major task; the states have difficulty in regulating installation of the multitude Landfilling. This is a possible method for disposing of ofwidely dispersed systems - not to mention regulating septic tank and cesspool wastes, although most experiments their performance and maintenance. in landfilling have been primarily concerned with sewage sludge. In particular, close attention should be paid to con- The two states have been doing most of the things sug- trolling runoff and leachates. Besides contamination of gested above, but continued more intensive effort is water resources, other possible problems include insects, justified, rodents, and odors. Increasing Use of Dry Disposal Systems. If they ever come Low Streamflows into widespread use, new, non-water-using home waste dis- posal systems may, in the future, alleviate some of the The Situation problems with septic systems. The only residue is claimed to be a small quantity of compost removed about once a Generally, water law in the Northeast conforms to the year. Wastewater from kitchen and bathroom sinks, show- riparian doctrine as interpreted by the courts through spe- ers and tubs must still receive wastewater treatment, however. cific case litigation. The riparian doctrine gives to the Disposal at Existing Wastewater Treatment Plants. Probably owner of the land adjacent to a stream the right to use the best method of disposing of septic pumpings is to truck water from that stream. If downstream users object, the them to the nearest secondary or higher wastewater treat- upstream rights may be limited7to a "reasonable use," as ment plant for treatment along with sewage. The user, of decided by the court. course, would pay his fair share of the treatment costs. If the upstream riparian owner is a municipality which di- Since this alternative is not always available, however, other verts a significant quantity of water for its water supply methods must be considered below. Whatever method is system, users will receive a reduced flow until the water is chosen, town government must play a key role. It should returned - less evaporative, seepage, and other consump- provide the disposal sites and carefully monitor their use. tive losses - to the system in the form of treated effluent. Unless the stream is very small, these flow itductions are Land Spreading. In the ordinary land spreading method, usually inconsequential. Sometimes, however, the water is septic pumpings are spread above the soil and allowed to diverted to another basin or to the ocean through sewers. dry. Since the waste is spread in the open, animals and As a result, the water near the mouth of the stream from people may easily come in contact with disease-causing which the diversion was taken will be a few parts per thou- bacteria and viruses. Other possible problems are con- sand saltier and somewhat cleaner. Near salt water outfalls, tamination of drinking and recreation waters, attraction however, the water will become a few parts per thousand of disease-carrying insects, and objectionable odors. fresher and also somewhat dirtier. These changes can have a slight, but not critical, effect on the region's ecological system. The most likely harmful possibility might be the The plow -furrow-cover, terreator, and sub-sod-injection closing of an area to shellfish harvest near the outfall. This methods are other techniques of land spreading which is a conseq .uence of every wastewater discharge and has require further research to determine whether treated soil little to do with the small salinity changes produced by may be useful for agriculture. All three methods involve the diversion. 5-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made If the stream is very small, so that the diversion or inter- as to minimize adverse water quality effects. Manure can rnittent water use is a large proportion of its total flow, be spread during periods when soil moisture is low and the the consequences can then become biologic .ally and hydro- ground is unfrozen. Well-vegetated streambank buffer logically devastating. Downstream use might have to be strips - advocated earlier under urban stormwater runoff restricted because of the irregular flow. Recreational - can attenuate agricultural runoff particularly near loca- uses such as boating and flshing might be impaired. Fish tions where animal wastes are produced or spread in and biota are not always permitted sufficient water cover quantity. to be able to thrive in such streams. Findings from water quality studies on intermittent streams suggest that the Leachate from Landfills dissolved oxygen and temperature levels often fluctuate to such an extent that water quality standards may be According to Table 5.1, leachate from landfills is a fairly violated. Aesthetically, the streams suffer most. Odor minor regional problem. It is of moderate importance in from algae and river bed biota which die from lack of three planning areas, however - Ipswich-North Shore, Bos- water cover, and are not swept away by the flow, may ton Metropolitan, and Blackstone and Vicinity. constitute serious pollution pro@lems. Moreover, dry river bed bottoms will never compare to the visual beauty If not properly controlled, landfill leachate can cause of free flowing streams. ground water and surface water bodies to be degraded in the same manner as any other improperly treated waste- The South Branch of the Pawtuxet River has extremely water. Two of the worst problems exist in the Charles erratic flows and wastewater discharges. The Nemasket River at Milford and in the Saugus-Pines estuary. The first River often has low flows incompatible with a munici- causes eutrophication and water quality degradation; the pal treatment facility discharge downstream. Both of second causes water quality problems that contribute to these rivers are regulated for water supply purposes, in- the closing of shellfish beds. dustrial and municipal, respectively. The degree to which most of the other landfills affect water The Solutions, quality is poorly documented. Sampling programs are needed before abatement techniques can be properly cho- To minimize in-stream problems, particularly in heavily sen. The most effective measure is careful site selection used streams having little flow, low flow augmentation and preparation. The concept is to isolate the leachate should be considered. Wherever a stream happens to have from important aquifers or surface water channels. an upstream reservoir, additional water should generally be released during periods of low strearnflow. Since these releases will often conflict with other reservoir pur]Roses - In-stream Pollution such as water supply and recreation - hard negotiation The Situation and carefully considered trade-offs will be necessary be- tween upstream and downstream communities. Low flow In some streams, the use of previously cited solutions to augmentation with highly treated wastewater is also being deal with point and non-point discharges may not result ,attempted. Safeguards must be instituted to avoid stream in desired water quality improvements. The chief sources pollution in the event of treatment plant failure, however. of in-stream pollution are: (1) toxic and/or oxygen demand- ing benthic deposits; and (2) a high volume of pollutants rel- Agricultural Runoff ative to the volume of streamflow, even if the pollutants have received treatment. Agricultural runoff includes the runoff of fertilizers and. and animal wastes. Pesticides and herbicides were con- The Solutions sidered earlier in this chapter as hazardous wastes. Sedi- ment is considered in Chapter 8. Alternatives According to Table 5. 1, agricultural runoff is a minor water In order to deal with these problems described above, three quality problem in SENE, which is a non-agricultural region. alternative measures should be considered: (a) dredging of The problem is moderate in only two planning areas - Buz- benthic deposits; (b) aeration; and (c) treatment. zards Bay and Taunton. It is minor or inconsequential else- where. The planning area reports for the two cited areas Dredging of Benthic Deposits. Several lake� have been re- contain further detail. stored by dredging polluted material that covered their bot- tom. Sometimes, however, dredging for water quality im- Farming practices can significantly reduce problems of provement can create more problems than it solves by re- agricultural runoff. Chemical fertilizers can be applied so suspending polluted material. If benthic deposits cannot be 5-19 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made removed by natural stream mechanisms, covering of the However, prevention by all persons handling oil is the problem material with clean sand is an alternative. key to fewer spills. In-stream Aeration. Although sometimes technically diffi- Chapter 9 considers related problems associated with the cult to accomplish, aeration can help a stream to handle a exploitation of oil and gas reserves off the SENE coast. heavy organic load, especially if the stream is-sluggish and deep, and has a slow natural reaeration rate. Aeration can WATERCRAFT WASTES be accomplished in the stream by mechanical mixers or diffusers. It can often also be accomplished at the treat- From a regionwide point of view, pollution from recrea-' ment plant out-fall site by a series of simple weirs over tional watercraft is relatively less significant than many of which the effluent cascades. Municipal discharges to the the other sources of pollution described in this chapter. upper Charles and the Taunton Rivers will require such However, locally - and particularly to the individual post aeration. swimmer - the presence of watercraft wastes near beaches and popular harbors is particularly serious. As might be expected, the key problem areas are Cape Cod and the In-stream Treatment. This method is being used experi- Islands and Narragansett Bay. mentally at the Storrow Lagoon, in the Charles River Basin. Some of the lagoon's water is diverted through a physical/ The region's recreational boating fleet discharges about chemical treatment facility and returned after treatment. 22 million gallons of wastewater to the SENE coastal If water quality in the lagoon improves sufficiently, a full waters each boating season. This is equivalent to scale plant would be the likely next step. Treatment sys- the year round untreated wastes from a population of about tems like this are applicable where non-point sources or 600 people. If spread evenly along SENE's 1540-mile coast- the volume of effluent preclude significant water quality line, and evenly throughout the year, wastes from watercraft improvement, regardless of the degree of upstream treat- would clearly not be noticed. However, the wastes are con- ment. Another example is the lower Pawtuxet where the centrated into a few months and into a few crowded harbors. volume of effluent now precludes any classification higher If these harbors are adjacent to waters desired for swimn-dng than Class D. The operational costs of such systems, how- and shellfishing, problems occur. Furthermore, the wastes ever, could be prohibitive. are very noticeable from the shore and docks. OIL POLLUTION There are two distinct alternatives for handling the domes- tic wastes generated on watercraft. They are: (a) flow- Oil pollutants threaten the goal of achieving swimmable- through devices providing primary treatment and disinfec- fishable water, especially in the Boston area. These pollu- tion; arfd (b) holding tanks, devices which result in no dis- tants reach the water through inadequately treated indus- charge. Both pose problems. trial and municipal wastewater, overflows from combined Flow-through devices, will not always operate at designed sewers, accidental spills, runoff from land areas, discharge exhaust from two-cycle engines used on recreational boats, levels of treatment if improperly maintained, and there is air pollutants, and drainage entering from outside the no practical way for enforcement personnel to ensure that SENE Study area. proper maintenance will be performed. Moreover, the treatment provided by an on-board, flow-through device The Study area has no major refineries, but Massachusetts could be considered inadequate in the only areas where and Rhode Island rely on oil tankers to provide the great treatment of any sort might be really needed - over shell- volume of oil required to service the densely populated fish areas and near bathing beaches. and industrialized areas in eastern Massachusetts and Rhode Island. Many oil unloading and storage facilities The second alternative, the holding tank, also poses prob- are located in the Study area with the two major concen- lems. It requires that pump-out facilities be available, trations located in Boston Harbor, and in the Providence which is not now the case at most docks and marinas. In River and Harbor. addition, the level of treatment provided by on-shore facilities where they do exist, is often inadequate. Also, Of 189 oil spills recorded in SENE during 1973, 86 oc- for certain types of vessels, on-board retention or complete curred in Boston Harbor and 10 in the Providence Area. disposal is not feasible. Woods Hole and Beverly-Salem Harbors showed more A third alternative is restricted usage. Areas with concen- spills than Newport, Fall River and New Bedford Harbors. trations of recreational boating could be closed to swim- Continued vigilance by the Coast Guard, EPA, and the ming and shellfish harvesting. Conversely, all areas near state water pollution control agencies can help to control those dedicated to swimming and shellfish harvesting could this potential threat to water quality and marine life. 5-20 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made be closed to boating. As a further refinement, boats could watershed in the South Shore planning area, the Cape Cod be allowed near shellfish harvest areas and near bathing and Islands planning area and the Pawtuxet planning area. areas, if the owner voluntarily agreed to comply with hold- ing tank requirements. However, enforcement of this alter- Within the SENE boundaries are portions of as many as native could be more difficult than those required under ten proposed "208 planning areas " Designation of these the first two alternatives considered in this section. areawide waste treatment management areas is required under Section 208 of the Federal Water Pollution Control New EPA and Coast Guard regulations have tried to mesh ActAmendments of 1972 and subsequent regulations. the first two alternatives. "Proposed Certification Proce- Nine of the 208 areas are in Massachusetts. The agencies dures and Design and Construction Requirements," written designated to carry out the development of these area- by the Coast Guard for marine sanitation devices (MSD), wide waste treatment management areas will not have allows certain certified flow-through devices for specified authority to implement water supply plans. They could, time periods. No new vessel constructed two years after however, provide for the necessary coordination between promulgation of the regulation will be permitted to dis- proposed water supply developments and water quality charge wastes. Thus, it appears that "no discharge" is the management plans, because the 208 areas coincide with, ultimate goal. If pump-out facilities and adequate on-shore or include many of, the previously mentioned watersheds. treatment facilities are developed, the "no discharge" con- The coordination could be ensured by having water supply cept will ensure maximum possible pollution abatement. experts provide technical assistance to the 208 agencies. Water supply aspects are covered more fully in Chapter 4, Pollution from outboard motors (discharge of unburned Water Supply. hydro-carbons) is another cause of concern with respect to watercraft. How much concern is open to considerable ALTERNATIVE PLANS debate. A large quantity of unburned fuel is known to be discharged through the exhaust of two-cycle outboard en- The primary goal of the Federal Water Pollution Control gines on recreational boats. The effect of this fuel on the Act Amendments of 1972 is the elimination of all dis- water quality and aquatic life is uncertain. Since the charges of pollutants to navigable waters by 1985. How- resultant oil concentrations are low, adverse environmental ever, it seems clear that in SENE, as in many other parts effects may be minimal. However, toxic constituents in of the nation, that ultimate goal cannot be reached with- the fuel, such as lead, may be increasing, expecially in out massive increases in federal funding - if at all. At the lakes and ponds. Nevertheless, one effect of these dis- same time, the steady, if somewhat slower than anticipated, charges is certain: a large quantity of oil and gasoline is progress in municipal treatment plant construction, and the being wasted. Devices which eliminate these discharges strides being made in industrial wastewater recycling and and recycle unburned fuel are presently available. These devices are inexpensive to purchase and they lower fuel recovery, indicate that we have a good chance of at least bills. Consequently, their use is recommended not only approaching that goal. from an environmental standpoint, but also from an eco- Within the context of these political and scientific realities, nomic one. then, several alternative plans were developed, with varying degrees of economic or environmental emphasis. AREAWIDE MANAGEMENT The environmental plan sought the lower, but still ambi- Past experience has indicated that individual municipal tious, goal of swimmable-fishable waters everywhere by efforts to improve water quality can be costly and com- 1983. The plan gives equal priority to point and non-point plex to manage. It is often the case that a coordinated sources of pollution. Treatment, rather than separation water quality management program linking several com- would be the only alternative to solving the combined sewer munities will have a greater chance to meet state water overflow problem. Moreover, some kind of breakthrough quality goals than strictly local action. Moreover, such in understanding the significance, distribution, and means an areawide approach facilitates simultaneous management of abating non-point source pollution would be needed. If of the effects of water supply development on water qual- such a breakthrough could be made, a major abatement ity and, conversely, the effects of sewering and disposal program would have to be developed, accepted, funded and methods on water supply. However achieved, this inte- executed. Clearly, the social and environmental. benefits gration is essential in several parts of SENE where a deci- would be very high. But so would the costs. Until a better sion regarding one function will preclude, or open up, idea of the nature and scope of the non-point source prob- opportunities in the other. Primary consideration should lem can be developed, exactly how costly the program be focused on the Ipswich River watershed in the Ipswich- might hecome cannot be estimated. North Shore planning area, the upper Charles watershed in the Boston Metropolitan planning area, the North River The economic plan emphasized least-cost alternatives con- 5-21 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made sistent with the achievement of water quality standards set should be a long-term goal, the limited financial resources by the states and approved by the U. S. Environmental now available should be invested in abatement efforts that Protection Agency. These standards include classification will provide significant short- term environmental improve- of water quality lower than Class B ("swimmable-fishable"). ment, protection of the public health, restoration of public Highest priority went to industrial and municipal point uses, and clean-up of entire riverine or estuarine systems. sources of pollution, then combined sewer problems, and finally non-point sources. Least-cost alternatives were cho- The recommended program therefore has two thrusts - sen, resulting in the minimum allowable water quality in preservation and restoration where most attainable. The keeping with the standards. Therefore, achievement of individual policy and action recommendations that com- Class B waters under this plan would be delayed well into prise the recommended program are presented below. the future. Preservation RECOMMENDATIONS General St .rategy The SENE program gives immediate priority to ensuring that no additional water quality degradation be allowed in areas of high quality water. Five recommendations are The recommended program strikes a balance between eco- listed below in what is perceived to be their general order no.mic and environmental objectives. It also includes certain of importance in meeting the above-stated objective of the political and technical constraints not considered in either recommended program. of the alternative plans described in the previous section. (1) Stress non-degradation in areas now The objective of the recommended SENE program swimmable-fishable. for water quality is to achieve swimmable-fishable (2) Carry out current state antidegradation policies. waters by 1983 wherever realistically attainable (3) Attenuate runoff from new urban developments. economically, socially, and technically. (4) Negotiate acceptable low-flow regimes with up- stream communities. "Realistically attainable" means that some areas should not (5) Provide streambank buffer strips. use limited financial resources to achieve water quality goals of questionable worth. The recommended program recog- The first is the general policy. The others are policies or nizes the political-institutional reality that the municipal and actions supporting it. Environmentally, all five recommen- industrial abatement programs are already well underway, dations are attractive. All appear relatively inexpensive, Therefore, it generally follows current state plans, especially when compared to their potential benefits, although there in the planning area reports. Second, the recommended pro- may be some localized difficulties with numbers 2 and 3. gram recognizes the technological reality.that non-point Technologically, all are easy, but number 3 and number 5 sources are still not well understood, while at the same time will require some imaginative but rewarding landscaping. recognizing our rapidly increasing respect for their signifi- Politically, most are attractive, but number 2 may en- cance. counter localized problems and number 4 may become difficult - but the difficulties would be worse if it were The philosophy behind the recommended program can best ignored. be brought out by several examples. Achieving water of suitable quality for swimming in the Upper Blackstone The full text of each recommendation, including who is River would be an unwise use of current financial resour- responsible and qualifying details, is given below: ces since the river is often too shallow for swimming, re- gardless of quality. Boston's Inner Harbor is another I .Stress non-degradation in areas now swimmable- example of an area where swimmable quality is not fishable. All federal, state, municipal, town, and 11achievable" as a short-term goal because of the diverse private water quality programs should ensure that sources of its pollution. Socially, it may also be of low water bodies currently swimmable-fishable are kept priority because of the general shoreline character and that way. lack of significant access. Furthermore, the economic importance of the harbor and its waterfront activities 2. Carry out current state non-degradation policies. other than swimming would currently take priority. The In Massachusetts, the Department of Natural Re- lower Pawtuxet River is another example where technical sources should ensure that no new discharges will expertise at prohibitive cost could be misused in the short- deteriorate the quality of stream water above the run to attain swimmable quality. As a result of such situ- most upstream municipal discharges and Class SA ations, the recommended program for water quality sug- and SB waters (shellfish harvest and swimmable- gests that while swimmable-fishable waters everywhere fishable salt waterl with conditioned exceptions: 5-22 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made (1) to allow new cooling water discharges if stand- (6) Emphasize treatment of combined sewer over- ards are met; (2) to allow new municipal discharges flows. if part of a comprehensive plan; and (3) to require (7) Accelerate federal grants for municipal waste- existing discharges to cease and either connect to a water treatment. , municipal system or provide high degrees of treat- (8) Continue current industrial permits programs. ment consistent with maintaining high quality (9) Begin regionwide stormwater and wet-weather waters. stream sampling. (10) Make towns responsible for scavenger waste In Rhode Island, the Department of Health should disposal. ensure that no new discharges will deteriorate the (11) Determine municipal sludge disposal policy on a quality of Class A, B (drinkable, swimmable), SA, plant-by-plant basis. and SB waters. (12) Place burden on industry for disposing of hazardous wastes. 3. Attenuate runoff from new urban developments. (13) Study and define the landfill leachate problem. The Massachusetts Departmerit of Natural Resources (14) Provide pumpout facilities and treatment for and the Rhode Island Department of Community watercraft wastes. Affairs should encourage each of their municipali- ties to adopt subdivision controls which emphasize Environmentally, all recommendations are attractive. Eco- open areas and the use of permeable drainage ditches, nomically, all recommendations, except possibly numbers and provide attractive, safe stormwater detention 7, 8 and 14, could provide considerable benefits, relative to ponds, thereby also possibly augmenting ground their costs. Technologically, all are within the current state water recharge. of the art, but numbers 6 and 12 should be challenging. Politically, all should be acceptable, but numbers,10 and 14 .4. Negotiate acceptable low-flow regimes with up- can be expected to encounter opposition. stream communities. Wherever applicable, but particularly in the Nernasket and Pawtuxet River The full text of each recommendation, including who is re- Basins, the appropriate state Departments of sponsible and qualifying details, is given below: Health and of Natural Resources should ensure that negotiations are conducted between up- 6. Emphasize treatment of combined sewer over- stream reservoir managers and downstream muni- flows. The U. S. Environmental Protection cipalities to improve low-flow regimes, at least to Agency, the Massachusetts Department of the extent that these regimes will be compatible Natural Resources, and the Rhode Island De@ with economically-achievable downstream waste- partment of Health should emphasize the water treatment measures and water uses. treatment of combined sewer overflows, par- ticularly where the receiving waters have a 5. Provide streambank buffer strips. Everywhere, high value for swimming and shellfishing. but particularly in communities expecting high These agencies should discourage separation development pressures, the State Departments of of combined sewers unless separation can be Natural Resources and the Rhode Island State- demonstrated to be more cost-effective than wide Planning Program, in conjunction with other methods. other flood plain programs, should encourage municipalities to provide attractive strearnbank 7. Accelerate federal grants for municipal waste- buffer strips to preserve vegetation and other water treatment. The U. S. Environmental natural systems which help keep non-point Protection Agency should persuade the Congress source pollutants from reaching sensitive water and the Administration to accelerate federal quality areas. grants to reenergize the bogged-down municipal wastewater treatment program. Restoration 8. Continue current industrial permits program. The U. S. Environmental Protection Agency, the The SENE program has a set of nine recommendations Massachusetts Department of Natural Resour- within the limitations discussed earlier, to restore existing ces, and the Rhode Island Department of Health water quality. They are fisted below in what is perceived should continue the current industrial permits to be their general order of importance in meeting the program, which is part of the National Pollutant objective of the recommended plan. Discharge Elimination System. 5-23 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 9. Begin regionwide stormwater and wet- Resources in Massachusetts and, in Rhode weather stream sampling. Everywhere, Island, the Department of Health and the but particularly in areas of high urban Coastal Resources Management Council: (a) stormwater runoff and high non-point should have publicly owned treatment plants source runoff, the Massachusetts Depart- along the coast, provide pump-out facilities; ment of Natural Resources and the Rhode and (b) should require all marinas in heavily Island Department of Health should begin conjested harbors and adjacent to major a major year round stormwater and wet harvestable shellfish beds and swimming weather stream sampling program designed areas to provide pump-out facilities with to provide a rational basis for a major, either adequate treatment or disposal to a badly needed, non-point source abatement municipal system. program. 10. Make towns responsible for scavenger waste Planning Area Prioritier, disposal. The Massachusetts Department of Public Health and the Rhode Island De- Many factors should influence the development of a priority partment of Health should enforce existing list. Few people will weigh them the same way. The factors legislation requiring towns to be responsible include: the relative severity of the pollution problem; the for ensuring proper and monitored disposal potential and existing uses of the water body and adjacent of wastes taken from septic tanks and cess- shoreline; the population affected; the technical complexity pools. of abatement; the readiness to proceed as evidenced by the status of planning; the cost effectiveness of the abatement; 11. Determine municipal sludge disposal policy and the total costs and availability of funds. on a plant-by-plant basis. The Massa- chusetts Department of Natural Resources The two preceding sections on preservation and restoration and the Rhode Island Department of Health presented the Study's perception of the relative importance should examine and approve the sludge dis- of 14 recommendations. These priorities were regionwide. posal plans of each municipal wastewater In application, they differ from place to place as indicated treatment plant, giving balanced consideration in the individual planning area reports. to ground water quality, surface water quality, air quality, and socio-econon-dc concerns, and In this section, the Study recommends general priorities for to opportunities for achieving regional econo- the planning areas by considering each from a regional view- mies of scale. point. In doing so, the Study draws attention to its convic- tion that preservation is more rewarding than restoration 12. Place burden on industry for disposing of because it is a more cost-effective, politically acceptable hazardous wastes. The Massachusetts way of maximizing SENE's future inventory of swimmable- Department of Natural Resources and the fishable waters - which is the water quality objective of Rhode Island Department of Health should the SENE program. place the burden upon industry and farmers for disposing of pesticides, herbicides, radio- To illustrate, a previously cited example bears elaboration. active wastes, industrial chemicals, biochemi- The Pawtuxet River in Rhode Island, through on-going pro- cal wastes and other hazardous wastes. The grams, has been receiving smaller amounts of industrial above state agencies should locate, approve pollutants as industries treat or tie into the three secondary and monitor discharges from every significant municipal treatment facilities there. Despite these- efforts, source in their state. water quality is not expected to improve above Class D levels in the lower reach. Attempting to achieve Class B 13. Study and define the landfill leachate prob- waters there would quite probably sap all the funds avail- lem. The Massachusetts Department of able to the rest of the state, thereby preventing Class B in Public Health and the Rhode Island Depart- areas where it is achievable. For this reason, the Pawtuxet ment of Health should make further field should have basic aesthetic and public health values attained, investigations and studies to better define the but a swimmable-fishable goal should not be sought in the extent and nature of water quality problems short-run. associated with existing and abandoned solid waste disposal'sites, with a view to develop- The Cape Cod and Islands planning area deserves highest ing adequate perspectives and rational controls. priority for planning funds. Funds expended there for construction should be relatively low. Proper planning can 14. Provide pumpout facilities and treatment minimize the extent of sewer service and attendant treat- for water wastes. Unless and until future ment facilities. The resulting limited-service areas will fur- research proves that boat pollution is not a sig- ther tend to protect water quality by hn-dting urbanization nificant problem. The Department of Natural and associated runoff. Several of the factors mentioned as 5-24 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made being important in establishing priorities are evident in this of combined sewers in Cambridge should produce over- basin and result in its high ranking; First, the basin contains flows only during storms of a magnitude greater than the uniformly excellent fresh and coastal waters. Thus, the "five-year" storm. Sewer separation is planned for Brook- limited construction projects will serve to maintain that ex- line, as well. Finally, tide gate and combined sewer regu- cellence rather than having to restore already polluted waters lator repair is a continuing project of the MDC. Emphasis Some sewer service and treatment facilities are needed, and should be placed first on treatment of storm sewer and returns from the investment - protection of ground water combined sewer overflows affecting bathing areas and supply and contributions to recreation and tourism - shellfish harvesting, in keeping with the "swimmable- should far exceed costs in this planning area. Since the fishable wherever achievable" theme. Next, a solution to Cape is a nationally important recreation area, a signifi- the sludge disposal problem of the treatment facilities must cant population is affected by water quality there. Given be implemented. Then, remaining combined and storm high priority, funds can be reserved for planning and nec- sewer flows should receive attention. Finally, secondary essary construction to ensure swimmable-fishable waters treatment should be achieved at the Deer Island and Nut throughout this planning area well before 1983. Island treatment facilities. The next area deserving high priority is the New Bedford The remaining planning areas can be adequately restored Harbor portion of the Buzzards Bay planning area. Unlike within a reasonable time by adherence to existing state the previous area, the degree of pollution is a major con- priorities. As a general rule, however, treatment facility sideration here. Based solely on severity and complexity discharges which alone cause degradation of wate6uality of water quality problems throughout the SENE portion in a given area, should be addressed first so that a maxi- of Massachusetts, this area received the highest priority mum of stream miles and coastline can be restored in the determined by the Massachusetts Division of Water Pollu- shortest possible time. This approach is in keeping with tion Control. Within the area, emphasis should be placed the swinimable-fishable goad wherever attainable by 1983. on control and abatement of combined sewer overflows in New Bedford. Partial separation may be appropriate in With respect to time frame, it is obvious that funding is a limited areas. However, due to the potential problems determinant of how quickly the waters of the region can associated with urban runoff, a treatment scheme, either be brought to acceptable levels of quality. It is also im- at the upgraded municipal facility or at overflow areas, is portant to recognize that the priorities listed above need the most positive approach to ensure demonstrable water 'not be attempted sequentially. They can be implemented, quality improvements. at least in part, concurrently in each area and between areas. Thus, for accelerated water quality control, more Next on the priority list is the Providence area and its funding is necessary at all levels of government. As pre- combined sewer problems. Based upon severity of pollu- viously emphasized, if that funding is not forthcoming, tion, expected water uses, and population affected, the dates for achievement of water quality standards, as well Rhode Island Division of Water Supply and Pollution as minimum treatment levels, will not be met. This is Control has determined this to be the number one prior- why it is necessary to have a priority list emphasizing ity in the state. Water quality restoration through com- preservation and attainment of swimmable-fishable wa- bined sewer separation and treatment of overflows will ters where feasible and economically advantageous. enable more of upper Narragansett Bay to remain open to shellfishing and improve overall aesthetics in the Provi- This section can be summarized in the SENE Study's last dence River. Recently, Providence received an EPA plan- water quality recommendation: ning grant to study the combined sewer problem. The SENE Study considers the key to improvements to be 15. Give priority to Cape Cod, New Bedford, treatment techniques, perhaps in conjunction with partial Providence, and Boston. The U. S. En- separation, to ensure that urban stormwater rimoff will viromnental Protection Agency, the Massa- not perpetuate existing problems of intermittent closures chusetts Department of Natural Resources, of shellfish harvesting areas in the Upper Bay. and the Rhode Island Department of Health should give planning, design, and construction The fourth priority is the Boston Harbor porti-on of the priority to the Cape Cod and Islands Planning Boston Metropolitan Planning Area. The major problems area, New Bedford Harbor, Providence area, deserving attention there are the combined sewer systems and Boston Harbor, in that order. of Boston, Cambridge, Chelsea, Somerville, and Brookline. Costs Because of the large number of untreated combined sewer overflows, these systems are more important to the deter- Firm detailed cost estimates cannot be made. Unfortu- mination of water quality than are the existing primary nately' - not enough attention has been given nationally and discharges at Deer and Nut Islands. Therefore-, they should locally to accurately estimating thelotal costs for carry- be addressed first. Currently, one combined sewer over- ing out existing, much less proposed, water quality pro- flow treatment facility is operating on the lower Charles grams. Total costs include not only the capital costs to all River. A second is to be built in conjunction with a new levels of government, but more importantly the full capital dam at Warren Avenue. The design for partial separation operating and maintenance costs to everyone - government, 5-25 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made industry, and private consumer. Costs also include the value Adding the above estimates in billions of dollars - $3 for of opportunities denied. municipal discharges and urban stormwater runoff, $0.6 for industrial discharges.- and only $1 for everything else - Notwithstanding this lack of good information, the SENE produces a minimum total of about $5 billion during the Study attempted to derive some minimum estimates of the next decade. more visible costs to provide a rough sense of the arnounts involved. No reader should infer any greater degree of ac- curacy than this. Implications According to information presented earlier for municipal If the SENE Study's package of five preservation recom- discharges, the two states have estimated a total of $7.9 menda'tions, nine restoration recommendations and one area priority recommendation is carried out, what differ- billion to complete those portions of their municipal pro- ence will it all make? %at will W the environmental, grams that are eligible for EPA funding. Adding the other economic, and social implications? costs of programs which are not eligible for EPA funding, and the operations and maintenance (0 and M) costs over the next ten years, the capital figure costs might double. Environmentally, swimmable-fishable waters will have been Rounding off, the municipal total would be about $16 bfl_ achieved by 1983 wherever realistically attainable, econom lion. EPA, however, estimates that a more achievable total ically, socially, and technologically. To visualize the antici- would be about $1.5 billion for that part of the capital pro- pated improvement, see Figures 5.1 and 5.2. They compare gram eligible for EPA 75 -percent funding. Adding the re- existing water quality with proposed water quality. maining capital costs which EPA does not fund and all 0 and M costs for this level of performance should bring this Economically, the key element of the program comes in the figure to about $3 billion. Included in the EPA estimate realization that all waters in the region cannot - and in some are some projects for urban stormwater treatment. On that cases should no't - reach swimmable as well as fishable levels basis, and retaining a very conservative cost assessment ap- in the short-run. Instead, the program emphasizes preserving proach, this estimate will include no additional costs for existing swimmable waters and achieving the swimmable- urban stormwater runoff. fishable goal elsewhere, where most beneficial in relation to. the costs incurred. Preservation of existing high quality No one keeps consolidated records on what it costs industry waters will lower pollution control costs in the future. To- to comply with the industrial water pollution abatement tal costs will be in the $5 billion range, not nearly as high permits program. A detailed study of these costs, however' as the achievement of swimmable-fishable waters everywhere. has been done for the Connecticut River Basin by the CEM Economic benefits should accrue through increased recrea- (Center for Environment and Man) for the Chase Manhattan tion and tourism, improved value of waterfront locations Bank and EPA. Including all remaining capital and 0 and and some increase in shellfishing. In addition, the Environ- M costs, allowing for anticipated growth rates in each in- mental Protection Agency has estimated that each $1 mil- dustrial grouping, and adding up estimates for more than lion spent on wastewater-handling facilities generates 46 3,000 individual plants, that study concluded that about jobs on and off the site. Probably the most'important $191 million (in 1971 dollars) would have to be spent by economic benefit is less tangible - making SENE a more industry during the 1972-1980 period to meet best practi- appealing place for attracting and holding the professionals cable treatment (approximately secondary) water quality and highly skilled workers it will need in the future. As standards. Adjusting for the larger population in SENE, a described in Chapter 2, 7he Setting, as a result of a trend somewhat different industrial mix, and a different degree toward a more service oriented economy, direct demands of previous abatement efforts, and rounding off to the on SENE waters, both as a medium for waste assimilation nearest tenth of a billion, it would appear that carrying as well as for supply, may not be significantly greater in out the industrial'permits program will cost SENE industry the future. Pollution problems resulting from industrial about $0.6 billion dollars over the next decade. Of this by-products may not exponentially increase as has been total, nearly $0.4 billion can be expected to be for 0 and the trend in the past. Thus, the outlook for improvement M costs. in water quality in SENE may be somewhat better than many might perceive today. None of the other programs - on septic systems, low streamflow, agricultural runoff, landfill leachate, oil pollu- Socially, the program adopts the popular, ongoing, long- tion, and watercraft wastes - have been costed thoroughly range programs that have already won political support. by anyone to the Study's knowledge. The most difficult Major technical problems must still be resolved, particu- costs to estimate here are the value of opportunities denied, larly in understanding and abating non-point source pollu- as, for example, land not developed. Conservatively, total tants. Although no major institutional changes are sug- costs would probably be at least $1 billion for the next gested, it is evident that for the program to succeed, fed- decade. eral funds must be made available. 5-26 CHAPTER 6 OUTDOOR RECREATION The Setting which can advise communities about open space planning. In the greater Boston area the Metropolitan The, SENE region's water and related land resources, des- District Commission performs a planning function, but cribed extensively in Chapters 2 and 3, probably mean the also acquires, develops, and manages recreational facilities; most to people in terms of their potential for outdoor In both states there are myriad watershed associations and recreation. In fact, the Study's estimates indicate that private organizations which act to acquire and develop demands for various recreational opportunities are increas- recreational opportunities and are most effective in terms ing so dramatically that the need for action is urgent. of environmental education and awareness. The single most important program responding to this There are a number of other federal programs which assist need is a federal program, the Land and Water Conservation state and local governments in meeting recreational needs. Fund Program (PL 88-578). The Bureau of Outdoor Recre- The U. S. Fish and Wildlife Service (LJSFWS in the Depart- ation (BOR in the U. S. Department of Interior) administers ment of Interior) administers the Federal Aid in Fish and this program which funds federal recreational projects and Wildlife Restoration Program, which can, in some instances, up to 50 percent of state or local costs for recreational ac- cover the costs of land acquisition. The Soil Conservation quisition and development. Since the program's inception Service (SCS in the U. S. Department of Agriculture) makes in 1965 to the end of 1975, Massachusetts will have obli- cost-sharing grants to local sponsors under the Small Water- gated 100 percent of its available funds, and Rhode Island, shed Program for land acquisition, easements, rights-of-way, less than 70 percent of its available funds. and facilities needed to develop the recreational potential of watershed projects. The Department of Housing and At the state level, the Massachusetts Department of Natural Urban Development (HUD) administers the Housing and Resources (DNR) uses the funds for recreational planning, Community Development Act of 1974, which provides acquisition, development, and management. In Rhode funds for any aspect of community development, includ- Island, the Statewide Planning Program (SPP) coordinates ing open space acquisition or urban park development. with the Department of Natural Resources (DNR) for rec- These Community Development Block Grants can be used reational planning acquisition, development, and manage- to match BOR funds. Projects related to water resources ment. development (navigation, flood control, multi-purpose water resource projects) are legally bound by the Federal Water At the local level, municipal authorities can also use Land Project Act to consider recreational options. Further, the and Water Conservation Funds for matching recreational legislation provides funds to cover up to half the direct costs acquisition and development. In addition, Massachusetts of developing recreational facilities. has a Self-Help Program to help fund up to 50 percent of local conservation acquisitions. From 1961 to the end of While this chapter concentrates on the outdoor recreation Fiscal Year 1974, the Commonwealth reimbursed munici- aspects of water and related land planning, it incorporates palities over a $6.2 rnillion total, about two-thirds of which the concepts outlined in Chapter 1, Goals and Approach, (nearly $4 million) has gone to about half the Massachu- and Chapter 2, 7he Setting, which prov 'ide a framework. setts municipalities in the SENE region. A similar program Those chapters describe, for example, the importance of in Rhode Island, the Green Acres Fund, 'made $2 million the environment to enhancing the region's economy, and available to 31 of 39 of the states municipalities, for up to that existing knowledge, programs, and institutions can 50 percent of the cost of conservation land acquisition. provide the tools for achieving results. Chapter 3, Guiding However, the fund has been exhausted since 1972 and the Growth, outlines a rationale and policies for protecting Study encourages the state to generously refund the Green Critical Environmental Areas, many of which could be al- Acres Program. Municipalities generally acquire and develop located for particular kinds of recreation uses. Although recreational facilities at a smaller scale than state or federal references are also made to several other portions of this levels. However, they do have substantial powers to protect report, Chapter 11, 7)ving the Recommendations Together, potential recreational resources, for instance, through zon- can be consulted to determine the implications of the recom ing and wetlands protection legislation. The power of pro- mendations in this chapter or those described in other tection has indirect, but far-reaching implications for meet- chapters of this report. ing future recreational needs, primarily in terms of keeping recreational options open. Introduction Between the state and municipal levels of government in This chapter considers many outdoor recreation activities - Massachusetts there are substate regional planning agencies swimrning, boating, salt water fishing, camping, picnicking, 6-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made hunting, fresh water fishing, and passive pursuits such as 0 1 occasion camping. hiking and nature study. All are either water-related or water-enhanced. Some of the activities such as swimming 0 1 occasion hunting. may be considered as intensive - a large number of partici- pants are usually accomodated in a small area. Others, such To satisfy this anticipated demand, certain basic facilities as passive pursuits, are extensive - a major part of the ex- will be required. Exactly how many depends upon many perience is the isolation and hence a very large area is re- factors such as usage rates and spatial standards. Both will quired per participant. vary from place to place. Using the general factors con- sidered representative in the NAR study and supplementary The objective of this chapter is to develop a program for studies by the U. S. Bureau of Outdoor Recreation (Out- meeting anticipated recreational needs in environmentally, door Recreation Needs - A Planning Aid Report), pro- economically, and socially acceptable ways. To accomplish jected requirements and the existing supply are shown in this objective, for each recreational activity there is a dis- Table 6. 1. Their difference is an estimate of deficiencies cussion of the demand and supply situation, alternative solu- ("needs"). tions for meeting needs, alternative plans, and recommenda- tions. The implications of carrying out the recommended Table 6.1 brings out several major perspectives that must be program concludes the chapter. considered in dealing with recreational needs. The best currently available consistent estimates of future (1) In terms of impact on future outdoorsmen, the recreational demand for the entire region were systematically occasions denied for swimming about equals developed in the North A dantic Regional (NAR) Water Re- the occasions denied for all other major recrea- sources Study in 197 1. Assuming that the people in the tional activities combined. SENE area will want to participate in outdoor recreation at the same rate as the average New Englander did in the last (2) Satisfying swimming needs will require intensive decade, and after making allowances for the changing popu- development of a very small area of land - less lation in terms of numbers, age, education, and affluence, than one-tenth of one percent of the total the average SENE citizen in 1990 can be expected to have SENE land areas. Emphasis here must be on a demand for outdoor recreation about as follows: developing selected, high-quality, favorably- located beaches for public use, and on improv- 0 19 occasions swinirriing: I I in the ocean, 4 in ing access and transportation. lakes and streams, and 4 in pools. (3) Boating needs rank second in total quantity. 0 6 occasions boating: 2 requiring slips and moor- Much of the boating need is met by private en- ings, I requiring boat ramps, and 3 requiring neither. terprise which, because of hard financial times, local resistance, and high maintenance and build- * 3 occasions fishing ing costs, may not be able to keep pace with growing demands. Boat ramps are highly effi- 0 12 occasions in passive pursuits such as hiking cient in meeting small-boat demand. Existing and nature study. TABLE 6.1 PROJECTED RECREATIONAL NEEDS Projected Existing Deficits Percen- Annual Rqmts. Supply (Needs) tage Occasion Facility in 1990 in 1990 Unmet Denied Acre@ of developed beach 4,500 2,200 2,300 51 8 Slips and moorings 67,000 47,000 20,000 30 2 Boat' -ramps - - lanes 900 400 500 56 1 Picnic tables 23,000 9,000 14,000 61 2 Campsites 29,000 10,000 19,000 66 1 Acres for passive outdoor recreation 350,000 220,000 130,000 37. 1 15 6-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made slips and moorings, inventoried by the Corps Satisfaction of recreation demands can be cumulatively in 1972, are now near capacity for medium important for at least four strategic reasons: (1) absorbing and large-boat demands. a large portion of regional recreation demands at a local level improves local environmental quality and reduces (4) There appears to be a large deficiency in picnic transportation requirements; (2) allowing controlled and tables. The quantity ought to be relatively easy compatible recreation use of public Category A and B lands to provide, however, by an increase in informal improves the political likelihood of keeping these lands in (away from picnic grounds) picnicking. Abun- a protected status as proposed in Chapter 3; (3) maintain- dant space is available on SENE Critical Environ- ing the region's environment*and social amenities should mental Areas (Category A and B lands on become increasingly important to the region's economic Plates 1, 2, 3) recommended for protection in future, as was pointed out in Chapter 2,- (4) meeting recre- Chapter 3, although most of this land is privately ational needs requires coordinated planning at all levels of owned and not available for recreation by the government, particularly with regard to transportation, public. water supply, and wastewater treatment. In other words, care must be taken to see that tourist facilities are not ex- (5) A high proportion of camping needs appears to panded at the cost of spoiling the basic natural resources be unmet. Since most campsites require some which attract these recreationists, as well as other forms of roads and utilities, this need will probably be economic activity. difficult for both the public and private sectors. The need for aggressive action in outdoor recreation is (6) Area requirements for passive outdoor recreation dear. Most action for acquisition and development pivots seem staggering - another 5 percent (130,000 around the Land and Water Conservation Fund Program acres) added to the existing 9 percent (250,000 established by Congress in 1965 (PL-88-578). The program acres) of SENE's total land area. There is, how- provides: (1) funds for federal acquisition of land by certain ever, no lack of resources for meeting these federal agencies for outdoor recreation; and (2) matching recreational demands. The protection and grants (up to 50 percent of the total costs) for state recrea- management of Critical Environmental Areas tion planning and state and local land acquisition or facili- through the Study's proposals for guiding ties development. The program is nationally administered growth (see Chapter 3) should help keep the by the Bureau of Outdoor Recreation of the Department options open for satisfying these demands. of Interior, and in each state by a State Liaison Officer. To The main limitation is public access. qualify for matching grants, the responsible state agency is required to prepare, and periodically update, Statewide There are several limitations to the dernand figures shown Comprehensive Outdoor Recreation Plans (SCORPs) which in Table 6.1. First, the numbers do not depict the fact that identify priorities for meeting recreational needs, among the major sources of demands in the region - the urban other things. In Massachusetts, the Department of Natural centers - are distant from the largest recreational facilities. Resources (DNR) is the official agency, and in Rhode Island This means that residents of the Boston, Providence, and there are two agencies working in a coordinated effort, the Worcester metropolitan areas, about a third of whom do Department of Natural Resources and the Statewide Plan- not own an automobile, find difficulty in.reaching recrea- ning Program. tion resources in other parts of the SENE region. Second, despite the national nature of recreational demands in the The amounts available from the fund for each state are de- SENE region, the Study's demands do not account for termined by a formula. Since the Program's inception, recreational demands from outside the region. Third, they Massachusetts has received over $29 million. To date, the do not account for the portion of the region's recreational state has completely obligated this amount. On the other demand satisfied in other parts of New England or the hand, Rhode Island has been eligible for over $12 million United States. over the past 10 years, of which less than 70 percent has been obligated. The fact that nearly $4 million has not Recreation planners throughout New England and in New been obligated is due to the inability to raise state match- York have bemoaned these and other limitations, caused ing funds. The Rhode Island legislature has refused well partly by inconsistent demand methodologies. As a result, over a third of the funds proposed by the Governor and they have proposed a Recreation Demand/Supply Study the Department of Natural Resources since 1965. Among which would produce a methodology for use in the New the New England States within BOR's Northeast Region, England states. The SENE Study's experience indicates an this situation is not uncommon. Excluding Massachusetts, urgent need for this effort and encourages the state legis- which has performed exceptionally, the average portion of latures to back it with funds. available funds used by the five New England states since 1965 is 75 percent, a figure which is much lower than other parts of the United States. 6-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Perhaps the most important reason for this situation is the that roads, public transportation, and facilities for public reluctance of state legislatures to support capital outlay beaches are often undeveloped. A second problem is that budgets for recreation. The legislatures may favor other there is not enough public access to the coastline. Accord- federal programs (such as highway funds and Community ing to the U. S. Army Corps of Engineers' National Shore- Development Block Grants) which offer a higher federal line Study, of SENE's total 1,540-mile shoreline only 225 share than the Land and Water's 50 percent matching miles are available for public recreation. A related issue ratio. Bonds for recreation acquisition and development concerns public rights along the shoreline. In Rhode Island, may not be popular in an area with an apparent abun- the public has access rights to the area between the mean dance of recreational opportunities. Projects which require high and mean low watermarks (the foreshore). In Massa- winterizing in the cold New England climate, such as in- chusetts, only the shore below the low watermark is publicly door swimming pools, are not covered by the Program, acquire and develop new regional beaches and local resis- and yet they are frequently the most costly projects. tance to beach development. A fourth problem is that many existing public beaches are eroding due to a combination The supply-demand data discussed earlier in this chapter of natural forces and misuse by man. Ocean waters north suggests there will be serious unmet needs for water-related of Provincetown are notoriously cold, so that tourists may outdoor recreation opportunities in both states. The Land prefer the Cape's southern beaches or those in Rhode Is- and Water Conservation Fund Program, as presently consti- land. Finally, water pollution occasionally limits swim- tuted, has not generated a response in Rhode Island which rning in some locations. offers the prospect of meeting even the most urgent needs. Yet the opportunities abound. For example, there is cur- Because coastal tourists and beach users often travel long rently enough undeveloped beach area (35 acres) to meet distances to SENE's beaches, there is a need for better co- swimn-dng demands in the Narragansett Bay planning area ordination between beach developers and campground and over the next 15 to 20 years. However, these areas will re- picnicking facility planners. Efforts to de@elop new tourist main inaccessible, or Will be pre-empted by other land services should be coordinated with efforts to develop addi- uses, if funds are not secured to initiate acquisition and tional or new beaches, although intensive development of development schemes. Critical Environmental Areas (Category A and B lands) should be restricted. From the general New England experience, including Rhode Island's, it seems appropriate to suggest a thorough review of the Land and Water Conservation Fund Program to con- The Solutions sider how it might be modified to meet the needs of the states. Several options have been discussed, among them. Alternatives increasing the federal share. This would reduce the burden on the states, but would not necessarily expand total public The three major alternatives for satisfying future beach investment. The Nationwide Outdoor Recreation Plan needs are: (a) adding facilities to existing parks and published by the Bureau of Outdoor Recreation in 1973 beaches; (b) acquiring public access to the shoreline; and proposes a revised apportionment formula which would (c) acquiring new beaches for state parks. provide more funds to states with higher population den- sities - at the same 50-50 matching ratio. Experience in Rhode Island - which would benefit from a density factor Adding Facilities to Existing Public Parks. and in apportionment - suggests that more money on the pres- Beaches. One method of meeting a small, but significant ent basis is not necessarily the answer. Perhaps a sliding portion of urban swimming demands is adding facilities at scale could be based on an evaluation of certain projects the nearby beaches. Beaches in the North Shore, South using such criteria as land costs, regional impact, climate, Shore, Cape Cod, and Narragansett Bay planning areas have population density, degree of national significance, and considerable potential for meeting these demands, but in- degree of non-resident use. adequate public transportation, facilities, and inadequate parking will hinder use to the fullest capacity. During the 1974 summer season, the Rhode Island DNR developed a SWIMMING very popular program of shuttling Providence residents to South County beaches. If additional parking facilities were The Situation provided away from the beaches and connected to the beaches by local public transport, beach use could increase According to Table 6.1, the amount of public beach re- and total impact on coastal lands could be lessened. Im- quired to meet 1990 swimming demands is likely to be provement of Route 146 in Massachusetts (improvements twice as large as the existing area. This section concen- for the Rhode Island portion have been completed) would trates on ocean beaches, one of SENE's most valued re- help Worcester area residents reach coastal beaches in the sources. One problem with satisfying beach demands is Narragansett Bay planning area. To improve the recrea- 6-4 PUBLIC REVIEW DRAFT SUEUECT TO REVISION Line by Line Changes can be made tional experience, bath houses, beach patrols, and lifeguards coastline. In Rhode Island, the Public Rights of Way are needed at several beaches in the North Shore, South Commission with the DNR has an active program for desig- Shore, Narragansett Bay, and Pawcatuck planning areas. nating public access routes to the coast. These agencies Details are available in individual planning area reports. should work with the coastal zone management programs to identify access points - at roughly five mile intervals - Beach erosion control is important to maintain the region's which do not conflict with problems such as severe erosion existing beaches. Alternatives for controlling coastal ero- or in'compatible uses such as port or marina development. sion are discussed in Chapter 8, F7ooding and ErosiorL In This standard must be applied judiciously because some addition, periodic beach nourishment should be considered coastal reaches may be fragile or inappropriate for recre- for heavily used beaches. It is especially appropriate for ational use due to poor water quality or conflicting land state and locally owned beaches. uses, or roads and parking may be inadequate. Rhode Is- land has already acquired more than this standard along More efficient use of existing beaches is usually less ex- parts of its coast. The aim for both states is to'provide pensive than acquiring and developing new beaches. Envi- ample access at reasonable intervals, with over 300 access ronmental impacts are also less. Traffic congestion, so points along the SENE coast. typical at heavily used beaches, can be controlled with improved public transportation and shuttle services to Any program to increase public access is only as good as distant parking lots. Swimming opportunities could be the level of public awareness, both at the site and through improved so far as to meet about 10 percent of the fu- public information. The states have published maps and ture swimming demands. brochures describing the location and marking of access routes. Replenishable supplies of this information, supple- Acquiring Public Access to the Shoreline. A program mented with rules of behavior and good management, in for acquiring public access to the shoreline to satisfy swim- town halls, libraries, and post'offices, would help to in- ming demands - and also demands for surfcasting, shell- crease use of public access routes. Further, the states fishing, and passive outdoor recreation - would contain sev- should periodically assess the condition of these access eral components. First, in Massachusetts public rights to routes, their markings and use, and the need for purchas- the foreshore must be gained. A bill (proposed by Senator ing and developing additional acreage for parking. Bulger) in the Massachusetts General Court would provide the public a free right of passage on foot along the coast- This alternative has stronger environmental implications line between mean high and mean low water, subject to than the alternatives involving facilities development. How- certain restrictions. The Massachusetts Supreme Judicial ever, even if public rights to the foreshore and adequate Court has ruled the proposed legislation constitutional access were provided, parking and the lack of beach at (H.B. No. 6438, page 16, July 1974), but cited weaknesses high tide would limit tourist crowds so that the impact of the bill which would need to be corrected, including on the economy, infrastructure, and resources would not provisions for compensation and notice of pending acqui- be appreciable. This measure would not meet as substan- sition. Both states could consider expanding public rights tial a portion of the regional beach needs as the other al- to the area 15 feet above the mean high watermark, follow- ternatives, but it would effectively alleviate stresses on ing Oregon's example. public beaches by absorbing local demands. The success of this alternative depends greatly on the successful local Second, public access should be increased to beaches which protection of beaches, coastal wetlands, erosion and flood are not highly erodible. Public beach access can be gained areas, and unique natural and cultural areas through the through proof of prior public use and gifts of conservation methods discussed in Chapter 3. easements or other interest in property. Landowners in Massachusetts may be more willing to grant access rights Acquiring New Beaches for State Parks. The annual than in Rhode Island because Chapter 2 1, � 17, B-C ex- summer migration to the shore severely overtaxes beach empts landowners who permit recreational access from fi- facilities, particularly near Boston, Providence, and Cape ability of injury during a visitor's stay. Similar legislation Cod. About 80 percent of the shoreline is privately owned will be re-introduced to the next session of the Rhode and publicly inaccessible, and much of the remainder is not Island General Assembly. beach. There are expanses of beaches along the North and South Shore coastline, Buzzards Bay, and Narragansett Bay Public access can also be gained when state agencies, if which the state could acquire and develop as regional authorized by the legislature, exercise the powers of emi- beaches. A few areas such as the one between Marshfield nent domain, upon payment of just compensation. Among and Scituate, and an area in Warwick, both appropriate for the authorized state agencies are the present Massachusetts local use, are discussed in the planning area reports in terms .DNR, the Public Access Board, and the County Commis- of acquisition and development. sioners. In Massachusetts, the Public Access Board shoul- ders the primary responsibility for improving access to the 6-5 PUBLIC REVIEW DRAFr SUBJECT TO REVISION Line by Line Changes can be made Acquisition and development of major new beaches appears Cod National Seashore beaches, and Narragansett to be an unnecessary extravagance, at least for the next 20 Bay beaches such as Scarborough. year period, despite the major social and economic bene- fits. Funds would be more efficiently used on improvements As a means for increasing beach capacity, the Corps of En- at existing public beaches and providing public transportation gineers has identified several beaches for further study. and parking facilities. Erosion control at these beaches, in some cases in combi- nation with facilities improvement, would include a pro- However, acquisition'opportunities for the long-run are dis- gram of beach nourishment and retaining jetties. Such a cussed in Regional Recommendations 2 and 3. Acquisition program should be undertaken following evaluation of its may become even more expensive in the future, arguing for environmental impact and compatibility with the states' an active acquisition program now and improvement of ex- coastal zone management programs. Therefore, the SENE isting facilities in the future. Lands acquired now for public Study recommendation is: use may become more valuable in the future, especially if key areas are preserved. Public acquisition expenditures 2. Study beach erosion control. The Corps of En- constitute an investment rather than a cost, since the land gineers, as requested by individual municipalities can be resold. or together with Massachusetts and Rhode Island Departments of Natural Resources, should control Alternative Plans beach erosion, if justified by a preliminary feasi- bility study and evaluation of environmental im- The alternative measures just described can be applied to pacts and consistency with state coastal zone man- varying degrees to produce three separate plans. One agement programs, at the following beaches: would stress environmental quality. A second would stress economic development. The third would recommend the Beach Municipality Planning Area best features of each. The environmental plan for swim- ming emphasizes limited use of beaches by promoting pub- Long Point Beach Wareham Buzzards Bay lic access to the restricted foreshore. The economic plan *Conimicut Point aims at maximum satisfaction of mass demands for high Beach Warwick Narragansett Bay intensity beach use for residents and tourists alike. *Oakland Beach Warwick Narragansett Bay *Island Park Portsmouth Narragansett Bay Recommendations *Allen Harbor North Beach Kingstown Narragansett Bay To meet future swimming demands the recommended pro- Ninigret Beach Charlestown Pawcatuck gram, which is given in pribrity order below, incorporates (Ninigret Con- both approaches. servation Area) *East Maiunuck South 1. Expand facilities at existing state beaches and State Beach Kingstown Pawcatuck parks. The Massachusetts and Rhode Island De- Block Island Jetty New partments of Natural Resources and appropriate Beach Shoreham Narragansett Bay local governments, o@ private beach operators, should provide increased capacity at existing Beaches marked by an asterisk (*) should be considered beaches, or expand the boundaries of existing for nourishment in the next 15)>ears. Other beaches should beaches by acquiring new parcels nearby for fu- be considered for the 1990 to 2020 period. The needed ture swimming development and extensive rec- feasibility and environmental impact studies would be simi- reation. Examples are Wollaston Beach and lar in scope to those already conducted and approved for Duxbury Beach. Revere and Nantasket Beaches in Massachusetts. Agencies responsible for transportation and rec- A second investigation should be conducted for beaches reation planning and development in both states which offer the opportunity for expanded use as well as should consider the feasibility of increased pub- for erosion control, as suggested by the following recom- lic transportation and expansion of parking fa- mendation: cilities away from the fragile beach environment with shuttle service to the beach on peak days. 3. Study beach expansion. The Corps of Engineers This procedure could be appropriate at locations under new authority, working jointly with the Bu- such as Crane Beach and Wingaersheek Beach in reau of Outdoor Recreation, appropriate state agencies, the Ipswich-North Shore planning area, Duxbury municipalities, and private interests, should expand Beach in the South Shore planning area, Cape the following beaches by adding sand, if justified by 6-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made preliminary studies of feasibility, environmental take this program pursuant to enactment of legis- impact, and consistency with state coastal zone lation permitting access to the foreshore. management programs. All four of these recommendations must be implemented Beach Municipality Planning Area fully if a substantial part of anticipated swimming demand is to be satisfied. The public access recommendation is of *Plurn Island Beach Newbury Ipswich- additional importance to surfcasting and passive outdoor North Shore recreation pursuits. It also provides equitable distribution Crane Beach Ipswich Ipswich- of opportunities to enjoy coastal resources. North Shore *Nantasket Beach Hull Boston Metro- expansion politan RECREATIONAL BOATING Hurnarock Beach Marshfield South Shore Duxbury Beach Duxbury South Shore The Situation Plymouth Long Beach Plymouth South Shore SENE's 1,540 miles of coastline are jagged and irregular. Slocurns Neck Area Westport Buzzards Bay They offer tremendous opportunities for the recreational (expansion of boater, whether he is a weekend fisherman or a blue-water Horseneck State cruising sailor. The difficulty, however, is that the region's Beach and/or 50,000 permanently moored recreational boats are concen- Demarest Lloyd trated in a few of the more popular harbors. When the Memorial Beach) weekend trailer-boat enthusiast descends, major boat jams Ocean Grove Beach Swansea Narragansett Bay develop. .According to Table 6.1, about 20,000 more slips (Coles River) or moorings and 500 more lanes of boat ramps will have to Touisset PointBeach Warren Narragansett Bay be developed to meet anticipated demands in 1990. The 500 boat ramps needed for smaller craft will provide about Beaches close to urban and tourist areas should receive pri- as many boating days as the 20,000 slips and moorings ority attention and are marked by an asterisk (*). Study of needed for larger craft. the beaches would consider the appropriateness of state ac- This section focuses on slips and moorings. Boat ramps will quisition of municipal beaches to guarantee access by resi- dents of other areas. For some beaches where expansion be considered in the next section on salt water fishing. Water and/or facility development is already justified, the recom- quality aspects associated with boating are pursued in Chap- mended feasibility study would consider needs for erosion ter 5. control in the context of these improvements and the re- sulting beach capacity. [An additional area omitted above Analysis of the SENE coastline established that as many as is Napatree Beach-Sandy Point in Westerly. State and citi- 16,000 additional boat slips and moorings could be devel- zen reviewers felt that this area should be retained as close oped at existing or potential marinas, yacht clubs, town to its natural state as possible and not be considered, even docks or mooring areas. Accomodating this number would as a future possibility, as serving regional beach needs.] require only minor dredging at existing marinas and no ad- ditional channel improvements. To provide opportunities for more remote experiences (recreational salt water fishing, shellfishing, strolling, surf- New information is emerging which tends to dispel some casting) and to diminish the number of new beach acquisir fairly negative notions about marinas. Research at the Uni- tions and development, the SENE Study recommendation versity of Rhode Island has indicated that the impact of is: marina development on marshes and the environment is not necessarily destructive. There has been research in 4. Acquire public access to the shoreline at fre- North Carolina into techniques for building coastal marshes quent intervals. The Massachusetts Public Ac- using dredged materials. Federal water quality legislation cess Board, Rhode Island Rights-of-Way Commis- and the states' coastal zone management programs are help- sion and Departments of Natural Resources ing to guide thinking about suitable locations for, and man- should acquire access points at roughly five agement of, marinas. These are important considerations in mile intervals, particularly in the southern por- planning for methods of meeting the rapidly 4nereasing; tions of the North Shore, and along the coast needs for new boating facilities. of the South Shore, Cape Cod, Bay, Nantucket Sound, Buzzards Bay in Massachusetts, and Narragansett Bay and 'South County" in Rhode Island. Massachusetts should under- 6-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Solutions committee membership could include state agencies with commercial interests, natural resource inanagers, coastal Alternatives zone planners, and municipal authorities; but over half the membership should consist of those who are most af- The previous discussion has shown that SENE's coastline fected by marinas - boaters, salt water fishermen, local potentially can accommodate future recreational boating residents, and conservationists. The advantages of this demands. The main questions focus on the roles of public kind of state guidance are: (I) new. developments in the and private sectors and the extent of the development. The most suitable locations in economic, social, and environ- latter question involves certain value judgments - some mental terms; (2) assurance that a variety of conditions boaters prefer the amenities of electricity, running water, are provided; (3) stimulation of private enterprise; and and shoreline commercial development; others prefer less (4) less, strain on public funds for marina development. The major disadvantage revolves around the success of co- crowded conditions. The former can strain utilities and stimulate unsightly commercial development, while the ordinating disparate interests. latter may not help to meet a large portion of the de- Consider Development of New Facilities. Parts of mands. Both kinds of needs must be met, by means of the Massachusetts and Rhode Island coastline are'suitable (a) expansion of existing facilities (public and private); for new marinas large enough to absorb regional demands. and (b) development of new facilities (public and private). Using criteria such as the degree of or potential for pro- Expansion of Existing FaciRties (Public and tection, the size and ability to absorb demands, and the Private). Existing marinas can accommodate a larger presence of Critical Environmental Areas, the SENE Study volume and variety of boats, by means of: enlarging the has identified several possible locations: Collins Cove in Salem; North Plymouth Harbor; the Seekonk River; War- existing area for boats and constructing additional slips wick-East Greenwich Bay; Coggeshall Cove, Portsmouth; and moorings; channel improvements; more efficient use Allen's Harbor and Davisville, North Kingstown; and Cod- of the existing land and water space through techniques dington Cove, Middleton. These areas should be investi- such as dry-stack storage and fore-and-aft mooring. The gated further to decide which would be most suitable, two main problems related to this alternative are funding keeping in mind other factors such as accessibility and and regulating expansion to minimize economic and en- proximity to demand. The boating advisory committee. vironmental impacts. Public efforts would be supported suggested earlier could encourage private development of through agency budgets or through bonds. these areas. Or public agencies could lease them for pri- However, private efforts are hindered by a number of vate management. The latter has the advantage of enlarg- problems - lack of incentive, the high cost of credit, ing the local tax base. inadequate business management and training, competi- Alternative Plans tion, the seasonal nature of recreational use, resistance from municipalities, high land costs, storm damage, and An environmental approach for increasing slips and moor- high construction and annual maintenance costs. ings would involve guidance about suitable locations for Changes in public policy could help alleviate the problems development of new areas and expansion or existing faced by private investors. For example, the Rhode Island marinas. It would meet a smaller portion of the boating Department of Economic Development strives to improve demand than the econornic approach, but it would main- the situation through loan guarantees, especially to camp- tain a higher regard for environmental quality. An eco- ground developers, and with advice about locations suit- nomic approach would concentrate on considering the able for recreational development. Perhaps the Massachu- development of new marinas. As outlined in the second setts Department of Commerce and Development could alternative, intensive development will increase boating establish a similar program. In addition, recreation entre- pleasures, but it can also strain the region's character. preneurs need iechnical assistance programs in the business Recommendations aspects of such recreational enterprises as marinas. Tax rates could be adjusted to reflect the fact that recreational The recommended approach is described in priority order business in this New England climate are seasonil. Boating below. It seeks to develop enough slips and moorings to advisory committees within these two state agencies could meet most of the demand, but with minimal harm to the encourage marina operators and new developers to adopt environment. more efficient uses of existing spaces. Further, they could guide marina expansion and new development to the most 5. Form state boating advisory committee to en- suitable locations in terms of the environment and sur- courage the private sector. The Massachusetts rounding infrastructure and could help guarantee loans. With Department of Commerce and Development and the each, under the auspices of the appropriate state agency, Rhode Island Department of Economic Development 6-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made together with public works and natural resources some areas. Interviews with bait shop owners and sports- agencies, coastal management, and private boating men's organizations indicate that night-fishing has increased interests should fonn a state boating advisory com- on the order of 50 percent in the last 10 years. Updating the mittee to develop training programs and guidance 1961 day-fishing and adding the night-fishing, USFWS esti- for recreational entrepreneurs. State boating ad- mates that, in 1970, more than a million fishermen-days, visory committees should help plan and implement were expended on salt water fishing in the Massachu.skfs: orderly development of boating and encourage area. According to unpublished information from. the Na- fore-and-aft moorings and expansion of existing tional Marine Fisheries Service, the number of Massachusetts marinas near centers of high demand. salt water fishermen is actually twice that number. - .:,:. 6. Undertake authorized channel and anchorage Based upon the current Rhode Island population of about improvements. The Corps of Engineers should 950,000, the USFWS estimates that about 75,000 salt water proceed with authorized federal recreational fishermen spent about 900,000 days fishing along the Rhode channel and anchorage improvements in high Island coast. These estimates are probably low; Rhode Is- use coastal areas, including, but not limited to land is small and the percentage of salt water fishermen there Brush Neck Cove, Warwick; the Taunton River is probably much higher than the New England average of 8 between Berkley and Dighton; and Boston percent, which was used in the USFWS estimates. Harbor. Based on the USFWS estimates, and using the USFWS value State guidance of private marina expansion could help of nearly $11 per day per fisherman, the approximate annual minimize economically and environmentally undesirable dollar value generated by sport fishermen in the region is in impacts, especially those associated with business failures the vicinity of $20 million. This amount covers costs of and the development of ancillary services such as repair, boats, gear, fuel, charters, lodging, food, and other usual ex- retail, and commercial enterprises. Confining further penditures by the fisherman. This estimate seems insignifi- marina development to centers which already have roads cant in monetary terms, as it does not include the use of and services checks the possibility of "marina sprawl" SENE sportfishing resources by out-of-region fishermen. An- and encourages modernization. It thereby indirectly pro- other value more difficult to quantify is the availabilify of tects more fragile coastal stretches included in SENE the salt water fishing experience in this coastal area. Critical Environmental Areas. These lands could serve as buffer strips and wildlife habitats. Making better use As with most forms of outdoor recreation, lack of access - of existing facilities is economically sensible. However, either boat launching ramps or publicly available shoreline - without support and stimulation, private action is unre- is the primary problem facing the region's sport fishermen. liable. The following action should be undertaken to as- The Massachusetts Public Access Board has an active pro- sure that future boating needs are met: gram for acquisition and, with the Department of Public Works, Division of Waterways, a program for developing 7. Investigate new regional marina basins. The ramps and parking facilities. The DNR, through its Division Corps of Engineers, in conjunction'with the state of Forest and Parks, cooperates in maintaining the areas. Re- coastal zone management programs, agencies in cently the Commonwealth built several new double-ramp both states, and communities, should consider the facilities capable of serving several hundred trailers daily. feasibility of coordinating federal, state, and pri- vate interests in the development of major recre- The Rhode Island DNR, through the Division of Fish and ational boating harbors at Collins Cove in Salem; Wildlife, locates new sites, acquires land, builds and main- North Plymouth Harbor; the Seekonk River; tains parking lots and boat launching ramps for both fresh Warwick-East Greenwich Bay; Coggeshall Cove, and salt water resources. Currently, the state is concentrat- Portsmouth; Allen's Harbor and Davisville, North ing on developing boat ramps and parking lots either upon Kingstown; and Coddington Cove, Middleton. request from municipalities or on state owned property. Although new acquisitions within the next few years are RECREATIONAL not likely because funds have been exhausted, DNR should plan to acquire and develop enough additional boat ramps SALT WATER FISHING to meet 1990 demands. The Situation The Solutions In 1961, the Massachusetts Division of Marine Fisheries es- Recommendations timated that salt water fishermen made about 650,000 day- fishing trips in Massachusetts. Accurate estimates on night- Plans to provide public access to the shoreline approximately fis hing are not available, but the activity is considerable in every five miles (see the Swimming Section of this chapter) 6-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made should be coordinated with efforts to improve recreational water supplies; sanitary facilities; picnic tables; and even salt water fishing opportunities. Therefore, the SENE electrical power. Study recommends: The major impediment, other than consistently inadequate S. Construct public boat ramps and fishing piers. funds, is local resistance to the development of new camp- The Massachusetts Public Access Board and the ing or picnicking facilities. Concentrations of visitors at- Rhode Island Department of Natural Resources, tracted by these facilities severely tax local sewer, police, in cooperation with appropriate stat@ and muni- and fire protection services. At the same time, the nature cipal agencies, should construct boat ramps and of today's modem, fully equipped motorized camper fishing piers or similar facilities such as break- vehicles is such that the campers rely on local businesses waters, docks and coastal bridges, which provide far less than they used to. In short, today's campers spend walk-ways for surf-casters to productive salt less but require more in the way of costly services; and the water fishing areas. These facilities should be result is stiff local resistance to campground or picnic devel- wide enough to provide space for surf-casting opment, and traffic. In developing parks and recreation areas, the state can over- 9. Encourage private construction of boat ramps rule local resistance through the powers of eminent domain. and fish piers. The proposed state boating Rhode Island has managed to compensate for this unpopu- advisory committee (see the boating section of lar step taken in beach development by sharing income de- this chapter, recommendation 5) should en- rived from user fees with municipalities. The biggest prob- courage utilities or private industries which are lem with state management is that limited funds are developing facilities, such as wastewater treat- squeezed between the need for daily and reliable mainten- ment plants, power plants or residential, com- ance at existing facilities and a need for new facilities. Pre- mercial or industrial developments along the occupation with maintenance problems should not stall coast, to provide well-landscaped (using vegeta- efforts to provide needed new facilities. Unless facilities tive screening) shore access and structures for are available for these increasingly popular activities, there fWiiing whenever possible. The proposed state is the more unfortunate risk that campers and picnickers boating advisory committees, or in Massachu- will proclaim their own territory. setts, the Public Access Board, should oversee the development of innovative design standards The Solutions showing prototypical construction features and materials specifications which should be con- Alternatives sidered in providing this access. Social and-economic benefits would result from improved The choice for meeting carnping and picnicking needs is coastal access, especially in urban areas. The construction between (a) expansion of existing facilities (public and costs of slightly modifying shore protection or coastal private); and (b) development of new facilities (public and bijdge or highway projects in selected areas would be private).. more than offset by significantly improved social benefits Expansion of Existing Facilities (Public and Private). generated by the additional access. Cost of providing This alternative involves the possibilities of expanding ex- ramps and piers might be partially met by the BOR Land isting park boundaries and developing new facilities; actions and Water Conservation Fund Program. primarily involving state responsibilities. Expansions could occur near existing cities, near tourist centers, or in both lo- CAMPING AND PICNICKING cations. However, campgrounds within metropolitan areas are, for the most part, underutilized by tourists. Consistent The Situation with Massachusetts SCORP policy, these urban campgrounds should be maintained for youth groups. According to Table 6.1, over twice the number of existing camping and picnicking facilities now available will be This approach is economically efficient. If properly imple- needed to meet 1990 demands. The Study distinguishes mented, it would have minor environmental impacts. Bene- in this section between camping and picnicking activities fits of expanding park boundaries could accrue for other needing facilities, and the more informal camping and pic- recreational activities, especially passive activities. Citizens nicking covered under passive recreation elsewhere in this in a recent series of public workshops favored this approach. chapter. The distinguishing factor - and the principal prob- Impacts on municipal services would not be as great as de- lem - is the need to provide for and maintain ,facilities: veloping additional facilities. But while impacts would be 6-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made minimal it is difficult to access the portion of future needs, ment would generate a higher degree of economic activity, this alternative would meet. Private enterprise has a large but with more adverse secondary effects on environmental responsibility in expanding facilities, but its ability to re- quality. We have seen that the first alternative alone is un- spond is subject to economic and political vagaries. However, able to meet a significant portion of the demand. Conse- Rhode Island is evolving a policy opposed to state participa- quently the recommended program includes elements of tion in campground development. What remains, therefore, both alternatives. All three approaches - the alternatives is development by the private sector which cannot respond and the recommendations - assume that state and local without a spirit of cooperation. agencies will play important roles in controlling the place- ment of facilities. Such means as placement of utility lines Development of New Facilities (Public and Private). could be used to control the location of these developments The private sector is generally viewed as the appropriate and, therefore, the environmental impact. mode for filling the gap between user demands and the available supply of public facilities, especially for camping. Recommendations Two current trends are likely to intensify the importance of the private sector in developing camping and picnicking The recommended approach emphasizes coordination facilities. First, people are looking more and more for among state, municipal, and private interests to develop as 'less government"; second, during economic crisis, state many camping and picnicking facilities as feasible without expenditures for recreation will receive low priority. environmental damage. Recommendations are listed in priority below. Expansion by the private sector will not persist as long as recreational entrepreneurs are beseiged with the problems 10. Expand state 'forests and parks near tourist of credit unavailability, inadequate training in business man- centers. The Departments of Natural Resour- agement, cyclical patterns in recreation use, and resistance ces should add camping facilities and enlarge from municipalities. As discussed in the boating section of existing parks which are distant from urban this chapter, new public programs would help alleviate these concentrations, but convenient to tourist cen- problems. ters. Examples are the Harold Parker State Forest in the Ipswich-North Shore planning Nevertheless, private development is the best alternative for area, Myles Standish State Park in Plymouth meeting demands in the long-run. Campgrounds and picnic and Carver, and Arcadia State Park and ' facilities are compatible with some Critical Environmental Pachaug State Forest in the Pawcatuck plan- Areas, specifically flood plains, agricultural soils, and certain ning area. natural resources (Category B lands). These areas as mapped (Plates 1, 2, and 3 as described in Chapter 3) provide a good 11. Form state recreational advisory committees. Starting point for further investigation leading to purchase The Massachusetts Department of Commerce and development of facilities. It should, however, be em- and Development and the Rhode Island De- phasized that without careful planning and subsequently partment of Economic Development, together efficient management, the stress on roads, sewers, and other with the DNRs, Statewide Planning Program local services, from campground development can be ex- in Rhode Island, municipal representatives, pected to generate community hostility and resistance. and private recreational interests should form state recreational advisory committees. These Alternative Plans committees should assist and encourage the private sector to develop campground and At best, it is difficult to distinguish alternative plans for en- picnic facilities. In an advisory capacity, the hancing environmental quality or stimulating economic de- states should assess implications for the local velopment in the recreation field. However, the two alterna- infrastructure and guide development of tive measures for meeting camping and picnicking demands, these facilities to flood plains, agricultural discussed above, offer a somewhat clearer opportunity for soils, and other SENE Category B resources. tradeoffs than is generally the case. The first alternative measure - expanded development of existing facilities - if A combination of the two approaches is essential for meet- emphasized in a campground and picnicking plan would ing about half of the tourist demands for campgrounds and have only minor impact on the remaining open space in the picnic facilities; the first as a solution for satisfying mid- region and place minimal requirements on existing water term demands, and the second for the long-run. A third supplies and sewer services. The second alternative - devel- option of expansion and development of state parks near opment of new sites and facilities - would, however, by urban concentrations (see the section on passipe outdoor definition, place new demands on open space for camping recreation) is not as important for satisfying regional camp- and picnicking sites. At the same time, especially if devel- ing demands, as it is for providing passive outdoor recrea- oped by the private sector, a plan emphasizing new develop- tion opportunities of a more local nature.. Furthermore, 6-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made the park expansions are coordinated with actions, either that will have the greatest economic, aesthetic, and recrea- recommended oT contempInted, for satisfying regional tional value possible for all citizens. beach demands. Theseagencies have endeavored to spend funds prudently, State guidance is intended to minimize calainities tradi- for habit4t preservadon and enhancement.of fish,and wil& fwaft associated with privately owned campgrounds. If hfe. _Owa@ La portion of their revenues is:derived municipalities would implement protective zoning of from legislative measures, for example, the recent $5 mil- Critical Environmental Areas (Category A and B lands) lion bond used to acquire portions of the Hockomock and guide growth toward areas with existing infrastructure Swamp and other areas in Massachusetts. However, this (see Chapter 3), campground development could proceed measure and other revenues are derived from, or paid for with minimal environmental impact. Private development by, sportsmen through the sale of hunting, fishing, and of these facilities should also contribute somewhat to the trapping licenses. To enlarge this source in Rhode Island region's tourist economy. there is strong support for raising license fees and expand- ing the licensing program to include women (who presently WILDLIFE AND FRESH WATER pay no fees) and fishermen younger than 12 years. In ad- dition non-consumptive users of fish and wildlife resources FISHERIES PRODUCTION who utilize public areas such as state parks and management areas should also share the costs of managing fish and wild- life reso@rces, for example, through user-fees. The Situation It is estimated that by 1990 the per capita demand for Aside from acquiring, developing, and managing their own fishing and hunting will average four days, three days for parks and management areas, the states also provide finan- fresh water fishing and one day for hunting. As might be cial assistance to communities through the Massachusetts expected, hunting and fishing opportunities within the Self-Help Program and the former Rhode Island Green densely populated SENE region are inadequate. Currently, Acres Fund, both administered through the Departments demand for fish and wildlife resources exceeds supply, and of Natural Resources and discussed earlier in this chapter. this is expected to continue into the future. Consistent with the SENE Study policy of protecting Criti- cal Environmental Areas (Category A and B lands), high Insufficient fish and wildlife habitat both in extent and priority should be given to using these funds for wetlands variety, and a general lack of public access to the existing acquisition. Other actions for local wetlands protection resource base are the major factors limiting fulfillment of are discussed in Chapter 8, Rooding and Erosion. demand. Only 103,500 acres, or 3.6 percent of SENE's total area, are in public ownership and open to hunting. There are several sources of funds. Funds for acquisition Approximately 900,000 more acres are open to hunting and development through BOR's Land and Water Conserva- through the generosity of private land owners. How long tion Fund Program have been previously mentioned in this these private landowners will tolerate hunting and other chapter. The USFWS adn-dnisters the Federal Aid in Fish recreational uses without recompense is open to conjecture. and Wildlife Restoration Program. The program provides federal aid money, resulting from the passage of two Con- Of the 1000 fresh water ponds 10 acres and larger in SENE, gressional Acts, the Pittman-Robertson Act passed in 1937 only about 120 (16,000 acres) have guaranteed statewide and the Dingell-Johnson Act in 1950. These funds are col- public access. Of the 1200 miles of stream, the amount of lected from an I I percent excise tax on fishing and hunting streambank in public ownership and open to fishing is equipment. They are used solely for wildlife-fisheries res- negligible. The vast majority of SENE's streambanks are toration projects, and may include land acquisition expendi- privately owned and can be closed to the general public. tures. For each dollar spent by the state on approved pro- The states own and hold in trust for their people all of jects, up to seventy-five cents may be reimbursed by the the fish and wildlife within their borders. federal government within the limitations of any current apportionment and pending federal approval of completion In SENE, the Massachusetts Division of Fisheries and Game of the project. The Soil Conservation Service makes cost- (in DNR) and the Rhode Island Division of Rsh-and Wild. sharing grants to local sponsors under the Small Watershed life (also in DNR) serve as the legal adn-dnistrators and Program (PL83-566, as amended) for land acquisition, guardians of their fish and wildlife resources. They carry easements, rights-of-way, and facilities needed to develop out responsibilities relating to the enforcement of game the water oriented potential of watershed projects. The laws, conduct nature education programs, and monitor Rural Environmental Conservation Program administered study, propogate, salvage, conserve, and manage the states' by the Agricultural Stabilization and Conservation Service fish and wildlife population. Insofar as it is feasible, vari- (ASCS) of the U. S. Department of Agriculture provides ous fish and wildlife resources are maintained at a level for cost sharing funds and technical assistance to private 6-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made landowners for erosion control, forestry, wildlife habitat in Rhode Island between state and private landowners improvement, and other similar measures. Also technical designed - to open many wildlife areas currently closed to assistance is available to landowners through local Conser- hunters. Cooperative Agreements would provide access, vation Districts which exist for all of SENE, except Suffolk for hunting and other wildlife oriented recreation, in re- County, Mass. For forestry measures the Massachusetts turn for management of the land, hunter controls, tax Division of Forest and Parks and the R. I. Division of For- breaks, or lease of the land. An amendment to the Massa- est Environment, in cooperation with the U. S. Forest chusetts General Law (Chapter 21 �17 B-C) limits land- Service, furnish this assistance. National Park Service lands owner liability, if he should open land to the public for are often utilized under use agreement for public hunting recreational purposes. The Rhode Island General Assem- purposes. In addition, The Corps of Engineers grants bly should hasten to pass similar legislition. licenses to state fish and wildlife agencies to develop management areas on reservoir lands. However, sentiment expressed at public workshops held by the SENE Study indicate that public access to pri- The Solutions vately owned lands is unpopular regardless of the wild- life management benefits for the landowner. Because Alternatives private ownership does not assure hunting use of these resources in the long-run, this solution would most likely not meet a significant portion of the region's future Six alternatives can provide major fish and wildlife oppor- hunting demands. Also, municipal by-laws often com- tunities (a) acquire wetlands; (b) acquire upland wildlife pletely prohibit or restrict hunting. management areas; (c) provide public access to. privately owned wildlife habitat; (d) use of wetland legislation; Wetlands I-egislation. The Massachusetts Wetlands Pro- (e) acquire public access to ponds; and (f) acquire stream- tection Act (Chapter 131, Section 40 as amended 1974), bank access. Public access to water supply reservoirs, im- the Rhode Island Freshwater Wetlands Act (Chapter 201, portant for improving hunting and fishing, is also recom- Section 18-24), Intertidal Salt Marsh Act (Chapter I I- mended in the section of this chapter entitled "Passive 46.1), and Coastal Wetlands Acts (Chapter 2-1, Sections Outdoor Recreation. 13-17) prohibit altering of fresh water and salt, water wet- lands. Acquiring Wetlands. Although this is one of the two most expensive options, acquiring highly productive,wildlife More vigorous local enforcement with state support is re- habitats is the safest assurance that the values of wetlands quired if the environmental characteristics crucial to the for wildlife production, flood and erosion control, and region's quality of life are to be protected. In Massachu- recreation are preserved. Prime wetlands for acquisition by setts, municipalities can obtain technical assistance about states are listed in Table 6.2. Through the efforts of the wetlands protection through the Natural Resources Plan- USFWS, BOR, National Park Service, state DNR fish and ning Program coordinated by the Conservation District wildlife agencies, and local conservation commissions, a Offices. In Rhode Island, wetland maps are being provided combined acquisition effort could be undertaken. by the state. Protection of wetlands alone, however, is not completely adequate to ensure the preservation of these Acquiring Upland Wildlife Management Areas. To fragile resources. Development of adjacent uplands can increase natural wildlife production, furnish hunting areas, quickly degrade "protected" wetlands. - One tactic which and provide release sites for game farm birds, several wild- both state and local authorities should consider is first ac- life management areas in Massachusetts and Rhode Island quiring a ring of uplands surrounding important wetlands could be established, or expanded, to help meet a portion and later protecting the wetlands themselves, either of regional demands for consumptive and non-consumptive through outright acquisition or through special-zoning. wildlife uses. Wetland areas for acquisition on Table 6.2 also include surrounding upland habitat. Acquiring Public Access to Ponds 10 Acres and larger. A significant opportunity for obtaining access to The expansion of existing game farms and development of many of these ponds in Massachusetts rests with a revision new facilities is required to satisfy expected needs for ad- of the "Great Ponds Law." A great pond is defined under ditional stocked game birds. Hunters who prefer this type the Law in two ways:. for recreational use other than fish- of stocking should be paying the cost. This could be ac- ing, a pond must be;of n@at@ral origin,and 10 or more acres complished by requiring and selling a special game bird in size; for fishing, the pond must be of natural origin and propagation stamp. 20 or more acres in size. @ Programs, ia identify great ponds and develop public access have been strengthened and now Providing Public Access to Privately Owned Wild- need to be accekratea.'The inconsistency in the size factor life Habitat. The Massachusetts Division of Fish and should be corr46tedtd provide the;flsWng as well as recrea- G am e could develop cooperative programs similar to those tion on all natuiidponds of, 10.br,mor6 acres. 6-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Presently over 60 water supply reservoirs in the SENE region, Protection Act leads to the regulation of activity along the representing over 13,000 acres of water, are closed to public shoreline, there is no guarantee of the rights of fishermen, 40 fishing. The possibility of providing public access to this or that the great ponds will remain of high recreational vast untapped fishery resource should be fully explored, as quality. The safest means of assuring fishermens' rights is described in the Passive Outdoor Recreation section. In addi- acquisition of fresh water resources and streambanks. tion, all possibilities should be explored for obtaining public access to other ponds 10 acres and over in size which have Acquiring Strearnbank Access. The Massachusetts significant fishery resource capabilities. The Massachusetts Division of Fisheries and Game and the Rhode Island Di- Public Access Board and Rhode Island DNR could acquire vision of Fish and Wildlife have extensive trout stocking access and develop boat ramps and parking facilities near programs which strive to meet the heavy demands of trout these reservoirs. This includes all ponds in Rhode Island, fishermen. However, lack of public access to major streams which does not have a Great Ponds Law. and tributaries severely limits "put-and-take" trout stock- ing and curtails use of existing warm water fisheries. If Greai ponds designation tends to be confined to water viable stream fishery programs are to be improved and ex- bodies several hundred acres in size. Although the Wetlands panded, immediate steps should be taken to acquire stream- TABLE 6.2 WILDLIFE HABITATS SUGGESTED FOR PUBLIC ACQUISITION (In Priority) Possible Priority Area Location Acreage Region State IN MASSACHUSETTS: I I Parket-Little River Newbury 1900 Wetland area 2 2 Hockomock Swamp Bridgewater 6000 3 3 North River tidal Marshfield/ estuaries Scituate 5 4 Essex Marshes behind Essex 3000 Castle Neck 5 Sandy Neck Area Barnstable 6 E. Sandwich Wetlands Sandwich Harbor 7 S. River Wetlands Marshfield 8 Eliminate in-holdings 2000 in Northeast & Crane Pd. Groveland management areas 9 Dyke Meadow area Marshfield 1000 10 Chartley Brook Attleboro 1000 Region State IN RHODE ISLAND: 4 1 Great Swamp & vicinity South Kingston- 1000 -addition]al Richmond acres 6 2 Rockville Meadows Management area 3 Narrow River Tidal Naff agansett Estuaries 4 Winnapoag Pond Westerly 5 Tiverton-Little Tiverton-Little Compton Wetland Compton 6 Area between Truston & Kingston 600 Northwestern comer of Green Hill Pond 7 Undeveloped uplands to Charlestown the southeast of Perryville trout hatchery, south of Route 1 8 Wetlands along Blackstone Cumberland,etc. River Acreage not available 6-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made bank rights-of-way with a minimum width of 20 feet per on either side of the bank) listed below, which bank. This might best be accomplished in conjunction with have high potential for cold water fisheries wetland preservation, flood plain zoning, scenic river desig- production. nation (see discussion in Passive Outdoor Recreation section), expansion of state forest and parks or of wildlife manage- Important Massachusetts Streams: ment areas. 1. Ipswich River Alternative Plans 2. Palmer River 3. Mashpee River Obviously the provision of land for hunting and fishing is 4. Mattapoisett River primarily an environmental goal. Each of the aforemen- S. Wading River tioned alternative measures is oriented toward the acquisi- 6. Winnetuxet River tion and preservation of the best wildlife habitat in the re- gion. Together they constitute an extremely expensive Important Rhode Island Streams: environmental plan. An alternative which sought to maxi- rnize economic development would, at best, favor more 1. Pawcatuck River System (Pawca- intensive use of existing lands rather than acquisition. It tuck and Queens Rivers) might go so far as to forego hunting and fishing oppor- 2. Ponagansett River tunities in favor of commercial or residential development 3. Flat River of wildlife habitat lands. Looking further into the eco- nomic future, however, the SENE Study has determined, 14. Acquire public access to ponds. The state as discussed in detail in Chapter 2, that maintenance of the Departments of Natural R@sources should make natural landscape is, to a large degree, in the economic in- every effort to acquire access to ponds 10 acres terest of the region. Therefore, the recommended program and greater (great ponds, public water supply, below seeks maximum protection of these lands at the reservoirs, and other ponded waters) which least cost. have significant fishery resource capability. Suit- able areas are identified for each planning area Recommendations in the Study's inventory information, available The recommended program seeks acquisition of the most from the NERBC offices. significant wildlife habitats and protection of others 15. Enforce wetlands legislation and local zoning through legislative channels. In order of importance, the regulations. Taken cumulatively, communi- recommendations are: ties throughout the SENE region have a major ibility in protecting wetlands. Consist- responsi 12. Acquire SENE's most important upland and ent with the Study policy of limiting flood wetland wildlife habitat. To ensure the damages through noustructural methods and continued productivity of important wildlife of protecting Critical.Envirommental Areas, habitats, both Massachusetts and Rhode Is- towns should zone or acquire wetlands and land Departments of Natural Resources and/ flood plains, and enforce existing wetlands or The Audubon Societies, and other private protection legislation. and public interests should purchase choice areas listed in Table 6.2. Both upland and PASSIVE OUTDOOR RECREATION wetland habitats should be purchased for a variety of species production. Consistent with Study policy of protecting Critical En- The Situation vironmental Areas, other state purchases should focus on wetlands. Acquisition of Activities within this recreational category include nature wetlands might occur in two stages. VAthin study, wilderness camping, informal picnicking and trail the next 5-10 years the responsible state uses such as hiking, trail biking, cross-country skiing. Pas- agencies could acquire a ring of surrounding sive activities (walking for pleasure, viewing, nature study) uplands, within 10-20 years, the wetlands are also important in urban environs. One attribute links themselves. them all: the requirement for publicly accessible lands of exceptional environmental quality. If this requirement is 13. Acquire SENE's most important streambanks. to be fully satisfied by 1990, some 150,000'acres will have Massachusetts and Rhode Island Departments to be made publicly accessible for passive outdoor recrea- of Natural Resources should acquire public tion, in addition to the 220,000 acres already available. access to streams (minimum 20 foot widths 6-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made To reiterate a point in the introduction to this chapter, the Finally, preserving these islands - replete with natural and region's unspoiled wetlands, flood plains, agricultural soils, historic beauty - has two major regional implications. and unique cultural and natural sites included SENE Cate- First, by absorbing urban demands, pressures on resources gory A and B Critical Environmental Areas (see Chapter 3) in other parts of the region will be lessened, thereby making are more than adequate to meet the demand. This section them more useful for meeting tourist demands. Second, if explores ways to guarantee that opportunities are publicly past trends continue, enriching the quality of life in these accessible for passive outdoor recreation and recommends metropolitan areas CoUld have important econ6mic multi. ways to protect Critical Envirorunental Areas for passive plier effects attracting and holding residents and businesses, outdoor recreation uses. a desirable policy described in Chapters 2 and 3. Making Recreational Use of Publicly or Privately The Solutions Owned but Currently Inaccessible Urban Resources. Alternatives Cities in SENE's three'metropolitan areas are sorely lacking urban parks. The Massachusetts Access to Parks Program Alternative measures for assuring passive outdoor recrea- provides transportation for inner city dwellers to rural parks. The SENE Study encourages the continuation of tion opportunities include: (a) developing Boston Harbor this successful program. The cities of Boston, Cambridge, and Narragansett Bay Island Parks; (b) making recreational Somerville, Chelsea, Brookline, Providence, and Pawtucket use of publicly or privately owned but inaccessible urban could begin a major program of increasing recreation op- resources; (c) acquiring Critical Environmental Areas; portunity within the urban centers of SENE through every (d) limited public access to water supply watersheds; (e) available means, including outright purchase when feasible, multiple use of trails; and (f) scenic rivers legislation. Wet- as well as improving and increasing the efficiency of existing lands legislation is another measure; it protects resources areas. for possible future acquisition. It is discussed in the fWZd- life and Fresh Water Fisheries section of this chapter, and To improve their urban recreation opportunities they more extensively in Chapter 8, F76oding and Erosion. could - Developing Boston Harbor and Narragansett Bay 0 Retain appropriate tax title land for recreational use. Island Parks. Islands in Boston Harbor and Narragansett 0 Solicit land donations. Bay offer excellent opportunities for satisfying swimming, 0 Rehabilitate phased-out sanitary land fills. camping, picnicking, and passive outdoor recreation de- 0 Make multiple use of underutilized publicly owned mands from Boston to Providence, if adequate public trans- lands such as some public works parking areas, yards, portation can be provided. The Massachusetts Department and other vacant land associated with city public of Natural Resources and the Metropolitan District Com- facilities. n-dssion have acquired 13 islands, have developed compre- 0 Investigate agreements with private schools, YMCA's, hensive plans for recreational development, and are con- Boys' Clubs, or other groups, whereby the city would sidering transportation plans between the City and the assume part or all of the operation and maintenance Islands. The Rhode Island Department of Natural Re- responsibility in exchange for programmed use. sources is currently negotiating the acquisition of surplus 0 Make multiple use of highway corridors for biking naval property among the Narragansett Bay Islands. Both and walking trails. state parks would provide a mixture of recreation facilities 0 Improve access to existing urban park areas through which would stimulate local economies and would protect improved transportation and pedestrian and bike these regionally significant island resources. Both island overpasses. park systems together could meet as much as 10 percent of the total 1990 regional needs for swimming, picnicking, Urban park planning, a topic not part of the Study's re- camping, shellfishing, and passive outdoor recreation, much sponsibility, is also important for improving the environ- of which comes from low-income inner-city families. The mental quality of large metropolitan areas. The Housing islands,offer extensive resources - nearly 5,000 acres in and Community Development Act described earlier in this Narragansett Bay and over 1,000 acres in Boston Harbor - chapter is a convenient source of funds for these urban close to the two large cities. Considering the major needs park programs. these projects could help satisfy, the costs of developing the island parks are surprisingly small, each amounting to Acquiring Critical Environmental Areas. The safest only several million dollars - the cost of a mile of highway way of assuring that the public could use natural resources or part of a town's sewer system. Participants in the SENE for passive outdoor recreation is by public acquisition. Study planning area workshops strongly favored new acqui- Chapter 3 has pointed out that Critical Environmental sitions of,recreational resources and fiscal support for DNR's Areas (SENE Category A and B lands) such as beaches, to get their programs underway. wetlands, flood plains, and critical 6rosion areas can be 6-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made protected without significant impairment to the region's mental Protection Agency could work with state health of- economic health. The state DNWs could acquire 150,000 ficials on these important technicalities. acres of the total available areas for passive outdoor.recre- ation. Workshop par ticipants favored acquisition of new Widespread aesthetic and/or lin-dted recreational use of natural areas. This option has been most notably recom- SENE's water supply reservoirs, especially of those near mended for the acquisition of wetlands and the edges of cities, can contribute significantly to satisfying needs for forests and fields in the Kdlife and ffesh Mter Fisheries natural open spaces which intensify with inflation and Production section of this chapter and for fragile barrier shortages of gasoline for "escapes" from the city. More beaches in the Pawcatuck planning area report. complete inventories are important for assessing this con- tribution. One of the best examples is the Scituate Reser- limited Public Access to Water Supply Watersheds. voir complex in Rhode Island with an area of 15,000 acres. Most of the people in the United States and throughout the To ascertain the amount of demand which could be satis- world draw their water from rivers and lakes that are used fied on water supply reservoirs, more information is neces- for navigation, for all forms of recreation, and for waste sary. States should amend any existing inventories of disposal. Among water authorities in the Northeastern reservoirs and other water bodies with data about reser- United States, however, exclusive use of the watershed for voir lands such as ownership, legal status, the amount of water supply has become traditional. Local water authori- adjacent upland open spaces, and access rights. ties, legally responsible for injurious degradation of water quality, implement public health rules and regulations pro- Costs of treating reservoir water to assure purity for subse- mulgated under Massachusetts General Law Chapter I 11, quent drinking vary with the location, nature, and extent Section 160 and tinder Rhode Island General Law Chapter of activity and whether the reservoir is a storage or distri- 46-14. In both states, swimming is prohibited. Theoreti- bution impoundment (the latter requires more treatment cally, other recreational uses may occasionally be allowed, than the former). However, additional treatment costs but in practice they are effectively excluded. Hence, public should be small, perhaps a few percent of the total water trespassing is usually prohibited on lands adjacent to do- bill. *Although these costs might discourage water authori- mestic water supplies. ties, the authorities should be able to recoup costs with user-fees, permits, or transfer of funds otherwise slated for One result of the tight regulation has been the preservation acquisition. State DNWs should be able to supplement of hi y scenic quasi-wildemess areas amidst the most their funds. , ghl densely populated part of New England. In the past, the issue of permitting recreational use of these water supply Multiple use of water supply lands makes efficient use of watersheds has repeatedly implied unrestricted public use land set aside for public services. It also offsets the need of these lands for swimming, boating, and perhaps even to acquire separate parcels of land to satisfy recreational camping. One possible danger of water-contact recreational needs. It would not require changes in existing statutory, use, particularly of the reservoir, is viral and bacterial con- regulatory or institutional structure. There are, however, tamination. Research into methods for removing these two elements absent in the decisions on multiple use of kinds of contaminants from water, referenced in Chapter 7 watershed lands. The first is a comprehensive institutional of this report, could lead to solutions of this problem. mechanism for assuring participation of recreation, muni- Until the time such methods have been validated, water- cipal, and public health officials in guiding the development contact recreational use of the reservoir is not a likelihood of watershed land policy. The second is factual guidance in Massachusetts and Rhode Island. Moreover, before such about the nature, appropriate location, and extent of rec- an intensive use policy could be implemented, the liability reational activities. Review of existing policies by citizens of water authorities for water quality degredation would and public agencies and research into the extent of per- have to be modified substantially, a measure not widely ntissible uses would provide local water authorities with a favored by Study participants. broader base upon which to make a decision. concerning multiple recreational uses. However, reservoir lands might also be used in a more limited fashion for fishing and picnicking. They might Multiple Use of Trails. Trail-related activities (hiking, also be used for more aesthetic purposes such as viewing, biking, snow-mobiling) are gaining popularity as outdoor hiking, and boating. AD three levels of use are under- recreation activities. Careful planning of trails is extremely standably unpopular among water authorities because of important if needs are to be met with minimal environ- their personal, unshared liability. The differences among mental impact. Certain trail uses are incompatible with the three intensities of use probably have implications for Critical Environmental Areas, as in the instance of dune increases in bacterial and viral counts. However, evidence buggies on fragile barrier beaches. Further, certain trail in the literature increasingly indicates that multiple use of uses are incompatible with one another, as in the instance domestic water supply lands is possible without significant of motor bikes and horses. The important need is to assess effects to public health and safety. The U. S. Environ- all of the different kinds of needs and identify locations 6-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made suitable in terms of environmental impact and uses. within 200 feet or within 20 feet elevation above a flowing body of water. BOR has identified a number of trail opportunities in SENE for the development of a region-wide system of connecting BOR has identified portions of several rivers in the SENE trails. For example, Bostonians might hike or bike to the region which have special scenic and recreational value - south shore areas of Massachusetts Bay or even to tht-tip of the Ipswich, Charles, North, South and Taunton Rivers Cape Cod, largely through abandoned rail rights-of-way and in Massachusetts and the Wood, Beaver, and Pawcatuck public lands. The forested highlands of western Rhode Is- Rivers in Rhode Island. The Massachusetts DNR could in- land and eastern Connecticut could be made accessible to@ itiate the scenic rivers system which protects up to 100 the Rhode Island coast by a continuous trail linking the, yards of natural river banks and could acquire adjacent many public parks and forests found in that area. streambanks for recreational use. The Rhode Island DNR could begin acquiring access to strearnbanks, already pro- Trail Advisory Committees in both states are authorized to tected by wetlands legislation. Alternatively, Rhode Island suggest to their DNR's the location of possible trails and could pursue efforts to develop its own scenic rivers legis- how they might be used. The Rhode Island Trail Advisory lation. Committee (TAC) includes hikers, horseback riders, bicyc- Alternative Plans lers, snowinobilers. The five regional Massachusetts Trail Any program designed to enhance opportunities for passive Advisory Committees, composed of similar membership outdoor recreation experience will make important,con- will recommend feasible trails and uses and will help tribution@s to the preservation of environmental quality of distribute information. the SENE region. Again, however, as explained in Chapter Z In addition to the committee efforts, the Departments of any effort to preserve or enhance the environmental quality Transportation in both states have advanced the possible or amenity value - of SENE is likely to have long-range construction of bike-ways by applying for funds available beneficial economic effect. Two alternative plans can be through a special highway trust fund. In Massachusetts, developed in this case, based primarily on public cost. A the Public Access Board could assist in the legal procedures plan stressing environmental values would place primary 4 acquiring public access as, likewise, could the Rhode emphasis on acquiring the harbor islands and Category A Island Public Rights of Way Commission, with expanded and B resources, expanding the trails system, and designating authority. Costs of acquisition, development, and mainten- scenic rivers. A plan stressing economic efficiency would ance could be alleviated by concentrating on already exist- place its emphasis on acquiring the harbor islands, using ing routes. urban resources, making use of watershed lands, and in- creasing use of existing trails. Scenic Rivers Legislation. The National Wild and Recommendations Scenic Rivers Act (PL 90-542) provides a National Wild and Scenic Rivers System which includes free-flowing Three themes should be applied when implementing most streams and adjacent land that has "wild, scenic, or recre- of the recommendations below: (a) absorb demands from, ational values". The Act also restricts projects that would and increase the quality of life in, cities; (b) make increased alter the characteristics of such rivers. The legislation au- use of land already publically owned,- and (c) seek multiple, thorized federal acquisition of not more than 100 acres per environmentally-sensitive use of Critical Environmental mile on both sides of a river included in the systeni-SENE Areas. In order ofpriority, the recommendations are: rivers might have difficulty qualifying under this national program because they areshort and often heavily developed. 16. Develop the Boston Harbor Islands and Narragansett Bay Island Park. The respective A more promising alternative to the federal system is better Departments of Natural Resources, and in Massa- use of existing state programs. Chapter 21 Section l7b of chusetts the Metropolitan District Commission, the Massachusetts General Court, the Scenic and Recreational should execute their current plan to develop the Rivers Act, enables the Commissioner of DNR to order the Boston Harbor Islands and Narragansett Bay Island protection of whole portions of scenic and recreational Park. (See details in Boston Metropolitan and Narra- rivers and contiguous land. The legislation regulates, re- gansett Bay planning area reports.) stricts, or prohibits dredging, filling, removing, polluting, or altering streams or lands within 100 yards on either side of 17. Provide passive recreation on reservoir lands. a designated river's natural banks. To date, no rivers in the The Departments of Natural Resources, in Rhode Commonwealth have been so designated, although currently Island with the Statewide Planning Program, there are efforts to define guidelines. In Rhode Island, the should promote passive recreational use of water Freshwater Wetlands Act accomplishes a similar objective. supply watershed lands. Working with the Massa- Chapter 2-1, Section 18-24, of the Rhode Island General chusetts Department of Public Health, the Rhode Assembly restrict the use of streambanks, i.e., an area Island Department of Health, and the U. S. Envi- 6-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made rownental Protection Agency, they could de- PRIORITIES velop guidelines, controls, and fonns of assist- ance to local water authorities. Complete in- During the previous discussion, several problems have re- ventories of water bodies, with data about land peatedly emerged. First, many of the region's residents area, public access, and kind of ownership, have difficulty getting to the most significant recreational would also help in determining the amount of opportunities. Second, the full potential of many existing demand these areas could satisfy. recreational facilities or opportunities (marinas, state 18. Make multiple use of urban lands. Core beaches, water supply watershed lands) is not being real- cities in the Providence and Boston Metropoli- ized. Third, meeting certain kinds of recreational demands tan areas should begin a major program of in- will require obtaining public access to, or acquiring, hew creasing recreation opportunity using all means natural areas. During the time funds are being raised, these available including outright purchase and in areas should be protected from competing land uses. creasing the efficiency of existing recreation The 21 recreation recommendations (also listed by title in areas, including parks, playfields, and play- the "Overview") are solutions to these and other problems. grounds. (Arther details are in planning area To organize these solutions into a strategy for meeting rec- reports dealing with the Boston, Worcester, reational needs, the SENE Study has classified certain re- and Providence Metropolitan areas - see commendations according to priorities: highest priority; Boston Metropolitan, Blackstone and Vicin- high priority; aud other priority. Recommendations having ity, andNa7ragansett Bay, respectively.) no indication of priority are as important as priority recom- 19. Expand existing forests and parks near urban mendations, but not as urgent. The criteria used to ' set centers. The Departments of Natural Re- these priorities include: portion of needs met, particularly sources and, in Massachusetts, the Metro- urban needs; degree of economic efficiency; and consis- politan District Commission, should expand tency with the Study's themes of guiding -growth to Devel- existing state forests, parks, and reservations opable Areas and protecting Critical Environmental Areas, near urban concentrations, particularly of enhancing environmental quality to enchance economic Douglas State Forest near Worcester, growth, and of maximizing the use of ongoing programs John Curran and Snake Den State Forests and existing institutions. near Providence, and the Blue Hills and There are two highest priority recreation recommendations: Middlesex Fells Reservations near Boston. Recommendation I - expand facilities at existing state 20. Develop a regional trail system. The beaches and parks; and Recommendation 16 - develop Departments of Natural Resources, in co- Boston Harbor and Narragansett Bay Island Parks. The operation with local governments and state first recommendation received highest priority because it Trails Advisory Committees, should define would meet a significant portion of future swimming and publicize a regional trail network using needs, particularly from urban areas. It also maximizes existing trails, utility rights-of-way, rail the use of existing facilities. The recommendations to de- abandonments, and exceptional natural velop the island park systems merit highest priority because corridors. of the variety of recreation needs met; these islands are ac- cessible to two of the three largest sources of recreation 21@ Implement or develop scenic rivers legislation. needs in the region - Boston and Providence; and because Massachusetts should implement the exist- of the positive protection of Critical Environmental Areas.- ing Scenic Rivers legislation by establishing Because both these recommendations improve the accessi- a scenic rivers system and considering the bility of outdoor recreation opportunities for urb an dwel- designation of the Charles, Ipswich, and lers, they help to improve the quality of life in the urban Taunton Rivers as initial components, in centers. The combination of these values in the case of the that order of,priority. Rhode Island islands parks recommendation was judged by Study partici- should develop similar legislation and in- pants to far outweigh the large public expenditures required. clude the Wood, Beaver, and Pawcatuck There are seven high Oriority recommendations. Recom- Rivers. Both states should acquire access mendation 4, acquire public access to the shoreline at fre- for recreation, especially along scenic river stretches. quent intervals is important to meet a variety of coastal recreation needs, without increasing public expenditures for beaches, bathhouses, marinas, etc. 6-19 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Recommendations 5 and 11, for recreation and boating The three other pribrity recommendations are essential for advisory committees, are important because there is the meeting future recreational needs, but for the expendi- opportunity to meet more recreational demands at existing tures, will likely have somewhat lower benefits than the privately owned facilities, but only if there is the incen- highest and high priority recommendations. They are: tive for the operators to provide for them. Both states 10, expanding state parks near tourist centers, and 19, have programs to encourage tourism, wherein lies the ex- near urban centers, and 12, acquiring SENFs most hil, pertise for stimulating private recreational enterprise. If portant wildlife habitats. The expansion of state parks is properly implemented, this approach would help stimulate important for ensuring that a major portion of camping, local economies, while meeting recreational needs. picnicking, and passive outdoor recreation needs is met near the source of demand, and it appears to be more The boating and recreation advisory committees will prob- cost-efficient than the alternative of acquiring and develop- ably be most effective in terms of helping to meet recrea- ing new state parks. The wildlife acquisitions would not tional needs in the long-term. Meeting boating needs for only meet a significant portion of wildlife enthusiasts' and small-boaters and salt water fishermen requires more urgent hunters'needs, 'but are also important for carrying out the action. A large number of boats can be accommodated Study's theme of protecting Critical Environmental Areas. by means of boat ramps. These facilities are compatible with. certain Critical Environmental Areas and require relatively lower expenditures. Therefore, recommenda- IMPLICATIONS tion 9 to construct boat ramps and fishing piers also ranks among the high priority recommendations. This recom- If the recommended program is carried out, what difference mendation complements recommendation 4 to acquire will it all make, environmentally, economically, and so- public access to the shoreline. cially? In this program, the three perspectives tend to overlap, but the greatest advantages are probably social. High priority recommendations for meeting passive out- Mie anticipated growth in recreational requirements can door recreation needs are recommendation 17 to permit be accommodated, but careful planning must occur in passive recreation on water supply watershed lands and order to harmonize with, and make dual use of, Critical recommendation 18 to make multiple use of urban lands. Environmental Areas in environmentally sensitive ways. Both involve making more efficient use of existing pub- Meeting all of the currently urimet portion of anticipated licly owned areas. The potential recreational resources - 1990 recreational demands would yield an estimated e&0- municipally owned water supply reservoirs, school yards, non-de value in the range of a quarter of.a billion dollars transportation corridors, and tax title urban lands - would annually. More importantly, meeting these demands will be convenient opportunities for meeting the large urban improve the region's attractiveness as a place to live and recreation needs. Publicly accessible open spaces and work and thereby help it draw and hold the skills essential numerous urban parks would contribute to the quality of for its services-oriented economic future. Socially, meeting life in these areas. the anticipated needs fully can mean an additional 10-15 days annually of outdoor swimining, picnicking, boating, Recommendation 21 to implement Massachusetts' scenic camping, fishing, and hunting for those who will be living river legislation or develop similar legislation in Rhode here in 1990. That represents a total SENE-wide participa- Island merits high priority as,an additional safeguard tion of about 80 million days annually. This figure ranks for protecting Critical Environmental Areas and as a with total annual attendance of all professional sporting means of setting aside recreational options for future events throughout the United States. The year 1990 may development and use. seem far away, but most of the programs and policies recommended in this chapter require that we act now. 6-20 CHAPTER 7 MARINE MANAGEMENT .11w Settina fish productivit Aquacult e y ure, as a means of mp ting excess demands, is potentially a..viable industry, given For over 3 50 years, life in Southeastern New England has proper development conditions. been shaped and guided by the sea - socially, culturally, economically. The places which have been so closely tied There is little direct federal involvement in shellfish and to the sea - Newburyport, Gloucester, Boston, New Bed- aquaculture. The Environmental Protection Agency does ford, Newf5ort and Nantucket - are all in the Southeastern have some regulatory authority with respect to water New England Study Region. As a result, any water and quality and its affect on the preservation of shellfish related land resources study, if it is to be useful in this re- beds. Another indirect federal insurance of high quality gion, must deal with marine and coastal issues. The same shellfish beds is that funding for coastal wastewater treat- degree of sensitivity which is focused upon the planning ment plants favors plants which have non-estuarine dis- of fresh water and related resources should also be devoted charges. to the region's salt water and related resources: its marine environment. The states also have a role. Rhode Island, through the DNR, controls its coastal shellfish beds through overall There has been no overall coordination of problem-solving policy guidelines. Massachusetts allows individual com- for marine-related issues. Coastal zone problems for indi- munities to retain control under state health guidelines vidual states are now being addressed through federally and provides some technical assistance. Massachusetts has supported coastal zone management programs. The SENE legislation which regulates aquaculture, while Rhode Is- Study has identified the following marine-related issues to land has very limited and outdated aquaculture. be of regional and New England-wide significance: fish- eries, shellfish and aquaculture, port development, offshore Local control in Massachusetts is carried out by municipali- sand and gravel mining, and urban waterfronts. ties which manage their shellfish resources. While limited technical assistance is available from the states, the degree Fisheries. The region's fishery resources have been seri- of resource utilization is, on the whole, relatively low. ously depleted by inadequate offshore management. In the U. S. there are several agencies and programs which are Port Development. Once a leader of world maritime attempting to unravel the problem. and mercantile trade, SENE ports have been left in the backwash of modern day shipping activities. Major capi- At the federal level, the National Oceanic and Atmospheric tal investments, backed with regional cooperation in dis- Administration (NOAA of the Department of Commerce) tribution and marketing, are needed if the region is to has the primary role in helping to maintain the fisheries. compete in today's maritime trade. Careful study of eco- Through the National Marine Fisheries Service (NMFS) it nomic and environmental tradeoffs will be needed, each monitors local fisheries landings and adniinisters quotas to having implications at the local, state, and regional level. preserve the fisheries. NOAA's New England Fisheries De- Yet policy for such regionally important facilities is set velopment Program assists in creating technical base for by local vote in the narrow perspective of town meetings. marketing underutilized species. NOAA funds various re- search and development projects at local universities, Federal agencies such as the Maritime Administration which are attempting to develop linkages to the industry (MARAD), conduct overall review of port development for implementation through the Office of Sea Grant. activities and set national guidelines for shipping opera- tions and facilities. The U. S. Army Corps of Engineers The states' Departments of Natural Resources (DNRs) co- oversees the planning and construction of commercial operate with Sea Grant research and development projects shipping and recreational boating channels. Environmen- with technical assistance to the fishing industry. Regula- tal considerations regarding the disposal of dredged mate- tion of the industry is carried out through licensing and rials are in need of further research. cooperation with NMFS inspection personnel. NOAA, through the Office of Coastal Zone Management, is Shellfish & Aquaculture. Not enough clams or setting guidelines and providing funds for the state coastal scallops can be harvested to supply the demand, yet these management programs. are an underdeveloped resource. Pollution has closed many recreational shellfish Rats, especially those near urban cen- Massport is the most active local agency involved in port ters. Additionally, the lack of consistent management development operations, having developed major container practices from town to town further reduces overall shell- terminal facilities. Various deepwater oil tanker mooring systems at offshore sites have also been under discussion. 7-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Offshore Sand and Gravel Afining. As onshore prices existing knowledge, programs, and institutions can provide of sand and gravel rise, offshore sources will become more tools for achieving results. Chapter 3, Guiding aowth, economically feasible to exploit. Currently not enough is outlines a rationale and policies for protecting Critical En- known about environmental impacts to the marine ecosys- vironmental Areas, many of which should be taken into ac- tem, although near-shore mining at depths less than 100 count when dealing with such issues as fisheries, shellfish, feet are expected to have major adverse impacts. and sand and gravel mining. The approaches, described in this chapter, take these principles into account. Although At the federal level, the Bureau of Land Management (BLM references are also made in this chapter to several other in the Department of Interior) controls the licensing of off- portions of this report, Chapter 11, Tying the Recommen- shore mineral rights for both sand and gravel and oil, in dations Together, can be referred to in order to determine waters adjacent to the Massachusetts and Rhode Island ter- the implications of the recommendations in this chapter, ritorial areas. on those described in other chapters of this report. The state coastal zone management programs will be the This chapter will now deal with the following topics: off- agencies most apt to exert an interest in the control of off- shore fisheries; shellfish and aquaculture; port development; shore mining at the state level. Rhode Island has already offshore sand and gravel extraction; and urban waterfronts. drafted such guidelines, while Massachusetts is pushing for Current problems of supply and demand, alternative mea- the development of analytical methods for determining sures for meeting demand, and a recommended, program of need and supply before granting licenses. management actions are presented within an overall objec- tive of maintaining the region's renewable marine resources Urban Waterfronts. The decline of SENE's ports and at a level sufficient for sustained future use, and developing water-powered manufacturing activities has left many ur- the region's non-renewable marine resources in an environ- ban industrial waterfront areas in decay. With the region's mentally sensitive manner. rapid population growth, pressures have increased for the redevelopment of waterfronts for multiple uses, combin- Other coastal marine issues are examined elsewhere in the ing business, industry, residential, and recreational facilities. report. For analyses of coastal flooding, beach and shore- fine erosion, and coastal wetlands, the reader is referred to In recent years, attention has focused again on urban Chapter 8. Recreational boating, swimming, salt water waterfronts as central and attractive locations for business sportfishing, and coastal access are discussed in Chapter 6. and industry, and as exciting places for tourism and recre- Discussion of the region's petroleum needs and policies ation. Spurred by the availability of federal funds, several which effect the delivery and distribution of oil are found cities on their own have initiated major renewal and re- in Chapter 9. The SENE region's combined coastal and development efforts which have included reuse of areas marine issues are shown on Figure 7.1. along the waterfront. Funds have come from the Depart- ment of Housing and Urban Development (HUD) for urban OFFSHORE FISHERIES renewal, the Corps of Engineers for flood protection, the Department of Transportation (DOT) for highway con- The following analysis of key fisheries issues, a display of struction, and the Environmental Protection Agency (EPA) alternative measures for resolving the issues, and the recom- f6r wastewater treatment plant construction. Sometimes mended actions program are aimed at two objectives: (1) these efforts have resultod in creative reuse of waterftont maintaining the fisheries resource to assure future supplies; buildings and facilities, inviting business and recreational and (2) improving the competitive standing and economic activities side by side. But in many other cases, redevelop- health.of the domestic fishing industry. ment has not been sensitive to the potential for multiple uses of central waterfront locations. Yet ongoing state coastal zone and land use planning programs in Massachu- The Situation setts and Rhode Island offer a basic framework for ensur- ing efficient and sensitive use and reuse of urban water- Long before the American Revolution, SENE fishermen fronts. Coordinated with local planning and development were working the productive offshore fishing grounds on activities, these current approaches can be effectively linked Georges Banks, which he some 150 to 200 miles east- regionally to put new life in urban waterfronts. southeast of the Massachusetts coast. The commercial fishing industry was at one time a major industry in the In the various aspects of marine management discussed in region, but in the last several decades, it has declined dra- this chapter, several of the fundamental concepts covered matically. in Chapter 1, Goals and Approach, and Chapter 2, 7he Setting, have been used to provide a framework. Those From their 1960 landings, which totaled nearly 550 million chapters describe, for example, the importance of the en- pounds, the SENE fisheries declined to 314 million pounds vironment to enhancing the region's economy, and that by 1972, Massachusetts was hardest bit by this decline, 7-2 Coastal area as designated by Massachusetts & R.I. UNA Coastal wetlands Regional recreation area Declining fish industry L____, Primary fisheries port Secondary fisheries port Deepwater terminal proposals Tank farm New or expanded shipbuilding facility SSACN&rS Major boating areas .9L. *Ar Historic urban waterfronts A rLANric OCEAN It _4 L 'J Icam"Mcm 00"09MR.1 L__ r CAPE coo sAr v r IZ7 IN NANrVCXEr S04VMD '2S 0, Oc AND SOV&D 0 2 4 a -ILES KILOMETERS NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS MARINE MANAGEMENT NO. SOUTHEASTERN NEW ENGLAND PROBLEMS& RESOURCES 7.1 WATER AND RELATED LAND RESOURCES STUDY 7-3 700- All species Haddock only 600- All countries except U.S. 500- CA z Cj 400- LL z 300. Mass. & R.I. 200- All puntries 100. U.S. 0 f 62 63 64 65 66 67 68 69 '70 '71 72 YEAR OF LANDING NEW ENGLAND RIVER BASINS COMMISSION I FIG. BOSTON, MASSACHUSETTS COMPARISON OF FISH LANDINGS NO. SENE VS. FOREIGN FLEETS 7.2 SOUTHEASTERN NEW ENGLAND *- WATER AND RELATED LAND RESOURCES STUDY 7-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made losing 63 percent of its total landings by 1972. If this rate disappeared, concentrated fishing efforts and resulting of decline continues unchecked, SENE landings will fall to dramatic declines have moved to yellowtail flounder (1968- roughly 165 million pounds by 1990, or less than a third 69) and ocean perch (1971-73). If combined foreign and the 1960 volume. According to Massachusetts estimates, $27 domestic landings continue without adequate controls, the million dollars in annual payrolls, 27,000 jobs, and $160 entire fishery will be jeopardized and an important world million dollars worth of vessels could be jeopardized in food source will be lost. Massachusetts by a continuation of the present situation. 11 e State of the Domestic Fishing Industry. Despite these declines, the fishing industry in SENE re- mains an important part of the region's economy. During The decline of the domestic fishing industry cannot be at- the 1969-1972 period, the average annual value of total tributed solely to foreign overfishing. Many other factors finfish and shellfish landings for the SENE coastal zone was affect competitive ability-. From the point of view of dis- over $56 n-dIlion (Massachusetts $45.8 million, Rhode Island tance from port to fishing grounds and distance from port $11 million). As a SENE coastal zone economic activity, to market, New England is in a far better position than commercial fishing is second only to recreation in terms of other competitors. Moreover, the local processing system value of transactions. For example, offshore fishing, fish is fairly efficient. In addition, the region and the nation processing and boatyard activity (directly related to com- benefit from a tariff on imported fish products. mercial fishing) generated over $12 million in transactions to 1971 on Cape Cod alone. University of Rhode Island The key negative factor is the cost of capital, labor, and Professor Neils Rorholm estimated that the commercial management. Operating costs of New England's fishing activity in shellfish and finfish harvesting, frozen and fresh vessels are much higher per unit of fish landed than those fish processing and wholesaling in the southern New Eng- of the region's competitors. Foreign vessels are modern, land region generated over $63 million in 1965. Moreover, efficient, and, more often than not, heavily subsidized by commercial fishing activities rank among the highest of all their governments. To complicate matters, the cost of coastal zone economic activities in terms of regional out- building a vessel in this country is twice that of construc- put and personal income multipliers. tion in some foreign countries. However, American fish- ermen cannot buy foreign-built boats. The Jones Act Foreign Offshore Fishing Activity. forces them to buy from,higher cost, domestic ship build- ers. This situation - the high cost coupled with high Since 1960 many foreign nations have mounted a massive downpayment requirements - has forced many New Eng- assault on groundfish, oceanic species, and squid in waters land firms to buy foreign vessels and fish out of Canadian off the Northeast coast of the United States. In 1961, the ports. Soviet Union began exploratory fishing on Georges Bank, and by 1962 over 500 Soviet vessels were actively fishing `1he greatest cost in the New England fishing industry is for herring and groundfish. `Ihe success of the Soviet labor. Of the gross catch profits, typically 40 percent trawler fleet in 1961-1965 (more than 480,000 metric tons goes to the boat owner(s) and 60 percent to the crew, in 1965 alone) influenced the development of fleets in Po- after trip expenses have been.deducted. In addition, 10 land, East Germany, and Romania, all of which appeared percent of the boat share (or 4 percent of gross after trip in the two years that followed. By 1968, Spain, Japan, expenses) is paid to the captain. To attract labor, the fish- and West Germany were also fishing off the U. S. Atlantic ing industry must be able to pay higher wages than can be Coast and more recently, Bulgaria, Greece, France, Italy, obtained from onshore job opportunities. and Cuba have begun to harvest these waters. Other U. S. industries have traditionally faced lower for- Using highly advanced equipment, and through the force eign wages, but have been able to compete through effi- of sheer numberg, the foreign fleets have become highly cient operation and substitution of capital for labor. In efficient competitors with the deteriorating domestic fish- the trawler fleet, however, only 32 percent of the gain ing industry. Foreign overfishing has been blamed for from increased use of capital goes to the vessel (with 40 dramatic declines of haddock, yellowtail, and herring, the percent profit share). Moreover, the New England fishing preferred foodfish on historically productive fishing industry is facing considerably higher cost of capital than grounds. its foreign competitor. Higher cost of labor, vessels, gear, and operating capital Tepresent the key problem in the New Figure 7.2 illustrates the impact of this overfishing, display- England fishing industry, and one of the prime reasons for ing the high foreign landings beginning in 1962 and the con- its inability to compete against subsidized fleets. current steady decline in landings from SENE ports. The impact of concentrated effort on a particular species, had- As stated earlier, it is one of the SENE Study's offshore dock, is superimposed to illustrate graphically the pressing fisheries objectives to improve the competitive standing need for some kind of resource management in order to and economic health of the domestic fishing industry. A head off a similar depletion of other species. As haddock case might be made, since we already import 70 percent of 7-5 74' TV 71 IV ATLAN7'IC COD HADDOCK 44 DISTRIBUTION GENERAL DISTRIBUTION -T- GENERAL MAJOR SPAWNING AREAS MAJOR SPAWNING AREAS p 42- 41 .0 -ES IV ID, 74- TV TO- 66. 14- IV YEL OWrA IL FLOLINDER ATLANTIC HERRING 44- - GENERAL DISTRIBUTION GENERAL DISTRIBUTION w MAJOR SPAWNING AREAS Of 42. - 41 42- 00 .0. - IIP TO. NEW ENGLAND RIVER BASINS COMMISSION BOSTON, MASSACHUSETTS OFFSHORE FISHERIES SOUTHEASTERN NEW ENGLAND DISTRIBUTION WATER AND RELATED LAND RESOURCES STUDY PUBLIC. REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made the fish we consume, for allowing the fishing industry to the key offshore fisheries. However, current and scheduled simple "go under". The direct impacts on employment International Law of the Sea Conferences are considering and certain other economic parameters would probably equitable means for all nations to benefit from outer con- have only a minor effect on total regional income. From a tinental shelf resources, while maintaining the principle of broader point of view, however, the impacts would be con- the right-of-free -passage for high seas navigation. Some of- siderable and unacceptable. Much of the cultural back- ficials feel that a unilateral 200-mile declaration by the U.S. ground of the SENE region - its social habits, its institu- could be counterproductive at this time from an interna- tions, the tourism "draw" it has - can be directly or in- tional perspective, while others point out that the resour- directly attributed to the tradition of fishing and seafaring. ces will be jeopardized if the U. S. waits any longer. To allow the further decay of the commercial fishing in- d'ustry would jeopardize much of the character of the Marketing Underutilized Species region. With one of the world's best fishing grounds im- mediately adjacent to the region, it was the Study's con- Many of the traditionally popular fish commonly found clusion that much potential exists for improvement of off the New England coast have been harvested near, or the status of the industry and its share in the regional beyond, their capacity to sustain their populations. At the economic picture. Coupling this with the predicted in- same time, however, while the tastes of the American people crease in demand for fishfoods, it is clearly in the regional, are often highly particular, per capita consumption of fish national, and international interest to make every effort in 1973 was at an all time high - 12.6 pounds. Moreover, to rejuvenate the industry. For this reason the Study to meet that demand, imports of fish reached 70 percent of considered strengthening the industry as a planning ob- total consumption. However, the consumers' "favorite jective rather than a planning alternative. fish" are only a very small portion of the potentially valu- able and marketable foodfish species. The Fishing Regulation System. There are three underutilized resources which seem to have Man 'agement and utilization of fishery resources in the good marketing potential. These are offshore crabs, squid, waters off Southeastern New England are formally regu - and mixed finfish species such as sea herring, dogfish, small lated by the laws of adjacent. states, federal agencies, and silver hake, red hake or butterfish. Many of these mixed the International Commission for Northwest Atlantic finfish are caught regularly, often averaging 20 to 30 pef- Fisheries QCNAF). Present management within the ter- cent of current trawl landings, but because of low relative ritorial seas lies mainly with the states. Because policies, value never make it to the marketplace. interests, and authority often differ from one state to another, conflicting and inefficient regulations often The National Oceanic and Atmospheric Administration result. Moreover, the roles of state and federal govern- (NOAA) has recognized the potential econon-de boost for ment in management beyond the territorial sea has not the industry that could be realized if new markets could been clearly defined. However, ICNAF, established in be developed for such species. NMFS's New Englnad Fish- 1953 to manage and preserve the fisheries beyond the eries Development Program seeks to find a market for the U. S. contiguous zone (3-12 miles), set up its first overall three key under-utilized resources - crab, squid, and mixed quota system for preserving Georges Bank haddock stocks finfish - to reduce the share of the domestic market which in 1970. Unfortunately, these limitations were imple- foreign imports have captured. Several developments are mented too late. In recent years, the United States has important to note. led efforts to ensure the preservation ofistocks at produc- tive levels for those species of primary domestic concern. Two pilot plants, one in New Bedford, Massachusetts, and Figure 7.3 maps the locations of some of these key do- one at Point Judith, Rhode Island, have been processing mestic fish species and their spawning grounds. Jonah and red crabs, with technical assistance from the U. S. fishermen resent the presence of foreign fishing ves- New England Program. In the case of red crab, a ready sels off the U. S. coast, assuming that the resource adjacent market appears to exist; however, with squid, the evidence to their coast belongs to them. Agreements reached at sev- is that considerable domestic market work is needed, al- eral Law of the Sea Conferences, however, point out that though there is a strong export market. except for "creatures of the shelf" and andromous species, fisheries resources beyond the 12-mile contiguous fishing Recent progress in more effectively separating fish flesh zone are an international resource and are not "owned" from the "frame" or skeleton has made it possible to re- by the United States. cover more of the edible product. This process opens the potential for extensive use of a variety of species now dis- Recent federal legislation (i.e., the Studds-Magnuson Bills: carded or used for purposes other than human consump- HR 8665 and S 1988) would change the contiguous zone tion. The New England Fisheries Development Program is boundary to 200 miles offshore or the edge of the conti- developing a method for handling mixed species catches of nental shelf. This would give the U. S. jurisdiction over fish at sea, part of which may be usid to make fish blocks 7-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made from which fish portions and fish sticks can be produced. use of marine resources, and to minimize conflicts between More research is needed, however, to develop an auto- fisheries and other marine resource users. Current ICNAF mated system to process large quantities of small irregular regulations are aimed at sustaining yields through such de- sized fish and to sort them into groups. vices as quotas, closed seasons and fishing areas, and net mesh size controls. More often than not, however, these Related Environmental Issues. regulations have been too little too late. Moreover, they appear to be generally unenforceable. The loss of, or threat to, vital saltmarsh, estuarine, @and off- shore marine habitats has become an increasingly important Improve and Strengthen ICNAF.. This may be a issue - one which relates directly to the objective of assur- better alternative for assuring adequate future fishery re- ing future supplies of fish. sources. Streamlining the monitoring and quota setting systems would help that body to deal with issues in a more The filling, dredging and pollution of the region's salt- timely manner. Once the system of regulation setting has marshes and estuaries in response to development pressures been streamlined, strict enforcement measures would be along valuable coastal lands may have a critical impact on necessary if the regulations are to have any validity. How- the marine food production system and spawning cycle. ever, given past performance, it is highly unlikely that Estimates made within the region, notably by the Woods agreement on regulations enforcement measures could be Hole 'Oceanographic'lnstitution, indicate that as much as reached in time to provide adequate protection for the 70 percent of the commercially valuable marine fishlife is threatened fishery resource. in some manner dependent on the continued health of the region's network of saltmarshes and estuaries. Elements of Enact a U. S. Interim 200 Mile Economic Zone. recent national legislation - the Federal Water Pollution In light of the inability of ICNAF to respond to the issues, Control Act Amendments of 1972, the Coastal Zone Man- yet another alternative is unilateral action. An economic agement Act, and the Marine Protection Research and zone is distinct ftom a 200-mile limit in that the economic Sanctuaries Act - deal directly with the symbiotic rela- zone guarantees rights of passage to all vessels provided tionships between coastal wetlands and marine life. they do not engage in fishing activities, and to fishing ves- sels provided they operate within the regulations for main- In addition to saltmarshes and estuaries, productive off- taining harvests at a level which will permit sustained yields. shore habitats and spawning grounds face possible damage Enforcement is provided under such a system through fines, ftom offshore sand and gravel mining and outer continental ship quarantine, or cargo confiscatiorf. shelf (OCS) oil and gas development. The pace of such de- velopment, notably the acceleration of OCS drilling activi- Alternatives for Improving the Domestic Fishing ties, threatens to outstrip efforts to provide adequate mar- Industry's Competitive Base. ine biological and oceanographic baseline data from which to determine short- and long-term environmental and, in Several internal and external forces are interacting to create the case of the offshore fisheries, economic impacts. the present condition of the domestic fishing industry. Sev- eral alternatives exist which would have varying degrees of Further discussion of these issues and recommendations to effectiveness in resolving these problems. Those listed are solve some of these problems can be found in Chapter 3, designed to improve the competitive standing and econon-dc 64iding Growth; Chapter 8J7ooding and Erosion; and health of the domestic fishing industry. Chapter 9, Unwelcome Facilities. Continue the Present Situation. The fishing industry The Solutions could attempt to continue holding its own against the im- pacts of large, subsidized foreign @ fishing fleets and their Alternatives to Assure Future Fishing Supplies. high-volume landings. This option would not necessarily maximize returns or benefits to the region from its impor- The SENE Study has dual objectives for offshore fisheries tant offshore resource@ Major economic opportunities in wholesale, retail, supply, and related marine activities would as described in the lead paragraph of this section. The al- be foregone and, quite possibly, a significant sector of the ternatives listed below are presented to maintain the fish- industry displaced. As was earlier noted, in Massachusetts eries resource to assure continued future supplies. $27 million in annual payrolls, 27,000 jobs, and $i60 mil- Continue the Existing International Commission lion worth of vessels could be jeopardized by a continua- for Northwest Atlantic Fisheries (ICNAF). Since tion of the present situation. For these reasons, it was a form of fisheries control currently exists through ICNAF, felt that efforts should be made to improve present con- it could obviously continue to function in its present role. ditions. ICNAF's regulations are designed to contribute to the wise 7-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Increase Tariffs on Imported Fish Products. Tariffs estimates that an increase of 3 percent in the region's would help to reduce the effect of foreign subsidies, thereby landings each year could be worth nearly $18 million in giving U. S. fishermen a more equitable basis for competing 10 years to the fishermen. While this is not, in and of it- with foreign fleets in the domestic market. The setting of self, a panacea for the industry, it is felt to be a sound the tariff certainly should be made with regard to keeping start towards making it more viable. all fish products prices attractive in relation to costs of other food products. The revenues collected @could be ap- Accommodate Fishing Industry Facilities Through plied to the management of the offshore fisheries resource. Improved Coastal Planning. The state Coastal Zone Management Programs could provide technical assistance Governmental Subsidies to the Fishing Industry. to local planning officials. Guidelines should be developed The federal government could designate the SENE region for designing local land use or zoning bylaws which regu- as a depressed fisheries area and provide direct subsidies late commercial fisheries' shore-based activities, such as to the region's fishermen. However, there would be resist- processing plants and docking or transhipment facilities. ance from various governmental agencies due to the cost In preparing such local ordinances, special care should be of such a program in relation to national benefits. In ad- given to Critical Environmental Areas, such as SENE land dition, priorities for subsidizing other industries, such as use Category A or B lands, especially those vital estuarine railroads, would likely be more important. Besides, subsi- areas which are supportive of the offshore fisheries. dized boats might not inspire the care and attention a privately-owned boat would receive. Such a situation Alternative Plans could prove unsafe and would not spark the initiative of the industry to pull itself up by its bootstraps. For these This Study has attempted to present alternative plans for reasons, it was felt that emphasis should be placed upon each subject area which emphasize either environmental creating conditions which would enable the fishing indus- enhancement or national economic efficiency and regional try to rehabilitate itself, though not on governmental sub- economic development. Most of the alternatives presented sidies. above, however, satisfy both economic and environmental Improve Opportunities for Financing Domestic- plan considerations. ally Built Boats. The fisheries loan fund could be For example, establishing a 200-mile economic zone would amended to provide higher amounts at lower rates over enhance environmental considerations by providing better a longer-term for the purchase, construction, equipping, control over the offshore fisheries and preserving the re- maintaining, repairing, or operating newly-built or used source. In the long-run this would reduce the cost of locat- fishing vessels built in the U. S. The current program al- ing and catching fish and also increase the size of the catch. lows up to $40,000 at 8 percent for 10 years. With the It would also allow SENE's fishing industry to compete on costs of new vessels for the Northeast fishery running a more equitable basis and allow long-term world use of the $500,000 to $1 million dollars, $40 thousand does not resource as a food source. even amount to very much of a down payment. Additionally, increased U. S. control over the fishing Allow Privately-Financed Purchase of Foreign- grounds couldstimulate economic development of under- Built Boats. Wider availability of vessels would enable utilized resources while depleted stocks are rebuilding. the industry to improve its fishing fleet. Since vessels Howeve.0, before the harvest of these resources can become built in foreign yards are lower-priced than domestic- a reality, the fishermen must develop a market for the catch. built boats, fishermen in depressed fishery areas (who This involves consumer education through promotional ad- would otherwise be unable to afford a new boat), should vertising on the part of both government and industry. be allowed to purchase foreign vessels. Modifying the Jones Act would permit this. Two controls should be In order to foster an economically healthy, yet relatively considered if this action is implemented: (1) limit the independent and efficient industry, loans at low interest privilege to states experiencing a depressed fishing indus- rates should be favored over direct subsidies or grants for try; and (2) prohibit the use of low-interest loans from vessel construction. Nonetheless, lifting the restrictions the previously-mentioned fisheries loan fund to be ap- on purchase of foreign-built vessels would not only bring plied toward such purchases. modem vessels within reach of many SENE fishermen, but could establish better competition among domestic boat Improve the Market for Underutilized Fish yards. Such activity will enhance the economic develop- Species. NOAA's New England Fisheries Development ment of the region, although it increases the need for Program is studying the potential marketability and pro- quotas or controls on harvests. cessing of several species. The industry could actively de- velop a promotional campaign to educate the consumer It can be seen, therefore, that in the case of offshore fish- to use these new species. The Development Program eries, environmental controls coupled with some govem- 7-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made mental priming of the pump will reap important economic maximum amounts to fishermen who are pur- returns to the region. In this instance, environmental objec- chasing domestic-built boats and gear. tives go hand-in-hand with economic development. 5. Allow privately financed purchase of for- Recommendations eign-built fishing boats. Congress should also consider amending the law prohibiting the In summary, to maintain a valuable fisheries resource for purchase and importation of foreign-built fish- the world and American consumer, and to provide a strong ing vessels to allow their use specifically in de- economic base for the region's fishing industry, the follow- pressed fisheries states if purchased with private ing actions are recommended in oider ofpfiopfty: capital. "Fisheries Loan Fund" monies should not be granted for purchase of such foreign 1. Declare interim offshore 200-mile economic vessels. zone. The U. S. Congress should extend, as soon as possible, the nation's jurisdiction over fisheries to 6. Improve market for underutilized fish 200-miles offshore or to the edge of the continental species. The SENE commercial fishing in- shelf. The economic zone concept guarantees rights dustry, with technical assistance from National of passage to all vessels provided they do not engage Marine Fisheries Services under the New Eng- in fishing activities, and to fishing vessels provided land Fisheries Development Program, should they operate within the regulations for maintaining actively develop a domestic market for under- harvests at a level which will permit sustained yields. utilized fish species by applying innovative mar- This recommendation would provide better control keting techniques in educating the public to the over the offshore resource base as an interim mea- use of new fish stocks. sure pending final proposals by the Law of the Sea Conference. 7. Accommodate coastal fish facilities t1trough improved planning. The state Coastai Zone 2. Adopt national fisheries management policy. Management Programs, in cooperation with A national management policy should imme- Departments of Community Affairs, should de- diately be adopted by Congress which could be velop guidelines and provide technical assist- administered by the Department of Commerce ance to local planning boards. Such assistance through the National Marine Fisheries Service should be provided when making land use or (NMFS) with U. S. Coast Guard monitoring and zoning bylaws for shore-based support services enforcement assistance, in order to manage the for commercial fisheries, such as fish or shell- offshore fisheries resource. These federal agen- fish processing plants, or updated docking and cies should work in conjunction with the states transshipment facilities. Such planning should of Massachusetts and Rhode Island to consider also carefully consider Critical Environmental establishing a joint federal-state management pro. Area (Categories A and B) so as to protect grain allowing limited foreign entry, quota enforce. those estuarine resources which are of vital ment, seasonal or species control limitations and importance to the commercially valuable off- fishing gear specifications within the 200-mile shore fisheries. economic zone. The objective of the preceding actions would be to increase the supply and Implications variety of fishery products without depleting stocks of any given species. Implementation of these actions would be a major step toward regenerating the offshore fishing industry, which, 3. Increase tariffs on imported fish products. despite its decline, still represents a significant economic ne U. S. Congress should selectively adjust activity for the SENE region as a whole. tariffs on imported fish and related fishing items so as to lessen the impact of foreign Increased and longei-term availability of a wider variety of fleet subsidies by their governments on the fish products and stimulation of spin-off benefits such as U. S. market price of fishing products. increased employment in related industries would contrib- ute both to the economy of the region and the well-being 4. Improve financing opportunities for domes- of its people. While increased cost to the consumer would tically built fishing boats. The U. S. result from increased tariffs on imported fish and from Congress should also modify the "fisheries capital improvement cost to rebuilding the domestic fish- loan fund", adr,;nistered by the National ery, these costs are not likely to be of such a magnitude as Marine Fisheries Service, to provide longer- to preclude fisheries products from continuing as relatively term and lower-interest loans of higher low-cost food commodities to the consumer. 7-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made In time, given enlightened management and federal support, IPswich-North Shore planning area alone-, four towns in a healthier, more stable fishing industry could regairf its 1970 had a combined total of over 2,000 acres of produc- stature as a major force in the economy of the region, mak- tive shellfish bedi producing an annual crop worth more ing a significant contribution to regional income and gener- than $1.7 million. There is estimated to be a total of ating development of related processing, storage, and ship- 252,000 bushels of harvestable clams on more than ping facilities in existing ports. 2,700 acres of clam flats throughout North Shore, worth in excess of $2,780,000 each year. Coastal sewage and other It is possible that as fishing fleets modernize, they will be pollutants make such valuable yields unlikely on all of considered by some as less aesthetically desirable assets to SENE's more than 37,000 acres of shellfish flats. How- coastal communities, leading eventually to pressures to iso- ever, the estimated cost of technical assistance and im- late them. The various processing activities associated proved management on the remaining"flats appears to be with the fishing industry have in the past suffered less than far less than the potential value of shellfish harvest fore- total acceptance, but the negative externalities of smell gone. and waste generally associated with them are less undesir- able than those of many other industries. These fishing- Management of shellfish beds is a local responsibility, and related industries, are subject to relatively less expensive one which is exercised unevenly from town to town. While and less complicated anti-pollution technologies than some towns can afford to hire trained personnel to man- many of the more complex industries. In addition, com- age their shellfish beds, more often than not, the extent of mercial marine fishing is one economic activity for which local management is the sale of commercial digging licenses. there is no alternative to locating in the coastal zone. Thus, As might be expected, the impact of this management sys- to some extent, the harbor facilities required by the fishing tem is fragmentation of authority and inconsistent regula- fleets will compete with other coastal industries and some tions from town to town, resulting in the underutilization private recreational uses. In general, however, the facilities of a valuable resource. associated with the fishing industry are compatible with many recreational uses, and most other industrial activities Municipal, industrial, and private discharges of water pol- which do not depend on waterfront sites can find alterna- lutants, and the recent regular outbreaks of paralytic shell- tive locations within the region. fish poisoning. C'red tides") have permanently, or tempor- arily, closed thousands of acres of shellfish beds in the Perhaps of overriding social significance is the inescapable SENE region. However, rigid enforcement of federal and fact that as world food shortages become more acute, man- state water quality legislation and the construction of agement to preserve fisheries as a significant world food more advanced waste treatment facilities with deep ocean resources could become increasingly important. Continued outfalls (See Chapter 5, Water Quality) should have the use of the Georges Bank fishing grounds as a world food effect of reopening long closed shellfish areas, perhaps as source will at least partially close this food gap, but only if much as tripling the available resource. careful management practices for sustained yield and eco- nomic optimum yield are rigidly enforced. Fish products "Red tides", however, are not well understood and despite are important sources of protein used as human foods, intense state and private research efforts, we know prac- farm feeds, and farm fertilizers. The United States should tically nothing-about either the causes of the blooms of assume responsibility for the preservation of this significant deadly dinoflagellates or the methods for stopping them. resource, but will have to give careful regard to international interests, perhaps by allowing some form of international In a so-far successful program aimed at maintaining harvest participation in developing fisheries management regulations. opportunities, the Massachusetts Department of Public Control and management of the SENE region's offshore Health, with the assistance of the Division of Marine Fish- fisheries would have far-reaching implications in preserving eries, is "relaying" quahogs and oysters from polluted flats an international food supply, as well as aiding the restora- to clean and underpopulated areas. Private experiments tion of the SENE Fishing industry. in re-oxygenating barren shellfish beds through spray- jetting the bottom sediments have also been successful on SHELLFISH AND AQUACULTURE a small scale. This revitalizes the clam flats and allows new crops to be seeded. In addition, steps are being taken to convert the chief reason for the closure of shellfish flats - The Situation polluted wastewater effluent - to a substance useful for shellfish propagation. Shellfish Production Interestingly, extensive beds of edible blue mussels exist it has been estimated by the Massachusetts Division of along the region's coast but are not utilized to any great Marine Fisheries that tidal shellfish flats are capable of pro- extent. This valuable resource enjoys wide use in Europe ducing harvests valued as high as $10,000 per acre. In the and could become more popular here by a vigorous 7-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made educational drive. In some European countries, the mussel Extensive culture operations require large land areas for is preferred to soft-shell clams and there may even by a ponds, whereas intensive culture utilizes dense propaga- potential for developing an export market. Although tion per unit area. Because of the limited availability of tastes of American people are very particular, they are re- suitable coastal land in SENE, intensive culture is almost sponsive to innovative, low-cost, and healthful products. mandated by both environmental and economic consid- erations. If such intensive operations are not carefully The existing acreages of available flats may be sufficient to monitored, wastes could lower water quality and thereby cover recreational shellfish demands through 1990, although threaten the surrounding resources. Appropriate regula- that demand cannot accurately be measured since there is tions to minimize environmental impacts should be no recreational shellfish licensing. However, commercial clearly spelled out prior to enabling aquacultural opera- diggers are not able to fulfill the out-of-state demand for tions. clams. Moreover, increased yields through better manage- ment and pollution abatement would still not provide The SENE Study has identified several locations which enough clams to meet this commercial demand. As a re- appear to have high potential for aquacultural operations, sult, interest in developing local aquacultural operations in but which should be investigated thoroughly to determine order to capture a portion of this market is increasing and their suitability. The criteria used to identify these areas is therefore examined below. include the following: degree of protection from wind and waves; area large enough to support commercial opera- Aquacultural Development tions; depth - less than 15 feet of water at high tide; ex- isting water quality; and compatibility with nearby land Practiced extensively elsewhere in the world, aquaculture and water uses. The areas suggested for further study in- only recently was determined to be economically feasible clude: Plum Island Sound and Essex Bay in the Ipswich- in the United States. Given the harsh environmental con- North Shore planning area; Brigg's Harbor in North Scitu- ditions in New England several criteria have to be consid- ate, North River estuary, South River estuary, Duxbury ered prior to initiation of culture activities, according to Bay, and Plymouth Bay in the South Shore planning area; research at the University of Rhode Island: Winnapaug, Quononchontaug, Ninigret, Green Hill, Trus- tom, Card, Potter, and Point Judith Ponds in the Pawca- (1) Develop only those species which are indigenous tuck planning area; Provincetown Harbor, Wellfleet Harbor, to the region or are capable of adapting to physi- Barnstable Harbor, Waquoit Bay, Cape Poge Bay, ponds on cal extremes associated with the region, unless the south shore of Martha's Vineyard, Madaket Harbor, onshore closed systems are to be attempted; and Nantucket Harbor in the Cape Cod planning area; Sip- pican Harbor, Mattapoisett Harbor, Nasketucket Bay, and (2) Limit operations to those species with proven New Bedford Harbor in the Buzzards Bay planning area. reproductive capability in captivity; Institutional Constraints on Aquaculture. One of (3) Utilize species which reach a marketable size the main deterrents to develop ment of aquaculture as a within two years (i.e. have a fast growth rate viable commercial enterprise in SENE has been the con- and have simple larval development stages); fusion and uncertainty over the -use of public waters for aquaculture farms. In 1973, the Massachusetts legislature (4) Develop species with potential for having a suit- somewhat alleviated the confusion by passing an aquacul- ably high price and good sales marketability; and ture law. Massachusetts General Laws Ch. 130 �68 A authorizes towns and cities to grant licenses to individuals (5) Utilize species which can be sustained on readily to cultivate shellfish through aquaculture. available and inexpensive feeds, Unlike Massachusetts, Rhode Island has made no provi- Several species meet most of these requirements and could sions for aquaculture. Chapter 20-10-1 of the Rhode Is- be the initial "targets" for aquacultural emphasis in New land General Laws does allow the director of the Depart- England. These include the hard shell clam (quahog), east- ment of Natural Resources to lease to any inhabitant of em oyster, and Coho salmon. It has recently been reported the state, or to any corporation chartered in the state, that the American lobster has borne eggs in captivity, al- 14any piece of land within the state, covered by four feet though additional difficulties in rearing this species to of tidewater at mean low tide ... not within any harbor marketable size still need to be overcome. Aquacultural line, for the purpose of oyster culture and the oyster operations in Buzzards Bay and on Cape Cod have enjoyed business." However, no more than one acre in any one initial success, although they are relatively small in scale lot or parcel may be leased to any one person or firm. at the present time. 7-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made While the above law may allow for limited aquaculture effects and impacts. Each alternative is therefore dis- enterprises, it has many drawbacks: (1) there is a residency cussed as to its individual economic or environmental requirement; (2) the area available for lease is limited to implications. economically unfeasible size; (3) the problem of conflicting uses (such as recreational and navigational uses) is not ad- Delegate Management of Shellfish to the State. dressed; (4) no protection is offered to the potential aqua- Already the case in Rhode Island, the Massachusetts culturist's racks, rafts, or floats; and (5) only oysters, not Divisions of Marine Fisheries could also be designated as shellfish in general, are mentioned. the primary control of shellfish beds in order to obtain minimum irregularities and maximum utilization of the Wastewater Use Research. Related to the growth of the resource. A state shellfish license could provide some of aquaculture industry is the possibility of using municipal the resources for the operation of such a management and industrial wastewater effluents as a stimulus to the and enforcement program. While this alternative might growth of fish and shellfish. The federal Environmental help achieve uniformity in shellfish management, costs to Protection Agency has published proposed rules for the ap- support such a program would likely be high. Because of proval of pollutant discharges in connection with an aqua- additional problems with staffing and the strength of the culture enterprise. The regulations are intended to author- home rule tradition in New England, this alternative was ize, on a selective and carefully -controlled basis, discharges not considered operationally or politically feasible at this which would otherwise be unlawful in order to determine time. the feasibility of utilizing by-products in wastewater to grow aquatic organisms which can be harvested, while at Increase State Assistance in Massachusetts for the same time protecting other beneficial uses of the water. Local Shellfish Management. This alternative would upgrade present management techniques used at the local Over the past four years the Woods Hole Oceanographic level in Massachusetts. Moreover, it could be partially Institute has experimented with, and succeeded in, using paid for by requiring increased local recreational shellfish secondary treated wastewater to propogate shellfish. The license fees. This alternative provides the opportunity for two major obstacles to using this technique in New England towns 'to continue in their present managerial role, but as are climatic changes and viral and bacterial contamination. recipients of increased technical assistance from the states To overcome the former, preliminary research has shown to establish coordinated shellfish management programs. that power plant cooling water effluent is a fairly reliable Costs would be shared on a pro-rated basis. and inexpensive source of heated water which stimulates rapid growth of cultured organisms. Knowledge about the Develop Market for Underutilized Shellfish latter obstacle is incomplete. Finding techniques to remove Species. Potentially valuable and marketable shellfish, bacterial and viral contaminants from wastewater could such as the blue mussel, could be promoted for domestic have widespread application in the field of public health. use in order to more efficiently utilize available resources. Such promotion would enhance local economies by pro- Unfortunately, just as these problems are emerging, the viding new shellfish harvest opportunities. funding for the research is terminating. Careful research, sustained by adequate and continuing funding, is therefore Research Removal of Virus and Bacteria to En- essential not only for the advancement of this technique hance Shellfish Habitats. Methods for detecting and for aquaculture, but alsoe for advancements in the field of removing virus and bacteria during the wastewater treat- public health. Little can be done on practical application ment process could minimize closure of shellfish beds due of this technology until the problems are solved and the to health restrictions which result from municipal waste@ Department of Health, Education, and Welfare and the water discharges. This might also allow the eventual use of Food and Drug Administration approve the use of secon- wastewater for aquacultural purposes, therefore being an dary treated wastewater for shellfish aquacultural opera- environmentally sound method for recycling previously tions. unused wastes. Viral and bacterial contamination is a ma- jor obstacle to permitting water-contact sports in water The Solutions supply reservoirs (See Chapter 6). Findings about cost- effective methods for treating this kind of contamination Alternatives in wastewater could illuminate similar problems faced by water-managers. Within the objective of improving the quality and quantity Site New Wastewater Discharges away from Es- of shellfish in SENE through natural and aquacultural pro- tuaries. Until such time as viral removal is practicable, duction, a number of alternative resources were examined. new coastal wastewater treatment facilities which incor- However, these alternatives are difficult to classify in pure porate deep ocean outfalls should be built to reduce the economic" or "environmental" terms due to their multiple number of shellfish flats closed due to municipal 7-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made discharges in coastal waters. Although costly, benefits Natural Marine Fisheries Service funding, using would be realized not only to shellfish, but also to recrea- innovative media techniques would greatly as- tion activities. sist in developing public awareness at the local level. Subsidize Aquaculture Industry Using State and Federal Funds. While this would contribute toward the 11. Research removal of virus and bacteria to objective of increasing the quantity of shellfish available in enhance shellfish habitats. EPA should the'SENE region, state agencies feel that it is inappropriate accelerate research into the detection and re- for public monies to be applied for private gain. They also moval of viral bacteria during the wastewater noted that specialized technical assistance services and de- treatment process. This would minimize clos- velopment loan programs were already available. ure of shellfish beds due to health considera- tions-resulting from municipal wastewater Enact Specific Aquaculture Legislation in Rhode discharges and allow the eventual use of waste- Island. A basic need to set the stage for the young aqua- water for aquacultural purposes. (see below). culture industry are clearly framed laws regulating the ac- tivity. Massachusetts has such legislation which could 12. Site new wastewater discharges away serve as a guide in developing a legislative package for from estuaries. Until such time as the re- Rhode Island. moval of virus and bacteria is feasible, the Water Quality Branch of EPA, in conjunction Increase State Guidance for Aquaculture Develop- with the Rhode Island Division of Water Sup- ment. Both states, through their Departments of Natural ply and Pollution Control and the Massachu- Resources, could be funded to assist communities and setts Division of Water Pollution Control private groups in planning for aquaculture activities. In should consider giving approval only to de- cooperation with the on-going coastal zone management signs for new coastal wastewater treatment programs, potential coastal sites might be identified, in- facilities which incorporate deep ocean out- creased technical assistance might be provided to towns, falls in order to reduce the number of shell- and research on innovative re-use of wastewaters could be fish flats closed due to municipal discharges. supported. Improved technical assistance for aquaculture development would assist local economic development by In addition to the above recommendations on shellfish man- providing better conditions for such operations. agement, the following actions are recommended to produce a more favorable basis for aquacultural operations: Recommendations 13. Enact aquaculture legislation in Rhode Island. From among the alternatives available, the following pro- Rhode Island should enact legislation similar gram of actions is recommended for improving manage- to that passed in Massachusetts in 1973. Such ment in SENE. legislation should include the following ele- ments: (a) definition of aquafarming; (b) ac- 8. Increase state technical assistance in Massa- knowledgement of responsibilities regarding chusetts for local shellfish management. water quality; (c) definition of power to grant Massachusetts should upgrade local manage- and revoke leases and licenses with provisions ment of shellfish resources by increasing Div- included for explicit definition of lease dura- ision of Marine Fisheries technical assistance tion conditions at an administrative level; to the towns. (d) methods for applying, advertising for, assigning, renewing, transferring, etc. leases; 9. Increase shellfish license fees. The Depart- (e) rights to be conferred or withheld, such ments of Natural Resources should urge coas- as navigation, recreational fishing rights, ac- tal towns to increase user fees for shellfish cess, etc.; (f) rental and fee structures; (g) licenses commensurate with the demand for safety provisions and requirements, such as local resources in order to support improved markers for rafts, racks, etc.; (h) offenses and technical management programs. subsequent penalties, and (i) relation of aqua- fanning laws to existing fisheries laws. 10. Develop underutilized shellfish market. 1he Departments of Natural Resources 14. Investigate potential aquacultural sites. should actively encourage the harvesting The Massachusetts Division of Marine Fish- of edible shellfish, such as the blue mus- eries and the Rhode Island Division of Fish sel, for both recreational and commercial and Wildlife, in conjunction with state coastal use. A public education program, with zone management programs, should verify the 7-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made stability of various locations for aquacultural PORT DEVELOPMENT 40 operations. The SENE Study's preliminary list mentioned previously in the Regional Re- port and the appropriate planning area reports The Situation are a strong beginning for this investigation. Once world leaders, today Southeastern New England's 15. Increase technical assistance to towns for ports are being left in the backwaters of international aquaculture management. The Massa- trade. The reversal has been due as much to changes chusetts Division of Marine Fisheries should within the region-as to changes in world trade. The shift be funded to take a more active role in pro- away from a manufacturing to a service economy, empha- viding technical assistance to communities sis on low-sulphur fuels, sharply decreasing coal receipts, in identifying suitable sites and in develop- growth in the scope and efficiency of highways and truck- ing suitable local management controls to ing services have had as much effect as have the changes maintain the area's potential for aquaculture. in ship sizes and drafts and world trading patterns. Once aquacultural permits are applied for, the Division of Marine Fisheries should as- While petroleum tonnage dramatically increased in the sist the communities by evaluating the ap- past years, general cargo tonnage moving through SENE plicant for the necessary technical, financial, ports has been declining steadily since World War 11, re- and administrative qualifications prior to sulting in loss of job opportunities in the region and ex- the granting of licenses. cess capacities at conventional piers, transit sheds, and 16. Increase research on use of wastewater warehouses in each port. for aquaculture. The New England Re- Within SENE, dry cargo movements have shifted from gional Commission, with technical support sea to land. Many of the region's once active ports - by the states, should increase research into Newburyport, Salem, New Bedford, FA River and New- the feasibility of using heated cooling water port - have become virtually inactive. Today, activity from existing or proposed coastal atomic concentrates in Boston and Providence, first and fourth power plants (such as Pilgrim Atomic or busiest ports in New England, respectively. the proposed Charlestown, Rhode Island plant), to support aquaculture activities. Port Development in Boston and Providence. These agencies should also emphasize sup- port for accelerated research such as that The advent of contain erization has revolutionized cargo under way at Woods Hole Oceanographic transport throughout the world. In New England, only Institute which is investigating the feasi- Boston has been able to raise the capital necessary for a bility of using treated wastewater effluent competitive container facility. Established in 1969 and for aquacultural purposes. operated by the Massachusetts Port Authority (Massport), the Boston terminal handled over 78,000 units in 1973, Implications a three-fold increase since 1970 when 26,000 units were handled. As was described in Chapter 2, The Setting, and again in the Offshore Fisheries section of this Chapter, the fisher- Petroleum receipts region-wide have shown similarly ies industry is an important segment of the region's eco- drastic increases which threaten to overtax existing port nomic base. Shellfish harvesting provides important facilities. During 1972 , over 1000 trips by large tankers local income and tax benefits to local coastal areas as were required to transport petroleum products into well. Implementation of these recommendations to in- SENE's major ports. Current projections by the U. S. crease availability of shellfish resources will help streng- Army Corps of Engineers show that continued use of the then and stabilize the economies of many of SENE's present class of tankers now servicing the region's ports coastal communities.. An improved-yield shellfish in- would require about 1,600 trips by 1980, 2,200 trips by dustry, supplemented by aquacultural productian, 1990, and as many as 5,400 trips by 2020. The rapidly could also stimulate local economies by providing a worsening harbor congestion and the world trend toward labor-intensive employment base and increase the vol- larger deep-draft tankers point to the need for a new sys- ume of shellfish available to the commercial trade. tem for handling petroleum product deliveries and distri- bution in SENE and the New England region as a whole. A study done for the Massachusetts Port Authority sug- gests a multiple-use deepwater crude oil terminal to serve the eastern Massachusetts, sou@hern New Hamp- shire and Maine market area. Several oil companies have 7-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made recently expressed interest in refinery construction in New these sediments which have high concentrations of heavy England and Massport has temporarily shelved the study metals and other toxic materials. The U. S. Army Corps until such time as it has received a firm commitment from of Engineers has researched the implications of dredged a major oil company. While the Massport study only in- materials disposal and found that, in many cases, the ad- vestigated a crude oil terminal, as opposed to a refined verse effects of the accumulation of oxygen demanding petroleum product receiving terminal, an installation for material and heavy metals may coniinue long after dis- handling refined products may be considered in the near pasal d.perations have been terminated. A five-year na- future. tionwide study of dredging, and disposal problems is cur- reRtly being conducted by the Corps of Engineers. In Energy receiving facilities are the majgr port development adc11tion, the Corps has undertaken a special inventory concern in Providence as well. The largest liquid natural of potential dredged materials disposal sites for Rhode Is- gas (ING) facility on the East Coast is being planned for land and Massachusetts through the SENE Study. Possible the Providence area. If completed, it would consist of sites up to three miles inland and in a zone 3 to 15 miles three storage tanks with a total capacity of 1,800,000 from shore have been identified using aerial photography barrels, served regularly by six large LNG carriers. These for the Boston Harbor and Narragansett Bay areas. vessels run almost 1,000 feet in length, 135-145 feet in width, carry 125,000 cubic meters of liquid gas, yet have Need for Coordinated Port Planning. only a 36 foot draft fully loaded. With one 600,000 bar- rel capacity tank constructed, the facility is scheduled Certainly the biggest problem facing SENE port opera- for completion in 1975. tions today is the general lack of coordination of port development schemes, terminal construction plans, and Due to limited expansion capability and potential imcom- inland distribution systems, particularly for petroleum. patibility with adjoining residential areas at the Providence In a market as distinct as SENE's, the region's ports LNG site, some Rhode Island officials are giving considera- would be more efficient if they were planned jointly to tion to concentrating future LNG storage at the surplus complement each other. Planning for development of Navy property in Davisville. Although some of the Davis- future key facilities at ports best equipped to handle a ville site is subject to coastal flooding, LNG tanks on diked given commodity would benefit the shippers, the port, and filled sites (possibly even using dredge material) is a and the region as a whole. real alternative, Several options are being considered, in- cluding: (a) deepening the existing channel to 40 feet There have been many proposals recently, for example, along its 21h mile length to the Davisville docks; (b) deep- for development of deepwater terminals for both the ening the same channel 1 % miles to Quonset Point docks greater Boston and Providence -Narragansett Bay area. At with a pipeline to Davisville; and (c) a deepwater terminal this time it is not clear if just one or both facilities are at Gould Island with a 5-mile pipeline to Davisville. necessary to meet the region's ne@eds, and the picture is further clouded by indecision about similar proposals Dredging Projects and Dredged Materials Disposal. outside the SENE region. Moreover, there is no evidence as to which site is the most suitable in terms of port cap- Navigation needs within the port of Boston include the abilities and existing infrastructure. These proposals have deepening of the Mystic River, Reserved Channel, and been made in a policy vacuum, without analysis of the Inner Harbor Channel to 40 fpet, and the possible deep- strengths of each port from a regional viewpoint. Such an ening of the Outer Harbor main channel. The Chelsea analysis could help determine whether or not the current River Channel, which serves nine oil tanker berths and development of LNG facilities on Narragansett Bay might other facilities, cannot be deepened beyond its current be complemented by petroleum facilities development 35-foot depth without endangering existing petroleum near the Boston metropolitan area. wharves and piers. Dredging of the 40-foot Main Ship Channel to Providence has been held up by litigation The Solutions concerning the location of satisfactory dredged materials disposal sites. Other dredging projects proposed by the Alternatives for Port Development Corps of Engineers through 1985 include Cape Cod Canal, Fall River, New Bedford, Newburyport, Plymouth, Within the objective of modernizing the SENE region's and Point Judith Harbors and Buttermilk Bay, on Cape port facilities and improving the region's marine trade po- Cod. tential, several alternative measures were examined. Channel dredging releases polluted sediments deposited Continue to P .Ian Local Port Improvements on an by industrial wastes, municipal sludge discharges, and Individual Basis. Port authorities and economic develop- combined sewer overflows. There is little undisputed data ment commissions could continue to plan improvements on the long-term effects of dredging and disposing of 7-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made for local port facilities and promote private investment on Connecticut, New Hampshire, and Maine, an individual basis. The Massachusetts Port Authority, for through the New England Regional Commis- example, has been highly successful in its port development sion, and with assistance from the New Eng- activities and this success can. be expected to continue. Yet land River Basins Commission, should jointly to continue individual port planning without evaluation of undertake a regional port planning program. regional forces is economically wasteful, often sacrificing Federal participation should include the econon-des of scale which might be derived ftom*specializa- Corps of Engineers, Department of Com- tion. merce, U. S. Coast Guard, and the Maritime Administration. The central objective of the Plan Port Development Based on a Regional Study. program should be to determine the most A study of the region's port capabilities and opportunities, economically efficient port development sys- as they relate to other New England ports could yield multi- tem for meeting the region's petroleum needs, ple benefits. In addition to the conventional economic im-. and to some extent its shipping and cargo dis- plications discussed earlier, such a program could result in tnbution needs. The study should also con- the renovation of some of the blighted urban waterfront sider: (a) the various navigation projects pro- land now bordering the region's major ports. (See Urban posed to serve petroleum distribution facili- Waterfronts Section, this Chapter@ Among the key ele- ties, existing or potential power plants, or ments of such a study might include the following consid- possible refineries which might be constructed; erations. and (b) cost-sharing measures that would be submitted for consideration by Congress, con- (a) Accelerating the development of container ship cerning federal assistance for local port plan- facilities in Boston. With immediate access to ning purposes, and federal assistance to state major highway systems to the rest of New Eng- authorities for port improvements. land, the port of Boston could become a major general cargo center. Alternatives for Dredged Materials Disposal. (b) Developing an economically feasible and envi- Regardless of the direction taken by the region's port de- ronmentally acceptable deep water petroleum cision makers, dredging will be required in several harbors products terminal. Both proposed sites near and dredged materials will have to be disposed of. Here Boston and in Narragansett Bay should be again, a number of alternatives are available: evaluated in these terms: a deepwater off- shore terminal would alleviate existing and Treat Dredged Materials. Treatment of dredged mate- projected tanker congestion and the threat of rials is a process which decomposes organic materials. spills in both the port of Boston and in Narra- However this may have mixed environmental effects. The gansett Bay; coupled with a pipeline distribu- addition of chemical oxidizers, such as chlorine, to treat tion system to major population centers - material prior to dredging may be toxic to the surround- Worcester, Providence, and Fall River/New ing ecosystem. Conversely, aeration of highly organic Bedford - these central petroleum receiving material may be quite beneficial. Getting this technique facilities could provide for the region's oil under way requires time and money. Treatment of needs in a safer, and more efficient manner dredged materials is expensive because of the need to de- than is currently the case. velop sophisticated new facilities which have high opera- tional and maintenance costs. (c) Develop Narragansett Bay and a LNG Center. Centralizing LNG storage and distribution on Incineration. Burning rapidly oxidizes pollutants in Narragansett Bay would capitalize on the ex- dredged materials. This may be effective for small projects, isting Algonquin Gas infrastructure, the Davis- but the danger of air pollution must be weighed very ville development potential, and the Bay's carefully. relatively deep water. Dispose Dredged Materials on Land. Dumping Recommendations for Port Development dredged materials at sites on land has been used to a lim- ited extent in the SENE region. However, the potential In light of the preceding options and considerations, the for pollution of ground water is considerable and this following action is recommended to maximize regional Study has urged maximum development of ground water economic efficiency with regard to port developmelit: in the region (Chapter 4, Water Supp4y). The environ- mental impact of any such purposes would, of course, 17. Plan a regionwide port development. need careful consideration. Massachusetts and Rhode Island, as well as 7-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Create Artificial Islands. The construction of islands by d. Sidecast dredging of clean dredged material diking and filling an area with dredged materials is an attrac- will continue to be permitted in selected tive possibility, especially if the site is near the dredging area areas. and the dredged material has good bearing capacity. Combin- ing this concept with the need for power generation could Possible sites identified by the Corps of Engineers, and re- help lessen the pressure for the siting of such key facilities ferred to under the alternatives section, above, can be used in coastal areas, as well as eliminate a portion of the large as a starting point for selecting appropriate disposal sites. volume of dredged materials which could need disposal. However, in some past instances this measure has proven hnplications socially objectionable because of unsightly appearance and odors. If for no other reason than the extremely high capital costs involved, future port development plans will have to Ban All Dredging. This. action would have serious be regionwide in scope. No one port can be expected to repercussions for both the regional economy and naviga- be internationally competitive without support of the tional safety, and was therefore not considered viable. region as a whole. Competitive port development pro- grams resulting in duplication of facilities 'in spite of re- Continue-Disposal to Ocean Waters. Transporting gional traffic projections which indicate limited region- dredged materials from the excavation site to an offshore wide demand, are in neither the national or regional eco- disposal area has been questioned due to potential ad- nomic interest. In the long-run they may not even be in verse impacts on fisheries. Yet, of all currently available the local interest. Implementation of the Study's recom- alternatives, ocean disposal of minimally-treated mate- mendations on port development in New England will rials appears to be the least costly and may also be the permit a degree of control over liquid and bulk com- least environmentally darnaging. Unless new technologies modity handling in the region and could give a significant are developed it may continue to be the only viable alter- boost to the region's shipping and cargo industries. native. Recommendations for Dredged Materials Disposal. OFFSHORE SAND AND GRAVEL EXTRACTION Based on analysis of the preceding alternatives, the follow- ing recommendation has been made by the SENE Study The Situation to deal with dredged materials disposal: 18. Continue interim dredged materials dis- Although the rate of increase in demand for sand and posal procedures. Until new techniques gravel is beginning to slow as highway- anA building con- for dredged materials disposal are developed, struction tapers off-, the overall demand for these products the recommended policies regarding offshore can still be expected to increase in the neKt few decades. disposal for the SENE Study area are: While Rhode Island appears to have sufficient onshore sand and gravel deposits to meet its needs if properly man- a. As is present practice, all proposed dredg- aged, Massachusetts, specifically the Boston Metropolitan ing projects shall first have exhausted all area, does not (see Chapter 9, Unwelcome Facilities) Sand ibilities for safe on-land disposal of and gravel used in the Boston area is trucked in from more posst rural districts or hauled by rail from as far away as south- dredged material. em New Hampshire. The steadily increasing transportation b. All offshore disposal sites must be clearly costs of these construction materials has made the hereto- identified with buoys marking only those fore uneconomical extraction of offshore deposits more approved sites. This is standard practice attractive in recent years. for all dredging projects. Throughout the following discussion a distinction is made c. No polluted dredged material (as defined between "near-shore" and "far-shore" operations. As used in the text, "near-shore" refers to state controlled waters by EPA and the state agencies) shall be of generally less than .100 feet in depth. "Far-shore" re- disposed of within any ocean sanctuary fers to federally controlled waters in excess of 100 feet as defined by state or federal law. Heavily deep. polluted dredged materials and industrial wastes which would unduly burden the Market and Environmental Considerations aquatic environment should be placed in inland diked areas, or containerized and According to studies by Schlee in 1968 and Mariheim in buried in designated disposal areas. 1972, quantities of sand and gravel sufficient to meet the 7-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made region's needs for several thousand years exist off the coast ment on far-shore mining. In addition to the need to reduce of the Northeastern United States. Whether these offshor6 conflicts with other uses, the industry is interested in far- deposits are ever mined or not will depend upon two fac- shore mining because: (1 ) far-shore waters currently lay tors: (I) the delivered cost of sand and gravel from onshore outside of state jurisdiction; (2) ocean transport costs are deposits; and (2) the degree of public regulation to mini- low; and (3) recent technological developments have signifi- mize adverse impacts of offshore mining operations. cantly increased the efficiency of iriining in depths exceed- ing 100 feet. Price increases of conventionally mined sand and gravel from June 1973 to June 1974 ranged from 10 to 50 per- Just as the need for sand and gravel minerals is increasing, cent in SENE. Moreover, in June 1974, the price of Rhode Island is beginning to take some steps toward regu- washed and screened concrete sand was $2.33 per ton in lating marine mining. The Coastal Resources Management the high-demand Boston metropolitan area. In contrast, Council has bee n considering a policy statement which industry experts now estimate that by 1976 far-shore would prohibit sand and gravel mining for commercial pur- sand and gravel could be extracted, processed, and de- poses in state waters, but not for beach replenishment or livered dockside at $ t.00 per ton. Adding transportation navigational dredging. to this dockside cost, far-shore sand and gravel could be competitive up to 30 to 40 miles inland from port of Offshore Mining Technology. entry. Technological advances in offshore sand and gravel mining The degree to which offshore sand and gravel mining have resulted largely through the development and expan- affects the marine environment varies considerably by sion of the industry in the United Kingdom (U.K.). The site. Some effects are known to be minor and temporary, sand and gravel vessels currently in use range in length from others major and permanent, wl-dle for others little is 150 to 350 feet and have cargo capacities of 500 to 10,000 known. Three areas of potential conflict exist: fisheries; tons. Most of the vessels are suction hopper dredges equipped recreation; and navigation and communications. with centrifugal pumps designed to work in waters up to 100 feet deep. fligh quality gravel is being found in deeper Given the importance of both the commercial and water however, and many vessels are converting to jet- sportfishing industries to the SENE region, offshore mining assisted- suction pumps or pure jet pumps in order to take will require careful scrutiny and more information than is advantage of gravel beds in 100-150 feet of water. presently available. From the research which has been done to date, it appears that if mining is restricted to far- Theoretically, unlimited dredging depths can be achieved shore waters, away from near-shore shellfish beds and deli- with this type of equipment. Dredged material is separated cate spawning grounds, detrimental effects to the fisheries and washed using underwater vibrating screens. Separated would be minimal. materials are discharged into a mechanically clean hopper tank and de-watering qquipment allows dry materials to be The SENE region's coastal beaches are a major tourist at- unloaded dockside. This eliminates frequent fouling from traction and thus a valuable economic as well as environ- onboard seawater, previously a problem with dredges. mental attribute. According to a 1973 University of Rhode Island investigation, near-shore mining in depths up to 80 Commercial trailing section hopper dredges scheduled for feet is likely to upset the delicate natural equilibrium main- operation around the world by 1975 range in capacity from taining the natural contours of existing beaches. Mining of 600 to 4,500 cubic meters. Larger dredges (up to 15,000 deposits beyond the 80 foot depth appears to have little tons) are available. However, few coastal markets in the effect on active beach movements. United States are capable of consurning such large amounts of aggregate on a sustained basis. Industry experts suggest Much of the SENE coastline is heavily traveled by commer- that a dredge with a hopper capacity of approximately cial, military, fishing, and recreational vessels, and the po- 7,000 tons is the most economical size unit to operate. tential conflict between sand and gravel mining operations One such dredge could deliver as much as 1.5 million tons and such marine traffic generally is greater nearer the shore. annually, operating at sites as much as thirty to forty miles Similarly, pipelines, sewage outfalls,,,and cable crossings offshore. This is an amount equal to roughly 75 percent line the bottom of many of the region's bays. In virtu- of Rhode Island's total 1972 consumption of sand and ally every case, removal of such facilities to permit sand gravel, or roughly 10 percent of the projected consumption and gravel mining would be econon-dcally unjustifiable. for SENE region in 1980. It should be clear from the above that the best information The amount of onshore processing required for marine currently available indicates severe environmental and eco- sand and gravel products depends upon the level of tech- nomic limitations to near-shore mineral extraction opera- nology employed on the mining vessels. Highly auto- tions. The mining industry appears to have anticipated mated shipboard operations (currently used in the U. K.) these problems and has focused its attention and develop- are capable of producing a complete-range of washed and 7-19 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made sized aggregate products for delivery at port. The economic Recommendations and environmental considerations appear to favor on-board processing, although it is not possible from available data to In the event that conventional onshore sand and gravel de- compare the dollar costs of such an operation to the alterna- posits are no longer available in supplies sufficient to meet tive of onshore processing. It is also not known to what ex- the region's construction needs, or offshore mining becomes tent washing with fresh water to remove all, or some, salt economically competitive, the following recommendations from sand and aggregate is a requirement for use in asphalt are presented to facilitate such ventures and protect the or cement. Initial experiments using salt-water-washed ag- surrounding marine environment: gregate in concrete have met engineering standards, but the industry is cautious. If fresh water washing operations are 19. Restrict near-shore mining of sand and gravel. required, the economic and environmental costs will obvi- The Rhode Island General Assembly and the ously increase. Massachusetts General Court should restrict near-shore mining and consider legislation which As far as the industry is concerned, the key factor in deter- would prohibit the extraction of sand and gravel mining the feasibility of offshore mining is the existence of in depths less than 100 feet. This would mini- a market within thirty miles of the unloading facility cap- mize impacts on fisheries, eliminate conflicts able of consuming enough sand and gravel to make the with pipelines, wastewater outfalls and cable operation profitable. crossings, and preclude interference with natu- ral beach formation processes in the near-shore The Solutions zone. The objective of this portion of the SENE findings is not to 20. Coordinate future federal leasing of far-shore provide the region with sand and gravel from offshore de- sand and gravel sites with coastal zone man- posits, but should such deposits at some point be needed, agement programs of adjacent states. to extract them at the least economic and environmental The Bureau of Land Management of the U.S. Department of the Interior and the National cost to the people of the region. Accordingly, several al- Marine Fisheries Service of the National Oce- ternatives seem to be available. anic and Atmospheric Administration, should Alternatives coordinate the licensing of far-shore sand and gravel operations with the coastal zone man- According to the best information available on the indus- agement programs of adjacent states in order try, three primary offshore mining systems appear to to minimize conflicts among programs. Such exist: licensing should consider the following criteria as requirements: (a) living resources should not Use Near-Shore Small Conventional Bucket Dredges. be jeopardized by construction or operation of This system will require loading on barges for unloading in mining devices; (b) Mining operations should be port, dockside processing, washing, and storage facilities. timed to occur in waters not used as seasonal Moreover, harbor pollution from seawater discharges, and spawning areas by fish; and (c) operators should the significant environmental effects outlined earlier would be required to use latest equipment such as trailing suction hopper dredges capable of on- constitute unacceptable problems. board processing. Use Hopper Dredges without Onboard Processing 21. Develop predictive modeling techniques for Capability. These large vessels could operate in either offshore sand and gravel operations. The near- or far-shore waters, would cause essentially the same above participants should seek funding for a problems as conventional dredges, but of a greater magni- study to develop an interdisciplinary predic- tude. tive model capable of identifying post-opera- Use Hopper Dredges with Onboard Processing and tional biological, chemical, and physical ef- De-Watering Capacity Operating in Far-Shore Areas. fects of mineral extraction on living and non- This approach, although initially expensive, would cause living marine resources at alternative extrac- minimal environmental problems and require less complex tion sites. The Rhode Island Marine Experi- ment Station is half-way to completion of a dockside facilities. study. for predicting environmental impacts of offshore mining. These kinds of efforts should help produce operational guidelines for industry regulation in order to improve 7-20 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made offshore mining techniques and minimize It was a picture that ... can be more easily adverse impacts on the fisheries resource. imagined than described." Impfications The potential to recapture the waterfront's vitality lies just beneath the surface. Most of the SENE region's port In light of the direct relationship in mineral extraction cities have a curious but stimulating ambience of old and between closeness to shore and potential environmental new, of progress and history, juxtaposed in a comfortable damage, it is in the best economic and environmental pedestrian scale. Nearly every historic port city - Glouces- interests of the SENE region for the states to virtually ter, Salem, Plymouth, Nantucket or New Bedford, Provi- prohibit near-shore mineral extraction. The existing dence, and Newport - have grown from early bonds to Massachusetts marine sanctuaries legislation regulates ac- the sea. Most retain this sense of history in varying de- tivities in almost all of the state's coastal waters except grees alongside newer development. Boston Harbor. Implementation of these recommenda- tions would assure both states equal protection. How- Today despite the run-down condition and inaccessability ever, the program is also designed to support the far- - of the urban waterfront, the residents still persevere. They shore mining operator, should such extraction be needed, fish from rattling bridges. They spend their lunch hours by providing sensitive site selection mechanisms and clear on decaying docks. They sunbathe beneath monolithic oil operating criteria and regulations. By clarifying operat- storage tanks. For many, just being able to view a sliver of ing standards and identifying approved extraction sites, the harbor from their windows provides a reassuring sense the program of recommendations provides opportunities of open space. for extraction while being sensitive to the importance of these same far-shore waters to the region's fishing But what led to the decay? The explanation seems to be industry, Thus,- implementation would be to both the tied to the absence of a tradition of intensive multi-use environmental and economic advantage of the region's of urban lands, in contrast to the heritage of European people. cities such as Stockholm or London. America, with its vast amounts of land, offered cheaper development alterna- URBAN WATERFRONTS tives inland. These inland areas offered open space and amenities which the waterfronts with their commercial/ industrial character did not seem to offer. But now even The Situation suburban and exurban lands are relatively expensive and increasingly remote. The remaining activity along the Perhaps one of the SENE region's most unique resources waterfront is now considered attractive and recognized as is its urban waterfronts. They provide exciting visual di- an important component of a varied urban life. And the versity and a variety of activities not found elsewhere. waterfront offers an expanse of open space relatively rare Boston, embraced by the Harbor, still retains much of its as more and more areas are built up. maritime flavor. It spills down in an easy walk from the State House on Beacon HUI; through the newly completed The process of decay along urban waterfronts has left a and ultra-modem Government Center; past the eighteenth- tremendous amount of land abandoned, both publicly and century Colonial State House, Faneuil Hall, and Quincy privately owned. Yet there appear to be no structural im- Markets; to Long Wharf"and the ever-changing, always pediments to active waterfront use. From an architectural active, harborfront itself. Beyond he the undeveloped is- and construction standpoint, waterfronts can be developed lands of the Outer Harbor, major recreational resources economically. In fact, the juxtaposition of urban and na- languishing in scattered profusion within eyeshot of tural landscapes provided at the waterfront has a strong, Beacon Hill. almost magnetic, appeal for a variety of legitimate uses - housing, restaurants, parks, marinas, office space, and tra- A contemporary account of the 1840's is a helpful remin- ditionally water-based industries. Furthermore, people are der of the values many are trying to reclaim for waterfront now indicating a willingness to pay even more than the areas: average market rate for housing and office space on the waterfront because of the amenities offered. "Our wharves ... were in every truth water parks for the people, and contained no end of object Much can be done to restore SENE's urban waterfronts. lessons. On pleasant Sundays whole families re- The principal stumbling blocks appear to be administra- sorted thither. On holidays and special gala occa- tive and institutional. -We need to expand the public aware- sions they were immensely attractive; each vied ness and appreciation of the unique problems and oppor- with the other in all manner of decoration. Every tunities of urban waterfronts, including commercial, his- description of craft from sloop to a full-rigged toric, and recreation features, as well as natural features. ship, was rich in display of canvas and bunting... With an informed and aware population, priorities need to 7-2 1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made to be given to the urban waterfront and to appropriate land (1) Planning and development control activities uses along the waterfront. We need to create new institu- could be carried out primarily by local govern- tional mechanisms, or innovatively apply existing ones, ments; which, coupled with dynamic leadership, can balance local,, regional, and state concerns, and resolve conflicts between (2) Local and state (or substate Tegional)jurisdic- public and private sectors as well as between various govern- tions could share responsibility; and mental levels. Local governments need strengthened plan- ning, regulatory and renewal capabilities, and there is a (3) State (or substate regional) jurisdictions could need for a strong regional or state role in land use deci- be the principal decision makers in the process. sions having greater than local implications. A stronger governmental role should be supported by increased public Reliance on the functioning of private market forces or and private investment. Such investment would be con- utilization of direct state or federal controls are conceiv- sistent with the concentration of commercial and recrea- able theoretically, but are unlikely alternatives for urban tional markets in urban areas, plus the existing infrastruc- waterfront planning and development control activities. ture which can bring down some costs of development. While the economic forces of the private market are a fundamental component in any urban waterfront planning Although several cities and towns have initiated or carried and development process, a reversal of the more than out sound programs for waterfront development or re- fifty-year tradition of major public involvement in plan- newal, their success has occurred in spite of, rather than ning and development actions is beyond reasonable con- because of, current institutional and public policy. Most sideration. Although various agencies of the federal successful programs appear to have resulted from a fortui- government are heavily involved in funding state and local tous combination of private economic forces, concerned programs, setting and enforcing environmental standards, private citizens and public officials, and the creative use regulating and maintaining navigable waterways, and the of the state and federal assistance programs. The basic use of federally-owned lands, direct federal control would legal tools exist. These give existing local, state, and be contradictory to the recent federal policy of state and federal agencies broad powers and authority to plan, fund, substate leadership in planning and management. and carry out programs for wise use of urban waterfront areas. In short, the most likely course in the SENE region is to focus on the role of local, regional (substate), and state- The Solutions wide agencies. The federally assisted Coastal Zone Management Program, Recommendations for which both Massachusetts and Rhode Island have re- In light of the previously discussed options, the following ceived funding, can serve as a vehicle for developing the actions are recommended in order to enhance the reuse of planning and integrating management mechanisms that are urban waterfronts in a rational and balanced manner: required. Within the framework of the Coastal Zone Man- agement Program, coastal urban waterfronts should be 22. Coordinate local waterfront planning and defined as areas of "particular concern", and accorded development. Municipalities should prepare the same attention and funding priority as critical eco- and inventory or plan for the long-term use, or logical or environmental resource areas in the non-urban reuse, of waterfront areas. In undertaking such portions of the coastal zone. activities, towns should give special consideration Similarly, inland urban waterfronts deserve equal attention to factors such as the protection of flood prone with regard to planning and development. While passage of areas, the preservation and enhancement of his- toric sites and buildings, the provision of public a National Land Use Act would facilitate consideration of access easements (both physical and visual) in inland waterway resources, appropriate federal agencies, new development, building height, and so forth, such as HUD, should support state management programs consistent with Critical Environmental Areas as for inland waterways that parallel the coastal zone pro- specified in Chapter 3, Guiding aowth. grams. By integrating master planning and development control Alternatives functions in urban waterfront areas, local governments can focus public interest and concern on relevent development Based on an investigation of eleven urban waterfront areas issues and establish administrative framework at the local in the SENE region, there are three possible approaches for level. initiating and carrying out land use planning, and for con- trolling urban waterfront activities: 7-22 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Local waterfront master plans should incorporate appropri- to service priority uses; residential hous- ate implementation procedures. These could include revi- ing, if it provides public access to, and sions to local ordinances and the creation of urban water- along, the water's edge; education- front special districts such as that adopted by the Town of oriented institutional uses. Plymouth, Massachusetts. High priority land uses, as defined by the master plan and statewide guidelines, can be encour- d. Low-Priority Uses: These neither aged, while low priority land uses can be prohibited, or per- require, nor complement, water- mitted by variance only. dependent uses and have neutral or detrimental affect on scarce waterfront Mile primary responsibility for initiating and carrying out resources. Their waterfront location land use decisions should remain at the local level, the state has been determined by non-water- should perform the following critical functions. related economic factors such as inex- pensive former mill space, good trans- 23. Provide guidance and set criteria for priority portation, and site access. Examples waterfront uses. Massachusetts and Rhode include general storage facilities; trans- Island, through their coastal zone planning pro- portation, particigarly railroads and ex. grams or state land use planning programs, pressways whose water's edge location should develop urban waterfront planning and isolates large stretches of urban water management guidelines and criteria for decid- frontage, and which are not designed ing priorities for uses to be incorporated into to service priority waterfront uses. local waterfront master plans. In arriving at priorities for waterfront uses, state programs 24. Review and coordinate waterfront use should include the foflowing considerations: at state and substate regional level. Massachusetts, through its regional plan- a. Water-Dependent Uses: These require ning agencies, and Rhode Island, through direct land-water interface and should re- its Statewide Planning Program and De- ceive first priority. Examples include port partment of Community Affairs, should facilities and shipping; fishing and fish exercise their powers to review and re- processing; boat yards; public access for vise major waterfront development pro- sport, solitude, and water related recrea- posals of more than local concern. Such tion including swimming, boating, fishing, review and revision should be coordinated water skiing,surfing, and scuba diving; with state coastal zone management pro- irreplaceable fresh water and estuarine grams when coastal projects are involved. salt marshes, flood plains, and wildlife Impact statement reports should be pre- refuges. pared which document anticipated ef- fects and outline corrective measures re- b. Water-Using Uses: These require quired to eliminate, or reduce, adverse large volumes of water for industrial impacts. Specifically, state and substate purposes or make some use of water regional planning agencies should: transportation, but do not require di- rect waterfront locations. Examples a. Review, concur in, and assist in fi- include port storage, especially bulk fuel nancing the preparation of local storage such as gas and oil which may be waterfront master plans, zoning or- easily piped to inland storage locations; dinances, and related implementation wastewater treatment plants; pollution procedures to the extent that region- control facilities. al or statewide interests are involved. c. Complementary Uses: These posi- b. Review and approve the location tively influence urban waterfront qua]-' and design of major development ity and may be planned and located so projects or other major changes inland as not to conflict with water-dependent use or activities having significant ef- uses. Examples include commercial ac- fects in more than one local jurisdic- tivities, particularly fish markets, res- tion. taurants, and retail stores, which draw on, and add to, tourist trade and other c. Mediate major conflicts or differ- waterfront activities; transportation, to ences between governmental jurisdic- the extent that it is intended primarily tions that may result from, or affect local land use decisions. 7-23 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made d. Coordinate the allocation, of regional ment activities should be consistent or statewide development and funding with state or regional policies, as well as is assistance programs (including land with local needs, expressed in urban acquisition, physical facility, and admin- waterfront plans and programs. Excep- istrative assistance programs) and articu- tions in the national interest should be late regional or statewide funding prior- agreed to in the context of state coastal ities regarding the importance of urban zone programs and statewide land use waterfronts vis-a-vis other competing re- programs or policies. cipients of financial aid. e. Review federal agency programs and Implications funding patterns in view of regional Implementation of coordinated local and state approaches or statewide funding priorities and rec- to wate 'rfront use should help to minimize fragmentation ommend adjustments where appropriate. of decisions in waterfront areas while recognizing the ap- propriate roles of the different levels, of government. Agree- 25. Support state and local waterfront devel- ment on appropriate guidelines and priorities should help opment plans. The U. S. Congress and The to reduce conflicts between uses and increase the chances Office of Management and Budget should for a variety of uses along urban waterfronts. approve adequate federal funding for state coastal zone planning programs and for More sensitive and sensible use of waterfronts will reinforce other planning programs which enhance the use of existing infrastructure and help to reutilize urban waterfront redevelopment. Other federal areas which have considerable econornic and aesthetic planning programs and project develop- potential. 7-24 CHAPTER 8 FLOODING AND EROSION The Setting Areas - lands which are either too fragile to support any development, or whose development would constitute a Southeastern New England, with many of its major popula- hazard to public health and safety. At the same time, tion centers clustered along the coastline, is particularly sus- Chapter 6, Outdoor Recreation, has shown that many of ceptible to tidal flooding. The region has a long history of these critical areas can serve to meet important recreation severe damage from hurricanes and "northe asters." In con- needs throughout the region. Chapter 10, Strengthening trast, damages from inland riverine flooding are local in the Management System for Natural Resources, presents nature and usually less severe, largely because there are still the relationships between implementation aspects of this extensive inland wetlands in the region which serve as na- chapter's recommendations and those of other report chap. tural valley storage areas holding and slowing unusually high ters. Chapter 11, Tying the Recommendations Together, flood flows. If they resist the temptation of filling and de- describes the implications of recommendations in this veloping these wetlands and flood plains, the people of the chapter to those described in other chapters of this report. SENE region have the opportunity to minimize future riverine flood damages. However, in the Pawtuxet and COASTAL AND INLAND FLOODING Blackstone planning areas, where past flood damages have been high and fewer natural valley storage areas remain, This section of the chapter examines the extent of the other solutions will have to be considered. flooding problem in SENE, and focuses on ways to con- Flood control policy has been set at the national level by trol appropriate uses of inland and coastal flood plains, such directives as Executive Order 11296 and related flood within the context of a comprehensive flood plain man- hazard evaluation guidelines. The Department of Housing agement planning process which considers both structural and Urban Development's National Flood Insurance Pro- and non-structural measures for reducing flood damage. gram has reinforced the growing realization around the country of the need to recognize the importance of an- The Situation ticipating and avoiding flood damages. Planning and con- struction programs of the U. S. Army Corps of Engineers Extent of flood damages (including major structural protection projects such as dams, dikes, and diversions), related programs of the Soil According to the North Atlantic Regional Water Resources Conservation Service (in the U. S. Department of Agri- Study (NAR) of the Corps of Engineers, average anniiid dam- culture), as well as state laws to protect wetlands and ages in the SENE region were about $ 10 million in 1966. some coastal areas, and local zoning and other regulations, As indicated above, SENE's major cities - Providence, Fall offer the basic framework for flood plain management. River, New Bedford, and Boston - are particularly vulner- able to coastal storms. The same is true for the dozens of Strengthening these current programs is the recently- smaller communities which line the SENE coastline. Ac- passed Water Resources Development Act in which Section cording to the NAR Study, the worst damages have been 73 authorizes federal cost sharing for non-structural solu- caused by hurricane tidal flooding. The hurricane of Aug- tions. One of the three major examples in the country of ust 1954, for example, caused flood damages estimated at the kinds of non-structural measures to be considered $70 million along the Rhode Island Coast and within Narra- under Section 73 authority, is in the SENE region. The gansett Bay. In fact, Narragansett Bay, and Providence in Charles River Watershed Project of the Corps of Engineers particular, is a classic example of an area highly susceptible calls for federal acquisition of over 8400 acres of wetlands. to tidal flooding. It is a large, low-lying urban area, at the Although implementation of Section 73 has presently been end of a funnel-shaped estuary. In addition, it is at the deferred by the Office of Management and Budget (OMB), mouth of a river with relatively heavy and rapid runoff. application of the cost sharing authority is expected to be Finally, it is an area of substantial tidal range and opposite an important factor in using non-structural solutions, es- a long fetch of deep water, where huge storm waves can be pecially in flat riverine areas and exposed coastal areas generated. These factors, combined with the fact that where structural measures are often not economically Rhode Island's coastline is in the historical track of hurri- feasible. canes, explain, to a great degree, the reason for the area's The conclusions of Chapter 3, Guiding Growth, provide the past history of high tital flood damages. basis for the recommendations in this chapter. Flood plains, While the southern coast of SENE is susceptible to hurri- wetlands, coastal flood hazard areas, beaches, and critical canes, the most frequent causes of tidal flood damages in erosion areas are all classified as Critical Environmental the northern coast communities - from Newburyport to 8-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Plymouth, Massachusetts - are the region's famous "north- of record in the Blackstone River basin would result in dam- AM easter" coastal storms. A 1960 Corps of Engineers report ages estimated at more than $26 million (in 1972 dollars). describes the tidal flooding and wave action effects of the Elsewhere in the planning area, a recurrence of the 1968 December 1959 northeaster on shoreline structures, protec- flood of record would today cause damages exceeding $1 tive installations, beaches, private properties, highways, and million in the Ten Mile River Valley, $300,000 in the Woon- utilities. According to that report, the storm caused total asquatucket Valley and only $100,000 in the Moshassuck estimated damages of $6 million along the coast, including Valley. Without the existing structures, however, the dam- $1 million in Boston. ages in the entire planning area would total $88.8 million. A list of coastal and inland flood damage centers is pre- Although riverine flooding has occurred in many communi- sented in Table 8.1 and also shown in Figure 8. 1. ties in the SENE region (see Table 8.1 and Figure 8. 1 ), only two planning areas, the Pawtuxet and Blackstone and Vi- Causes of Flooding cinity, have had serious inland flooding. Based on flood losses experienced in the lower nine miles of the Pawtuxet The major contributing factor to the steadily increasing River (Cranston, Warwick, and West Warwick, Rhode Island) flood damages in SENE is the region's traditional pattern the Corps of Engineers has estimated that a I 00-year fre- of settlement. As discussed in Chapter 2, 7he Setting, quency flood would cause nearly $15 million in damages SENE's coastal waters and inland streams were major today, and nearly $18 million in 1990 even with no growth, transportation routes and largely determined the location thereby reflecting changes in flood stage created mainly by of industrial and secondary development. During the urbanization elsewhere in the watershed. New development rapid industrialization of the region in the 19th century, above the 1970 100-year flood level would be subject to an the level topography of the flood plain was - as it con- additional $9 million of damages. This is again because the tinues to be - highly valued for commercial, industrial, I 00-year level is expected to rise, meaning higher flood and residential development. The encroachment of urban stages. development on the flood plain has, in several parts of the region, increased the normal rate of precipitation runoff Within the Blackstone and Vicinity plarining area, riverine and reduced the capacity of the region's rivers to handle flood damages have been more severe than anywhere else in higher flows from spring thaws and heavy rainfall. Table the Study region. The 1955 flood caused $65.5 million in 8.2 presents estimated inland and tidal flood plain acre- darnages in the planning area. A recurrence of the 1955 flood ages for each of the ten SENE planning areas, based on a TABLE 8.1 INLAND AND COASTAL FLOOD DAMAGE CENTERS inland Flood Damage Centers Coastal Flood Damage Centers Ipswich Northbridge Ipswich estuary Providence River Wilmington Uxbridge Lynn Harbor - Saugus Riverside Millville Revere Cranston Boston Blackstone Warwick Cambridge Cumberland Hull Greenwich Bay Newton North Providence Wi6kford Harbor Quincy Scituate Point Judith Milton North Attleborough Middletown Walpole Attleboro Wareham Newport Braintree Seekonk Marion Lower Narragansett Bay Weymouth East Providence Mount Hope Bay and Fall River Southern Coast of Rhode Island Brockton Warren Taunton Scituate (RI) Bristol Cranston Barrington West Warwick Lincoln (RI) Warwick Source: U.S. Army Corps of Engineers is 8-2 Riv r &coastal flood plain :reas 100 acres or mo.re Major inland & coastal wetland areas Critical coastal erosion 0 Storm damage areas Orr (approximate location) 01. r-@ v e A r 4 Amric ocrAw , A"4 % 'q- I tj A. At -7 y 0 er\ CAPE coo JDAY Na J r (7 L-i@@-)N-@j 1, J- 00 or:h - jil NANT40CA"rr $04VA10 A. A OL OCIr MANP L-1-1-A-21 MILE-. KILOMETERS is NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS WETLANDS & FLOOD PLAINS NO. SOUTHEASTERN NEW ENGLAND EROSION & STORM DAMAGE AREAS 8.1 WATER AND RELATED LAND RESOURCES STUDY 8-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 100-year frequency storm, Altogether, the SENE region wildlife. Coastal wetlands act as stabilizers of shore- has an estimated 340,000 acres of tidal or inland flood lines and first line buffers for storms and flood damage. plains, roughly 12 percent of the total area of the Study Moreover, wetlands offer important recreational, scenic, region. Flood plains are included in map category "B" on aesthetic, and educational values. Plates 1, 2, and 3, found at the back of this report. The sensitivity of wetlands to destruction by any kind of Also contributing to the region's increasing flood damages development is great. Draining, filling, or paving destroys is the steady destruction of upstream wetlands which, un- a wetland's ability to store water and therefore destroys der normal circumstances, serve to retain and slow sea- its value for flood control, ground water recharge, or wild- sonal or storm-related flood flows. In 1970, the SENE life habitat. Even development on the higher areas sur- region had nearly 29 1,000 acres of fresh water wetlands rounding wetlands can cause pollution, erosion, or other (including some 67,000 acres of open fresh water wet- problems which disturb the effective functions of wetlands. larrds) and 44,500 acres of coastal wetlands. These figures represent a decline of 6 percent of the region's open fresh Table 8.2 displays the relative distribution of wetlands in water wetlands and a loss of nearly 14 percent of the salt each of the ten planning areas of the SENE Study region. water wetlands since 1960 (see Table 3.1 in Chapter 3). To- Figure 8.1 shows the location of major wetland areas. Wet- gether they constituted about 12 percent of the total area of lands are included in map category "A" - Critical Environ- the Study region. As might be expected, those planning areas mental Areas - on Plates 1, 2, and 3 found at the back of experiencing the most severe flooding are also the areas this report. Both Rhode Island and Massachusetts have with the least remaining upstream wetlands. Only 7 percent established innovative new legislation for the protection of of the land area of the Pawtuxet planning area and 9 per- valuable wetlands. These programs and their current weak- cent of the Blackstone and Vicinity planning area is in wet- nesses are discussed in the Ongoing Programs section which lands. This fact, plus hilly topography in the Blackstone follows. planning area, tends to reinforce the occurrence of high flood flows. In contrast, approximately 18 percent of the Principal Existing Flood Control Structures land area of both the relatively flat Ipswich-North Shore and Taunton planning areas is in wetlands. In those few areas of the SENE region which have histories of flooding, a number of major flood control structures Wetlands have a number of other important values. Some have been built or are under construction. A major por- wetlands overlie valuable sources of ground water. They tion of the costs of these projects has been federally funded. are among the most productive environments for plants and These structures, listed in Table 8.3, are primarily in the TABLE 8.2 DISTRIBUTION OF MAJOR FLOOD PLAINS AND WETLANDS IN SOUTHEASTERN NEW ENGLAND (in 1000's of acres) Inland Tidal Total Freshwater Saltwater Total Planning Area Flood Plains Flood Areas Flood Plains Wetlands" Wetlands Wetlands Ipswich-North Shore 20 24 44 33 15 48 Boston Metropolitan 39 8 47 46 1 47 South Shore 15 15 30 12 5 17 Cape Cod & Islands 8 8 11 15 26 Buzzards Bay 18 18 36 27 5 32 Taunton 33 3 36 60 60 Blackstone & Vicinity 40 1 41 37 37 Pawtuxet 16 0.5 16.5 13 13 Narragansett Bay 21 21 42 21 2 23 Pawcatuck 28 11 39 31 1 32 Total 230 109.5 339.5*** 291 44 335*** Negligible Includes both open and wooded wetlands. Some wetlands areas (A resources) are also included in flood plain areas (B resources). For the region as a whole. all B resources not in A resources total an estimated 420,500 acres (see also Chapter 3, Guiding Growth). These figures are rough estimatei based on 1970 data supplied by the Corps of Engineers. 8-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Blackstone planning area, the region's principal riverine flood control structures have been deauthorized prefer to 40 flooding damage center. take non-structural steps to reduce future losses, and to some extent, accept a degree of tidal flooding damages Two Corps of Engineers coastal hurricane survey reports rather than make further public investments in structural were published in the mid-1960's, one for Rhode Island solutions. and the other for Massachusetts. In both reports, the Division Engineer concluded that no further federally sup- Ongoing Federal Programs ported structural protection projects could be justified at the time. Flood plain management policy has been stated at the fed- eral level with such directives as Executive Order 11296 Despite the extremely high tidal flooding damages incurred and related flood hazard evaluation guidelines, which called in Rhode Island and coastal Massachusetts, four large flood on all federal agencies to recognize flood hazards in their damage reduction projects have been proposed, or are be- construction and grant programs. Further, the U. S. Water ing considered, for deauthorization by the Corps of Engi- Resources Council has provided national direction for inte- neers due to lack of local financial support. In Massachusetts, grating many federal programs through its Unified National the Wareham-Marion project (Buzzards Bay planning area) Program for Flood Plain Management, which calls for full has been proposed for deauthorization. Authorized in consideration of non-structural, as well as structural, tech- 1962, this was a $6.6 million project (in 1965 dollars). In niques in evaluating flood control projects. The EPA also Rhode Island, three projects are being considered for deau- has a policy to protect the nation's wetlands. thorization: Pawtucket (in the Blackstone and Vicinity planning area) authorized in 1944 with an estimated total More recently, this national direction has been reinforced by cost of just under $1 million; Point Judith (in the Narra- the passage of the Water Resources Development Act of . gansett Bay planning area) authorized in 1962 with an 1974, in which Section 73 requires that any federal agency estimated total cost of $7.4 million; and Westerly (in the engaged in the survey, planning, or design of any project Pawcatuck planning area) authorized in 1965 with a total involving flood protection give consideration to non-struc- cost of $10.9 million.) In addition, a $2.5 million tidal tural alternatives to prevent or reduce flood damages. It flood control project, proposed and authorized for Narra- also authorizes federal cost sharing in non-structural project gansett Pier, Rhode Island, has been officially deauthor- costs. Implementation of Section 73 has been deferred-by ized, again because of lack of local financial support. OMB until concerned agencies, under the aegis of the U.S. Water Resources Council (WRC), have considered questions The major projects completed Or under Construction, com- of sound methods of economic analysis of non-structural bined with a number of smaller local protection works, are alternatives. expected to significantly reduce damages which may be caused by a recurrence of floods of record in the region's Section 73, by authorizing federal cost sharing for non- major riverine and tidal flood damage centers. Apparently, structural measures, offers federal agencies the opportunity state and local officials in those areas where major coastal to actually carry out non-structural projects. While federal TABLE 8.3 MAJOR FLOOD CONTROL PROJECTS IN SOUTHEASTERN NEW ENGLAND Planning Total Cost Date Project Area ($million) Completed Charles River Dam Boston Metro $40.0* Amelia Earhart Dam Boston Metro 17.0*** New Bedford Buzzards Bay 18.6 1966 Fox Point (Providence) Blackstone 15.9 1966 Worcester Diversion Blackstone 6.0 1960 West Hill Dam Bla@kstone 2.4 1961 Upper and Lower Woonsocket Blackstone 14.0 1959-66 Projects Estimated cost. Under construction Includes $6 million for a pumping station and related equipment and engineering costs. The dam was completed in 1969; the pumping station is scheduled for completion in 1976. 8-S PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made agencies have been considering non-structural measures as the Pawtuxet, and the Blackstone-Ten Mfle-Woonasqua- Am part of their planning processes, these agencies have fre- tucket-Moshassuck basins, which suffered the most exten- quently chosen structural measures for federal implemen- sive damage in the 1968 floods. Preliminary reports for these tation, recommending associated non-structural measures two planning areas are expected during the spring of 1975. for state, local, and private action. This is because the authorities under which federal agencies have participated The Corps is attempting to broaden the PNB Study in ac- in flood control projects have been worded in such a way cordance with newly promulgated guidelines for urban as to require that non-structural solutions would be a non- studies, to include wastewater management, urban flood federal responsibility. An important exception is the control and flood plain management, municipal and in- Charles River Study, of the Corps of Engineers, which dustrial water supply, extensive flood protection, naviga- calls for federal acquisition of the important natural val- tion, water related recreation, and conservation of fish ley storage areas of the Upper Charles as a multi-purpose and wildlife resources. The reoriented study requires con- project for flood control, recreation, and fish and wild- firmation by the two states and the federal EPA. life management. Previously, federal authority for fund- ing flood control projects was often based on the provi- USDA (SCS) Programs. The federal Soil Conserva- sion by non-federal participants of the costs of lands, tion Service (SCS in the U. S. Department of Agriculture) easements, rights-of-way, and utility modification and is studying several projects under Pl-r566, which author- relocations. Examples of non-structural measures now izes SCS to develop flood plain management and flood being considered for cost sharing under authority of damage reduction programs. Under study in the Woonas- Section 73 are land acquisition, open space preservation, quatucket portion of the Blackstone planning area are permanent evacuation and relocation, warning systems one multi-purpose structure for recreation and flood con- and temporary evacuation, and flood proofing. trol, two floodwater retaining structures, and some stream channel work. Two flood retaining structures and some Other major federal programs for flood control and flood channel improvements are under consideration for the damage reduction are described below. Moshassuck. On the Ten Mile River, a PL-566 investiga- tion includes study of the Bungay River flood control Housing and Urban Development. Under the reservoir and the Manchester Pond diversion. Further National Flood Insurance Program, administered by the discussion of these projects is contained in the planning Federal Department of Housing and Urban Development area reports. (HUD), state and local communities with flood prone properties are required, as a condition of future federally The U. S. Department of Agriculture (USDA) also par- related financial assistance for building, construction, or ticipates in three Resource Conservation and Development acquisition within the HUD-identified flood hazard area, (RC&D) Projects in the SENE region. Areas covered are to participate in the Progra'in by adopting adequate flood the three Connecticut towns in the region, all of Rhode plain ordinances with effective enforcement provisions. Island, and Bristol, Plymouth, Barnstable, Dukes, and New development in areas of special flood hazard would Nantucket Counties in Massachusetts. These programs are not be excluded, but would be subject to special con- flexibly designed to bring federal and, to some extent, struction and building material requirements, more care- state expertise to rural localities to manage a variety of ful siting and drainage, special treatment of wastewater resource problems. The programs have been project- disposal systems, and elevation of the first floor above oriented and include the following categories: critical area the level of the 100-year flood. All Massachusetts and treatment, flood prevention, water-based fish and wildlife Rhode Island communities have been declared flood and recreation developments, land drainage, accelerated prone. Each state has designated contacts to assist mu- soil surveys and other services; technical and financial as- nicipalities in meeting HUD requirements. sistance is available under the program. The projects are joint efforts of state Departments of Natural Resources Corps of Engineers. The Corps of Engineers is con- or equivalent state agencies, conservation districts, and ducting a number of flood control studies such as Sec- regional planning agencies, assisted by the USDA, and tion 205 flood control studies, the Charles River Water- other federal, state, county, and local agencies and groups. shed Program, the Quincy coastal stream studies, and the PNB Study. The PNB (Pawcatuck-Narragansett Bay) National Weather Service. Hurricanes no longer sweep Study area covers nearly five SENE basins: The Pawca- ashore without warning. New aids available to the National tuck (except the south coast of Rhode Island, Narra- Weather Service Hurricane Center include photographs from gansett Bay, Pawtuxet, Blackstone-Ten Mile-Woonas- NASA's Applications Technology Satellites, an improved quatucket-Moshassuck, and Taunton. Authorized shortly pattern for aircraft reconnaissance, and a computer pro- after the major storm of March 1968, the PNB will have gram to identify the coastal area most likely to be affected. as its initial emphasis the development of comprehensive Combined with improved radar coverage, the new tech. flood management programs. Priority is being given to niques permit watch times up to 36 hours and warning 8-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made times of 15 to .18 hours. New forecasting techniques devel- (7) Due to budgetary and manpower limitations, the oped by the Hartford River Forecast Center and the addition number of Natural Resource Officers is not ade- of a well located radar at Chatham, Massachusetts in the quate for the enforcement needs of the entire late 1960's have materially improved both the accuracy of state. the flash flood warning service and the precision of the stage and crest forecasts for locations on the major streams Similar evaluation was made of the Rhode Island Coastal in the SENE area. Wetlands Act, Intertidal Salt Marsh Act, and Fresh Water Wetlands Act. Recommendations resulting from these Ongoing State Programs analyses are included in a subsequent section of this chapter. At the state level there are several programs for protecting natural valley storage areas. In Massachusetts, these include State Departments of Public Works can be requested by the Wetlands Protection Act and the Massachusetts Self- municipalities to conduct studies and carry out flood pro- Help Program. In Rhode Island the programs include the tection projects. But in recent years, in Massachusetts for Fresh Water, Intertidal Salt Marsh, and Coastal Wetlands example, state funding has not been approved. Acts, the Green Acres Land Acquisition program, and spe- dial components of the state's coastal zone management The federal and state programs described above can go a program. Additional federal sources of financing, some- long way toward keeping down future flood damages. But times used in conjunction with these state programs, are unless present rates of development in flood plain and the Land and Water Conservation Fund, a program author- wetland areas is actually curtailed, flood losses could well ized through the National Historic Preservation Act, and approach the NAR estimates. Revenue Sharing. As discussed in Chapter 3, Guiding Growth, the critical The Solutions nature of wetlands as a resource has long been recognized Accordin to the Corps of Engineers' North Atlantic Re- in Massachusetts and Rhode Island, and both states have 9 developed innovative programs for their protection. De- gional Water Resources Study (NAR), average annual flood tailed analysis of the Massachusetts Wetlands Protection damages are expected to increase from $ 10 million in 19 66 Act done for the Study identified several inadequacies in to $60 million by 2020 if development continues in classic the present law which, if corrected, would make the law patterns and no flood damage reduction steps are taken. even more effective: The NAR Study developed two pl ans to reduce these dam- ages, one emphasizing an environmental quality objective, (1) The present law is ambiguous regarding Con- the other an economic efficiency and regional development servation Commission authority to condition- objective. Under the environmental plan, the 2020 flood ally grant, or completely deny, an application damages would be reduced from $59.12 million to $6.33 to alter a wetland; million, $44.29 million reduced through non-structural measures, and $8.5 million through structural measures. (2) The present law limits the review of the Con- Under the economic plan, 2020 damages would be reduced servation Commission to the area and activity to $6.02 million, $42.13 through non-structural, and $10.97 covered by the 'application, rather than to the million through structural measures. entire watershed or aquifer; Alternatives (3) Conservation Commissions for the most part, Using the NAR findings for guidance, the SENE Study con- have neither the necessary training and expe- sidered three basic methods of meeting the objective of re- rience to properly administer the law, nor the ducing flood damages: (a) controlling uses of the land financial resources to hire outside consultants; (non-structural solutions); (b) bringing the river (or ocean) (4) The penalties under the present act are inade- under control through structures; and (c) protecting people quate to deter illegal activity; and buildings already in the flood plain. Each of the alter- natives is discussed below. (5) The Department of Natural Resources does not Controlling Uses of the Land Using Non-Structural clearly have authority to promulgate regulations Controls. The principle behind land use controls or "non- which are binding on Conservation Commissions; structural measures" is to keep people away from flooding, (6) The present Act will not protect many areas rather than flooding away from people. The philosophy be- which are potentially major sources of fresh hind these measures is that it is unwise, indeed generally water supply; and futile, to try to place a natural system, such as a river and its watershed, under structural control. These non-structural 8-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made land use control measures include flood plain zoning, wet- the ecology of the Bay, and would be unacceptably costly. lands protection, subdivision regulations, and building code The Corps' PNB Study, however, may provide further in- restrictions. Recent federal initiatives (as detailed in the sight into those areas of Rhode Island where structural Ongoing -Programs section above) have stressed that it is far flood controls will provide protection to development of more economically efficient to prohibit new development major economic significance. from entering the flood plain in the first place, than to pro- vide disaster assistance and ultimately construct flood con- Protection of Existing Development Already trol structures after the fact. The National Flood Insurance Subject to Flooding. There are several measures for Program does require adequate flood plain zoning with ef- protecting or reducing damages to people and their build- fective enforcement provisions. ings already in the flood plains. Flood proofing is severely limited in its application by cost. Even where econon-d- Because of its importance to flood damage reduction, several cally feasible, lack of financial assistance can limit its use. options for wetland protection were investigated. The alter- It should, however, be more widely used as cities and towns native of giving full control of wetlands to the state was re- pass new flood plain ordinances and building code modifi- jected because, while it would have an effect similar to the cations to qualify for the flood insurance program. Relo- action discussed under the recommendations section below, cation was found to be uneconomical as strictly a flood it provides no mechanism for local participation. The al- damage abatement measure. But where recreational and ternative of allowing full control of wetlands by municipal- other benefits could be derived as well, particularly along ities was rejected because existing local incentives are strong beaches, relocation of flood prone buildings becomes much for development and weak for protecting natural valley stor- more feasible. Weather modification was rejected mainly age areas. Municipalities have always had the right to control because changing nature assumes a risk considered unac- wetlands through zoning, but few have made significant at- ceptable. tempts to protect wetlands in the past. The alternative of recommending regulatory agencies to control development One of the beneficial ways of trying to ameliorate the of wetlands was rejected because, while in theory it is an damaging effects of storms and flooding is a proper warn- ideal solution to reduce the loss of wetlands, it would be ing service which seeks to improve the observation, under- difficult to organize and implement such a program. In addi- standing, and prediction of storms. It also includes the tion, two other approaches to wetland protection were the dissemination of knowledge quickly and widely, as well as formation of regional conservation commissions made up guiding the community in its use. Such a system ensures of representatives of each conservation commission in the tremendous benefits but it needs sufficient money and region; and innovations in zoning by-laws, such as a model personnel to operate. While the many benefits to the com- aquifer by-law which could also protect some wetlands. munities are difficult to evaluate, estimates of average an- nual flood losses avoided because of warnings range from Bringing the River (or Ocean) Under Control 30 to 40 percent (based on two studies of New England Using Structures. The major types of structural con- sites outside the SENE region). The National Weather trolling measures applicable to SENE basins are flood Service estimates its annual cost in providing the flood water diversions, sea walls and dikes, and dams and flood warning service to all of the SENE area at $30,000. control reservoirs. These corrective flood control mea- sures remove, retard, or contain, excessive runoff during Alternative- Plans riverine flooding, or block rising tidal floods. Other structural measures considered possible were removal of The recommended policies and actions are based on analy- dams, channel improvement, and urban redevelopment. sis of two feasible alternaiive plans. The first alternative plan was aimed at reducing flood damage costs below ex- However, the generally low topography of the SENE isting levels using solutions which maximized reduction of region is particularly unsuitable for most structuraJ solu- flood damage costs. Included were actions and policies to tions. Areas such as the Taunton planning area, with flat protect development from flooding using structural solu- terrain, extensive wetlands, and numerous small tribu- tions, requirements of the National Flood Insurance Pro- tary streams, offer no suitable major dam sites. More- gram, and protection of some natural valley storage areas - over, state and local officials have begun to show a dis- whichever yielded maximum benefits. The second alterna- tinct distaste for making further public investment in tive plan accepted a higher degree of damages and was aimed structural controls. In Narragansett Bay, the scene of at keeping current levels of damages from rising; there was extensive tidal flood damages in the past, the Corps of not as much emphasis on reducing costs as in the first al- Engineers' 1965 Hurricane Survey Report indicated that ternative. Policies and actions were designed to protect the most effective protection for Bay communities flood prone areas from development with an emphasis on would be a series of barriers across the Lower Bay. The non-structuralsolutions including maximizing flood plain project met with considerable local opposition because and wetlands protection. of concern that the -barriers would hinder navigation and 8-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Recommendations National Weather Service, state wetlands acts, state land use planning programs, and for coastal areas, with state To summarize, the recommended policies and actions con- coastal zone management programs. Completed flood tain elements of both alternative plans. However, non- plain management programs should be made part of state structural measures are emphasized wherever possible. There level land use and coastal zone management programs. are several reasons for this approach: (1) it is sensitive to the These management programs offer an opportunity for as- natural roles that wetlands and flood plains play in flood suring that the flood plain management recommendations water retention and their particular susceptibility to the are carried out. Actions by federal and state agencies damaging forces of nature (as further indicated in SENE's should be consistent with these flood plain management classification of both wetlands and flood plains as critical programs. resources); (2) it reflects the finding in Chapter 3, Guiding Growth, that future growth in the region can be accommo- Principles developed as part of NERBCs Connecticut dated without using wetlands or flood plains; (3) it takes RiverProgram should serve as guidelines for preparing de- advantage of the relative importance of non-structural tailed programs for river basin municipalities. This approach measures in reducing flood damages, as demonstrated by is designed to maintain flexibility for local decision makers: the NAR analysis (reducing some 75 percent of estimated future damages); (4) it recognizes the importance of Sec- (1) Use of non-structural approaches according tion 73 of the Water Resources Development Act of 1974 to the following: (a) land use restrictions which authorizes federal cost sharing in non-structural and/or acquisition to prohibit any develop- solutions; (5) it recognizes that a number of structural ment in the highest hazard zone (floodway measures that have been under consideration since major or 20-year flood plain), and allow only se- recent storm damages have occurred have already been lected non-residential use of the adjacent approved, or are still under study without enough pub- area (between 20 and 50-year flood plain); lished data to fully evaluate the project; and (6) it notes (b) relocation of essentially all structures that. non-structural measures generate multiple benefits in the high hazard zone and existing resi- in terms of recreation, water supply, and preservation dential structures at the owner's option of landscape quality. Only where existing development out to the 50-year flood plain line; (c) is of significant importance to the economy and non- flood proofing of all existing structures to structural solutions are not available should structural remain in the flood plain, and all new struc- measures be used. tures between the 50- and 100-year flood plain lines; (d) flood insurance for all new In keeping with the Study recommendation in Chapter 3 structures and all existing ones at the that flood plains be classified in category B and wetlands owner's option; (e) flood warning system in category A, the overall SENE policy is: and education program required through- out. 1. Prepare flood plain programs with non- structural emphasis. Comprehensive (2) Limited application of structural approaches flood plain management programs should on a local project basis where justified by a be developed for riverine and coastal flood- high concentration of existing development ing areas. Such programs should make use and a high degree of vulnerability. of non-structural solutions wherever possible. The specific recommendations of the SENE Study are di- This approach is designed to protect undeveloped flood vided into (a) non-structural and (b) structural measures. plains and wetlands in their natural state. It is intended that balanced consideration be given to structural solutions Non-structural Recommendations. The description and that such measures be used selectively where non- of the recommendations which follow presents actions first structural solutions are no longer available. for flood plains and then for wetlands in particular. There are several non-structural measures applicable to the Areas particularly appropriate for development of such SENE area. It is recommended to: comprehensive flood plain management programs include the Ipswich River and the Neponset River in Massachu- 2. Adopt local flood plain zoning preventing setts. As mentioned earlier, such programs are being de- new flood plain construction. Munici- veloped for five SENE planning areas as part of the PNB palities should adopt flood plain zoning to Study. All such programs should be developed in close prevent further development in flood prone cooperation with states and municipalities, and be co- areas (particularly in the 100-year floodway) ordinated with related programs such as the National as defined under the National Flood Insurance Flood Insurance Program, forecasting services of the Program. 8-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Municipal flood plain zoning regulations should take ad- eration of Planning Boards, all in cooperation with the vantage of guidelines and restrictions under state wetlands County Extension Service. legislation, scenic rivers designation, soils map information, etc. Zoning in those municipalities with coastal flood prone 5. Acquire significant flood plains and wetlands. areas should complement the state coastal zone management States or municipalities should acquire flood programs as those programs are developed. Maps upon which plain areas (including wetlands) for uses not the zoning is based should include, in addition to the 100- subject to flood damages or for maintenance year flood level and floodway: wetlands, storms of record, in an undeveloped state. erosion areas, barrier beaches, beaches, scenic river zones, and soils information. Acquisition could also be considered for buffer lands around important wetlands. Financing could be sought There are three important reasons for this approach: through the several programs mentioned in the previous (a) the development capability analysis of Chapter 3 has subsection on ongoing programs. Additional sources of shown that, for the region as a whole, there is enough land federal funding may become available through the cost to accommodate expected development without encroach- sharing provisions of Section 73. ing on Critical Environmental Areas which include flood plains; (b) flood plain lands can be used, as described in Unique natural and cultural sites are included by the SENE Chapter 3, for other important uses, such as agriculture Study in its Critical Environmental Area classification (cate- and recreation, which do not alter or increase channel capac- gories A and B). Unique cultural sites on flood plains could ity; and (c) ongoing flood control studies have shown that be protected by public purchase or other restrictions fi- increased development in the flood plains will raise future nanced through the National Trust for ffistoric Preservation flood heights. Act. Those wetlands and flood plain areas designated as unique natural sites have also been proposed for protection; Together with flood plain zoning, techniques are discussed in a report on the Natural Areas Project of the New England Natural Resources Center. Fur- 3. Establish local regulations to control runoff ther discussion on acquisition of flood plain and wetland and erosion.', Municipalities should establish areas is contained in Chapter 6, Outdoor Recreation.. subdivision regulations and building code re- strictions which include control of the effects 6. Locate in existing safe buildings in the flood of stormwater runoff to control erosion and plain, Where development outside the flood sedimentation; included in the regulations plain is not feasible, municipalities should en- should be guidelines for on-site water deten- courage private interests to consider locating tion basins in new construction to reduce in existing safe buildings in the flood plain, peak runoff, which can also serve as ground rather than permitting new construction in water recharge basins and perhaps recrea- the flood plain. tional ponds. Flood proofing, especially of existing buildings, is particu- These regulations and restrictions should be consistent larly appropriate where only moderate flooding is expected, with, and meet the requirements of, the National Flood In- where other types of flood protection are not feasible, or surance Program. These regulations should also require where activities requiring a waterfront location need some that local interests submit for approval by the Town Plan- degree of protection. All wastewater treatment plants in ning Board and Conservation Commission any proposed flood prone areas must be flood proofed. alteration or modification of existing roadways, utilities, and bridge or culvert openings which could affect drain- 7. Require relocation out of flood plains where age characteristics. appropriate. Local regulations and state guidelines should also require, as they are re- To reinforce local flood plain zoning and regulations, viewed or expanded, relocation of facilities appropriate agencies should: presently located in areas vulnerable to flood- ing where structural protection is not avail- 4. Provide technical assistance to local officials. able or practical and where flood proofing is more expensive than relocation. Programs to assist local planning boards, town councils, and conservation comn-dssions in mapping zoned areas and High priority for planning attention and funding for relo- in carrying out the intent of the regulations, have been set up cation should be given to state and federally-financed fa- jointly by such agencies and organizations as state Depart- cilities such as hospitals and schools, and particularly those ments of Natural Resources, the Massachusetts Association structures in the flood way. of Conservation Commissions, and-the Massachusetts Fed- 8-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Through flood plain zoning and building code restrictions, 0 The Department of Natural resources should authorize the conservation com- 8. Discourage reconstruction or redevelop- mission to require any landowner to inent after storm damage. Municipali- submit plans for all activity planned or ties should discourage or prohibit recon- anticipated by him within a reasonable struction or redevelopment after substan- time period on land in the immediate tial storm damage, particularly in high area of the proposed action to prevent hazard storm areas and along barrier piecemeal development. The landowner beaches. would be prohibited from submitting additional applications for such activity Further, for a specified time period from the date of the original application. Alter- 9. Update and establish flood warning and natively, local conservation commis- evacuation programs. Municipalities, sions under supervision of the state De- guided by state-level Civil Defense pro- partment of Natural Resources should grams, should review, update, and in be empowered to review the entire some cases establish, programs for warn- watershed or aquifer to assess the maxi- ing and evacuation. mum development which will be per- mitted in the area, and landowners Such programs should take advantage of the forecasts and would be assigned a proportional de- warning systems of the National Weather Service, including velopment right. NWS-directed self-help programs. To permit the National Weather Service to expand its flood and storm surge pre- 0 The Soil Conservation Service should diction services: provide federal technical assistance to the conservation commissions through 10. Increase funding for storm forecasting. the Conservation Districts. Congress should provide funding to sup- port additional stream gauging and pre- 0 Additional staff in the State Depart- cipitation stations operated by the ment of Natural Resources should be National Weather Service, the Corps of provided to administer and enforce Engineers, and the U. S. Geological the Inland Wetlands Program (Chap- Survey. ter 131, Section 40 A). A principal component of municipal zoning regulations 0 The legislature should amend the act and building code restrictions should be restoration of to increase maximum. penalties'under development in wetlands, particularly those wetlands the act to $5,000 for each day of il- which are in the flood plain. A special study of the legal activity, such illegal activity to strengths and weaknesses of existing state wetlands laws begin upon violation of a valid court has yielded the following, series of important and detailed order and may be made retroactive, recommendations. except in cases where wetland deline- ation is already a matter of record, 11. Amend and strengthen administration of or to provide alternative penalties such wetlands laws. as either mandatory restoration of the land for violation of the act or con- In Massachusetts it is recommended that: tempt citations. 0 The legislature should amend the Wet- 0 The legislature should amend the act lands Protection Law to expressly pro- to require the Department of Natural vide that an application may be denied Resources to promulgate binding regu- if the proposed action would cause sig- lations on the conservation commis- nificant damage to the protected area sions. and there is no possible way to prevent such damage. Alternatively, the De- 0 The legislature, with cooperation from partment of Natural Resources could the %ter Resources Commission, provide, by its regulations, that the should amend the act to include, as conservation commissions have the protected areas, major aquifers or power to deny an application. potential water supplies susceptible 8-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made to ground water pollution and associated legislature should appropriate funds recharge areas. to enable damages to be paid to a restricted landowner as provided un- � The legislature should create regional con- der existing law, to encourage use of servation commissions empowered to ex- the Coastal Wetlands Act. amine an entire watershed, wetland area or aquifer and set limitations on the maxi- To clarify, standardize, and provide mum amount of development in the uniformity in the application of watershed or wetland area. compensation to restricted land- owners the State legislature should � The Division of Water Resources and the enact a statutory definition of a Attorney General should prepare a model "taking", setting the limits of per- aquifer by-law and supporting memoran- missable regulation consistent with dum of law for innovative use under local current judicial interpretation. Ibis zoning by-laws. would be applicable not just to the Wetlands Laws, but to other regula- � The Massachusetts legislature should tory situations as well. adopt an amendment to the existing law (In a landmark case in Wisconsin - to prevent the conversion of wetlands Just v. Marinette County - the court through agricultural exemption. 'The ruled that the restriction on filling a Study supports the passage by the legis- wetland was designed to prevent lature of pending House Bill Number harm to the natural status quo of 861 to make the provisions of the law the environment, as opposed to be- applicable to alteration of wetlands ing designed to produce a public for agricultural purposes, except for benefit. Therefore filling could be those in active agricultural use as of restricted under the state's police July 1, 1974. power, not,requiring compensation to the landowner.) For wetlands in Rhode Island, it is recom- mended that: 0 Local assessors should reassess re- stricted wetlands under the Fresh � Additional staff should be provided to Water and Coastal Wetlands Acts the State Department of Natural Re- for purposes of property taxation, sources to administer the Fresh Water to reflect lower values. Wetlands Act. 0 The Coastal Resources Management � Using the existing inventory and sur- Council's enabling legislation should vey of wetlands, baseline data should be amended to provide penalties be developed to be used to establish for violation.of its regulations in- a rating system for designating critical cluding regulations for salt marshes. fresh water wetlands of the state. Re- Authority for enforcement should strictive orders should be used to pro- include the power to arrest and fine tect the most critical areas. violators. � The results of an inventory and rating 0 The Enforcement Division of the system of coastal wetlands, now being Department of Natural Resources carried out, should be implemented us- should be expanded to reflect the ing restrictive orders for the most criti- expanding authority of the Coastal cal wetlands. Resources Management Council. � Consistent with judicial interpretation Structural Recommendations. In built-up and of "taking" situations, provisions for heavily used areas such as the Pawtuxet and Black- compensation and a statutory defini- stone planning areas, storm and flooding damages tion of a ... taking" should be added to are already severe, and natural storage area protec- the Fresh Water and Coastal Wetlands tion and other non-structural measures are often not and Intertidal Salt Marsh Acts. Above adequate. the broad definition of "taking", the 8-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made A number of the structural measures under consideration which, as was discussed in Chapter 2, is expected to be in in the region have already been approved or are still under the long-term economic interest of the SENE region. study and evaluation (such as for the Pawtuxet and Black- stone planning areas). Instead of making specific recom- mendations for structural projects, the SENE Study in- INLAND EROSION cludes discussion of the proposed projects and suggests where they should be coordinated with other programs The Situation or reconsidered in light of preferred non-structural mea- sures where available. Inland erosion and sedimentation are generally not major problems in the SENE region, compared to non-glaciated 12. Construct flood protection projects areas such as in Maryland and Virginia. However, localized selectively. To reduce future flood dam- problem areas are associated with the development of open ages, the Corps of Engineers, Soil Conser- and forest lands. The Soil Conservation Service has identi- vation Service, and state and local authori- fied the Narragansett Bay planning area as having the most ties should consider the selective construc- serious erosion problems in SENE. These problems apply tion of protection projects only where both to agricultural lands and to lands undergoing develop- protecting an area of greater than local ment. significance, where the cost is less than acquisition of the flood plain area, or The Solutions where non-structural solutions are no longer available. Recreation, fish and Alternatives wildlife, water supply, and water quality considerations should be taken into ac- Conservation land treatment practices have proved effec- count in the formulation and selection tive in reducing erosion on agricultural and forest lands of each project. and on urban fringe lands. Land treatment practices such as contour farming, cover cropping, terracing, critical Protective structures can provide direct protection against area planting, diversions, pasture and hayland management, loss of property along the coastline, and can help increase proper logging road location, and stabilization could be property values and tax revenues. Individual project and used. Technical assistance is available from the local Cori- engineering costs may be high, thereby reinforcing the servation Districts and the Departments of Natural Re- requirement that such structures can be proposed only sources in Massachusetts,Rhode Island, and Connecticut, where the area to be protected is of high value. Further, through the cooperative Federal-State Forestry Program, future or ongoing studies should be required to include a and through Resource, Conservation and Development comparison of the cost of proposed flood control works Projects. with the cost of purchasing or acquiring easements on flood hazardous lands. Where it is shown that such ac- Provisions should be made for the retention of optimum quisitions are in the public interest, federal and/or state amounts of vegetative cover for watershed protection on funds should be made available for the purchase of land all areas undergoing residential, highway, and industrial de- and/or easements in flood hazardous areas, and for mak- velopment and construction. Developers should prepare ing relocation and flood proofing of existing structures and follow plans designed to minimize the deterioration viable alternatives to structural measures. Application of of the hydrologic balance and the resulting erosion by Section 73 of the Water Resources Development Act of maintenance of vegetative cover during development. They 1974 will be an important factor in making non-structural should utilize the natural landscape in their planning for measures more competitive than they have been. environmental purposes, Where necessary, developers and contractors should apply erosion control measures such as Implications temporary debris basins, desilting basins, seeding and mulching of exposed areas, temporary diversions, and In sum, the policy of applying non-structural measures forest buffer zones during construction. Adequate plan- wherever possible in the context of comprehensive flood ning prior to construction and close supervision of con- plain management programs is expected to minimize struction operations are needed to control sources of future flood damages. This approach is designed to work sediment. with, not against, the natural roles that flood plains and wetlands play in accommodating the forces of nature, Alternative Plans This policy also deals with the reality that in many in- stances in this region structural solutions are not feasible. Alternatives considered for protecting inland erosion Such a policy will also be a significant step toward pro- areas will now be discussed. (a) Establish municipal sedi- tecting the physical beauty of the region's landscape ment and erosion control ordinances. Such ordinances, 8-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made added to existing building codes and subdivision regulations Implications and adequately enforced, would be sufficient to control the problem. (b) Establish appropriate forest buffer zones within Local action supported by state and federal technical 200 feet of streams and lakes through public acquisition of assistance can control the localized instances of inland land and municipal shoreline ordinances. This alternative erosion and sedimentation throughout the region. Such also applies to protection of water bodies which are included action should also reduce water quality degradation due to in SENE resource category B (see Chapter 3, Guiding Growth runoff and sedimentation, and should help to protect (c) Control forest road erosion by proper road location and open space and wildlife habitats. stabilization activities such as seeding and ditching. Recommendations COASTAL EROSION The intensity of the problem will vary with the amount of The Situation development expected. To control erosion from construc- tion sites throughout the region, it is recommended to: The most severe storms to hit the coast of the SENE region are hurricanes, making coastal erosion damages particularly 13. Establish local sediment and erosion control serious for the planning areas in the southern portion of ordinances. Municipalities, assisted by the the region - the Pawcatuck, Narragansett Bay, Buzzards Bay, U. S. Department of Agriculture and the and the Cape Cod and Islands planning areas. This section state Departments of Natural Resources, addresses ways to reduce unnaturally increasing rates of should establish local sediment and erosion critical coastal erosion. control ordinances. The Corps of Engineers has approximated lengths of criti- A model of such ordinances is included in the more detailed cal coastal erosion areas (erosion of about 3 feet or more information available through the Study. Cities and towns per year). These are displayed in Table 8.4 and in Figure with existing high and medium development pressure (see 8.1. Negligible amounts of coastal erosion were measured Chapter 3, Guiding Growth, in the planning area reports) for the Taunton, Blackstone (Providence Harbor area), and should be among the first to implement this recommenda- Pawtuxet planning areas, which have little coastal shore- tion. In municipalities which are almost completely built line. While the extent of erosion is particularly severe up, such as Providence, Boston, Newton, and Everett, there along the southern coastline of the region, there are also is little need for these ordinances. serious erosion spots along the eastern Massachusetts shore- Alternatives (b) and (c) are also recommended selectively in line such as along Plum Island in the Ipswich-North Shore appropriate planning area reports. area and the northern portion of the South Shore planning area. TABLE 8.4 DISTRIBUrION OF CRITICAL COASTAL EROSION Annual Rates of Erosion Planning Area Feet Miles Ipswich-North Shore 12,600 2.4 Boston Harbor area 1,200 0.4 South Shore 25,900 4.9 Cape Cod and Islands 291,850 55.3 Buzzards Bay 1,200 0.9 Narragansett Bay 35,200 6.7 (including Block Island) (31,000) (5.9) Pawcatuck (includes South 8,800 1.7 County shoreline) 376,750 71.4 Source: These figures represent rough estimates provided by the U.S. Army Corps of Engineers. Total does not add due to rounding. 8-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Much of the critical erosion is occurring along coastal interest of the region. A plan stressing restoration and pro- beaches, many of which are currently developed and used tection of critical shoreline areas through extensive struc- to capacity. Increases in beach demand combined with tural controls, thus permitting further development - continual erosion of many beaches suggests that existing technically a plan emphasizing future economic develop- beaches may not be able to accommodate future patron- ment - was considered for the most part an unwise, even age. Additional discussion of beaches considered for fur- futile, investment of public funds, except in those few ther study for protection and restoration is contained areas where the area protected was regionally significant. in Chapter 6, Outdoor Recreation. Finally, a plan emphasizing environmental preservation - a rigid coastal zone management program precluding future The National Park Service is currently developing a new encroachment on marshes and barrier beaches and encour- resource management policy pertaining to national sea- aging restoration of natural impediments to erosion-formed shores. The policy is designed both to serve present visi- the backbone of the recommended plan outlined below. tors, and to preserve these areas in an essentially natural state. Such a management strategy r 'eflects a philosophy Recommendations of living with, and adjusting to, natural events, and ac- knowledges the vital role natural processes play in the Coastal beaches and critical erosion areas were included long-term preservation of areas such as the Cape Cod along with wetlands in the SENE Critical Environmental National Seashore. Areas as Priority Protection Areas (resource Category -A) requiring the greatest degree of protection from develop- In Rhode Island, the state Coastal Resources Manage- ment. This approach reflects the fragile nature of these ment Council has adopted, as part of its coastal zone areas and the dynamic role that uninterrupted natural pro- management program, a set of regulations and official cesses play in the long-term evolution of the areas, as des- maps for regulating barrier beaches. However, overlapping cribed in Chapter 3, and is consistent with the proposed jurisdict ions with municipalities and the Department of National Park Service policy pertaining to national sea- Natural Resources, together with continued challenges to shores. the Council's barrier beach authority, have weakened the potential strength of the new barrier beach regulations. Consistent with, and in conjunction with, the preceding recommendations on managing coastal flood prone areas The Solutions is the following recommendation: Alternatives 14. Manage critical erosion areas through state coastal zone programs. State A number of altern Iative measures were considered for legislatures should ensure that state coast- protecting or enchancing the coastal areas. (a) Planting with al zone management program areas of jur- beach grass and fertilizing areas of the existing dunes, to isdiction include coastal wetlands, barrier reduce wind erosion. Dune stabilization with beach grass beaches, and the coastal flood prone areas will reduce loss of sand into lagoons and estuaries and en- as defined for purposes of the National hance shellfish beds. (b) Restoration and protection of Flood Insurance Program. beaches by direct sand placement (artificial nourishment) In the case of Rhode Island, the Coastal Resources Man- and construction of back-up dikes of sand and gravel, rock agement Council (CRMQ does not have jurisdiction over or concrete walls, and rock groins, where required: (c) Pro- the entire area subject to coastal flooding, even with the tection of erodible bluffs with rock revetments, sea walls, or special jurisdiction of coastal wetlands and barrier beaches bulkheads. More recently, the possibility of using floating above the high water mark. Extension of the CRMC's breakwaters to reduce shoreline erosion has received some area of jurisdiction to include the I 00-year flood prone attention. Restored beaches and protected dunes would act areas would go a long way in integrating the effective ap- as a first line of defense for marshes and lagoons and develop- plication of a number of related programs in areas of ment beyond. Increased beach area would allow greater use coastal influence. In Massachusetts, the area subject to by bathers. coastal management jurisdiction should include the 100- Alternative Plans. year flood prone area. Within the context of the alternative measures discussed Consistent with a coastal zone management program: above, several alternative plans were examined. A plan to 15. Protect critical erosion areas through "do nothing," to allow present patterns of development local regulations. Coastal municipali- and steadily increasing rates of erosion to continue, was des should include, on their flood hazard rejected as being in neither the economic nor environmental maps prepared for the National Flood 8-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Insurance Program, wetlands and areas However, in some cases, structural approaches to control- subject to critical rates of erosion including ling coastal erosion may be justified: barrier beaches and dunes. Town zoning ordinances, building codes, and subdivi- 17. Construct erosion control projects sion regulations should expressly prohibit selectively. Where non-structural tech- development in these areas and should in- niques are not effective in slowing accel- clude other protective regulations to guard erating rates of erosion, such as for eroding against use which would accelerate natural bluffs, the Corps of Engineers, Soil Con- erosion rates. servation Service, and state and local au- thorities should consider the selective Such regulations should incorporate the protective regula- construction of erosion control projects. tions and restrictions of state wetlands laws, and in the case of Rhode Island, barrier beach regulations. The Areas other than eroding beaches and unique natural sites Rhode Island Supreme Court has ruled that the state and can be considered for this type of protection. These pro- municipalities can limit beach access on a non-discrimina- jects should apply methods as similar as possible to natural tory basis if the shore area was endangered by overutiliza- ones, in order to avoid aggravating or transferring erosion tion. Similarly, in Massachusetts, municipalities have the problems. Another coastal restoration effort could include: right, to restrict access to lands under their jurisdiction. Broad authority given to Massachusetts conservation com- 18. Build or restore salt marshes. The missions would include limitation of access to, and use of, Corps of Engineers, state Departments of conservation lands held by the town. Natural Resources and Public Works, and coastal zone management programs should The HUD flood insurance program should encourage in- follow carefully the ongoing and proposed corporation of those areas serving as important buffers pilot projects in salt marsh construction to storm damages by including wave height and velocity or restoration in the neighboring states of in the guidelines for defining flood hazard areas. New York, Connecticut, and Maine with the view that, if these projects are success- Further, states, municipalities, and conservation com- ful, Massachusetts and Rhode Island under- niissions should: take them also. 16. Encourage natural stabilization of Implications coastal erosion areas. Munici- palities, conservation commissions, In sum, an approach which seeks to protect fragile coastal and the states, through their coastal areas from critical erosion, using non-structural means, is zone management programs, should consistent with maintaining the natural character of the encourage such stabilization measures coastal region with benefits both to recreation and open as vegetative cover, snow fences, dis- space preservation, and to tourism and other economic carded Christmas trees, and board walks to activities dependent on maintaining the natural beauty to slow the effects of wind and wave of the region. erosion, particularly on dunes and bar- ier beaches. Funding support could come through implementation funds for the state coastal zone manage- ment programs. Priority should be given to areas experiencing critical rates of coastal erosion (3 feet or more per year). Possible studies of the need to artificially nourish eroding beaches with sand are discussed in Chapter 6, Outdoor Recreation. Only where beaches have potential for recre- ation benefits should beach nourishment be considered. It must be kept in mind that beach nourishment, if done at all, must be done carefully so as not to aggravate or trans- fer erosion problems. Also, it should be recognized that such action will not eliminate the causes of erosion and will therefore require periodic replenishment. 8-16 CHAPTER 9 UNWELCOME FACILITIES The Setting new generating facilities. In Rhode Island, the Coastal Resources Management Council has the @uthority to re- The production of power, the ready availability of fuel, the view, modify, set conditions for, approve.or reject pro- extraction of sand and gravel for construction and the dis- posals for power plants, except those proposed by the posal of wastes are crucial to the continuing health of the state's Economic Development Corporation, which are economy of Southeastern New England. And yet there are reviewed by the General Assembly. Federal involvement few activities of man more unwelcome in most communi- is complex. Revi@wing various aspects of each power ties - few uses of the land more controversial. plant proposal are the U. S. Army Corps of Engineers, the Environmental Protection Agency, the Nuclear Regu- The extraction of sand and gravel is noisy, dirty, and lating Agency (formerly AEC) for nuclear plants, the brings with it heavy equipment traffic. Power plants, re- National Oceanic and Atm .ospheric Administration, the fineries, and solid waste disposal sites are unsightly, and U. S. Fish and Wildlife Service, the Federal Aeronautic are potential polluters. Considering the generally negative Administration, and the Federal Power Commission. This effects such key facilities have traditionally had on the multitude of review authority is eloquent evidence for a physical landscape, the "put them in somebody else's more centralized "one-stop" review of power plant pro- backyard" attitude prevalent in most communities is under- posals. standable. However, from the standpoint of public health we would be worse off without these facilities than we Petroleum Facilities. In siting petroleum refineries and are with them - at least for the foreseeable future. The related facilities the petroleum industry generally tries to objective then, is to determine how badly we need these deal directly with local officials. Their economic lever- facilities and then to provide for them in a manner which age is, after all, pretty powerful. But, as with the sting of minimizes their effects on our landscape. electrical power plants, state involvement and control is on the increase. In Rhode Island, the Coastal Resources The key issue is siting. Where do we site those new facili- Management Council can review, accept or reject refinery ties we legitimately need? The impacts of a new power and related development proposals. Once again, however, plant, a sand and gravel operation, a solid waste processing if the proposal originates with the Economic Development center are much greater than local. Such strategic facilities Corporation, the General Assembly can override the not only serve the needs of more than just the town, they Council's decision. Massachusetts, on the other hand, affect the daily lives of more than just local townspeople. does not have a central clearinghouse or control agency A brief look at who makes these siting decisions is a good for petroleum facilities. The state's Energy Facilities Siting introduction to the key problem in meeting SENE's needs Council regulates electrical power and natural gas facilities for these vital, but unwelcome, facilities. but, as yet, has no authority over petroleum facilities. Federal agencies involved in the review process include the Sand and Gravel. The authority for regulating the extrac- Corps of Engineers, U. S. Coast Guard, Environmental Pro- tion of sand and gravel is essentially a local one. Town tection Agency, Federal Energy Administration, and the zoning regulations define where extraction is permitted, if President's Council on Environmental Quality (for the im- at all, but the permit requirements regulating operations pact statement required). and post-operational site restoration vary widely from town to town so that no uniform policy can be said to Solid Waste Management. Recognizing that solid wastes exist. State interest and responsibility is fragmented among can be an opportunity, instead of a nuisance, both states of the respective state departments of Natural Resources and Massachusetts and Rhode Island have begun programs to re- Public Works and, in Massachusetts, the Office of the State cover these "resources". Rhode Island has established a Geologist as well. There is little federal involvement. Solid Waste Management Corporation. The program, yet to be funded, will improve local management and lead to re- Electrical Power. Energy shortages, always a problem in gional recovery of valuable wastes. In Massachusetts, an New England, have greatly intensified in recent years. This interagency planning unit has proposed a regional solid fact, plus an awareness of the broad environmental impacts waste recovery program which is scheduled for implementa- of energy production, have brought about a significant in- tion in 1976. crease in state control of power plant siting. Massachusetts has established an Energy Facilities Siting Council to con- trol the siting of plants generating 100 megawatts or more The institutional considerations involved in the siting of each in the state. The Council reviews utility forecasts and can of these key facilities are discussed in, detail in this chapter. either accept, reject, or conditionally approve proposals for This chapter addresses, each activity in turn: assessing the 9-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made current situation and reviewing projected demands for these With the construction industry already reeling-from the services; examining several ways of meeting these demands; effects of inflation, the result of cost increases and short- and finally suggesting a series of measures to meet the re- ages of material could be a further slow down of the re- gion's legitimate needs most reasonably. gion's economy. This chapter uses as a framework, several of the fundamental The Situation concepts covered in Chapter 1, Goals and Approach, and Chapter 2, 77ze Setting. These chapters describe, for exam- According to the U. S. Department of the Interior, Bureau ple, the importance of the environment to enhancing the of Mines, production of sand and gravel in the region was region"s economy, and that existing knowledge, programs, and institutions can provide tools for achieving results. 15.3 million tons in 1970. The demand projections for the Chapter 3, Guiding gowth, outlines a rationale and poli- future vary from 23-28 million tons in 1990 and 33-49 mil- cies for protecting Critical Environmental Areas, many of lion tons in 2020 (Table 9.1). Similarly, production of which should be taken into account when dealing with is- crushed stone was 6.2 million tons in 1970 and its demand sues related to siting or managing key facilities such as is expected to be 10.5-13.7 and 17.4-27.9 million tons in power plants or refineries. The approaches described in 1990 and 2020, respectively (Table 9.2). this chapter, take these principles into account. Although The demand for sand and gravel and crushed stone is "de- references are also made in this chapter to several other rived" demand. That is, it is dependent on decisions made portions of this report, Chapter 11, Tying the R ecommen- in the construction industry which, in turn, are based on dations Together, can be referred to in order to determine the orders of individual firms and government for new con- the implications of the recommendations in this chapter, struction. Road construction, which accounted for almost or those described in other chapters of this report. 50 percent of the total sand and gravel consumption in Rhode Island and 30 percent in Massachusetts in 1972, is ONSHORE SAND AND not expected to continue at the same pace as during the GRAVEL EXTRACTION 1960's and early 1970's. Indeed, the 1972 figure for Massachusetts cited above represents a 25 percent decrease Sand, gravel, and stone are mined in substantial amounts from 1971. To a somewhat lesser degree, increases in ur- in Southeastern New England and are a vital component in ban industrial and residential demand for construction ag- the growth of the region's economy. It is the SENE Study's gregates is also expected to be lower compared to the objective to assure adequate supplies of these materials at peak rates of the sixties. Furthermore, the projections in the lowest economic and environmental cost. But surpris- Tables 9.1 and 9.2 are based on Series C projections, higher ingly little is known about the location of potential de- than the recently-available Series E. In view of these con- posits in the region - deposits required if we are to con- siderations, the projections cited above may be somewhat tinue to grow. Without them, construction aggregate, now over-estimated. Yet even if they are, the general lack of a relatively small portion of total construction cost, will information on the location and availability of sand and become an increasingly important building restriction. gravel deposits complicates the task of providing sufficient construction aggregates to meet future needs. TABLE 9.1 PROJECTED POPULATION AND DEMAND FOR SAND AND GRAVEL IN SENE (1980-2020) Sand and Gravel Demand Population!/ Low projection Per capita Low projection V Per capita Year (thousands) (thousand tons) (tons) (thousand tons) (tons) 1980 6,833 19,857 2.91 22,001 3.22 1990 7,905 23,196 2.93 28,086 3.55 2000 8,993 26,535 2.95 345263 3.81 2010 10,228 29,873 2.92 41,274 4.04 2020 11,594 33,212 2.86 1 49,038 4.23 1/ OBERS projection, Series C. V Straight-line projection of sand and gravel production in the years 1959-70. V Projection based on regression of tons of sand and gravel against population for the years 1959-70. 9-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made While sand and gravel deposits were inventoried in role. Commonly, transportation costs double every 8 to 12 Rhode Island in 1964, no accurate survey exists for the truck miles, or 50 railroad miles, or 125 barge miles. Massachusetts portion of Southeastern New England. Even with an accurate survey, however, it is necessary to dis- But the distance between supply and demand, and thus the tinguish between deposits which technically exist and transportation costs, increases as much because of regula- those which are actually available for extraction, Available tions against extraction imposed by the cities and towns as information is especially weak on the relationships between from depletion of existing deposits. Municipal zoning ordi- the stratified drift deposits - the usual source of sand and nances commonly divide land use into four categories: (1) gravel - and ground water recharge. Finally, preemptive rural or agricultural; (2) residential; (3) commercial; and uses of the land and restrictive local ordinances prevent (4) industrial. The activities permitted or proscribed for many safe potential deposits from being developed. specifically zoned areas are generally well defined, and where sand and gravel extraction is permitted, specific lot It is estimated that, from a regionwide point of view, suffi- sizes, hours of operation, haulage routes, depth of excava- cient sand, gravel, and rock suitable for crushing exists to tion, slope control, and so forth are indicated. The realiza- meet needs for the next fifty years. The supply potential, tion that land suitable for sand and gravel operations may however, is extremely site4ocal. While one producer may occur in areas not specifically zoned for mining activity have, or be negotiating for, holdings which would last has led to the provision in some areas for "special excep- another twenty or thirty years, another nearby may have tions" to the zoning regulations. no further possibility for sand and gravel leases, and may have to turn to crushed stone as a source of aggregate, a Some towns require that operating plans be filed, but the move which necessitates large capital expenditures for degree of specificity of these plans is not always spelled new equipment. And that means higher cost to the con- out by municipal ordinances. Restoration of a site may be sumer. required, but what is meant by "restoration" may be open to a wide range of interpretations. Similarly, some munici- The depletion of existing sites and the longer distances be- palities require performance bonds ranging from $500 to twecn new supplies and demand centeis has had a sharp $7,500 an acre to ensure that operational and post-opera- effect on price. Price increases from June 1973 through tional requirements are met. Non-compliance can result June 1974 ranged from 10 to 50 percent. Moreover, in in fines or cancellation of permits. However, not all muni- June 1974, price of washed and screened concrete sand cipalities require such bonds, and there is much latitude varied from approximately $2.35 per ton in Ch,- les River in many of the requirements and in the amount of fines, Basin to $ 1. 10 per ton in the Ten Mile River Basin. While so that no uniform policy concerning operational or post- some price differences are undoubtedly caused by varia- operational requirements can be said to exist. Some cities tions in operating efficiency, the cost of transportation and towns permit extraction, but prohibit export of the (10 to 12 cents per ton per mile) between mining sites finished product outside of the municipal boundaries, thus and points of processing and distribution plays a major limiting the availability of the resource to the region. TABLE9.2 PiOJECTED POPULATION AND DEMAND FOR CRUSHED STONE IN SENE (1980-2020) Estimated crushed and broken stone demand Populationii Low projection Per capita High projectionV Per Capita Year (thousands) (thousand tons) (tons) (thousand tons) (tons) 1980 6,833 8,245 1.21 9,372 1.37 1990 7,905 10,532 1.33 13,762 1.74 2000 8,993 12,819 1.43 17,936 1.99 2010 10,228 15,106 1.48 22,863 2.24 2020 1 11,594 17,393 1.50 27,928 2.41 Source: Bureau of Mines L/ OBERS projection, Series C. V Straight-line projection of 11 year historical crushed and broken stone production (1960-70). V Projection based on regression of crushed and broken stone against population for the years 1960-70. 9-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made These factors - restrictive regulation, escalating costs, and Social costs of stone production and crushing are also diminishing economically feasible sites - have had the ef- higher. Besides having the externalities that are associated fect of directing public attention to the exploitation of al- with a conventional sand and gravel operation, the noise ternative sources for meeting the demand at the lowest from blasting and pneumatic drilling makes a crushed stone possible cost. operation less compatible with densely populated areas. As a result of these factors, crushed stone is not con- sidered an adequate, or acceptable, alternative to The Solutions naturally occurring sand and gravel. Alternatives Offshore Mining of Sand and Gravel. This alterna- tive may offer a very attractive alternative to onshore The Study considered four alternative measures for meeting mining. Large quantities of sand and gravel are known to demand: importation of materials from outside the region; exist off the shores of the Northeastern United States. substituting crushed stone for sand and gravel; offshore These sources could be sufficient to meet the needs of the mining; and identifying, protecting, and sequencing the use region for several thousand years. Except for coastal of onshore deposits within the region. dredge and fill operations and beach restoration programs, there is currently no extensive exploitation of offshore Substitution of other materials, using near-shore resources, mineral resources in the SENE Study area. Although in- reducing demands and not meeting the need were not con- dustrial speculation has been aroused, no leases will be is- sidered to be viable alternatives for satisfying projected sued by the federal government until present disputes over needs. Substitute materials, such as marine muds, although ownership rights to the outer continental shelf (OCS) ad- technically feasible, were not considered practical sources jacent to the individual states are resolved. A detailed dis- for meeting the large needs of the construction industry in cussion of the issues and opportunities for offshore sand the region. Near-shore mining was found to have over- and gravel mining is found in Chapter 7, Marine Manage7 whelmingly negative environmental and, over the long- ment. term, economic effects. Some small demand reduction might be feasible without serious social or economic dis- Identifying and Preparing a Plan for Sequential ruption, but either major reduction in demand, or not Uses of Onshore Deposit Sites within the Region. meeting that demand, would have major adverse impacts This alternative would provide for extraction before the on the economy and, consequently, on the quality of life land is preempted for other uses, for post-operation site in the region. rehabilitation, and planned final development of the site. This alternative suggests that sand, gravel, and crushed Importing Sand and Gravel from Outside the SENE stone production is a legitimate interim use of land which Region. Viis alternative is attractive in the sense that requires uniform protective zoning. It further suggests residents of the Study area would no longer be concerned that extraction sites, if properly reclaimed, can provide with active mining operations, and disturbances to the land open space, recreation areas, and space for commercial from mining would cease. However, there is no guarantee and industrial development. The alternative is technically that other areas would supply these needed materials to feasible. In recent years the technology of extraction has this region. Aversion to mining operations is by no means improved to the point where the industry can operate unique to the people of this region. Moreover, since trans- profitably even under strict standards of performance. portation is such a large proportion of the price at construc- The National Sand and Gravel Association has produced tion site, such supplies would'carry a significantly higher detailed standards and guidelines on site utilization and re- price, and, thus would have a significantly negative im- habilitation, simultaneous excavation and rehabilitation, pact on the regional economy. and pre-operational site planning. The Use of Crushed Stone to Produce Sand and There are, however, certain legal stumbling blocks to en- Gravel. This is already a practice in parts of the SENE forcing a sequential land use plan. The power of local region - notably northeast of Boston in the Lynn-Saugus zoning is sufficient to require that minerals be extracted area. However, to meet the region's sand and gravel needs, before other economic uses of the land are made without stone production would have to at least triple and it is not being construed as a "taking". Furthermore, the issuance known whether available deposits could produce this much. of an extraction permit can make site rehabilitation a Moreover, while sites favorable for crushable stone do not condition for approval. However, it is not within the generally have as high a commercial value as do sand and power of local zoning to require that, once extraction gravel sites (because they are often less favorable for other has occurred, the land must be restored and developed to forms of development), the higher private costs of extrac- another specific use - such as recreation space, commer- tion and of processing equipment, make crushed stone cial, or residential development. Thus a sequential use higher priced than naturally occurring sand and gravel. "master plan" for mineral sites, if based on regulation 9-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made through the local police powers, constitutes a "taking with- The state is the most logical entity to govern and monitor out compensation". the sequencing of mining and site redevelopment. Under the program, the state would assure uniformity and Alternative Plans standardization of operations, provide a level of assist- ance to municipalities and the industry not available to Three alternative plans were examined for meeting the re- the towns themselves and, further, can reconcile compet- gion's needs for sand, gravel, and stone, each utilizing one ing interests between towns. As a political reality the state or more of the measures described above and emphasizing is the only institution capable of adopting this policy. either an economic development or environmental en- hancement objective. The major elements of the program include a comprehen- sive inventory of extractable minerals in both states, state With the first plan, mining would be greatly reduced or promulgation of guidelines for extraction operations, state eliminated in the Study area, The price of aggregates would assistance to municipalities for the establishment of site rise substantially. However, a more important considera- rehabilitation standards, and state licensing of extraction tion than price, ultimately, would be that with the heavy operators. The implementation of this policy to ensure dependence upon outside sources this plan entails, there extraction before preemption, and encourage sequential could be no assurance of adequate supplies of aggregate. use should continue to be through local zoning regulation, It is a situation not entirely unlike New England's petrole- adopted pursuant to the aforementioned state standards. um predicament., Failure to meet the region's needs could well deter needed construction projects, further depress- Following extraction and restoration, to overcome the ing the already dismal construction industry. Moreover, to legal taking issue and yet guarantee appropriate sequential the extent that air, water quality and recreational facilities, use of the site, the state should encourage and provide cer- mass transportation, power generation and other public tain incentives (through planning assistance) to the muni- services, depend to some degree on the availability of cipalitiy for rezoning the site to commercial, residential, sand, gravel, and stone for construction, even the environ- or public use, consistent with the economic needs and en- mental quality objective would, in the long-term, be vironmental aspirations of the community. threatened. In light of the above discussion, the SENE Study makes. A second plan, emphasizing short-term economic gains and the following recommendations: low price, would stress the exploitation of mineral deposits closest to their point of consumption, with little regard for 1. Centralize minerals management authority costly measures for protecting the environment, reclaiming in state DNR. Authority for managing min- mined-out lands, or regulating operations to reduce the eral resources needs to be centralized in each 44nuisance" value associated with them. state. Accordingly, the Massachusetts General Court and Rhode Island General Assembly To a large degree, this has been the industry's approach to should designate each state Department of the problem in the past. But is has not resulted in low Natural Resources as the appropriate agency prices. Rather, it has increased the public hostility to- for mineral resources policy-making, monitor- wards mining operations and has resulted in dwindling ing, and regulation.' availability of the minerals and sharply increasing prices. 2. Conduct state mineral resources survey in Recommendations Massachusetts. To determine the location, quantity and quality of sand, gravel, and stone A third, and recommended program, is based on the Study's deposits the Massachusetts Department of conclusion that, to a large extent, mineral resources in the Natural Resources should conduct, with the region can be extracted and used for the public's benefit assistance of the U. S. Geological Survey, a without causing unacceptable environmental damage, or be- detailed survey of potential extraction sites. ing a nuisance to the great majority of the region's people. The survey could be conducted simultaneously The program takes the view that sand and gravel mining with the survey of ground water and recharge can be the first step in a carefully developed plan for multi- recommended in Chapter 4, Water Supply. ple uses of land in areas under heavy development pressure. This study has high priority and should be in- The recommendations follow the policy articulated in itiated by 1977. Chapter 3, Guiding Growth, that the identification and ac- quisition of sites for regionally significant facilities such as Once the authority for managing mineral extraction has sand and gravel pits, is as important to the future of SENE been centralized under the two state Departments of as protection of Critical Environmental Areas. Natural Resources, a minerals management program 9-5 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made should be implemented consisting of, but not limited to, what degree we can, or should, look to others to supply the following: US. 3. Create minerals public education program, The Situation aimed at encouraging municipalities to pro- tect, through zoning, sites identified in the To determine power consumption and future peak demands minerals survey for extraction. in the SENE region, any utility serving any portion of the 4. Provide state guidance to municipalities in Study area was included. As a result, the SENE "service establishment of a permit program, area" is approximately 10 percent larger than the 4,400 regulating mining operations and site re- square mile Study region. clamation. In 1970, consumption in the SENE service area was 25 mil- 5. Promulgate statewide operating and reha- lion megawatt hours. This increased to 26.3 million mega- bilitation standards for mineral extrac- watt hours in 1971 and, according to the Federal Power tion to assist local permitting. Comirdssion's most recent figures, consumption can be ex- pected to increase to 44.4 million megawatt hours in 1980, 6. Establish state licensing of mineral extrac- and 83.6 million megawatt hours in 1990. These figures tion operators. represent a steady decrease in the annual rate of consump- tion increase from 7.6 percent in 1971 to 6.8 in 1980 and 7. Begin staged state reclamation of abandoned 6.1 in 1990. The Federal Power Commission (FPQ cur- extraction sites for recreational use in rently estimates that the rate will decrease to 4 percent areas deficient in recreational opportuni- annually by 2020. ties as indicated in Chapter 6, Outdoor To serve the public's consumption of 26.3 million mega- Recreation watt hours in 197 1, the utilitibs in SENE had to provide Implications for a peak market demand of nearly 5,000 megawatts. (Energy consumption = capacity multiplied by the number Implementation of these recommendations would eliminate of operating hours in a year.) In aactition to that capacity, the fragmented authority for minerals management in the they are required to maintain a reserve capacity of approxi- two states and go a long way toward assuring an adequate mately 25 percent. By 1990, according to the FPC, the supply of reasonably priced construction aggregate for the utilities in SENE will have to provide for a peak market region. The program serves both the region's needs for con' demand of almost 16,000 megawatts plus the 25 percent tinued economic growth and provides a measure of protec- reserve. tion from the traditionally negative social and environmen- The Energy Crisis and Projecting Demand tal effects of mineral extraction. Moreover, it recognizes that land dose to sources of demand for sand and gravel is Demand figures like these, which in fact are the FPC's most already under heavy development pressure and provides a conservative to date, have come under increasingly heavy system for ensuring that, once extraction is completed, the fire in the last year. Many economists claim that electricity site is returned to the market place in condition suitable for consumption will steadily decrease as increases in costs redevelopment. continue to escalate the cost of electricity. It is true that electricity consumption, especially in the commercial sec- ELECTRICAL POWER tor, is, at present, slightly price elastic. Indeed, Boston Edi- son has postponed Plymouth Unit #3 based, in @art, on It is by no means unanimous, but it is probably safe to say significant decreases in commercial demands. Realistically, that there are few things which people would rather not however, demand is responsive to much more than price: have in their back yard than a power plant, whether nuclear personal income, population growth, technology, public or fossil. And yet, like it or not, we are tremendously de- policy, conservation programs, changes in style and taste, pendent upon abundant and cheap energy, especially elec- and the cost and availability of alternative sources of energy. trical energy. And, by all accounts, to a greater or lesser Without other fuels for consumers to switch to, they have extent, we will be more so in the future, because electrical no alternative but to use electnicity - whatever the price. power's share of the region's total energy demand is ex- pected to increase steadily in the next several decades. The Ultimately, however excessive analysts may feel these pro- Study region is technically self-sufficient in power genera- jected rates of consumption increase may be, one fact is tion today. To meet tomorrow's needs we need to know undeniable: consumption of electricity will continue to how much power we need, whether we can generate it increase. without harming ourselves or our surroundings, and to 9-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Meeting Future Power Needs line costs assumed, a 50-mile increase in transmission dis- tances would add 4.5 to 8.5 percent to the total unit cost Whether the annual growth rate for electricity is 2 percent per kilowatt hour. or 6 percent annually, SENE will need more electricity. Assuming that there are no areas elsewhere in New England Perhaps a more serious cost problem from the point of view willing to accept the burden of providing power to plants to of reliability of the existing and planned expansions of the meet SENE's needs, and that SENE does not wish to sig- region's generation capacity is the staggering increase in nificantly decrease the reliability of its power by signifi- capital costs. Power plant capital costs have risen from 'an cantly increasing power importation, a considerable in- average $119/kilowatt in 1965 to $558/kilowatt in 1974. crease in generating capacity will be required in the future. Plymouth #1 of Boston Edison, a 665 mw nuclear plant completed in 1972, cost $3 SO/kilowatt. This represents an With residual oil as much as 40 percent higher in SENE increase of something over 18 percent per year compounded and the rest of New England than elsewhere in the nation, annually. and coal switching technologically and environmentally nettlesome, large future generating plants are expected to The cost of labor and materials and the undvailability of be nuclear powered. Major new generating units pro- capital has caused serious slippage inplanned additions to posed in, or near, the SENE region (Plymouth, Mass., the generation system. The slippages have, in turn, re- Seabrook, N.H.) are all nuclear, as are the Federal Power sulted in higher costs due to inflation. It is a vicious circle. Commission's long-term (post-1990) suggested additions To compensate for delays it is likely that plant capacity to the region's generation capacity. Existing power plant reserves will be decreased with a resulting decrease in the sites and those proposed by the utilities or suggested by reliability of the system. the FPC are displayed in Figure 9.1. It was not within the scope of this Study to present a Cost Implications of Alternative Sites detailed discussion of environmental and safety costs. Most of what is known of these effects is familiar. Much re- The cost of new capital and of meeting environmental and mains to be researched. While the precise impacts of ther- safety regulations has become such a difficult problem mal discharges to the ocean are unclear, we know they are that a significant amount of slippage is occurring in the at least locally significant. At the same time the difficulty schedule for additions to the region's generating capacity. of disposing of radioactive wastes and the long-term ef- fects of continuous low level emissions buildup in the food Among the factors affecting market costs are: land chain may be of far greater concern than the thermal load- prices; variations in transmission line distances and their ing problem. A collective decision must be reached as to associated land costs; the cost of labor material, services how much risk society will accept in return for the bene- and money; changes in the scope of the project; and fits of nuclear energy. This decision must be reached at the schedule slippage. highest levels of government and with the fullest possible public debate. Of the total plant capital (assuming $2,000 per acre and 500 acres per site) approximately 0.3 to 0.4 percent repre- State Institutional Arrangements for Siting. In De- sents investment in land. Moreover, since land is a non- cember 1973, the Massachusetts legislature passed an en- depreciable asset, the final impact of land costs on e,lec- abling act creating the Electric Power Facilities Siting tricity rates would be even less. Therefore, changes in Council, renamed the Energy Facilities Siting Council in location are not likely to change the relative weight of August 1974. The Council has the authority to control land costs in any considerable manner. the siting of power plants of 100 mw or more in the state. Under the act, each electric company must file with the Transmission line costs include the costs of land and land Council by December 31, 1975 a ten-year long-range fore- rights, towers, poles, cables, construction, and engineer- cast with respect to the electric power needs of its market ing. Excluding land costs, a current rule of thumb for area. Such forecasts will include proposals for construc- transmission line costs is $160,000 to $200,000 per tion of power plants, and the Council will either accept, mile for a 345 kv line. Assuming one 345 kv for each reject, or conditionally accept the forecast, after public 500 mw of generating capacity, this implies approxi- hearings are held. If plans are accepted, electric com- mately $320,000 to $400,000 per mile of transmission panies may proceed with their planned construction of a line for a 1,000 mw-generating plant. Adding land costs power plant. In the event that any other state agency or at 45 acres per mile at $2,000 per acre would raise. this department, or any local agencies or departments, attempt total to $410,000 to $490,000 per mile of transmission to block such construction, the electric company may ap- line. To assess the impact of differences in transmission ply to the Council for a "Certificate of Environmental line costs related to distance, on final cost, consider a Impact and Public Need". If granted, the certificate would range of sites for which the range in distance factors is override the power of all other state agencies and the electric fifty miles. Depending on the range in land costs and 9-7 Existing plant0 Scheduled or proposed plants for 19840 Additional sites which have been considered to meet 1990 needs (actual site location not yet determined) Type of generation- @Cj Number of units - Type of generation: C' internal combustion F fossil steam H hydroelectric G gasturbine N nuclear F A r 1 .4 rl c vczaij f P'7@ Til@ r F5 c4pe @00 0.4y rj f F2 if F IL V_/ #,4#rvcrrr MILOS KILOMOTeRS NEW ENGLAND RIVER BASINS COMMISSIONFIG. BOSTON, MASSACHUSETTS EXISTING BULK AND PEAKING POWER PLANTS,- NO. PROPOSED BULK POWER PLANT SITES - 1990 9.1 SOUTHEASTERN NEW ENGLAND WATER AND RELATED LAND RESOURCES STUDY 9-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made utility would receive permission for the construction of the August seasonally, as well as during daily peak periods - facility. The Council may also reject or conditionally ac- demand exceeds base load generating capacity. To meet cept an application for a Certificate. Public hearings must that need, peaking technologies such as gas turbine and be held in connection with an application. The Council pumped storage facilities must be brought "on line" at does not, however, have the authority to inventory and higher marginal costs. secure for future development potential power plant sites in the state. Placing a premium on peaking power - peak load pricing - would have the effect of discouraging power demand during. In Rhode Island, the Coastal Resources Management Coun- on-peak periods, smoothing demand peaks, reducing the cil (CRMC) has the authority to review, modify, set condi- need for "standby capacity," and reducing the average cost tions for, approve, or reject proposals for power plants. per kilowatt hour over an annual period. The savings in However, should the proposal be made by the state's cost could be passed on to consumers or be used to improve Economic Development Corporation, the Rhode Island environmental control technologies. General Assembly has final review and authority over the CRMC. The CRMC does not appear to have the authority Revising the Rate Structure. The current rate struc- to secure sites for future development. A five-person staff ture which, in effect, rewards heavy users of electricity is being created under the direction of the Chairman of the with lower per kilowatt hour rates could be changed to a Public Utilities Commission (which has responsibilities for system which increases the rate per kilowatt hour as con- rate setting) to act as the primary agency of the executive sumption increase. This would also provide a measure of branch in all energy matters. consumption management. Detailed studies will be neces- The Coastal Resources Center at the University of Rhode sary to show what the economic consequences of this rate Island, which serves as the technical arm of the CRMC, structure might be. is currently making a study of the most suitable sites for According to the recently released Ford Foundation Energy power plants in Rhode Island. The study will take into Policy Project, adoption of these and other measures - consideration the basic standards and criteria that apply stringent fuel performance standards for new cars, encour- to all projects, as set forth in the enabling legislation of aging more efficient space heating and cooling, revising the CRMC: (a) the need and demand for various activi- building codes and standards - could slow the total energy ties and their impact upon ecological systems; (b) the consumption rate to two percent per year by 1985. And degree of compatibility of various activities; (c) the while one may question the target date or quibble over the capability of coastal resources to support various activi- most realistic percentage, the basic question is clear: to ties; (d) water quality standards set by the Department what extent can we reduce our overall energy consumption of Health; (e) consideration of plans, studies, surveys, rate in the Study region, and thus our total demand for inventories, and so forth, prepared by other public and electrical power, without crippling the economy? A state- private sources; (f) consideration of contiguous land program of public education stressing specific measures for uses and transportation facilities; .and (g) consistency reducing power consumption would be the key in any de- with.the state guide plan. mand management effort. The Solutions Alternatives for Power Plant Siting Perhaps no issue has received greater attention in recent Obviously, since power plants have been built successfully months than production and consumption 'of power. The in the past, several alternatives to the siting problem are following measures appear to be viable alternatives for possible. meeting future needs. Continue the Present Siting System. The existing Alternatives for Demand Management system, however, is reactive rather than direct, and the ap- provals process is fragmented. Two problems loom largest. In the face of worldwide concern about the availability The initiative for finding a site is left to the utility, and re- of fuel resources, the simultaneous multiplying of safety cent history has illustrated that the utilities have not always and environmental risks, and the spiraling cost of pro- been good judges of either the development capability of viding new technologies, it becomes clear that it is in the the site or the social atmosphere surrounding it. The result national welfare to reduce the rate of consumption growth has been lengthy delays in bringing new capacity on line, before counting up the new power plants we need. thereby greatly increasing the overall cost and decreasing the overall reliability of the system. Second, the approvals Efficient Pricing of Electrical Power to Reflect process - getting clearance from all federal and state agen- the Marginal Costs of Supply - In peak power de- cies involved - is maddeningly fragmented, and no safer mand periods - November to February and July to for being so. Again, the result is increasingly longer lead 9-9 PUBLIC REVIEW. DRAFT SUBJECT TO REVISION Line by Line Changes can be made times and costs, with the added problem of weakness in funding for research and development in the more exotic design and operations control. energy sources: wind, solar, magnetothermodynamics, and others. Yet it also recognizes that even were break- Create One-Stop Coordinated Federal-State Re- throughs imminent, which they are not, it would take view of Proposals. S u ch a program would largely many years to implement them extensively. The purpose eliminate the problems resulting from the current review of the Study is to recommend economically realistic and system. The utilities would benefit from a shortened environmentally safe measures for meeting SENE's power review procedure, the state and federal agencies would needs until new technology can take over, probably not benefit from cooperation and would be provided a process before 1990. The Study concludes that nuclear power, which decreases the opportunity for something being over- supplemented, by fossil, developed under the strictest con- looked. The consumers would benefit as well from de- trols available, and sited in the least damaging areas of the creased costs, shorter lead times, and better proposal re- region, is the most realistic technology for meeting near- view. and n-dd-term needs. Establish Program of State Identification and Alternative Plans Protection of Potential Power Plant Sites. This step would guarantee the state and its people that sites are In light of the foregoing, the following alternative plans chosen with greatest possible attention to development cap- were investigated to meet the region's power needs, one ability, environmental impacts, and the mood of the local maximizing econon-dc development and another environ- community to such development. Such a state planning mental quality. process would be more costly initially than the existing system but, once sites have been identified and steps One, the plan emphasizing economic development, would taken to secure them for the future, the benefits of de- favor power plant sites and generation technologies with creased litigation and costs to consumers would be far the least cost, the most efficient operation, and making the greater. greatest contribution to the regional economy. Since the Study area is well endowed with cooling water, this plan To facilitate decision making on the siting of such key fa- calls for Southeastern New England to become a net ex- cilities as power plants, whether nuclear or fossil, signift- porter of power to New England as a whole. The plan ' cantguidance can be obtainedftom the SENE Study's would give special priority to location of power plant detailed resource capability analysis. The Study has sur- sites, would permit thermal loading of coastal waters and veyed and mapped the land resource characteristics of a degree of air and water contamination without violating the entire land area in the Study region. As discussed in standards, and would allow transmission preference over Chapter 3, Guiding Growth, the result of this analysis aesthetics. was the classifying of SENE's lands on the basis of limita- tions and opportunities for development. While the Devel- Another plan, emphasizing environmental quality, re- opment Capability Maps are not sufficient for detailed en- places economic goals with maximum environmental gineering and design, they are especially useful for recon- security and would cause it to be more beneficial for naissance study to locate sites with the least potential for SENE to become a net importer of power from elsewhere resource conflicts. in New England. This plan would place fewest demands on the resources of the Study area but would simultane- Using the resource capability data, complex and contro- ously reduce the reliability of service, reduce efficiency, versial siting decisions can be facilitated and impacts and create substantially higher costs. anticipated and minimized. In a hierarchy of land use measures, the Study places the same emphasis on identi- Recommendations fication and acquisition of sites for such key facilities as power plants as it does on protection of Critical Environ- The recommended program emphasizes energy conserva- mental Areas. Both are important to the continuing eco- tion and demand management with.a general goal of base nomic health of the region. load self-sufficiency, prefers nuclear base load generation for at least the period to 1990, stresses fossil power for The Technological Innovations Alternati@e peaking generation, provides siting guidance, and empha- sizes expansion of existing sites to limit impact and achieve Another alternative is to look to new technology to meet economies of scale. The program includes the following future energy needs. The reasoning is attractive, straight- programs and priority actions: forward, and popular: if we can put a man on the moon we can find clean, safe ways to meet our future power Demand Management and Conservation. While ad- needs. There is a good bit of truth in such reasoning, but ditional generation capacity will be required to meet there are limitations as well. The Study endorses increased 9-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made SENE power demands, much can be done to slow the rate cut-rates for off-peak use; Of consumption'. and 8. Create state energy conservation education explore the cost-justification for program. Top priority should be given in each adjusting the rate schedule so that state to the creation of a wide ranging public per-unit rates increase as consump- education program aimed less at exhortations of tion increases. conservation and more on specific measures for reducing consumption. Siting. To assure the availability of suitable sites for future generation capacity. 9. Set state energy consumption rate reduc- tion goals. In light of the Ford Founda- 12. Identify and secure power plant sites tion's Energy Policy Project findings and for the future. The Rhode Island Gen- recent national conservation initiatives, it eral Assembly and Massachusetts General would be appropriate for each state to set Court should expand the authority of energy consumption rate reduction goals the Coastal Resources Management Coun- as an element in the public awareness cil and Energy Facilities Siting Council, program. respectively, to permit those agencies to identify and secure sites for future devel- 10. Implement conservation measures. Among opment. The goal of the region should be the measures which should receive state to minimize, to the extent possible, de- endorsement and implementation are: pendency on external sources of supply. significant tax credit incentives for 13. Avoid Critical Environmental Areas for energy consumption reduction mea- future sites. The state siting agencies sures in the residential, commercial, should avoid areas within SENE resource and industrial sectors; categories A and B for generation fa- cility siting. Sites in category C should revision of building codes to include be very carefully reviewed for environ- mandatory increases in insulation mental, economic, and social impact. requirements and standards in new buildings; 14. Maximize development at existing power plant sites. Wherever possible the mandatory reductions in lighting, state siting agencies should require full space heating, and cooling levels in expansion of development capability all public and commercial buildings; at existing facility sites and/or redevel- opment at abandoned sites. labeling and taxing low efficiency, high energy use appliances; 15. Upgrade or phase out inefficient plants. Existing near-urban fossil units should use of waste heat in the design and be phased into a peaking program to operation of all new public build- minimize their use. Units presently ings; and violating air quality standards, or op- erating under variances, should be up- utilization of processed refuse as fuel graded immediately or retired. supplement in fossil fuel plants. 16. Put lines underground during urban re- 11. Revise pricing policy. To bring rate schedules development. A program of selective more in line with the full marginal costs undergrounding of existing overhead of supplying power, the Massachusetts and transmission and distribution lines Rhode Island Public Utilities Commissions should be established by power com- should encourage state legislation to: panies in concert with large urban re- newal programs or new suburban establish a schedule to encourage development. substitution of off-peak for peak .power consumption, either through 17. Provide interim recreational use of unde- premium pricing for peak use or veloped power plant sites. The 9-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION' Line by Line Changes can be made state siting agencies under expanded ports or refineries. Rather, the purpose of this section is authority should provide interim to provide some insight into the nature of petroleum de- recreational uses of sites securedfor mands, mechanisms for managing these demands, and future development of power plants. guidelines for siting major facilities should that decision be made, in a manner which is economically sensible and 18. Reorganize and simplify licensing. proce- environmentally safe. dures. To simplify the licensing procedure, reduce the lead time The Situation for facilities, and provide better ac- cess to information on the develop- Of the 31.2 million tons of petroleum products received at ment proposals, the federal and Southeastern New England's ports in 1972, 27 percent was state agencies responsible for per- gasoline,.31 percent was distillate (primarily #2 home heat- mitting or licensing any part of ing fuel) and 42 percent was residual oil (used in power new electric generating facilities plants and industry). Moreover, SENE con Isumers paid as should establish an inter-agency much as 40 percent more for some of these products than review board in each state to act consumers elsewhere in the nation. with finality on proposals subject to due process in the courts. It would be logical to assume that anyone with that big a Implications corner on the demand for a product would try to achieve some degree of control over the supply of that product. Implementation of these recommendations would recog- Yet there are no refirieries in SENE, nor in all New Eng- nize both the vital part electrical power plays in the land for that matter. New England is so far away from the maintenance of public health and welfare, and the po- nearest refinery that pipelines are not feasible and oil prod- tential risks of power plant development. It. is felt that ucts must be shipped by tanker. And SENE's developed the recommendations constitute a realistic program ports, as elsewhere in the nation, are so small and shallow which will provide adequate electrical power under they are unable to accommodate today's modern deep fairly rigorous, yet practical, demand management draft tankers. The result is numerous small tanker calls, guidelines to meet the needs of the people of South- heavy harbor congestion, frequent "nuisance" spills, and eastern New England in a manner which supports con- a steadily increasing probability for a spill of major propor- tinued economic development and assures social well- tions. Existing storage facilities, with an average of seven being. Moreover it provides a mechanism for stream- inventory turnovers annually, are nearly used to capacity 0 and are reaching the point of being unable to safely meet lining the siting and licensing process through efficient demand. state and federal action. Finally it places priority on the provision of suitable sites now to meet future generation requirements at the least cost to the environment and By the second month in 1974 the Arab oil embargo had social well-being. By recognizing the importance of begun,to significantly affect the normal course of economic siting regionally significant facilities such as power plants, events in the nation, and SENE's consumers were beginning while at the same time recognizing the importance of to realize how dependent on foreign oil they were. In fact, Critical Environmental Areas, both the region's economic of the 1.1 million barrels per day consumed in New Eng- a,hd environmental goals will be served. land in 1972, 360,000 barrels, or one-third of the consump- tion, were directly imported from foreign refineries. In ad- dition, 25 percent of the products which were domestically PETROLEUM FACILITIES refined were from foreign crude. As a result New England, and SENE in particular, is directly or indirectly dependent The United States is the most oil hungry nation in the upon foreign imports for almost 50 percent of its needs. world and New England is the most oil hungry region in This makes the region particularly vulnerable to foreign the nation. With only six percent of the nation's popula- cutbacks. tion, New England accounted for over 20 percent of its oil consumption in 1972 - over 1.1 million barrels per This inordinate dependence upon foreign supplies, and the day. Indeed, during the last two months of 1973, the nature of increases in demand projected for the future, have only part of the world more dependent on foreign oil made" parts of SENE the target of a barrage of proposals for than New England was Japan, developing petroleum'receiving and refining facilities. Pro- posals are actively being promoted by a number of entre- The Study does not attempt to add to studies already preneurs, including several independent oil companies, at underway to determine for the New England Governors least one state government agency - The Massachusetts the economic and environmental impacts of deepwater Port Authority (Massport) - and other interests as diverse 9-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made as Greek shipping companies, and a local dairy products with a minimum of environmental disruption. As indicated company. Notable in their absence are the major oil com- in Chapter 3, Guiding Growth, it is a policy assumption of panies. These proposals are shown on Figure 9.2. the Study that protection of potential sites for key facilities is as important to the future of the region as the protection It should be noted that, despite this flood of proposals of Critical Environmental Areas. and a number of studies assessing the impacts of petro- leum development in New England, the question of whe- Institutional Considerations ther the region would gain lower prices, a more secure source of petroleum products, or significant economic In addition to the market and environmental factors affect- benefits from regional refining has yet to be clearly re- ing refinery location decision, there are economic, political, solved and a resolution does not appear likely. and institutional considerations involved. While the siting and operation of a refinery, for example, have been shown Market and Environmental Considerations to have little effect on the region as a whole, the local ef- fects are considerable. With this kind of leverage the indus- However, if the region's decision makers were to'deter- try's best bet for siting is to bring a proposal directly to the mine that a degree of self-sufficiency in oil refining is in locale. The very nature of the petroleum industry's intensely the region's best interests, the next appropriate question competitive production, refining, distribution, and market- would be to ask what configuration of facilities - refin- ing activities, combined with local economic leverage, ap- eries, terminals, pipelines, and tankers - would best serve pears to minimize coordination with state or regional siting New England's needs. If New England as a whole were to agencies and plans. Nevertheless, the following institutional set a goal of 100 percent self-sufficiency by 1990, refin- arrangements are worthy of mention. ery capacity somewhere in excess of 2 million bbls/day, or eight of today's 250,000 bbls/day refineries would be In Rhode Island, a potential conflict in power plant and required. In SENE the figure would be about half. And refinery siting authority between the Coastal Resources each of these refineries, or some "super refinery" combi- Management Council (CRMC) and the Economic Develop- nation, would require deepwater crude oil offloading ment Council (EDC) appears to have been resolved. It has facilities and a refined products distribution system. been determined that CRMC has authority over EDC for such siting decisions. According to an "observation" by With over 50 percent of the New England consumption the Rhode Island Attorney General, the State General of oil and an expected 5.3 percent annual increase in de- Assembly can review, accept, or reject an EDC proposed mand to 1985, decreasing to 3.4 percent thereafter, power plant or refinery over CRMC's opposition. However, economies would indicate that SENE has the most favor- CRMC has final authority over proposals not originating able market scale and distribution logistics for the de- with the EDC. And, in addition to its utility regulatory velopment of a refinery complex. Within these market functions, the Public Utilities Commission will also have considerations, however, the physical effects of any re- responsibility for developing a comprehensive state energy finery decision vary with the ultimate configuration of program. facilities, for example, inland vs. coastal refineries, coastal vs. deepwater terminals, pipeline vs. tanker dis- In Massachusetts, the state's Electric Power Facilities Siting tribution, etc. Council, created in December 1973, had its authority ex- tended by amendment in August 1974. Under the amend- By far the greatest physical effects of oil refineries are ment, the renamed Energy Facilities Siting Council has ad- on land. For example, a 250,000 bbls/day refinery re- ditional authority over natural gas facilities. However, while quires 1,000 to 1,500 acres, including necessary 40-day the Council's authority is being reviewed again, at present storage capacity and "green belt" treatment. Similarly, it has no authority as a petroleum facilities review body. expansion of existing tank farms, located near offloading terminals in major product demand centers, will require large tracts of scarce urban and urban/coastal land. Ter- The Solutions minal development, whether coastal (as in Narragansett Demand Management Alternatives Bay) or offshore (as off Nahant, Massachusetts) may re- While the majority of recommendations described below quire a degree of dredging, with the potential problem deal with facilities siting and configuration, much can be of disposing of partially polluted marine sediments. Distri- done to significantly decrease the rate at which we con- bution of refined products may result in significant dis- 'sume petroleum and other energy sources. As described in ruption during construction in the case of pipelines and the section of this chapter dealing with electrical power, a a higher probability of oil spill occurrences in the case recent Ford Foundation study claims that We can reduce of coastal tankers. In light of these considerations, it is the rate of growth of petroleum consumption to two per- clear that a system is required for the identification and cent per year. Indeed, the oil shortage in New England protection of sites when these requirements can be met depressed demand, according to the Massachusetts Port 9-13 Existing Petroleum Receiving Terminal (other than power plant sites) Proposed Deepwater Terminal JA Proposed Refinery . . ......... 7_7 %v AFASSAc#vszrrs Room Wpm RAY A rtAwric acrA# 7 'Y/ N, `_4 I AL Jr CAPE coo PAr N -7 xi V T L it k ;J@/ L .7 X #1fijVr4VCjrEr SOUND 10-- ALOCO 1SXA#V sov#v MILES KILOME19.6 NEW ENGLAND RIVER BASINS COMMISSION FIG. BOSTON, MASSACHUSETTS EXISTING AND PROPOSED NO. 9.2 SOUTHEASTERN NEW ENGLAND PETROLEUM FACILITIES WATER AND RELATED LAND RESOURCES STUDY 9-14 r PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Authority, from 4.3 percent in 1972 to 2.4 in 1973. Whe- Distribution. Again, coastal tankersare a possibility. Yet ther that level could have been continued longer, without if the region's goal is to lessen coastal tanker trips and the causing major disruption to the region's economy, is unclear. probability of accident, then clearly pipeline distribution In 1973 the incentive for demand reduction was price. In systems within certain cost limitations are preferred. Though the future we will have to develop more imaginative incen- it is unlikely that any refinery within SENE would have a tives. Insulation standards for new construction can be up- solely SENE market, distribution by pipeline in the Study graded, tax deductions can be made available for voluntary area would be preferable from an economic as well as measures to decrease consumption, the states can establish strictly environmental point of view. and promote demand management goals in every economic sector through public awareness programs. Setting a per- Alternative Plans cent goal for slowing the rate of consumption of energy may be unrealistic. Yet much "fat" remains to be trimmed This discussion has given scant attention to the potential - the potential for reducing petroleum demands exists. In- reserves of oil and gas on Georges Bank, the renowned fish- deed, after the tight winter of 1973, we are already accel- ing grounds on the outer continental shelf off Cape Cod. erating consumption today. little is known about the nature or scope of these reserves, and MIT's Georges Bank Petroleum Study suggests that the Facilities Alternatives existence or non-existence of oil off SENE's coast is not likely to be a major factor in the economics of petroleum The following discussion presents several alternative steps facilities siting. The MIT study concluded that even.if a under each of the major facilities in the petroleum system. large find were made on Georges Bank, it would have little effect on price to consumers. Finally, under the current Delivery. Alternative measures for delivering crude oil in- mandatory allocation program, oil refined in SENE, whe- clude pipelines, coastal tankers, and deepwater terminals. ther from Georges Bank or other domestic or foreign sources. Delivery by pipeline of either crude or refined product to cannot be promised to any geographical area. In fact, even SENE from the nearest petroleum facilities center (New if the allocation program were to be abolished, the nature Jersey) would be extremely costly and is commonly dis- of distribution of productswithin the industry is such that, counted. Harbors now receiving coastal tankers - Boston, with local refining, local assurance of supply could be ex- Providence, Fall River, Weymouth, Salem, and Cape Cod pected to improve only slightly. Canal - are expected to experience heavy traffic conges- tion in the next decade. Based upon anticipated petro- Within these basic parameters, and with the various alterna- leum receipts, vessel trips would increase from 1,000 trips tives available for delivery, refining, and distribution, three in 1972, to 2,200 trips in 1990, and 5,400 trips in 2020. plans were examined, each maximizing to a greater or And, as stated earlier, the greater the small tanker traffic, lesser extent economic development and environmental the greater the likelihood of collision and spills. Recog- quality. nizing the limitations, then, of pipelines add tan kers for delivering product to New England, greatest consideration A plan emphasizing national and regional economic devel- in SENE is given to deepwater terminals - coastal, as in opment was investigated which would capitalize on the re- the case of Narragansett Bay, and far offshore, as in the gion's deepwater near-shore and offshore port potential and case of Massport's proposal off Nahant, Massachusetts. abundant coastal land close to major marketing and distri- Technology is well developed and several options exist. bution areas. Under this plan, priority for land allocation Immobile facilities include: artificial islands, sea island is given to refinery and related heavy industrial develop- berths, and marginal piers; mooring facilities include con- ment at sites closest to delivery and market areas. With ventional buoy, single point buoy, single anchor leg, and SENE developing as a net exporter of refined products to single point swivel pier. The advantages, explained earlier, New England and the nation, significant national economic include among others, reduction of traffic, and ability to benefits are attained and a significant contribution to tranship or offload the largest vessels with speed and rela@ "Project Independence" is made. Regional short and mid- tive safety. term economic benefits, in terms of additional employ- ment and growth of regional income, would be consider- Refining. To preclude preemption of valuable. coastal, able. Under such a plan, however, no significant degree of and especially coastal/urban lands, from other uses and supply assurance or cost savings would be gained. Even to protect critical or environmental resources generally within federal air and water pollution control standards, more prevalent in such areas, potential refinery sites are degradation of the Study area's environment would occur. preferred inland, close to existing labor and demand cen- The emphasis on allocating land to industrial development ters, and in areas already served by transportation, com- would have important opportunity costs to other users of munication, water supply, and wastewater infrastructure. land. 9-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made In contrast, another plan emphasizing environmental quality Demand Management. While a number of op- would eliminate SENE and New England as awhole from tions of varying severity are available - and more often further consideration for refinery and related heavy devel- than not untested - the following appear most socially opment. Under this alternative, SENE would continue to feasible: be a 100 percent importer of refined oil products, and an extremely high degree of state controlled demand manage- 19. Revise building standards. The Massa- ment would be essential. Petroleum consumption quotas chusetts Department of Community would have to be established for all uses, special tax de- Affairs, and the Rhode Island Statewide ductions would be granted for insulation improvements, Planning Program and-Department of building specifications would undergo marked revision for Community. Affairs, should promulgate insulation standards, strict transportation, particularly revised standards for new bufldings with automobile, restrictions would be established (and petrol- a view to improving upon heating and eum pricing would increase markedly to stifle derhand). cooling system efficiencies. The building The program would also include the development of one code provisions in each municipality in deepWater terminal for receiving refined products to the Study area should be revised to meet eliminate the threat of spills within existing and crowded these standards. harbors. Distribution would be exclusively by under- ground pipelines. Obviously this alternative would ag- 20. Provide tax incentives for conservation. gravate SENE's dependence on the political wbims of Liberal state tax deductions should be foreign suppliers. Environmental quality would be,pre- established for voluntary domestic, served but the economy could suffer. Likewise, no con- commercial, and industrial 'energy con- tribution to national economic efficiency could be made servation improvements, whether to under the plan. The escalation of cost would be felt heating and cooling systems or insula- most keenly by lower income groups and a steady de- tion. crease of social well-being of a significant sector of the region's population would be inevitable. 21. Set energy consumption reduction goals. Both states should establish energy con- Recommendations sumption growth goals and energy aware- ness public education programs to bring Between these two extremes, a significant number of consumption in line with these goals. options remain. The recommended program involves de- mand reduction, strict control over development if it 22. Fund mass transit systems. Both should occur, deepwater port development, pipeline states should tap state highway funds distribution, and maximum feasible environmental con- (the general fund in Rhode Island) to trol. The program assumes that the environment would provide significant expansion of rail, bus, be best served by a deepwater port and pipeline distri- and rapid transit systems in order to ef- bution system and strict controls over refinery opera- fect substantial reductions in commuter tions. It further assumes that a significant degree of re- automobile use and attendant gasoline duction in the rate of growth of demand can be attained demands. (A 1974 referendum in Massa. by innovative state action. chusetts has already approved this con- cept.) An important limitation of this program should be noted. The New England Regional Comn-dssion, working with Facilities Siting. To improve the existing system for sit- other agencies throughout the region, is developing a mg major petroleum facilities, the following steps are recom- 9tudy of the regional energy and facilities siting situation mended: in New England. The results of this study will not be available until later in 1975. Further, the specific regional 23. Establish state siting authority in Rhode policy implications will not be decided by the New Eng- Island. The authority of the Rhode land governors until some time later. The following Island Coastal Resources Management recommended program was developed without the bene- Council should be expanded from ap- fits of detailed regional analysis, but nevertheless presents proving or rejecting refinery proposals a course of actiondesigned to balance certain national to surveying and securing potentially economic efficiency objectives and environmental quality feasible sites for future development. goals within the best interests of regional economic effi- ciency and social well-being. The following programs and actions are recommended, generally in order ofpriorlty: 9-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 24. Establish state siting authority in Massa- preferred method of petroleum de- chusetts. The Massachusetts General livery, eclipsing coastal tankers where- Court should expand the authority of the ever feasible, with the distance offshore Energy Facilities Siting Council to include determined individually, based on the review of petroleum facilities proposals. technical and environmental considera. The Council's authority should be ex- tions of each site. Blanket statements panded to permit it to inventory and se- on distance from shore for such facili- cure potential development sites for the ties should be avoided. However, the future. need for deepwater port(s) should be based on a regional port study. 25. Consider regionwide implications of siting decisions. Both states should postpone 29. Locate refineries inland near infrastruc- specific siting decisions until such time ture. Should their need be determined, as the policy implications of the New refineries, storage facilities, and related England Regional Commission's re- development should be located inland by gional energy study can be determined the state siting agencies in areas already by the New England Governors. More- served by necessary transportation, over, future siting decisions of the above water supply, and wastewater services. mentioned agencies should be made in consideration of both the statewide and 30. Distribute refined products by pipeline. regionwide implications of petroleum Distribution of refined products should facilities siting. be via underground pipeline wherever practicable and along well identified cor- 26. Establish standards and criteria for refin- ridors. ery siting and operation. With guidance from the Environmental Pro- 3 1. Use most advanced technologies. State tection Agency, the Corps of Engin- siting agencies should ensure that opera- eers, and the Federal Regional Council tion of any and all facilities use the most the states should establish standards advanced environmentol control tech- and criteria for petroleum facilities nol6gies available. siting and operation, maximizing envi- ronmental protection. Implications 27. Use SENE development capability analyses In view of the complexity of the problem and the broad in siting decisions. As a general rule regional implications of siting decisions, an exact assess- no key facility should be considered on ment of the economic, social, and environmental costs and resources mapped by the SENE Study under benefits was not within the scope of this Study. Like it or Critical Environmental Area Categories not, we must admit that, for at least the reasonably near A or B (SENE Plates 1, 2, and 3). Very future, SENE and the rest of New England will continue to careful investigation of environmental be dependent on oil - oil which we neither produce nor re- effects should be undertaken before fine. Should the region's decision makers, upon reviewing any facilities are constructed on De- the results of these and other impact studies, determine it velopable Areas Category C. [Categories to be in the best interests of the region to provide regional described in Chapter 3 of this report.] refining capacity, it is felt that the recommendations above provide a practical framework for policy making, one which Facilities Configuration. The Study believes that the provides a modest response to national pressures while mini- fact that many decision makers view the development of mizing negative social and environmental effects. petroleum facilities as inevitable to some degree is not a reason for resigning the decision making authority to the SOLID WASTE MANAGEMENT industry, but for strengthening state policy guidelines to assure that such decisions are made in the best interests of Finding a way to dispose of the tremendous amount of solid SENE and New England as a whole. Consequently, basic waste we generate daily is one of the most, perplexing prob- policies advanced by the SENE Study are: lems facing a region as populous as Southeastern New Eng- 28. Establish deepwater port(s); evaluate each land. And while the Study was not intended to be a defirii- individually. As a matter of state tive investigation of how these wastes are managed in the policy, deepwater port(s) should be the region, the consequences of improper solid waste disposal on water resources requires that at least some investigation 9-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made be made. The solid waste disposal problem is both a their combined efforts the system provides for the collec- nuisance and an opportunity, and both states in the tion, hauling, transfer, processing, and disposal of all solid e SENE area have begun to recognize that the objective waste material generated within Massachusetts. Provisions in solid waste management is not so much getting rid will be made in the system for the handling of special and of waste as it is recovering and using wastes to meet some hazardous wastes. of our needs. Local governments will be responsible for collecting muni- The Situation cipal solid wastes at their sources, transporting solid wastes to either a municipal or district transfer station, and process- Solid waste disposal sites throughout Massachusetts and ing waste at municipal transfer stations. The state's respon- Rhode Island handled 7.5 million tons and roughly sibilities will include transport of waste from district to re- 590,000 tons respectively in 1973. By 1980 those fig- gional facilities, administration of district and regional fa- ures are expected to climb to 8.7 million and cilities, and the regulation, inspection, and enforcement of 717,000 tons ., respectively. Despite these demands, dis- all aspects of waste handling. posal sites are disappearing. In the SENE portion of Private responsibilities will include collection and transpor- Massachusetts, for example, 51 out of the 147 munici- tation of wastes, processing and reclamation of solid waste, pal disposal sites have a life expenctancy of only five operation of municipal, district or regional facilities, and years. To the vast majority of the people of the region, secondary materials industry development. solid waste disposal is a non-issue. You put your waste in bags, set them out on the street and they are taken Rhode Island has established a Solid Waste Management away. Yet the trends are quite clear. With more wastes Corporation and although a bond issue was defeated in the and fewer sites SENE is running out of places to dispose 1974 elections, the Corporation is presently seeking fund- of its refuse and garbage. ing to proceed to the next phase of, planning. The Rhode In the last decade open dumps have largely been replaced Island program is publicly managed with the state contract- by what are nominally, at least, sanitary landfills. Both ing with private operators for services. Municipalities must Massachusetts and Rhode Island have regulations for the dispose of wastes at a licensed disposal facility within their maintenance of disposal sites under the enforcement of boundaries wherever possible. The Department of Health each state health department. Regulations were revised in continues to monitor the programs. Rhode Island as recently as November 1974. Resource recovery is key to both systems. Material which can be recovered includes ferrous metals, aluminum, other Yet in spite of improvements, neither state can claim com- non-ferrous metals, and glass. The largest and most valu- plete success in regulation enforcement. In Rhode Island, able resource, however, is fuel that can be used to produce 71 percent of the 35 municipal sites do not meet sanitary electricity. It is estimated that 15 percent of the energy landfill standards. In Massachusetts, 80 percent are defi- consumed.in the Commonwealth of Massachusetts could cient. be recovered from solid waste by burning processed wastes The major problem at unacceptable disposal sites is water with coal or oil. pollution. Because they are "unwelcome neighbors", many of the landfills are located on land no one wants, The Solutions such as marshes and flood plains. Water flowing through the material in these sites picks up phosphates, chlorides, Land Disposal Sites Should be Selected to Mini- and other pollutants-, producing a leachate which can be mize the Infiltration of Leachate into Surface and highly contaminating to streams and ground water aquifers. Ground Water. Selection of solid waste disposal sites in accordance with existing sanitary landfill regulations of Recently, however, both states have devised new statewide both states would be sufficient to prevent future degrada- solid waste management plans in an effort to better handle tion of water resources. Physical barriers such as clay lay- the problem. In Massachusetts, an interagency planning ers, polyethylene sheets, and asphalt liners could also be unit combining the Department of Public Health, Depart- used to minimize the ground water contact by trapping the ment of Natural Resources, Department of Public Works, leachate. and the Water Resources Commission has proposed a state- wide solid waste recovery system on a regional basis. Im- Besides keeping leachate from reaching any aquifers or plementation is scheduled to begin in 1976 and full state- streams, other provisions which should be incorporated wide operations are to be in swing by 1980. include daily coverage to prevent rodent and insect prob- lems, spreading and compaction of incorriing refuse, and The state plan proposes a joint venture of state, municipal, venting for methane gas. and regional governments with private enterprise. Through 9-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Established Landfills Should be Operated Under Recommendations the Appropriate State Regulations to Minimize Impact. Proper management can make sanitary landfill 32. Enforce existing sanitary landfill regula- operations both an acceptable and effective means of tions. Whenever alternative solutions solid waste disposal as recovery technologies are refined. exist, each state health department Where land is available, a sanitary landfill is usually the should strictly enforce existing sanitary most economical method of solid waste disposal, and the landfill regulations. initial investment is low compared with other disposal methods. Furthermore, a sanitary landfill can receive all 33. Funding the Rhode Island Solid Waste types of solid wastes, eliminating the necessity of sepa- Management Corporation. At least rate collections. It is also a complete disposal method, as partial funding for staff and planning opposed to incineration or composting which require ad- should be included in the next budget ditiohal treatrRent or disposal operations. submission to the Rhode Island Gen- eral Assembly. Encourage Community Participation in State Solid Waste Recovery Programs. Clearly sanitary 34. Accelerate local participation in recovery landfills are, like dumps before them, only a stopgap programs. The Study strongly endorses solution. As non-renewable resources become more ewh state recovery program and urges and more scarce, solid waste recovery becomes more and speedy participation by municipalities. more appealing. Implications Resource recovery provides substantial economic benefits and much of the waste material discarded into landfills The existing management programs, with the above slight can generate revenues which reduce the costs of disposal. adjustments to detail, will be adequate for meeting the In addition, savings result from the decrease in the needs of SENE's growing population and refuse problem. arrount of land needed for sanitary landfills. At the same time, the new programs will contribute sig- nificantly to the improvement of the region's environment and, as a result, to the quality of life of the people of the region. 9-19 CHAPTER 10 STRENGTHENING THE MANAGEMENT SYSTEM FOR NATURAL RESOURCES The Setting major programs so that the conflicting array of human wants and needs - for a decent environment in which How Natural Resources Policy is Made and Implemented to live and a productive and stable economy - are served. The Legislature and Governors of both Massachusetts and Some Key Assumptions Rhode Island are responsible for setting a broad policy for framework for the state. Within that context, the Execu- This discussion of ways to implement the SENE Study tive, through various administrative departments, refines recommendations is based on several key assumptions: those policies and develops programs to implement them. (1) Natural resource policies must be developed 7he federal government too, sets broad environmental in the context of, and consistent with, eco- policies. But by and large, its role has been limited to the nomic and social policies; administration of grants, guidance and review of state programs, technical assistance, and in some cases, per- (2) Encouraging growth patterns based, in part, forming direct, substantive resource management activi- on natural resource development capability, ties. Interstate regional agencies, such as the New Eng- and water resources in particular, is desirable. land River Basins Commission, the New England Re- The process by which land is consumed can gional Commission, and the New England Governors' be guided so as to protect Critical Environ- Conference, provide coordination between states and mental Areas and maximize the efficiency of reinforce their efforts to develop integrated programs. public investment in infrastructure, without diminishing the opportunities for choice State agencies directly concerned with the formulation and variety in lifestyle; and implementation of natural resource policy and the delivery of programs include in Massachusetts, the Cab- (3) Governmental action to achieve these ends is inet, the Secretary of Enviro@@ental Affairs with the necessary and desirable. Guiding. growth ef- Coastal Zone Management Program and the Department fectively depends on the integration of pri- of Natural Resources, and the Secretary for Communities vate actions and the authority and responsi- and Development with its Department of Community bility of all levels of government; and Affairs; and in Rhode Island, the State Planning Council and Statewide Planning Program, the Department of (4) 71he state is the appropriate level of govem- Natural Resources, the Coastal Resources Management ment to provide leadership in pursuit of that Council, and the Water Resources Board. integration. It can regulate private actions, guide, assist, and review efforts of local it is the local level at which many specific resource deci- government; coordinate state government sions are made. Local governments prepare land use and actions; and guide federal actions except resource plans, make primary decisions with regard to where over-riding questions of national in- land use, and construct water and wastewater facilities. terest are involved. Substate regional planning agencies ensure the coordina- tion between towns of local plans and policies. Elements of a Strategy for State Leadership Most of the specific recommendations of the SENE Study The vast majority of the recommendations in the SENE presented in the preceding chapters can be implemented Study are directed to agencies of the two states. This em- promptly under existing laws and by existing local, state, phasis on state leadership is consistent with traditional and federal government agencies, and the private sector. constitutional principles of the role of the states in the In other cases, modifications in the authority of indi- federal system. Moreover, it is consistent with the policy vidual agencies may be required; these are discussed in of the current Administration and Congress to strengthen earlier chapters and are presented in an "Index-for- the state role in resource decision making. This is clearly Decision Making" in the concluding section of this the intent of much recent federal legislation, from Reve- chapter. nue Sharing programs to the Water Pollution Control Act Amendments of 1972 and the Coastal Zone Management The purpose of this chapter is to outline, in the context Act of 1972. The latter, in fact, declares that "the key of public institutional and governmental arrangements, to more effective protection and use of the land and suggestions for securing the integration of policies and water resources of the coastal zones is to encourage the 10-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made states to exercise their full authority over [those] lands natural resources strategy; (b) stimulating, and waters. . ." (�302(H)). guiding, and assisting political subdivisions of the state in natural resources decision Finally, the Study's emphasis on state leadership is con- making; sistent with policies established by the states themselves, Both the New England Governors' Conference and the (4) Assure access for effective participation by New England River Basins Commission have explicitly local governments and private citizens, and recognized and adopted a policy for natural resources interests in formulation and execution of management emphasizing the states as the integrating state programs; and level of government. In its resolution of December 15, 1972, the Governors' Conference recommended that: (5) Support and participate in cooperative pro- grams to secure effective natural resource "Each state should review and, as necessary, management in interstate and regionwide strengthen its organizational structure and contexts. planning processes to secure integration of land use, coastal zone, water quality, and The Federal Role. To reinforce these efforts the related natural resource management pro- Commission also recommended that "the federal agencies grams consistent with the environmental, administering programs of assistance to states for natural social, and economic goals of the state, and resources planning and management activities... should should support and participate in coopera- offer positive assistance to integration of natural resources tive programs to solve interstate and multi- decision making at the state level," and suggested a num- state resource problems through appropri- ber of ways in which that could be done. These included: ate regional mechanisms." integrated grants, consolidated grants, and block grants; placing greater responsibility on the federal regional ad- The New England River Basins Commission recognized ministrators and regional field offices; performing spe- the pivotal role of the state in its report "Strategies for cific tasks for the states as consultants; and operating Natural Resource Decision Making" approved Decem- through the Governor in establishing patterns of federal- ber 6, 1972. According to that report "The Commission state cooperation, or through the state in establishing re- recognizes and endorses the evolution of a rational strat- lationships with its political subdivisions. egy for natural resource decision making. The strategy recognizes the state as the dominant level of government, The Role of Regional Agencies. At the regional level, acting within the framework of national policies and with it was recognized that agencies such as the New England assistance from the federal government." Regional Commission, the Federal Regional Council and the New England River Basins Commission should design The State Role. The steps the Commission recom- their programs to strengthen state integration and leader- mended the states take included the following: ship in natural resources management and to assure that the interests of the region are taken into account. To do (1) Design overall natural resource strategies this, it was suggested that communications be strengthened in the context of economic, social, and en- with respect to specific natural resource programs - among vironmental goals of the state; the states, and between federal and state administering agencies - to exchange information, technical assistance, (2) Formulate and execute natural resources and to resolve interstate problems. plans and programs as elements of an overall strategy for effective manage- Thus the SENE Study's heavy emphasis on state leadership ment of the total natural resource base in resource management is not really novel. It has already of the state. The state structure should been agreed upon at several levels of government. The key be capable of identifying relationships to that leadership is coordination among the three tiers of among functional programs (water re- government - coordination in planning, state agency pro- sources, fish and wildlife, outdoor recre- gram review, budget review, project review (environmental ation, etc.) and of relating these to the impact statements), direct regulation and provision of in- overall strategy; formation and technical assistance. What kind of mechan- ism is needed to achieve this level of coordination; how (3) Develop a focal point within state gov- can resource management programs be integrated with emment capable of: (a) assessing rela- other state programs? tionships among natural resource pro- grams, securing their integration, and monitoring performance against overall 10-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Ideal: A State Resource Policy Mechanism is difficult. While each state has existing mechanisms to supply planning coordination (in Rhode Island the A state mechanism for coordinating resource management State Planning Council; in Massachusetts the State policy would ideally consist of the following: Planning Office in the Department of Administration and Finance and the Cabinet serve this function), the (1) It must be responsive to strong policy direc- question of the degree of consolidation of planning re- tion and leadership by the state and be con- sponsibility under the Governor is a perennial issue. sistent with, and supportive of, ongoing Although that issue is not addressed in detail here, it state programs; is sufficient to note the importance of planning at the state level and to the Governor's Office to ensure uni- (2) It must have the capability to assimilate form planning assumptions. The Executive, as the information, analyze problems, provide state's chief policy maker must be provided with the coordination, and specify actions to be capacity to monitor, review, modify, or develop plan- taken by or on behalf of the state: ning elements to avoid having to reconcile results har- dened in concrete. (3) While it ought to be established under exist- ing legislative authority and within an exist- One of the oldest of the various planning programs is ing institutional framework, such a program the '701'Program administered. by the Department of should be sufficiently flexible to allow it Housing and Urban Development (HUD). '70 1' Funds to evolve and develop greater management support the development of management capability for responsibilities at some future date; the state's decision making system, including state plan- ning offices with administrative and budgetary functions. (4) It must provide the opportunity to involve HUD's '701' funds are also used for substate physical all levels of government and interests: fed- planning programs. The State Comprehensive Outdoor eral, interstate, state, substate regional, Recreation Plan (SCORP) funded by the Bureau of local, and private citizens; Outdoor Recreation in the Department of the Interior, is another planning program which leans more heavily (5) It ought to take advantage of the extensive to providing a resource perspective in the planning pro- public and scientific involvement in re- cess. State water and related land resource planning source planning developed during the programs are funded under Title III of the Water Re- course of the SENE Study; sources Planning Act of 1965. Water quality planning programs are funded under the Federal Water Pollution (6) It should have adequate ties to, and rela- Control Act Amendments of 1972 (FWPCA), adminis- tionship with, the forthcoming state re- tered by the Environmental Protection Agency. Other source programs and the work of the plans are being prepared for transportation and energy SENE Study; facilities. (7) It should have a small professional staff, The Coastal Zone Management (CZM) program is one of responsible for planning, public informa- the few planning programs which does provide funds for tion and education activities; and awintegrated approach to resource planning, at least with respect to the area defined as the Coastal Zone, Adminis- (8) Although it must have adequate resources, tered by the National Oceanic and Atmospheric Adminis- it should be funded within the financial tration, the CZM program links not only water and land capabilities of the federal and state gov- planning but provides a means to integrate management ernments. activities as well. The effectiveness of such a mechanism is hinged upon the Although the states nationally have been looking to federal tools available to it to coordinate and implement its poli- land use legislation as a source of money and as an impetus cies. Probably the most encompassing of these "tools" is to coordinate various functional planning activities, the the planning function although budgetary and program defeat of this legislation has forced the states to look else- review capability is also important. The SENE Study too, where to meet this need. The existence of the Section 208 is important here, because it provides the frame of refer- program under the FWPCA of 1972, designed to integrate ence within which those planning and review acitvities land use and water supply with water quality planning, can be conducted by such a mechanism. does much to provide the necessary structure to integrate resource planning activities. Because of the scatteration of functional planning activities, securing integrated management responsive to state policy 10-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The '208' program provides for areawide wastewater man- application for federal funds in the state, are appropriate agement planning in areas which, as a result of urban in- vehicles to help secure program integration. dustrial concentrations and other factors, have substantial water quality control programs. Funding will be for plan- The process of obtaining funds, including planning grants, ning and management of a comprehensive program con- from multiple federal sources through a single application trolling local government and industrial wastewater, storm to the Federal Regional Council, under the Integrated and sewer runoff, non-point source pollutants, and land use Grant Administration program and as adopted under the and water supply as it relates to water quality, An import- Joint Funding Simplification Act (P. L. 93-5 10) is another ant requirement of the plan is the establishment of a man- vehicle to assist state Coordination. agement program to ensure that the plan is implemented. Both Massachusetts and Rhode Island have taken steps to Finally, the review capability should also include project enter the program and some regional bodies have already review. Notable examples of this type of review are the been approved for funding. National Environmental Policy Act and the Massachusetts Environmental Policy Act which require environmental With adequate funding assured by the 208 grants, the ques- impact analysis of major public projects prior to project tion of coordination between areawide programs remains. approval. In Rhode Island, because the entire state is expected to be designated as a single 208 area this will not be a problem. The Real: Significant Opportunities in Current In Massachusetts however, where there are to be 15 areas Ongoing Programs receiving 208 funds, there is a need to ensure uniform planning bases and to coordinate between 208 planning Are major changes in existing state resource management agencies. The Commonwealth has recognized this and is institutions necessary to approach the ideal? The answer working closely with individual 108 agencies to ensure is emphatically no! Both states have already established a provisions for appropriate state participation. Input at mechanism for overall environmental, social,. and economic the policy level, such as review by the Cabinet and sub- policy coordination. Moreover, the ongoing natural re- groups such as its Technical Committee, is necessary to source planning and management programs in each state ensure integrated implementation of state policy. provide a significant degree of interagency coordination. A general description of approaches to state resource man- Various review procedures are also capable of giving policy agement follows. bodies the ability to keep abreast of programs and projects and thereby coordinate the implementation of policy. Any In Massachusetts, as in Rhode Island, responsibility for es- mechanism which is to integrate social, economic, and en- tablishing a broad policy framework and for leadership vironmental policies must have the capacity to participate rests with the respective state Governors. The Governor in such review procedures. being the state's chief elected official, plays the central role in formulating substantive resource management policy At the program level, this review would include the pro- within that framework. gram budget review process, which involves a review of the projected allocation of funds by programs, rather than The two other branches of state government also play im- the traditional allocation by object classification. For the portant roles in the formulation of resource management policy maker, knowing the level of funding by program policy. The Massachusetts-General Court and the Rhode can clearly show priorities and level of effort to be de- Island General Assembly through their legislative, budget- voted to the various programs. ary, and other ancillary activities often develop and articu- late state policies in conjunction with, or in response to, The review capability would also include the A-95 Project those expressed by the Governor. One example of this Notification and Review System, which sets up certain re- capability is in the work of the Massachusetts Special Com- quirements for the review by "planning and devel6pment mission on the Effects of Growth Patterns on the Quality clearinghouses" of proposals or projects in which the fed- of Life in the Commonwealth, commoni known as the I y eral government is to be involved. This review attempts to Wetmore Commission. In examining alternative state strate- evaluate grant applications in terms of other plans, pro- gies, the Commission's views will have a substantial impact jects, or policies,aand to obtain comments from other on the passage of any comprehensive land use law in Massa- interested parties. chusetts. While the judiciary is less able to directly pro- nounce policy, its role is important too, because it may Particularly in Rhode Island, the capital budgeting process ultimately decide the legality of various elements of state or the programming of the expenditures of capital over policy and, programs. time, and the "A-9" review process in which the state Director of Administration must review and approve an 10-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Massachusetts. 1,@.,Vtil recently, Massachusetts relied on an offices, coordinated with the state's substate district executive office, cAinet-level, Resources Management efforts, is pending legislative action. Policy Council (RMPC) to refine and coordinate policy. It was created by Executive Order Number 103, in 1974, to One of the most important programs of EOEA, and one formulate policy and to make certain that resource poli- which demonstrates the degree of integration necessary cies are made with reference to other social and economic for effective resource management, is the Coastal Zone concerns. The RMPC was composed of the Secretaries of Management Program (CZMP). The program has re- Administration and Finance, Communities and Develop- ceived initial federal planning funds and is in the begin- ment, Consumer Affairs, Educational Affairs, Transporta- ning stages of plan and program formulations, and is estab- tion and Construction, Human Services, Manpower Affairs, lishing a citizen participation structure. A Coastal Re- and Environmental Affairs. It directed the Common- view Center has been established in the interim to identify wealth's participation in coastal zone, air quality, water significant activities to review major projects and to for- quality, land use, and rural development programs. Work- mulate action recommendations within the coastal zone, ing through inter-agency task forces, the RMPC coordina- pending completion of an approved Coastal Zone Manage- ted the preparation and submission of the State's water ment Plan for the state. The Center serves as a forum for quality management program under the Federal Water the development of information relating to the coastal Pollution Control Act Amendments of 1972. In addition, zone, and facilitates the decisions of those now perform- the RMPC developed a set of uniform substate adminis- ing governmental functions. trative districts for agency field operations, and submitted its proposals on this subject for legislative and executive The Executive Office for CommuWties and Development approval. RMPC's Land Use Task Force formulated (EOCD), through the Department of Community Affairs plans for various state approaches to managing critical (DCA), acts as liaison between the state, the federal gov- areas and controlling developments of greater than local ernment and regional planning agencies. The DCA is also concern. authorized to provide guidance to the state's political subdivisions in the development of land use plans. EOCD's Under the current Administration however, the full Cabinet, Department of Commerce and Development (DCD) is au- as it is organized to deal with resource management issues, thorized to prepare a comprehensive plan for the economic performs the functions previously assumed by the RMPC. development of the state. At this level, resource management policy can be effec- tively formulated and evaluated in relation to state social Other state level programs have been developed protecting and economic development policy. Moreover, it provides wetlands, requiring environmental impact reports on public a forum for the evaluation of economic, and social pro- projects and activities, and establishing an Energy Facilities grams within the context of state resource management Siting Council, authorized to review electric companies' programs. long-range plans and proposed site locations for power plants. The Martha's Vineyard Law, recently enacted, sets While resource policies are formulated by the Cabinet, up a process to designate areas of "critical planning con- they are carried out through programs of the Executive cern" and to screen "developments of regional impact". Office of Environmental Affairs (EOEA). Under reor- These efforts represent concerted attempts to execute re- ganization currently in progress, the EOEA will combine source plans and programs as elements of an overall state the present Department of Natural Resources, the envi- strategy. ronmental functions of the Department of Public Health, the solid waste programs of the Department of Public At the substate level, the advisory regional planning agen- Works, the Department of Agriculture, and the Metro- cies, eight of which exist in SENE, provide a link to local politan District Commission. In addition to the Office governments by overseeing local planning programs and in of the Secretary, which will include the Division of En- the A-95 review process. In addition to the regional plan- forcement and Division of Conservation Service, the new ning agencies, the state is currently in the process of stand- EOEA will include five departments: (1) the Department ardizing its substate administrative districts to provide a' of Environmental Quality Engineering, responsible for en- uniform geographic framework not only for planning, but vironmental health, pollution control, water supply, water also for coordination and, most important, the delivery of quality, and sanitation programs; (2) the Department of state programs. Not only will this decentralize state activi- Environmental Management including natural resources ties, it will allow local governments to meet federal require- and solid waste programs; (3) the Department of Fisheries, ments and opportunities for "cooperative regionalism". Wildlife, and Recreational Vehicles; (4) the Department of Food and Agriculture; and (5) the Metropolitan District Through these programs, policies set in a coordinated state Commission. In 'addition, a system to decentralize the context ate translated through administrative and regional EOEA's activities through substate administrative field agencies into action. The Coastal Zone Management Pro- 10-5 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made gram provides a focal point capable of "assessing relation- conform, however, to requirements of the Coastal Resources ships among natural resource programs, securing their Management Council and the State Guide Plan. integration, and monitoring performance against overall natural resources strategy," as well as providing the means A limited vehicle for interagency coordination is the Water by which local, state, and federal governments can inter- Resources Board (WRB), which is presently responsible for relate. For that portion of the State not in the coastal long-range water resource planning in the State. In some zone, EOEA serves this function. Both could use the cases, the Board's responsibility for long-range water SENE Study to provide the substantive link between re- planning conflicts with the role of the SPC as the final source capability analysis, demand analysis, and manage- arbiter of long-range policy. The WRB approves water ment recommendations. supply distribution systems, and within certain statutory limitations, is authorized to acquire sites and construct Rhode Island, Long-range resource management policy facilities for water supply. set by the Governor in Rhode Island is integrated and im- plemented through the State Planning Council (SPQ and The Coastal Resources Management Council (CRMC) also its planning arm, the Statewide Planning Program (SPP). serves to integrate state resource management policies. It Coordination of agency activities and preparation of the has authority to plan, manage, and regulate the State's State Guide Plan are the two major vehicles through which resources in the coastal region through the formulation, policy integration occurs, The SPC is composed of the implementation, and operation of various programs con- Director of Adivinistration, as chairman, and nine other sistent with the State Guide Plan as well as with water heads of state departments and agencies, five officials of quality standards of the Department of Health. The local government, and non-voting representatives of fed- CRMC issues permits for alteration of intertidal salt eral agencies.. Subsequent to Executive Order Number 23, marshes and any work in, above, or beneath, the water the SPC's membership was expanded to include ten citi- areas under its jurisdiction. Its activities extend as well zen representatives. Through its Technical Committee, to certain land uses and activities where there is a reason- which monitors work in progress, and review all major able probability of conflict with the coastal environment, studies and development projects, the SPC can coordinate including, but not limited to: power generating and de- planning and development activities of governmental agen- salination plants; chemicals or petroleum processing, trans- cies at all levels and of the private sector. Should the SPC fer, or storage; minerals extraction; wastewater treatment be given greater review responsibilities, such as those des- and disposal; and solid waste disposal facilities. It is also cribed earlier, the services it might perform as a mechanism the State's coastal zone management agency under the to coordinate and implement state policy would be greatly federal coastal zone program. enhanced. One problem for the state is the dispersion of the environ- The State Guide Plan encompasses functional plans for mental functions among some twelve state administrative land use, wafer quality management, transportation, recre- agencies. The overlap in regulatory responsibility for water ation, economic development, historic preservation, and quality maintenance for example, is a potential area of con- water and sewer service. The State Land Use Policies and flict. However, mutual interests can be served without dup- Plan has been completed and revised and is under public lication if there is sufficient cooperation and coordination review. Statewide Planning Program activities are assisted among the agencies concerned. Greater coordination is pos- by federal grants through the integrated grant administra- sible by combining environmental functions under the re- tion program; for example, the SPP proposed the State's sponsibility of one agency as is being done in Massachu- application for coastal zone planning funds, through the setts, or by strengthening the coordination function which Coastal Resources Management Council will develop the SPC serves to enable it to act as the State's environmental management program. SPP also coordinates as the A-95 "clearinghouse." review agency for the State. The State Planning Council also can provide the necessary Implementation of policies developed by the State Plan- leadership to coordinate overall resource policies within ning Council is left to specific administrative departments the context of other state social and economic programs. of the State. The Department of Natural Resources over- The SPC role could be strengthened by incorporating long- sees a wide variety of programs for parks and recreation range water resource policy making, and by improving co- areas, forests, fish and wildlife, agriculture, land acquisi- ordination with the CRMC and with other departments, tion, and wetlands. Water quality control, air quality con- where that is necessary. The State has recognized the need trol, and solid waste are regulated by the Department of to guide growth based on resource capabilities and has ex- Health. The Economic Development Corporation (EDC) pressed that need through the-preparation of the State Land constructs and develops utility facilities and port projects to Use Plan and Policies. The Statewide Planning Program is further the State's economic growth. EDC projects must capable of assessing and directing relationships among vani- 10-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ous functional resource programs, and its role should be vide the process by which iritegrati6n of state activities strengthened in this regard. can occur. By using resource capability information developed by Recommended Strategy SENE, the State Planning Council and the Statewide Planning Program could ensure a consistent starting point Given the institutional framework set forth above, and for agency program development and provide additional given the role of the state interagency policy councils, it is resource management program guidance. the current responsibility of the Cabinet in Massachusetts Federal and Interstate. The role of the Federal gov- and the State Planning Council in Rhode Island to review ernment in environmental management reinforces state and adopt in whole, or in part, the resource management resource management integration efforts. An example is policies and programs of the SENE Study, and to guide the administration of the coastal zone management pro- program development for specific functional recommen- grams. Integrated grant administration and greater dele- dations by State administrative agencies within the con- gation of authority to regional field offices also demon- text of the State's overall social and economic, as well as strates greater federal emphasis on state control. The environmental goals. existence of the Federal Regional Council (FRQ too, of- fers the states better access to federal funds and services, 1. Maximize use of existing resource policy In fact, the FRC was established to develop closer work- institutions. The resource management ing relationships between federal grant-making agencies policies and programs recommended by and state and local governments, and to approve federal the SENE Study should be reviewed and coordination of the grant system. Since federal agencies based on that review, policies the states are participants with the relevant states, the New England feel appropriate should be adopted by River Basins Commission is also available to help accom- such institutions in Massachusetts as the ic state programs through the plish objectives of specif Cabinet and in Rhode Island, the State federal system. In addition to this coordination, the fed- Planning Council. eral government also provides technical assistance, fund- As the agents through which management strategies are de- ing, or direct resource management activities. These in- clude: flood control, navigation improvement, erosion vised, these bodies can ensure coordination between the protection (Corps of Engineers, Soil Conservation Service), state and other levels of government. They have staff and water quality improvement (EPA), fish and wildlife en- coordinative capabilities, as well as access to resource in- hancement (USFWS), land acquisition programs (BOR), formation and data, and with some modifications could and regulation of power facilities (FPC), to name a few. include public and scientific input. Federal linkages exist to various degrees and program coordination, where neces- Cooperation between the states and with the federal sary, between states would be most effective if carried out agencies can be even more effective through other regional at this level. New England institutions. Through the New England Re- After considering these policies, the state interagency gional Commission, Programs are formulated to strengthen councils should implement major policy recommendation regional economic development. The New England River Basins Commission provides a vehicle to contribute directly of the SENE Study by adopting and endorsing as appro- to the development of regional and interstate aspects of priate, specific policy positions. natural resource programs undertaking analysis of regional Finally, these policy declarations must be translated into needs and issues, providing information, developing com- guidance to operating agencies for consistent program prehensive management programs for the region, and as- sisting in development and review of state programs with management. This might bedone by establishing a repre- special reference to regional and interstate water and re- sentative advisory committee to oversee the planning pro- lated land aspects. Finally, the New England Governors' cess, or by creating a working committee of departmental Conference, composed of the six New England governors, planners to provide communication. also can coordinate state activities with regard to natural Although the mechanics of one approach or another are resources. significant, it is even more important to begin action early While there is no one mechanism which can look at the enough to establish an influential management program. SENE region as a whole, a new SENE-wide institution is With adequate and immediate commitment, implementa- both unrealistic and unnecessary. Rather, it is necessary to tion should begin and matters of funding and administra- reinforce and strengthen current linkages, capabilities, and tion should be decided now. activities. Existing institutional arrangements must pro- 10-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made TABLE10.1 ALTERNATIVE APPROACHES TO KEY ELEMENTS OF A COMPREHENSfVE RESOURCE MANAGEMENT PROGRAM MASSACHUSETTS RHODE ISLAND State: Cabinet promulgates development STATE DEVELOPMENT GUIDELINES FOR State: SPC promulgates development guide- guidelines; reviews state agency proposals USE BY LOCAL GOVERNMENTS lines; reviews local permits and state agency propo under expanded Mass. Environmental 0Identifies requirements of developments of sals. Policy Act. regional impact, and matches them with Region: Screens municipal permits for con- site criteria sistency with the guide. i@@i: Public and private development consistent Local: Issues development permits consistent with guidelines are facilitated Local: Issues development permits consist- with the guide. Directs public and private development ent with the guide. State: State law making mandatory local MANDATORY LOCAL PLANNING AND :.:::State: State law making mandatory local planning and controls in accord with state ZONING planning and controls in accord with state criteria. 0State legislation requiring municipalities to criteria. Region: RPA review of municipal program. designate and regulate critical environmental State review of municipal program Local: Municipalities formulate and admin- areas and developments of regional impact, ':.*..,.,.,Local: Municipalities formulate and admin- ister plans; regulate development. 0State and regional actions guided by local ister plans; regulate development. plans. X.- X. State: Cabinet establishes standards and STATE DESIGNAITON AND LOCAL REG- i@:@@State: SPC establishes standards and des- designates areas. ULATION OF CRITICAL ENVIRONMENTAL ignates areas. X Region: RPA acts if municipality in default. OR AREAS OF CRITICAL CONCERN Critical areas to include: areas for social Local: Municipal administration of consistent TO THE STATE n., or economic development. development controls. Critical areas include: critical environmental @.`,'Local: Municipal administration of consist- X areas; areas of importance to the public wel- :::.`-. ent development controls. fare; areas affecting or affected by key facilities. State: Cabinet designates, establishes standards :,'..'STATE REGULATION OF CRITICAL AREAS @i@State: Newly created Resources Management and regulations for uses in critical areas. MUNICIPAL ADMINISTRATION Council designates, establishes standards Region: RPA regulates if designated by Cabinet-@@: State designations, standards and regula- and regulations for uses in critical areas (RPA might designate and establish standards tions for protecting, managing and devel- (RMC would be similar to the CRMQ. for areas, as an alternative to the state.) @i:!: oping critical areas. The RMC and CRMC would grant permits Local: Municipal administration of state regula- Critical areas include: critical environmen- for development in these areas. tions; if fails to do so, state through RPA tal areas. i.`.':LocaI: Development would continue to be would assume regulatory control. regulated,by municipalities as well. State: Cabinet establishes policies and (No substate regional "REGIONAL MANAGEMENT OF WATER AND:,..*:: guidelines possibly through WRC. ..RELATED LAND RESOURCES governments in Rhode -X Region: Prepares water management plan; Critical areas include: water and water Island, therefore provides technical assistance; carries out related land. concept not applicable.) operations or construction of facilitiqs. Water supply coordinated with waste water Local: Negotiates formation of regional management. authorities. Substate regional management. SPQ plans the integrated State: State planning, management, and ii@@:STATE PLANNING AND MANAGEMENT OF State (SPP p .'!@RELATED LAND RESOURCES management of water and related land ermit granting through a series of state- PC level regional agencies (like MDQ. rvasive state role. resources, including long range planning Region: Advisory role. Critical areas include: Water and water for the water resource. WRB and Solid related land. Waste Management Corporation would construct, operate and carry out management activities to implement state plans and policies. Local: Continues present function where -.1ocal: Advisory role. conforms to state plans. Notes: SPC - R.I. State Planning Council RPA - Regional Planning Agency SPP - R.I. Statewide Planning Program WRC - Water Resources Commission RMC - Resources Management Council MDC - Metropolitan District Comm. CRMC - R.I. Coastal Resources Management Council WRB - R.I. Water Resources Board 10-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Alternative Approaches to Key Elements of a Massachusetts. The Massachusetts approaches presented Comprehensive Resources Management Program demonstrate two major themes of a management program: (1) the balance of resource management powers between A wide array of more specific approaches to translating state the state and its municipalities; and (2) the possibility of policy into action programs could be devised as elements of indirectly guiding growth through comprehensive pro- a management program. To recommend any definitive set grams for protecting the water resource. By comparing of approaches would certainly be premature in advance of the various approaches, the essential elements of conflict thorough public debate over alternatives. However, the or complementarity between arrangements can be charac- Study has investigated, and presents here, a number of ap- terized. The various approaches are not mutually exclusive. proaches to stimulate this discussion, to illustrate certain They do illustrate, however, different starting points from considerations in one approach or another, and to charac- which one might proceed to construct institutional arrange- terize the comprehensive management approach suggested ments. by this report. The approaches are summarized in Table 10.1. IA. State development guidelines for use by local govern- ment. Under the first approach, a development guide Two common threads run through the approaches pro- would be prepared which would direct certain kinds of posed. The first is that growth must be guided based on development to possible sites. identified, based on stated resource capabilities, and second, that there must be criteria, as being suitable for such development from the greater involvement on the part of all governments in for- standpoint of resource capability. Proposals contrary to mulating policy, developing plans, setting standards, and the guide would have to undergo extensive impact analy- reviewing lower level decisions with respect to environ- sis before approval. mentally and economically sensitive issues. Using the SENE Study as a data base and applying its In this era of frequent government reorganization, the methodologies to develop guidelines and to identify utility of the following approaches should not be tied to areas, the Cabinet could coordinate the identification specific named agencies. Rather, such references should and designation of areas suitable for various kinds of de- be taken to imply -an institution or agency with the func. velopments of regional impact (e.g. power plants, high- tional capabilities suggested in the context of a particular ways, and waste disposal facilities) and other categories of approach. In Massachusetts, for example, most functions developments which, because of their size or nature, are formerly carried out by the Resources Management Policy likely to have environmental, economic, or other impacts Council have now been assumed by the full Cabinet. Ref- of greater than local consequence. Areas, which because erences thereto in the following approaches should be of their regional significance, are not to be developed, taken to mean the Cabinet as it is organized to deal with could also be designated. resource management issues. These studies will be conducted on the basis of inputs Finally, one of the most important limitations on any from state and regional agencies concerned with economic management scheme is how it distributes its costs and bene- development and environmental protection, as well as fits. Windfall gains may accrue to some, windfall losses to from representatives of local government and interested others, as a result of government decisions, unless mechan- public and private sector sources. These studies will in- isms exist for redistributing, or at least integrating, such clude consideration of the range of site characteristics that results. This may be true for entire communities, no less may be relevant in deciding the location of categories of than for individuals, as when, for example, one munici- facilities or developments. Access to, and impact upon, pality bears the burden of regional open space requirements water resources are further variables that would be con- ,and thereby incurs a disproportionately heavy loss of pro- sidered as relevant to such decisions. Based on data gen- perty tax revenues. Land values, for example, may be erated by these surveys, the Cabinet could prepare, pro- pushed up or down as a result of official actions and mulgate, and, as the need arises, revise, a "development policies. Institutions should take full cognizance of such guide ". This guide could be used by all agencies and de- impacts and ameliorate their inequities. The right of a velopers, both public and private, in initiating, evaluating, private owner to secure compensation when his property permitting, funding, or undertaking particular future de- is taken by eminent domain, the right of public access to velopment proposals. Proposals for the development of publicly subsidized amenities, and Vermont's recently key facilities or developments of extra-local impact that enacted capital gains tax on land sales are examples of are advanced consistently with the criteria and procedures equitable methods by which this issue has been resolved. set forth in the guide, could be expedited by streamlined The role that fiscal policy plays must be considered in any permit procedures, and with a minimum 'of additional of the following approaches, and mechanisms should be impact analysis. Conversely, development proposals lack- designed to reconcile such inequities. ing such consistency would have to be justified by full 10-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made impact analysis, and might have to run the gamut of multi- require controversial modifications of established statutory ple reviews by different agencies. For this purpose, the formats. Massachusetts Environmental Policy Act (MEPA) would be extended to cover municipal and private developments of The second approach in this set relies primarily on local more than local concern that were advanced inconsistently initiative. with the "development guide". In short, a stronger burden of proof would fall upon a developer with respect to any I B. Mandatory local planning and zoning. Under this ap- proposal that appeared to lack such consistency. Regional proach every municipality could be directed by statute to planning agencies (RPA's) could conduct the initial screen- adopt a plan designating (1) areas requiring protection and ing to determine if pending municipal development permits those requiring management for development, and estab- were consistent with the guide; the Cabinet itself, or its lishing procedures for regulating developments in, or affect- designee, would conduct a similar screening with respect ing such areas; and (2) developments of regional impact; and to development proposals advanced by state agencies. If (3) setting forth a program of long-range capital development the reviewing agency determined that the proposed project, that will serve to channel residential and economic growth was inconsistent in the guide, it could so certify to the per- in accordance with the time-phased provision of municipal mitting agency, and a full-scale impact analysis would then services. The statute could specify criteria to be applied by have to be prepared and reviewed for adequancy before the municipalities in formulating and administering such plans, development could proceed. especially criteria for incorporating consideration of state and regional interests in the local decision making process. The advantages of this approach are several. This approach Full public participation in both planning and regulatory would be premised upon the adoption of SENE Study pol- decisions at the local level could also be required. icy recommendations for development and protecting Critical Environmental Areas. It would build upon the State and regional agencies would be expected to nominate criteria for guiding development that are advanced in earlier some areas for critical designation, to make inputs to local chapters of the Study. The guide could, for example, re- plans, and to furnish technical assistance to localities in fine and extend the Study's analysis of criteria to identify performing the foregoing tasks. In addition, the concerned future power plant sites to maintain regional self-sufficiency, RPA could review the consistency of proposed municipal This approach would not impose an authoritative site-sufficiency. plans with the statutory criteria and with any established master plan on the state, but would provide a flexible set state or regional plans for development of capital infrastruc- of criteria for evaluating proposed development in terms ture (e.g. transportation networks, waste management fa- of its environmental, economic, and other impacts. In cilities). Such plans will have been formulated so as to re- conjunction with an extended MEPA, the guide could have flect the maximum possible degree of consensus among substantial persuasive force. The development guide pre- municipalities and RPAs. If the RPA objected to a muni- pared by the Cabinet would be a definitive expression of cipal plan on grounds of inconsistency with the statute or state policy and norms for evaluating the efficacy of cer- with a larger state or regional plan, and the municipality tain stated development types. As new development types failed to correct it, either party could appeal the matter to are identified, or as additional data regarding land use cap- the courts for final determination under normal judicial abilities becomes known, the development guide could be. procedures. If the municipality failed to adopt an accept- revised and updated. able plan within the time prescribed by statute or judicial decree, the RPA would be authorized to prepare, such a Since the guide would not attempt to select sites for spe- plan, which the municipality would then have to adminis- cific development projects, but would instead create a ter until such time as it developed an acceptable plan of its process for matching sites with needs as basic economic own. supply and demand factors interact, it is more likely to be acceptable than more authoritative regulations. Until a municipal plan was adopted, developments of re- gional impact and developments affecting areas of critical The disadvantages of this alternative are as follows: Im- environmental concern, as defined by the statute, would pressive resources and expertise would be required to pre- have to be preceded by submission of environmental im- pare a useful and persuasive development guide along the pact, reports to local permit-issuing agencies, and by public lines here envisaged. Some types of relevant information hearings thereupon which would include required partici- will be impossible, or prohibitively costly, to obtain. As a pation by any relevant state or regional agency. This re- practical matter, many aspects of the guide may be only view process could be streamlined and shortened, however, tentative or advisory, and frequent revisions may undermine once an acceptable municipal plan was in effect. At any the justification for using it to impose heavier burdens of time, judicial review of a municipal grant or denial of a proof and administrative procedures on some developers development permit could be obtained by an adversely af- and not on others. Moreover, to effect the revisions of ad- fected person on grounds that the municipal action was in- ministrative procedure articulated in this approach may 10-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made consistent, either with the statute itself, or with an applic- The next approach gives the state a greater role in desig- able plan developed pursuant to the statute. nating areas to be protected. Municipalities would be expected to exercise, where appro- 1C. State designation and local regulation of Critical priate, any or all of their existing powers over land use in Environmental Areas. In an alternative approach, the Cabi- discharging the responsibilities here envisaged for them. net could supervise a process for the identification and Those powers include master planning, flood plain cluster, protection of areas deemed to be of critical environmental and environmental impact zoning, as well as the more tra- concern from state, regional, and local perspectives. This ditional forms of zoning and subdivision controls; admin- would be done on the basis of inputs from all interested istration of wetlands protection laws; enforcement of health state agencies, and the public, to ensure interagency and codes relating to land disposal of wastes; prescription of interdisciplinary coordination. performance standards for the conduct of land-based or land-disturbing activities; and acquisition of properties for The Cabinet could initiate this process by designating areas purposes of public recreation or conservation. of critical concern to the state, based on work already done by the Department of Community Affairs and the SENE In subsidizing, permitting, or undertaking activities of vari- Study on identifying Critical Environmental Areas. The ous kinds and in exercising other powers already granted to Cabinet could then suggest how they might be protected the state by law (e.g., with respect to wetlands and scenic and promulgate guidelines for the RPAs and municipali- or recreational rivers), the state will be guided by locally ties to follow in designating areas of regional and local con- formulated plans to the maximum extent feasible. Excep- cern. Critical areas qualifying for designation under this tions to this rule would be recognized only for overriding model would basically be of three kinds: reasons of state policy (e.g., equitable distribution of low- income housing) expressed through formal action of the (1) Priority Protection Areas (Category A): highly Legislature. fragile resources, which have the lowest toler- ance for development and highest value for The advantages of this alternative are several. This ap- water resource protection; proach (which largely reflects the -new Colorado law) comes closest to continuing the tradition of primary local responsi- (2) Other Protection Areas (Category 13): resour- bility for land use control, and assumes that municipalities ces relatively tolerant to specific types and can do the job under pressure from the legislature, with densities of development and having high value help and guidance from state and regional agencies. This for water and related resource management; approach would take advantage of existing local authority and to regulate and manage use of critical areas such as flood plains, and would restrict state and regional planning (3) Develp able Areas Requiring Management I P tiatives to inherently extra-local interests. (Categories C, F, & G): resources capable of absorbing varying degrees of development'. Comprehensive planning at the local level through an open planning process, such as here envisaged, along with local The above categories, which include "water related lands" regulation of development in accordance with statutory as defined in Chapter 3, fall within what the Study has criteria, may well be worth a try before attempting any defined as Critical Environmental Areas requiring protec- substantial shift of power over land use from local to state tion and Developable Areas requiring management. or regional levels. It is assumed that localities would be able to strike the best balance between developmental and Simultaneously with the identification of areas of state- environmental objectives, taking into account the desires wide concern and the promulgation of guidelines for the of the citizenry whose voices are most clearly heard in successive identification of areas of regional and local con- local councils. At the same time, through consultations, cern, the Cabinet could promulgate standards for the pro- technical assistance, planning for capital improvements of tection or development of designated areas, and for the regional, or statewide significance and judicial review, state regulation of activities therein. Municipalities could then and regional agencies with broader perspectives would still be required to formulate special zoning and subdivision be able to exert substantial influence over local performance. ordinances, selective restrictions or prohibitions on de- velopment and waste disposal, and other protective regu- The disadvantage of this approach is that it is likely to prove lations, consistent with the state standards, for all desig- cumbersome, time-consuming, and inefficient. Unless con- nated critical areas lying within their respective boundaries. sistent standards are developed such as those of the SENE Upon approval by the Cabinet, each set of proposed muni- Study, this approach would run the risk that decisions of cipal controls would have the force of law, and would numerous municipalities may be inconsistent with one an- thereafter be administered by the municipality. If a mu- other and contrary to state or regional needs. nicipality fails to submit to.the Cabinet a, set of controls 10-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made responsive to the state Standards, the Cabinet could order The disadvantages of this alternative are as follows. The the appropriate RPA to prepare the necessary controls for procedures for producing critical area designations and the municipality to administer. Only in the event that for achieving implementation of the envisaged regulatory neither the concerned municipality nor the RPA developed format are complex and time consuming. Unless interim a satisfactory set of controls within a reasonable period of development controls are implemented, it is likely that time, would the Cabinet itself prepare them for the muni- many areas that would otherwise fall within the critical cipality to administer in those critical areas. catalogue will be developed before designations are made and ongoing controls are adopted and approved. Even Once areas of critical concern had been identified and a the limited roles envisaged for the Cabinet and RPA's local regulatory program was in effect, the issuance of under this alternative are likely to be opposed by muni- denial of any development or use permit affecting such an ciplaities and developers on traditional grounds or as a area would be appealable by any interested person to the matter of public policy, it may be necessary to provide a RPA. Upon such appeal, the RPA could be empowered to state fund for compensating owners and municipalities review, reject, or modify any permit determination it whose property is made subject to development restric:' deemed to have been made inconsistently with the apph- tions that impair its market value or revenue generating cable set of controls. Further,the RPA could itself be em- capacity. powered to initiate, on its. own motion and on similar grounds, the review of any local permit determination. In The last approach gives the state regulatory authority its discretion, the Cabinet could designate an appropriate over critical areas. state entity to provide a further level of review of RPA de- terminations, upon petition by any interested or aggrieved 1 D. State regulation of critical areas with municipal ad- party showing the importance of the issues at stake. More- ministration. On the basis of consultations with all inter- over, all public development would be subject to the same ested agencies and the public, the Cabinet could be statu- set of approved standards, and proposed projects could be torily empowered to list particular areas for proposed reviewable by the Cabinet upon petition of any interested designation as areas of critical environmental concern in party. accordance with guidelines or criteria to be set forth in the enabling law and based on the designations and man- The advantages of this alternative are as follows. Because of agement recommendations already developed by the the broad jurisdictional scope of its composition, the Cabinet SENE Study. Such areas might be confined at first to the is the most appropriate entity to oversee and resolve inter- coastal zone, bearing in mind the Federal Coastal Zone disciplinary and interagency disputes occasioned by the im- Management Act (CZMA) of 1972 and the state coastal plementation of this critical area program. For the staff zone program; later, inland areas could be added in con- capabilities needed to carry out the program, the Cabinet sistent ways to the list. The Cabinet could directly zone could utilize the diverse manpower talents of its several each designated area for particular uses and propose regu- constituent state agencies, or expand the technical capa- lation for restricting or controlling development therein bilities of its own staff. (responsively to the management program specifications of section 305(a) of the CZMA). A further set of regulations Again, this alternative would take maximum advantage of could be proposed for controlling developments of regional the work identifying Critical Environmental Areas already impact, wherever located within the state. These sets of done by the SENE Study. Under tIris alternative, every level proposals could be submitted to the Legislature for review of government - state, local, and sub-state regional - is and, if not disapproved within ninety days by the relevant given a role in the designation of areas to be preserved; the committee of either branch, could override any inconsistent level of government most appropriately concerned with a municipal ordinances and could be binding upon all state, potential problem area does the designation for that area. regional, and local agencies. In the course of preparing the The alternative also preserves municipal initiative in deter- state zoning scheme, the Cabinet would review municipal mining what development controls will be applied to criti- ordinances for the required consistency, and, if found to be cal areas, in line with traditional concepts of local control adequate, the municipality would continue to administer over land use. them. By confining the state's role to the designation of critical With some adaptations, this design could be modified to areas of state concern, to the establishment of flexible emphasize a regional or areawide approach to protecting standards for regulating land use in such areas, and to the critical areas. In this variation, regional planning agencies limited review of actions taken or not taken, pursuant to could identify areas of critical planning concern and adopt such directives, this alternative avoids the objections that standards for their protection, management, or development. would be raised to any more pervasive state role in deter- RPAs, with additional authority granted by the Legislature mining patterns of development or in indirectly regulating could then administer consistent controls. An areawide ap- land use. proach to critical areas is in line with some current directions 10-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made in the state, the Martha's Vineyard Law and the Franklin activities on the land through performance standards de- County Bill being the most notable examples. Such an signed to protect the water resource, in all phases of the arrangement also, would be more responsive to local con- hydrologic cycle, against degradation or excessive deple- ditions and would provide a means only one step removed tion. In all cases, the most sensitive question of interbasin from municipalities to reconcile local and regional objec- resource allocation could be resolved by legislative action. tives. Such plans and policies could be proposed after consulta- tion with all interested agencies, including the RPAs and Municipalities would be charged in the first instance with the public. administering the state-set controls in designated areas falling within their respective jurisdictions, In case of re- With these objectives in view, an interagency body would peated failure by a municipality to apply the state regula- prepare a program guide for water resources management tions, the Cabinet could assume direct regulatory control throughout the state, which would acquire authoritative of a designated area or class of developments, or designate status upon review and approval by the Cabinet. Such an the relevant RPA to assume such control. interagency body might be the Massachusetts Water Re- sources Commission (WRQ, if it were given adequate au- The advantages of this alternative are as follows. This al- thority and staff. The guide could include: (I) identifica- ternative (for which a rough precedent exists in Hawaii law) tion of water and related land. resource projects proposed .outlines a direct, efficient, and expeditious way of asserting for development, expansion, or management by state the state's interest in the protection of critical areas and in agencies within the foreseeable. future, together with en- the guidance of significant development. The responsibility vironmental and economic impact analysis of the alterna- would be shared between the Executive Branch, through tives considered and institutional and fiscal strategies for the Cabinet and the Legislature, which adequately repre- implementing the preferred alternatives; (2) guidelines and sents local interests. Localities would also be given a prime regulations that the WRC arid the Department of Health opportunity to implement state strategy. would follow (the latter to retain its regulatory power over the purity and safety of public water supplies) in reviewing Ae disadvantages of this alternative follow. State interven- application from regional or local agencies for approval to ti'on of this magnitude, even if confined to carefully chosen develop or expand their own sources of supply; (3) guide- areas and developments of critical concern to the state itself, lines and regulations for allowing multiple use of water departs severely,from the tradition.of primary local control bodies and adjacent lands, and for protecting water qual- over land use. Objections might be raised to dictation from ity against adverse impacts of land use, including land the top down, without having sufficiently resorted to pro- disposal of wastes; (4) integration of basin plans for water cesses of accommodation and consensus-formation among quality control into larger basin plans for protecting and all concerned agencies and the public. In particular, the ab- managing the entire water resource; and (5) designation of sence of local participation in the development of the en- particular water resources as of critical state concern, based visaged controls might well eliminate this alternative as on those identified by the SENE Study including fragile or politically unfeasible. non-renewable resources that are in jeopardy of depletion, or degradation or salt water intrusion (e.g., the Cape Cod The second set of approaches demonstrates an indirect ap- aquifer) and waters subject to competing or conflicting de- proach to guiding growth through comprehensive programs mands that cannot be simultaneously accommodated. for the protection of the water resource. The. first offers a regional emphasis; the second illustrates centralized state Substate regional or areawide entities would be the primary management. Both are based on the development of inte- vehicles for implementing state-set policies and would pre- grated long-range policies for management of water resour- pare specific water management plans consistently with the ces in all phases of the hydrologic cycle. guide to allocate and protect the waters of a region. By legislative mandate, ground waters would be included, in 2A. Regional management of water and related land re- whole or in part, within the definition of waters subject to sources. Under this approach, a state interagency body, public regulation. The regional plan would establish and representing-all agencies concerned with the protection and allocate intrabasin water uses in harmony with other func- use of the state's waters, would plan and set standards with tional plans developed regionally; identify needed facilities respect to: (1) the quality, quantity, and the availability for water resource management; establish regulations to be (timing and placement) of the water resource; (2) coordina- observed by local authorities in permitting ground and sur- tion of water resource de0lopment with demographic and face water use, subsurface disposal, sewering and sewer con- economic growth, consistently with any applicable state nections; and articulate performance standards for conserv- policies respecting growth and land use; (3) allocation of ing water and controlling polluted runoff from land devel- the resource among competing or conflicting instrearn and opments and land disturbing activities, especially as these withdrawal uses, whenever and wherever it is not sufficient may affect water resources of critical state concern. to satisfy all demands simultaneously; and (4) regulation of 10-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made A key agency for assisting in the implementation of regional implementing regional plans of the caliber contemplated by Aak flow management plans could be a regionally based environ- this approach. It may be necessary to reform the RPAs MW mental service authority, RESA, which would perform the which may be politically difficult to achieve, if it means following functions: (1) render technical assistance to opera- any loss of individual municipal autonomy to the regional tors of water management and wastewater management fa- entity. Similar objections may be raised to the concept of cilities; (2) monitor such operations for conformance with the RESA, and owners of land above ground water can be applicable state or federal standards; and (3) on request, expected to resist any attempts to compromise their claims contact with any public or private entity to plan, finance, to unrestricted control over this resource. construct, or operate any water supply or waste management facility. As discussed in an earlier Chapter 4, Water Supply, The second approach in this pair involves greater state such authorities could be created through intermunicipal management. negotiation and agreement. The managing board of each RESA would include technically qualified personnel as 2B.. State planning and management of water and related well as representatives of the region, the localities within land resources. In a variation of the above approach, an it, and the public. Responsibility for taking enforcement interagency council, such as the Massachusetts Water Re- action against violators would continue to reside primarily sources Commission (WRC), after consultation with other in other state agencies. interested state,. regional, local agencies, and the general public, would prepare an integrated master plan for water The advantages of this approach are many. As pointed out resource management and protection of lands critical to in earlier chapters on water supply and water quality, there the protection of water in the Commonwealth. This plan is a need to integrate management of all phases of the water would contain all the elements described in the previous resource. This approach, and the one following, could be option. Howeveri in this approach, the WRC would ad- used as the means by which such integration could occur. minister a use-permit system over water and related land resources. No person could make use of such a resource, Development of regional capabilities for overall water re- nor conduct any land development or activity that might source planning and management is a natural extension of degrade it, without obtaining a permit from the WRC. the planning roles that may be assigned to regional agencies The plan, together with programs, and regulations for im- pursuant to Section 208 of the Federal Water Pollution Con- plementing it, would be reviewed and approved by the trol Act Amendments of 1972. This approach recognizes Cabinet. the advanced state of water quality planning and manage- ment. Moreover, most, if not all, of the existing regional A statewide Massachusetts environmental service agency planning agencies have already gained exposure through (MESA), or a series of regionally-oriented state agencies their water and sewer planning and their A-95 review roles, like the Metropolitan District Commission (MDC), would to many of the water-related technical and political issues be primarily responsible for implementing the approved within their regions. state plan. The MESA (or MDCs) would exercise functions, powers, and duties similar to those described for the RESA This approach envisages only a partial centralization of under the previous option. This means that the state itself power over water resources at the state level. Specific would become heavily in "volved in undertaking management plahning for use of the resource could mainly be done by measures, and in administering regulatory controls over both the regional agencies which may be in the best position the quality and quantity of the resource. to harmonize multiple environmental and developmental objectives, and to mediate between state, federal, and local 7he RPAs would continue to play advisory roles in water interests in resource management. The RESA, working in resource planning. Municipal agencies and intermunicipal close cooperation with both state and regional agencies, districts for wastewater management and water quality con- should be able to promote economies of scale, administra- trol could,continue to function, but only in accordance tive coordination,. and technical expertise in the manage- with the WRC's plans and under supervision of the MESA. ment of water resources, Local initiative in the development Local initiatives and municipal controls over water related of water and related land resources would be preserved, to land use would be left intact, but would be subject to the maximum extent consistent with the recognition of supervening state powers to protect, allocate, and manage legitimate state and regional interests in the extra-local the water resource. consequences of resource use. The advantages of this approach, like the preceding one, The disadvantages of the approach are that RPAs, which are that it would provide an opportunity to integrate long- appear to be the leading candidates for regional resource range water quality management and water supply develop- planning activities in Massachusetts, continue to be or- ment as conceived in earlier chapters of the Study. Location ganized on an essentially one-town, one-vote basis. Politi- of water reservoirs, for example, could be coordinated with cal parochialism may prevent them from developing and the development of treatment facilities. Moreover, this 10-14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made approach could provide efficiency in realizing the state's controlled at the local level. Guidelines would be promul- legitimate interest in the quality and allocation of the gated to direct certain kinds of development to possible water resource. Given the maze and geographic scale of sites, identified on the basis of resource capability criteria. interrelated problems, including some highly technical The location, criteria and requirements of particular kinds ones, there are those involved in the management of the of development would represent an expression of state state's waters who believe that the state itself must pro- development policies as set forth in the State Guide Plan tect and control this resource with a firm hand. At the and the State Land Use Policies and Plan. same time, accountability to a variety of private and public interests can be built into the design by requiring The State Planning Council (SPQ would adopt and pro- interagency consultations and public participation at mulgate the guidelines, which would be prepared by the key stages of the planning and implementing process. Statewide Planning Program (SPP), based on work al- ready done by the state and the work of the SENE Study The vesting of primary planning and support functions on in identifying critical areas and criteria for categories of the state level will achieve greater uniformity than that development, and any further studies which may be neces- attainable through use of the regional institution des- sary. The guidelines developed by the SPP would assess cribed in the previous approach. the impacts and resource requirements of various kinds of developments of regional impact and compare them with The disadvantages are that a powerful state agency in the the range of site characteristics which may be relevant in field of water resource management may be perceived as deciding their location. The guidelines would be based on too great an affront to the tradition of local autonomy. imputs from state agencies concerned with economic de- Such an agency would, moreover, require an enlarged velopment and environmental protection, as well as from bureaucracy' * The fact that state decisions regarding wa- representatives of local government and interested m6m- ter pollution control, water supply, and critical area bers of the public and private sector. management would have profound influence on growth and land use is also likely to engender substantial political The guidelines would be used by all agencies and developers, opposition. both public and private, in initiating, evaluating, permitting, funding or undertaking particular development proposals. Some of the state powers suggested here, for example, to Development proposals advanced consistantly with the allocate water supply and multiple use of the water re- guidelines could be facilitated by streamlined permit pro- source - may encounter constitutional challenges based cedures. Proposals which are not consistent with the guide- upon established riparian rights. Constitutional challenge lines would be more carefully scrutinized for potential ad- may also be expected to any wholesale declaration.that verse effects. Possibly other incentives such as funding or ground waters belong to, and are subject to allocation technical assistance would be withheld from those propos- by, the Commonwealth. These issues may require als which were inconsistent with the guidelines. lengthy litigation before the state can proceed with any master water resources plan. Municipalities would retain their authority for development permits, although they would be expected to apply the Rhode Island. Unlike Massachusetts, Rhode Island is guidelines developed by the State. Consistent with its role a small state with little or no tradition of regional govern- in the A-95 review process and the integrated grant adminis- ment existing between the state and its municipalities. tration program, the Statewide Planning Program would Moreover, the relevant institutions - particularly the conduct screenings to detern-tine if pending municipal de- Statewide Planning Program (SPP), the State Planning velopment permits as well as development proposals ad- Council (SPC), the Coastal Resources Management Coun- vanced by state agencies were consistent with the guidelines. cil (CRMC), and the Water Resources Board (WRB) - have no precise counterparts in Massachusetts. For these The advantages of this approach are as follows. Insofar as reasons, a different array of institutional possibilities the State Land Use Policies and Plan suggests the adoption must be tailored to Rhode Island. As set forth below, of State development policies and the administration of they are organized under two major categories: (1) the general statewide guidelines, this approach would reflect control of land uses in areas of critical planning concern, current state efforts. Moreover, this approach would build with varying degrees of state and local responsibility; and on the criteria for guiding development that are advanced (2) the centralized management of water and related land in earlier chapters of the Study, such as the criteria to iden- resources. tify future power plant sites in ways consistent with water and related land resource characteristics. The guidelines IA. State development guidelines for use by local gov- would also provide uniformity of approa 'ch to developments erninent. Similar to the Massachusetts approach IA, state of, regional impact or in special problem areas which have development guidelines would be prepared to address spe- common characteristics, even though located in different cific types of development which cannot be adequately political jurisdictions. Further, the guidelines adopted by 10-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made the SPC would be a definitive expression of state policy (category A): highly fragile resources which have the low- and norms for evaluating the efficacy of certain develop- est tolerance for development and the highest value for ment types. water resource protection; (2) Other Protection Areas (category B): resources relatively tolerant to specific types Finally, since the guideline would not select specific de- and densities of development and having high value for velopment sites but would create instead an advisory pro- water and related resource management; (3) Developable cess for matching sites with needs, is not likely to be seen Areas Requiring Management (categories C, F, and G): as a great affront to the tradition of home rule. resources capable of absorbing varying degrees of devel- opment; (all of which are included in the Study's defini- The disadvantages of the approach are as follows. By the tion of areas requiring protection and those capable of same token, the fact that the guidelines may only be ten- development), as well as (4) areas directly affecting, or tative or advisory may undermine effective implementa- affected by, major existing or planned key facilities or de- tion of state development policy. Considerable resources velopments of regional impact (e.g., those described in and expertise may be necessary to prepare a useful and Chapter 9); and (5) areas which, for reasons of state eco- persuasive set of guidelines. Finally, although this ap- nomic or social policy, have been accorded a high priority proach could be used as an entire state program, it would for development or redevelopment. The state standard- appear to be more useful as a component of a broader setting agency or agencies would review the mandated lo- program. Guidelines alone might leave the state without cal controls for such areas and, where proposed controls adequate authority to regulate some matters of clearly were deemed to be inadequate, would make recommenda- state concern. tions for their improvement. If the state recommendations were not complied with within a specified time, or local The second alternative vests primary responsibilities with ordinances were inconsistent, the state would prescribe the localities. required controls for the municipality. Developments lo- cated in, or affecting, the designated areas would be regu- 1B. Mandatory local planning and zoning. A contrasting lated by permit systems administered by the concerned approach based on local controls under state initiative municipalities, consistently with the approved set of con- would apply to Rhode Island the framework outlined in trols. The state would stand prepared to acquire, or to approach I B for Massachusetts. (See 1B above under assist a municipality in acquiring, the appropriate rights Massachusetts.) to any area designated for maintenance in a natural state with little or no development. The distinguishing features of this approach in the Rhode Island setting would be the absence of a regional inter- Issuance of use or development permits by municipalities mediary between the state and its municipalities, and the pursuant to this scheme would be appealable by interested performance by SPP-SPC of those functions which in or aggrieved parties to the appropriate state agency for re- Massachusetts would be assumed by the RPAs. The ad- view. Upon such appeal, the state agency would be em- vantages and disadvantages enumerated there would also powered to veto or to modify any permit it determined to hold true for Rhode Island. have been issued inconsistently with applicable standards. Further, the state agency would itself be empowered to The next approach poses a more influential state role in initiate, on its own motion, the review of the issuance of critical areas management. any local permit which it suspected of being in derogation of applicable standards. The denial of a development per- 1C. State designation and local regulation of areas of mit by a municipality would not be appealable to, or re- critical concern to the state. This approach would viewable by, the state agency. All local and state agency charge a state agency with the responsibility to desig- determination would, however, be subject to judicial re- nate areas of critical concern and to establish standards view after all administrative remedies had been exhausted. for protecting, managing, and developing those areas. The most likely agency for the role of designating these The advantages of the approach are that it would provide a areas and establishing standards for their protection or direct and efficient method by which state interest in en- development would be the Statewide Planning Program, vironmental protection and economic development can be subject to guidance, review, modification, and approval expressed through a unified state planning process. This by the State Planning Council. Municipalities would approach would retain initiative for guiding local develop- then formulate zoning and other development controls, ment at the municipal level, while promoting the state's pursuant to the state standards for designated areas within broad interest in protecting critical environmental areas. their respective jurisdictions. The state and the towns would each exercise controls at a scale, and through mechanisms, consistent with their Areas of critical concern to the state would be legislatively interests. defined but might include: (1) Priority Protection Areas 10-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Because the review patterns contained herein (e.g., double comprehensive, statewide strategy for accommodating de- veto) are familiar elements of existing programs for coastal velopmental and environmental issues. This approach fur- and inland wetlands protection, this approach has an insti- ther respects the existence of CRMC as a functional agency tutional precedent and a major redistribution of power at, and would preserve or strengthen its role. Municipalities or between, state and local government levels would not be would continue to regulate land use outside of areas of necessary. State-set standards for protecting critical areas critical environmental concern, and would share the regu- could be flexible and sufficiently general for towns to latory responsibilities with RMC or CRMC within such readily tailor them to particular local circumstances. areas. Moreover, a substantial portion of the planning that must guide CRMC and RMC activity has already been' This approach is consistent with some of the organizational done by the Statewide Planning Program. CRMC and precepts expressed in the Rhode Island State Land Use RMC could take over from SPP the further development Policies and Plan, in the 1972 Coastal Zone Management of such planning pertaining specifically to coastal and in- Act, and in some of the national land use control proposals. land areas, respectively. This approach is also consistent with the Coastal Zone Management Act and other federal The disadvantages of this approach are that it would land use related legislation. necessitate significant statutory revisions to empower SPP- SPC to set and enforce standards, and well might encounter The disadvantages of this approach are that RMC would opposition to the degree of state control it envisages over impose an additional administrative burden on the state local determinations. and could complicate existing interagency relationships. It could also be perceived as inconsistent with traditional The last alternative would vest the state with greater regu- local perogatives in matters of land use allocation and, latory authority. possibly, would not be responsive to local needs and priorities. 1D. State regulation of critical areas with municipal admin- istration. In a variation of the above alternative, a ResOUT- The final approach demonstrates an option to integrate ces Management Council (RMC) would be created to formu- planning and management of water and related land re- late plans consisting of designations, standards, and regula- sources with other resource policies, as the State is pres- tions for protecting, managing, and developing inland areas ently attempting to do. (Since no regional government of critical environmental concern based on designations pre- exists in Rhode Island the regional management alterna- sented in the SENE Study, and would implement these tive applied in Massachussetts is not applicable to the through appropriate regulatory controls. The Coastal Re- State.) sources Management Council's (CRMC) mandate would continue in a parallel role with respect to a defined coastal 2A. State planning and management of water and related zone. Both sets of plans would be reviewed by the State land resources. Under this approach, greater emphasis Planning Council for consistency with state policy as ex- would be placed upon the State Planning Council (SPQ pressed in the State Guide Plan and would be binding upon to formulate overall policies and plans for protecting the municipalities, overriding inconsistent municipal ordinances environment, and for integrating the management of the or actions. water and related land resources of the state. The State- wide Planning Program would be responsible for the prep- The RMC would be newly established by legislative author- aration of an integrated, long-range water resources plan, ization with the regulatory powers suggested here. Powers including water supply, wastewater management, solid of the CRMC would also be strengthened to equip it for a waste disposal, and the prevention of improper land ac- similar role. CRMC's staff would be removed from the DNR tivities to protect the water resources of the entire state. and brought under the direct control of the CRMC itself. In This plan might contain all of the elements proposed addition to any required municipal permit, a development above in Approach 3A for Massachusetts. This plan falling within the regulated categories would also have to be would be, incorporated into the comprehensive State approved by the issuance of a permit from either the RMC Guide Plan, for which the SPC is already responsible. or CRMC. The grant or denial of such a permit would hinge The SPC would ensure that all plans for environmental upon the consistency of the proposed development with ap- resource management are consistent with one another plicable sets of plans and guidelines, and would be appeal- and with other components of the State Guide Plan. able to the courts upon petition of any interested party. As a first step to bringing this about and consistent with The advantages of this approach are that with an adequate current efforts in the state to integrate long-range func- definition of the jurisdictional zones to be regulated by tional policy making in the State Planning Council, the these two agencies, and with a viable mechanism (namely, responsibility for long-range water resources planning the SPC) for resolving conflicts occasioned by regulatory would be transferred to SPP-SPC from the Water Re- activities affecting both zones, this approach offers a sources Board (WRB). The WRB would retain its existing 10-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made responsibility for project planning in the field of water phases of the hydrologic cycle, as suggested earlier in supply, and would acquire a parallel responsibility with Chapters 4 and 5 on Water Supply and Water respect to wastewater management. The Solid Waste Cor- Quality. poration (SWC) would carry out responsibilities for solid waste and sludge disposal as they bear on the protection of water resources. All project plans of the WRB and the By articulating a structure for strong state direction SWC would be reviewed by the SPC for consistency with of environmental and economic affairs, conducted con- the State Guide Plan, guaranteeing the implementation of sistently with the State Guide Plan, this option suggests the water resource plans. Monitoring wastewater manage- a strategy for meeting objections stated by some in the ment facilities operated by the WRB or municipal agencies State that the State's existing efforts in the field of en- would continue to be the responsibility of the Department vironmental protection and water resource management of Health (DOH). The Public Utilities Commission would are uncoordinated and in some cases, internally incon- regulate waste treatment rates as it now does supply rates. sistent. As at present, acquisition, construction, and management Since the WRB would construct wastewater management of water supply sources and water resource projects would facilities for a municipality or group of municipalities only be done by or with the approval of, the WRB. The only when the latter proved unwilling or unable to do so, WRB would acqu 'ire additional responsibility for waste- as required by the water resources plan or by the DOH, water management facilities. The WRB might itself con- water quality standards, direct state intervention in local struct water supply facilities in advance of demand. And, matters would also be kept to a minimum. where a municipality or group of municipalities proved unwilling or unable to provide needed water supply or Since the planning and implementation of water manage- wastewater management facilities in accordance with the ment for all municipalities within the state would derive state plan, the WRB would be authorized to construct, from a comprehensive state planning perspective, a more operate, maintain, and/or lease them as necessary for coherent approach to management of the resource would that municipality or region. Similarly, with appropriate be achieved than under any less centralized approach. On funding the SWC could operate a solid waste disposal pro- this basis, the WRB would be able to encourage and/or gram in the state, and could coordinate its efforts with the effect regional solutions to management problems where WRB through the SPC. Establishment of specific water a proliferation of local-responses is not deemed desirable. quality standards and administration of regulatory pro- grams to achieve and maintain them would still be carried This approach would require only moderate adjustment of out by DOH. Moreover, DOH's input would be decisive on jurisdictional interests of existing agencies. The extension all aspects of the long-range water resources plan affecting of the WRB's present mandate over water supply into the the purity and safety of the resource. wastewater management field fills a void now unaddressed in institutional structures. Consolidation of long-range To the extent that the development of water resources policy planning in the State Planning Council would pro- would influence other growth, assuring that water resource vide greater integration between land use, water supply, operations are carried out consistently with state policy and water quality policy making. will also assist the implementation of other elements of the State Guide Plan. However, if the state is to assume This approach reflects, with some limitations, the recom- a comprehensive role in the management of natural re- mendations of the Governor's Environmental Task Force. sources, greater decision making authority would have to be vested in a particular agency to ensure implementa- Yhe disadvantages of this approach are as follows. To the tion. In this case, for example, the SPC could be given extent that this alternative is perceived as an intrustion into responsibility to Coordinate programs, to resolve conflict, local matters and perogatives, the role of the State Planning to compel appropriate agency activities and to veto in- Council and the extension of the WRB's power to waste- consistent ones, subject to final approval by the Gover- water management may encounter legislative opposition. nor. If the SPC is to accept these responsibilities, then Further, a state master plan for management of the entire the membership of the SPC should be enlarged to include water resource may appear too rigid and too centralized other state agencies. In this way, the state will not only an exercise of state power. formulate natural resource policy, but also implement it. Difficulties may be encountered, on the other hand, in de- The advantages of this approach.are as follows. Again as fining the respective roles of the WRB and the DOH, and in approach 3A and 3B for Massachusetts, this approach in coordinating their roles, with respect to activities or would integrate management of the water resource in all developments that affect both the quality and quantity of phases of the hydrologic cycle, as suggested earlier in the water resource. 10-18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made An Index for Decision Makers are set forth in specific terms but, by and large, include such things as administrative tasks, changes in policy, 4ddi. The last part of this chapter sets forth some of the major tional funding, or modifications in existing authority. recommendations of the SENE Study and the actions 'Me public and its elected officials will find this a useful necessary to carry them out. It is organized by level of tool to specify the things which particular agencies can do government charged with particular responsibilities and to move the SENE program into action as well as to moni- will serve as means by which implementation activities tor' the degree to which specific recommendations are be- can be graphically protrayed. Implementing actions ing implemented (See Table 10.2). .10-19 TABLE 10.2 AN INDEX FOR DECISION-MAKERS OF MAJOR ACTIONS (Priorities fisted next to recommendations: *highest priority; 0 high Priority; * other priority) *Increase& integrate protection elinprove management of *Prefer local groundwater oMaintain existing water sources of critical environmental areas, developable areas to intertown surface priority (Cat A) and other (Category C, F, & G) water to interbasin trans- protection areas (Cat. B) fers. Congress Provide funding Federal * Provide funding for acquisition USDA (SCS): Provide technical Agencies 0 USDA (SCS) &EPA: establish assistance runoff & sediment standards; (provide technical assiitance flood hazard and soils studies) 0 HUD administer flood program State 0 Amend wetlands legislation Establish criteria for location Legislature 0 Provide funding for acquisition of key facilities 0 Clahfy authority for innova- tive land use controls C 0 Reform tax law to create CD ca incentives to preserve agric. land cr r 0 Establish "agric. districts" C E! 0 State State DNR's: Acquire significant State agencies: adopt precau- Mass. DNR & RA. WRB: Mass. DNR & R.I. WRB- M 0 M Administrative sites; promulgate protective tions for hazardous activities Encourage municipalities Establish program to encourage 0 q M CD Agencies standards. such as sanitary landfill, salt to supply future water by municipalities to maintain =r --I W 0 RI DOH & Mass. DPH: Protect Storage industrial wastes, agri- using in basin ground water existing sources, through pro- t") < C) resevoir sites; locate outfalls away cultural runoff, sand & gravel and regional in-basin sur- tection,conservation Management, M M from swimmable areas. mining below the aquifer level face water before con- and acquisition. i.e. CA < Promulgate regulations for sidering inter basin trans- 0 Acquisition of key sites criteria for locations of key fers. Adopt policy 0 Limit water consumption C) facilities. Identify and pro- by pricing & education Cr Z tect specific sites for key * Study advanced technology M facilities (acquisition or > Q3 designation) CL In Regional RPA (Mass.) & SPP (R.I.): RPA's and SPP use new infra- Organizations prepare and promulgate structure as tool to guide growth protective standards Local Protect areas by enacting ap- Enact ordinances allowing develop- Use groundwater, inter- Maintain existing sources Government propriate land use controls; ment according to resource capa- town surface water, join in flood insurance pro- bility; maximize public invest- before using interbasin gram; adopt standards to ment efficiency in infrastructure transfers protect land; acquire, by options, (clustering, excess easement or in fee, designated capacity, etc.) areas Citizens Monitor protective program Lobby for ordinances TABLE 10.2 (Cont'd.) RECOMMENDATION OExpand MIX sources with Encourage substate regionalization *Stress anti-degradation in *Emphasize treatment of urbim Northfield Mountain and Millers of water supply systems areas now swimmable stormwater flows River Facility fishable Congress Provide funding for municipal Federal wastewater treatment _programs Agencies COE: Construct diversion EPA: Provide funding for treat- ment of urban storm water runoff State * Enact law encouraging Legislature intertown onopera-fign 0QerkLapproval for"non- local supply development w/DPH & DOH State Mass MDC;XcquIre water from Mass. DNR & R.I. WRB: 0 Mass. DNR: & R.I. Mass. DNR & RJ. DOH: M Administrative Northfield Mountatri a"nd Millers Encourage regionalization DOW Ensure no new Designate areas for treatment (D C.) 0 Agencies River Diversion. State authorize among municipalities (policy) discharge will deterior- of urban stormwater runoff. bonds Mass. WRC & DPH & R.I. ate the quality of 0 WRB & DOH: Coordinate & stream water above the M A review establishment of most upstream munici- < regional system. Grant Dal discharges. approval. Mass DNR & R.I. DNR: Encourage adoption of 0 subdivision ordinances which minimize ero- 3 sion effects CL 0 Mass. DNR & DPH & R.I., M DNR & DOH: Ensure downstream negotiation for low flow regime 0 State DNRs & R.I. SPP: encourage protection of streambank buffer strips Regional Organizations Regional System: Develop supply Local Towns to negotiate & cooperate Government with one another; petition legis- lature to approve system, estab- Citizens lish system by agreement Construct plants. Lobby for law TABLE 10.2 (Cont'd) RECOMMENDAT70N *Accelerate federal grants for Continue current industrial o Begin regionwide storm oMake towns responsible for municipal wastewater treatment per-its program water and wet-weather stream scavenger waste disposal sampling Congress Appropriate funds; administration to encourage federal grants Federal EPA: Persuade Congress & EPA: Continue monitoring & Agencies Administration to appropriate approving state programs grants COE: Participate in wastewater management studies (Boston, Mass, Boston Harbor, PNB) State Legislature State Mass. DNR & R.I. DPH: Mass. DNR & R.I. DOH: Mass. DPH & R.I. DOH: Administrative Continue industrial pollution Begin year round stream Enforce existing legislation Cr @< w Agencies permits program (National sampling as first step in non requiring towns to be respon- C r- 2! 0 Pollutant Discharge Efimina- point source abatement sible for proper disposal of = . M tion System). program. septic tank wastes CD 0 M Regional Organizations a) 0 Local CD M CA < Government Dispose of waste within state guidelines M Citizens Lobby for funding 3 TABLE 10.2 (Cont'd.) RECOMMENDATION *Expand facilities at existing 0 Form State Boating Advisory o Construct public boat ramps Develop Boston Harbor island state beaches and parks Committee and fish piers and Narragansett Bay Island Park Congress Federal BOR: provide technical & Agencies financial assislance CD State cr ca r Legislature C: Z! 0 M Mass. & R.I. DNR's-. Mass. Dept. of Commerce & R.I. Mass. Public Access Board Mass. & RJ. DNR's & Mass. 0 Provide increased capacity at Dept. of Economic Development and R.I. DNR: Construct MDC: Implement current plans M 0 State existing beaches, and acqnire (with public works, coastal zone boat ramps and fishing to develop Harbor Islands & 0 Administrative additional undeveloped beach & natural resource agencies) & piers to productive salt Narragansett Bay Island Park M Agencies areas for recreation. private citizens should form a water fishing areas for use by M M State DOT & recreation planning boating advisory committee to the general public. < agency: consider feasibility of in- develop training programs, provide 0) creased public transportation & guidance for recreational entre- :3 0 expansion of parking facilities, peneurs, implement orderly dev. of Cr Z with shuttle service to beach boating, encourage fore & aft moor- ings, and expansion of existing marinas near centers of high demand as well as encouraging utilities and CD private industries to allow public use wherever possible. Regional Organizations Local Consider expansion of Municipalities to construct Government existing beaches & parks ramps and piers at local beaches or facilities Citizens Encourage formation of &join boating advisory committee. TABLE 10.2 (Contd) RECOMMENDATION 0 Make multiple use of urban Declare interim offshore 200 mile *Adopt national fisheries *Create region-wide port lands economic zone management policy development strategy Congress Extend nation's jurisdiction to 200 Establish national policy miles offshore by legislative action incl: 0 limited foreign entry a quotas 0 seasorral,or species controls * fishing gear specifications Federal BOR: Provide funding Dept. of -Commerce, NMFS: Corps of E Participate in Agencies Administer policy Dept. of . Col joint study U.S. Coast Guard: Monitor, US Coast Guard, & with state, enforce policy Maritime Admin. NERCOM,& NERBC State Authorize participation in study M Im Cr r Legislature C State DNR`s: Provide funds for M Administrative acquisition CD 0 M agencies M a) 0 Regional M Organizations NERCOM & NERBC: Undertake M joint port planning study, for the < region: (see notations of study W C-A considerations) 3 0 Local increase recreation oppor- Z M Government tunities in urban areas; ac- > quire parks, & recreation CL areas; allow multiple use of public lands. Citizens Lobby for law Lobby for law Cr M 3 TAhLE 10.2 (Contd.) Coordinate local waterfront 0 Prepare flood plain programs Adopt zoning to prevent new *Establish other regulations planning and development. with non-structural emphasis. flood plain construction to control runoff. W Congress Appropriate funding Appropriate funding rA C 0 Federal OMB: Approve funding of COE provide technical WD: Administer National USDA - SCS: Provide technical M M 0 Agencies waterfront programs USDA assistance to communi- Flood Insurance Program assistance 0 M (SCS) ties USGS State M Legislature C) < a, State Coastal zone planning programs in State DNR's: Prepare flood plain State planning offices and DNR's: Assist communities 5 Administrative Mass. & R.I.: Develop urban water- management (non-structural) DNR`s should provide Agencies front planning and management programs. Provide technical assis- guidelines guidelines and criteria tance to municipalities CL State & RPA: Should review and Coastal zone planning programs revise local plans where impact may should participate for coastal flood be of greater than local concern areas Regional RPA (see above) RPA's should participate in pro- Organizations gram preparation Local Plan for urban waterfront Implement non-structural flood Adopt flood plain zoning to Enact erosion & sediment Government re-use plain manageme 'nt program (or- prevent further flood plain control ordinances. dinances, taxes, zoning) development as defted under the National Flood Insurance Program. Citizens TABLE 10.2 (Cont'd.) C ENDATION: 0 Manage critical erosion areas 0 Centralize minerals management 0 Create state energy conser- *Identify and secure power plant through state coastal zone pro- authority in state DNRs. vation education programs. sites for future use; avoid criti- grams. cal environmental areas for fu- ture sites; maximize existing ACTOR site capabilities. Congress Federal Work together in the approved Agencies state coastal zone programs. State Ensure coastal zone management Ma ss. General Court; R.I. General Mass. Gen. Ct. & R.I. Gen. Legislature agency of state (Mass. CZMP; R.I. Assembly: designate state DNR as Assembly: Expand auth. of the CRMQ has adequate jurisdiction appropriate for mineral resources Energy Facilities Council & to include critical areas in the policyrnaldrig, monitoring, and The Coastal Resources Mgt. Coun. M coastal zone. regulation to identify & secure sites. C DPW: Encourage stabilization of DNRs: Mass. & R.I. Energy Policy State siting agencies: Avoid critical r coastal erosion areas 0 create minerals publ. educ. pro& Offices: environmental areas for future Cn SUte 9 provide guidance to municipah- * establish Programs sites; wherever possible require Administrative I C 0 ties to estab. a permit prog. 0 set rate reduction goals expansion of existing facilities. Agencies 0 Promulgate statewide operating Other agencies: begin im- M & rehab. stds. plementation of conservation 0 q M 0 estab. state licensing of mineral measures. (see text for -4 cxtraction operators specific measures) 0 0 begin staged reclamation of W M abandoned extraction sites. rn < su Regional 0 0-0 Organizations 5 Z LlDcal Encourage stabilization of, and 3 > Government W establish regulations for, coastal CL n erosion areas Citizens r OMMENDATION: ACCTOR TABLE 10.2 (Cont'd.) ORevise building standards to im- o Establish petroleum facilities OEstablish deepwater port(s) 0 Fund Rhode Island solid waste Prove heating-cooling efficiency; siting authority in each state evaluate sites individually, management program. set state energy consumption locate refineries inland near rate reduction goals. infrastructure. Congress Federal Agencies C E! 0 M State Mass. Gen. Ct. & R.I. Gen. CD Legislature R.I. Gen. Assem: Provide 0 0 q Assem: Expand authority of funding; authorize bonds = -4 M Energy Facilities Siting Council a) 0 t-j) and Coastal Resources Manage- ment Council, to enable them M M to survey & secure potential < sites. 0 State Mass. Dept. Community Affairs & Z Administrative RJ, Statewide Plartfu State siting agencies: Locate R.I. SW Corp: Prepare budget, . ng Program: refineries, storage facilities, carry out prograM > Agencies promulgate revised standards for and related development inland, buildings to improve heating- in areas served by transporta- cc In cooling efficiencies; State Energy tion, water supply & wastewater Policy Office: set energy consump. services. Energy Policy Office tion reduction goals; establish im- should adopt & carry out policy plementation strategy. of deepwater ports as the pre- ferred method of petro. dis- tribution Regional Organizations L4DcaI Adopt revised building codes Government Citizens TABLE 10.2 (Cont'd.) RECOMMENDATION Maximize use of existing resource policy institutions to strengthen the management system for nat- uralresources. Congress Federal Support state efforts to integrate Agencies resource management policy- maldng with social &.economic policy of the state. State Legislature Mass. Cabinet, & R.I., SPC: ST cco)r 0review resource mgt. policies & programs recommended by the M SENE Study (D 0 State 0adopt approp. state policies 0 q Administrative 0provide guidance to pro& admin. = -4 M 0 Agencies to ensure consistent implementa- W < 00 tion A 9consider & adopt one of the alternative mgt. approaches (see text) Cr CD Regional NERBC, NERCOM, Gov. Conf., 3 Organizations FRC: Support state efforts; provide regional coordination Local Government _,ns CHAPTER 11 TYING THE RECOMMENDATIONS TOGETHER This chapter has several purposes. First, it describes how economically, and socially acceptable. Satisfying the plan- the SENE program is systematically tied together in a ning objectives achieves the overall study goal. hierarchy of goals, planning objectives, and responsible agencies. How Recommendations Satisfy the Planning Objectives � The overall Study goal is achieved by satisfying its component planning objectives; To satisfy the planning objectives, the SENE Study proposes � The planning objectives, in turn, are satisfied by 130 recommendations. They are listed in the left column of implementing their supporting recommendations; Table 11. 1 under the planning objective they satisfy. Each � The recommendations are implemented by carrying recommendation is given in its short form as listed on the out certain activities; and back of the overview. The full text of the recommendations � The activities are carried out by designated agencies, can be found in the appropriate chapters. As explained fur- some to oversee programs, some to carry them out. ther in the legend at the end of Table 11.1, the symbols on the left of the recommendations indicate their relative im- Second, the chapter evaluates the SENE program in terms portance in the SENE program. of broad national criteria. The first set of columns in Table 11.1 indicates the relation- Last, the chapter observes the entire program and reflects ship between recommendations and planning objectives. For on how the three major conclusions, that run like master example, the recommendation number I (GG-1) under Guid- themes through the recommendations, evolved from the ing Growth (Chapter 3) is "Protect critical environmental Study. areas, priority protection (Category A), and other protection areas (Category B)." Reading horizontally, the symbols (ex- How Planning Objectives Achieve the Goal plained at the end of the table) show that this recommenda- tion has a direct beneficial effect on the planning objectives As stated in Chapter 1, the principal goal* of the SENE of five of the seven chapters. Recommendation GG-1 was program was taken from the Plan-of Study, prepared be- designed to guide growth, of course, but it also directly fore the, Study began. It was approved by the U. S. Water benefits Chapter 4, Water Supply, by protecting well sites Resources Council and reads: and wetlands, Chapter 6, Outdoor Recreation, by protect- ing beaches and wetlands, Chapter 7, Marine Management "To identify and recommend actions to be taken by protecting wetlands and shellfish areas, and Chapter 8, by all levels of government and by private interests Flooding and Erosion, by protecting wetlands, beaches, and to secure for the people of the region the full range critical coastal erosion areas. Recommendation GG-1 also of uses and benefits which may be provided by indirectly benefits water quality by protecting wetlands, balanced conservation and development of the re- which tend to trap sediment and absorb some water-borne gion's water and related land resources." contaminants. The recommendation is shown as having little or no net effect, however, on the objective of Chapter 9, To achieve this goal, the Study was broken down into the Unwelcome Facilities. Protecting Category A and B areas seven broad functions which Chapters 3 through 9 of this makes it even more difficult to locate these facilities. On the report describe. The functions generally correspond to other hand, defining these critical environmental areas and the principal traditional subdivisions of comprehensive' identifying their general locations on maps increases the planning for water and related land resources. To give probability that these sites will not be considered by indus- them focus, each function (Chapter in this report) is des- try. On balance, these two effects are judged to offset each cribed in terms of a single broad "planning objective". other. The seven planning objectives have been stated in their appropriate chapters. They are repeated in the left col- In a similar manner, all the other approximately 900 rela- umn of Table 11. 1. In general, each planning objective tionships between individual recommendations and planning attempts to satisfy a need (solve a problem), subject to objectives were characterized. the constraint that solutions must be environmentally, As also indicated in Chapter 1, a second goal was to produce a compilation of base data. The first goal is met by the SENE Study recom- mendations which are being discussed here in Chapter 10. The second goal is satisfied primarily by the SENE Study Files described in Chapter 1. TABLEIIA INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS Planning Objectives Major Activity es Principal Agencies 4 Ca CJ Cd W4 .2 0 0 0 00 U) a 0 0 ..9 0 Ca oi 0 = 1:1 0 0 0 0 E M 0 'D I V 0 Cr W Planning Objectives and Numbered Recommendations Cn In @0 00 1(7@ I, I<UI IA 1 GUIDING GROWTH (Chapter 3) Planning Objective: To suggest strategies for protecting the critical water and related land resources of SENE while acommodating economic activities and guiding growth. Recommendations Cr 9 1. Increase protection of critical environmental areas, priority protection 0 0 0 0 0 0 * Mass. Cabinet S, M C,* and R.I. SPP C (Catagory A) and other protection areas (Category B) Z! o 2. Improve management of developable areas (Categories C, F, and G) by 0 OF 0 0 * Mass. Cabinet S, M M and R.I. SPP 0 resource capability, judicious use and expansion of infrastructure, and 0 0 regulation of large development. =r 0 WATER SUPPLY (Chapter 4) M M Planning Objective; To meet municipal needs for adaquate supplies of fresh < water in the most economically feasible and environmentally sound manner. rr 0 Recommendations CD Z Everywhere 3 W * 1. Prefer local ground water to intertown surface water to interbasin transfer. 0 0 DNRs, WRB R, M CL * 2. Maintain and protect existing water resources. 0 0 0 DNRs, WRB S, M CD * 3. Acquire key watersheds and potential well sites. 0 0 0 DNRs, WRB S, M * 4. Limit water consumption through pricing and education. & DNRs, WRB S, M 5. Study advanced technologies leading to new sources of water. DOI, EPA, DNR F, M 6. Establish regional water management agencies. 9 0 DNRs, WRB R, M Ground Water dependent areas 0 7. Survey groundwater location, quantity, and availability. 0 0 USGS,WRCNRB F, S DNRs, WRB, 8. Restrict activities shown to be hazardous to ground water quality. 0 0 0 0 DPH, DOH S, M 9. Monitor saltwater encroachment in costal aquifers. 0 0 0 DNRs, WRB S, M 10. Provide recharge basins to capture storm runoff. 0 0 0 DNRs, WRB S, M 11. Limit ground water withdrawl to maintain stream levels. 0 0 0 0 0 DNRs, WRB S, M 12. Establish state ground water boards. 0 0 MGC, RIGA S Surface water dependent areas 0 13. Expand MDC sources with Northfield Mt. and Millers R. facility. 0 0 MDC, COE S'l 14. Encourage regionalization of water supply systems. 0 0 DNRs, WRB S, R TABLEIIA INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS (CONTINUED) Planning Objectives Major Activity Types Principal Agencies .0 iR 0 0 Cd 0 2 U 9 0 A @$ 9 0 01 0 = - 5 , N , 0 0 0 .2 U 0 @5 ;X. :D A .2 OR 0 > Cd Planning Objectives and Numbered Recommendations C-;4 V; @6 C-: 06 C@ @T. ::5 04 ce. 't 41 0 U WATER QUALITY (Chapter 5) Planning Objective. To achieve swimmable-fishable waters by 1983 wherever V realistically attainable economically, socially and technically. C Recommendations CD W 17w r C - Preservation 2! 0 e 1. Stress anti-degradation in areas now swimmable-fishable. 0 0 0 0 0 Congress F, S, M M o 2. Carry out current state anti-degradation policies. 0 0 0 0 0 CD 0 DNRs, DOH S 0-4 M * 3. Alleviate runoff from new urban developments. 0 0 * 0 0 DNRs S, M =1 _q 0) 0 * 4. Negotiate acceptable low-flow regimes with upstream communities. 0 0 0 0 DPH, DNRs, DOH S, M M S. Provide streambank buffer strips. 0 0 * * 0 0 DNR, SPP S, M to M CD rn M < Restoration cu 0 0 6. Emphasize treatment of combined sewer overflows. 0 0 0 0 EPA, DNRs, DOH F, S Z o 7. Accelerate federal grants for municipal wastewater treatment. 0 0 0 EPA F CD 0 8. Continue current industrial permits program. 0 0 0 0 0 EPA, DNRs, DOff F, S 3 0 9. Begin regionwide stormwater and wet-weather stream sampling. 0 0 0 0 0 DNRs, DOH S > 0 10. Make towns responsible for scavenger waste disposal. 0 DPH, DOH S co n * 11. Determine municipal sludge disposal policy on plant-by-plant basis. a 0 DNRs, DOH S * 12. Place burden on industry for disposing of hazardous wastes. 0 0 DNRs, DOH S 13. Study, and define the landfill leachate problem. 0 0 0 0 DPHI DOH S 14. Provide pumpout facilities and treatment for watercraft wastes. 0 0 0 DNRs,DOH S Area priorities 0 15. Give priority to Cape Cod, New Bedford, Providence, and Boston. 0 0 0 0 F, S OUTDOOR RECREATION (Chapter 6) Planning Objective: To meet 1990 recreation needs in economically, enviornmentally, and socially acceptable ways. Recommendations Swimming o 1. Expand facilities at existing state beaches and parks. 0 0 VVT, D&.State) S DNRs, MD 2. Study beach erosion control. 0 0 DNRs, CRMC F, S, M COE, CZMP TABLE 11.1 INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS (CONTINUED) Planning Objectives## Major Activity Types Principal Agencies 00 E E 0 M 1@ 4. 0 2 0 Cd g4 M 0 0 0 0 r. 0 0 0 0 0 0 Ca > Planning Objectives and Numbered Recommendations C,;.4 tei @6 t-: 06 C@ 0-4 0 OUTDOOR RECREATION (Chapter 6) (Con't) DNRs, CRMC 3. Study beach expansion. 0 0 COE,CZMP F, S, M 0 4. Acquire puplic access to shoreline 0 DNRs, PAB S ROWC Boating Cr -< Ca 0 5. Form state boating advisory committees. 0 CZMP, CRMC S, M, P 6. Undertake authorized channel and anchorage improvements. DNRs, DCD F 0 * 7. Develop new regional marina basins. DED, DPW F, S, M M 0 COE 0 1 COE, CRMC -4 Saltwater fishing CZMP 0 < o 8. Construct public boat ramps and fish piers. 0 PAB, DNRs S, M I M - 9. Encourage private construction of boat ramps and fish piers. 0 BAdC S, M CA M M C-) :5 Camping and picnicking Cn DNRs Cr 0 * 10' Expand state parks near tourist centers. 0 DCD1 DED S M Z * 11. Form state recreational advisory committees. 0 DNRs, SPP S, M, P tu > Hunting and fishing CL CD 12. Acquire SENE's most important wildlife habitats. 0 0 0 DNRs S, P 13. Acquire SENE's most important strearnbanks. 0 0 0 0 DNRs S 14. Acquire public access to ponds. 0 DNRs S 15. Enforce wetlands legislation and local zoning regulations. 0 0 0 0 DNRs S, M Passive outdoor recreation MDC, DNRs * 16. Develop Boston Harbor Islands and Narragansett Bay Island Park. 0 DNRs, DPH S 0 17. Provide passive outdoor recreation on reservoir lands. 0 DOW, SPP, EDA F, S, M 0 18. Make multiple use of urban lands. 0 0 Municipal M * 19. Expand existing parks near urban centers. 0 0 MDC, DNRs S 20. Develop a regional trail system. 0 DNRs S, R, M o 21. Implement or develop scenic rivers legislation. 0 0 0 .01 1 1 1 DNRs S MARINE MANAGEMENT (Chapter 7) Planning Objective: To maintain the region's renewable marine resources at a level sufficient for sustained future use, and to develop the region's nonrenewable marine resources in an environmentally sensitive manner. 0 0 4 1 0 0 0 - TABLEIIA INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS (CONTINUED) PI Objectives#* ajor Activity Types Principal AlLencies .0 0 0 1:6 41 E ;d E 0 0 Cy 8 6- S 05 N 0 0 = .2 2 w 0- ::@ 4. - t Planning Objectives and Numbered Recommendations cl;4 W; 1@6 r_: 06 0@ 2 MARINE MANAGEMENT (Chapter 7) (Con't) Recommendations Offshore fisheries Congress C * 1. Declare interim offshore 200-mile Economic Zone. 0 Congress NMFS F M * 2. Adopt national fisheries management policy. 0 Congress NMFS F 3. Increase tariffs on imported fish products. a Congress NMFS F C 4. Improve financing opportunities for domestic-built fishing boats. 0 Congress F F 0 5. Allow privately financed purchase of foreign-built fishing boats. 0 NMFS F M 6. Improve market for underutilized fish species. 0 DNRs, DCAs CD 0 M F, P I M 0 7. Accommodate coastal fishing facilities through improved planning. 0 0 RPA, SPP S, M -1 0 < Shellfish and aquaculture M M 8. Increase Mass. technical assistance for local shellfish management. 0 0 DNRs S 9. Increase shellfish licensing fees. 0 DNRs S, M a) 10. Develop underutilized shellfish market. 0 DNRs S = 0 * 11. Research removal of vital bacteria to enhance shellfish habitats. 0 0 EPA, DPH, DOH F, S Cr z * 12. Move sewage discharges away from estuaries. 0 0 0 0 EPA F, S M 3 > 13. Enact aquaculture legislation in Rhode Island. 0 RIGA S 0) 14. Identify potential acquaculture sites & DNRs S, M CL "n 15. Increase technical assistance to towns for aquaculture. DNRs S, M 16. Increase research on use of waste.Water for aquaculture. 0 0 EPA DPH F, S, M, P DOR, DNRs Port development COE, DOC 9 17. Create a regionwide port development strategy. 0 0 0 DNRs NERBC FIS W06M 18. Continue interim dredge material disposal procedure. 0 0 BLM CRMC F,S CZMP Offshore sand and gravel DNRs 19. Restrict near-shore mining of sand and gravel. 0 0 0 BLM,CRMC S 20. Coordinate future federal offshore leasing with adjacent states. 0 0 CZMP1_ 21. Develop predicitive modeling techniques. 0 0 DNRs S Urban waterfronts 22. Coordinate local waterfront planning and development. 0 0 0 0 DCAs,RPAs,sPP F, S, R, M 0 23. Provide guidance and set criteria for priority waterfront uses. 0 0 0 * DCAs,RPAs,Spp F, S, R, M 24. Review and coordinate waterfront use at state and RPA level. 0 0 0 0 15CAs,RPAs,Spp F, S, R, M 25. Support state and local waterfront development plans., 0 0 0 0 D('-As,RPAs,Spp F, S, R, M TABLE 11. 1 INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS (CONTINUED) Planning Objectives** Major Activity Types Principal Agencies r 0 0 0 0 E 0 01 0 0 8 I @t FI: 0 al 0 :3 @3: 0 t 0 tQ Vo 0 Planning Objectives and Numbered Recommendations FLOODING AND EROSION (Chapter 8) Planning Objective: To reduce flood damage in the region, both riverine and costal; and to reduce critical coastal erosion. Recommendations Cr Co C Flooding COE, USDA 0 0 1. Prepare flood plain programs with non-structural emphasis. 0 0 0 DNRs F, S, M M CD 0 * 2. Adopt zoning to prevent new flood plain construction. 0 0 0 Mass. Cab., SPP S, M 0 -1 :0 * 3. Establish other local regulations to control runoff"erosion. 0 0 0 Municipal S, M =r --IM fu 0 4. Provide technical assistance to local officials. 0 USDA,DNRs F, S S. Acquire key flood plains and wetlands. 0 0 0 0 0 0 DNRs S, M 6. Locate in existing safe buildings in the flood plain. Municipal rn M M 7. Require relocation out of flood plains where appropriate. 0 0 a :5 * 8. Discourage reconstruction or redevelopment after storm damage. 0 0 0 DCAs, DNRs S, M Cn Municipal 5 9. Update and establish flood warning and evacuation programs. 0 tr Z 10. Improve storm forecasting abilities. 0 NOAA,NWS F CD * 11. Amend and strengthen administration of wetland laws. 0 0 a 0 0 0 MGL, RIGA S DNRs * 12. Construct flood projects selectively. 0 0 DPW,DNRs F, S COE,USDA Erosion 13. Establish inland sediment and erosion control ordinances. 0 0 0 USDA, DNRs M 0 14. Manage critical erosion areas through state coastal zone programs. 0 0 0 CZMP, CRMC S 15. Protect critical coastal erosion areas under local regulations. 0 0 CZMP, CRMC M 16. Encourage natural stablization of coastal erosion areas. 0 0 0 CZMP, CRMC M COE USDA 17. Construct erosion control proiects selectively. 0 0 DPVs, DNRs F, S, M CZMP, CRMC 18. Build or restore salt marshes. 0 0 0 COE DNRs F, S CZM@, CRMC UNWELCOME FACILITIES (Chapter 9) Planning objective: To provide certain vital services to society - - power, fuel, construction materials, solid waste disposal - - in a manner which supports continued economic growth and minimizes the negative environmental impacts such facilities have traditionally had. TABLE11.1 INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS (CONTINUED) Planning Objectives#*1 MaJo, Activity Type, Principal Agencies 0 .0 (5 0. :3 04 0 ad 0 0 (n CY 0 V 0 48 A 0 M r. 4) 0 0 Planning Objectives and Numbered Recommendations cl; W; @6 t-: 06 a@ 2' U UNWELCOME FACILITIES (Chapter 9) (Con't) Recommendations Onshore sand and gravel extraction RIGA 01 . Centralize minerals management authority in state DNR. 0 0 DNRs, MGC S V 2. Conduct state mineral resources surveys. 0 0 USGS, DNRs F, S C 3. Create public education program for minerals management. 0 a DNRs S W *4. Provide state guidance to municipalities on extraction permits. 0 0 DNRs S r *5. Promulgate state extraction operation and rehabilitation standards. 0 0 DNRs S C - P 0 *6. Establish state program for licensing mineral extraction operators. 0 DNRs S *7. Reclaim selected abandoned extraction sites for recreation. DNRs S M 0 0 M Electrical power 0 o 8. Create state energy conservation education program. 0 0 EPOs S M 0 9. Set state energy consumption rate reduction goals. 0 * EPOs S M olO. Implement program of mandatory and voluntary energy saving measures. 0 EPOs S, M < 0 * Reverse electricity Tate schedule; encourage off-peak power use. 0 PUCS S o12. Identify and secure power plant sites for future use. 0 0 0 EFSC, CRMC S 0 a-Z 013. Avoid critical environmental areas for future sites. 0 o 0 0 0 0 EFSC, CRMC S 014. Maximize development capabilities at existing power plant sites. 0 0 * * EFSC, CRMC S > * 15. Upgrade or phase out inefficient fossil units near cities. 0 * * PUCS S In * 16- Put transmission and distribution lines underground in urban co redevelopment programs. PUCS S 17. Providq interim recreational use of undeveloped power plant sites. 0 0 EFSC, CRMC S 018- Reorganize and simplify procedures for power plant licensing. 0 FPC, PUCs F, S Petroleum facilities o19. Revise new building standards to improve heating-cooling efficiency. 0 DCAs,. SPP S, M * 20. Provide tax incentives for voluntary energy conservation measures. 0 MGC, RIGA S o2l. Set state energy consumption rate reduction goals. 0 0 EPO S * 22. Fund mass transit Systems. 0 0 0 * DOTS S 023. Establish petroleum facilities siting authority in Rhode Island. 0 0 0 0 * * * * RIGA S 024. Establish petroleum facilities siting authority in Massachusetts. 0 0 0 0 * * * * MGC S 25. Refer to New England-wide implications of siting decisions. 0 0 * NERCO -M R, F, S Mass. Cab., SAC 026. Establish standards and criteria for rermery siting and operation. 0 0 0 0 * * EPA, COE, FEC F, S Mass. Cab., SPC 27, Use SENE development capability analysis in siting decisions. 0 0 0 0 * * EFSC, CRMC S Mass. Cab., SPC 028. Establish deepwater ports; based on a regional port study. 0 9 0 EFSC, CRMC S TABLEIIJ INTERRELATIONSHIPS AND SELECTED CHARACTERISTICS OF SENE STUDY RECOMMENDATIONS (CONTINUED) Planning Objectives## Major Activity Types Principal Agencies 0 .0 d) co 0 U 5 'Z 00 gal --r! 0 CV 0 > bo 0 0 0 " Z 0 43 @r 0 2 0 0 Planning Objectives and Numbered Recommendations W; @6 t-: 06 (7; i C'4 04 U UNWELCOME FACILITIES (Chapter 9) (Con't) * 29. Locate refineries or related development inland near infrastructure. 0 0 0 EFSC, CRMC S * 30. Distribute refined products by pipeline wherever feasible. 0 0 0 EFSC, CRMC S r * 31. Use most advanced technologies in facilities operation. 0 0 0 EFSC, CRMC S Solid waste management C 32. Enforce existing sanitary land fill regulations. 0 0 0 0 DPH, DOH S J! 0 0 33. Fund the Rhode Island solid waste management program. 0 RIGA S M 34. Accelerate participation by municipalities in state program. 0 0 0 0 0 0-1 M oo STRENGTHENING THE MANAGEMENT SYSTEM -1 0 I FOR NATURE RESOURCES (Chapter 10) Phuming objective: To ensure appropriate action taken with regard to M 0 < planning recommendations. Recommendation 0 Z 1. Maximize use of existing resource policy institutions. 0 0 0 0 0 0 0 Mass. Cab., SPC S CD -J The priority of the recommendations is indicated by the symbol preceding it: M o Highest priority recommendations (17 each) o High priority recommendations (27 each) Blank Other priority recommendations (45 each) Elements of the planning objectives column of the matrix are scored as follows: * The recommendation has a net primary or direct beneficial effect (high positive correlation) on the indicated objective. * The recommendation has a net significant but secondary or indirect beneficial effect (low but significant positive correlation). Blank The recommendation has little or no net effect on the objective (no significant correlation). * The recommendation has a net significant but secondary or indirect adverse effect (low but significant negative correlation). * The recommendation has a net primary or direct negative effect (high negative correlation). Abbreviations for agency names are listed in Table 11.3. PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Reading vertically, the first set of columns, Table 11.1 show 0 All of the chapters show about the same degree how each planning objective is affected by every recommen- of interrelationship. dation in the SENE program, For example, the planning objective of guiding growth is helped substantially by indi- One of the recommendations - in Marine Management - vidual recommendations under every other objective, such appears that it will have a net negative effect on a planning as the recommendations under Unwelcome Facilities (be- objective. The important point is that this conflicting value cause of their control of growth-inducing infrastructure) has been identified, rather than that it reveals a lack of and Flooding and Erosion (because they discourage devel- planning consistency. Therefore, it signals the potential opment in flood plains). for conflicts in the implementation of certain recommen- dations, signaling the need for further refinement as the The pervasiveness of symbols showing primary and second- recommendation is implemente d. 7hus, Recommendation ary beneficial effects in different parts of the matrix point 19 for Chapter 7, Marine Management ("Restrict near- up several broad strategic-level interrelationships between shore mining of sand and gravel") is shown to have a net the chapter objectives: direct negative effect on the planning objective.for un- wanted facilities. By denying this close-in source of sand � Guiding Growth is by far the most strongly re- and gravel to a metropolitan area like Boston, other alterna- lated to other chapters. The intensity of this tive sources, possibly equally undesirable, must be used. In interrelationship is not surprising, however, be- implementing this recommendation, therefore, public ad- cause Guiding Growth was basically designed to n-dnis' trators are cautioned to take a particularly broad look be an organized, integrated response to the land- to compare the total environmental, economic, and social related needs of the other chapters. That re- implications of alternative sources than could be examined sponse is the underlying foundation of the in this Study in formulating this marine management recom- strategy for guiding growth suggested in Chap- mendation. The recommendation was put forth based on ter 3. the belief that it will withstand such exan-dnation, but it is recognized that review from other perspectives is also neces- � The second most interactive chapter, though sary. far behind Guiding Growth, is Water Quality. How Activities Satisfy the Recommendations That chapter is strongly related to Guiding Growth and Unwelcome Facilities and mod- Each recommendation can be characterized as calling for erately related to Water Supply and Marine one or more of the general types of activities described in Management. Table 11.2. TABLE 11.2 TYPES OF ACTIVITIES USED IN CATEGORIZING SENE STUDY RECOMMENDATIONS Type of Activity Meaning Further planning (FP)* Collection and analysis of more detailed local data and formulation of specific functional plans Management and control (M&C)* Restrict certain activities by employing land use tools, setting standards, and/or licensing Acquisition (A)* Purchase of full land usage rights in fee simple or lesser rights such as easements and options Legislation (L)* Modify existing laws or pass new laws at federal, state, or local level to be consistent with plan recommendations Regionalization (R)* Have one agency perform or oversee activity for several local units Research and development (R&D)* Advance level of technology and improve practical application Private investment (Pl)* Stimulate the investment of private capital Project development (PD)* Implement specific local plans including project construction Correspond to abbreviations on Table 11.1. 11-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made TABLE 11.3 AGENCIES AND LEVELS OF GOVERNMENT RESPONSIBLE FOR OVERSEEING AND CARRYING OUT SENE RECOMMENDATIONS Agencies & Levels of Government Times Cited as Name Abbreviation Overseeing Agency Mass. General Court MGC 5 R. 1. General Assembly RIGA 7 Mass. Department of Natural Resources "DNRs" 54 R@ 1. Department of Natural Resources "DNRs" 51 Mass. Water Resources Commission WRC 1 R. 1. Water Resources Board WRB 12 Mass. Department of Public Health DPH 8 I- L Department of Health . DOH 16 Mass. Metropolitan District Commission MDC 2 R. 1. Statewide Planning Program SPP 11 Mass. Department of Transportation 11DOTs" 2 R. 1. Department of Transportation "DOTs" 2 Mass. Public Access Board PAB 2 R.I. Right of Way Commission ROWC 1 Mass. Coastal Zone Management Program CZMP 11 R. 1. Coastal Resources Management Council CRMC 20 Mass. Department of Public Works "DPWs" 3 R. 1. Department of Public Works "DPWs" 3 Mass. Department of Commerce and Development "DCDs" 2 K 1. Department of Community Development "DCDs" 2 R. 1. Department of Economic Development DED 2 Mass. Department of Community Affairs DCA 7 R. 1. Department of Community Affairs DCA 7 Mass. Energy Policy Office "EPOs" 4 R. 1. Energy Policy Office "EPOs" 4 Mass. Public Utilities Commission "PUCS" 4 R. 1. Public Utilities Commission "PUCS" 4 Mass. Energy Facilities Siting Council EFSC 9 Massachusetts Cabinet Mass Cab 5 R. 1. State Planning Council SPC 4 % L Division of Rivers & Harbors DRH 1 Congress 6 Department of Interior DOI 1 Environmental Protection Agency EPA 8 United States Geological Survey USGS 2 Corps of Engineers COE 11 National Marine Fisheries Service NMFS 4 Bureau of Land Management BLM 2 Department of Agriculture (Soil Conservation Service) USDA 6 National Oceanic & Atmospheric Administration NOAA 1 National Weather Service NWS 1 Federal Power Comn-dssion FPC 1 Federal Regional Council FRC I New England Regional Commission NERCOM 2 N.ew England River Basins Commission NERBC I Municipalities M 5 Boating Advisory Committee BAdC I Mass. Regional Planning Agencies RPA`s 5 Levels of Government Carrying-.out Activities Abbreviation Times Cited Federal F 36 Interstate regional 1 1 State S 107 Intrastate regional R 12 Municipality M 48 Private, industry, other P 2 11-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The middle columns of Table 11.1 indicate the type(s) sporadic and uneven implementation, would of activity that most closely describes the recommenda- have resulted. tions. Thus, Recommendation GG-1, "Improve protec- tion of critical environmental areas, priority protection (3) To overcome these problems, the SENE Study (Category A) and other protection areas (Category B)," cites specific agencies to oversee each individual is characterized as "management and control" on a recommendation. It would be their responsi- "regional" basis. Tabulating downward provides a bility to carry out the program execution. These general appreciation of the types of activity being rec- agencies are listed in the next to last column of ommended by the Study. For example, management Table 11. 1. The key for agency abbreviation i's and control is the principal activity in 77 of the 130 in Table 11.3. recommendations. The least applicable of the major activities is legislation, with only 12 citations. The (4) The levels of government most instrumental in number of citations for the activity types shown in the carrying out the recommendations are listed in the table are as follows: the last column of Table I I. I. In the text they are occasionally cited in the complete form of Activity Type Citations the recommendations, but most of the time they are implied. management control 77 regionalization 49 (5) Governments, especially those at state and local further planning 45 level, reorganize frequently. Indeed, Massachu- research and development 24 setts will soon complete a major reorganization. private investment 24 The SENE Study recommendations are intended project development 24 to have greater permanence. Therefore, when acquisition 14 citing an agency the words "and future successor legislation 12 agencies assigned similar functions" are always implied. The following statement, in terms of these major activi- ties, can be used to summarize the SENE program: Table 11.3 lists all the overseeing agencies cited in Study recommendations arranged in the frequency with which The SENE Study recommends a management and they are mentioned. The table also lists the levels of gov- control program, Mth emphasis on more detailed ernment principally involved in carrying out the recom- regional planning. It is backed up by a moderate mendations. and balanced mixture of research and development, private investment, and projects, and a minor How the SENE Study Objectives Relate to amount of acquisition and legislation. " National Criteria How Agencies Carry Out the Activities Thus far, this chapter has described how the SENE pro- gram is tied together systematically in a hierarchy of The recommended activities are specifically directed to goals, objectives, recommendations, activities, and an "actor" in every case, in an effort to fix responsibility agencies. for action. The format was developed for several reasons: To evaluate how the SENE program objectives relate to (1) Many levels of government agencies and non- broad national and regional objectives, the Study examined governmental groups are involved in carrying objectives expressed in a number of national and state pro- out each one of the recommendations. To have grams such as the: listed them all with their many interrelationships would have been unwieldy and would have de- Water Resources Planning Act of 1965 tracted from the strength of the individual recom- National Environmental Policy Act of 1969 mendations. Federal Water Pollution Control Act Amendments of 1972 (2) Many of the recommendations (Example: Chap- Coastal Zone Management Act of 1972 and related ter 8, Flooding and Erosion, Recommendation Committee Reports #2, "Adopt zoning to prevent new flood plain Rural Development Act of 1972 construction") are obviously intended for local U. S. Water Resources Council, Principles and implementation. But to have recommended that Standards "All municipalities adopt. . ." would have so di- Proposed federal land use bills luted the responsibility that little, or at best Massachusetts Wetlands Act PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Massachusetts Environmental Policy Act (MEPA) larly relevant to the SENE Study is presented briefly de- Martha's Vineyard Land Use Act fined in Table 11.4. Proposed Nantucket Sound Islands Trust Rhode Island Statewide Land Use Plan Table 11.5 applies these general water resources criteria to the seven SENE Chapter functional planning objectives. All have many elements in common. The Principles and Using the same set of symbols employed in Table 11.1, the Standards (PAS) of the U. S. Water Resources Council, net impacts are scored as directly beneficial, indirectly bene- perhaps more than the others, provided a model for inte- ficial, no significant net effect, indirectly adverse, and di- grating the elements of the program. rectly adverse. The brief remarks explain the basis for the scoring. The PAS are designed to demonstrate the contribution of plan recommendations to four "accounts" - national eco- According to the evaluation in Table 11.5, four SENE plan- nomic development, environmental quality, regional devel- hing objectives - guiding growth, unwelcome facilities, out- opment, and social well-being. The PAS list lengthy support- door recreation, and water quality - make the. most signifi- ing criteria designed to be used for more detailed studies cant contribution to the listed criteria - four accounts than for Level "B" studies like the SENE Study. A sim- (Table 11.4). plified, interpretive condensation of those criteria particu- TABLE 11.4 GENERAL CRITERIA FOR EVALUATING WATER RESOURCES PLANS* Component of National Economic Development Account 1. Cost Effectiveness - - the degree to which the program is the most cost effective approach to the supply of required physical goods. Components of Environmental Quality Account I .Open Space - - the amount of land set aside for non-urban development purposes. 2. Ecological Systems and Sensitive Lands - - the management and control of lands which cannot be developed without permanent loss of important resources. 3. Water Quality - - the degree to which water quality approaches swimmable-fishable waters. 4. Containment of Facilities and Growth - - the degree to which facilities and growth are concentrated to avoid environmental degradation. Components of Regional Development Account 1 .Employment Levels - the increase in employment opportunities. 2. Cost of Living - - the reduction in the household costs for taxes, power, energy, and other household goods. 3. Economic Stability and Diversification - - the region's ability to withstand cyclic changes in the economy or impacts on a single industry. 4. Competitive Attractiveness - - the region's ability to increase its competitive appeal as a place to live and work Components of Social Well-Being Account 1. Urban/Rural Mix - - the continuation of the existing mix between urban and rural development levels. 2. Flexibility for Long-Range Response - - the range of options left open for further planning considerations. 3. Local Autonomy - - the amount of decision-making responsibility remaining with local levels. 4. Income Distribution - - the increase in the income of low income groups relative to middle and upper income groups. 5. Recreational Opportunities - - the supply and range of choice for outdoor recreation. 6. Legal and Institutional - - the ease of administering the program.. 7. Political - - the probable popularity of the program. Criteria correspond to those used in Table 11.5. Components of the four accounts of the U.S. Water Resources Councirs Principals and Standards. 11-12 TABLEII.5 SENE STUDY PLANNING OBJECTIVES VERSUS GENERAL WATER RESOURCES CRITERIA* (Chapters 3,4, 5, and 6) SENE Planning Objectives General Water Resources Criteria GUIDING GROWTH (Chapter WATER SUPPLY (Chapter 4) To mea WATER QUALITY (Chapter OUTDOOR RECREATION (Components of specified WRC 3) To protect the critical water municipal needs for adequate supplies 5) To achieve swimmable- (Chapter 6) To meet 1990 re- accounts)**@ and related land resources of of fresh water in the most economi- fishable waters by 1983 czeational needs in economically, SENE while accommodating cally feasible and environmentally wherever reatisticaffy attain- environmentally, and socially economic activities by guid- sound manner. able, economicaNy, sociatly, acceptable ways. ing growth. -and technically. NATIONAL ECONOMIC o Costly but probably very cost Encourages use of more economical By far, most costly set of re- o "Intensive-use" programs for DEVELOPMENT efficient. Clustering, higher ground water. But, thereby imposes commendations. Is generally swimming and urban parks are Cost Effectiveness densities and maximum use of regulatory land use measures. Pro- cost effective in emphasis on highly cost effective. "Extensive- .inftastructure promote great ef- bably no net effect. non-degradation on treating use" programs have low effectivv- ficiencies in public services and combined sewer overflow ness. Assuming recommended private spending. and on controlling poUutants priorities are followed net effect I -at Source. is positive. ENVIR MENTAL 0 Recommends preservation of o Encourages restricted use of o Encourages streambank *Encourages control or aquisition QUALITY 1/3 of SENE area with tight watersheds and aquifer recharge buffer strips. of open space for extensive recrea- Open Space restrictions on development. areas. tional uses. Ecological Systems and oExpjicitly defines, maps and o Encourages restricted use of water- eEmphasizes anti-degradation o Encourages control of wetlands, M .Z cn F Sensitive Lands protects sensitive water re- sheds and aquifer recharge areas. in areas now swiffunable-fish- beaches and streambanks. C source lands as part of highest able. Improves water quality priority recommendations. for aquatic fife. M CD 0 Water Quality Controls location of develop- *Controls use of watershed lands and *Program is specifically designed No significant net effect. -4 M 0 ment with significant impacts aquifer recharge areas. Proposes re- to improve water quality. -1 < 0 on water quality. gional water management agency. 0 Is M Containment of facitities 9 Directs growth to develop- No significant net effect. 0FuR use of design capacity of No significant net effect. and growth able areas with concentration existing sewers encourages around existing infrastructure, higher densities in present urban areas. 0 Cr Z REGIONAL DEVELOP- o Makes region more attractive No significant net effect. Some adverse effect on mar- No significant net effect. M MENT to industries which use profes- ginal high-polluting industries. > sional and highly skilled labor. Indirect beneficial effect on Employment Levels others, especially services. CD Cost of Living No net effect - removes some No significant net effect o Increases industry costs by Because of improved transporta@ land from tax base, but makes about one percent. tion and maximum use of exist- better use of existing facilities. ing facilities, costs of recreation at least maintained. Economic Stability and No significant net effect. o Minor negative effect in terms of 6 Minor negative effect in terms o Increases region's capacity to Diversification higher costs to types of industry that of higher costs to types of indus- draw and hold skills it needs. use much water. try that use much water. Competitive Attractiveness *Emphasizes resource No significant net effect. o Improves attractiveness of o Designed to enhance public amenity value of the region. water bodies. opportunity for participation in outdoor enjoyment. Key for Table 11.5. Definitions for criteria based on WRC components in Table 11.4. * The recommendation has a net primary or direct beneficial effect. * The recommendation has a net significant but secondary or indirect beneficial effect. Blank The recommendation has little or no net effect on the objective. Zi The recommendation has a net significant but secondary or indirect adverse effect. The recommendation has a net primary or direct negative effect. TABLEII.5 SENE STUDY PLANNING OBJECTIVES VERSUS WATER RESOURCES CRITERIA (Chapters 3,4,5, and 6) (Continued) General Water Resources Criteria GUIDING GROWTH WATER SUPPLY WATER QUALITY OUTDOOR RECREATION SOCIAL WELI@BEING o Attempts to contain rate of ex- No significant net effect. No significant net effect. No significant net effect Urban/rural Mix pansion of urban areas which protects rural areas. Flexibility for Long-range Preserves future land use o Urges preservation of all water o Non-degradation policy o Encourages control and non- Response option, source options, ground water as preserves options. development of A and B areas well as surface water. for possible future recreational use. Local Autonomy o Seeks to retain local auto- o Strongly en@ouragcs use of local o Due to broad geographic im- Centralizes planning and nomy but calls for state ground water and nearby surface pacts, pollution control centra- management of regional facilities guidance. water. But also proposes regional lized at state level. but leaves to local initiative pro- water management agencies. tccti'on of resources for future ac- quisition and development. Income Distribution Enhances land value, in some No significant net effects, No significant net effects, o Makes outdoor recreation more areas while limiting values of accessible to urban dwellers at other areas through use restric- lower costs than present. tions. Decreases cost of growth to local taxpayers by maximum use of existing services. C E 93 0 Recreational *Protects resources for meeting Some iiniited opportunities for o, Improves water quality for *Program is specifically de- = M Opportunities near - and long-term recreational recreation in watershed lands. water-based sports. Encourages signed to improve outdoor re- CD 0 needs. low -flow augmentation and creation. streambank buffer strips. 0 Legaland 6 Will increase planning and re- No significant overall effect des- *All tools have been legally Requires changes in public policy Institutional gulatory responsibilities of state pite some problems in regionali- tested and accepted. Some regarding private enterprise, use of M M and local decison makers. zation. problems obtaining region- reservoir lands, and access to the 0 a) alization. foreshore. 0 Z Political Appeal for local self sufficiency will e Endorses present program o Possibly the most visible of the CD Guiding growth is con- be well received. Some problems which is of proven popularity. study's recommendations. 3 troversial but gaining with Connecticut over water diver- a) acceptance. sions and possibly with regionaliza- CL tion. CD Key for Table 11.5. Definitions for criteria based on WRC components in Table 11.4. * The recommendation has a net primary or direct beneficial effect. * The recommendation has a net significant but secondary or indirect beneficial effect. Blank The recommendation has little orno net effect on the objective. a The recommendation has a net significant but secondary or indirect adverse effect. Fm The recommendation has a net primary or direct negative effect. TABLE 11.5 SENE STUDY PLANNING OBJECTIVES VERSUS GENERAL WATER RESOURCES CRITERIA* (Chapters 7,8, and 9) SENE Planning Objectives General Water Resources MARINE MANAGEMENT (Chapter 7) To FL06DING AND EROSION (Chapter 8) To UNWELCOME FACILITIES (Chapter 9) Criteria maintain the region's renewable marine re- reduce flood damages in the region, both To provide certain vital services to society - - (Components of specified sources at a level sufficient for sustained riverine and coastal; and to reduce critical power, fuel, construction materials, solid WRC accounts)** future use, and to develop the region's non- coastal erosion. waste disposal - - in a manner which sup- renewable marine resources in an environ- ports continued economic growth and mentally sensitive manner. minimizes the negative environmental im- pacts such facilities have traditionally had. 0 signi cant net e ect. verse in encour- o ncourages use o exis ng sa s ruc ures, is- os e ec ive in promo ng TCSO U on o DEVELOPMENT aging federal subsidies of uncompetitive local courages development subject to costly floods, prolonged indecision on essential regional Cost Effectiveness fishing industry. Beneficial in studying ports benefits public through new opportunities and issues. from regional viewpoint. lowered public expenditures. ENVIRONMENTAL No significant net effect. o Encourages non-development of flood plains No significant net effects. QUALITY Open.Space thereby making much more open space available. Ecological Systems and GEncourages preservation of wetlands and shell- sEncourages preservation of wetlands, wildlife *Because A and B lands are protected, r S. C Sensitive Lands fish areas. Recommends operational quidelines habitat and important recreational access points ecological systems are taken into ac- for the development of marine resources. in flood plains. count while providing regional facilities. -< c r Water Quality o Encourages siting new sewerage discharges No significant net effects. eEncourages control of location, operation away from estuaries, control of dredged mater- and discharges from electric power plants, 0 M ials, and urban waterfront planning. petroleum facilities and solid waste facilities. Containment of Facilities o Encourages the use of existing waterfront o Encourages use in some cases (revitalization o Encourages development where infrastruc- 0 = -4 M and Growth facilities where appropriate rather than new of existing flood plain development) but dis- ture exists which tends to concentrate 0 construction elsewhere. courages new flood plain growth. growth. M LA M M REGIONAL DEVELOP- No significant net effect though could pro- No significant net effects. *Encourages resolution of decisions now < mote local fishery by reducing its foreign inhibiting business initiatives. C, MENT Employment Levels competition. Cr Z Cost of Living No significant net effect. Reduces cost of living by reducing public ex- eEncourages decisions to provide essential CD penditures and private losses. infrastructure rahter than let shortages be- 3 come future economic crises. 0) > CL Economic Stability and o Improves viability of regional fishery. No significant net effect. *Improves business stability by providing CD "n Diversification Studies possibility of improved port for future requirements under generally a ities. defined conditions. Competitive attractiveness o Improves amenity value of urban water- o Encourages flood plain protection therby *Provides needed services in way that pre- fronts. preserving wildlife and recreational oppor- serves physical attractiveness of the region. tunities. Key for Table 11.5. Definitions for criteria based on WRC components in Table 11.4. * The recommendation has a net primary or direct beneficial effect. * The recommendation has a net significant but secondary or indirect beneficial effect. Blank. The recommendation has little or no net effect on the objective. J The recommendation has a net significant but secondary on indirect adverse effect. W The recommendation has a net primary or direct negative effect. TABLEILS SENE STUDY PLANNING OBJECTIVES VERSUS GENERAL WATER RESOURCES CRITERIA* (Chapters 7,8, and 9) (continued) General Water Resources Criteria MARINE MANAGEMENT FLOODING AND EROSION UNWELCOME FACILITIES SOCIAL WELL-BEING No significant net effects. No significant net effects. No significant net effects. Urban/Rural Mix Flexibility for Long- No significant net effects. No significant net effects. o Preserves sites, the need for which range Response may be eliminated by future techno- logical advances. Local Autonomy 6 Most measures require national or o Power to implement flood control remains o Increases regional considerations but international implementation. at local level but should be consistent with maintains local and citizen roles in state land use and coastal policies. decisionmaking. Income Distribution 6 Consumer will likely pay higher costs No significant effects. No significant net effects although for fish products. urges pricing policy revisions so that rates rise with consumption. Recreational Opportunities o Encourages restoration of urban water- *Protects potential access points and scenic and o Encourages recreational use of front including increased public access. water quality values of recreational rivers. abandoned sand and gravel sites, and interim recreational use of undeveloped electric power plant sites. Legal and Institutional 4 Requires action of international level and Requires stronger enforcement of existing Requires complex quasi-governmental industrial subsidies. legislation. authorities and can expect constant court suits. CD M Political 6 No significant regional effect. Boundary Discourages developers seeking new flood 6 The nature of all resource allocation 0 0 4 declarations may have international Tami- plain sites but popular becuase of cost decisions for unwelcome facilities makes -1 M fications. efficiencies and other public benefits. this controversial regardless of the re- 0 commendation. M M M Key for Table I 1.S 5 Definitions for criteria based on WRC components in Table 11.4 The recommendation has a net primary or direct beneficial effect. 0 CD Z o The recommendation has a net significant but secondary or indirect beneficial effect. Blank. The recommendation has little Or no net effect on the objective. 6 The recommendation has a net significant but secondary or indirect adverse effect. CL 9 The recommendation has a net primary or direct negative effect. PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Reading Table 11.5 horizontally indicates that the SENE 0 How best to get whatever the Study recommended program as a whole scores very high in the environmental actually carried out? quality and regional development accounts as compared to the two accounts for national economic efficiency and Chapter 2, The Setting, shows that the SENE economy is social well-being. no longer directly dependent on water for power for in- dustry. The trend shows a drop in the pollution generating If the scoring were weighted +2 to -2 from directly bene- and water using manufacturing processes with an attendant ficial to directly adverse, the following measures of the sharp rise in the service sector of the economy. Though contributions of the recommendations would result: some have argued that a relaxation of environmental im- provement programs would assist the economy, in the SENE General Water Resources Criteria Scoring region this would seem to be out of phase with an increas- ingly service-oriented future. Enhancing, not degrading the ecological systems and sensitive lands 12 major asset SENE has - its physical environment - may be water quality 9 the most important factor in maintaining the regions eco- outdoor recreation 9 nomic viability. competitive attractiveness 8 open space 7 It is recognized that the SENE program is not an economic flexibility for long-range response 7 plan, and therefore no claim is made that the recommen- containment of facilities and growth 7 dations, if implemented, will greatly improve the SENE cost effectiveness 5 economy. It does appear, however, that the recommended employment levels 4 approach is an efficient strategic water resource alternative, economic stabilization and for the long-range health of the SENE economy. Succinctly diversification 3 summarizing this line of thinking is the SENE Study's first cost of living I overall conclusion - ENHANCING THE ENVIRONMENT urban-rural mix I ENHANCES THE REGION'S ECONOMY. political I income distribution 0 Demographic and land use studies showed rather conclu- local autonomy - I sively that for the forseeable future the overall growth in legal and institutional -3 SENE is clearly not limited by the region's water and re- lated land resources. There is enough space, for example, The following statement, in terms of these general criteria, to accommodate all growth at least to the year 2020, even can be used to summarize the general implications of the at the spectacularly high rate of land consumption of the SENE program. last decade. The limitation is more a social one. Do the residents of this region want essentially all of the Boston "77ze SENE Study recommends a program that gives Metropolitan, North Shore, and South Shore planning balanced and strong emphasis to ecological systems areas urbanized over the next five decades? Or do they and sensitive lands, water quality, outdoor recre- want to leave selected open areas near where their children ation, and competitive attractiveness. It gives mod- will work and play? Through public workshops it was erate emphasis to open space, flexibility for long- learned that people strongly preferred the latter. They want, range response, containment offacilities and growth, and are on the verge of demanding, guidance to bring about cost effectiveness, employment levels, and economic the second type of future, not the first. They look to ef- stabilization and diversification. It has little signifi- forts such as the SENE Study to formulate strategy to bring cant effect on the cost of living, the urban-rural it about. Chapter 3, the land capability maps in the rear mix, political harmony, and income distribution. pocket, many of the recommendations, and the second ma- To some degree it reduces local autonomy and may jor SENE Study conclusion are a response to that demand - encounter some legal and institutional problems. anticipated GROWTH CAN BE ACCOMMODATED, BUT IT NEEDS GUIDANCE. How the Major Conclusions for SENE Were Reached From the beginning, a major concern was whether existing knowledge was sufficient to act and, if so, how recommen- High on the list of unanswered problems as the Study got dations could be implemented. Existing knowledge has been underway were: known to be generally adequate, but implementation will be more difficult. Innovative institutional arrangements, public 0 How best to handle anticipated major conflicts relations efforts, and other means were examined. Planners between environmental and economic aspirations? at all levels of government, working on many different func- tions, all independently and collectively, were asked what, 0 How best to handle problems of growth? if any, new authorities or agencies would be required to get 11-17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made their individual portions of the program carried out, The the lead agencies will either assume responsibility, see that results showed that the basic organizations, authorities and another agency does so, or thoughtfully and publicly con- tools already exist. Performance, not new and novel insti- clude that the given recommendations should not be imple- tutions, should be emphasized. As was mentioned above, mented. the SENE program requires very little new legislation. To lend conviction to its conclusion that existing agencies can, This leads to the third and last major conclusion of the and must do the job, this Study has gone to unusual lengths SENE Study - E)USTING KNOWLEDGE, PROGRAMS, to explicitly identify lead agencies. Undoubtedly, the AND INSTITUTIONS CAN PROVIDE THE TOOLS FOR states and the federal government will adjust these responsi- ACHIEVING RESULTS. bilities to some degree. The assumption is that, upon review, 11-18 Part III PLANNING AREA REPORTS Under separate cover: 1. Ipswich - North Shore Planning Area Report 2. Boston Metropolitan Planning Area Report 3. South Shore Planning Area Report 4. Cape Cod and Islands Planning Area Report 5. Buzzards Bay Planning Area Report 6. Taunton Planning Area Report 7. Blackstone and Vicinity Planning Area Report 8. Pawtuxet Planning Area Report 9. Narragansett Bay and Block Island Planning Area Report 10. Pawcatuck Planning Area Report Part IV 0 ENVIRONMENTAL STATEMENT METHODOLOGY 0 0 SUMMARY ENVIRONMENTAL STATEMENT Southeastern New England Water and Related Land Resources Study (X) Draft Final Responsible Agency: New England River Basins Commission For Additional Information Contact: R. Frank Gregg, Chairman New England River Basins Commission 55 Court Street Boston, MA 02108 617-223-6244 or: Robert Kasvinsky, Study Manager Southeastern New England Study 408 Atlantic Avenue Boston, MA 022 10 617-223-4431 1. Name of Action (X) Administrative Action Legislative Action 2. Brief Description of Action The New England River Basins Commission proposes to transmit a report recommending policies and actions for balanced conservation, management, and development of the water and related land resources of Southeastern New England. The report contains a series of 130 policies and struc- tural and non-structural solutions in the following areas: water supply, water quality, land use, outdoor rec- reation, sport fisheries and wildlife, offshore fishing, port development, urban waterfront use, sand and gravel extraction, flooding and erosion, electrical power, petroleum facilities, and solid waste management. Actions are directed to all levels of government and private interests for eastern Massachusetts, all of Rhode Island, and three municipalities in southeastern Connecticut. 3. Summary of environmental impact and adverse environmental effects. Environmental Impact. Study objectives, as outlined in the Principles and Standards of the U. S. Water Re- sources Council, were to enhance environmental quality and national economic efficiency. In sum, the recom- mended policies and actions which make up the SENE program can result in a significant net benefit to the environment of Southeastern New England. The Study's lead recommendation is to increase protection of critical environmental areas. Such action will directly benefit (i) water supply by protecting well sites and wetlands; (ii) outdoor recreation by protecting beaches and wetlands; (iii) marine management by protecting wetlands, estuaries, and shellfish areas; and (iv) flooding and erosion by protecting wetlands, flood plains, beaches, and critical coastal erosion areas. The Study's second lead recommendation - manage areas suitable for development - will not only reinforce protection of critical environmental areas, but will also decrease the cost of development by guiding growth to lands which can support development, and within those lands to areas already served by essential water, sewer, and transportation services. EIS-I PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Adverse Environmental Effects. Net environmental benefits of the recommendations are expected to be strongly positive. Environmental impacts were considered as part of the planning process throughout'the Study in order to eliminate adverse or irretrievable impacts and to actively enhance environmental quality wherever possible. One of the 130 recommendations - to restrict near-shore mining of sand and gravel - appears that it will have a net negative effect on the planning objective for providing unwelcome facilities. However, the recom- mendation was formulated to avoid adverse environmental effects that near-shore mining is expected to cause on shellfish beds, delicate spawning grounds, and the delicate natural equilibrium maintaining the natural con- tours of existing beaches. 4. Summary of Major Alternatives Considered. A number of alternatives were proposed and evalu- atel'.i for each of over 15 subject areas of study and for each of the 10 geographic planning areas in the South- eastern New England region. These alternatives, which included no-action options, ranged from a non-structural, non-regulatory approach to various levels of development. Formulated to meet expected needs for water and related land resources, these alternatives are summarized in the environmental statement. In many cases, elements of the alternatives were combined to form the recommended policies and actions. 5. Federal, State and Local Agencies from which Comments have been Requested. Comments and views have been requested from the Governors and key agencies in Massachusetts, Rhode Island, and Con- necticut, as well as Maine, New Hampshire, Vermont, and New York; the head of each federal department or agency and each interstate agency which has a representative to the New England River Basins. Commission. Copies of the complete report and Environmental Statement have been sent to interests throughout South- eastern New England including: U. S. Senators and Congressmen, state senators, regional planning agencies, 210 town planning boards, town managers or mayors, conservation commissions, and several hundred individ- uals and groups. 6. Draft Statement to CEQ: May 5, 1975. EIS-11 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made ENVIRONMENTAL STATEMENT Introduction Water Resources Council in its formulation of the PAS. This chapter takes the form of an "overview" im- pact statement, and is designed to meet the re- various guidelines for the preparation of en- quirements of See. 102(2)(c) of the National En- vironmental impact reports required under vironmental Policy Act. Further, it takes into the Massachusetts Environmental Policy Act. account the requirements and the intent of the Massachusetts Environmental Policy Act, as the Coastal Zone Management Act of 1972, amended. and related materials. The Council on Environmental Quality has the Federal Water Pollution Control Act pointed out that where a number of agencies Amendments of 1972, and related materials. have formulated new policy initiatives and have explored a broad range of alternative actions, an various versions of the pending National overview statement is appropriate. When actions Land Use Policy Act. are made later to implement sp@cific Study re- commendations, these actions will need more the Martha's Vineyard Land Use Act. Z detailed 102 statements, but thosestatements should refer to the overview statement for a the proposed Nantucket Sound Islands Trust. discussion of the general policy issues. Further- more, agencies and individuals commenting on the proposed Rhode Island Land Use Policies environmental statements for individual projects and Plan. discussed in the SENE Study Report can use this overview environmental statement together with By far the most significant of these sources was the the SENE Study Reports to guide their review. Principles and Standards (PAS). Under the PAS, the New England River Basins Commission has used a The principal source of information for this sec- systematic approach for integrating environmental, tion is drawn from the detailed evaluation of the economic, and social factors in planning for water alternatives and recommendations in the Study and related land resources. As part of this approach, reports. This evaluation draws on the four- the Commission has evaluated environmental im- account system of the U. S. Water Resources pact, plan alternatives, beneficial and adverse ef- Council's Principles and Standards: national eco- fects; and has encouraged all levels of government, nomic efficiency, environmental quality, regional as well as non-government representatives, to active- development, and social well-being. These con@ ly participate throughout the planning process. As siderations were explicit throughout the planning a result, the consideration of environmental factors process, from formulation and evaluation of al- is reflected throughout the final report as well as tematives, to preparing and finalizing the recom- in this environmental statement. mended policies and actions. The criteria for evaluation were synthesized from guidance ob- There are eight sections according to the guidelines- tained from many sources. In addition to the in preparing environmental statements: Principles and Standards (PAS), the most notable of these sources were: A.Description of the proposed actions; B. Relationship to existing programs; various guidelines for the preparation of C. The probable impact of the proposed actions environmental statements (EIS) required on the environment; under the National Environmental Policy D. Alternatives to the proposed actions; Act of 1969 (NEPA). The EIS require- E. Probable adverse environmental effects which ments were also incorporated by the cannot be avoided; EIS-I PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made F. The relationship between short-term uses and Study Actions and Purposes long-term productivity; G.Iffeversible and irretrievable commitments of Basic findings of the Study are three: resources; and H. Problems and objections raised during review. (1) Enhancing the environment enhances the The discussion in each of the sections that follow region's economy. will be in the same order as the chapters of the (2) Anticipated growth can be accommodated. SENE Regional Report: Guiding Growth, Water but should be guided to pro tec t fragile re- Supply, Water Quality, Outdoor Recreation, Mar- sources: and make development more effl- ine Management, Flooding and Erosion, a Ind Un- cien t. welcome Facilities. (3) Existing knowledge, programs, and institu- A. DESCRIPTION OF THE PROPOSED tions can provide tools for achieving results. ACTIONS These key findings are reflected through the Study's The description of the proposed actions is the recommendations, which are summarized on the publication of a report which recommends policies following pages. and actions to be followed to achieve wise and bal- anced use of Southeastern New England's water Guiding Growth and related land resources. This report contains the findings and conclusions of the Southeastern The Study has identified three key steps that plan- New England Study, a three and a half year study ners can take to guide the region's future growth: conducted by an interagency team of federal, state, (I ) protect critical environmental areas; (2) man- regional, local, and private sector representatives. age areas suitable for development guiding growth The New England River Basins Commission pro- to where facilities already exist or are planned; and vided the leadership and coordination for this (3) regulate development having regional impact. team of participants. These steps constitute a way to allocate lands to meet development needs of the future without The Southeastern New England Study Area sacrificing valuable resources which contribute to a high quality of life. The southeastern comer of New England, consist- ing essentially of Rhode Island and eastern Massa- As part of the first recommendation, the region's chusetts, is home to nearly 50 percent of New water bodies, well sites, inland and coastal wet- England's population on barely 7 percent of its lands, critical erosion areas, beaches, fish spawning land. Nearly 80 percent of the region's approxi- areas, shellfish flats, and estuaries have been classi- mately 5 million people have settled in the re- fied Pilority Protection Areas (Category A resour- gion's four urban centers of Boston, Providence, ces). The region's flood plains, prime agricultural Worceffer, and New Bedford/Fall River. The lands, coastal flood hazard areas, unique natural average population density for the region is about and cultural sites, proposed reservoir sites, and up- 960 persons per square mile, compared to aver- land erosion areas have been classified second pri- ages of about 180 for New England as a whole ority Other Protection Areas (Category B resources). and 607 for the nation. Yet this coastally-oriented Together they form the Critical Environmental region still has significant expanses of open space- Areas in the region - those lands either too fragile extensive forests, broad wetland networks, crop to support any development or whose development and pasture lands. Projected growth by the years would constitute a hazard to public health and 1990 and 2020 is expected to put pressure on safety. The Study has produced maps (Develop- these open space areas and on fragile resources. ment Capability Maps) which depict the location of Finding ways to accommodate the sometimes of these Critical Environmental Areas throughout conflicting demands for conservation and growth the region. For each category of Critical Environ- was the goal of the Southeastern New England mental Area, the Study has proposed ways in Study, Which resources can be protected. EIS-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Priority Protection Areas (Category A) simple, financed by the National Trust for Historic Preservation Act and other public � Protect water bodies from non-point and non-profit funds. Theuseofother source pollution by having municipalities, techniques is described in the Natural regional planning agencies, and states de- Areas Project of New England Natural velop standards for control of runoff and Resources Center. sediment, subdivision regulations requiring stormwater detention ponds, and methods Protect proposed reservoir sites and their of ground water recharge. Streambank and related watersheds, through prohibition lake shore buffer strips should be obtained. of all but low intensity uses such as agri- culture orforestry. Monitor the use of � Protect wetlands by acquisition and regu- tributaries and their banks. lation of development. The second major recommendation - to manage � Protect critical erosion areas by ordinances areas suitable for development - contains two prohibiting development and any other use basic points: that creates health and safety problems or accelerates erosion rates. Develop According to Resource Capability. Those lands suitable for development to varying degrees � Protect beaches and their immediately ad- of intensity under several different levels of man- jacent lands by erosion control regulations, agement control were classified by the Study as prohibition of development, or acquisition Developable Areas (Category C, F, and G resour- for recreational use. ces shown on Development Capability Maps). The region's future growth must be guided to these � Protect estuaries, fish spawning areas, and lands to prohibit destruction of Critical Environ- shellfish flats, though not shown on the De- mental Areas. velopment Capabilities Maps, but available in Study files, by prohibiting outfalls of Manage ground water recharge areas (Cl) wastewater treatment facilities, power for aquifers necessary for local water sup- plants, or any o th er major producers of ply by: zoning ordinances and subdivision effluent in these locations, Prohibit regulations restricting development density, dredging, sand and gravel mining, instal- regulation of septic systems, and mainten- lation of pipelines, and any other disturb- ance of water level. ing activity within these areas. � Manage best upland wildlife habitat (C2) Other Protection Areas (Category 13) and areas of high landscape quality (C3) by zoning ordinances limiting residential � Protect riverine and tidalflood plains by development to extremely low density, or prohibiting further development and dis- by encouraging clustering. In high land- couraging reconstruction after substantial scape quality areas large scale develop- storm damage. Acquire key flood plains ments should not be located on bluffs or for public uses. hilltops, but should be absorbed in forested regions or lower areas to lessen their visual � Protect agricultural sites by state legisla- impact. tion that clarifies authority for local agencies to enact transferable develop- * Manage land with ledge andlor steep slopes ment rights, reform tax laws, and provide by zoning ordinances and subdivision regu- for limited acquisition of development lations to limit residential densities. rights for highest priority lands. � Manage land with severe septic system (C4) � Protect unique natural and cultural sites limitations by zoning ordinances and sub- by acquisition of conservation or historic division regulations limiting residential easements, development rights, orfee densities unless sewers are present. Higher EIS-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made densities with sewers should be encouraged while the third group of recommendations refers Adik because many of the other land resource to municipalities whose needs are met by surface MW categories are only suitable for low density sources. use. Those recommendations relating to the region are: 0 Manage lands with moderate (F) to,no septic system (G) limitations by regulating Prefer local ground water to intermunicipal development on moderate soils according surface water development, and in termuni- to sewer availability; elsewhere no restric- cipal surface water to interbasin transfer in tions are necessary, with enforcement of order to maximize local self-sufficiency. existing regulations. 0 Maintain existing water resources and ac- Maximize Public Investment Efficiency Options. quire key watersheds and potential well Wherever possible and desirable, guide growth to sites. maximize use of existing infrastructure such as water, sewer, and transportation services, to Limit water consumption through pricing achieve desired patterns of future growth; and and education. use clustering, planned unit development, and im- pact zoning to increase the efficiency of resource Study advanced technologies leading to use and decrease the cost of public investments in new sources of water, and encourage the services. Clustering and other higher intensity land regionalization of surface water supply uses can result in savings of up to 50 percent in systems. New or expanded regional sys- energy, water, sewer service, and transportation tems should be established in the Ipswich needs, according to CEQ's recent publication, River, Taunton, Brockton, Providence, The Costs of Sprawl. While sufficient land for southeastern Rhode Island, and South continued sprawl exists, the Study findings sug- Shore areas. gest that it may no longer be responsible either fiscally or environmentally to encourage such The SENE Study has formulated recommendations development. for towns which rely either wholly or partially on ground water. For these towns, the recommenda- The third major recommendation is to regulate tions, listed in their general order of priority, are developments having regional impact, Establish as follows: criteria for economically and environmentally suitable sites for key facilities, large scale devel- 0 Survey ground water location, quantity, opments, or growth inducing developments and and availability. major public facilities, all of which have greater than local impact. To prevent preemption by 0 Restrict activities hazardous to ground other uses of the most critical sites, acquire or water quality. designate them for future public use, and lease or specify interim uses. 9 Monitor saltwater encroachment in coastal aquifers. Water Supply 0 Provide recharge basins to capture storm Water supply recommendations were designed to runoff, limit withdrawal to prevent serious meet municipal needs for adequate supplies of stream depletion, and establish state ground fresh water in the most economically feasible water boards and environmentally sound manner. The recom- mendations can be divided into three groups. The The SENE Study has proposed additional recom- first group consists of general recommendations mendations for municipalities relying oh surface which should apply throughout the region. The water systems for their supplies. To meet the ra- second group applies to municipalities relying pidly expanding needs of the Metropolitan District wholly or partially on ground water sources, Commission (MDC) in the greater Boston area, the EIS-4 PUBLIC REVIEW DRAFT SUBJECT TO REV [SION Line by Line Changes can be made U. S. Army Corps of Engineers has recommended 0 Carry out current state anti-degradation two additional diversions from the Connecticut policies. River Basin: one via the Northfield Mountain pumped storage hydroelectric plant, and the sec- 0Attenuate runoff from new urban develop- ond from the tributary Millers River Basin. The ments. Study has concluded that both diversions are necessary, and recommends that MDC should 0Negotiate acceptable low-flow regimes proceed with the Northfield project at once, and with upstream communities. begin planning and design of the Millers River di- version. In Rhode Island, the Study recommends 0Provide streambank buffer strips. that construction of the Big River Reservoir should begin immediately to provide additional supplies Restoration. Nine recommendations are set forth to the Providence water supply system. However, to restore existing water quality. They are listed in general, the Study recommends development of below in what is perceived to be their general order in-basin resources to the maximum extent econom- of importance in meeting the objective of the recom- ically and environmentally possible. Reliance on mended program. local sources of water is expected to extend the period of time that the recommended out-of-basin 0 Emphasize treatment of urban stormwater supplies can serve expected needs, and will pre- flows. serve flexibility in water supply policies. 0Accelerate federal grants for municipal Water Quality wastewater treatment. The objective of the SENE Study recommenda- 0Continue current industrial permits pro- tions for water quality is to achieve swimmable- grams. fishable waters by 1983 wherever realistically at- tainable economically, socially, and technically. 0Begin regionwide stormwater and wet- The recommendations generally follow current weather stream sampling. state plans, especially for the 10 planning areas. Second, the recommendations recognize the 0Make towns responsible for scavenger technological reality that non-point sources are waste disposal. still not well understood, while at the same time recognizing our rapidly increasing respect for 0Determine municipal sludge disposal policy their significance. on a plan t-by-plan t basis. The recommendations therefore have two 0Place burden on industry for disposing of thrusts - preservation and restoration where hazardous wastes. most attainable. The individual policy and ac- tion recommendations that comprise the water 0Study and define the landfill leachate prob- quality program are presented below: lem. Preservation. Immediate priority is given to en- 0Provide pumpout facilities and treatment suring that no additional water quality degrada- for watercraft wastes. tion be allowed in areas of high quality water. Five recommendations are listed below in what Outdoor Recreation is perceived to be their general order of import- ance in meeting the above-stated objective of the The protection and management of Critical Envi- recommended program. ronmental Areas through the Study's proposals for guiding growth should provide land to satisfy some 0 Stress non-degradation in areas now of the demand for hunting, hiking, canoeing, sport swimmable-fishable. fishing, and certain passive forms of outdoor recre- ation. To satisfy the region's other more intensive EIS-5 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made recreational needs by the year 1990, 20 specific 0 Declare interim offshore 200-mile Economic AM actions were recommended. Highest priority was Zone. The U S. Congress should extend, as given to the following: soon as possible, the nation's jurisdiction over fisheries to 200-miles offshore or to � Acquire and develop the Boston Harbor the edge of the continental shelf Islands and Narragansett Bay Islands Park. 0 Adopt a national fisheries management � Increase capacity at existing beaches and policy. acquire additional beach areas, together with improved public transportation to 0 Increase tariffs on imported fish products. the beaches. 0 Improve financing for domestically built Other high priority recommendations include: fishing boats. � Providing developed public access to the 0 Allow privately financed purchase of shoreline atfrequent intervals and most foreign-built boats. frequently near cities., 0 Improve the market for underutilized fish � Preparing guidelines for local water author- species. ities to permit limited public recreational use of water supply reservoir lands, at least 0 Accommodate coastal fish facilities through for picnicking, hiking, fishing, and passive improved planning. outdoor activities. 0 Ae states'Coastal Zone Management Pro- � Designate parts of the Charles, North, Ip- grams, in cooperation with Departments of switch, and Taunton as Massachusetts Community Affairs, should develop guide- Scenic Rivers; and the Wood, Beaver, and lines and provide technical assistance to Pawcatuck as Rhode Island Scenic Rivers. local planning boards. � Develop new recreational boating harbors Shellfish and Aquaculture. In Massachusetts, recom- at Salem, Plymouth, and in Narragansett mendations include increased technical assistance Bay. for local shellfish management; the state's Depart- ment of Natural Resources should increase user fees � Study the possibility ofadding sand to 17 for shellfish licenses. The states' Departments of beaches to combat erosion and increase Natural Resources should actively encourage the beach area. harvesting of edible shellfish, such as the blue mus- sel, for both recreational and commercial use, de- Marine Management veloping underutilized species. The EPA should accelerate research into the detection and removal The principal objective of this portion of the SENE of viral bacteria during the wastewater treatment Study was to maintain the. region's renewable mar- process, and wastewater discharges should be moved ine resources at a level sufficient for a sustained away from estuaries until such time as the removal future use, and to develop the region's nonrenew- of viral bacteria is feasible. able marine resources in an environmentally sensi- tive manner. In addition to the above recommendations on shellfish management the following actions are Offshore Fishing. The thrust of the recommenda- recommended to produce a more favorable basis tion is to maintain a valuable fisheries resource and for aquacultural operations: Rhode Island should to provide a strong economic base for the region's enact legislation similar to.that passed in Massachu- fishing industry. The following actions are recom- setts,t both states should identify potential aqua- mended in order of priority: culture sites, increase technical assistance to towns EIS-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made for aquaculture management, and increase research federal programs, the Study recommends both on the use of wastewater for aquaculture. structural and non-structural measures. However, non-structural flood plain management measures Port Development. In order to maximize regional are emphasized wherever possible. The recom- economic efficiency, the Study recommends cre- mendations include: ation of a regionwide port development strategy. A regional port planning program should deter- 0 Prepare comprehensive basin flood plain mine the most economically efficient port develop- management programs. ment system for meeting the region's shipping and cargo distribution needs. Also recommended is * Full participation in the National F7ood continued use of interim dredged materials disposal Insurance Program is urged for all com- procedures, until new disposal techniques are de- munities. veloped. * Prevent further development or redevelop- Offshore Sand and Gravel Extraction. In the event men t in inland or coastal flood prone areas that conventional onshore sand and gravel deposits and coastal erosion areas. are no longer available in supplies sufficient to meet the region's construction needs so that off- * Strengthen state wetlands legislation. shore mining becomes economically competitive, the following recommendations are presented to * Acquire key wetlands and flood plain areas. facilitate such ventures and protect the surround- ing marine environment: 0 Selectively construct flood control projects. 0 Restrict near-shore mining of sand and Unwelcome Facilities gravel The planning objective for unwelcome facilities was 0 Coordinate future federal leasing of far- to provide certain vital services to society - power, shore sand and gravel sites with coastal fuel, construction materials, solid waste disposal - zone management programs for adjacent in a manner which supports continued economic sites. growth and minimizes the negative environmental impacts such facilities have traditionally had. 0 Develop predictive modeling techniques for offshore sand and gravel operations. For four vital services - onshore sand and gravel, electrical power, petroleum facilities, and solid Urban Waterfronts. In order to enhance the use waste disposal @ siting is the key issue. For power and reuse of urban waterfronts in a rational and and petroleum, the importance of siting is matched balanced manner: by the need to match consumption. The key recom- mendations are: � Coordinate local waterfront planning and development. 0 Immediately establish energy demand man- agement and conservation programs in each � Provide state-level guidance and set cri- state. teria for priority waterfront uses. 0 Establish comprehensive energy facilities � Review and coordinate waterfront use. siting authorities in each state; secure sites for the future. � Provide federal support of state and local waterfront developmeh t plans. a Centralize minerals management authority in each state department of natural resour- Flooding and Erosion ces; encourage seque .ntial land use program. To mitigate the region's flooding 4nd erosion problems within the existing system of state and EIS-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Other high priority recommendations include: national growth rate on which the Series C projections were based. The resulting lower 41 � Revise the electrical rate structure to elim- population figures were adopted by the Study. inate decreasing block rates. � Maximize development at existing power B. RELATIONSHIP TO EXISTING plant sites. PROGRAMS � Upgrade or phaseout* ef The design of existing programs, the workings of in ftcient power plants. existing institutions, and the requirements of cur- rent laws as well as significant pending legislation � Provide one-stop power plant licensing. served as important starting points for the Study. Current laws and guidelines and the pending Na- � Locate future petroleum facilities inland tion*al Land Use Policy Act provided direction for near infrastructure. the Study's development capability analysis as well .as evaluation. The Study has recognized the leader- � Distribute refined products by pipeline. ship of the states in natural resources matters, and has endorsed many ongoing state resource manage- � Enforce existing landfill regulations. ment programs. The conclusions of the Study are specifically presented in a way which will be help- � Fund the Rhode Island Solid Waste Man- ful to the states in meeting their responsibilities agement Corporation. for managing land and water resources, including requirements of the Federal Water Pollution Con- � Conduct Massachusetts mineral survey. trol Act Amendments of 1972 and the Coastal Zone Management Act of 1972. At the same time, Strengthening the Management System the Study has also recognized the importance of for Natural Resources local resource decisions in town halls, through con- servation commissions, planning boards, and zon- The Study recommends maximum use of existing ing boards of appeals. The Study's recommenda- resource policy institutions. The resource man- tions are formulated to build on existing programs, agement policies and programs recommended by requirements, and institutions wherever possible. the SENE Study should be reviewed, and appro- priate state policies adopted by the Governor's C. THE PROBABLE IMPACT OF THE Cabinet in Massachusetts and the Rhode Island PROPOSED ACTIONS ON THE State Planning Council or their successors. ENVIRONMENT Population Projections Projections of future trends in population, in- As mentioned earlier, the net environmental im- come, and employment were originally derived pact of the recommended policies and actions is from the OBERS Series C projections developed expected to be strongly beneficial. Environmental for the federal Water Resources Council by the analysis -was an integral part of the planning process. Economic Research Service (ERS) of the U. S. Evaluation of altematives with respect to environ- Department of Agriculture, in conjunction with mental criteria, as well as economic and social cri- the Bureau of the Economic Analysis (BEA, for- teria, is woven throughout all Study analyses. merly the Office of Business Economics) in the Guiding Growth U. S. Department of Commerce. Later in the Study new OBERS projections, Series E, were Protecting Criti,cal Environmental Areas will en- developed by ERS and BEA. These projections hance the overall environmental quality of the reflect a continuation of the zero population region. If future growth can be directed to those birth rate level which-the nation is now experi- lands most capable of supporting it, the tradition- encing, rather than the higher 1960-1970 national ally negative effects of development - erosion, EIS-8 PUBLIC. REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made flooding, loss of wildlife habitat and open space, beneficial in relation to the costs incurred. Preser- pollution or loss of water supplies - can be miti- vation of existing high quality waters will lower gated. The recommendations, if implemented, pollution control costs in the future. Total costs will also have significant positive effects on na- may well be in the $5 billion range, not nearly as tional economic efficiency, chiefly by reducing high as the achievement of swimmable-fishable the resource and public investment costs of waters everywhere. Economic benefits should ac- growth. Savings in construction costs, energy crue through increased recreation and tourism, consumption, and in the costs of expanding improved value of waterfront locations and some and constructing new infrastructure such as wa- increase in shellfishing. Probably the most impor- ter and sewer lines and roads, can be gained by tant economic benefit is less tangible - making using existing excess capacity and clustering SENE a more appealing place for attracting and new development. holding the professionals and highly skilled work- ers it will need in the future. As a result of a trend Water Supply toward a more service-oriented economy, direct demands on SENE waters, both as a medium for Once the approaches in Guiding Growth have waste assimilation as well as for supply, may be been developed, water supply policy can be used significantly lower in the future. Pollution prob- as a tool to bring about greater economic effic- lems resulting from industrial by-products may iency and environmental quality in the SENE re- not exponentially increase as has-been the trend in gion. Patterns of land use which protect recharge the past. Thus, the outlook for improvement in areas and which use,existing infrastructure such water quality in SENE may be somewhat better as water supply systems enhance the environ- than many might perceive today. mental and economic aspects of life in this region. Furthermore, coordinated water supply and wa- Outdoor Recreation ter quality planning can provide more efficient methods of water management and environmental The outdoor recreation recommendations are de- protection. The efficient use and protection of signed to make dual use of Critical Environmental existing sources of water, coupled with careful Areas in environmentally sensitive ways. Meeting planning and development of additional sources, expected demands for recreation will improve the should provide the residents and industries of the region's attractiveness as a place to live and work, SENE region with an adequate supply of reason- and thereby providing for the leisure activities of ably economical, high quality water over the next an increasingly services-oriented economy. Increas- 50 years. Maximum use of in-basin resources will ing the areas open for public recreation will prob- maintain local autonomy and will preserve future ably increase visitation and, therefore, impact on options for flexibility in water supply policies. soil, water, land, and wildlife in those areas. But In addition, advanced technology may allow the these impacts are expected to be below what can region to develop new sources of water without be expected to occur by 1990 without the SENE placing increased stress on its natural resources. Study recommendations. Water Quality Marine Management Environmentally, swimmable-fishable waters will Implementation of these actions would encourage be achieved by 1983 wherever realistically attain- preservation of wetlands and shellfish areas, rein- able, economically, socially, and technologically. forcing the recommendation to protect Critical Economically, the, key point in examining the Environmental Areas. The recommendations would recommendations comes in the realization that enhance water quality by encouraging the relocation all waters in the region cannot - and in some of wastewater discharges away from estuaries, con- cases should not - reach swimmable as well as trolling disposal of dredged materials, and planning fishable levels. Instead, the recommendations urban waterfront use. Implementation of these ac- emphasize preserving existing swimmable waters tions would be a major step toward regenerating and achieving the swimmable-fishable goal else- the offshore fishing industry which, together with. where, where reaching this goal would be most the increased availability of shellfish resources, EIS-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION . Line by Line Changes can be made should help to strengthen and stabilize the econo- operation, and discharge from power plants, mies of many of the region's coastal communities. petroleum-related facilities, and solid waste fa- cilities. Because Critical Environmental Areas One of the Marine Management recommendations, are to be protected, ecological systems are taken to restrict near-shore mining of sand and gravel, into account while providing regional facilities. appears that it will have a negative effect on the Energy conservation measures should reduce some planning objective for providing unwelcome facili- impacts by reducing or postponing several plants ties. However, this recommendation was formu- until forms of power generation are available lated to avoid a number of potential adverse im- which have fewer adverse effects. pacts: if mining is restricted to far-shore waters, away from near-shore shellfish beds and delicate In sum, all recommended policies and actions spawning grounds, detrimental effects to valuable are expected to have either no net environmental commercial and sports fisheries would be minimal. impact or clear positive impacts. Near-shore mining in depths up to 80 feet is likely to upset the delicate natural equilibrium maintain- D. ALTERNATIVES TO THE ing the natural contours of existing beaches. Fur- PROPOSED ACTIONS ther, the recommendation is designed to avoid potential conflict between sand and gravel mining operations and marine traffic, pipelines, waste- Each recommendation of the SENE Study was se- water outfalls, and cable crossings. lected from a number of alternative measures and alternative plans representing different combina- Flooding and Erosion tions of those measures. Alternatives are discussed in a separate section in each of the major chapters The policy of applying non-structural measures in the Regional Report and further in each of the wherever possible in the context of comprehen- 10 Planning Area Reports. In most cases, the re- sive flood plain management programs is expected commendations draw from elements from each of to minimize future flood damages, recognizing that the alternatives formulated. flooding and erosion are natural processes that can- not.be expected to be controlled or prevented. Guiding Growth This approach is designed to work with, not against, the natural roles that flood plains and wetlands play The Study examined three alternative strategies for in accommodating the forces of nature. This ap- guiding the future growth of the region to guarantee proach (1) is sensitive to the natural roles that wet- the protection and wise use of its water and related lands and flood plains play in flood water storage lands: (1) Continuing current programs and regula- and their particular susceptibility to the,darnaging tions; (2) Increasing protection of Critical Environ- forces of nature (as further indicated in the SENE mental Areas; and (3) Improving management of Study's classification of both wetlands and flood Developable Areas. plains as critical resources; see Guiding Growth); (2) it reflects the finding that future growth in These three alternatives approach the problem of the region can be accommodated without using accominiodating needed growth and protecting wetlands or flood plains; (3) it notes that non- valuable resources from decidedly different direc- structural measures generate multiple benefits in tions. The first recognizes that in many ways state terms of recreation, water supply, and preserva- and local governments in Massachusetts and Rhode tion of landscape quality. Only where existing Island have a history of leadership in resources man- development is of significant importance to the agement. This alternative emphasizes continued use economy and non-structural solutions are not of available tools to manage the future growth of available should structural measures be used. the region. The second alternative seeks simply to remove certain Critical Environmental Areas from Unwelcome Facilities consideration for most forms of development, per- mitting future development and relatively unre- These recommendations would protect water stricted use of most other lands, yet assuring inte- quality by encouraging the control of location, grated maintenance of the future quality and EIS-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made quantity of water resources. The third alternative seepage problems are: (1) establishing and enforc- seeks to guide growth on the basis of the ability of ing criteria and compliance procedures; and (2) the region's water and related lands to support a increasing use of dry disposal systems. The prin- variety of forms of development, to increase the cipal alternatives for disposal of septic pumpings efficiency with which public investments in serv- are: (I ) disposal at existing wastewater treatment ices needed to accommodate growth are made, and plants; (2) land spreading; (3) drying beds; (4) to control the location of those forms of develop- lagoons; and (5) land filling. To minimize in- ment having major impacts on the region's water stream problems, particularly in heavily used and related land resources. streams with little flow, four alternative measures were considered: (1) low flow augmentation; (2) Water Supply dredging of benthic deposits; (3) aeration; and (4) treatment. To handle domestic wastes gen- In order to satisfy the objective of meeting munici- erated on watercraft the alternative measures pal needs for an adequate supply of fresh water, were: (1) flow-through devices providing primary the SENE Study has considered a number of alter- treatment and disinfection; (2) holding tanks; and native measures: (I) managing water demand; (2) (3) restricted usage. developing ground water; (3) developing surface water; (4) achieving self-sufficiency; (5) using Several alternative plans were developed using emerging technology; (6) improving water re- these measures with varying emphasis. One plan source management; (7) making interbasin trans- sought to achieve swimmable-fishable waters fers; (8) expanding or forming regional systems; everywhere by 1983, lower than the primary goal and (9) improving institutional arrangements. of the Federal Water Pollution Control Act Amend- In order to meet the 1990 and 2020 water ments of 1972, which called for the elimination of needs in Southeastern New England, the Study all discharges of pollutants to navigable waters by considered two alternative plans incorporating 1985. This plan gives equal priority to point and these measures. One plan would emphasize maxi- non-point sources of pollution. Treatment, rather mum use of conservation and demand manage- than separation, would be the only alternative to ment, along with the maintenance and develop- solving the combined sewer overflow problem. ment of local ground water supplies. In addi- Moreover, some kind of breakthrough in under- tion, this plan would attempt to make each basin standing the significance, distribution, and means in the region as self-sufficient as possible. The of abating non-point source pollution would be other plan would stress the goal of providing all needed. If such a breakthrough could be made, a of the region's required supply at the lowest major abatement program would have to be de- possible cost. veloped, accepted, funded, and executed. Clearly the social and environmental benefits would be Water Quality very high. But so would the costs. Until a better idea of the nature and scope of the non-point A series of alternative measures were considered in source problem can be developed, the exact cost improving water, quality in the region. Alternative of the program cannot be estimated. measures for reducing the severity of urban ston-n- water and combined sewer problems include: (1) Another plan sought a lesser goal - attainment of stormwater sampling; (2) attentuation to runoff, swimmable-fishable waters on the basis of priori- (3) better street cleaning; (4) separation of com- ties set by cost effectiveness. The plan recognizes bined sewers; (5) in-stream controls; (6) off sys- that the intangible nature of many of the benefits tem storage; and (7) treatment. General approaches of improved water quality make strict cost-benefit for solving municipal wastewater problems include: analysis impossible. Under cost effectiveness, even (1) additional sewering; (2) higher degree of treat- though one has not measured the implications of ment; (3) better effluent disposal methods; (4) full or partial attainment of a goal, he will seek the better sludge disposal methods; and (5) greater least costly path to that goal. As applied in priority regionalization. For disposal of hazardous wastes, to a water quality program, one would first accom- the Study considered (1) land burial; (2) deep well plish those things that would produce the most injection; (3) ocean dumping; and (4) incineration. swimmable-fishable waters per dollar of combined The principal alternative measures for minimizing public and private expenditure. This approach EIS-1 I PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made places increased emphasis on anti-degradation Boston Harbor and Narragansett Bay Island Parks; policies, on doing much more about urban storm- (2) making recreational use of publicly or privately water runoff and non-point sources, and on in- owned, but inaccessible urban resources; (3) ac- creasing the efficiency with which existing waste- quiring Critical Environmental Areas; (4) limited water treatment plants operate. The plan would public access to water supply watersheds; (5) multi- also reduce emphasis on some of the most costly ple use of trails; and (6) scenic rivers legislation. municipal and industrial wastewater abatement Two alternative plans were developed, based pri- programs. Clearly, under such a plan achievement marily on public cost. One plan would place pri- of Class B waters would be delayed well into the mary emphasis on acquiring the Boston Harbor and future. Narragansett Bay Islands and Critical Environmental Areas, expanding the trails system, and designating Outdoor Recreation scenic rivers. A second plan would stress a lower cost combination of acquiring the Harbor and Bay The Study considered several alternatives for Islands, using urban resources, making multiple meeting outdoor recreation needs. The three use of watershed lands, and increasing use of major alternatives for satisfying future beach existing trails. needs were (1) adding facilities to existing parks and beaches; (2) acquiring public access to the Marine Management shoreline; and (3) acquiring new beaches for state parks. One plan using these measures emphasized A number of alternatives have been proposed in limited use of beaches by promoting public access the several sections of this chapter. Alternatives to the restricted foreshore. A second plan draw- for assuring future fishing supplies were: (1) con- ing on these alternative measures attempted to tinue the existing International Commission for achieve maximum satisfaction of mass demands Northwest Atlantic Fisheries (ICNAF); (2) improve for high intensity beach use for residents and and strengthen ICNAF; and (3) enact an interim tourists alike. 200 mile economic zone. Alternatives for improving the domestic fishing industry's competitive base: Two principal alternatives for satisfying boating (I ) continue the present situation '; (2) increase tar- needs are (1) private investment in marina devel- iffs on imported fish products; (3) provide govern- opment; and (2) public investment in boating mental subsidies to the fishing industry; (4) im- facilities. One plan applying these measures prove opportunities for financing domestic-built would concentrate on expanding the capacity boats; (5) allow privately-financed purchase of of existing marinas. A second plan would in- foreign-built boats; (6) improve the market for volve guidance about suitable locations and de- under-utilized fish species; and (7) accommodate velopment. This plan would meet a smaller fishing industry facilities through improved coastal portion of the boating demand than the first planning. approach, but would maintain a higher regard for environmental quality. A number of alternative measures were considered for shellfish and aquaculture: (I ) delegate manage- Alternatives for meeting camping and picnick- ment of shellfish to the state; (2) increase state ing needs are (I ) expanded use of existing facili- assistance in Massachusetts for local shellfish man- ties; and (2) private development of new camp- agement; (3) develop market for underutilized shell- ground and picknicking facilities. Six alternatives fish species; (4) research viral bacterial removal to were considered for fish and wildlife: (1) acquire enhance shellfish habitats; (e) move wastewater wetlands; (2) acquire upland wildlife management discharges away from estuaries; (5) provide state areas; (3) provide public access to privately-owned and federal subsidies to "seed" the aquaculture in- wildlife habitat; (4) use of wetland legislation; (5) dustry; (6) enact specific aquaculture legislation acquire public access to ponds; and (6) acquire in Rhode Island; and (7) increase state guidance for streambank access. aquaculture development. Alternative measures for assuring passive outdoor Several alternative measures for port development recreation opportunities include: (1) developing were examined: (1) port authorities and economic EIS-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made development commissions could continue to plan protect flood prone areas from development. improvements for local port facilities and promote private investments for local port facilities on an Alternative measures for inland erosion areas individual bases; and (2) redevelop the region's were: (1) establish town sediment and erosion two major ports based on a regionwide assessment control ordinances; (2) establish forest buffer of individual port capabilitie's and development zones within 200 feet of streams and lakes; and opportunities by (a) accellerating the development (3) control forest road erosion by proper road of container ship facilities in Boston, @b) develop- location and stabilization activities,such as seed- ing an economically feasible and environmentally ing and ditching. acceptable deepwater petroleum products termi- nal with a pipeline distribution system to major Alternative measures considered in protecting or population centers, and (c) developing Narragan- enhancing the coastal areas were: (1) planting sett Bay as a liquid natural gas (LNG) center. and fertilizing with beach grass; (2) direct sand placement (artificial nourishment) and construc- Alternatives for dredged materials disposal were: tion of backup dikes of sand and gravel, rock or (1) treatment of dredged materials; (2) incinera- concrete walls, and rock walls; and (3) protection tion; (3) land disposal; (4) creating artificial is- of erodible bluffs with rock revetments., seawalls, lands; (5) banning all dredging; and (6) continued or bulkheads. Also considered were floating break- disposal to ocean waters. waters and marsh restoration. These measures were combined into three alternative plans. One plan, Three systems for offshore sand and gravel mining to do nothing, would allow present patterns of de- were considered: (1) near-shore small conventional velopment and steadily- increasing rates of erosion bucket dredges; (2) hopper dredges without on- to continue. Another plan stressed restoration and board processing capability; (3) hopper dredges protection of critical shoreline areas through exten- with onboard processing and dewatering capacity sive structural controls, thus permitting further de- operating in far-shore areas. velopment. A third plan proposed a rigid coastal zone management program precluding future en- Three basic approaches were considered in initiat- croachment on Critical Environmental Areas such ing and carrying out land use planning and devel- as marshes and barrier beaches, And encouraging opment control activities in urban waterfront restoration of natural impediments to erosion. areas: (1) planning and development control ac- tivities could be carried out primarily by local Unwelcome Facilities governments; (2) local and state (or substate re- gional) jurisdictions could share responsibility; For onshore sand, gravel, and stone extraction the (3) state (or substate regional) jurisdictions could Study considered four alternative measures: (1) be the principal decision makers in the process. importation of materials from outside the region; (2) substituting crushed stone for sand and gravel; Flooding and Erosion (3) offshore mining; and (4) identifying, protecting, and sequencing use of onshore deposits within the Several measures were considered for reducing region. Also considered was the substitution of flood damages: (1) land use controls (such as other materials, using nearshore materials such as flood plain zoning, wetlands protection including marine muds. serious state and local controls, subdivision regu- lations, and building code restrictions); (2) struc- Alternatives for managing the demand for power tural controls (such as flood water diversions, sea- include: (1) efficient pricing of electrical power walls and dikes, dams, and flood control reser- to reflect the marginal costs of supply; and (2) voirs); and (3) protection of existing development revising the rate structure. Alternatives for power (flood-proofing, relocation, weather modification, plant siting were: (1) continue the present siting warning systems). These various measures were system; (2) create one-stop coordinated federal- combined into two alternative plans: one aimed state review of proposals; (3) establish a program at protecting development from flooding using of state identification and protection of potential lowest cost measures, and another designed to power plant sites. EIS-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made 00@ Alternative measures for meeting petroleum require- lated land resources; and (f) state planning and 1"W ments were: (1) delivery - by pipeline, coastal management of water and related land resources. tanker, or deepwater terminals; (2) refining - in- land or coastal; (3) distribution - coastal tankers E. PROBABLE ADVERSE ENVIRON- or pipeline distribution. One alternative plan, us- MENTAL EFFECTS WHICH CAN- ing these measures, would give priority for land NOT BE AVOIDED allocation to refinery and related heavy industrial development at sites closest to delivery and market areas. A second alternative would eliminate the SENE region and New England .as a whole from As mentioned previously, net environmental bene- further consideration for refinery and related heavy fits of the recommendations are expected to be development. Under this alternative, the SENE strongly positive. Environmental impacts were region would continue to be a 100 percent im- considered throughout the planning process, with porter of refined oil products, and an extremely the express objective of eliminating any adverse and high degree of state controlled demand manage- irreversible impact wherever possible, together with ment would be essential. actively enhancing environmental quality and other beneficial impacts. Alternative approaches for solid waste manage- Qneral criteria for evaluating SENE Study recom- ment were: (1) land disposal sites should be selected mendations were drawn from the components of to minimize the infiltration of leachate into surface the four accounts (national economic efficiency, and ground water; (2) established landfills should be environmental quality, regional development, and operated under the appropriate state regulations to social well-being) of the U. S. Water Resources minimize impact; (3) communities should be encour- Council's Principles and Standards. Evaluation aged to participate in state solid waste recovery pro- based on the listed criteria shows that four SENE grams. planning objectives score particularly high - guid- Strengthening the Management System ing growth, unwelcome facilities, outdoor recrea- for Natural Resources tion, and water quality. Taken together, Study recommendations score high in the environmental The Report sets out several alternative approaches quality and regional development accounts as com- to implementing 6y Study recommendations. De- pared to the two accounts for national economic signed to assist the states in translating policy into efficiency and social well-being. In sum, SENE action, each alternative approach illustrates a Study recommendations for protecting Critical En- slightly different balance between state, substate vironmental Areas, and guiding growth to other regional, and local resource management decision areas which can support development, are expected making. For each state, the approaches illustrate to be highly beneficial to the environment. three concepts: protection of Critical Environ- One of the 130 recommendations - to restrict near- mental Areas, control over developments of re- shore mining of sand and gravel - appears that it gional impact, and the degree to which long- will have a net negative effect for providing unwel- range water resources planning can be a tool for come facilities. By denying this close-in source of guiding growth. sand and gravel to, a metropolitan area like Boston, The approaches are: (a) state development guide- other alternative sources, possibly equally undesir- able, must be used. lines for use by local government; (b) mandatory local planning and zoning; (c) state designation The degree to which offshore sand and gravel mining and local regulation of Critical Environmental Areas affects the marine environment varies considerably or areas of critical concern to the state; and (d) state by site. Some effects are known to be minor and regulation of critical areas with municipal adminis- temporary, others major and permanent, while for tration. Two more approaches demonstrate the others little is known. Three areas of potential con- possibilities of indirectly guiding growth through flict exist: fisheries, recreation, and navigation and comprehensive water resources management pro- communications. Mining in near-shore waters could grams: (e) regional management of water and re- EIS-14 PUBLIC REVIEW,@DRAFT SUBJECT TO REVISION Line by Line Changes can be made cause detrimental effects to valuable shellfish beds gravel has been mined and the land restored, com- and spawning grounds. Near-shore mining in depths munities (with state guidance) can rezone the areas up to 80 feet is likely to upset the delicate natural for subsequent uses consistent with economic needs equilibrium maintaining the natural contours of and environmental aspirations. existing beaches.. And sand and gravel mining op- erations near the shore may conflict with commer- G. IRREVERSIBLE AND IRRETRIEV- cial, military, fishing and recreational vessels; and ABLE COMMITMENTS OF with pipelines, wastewater outfalls, and cable RESOURCES crossings. It was primarily for these reasons that far-shore mining of sand and gravel was the favored recommendation .. The Study recommendations were fon-nulated with In implementing the recommendation, therefore, a goal to avoiding irreversible and irretrievable com- public administrators are cautioned to take particu- mitments of resources. In fact, recommendations larly broad look to compare the total environmental, to protect Critical Environmental Resources are economic, and social implications of alternative sour- expected to maintain the natural functions of re- ces than could be examined in this Study.in formu- sources such.as wetlands and to extend the capaci- lating the recommendation. The recommendation ties of other resources through conservation mea- was put forth based on the belief that it will with- sures and study of new technologies. For example, stand suchexamination, but it is recognized that the SENE Study classification system and related review from other perspectives is also necessary. recommendations to protect proposed reservoir sites and their watersheds are designed to avoid an irretrievable commitment of resources - in this F. THE RELATIONSHIP BETWEEN case, development on regionally significant reser- LOCAL SHORT-TERM USES OF voir sites. Acquisition of key watersheds is recom- MAN'S ENVIRONMENT AND THE mended to preserve future options for development MAINTENANCE AND ENHANCE- for water supply resources. The classification sys- tem is also designed to group resources which have MENT OF LONG-TERM "like" characteristics into categories which can be PRODUCTIVITY protected and managed in ways which take into ac- count their capabilities and suitabilities for certain uses. The recommended policies and actions have been formulated specifically to ensure that the cumu- H. DISCUSSION OF PROBLEMS AND lative and long-term impacts are beneficial in na- OBJECTIONS RAISED BY OTHER ture. SENE Study recommendations are designed FEDERAL, STATE, AND LOCAL to ensure that resources contributing to the quality AGENCIES, AND BY PRIVATE of man's life and environment ar 'e safeguarded for ORGANIZATIONS AND future generations and that options for future ac- tions are maintained. An example is the Study's recommendation to maintain and protect local ground water resources which offer the most eco- nomical source of water supply. Such an approach [To be added in final environmental statement. to maintain and protect such water supply options can, if properly managed, retain 4 flexibility greater than that of towns which have abandoned their local ground water sources for other supplies. An- other example is the identification and acquisition of sand and gravel sites. The recommendations re- flect the view that sand and gravel mining can be the first step in a plan for sequencing landuse in areas under development pressure. After sand and EIS-15 METHODOLOGY The methodology of a planning process is, in many take a comprehensive study of the water and re- ways, as significant as the final product itself A lated land resources of Narragansett and Little knowledge of the premises with which the SENE Narragansett Bays as its first sub-regional study. Study began, and of the course of action which This resolution was approved by the federal Water was followed during its development can lead to Resources Council and the New England Gover- a better understanding and evaluation of the nors' Conference. Subsequently, in August 1968, Study's final report. Furthermore, the method- the Study area was expanded to include coastal ology serves as a guide for future work; it is a drainage areas in Massachusetts, so that the Study framework which other studies can build upon region coincided with the North Atlantic Regional or modify to meet their specific objectives. (NAR) Study's Subarea 9. This expansion consoli- dated the heavily industrialized and populated east- This chapter will attempt to outline the SENE em Massachusetts and Rhode Island areas, both Study's methodology, beginning with the back- characterized by their small coastal streams and ground and events which led to the Study's form- their close association with marine resources. De- ation. Several sections will deal with the Study's lays in funding postponed the initiation of the relationship to federal legislation and to ongoing Study until January 197 1, when Plan of Study federal and state programs. In addition, the basic preparation formally began. organizational structure of the Study will be out- lined. Participating federal, state, and regional The basic authority for the SENE Study is Section resource planners, as well as citizens and the sci- 201 (b)(2) of the Water Resources Planning Act of entific community were grouped into various 1965 (PL 89-80). This section states that, among levels of management to coordinate their con- its other duties and responsibilities, the Commis- tributions. The SENE Study consisted of a num- sion shall: ber of phases, each of which had specific objec- tives. This chapter will briefly describe each of (1) Serve as the principal agency for the coord- these phases, listing the publications produced ination of federal, state, interstate, local, during each step. Next, the chapter will summar- and non-governmental plans for the devel- ize the individual methodologies used by Study opment of water and related land resources participants to produce the material contained in its area, river basin, or group of river in each of the chapters of the Regional and basins; Planning Area Reports. This discussion will pro- vide a perspective on the development and the (2) Prepare and keep up to date, to the extent final products of each functional area covered practicable, a comprehensive, coordinated, by the Study. Finally, a listing by chapter will joint plan for federal, state, interstate, lo- show the kind of information generated by Study cal and non-governmental development of participants for each of the chapters in the vari- water and related resources: Provided that ous reports. the plan shall include an evaluation of all reasonable alternative means of achieving BACKGROUND optimum development of water and related land resources of the basin or basins, and it The Southeastern New England Water and Re- may be prepared in stages, including recom- lated Land Resources Study was the first major mendations with respect to individual pro- "level B" study initiated by the New England jects. River Basins Commission. During March 1968, (3) Recommend long-range schedules of prior- heavy flood damages attracted regional attention ities for the collection and analysis of basic to southeastern New England. In May of that data and for investigation, planning, and same year, the Commission resolved to under- con Istruction of projects. M-1 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Southeastern New England Study was given The Study is the principal vehicile for securing top priority among the Commission's programs in federal, federal-state, and interstate coopera- 'Raw the context of Section 20 1 (b)(3), and is a key ele- tion in the analysis of natural resources man- ment of the comprehensive, coordinated, joint plan agement issues on the basis of hydrologic or for New England as called for in Section 201 (b)(2) other regions. above. The Study is designed to draw together exist- Definition of a Level B Study ing plans, projects, and other resource man- agement programs at all levels of government. A "level B study", such as the SENE Study, is a preliminary, or reconnaissance level, water and re- The Study is designed to identify major issues lated land plan for a selected region or river basin. and conflicts at regional and subregional levels The Study identifies and recommends actions to be and to develop the means for dealing with taken by all levels of government and by private them, including priorities. Problems unresol- interests to secure, by balanced conservation and ved, needs unmet, and opportunities foregone, development of SENE's water and related resour- will also be recorded. Problems and needs ces, the full range of uses and benefits for the will be rated in terms of severity; consequen- people of the region. ces of not solving problems will be indicated. 71he SENE Study is both a process and a plan. By The Study serves to provide a uniform pur- bringing together citizens and government officials pose for multi-objective efforts by tying these at all levels - federal, state, regional, and local - various programs together. The Study is de- the Study serves as a forum for discussing resource signed to make maximum use of existing in- problems and management solutions for the region. formation arrayed so that it can be economi- By drawing on existing data and comparing ongoing cally updated and amended as conditions programs, the Study has developed a method of change. The Study is also designed to use a analyzing resource information, establishing action high degree of judgemental planning. priorities, and reflecting resource capabilities in formulating action recommendations. . The Study is to concentrate on problems of a critical nature in the near- and mid-term At the same time, the*record of Study analysis, periods (1975 to 1990). data maps, alternatives considered, implications of various alternatives, and recommended actions e The Study will support land use, coastal zone constitutes a management program: a report re- management, and rural area development commending management actions for Southeastern planning efforts. New England. These recommendations, by serving as a guide to decision.makers and a basis for future . The Study is designed to identify and examine resource analysis, become part of the ongoing pro- alternative methods, programs, projects, and cess after the Study itself is done. uses of water and related land resources. Im- pacts of a beneficial or adverse nature will be The following concepts describe the requirements determined only to the extent necessary to and functions of a level B study. They have been ensure the selection of proper alternatives. drawn from several sources, including: the Water Plans may vary widely in scope and detail. Resources Planning Act of 1965 and its related The Plan should identify those projects and guidelines Principles and Standards, and several program alternatives which merit further study. policy statements, various working papers,-and special annual reports on the more recent Section . The Study seeks to provide solutions which 209 of the Federal Water Pollution Control Act achieve positive economic and environmental effects. Amendments of 1972, which calls for level B studies for all basins in the United States. These * All alternatives must be based on reasonable concepts are as follows: assumptions of investment capabilities of the federal, state, local, and private concerns who M-2 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made are to carry out the plan. Plans should seek aspects of water quality planning. Moreover, to balance funding commitments among the they require the examination of the relationship various levels of government. of land use with point and non-point sources of pollution, such as in Section 208. The Coastal Plans must be presented in terms of local de- Zone Management Act requires definition of areas sires and prionities, including recognition of of particular concem with priorities of permissable the national interest. water and land uses. The U. S. Congress has also considered, but did not pass, a National Land Use The end product will have substantial intrin- Policy Act. While the Act has not been signed into sic value for many users because the recom- law, there are several elements in the various ver- mended plan should: sions which were consistent with the approach taken in this level B study. In addition, the Rural - maximize multi-purpose opportunities; Development Act has called for a land and water - minimize duplication of future efforts use and conservation needs inventory. and land use conflicts; - serve to crystallize public opinion as to The above pieces of legislation, together with the desired alternatives; National Environmental Policy Act, form the key - show which programs and projects are elements of a policy for natural resources decision to be recommended for detailed (level making. The New England River Basins Commis- C) planning; sion has applied these policy elements and appro- - save money because of coordinated priate planning requirements to its own process efforts. in order to make the SENE Study responsive to the most recent directives to be useful to The SENE Study has made every attempt to meet resource decision makers, particularly on the state the above requirements in a variety of ways. For level. In addition to these directives, the Study has example, in the water quality chapters, Study par- also drawn particularly on elements of the Federal ticipants have used existing state and federal pro- Flood Insurance Act, the Massachusetts require- grams, plans, and projects in the formulation of ment to prepare environmental impact reports, and their recommendations. The Study has been de- Massachusetts and Rhode Island laws to protect in- signed to identify major water quality issues in land and coastal wetlands. the region, among them combined sewer prob- lems and municipal and industrial wastewater The basic aspects of the Commission's planning ap- discharges. Furthermore, both the economic and proach to which these legislative program elements environmental effects of recommendations have apply are: inventory and analysis, alternatives and been considered. In an effort to maximize the recommendations, evaluation, and coordination, efficient use of funds for wastewater management, all of which include public participation. These the Study has recommended the preservation of components will be covered in greater detail in a existing high quality streams and coastal waters as following section. well as the restoration of polluted waters. Each element of the SENE Study has been developed NERBC Approach with these kinds of guidelines and requirements in mind. The Commission's approach to level B planning is Other Major Legislative and to incorporate aspects of all the major legislative Ongoing Program Requirements directives described in the preceding section. Es- sential to this approach is the concept of joint plan- Since the SENE Study began, several pieces of ning - the product is prepared by federal and state legislation which reinforce or supplement a num- participants with cooperation from citizens and ber of key Study concepts have been signed into local officials. law. For example, the Federal Water Pollution The need for truly joint planning - as required by Act Amendments of 1972 call for the considera- the Commission's enabling legislation - has been tion of both the water supply and water quality M-3 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be -made reinforced by several requirements of recent legis- issues involving two or more states, coordina- lation: tion of management plans for land and water resources in the state's coastal zone, and co- � the Secretary of Commerce will not approve ordination of the land use program with state, a state coastal- zone management program un- federal, and local agencies, and with state and less the vi6vs of federal agencies principally local agencies in other states for interstate areas. affected have been adequately considered; � federal agencies conducting' activities affect- The Commission, through-the SENE Study, has ing the coastal zone or developmental pro- sought to meet these requirements in several ways. jects in the coastal zone must ensure that For example, the Study has concentrated on re- such activities or projects are, to the maxi- gional and interstate issues and conflicts, has at- mum extent practicable, consistent with ap- tempted to coordinate the actions of federal and proved state management programs; and state agencies, and has provided an interdisciplin- ary and comprehensive perspective on resource � the various land use bills have called for con- management problems. sideration of interstate aspects of land use TABLE 1 STUDY PARTICIPANTS Federal - State National Park Service (NPS) New England River Basins Commission (NERBC) U.S. Geological Survey (USGS) Department of the Navy (DON) Federal Department of Transportation (DOT) Department of Agriculture (USDA) U.S. Coast Guard (USCG) Economic Research Service (ERS) Forest Service (FS) State Soil Conservation Service (SCS) Massachusetts Department of the Army Department of Natural Resources Corps of Engineers (CE) Department of Community Affairs Department of Commerce (DOC) Rhode Island Bureau of Domestic Commerce (BDQ Statewide Planning Program Bureau of Economic Analysis (BEA) Connecticut Maritime Administration (MARAD) (Through the NERBC member: Department of Environmental National Oceanic & Atmospheric Administration (NOAA) Conservation) including the National Marine Fisheries Service (NMFS) Environmental Protection Agency (EPA) Interstate Federal Power Commission (FPQ New England Regional Commission (NERCOM) Department of Housing and Urban Development (HUD) Department of the Interior (DOI) Advisory Groups Bureau of Mines (BOM) Citizen Advisory Committee (CAQ Bureau of Outdoor Recreation (BOR) Regional Scientific Task Force (RSTF) Fish and Wildlife Service (USFWS) Basin Advisory Committees (BACs) M-4 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made In dealing with the region as a whole, Study plan- and to the Water Resources Council for transmittal ners have applied uniform criteria throughout the to the President and Congress. SENE region allowing a consistent basis for viewing common problems and interstate issues. The Study Coordinating Group. The Coordinating Group (CG) has drawn on plans and decisions of local, regional, was chaired by the states of Massachusetts and Rhode state, and federal levels of government. In addition, Island along with the Chairman of the Commission, Study planners have taken advantage of complemen- who presides at the Coordinating Group meetings. tarities in policies or actions wherever possible and Among these members were the Departments of Agri- have indicated conflicts wherever appropriate. culture, Army, Commerce, Housing and Urban De- velopment, Interior, and Transportation; the Envi- The SENE Study: Key Participants ronmental Protection Agency, and the Federal Power Commission. Other representatives worked with the In order to develop recommendations in an orderly group on an ad hoc basis. They included the New and efficient manner, the Plan of Study outlined a England Regional Commission and the Department comprehensive organizational structure for the of the Navy. In addition, the Chairman of the Citi- SENE Study's management and implementation. zen Advisory Committee served as an ex officio member. The preparation of the Study represents the coop- eration of many participants (Table 1). Successful implementation of sound management plans for COORDINATING GROUP the region will depend on the involvement of rep- resentatives of all levels of government and of NERBC, MASS. & R. I., Co. Chairmen private interests. In this spirit, the Study adopted an organizational structure which encouraged par- USDA FPC ticipation not only by federal and state agencies - CE HUD the members of the Commission - but also by re- DOI EPA gional planning agencies, local governments, and DOC NERCOM citizens representing a wide range of business, en- CAC DOT vironmental, research, and scientific interests. Study Manager Central to the organizational structure is the con- cept of joint planning - federal and state repre- Planning and sentatives worked together to prepare positive Support Staff management recommendations for a full range of major resources uses. Agency representatives par- STUDY MANAGEMENT TEAM ticipated at both the policy and technical levels Study Manager, Chairman according to the structure shown in Figure 1. New England River Basins Commission. The Mass BOR NOAA (NMFS) RI NPS BEA NERBC membership has served as the general HUD FWS DOT policy-making body for the SENE Study. With EPA BOM FPC regard to the Study, the Commission's functions SCS USGS include: (1) developing general policy and ob- ERS DOT jectives, particularly with issues of regionwide FS BDC significance; (2) requesting adequate funding and CE MARAD manpower for agencies and committees partici- pating in the Study; (3) resolving problems which OTIZEN ADVISORY COMMI cannot be handled at lower levels of the SENE Study organizational structure; (4) reviewing and tific E_ I ___1 adopting the final recommendations for SENE Regional Scien BACs and transmitting them to the Governors of Task Force - Massachusetts, Rhode Island, and Connecticut, FIGURE 1 SENE STUDY ORGANIZATIONAL STRUCTURE M-5 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The Coordinating Group has been responsible for zen Advisory Committee (CAQ, includes repre- the policy and overall direction of the SENE Study. sentatives from conservation, business, industry, In particular, it has been in charge of: (1) the direc- real. estate, and education. To increase public tion, formulation, and selection of the recommend- participation, a group of scientists, the Regional ations; and (2) major questions concerning planning Scientific Task Force (RSTF), was also created, methodology, scheduling, interagency planning re- though it merged with the CAC midway through lationships, budgeting, and resolution of conflicts the Study. Members of both the CAC and RSTF between alternatives. were appointed by the Chairman of the Com- mission. Study Management Team. The Study Management Team (SMT) was led by a member of the Commis- The function of the CAC has been to give the sion staff - the Study Manager - and included rep- SENE Coordinating Group a regional perspective resentatives of the states of Massachusetts and on resource problems, their possible solutions, and Rhode Island; the Departments of Agriculture, their priorities. In addition, CAC/RSTF members Army, Commerce, Housing and Urban Develop- had a primary responsibility for stimulating citizen ment, Interior, and Transportation; the Environ- involvement in the Study's planning process. Ini- mental Protection Agency; and the Federal Power tially the CAC/RSTF membership included two Commission. Ad hoc members included federal representatives from each of the ten planning and state agency personnel who worked on the areas, plus about a dozen scientists and special Study but did not have major responsibility for a interests. Because the meetings were open, the specific study element. Also working with the membership gained others over the years, so that SMT were staff members of regional planning eventually the mailing list totalled 65 members. agencies, field office personnel of state agencies, and other professionals from academic and research To accomplish their goals, the CAC/RSTF formed institutions. three sub-committees for Goals and Objectives, Public Review, and Public Participation. The Goals The SMT, together with the Study Manager and his and Objectives sub-committee merged with the staff, provided the nucleus for technical direction, Public Review sub-committee after its initial pur- coordination, and review of the planning activities. pose was complete. The Public Participation and The team had primary responsibility for developing Public Review sub-committees met periodically to the recommendations and acted as the major tech- help organize the Basin Advisory Committee meet- nical and decision making body regarding Study or- ings (see below). The CAC/RSTF worked on these ganization, operation, and plan development. tasks primarily during quarterly meetings when they discussed the Study's findings from a profes- Study Manager. The Study Manager was designated sional and political viewpoint. Minutes of these by the Commission and had primary responsibility meetings - several of which lasted two days - and authority for the day-to-day conduct of the have provided valuable information in shaping the Study. He served as chairman of the Study Manage- Study's findings. Furthermore, the CAC/RSTF ment Team and as executive secretary of the Co- donated their time most generously in developing ordinating Group. Members of the Study staff in- and in transmitting review comments to the staff cluded resource planners, a citizen participation co- for several versions of the regional and planning ordinator, and several assistants and secretaries. area reports. During the course of the Study, the staff was housed in separate offices at 408 Atlantic Avenue, Basin Advisory Committees. Basin Advisory Com- Boston. These offices will be closed when the fi- mittees (BAC's), one for each of the ten planning nal Study reports are forwarded to Washington, D.C. areas, provided the Study with a representative File material will be retained in Commission offices sampling of local public issues and interests. Mem- at 55 Court Street, Boston. bers of each BAC include representatives from town offices such as water and sewer commissions, Citizen Advisory Committee. Throughout the conservation commissions, planning boards, indus- planning process, the technical experts and staff trial development commissions, and private organi- have incorporated citizen viewpoints into the Study. zations such as watershed associations, sportsmens' The regional group of citizen participants, the Citi- M-6 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made clubs, builders" associations, chambers of com- .(8) Review and transmit recommended plan merce, and the League of Women Voters. In with major economic and environmental all, about 4000 people in the region received plans detailed to provide a basis for choice. invitations to workshops and hearings, and others learned about them through the media. Each of these phases was designed to include an element of flexibility, allowing changes to be made BAC's met during at least three phases of the in the. methodology if circumstances during the Study: early - to define local problems and op- course of the Study required them. In general, portunities; midway - to examine the Study's however, the Study was able to conform to these proposed alternatives; and toward the end of broad guidelines. A brief description of each of the Study - in informal hearings to comment on the above phases should provide some insight into the draft recommendations and their correspond- the development of the SENE Study's recom- ence to citizen preferences. A totdl of 900 citi- mended program. zens had attended the nearly two dozen meetings by the end of the second phase of the Study. In- (1) Develop Environmental and Socio-Economic terested citizens received background information Framework. The Framework is a two-volume re- prior to the meetings. This was the basis of work- port covering basic Study data and assumptions. It sheets and questionnaires which they completed served as the uniform foundation for resource in- during the meetings. The results of these mate- ventory- and analysis. Moreover, the Framework rials were then tabulated and used in developing formed the basis for evaluating plan alternatives the Study's recommendations. and recommendations. Developing Study Recommendations The environmental portion of the Framework con- tains an estimate of the maximum population limits The recommendations for Southeastern New Eng- consistent with the existing environmental charac- land have been derived by a series of planning ter of each community in the SENE region. These phases covering three and one-half years. This limits - called environmental holding capacities - methodology has been outlined in Section 5 of were based on a review of wetlands, flood plains, a separate document entitled the Plan of Study, soils characteristics, distribution of open and for- and consists of the following phases: ested lands, and "amenity zones." Because of a lack of consensus on their accuracy and utility, (1) Develop environmental and socio- however, the environmental holding capacity fig- economic framework; ures were not used during the last phases of the Study. The environmental section of the Frame- (2) Develop resource inventory and analysis; work also contains, in a separate volume, the list- ings of unique natural and cultural sites for each (3) Formulate preliminary single-purpose town in the region. alternative plans; A second section of the Framework, the socio- (4) Formulate preliminary multi-purpose economic portion, presents historical population, alternative plans; income, and employment figures, in addition to a description of historical land use patterns. The (5) Review and refine preliminary multi- socio-economic section also contains projections purpose alternatives; of future trends in the above categories. These figures were originally derived from the OBERS (6) Produce a best economic and a best envi- Series C projections developed for the federal ronmental plan and formulate a recom- Water Resources Council by the Economic Re- mended plan; search Service (ERS) of the U. S. Department of Agriculture, in conjunction with the Bureau of (7) Evaluation; and Economic Analysis (BEA, formerly the Office of Business Economics) in the U. S. Department of Commerce. Later in the Study, new OBERS M-7 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made projections, SERIES E, were developed by ERS Although the identification of individual and BEA. These projections represent a continu- towns and the relationship of alternative ation of the zero population birth rate level which proposals to these towns is somewhat diffi- the nation is now experiencing, rather than the cult to see at the I inch = 4 mile scale, this scale higher 1960-1970 national growth rate on which provides a manageable method for determin- the Series C projections were based. The resulting ing regional issues and for summarizing ele- lower population figures have now been adopted ments of the regional plan. by the Study in all phases of its work. The inventory activity concentrated on obtaining (2) Develop Resource Inventory Analysis. The and assembling both qualitative and quantitative SENE region was originally separated into 14 resource data, using existing information as much hydrologic units; these were later combined into as possible. A list of the maps prepared for the ten planning areas (see Figure 2. 1, Chapter 2, SENE Study may be found in the Data Map Inven- Regional Report): tory at the end of this chapter. Ipswich-North Shore (3) Formulate Preliminary Single-Purpose Alterna- Boston Metropolitan tive Plans. Drawing upon the inventory data, maps, South Shore and analysis, SMT members prepared single-pur- Cape Cod and Islands pose reports for each of the 18 study elements in Buzzards Bay each of the planning areas. These reports and the Taunton agencies responsible for them, are designated "In- Blackstone, Ten Mile, ventory Reports" in the list of "Material Written Woonasquatucket-Moshassuck for or Contracted by the SENE Study" at the end Pawtuxet of this chapter. `Ihe single-purpose reports sum- Narragansett Bay marizedthe inventory information and analysis. Pawcatuck Moreover, they proposed preliminary alternative actions for each of two future assumptions. The During this second phase, the Study Management first assumption anticipated a higher level of popu- Team (SMT) gathered water and related land infor- lation growth (OBERS projections) than the second, mation for each of the ten planning areas and and placed particular emphasis on meeting economic mapped the data at I inch = I mile. Resource sub- objectives. The second assumption was based on jects were arranged into 18 study elements, listed lower levels of population (Environmental Holding in the Plan of Study. The demand for these re- Capacity) and stressed high environmental stand- sources and their availability was also analyzed ards and goals. In the single-purpose reports, these during this phase of the Study. assumptions were known as the economic and envi- .ronmental alternative futures, respectively. These The SMT used two mapping scales: "first-cut" alternatives were formulated solely in response to the needs of each study element. There- A mapping scale of approximately I inch = I mile fore, the alternatives of one element in many cases (1: 62,500) was selected as appropriate for ini- lacked a continuity or correspondence with alterna- tial resource analysis. This scale provides a tives from other elements. They were, however, an presentation format of manageable size while important basis for possible actions and formed the ensuring that the complex inter-disciplinary focus for multi-purpose planning. Discussions of problems can be dealt with in a meaningful the methodologies for many of the- single-purpose way. reports may be found in the last section of this chapter. For reporting purposes, information develop- ed for the I inch = I mile scale was summariz- During the single-purpose planning phase, an evalu- ed on maps having a I inch = 4 mile scale ation table was prepared for each set of alterna- (1:250,000). These maps were used, along tive's. The tables summarized positive and negative with more detailed information, in the next aspects of six types of impacts - social, technical, two phases of Study, to be described below. economic (national and regional), environmental M-8 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made (including considerations called for under the * chose specific criteria to be used to evaluate National Environmental Policy Act), legal and the effectiveness of each plan alternative ac- institutional, and political. This brief evaluation cording to the objectives; served to sort out alternatives which provided benefits of little or no consequences, while iden- e set out the general and specific assumptions tifying and cons6lidating complementary alterna- used; and tives suggested by more than one study element. specified needs in quantitative and qualita- (4) Formulate Preliminary Muiti-Purpose Al- tive terms. ternatives. For the fourth phase of the Study's development, the SMT began to integrate the SMT members then referred to multi-purpose re- eighteen study elements into three categories: ports for resources that could be used to meet water use, land use, and water related land use. basin or regional objectives. They considered both Integration permitted further identification of structural and non-structural alternatives to meet complementary planning opportunities, in which needs for 1990 and 2020. Where alternatives alternatives could be formulated to achieve mul- could not be formulated to completely meet the tiple benefits. In preparing three multi-purpose needs, partial solutions were considered, or the reports (one for each category) for every plan- needs were modified (demand reduction alterna- ning area, the SMT considered regionally signifi- tives). cant limiting factors, issues and problems, and evaluation criteria. The members also developed During this same period the SMT began working a compatibility matrix showing conflicts and on preparation of regionally significant problems, complementarities between single-purpose al- issues, and alternatives from a multi-purpose view- tematives and between preliminary multi-purpose point. Priorities for each objective or component alternatives. "Phased alternatives" were also con- of the objective were established from both a plan- sidered in an attempt to resolve conflicts within ning area and regional standpoint. or among study elements. For example, if a valu- able sand and gravel resource conflicted with a The multi-purpose reports and the preliminary re- proposed reservoir site, the Study could recom- gional planning effort served as the basis for com- mend sand and gravel extraction before and in prehensive planning, the final integrative phase in conjunction with, construction of the reservoir. which a regional perspective was developed and in Resource information on I inch = 4 mile maps is which recommended alternatives were coordinated also contained in each multi-purpose report. across study elements. During this phase, consid- eration of land use parameters played a major role Summaries of the multi-purpose reports served in integrating single- and multi-purpose information, as the basis for discussion at a series of workshops because they covered Critical Environmental Areas, held throughout the SENE region. Through these key facilities, and other factors concerning both re- workshops, the SMT obtained a sense of the prob- source capability and policy guidance. All these lems and issues of importance to the citizens of factors have been combined on subregional re- each planning area. source configuration maps which illustrate devel- opment capability of lands in SENE. Best prelim- (5) and (6) Review and Refine Preliminary Multi- inary comprehensive alternatives under both future purpose Alternatives, Produce Best Economic and assumptions, called A and B alternatives, were sum- Best Environmental Plans, and Formulate a Recom- marized on maps for both areal extensive and site mended Plan. As a transitional step between multi- specific actions. These "best plan" maps, together purpose planning and arriving at the recommended with questionnaires, formed the foundation for plan, the SMT members met for several important discussing alternatives to be chosen for the recom- working sessions. At these sessions they: mended plan at the "midway" series of citizen workshops held throughout the region in the spring defined the environmental and economic ob- of 1974 (see discussion on BACs, above). The ques- jectives for planning area and for the region ti6nnaires allowed citizens to choose between al- as a whole; ternatives A and B or from their own preferred combinations of actions. M-9 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Following these workshops, the SMT and SENE to the New England River Basins Commission for Am Study staff assembled the two best plans - both final review and approval. After any additional Mr policies and specific actions stressing either eco- modification required as a result of the Commis- nomic or environmental alternatives - and the sion's final review, the SENE Study documents, recommended plan for the region and the planning including recommendations, will be forwarded for areas. More often than not, the recommendations subsequent action to the Governors and legislators were a combination of both economic and environ- of the participating states, the federal agencies in mental alternatives, providing opportunities for the region and in Washington, D. C., and to the economic development which were nonetheless U. S. Water Resources Council for transmittal to consistent with the region's environmental stand- the President and the Congress. ards and goals. Further discussion of the recom- mendations may be found in Chapter I of the How the SENE Study Can Be Used by Regional Report, Goals and Approach. Decision Makers It is this recommended set of actions and policies The SENE Study has been designed to be useful to for the region and the planning area which serve many interest groups and decision makers at all as the basis for this Regional Report and the 10 levels of government. It is essential to point out, Planning Area Reports. They will be subject to however, that the Study cannot be "everything to extensive review during the 90-day public review everyone". Individuals or agencies are bound to period and will be modified based on comment disagree with some of the recommendations of received from government and non-government this Study, be they specific actions or general reviewers. policy statements. Nevertheless, the SENE Study is also bound to contain information and recom- (7) Evaluation. Each of the two best plans mendations which will be of significant value to formulated to maximize either the national eco- the same individuals or agencies. A positive ap- nomic development objective or the environmental proach to the SENE Study recommendations is quality objective was evaluated under the four- imperative. Decision makers. should use the infor- account system of the Principles and Standards. mation and implement the recommendations with Using key indicators for each account, Study which they feel comfortable. If, however, they participants examined the alternatives to deter- disagree with actions or policies recommended in mine their implications on national economic ef- the Study, they must be certain to decide upon a ficiency, environmental equality, regional develop- suitable solution for the situation the Study has ment, and social equity. This evaluation formed described. The SENE Study can thus perform a the basis of the Environmental Statement, also in two-fold function: it can serve as a guideline for Part IV of the Regional Report. future resource use, but it can also be a catalyst for additional ideas which may not necessarily Chapter 11 of the Regional Report, Tying the coincide with its original recommendations. Recommendations Together, examines the rela- tionship of the SENE Study's recommendations Some of the ways in which decision makers can to its stated objective. In addition, the chapter use the SENE Study are outlined below: evaluates the Study's objectives in light of 16 Water resources criteria. Such an evaluation helps Government agencies at all levels can use to determine the impact that the SENE Study's Study analysis and recommendations as an recommendations could have on the four accounts information base displaying one overall of the Principles and Standards discussed above. management picture in which they operate. (8) Review and Transmit Final Plan. The draft Further, government agencies at all levels Regional Report and the draft Environmental Im- can apply the Study perspective to shape pact Statement along with the 10 Planning Area and carry out their own coordinated and Reports will be carefully revised during the 90- complementary planning and action pro- day review period. Immediately following this grams. review period, a revised report will be submitted M-10 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made The New England River Basins Commission Citizen s can use Study recommendations as a and the U. S. Water Resources Council can guide for working with federal, state, regional, use the Study results as a component of and local government in effecting management regional comprehensive, coordinated joint actions. plans. Citizens can also use Study data and analysis The.federal Water Resources Council can use to make judgements about new action propos- Study recommendations as a basis for review- als that arise after the Study is completed. ing the compatibility of individual federal agency plans with comprehensive manage- INDIVIDUAL METHODOLOGIES FOR ment programs. FUNCTIONAL AREAS 'fhe federal Office of Management and Budget and the Congress can use Study findings in Te- The following material summarizes the sources and viewing and approving authorizations and bud- general methodology used by the various technical gets for actions recommended by the Study. experts who participated in the Study. The form in which this material is presented is based on the likeli- States can use the Study as a guide for pro- hood that some readers may desire more background gram and budget decisions by comparing cross on several of the specific techniques or sources used. functional problems, issues, and possible solu- Further information can be obtained by contacting tions based on information aggregated at a the New England River Basins Commission or the common level of detail. agencies specified in each discussion. State and federal agencies can use results in The Setting, Chapter 2 judging Study and project proposals of other agencies for their appropriateness and con- Economic material in this chapter was based upon sistency with a comprehensive program. a number of special economic reports prepared for States can use the Study as a vehicle for de- the Study: Economic Considerations for Water and veloping their coastal zone management pro- Related Land Use Planning in Southeastern New grams as a source of data and recommenda- England by Thomas Grigalunas, University of tions, coordination with other federal and Rhode Island Department of Resource Economics; state programs, and as a means of achieving Considerations Relative to the Introduction of Eco- citizen participation. nomic Criteria into the SENE Study, by Barry C. Field, University of Massachusetts Department of State agencies can use Study data and analy- Resource Economics; and An Economic Analysis sis as a means to coordinate and achieve agree- of Coastal Resource Allocation in Southeastern ment for interstate problem areas or issues, New England, by Gregory A. Vaut, University of such as defining non-point pollution sources Rhode Island Department of Resource Economics. or developing abatement programs under the 1972 Federal Water Pollution Control Act Guiding Growth, Chapter 3 Amendments. This discussion describes the following: (1) devel- Study data and analysis can be applied by opment pressure, tabular land use data, and envi- state agencies in establishing guidelines and ronmental holding capacity in order to provide criteria for designating and regulating areas some background information; next it describes of more than local concern. (2) critical environmental and management areas. The classification of resources by the system used States can use the text and maps to develop a in this Study is fundamental to most of the recom- list of questions which may be appropriate mendations found in other chapters in the SENE regarding state and federal environmental im- Study reports. pact requirements. M-1 I PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Development Pressure The 1971 aerial photo survey conducted by 40 Dr. MacConnell of the University of Massachu- The development pressure measure formulated was setts was used for the land use inventory, data col- used in the report as a general indicator of priority lected in 1960 were interpolated using MacConnell's need for recommended actions. 1951 survey data, the 1971-1972 data, and several 1960-65 surveys done by other sources for portions The seven indices listed in Chapter 3 were adapted of the area. Originally, the 1971 MacConnell survey by Justin Gray Associates from a model used by contained 110 land use categories. That classification the Federal Highway Administration for making system was modified by the NERBC staff for direct population and employment projections. The auto use in a level B water and related land resources study accessibility index was computed for 1970 by the which required a system useful for the 1:62,500 U. S. Department of Agriculture by the Economic rather than the 1:24,000 mapping scale. The Research Service using factors related to size of I 10 categories were grouped into 19 categories. municipalities and the travel time between com- Of particular importance was a modification made munities. The communities were ranked for each to the residential land uses, in which four cate- variable and the ranks were summed to establish gories of residential uses were broken out. These composite ranks. The communities were then categories permit the water resources planners to divided into categories. make inferential statements about the existing land use configuration and the likelihood that Finally, development districts which described sewers or public water systems will be necessary, areas which would likely continue to contain based on density. Further information on the urban growth including infrastructure were es- uses of this I inch = I mile information is avail- tablished at one point during the Study. An ap- able at NERBC. proach which would have concentrated regional growth within areas of existing development was ENVIRONMENTAL HOLDING CAPACITY. During brought before Study participants for discussion. the planning process, concepts were developed to es- The objective was to achieve the greatest effi- tablish population capacities for each municipality ciency in the use of existing infrastructure, to as a basis for functional single-purpose planning. A protect critical environmental areas, and to allow measure of the Environmental Holding Capacity of time to develop growth plans for the remaining each community was developed to establish its area. This concept was not used in the recom- population capacities. These capacity figures were mended-program for a number of reasons. The used in some of the single-purpose reports, particu- objectives were achievable through much less larly for estimating water supply needs. A system drastic means. The excess capacity of the. re- was formulated by the University of Massachusetts, gion's infrastructure is no greater within the de- using Community Functional Environments and fined development district than outside the di�- amounts of developable land. More information tricts, and protection of critical areas is more on the technique used can be obtained from the efficiently done through direct measures aimed Environmental Base Study. A later elaboration by at those areas. Limiting development to certain Justin Gray Associates considered amounts of dif- communities would create socio-economic im- ferent categories of developable land with varying plications and political and legal questions that development capacities and development pressures. made the concept unfeasible in the form in which Neither of these systems was used in the final re- it was developed. port, however, as consideration of community type and of development pressures in determina- TABULAR LAND USE DATA. The first stages of tion of population capacities involved judgments work involved the gathering of data and the develop- not directly related to water resource considera- ment of a conceptual framework. Data in the form tions. of statistics were assembled by the Economic Re- search Service of the U. S. Department of Agricul- ture; this is the source of statistics for the tables included in the chapter. M-12 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Critical Environmental Areas Critical erosion areas (Category A). The U. S. and Management Areas. Army Corps of Engineers identified critical ero- sion areas from previous reports and from low On the basis of five criteria'discussed in Chapter 3, level oblique aerial photographs of the coastline. water and related land resources in the SENE re- gion were grouped into one of three major devel- Flood plains (Category B). Using existing data opment capability classifications: Critical Environ- from large-scale mapping efforts, along with meth- mental Areas Requiring Protection; Developable ods which approximated depths of flooding in un- Areas Requiring Management; and Preempted Use mapped areas, the U. S. Army Corps of Engineers Areas. Within these classifications, there are seven and the U. S. Department of Agriculture, Soil sub-categories, labeled A through G which further Conservation Service (SCS) developed the limits describe development capabilities. - The informa- of the I 00-year flood plain on U. S. Geological tion for each of the resource categories was de- Survey (USGS) quadrangle sheets. Field checks veloped by a number of agencies using existing were made to determine any changes since the data and surveys, to produce I inch = I mile USGS maps were published. (1:62,500) scale maps. The selection of the factors used to classify the resources was influ- Class I and 11 prime agricultural soils. (Category B). enced both by the Study Management Team and The U '. S. Department of Agriculture, Soil Conser- the Citizens Advisory Committee. The following vation Service (SCS) mapped prime agricultural resources are among those classified. soils. Class I and 11 soils identified by SCS soils data were correlated with land use data (see Urban Critical Environmental Areas Requiring Protection. Lands discussion, this section) to determine those in agricultural or other open use. In this Study, Wetlands (Category A). Open wetlands were those lands over 50 acres in size were mapped. mapped through aerial photographic interpretation by Dr. MacConnell of the University of Massachu- Unique natural and cultural sites (Category B). setts from 1971 aerial photos. Wooded wetlands These sites were mapped for the National Park were added by the U. S. Army Corps of Engineers Service (U. S. Department of the Interior) by the from U. S. Geological Survey maps. Generally, University of Massachusetts Department of Land- only those wetlands over 20 acres were mapped in scape Architecture and Regional Planning. Unique this Study, except in some cases where a large sites were identified on the basis of existing infor- number of smaller wetlands located in the same mation which various agencies or experts felt were area increased their significance. of cultural or special value to society. One of the sources used was the New England Natural Re- Well sites (Category A). Well sites were mapped sources Center's information. Criteria used for by the U. S. Geological Survey (USGS) from their identification and other sources consulted are data files and existing records, except in the Massa- listed in the Environmental Base Study, com-. chusetts portion of the Blackstone basin and in the pleted by the Department of the Interior, which Ipswich-North Shore planning area, where field is on file at the New England River Basins Com- checks were made. On Cape Cod, water superin- mission. tendents and consulting engineers provided new information. Reports developed by the Environ- Developable Areas Requiring Management. mental Protection Agency were also used. High yield aquifers (Category C). High yield aqui- Beaches (Category A). Beaches were identified fers were mapped by U. S. Geological Survey from through aerial photographic interpretation by their records, except in the Massachusetts portion Dr. MacConnell of the University of Massachu- of Blackstone basin where reconnaissance mapping setts, from 1971 aerial photos. Beaches were also of stratified drift areas was carried out. The maps identified by the U. S. Army Corps of Engineers show stratified glac ial deposits most favorable for from field inspections and from U. S. Geological wells capable of yielding 300 gallons per minute Survey topographic maps. (gpm) or more, except in the Cape and Islands, M-13 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Blackstone, Woonasquatucket, and Narragansett industrial, and institutional land uses were com- Bay basins, where different definitions were used, bined into one category - urban areas - for the due to variations in hydrology (see USGS studies one inch = two mile (1: 125,000) Development for more detail). Aquifers shown are normally Capabilities Maps (plates 1, 2, and 3). prime recharge areas; additional areas adjacent to these may also be recharge areas for these aquifers. Production of Development Capability Maps Best upland wildlife habitat (Category C2). These Production of the Development Capability maps lands were identified by the U. S. Fish and Wildlife began by combining the single-purpose resource Service (U. S. Department of the Interior) as those maps into three maps for each planning area. corridor areas exhibiting the greatest habitat divers- Mapping categories included "Critical Environ- ity (based on the relationship of water bodies in mental Areas", consisting of all A and B resour- conjunction with wetlands, forests, or farm lands, ces (B resources included those overlapping with A and soil productivity), thereby having the greatest resources) and "Developable Areas", consisting of all potential for wildlife species diversity. These cor- C, F, and G resources (including those overlapping ridors are generally along major rivers. with A, B, and other C resources). Complete defini- tions of all the above-mentioned resources may be Landscape quality areas (Category C3)- Members found in Chapter 3 of the Regional Report. of the Department of Landscape Architecture and Regional Planning at the University of Massachu- On the I inch = 2 mile scale of the Development setts determined and mapped landscape quality Capability Maps, the A resources were mapped areas. Using a one mile square grid, visual and first. B resources were then mapped, eliminating cultural qualities were judged for each square mile any B areas overlapping A areas. Next C resources on the basis of: (a) diversity of land use; (b) change were mapped, eliminating C areas overlapping A or in elevation between the highest and lowest points; B resources. and (c) number of unique sites present (see discus- sion above and also the Environmental Base Stud The definitions and the data sources used for the y mapping of each category have been described Severe, moderate, or no septic system limitations, above. The principles and the resulting classifica- (Category C4, F, and G). Data on soils were com- tion system used in the SENE Study are transfer- piled by the Soil Conservation Service from their able elsewhere in the nation. For example, those survey data. Soils categorized as having severe definitions of 'A, B, and the C categories dealing septic system limitations due to slow permeability, with soil or geological characteristics are transfer- excess wetness, or stones, are listed and described able to any area outside SENE. However, upland in the single purpose general soils report. wildlife habitat and high landscape quality are ex- amples of those characteristics which have been Ledge and/or steep slope (Category C5)- Soils with defined on the basis of the attributes of the SENE ledge within three feet of, or on, the surface, and region; they would probably require modification soils with slopes of over 15 percent, were identified for areas outside of SENE where resource charac- by the U. S. Department of Agriculture Soil Con- teristics might differ. servation Service from their survey data. Preempted Use Areas. Water Supply, Chapter 4 Urban areas (Category E). Urban areas were Development of a recommended water supply pro- mapped through aerial photographic interpretation gram for the SENE Study area began with the col- by Dr. MacConnell of the University of Massachu- lection by the U. S. Environmental Protection setts, from 1971 aerial photographs. The original Agency of base year inventory data from records classification system used at 1:24,000 was collapsed of the Massachusetts Department of Public Health, to 19 mapping categories for single-purpose report the Rhode Island Department of Health, and the maps at one inch = one mile (1:62,500) scale. The Rhode Island Water Resources Board; regional four residential categories as well as commercial, planning reports published from 1968 to 1973 M- 14 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made and telephone contacts with a number of water the record of exploratory investigations in these supply superintendents throughout the area. In- and geologically similar aquifers. formation on 1970 average and maximum day water demands, population served, and produc- Existing and potential ground water and ground tion capacity was collected for each public water water related management problems, conflicts, system in the region and special note made of and opportunities were identified and explained. particular problem areas. Use was also made of Various possible alternative solutions to these a SENE Study Corps of Engineers report on were sought in hydrologic literature, and adapted Climatology and Hydrology, which included in- and presented in the ground water management formation on climatology, strearnflow, peak reports. discharge frequencies, rainfall analysis, low flow duration studies, and the development of After future demands were compared to existing storage-yield relationships. Based on popula- safe yields and present pumping capacities of sur- tion projections provided by the Bureau of face sources and ground water systems, respec- Economic Analysis, U. S. Department of Com- tively, and after additional needs were calculated, merce, 1990 and 2020 water demands for all a survey of planning reports published between area towns were estimated using three different 1960 and 1973 was conducted. This survey identi- methods. These included two methods devel- fied proposals designed to supply water to differ- oped by the U. S. Army Corps of Engineers, ent areas within the SENE region. Alternative one using the North Atlantic Regional Regres- plans obtained from the survey, with some addi- sion Equation (NARRE), another a I percent tions and modifications, were then evaluated in annual increase in per capita water consump- light of the following planning goals: (1) A suffi- tion, and a third, which assumed a 1.0 gallon cient quantity of water to supply projected 1990 annual increase in daily per capita consumption. demands (maximum day demands in communities Because the I percent method consistently relying solely on ground water sources); (2) A high yielded the highest estimates of demand when quality supply, free from potential sources of con- applied to future population numbers, this ap- tamination; (3) The most efficient allocation of proach was selected for safety's sake. Inaddition, local and regional water supply resources; (4) Max- an approach which assumed a 0.5 percent annual Imization of local and regional economic efficiency; increase in per capita water consumption after 1990 and (5) Maintenance and enhancement of existing was also used for some 2020 demand projections. environmental quality. Description of the ground water resouices in Input from the citizens participation program and SENE was provided by the U. S. Geological using the planners' best professional judgements, Survey. A literature search and review was selected alternatives were combined in a recom- made for each of the SENE planning areas, and mended water supply plan for the region which reports summarizing the physical description of best fulfilled the planning goals within the re- the ground water hydrology and its physical in- straints of ongoing programs. terrelationships with other resources were pre- pared for each planning area. Municipal ground Water Quality, Chapter 5 water supply quality and quantity information for the 1970 base year was obtained from U. S. The first step in development of the water quality Geological Survey records, state agencies, and program was an inventory of the current status of other sources. conditions and proposals. This consisted of a re- Analysis of favorability for ground water develop- view of state reports on water quality standards ment to meet future needs were made on a town throughout the region and a compilation of muni- by town basis. The additional maximum day de- cipal treatment plant data contained in state and mands for 1990 were compared to the areas of regional planning agency reports. Industrial dis- undeveloped aquifers in each municipality, poten- charges were likewise compiled using federal dis- tial infiltration recharge to these aquifers, hydrau- charge permit applications and information gath- lic conductivity and thickness of the aquifers, and ered from state reports and personnel. Continuous M-15 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made updating has been done as more current informa- A number of recreation related problems warranted Oak tion has been made available from ongoing state more detailed study and the following planning aid efforts. reports were prepared by BOR: An Urban Perspective; A Conceptual Trail System, Scenic and Recreational The next step in the plan development process Rivers; and The Private Sector in Outdoor Recreation. consisted of a review of all available planning which had been done in the region pertaining In evaluating alternatives, an estimate was made to water quality control. A major input was by BOR of annual recreation benefits (in dollars), water and sewer planning done for the U. S. and other social, environmental, and indirect eco- Department of Housing and Urban Development nomic benefits; BOR also made estimates of ac- by regional planning agencies. These plans, de- quisition, development, and other indirect costs. sign projects for specific construction works, The dollar benefit values were assigned to recre- and state "basin plans" were reviewed and their ation days on the basis of the following factors: adequacy assessed with respect to the require- the quality of the activity; the degree to which ments and goals of the Federal Water Pollution opportunities to engage in a number of activities Control Act Amendments of 1972. In addition, are provided; proximity to urban concentration; social, technical, environmental, economic, polit- and the uniqueness of the resource and availability ical, institutional, and other legal aspects of each of water-oriented recreation opportunities. alternative were considered, as well as input from the citizen participation program. The recommendations were made on the basis of this evaluation and considering the proximity to Outdoor Recreation, Chapter 6 urban need concentration, and on the quality of the resource. The program was aimed at balancing The first step in preparing the recreation compo- these latter two elements - as well as providing nents for the SENE Study was an inventory of "in-city" and "near-city" recreation opportunities, existing resources done by the Department of and protecting and using these areas of outstand- Interior, Bureau of Outdoor Recreation (BOR). ing quality wherever they occur. Prime sources of supply information for both states were the State Comprehensive Outdoor Boating. A complete inventory of recreational Recreation Plans (SCORPs). Other sources sup- boating facilities and the existing fleet, by harbor, plemented these figures, such as town plans and was carried out by the U. S. Army Corps of En- campground directories for private supply in- gineers. This was made from a series of low level formation. Where voids or inconsistencies in oblique aerial photographs taken of all recreational data existed an averaging process was utilized. harbors and mooring areas along the Massachusetts and Rhode Island coast. The increased demand Three major factors were used to estimate demand for each planning area was determined assuming for recreation facilities in terms of activity days: that the percentage of the population creating the projected per capita participation rates in selected demand in 1990 would be approximately the same activities, population, and a facility coefficient to as in 1970. Investigations of potential sites for in- estimate the percentage of demand to be met by creasing boating capacity were made, using maps specific facilities. Participation rates were based and coast charts, aerial photographs, and existing on the North Atlantic Regional (NAR) Study data on channel conditions. which, in turn, was derived from the census data reported in the 1965 Survey of Outdoor Recre- Salt Water Fishing. Recreational salt water fishing ation for New England.. (For further explanation data were collected by the U. S. Fish and Wildlife of these procedures, see the Planning Aid Report, Service (USFWS). Aerial surveys and ground Outdoor Recreation Needs, available at NERBC checks done by the Massachusetts Division of Mar- or in the BOR Northeast Office files.) Projected ine Fisheries documented numbers of fish and facility requirements (demand) as established by boats, and Rhode Island reports covered present the above method was then compared to supply use data. Projections were based on the propor- as inventoried in order to determine future needs. tion of population forming the demand reported M-16 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made by the 19 70 National Survey of Fishing and Hun t- aquaculture, also contained in the Marine Resour- ing. Alternatives and recommendations stemmed ces Study, were obtained by the National Marine from interviews with state personnel. The National Fisheries Service from Marine Research Incorpor- Marine Fisheries Service (NMFS) also provided in- ated, in Wareham, Massachusetts. formation from a report on marine sportfishing within the study of Marine Resources of the Off- Port Development. The U. S. Army Corps of shore and Coastal Zone of Massachusetts and Engineers reviewed water-borne commerce sta- Rhode Island. Data were obtained from the NMFS tistics for the SENE ports and adjacent ports. Us- laboratory in New Jersey. ing past trends and projections for economic growth, future demands for commercial naviga- Hunting and Fishing. Demand for hunting and tion were developed. An analysis of existing fresh water fishing was measured by USFWS using channels and port facilities was then accomp- license sales data, numbers of unlicensed fishermen lished to determine their capability for meeting and hunters. Demands for nonconsumptive use of future demands. fish and wildlife were estimated on the basis of pro- portions reported in the 19 70 National Survey of The NMFS report on Ocean Disposal, part of the Fishing and Hunting. Marine Resources Study, covered disposal of dredged materials at offshore sites. Data for this Swimming. Existing state and local plans were report were obtained primarily from EPA publica- used by BOR to identify potential solutions for tions. Possible site locations for inland disposal general recreation deficiencies. For swimming, are being studied by the U. S. Army Cold Regions field reconnaissance was undertaken to evaluate Research and Engineering Laboratory (CRREL) both existing and potential resources. The Corps and the New England Division Corps of Engineers of Engineers identified coastal beaches with po- (NED). This is an independent project aided by tential for being developed by sand nourishment, SENE funds. CRREL and NED, using aerial erosion protection, and provision of facilities. photographs for the Boston Harbor and Narra- gansett Bay areas, have identified possible disposal Marine Management, Chapter 7 sites up to three miles inland and in a zone 3 to 15 miles from shore. The activities in connection with the various sub- The dredged materials disposal sites have been jects discussed in the Marine Management Chapter identified using NASA RB-57 photograph images took place in the context of comprehensive and flown at 60,000 feet with a resolution of 15 feet. joint planning as described earlier in this chapter. Each identified site is to provide a data base for The main sources of information used are des- specific proposals for land disposal of dredged ma- cribed below. terials. Because the composition of dredged mate- rials can vary within the limits of each dredging Offshore fisheries. A study of Marine Resources project, detailed evaluation of possible dredged ma- of the Offshore and Coastal Zone of Massachusetts terials disposal sites is not possible until the pro- and Rhode Isla 'nd was prepared by the National posed dredged materials are analyzed. However, Marine Fisheries Service (NMFS) using internal the final report may contain general recommenda- data and data from the International Commission tions demonstrating how the study data can be 'for Northwest Atlantic Fisheries. used to help locate potential -sites for dis- Shellfish and aquaculture. The main source of in- postal of dredged materials in the SENE region. formation was the NMFS Marine Resources Study, Offshore Sand and Gravel. NERBC and NMFS license sales statistics, town maps in some areas using available information such as reports pro- including Cape Cod, and reports of the Division duced by the Coastal Resources Center at the of Marine Fisheries on major harbors and estu- University of Rhode Island developed the con- aries. In Rhode Island, a full survey was made of tent of this portion of the Marine Management Narragansett Bay, and commercial harvest figures chapter. and various studies were used. State shellfish wardens were interviewed in both states. Data on M- 17 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Urban Waterfronts. Information for this portion the increased flood heights expected at 16 USGS of the chapter was developed by Skidmore, Owings gauging stations in 1990 using the SENE popula- and Merrill on contract to NERBC. Much of the tion projections was compiled. material, obtained by personal interview, is avail- able in the Urban Waters Special Study, available Finally, possible solutions were investigated. at the NERBC offices. These solutions included flood control dams, walls and dikes, flood water diversions and chan- Flooding and Erosion, Chapter 8 nel modifications. Non-structural solutions were also investigated, particularly for areas where dam- The U. S. Army Corps of Engineers completed a ages had not yet reached serious proportions. These hydrological analysis based on a review of records included flood plain zoning, preservation of natural for each major stream. This included river flow valley storage, flood proofing, early warning sys- data from USGS gauging stations, recorded high tems, and removal of flood prone structures. Re- water marks from past floods, and descriptive commendations were made to either reduce flood material on past floods. Using these data, the damages or prevent a significant increase of dam- known hydrologic characteristics, and projected ages. growth in each river basin, estimated flood levels Tidal flooding was investigated by the Corps of for a I 00-year frequency flood were determined. Engineers by comparing damages from past storms Flood plain delineation was carried out by the to those that would be expected in a recurrence of Corps for mainstream rivers and major tributaries similar storms. Prior Corps of Engineers reports on and by the Soil Conservation Service for PL-566 tidal flooding were reviewed and any changes that areas and other tributaries (usually less than 5 have occurred since they were published were square miles of drainage area). noted. In areas where federally-supported struc- The next step was to evaluate the flood damage tural protection was not feasible, alternative ap- in the 10 planning areas. Available damage figures proaches for flood damage reduction were con- from past floods were updated to reflect new flood sidered. These consisted of various structural and protection projects and additional development in non-structural solutions for state and local govern- flood prone areas. Damage figures were obtained ments. Locations of areas of coastal erosion were from flood control studies where they have been identified by reviewing existing reports on coastal recently completed, or from rough estimates made erosion, which covered only limited sections of on the basis of a field check. the coastline, and by aerial observation of the rest of the coastline. An engineer with experience in An analysis was then made of the wetlands in each coastal erosion flew the Massachusetts and Rhode basin as they related to flood damages. The area of Island coastline, and a series of lo,%@ level oblique each wetland on the maps was measured (for wet- aerial photographs were taken. Once the serious- lands approximately 20 acres or larger) and the ness of the erosion was determined, general altema- total wetland area for each town and drainage basin tive approaches to minimize the harmful effects of was compiled. Large wetland complexes were this erosion were developed. identified and basins in which wetlands play an Upland erosion and sedimentation data and alterna- important role in minimizing flood damage were tives were supplied by the U. S. Department of Ag- identified. A general evaluation of the wetlands riculture, Soil Conservation Service, with the assist- in each basin was developed, and alternatives were ance of the U. S. Forest Service and the Economic formulated to provide a framework for evaluating Research Service. the importance of each wetland. Use was also made of a Corps of Engineers report Unwelcome Facilities, Chapter 9 on The Effects of Urbanization on Peak Runoff This report develops a method of determining the Onshore sand and gravel. A survey was made by increased flood heights caused by the increased the U. S. Department of the Interior, Bureau of urbanization within a watershed. A'table showing Mines, of the mineral producers within the Study M- 18 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made area, to obtain information pertaining to supply pose navigation study and a study prepared for and demand, environmental factors, and water the Massachusetts Port Authority by Arthur D. and land use. Overlay maps of potential resource Little, Inc., Raytheon, and Frederic R. Horres, locations were prepared from published and un- Inc.: A Preliminary Economic and Environmental published U. S. Geological Survey surficial geology Study of Alternative Methods of Supplying Petrol- and ground water maps, and a Rhode Island aggre- eum Products to Eastern Massachusetts. gate survey report. Zoning regulations available from the Massachusetts Division of Natural Re- Solid Waste. A special study prepared by Thomas sources and the Rhode Island Statewide Planning Pontes "A Solid Waste Management Review of the Program were used in the portion of the report Southeastern New England Region", was the basis covering regulations affecting the mineral industry. for the Study's recommendations along with re- ports prepared by the states of Massachusetts and Two methods were used to develop projected de- Rhode Island and by regional planning agencies. mand for aggregate calculated for benchmark years to 2020. A straight-line projection of tons Strengthening the Management produced in the years 1959-1970, based on U. S. Bureau of Mines data, is headed "low projection". System for Natural Resources, The second projection, calculated by using re- Chapter 10 gression analysis of tons of sand and gravel pro- duced (dependent variable) against OBERS Series The Legal and Institutional element of the SENE C projections of population (independent variable) Study investigated first the legal and institutional for the same period, is headed "high projection". implications of specific recommendations of the A special report prepared by J. Sutinen and L. SENE program as well as selected issues which the Nicholson of the University of Rhode Island, program attempts to address. Secondly, it sought Department of Resource Economics, The Eco- to develop information relating to the means by nomics of Sand and Gravel Mining in Southeastern which the program may be implemented. New England was also used. To meet these objectives, a preliminary analysis Electrical Power. A single purpose plan report on of tentative recommendations was conducted to power was prepared by the Federal Power Com- identify selected issues and particular recommen- mission, New York Regional Office, which con- dations requiring legal and/or institutional study. tains descriptions of sources and criteria used. A Once identified, this information was framed in special report "77ze Economics of Power Plant five major subject areas, namely: the Design of a Siting in Southeastern New England" was pre- Legal and Institutional Structure for Management pared by J. M. Gates, N. F. Meade, and J. G. of Significant Water Resources; Wetlands Admin- Sutinen of the University of Rhode Island De- istration; Fiscal Policy and Water Related Land partment of Resource Economics. Reports pre- Use Controls; Methods to Ensure Access to Na- pared by the University of Rhode Island Coastal tural Resource Areas; and Proposed Legislation Resources Center on power plant site considera- Relevant to the SENE Study. NERBC contracted tions at Charlestown, Rhode Island were also with consultants for the preparation of reports on used. each of the above issues. These reports consisted essentially of review and critique of existing laws Petroleum. Studies providing background material and institutions of relevance to the particular and data included the MIT Georges Bank Petroleum topic. Once prepared, these reports were reviewed Study and subsequent related Sea Grant Studies, by the NERBC - SENE Staff and appropriate the NERBC Regional Report entitled "The Oil Study Management Team members. They form Issue" (vol. 5, no. 2, 12/73), the National Marine the basis for discussion of legal and institutional ramifications of specific recommendations in the Fisheries Service Report on oil and gas included in the Study of Marine Resources of the Offshore and various functional chapters of the Regional Report. Coastal Zone of Massachusetts and Rhode Island. On a second level, after preliminary review of sub- A report on petroleum included in the single pur- stantive Study findings, the legal and institutional M_ 19 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made framework was identified which enabled the major ing functional areas such as water supply, water Study findings to be carried out. After sketching quality, outdoor recreation, etc. Inventory reports the parameters of this effort, the Study contracted on the subjects listed below are available for each with two consultants, one of whom was charged of the ten planning areas in the SENE region (e.g., with the responsibility for the design of institu- Ipswich-North Shore, Boston Metropolitan, South tional arrangements and the other was given re- Shore, Cape Cod, Buzzards Bay, Taunton, Black- sponsibility for identifying an implementation pro- stone and Vicinity, Pawtuxet, Narragansett Bay, cess or strategy. Material was prepared based on Pawcatuck). The number in parentheses which consultation with state and federal officials and follows each listed Inventory Report is its "Study agencies and on appropriate laws and legislative Element" number. For example, the Inventory domuments. Revisions were made as a result of Report on Related Land (under The Setting - review by the Study participants in the course of Chapter 2) is Study Element 2.02. These numbers an overall review of the SENE Study program. are an internal code used during the course of the This material forms the basis of Chapter 10 of Study for reference purposes. the Regional Report. Multi-purpose reports, listed under Guiding Growth, Chapter 3, were prepared to integrate the single pur- Tying the Recommendations Together pose reports into three categories: Water Use, Land Chapter 11 Use, and Water Related 'Land Use. These three types of reports are also available -for each of the Study's This chapter synthesizes the evaluation process ten planning areas. used throughout the Study, the framework for which has been described in the first portion of Abbreviations have been used to indicate many of the Methodology. The Study Management Team the agencies which produced reports or maps. The prepared several versions of matrices which were full titles of these agencies may be found on Table used to evaluate the compatibility and conflicts I of this chapter. and positive and negative impacts of: recommen- dations to various land use categories; recommen- Goals and Approach - Chapter 1 dations to objectives; and recommendations and priorities for planning areas and for the SENE Southeastern New England Water and Related region. Resources Study; Plan of Study, Vols. I & II, April 19 72 The material contained in Chapter I I is the re- sult of work by several consultants as well as the The Setting - Chapter 2 NERBC-SENE staff, based on information devel- oped initially by the Study Management Team. Base Reports Environmental Quality Elements of a Water and MATERIAL WRITTEN FOR Related Land Resources Plan; Ervin H. Zube, OR CONTRACTED BY Amherst, Mass., June, 1971 THE SENE STUDY Environmental Base Study; University of Massa- The following list of documents and maps repre- chusetts, for the National Park Service; Augu st sents the material which was produced during the 1972 course of the SENE Study. This list is organized Socio-Economic and Environmental Framework, by subject, following the order of the chapters in Vol. 1: Base Report; Vol. II, Tables; March 1973 the Regional Report. General Information and Citizen Participation publications are also included at the end of the list. Data Books and Population Projections (adjusted OBERS and Environmental Futures projections) The Inventory Reports listed under most of the SENE, June 1974 chapter headings are single-purpose reports cover- M-20 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Inventory Reports POPULATION DENSITY [I" approx. 5 mi. I Overlay showing SENE with five categories of Climate, Meteorology, Hydrology, Water Quality, population density. Producing Agency: NERBC. Geology and Ground Water Availability, Produc- ing Agencies: CE, SCS, USGS, EPA (2-01) RIVER BASINS [1" = approx. 5 mi.]. Deline- ates and names all,river basins in the SENE Study Related Land, Producing Agencies: SCS, USGS, area. Producing. Agency: NERBC. CE, HUD. (2.02) NERBC REGION [page size]. Map of New Eng- Special Reports, Economic land delineating the H major basin areas. Pro- ducing Agency: NERBC. Economic Considerations for Water and Related Land Use Planning in Southeastern New England, USGS QUADRANGLE INDEXMAP [ 1: 125,0001 Thomas Grigalunas, Department of Resource Eco- Quandrangles delineated within the basins. Pro- nomics at the University of Rhode Island; June ducing Agency: FS. 1973 WATERSHED B 0 UNDARIES [ 1: 24,0001 Hy- Considerations Relative to the Introduction of drologic boundaries on USGS maps for Mass. Economic Criteria into the SENE Study, Barry only. Producing Agency: SCS. C. Field; Sept. 1973 Guiding Growth - Chapter 3 Data Maps Inventory Reports SURFICIAL GEOLOGY (drift, till, marsh) (1:250,0001. Sources: Corps of Engineers files, Land Use Patterns, Allocations, and Management; USGS map for glaciofluvial deposits, Producing MAPC Consulting for Dept. Housing and Urban Agency: CE. (3.03) Development. (3.06) INDIVIDUAL BASINS [ 1:62,5001. Set of 21 Special Environmental Factors; University of maps made from a composite of USGS quad- Massachusetts for NPS. (3.06)' rangle maps without topography. Maps cover each river basin and the coastal zone in SENE. Multi-purpose Reports Title blocks and borders are included. Sheet size of 30 x 40". Producing Agency: NERBC. Water Use for each planning area SENE Area [ 1:250,0001. One map each show- Land Use for each planning area ing basin boundaries, major rivers, state boun- daries. Sheet size 34 x 32". Producing Agency: Water Related Land Use for each planning area NERBC. Summaries of each of these reports are also SENE Area [ I approx. 4.8 mi. I. Entire area available with basin boundaries delineated in red, rivers delineated in black, and basin names in red. Special Studies Sheet size 24 x 36". Producing Agency: NERBC. Remote Sensing Land Use and Vegetative Cover SENE POPULATION CENTERS [ I approx. in Rhode Island, William P. MacConnell, Depart- 5 mi.]. Shows study area boundary, Major cities. ment of Forestry and Wildlife Management, Uni- by name with 1970 population figures next to versity of Massachusetts, 1974. (3.05) the name. Producing Agency: NERBC. M-21 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Data Maps 12 - Agriculture - Pastureland (AP) 13 - Forest (F) RELA 7ED LAND - SOILS - GENERAL 14 - Open Transitional Land (OT) SOILS (23 classifications) [ 1:62,5001. Sources: 15 - Disposal Sites (DS) Existing Soils Survey Reports, Field Mapping 16 - Wetlands Inland (WI) sheets and field trips. Producing Agency: SCS. 17 - Wooded Wetland (WW) 18 - Wetlands Salt Water (WS) RELATED LAND -SOILS: SLOPE [ 1:62,5001. 19 - Water (W) (0-8', 8-15'. 15' and greater, unclassified urban @ Sources: Air photos,.1970 University of Sources: Interpretation from General Soils map Massachusetts 1:20,000 interp. placed on and USGS Quad Sheets 1:24,000. Producing 1:24,000 USGS Quad Sheets. Producing Agency: SCS. Agency: MAPC for HUD. RELA TED LAND - DEPTH TO BEDROCK LAND USE PATTERNS, ALL OCA TIONS & (dominant soils, 3 feet; co-dominant soils, 3 MANA GEMENT - TRANSPOR TA TION feet; dominant and co-dominant soils, 3 feet; SYSTEM (limited access highway and access unclassified) [ 1:62,5001. Sources: (Same as points; major arterial; passenger railroad and above). Producing Agency: SCS. stations; freight railroad; transit and stations; airport; ferry terminal). [ 1:62,5001. Sources: RELATED LANDS - DEPTH OF SEASONAL Official State Transportation Map 1973. Pro- HIGH WATER TABLE (shallow; deep and mod- ducing Agency: HUD. erately shallow; deep to shallow; deep; unclassi- fied). Sources: (Same as above). Producing LAND USE PATTERNS - ZONING MAP Agency: SCS. (residential; commercial; industrial; institu- tional; open space). [ 1:62,5001. Sources: LAND USE PA TTERNS, ALL OCA TIONS AND Most recent town zoning by-laws and town MANAGEMENT -LAND USE [ 1:62,5001 - plans. Producing Agency: MAPC for HUD. 49 One for each of 10 planning areas. I - Residential One (RI) SPECIAL ENVIRONMENTAL FACTORS - [less than 1/4 acre lots plus multi-family, TO WN FUNC TIONA L EN VIR ONMEN TS apts., tenements, etc. - greater than 4 (center city; intermediate city; fringe city; dwelling units/acre I; forest town clustered; forest town dispersed). 2- Residential Two (R2) [ 1:62,5001. Sources: See page IV of Environ- [single and multi-family if they cannot mental Base Study, available from NERBC. be separated on 1/4 to 1/2 acre lots - 2-4 Producing Agency: Univ. of Mass. for NPS. dwelling units/acre I 3- Residential Three (R3) SPECIAL ENVIRONMENTAL FACTORS - [single family on lots greater than V2 acre UNIQUE NA TURAL AREAS (federal; state; including I acre lots and clusters of private & semi-public; Audubon; Trustees of homes in rural areas - less than 2 dus to Reservations; municipal; private; unknown). I dwelling unit/acre I; [ 1:62,5001. Sources: (Same as above). Pro- 4- Residential Four (R4) ducing Agency: Univ. of Mass for NPS. [lots larger than I acre and estates of 3 acres and more - less than I dwelling SPECIAL ENVIRONMENTAL FACTORS - unit/acre I ; UNIQUE CULTURAL AREAS (historic; na- 5 - Commercial (C); tional; register; state; local; archeological; 6- Industrial (1) educational). [ 1 :62,500]. Sources: (Same as 7 - Extractive (E) above). Producing Agency: Univ. of Mass. for 8- Transportation (T) NPS. 9- Public, Institutional (PI) 10- Open Space Recreational (OSR) 11 - Agriculture - Cropland (AC) M-22 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made RELA TED LANDS - LIMITA TIONS FOR DE VEL OPMENT CAPABILITIES MAPS SEPTIC TANK SEWERAGE DISPOSAL [ 1: 125,0001. Plate 1: Greater Boston and (slight; slight and moderate; slight, moderate North Shore; Plate 2: Southeastern Massachu- and severe; severe; not classified). [ 1:62,5001. setts; Plate 3: Rhode Island and the Blackstone. Sources: General Soils Maps. Producing Agency: See Chapter 3 - Guiding Growth for a full dis- SCS. cussion of the maps and their purpose. Produc- ing Agencies: NERBC and JGA/Wallace Floyd SPECIAL ENVIRONMENTAL FACTORS - Ellenzweig, Inc., January, 1975. LAND USE QUALITY (subregions A-G - see explanation on subregions in Single-Pur- Water Supply - Chapter 4 pose Report 3.06, available from NERBC. 1:62,5001. Sources: Univ. of Mass. inter- Inventory Reports pretation - I I mi. Producing Agency: Univ. of Mass. for NPS. Ground Water Management; Producing Agency: U. S. Geological Survey (3.03) POPULATION GROWTH TRENDS [1"= approx. 5 mi. I. Overlay showing 6 categories Water Supply; Producing Agency: Environmental of population growth trends in SENE. Produc- Protection Agency (3.04) ing Agency: NERBC. Special Reports, Economic FUNCTIONAL ENVIRONMENTS (FE) [ 1:62,5001. Unique natural and unique cul- Economic Implications of Water Supply and De- tural sites in SENE (by town). Producing mand Issues in Southeastern New England Agency: Univ. of Mass. for NPS. Nathanial Clapp, Consulting Engineer; May 1974 (summary available) ENVIRONMENTAL BASE STUDY [ 1:62,5001. Functional environments of each town in SENE Special Reports, Legal and Institutional area. Town lines delineated and (FE) written in. Producing Agency: Univ. of Mass. Legal and Institutional Arrangements for Water Supply Service in the Southeastern New Eng- FOREST COVER & WETLANDS MAP (1P- land Area; Edward R. Kaynor, U. Mass. Water SWICH STUDY AREA). [1:62,500].Produe- Resources Research Center, July 1974 ing Agency: FS. Data Maps FOREST INDUSTRIES [ 1:250,0001. Primary and secondary cover types. Producing Agency: GROUND WATER MANAGEMENT - FS. GROUND WATER RECHARGE AREAS (ground water reservoir & recharge areas; FOREST USE (IPSWICH STUDY AREA) ground water recharge areas; till & bedrock; [ 1:250,0001. Areas designated by size of circle municipal & industrial supply wells & yield in showing acres by town of forest land, public millions of gallons per day). [ 1:62,500]. management, and use of forest land for wood Sources: Field work and USGS reports 1962- products, surface water supply and developed 1967. Producing Agency: USGS. public recreation. Producing Agency: FS. WATER S UPPL Y - EXISTING WATER S UP- GENERALIZED FOREST TYPES [Approx. PL Y SOURCES & SER VICE AREAS - 196 7 1:1,000,0001. Major vegetational cover types. (existing well sources; existing surface water Producing Agency: FS. sources; existing water service area) [1:62,500]. Sources: Camp, Dresser, McKee Report 1967 EXISTING DEVELOPMENT AND RELA TIVE Producing Agency: EPA. ACCESSIBILITY [ 1: 500,0001. Producing Agency: JGA for HUD. M-23 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made WA TER S UPPL Y - PO TEN TIA L WA TER PROPOSED WA TER QUALITY f I approx. SUPPL Y SOURCES & SER VICE AREAS - 5 mi. I. A set of 3 overlays showing proposed 1990 (proposed reservoirs; proposed service water quality under the three categories listed areas) [ 1:62,5001. Sources: (Same as above). above. Producing Agency: EPA. Producing Agency: EPA. C[ TIES A ND TO WNS HA VIN G COMBINED PROPOSED WA TER SUPPL Y SYSTEMS FOR SEWER FACILITIES [ I " = approx. 5 mi.]. INDIVIDUAL TOWNS AND CITIES - 1990 Overlay locating by dot and name all towns in 1: 500,000 1. Producing Agency: EPA. SENE with combined sewer facilities. Produc- ing Agency: EPA. EXIS TIN G AND PR OP OSED WA TER S UPPL Y TRANSFERS AND PROPOSED RESER VOIRS POSSIBLE WASTEWATER TREATMENT - 1990 [1:500,0001. Producing Agency: EPA. SYSTEMS AND FACILITIES [ 1: 500,0001. Producing Agency: EPA. Water Quality - Chapter 5 Outdoor Recreation - Chapter 6 Inventory Reports Inventory Reports Water Quality Control; Producing Agency: En- vironmental Protection Agency (3.02) Fish and Wildlife; Producing Agency: U. S. Fish and Wildlife Service (3.07) Health Aspects; Producing Agency: Environ- mental Protection Agency (3.16) Outdoor Recreation; Producing Agency: Bureau of Outdoor Recreation (3-08) Special Studies Special Reports, Legal and Institutional A Solid Waste Management Review of the South- eastern New England Region; Thomas Pontes, Methods to Ensure Access to Natural Resource 1974. Areas, Tom Arnold and Francis Cameron, 1974 Water Quality in Southeastern New England - Planning Aid Reports (prepared by U. S. Depart- a Planning Report; Environmental Protection ment of the Interior, Bureau of Outdoor Recrea- Agency, 1974. tion, Northeast Regional Office Data Maps Existing Outdoor Recreation Areas Outdoor Recreation Needs WATER QUALITY (present & proposed water The Private Sector in Outdoor Recreation quality) [ 1:62,5001. Sources: Water Quality Scenic and Recreational Rivers Standards, State of Mass. 1967. Producing Recreation Trails; A Guide for Action Agency- EPA. An Urban Recreation Perspective EXISTING AND PROPOSED SEWER SER VICE Data Maps AREAS (existing & proposed sewer services; wastewater discharges). [ 1:62,5001. Sources: RECREATION (general parks administration - Camp, Dresser, McKee Report 1967 Permit Ap- L = local, P = private, C = commercial; forest or plications, 197 1. Producing Agency: EPA. wildlife preserves; beaches; marinas; boat launch areas & public access sites; roadside parks & pic- EXISTING WATER QUALITY [ I approx. 5 nic groves; federal lands) [ 1:62,5001. Sources: mi.]. A set of 3 overlays showing existing water Bureau of Outdoor Recreation statistics & maps, suitable for all uses except bathing and shell- Statewide Comprehensive Outdoor "Recreation fishing, and water suitable for most uses. Pro- Plan for Mass (SCORP). Producing Agency: ducing Agency: EPA. BOR. M-24 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made NA VIGA TION (yacht club; marina or boatyard; NA VIGA TION SUMMAR Y OFEXISTING public landing; public ramp; oil terminal; power DEVELOPMENT & FUTURE GROWTH PO- plant terminal; historical or training station ter- TENTIA L OF NA VIGA TION FACILITIES minal; Coast Guard station; anchorage areas; chan- (high growth potential; moderate growth poten- nel improvement) [ 1:62,5001. Sources: Corps of tial; low growth potential) [ 1:62,5001. Sources: Engineers reports, aerial photos 1971, National CE Engineering Reports, Aerial photos 1971 Ocean Survey charts, USGS maps 1:24,000 and National Ocean charts, USGS maps 1:24,000 field inspection. Producing Agency: CE. and field inspection. Producing Agency: CE. COASTAL RESOURCES - OWNERSHIP & USE SIGNIFICANT PUBLICL Y OWNED REC- (public - public recreation; public - military or REA TION & CONSER VA TIONAREAS restricted; private - public recreation; private - (Parks, forests,. management areas and sanctu- private beach; private - commercial-industrial; aries of over 300 acres are located. Shellfish public -wildlife reservation) [ 1: 62,5 00 ]. Sources: areas, stocked trout streams and ponds are 1971 Aerial photos, CE reports, USGS 1:24,000 also delineated) [1: 250,0001. Producing Agency: topo maps, field inspection. Producing Agency: USFWS. CE. Marine Management - Chapter 7 FISH AND WILDLIFE HABITATS - WILDLIFE HABITA T CORRIDOR (best corridor - greatest Inventory Reports habitat diversity; better corridor - diversity of habitat; good corridor - habitats lack water area, Navigation; Producing Agency: Corps of En- poor soils; special corridor - federal, state, or con- gineers (3. 10). servation group areas to protect development; urban corridor - devoted to man-made structures Coastal Resources; Producing Agency: Corps but have wildlife of interest to residents) of Engineers (3.11). [ 1:62,5001. Sources: 1:24,000 interpretation & field survey, and Dept. of Natural Resources, Special Studies Mass. Producing Agency: USFWS. An Initial Assessment of the Deepwater Coastal P7SH AND WILDLIFE - FRESH WATER Zone, Paul Kirshen, December 1971. FISHERIES (cold water fishery; warm water fishery; salt water portion) [ 1:62,5001. Sources: Marine Resources of the Offshore and Coastal 1:24,000 interpretation and field survey, and Zone of Massachusetts and Rhode Island, Chris- Dept. of Natural Resources, Mass. Producing topher Mantzaris, National Marine Fisheries Agency: USFWS. Service; July 1974. FISH AND WILDLIFE - SAL T WA TER SPOR T Urban Waters Special Study, Skidmore, Owings FISHING (anadromous stream; salt water fish- & Merrill, January 1975. ing areas) [ 1:62,5001. Sources: Field checks. Producing Agency: USFWS. Data Maps INLAND WEILAND MANAGEMENT- MARINE MANAGEMENT [ 1: 500,000 1. Pro- QUALITY OF WILDLIFE WETLANDS (best; ducing Agency: NERBC with agency informa- better; good; publicly owned land) [ 1:62,5001. tion. Sources: 1951-52 Univ. of Mass. Land Use Maps 1:31,360 USGS topo maps, limited field inspec- OFFSHORE FISHING GR OUNDS [I in. = 20 mi. tion. Producing Agency: USFWS. Producing Agency: NMFS. M-25 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made Flooding and Erosion - Chapter 8 Unwelcome Facilities - Chapter 9 Inventory Reports Inventory Reports F7ood Plain Zoning and Streamflow Management; Power; Producing Agency: Federal Power Producing Agency: Low Flow Assessment Report; Commission (3.12). Corps of Engineers (3.01). Minerals; Producing Agency: Bureau of Mines Inland Wetlands Management; Producing Agency: (3.13). Corps of Engineers (3.09). The Economics of Power Plant Siting in South- Irrigation and Drainage; Producing Agency: Soil eastern New England, J. M. Gates, N. F. Meade, Conservation Service (3.14). J. G. Sutinen, Department of Resource Eco- nomics at the University of Rhode Island; June Sediment and Erosion; Producing Agency: Soil 1974 (summary available). Conservation Service (3.15). An Economic Analysis of Coastal Resource Special Reports, Legal and Instutional Allocation in Southeastern New England, Gregory A. Vaut; June 1974 (Summary avail- Changes in the Wetlands Law; Tom Arnold and able). Francis Cameron, 1974. The Economics of Sand and Gravel Mining in Data Maps Southeastern New England, J. Sutinen and L. Nicholson, Department of Resource Economics, FL OOD PLAIN AND STREAMFL 0 W MAN- University of Rhode Island, June 1974 (sum- A GEMENT - EXISTING RESOURCES (main- mary available). stem flood plain [estimated 100-yr. flood]; USGS Gaging Station; mainstern dam; major Data Maps damage area; flood plain zoning) [ 1:62,5001. Sources: Field inspection, CE reports, SCS POWER - PRIME MOVERS (location of gen- reports, USGS stream gauging records, USGS eration stations) [ 1 :62,5001 . Producing Agency: topo maps. Producing Agency: CE. Federal Power Commission. COASTAL RESOURCES - PHYSICAL SUITABILITY ZONE - BASEL OAD POWER CHARACTERISTICS& TIDAL FLOODING PLANT SITING (inland rural; inland urban; (erosion conditions, critical; erosion condi- coastal rural; coastal urban) [ 1:62,5001. Sources: tions, non-critical; beach areas; areas subject Interpretation by Federal Power Commission. to tidal flooding) [ 1:62,5001. Source: 1971 Producing Agency: FPC. aerial photos, CE reports, USGS 1:24,000 topo maps, field inspection. Producing MINERALS - POTENTIAL SAND AND Agency: CE. GRA VEL RESOURCE AREAS (areas of poten- tial commercial depokts; areas of no commercial S TREAMFL 0 W OF MAJOR RI VERS [ I value)[ 1:62,500]. Sources: Geological Survey approx. 5 mi. I. Map showing basin boundaries, data (see hydrological data, Ground Water Man- rivers, basin names, location of gauging stations agement). Producing Agency: BOM. and high and low flow graphs for each major river. Producing Agency: NERBC with agency 1980 POWER FACILITIES [ I approx. 5 mi. 1. information. Overlay showing generating plants and intercon- necting transmission lines for 1980. Producing PRESENT FL OOD DAMA GE AREAS AND Agency: FPC. WETLAND AREAS ( 1: 500,0001. Producing Agency: NERBC with agency information. M-26 PUBLIC REVIEW DRAFT SUBJECT TO REVISION Line by Line Changes can be made EXISTING BULK AND PEAKING POWER Southeastern New England Water and Related PLANTS; PR OPOSED B UL K PO WER PLANT Land Resources Study; newsletter July 1973. SITES - 1990 [1:500,000]. Producing Agency: Producing Agency: NERBC. FPC. Tomorrow is Today: Planning With the People Strengthening the Management System for in Southeastern New England; handbook, No- Natural Resources, Chapter 10 vember, 1973. Producing Agency: NERBC. Special Reports, Legal and Institutional SENE map overlay packet; Spring 1974. Produced by Stephen Logowitz for NERBC. Design of Legal and Institutional Structure for Management of Significant Water and Land Use You Live Here; pamphlet, Spring 1974. Produc- Issues, Ed Selig, .1974. ing Agency: NERBC. Fiscal Policy and Related Lahds Control, Tom An Annotated Bibliography of Major Water and Arnold and Francis Cameron; 1974. Related Land Resource Studies in Southeastern New England; July 197 1. Vols. I & 2. Producing Proposed Legislation Relevant to the SENE Agency: NERBC. Study, Peter Freeman, 1974. Citizen Participation Publications Implementation of the SENE Study, Develop- ment Sciences, Inc.; 1974. Tabulations Tying the Recommendations Together, Major watershed problems seen by public work- Chapter 11 shop participants in each of the SENEplanning Data Maps area watersheds Maps were prepared at a scale of 1:250,000 for Citizen-preferred solutions, by planning area. each "subregion". Subregion I (Greater Boston) is composed of the Ipswich-North Shore and Meeting Summaries Boston Metropolitan planning areas. Subregion 11 (Southeastern Massachusetts) includes the News release summaries of public workshops for South Shore, Cape Cod, Buzzards Bay, and each watershed, discussing major watershed issues. Taunton planning areas. Subregion III (Rhode Island and the Blackstone) contains the Black- News release summaries of second series public stone and Vicinity, Pawtuxet, Narragansett Bay workshops, discussing possible solutions. and Pawcatuck planning areas. The maps cover topics of: Regional Citizen Advisory Committee meeting minutes. Preliminary Proposed Environmental and Eco- nomic Water and Related Land Use Actions - Document Summaries AREAL EXTENSIVE Tabloid with draft recommendations. Available Preliminary Proposed Environmental and Eco- in large quantities. nomic Water and Related Land Use A c tions - SITE SPECIFIC AND TOWN WIDE General Information Publications Water and Land for People in Southeastern New England; pamphlet, 197 1. Producing Agency: NERBC. M-27 0 I 221111@ 8P 27 2Ul6a4r 6Fl"2L WHERE YOU CAN FIND THE FULL REPORTS PUBLIC MEETINGS The d- "c"' "hi'h bock Sale. Prbli, Library TAUNTON PLANNING AREA cutinuncrcst o,'I,ap,i, Road. Follow in, Sure., Free Public Library MON 19: Eli-beth Pals School Inipelo Road f- 2.4 mile, and 0 - right on Forest St. (The second right SENE gim, Th,, fail Regional R,I,.,t ..it S it. Lib-u,s M8",Mass f tr C,tt.gc ('rest ReAs-rat 1, '-priate Planning A... Report - located,, Suit,, Free Public Library ... to tI th hall of all 215 SENF communiti- Tarot- Public L;6,.,, Vol:a' 2' "' -, I 01 I'll Ito I", "" Ro-rd St) Bentley is about /2 Check with eit he, the mayor, town manager. or Tishri 'y, Vineyard Haven Public Library 1.@cln do- F-t St. .. the left. 'for. board fcle,lmen ad tin, planning beard, and T.pslield Town Librar, F'Iio' 0=-ts.S" mile - T.."" and take fit,, - ... at Wakefield. L-his B,abo Memorial Lib. so, lu'@ligb@0=ral illi'm, u'd rigt'llim"Isskail' r@, 1,.,,k for N!,'.'RBC, I It 'port and N@jlp,l, Public Lib,,U ;'-dailell left EN @ I'_ Tirk teps up to mp.s F-mr-momil Impact turtera-ut no all 10 Aalth- Public Libra- 'titg in cafeteria a,it to,, right a, walk-yP-sed to Planning Arno Report. eam be I ... it I. -h of We lAndsay Hall, Room 30 (top floor). '@@o,dcy Free Libiar, SOUTH SHORE PLA@NING AREA t TUE sAMAY 21: @-cll [figh School Iltlib W fleet Public Libre, iNor- 'I, M P IAestum Public Libra- R BLACKSTONE PLANNING AREA SA 4NSITTI I.di, D.r"' UP F .1 , ,, to Arlin ton H, blame Library W-por Free Public Librarv F III Esit 31 111-o- THURSDAY, MAY 29i Graft,. S-ior High 'g" W,)bu,n'P,bli, Lib-v S,h..I JFK Auditocitina. A.bur, @r Public Lib ... y Norwell) To in onto Rbs. 53 North @ Pik. -st,bo. St-gis Library I,% ... r1pFree Public Library F,Noc, 53 to traffic hght@ co.""tic, Foli-ing the Nlas#,tatch..'atec 1-ly I"'d ,"Library andnright mt. Bin, 123 East tulk"Milbo"y Esu.turn right,(,,, B-katom, C NNECTICUT a 111, 2 F Public Library lur ightont,S,uthSt1ffi-st-dn to lito 122. Follow His. 122S for 3 Boston Publi Lib 4=h Stonington Wheeler Library righO Follow South St ashort mile, I Rte. 140 j,uns it far a few mill- r- dis oc' ed G'aftoc S ticir High right side of BJonathan Bourne Public Library "and turn right down -ford To,aLib ... y RHODEISLAND d,,,..y (no figh, for ,!,.A Pat In Bit122. within 100 vs,d, f- @h G i." T. ans. c BPu Bristol Rogers Free Library H 1' 12 and 140 split M-ti.g will Ill ycr Public Library i nl,.c,c and rn right for Bblic Library Hr,rillv If,, Jesse M Samth Memorial acditn,,a an I' h, JFK Auditorium 0B S citron Public Library Ch-lost-r Circ- Mills Public Ljb-y CAPF COD AND ISLANDS PLANNING LOW ER BLA( K TONEPLANNING AREA Brookline Public Library C.-Iry Anthony Fire Library AREA MONDAY, JUNE 2: Rfacledslatid Departure., Cambridge Ptiblic Librarv Cranston, Willit4zli. Hall Fine Lib,ar WEDNESDAY. MAY 21: Cape ad C. of 11 -Ith A.Ifit-inon Pm,i ence, Rhode Island C tuo PabJ I, Libmr., Cumberland, Arno d Mills Commit cityI C coming ban, the North on RL,: rt'iik@ E-t Providence, Wea- Memorial Lib Mostly (,fleg, Science Building Letter Hall F',,t 23 (Stateofli-,@ andaght :pr Publi: Library A Brn,bl,. Mie- llaea P,bli, Library, "9 Broad- lUpkinton Ashawm, Free Library Follow Rtc 6 to F'.it 6Let, to fire .to Ch-le, St. Bond left not. Asl, bu -, Pro Sen m' adw.y J.-t- Philomenian Library 132N After . few h..dr,,l yard, I-r rIIl't'ctSt th is blood yI'll '"ll Meminal Library Asswis-ii D Middletown F... 1@brruy I lit to (npe Cod Community ( ollege. hal e back 1. Douglas New Shoreham Island Free Librarv Bgar right on mc-wa@ street. 'the Uharl- St. wbm-, y1m .it right onto 6Zrron rfield Public Lit- third D Newpon P,blic Library ,im- build g or on, Or., St. Take sec-d nd, off lit,, S1 tcll D-loury F,- Libim, Mirth Kingston Fr- Library It-lding6Zo oil let'.. 11) 11-i, S, 0', -Iment of fealth F: III- Public Libr- North Pro,idence Union Fro, Library rou,d far end of building o' 1-11" "o 4b., o@ 'i"t ?.,g, o"Id"It ", in, Famouth, "oods H.Is public Librm-, [fall A. I'll , Meeting is I. A-Iiiirium 1. .ba,cn Pawtucket Free Ldibarv BUZZARDS BAY PLANNING AREA ba, - Co Fgh, Boyd- Lib-, cm, ming from the South or Pub rk Lon-, M ,,, 131,k(),m, rnkli. P-ide- Public Library THURSDAY, 1AY - _Sfullc .1- so mccta ,St. I,Iit D.,i, St is Gloute,ster Sawyer Free Lib ... y Stit-te. North Scituate Public Library, "..a right. Dpl @i L-Ith 'Inthro,ti. UnOts'si'y , GpBuilding,, B.iblin doo,1,eff fton Paoli, Library Smithfield, E. Smithfield Public Library North Dartmouth. Mass. g no TT BAY PLANNING AREA o, or. Join Curtis fro, Library On Roo . 195 Wk, Fee... C a,, E@it NARRAGANSE Br-k@ Free Libra, South Kingston F- Library 1#181 or I'UESDA Y JU 'E3Portsmouth Middle , am Iiingham Pbl,, Library Ti,erton. Easc, Public Lib ... y onto F..-, C.rnc, d (kerto S,,losof Auditorium, P I _outh R.I. @ich Public Library Warwick Pubic Library lighl, Go -.ight h.rt I mile to Fro. Ht, 24 S-th join lite, 114S to igh ', Cross itter ... tim, oil go Ll-ills F,,c P= Library Westerly P 8Zu, Library 't'aighl about Ismi ectIcOld Westport Portsmouth. At fourth traffic fight o P.bliLib - Tfi, SENE Sandy's draft retmineendation, will Ed Turn right tidl 11 far about I (including blinking lights) on lite 114, M .. he. c, Public Library he widely cir,,I,ted for ... is, mile SMU is on left. Take first hill turn left -to Union St Take first right It ii@nd em-d"I by M-hfic as ,I ,to Jerson ].one d Ventores Memorial Library the public and federal ..it a, offici ng Can, Ci,de and Parking let I I. on PAWTUXET PLANNING AREA Vent- Meniounil Libra- 90day period eadin the fir @,t of August right M t liddleto-mg), Public Libror, 975. Complete @.pisg, of th,"R,gional ep"' Room 117 irig is in Group I Buildings, WEDNVSDAYJUNE 4:W.-i,k City Hall, old, w lorps't Statc_lf Ch-b-, Apfomo,,g R.I. i:is Pi,'L hoary ill, the E-i-mercid at IPSWICH- NORTH SHORE PLANNING Cmuci!m U,k M i ton P III, Library b 10 Planning Area Reports can be found in AREA Pont, 95 to @ E,it 10 East (not JoLl toy li- a,, Fo@'In,' I I I E Nantucket Athen 'um th, locations listed. Anyone TUESDAY, MAY 27: Ease. AR,icult ... I ad . it .It N B@clf.", Fine Publ, Lib,.,, or-ested in commenting should prepare 'a T-funi"d bratitints John Bory Hall, Mid to' .)"@ut @ anih, and CiH. Nbu,y Town nbrs- statement to, any of the eleven hearing, listed dlan. M .s. red b-, building) I, ,, the lcft'l@a,k -'o- Library u hehind City Hall or on street M 'ting N to, I or -d it to the New Engle d Ri- Ila, Ins Fellow Hic I and get off at -it far Rte I ( until Chambers. e..nd floor b A, deb-cogh, Iflebards Moment.) I'll, Commission by August 1, 1975, addresseu as 62 West to MuldletonFollow Route 62 o, In Richards Lib f.llt- West 114 mile and took on right for PAWCATUCK PLANNING AREA North Rc@d nigFli- NI-m-cal Libra- J.hu Berry Hall, Meeting I, m second THt RSDAY. JUNE 5: U.i-raity of Rh.dis ,in f1c. 1_,.,c Orleans, ' - Ahr-y Robert K-i,aky, Study Or ... to, hall. 1.1.i@d, Ch.f- ",,I.] Sli,n,. Cirate@ Ran. 271, Plymouth Public Library No' England Ill- litairt, Commission BOSTON METROPOL(TAN PLANNING King Can. RA uincy Thomas Ctiore Public Libr 408 Atlantic Acence AREA Follow Hw138 near UHI campov, turn I Tla... -I, North Ron Follow North Road Rehoboth, Blending Free Pub in Library Bo chmsett, 02210 WEDNESDAY, MAY 28: Bentley C.Mg, or to Ud Lindsay Hall. W.1rhoun, Mass. til ignRTurn left at that w "Ia(gn to Parking for F,ilo Rt 128 to E,it 47 East and no hen look I. hal- C.nt- INIM111111111111, 3 6668 00003 0090