HomeMy Public PortalAboutDraft Phase 1 Coastal Resource Management Plan 4/22/19
Town of Brewster
Coastal Resource Management Plan
Phase 1 Report
DRAFT for Public Comment
Brewster Coastal Committee
Ridley & Associates, Inc.
2019
April 22, 2019
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Table of Contents
Executive Summary ...................................................................................................................................... 3
Part I: Overview of the Coastal Resource Management Plan ................................................................... 5
Introduction ........................................................................................................................................ 5
Adaptive Management ....................................................................................................................... 7
Overview of Resources, Facilities and Land Uses in the Planning Area ........................................... 7
Plan Goals ......................................................................................................................................... 8
Planning Process ............................................................................................................................... 8
Organization of the Phase 1 CRMP ................................................................................................... 9
Part II. Coastal Resource Management Issues and Recommendations ................................................ 10
1. Increase the Resilience of Public Beaches and Landings .................................................................. 10
Overview .......................................................................................................................................... 10
Management strategies to increase the resilience of public beaches and landings ........................ 14
1. Provide ongoing monitoring of the coastal system on a regional basis ................................... 14
2. Manage and maintain public access points to increase resilience .......................................... 14
3. Proactively address flooding of brewster’s beaches and landings .......................................... 16
Recommendations to increase the resilience of public beaches and landings: ............................... 17
2. Preserve Ecosystem Services Provided by Healthy Coastal Wetlands ............................................. 21
Overview .......................................................................................................................................... 21
Management Issues to preserve ecosystem services provided by coastal wetlands ...................... 23
1. Preserve natural sediment transport processes in balance with erosion management .......... 23
2. Maintain the elevation of salt marshes and tidal flats .............................................................. 24
Recommendations to preserve ecosystem services provided by healthy coastal wetlands ............ 26
3. Provide Access for Water Dependent Activities .................................................................................. 29
Overview .......................................................................................................................................... 29
Management Issues to provide access for water dependent activities ............................................ 30
1. Provide opportunities for commercial aquaculture .................................................................. 30
2. Provide opportunities for commercial shellfish harvesting ....................................................... 31
3. Enhance propagation and other activities to support recreational shellfishing ........................ 33
4. Manage competing uses at Town landings and mooring Areas .............................................. 34
Recommendations to provide access for water dependent activities .............................................. 36
4. Preserve Peak-Season Access to Public Beaches and Landings ...................................................... 38
Overview .......................................................................................................................................... 38
Management Issues to preserve peak season access to public beaches and landings .................. 39
1. Augment peak seasonal parking demand/capacity at beaches and landings ......................... 39
Bike and Pedestrian Access Improvements ................................................................................ 41
Beach Shuttle Pilot Project .......................................................................................................... 42
2. Enhance access for populations with limited mobility .............................................................. 43
Recommendations to preserve peak season access to public beaches and landings .................... 43
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5. Protect Infrastructure, Visual Access and Sense of Place Threatened by Changing Conditions .. 46
Overview .......................................................................................................................................... 46
Management issues to protect infrastructure, visual access and sense of place threatened by
changing conditions ......................................................................................................................... 47
1. Minimize and mitigate development impacts in coastal areas ................................................. 47
2. Identify opportunities to preserve visual access ...................................................................... 48
3. Protect vulnerable low roads, groundwater, and underground infrastructure .......................... 48
Recommendations to protect infrastructure, visual access and sense of place .............................. 50
Part III. Implementation Issues .................................................................................................................. 52
Operational Management Structure .......................................................................................................... 52
Part IV. Maps ............................................................................................................................................... 53
Sources ........................................................................................................................................................ 54
Acknowledgements .................................................................................................................................... 55
Terms and Abbreviations ........................................................................................................................... 56
Appendices .................................................................................................................................................. 57
A. Complementary Planning Efforts ................................................................................................. 57
B. Workshop Information ................................................................................................................. 58
C. Town Actions to Manage Coastal Resources and Minimize Erosion Impacts ............................ 59
Figures and Tables
Figure 1. Erosion and deposition of sediment within the Dennis-Brewster-Orleans littoral cell 11
Table 1. Guiding Principles for Coastal Resource Management 6
Table 2. Summary of Sea Level Rise Impacts on Town Access Points 13
Table 3. Brewster’s Coastal Wetland Resources 22
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Executive Summary
Purpose of the Coastal Resource Management Plan
Brewster’s bayside coastal resources are an integral part of the Town’s history, economy and quality of life.
Erosion and flooding caused by increased storm intensity, storm surge and rising sea level threaten the
long-term sustainability of Brewster’s beaches and landings, and associated public access ways and
parking areas. Proactive strategies and measures are needed to ensure the sustainability, resilience and
enjoyment of Brewster’s coastal resources for generations to come.
The Brewster Coastal Resource Management Plan Phase 1 Report (CRMP) is intended to provide vision
and policy direction for the future management of Brewster’s coastal resources. In so doing, the plan will
assist the Town in meeting the diverse access needs of the community and adapting to coastal change. .
The CRMP builds on earlier planning efforts, including the Brewster Vision Plan and Coastal Adaptation
Strategy, and provides a framework for coordinating other ongoing and future planning efforts and capital
projects that involve Brewster’s coastal resources. The plan is designed to: (1) enhance public access to
the Bay shore, (2) protect and maintain the natural beauty of the Bay shore, (3) make use of best available
science and management practices, (4) protect the whole coastal system, (5) be adaptable to change, and
(6) reflect broad- based community consensus.
The CRMP has been developed under the auspices of the Brewster Coastal Committee. In developing the
plan the Coastal Committee gathered information from regional experts and sources, and hosted five public
workshops to gather community views on coastal issues and potential strategies and actions.
Priority Coastal Resource Management Issues and Recommendations
The plan identifies five key coastal resource management issues, and provides core strategies for
addressing those challenges.
1. Increase the resilience of public landings and beaches using the following strategies:
• Provide ongoing monitoring of the dynamic coastal system on a regional basis
• Proactively address flooding at public beaches and landings
• Manage and maintain public access points, where possible, in ways that increase resilience to
storm damage
Priority recommendations include: participate in the Storm Tide Pathways Project directed by Barnstable
County and Center for Coastal Studies; undertake studies to monitor coastal dynamics; develop an Inner
Cape Cod Bay ACEC Management Plan with adjacent towns; evaluate resilient shoreline management
practices; evaluate regulatory changes to address the impacts of coastal change on private properties; and
create a storm resiliency tool kit for maintenance of town landings and beaches.
2. Preserve the ecosystem services provided by healthy coastal wetland resources using the
following strategies:
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• Preserve natural sediment transport processes in balance with erosion management
• Maintain the elevation of salt marshes and tidal flats
Priority recommendations include: evaluate changes to local regulations to enhance wetlands protections;
update the Wetlands Conservancy and Flood Plain Overlay District bylaws; promote public education about
the beneficial eco-system services provided by healthy wetlands; and identify strategies to allow migration
and/or elevation of salt marshes and tidal flats threatened by sea level rise.
3. Provide access for water dependent activities using the following strategies
• Provide opportunities for commercial aquaculture
• Provide opportunities for commercial and recreational shellfishing
• Manage competing uses and activities at Town landings
Priority recommendations include: update the Town’s regulations for commercial shellfishing and
commercial aquaculture; continue the Razor Clam pilot project; enhance propagation activities to support
recreational shellfishing.
4. Preserve peak-season access to public beaches and landings using the following strategies
• Augment peak seasonal parking demand/capacity at beaches and landings
• Enhance access for populations with limited mobility
Priority recommendations include: implement a beach shuttle demonstration project during the summer of
2020; implement measures to improve safe bike and pedestrian access; and identify ways to enhance
access to beaches, landings and coastal views for individuals with limited mobility.
5. Protect vulnerable infrastructure, visual access, and sense of place threatened by changing
conditions using the following strategies
• Minimize and mitigate impacts of development in coastal areas
• Protect low lying and vulnerable infrastructure
• Identify opportunities to preserving visual access
Priority recommendations include: Develop a multi-hazard mitigation plan; evaluate potential bylaws to limit
the size, height and lot coverage of newly constructed or reconstructed residential dwellings in the coastal
resource planning area; evaluate the potential benefit of revisions to the Flood Plain Overlay District and
Wetlands Conservancy District bylaws to further limit development in velocity zones; develop a stormwater
management bylaw; and evaluate Board of Health regulations concerning depth of groundwater.
Implementation
The Coastal Committee will be responsible for coordinating implementation activities under the CRMP, in
close coordination with citizens, Town Administration, Town staff, and applicable boards and committees.
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Part I: Overview of the Coastal Resource Management Plan
Fish weirs once dotted Cape Cod Bay; they were emptied at low tide by horse drawn cart.
Photo and caption courtesy of the Brewster Historical Society
Introduction
Brewster’s Cape Cod Bay shoreline and tidal flats are among the Town’s most cherished and well-used
resources. These coastal resources are an integral part of Brewster’s history and the Town’s attractiveness
as a place to live and visit. Yet erosion and inundation caused by increased storm intensity, storm surge
and rising sea level threaten the long-term sustainability of Brewster’s beaches and landings, and
associated public access ways and parking areas. Proactive strategies and measures are needed to
ensure the resilience and enjoyment of Brewster’s coastal resources for generations to come. The
significance of these resources to the community is reflected in the Town of Brewster Vision Plan (2018),
which establishes as a key goal the preservation, protection and expansion of public access to Brewster’s
coastal resources in the face of dynamic conditions.
The Vision Plan builds on other actions undertaken by the community to protect its coastal resources. The
Select Board charged the Brewster Coastal Committee with developing a management plan that considers
these complementary efforts and provides a unifying vision and direction for the future management of
Brewster’s coastal resources.
According to the Committee’s charge, the management plan is intended to:
(1) Assess the coastal processes, natural resources, existing uses and management practices on
Brewster’s Cape Cod Bay shore, including critical areas of the bay shore, those that support
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important human uses or habitat, and those that are vulnerable to the effects of erosion or upland
development;
(2) Identify a range of alternatives to address future management of the coastal resources of
Brewster’s bay shore; including public access to the bay, alternatives to onsite parking lots; and
measures to address rising sea levels and increases in storm intensity, such as retreat and re-
location; and
(3) Recommend on-going, immediate (1-3 year), short-term (4-6 year) and long-term (6+ years)
actions; and ways of securing funding, including changes to current means of generating revenue
or new sources of revenue for coastal management and protection.
Planning for the resilience of Brewster’s coastal resources and addressing the community’s demand for
access to the shoreline is proceeding step-by-step.
As a first step, in 2016 the Coastal Committee met as part of the Brewster Coastal Advisory Group, “to
develop and publicly present a set of strategies and mechanisms to address key community vulnerabilities,
issues and priorities and to identify the community’s preferred adaptation strategies.” The resulting Coastal
Adaptation Strategy (CAS) developed by the Brewster Coastal Advisory Group and written by the Horsley
Witten Group assessed impacts to town landings and beaches resulting from sea level rise and storm
surge, and provided guiding principles for assessing future management actions. The CAS1 also includes
three planning scenarios for sea level rise and storm surge. In addition to an assessment of impacts, the
CAS also articulates a series of guiding principles to be used in the assessing future decisions regarding
the management of Brewster’s shoreline (Table 1).
Table 1. Guiding Principles for Coastal Resource Management
Access: Maintain and expand the opportunities for all to access Brewster's public beaches year-round. Meet peak season
access needs by exploring opportunities at all public access points and through alternative means, including off-site parking,
improved biking and pedestrian access, and investigation of shuttle options. Also consider those with limited mobility and
users of wheelchairs, families, commercial and recreational shellfishers, and emergency access, and the safety needs of
providing and balancing this access for all.
Natural Beauty: Protect and maintain the natural beauty, non-commercial, peaceful, quiet, spacious, and "small feel" of
Brewster's coast, beaches, and coastal neighborhoods, and safeguard their long-term significance for town residents and
visitors.
Science-based, Innovative and Realistic: Seek long-term solutions based on the best available science that are
innovative, realistic, and achievable, that work along with nature and build climate resiliency today and into the future, and
that are both environmentally and fiscally sustainable.
Holistic: Protect the whole coastal system, including beaches, dunes, wildlife habitat, salt marshes, and other ecosystem
services. Seek actions appropriate to coastal projections and community needs that build on and enhance the coast as well
as the ecosystem as a whole.
Adaptive: Recognize that the changing nature of coastal resources requires flexibility and adaptive planning, with ongoing
monitoring of changing conditions and community needs, to best respond to new technologies, opportunities, and scientific
uncertainties.
Consensus-based: Provide for public input and build community consensus through all phases of the planning and
implementation of the Coastal Adaptation Strategy.
Source: Coastal Adaptation Strategy
1 The Full Coastal Adaptation Strategy is available at http://records.brewster-ma.gov/weblink/0/doc/75572/Page1.aspx
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The Coastal Adaptation Strategy (CAS) provides the foundation for development of the Brewster Coastal
Resource Management Plan (CRMP). The CRMP is intended to provide policy direction and serve as a
guide for future management and decision-making concerning Brewster’s coastal resources. The CRMP
provides a framework for expanding and implementing the preferred coastal resiliency strategies identified
in the CAS. In so doing, the CRMP will assist the Town in meeting the diverse access needs of the
community and adapting to coastal change, sea level rise, storm surge and shoreline erosion. In meeting
this charge, the CRMP will be coordinated with other related town planning efforts that involve the
protection of coastal resources. These planning efforts are briefly described in Appendix A.
Adaptive Management
Due to the dynamic nature of the coastal system and the forces shaping it, management actions must be
flexible and adaptable to the dynamic nature of the system, changes in community needs, and innovations
in science and technology. The CAS included “adaptive management” as a guiding principle in the
assessment of future coastal management options. Adaptive management of natural systems is a
rigorously structured decision-making process. In the context of Brewster’s CRMP, a more conceptual
approach to adaptive management is proposed, encompassing the following tenets:
1. Thorough assessment of current (baseline conditions) using the best available science;
2. Modeled predictions of probable outcomes due to changing conditions, based on best available
science;
3. Evaluation of management actions in terms of effectiveness in achieving the community’s social
and ecological goals in light of modeled anticipated system changes;
4. Data collection before, during and following the implementation of management actions, to
compare actual outcomes to predicted changes;
5. Adjustment of management actions as necessary to improve effectiveness in achieving the
community’s goals.
In recognition of the adaptive management approach, the CRMP is envisioned to be a multi-phase effort.
This Phase 1 report of the CRMP is intended to identify and describe the priority management challenges
to be addressed, recommend management actions to address those management challenges, and suggest
implementation steps necessary to pursue recommended management actions. It is anticipated that further
research and analysis of coastal resources trends and conditions would be undertaken in subsequent
phases to implement and update the CRMP.
Overview of Resources, Facilities and Land Uses in the Planning Area
The coastal resources addressed in the CRMP include Brewster’s Cape Cod Bay shore, extending from the
bay-facing edge of the uplands to the lowest low tide of the intertidal flats. To fully assess management
challenges associated with beach access and potential flooding impacts to vulnerable infrastructure, the
plan also considers impacts to upland properties and roadways.
Part of the Select Board’s charge to the Committee is to “[a]ssess the coastal processes, natural resources,
existing uses and management practices on Brewster’s Cape Cod Bay shore, including critical areas of the
bay shore, those that support important human uses or habitat, and those that are vulnerable to the effects
of erosion or upland development.” Accordingly, the Committee worked with the Cape Cod Commission to
develop a series of figures to help characterize and visualize the location and extent of critical natural
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resources, water dependent activities and infrastructure, and the built environment in the planning area.
These figures are found in Appendix D and are referenced throughout the Phase 1 report.
Natural Resources
• Map 1 Wetland resources
• Map 2 Anadromous fish and shellfish resources
• Map 3 Habitat
Water Dependent Uses and Activities
• Map 4 Public beaches and landings and mooring areas
• Map 5 Recreational and commercial shellfishing and aquaculture
• Map 6 Shoreline structures
Built Environment
• Map 7 Land uses
• Map 8 Zoning
• Map 9 Flood hazards and vulnerable infrastructure
Plan Goals
The Brewster Vision Plan establishes the importance of sustaining public access to the Town’s coastal
resources in light of increased erosion due to sea level rise and storm surge. The CAS provides a thorough
assessment of potential impacts to public and private coastal resources resulting from sea level rise and
storm surge based on three planning scenarios, and identifies management challenges that need to be
addressed.
The CRMP presents an opportunity to fulfill the community’s vision by setting forth an action plan that
effectively responds to the management challenges identified in the CAS and refined by the Coastal
Committee. The management challenges helped to define the goals for the CRMP:
1. Increase the resilience of public landings and beaches
2. Preserve the ecosystem services provided by healthy coastal wetland resources
3. Provide access for water dependent activities
4. Preserve peak-season access to public beaches and landings
5. Protect vulnerable infrastructure, visual access, and sense of place threatened by changing
conditions
Planning Process
The Phase 1 report was developed by the Coastal Committee and Ridley & Associates, Inc., with technical
support from the Director of Natural Resources and input from other Town officials and Town committees.
The process of developing the plan began with a series of five issue-focused community workshops to
garner community input. The workshops focused on coastal processes shaping the shoreline, wetland
protection, access for water dependent activities, seasonal beach access, and surrounding land uses and
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infrastructure. Topical discussion papers were prepared and made available to the public in advance of
each session. Each paper discussed current conditions and future trends, and explored a range of potential
management strategies and actions. Proposed strategies and actions could encompass physical
improvements, policies and regulations, management practices, technical studies/analyses, or
communications measures. Each paper was presented in a community workshop to engage stakeholders
in discussing management issues and trends, and evaluating potential strategies and action items. More
information about the workshops is provided in Appendix C.
Following the workshops, a draft Phase 1 CRMP was developed and presented to the Select Board and
made available for public comment. The Planning Board, Open Space Committee, Conservation
Committee and Board of Health received a copy of the draft with a request for comment. The Coastal
Committee reviewed all comments received and prepared a final Phase 1 report.
Organization of the Phase 1 CRMP
Part I provides an introduction to the background, purpose and scope of the plan.
Part II examines the five coastal resources management issues addressed in the plan:
1. Increasing the resilience of landings and beaches
2. Preserving ecosystem services provided by healthy coastal wetlands
3. Providing access for water dependent activities
4. Preserving peak-season access to public beaches
5. Protecting infrastructure, visual access and sense of place threatened by changing conditions
Each section in Part II provides an overview of the resource management issues, identifies planning
objectives, and presents recommended actions to meet objectives. Recommended actions are presented
at the end of each section in a matrix, prioritized by time frame into near-term (year 1-3), intermediate term
(year 4-6) and long-term (year 6+) actions. Parties involved and an initial estimate of resource needs are
also indicated.
Part III of this report addresses the implementation structure needed to undertake the actions
recommended by the plan and track progress.
Maps, sources and other supporting materials are included at the end of the report.
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Part II. Coastal Resource Management Issues and Recommendations
1. Increase the Resilience of Public Beaches and Landings
Accretion (gain) of sand on the flats adjacent to Crosby Landing
Overview
The Massachusetts Coastal Erosion Commission Final Report (2015) summarizes the challenges facing
coastal communities seeking to preserve crucial resources in the midst of natural and human-induced
pressures:
The coast is a very dynamic environment, and coastal shorelines—especially beaches, dunes, and
banks—change constantly in response to wind, waves, tides, and other factors such as seasonal
variation, seal level rise, and human alterations to the shoreline system. The movement of
sediment along the coast and the loss and gain of shoreline through erosion and accretion are
continuous and interrelated processes. In Massachusetts, eroding coastal landforms and marine
deposits are the primary sources of sand that created and continue to feed our beaches and
dunes. While erosion is necessary and natural, it also causes damage to coastal property and
related infrastructure and can have adverse effects on beaches and other habitat.
Brewster’s seven miles of north-facing shoreline on Cape Cod Bay includes ten public landings and access
points with limited onsite public parking, including Wing Island, which is accessed over a public right of way
on property owned by the Cape Cod Museum of Natural History, with informal parking at Drummer Boy
Park (Map 4). The entire shoreline is within FEMA VE flood zone (Map 9), subject to inundation by the one
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percent annual chance flood event (i.e., 100-year storm2). Brewster’s famous tidal flats extend seaward
approximately two miles at low tide, encompassing some 12,000 acres, of which approximately 4,000 acres
exposed at low tide constitute the flats that most residents and visitors enjoy.
Figure 1 above shows the pattern of erosion and deposition of sediment within the Dennis-Brewster-Orleans littoral cell. The net
direction of sediment movement in the littoral cell is from Dennis (a sediment source) to Brewster (a sediment sink). Source:
Borrelli
2 Scientists use statistics and observe how frequently different sizes of floods occurred, and the average number of years between them, to determine the
probability that a flood of any given size will be equaled or exceeded. The "100-year flood" is an estimate of the long-term average recurrence interval, which
does not mean that we really have 100 years between each flood of greater or equal magnitude” Source: https://pubs.usgs.gov/fs/FS-229-96/
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Brewster’s shoreline is part of the larger Cape Cod Bay coastal system that extends from Provincetown to
Sandwich and the Cape Cod Canal. Like Brewster, several areas along the larger Cape Cod Bay system
are experiencing erosion from daily tidal action and periodic coastal storm surge. Paine’s Creek and
Mant’s Landing are among the areas hardest hit by erosion in Brewster, while Herring Cove in
Provincetown, Chapin Beach in Dennis, and Town Neck Beach in Sandwich are among the other areas
along Cape Cod Bay experiencing dramatic erosion in recent years.
Within this larger system, Brewster is part of a littoral cell that extends from Dennis to the west, to Orleans
to the east. A littoral cell consists of a sediment source from which sand is eroded, and a sediment sink,
where sand is deposited. Sediment moves or is transported by wind, tides, waves and currents within the
littoral cell. While the movement of sediment is dynamic and often multi-directional, there is often a
prevailing direction of sediment movement in a littoral cell. In Brewster’s littoral cell, sediment moves
predominantly west to east (Dennis to Orleans) due to prevailing northwesterly wind and waves (Figure 1).
A Century Scale Sediment Budget of the Brewster Coast (Borrelli, 2015) was developed to estimate the
direction, volume and net effect of this “river of sediment” (i.e., sand) moving along Brewster’s shoreline.
The assessment found that “Brewster, at its westerly boundary, receives sediment eroded from the coast of
the adjoining Town of Dennis. Eastward moving sediment maintains a fairly constant rate of between
25,000 and 30,000 cubic meters per year throughout the western half of the Town’s coastline, and then
decreases to some 10,000 cubic meters per year at the Town’ s eastern boundary. This reduction in
transport rate indicates that some 15,000 to 20,000 cubic meters of sediment per year are added to eastern
section of the active Brewster coast. However, all available data indicate that the deposition occurs offshore
of the Brewster shoreline.” (Borrelli, 2015) Through the process of longshore sediment transport, a large
amount of sediment is being deposited annually offshore at the eastern end of the Town near Crosby
Landing.
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Despite the accumulation of sediment offshore in the vicinity of Crosby Landing, the study also concludes
that, overall, erosion is outpacing accumulation of sediment (accretion) along Brewster’s shoreline. This
conclusion corresponds with historical data documented in the CAS (Horsley Witten, 2016). Based on
historical data, the average long-term rate of erosion along Brewster’s shoreline is 0.6 ft/year, while
accumulation (accretion) is occurring at a rate of 0.2 ft/year. As shown on Figure 1, erosion and accretion
are highly variable at different points along the shore:
• Highest rates of erosion at Mant’s Landing and Paine’s Creek;
• High to medium rate of erosion at Breakwater Beach and Ellis Landing and the shoreline west of
Spruce Hill;
• Little or no net change at Saint’s Landing, Linnell Landing, Point of Rocks, Breakwater Landing;
• Medium accretion (building up of sand) at Crosby Landing.
The CAS evaluated how increases in sea level rise and storm surge could alter historic patterns of erosion,
accretion and inundation along Brewster’s shoreline. Based on an assessment of best available
projections of sea level rise, and the associated storm surge potential, the CAS selected three scenarios of
combined sea level rise and storm surge. The scenarios were used to model potential future impacts to
public access points along Brewster’s shoreline:
• Low scenario - MHW + 2 feet which can represent either a particularly high tide in 2016, or a more
average tide with a storm surge or some sea level rise,
• Mid scenario - MHW + 4 feet which can represent an average tide with four feet of sea level rise, or
two feet of sea level rise with a two-foot storm surge,
• High scenario - MHW + 8 feet which can represent an average tide with a combination of four feet
of sea level rise, and four feet of storm surge,
Current mean high water (MHW) provided a benchmark or baseline measurement of coastal flooding
against which scenarios could be compared. In addition to the baseline and low, mid and high scenarios
described above, MHW + 10 feet was modeled to reflect potential hurricane conditions.
To assess potential impacts under each scenario, current and elevated MHW levels (from the three
scenarios) were superimposed on high-resolution (LiDAR) aerial imagery. The maps were then used to
evaluate the nature of changes to each respective public access point. The analysis of impacts is described
in Table 2 below.
Table 2. Summary of Sea Level Rise Impacts on Town Access Points*
Low Scenario
MHW+2ft (surge or SLR)
Mid Scenario
MHW+4ft (surge or SLR)
High Scenario
MHW+8ft (4 ft surge + 4 ft SLR)
Paine’s Creek • Beach/marsh partially floods
• No impact to access
• No impact to parking
• Beach/marsh floods
• Access to beach floods
• 50% impact to parking
• Resource fully floods
• Access floods
• 100% impact to parking
Mant’s Landing • Reduced beach, flooded
marsh
• No impact to access
• No impact to parking
• Reduced beach, flooded marsh
• Flood impacts parking access
• 50% impact to parking
• No beach or marsh
• Flood prevents parking
access
• 100% impact to parking
Saint’s Landing • Reduced beach area
• No impact to access
• No impact to parking
• Reduced beach area
• No impact to access
• No impact to parking
• Beach floods entirely
• No impact to access
• No impact to parking
Breakwater • Reduced beach area • Reduced beach area • Reduced beach area
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Table 2. Summary of Sea Level Rise Impacts on Town Access Points*
Landing • No impact to access
• No impact to parking
• Flood impedes access to pkg
• No impact to pkg; but no access
• Flood impedes access to pkg
• No impact to pkg; but no
access
Breakwater
Beach
• Reduced beach area
• No impact to access
• No impact to parking
• Reduced beach area
• No impact to access
• No impact to parking
• Beach floods entirely
• No impact to access
• 100% impact to parking
Point of Rocks • Reduced beach area
• No impact to access
• No impact to parking
• Beach floods entirely
• No impact to access
• No impact to parking
• Beach floods entirely
• Access to beach floods
• No impact to parking
Ellis Landing • Reduced beach area
• No impact to access
• No impact to parking
• Beach floods entirely
• No impact to access
• No impact to parking
• Beach floods entirely
• Access to beach floods
• 15% impact to parking
Linnell Landing • Reduced beach area
• No impact to access
• No impact to parking
• Beach floods almost entirely
• No impact to access
• No impact to parking
• Beach floods entirely
• Access to beach floods
• 60% impact to parking
Crosby Landing • Reduced beach, wetland flood
• No impact to access’
• No impact to parking
• Reduced beach, wetland floods
• Access to parking floods
• 50% impact to parking
• Entire resource underwater
• Access to parking floods
• 100% impact to parking
Source: Coastal Adaptation Strategy *Access to Wing Island and Spruce Hill was not evaluated
The historically dynamic nature of sediment movement along Brewster’s shoreline has resulted in areas of
intense erosion and other areas of modest accretion. The potential for these trends to intensify due to
increasing storm surge and sea level rise, has contributed to the following management issues.
Management strategies to increase the resilience of public beaches and landings
1. Provide ongoing monitoring of the coastal system on a regional basis
As noted above, Brewster’s coastal resources are part of a larger and constantly changing Cape Cod Bay
shoreline system. Ongoing study of Brewster’s coastal resources in the context of this broader system is
necessary to build understanding of the coastal processes and potential impacts of sea level rise shaping
these resources. As noted above, an adaptive management approach is proposed to assess management
alternatives and their effectiveness. This will require on-going data collection and assessment of physical
conditions—including tidal dynamics, sediment movement, and extent of erosion and accretion—using best
available science. Due to the regional nature of the system, data collection and analysis can be conducted
in coordination with neighboring communities that manage adjacent resources to ensure a more holistic
understanding of resource trends and help to offset costs of monitoring and assessments.
2. Manage and maintain public access points to increase resilience
The Town has been proactive in undertaking measures to mitigate the erosion impacts on the Town’s
coastal resources. However, as the climate change effects intensify as predicted, the frequency and
severity of coastal erosion is likely to increase. New approaches to assess, plan for, implement, fund and
monitor erosion management and mitigation measures will be needed.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
15
Brewster Bayside tidal flats
In estimating storm surge levels into the future, the Town looked at the historic record of five significant
storms measured at Boston Harbor, the closest NOAA gauge with a sufficient historic record. The storm
surge levels varied from a “low” of 3.69 feet in the Valentine’s Day nor’easter in 1940 to 4.88 feet during the
“Perfect Storm” of October 1991. The storm surge estimate for the January 2, 2018 storm was 4.82 feet.
The 1991 and 2018 storm surges are the equivalent of two feet of sea level rise and at least 2 feet of storm
surge; slightly less than the mid-impact scenario modeled by the CAS.
Appendix B presents some of the measures Brewster has undertaken to increase the resilience of town-
owned coastal resources. While these measures have helped to mitigate the effects of erosion, the
severity of coastal storms in the past five years has nevertheless resulted in dune wash-over, flooding and
significant beach erosion. In some areas up to 20 feet of dune or coastal bank has been lost in one event.
Erosion and coastal flooding from storms and surges may intensify in frequency and magnitude as sea
level rises, placing shoreline access points at greater risk of erosion.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
16
Flooding at Paine’s Creek during a January 2018 storm.
Shoreline structures and certain land use conditions can alter the natural flow of sediment transport and
potentially exacerbate the effects of coastal erosion. Structures such as groins and sea walls are effective
at trapping updrift sediment, but tend to starve downdrift beaches and force the downdrift beach to retreat
landward. As stated in the Massachusetts Coastal Erosion Commission’s Final Report (2015), “[u]nder
conditions of reduced sediment supply, the ability of coastal landforms to provide protection from storm
damage and flooding is diminished, increasing the vulnerability of infrastructure and development.” The
natural ecosystem − beaches, dunes, barrier beaches, salt marshes and estuaries − are also threatened
and will slowly disappear as the sand sources that supply and sustain them are eliminated.”
Similarly, stormwater run-off and loss of wetlands vegetation can lead to overland run-off, which is a
significant contributor to erosion.
When contemplating management actions, it is important to consider the broader forces behind sediment
movement, erosion and accretion − both on and offshore − within the system.
3. Proactively address flooding of brewster’s beaches and landings
Under the potential scenarios of sea level rise and storm surge outlined above, beach and marsh
resources, parking areas and access ways may be partially or fully flooded at some Brewster beaches and
landings.
The CAS assesses the impact that alternate potential scenarios of sea level rise and storm surge would
have on Brewster’s eleven shoreline public access points. The likely effects on public landings and
beaches under these scenarios are summarized in Table 2 and depicted on figures found in the CAS.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
17
Under the low scenario, beaches and marshes are flooded and reduced in size. These impacts are added
to under the mid and high scenarios, where in addition to flooding and loss of resource areas, some access
roads and parking are also flooded.
Recommendations to increase the resilience of public beaches and landings:
The following recommendations are proposed to address the management issues identified above. The
parties primarily responsible for implementing the action, the targeted timeframe, and likely funding source
(if applicable) are identified.
Recommendations Responsible Parties Priority Funding
Management Issue: Provide Ongoing Monitoring of the Coastal System on a Regional Basis
1. Periodically assess coastal resources conditions for
comparison with baseline conditions.
1.A Monitor and assess physical processes to support short-
term management decisions and long-term planning. These
measures could include:
• Every five years (next in 2021) update projections of sea
level rise and storm surge and the modeled impacts of
these forces on public beaches and landings,
infrastructure, and coastal resources;
• Update tidal benchmarks; track and record highest
annual high tide as proxy for effects of sea level rise;
• Evaluate the potential benefit, cost and candidate
locations for installing one or more tide gauge(s) to
provide localized data on trends in tidal dynamics;
• Evaluate the potential usefulness of establishing a
volunteer-based program to monitor changes in beach
profiles.
Coastal Committee,
Dept. Natural
Resources
Plan
Yr 1-3
Implement
Yr 4-6
Staff time
$30,000 (est.)
1.B Use best available tools to understand the potential
impact of storm surge on public and private property,
sensitive infrastructure and natural resources, and to develop
strategies and plans to avoid, minimize or mitigate adverse
impacts, including tools made available through the Cape
Cod Commission’s Resilient Cape Cod project, Municipal
Vulnerability Preparedness program, and the storm tide
pathways assessment project being undertaken by the
Barnstable County Extension Service and Center for Coastal
Studies (see 2B below).
Dept. Natural
Resources, Town
Planner, Planning
Board, Conservation
Agent, Conservation
Commission, Coastal
Committee, Town
Administrator
Implement
Yr 1-3
Seek MVP
Action Grant;
Staff time
2. Assess coastal resources on a regional scale
2.A The 2015 Century Scale Sediment Budget should be
updated in tandem with the sea level rise (next in 2021) to
assess trends in sediment movement within the littoral cell
that encompasses Brewster’s shoreline. This effort should be
evaluated and potentially undertaken in cooperation with
Coastal Committee,
Dept. Natural
Resources
Plan Yr
1-3
Implement
Yr 4-6
$40,000 (est.)
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
18
Recommendations Responsible Parties Priority Funding
Dennis, Orleans and Eastham. The assessment should
include recommendations for monitoring protocols and
potential management actions necessary to increase
resiliency of Brewster’s shoreline and ensure that tidal flats
keep pace with sea level rise.
2.B Participate with the Barnstable County Extension and
Center for Coastal Studies in developing a Storm Tide
Pathway for Brewster. The Storm Tide Pathways project will
encompass the entire Cape Cod Bay shoreline, and may
provide a basis for additional coordinated efforts among
towns sharing the same littoral cell.
Dept. Natural
Resources, Town
Planner, Planning
Board, Conservation
Agent Agent,
Conservation
Commission, Coastal
Committee, Town
Admininistrator
Yr 1-3 Staff time
2.C Consider development of a regional framework for
coastal resilience:
• Develop a management plan for the Inner Cape Cod Bay
Area of Critical Environmental Concern (ACEC), in
concert with the other towns sharing the ACEC. Such a
plan could encompass studies of sea level rise and
sediment budget, regional sediment management, and
other ACEC resource issues.
• Consider establishing a regional coastal resilience
planning group among towns in the same littoral cell
(Dennis, Orleans, Eastham) to identify/study issues of
shared concern cost effectively. Regional coordination
could increase funding opportunities. This could be done
in concert with the existing Barnstable County Coastal
Resources Committee, or the Cape Cod Commission’s
Resilient Cape Cod, Cape Cod Bay Work Group
Dept. Natural
Resources, Coastal
Committee, Town
Admininistrator
Evaluate Yr
1-3
Implement
Yr 4-6
$15,000 (est.)
consultant
cost to
assess
feasibility of
frameworks
$50,000 (est.)
for studies,
plan
development;
Staff time
Management Issue: Proactively Address Flooding of Brewster’s Beaches and Landings
3. Adopt long-term coastal management resiliency
strategies
3.A Evaluate resilient shoreline management practices (those
that mimic natural coastal processes) and identify where on
Brewster’s shoreline they might be applied:
• Preserve coastal landforms and vegetation that provide
buffers to erosion caused by storm surge. Salt marsh
and fronting coastal dunes have been shown to be
effective in mitigation erosion along Brewster’s Cape
Cod Bay shoreline (APCC, 2016).
• Beach and dune nourishment practices for public and
private beaches: Mant’s, Paine’s, Breakwater Beach;
• Dune protection (vegetation, fencing) and reconstruction:
Dept. Natural
Resources, Town
Planner, Planning
Board, Conservation
Agent, Conservation
Commission, Coastal
Committee, Town
Admininistrator
Plan Yr 1-3
Implement
Yr 4-6
$45,000 (est.)
for
engineering
Investments
to be included
in 5 year
capital plan
Staff time
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
19
Recommendations Responsible Parties Priority Funding
Mant’s, Breakwater Beach, Point of Rocks;
• Create a living shoreline3 demonstration project: oyster
reef at Mant’s Landing;
• Managed retreat similar to the relocation of the Paine’s
Creek parking lot: locations to be determined.
3.B Evaluate changes to the existing groin field, including
potential removal/attrition of groins or other structures on the
shoreline that impede coastal processes or hasten erosion.
Evaluate whether existing groins could impede sediment
transport necessary to sustain the tidal flats under different
sea level rise scenarios.
Dept. Natural
Resources, Coastal
Committee,
Conservation Agent
Yr 6+ $25,000 (est.)
for consultant
evaluation
3.C Enhance stormwater management to minimize or
eliminate erosion caused by overland run-off:
• Implement the stormwater management improvements
identified in Brewster’s Integrated Water Resource
Management Plan and the work being undertaken on
MS4 General Permit compliance;
• Prioritize stormwater improvements in any locations
where infrastructure could reduce or eliminate erosion
caused by run-off;
• Provide funding for ongoing maintenance of existing or
proposed improvements, possibly through the creation of
a stormwater utility;
• Design and adopt a stormwater management bylaw to
enhance stormwater management on public and private
property; and ensure that issues related to coastal
erosion, use of green infrastructure and use of
stormwater best management practices (BMPs) are
incorporated.
Dept. Natural
Resources, Dept.
Public Works
Dept. Natural
Resources, Dept.
Public Works
Dept. Natural
Resources, Dept.
Public Works
Town Planner,
Planning Board,
Coastal Committee, D
Dept. of Natural
Resources
Yr 1-3
Yr 1-3
Yr 4-6
Yr 1-3
Cost to be
included in
five-year
capital plan or
road bond
3.D Evaluate policy and regulatory changes to promote
coastal resiliency:
• Evaluate the potential for implementing a flood plain
bylaw to, among other things, “restrict or prohibit
development and uses on Land Subject to Coastal Storm
Flowage (i.e., 100-year coastal floodplain) and its buffer
zones in order to minimize potential loss of life,
destruction of property, and environmental damage
inevitably resulting from inappropriate development on
land known to be subject to storms, flooding, erosion,
relative sea level rise and other coastal zone
hazards,”(Cape Cod Commission model bylaw). The
Cape Cod Commission model bylaw and efforts
implemented in other towns should be evaluated to
Conservation Agent,
Dept. Natural
Resources,
Conservation
Commission, Coastal
Committee
Yr 1-3
$20,000 (est.)
consultant
support for
bylaw
development
and
permitting
guidance;
Staff time
3 A living shoreline is a protected, stabilized coastal edge made of natural materials such as plants, sand, or rock. Unlike a concrete seawall or other hard
structure, which impede the growth of plants and animals, living shorelines grow over time. Natural infrastructure solutions like living shorelines provide wildlife
habitat, as well as natural resilience to communities near the waterfront. Living shorelines are sometimes referred to as nature-based, green, or soft shorelines.
They are an innovative and cost-effective technique for coastal management. (Source: https://www.fisheries.noaa.gov/insight/understanding-living-shorelines)
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
20
Recommendations Responsible Parties Priority Funding
determine policies applicable to Brewster.
• Develop permitting guidance for erosion control activities
on private properties, and work with the Conservation
Commission to apply the guidance in the review of
Notices of Intent and issuance of Orders of Condition.
3.E Ensure consistency with other planning efforts:
• Incorporate the potential for coastal resource impacts in
the MVP plan;
• Complete a FEMA eligible multi-hazard mitigation plan;
• Ensure that MVP and multi-hazard planning is informed
by the CRMP, and that measures promoted in these
plans are considered in future phases of the CRMP.
Dept. Natural
Resources, Town
Planner, Planning
Board, Conservation
Agent, Conservation
Commission, Coastal
Committee, Town
Administrator
Yr 1-3 Staff time
Management Issue: Maintain and Manage Public Access Points to Increase Resilience
4. Promote Resilient Management and Maintenance of
Town-owned Access Points
4.A Create a coastal resiliency tool kit consisting of best
practices for sustainable design, management and
maintenance of town-owned landings and beaches. The tool
kit should make use of the work being undertaken through
the Cape Commission’s Resilient Cape Cod project, and
other proven techniques, including:
• Managed retreat of parking areas and structures
• Use of articulated mats to provide stability under
ramps and parking areas; and
• Use of beach grass planting, beach nourishment,
and dune nourishment/rebuilding/stabilization,
among other initiatives.
Dept. Natural
Resources, Coastal
Committee
Develop
Yr 1-3
Implement
as needed
Staff time
4.B Develop a sustainable funding source, possibly through
an environmental bond bill offset by short term rental tax
revenues or, potentially an increase in deeds tax revenues,
for resilient maintenance and management actions that
balance needs for beach access, public safety, natural
resource sustainability, and coastal resiliency; and that meet
local and state permitting requirements. These measures
include: Repair stairs, ramps, walkways (including measures
needed for improved handicapped accessibility). A proactive,
resilient maintenance program may lower long -erm costs by
reducing the potential need for emergency repairs.
Coastal Committee,
Town Administrator,
Dept. Natural
Resources, Select
Board, Finance
Committee
Yr 4-6 Staff time
4.C Conduct technical alternatives assessments for resilient
capital projects needed to address erosion pressure and
preserve access at highly threatened town-owned access
points. Mant’s Landing and Paine’s Creek are currently
experiencing significant erosion and should be prioritized for
evaluation and possible resilient capital projects.
Dept. Natural
Resources, Dept.
Public Works,
Conservation Agent,
Coastal Committee
Plan Yr 1-3
Implement
Yr 4-6
$15,000 for
engineering
(est.); Staff
time
TBD
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
21
2. Preserve Ecosystem Services Provided by Healthy Coastal Wetlands
Stony Brook Marsh, south
Overview
While walking on the flats or enjoying a day at the beach, we don’t often think about the natural processes
constantly shaping and sustaining these special places. Tidal flats, beaches, dunes and other shoreline
features each play a role in sustaining a healthy coastal system. The ongoing health and functioning of a
variety of coastal wetland resources along Brewster’s shoreline is essential to sustaining our enjoyment of
beaches and flats, and the extensive wildlife and other benefits these resources provide to the community.
The primary types of coastal landforms along Brewster’s shoreline include land under the ocean, salt
marshes, dunes, tidal flats, coastal banks, and coastal beaches. Even though these areas are not “wet” all
the time, they are considered wetland resources and are protected under local and state wetland protection
regulations. The variety and extent of coastal and inland wetlands is shown on Map 1. The descriptions and
significance of coastal wetland resources are summarized in Table 3.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
22
Table 3. Brewster’s Coastal Wetland Resources
Resource / Amount Definition Benefits
Land under the Ocean Land extending from the mean low water line
seaward to the boundary of Town jurisdiction
(three miles).
• Provides important habitat for fish and
shellfish
• Helps prevent storm damage and
provides flood control.
Coastal Dune
Approx. 70 acres
A natural hill, mound or ridge of sediment
landward of a coastal beach deposited by
wind action or storm overwash; also
sediment deposited by artificial means and
serving the purpose of storm damage
prevention or flood control.
• Prevents storm damage and provides
control flooding by supplying sand to
coastal beaches.
• Protects inland coastal areas from storm
damage and flooding by storm waves
and storm-elevated seas because the
dunes are higher than the coastal
beaches which they border.
• Sediment source as wind, waves and
currents move sediment from coastal
dunes to coastal beaches.
Coastal Bank
Approx. 5 acres
Seaward face or side of any elevated
landform, other than a coastal dune,that lies
at the landward edge of coastal beach, land
subject to tidal action, or other wetland.
• Serves as a major continuous source of
sediment for beaches, dunes, and
barrier beaches.
• Assumed to be significant to storm
damage prevention and flood control.
• Due to height and stability, coastal banks
may act as a buffer or natural wall
protecting upland areas from storm
damage and flooding.
Coastal Beach
Approx. 44 acres
Unconsolidated (loose) sediment subject to
wave, tidal and coastal storm action that
forms the gently sloping shore of a saltwater
body. Extends from mean low water line
landward to the dune line, coastal bankline or
the seaward edge of existing human-made
structures, when these structures replace
one of the above lines, whichever is closest
to the ocean.
• Prevents storm damage, controls
flooding and protects wildlife habitat.
• Dissipates wave energy because of
gentle slope, and granular, permeable
sandy sediment.
• Sediment source for dunes and offshore
subtidal areas.
• Vegetative debris found in the drift line of
coastal beaches is consumed by
invertebrates, which in turn are a food
source for resident and migratory
shorebirds.
Tidal Flat
Approx. 4,000 acres at
low tide
Nearly level part of a coastal beach which
usually extends from the mean low water line
landward to the more steeply sloping face of
the coastal beach or which may be
separated from the beach by land under the
ocean.
• Provide habitats for marine organisms
such as worms and mollusks (shellfish),
which in turn are food sources for fishes
and migratory and wintering birds.
• Sites where organic and inorganic
materials may become entrapped and
then returned to the photosynthetic zone
of the water column to support algae and
other primary producers of the marine
food web.
• Dissipates wave energy thereby
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
23
Table 3. Brewster’s Coastal Wetland Resources
Resource / Amount Definition Benefits
buffering beach from storm damage.
Salt Marsh
Approx. 363 acres
Extends landward up to the highest high tide
line (ie,, highest spring tide of the year), and
is characterized by plants that are well
adapted to or prefer living in saline soils,
such as salt meadow cord grass (Spartina
patens) and/or salt marsh cord grass
(Spartina alterniflora), spike grass (Distichlis
spicata), high-tide bush (Iva frutescens), and
black grass (Juncus gerardii). A salt marsh
may contain tidal creeks, ditches and pools.
• Salt marshes are significant to protection
of marine fisheries, wildlife habitat, and
shellfish.
• Salt marshes absorb wave energy and
floodwaters, which helps to prevent
storm damage and flooding during
coastal storms.
Source: Massachusetts Wetlands Protection Act Regulations (310 CMR 10.00) Source of wetland acreages: Cape Cod Commission
Management Issues to preserve ecosystem services provided by healthy coastal
wetlands
1. Preserve natural sediment transport processes in balance with erosion management
Coastal shorelines like Brewster’s are dynamic systems subject to the constant influences of tides, waves,
storm and tidal surges, currents and wind. Erosion occurs when these natural forces move coastal
sediments (predominantly sand), particularly from eroding coastal banks and dunes. Eroded sediments are
then transported by wind, waves and currents and are deposited on beaches, dunes, marshes or offshore
tidal flats. The receiving resource areas rely on a supply of sediment to maintain elevation. Without the
processes of sediment erosion, transport and deposition to counteract sea level rise and subsidence,
beaches, dunes, marshes, and tidal flats would eventually drown in place.
Allowing sand to move freely through the natural coastal processes of sediment erosion, transport and
deposition is essential to the long-term sustainability of beaches, tidal flats, dunes and salt marshes. In
addition to the natural beauty and commercial and recreational opportunities, these resources provide
protection from erosion and storm damage, filter pollutants that otherwise would reach coastal waters,
support wildlife habitat, and store large volumes of carbon that otherwise would contribute to climate
change. These natural benefits, called ecosystem services, are difficult and expensive to replicate if the
resource areas providing them are lost or degraded.
Erosion management measures on public and private property can interfere with natural coastal processes
and the beneficial movement of sediment. Hard shoreline structures such as revetments, bulkheads, groins
and gabions are designed to prevent the process of sediment erosion, transport and deposition. These
structures can starve adjacent and downdrift beaches, dunes and salt marshes of sediment they need to
maintain elevation. Even with regular beach nourishment, beaches and marshes that are adjacent to or
downdrift of hard structures can experience a net loss of sediment supply. As a result, beaches and
marshes are reduced in size or, in the extreme, can drown in place and disappear altogether.
Any effort to manage erosion on public and private property needs to be conducted in balance with the
need for a steady supply of sediments to maintain the elevation of salt marshes, beaches, dunes and tidal
flats.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
24
2. Maintain the elevation of salt marshes and tidal flats
Salt marshes are among the most productive ecosystems on the planet, rivaling rain forests in their
productivity. A salt marsh produces large amounts of organic matter. A significant portion of this material
enters coastal waters where it provides the basis for a large food web that supports many marine
organisms, including finfish and shellfish and many bird species. Salt marshes also provide a spawning and
nursery habitat for several important estuarine forage fish as well as important food, shelter, breeding
areas, and migratory and overwintering areas for many wildlife species. Salt marshes are protected by
Brewster’s beach and dune system, separating them from the bay. Wind-driven sand helps to maintain the
marsh system elevation.
Salt marsh plants and substrate remove pollutants from surrounding waters. The sediments absorb
chlorinated hydrocarbons and heavy metals such as lead, copper, and iron. The marsh also retains
nitrogen and phosphorous compounds, which in large amounts can lead to algal blooms in coastal waters.
The underlying peat also serves as a barrier between fresh ground water landward of the salt marsh and
the ocean, thus helping to maintain the level of such ground water.
A more recently acknowledged benefit of salt marshes is their ability to store carbon. Salt marsh plants
remove carbon dioxide from the atmosphere. Some of the carbon is stored for centuries as soil carbon.
Why do marshes store so much carbon? They grow upward every year at about the same rate as sea level
rise, roughly ¼ inch. The soil is composed of plant roots and trapped sediment, and so as they grow
upward, they build large carbon stores over many centuries, keeping CO2 out of the atmosphere. This
“ecosystem service” is referred to as “Blue Carbon.”4
Salt marshes are naturally extremely adaptable. As noted in the Coastal Adaptation Strategy, salt marshes
can contract or expand depending on the frequency and depth of flooding. The pattern of inundation in turn
dictates vegetation coverage and the overall marsh ecosystem.5 When rising sea level or increased erosive
forces outpace the ability of a salt marsh to increase in elevation, the marsh would naturally seek to migrate
landward. However, the presence of hardscape (e.g., buildings, roads, hard shoreline structures) can
reduce or eliminate opportunities for landward migration of salt marsh. A marsh that experiences loss of
elevation without the ability to migrate landward eventually will become permanently inundated, resulting in
a loss of salt marsh resource area and the related ecosystem services.
Salt marshes maintain their elevation in two ways. First, layers of peat build as underground roots die-off
and re-generate, creating new layers of biomass. Second, sediments carried by the tidal cycle are trapped
by grasses and add to the marsh substrate. These natural processes enable marshes to maintain their
elevation in the face of inundation due to rising sea level. At a certain point, inundation exceeds the ability
of a marsh to increase in elevation and the marsh seeks migrate landward. Inland migration of marshes can
be prohibited if inland areas are developed and are unavailable for marshes to migrate to.
4 Kroeger, Kevin D., USGS Woods Hole Coastal and Marine Science Center. Blue Carbon in the Herring River: Can We Reduce Greenhouse Gas Emissions
through Wetland Restoration? Paragraph excerpted from presentation to Friends of Herring River. March 29, 2018.
5 CAS, p 26
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
25
Marsh at Paine’s Creek
Strategies to maintain the elevation of marshes through measures such as thin layer deposition of
sediment, or by creating and preserving opportunities for the landward migration of marshes, are essential
to the preservation of this critical coastal resource.
Brewster’s shoreline resources are anchored by two large marsh systems: the Quivett Creek-Paine’s Creek
marsh system shared with Dennis, and the Namskaket Creek marsh system shared with Orleans. If all or
portions of these systems are lost, the ecological and other public benefits they provide also would be lost.
Man-made replication of these naturally occurring ecosystem services, if even possible, can be extremely
costly and difficult to achieve.
The elevation of Brewster’s marshes has kept pace with sea level rise. However it is not clear whether the
marshes will be able to keep pace if sea level rise accelerates, as is anticipated. There are opportunities for
active management of these resource areas in coordination with adjoining towns of Dennis and Orleans,
respectively.
Like the salt marshes, Brewster’s extensive tidal flats have largely kept pace with sea level rise from the
1930s to the present, and in some areas have been increasing in size. (Borrelli, 2016) The tidal flats
dissipate storm surge, providing a buffer for the beach and shore. However, a significant acceleration of
sea level rise is expected during the present century, and it is not clear if the tidal flats will remain exposed
at low tide under future sea level rise scenarios.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
26
Recommendations to preserve ecosystem services provided by healthy coastal
wetlands
The following recommendations are proposed to address the management issues identified above. The
parties primarily responsible for implementing the action, the targeted timeframe, and likely funding source
(if applicable) are identified.
Recommendations Responsible Parties Priority Funding
Management Issue: Preserve Natural Sediment Transport Processes in Balance with Erosion Management
1. Evaluate policy and regulatory changes to protect wetland
resources
1.A Work with the Conservation Commission to evaluate the
Town’s wetlands protection bylaw and regulations to
determine if any changes would provide enhanced protection
of coastal wetlands and natural coastal processes. Areas of
exploration could include, but not be limited to:
Conservation
Commission; Coastal
Committee
Yr 1-3
$25,000 (est.)
for bylaw
preparation;
staff time
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
27
Recommendations Responsible Parties Priority Funding
• Potential to incorporate the sediment budget into the
local wetlands by-law and regulations to regulate
protection of upland development differently in eroding
areas;
• For all new or renewed Orders of Condition for erosion
management, require adherence to best practices for
shoreline erosion management structures:
• Adopt permitting guidelines based on Woods Hole
Oceanographic Institution Sea Grant publication
Spectrum of Erosion Control Methods.6 The recent
publication of Guidelines for Erosion Management in
Pleasant Bay7 provides a guide;
• Require maintenance and nourishment of erosion
management structures (in specific locations of need);
• Incorporate monitoring requirements for erosion control
measures to provide information to evaluate their
functions and impacts.
1.B Review the Town’s policy for allowing access through
town landings to perform shoreline stabilization work on
private property. Ensure that applicants carry adequate
insurance coverage in case of damage to resources caused
by heavy equipment or fuel spills.
Select Board; Town
Administrator;
Dept. Natural
Resources
Yr 1-3
Staff time
1.C Work with the Planning Board to revise, update or extend
the Flood Plain Overlay District and Wetlands Conservancy
bylaws, based on an evaluation of the bylaw’s effectiveness
in meeting its original purpose, and based on a survey of
similar measures employed in other communities ore
recommended by the Cape Cod Commission.
Town Planner;
Planning Board; Dept.
Natural Resources;
Coastal Committee
Yr 1-3
Staff time
2. Increase public awareness of the importance of
healthy coastal wetlands and natural coastal processes,
and the need to protect these resource areas.
2.A Education materials should be aimed at shoreline
property owners, among others, to discuss the importance of
natural sediment transport processes, and best practices for
vegetation management, erosion management, and buffer
protection, etc. This effort should be coordinated with the
development of permitting guidance.
Coastal Committee;
Dept. Natural
Resources;
Conservation Agent,
Conservation
Commission
Yr 1-3 MVP Action
Grant; educ
resources
may be
available from
MCZM, and
Barstable
County
Cooperative
Extension
6 https://web.whoi.edu/seagrant/wp-content/uploads/sites/24/2015/07/Spectrum-of-erosion-control-FINAL.pdf
7 http://pleasantbay.org/wp-content/uploads/Ridley_EditedErosionReport_10.30.18_PRINT.pdf
April 22, 2019
Brewster Coastal Resource Management Plan
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Recommendations Responsible Parties Priority Funding
Management Issue: Maintain the Elevation of Salt Marshes and Tidal Flats
3. Promote opportunities for salt marsh migration
3.A Use the state of the art wetland modeling to assess
patterns of salt marsh retreat in Brewster. Model results could
then be used to develop salt marsh management plans to
counteract loss of marsh due to subsidence or inundation.
Management actions could include:
• Channel improvements to restore or enhance hydrology;
• Evaluate the potential for a pilot project for thin layer
deposition of material on any subsided areas of salt
marsh plane, in coordination with MassDEP permitting
guidance;
• Work with the Town’s Open Space Committee,
Community Preservation Committee and the Brewster
Conservation Trust to identify key parcels for
acquisition/conservation restriction and to develop a
funding strategy for acquisition/protection of these
properties; and develop a framework for tracking and
pursuing parcel opportunities;
• Identify and remove any remaining undersized culverts
that may be restricting tidal flow and causing degradation
of coastal wetlands. An example is the Crosby salt
marsh restoration project.
Dept. Natural
Resources,
Conservation Agent,
Conservation
Commission, Coastal
Committee
Open Space
Committee, Dept.
Natural Resources,
Brewster Conservation
Trust, Community
Preservation
Committee, Coastal
Committee, Town
Administrator
Plan yr 1-3
Modeling
Yr 6+
Yr 1-3
$40,000 for
modeling
Additional
funds for
channel work
or thin layer
deposition
Staff time
3.B Develop/update and implement resource management
plans to protect large areas of salt marsh. Land Use and
Management Plans for Quivett Creek/Paine’s Creek Marsh
and Namskaket Marsh should be developed in coordination
with Brewster Conservation Trust, MA Division of
Conservation and Recreation, and adjacent towns.
Open Space
Committee, Dept.
Natural Resources,
Brewster Conservation
Trust, Community
Preservation
Committee, Coastal
Committee, Town
Administrator
Yr 4-6
$20,000 (est.)
to update
management
plans; State
TA may be
available
April 22, 2019
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29
3. Provide Access for Water Dependent Activities
Brewster Oysters Photo courtesy of C Miller
Overview
Brewster has a rich history as a community in which many residents earned their livelihood from the sea by
weir fishing, shellfishing, salt works, running a packet ship, or other maritime trade. Today, beyond a small
number of aquaculture grants licensed by the Town, there are far fewer opportunities for commercial water
dependent activities. On the other hand, recreational water dependent activities, including beach going,
shellfishing and boating, have grown.
Brewster has abundant shellfish resources (Map 2). Recreational and commercial shellfishing, commercial
aquaculture, and recreational boating are important to Brewster’s quality of life and local economy. Areas
where these activities primarily take place are shown on Map 5. As described below, these activities also
present management challenges and opportunities to be addressed in the CRMP.
April 22, 2019
Brewster Coastal Resource Management Plan
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Management Issues to provide access for water dependent activities
1. Provide opportunities for commercial aquaculture
Commercial aquaculture is a growing industry in the region. As of 2016 there were 249 licensed shellfish
growers operating on Cape Cod cultivating 628.8 acres, primarily for oysters and quahogs.8
Interest in commercial aquaculture in Brewster is expanding as well, and this has implications for
management of Brewster’s coastal resources. The Town’s regulations governing commercial aquaculture
grants were last updated more than a decade ago. Current regulations are not consistent with neighboring
towns, nor are they consistent with recent changes in state regulations. Current regulations are vague in
some areas and do not address emerging issues such as the need for regulations to control diseases such
as vibrio. The MA Division of Marine Fisheries (DMF) works with the state Department of Public Health to
develop a Vibrio Control Plan. DMF regulates shellfish harvesters, while Public Health regulates the dealers
that buy from harvesters.
The Town is in the process of updating regulations governing commercial shellfish aquaculture to ensure
that aquaculture is allowed in a manner that protects fragile resources and avoid conflicts with other coastal
activities. Key management issues are:
• Grant Size/Number. There are currently 11 licensed shellfish grants in Brewster. Under current town
regulations, each grant is allowed to be a maximum of two acres. There is a waiting list of people
interested in obtaining a new grant license, and others have informally indicated interest.
• Location. To prevent stress on public access points during the summer, current regulations do not
allow grants to be permitted off of town-owned beaches and landings. However, some grants predate
that rule and six of the grants are located off of public access points. The current regulations allow
grants to be located in front of private property with the owner’s permission. While in the past this
permission to locate a grant in front of private property has not been difficult to obtain, growers are now
encountering more resistance.
• Access. As noted, six grants are currently accessed by foot via Town landings or beach areas, while
private access is contingent on obtaining owner’s permission. Mant’s, Linnell, Point of Rocks and Ellis
Landings currently provide access to grants. However, there is no oversight or regulation for this use of
public landings or protocols in the event of accidents, spilled fuel or other liability concerns.
To provide alternate access, the Town may begin discussion with the Town of Dennis regarding the
possibility of allowing access to grants via Crowes Pasture. The Town of Dennis allows grant holders
in that town to access grants by driving over the flats under the town’s Off Road Vehicle (ORV)
Management Plan. The Town of Brewster is interested in exploring whether the Crowes Pasture
access could be used by Brewster grant holders as well as at the west end of town.
• Economic impact. According to a 2015 report on the economic impact of the shellfish industry, “[t]he
output of the shellfish aquaculture industry in Massachusetts was valued at approximately $25.4 miliion
in 2013, which in turn generated approximately $45.5 million in the Massachusetts economy, or 1.79
times the activity. Shellfish farmers were responsible for approximately 769 direct jobs in 2013. They
8 MassDMF 2016 Annual Report
April 22, 2019
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31
also generated an additional 140 jobs through indirect and induced activity, resulting in a total of 909
jobs in Massachusetts. Shellfish farmers paid approximately $11.9 million in wages in 2013. Their
economic activity generated additional labor income of $8.2 million, for a total of approximately $20.1
million in labor income in Massachusetts.” (Augusto and Holmes, 2015) It was also noted that income
generated from this industry remains local, as the majority of product is sold locally. According to the
2017 Annual Report issued by the MA Division of Marine Fisheries, aquaculture sales in Brewster
totaled $258,472 in 2017. If the same multiplier is applied, this generated roughly $463,000 in the local
economy.
Oyster aquaculture, Brewster
2. Provide opportunities for commercial shellfish harvesting
There are currently 20 commercial shellfish licenses issued annually. Commercial harvesting is allowed
only in the east end of town. Commercially harvestable species under current regulations include quahogs,
and oysters grown in grants. As described below, the Town is undertaking a razor clam harvest pilot project
to test the viability of ongoing commercial harvesting of that species. The Town can open up harvests for
other species such as scallops, but they are not addressed in the current regulations.
As with aquaculture, the Town is in the process of updating regulations governing its commercial shellfish
regulations. MA Division of Marine Fisheries also regulates shellfish harvesters, while the MA Department
of Public Health regulates the dealers that buy from harvesters.
April 22, 2019
Brewster Coastal Resource Management Plan
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Razor Clams
Razor clams have not been a commercially harvested species in Brewster. At the request of local
commercial fishermen, the Town launched a Commercial Razor Clam Harvest Pilot Project in 2018 to
determine whether a regular commercial harvest can be sustained without undue stress on the resource
and, if so, how such the fishery should be managed. The initial pilot involved 11 licenses to Brewster
commercial harvesters. Harvesting began in April and concluded in September, and provided only a few
months of data. The Department of Natural Resources is proposing to extend the pilot for another season,
from April through December, to generate a full year of harvest data. Based on the data, decisions about
future licensing of this fishery will be determined. The following bullets describe the terms of the pilot project
and some issues to be evaluated during the pilot.
• Landing Location. The fishery will be based out of Linnell, Ellis and Crosby landings. This means that
all harvest will be landed at these locations, unless fishing via boat. If by boat, landings will be at either
Rock Harbor in Orleans, or at Sesuit Harbor in Dennis. Prior to landing, notice must be given to the
Shellfish Department to allow inspection at the point of landing.
• Competing Uses. The increased shellfishing activity is expected to result in additional parking demand
at the three landings. It is expected that up to 15 vehicles will be parking at the landings to harvest for a
period of 5 hours at a time, plus one town vehicle for staff to monitor landings. By comparison, Linnell
Landing has 24 parking spaces, plus two handicap spaces. However, it is important to note that razor
clam harvest will take place at extreme low tides. Therefore, the potential for harvesters competing with
other parking demand might not be significant if the tides do not coincide with periods of higher
demand for beach parking. Parking issues and competing uses will be monitored during the pilot
project.
• Habitat Considerations. Some concerns have been raised regarding the potential resource impacts
associated with salting and/or hydraulic methods of razor clam harvesting. Additional study is needed
to fully understand the potential effects of different harvesting methods. Similarly, commercial
harvesting of razor clams would reduce the population available to horseshoe crabs and other species
that utilize razor clams for food.
• Number of Days Fishing. The pilot project will operate seven days a week through December, with
ongoing monitoring by the Shellfish Department. The ongoing costs of monitoring will need to be
factored into annual budgets for the Shellfish Department.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
33
Brewster volunteers working with oyster cages
3. Enhance propagation and other activities to support recreational shellfishing
Recreational shellfishing is a quintessential summer activity on Cape Cod. Recreational licenses permit the
taking of regulated quantities of the following species: sea clams, soft-shell clams, mussels, quahogs,
razor clams, oysters, scallops, sea worms, sand eels, and American eels. Last year Brewster issued 539
resident recreational shellfishing permits, 174 weekly non-resident permits and seven seasonal non-
resident permits. Oyster harvest in the fall draws a number of permit holders. The oyster harvest was
particularly robust in 2018.
Recreational harvesting is allowed:
• During the months of July and August, all shellfish harvested in the Saints Landing stocked area
must be landed and checked out by the Shellfish Constable at Saints Landing.
• In July and August the Town only allows shellfishing on Thursdays and Sundays, and stock an
area off Saints Landing with quahogs. In the fall (Sundays in October/November) the Town stocks
an area for oyster harvest off Ellis Landing. These seasonal programs are extremely popular with
permit holding town residents and visitors. From June 1 through September 30, recreational fishing
area is closed east of Ellis Landing in the summer, and is being opened for limited commercial
harvesting of razor clams under the pilot program.
• The taking of shellfish from the rock piles seedbeds directly off of Ellis Landing and Ocean Edge is
prohibited throughout the year.
April 22, 2019
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• The immediate areas of Paine's Creek, Quivett Creek, Namskaket Creek are closed to the taking of
shellfish due to contamination.
The Town runs several shellfish propagation efforts to support recreational harvesting. These include a
floating upweller to raise shellfish seed (quahogs, oysters) to maturity in Sesuit Harbor in Dennis, which is
shared with the Town of Dennis. The Town raises oysters in cages and bags off Mant’s Landing,
Breakwater Landing and Ellis Landing. Quahog seed is distributed in the rock beds to supplement the
natural set. Recently, the Town acquired 600,000 juvenile oysters from the Town of Orleans’ Lonnie’s Pond
Demonstration project, and this seed will be distributed over time to augment the recreational fishery.
Spring propagation events include an eight-day littleneck season off Ellis Landing. This is repeated in late
September.
Oyster Sundays in October/November
4. Manage competing uses at Town landings and mooring Areas
Town landings are the core of the Town’s water dependent infrastructure and provide public access for a
variety of recreational and commercial activities along Brewster’s shoreline. Management issues
associated with town landings include:
• Emergency Vehicle Access. Maintaining access at town landings to allow emergency response is
a top priority. The Brewster Fire Department has an all terrain vehicle and an inflatable vessel that
can be launched from a beach or landing; and Fire Department vehicles can be used off of several
landings.
• On-going Nourishment and Maintenance. Town landings and beaches will continue to require
regular maintenance and nourishment to manage the effects of sea level rise and storm surge,
April 22, 2019
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35
address wear and tear generated by heavy public use, and provide improved access and amenities
for diverse user groups. Appendix B provides a summary of recent maintenance and management
actions at Brewster’s public beaches and landings.
• Access for Beach Nourishment. Certain Town landings are used by private contractors to bring
equipment and sand for beach nourishment projects and/or installation and repair of erosion
control structures or other building projects on private property. Mant’s and Breakwater landings
have been used for most of the private property projects, with Point of Rocks, Ellis and Linnell
landings used less frequently. This access is allowed by permit from the Select Board. To obtain a
permit, applicants must post a bond and meet other requirements. Recently, private projects using
Town landings for staging equipment have increased in frequency, size of equipment, and duration
of staging. The Town may need to revisit the policy of allowing use of Town landings for this
purpose if this level of intense use continues.
• Peak Season Parking. A limited amount of parking at Town landings and access points serves
multiple user groups during the busy summer peak season. If aquaculture activities are expanded
and/or other opportunities for commercial and recreational fishing arise, parking demand will need
to be addressed.
• Mooring Access. Vessel activity on Brewster’s north facing shoreline is naturally constrained by
the large tidal range that leaves many boats grounded for much of the tidal cycle. However, there
is steady demand for moorings in Cape Cod Bay. Brewster requires moorings for any vessel
greater than nine feet that is kept on the water, flats or shore for more than 14 days. Brewster
issues permits for 150 moorings each year along the coast, and each permit is assigned to a
designated mooring field. Moorings are not allowed directly in front of town landings or in Paine’s
Creek. Currently there is no wait list for mooring permits on the bayside (there are waiting lists for
Long Pond). It is not necessary to be a tax-payer to be eligible to obtain a mooring permit.
April 22, 2019
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Kayaks at Paine’s Creek
• Commercial Activity. Limited non-commercial activity is currently allowed on Town landings and
beaches. These non-commercial activities include yoga classes, and religious services. The only
licensed commercial use of the landings, other than for fisheries landings, is for a single ice cream
vendor to service all beaches during the summer. The Town should consider the positive and
negative impacts of allowing new or expanding commercial activities, such as paddle board rental
and lessons, kayak clubs and flyfishing lessons that may seek to use the landings and beaches in
the future.
• Storage of Kayaks and Dinghies. The Town operates a lottery program for the storage of kayaks
on town racks. Currently, roughly 100 kayak rack permits are issued each year at Paine’s and
Mant’s landings. Kayak racks may be added at Crosby and Linnell landings, but not without
encroaching on resource areas or parking. Dinghy racks are provided for mooring permit holders at
Crosby and Linnell Landings. No dinghy or kayak storage is allowed on public beaches.
Recommendations to provide access for water dependent activities
Recommendations Responsible Parties Priority Funding
Management Issue: Provide Opportunities for Commercial Aquaculture
1. Update the Town’s commercial aquaculture regulations. Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 1-3
Staff time
April 22, 2019
Brewster Coastal Resource Management Plan
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37
Recommendations Responsible Parties Priority Funding
2. Evaluate the possibility of designating an Aquaculture
Development Area. The designation would identify a number
of acres of tidal flats made available for private aquaculture
grants. Most likely locations would be the west end of town
near Crowe’s Pasture, or off Linnell Landing. Issues of
access to grants and conflicts with other fisheries and user
groups would need to be considered. Work with Town of
Dennis to explore alternative access via Crowe’s Pasture.
Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 1-3
Staff time
3. Undertake an assessment of economic benefits to the
community from expanded shellfishing and aquaculture
opportunities, with consideration to other competing uses of
resource areas.
Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 1-3
Staff time
Management Issue: Provide Opportunities for Commercial Shellfish Harvesting
5. Update the Town’s commercial shellfishing regulations. Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 1-3 Staff time
6. Review the performance of the razor clam pilot project and
evaluate the potential for a permanent razor clam fishery.
Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 1-3 Permanent
program
could require
additional
resources
Management Issue: Enhance Propagation and Other Activities in Support of Recreational Shellfishing
7. Continue/expand public shellfish propagation programs.
Evaluate future needs for an upweller, and whether these can
be met by the existing upweller, and/or by developing a
shared upweller with the Town of Dennis.
Dept. Natural
Resources, Town
Administrator, Select
Board
Ongoing
Staff time
Management Issue: Manage Competing Uses of Town Landings and Mooring Areas
8. Develop a capital plan to plan for and prioritize
expenditures for maintenance and improvements at town
landings.
Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 4-6 Staff time
9. Monitor demand for moorings and whether changes to
mooring regulations are needed.
Dept. Natural
Resources, Town
Administrator, Select
Board
Ongoing
Staff time
10. Evaluate the need for regulations or guidelines for
commercial activity at town landings.
Dept. Natural
Resources, Town
Administrator, Select
Board
Yr 1-3 Staff time
April 22, 2019
Brewster Coastal Resource Management Plan
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4. Preserve Peak-Season Access to Public Beaches and Landings
Summer beachgoers enjoy the Brewster shoreline
Overview
Brewster’s shoreline resource areas are its crown jewel. Consequently, the Town’s eleven access points
are heavily used by residents and visitors. Accessing the Town’s coastal resources are a key component of
quality of life and a significant contributor to the local economy. Repeated storm damage has eliminated
parking spaces at a number of Town landings. For example, the Paine’s Creek parking lot was abandoned
and replaced with parking spaces located further inland. However, parking spaces lost at Mant’s and Ellis
Landings cannot be replaced, as there is no upland area to accommodate retreat.
Providing access opportunities without necessarily increasing parking at the shoreline is a priority for the
Town and is reflected in the vision statement of the Brewster Coastal Adaptation Strategy (CAS):
The Town of Brewster will preserve and protect the community’s coastal resources and expand
access to its public beaches through public consensus, and in ways that preserve the natural
habitat and peaceful character of the coastal environment and coastal neighborhoods, respect the
overall coastal and land-based ecosystem, and adapt to long-term projections for coastal change.
Maintaining and expanding public access is also identified as a Town of Brewster Vision Plan priority.
April 22, 2019
Brewster Coastal Resource Management Plan
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In 2016, as part of the development of the CAS, the Town conducted a coastal beach access survey to
gain a better understanding of how resident and non-resident taxpayers and visitors use the Town’s
beaches and landings. Nearly three-quarters of the 2,048 survey respondents indicated that they go to the
beach at least once per week during the summer. The most popular beaches among those surveyed are
Crosby, Paine’s and Breakwater. The most popular activities among those responding include walking,
swimming, sunset watching, and sunbathing, with activities such as shellfishing, paddling, and picnicking
less frequently noted.
Most times of the year, it is not difficult to find a parking space at any of Brewster’s coastal access points.
However, during the peak summer season demand for parking increases. Beach parking permits are
required for access to town beaches from 9 am to 4 pm from June 15 through Labor Day. The permits are
issued in accordance with the Town’s Rules and Regulations for Resident Beach Parking Permits
(Residents and Real Estate Property Owners.)
As discussed below, high demand for beach parking at peak times could be exacerbated if more of the
current parking supply is compromised by erosion and storm damage. Erosion and coastal flooding from
storms and surges may intensify in frequency and magnitude as sea level rises, placing shoreline access
points at greater risk of erosion. The CAS notes that, “public parking areas do not provide the level of
access desired by Brewster residents and visitors. The Town will need to adapt and strategize to meet the
current and future needs and desires as continuing sea level rise, storm damage and erosion affect the
Town’s ability to maintain access.”
The CAS recommends further exploration of adaptation strategies to augment public access to Town
beaches:
• Provide access without increasing parking at the shoreline by:
o Expanding pedestrian and bike access;
o Considering shuttle service options, and
o Satellite parking within walking, biking and/or shuttling distance of a town landing
• Evaluate possible new access points and/or parking spaces; and
• Continue to provide access in parking areas and walkways for people with limited mobility.
Management Issues to preserve peak season access to public beaches and landings
1. Augment peak seasonal parking demand/capacity at beaches and landings
Brewster has eleven heavily-used public beach access points (Map 4). With the exception of Spruce Hill
and Wing Island, each access point experiences some degree of congestion during the summer. The most
heavily-used and congested among the access points are Paine’s Creek Beach, Crosby Landing, Mant’s
Landing and Breakwater Beach. According to the beach access survey, nearly three-quarters of those
surveyed drive to the beach, while 13% walk and 3% ride a bike.
April 22, 2019
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Parking lot at Crosby Landing in the summer of 2015 (source Google Earth)
During the busy summer months, there is a significant mismatch between the heavy demand for access
and the limited supply of parking spaces. There are approximately 400 parking spaces at the eleven access
points. By comparison, in 2017 the Town issued 6,412 seasonal passes to residents and 4,850 day, week
or seasonal passes to visitors. While not all stickers covered a full season or are used every day, the
difference between the number of parking spaces and the number of permits issued demonstrates the
potential for parking demand to greatly exceed supply on any summer day.
The demand for parking during the summer has a number of implications including:
• Residents or non-resident taxpayers may be unable to get a beach parking space when desired;
• Overcrowding may cause congestion on beach access roads, lead to illegal parking on town roads,
or create safety issues for pedestrians or cyclists;
April 22, 2019
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• Commercial and recreational shellfishermen and shellfish grant holders may not find parking when
needed to access the flats;
• Congestion and potential for Illegal parking may impede emergency response or interfere with
emergency access;
• Lack of parking may deter seasonal visitors, with a negative impact on local businesses.
The Town has evaluated different strategies to address peak parking demand. The Town has looked at
reconfiguring parking areas to create more parking spaces. Because this approach must factor in required
room for emergency access and handicap spaces, it did not yield a significant number of additional spaces.
The Town also has evaluated opportunities to acquire parcels near beaches and landings when they come
on to the market, for additional parking. This latter approach must be pursued in balance with any potential
impacts to natural resources or to neighborhood safety or rural character. A successful example of
expanded parking is the addition of approximately 120+ spaces on land located within walking distance to
Crosby Landing, owned by the Massachusetts Division of Conservation and Recreation (MassDCR).
Working in cooperation with MassDCR, the additional parking was developed outside the flood hazard area
and without adding congestion to the surrounding neighborhood.
Other means of improving beach access—such as bikeway enhancements, and a beach shuttle—are
discussed below.
Bike and Pedestrian Access Improvements
Enhancing bike and pedestrian access to beaches and landings is another significant way to reduce
demand for beach parking. A key recommendation of the CAS is to “[e]valuate and expand safe bike
routes to town landings, and develop additional walking trails and safe pedestrian access.” This
recommendation is consistent with goals set forth in Biking Brewster – A strategy to enhance biking in
Brewster (Brewster Bikeways Committee, 2015). Goals of Biking Brewster include expanding recreational
biking opportunities and access to key destinations, such as Town beaches. The report notes that Lower
Road provides cyclists and pedestrians with scenic access to Town beaches but that wetlands bordering
the road make the construction of bike lanes infeasible. Enhanced vegetation pruning could help make
these roads safer for bikes and pedestrians.
The proposed Cape Cod Rail Trail Extension across Route 6A through state property to Linnell Landing will
be a significant improvement in safe bike access to Brewster beaches. The project will create a multi-use,
bicycle and pedestrian, off-road, pathway connection between the Cape Cod Rail Trail / Nickerson State
Park and Cape Cod Bay and thereby help relieve parking pressures at Linnell Landing and Crosby
Landing. The project had been discussed conceptually for many years, was designed and permitted in
2016-18 and could be ready for use in 2019. The BCC and the Bikeways Committee sent a joint letter to
the Brewster Select Board, expressing support for this proposal, along with concern about the Route 6A
crossing. The joint letter also urged the Select Board to pursue funding for a bikeways tunnel under Route
6A.
April 22, 2019
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The proposed Cape Cod Rail Trail Extension will improve safe bike access to Brewster beaches
Other strategies for enhancing safe bike and pedestrian access to the shoreline include:
• Creating a Lower Road Beach/Landing Bike Route;
• Creating safe walking routes to beaches that avoid dangerous areas;
• Using informational materials, signage, pedestrian/biking beacons, and/or striping to mark bike
lanes and to direct pedestrians and cyclists (bike right, walk left), and let cyclists know they can
ride on sidewalks;
• Considering improvements to road surfaces to enhance safety;
• Pruning vegetation to make roads safer for bikes and pedestrians;
• Marking Route 6A sidewalks indicating bikers can share these with pedestrians;
• Identifying and marking safe parking areas for bikes and pedestrians.
Beach Shuttle Pilot Project
A key recommendation of the CAS is to “[e]valuate public and public/private opportunities for satellite
parking and shuttle access, including potential parking areas and proposed shuttle routes.” The CAS
strategy refers to satellite parking as “parking opportunities that may be in walking, biking or shuttling
distance of a town landing,…”
The Coastal Committee worked with the Cape Cod Commission to develop a beach shuttle pilot project.
The Commission developed a beach shuttle conceptual model that looked at alternate routes, satellite
parking locations, service type and schedule, shuttle type, service providers. Based on this assessment,
Preliminary Design Concepts
N
April 22, 2019
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the Committee recommended an initial pilot route. The route encompasses a four-mile loop traveling on
Route 6A, Paine’s Creek Road, and Lower Road, and could include the following stops:
• Satellite parking lot(s)
• Paine’s Creek
• Saint’s Landing
• Mant’s Landing
The route would be served in 30-minute intervals by a single shuttle vehicle. The Coastal Committee is
working with Town Administration to explore potential funding sources to implement the pilot project.
2. Enhance access for populations with limited mobility
The Town’s beach access points serve a wide variety of user groups with differing access needs and/or
limitations. This is particularly true for residents, non-residents and visitors who have limited mobility or
other handicap that affects their ability to enjoy beach access.
A key recommendation of the CAS is “to [b]roaden and improve access (including visual access) for
individuals with limited mobility.”
The Town has made progress in improving accessibility at several locations. These improvements to
handicap accessibility include a platform and path at Linnell Landing; an accessible platform at Mant’s
Landing; a roll out walkway at Breakwater Beach; a viewing area at top of stairs at Breakwater Landing); an
accessible roll out pathway installed at Paine’s Creek spring 2018; and a shed to store a beach wheelchair
at Paine’s Creek.
Currently there are 16 dedicated handicap parking spaces at town landings and beaches out of a total of
approximately 400 spaces. A shortage of peak season parking limits the potential for expanding the
number of dedicated handicap parking spaces.
The Coastal Committee proposes to work with the All Access Committee to explore new strategies for
improved access to beaches and beach views for all populations.
Recommendations to preserve peak season access to public beaches and landings
Recommendations Responsible Parties Priority Funding
Management Issue: Augment peak seasonal parking demand/capacity at beaches and landings
1. Continue to assess and monitor peak season beach
access demand.
1.A Consider the use of surveys administered with seasonal
parking permits to gather information on seasonal parking
demand at town landings and beaches.
Coastal Committee,
Recreation Dept.,
Police Dept., Select
Board, Town
Administrator
Yr 1-3
Staff time
2. Maintain or enhance peak season access to public
beaches and landings.
Dept. Natural
Resources
Ongoing
Staff time
April 22, 2019
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Recommendations Responsible Parties Priority Funding
2.A Where existing parking facilities face erosion danger,
assess opportunities for managed relocation or retreat (e.g.,
Paine’s Creek, Breakwater Beach) or other measures such
as use of articulated mats to protect existing parking spaces
2.B Develop strategies to promote the use of under utilized
public access locations, including Spruce Hill and Wing
Island.
Dept. Natural
Resources
Evaluate yr
1-3
Implement
Yr 4-6+
Staff time
2.C Assess opportunities for new or expanded public access
locations and/or parking, including through state- and town-
owned land, and future acquisitions in collaboration with
Town Open Space Committee. Special consideration should
be given to balancing access with impacts to natural
resources and surrounding neighborhoods.
Dept. Natural
Resources, Open
Space Committee,
Brewster Conservation
Trust
Ongoing
Staff time
3. Implement a Beach Shuttle. Develop and implement a
beach shuttle service pilot project. Based on performance,
the initial route/service should be continued, and evaluated,
expanded or altered.
Select Board, Town
Administrator, Coastal
Committee, Dept.
Natural Resources,
Dept. Public Works,
Police Dept.
Pilot project
Yr 1-3;
Pending
results,
Implement
Yr 4-6
TBD
4. Implement measures to improve safe bike and
pedestrian access.
4.A Bike and pedestrian access improvements consistent
with Comprehensive Brewster Bike Strategy should be
evaluated and implemented where feasible. These measures
include but are not limited to:
• Addition of sidewalks where they can be accommodated
• Employ signage to mark bike and pedestrian lanes,
• Continue parking restrictions on shore access roads
during summer
• Create a Lower Road bike trail to beaches
• Create safe walking routes to beaches
• Create and maintain walking trails and connections to
beaches and landings.
Coastal Committee,
Bike Committee,
Police Dept.
Ongoing
DPW budget,
grants for
signage and
education
materials;
Staff time
5. Complete the CCRT Extension through DCR property
to Linnell Landing.
State Complete
yr 1-3
State;
Staff time
Management Issue: Enhance Access For Populations With Limited Mobility
6. Enhance access for populations with limited mobility.
6.A Explore opportunities to enhance physical and visual
access for populations with special needs, working in
coordination with Brewster All Access Committee and Council
on Aging:
a. Continue improvements to enhance physical
Dept. Natural
Resources, Dept.
Public Works, All
Access Committee,
Coastal Committee
Ongoing Staff time
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
45
Recommendations Responsible Parties Priority Funding
access
b. Preserve or expand the number of dedicated
handicapped parking spaces
c. Identify measure to improve visual access in
concert with vegetation management
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
46
5. Protect Infrastructure, Visual Access and Sense of Place Threatened by
Changing Conditions
Overview
The high value Brewster residents place on the health of the Town’s coastal resources and on the
community’s rural character is reflected in this excerpt from the Town of Brewster Vision Plan:
We preserve our historical setting and seek to protect its contribution to our town’s character. We
work to preserve the rural, small town feel of Brewster created by low density development and
open space, which contributes to protecting water resources and providing scenic areas for
recreation and contemplation. In the context of coastal change, we protect our bayside coastline,
which defines our sense of place and provides special recreational and economic opportunities.
The built environment near the coastline, including residences, businesses and infrastructure, will
potentially be affected by increased flooding and erosion caused by sea level rise and storm surge.
Brewster’s entire coast is currently in the FEMA VE flood zone and most or all of its tidal marsh and creek
system are mapped as AE (Map 9). There are 1,138 land parcels within these zones. In the past five years,
extensive parts of coastal Brewster have been exposed to storm surge impacts, including dune washover,
flooding and significant erosion. In some areas, up to twenty feet of dune/coastal bank have been lost in a
single storm event.
Conversely, the built environment and the activities it supports also can have impacts on the health of
coastal resources, by encroaching on resources, causing erosion, and contributing nitrogen pollution.
The Town regulates land use and seeks to protect natural resources from impacts caused by develop
through local bylaws and regulations, including regulations administered by the Planning Board, Zoning
Board of Appeals, Conservation Commission and Board of Health.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
47
Brewster’s zoning bylaw includes a Floodplain Overlay District (§179-7) that governs development in
designated flood zones. The overlay is intended to, among other things, prevent damage to public and
private property, protect public safety and prevent health emergencies resulting from contamination caused
by storm damage to structures. The zoning bylaw also contains a Wetlands Conservancy District (§179-6)
to prevent development in areas with poor draining soils. However, in practice the bylaw is often
overlooked.
In addition to the flood plain overlay, the Town is undertaking forward looking plans to guard against flood
damage to public and private property and natural resources. Earlier this year, Brewster received a $20,000
grant from the state Municipal Vulnerability Preparedness (MVP) Program for coastal resiliency planning.
The grant will fund the development of a FEMA MVP plan, and will provide the basis for a full-scale multi-
hazard mitigation plan.
The Board of Health administers regulations (local and state Title 5) governing wastewater discharge,
primarily through onsite septic systems, to prevent excessive nitrogen or pathogens from reaching
groundwater or surface waters. In addition, the Brewster Integrated Water Resources Plan is looking at the
impacts of nutrient loading on the quality of groundwater and fresh and marine surface water, and
developing a program of management actions to be implemented over 40 years to protect groundwater,
ponds, Cape Cod Bay and Pleasant Bay from the effects of excess nutrients.
These regulatory and planning tools are currently available to help protect Brewster’s coastal resources
and the built environment that surrounds them. Modified or new regulatory tools could bolster efforts to
promote the Town’s vision of healthy coastal resources, rural character and quality of life.
Management issues to protect infrastructure, visual access and sense of place
threatened by hanging conditions
1. Minimize and mitigate development impacts in coastal areas
Like many communities on Cape Cod, Brewster’s near shore neighborhoods are relatively densely
developed.
Most of the land area surrounding Brewster’s coastline is zoned medium density residential (Maps 7 and 8).
Under current zoning, permitted uses include single-family dwellings and accessory dwellings, and
historical, cultural, museum or municipal activities, among other uses. Minimum lot size for new
development is 1.5 acres, height is limited to 30 feet and lot coverage is limited to 25%. Much of the
residential development is pre-existing non-conforming, which means that lots and buildings existed before
these zoning rules were put in place and may involve smaller lots or buildings that cover more than 25% of
the lot area, for example.
Expansion or redevelopment of existing dwellings is occurring in neighborhoods across Cape Cod, and
particularly in coastal neighborhoods. If homes are allowed to expand to a point where they are out of scale
with the surrounding neighborhood, this can significantly change community character, or result in loss of
public views. Expanded development can have other impacts on coastal resources. For example, greater
lot coverage and impervious surface area may increase runoff that causes erosion of coastal banks or
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
48
conveys pollutants into nearby wetlands or water bodies. Increased development may also lead to
increased nutrient load from septic systems and fertilizer use.
Increased hardening of the shoreline to protect homes built close to shore can impede the movement of
sand needed to feed dunes, beaches and marshes that are important buffers to storm surges. Many of the
original structures built along our beaches have been renovated, expanded, or torn down and rebuilt by
new owners (Map 6). The Brewster Conservation Commission is under pressure to allow hardening, beach
fencing and other erosion control measures to protect redeveloped coastal properties. These measures
protect the structures behind them for some period of time; however the beach and other natural resources
may be adversely impacted in the process.
2. Identify opportunities to preserve visual access
Views of coastal resource areas from roads and other public access points add significantly to the
community’s scenic beauty. Views of Paine’s Creek and Quivet Marsh from Route 6A are prime examples.
For people with limited mobility, views afford an important opportunity to enjoy the Town’s coastal
resources. The CAS points out the importance of maintaining views of the water from beach and landing
parking areas, to benefit people who are unable to walk down to shore. Natural and restored dunes may
impede visual access to the Bay; however these dunes function as a buffer to storm damage. In such
cases, any loss of visual access from the dune is mitigated by an increase in coastal resiliency without the
need for hardened structures. The coastal resiliency measures employed at Breakwater are one example.
Paine’s Creek, Mant’s, Saints, Little Breakwater and Ellis Landing provide visual access to the bay.
The protection of viewscapes also should include consideration of landward views from Cape Cod Bay and
the flats.
3. Protect vulnerable low roads, groundwater, and underground infrastructure
As noted above, all of Brewster’s bay shoreline is in the VE zone (Map 9) defined by FEMA as high hazard
area “…subject to high velocity water including waves; they are defined by the 1% annual chance (base)
flood limits (also known as the 100-year flood) and wave effects 3 feet or greater. The hazard zone is
mapped with base flood elevations (BFEs) that reflect the combined influence of stillwater flood elevations,
primary frontal dunes, and wave effects 3 feet or greater.” The study are also includes inland property and
roads within the AE zone. According to FEMA, “AE Zones, also within the 100-year flood limits, are defined
with BFEs that reflect the combined influence of stillwater flood elevations and wave effects less than 3
feet.”9
According to the CAS, “[a] combination of a storm surge with a rising sea level and/or a particularly high
tide may impact low-lying roads that provide access to the landings.” Areas particularly susceptible to flood
impacts include:
• Route 6A at the Dennis town line and east of the Cape Cod Museum of Natural History near Paine’s
Creek would experience flooding under a Mean High Water (MHW) + 4 ft scenario, with additional
9 Flood Hazard Zones, FEMA Coastal Flood Hazard Analysis and Mapping Guidelines, Focused Study Report, February 2005
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
49
flooding at the intersections of Paine’s Creek Road, Lower Road and Route 6A under a MHW + 8 ft
scenario. This would impact access to Wing Island, Paine’s Creek and Mant’s Landing;
• Lower Road around the intersection with Bloomer Path under a MHW + 8 ft scenario would block
access to Wing Island, Paine’s Creek and Mant’s Landing;
• Breakwater Road would flood at MHW + 4ft, and at MHW + 8 ft would impede access to Breakwater
Beach and Landing.
A winter storm resulted in severe flooding of Route 6A at the Dennis town line (2018)
In addition to preventing access to landings, flooding poses an access constraint for public safety and utility
repair vehicles. Stormwater infrastructure servicing these roads also is at risk of flooding.
As reported in the CAS, a recent study by the US Geological Survey (USGS) reports that six feet of sea
level rise could result in the groundwater table rising 0.3 to 5 feet in Brewster. Rising sea level also and an
elevated groundwater table could disrupt septic systems and underground water mains and utilities. Many
septic systems serving homes along Lower Road are already mounded (elevated) and could be negatively
impacted by a rising water table.
This image shows a depth of 4-5” between a leachfield and the groundwater table
(Image source: Horsley Witten Group)
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
50
Elevation of infrastructure is one alternate response to increased risk of flooding. As with any management
alternative there may be related issues. In the case of elevating roadways, related issues include
displacement or interruption of stormwater flow, coordination with driveway aprons, and loss of shoulder,
which can pose a danger for cars or bikes.
Recommendations to protect infrastructure, visual access and sense of place
Recommendations Responsible Parties Priority Funding
Management Issue: Minimize and Mitigate Impacts of Development in Coastal Areas; Protect vulnerable low
roads, groundwater, and underground infrastructure
1. Protect vulnerable low-lying infrastructure
1.A Elevate low-lying road segments and/or retrofit
stormwater management systems to mitigate flooding during
storm surge conditions. The following segments were
identified in the CAS and being of special concern:
• Route 6A at Dennis town line and east of the Cape Cod
Museum of Natural History near Paine’s Creek
• Lower Road at Bloomer Path intersection
• Breakwater Road various locations
Dept. Public Works,
Coastal Committee,
Water Quality Review
Committee, Dept.
Natural Resources,
Town Planner
Yr 4-6
following
storm
pathways
project
Capital
budget
1.B Work with the Board of Health to evaluate whether the
required separation to groundwater is sufficient, and whether
changes in regulation are needed to prevent groundwater
intrusion into wells and onsite wastewater treatment systems.
Coastal Committee,
Health Dept, Water
Quality Review
Committee, Dept.
Natural Resources,
Town Planner
Yr 1-3
Staff time
2. Complete the proposed Municipal Vulnerability
Preparedness Plan and develop a full-scale multi-hazard
mitigation plan.
2.A FEMA-approved hazard mitigation plan is needed to
access some forms of emergency assistance from FEMA.
Town Planner, Dept.
Natural Resources,
Police Dept , Fire
Dept., All town boards
Yr 1-3
Yr 4-6
implement
Yr 1-3
MVP Action
Grant; staff
time
2.B. As part of the hazard mitigation plan, develop an
inventory of underground infrastructure (water mains,
underground utilities) that may be threatened by increasing
groundwater elevation due to sea level rise. Develop a plan
to prioritize improvements to protect infrastructure identified
as subject to threat.
Dept. Public Works Yr 1-3
MVP Action
Grant; staff
time
3. Work with the Planning Board and other stakeholders to
evaluate changes to local zoning and regulations to preserve
scale, character and resource protection.
3.A Consider establishing a Coastal Resource District of
Critical Planning Concern (DCPC) as a planning process for
considering multiple overlapping planning objectives and
Town Planner,
Planning Board
Yr 1-3 $30,000 (est.)
for bylaw
development;
staff time
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
51
Recommendations Responsible Parties Priority Funding
tools.
3.B Develop and implement a stormwater management
bylaw/low impact development zoning bylaw as part of
compliance with the MS4 General Permit.
Dept. Public Works,
Town Planner,
Planning Board
Yr 1-3
Part of MS4
compliance
3.C Evaluate the potential benefits of establishing a Coastal
Conservancy zoning district with enhanced protections for
coastal resources and building scale
Town Planner,
Planning Board
Yr 4-6
Staff time
3.D Evaluate zoning restrictions governing the size, height
and lot coverage of newly constructed or reconstructed
residential dwellings in the coastal resource planning area
Town Planner,
Planning Board
Yr 1-3 Staff time
3.E Evaluate the potential benefit of revisions to the Flood
Plain Overlay District and Wetlands Conservancy District
bylaws to further limit development in velocity zones. Any
proposed changes should be based on a thorough
assessment of the effectiveness of the current bylaws, and
the approaches and experience of other communities with
similar circumstances.
Town Planner,
Planning Board
Yr 1-3 Staff time
Management Issue: Identify Opportunities to Preserve Visual Access
4. Include viewing enhancements in the long-term
maintenance plans at landings and beaches.
Dept. Natural
Resources, Dept.
Public Works, All
Access Committee,
Coastal Committee
Ongoing Staff time
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
52
Part III. Implementation Issues
Operational Management Structure
Implementation of the CRMP will require involvement from many areas of Town government and the
broader community, including coordination with adjoining towns, Barnstable County, and state and federal
agencies.
The Coastal Committee’s charge includes responsibilities that are integral to successful implementation of
the CRMP:
• Recommend ways of securing funding, including new strategies or changes to current means of
generating revenue for coastal management and protection;
• Integrate robust public participation in all phases of its work;
• Coordinate planning and implementation across institutional boundaries, including incorporation of
climate change adaptation strategies into policies, plans and regulations;
• Monitor changing coastal conditions and evolving community needs;
• Monitor and evaluate implemented adaptation strategies.
The Coastal Committee consists of a chair and three other members. The Director of Natural Resources
and Select Board Liaison also participate regularly in Coastal Committee meetings. In order to successfully
coordinate the implementation of the CRMP, the Committee would benefit from robust participation from
other Town boards and committees, staff support from Town departments, a close working relationship with
the Town Administrator, and clear direction from the Select Board. Suggested strategies include:
1. Consider expanding Coastal Committee membership to seven members, including representatives of
diverse user groups: property owners, recreational interests, shellfishing interests, conservation interests,
among others;
2. In addition to the Select Board liaison, identify liaisons from the Planning Board, Conservation
Commission, Board of Health, Vision Committee, Bike Safety Committee, and Open Space Committee.
Meet at least quarterly with the liaisons to review progress on recommended actions.
3. Work with the Town Administrator to identify dedicated resources to support the Committee’s work.
4. Provide an annual report to the Select Board on: 1) coastal resource management annual goals; 2)
progress on previously stated annual goals; 3) summaries of new issues or analyses.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
53
Part IV. Maps
Map 1
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Brewster Coastal Resource
Management Plan
Wetland Resources
DEP Wetlands 2005
Coastal Wetlands
Barrier Beach System
Coastal Bank
Coastal Beach
Coastal Dune
Salt Marsh
Tidal Flat
Inland Wetlands
Cranberry Bog
Deep Marsh
Fen
Shrub Swamp
Wooded Swamp
NHESP Vernal Pools
Certified
Potential
Area of Critical Environmental Concern
ACEC
Areas outside study area
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Document Path: P:\GIS\Towns\Brewster\CoastalMgtPlan\BCMP_wetlands_area_104Copy.mxdDate: 2/21/2019
Map 2
SC
QBS
SSC
Q
Q
RC
Q
AO
AO BM
Q AO
BM
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Brewster Coastal Resource
Management Plan
Anadromous and Shellfish
Resources
Shellfish Habitat
American Oyster (AO)
Bay Scallop (BS)
Blue Mussel (BM)
Quahog (Q)
Razor Clam (RC)
Soft-shelled Clam (SSC)
Surf Clam (SC)
Anadromous Fish Habitat
Anadromous fish presence
Anadromous fish run
Areas outside study area
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Map 3
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Brewster Coastal Resource
Management Plan
Habitat
BioMap2
Core Habitat
Critical Natural Habitat
Areas outside study area
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Map 4
Î
Î
Î
Î
^_
^_^_
^_
^_
^_
^_
^_
^_
^_
W I N G
I SL A N D
PA I N E S
CRE E K
M A N T 'S
LA N D I N G
SAI NT'S
L A N D I N G
B R EA K WATE R
L A N D I N G
P OI N T O F
RO C KS
E LL IS
L A N D IN G
S PRU CE
H I L L
L I N N E L L
LA N DIN G
CRO SBY
L A N D IN G
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Brewster Coastal Resource
Management Plan
Public Access & Mooring
DEP Wetlands 2005
Coastal Wetlands
Barrier Beach
Coastal Beach
Coastal Dune
Salt Marsh
Tidal Flat
Inland Wetlands
Deep Marsh
Shrub Swamp
Wooded Swamp
Cranberry Bog
^_Public Access
Î Mooring Field
Areas outside study area
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Map 5
Map 6
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Brewster Coastal Resource
Management Plan
Shoreline Structures
Docks and Piers
Docks and Piers
Coastal Defense Structure
Groins and Jetties
Revetments
Areas outside study area
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Map 7
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Land Use
Commercial
Residential
Industrial
Multiple Use
Open Space
Exempt Property
Recreational Property - Chapter 61B
Agricultural/Horticultural - Chapter 61A
Areas outside study area
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Brewster Coastal Resource
Management Plan
Land Use
Map 8
µ
The information depicted on these maps is for planning purposes only. It is not adequate for legal boundary definition, regulatory interpretation, or parcel level analysis. It should not substitute for actual on-site survey, or supersede deed research.
Brewster Coastal Resource
Management Plan
Zoning
0 0.75 1.50.375
Miles
0 1 20.5
Kilometers
Zoning
Commercial
Village Business
Industrial
Municipal Refuse District
Residential Mid Density
Residential Low Density
Residential Rural
Areas outside study area
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
54
Sources
Augusto, K. & Holmes, G. (2015). Massachusetts shellfish aquaculture economic impact study. Woods
Hole, MA.
Berman, Greg. (2015) Spectrum of Erosion Control Methods. Poster published by Woods Hole
Oceanographic Sea Grant.
Borrelli, Mark; Giese, Graham, et al. (2015) Assessment of the Century Scale Sediment Budget of the
Brewster Coast. A report submitted to the Town of Brewster. Center for Coastal Studies of Provincetown,
MA.
Brewster Bikeways Committee. (2015) Biking Brewster – A strategy to enhance biking in Brewster.
Brewster Coastal Advisory Group and Horsley Witten Group. (2016) Coastal Adaptation Strategy for the
Town of Brewster, MA.
Federal Emergency Management Administration (2005). Flood Hazard Zones, Coastal Flood Hazard
Analysis and Mapping Guidelines, Focused Study Report.
Report of the Massachusetts Coastal Erosion Commission Volume 1: Findings and Recommendations
(2015)
Massachusetts Division of Marine Fisheries. (2017) Annual Report.
Town of Brewster Vision Advisory Committee (2018) Town of Brewster Vision Plan.
Tupper, Steven, Cape Cod Commission. (2018) Beach Shuttle Conceptual Model, Presentation to Brewster
Coastal Committee, December 6, 2018.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
55
Acknowledgements
The Brewster Coastal Resource Management Plan Phase 1 Report was prepared by the Brewster Coastal
Committee and Ridley & Associates, Inc. :
Brewster Coastal Committee
Pat Hughes, Chair
Abigail Franklin Archer, member
Rachel Hutchinson, member
Mary O’Neill, member
Mary Chaffee, Select Board Liaison
Chris Miller, Director, Natural Resources Department
Maps 1-9 were prepared by:
Anne Reynolds, GIS Director, Cape Cod Commission
Gary Prahm, Cape Cod Commission
The Committee wishes to thank the following contributors:
Mark Forest, Acting Town Administrator
Ryan Birch, Natural Resources Department
Ryan Bennett, Town Planner
Noelle Aguiar, Conservation Administrator
Nancy Ellis Ice, Health Director
Kristin Andres, APCC
Greg Berman, WHOI Sea Grant and Barnstable County Extension Service
Alex Carlson, Aquaculture Grant Holder
Shannon Jarbeau, Barnstable County Cooperative Extension Service
Diane Murphy, Barnstable County Cooperative Extension Service
Steven Tupper, Cape Cod Commission
Many thanks to Cape Cod Museum of Natural History for providing a meeting location and logistical support
for the community workshops.
Carole Ridley, Ridley & Associates, Inc.
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
56
Terms and Abbreviations
ACEC – Area of Critical Environmental Concern
BCAG – Brewster Coastal Advisory Group
BCC – Brewster Coastal Committee
BFE – Base Flood Elevation
CAS – Coastal Adaptation Strategy
CRMP – Coastal Resource Management Plan
DCPC – District of Critical Planning Concern
FEMA – Federal Emergency Management Agency
MHW – Mean High Water
MLW – Meal Low Water
MS4 - Municipal Separate Storm Sewer System
MVP – Municipal Vulnerability Preparedness Program
VE zone – FEMA flood zone meaning coastal high hazard areas
AE zone – FEMA flood zone meaning areas that have a 1% probability of flooding each year
April 22, 2019
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57
Appendices
A. Complementary Planning Efforts
Summary of Complementary Planning Initiatives
Study or Initiative Objective Status Lead Department or
Board
Comments
Coastal Resource Plans
Coastal Adaptation
Strategy
Provide an initial
assessment of
coastal resource
threats due to
climate change, and
identify the
adaptation strategies
the community
prefers
Completed in 2017 Brewster Coastal
Advisory Group
Coastal Resource
Management Plan
Provide overarching
policy direction for
the resiliency of
Brewster’s Cape Cod
Bay shoreline
Launched November
2017; ongoing.
Brewster Coastal
Committee
identify and describe
the priority
management
challenges to be
addressed in a
coastal resource
management plan,
recommend
management actions
to address those
management
challenges, and
suggest
implementation steps
necessary to pursue
recommended
management
actions.
Municipal
Vulnerability
Preparedness (MVP)
Plan
Assists towns in
planning for climate
changes and
resiliency; a
requirement for
certain state
fundings sources
Town received MVP
designation in 2018;
received $20,000
planning grant
Planning Department
FEMA Multi-Hazard
Mitigation Plan
Required for
obtaining certain
types of FEMA
assistance; assists in
preparations for first
responders and
planning for large
capital projects
Grant funds to
support preparation
of the plan are being
sought
Planning Department
Complementary Planning Efforts
Brewster Vision Plan Express community
preferences for how
Brewster evolves
Completed Brewster Vision
Committee
Request for
implementation
funds anticipated
April 22, 2019
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58
socially,
environmentally and
economically
Spring TM
Integrated Water
Resources
Management Plan
Ongoing Natural Resources
Department
Small Municipal
Separate Storm
Sewer Systems
(MS4) General
Permit Compliance
Develop new
regulations to
demonstrate
compliance with the
MS4 General Permit
Department of Public
Works
May result in a new
stormwater
management bylaw
Open Space Plan
Update
May identify
conservation
strategies to protect
coastal resource
areas
B. Workshop Information
During 2018, the Brewster Coastal Committee sponsored a series of issue focused community discussions
to inform the development of the Brewster Coastal Resource Management Plan. Coastal Committee
members and Select Board members hosted the meetings and provided background information about
coastal management planning.
The five sessions were as follows:
• Sustaining public beaches and landings in the face changing shoreline conditions - May 17 –
Presenters included Greg Berman, Coastal Resources Specialist for the Cape Cod Cooperative
Extension Service and WHOI Sea Grant; and Chris Miller, Director of Natural Resources
• Preserving healthy coastal wetlands - June 14 – Presenters included Kristen Andres, Outreach and
Education Coordinator for APCC; and Chris Miller, Director of Natural Resources
• Providing access for water-dependent activities - July 19 – Presenters included Ryan Birch,
Assistant Director of Natural Resources; Alex Carlson, commercial shellfisherman; Dianne Murphy,
Deputy Director, Fisheries & Aquaculture Specialist Cape Cod Cooperative Extension & Woods
Hole Sea Grant
• Preserving public access to beach & landings - August 16 – presenters included Steven Tupper,
Transportation Program Manager, Cape Cod Commission
April 22, 2019
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• Protecting infrastructure, visual access, cultural & historical resources - September 13 - Shannon
Hulst Jarbeau, CFM, CRS & Floodplain Coordinator Barnstable County/Cape Cod Cooperative
Extension & Woods Hole Sea Grant.
The meetings were publicized through local newspaper articles, announcements at Select Board meetings,
and by posting of notices in high visibility locations throughout town. An electronic message board
deployed on Route 6A also was used. All meetings will be held from 6pm to 8pm at the Cape Cod Museum
of Natural History. In advance of each meeting, a discussion paper specific to the meeting was posted on
the town website: http://brewster-ma.gov/committees-mainmenu-29/coastal-committee. The sessions were
also video taped and available for viewing through the town’s website.
C. Town Actions to Manage Coastal Resources and Minimize Erosion Impacts
The Town of Brewster has a record of proactive management of its bayside coastal resources through land
purchases, policies, management actions and physical improvements.
Planning Efforts
The Town has implemented plans and studies to enhance understanding of resources and the natural and
anthropogenic threats to them, and to develop forward looking strategies (see Appendix C):
• Integrated Water Resources Management Plan
• District of Critical Planning Concern for Water Resources,
• Municipal Vulnerability Preparedness Plan
• Multi Hazard Mitigation Plan and Update
• Inner Cape Cod Bay Area of Critical Environmental Concern designation
• Century Scale Sediment budget
• Coastal Adaptation Strategy
Capital Project and Maintenance
Repair/prevent erosion caused by storm surge or sea level rise:
• Relocated parking lot at Paine’s Creek; parking lot replaced with sacrificial sand and beach;
• Ellis Landing stormwater and beach restoration: Removed non-functional stormwater structures from
beach, installed a resilient mat, nourishment, installed stormwater controls in roadway and parking
area, eliminating a direct stormwater discharge to the beach;
• Replaced stairs at Spruce Hill with a raised structure that allows dune migration. Stairs damaged in
storm, to be replaced Spring 2018;
• Maintenance at all locations: Regular nourishment at Breakwater Landing, Ellis Landing, and Paine’s
Creek;
• Sand nourishment at Mant’s Landing, sacrificial dune and sturdy sand fence;
• Notice of Intent/Order of Conditions developed for all landings except Mant’s, allowing regular
maintenance and nourishment as required; For Mant’s Landing, a conceptual study was completed to
evaluate removal of pavement with replacement by a resilient pervious surface, with grade changes to
address stormwater concerns from flooding beach side and from the marsh at the back;
April 22, 2019
Brewster Coastal Resource Management Plan
Phase 1 Report – Public Comment Draft
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Improve stormwater management or hydrology:
• Improved drainage at Saint’s landing, eliminating direct discharge onto the beach and erosion down the
path;
• Replaced the undersized culvert at Paine’s Creek leading to Freemans Pond;
• Replaced the undersized culvert under Route 6a at Stony Brook with a much larger box culvert;
• Stormwater controls throughout the Stony Brook valley, including Paine’s Creek Road, Stony Brook
Road, and replacement of the dam at the Stony Brook Mill;
• Linnell Landing stormwater project: Installed stormwater control structures throughout parking lot and
roadway, pitched parking lot back from beach, repaved; Eliminated a direct stormwater discharge onto
the beach;
• Relocated parking spaces, restored and protected dune at Breakwater, including a sturdy sand fence at
the beach side of the dune. Implemented green infrastructure (vegetated swale) to absorb stormwater
and pollutants to eliminate a direct discharge onto the beach;
• Culvert to be replaced under Crosby Lane Fall 2018.
Enhance Accessibility:
• Improvements to handicap access (platform and path at Linnell Landing, accessible platform at Mant’s
Landing, roll out walkway at Breakwater Beach, viewing area at top of stairs at Breakwater Landing);
• Accessible roll out pathway to be installed at Paine’s Creek spring 2018, including a shed to store a
beach wheelchair;
• Footbridge at Paine’s Creek to be replaced spring 2018, including a raised walk across the marsh;
• Stairs and sand nourishment at Little Breakwater to replace a degraded path/gulley down the coastal
bank;