The URL can be used to link to this page

Home My Public Portal AboutMaster Plan 1970A 0 N Z 4 CP O a, O Q t t t MASTER PLAN FOR BREWSTER, MASSACHUSETTS Prepared for Brewster Planning Board Metcalf & Eddy, Inc. Engineers & Planners Boston • New York • Palo Alto METCALF & EDDY, INC. B 0 S T O HARRISON P. EDDY. JR. JOHN W. RAYMOND, JR, HARRY L, KINSEL JOHN S. BETHEL, JR. ANDREW C. PATON ROLF ELIASSEN DEAN F. COBURN CHARLES Y. HITCHCOCK, JR. ARIEL A. THOMAS FRANCIS A. OBERT DAVID A. DUNCAN RUSSELL C. HOLT MORTON SOLOMON CLAIR N. SAWYER. ACS JOHN PODGER WOODROW W. WILSON CHARLES A. KNAPP NATHANIEL CLAPP GEORGE M. LIVINGSTON, NAA JAMES R. WOGLOM, AIP DONALD G. BALL JAMES A. FIFE WALTER AMORY FRANKLIN L. BURTON JOHN G. CHALAS GEORGE P. F'ULTON GEORGE K. TOZER JAMES T. 0 ROURKE CONSULTANTS ALLEN J. BURDOIN GEORGE J. SCHROEPFER EDWIN B. COBB ALBERT B. RICH GERALD J. LAUER N N E W Y O R K P A L 0 A L T 0 STATLER BUILDING • BOSTON • MASSACHUSETTS 02116 ETCAL F& EDDY E N G I N E E R s Mr. John Nevin, Chairman Brewster Planning Board Town Hall Brewster, Massachusetts Dear Mr. Nevin: INC. CABLE ADDRESS- 'METEOD - BOSTON' TWX 710-321 -6365 (617) 423 -5600 February 15, 1970 We are pleased to submit the accompanying report, Master Plan for Brewster, Massachusetts, and the reports issued under separate covers, Proposed Zoning By -Law and Proposed Land Sub- division Regulations authorized by Articles of Agreement dated March 19, 1968. This total plan is a detailed and technical report for use primarily by town officials and other interested citizens in the conduct of their responsibilities. It contains surveys of exist- ing conditions and goals, standards and long -range recommendations for community improvement. A Summary of this report, covering the total Master Plan, is presented in the front of this report. The individual planning memoranda, submitted previously, have been revised, edited, and organized into a three -part report. The report sections are: I - Background Studies II - 1985 Development Plan III - Effectuation Program INVESTIGATIONS • REPORTS • DESIGNS • ADVICE DURING CONSTRUCTION • ADVICE ON OPERATION PLANNING • VALUATIONS • LABORATORIES • RESEARCH Mr. John Nevin February 15, 1970 2. The planning studies and report were prepared by Mr. Richard L. Ball, Jr. and Mrs. F. Tenney Lantz, who were assisted by other members of the staff under their direction. Very truly yours, METCALF & EDDY, INC. James R. Woglom, A.I.P. Director, Community Planning and Renewal Approved: G Andrew C. Paton Senior Vice President TABLE OF CONTENTS LIST OF TABLES LIST OF FIGURES REPORT INTRODUCTION SUMMARY PART I - BACKGROUND STUDIES Area of Influence Existing Land Use and Land Values Physiography Population Housing Economic Base PART II - 1985 DEVELOPMENT PLAN Development Goals School Plan Circulation and Parking Plan Recreation and Conservation Public Utilities Plan Future Land Use PART III - EFFECTUATION PROGRAM Zoning Land Subdivision Regulations Capital Improvements Program APPENDIX A. Existing Land Use, 1968 B. Survey of Seasonal Commerce in Brewster C. Brewster Planning Questionnaire iii Page iv viii 1 3 15 4o 47 58 71 75 89 92 106 123 134 150 155 157 159 A -1 A -2 A -3 METCALF & EDDY, I N C. LIST OF TABLES Table page 1 Population of Cape Cod 20 2 Visitor Expenditures on Cape Cod 20 (in millions of 1960 dollars) 3 Housing and Residential Land Use Requirements 21 of Cape Cod 4 Year -Round Population Change 23 5 Year -Round Population Movement, 1955 -1965 24 6 Compared Year -Round and Seasonal Population, 24 1960 7 Compared Population Characteristics 25 8 Year -Round and Seasonal Employment Change 27 9 Year -Round and Seasonal Employment by 28 Economic Sector, 1966 10 Compared Land Development 30 11 Compared Housing Starts 32 12 Compared School Statistics 33 13 Compared School Enrollments versus Town 34 Population 14 Compared Financial Characteristics 35 15 Compared Residential Zoning Regulations 36 16 Tabulation of Existing Land Use 43 17 Tabulation of Existing Planning District 44 Land Uses 18, Great Ponds 48 19 Land Suitability 53 20 Developable Land 54 iv METCALF & EDDY, I N C. D LIST OF TABLES (Continued) Tab le Page 21 Recommended Minimum Lot Sizes 55 22 Population Change 58 23 Seasonal Population 59 24 Year -Round and Summer Population 60 Distribution, 1968 25 Past Population Composition 60 26 Family Income 61 27 Educational Attainment 62 28 Natural Increase or Decrease 63 29 Components of Growth 63 30 Estimated Future Population 66 31 Future Peak Summer Population 66 32 Population Composition, 1960 -1985 68 33 Range Additional of Residential Land Needs 69 34 Types and Number of Residential Structures, 71 1968 35 Occupations of Civilian Labor Force 76 Participants, 1960 36 Changes in Year -Round Employment 77 37 Seasonal Employment Change 79 38 Changes in Wages 80 39 Enrollment Trends 93 40 Public School Physical Plant Data 94 41 Physical Plant Evaluation 97 42 Capacity and Utilization 99 V METCALF EDDY, I C. & N LIST OF TABLES (Continued) Table Page 43 Future Brewster Enrollments 101 44 Projected Future Classroom Needs 102 45 Street Characteristics, Arterial and 108 Collector Streets 46 Street Cross Sectional Design Standards 110 47 Geometric Design Standards 111 48 Volume /Capacity Relationships � �3 49 Off- Street Parking Standards 118 50 Parking at Town Beaches and Landings 120 51 Existing Recreation and Conservation Land 124 52 Historic Sites 125 53 Recommended Residential Lot Sizes for 136 Development with Individual On -Lot Water Supply and Sewage Disposal Systems 54 Recommended Private On -Lot Water System 136 Standards 55 Recommended Residential Lot Sizes for 141 Development with On -Lot Sewerage Systems 56 Recommended Storm Drainage Standards 144 57 Recommended Standards for Refuse Disposal 148 58 Proposed Land Use Amounts 154 59 Town Valuation and Tax Rates, 1960 -1969 160 60 Local Tax Levy, 1960 -1968 161 61 Change in Town Receipts ($0001s) 162 62 Change in Town Expenditures ($0001s) 163 63 Trends in School Costs 165 vi METCALF & EDDY, I N C. LIST OF TABLES (Continued) Table 64 Six -Year Capital Outlay by Purpose, 1963 -1968 65 Municipal Debt, Brewster Area, October 1, 1968 66 Capital Budget and Six -Year Capital Improvement Program vii Page 166 168 170 METCALF & EDDY, I N C. LIST OF FIGURES Figure 1 Area of Influence 2 Existing Zoning Along Adjoining Town Boundaries 3 Existing Land Use 4 Natural Resources 5 Developable Land 6 Past Population Change 7 Population Distribution 8 Population Estimates 9 Past Labor Force and Employment Trends 10 Past Trends in Number of Covered Establishments 11 Future Labor Force and Employment 12 Potential Commercial /Industrial Sites 13 School Plan 14 Circulation and Parking Plan 15 Traffic Patterns 16 Recreation Conservation Plan 17 Water Plan 18 Sewerage 19 Drainage and Refuse 20, Future Land Use Plan viii Following page 16 36 40 48 52 58 60 68 76 80 82 86 102 108 108 128 134 140 144 150 METCALF & EDDY. I N C. 0 H REPORT 0 ii INTRODUCTION The Brewster Master Plan outlines an overall framework for future development within which Brewster may realize certain social and economic benefits, together with a more efficient and wise use of its resources. The planning studies which form the basis for the recommen- dations in the plan include an investigation of the many factors which will influence community growth 1201211ation�,'econom;c .__trends, land use, quitability and housine cu ab ;; ; s, The- detailed findings of these studies are covered within the first section of this report. Proposals for schools, recreation and conservation, public utilities, circulation and in use - the key elements of the plan -are then p rated, and land with the objectives for the long-range resented, consistent guide for future development, the plan attempts ftohcombine the a several individual elements into an understandable and interrelated pattern. In this way, future decisions regarding individual devel- opments or the expenditure of funds for capital improvements c_ an_ .be madee with some knowledge of the posable effects try m ;gam have on the town's growth, and the — attainm e ht of plannin g objec- tives. t i ve s . _ The final portion of the plan, the Effectuation Program,.is perhaps the most easily understood. It is through the recommended implementation tools that Brewster will accomplish the initial and most urgent phases of the Master Plan. This Master Plan for Brewster, however, is simply a point of departure. It is hoped that the process of planning will be continuous, since there is no final plan for the town. Brewster must constantly look ahead, making new plans and programs to re- flect their ever - changing needs. Only in this way can Brewster hope to achieve the goals it sets for itself. 11 METCALF & EDDY, INC. q I SUMMARY 11 IlJ n n The Brewster Master Plan of 1970 is composed of individual studies and proposals which have been organized into three sec - tions: Part I - Background Studies; Part II - 1985 Development Plan; and Part III - Effectuation Program. A summary of the indi- vidual elements of these Parts is presented below. Background Studies Area of Influence Brewster is affected by and in turn affects two types of areas: a "Regional Area of Influence" and a "Local Area of Influ- ence." The Regional Area of Influence is identical with the juris- diction of the Cape Cod Planning and Economic Development Commis- sion and Barnstable County (Cape Cod). This is selected because Brewster has been a part of all previous studies and inventories of these areas by various public agencies and will participate in the development of all future plans for this regional area. The Local Area of Influence is identified as that group of towns which will have direct influences on planning and develop- ment problems in Brewster. The Local Area of Influence is defined to include the Towns of Dennis, Harwich, Chatham, Orleans, Eastham, and Wellfleet. The impact on Brewster from the Regional Area of Influence stems from the area's unique physical characteristics which attract large numbers of summer vacationers. The expected future of the area is a continually increasing summer and year -round population, increasing numbers of summer visitors attracted mainly by the new Cape Cod National Seashore and easier highway access, and an in- creasing number of new housing units constructed. Having compared the Local Area of Influence towns it is seen that Brewster, in the past, has had generally lower amounts of growth in seasonal and year -round population, employment, new home construction, and land development. Of most significance to Brewster has been the recent upturn in these growth areas result- ing from the "filling up" of towns to the west of Brewster. The external pressures for growth in Brewster pose specific questions or development issues toward which policy must be formu- lated. The major development issues are identified with respect to: 1. Increasing pressures for land. 2. Demands for public services. 9 METCALF & EDDY, I N C. 3. Preservation of special environmental charac- teristics while establishing the vacation - resort industry. 4. Balancing of conservation and open space land use needs with residential development. 5. Formulation of proper zoning controls. Existing Land Use and Land Values For planning purposes, Brewster was divided into five neighborhoods, or Planning Districts. Land use information was gathered, mapped, and tabulated within each of these districts. The survey of existing land uses found the following acre- ages in each particular use. Tabulation of Existing Planning District Land Uses Use East Brew- ster In Central Brew- ster Acres West Brew- ster Park Dis- tract Ponds Dis- tract Total Developed Residential 152 313 60 10 145 680 Commercial 16 31 10 - - 57 Industrial and 41 47 30 74 64 256 Utilities Institutional 50 50 14 - - 114 Town Buildings 2 95 62 320 56 535, and Lands Circulation 130 224 51 77 194 676 Recreational 226 55 30 1,447 168 1,926 and conserved open space Total 617 815 257 1,928 627 43244 4 Tabulation of Existing Planning District Land Uses (cont.) In Acres East Central West Park Ponds Brew- Brew- Brew -. Dis- Dis- Use ster ster ster trict trict Total Undeveloped Nonrecreational open space 950 1,606 970 2,021 4,100 9,647 ?etlands and 218 219 247 356 1,171 22211 water Total 1,168 1,825 1,217 2,377 5,271 11,858 Total acres 1,785 2,640 1,474 4,305 5,898 16,102 Source: Field Survey and tabulation by Metcalf & Eddy, Inc. The developed land in Brewster (24 percent of the total land) is concentrated adjacent to and north of Route 6A. Large areas of recreational and conserved open space are found along the shore, in Nickerson State Park, and adjacent to many ponds in South Brewster. The remainder of the town is largely undeveloped. The size of developed lots in Brewster are generally small (mostly less than 10,000 sq. ft.). In addition, the land values in most areas other than the shore are comparatively low. These low land costs are likely to encourage development, particularly throughout southern Brewster. The implication of t-he land use analysis are basically two: s 1. That there is a need for a public water system to serve the densely populated areas of Central Brewster. 2. That there is a need to establish land use policy and controls to protect the town from unlimited community facilities expansion due to an over intense use of land. Physiography Brewster is fortunate to have been endowed with a variety it of exceptional resources. Its climate is temperate and receives the northeast. Contained little snow compared with other areas of all or portions of 24 "great ponds," ponds within the town are which are over ten acres in size. In addition, there are 16 smaller ponds of three to ten acres within the town. 5 METCALF & EDDY, I N C. r� Brewster also has three creeks or brooks running through it or along its boundaries. The bay shoreline, with seven bl s is a public landings, approximately 5 -1/2 miles long, and about 325 acres of tidal marsh exist behind it. There are an additional six pub- lic landings on fresh water ponds. The majority of the town (77 percent) is covered by the Carver soil, which is characterized by coarse sands extending deep below the surface. An additional 15 percent is covered by either wet soils or water. The majority of the land in Brewster is vacant and available for development. The suitability of this vacant land for develop- ment is indicated below. Land Category Acreage Percent of Town Developed and committed land 2,676 16.6 Nickerson State Park 1,178 7,3 Water 1,164 7,2 Vacant a. suitable for development 7,097 44.1 b. difficult to develop 314 1.9 C. unsuitable for development 3,673 22.9 Many areas in Brewster contain lots which are far too small for service by both an on -lot water and sewerage system. These areas are clustered along and to the north of Route 6A. In the newer residential development, lot sizes are also too small for service by both systems on -lot. However, if public water were provided these areas, the lots probably would be of adequate size to maintain on -lot sewerage systems for many years. Population Brewster's year -rou creasing at an accelerated in 1965. This increase is people which hit a high of The seasonal population of 11,355. nd population since pace - from 757 to due principally to 290 persons in the Brewster in 1968 w 1945 has been in- about 1,500 persons an in- migration of 1960 -1965 period. as estimated to be Based on an estimated net migration increase through 1985, the most probable estimate of the Brewster year -round population for 1970, 1975, 1980, and 1985 are 1,860, 2,240, 2,620, and 2,960 persons respectively. The summer population will continue to in- crease, due to the great amount of developable land in Brewster and the expanding national economy. The peak summer population in 1985 could reach over 14,000. I Ai 0 The future population composition of Brewster is a critical factor in its socio- economic climate. Brewster can expect in the forecasted period, higher composition percentages in nearly all age groups, particularly in the 5 to 19 groups. The numbers of people in every age group will be considerably greater in 1985. The present population is concentrated in Central Brewster and along and north of Route 6A. By 1985, it is expected that growth in the Ponds District and in West and East Brewster will greatly increase the population in these districts as well. The total predicted 1985 peak population of 14,230 persons will require an additional 350 to 810 acres of residential land. Approximately 200 to 500 acres will be needed for year -round resi- dences alone. Other needs will be for a public water system in northern Brewster, improved roads, police and fire protection, and approximately 16 additional classrooms. Housing In April of 1968, there were 494 year -round and 938 seasonal residences in Brewster. All of these were single- family units. In addition, there were four residences which include seasonal rooming houses; ten motels, cabins, or inns; nine summer camps; and six camping areas. Most of the residential units are grouped along or to th6 north of Route 6A. The camps or camping areas are located along the ocean, the ponds, or in Nickerson State Park. Recent residen- tial growth areas are in the southern districts of Brewster or in East Brewster south of Route 6A. We predict that there will be a need for 470 additional year -round and 350 additional seasonal units. Also, we expect a demand for 50 to 75 more motel, cabin, or inn units. The major development of the single - family units is expected to occur in West Brewster and the Ponds District. Economic Base Brewster's past economic base has been oriented to four sectors - the retail trade; the finance, insurance and real estate; the service; and the construction sectors. Together, these sec- tors represented over 90 percent of the 1965 covered year -round employment and firms. Since 1955, the labor force in Brewster has exceeded the year -round or seasonal employment. It appears, however, that most of the labor force is employed at firms outside of the town. 7 METCALF & EDDY, INC. r The major sectors of the economy have exhibited recent growth in response to an increasing resident population and to an expanding recreational development of the Cape. Based on the assumptions that Route 6A will attract an increasing number of tourists and that the town itself will control but not prohibit economic expansion, we predict continued growth in the recrea- tional /tourist industry, the development of convenience shopping areas and additional growth in the construction and finance, in- surance and real estate sectors. In response to this prediction, we have selected 11 potential sites for economic development, most of which are located on or very near to Route 6A or on a water body. In total, economic interests may require an additional 50 to 100 acres in Brewster. We expect growth in both Brewster's labor force and employ- ment. The labor force is projected to remain in excess of even the seasonal employment, but is is likely that the majority of the force will continue to commute outside of Brewster to work. 1985 Development Plan Development Goals The goals of any community are statements of desired long - range essential nature of the town. The expressed development goals of Brewster are: 1. To maintain an essentially residential community. 2. To maintain the rural atmosphere of the town. 3. To maintain a limited business element which will primarily serve town residents only. 4. To encourage high quality development which will be harmonious with the existing physical and man- made environment. 5. To encourage business to develop near but not along Route 6A. 6. To limit development within the town's ability to provide or expand community facilities and services. The following plan elements are based on and interpret these goals. a r s c School Plan The enrollment of Brewster pupils in public schools has in- creased approximately 42 percent since 1955• This includes pupils in grades K -8 at the Brewster Elementary School and high school students at Nauset or Dennis - Yarmouth Regional High Schools. Al- though this study includes the facility needs to serve all these students, the emphasis of this report is on the facilities needed in Brewster. The existing public facility in Brewster had become heavily overcrowded. The overcrowding was relieved somewhat by the acqui- sition of a portable classroom and the renting of St. Joan of Arc's School in Orleans. However, despite provisions for grades 5 -12 to attend regional schools by 1972, our enrollment projections indi- cate that there will again be a need for more space by the early 19801x. Based upon this estimate of the need, we suggest that the town begin planning by the late 1970's, for a new Lower School facility to house grades K -4. This school should be completed by 1980. We suggest that the facility be located on present town - owned land to the west of Underpass Road. The present Brewster Elementary School should be renovated internally to make it an adequate structure for use through the 1970's. After its abandonment for school use, we suggest that the structure could be used for town offices and community indoor activities. Circulation and Parking Plan Based upon the standards recommended for streets and off - street parking areas, the existing facilities in Brewster appear to have a number of deficiencies. These include: Cross - Sectional Design. Inadequate right -of -way and pavement widths and lack of shoulders and sidewalks on many streets. Geometric Design. Excessive grades and roadway align- ments on several streets. Also, difficult intersec- tions, inadequate sight stopping distance, and a profusion of dead -end streets. Level of Service. Adequate service to traffic on all streets, but becoming inadequate on eastern Route 6A. Pattern. Difficulty in proceeding east -west through Brewster and in traveling between adjacent subdivisions. Parking. Some inadequacies at private facilities. Also, inadequacies at town -owned facilities. METCALF & EDDY, I N C. fJ The recommendations for improving these conditions are several. Included are suggestions that: - the Town adopt the circulation and off - street parking standards as construction policy for itself and within the zoning by -law and subdivision regulations. Also, that the Town enforce the standards and supervise con- struction activity under its subdivision regulations. - the Town request from the State, a new entrance to Nickerson State Park off Route 6 and a lowering of the speed limit on sections of Route 6A. - the Town provide adequate streets to and through the proposed Brewster Center, including the upgrading of Underpass Road. - the intersection of Harwich and Depot Roads be posted with approach warnings of "dangerous intersection" on Harwich Road and "stop ahead" on Long Pond (Depot) Road. - the Town improve the Route 6A - Breakwater Road inter- section by implementing a one - way system and the Route 6A - Ellis Landing Road intersection by eliminating the central island. - the Town upgrade or construct a secondary collector street on Great Fields Road and Freeman's Way and connect these with a similar road between Sheep and Long Ponds. - the Town redevelop, develop, or acquire landings at Paine's Creek; Point of Rocks; Crosby; Long Pond; Sheep Pond; Walker, Slough, Pine, and Elbow Ponds; and Canoe Pond. - the Town expand off - street parking facilities at the Brewster Elementary School, the fire and police station, and the old mill. Recreation and Conservation Plan Brewster is a town which is richly endowed with potential recreation and conservation facilities, but which has done little to protect or enhance them. There are no adequate sites in the town,for active recreation, nor is there any group whose duty it is to plan and develop recreation programs. Less than two -hun- dredths of the town is now protected by town or local groups from indiscriminate development. There are no facilities for launching a boat in salt water, and only three fresh -water ponds have devel- oped launchings. Swimmers are not provided with either lifeguards or bathhouses at any salt- or fresh -water beach. There are only two "parks" in the town, each less than one - fourth of an acre in size. 10 I 0 Recommendations for improving the recreation and conserva- tion situation in Brewster are many. An indoor recreation center is suggested to be constructed on the site of the proposed Lower School to be used for community recreation and for school recrea- tion purposes. A playfield is proposed also for the site which has been recommended for a new Lower School.. Two playgrounds are proposed - one in conjunction with the playfield and another north of the Long Pond landing on existing town -owned land. S. Major swimming, boating, and picnicking facilities, with lifeguards, bathhouses and launching ramps, are recommended for Paine's Creek and Crosby landings and for Long and Sheep Pond landings. Improved launching ramps are also proposed for Slough Pond, Pine Pond, and Elbow Pond. Bicycle paths and picnicking and hiking facilities are sug- gested for the abandoned right -of -way of the railroad. If this development is not accomplished by the state, it is recommended that the town undertake the project. Other sites are proposed for acquisition or control by the town. These include the salt -water marshes and major inland swamps and bogs. They also include forested areas and additional points for pond access. The basic recommendation in the area of programming is the development of a Recreation Committee, whose duty it would be to coordinate a comprehensive recreation program. This group would be composed of citizens interested in a broad range of active and quiet recreation activities who would stimulate action and under- standing among the various interest groups already existing in the town. Further recommendations are for the use by the town of many means for implementing its open space plan. These means include more restrictive zoning and land subdivision regulations, encourage- IL V ment of more protective action by the state, outright acquisition of full or easement rights in land, and the acceptance of gifts of land development rights. n In summary, this plan for recreation and conservation in Brewster is understood to be a demanding one, but it is considered to be essential at this point in the town's history, when pressure for development is straining to alter the rural atmosphere. It is hoped that recognition of the need will encourage understanding among all the concerned citizen groups and action toward the joint implementation of the overall open space plan. 11 METCALF & EDDY, I N C. Public Utilities Plan - The utilities report represents a study of the water, sew- erage, drainage and refuse needs of Brewster through 1985. As a result of this study, it was found that the town presently is experiencing problems in all of these areas. The problems are especially acute in the areas of water supply and sewage disposal, since the town is not served with either type of public system. Brewster also is in great need of additional space for refuse dis- posal, and it is experiencing some drainage difficulties. The report contains a number of recommendations for meeting the town's present and future utility needs. Included are recom- mendations that a public water system to serve much of the devel- oped area of the town be undertaken as soon as possible; that measures be taken to bring the nonfunctioning on -site sewage dis- posal systems up to standard, and to assure that newly constructed on -site systems are properly designed and installed; and that a new refuse disposal site of at least 25 acres be immediately ac- quired and properly operated. In addition, it is recommended that the appropriate town bodies adopt the proposed utility design and construction stan- dards, and that the Planning Board adopt and enforce the proposed land subdivision regulations. Future Land Use Plan The Future Land Use Plan for Brewster is proposed to coor- dinate the existing land uses and land suitabilities with the stated town goals and our projections and proposals for community facilities and additional land use demands. It is a long -range view of land use relationships beyond the year 2000. The major categories of developed land uses proposed within the plan include residential.(rural, low, and medium density), commercial (local high density and seasonal) and industrial. Some high density residential use is suggested within the local commer- cial districts or in clustered or planned unit developments. The open space use is proposed to include all of Nickerson State Park, the existing and recommended recreation and conservation lands, and other areas included as part of an overall green belt scheme. The land use scheme is centered on a proposed activity nucleus in north- central Brewster. Included within this nucleus could be the town offices, recreation center, post office, local shops and services, and possibly a new library and fire /police station. Emerging from this center along the major town thorough- fares is proposed medium density residential use. Adjacent to this is low density residential use. At the outlying areas are 12 fl FIN 0 rural density districts and an industrial zone. The commercial areas are dispersed among these other uses along Routes 6A, 124, and 137. In total, the area of Brewster is proposed to be divided in the following manner: Proposed Land Use Amounts Use Proposed Acres Percent of Total Town Residential rural density 2,100 13.0 low density 1,650 10.2 medium density 5,400 33.5 Commercial - local high density 300 1.9 seasonal 65 0.4 Industrial 65 0.4 Open Space 4,852 30.2 Water 1,670 10.4 Total 16,102 100.0 Source: Projections by Metcalf & Eddy, Inc. Effectuation Program Zoning The Protective Zoning By -Law of Brewster was first adopted in 1960 and has been revised only slightly since. It was found to have a number of inadequacies as a policy document within a growing suburban town. These inadequacies include a lack of re- strictive districts, a lack of lot size requirements which relfect soil conditions and service by public utilities, a lack of adequate definitions, height or size regulations, a lack of off - street park- ing and loading requirements, and a lack of innovative zoning schemes for cluster or planned developments. In order to offset these inadequacies, an entirely new zoning by -law is proposed. This proposal suggests six types of zoning districts for Brewster, including three residential dis- tricts of various development densities, a local commercial dis- trict, a commercial district for tourist interests uses, and an industrial district. The application of this by -law will move Brewster toward the implementation of its Future Land Use Plan. 13 METCALF & E D D Y, INC. Land Subdivision Regulations The existing Subdivision Regulations of the Brewster Plan- ning Board, adopted in September of 1964, were found to have cer- tain inadequacies. The weaknesses of the regulations include a lack of clarity regarding specifically what will be required of the subdivider, an erroneous indication that the Planning Board will rule on the fitness of the land for development, the require- ments for frontage and lot sizes which by Massachusetts Law should be regulated by zoning, a lack of varying standards for different types of subdivisions, the need for more protective design and construction standards, and the need to include recent changes from the Massachusetts Subdivision Control Law. Following review of the existing regulations, an entire new set of rules and regulations governing the subdivision of land were developed and submitted to the Planning Board. These proposed regulations provide a sound administrative structure for subdivi- sion review, a set of standards for the construction of street rights -of -way and the installation of utilities, and a statement of improvements required within an approved subdivision. They are considered to offer proper protection for the town, the developer, and the potential buyers. Capital Improvements Program As has been occurring in all growing towns, the money re- quired to run the community facilities and services in Brewster has been rising. At the same time, the assessed tax base of the town and receipts from sources other than property taxes have not kept pace, thus placing the full burden on the residential tax- payer. A major portion of the expenditure increase was caused by rising school costs. It appears that school expenditures will continue to increase, particularly now that Brewster is obligated for capital charges of the Nauset region. Despite the increase in costs, however, Brewster has man- aged to maintain one of the lowest tax rates in the state. In so doing, Brewster was practicing a false economy, since the essential capital projects which the town postponed will now cost consider- ably more due to inflation and rising land, construction and inter- est costs. Some of the projects are included in a capital budget for Brewster, covering the next six years. The projects included are an adequate sanitary landfill site and equipment, indoor recrea- tion center and playfield, beach and landing improvements, road and parking improvements, and a public water system. To pay for these projects plus the normal operation of the town, it is ex- pected that the tax rate in 1975 -1976 will reach $23.05. 14 0 0 PART I BACKGROUND STUDIES A D D AREA OF INFLUENCE The term "Area of Influence" refers to a group of towns which, because of similarities and interdependence in location, population, land development, economy, facilities and services constitute a logical regional planning area. The future of each town affects, and is affected by, each other) town in the group. The purpose of this section of the Master Plan is to select the "Brewster Area of Influence" and to identify the special planning and development issues which will affect the future of Brewster. This will be accomplished by first, examining existing regional structure as it affects Brewster and second, comparing characteristics of Brewster with other towns in the Area of Influence. Geographical Location The Town of Brewster is located midway on a peninsula of land on the eastern coast of Massachusetts called Cape Cod. Brewster is approximately 90 miles southeast of Boston, 87 miles east of Providence, Rhode Island, and 264 miles north of New York City. Selection of the Area of Influence Criteria for Selecting Area of Influence Towns meet- ' ing the following criteria will be considered for inclusion in Brewster's area of influence: 1. Towns that are part of a regional statistical area, joined in regional studies, or are included in regional service areas and exhibit reciprocal relationships. 2. Towns having social and economic ties of sufficient magnitude to create an element of interdependence . 3. All adjacent towns unless there is some significant physical barrier or type of land use which will block and prevent contiguous development or accessibility. 15 METCALF & EDDY, I N C. M Regional Study Areas. To date, there have basically been three public agencies preparing or sponsoring studies of the same geographical area, Barnstable County which is coincident with the definition of Cape Cod and encompasses the Town of Brewster. These agencies are the Cape Cod Planning and Economic Development Commission, Massachusetts Department of Commerce and Development and the Barnstable County Government. The single most significant study and statistical area is the Cape Cod Planning and Economic Development Commission (see Figure 1). Historically, the Commission was formed in 1965-x- as an extension of the Barnstable County government. This resulted from a recognized need for a for ial continuing planning program to improve, develop, and protect the natural resources of Cape Cod. The member- ship of the Commission is composed of the Barnstable County Commissioners and a representative from each of the towns appointed by the Selectmen. To date, the Commission has de,, oted ius attention to "identifying regional goals and the manner in which its future planning and development efforts would be directed to achieve these goals, " ** creating a technical staff, preparing a salt water beach study, and outlining programs and preparing applications for Federal assistance.*** The future basic role and program of the Commission is outlined in the following principle objectives: "1. The gathering of essential facts about Cape Cod development trends and patterns; 2. the exploration of solutions to a selected range of problems; 3. the establishment of a substantial public information and education program; and 4. the operation of a continuing advisory and planning assistance service to public agencies and officials. " ** Brewster, as a member in this Commission, can participate in the development of the regional plan, use the available basic data and analysis in making local decisions, *Mass. General Law, Chap. 453, * *Crape Cod Planning and Economic Toward a Re ional Planning and Program, 19 ** *These funds have recently been Cape Cod Planning and Economic 16 Acts of 1965. Development Commission, Economic Development approved and received by the Development Commission. e FIG. 1 Nontucket Sound REGIONAL AREA OF INFLUENCE CAPE COD PLANNING a ECONOMIC DEVELOPMENT COMMISSION BARNSTABLE COUNTY 0 0 0 LOCAL AREA OF INFLUENCE — — — NAUSET REGIONAL SCHOOL DISTRICT MASTER PLAN TOWN OF BREWSTER, MASSACHUSETTS O S AREA OF INFLUENCE SCALE IN MILES FEB. , 1968 METCALF8 EDDY INC -ENGINEERS 5 PLANNERS • BOSTON NEW YORK PALO ALTO 0 0 and take advantage of the planning advisory and assistance service. The Commission also serves as the statutory regional review agency for the many federal and state assistance programs. In 1963, the Massachusetts Department of Commerce and Devel- opment sponsored the preparation of a series of reports titled "Cape Cod Planning Program." This planning program consisted, at that time, of four reports prepared by various state agencies: pop- ulation, recreation, forest resources and marine resources. These reports were used as the background for the preparation of a regional plan titled "Cape Cod 1980. "* All of the reports contain basic in- formation and specific recommendations relating to Brewster which are utilized and taken into account in the appropriate sections of this report. From time to time, there have been various other studies to supplement the original planning program prepared for state and federal agencies and concerned with physical problems on the Barn- stable County level of government. These reports involved studies of beach erosion, coastal flooding, water resources and highways. They were prepared on a regional level and, therefore, are basically general in nature so that any specific proposals that affect Brewster have to be analyzed and expanded as needed in the appropriate sec- tions of this report. Regional Service Areas. Service areas that cover more than one town give to them a common interdependence. Brewster lies with- in several regional service areas. The regional service area having the most direct and signifi- cant bearing on Brewster is the Nauset Regional High School District. This district is composed of Brewster, Eastham, Orleans, and Well - fleet. During 1969, these towns voted to incur debt to construct a new Nauset Regional High School. When that building is complete, Brewster will send all of its pupils above Grade 6 to regional schools. Since Brewster was admitted to the region only last year, it is only now becoming responsible for its share of all regional school expenses. In the same context, School Superintendency Union No. 54 com- prises the same four towns in the present regional high school dis- trict ( Eastham, Orleans, Wellfleet, and Brewster). The purpose of this superintendency union, which has its headquarters in Orleans, is to consolidate the administrative hierarchy of the various local school systems. *Prepared by Blair Associates in 1963. 17 METCALF & EDDY, I N C. E: The Barnstable County government provides some service and financial assistance predominantly in the area of highways and the court system. Brewster, Orleans, and Eastham have formed an ambu- lance association to provide emergency service. The local telephone calling area is composed of Brewster, Orleans, Harwich, and Dennis. A district visiting nurse service is provided to Barnstable, Dennis, Yarmouth, Brewster, and Mashpee. Accessibility. Major highway access to the town is provided by State Routes A, 124, and 137• These three highways intersect near the center of Brewster and provide adequate intra -town circula- tion, but these are two -lane, open access highways with capacities limited so as to restrict influence and interdependence to towns within close proximity to Brewster. State Route 6 (Mid -Cape High- way) is a limited access highway and passes through the southeast portion of Brewster with no interchange in Brewster. This road carries the majority of through traffic with access gained to Brewster along the other state routes in Brewster. There is no rail transportation service in or near Brewster. Bus service is provided in the summer months connecting Brewster with other towns between Hyannis and Provincetown. The nearest commercial airport is located in Barnstable, and a minor airfield is located in Chatham. Economic and Social Ties. Statistics on commuting employment and sho in usually indicate the towns to which Brewster has a strong relationship. There are, however, almost no data available on commuting into or out of Brewster. A study of commuting to manufacturing jobs had no significant results.* The information from the 1960 U. S. Census revealed only that at least 90 percent of those reporting a place of work were working in Brewster and Barnstable County. The place of work of the other 10 percent is not specified. There are almost no major year -round shopping facilities located within Brewster, so that the residents use the nearby retail centers of Dennis and Orleans. Nearly all major banking activity has to be accomplished in the financial establishments of Harwich and Yarmouth. The majority of the residents of Brewster use the social and entertainment facilities of Orleans, Dennis and Yarmouth. Selected Area of Influence. Because of the regional impor- tance of the Cape Cod Planning and Economic Development Commission as a statistical and study area and its encompassment of Cape Cod, which is a logical planning area, this district as a whole should be considered in the identification of Brewster's Area of Influence. Not only has Brewster been a part of all statistical inventory of the Planning and Economic Development Commission and Barnstable County in the past, it will be also part of all regional plans to -Mass. Dept. of Commerce and Development, Man Survey, Coastal Plain, 1963. p Manufacturing Commuting 18 j be developed in the future. For this reason, we have selected the jurisdiction of the Cape Cod Planning and Economic Development Com- mission as Brewster's Regional Area of Influence. Whereas planning in Brewster will affect and will be affected by planning for Cape Cod, it is evident that several of the regional towns will have a more direct bearing over a-broader range of plan- ning matters than others. Such a smaller grouping with more direct influences, is called Brewster's Local Area of Influence. From the facts discussed above, it seems apparent that Brewster has interdependence with the other communities of the Neuset Regional School District, because of their sharing of the administration and the relatively high cost of the school facilities. Therefore, these towns of Orleans, Wellfleet, and Eastham should be included in Brewster's Local Area of Influence. Because of their common boundaries, proximity, and the plan- ning implications inherent in this fact, the other towns immediately surrounding Brewster should be considered also as part of a Local Area of Influence. These towns are identified as Dennis, Harwich, and Chatham. There appear to be marginal interrelationships between Brewster and the other towns in the Cape Cod Planning and Economic Development Commission, so these towns are not considered as past of Brewster's Local Area of Influence. Therefore, the Local Area fined to include Dennis, Harwich Wellfleet. The Regional Area of diction of Cape Cod Planning and The limits of both the Local and shown on Figure 1. of Influence for Brewster is de- Chatham, Orleans, Eastham, and Influence is defined as the juris- Economic Development Commission. Regional Area of Influence are Impact from the Regional Area of Influence (Cape Cod) Characteristics of the Regional Area of Influence. Cape Cod is a fragile peninsula of sand and glacial debris possessing great natural beauty and attractiveness. For people from Montreal to Washington, D.C., Cape Cod is one of the leading choices for summer vacationland in New England, rivaled only by Martha's Vineyard, Nantucket, and the coast of Maine. The unique character of Cape Cod is expressed in its indige- nous landscape and architecture composed of ocean and sandy beach; salt marsh and salt creek; ever - present cranberry bogs; ponds sur- rounded by pine woods; virgin areas of native plains and wildlife; houses with naturally weathered shingles; small towns with neat, wood -frame commercial buildings; and boat yards, harbors, sailboats, and old rambling inns on the ocean. These are the major elements which contribute to the total effect of Cape Cod and are also those in the greatest danger of destruction by insensitive and uncontrolled development. 19 METCALF & EDDY, I N C. Population. In Table 1 is shown the existing and expected future popu a ion changes on Cape Cod between 1960 and 1980. A 51.4 percent increase in year -round residents is predicted. Summer residents are expected to increase by 88.1 percent, overnight visi- tors by 94.8 percent, and day- trippers by 73.0 percent. An increase in summer peak population of 75.9 percent is anticipated. Economy. Cape Cod's economic structure consists of two parts: one, the resort industry, and the other, the usual economic activities of a rural county. Table 1. Population of Cape Cod Component 1960 1970 1980 Year -round residents 70,300 86,200 106,400 Summer residents 126,000 176,000 237,000 Overnight visitors 26,900 39,900 52,400 Day- trippers 37,000 49,000 64,000 Total 260,200 351,100 459,800 For summer weekend days, add 25,000 33,000 42,000 day- trippers Summer peak population 285,200 384,100 501,800 Source: Blair Associates, Inc., Cape Cod 19 0. The resort industry has considerable economic potential but is hampered by the short season and inadequate development of the ocean shore and inland areas. Nevertheless, as shown in Table 2, large increases are predicted in future visitor expenditures on Cape Cod. Table 2. Visitor (in millions Expenditures on of 1960 dollars) Cape Cod Component 1960 1970 1980 Summer residents 62.3 99.2 150.3 Overnight visitors 15.4 26.4 41.5 Day- trippers 14.0 22.8 35.0 Total 91.7 148.4 226.8 Source: Blair Associates, Inc., Cape Cod 1980. 20 r r� One of the principal reasons for this Cape Cod National Seashore. It is predicted draw visitors at a rate of 10,000 per day by ,_ day by 1980.* increase will be the that the Seashore will 1970, and 20,000 per Many year -round Cape Cod residents feel that the resort in- dustry provides very little direct economic gain. Many resort establishments are owned and operated by off -Cape people. Most summer jobs are seasonal and low paying, so not attractive to regu- larly employed local persons. Therefore, they are taken by either off -Cape young people or dependent children of year -round residents. However, many year -round residents operate stores, guest houses, or gift shops as a supplement to their regular income. The main eco- nomic problem on the Cape, nevertheless, is the lack of an adequate year -round economic base; and this is the principal reason for a predicted future lower increase in per capita income for the year - round resident of Cape Cod than of the rest of Massachusetts, New England, or the United States. Housing and Land Use. In Table 3 is shown the predicted number of additional dwelling units and the amount of accompanying residential land needed on Cape Cod by 1980. Table 3. Housing and Residentia} Land Use Requirements of Cape Codll) Increase in all- Dwelling Acreage year and summer units Acreage avail - residents needed required able Cape Cod 147,400 40,500 22,500 117,400 1, Between 1960 and 1960. Source: Blair Associates, Inc., Cape Cod 1980. The amount of commercial land required in 1980 is expected to be about 75 percent greater than the amount presently in that use (629 acres). The predicted major growth businesses are hotels, motels, and commercial recreation such as summer theater, miniature golf, drive -in theater, etc. As the available and developable vacant land decreases, de- velopment pressures increase. Land considered in the past as safe from'development is no longer in that category. Assuming continuing general prosperity and population increase along the east coast (the population of the Northeastern States Region grew by 13.2 percent, 1950- 1960), more and more people will desire a summer or retirement home on Cape Cod. In addition, the available and developable vacant land in the towns on Cape Cod 21 METCALF & EDDY, INC. 0 west of Brewster (Bourne, Sandwich, Falmouth, Mashpee, Barnstable, Yarmouth and Dennis) is becoming scarce so that large -scale sub- dividers already are being forced on down the Cape to Brewster and beyond. Already most of the towns west of Brewster, particularly AA Yarmouth and Barnstable, are applying stringent controls over sub- dividers. This may cause developers to seek other towns with less stringent controls. _ Highways. There is little question that the four -lane Mid - Cape Highway, Route 6, will soon be extended from its present terminus in Yarmouth and become a full four -lane limited access highway for its entire length. This will improve accessibility to Brewster and other Mid -Cape and Lower -Cape towns, and in turn will increase development pressures in these towns. The construction of summer residences and the resort industry should experience increased growth. Comparison in the Local Area of Influence Population. As shown in Table 45 in comparison with the six other towns in the Local Area of Influence, Brewster ranks in terms of year -round population growth as follows: 1. The sixth highest numerical increase and the fifth highest percentage increase from 1940 -1950. 2. The lowest numerical increase and next to lowest (sixth highest) percentage increase from 1950 -1960. 3• The next to lowest (sixth highest) actual popula- tion in 1960 and lowest actual population in 1965 resulting from the next to lowest (sixth highest) numerical increase from 1960 -1965. Although Brewster was gaining population at an increasing rate between 1940 and 1960, it was receiving a decreasing propor- tion of the population growth in the Local Area of Influence. However, Brewster's decreasing share of the Local Area of Influ- ence population growth reversed with slight increase in proportion of area growth in the 1960 -1965 period from previous percentages of 8.5 and 5.5 of the growth between 1940 -1950 and 1950 -1960, respec- tively, to 6.5 percent in the 1960 -1965 period. Of the Local Area of Influence towns, Harwich has seen the most significant numerical increases. 22 I� n Population growth by component (migration and natural increase) gives some indication of the type of and reasons for increases. In Table 5, it is indicated that all of Brewster's population growth between 1955 and 1965 was due solely to in- migration. Although the major component of growth in the Local Area of Influence is in- migration, which accounted for approximately 90 percent of total growth, Brewster ranked second highest with over 100 percent of its growth due to this component. It appears, therefore, the influx of new - year -round residents is being felt most significantly by Brewster as compared to the majority of the Local Area of Influence towns. As shown in Table 6 which compares by a ratio total summer population to year -round population, Brewster is slightly below the Local Area of Influence average with the total summer residents being 4.3 times the year -round population. Although this ratio is fourth highest in the Local Area of Influence, Brewster still has the smallest total summer population. 23 METCALF & EDDY, INC, Table 4. Year -Round Population Change Population Change Change 1240 -1950 1950 -1960 last Town Num- ber Per- Mum- Per- Po ulation five cent ber cent 19.0 19b5 years Brewster Chatham 160 321 19.3 15.0 249 816 25.2 1,236 1,533 297 Dennis 484 24.0 15228 33.2 49.1 3,273 3,727 4,195 4,374 922 647 LL Eastham Harwich 278 114 47.8 4.5 340 15098 39,5 41.4 1,200 3,747 1,733 4,830 533 Orleans 308 21.2 583 33,1 2,342 3,181 1,083 839 We llf lee t 233 26.2 281 25.0 1.4o4 1,651 247 Local Area of Influence 1,898 18.2 4,595 37.3 16,929 215497 4,568 Sources: U. S. Census 1940, 1950, 196D. 1965 Mass.Decennial Census. n Population growth by component (migration and natural increase) gives some indication of the type of and reasons for increases. In Table 5, it is indicated that all of Brewster's population growth between 1955 and 1965 was due solely to in- migration. Although the major component of growth in the Local Area of Influence is in- migration, which accounted for approximately 90 percent of total growth, Brewster ranked second highest with over 100 percent of its growth due to this component. It appears, therefore, the influx of new - year -round residents is being felt most significantly by Brewster as compared to the majority of the Local Area of Influence towns. As shown in Table 6 which compares by a ratio total summer population to year -round population, Brewster is slightly below the Local Area of Influence average with the total summer residents being 4.3 times the year -round population. Although this ratio is fourth highest in the Local Area of Influence, Brewster still has the smallest total summer population. 23 METCALF & EDDY, INC, Table 5. Year -Round Population Movement, 1955 -1965 Local Area of Influence 5,881 508 8.6 5,373 91.4 1. Minus signs indicates decrease. 2. Excess of births to deaths. Source: Mass. Dept. of Commerce and Development. Table 6. Population gains i) aue to Seasonal Population, Na.tural(2) Net in- Popula- increase migration t i on Num- Per- Num- Per- Town gain ber cent ber cent Town residents idents(l) population population Brewster 361 -7 -1_9 9 368 101. 9 Chatham 1,079 162 15.0 917 85.0 Dennis 1,052 -40 -3.8 1,092 103.8 Eastham 626 40 6.4 586 93.6 Harwich 1,463 138 9.2� 1,325 90.6 Orleans 98o 97 9.9 883 90.1 We llf leet 320 118 36.9 202 63.1 Local Area of Influence 5,881 508 8.6 5,373 91.4 1. Minus signs indicates decrease. 2. Excess of births to deaths. Source: Mass. Dept. of Commerce and Development. Local Area of Influence 16,929 59,409 76,338 4.5 1. Summer residents are those who occupy a seasonal dwelling longer than two weeks. Both owners and renters of summer Cottages are included. Sources: U. S. Census, 1960. Blair Associates, Inc., Cape Cod 1980. 24 f' J Table 6. Compared Year -Round and Seasonal Population, 1960 Year- Total Ratio summer round Summer res- summer to year -round Town residents idents(l) population population Brewster 1,236 4,042 5,278 4.3 Chatham 3,273 9,737 13,010 4.0 Dennis 3,727 19,500 23,227 6.2 Eastham 1,200 6;622 7,822 6.5 Harwich 3,747 9,767 13,514 3.6 Orleans 2,342 4,607 6,949 3.0 Wellfleet 1,404 5,134 6,538 4.7 Local Area of Influence 16,929 59,409 76,338 4.5 1. Summer residents are those who occupy a seasonal dwelling longer than two weeks. Both owners and renters of summer Cottages are included. Sources: U. S. Census, 1960. Blair Associates, Inc., Cape Cod 1980. 24 f' J n In comparing selected year -round population characteristics of the town in the Local Area of Influence (see Table 7) Brewster has the following rankings: 1. The sixth highest (second lowest) percentage of its population under 15 years of age. 2. The fourth highest percent of its population over 65 years of age. 3. Of the six towns for which data is available, the second highest median family income. 4. Of the six towns for which data is available, the second highest median number of school years completed for those in the population 25 years of age and over. Table 7. Compared Population Characteristics Percent Percent 25.1 popula- popula- Median tion Lion Median school under 65 and family years Town 15 years over income completed Li Source: U. S . Census, 1960. It is evident that in the Local Area of Influence, Brewster can be characterized as having a relatively older, financially productive and well educated population. This seems to indicate, in conjunction the migration statistics, that Brewster is attracting a relatively greater amount of retired persons who settle in Brewster on a year -round basis. 25 METCALF & EDDY, INC. Brewster 25.1 18.0 5,817 12.4 Chatham 27.4 15.9 5,338 12.3 Dennis 24.1 22.7 5,119 12.2 Eastham Harwich 27.3 27.8 13.6 20.8 4,665 5,211 12.3 12.2 Orleans 25.2 18.7 5,833 12.5 Wellfleet 28.0 17.2 (1) (1) 1. Not available. Li Source: U. S . Census, 1960. It is evident that in the Local Area of Influence, Brewster can be characterized as having a relatively older, financially productive and well educated population. This seems to indicate, in conjunction the migration statistics, that Brewster is attracting a relatively greater amount of retired persons who settle in Brewster on a year -round basis. 25 METCALF & EDDY, INC. Employment. As shown in Table 8, in comparison with the other towns in the Local Area of Influence, Brewster had the following rankings: 1. The lowest total year -round covered employ- ment and the second lowest (sixth highest) covered seasonal employment in 1965. 2. The second highest year -round combined with the lowest seasonal percent gain in covered employment between 1955 and 1960. 3. The lowest year -round (only town in Local Area of Influence to decrease in employment) and second lowest seasonal gain in covered employment between 1960 and 1965. The seasonal and year -round covered employment gains in Brewster has not been comparable with the gains in the other towns in the Local Area of Influence. Whereas, Brewster's relatively small covered year- round employment fluctuations are significant in themselves, the substantial constant gain in the Local Area of Influence covered employment from 1955 -1965 is most significant in that the majority of Brewster's labor force is employed outside of Brewster.* Although Brewster's seasonal employment has increased, the majority of the Local Area of Influence towns have experienced a greater employment gain from the seasonal tourist impact. In Table 9 is compared the Local Area of Influence towns with respect to seasonal and year -round employment in tree major covered economic sectors of construction, manufacturing and wholesale, retail and service for the year 1966. There is no one major employment center in the Local Area of Influence,but the four towns with the highest year -round employment (Chatham, Dennis, Harwich and Orleans) account for almost all the manufacturing and approximately 92 percent of the trades and service employment. These same towns are also the centers of seasonal employment in the manufacturing and trade and service sectors. The covered construction employment level does not vary considerably on a seasonal and year -round basis and comprises between 20 and 50 percent of the total employment for the towns in the Local Area of Influence. *In '1960, there were more than five times the number of people in the labor force than covered employment in Brewster. 26 E'. r Table 8. Year -Round and Seasonal Employment Change Percent change in total covered Total 1965 covered employment employment(1) 1955-1960 196o-1965 Year- Year- Year - Town round(2) Seasonal(3) round Seasonal round Seasonal Brewster(4) 85 326 31.9 4.9 -10.5 17.7 Chatham 749 1,603 0.7 28.7 49.8 34.4 Dennis 772 1,705 42.1 33.5 79.9 66.3 Eastham 93 225 -6.5 33.9 60.3 54.1 Harwich 617 11432 25.6 26.4 16.4 17.8 Orleans 768 15271 16.3 13.6 43.8 52.4 Wellfleet 119 252 -23.2 19.7 24.0 6.3 Local Area of Influence 3,203 6,814 22.0 26.1 37.9 36.4 N 1. This includes employed persons covered under Mass. Employment Security Regulations. Covered employment includes virtually all manufacturing jobs and about 80 percent of all nonmanufacturing jobs. Major excep- tions are government jobs, nonprofit activities and self- employment. An accurate total employment (sum of covered and not covered) for small towns is almost unobtainable from any source. 2. Employment for month of November. 3. Employment for month of August. 4. Employment in Engineering and Architectural Services (SIC 891) are not included as there was an unusually large employment in 1960 for a special project which is not characterist -ic of the usual Brewster 3 m employment. n Source: Mass. Dept. of Employment Security. m O D { Z n Table 9. Year -Round and Seasonal Employment by Economic Sector,1966 Covered wholesale Covered and retail trade and Covered construction manufacturing service industry employment employment employment Year-(l) Year- Year - Town round Seasonal(2) round Seasonal round Seasonal Brewster 28 30 0 0 53 318 Chatham 169 189 17 28 458 1,363 Dennis 191 271 10 7 507 1,49+ ' N °O Eastham 41 39 0 0 44 181 Harwich 145 161 80 41 360 1,223 Orleans 180 179 56 90 567 1,087 We l if lee t 59 57 2 2 48 263 Local Area of Influence 813 926 165 168 2,037 5,929 1. Employment for month of November, 1966. 2. Employment for month of August, 1966. Source: Mass. Dept. of Employment Security. Only a very small percentage (2.8) of Brewster has been developed. The future land development pattern for the town is yet to be determined. There is sufficient amount of undeveloped land* still left that the town can "chart its future land course." It is the availability of land for development, as compared to the other towns, that will tend to attract the future development to Brewster. With more than 50 percent of the land in the Local Area of Influence available for development, it is essential that such items as continuity of development between communities, compatible zoning patterns ** and proper preservation of common natural resources to be studied and analyzed. The major existing development pattern consists of concentrations at the center of the towns and along the waterfront areas. Since much of the vacant land is on the periphery of each town, there is a good possibility that some of the future growth of the towns adjacent to Brewster will be in proximity to the growth in Brewster. This situa- tion will necessitate close coordination of future develop- ment, land subdivision plans, and open space and conservation plans between the towns involved, as it is not desirable to have incompatible planning policy at the common boundaries of the town. *An operational soils survey by the U. S. Soil Conservation Service has determined the suitability of the vacant land for development. * *Detailed discussion in section on Planning and Development Controls. 29 METCALF & EDDY, I N C. Brewster under does not have any manufacturing employment and present permitting zoning will not get any,since there is no zone manufacturing land uses. Land Development. As shown in Table 10, for the Local Area of Influence, Brewster ranks as follows in developed land and total town area: 1. The largest town in the Local Area of Influence. 2. The lowest number of developed acres and lowest percent of its total land area already developed. 3. The second highest acres of wetlands and sand. 4. The highest amount of land available for development. Only a very small percentage (2.8) of Brewster has been developed. The future land development pattern for the town is yet to be determined. There is sufficient amount of undeveloped land* still left that the town can "chart its future land course." It is the availability of land for development, as compared to the other towns, that will tend to attract the future development to Brewster. With more than 50 percent of the land in the Local Area of Influence available for development, it is essential that such items as continuity of development between communities, compatible zoning patterns ** and proper preservation of common natural resources to be studied and analyzed. The major existing development pattern consists of concentrations at the center of the towns and along the waterfront areas. Since much of the vacant land is on the periphery of each town, there is a good possibility that some of the future growth of the towns adjacent to Brewster will be in proximity to the growth in Brewster. This situa- tion will necessitate close coordination of future develop- ment, land subdivision plans, and open space and conservation plans between the towns involved, as it is not desirable to have incompatible planning policy at the common boundaries of the town. *An operational soils survey by the U. S. Soil Conservation Service has determined the suitability of the vacant land for development. * *Detailed discussion in section on Planning and Development Controls. 29 METCALF & EDDY, I N C. w 0 Table 10 . Compared Land Development(l) Percent Acres total of Acres available Total Acres town acres wetlands for develop- Town acres developed developed and sand ment(2) Brewster 145400 400 2.8 2,400 9,500 Chatham 105200 1,800 17.6 600 3,400 Dennis 13,200 2,600 19.7 2,800 7,300 Eastham 9,100 600 6.6 700 4,800 Harwich 13,400 2,300 17.2 2,000 8,600 Orleans 8,900 1,200 13.5 500 5,500 Wellfleet 13,100 800 6.1 900 3,100 Local Area of Influence 82,300 9,700 11.8 9,900 425200 1. As of 1962. 2. Does not include undeveloped land reserved for a specific purpose such as National Seashore and other large public holdings area and areas of wetlands and sand. Source: Blair Associates Inc., Cape Cod 1980. Housing. As shown in Table 11, in comparison with its neighbors, Brewster ranked as follows in the number of new houses built in the town since 1955. 1. The lowest in total number of housing starts and in average number of housing starts per year. 2. The highest percent increase of housing starts from the 1961 -1963 period to the 1964 -1966 period. Brewster's rate of new home building has been significantly lower over the last 12 years than all the Local Area of Influence towns except Wellfleet. However, recently Brewster's rate has been more than double the 12 year average and is accounting for an increasingly greater percentage of the housing starts in the Local Area of Influence. Schools. The four school characteristics most frequently examined in evaluating a school system by both local and perspective residents and teachers are: 1) pupil - teacher ratio; 2) maximum teachers salary; 3) equalized property valuation per pupil; and 4) expenditure per pupil. For the Local Area of Influence towns, and for the characteristics shown in Table 12, Brewster ranks as follows: 1. The lowest elementary pupil- teacher ratio 2. The second lowest (sixth highest) median salary for elementary teachers 3. The third highest equalized property valuation per pupil 4. The third highest elementary per - pupil expenditure. As shown in Table 13, in comparison with its neighbors, Brewster ranked as follows in public school enrollments as a percentage of total population: 1. The second lowest (sixth highest) percentage in 1955 2. The third lowest (fifth highest) percentage in 1965. 31 METCALF & EDDY, INC. Table 11. Compared Housing Starts 1955-1966- 955 -19 Average Actual er year Town Total per year 19 1 19 2 1963 1964 1965 19 Brewster 363 30.3 22 20 39 80 82 54 Chatham 1,038 86.5 114 103 102 130 136 ill Dennis 2,386 198.8 100 234 119 198. 226 178 Eastham 671 55.9 43 71 84 81 66 78 Harwich 1,359 113.3 105 93 141 150 192 119 Orleans 709 59.1 50 55 81 81 118 80 N Wellfleet 384 32,0 45 13 28 34 54 33 Local Area of Influence 6,910 575,8 479 589 594 754 874 653 Source: Mass. Div. of Labor and Industries. Table 12. Compared School Characteristics 0 z n Equalized Pupil- teacher Median teachers property Per pupil expendi- ratio 1966 -1967 salary 1966 -1967 valuation ture 1966 -1967 Ele- Ele- per pupil Ele- Town mentary Secondary mentary Secondary 1965 -1966 mentary Secondary Brewster 20.2 -(l) $6,700 -(1) $105,085 $601.19 -(1) Chatham 22.4 16.6 7,725 $7,550 72,799 646.08 $1,057.54(4) Dennis 21.8 19.1(2) 7,070 7,550(2) 71,233 6o4.84 815.69 Eastham 23.1 22.4(3) 7,057 6,goo(3) 110,619 526.27 704.63 Harwich 21.9 14.4 7,730 7,525 59,018 574.32 946.63(4) Orleans 23.5 22.4(3) 6,883 6,goo(3) 75,668 548.55 704.63 Wellfleet 24.0 22.4(3) 6,050 6,goo(3) 116,622 525.79 704.63 1. Brewster Secondary Pupils attended either Dennis - Yarmouth or Eastham-Orleans- Wellfleet High School. m 2. Dennis - Yarmouth Regional. High School District. 3. Nauset Regional High School District. T 4. Includes cost of high school pupils only. o Source: Mass. Dept. of Education. 0 z n Table 13. Compared School Enrollments Versus Town Population 1955 1965 Town Percentage Percentage Brewster 12.0 .12.0 Chatham 18.5 20.4 Dennis 12.3 15.5 Eastham 10.6 10.2 Harwich 18.8 22.5 Orleans 22.5 10.5 Wellfleet 16.8 14.5 Sources: Mass. Decennial Census 1955, 1965. Mass. Dept. of Education. Indications are that Brewster is similar to most of the resort communities in particular, the ones that attract retired persons. It has smaller portions of its population of school age and a relatively large tax base to support its public education facilities. Financial Situation and Ability to Pay. As shown in Table 14 in comparison with the towns in the Local Area of Influence, Brewster had the following rankings in various financial characteristics: 1. The second lowest (sixth highest) equalized tax rate* 2. The fourth highest net debt per capita 3. The lowest tax levy per capita 4. The second highest equalized property valuation per capita. In 1967, for Massachusetts towns with populations between 1,000 and 3,000 persons, the average equalized tax rate was $29.70. Thus, all three Local Area of Influence towns in this population range (Brewster, Eastham, and Wellfleet) were well below the state average as were the rates for the other towns in the Local Area of Influence in their respective population range. In comparison with its neighbors, Brewster is in a relatively favorable financial position in relation to ability to pay (equalized valuation per capita and median family income). *The equalized tax rate is that which would be in existence if property was assessed at 100 percent of its market value. 34 C n f� F I Table 14. Compared Financial Characteristics Equalized property Equalized Net debt Tax levy valuation tax rate per capita per capita per capita ., Town 1967 1967 196.7 1967 Brewster $10.10 $ 95 $203.70 $18,863 Chatham 21.70 276 333.50 9,015 Dennis 19.30 114 343.40 6,867 Eastham 13.30 24 286.70 18,787 Harwich 19.00 299 314.30 16,658 Orleans 19.70 68 310.40 14,368 Wellfleet 10.00 0 264.60 18,902 ources: Mass. Taxpayers Foundation Boston Safe Deposit and Trust Co. Municipal Water and Sewer Facilities. Of the Local Area of Influence towns only Brewster and Eastham do not have a municipal water system. All other towns have town systems* serving the majority of their population using a ground source of supply. None of the towns have a public sewage system; however, there are recommendations that systems be installed in the densely developed areas of some of these municipalities. Planning and Development Controls. Although the quality and appropriateness cannot readily be determined, the status of planning and development controls in the Local Area of Influence" appears to be sound as all towns have: 1. Planning Boards 2. Master Plans (Brewster, Dennis, Eastham are in process) 3. Zoning regulations 4. Subdivision regulation 5. Building code (no data available for Well-fleet). *Chatham is supplied by a private water company. * *Source: Town and City Monographs, Mass. Dept. of Commerce and Development. 35 METCALF & EDDY, INC. As shown in Table 15 the residential minimum lot size and frontage are about average for the towns in the Local Area of Influence. Table 15. Compared Residential Zoning Regulations Required minimum Required minimum Town lot size, sq ft lot frontage, ft Brewster 15,000 100 Chatham 40,000, 20,000 and 150, 100 and 10,000 50 Dennis 10,000 and 7,500 75 Eastham 20,000 135 Harwich 10,000 75 Orleans 20,000 120 Wellfleet 10,000 100 Source: Mass. Dept. of Commerce and Development, Monographs, 1965. The existing zoning along the Brewster town boundaries, both in Brewster and in adjoining towns is shown on Figure 2. There are some zoning conflicts which this map helps to locate. The need for coordination between towns is evident. The unrestricted zones in Dennis are a current problem. Conflicts can exist along most of the mutual boundary between the allowed commercial activities in Dennis with the allowed residential development in Brewster. The commercial zone in Orleans along the major portions of its mutual boundary with Brewster conflicts with the allowed residential uses in Brewster. The strip commercial zone in Brewster along Harwich Road is not consistent with the adjacent residential zoning in Harwich. Planning and Development Issues Based on an analysis of the above paragraphs, our findings and conclusions on planning and development issues caused largely by outside influences are as follows: 1. Owing to improved transportation accessibility, the large amount of undeveloped land suitable for development, the "filling up" of towns west of Brewster D n rmw, 1 a relatively low tax rate, the growing demand for recreational facilities, the increasing trend of the construction of retirement homes on Cape Cod and the opening of the Cape Cod National Seashore it appears that Brewster is ripe for increased development. Experience in similar situations indicates that once the desirable vacant land is developed in the towns lying closer to the access points to Cape Cod and near the oceanside, Brewster probably will face "the develop- ment wave." When this will occur is difficult to forecast. However, sometime during the next 10 years is a "safe bet." The opening of a large subdivision such as the proposed Cape Lands development could herald this "new wave of development." 2. The increasing population,both seasonal and year round,have changed drastically the requirements for municipal services of water supply and sewage and refuse disposal. In order for Brewster to supply these services in a manner which is practical and financially acceptable, development issues such as future land use areas, residential lot sizes,,and utility service areas have to analyzed and future plans formulated. 3. The development issues of the entire Cape Cod area that have particular important implications for Brewster as stated by the Cape Cod Planning and Economic Development Council is as follows: "For the most part, the fundamental problems of Cape Cod fall into two categories: first, those related to the use and abuse of Cape land and the Cape environment, and second, those that stem from the highly seasonal character of the Cape's economy with its dependence on the tourist and vacation industry. ....Perhaps the most important question is whether Cape Cod is prepared to extract the most advantage from its potentials for the benefit of all its residents. The Cape cannot avoid the economic trends and other influences generated in the national, regional and state economies. It is unlikely, 37 METCALF & EDDY, INC. J for example, that Cape Cod could ever come to rely on manufacturing employment as a dominant factor in its economic structure. ...This means that Cape Cod must look elsewhere for job- creating business investment, to the service industries, and, perhaps, to a limited . extent to research and development facilities, but chiefly to further develop- ment of its vacation - resort industry. If the Cape is to realize this prospect and establish its basic vacation- resort industry at a maximum value - producing level, it must look to the preservation of the special environmental character of Cape Cod. The unsightly, sprawling, commercial strip development in many sections of the Cape requires a search for new standards encouraging more appropriate real estate development."* 4. The pressures on Brewster for new residential lands and for the preservation of public conservation and recreation areas indicate a need to balance these pressures by identifying the major long range develop- ment goals and to formulate town policy toward interrelating these demands for land. The use and need for conservation land in Brewster is an issue at this time' and its own future policy toward town -owned open spaces for conservation and recreation must be determined-,as well as its future role with respect to regional open space needs. 5. In absorbing and controlling the increased development of Brewster while maintaining the unique and vulnerable character of the area the following very important zoning issues will have to be analyzed in relation to the future land use plan: the relative balance between single family homes, lodging houses and motels, the control of sign and billboards, the future type and character of the business zones along State Route 6A and methods of controlling and preserving the good elements in the.existing character of development. *Cape Cod Planning and Economic Development Commission, Toward a Regional Planning and Economic Development Program for Cape Cod, 196b. 38 El 11 i� Certain potentials exist in Brewster for future development. Many similar conditions exist in the other Local Area of Influence towns. Brewster's role in the end Will depend largely on its policies in comparison to those in adjacent towns. It is through the combined efforts of regional planning and local planning that development issues can be discussed and policy formulated. The major planning and development issues result- ing from external pressures on Brewster have been identi- fied here. Now the inventory surveys continue with investi- gations of land use, land suitability, population and economic activity within the town. 39 METCALF & EDDY, INC. EXISTING LAND USE AND LAND VALUES Delineation of Planning Districts Within the Town of Brewster, there are distinct village associations, or neighborhoods. These neighborhoods, which we have designated as Planning Districts, are useful and will be used throughout this report or the purposes of data collection and analysis and for the purpose of making projections. The five districts which we have identified in Brewster, are as follows: 1. West Brewster 2. Central Brewster 3. East Brewster 4. Ponds District 5. Park District The locations and boundaries of these districts are shown on Figure 3. Survey and Mapping During April 1968, a field survey was made of existing land uses in Brewster. These were recorded by a 22- category land use classification system, which was approved by the Cape Cod Planning and Economic Development Commission. A large hand - colored map of existing land uses, at a scale of 1" = 800' is on file with the Planning Board. Figure 3 is a generalized representation of that map. For report purposes, nine land use categories were used. Each land use category is defined as follows: Developed Uses Residential Year -round and seasonal residential structures, rooming and lodging houses, plus yards and out- buildings. Commercial Year -round and seasonal retail and service establish- ments, professional and related service establish- ments, motels and cabins, and automotive and marine establishments. 4o rl fJ METCALF & EDDY INC. ENGINEERS &PLANNERS Boston • Now York • Palo Alto Fig. MASTER PLAN tEWSTER, MASSACHIJISETT; �M.eE. 1%8 EXISTING LAND USE Residential Commercial Industrial and Utility Institutional Town Buildings and Lands Recreational and Conserved Open Space Non - Recreational Open Space Wetlands Water Circulation PAR' "STR,, Planning District Name mae m Planning District Boundary MASTER PLAN tEWSTER, MASSACHIJISETT; �M.eE. 1%8 EXISTING LAND USE 0 Industrial and Utilities Light industrial plants; quarries; warehousing, storage, and construction firms; and transporta- tion, communications, and utilities land (in- cluding railroads). Institutional Semipublic and public buildings and lands other than town lands and recreational and conserva- tional lands, such as: church, post office, non- profit clubs and fraternal organizations. Town Buildings and Lands All lands owned by the Town of Brewster or the people of Brewster plus the buildings upon them. Circulation Streets, highways, and bridges. Recreational and Conserved Open Space Public and private camps, camping areas, play- grounds, and conservation areas (including Nickerson State Park). Undeveloped Uses Nonrecreational Open Space Agricultural and nonrecreational open space uses and vacant land. Wetlands and Water Swamps, marshes, and other major areas subject to flooding. Ponds, large brooks, and other large bodies of water. Pattern The developed land use pattern is centered on the area adjacent to and north of Route 6A. To the south of this area, there are large tracts of sparsely developed rural land, with individual houses strung out along improved roads or spread along pond shores. FA 41 METCALF & EDDY, I N C. Originally, development was centered in West Brewster, which was known as Factory Village. "Industry" in this area ex- panded from a lone grist mill of the seventeenth century to a tannery and woolen mill in the nineteenth century. Later, the "old mill" was used for the manufacture of overalls and even as a family residence.* As the agricultural and small manufacturing interests de- clined on the Cape, the seasonal commerce grew to take its place. The town center developed near the intersection of the three state highways which pass through the town, and residential and commer- cial land uses spread from this center along the full length of Route 6A. Later development covered nearly all of the developable seashore and is now proceeding around the many ponds. Seasonal residential structures are concentrated along the ocean shore. There are a growing number of these units, however, within the Ponds District. A principal land use in Brewster is recreational and con- served open space. The Parks District, containing Nickerson State Park, has almost 90 percent of its land in this category. Other principal areas of this land use are found around Long, Griffiths, Blueberry and Walkers Ponds, along Paine Creek and along the ocean front. Tabulation The acreage the nine - category in Table 16. The presented in Table Intensity of each developed and undeveloped land use in system, together with percentages, are listed land use acreages for each Planning District are 17.** A significant factor to be considered in analyzing land use is density of development, or the intensity of land use. Certain soil conditions will permit a more intense use of the land, even where on -lot sewerage and water systems are in use. On the other hand, poor soil and slope conditions should prescribe a less in- tense land use. This is particularly important in Brewster, where there is neither a public water supply nor a public sewage disposal system. *Information from the Brewster Historical Society. * *The areas of each developed and undeveloped land use in the twenty- two - category system are listed in Appendix A. 42 r 0 n Table 16. Tabulation of Existing Land Uses Use Acres Percent of developed land Percent of total land Developed Residential 680 16.0 4.2 Commercial 57 1.3 0.4 Industrial and Utilities 256 6.1 1.6 Institutional 114 2.7 0.7 Town Buildings and Land 535 12.6 3.3 Circulation 676 15.9 4.2 Recreational and con- 1,926 45.4 12.0 served open space Total developed 41.2.44 100.0 26.4 Percent of land Undeveloped Nonrecreational open 9,647 81.4 59.9 space Wetlands and water 2,211 18.6 13.7 Total undeveloped 11,858 100.0 73.6 Total town area 16,102 100.0 Source: April 1968 Field Survey and Tabulation by Metcalf & Eddy, Inc. 43 METCALF & EDDY. INC. Table 17. Tabulation of Existing Planning District Land Uses(1) In Acres East Central West Park Ponds Brew- Brew- Brew- Dis- Dis- Use ster ster ster trict tract Total Developed Residential 152 313 60 10 145 680 Commercial 16 31 10 - - 57 Industrial and 41 47 30 74 64 256 Utilities Institutional 50 50 14 - - 114 Town Buildings 2 95 62 320 56 535 and Lands Circulation 130 224 51 77 194 676 Recreational 226 55 30 1,447 168 1,926 and conserved open space Total 617 815 257 1,928 627 44244 Undeveloped Nonrecreational 950 1,606 970 2,021 4,100 9,647 open space Wetlands and 218 219 247 356 1,171 2,211 water Total 1,168 1,825 1,217 2,377 5,271 11,858 Total acres 1,785 2,640 1,474 4,305 5,898 16,102 (1 )For locations of the Planning Districts, see Figure 3. April 1968. Source: Field Survey and tabulation by Metcalf & Eddy, Inc. 44 D D Under existing town zoning, the minimum lot size for areas is 15,000 sq. ft. However, much of the development occurred before the adoption of zoning in 1960. Consequently, the average lot sizes of residential property between Route 6A and the beach are 5,000 to 10,000 sq. ft. Many lots are as small as 3,000 sq. ft. Throughout much of the rest of the town, residential lots also average less than 10,000 sq. ft. Such intense use of the land, even under the best of soil conditions, must strain the ability of the on -lot systems to function properly. This strain will only increase with time. As each leaching field reaches capacity, it will have to be relocated, and relocation on such limited lots may not be possible. Land Values Assessed values in dollars per acre vary considerably throughout the town dependent upon such factors as: location on or off street, soil conditions, topography, lot size, frontage, size of total holding, compatibility of adjacent uses, adjacent street improvements, adjacent traffic flow, neighborhood "image" and past history of sales. , Based upon a random sampling of assessed land values (which are closely allied with actual land values), we have determined that these values vary from nearly $30,000 per acre for certain lots at the beach to less than $500 per acre for back land (land lacking paved street frontage). The highest residential values* occur at four settlements adjacent to the beach. Other areas along the beach which are less highly developed range in price from $2,000 to $10,000 per acre. The majority of the land adja- cent to Route 6A and some other principal streets is valued at $2,000 to $5,000 per acre. Land along most of the roadways, how- ever, is valued at $500 to $2,000 per acre. There is little commercial property in Brewster (only 0.4 percent of the total land).. Such property in Central Brewster has been valued at nearly $10,000 per acre. Commercial property along Route 6A in East and West Brewster, averages approximately $1,000 to $3,000 per acre in value. Total valuation in the town was approximately $30,518,000 in 1968. This includes land and property values. Assuming that one -half to two - thirds of the valuation is land value alone, the average value per acre is $1,000 to $1,300. Although some of the shoreline values are competitive with similar areas in nearby towns, the majority of the land in Brewster, particularly the areas around the ponds, is valued lower than in most Cape towns. Consequently, the land prices throughout southern Brewster are apt to rise. Competition for land may be slowed somewhat by the lack of public water or sewerage. Nevertheless, the demand for recrea- tional and residential /retirement land on the Cape can be expected to spread to Brewster. 45 METCALF & EDDY. INC. Implications for Future Development Based on our population and economic projections, it is predicted that by 1985, developed land in Brewster will increase from the present 3,854 acres to between 4,400 and 4,800 acres. It is expected that the principal increase (350. to 810 acres) will be residential. Other major increases may be expected in the cate- gories of commercial and institutional land.* As discussed above, the existing lot sizes throughout the developed areas of the town appear to be insufficient to support the on -lot water and sewerage systems. Generally, our recommenda- tion for year -round residential lot sizes with both systems on -lot, even under the best of soil conditions, averages 30,000 sq. ft. Of course, areas with high percentages of seasonal units, which make use of the on -lot systems only a few months per year, would be able to function with smaller size lots. Nevertheless, even small seasonal lots can create problems after a number of years, for eventually even their systems will degenerate and require re- location. In addition, the town should protect against the likely conversion of seasonal structures to year -round uses. These facts imply, therefore, two immediate needs in Brewster: 1. The strict control of land use intensity in the town. 2. The installation of a public water system in Central Brewster. A public water system to serve Central Brewster will alleviate some of the pressing problems in that area of the town. However, in order to preclude a similar immediate need for public services throughout other scattered areas, land use policy and controls must be developed which will correspond to town plans for public service extension, school building, tax base development, and all other community facility development. The proposed distribution of these various land uses among cate- gories and their location is discussed in later appropriate chapters found in this report. 46 0 E L PHYSIOGRAPHY This study is undertaken to identify the natural resources of Brewster's physical base. In ,addition, the study indicates the types of development for which the land of the town is suitable. Discussed in detail below are characteristics of the physical features of Brewster, characteristics of the soil types in the town, and the extent of suitable developable land. Climate Brewster's weather varies sufficiently during the year to include conditions typical of all four seasons. Snowfall, however, is light in comparison with the remainder of New England. Normal temperatures and precipitation average 30.4 degrees and 4 inches, respectively, in January and 70.4 degrees and 2.6,inches, respectively, in July. In total, annual precipitation averages approximately 40 inches. Prevailing wind is from the southwest. Topography The land to the north of Route 6A is fairly level, particularly the marsh areas of East and West Brewster. South of 6A the land rises in the irregular hills of the Sandwich Moraine, a glacial deposit of till which was laid down as the glacier retreated. Elevations in the northern portion of the town average less than 50 ft. m.s.l. (mean sea level), while the areas to the south average 100 ft. m.s.l. The high point in town is approximately 140 ft. m.s.l. (See Figure 4 for the location of typical elevations). Natural Resources Due to its location on Cape Cod, Brewster is endowed with a variety of exceptional natural resources. In addi- tion, Brewster has been fortunate in retaining large portions of its landscape in a natural state. To an extent, this has been accomplished by public or group acquisition of land. It has been possible also because of the vast acreages which are either water bodies or undevelopable as coastal or inland boos and wetlands. (See Fi -ure 4) Brewster con- tains all or portions of twenty -four 'great ponds", ponds which are over ten acres in size. These ponds, and the average and maximum depth and mean sea level elevation of each, are listed in Table 118. There are an additional six- teen ponds in the town which exceed three acres in size. In total these water bodies comprise approximately 1164 acres. 47 METCALF & EDDY. I N C. Table 18. Great Ponds(1) Depth in Feet Elevation in Feet Name Average Maximum m.s.l.(2) Totally in Brewster 1. Blueberry 10.4 24 26 2. Canoe N.S. N.S. 27 3. Cliff 32 88 26 4. Cobbs N.S. N.S. 11 5. Elbow 12.9 31 30 6. Flax 26 75 24 7. Greenland N.S. N.S. 31 8. Griffiths 31 15 33 9. Higgins 28 67 24 10. Little Cliff 18 34 25 11. Lower Millpond N.S. N.S. 25 12. Pine N.S. N.S. 13. Sheep 29 39 14. Slough 13 20 28 15. Smalls N.S. N.S. 31 16. Smith N.S. N.S. 27 17. Upper Mill 18 29 26 18. Walkers 7 26 Partially in Brewster 19. Baker (Orleans) 18 54 21 20. Cahoon Harwich 4 14 31 21. Grassy (Harwich) (dries up in summer) 32 22. Long Harwich 23 66 31 23. Mill (Harwich) N.S. N.S. 31 24. Seymour (Harwich) 20 38 29 N.S. - not sounded, or sounding figures not available 1. - Great Pond is defined by Massachusetts law as any pond of 10 acres or more 2. - m.s.l. - mean sea level Source: Massachusetts Department of Natural Resources a � �j g� o� 3 m r T 90 m 0 0 v z Z E o m Z o Z D m m o �p N 90 r D Z Z m m N a a O The salt -water shoreline in Brewster with five public landings, is about 52 miles long. Because of the strong tides of the Massachusetts Bay, this northern shore of the Cape has been subject to less intense recreational development than have the communities along Nantucket water resource has in itself heledto Sound. Thus, this atmosphere of Brewster. Ten ponds in the etowneareeavqailable for public use via landings or within Nickerson State Park. To date, development around the ponds has been minimal. Two fresh water creeks (Quivett and Namskaket wholly or partially in Brewster .Mand one brook (Stoney Brook) empty into the bay. Stoney Brook, in particular, is valuable for the protection of the alewife's breeding ground. In fact, the alewife has been known to travel through Upper and Lower Mill- ponds as far as Walker's Pond during its spring and summer breeding period. Other resources, either geologic, historic, or scenic, are found throughout the town. The most prominent of these resources, as shown on Figure 4, includes geologic features, CD such as No Bottom Pond (a kettle hole), Stoney Brook Valley, and the large rock deposits behind the Old Mill;and publicly or semi - publicly owned land, such as Nickerson State Park, town watershed land, and the Cape Cod Museum of Natural History land. Not indicated on the map are the fine forests or smaller swamps and bogs which abound throughout Brewster. These resources will be considered more fully in the Recrea- tion and Conservation chapter of this report. General Soils Areas In conjunction with the preparation of this report, the Soil Conservation Service of the U. S. Department of Agriculture carried out an operational (detailed) soils survey. This survey identified in the field, by means of borings, the types, position and water content of all. soils in the town. Brewster's soils were classified according to twelve major categories, each named for the town or area in which it was first identified. In addition, there are wet soils which are characterized as muck, peat, marsh, etc. and areas classified as gravel Pits, man made land, or water. The town is composed of the following amounts of each *: 1. Major associations - 83.8 percent of total town classified* 2. Wet soils - 7.9 percent of total town classified* *Excluded from the soils study was the entire area of Nicker- son State Park. 49 f METCALF & EDDY, INC. C *Excluded from the soils study was the entire area of Nickerson State Park. 50 Man made and 3� gravel pit soils - 0.5 percent of total town classified* 4. Water - 7.8 percent of total town classified* A single soil association, the Carver soil, is dominant throughout the town. It comprises nearly 77 per- this cent of the soils in the town. Three basic types of sand type, a very stony one soil were identified, a coarse sand with a compact sub- coarse sand type, and a coarse sand type is found throughout stratum type. The coarse the town south of Route 6A. The very stony coarse sand occurs in patches along the higher elevations of the glacial moraine. These two associations are characterized that are underlain by by coarse, droughty sand surfaces sand streaked with gravel and a deep deposits of similar few cobblestones. The second category is strewn more the heavily with larger stones. The third association of basic Carver soil contains the same characteristic upper layers but is underlain by a substratrum layer of impene- 4. to 12 feet. trable clay like material at depths of These three associations were deposited by glacial (0 -15percent) outwash, some of them as level to moderate (15 t o 35 percent) slopes. slopes and others as steeper of lesser slopes are generally suitable The Carver soils for residential, commercial, or industrial building with on -lot sewerage systems, but because of their droughty nature they pose problems for the growing of lawns and with steeper slopes landscaping plants. The same soils are generally unsuitable for large -scale development, al- though they can be suitable building sites in particular cases. In general these soils have severe limitations for wildlife sites but fewer limitations for some kinds of absorb recreational uses. They are very permeable and can they provide large amounts of sewage effluent. However, and groundwater may become pol- little filtering action, luted near sources of contamination. The loose, coarse lower layers also act as a vast reservoir for underground will water, and wells located within their area usually yield large volumes of water. The other major type of soil found in Brewster is the wet soil. Many kinds of soil have.been identified, *Excluded from the soils study was the entire area of Nickerson State Park. 50 including muck, peat, salt and inland boo, and various types of loamy sands comprising the largest amount of land boos (over 350 acres) and tidal marsh acres). marsh, cranberry and silts. Those area are cranberry (approximately 325 Cranberry bogs are generally composed of about a foot of sand deposited over the original organic soil. Ditches have been dug and water - control structures in- stalled. The aim is to allow the areas to be quickly flooded in spring and fall and to be partially drained during the summer. Also, some bogs have been built on very poorly drained mineral soil. Tidal marshes are subject to inundation by sea water. Their composition varies greatly but most have a thick organic surface layer. Tidal marshes are sep- arated as a soil type from adjacent areas of peat or muck, chiefly on the basis of kind of vegetation. Other wet soils, such as the poorly drained Au Gres, Deerfield, Raynham and Scarboro types, are loamy sand or silts underlain by coarse sand. The water table is at or near their surface for most months during years of normal rainfall. CD Many tracts within the wet soil areas provide good habitat for wetland wildlife, or can be improved for this use with relative ease. Because of wetness, this general soil area has severe limitations for residential, commer- cial, industrial, and similar developed uses. In addition, these organic soils, in comparison with mineral soils, can support only very light weights. The third type of soil identified is a minimal element of Brewster's physical base. In this type, the top layers of earth have either been removed or man made materials have been spread over the soil, interrupting the natural soil types in their areas. not classified for their use suitability Tbysthe oSoilw Con- servation Service. The fourth type of ground cover in the town is water, a surface exposure of the ground reservoir existing beneath the town. Detailed Soils Suitability The soil survey identified the several soil types in Brewster, each of which was evaluated for its limitations or suitability for the following seven uses: 51 METCALF & EDDY, INC. 1. Septic tank sewage disposal 2. Commercial and industrial sites (with on -lot sewage disposal) 3. Home sites 4. Wetland or wildlife sites 5. Sanitary landfills 6. Sources for sand and gravel 7. Roads In addition, the soils were evaluated for the following two characteristics: 1. Surface run -off 2. Depth to seasonal high water level An individual detailed map for each use or character- istic has been prepared at a scale of 1" = 1,3201 and is on file with the Brewster Selectmen. An accompanying interpre- tive report describes the survey and spells out in detail the limitations or relationship for each use. A tabulation of suitabilities for the town in each of the above categories is presented in Table 19. The figures in Table 19 indicate that much of the town has a high degree of surface run -off and severe limitations for wetland and wildlife reserves. The high water table allows for reliable supplies of ground water, but the droughtiness of the soils creates moderate to severe limitations in most of the town for homesites. Developable Land On Figure 5 is indicated the development potential for land in Brewster. The map presents a generalization of the soils survey which is sufficient for general planning purposes. It is important to note here that soils and their limitations for individual sites should be evaluated only from the detailed soil maps on file with the Brewster Selectmen and, in some cases, with additional on -site soil borings. 52 cop• cos Boy METCALF & EDDY INC. ENGINEERS & PLANNERS o � woo swo Boston •New York •Palo Alto Table 19. Land Suitability(l) Acres of Land, Degree of Limitation(2)— 9, Seasonal High Water Table 1,174 153 12,345 1,252 1. For general planning purposes, the mapping of developable land places land with only moderate limitations for development of residential, commercial, and industrial uses based upon the droughty nature of the soil, into the map category of "develop- able. 11 2. Not included in this table are 1,178 acres in Nickerson State Park which were excluded from the soil survey. Source: U. S. Dept. of Agriculture, Soil Conservation Service survey report for Brewster. 53 METCALF & EDDY, INC. Water and Use Slight Moderate Severe Unclassified 1. Septic Tank 4,992 3,453 5,138 1,341 2. Commercial/Indus- trial Sites with On -Lot Sewage Disposal 1,328 7,170 5,224 1,252 3, Home Sites 16 8,965 43691 13252 4. Wetland /Wildlife Sites 857 328 125487 1,252 5. Sa nitar y Landfill 4,992 3,812 43868 1,252 6. Sand and Gravel 611 1,252 Sources 13,016 45 7. Roads 4,992 3,885 4,795 1,252 Acres of Land, Rate(2) Low Moderate High 8. Surface Runoff 113978 312 13382 13252 Acres of Land, Depth(2) Low Moderate High 9, Seasonal High Water Table 1,174 153 12,345 1,252 1. For general planning purposes, the mapping of developable land places land with only moderate limitations for development of residential, commercial, and industrial uses based upon the droughty nature of the soil, into the map category of "develop- able. 11 2. Not included in this table are 1,178 acres in Nickerson State Park which were excluded from the soil survey. Source: U. S. Dept. of Agriculture, Soil Conservation Service survey report for Brewster. 53 METCALF & EDDY, INC. On Figure 5, the vacant land in the town is classified, based upon the soil survey, as suitable for development, diffi- cult to develop, or unsuitable for development. The acreages in each of these categories are listed in Table 20. Table 20. Developable Land Percent Land Category Acreage of Town Developed and committed land State park land Water Vacant land a. Suitable for development b. Difficult to develop C. Unsuitable for development 3,066 19.1 1,178 7.3 1,164 7.2 6,857 42.6 314 1.9 3,523 21.9 Source: U. S. Department of Agriculture, Soil Conservation Service survey. Mapping, and tabulation by Metcalf & Eddy, Inc. It is apparent from the map and table that large portions of Brewster are susceptible to development. These suitable areas, in particular, should be provided with adequate and acceptable development controls. Recommended Lot Sizes The recommended minimum lot sizes, based only on land suitability and utilities.are presented in Table 21. Included as notes to this table are sources indicating the reason for select- ing those sizes. As indicated in the Existing Land Use chapter of this re- port, lot sizes vary drastically throughout Brewster. In many areas along and to the north of Route 6A, lots are 10,000 square feet or less. The town has been fortunate to have had only one con- tamination problem thus far. This has been possible because of the limited, seasonal use of on -lot systems and, more recently, 54 n ri i� by its zoning requirement of 15,000 square foot minimum lots. It is obvious, however, that many areas in Brewster are serviced with both on -lot water and on -lot sewerage systems where the pre - dominent lot size is far too small to offset the danger of well contamination. In fact, in some areas, the lot sizes would be too small to support adequately a private on -lot sewerage system, even if the buildings were served with public water. It should be noted here that because of the porous soils found throughout the Cape, a lack of care in the disposal of sewage effluent could result in the contamination of even public water supplies. There are few surface water supplies in the area, and consequently, the permeable soil must serve both supply and disposal functions. This problem could become more preominent as the Cape takes on a more year -round role. Public sanitary sewerage syste (pipes, pump stations, treat- ment facilities, etc., and public Under Under Possibly water system) 10,000 sq. ft. 10,000 sq. ft. suitable 55 METCALF & EDDY, I N C. Table 21. Recommended Minimum Lot Sizes Minimum lot sizes Poorly drained Wet soils Well to average soils and and ground - drained soils groundwater water at or Required and groundwater below 4.5 ft., below difficult 4.5 ft., to near not surface, suitable utilities suitable land develop land land Public storm drainage system (curbs, gutters, pipes, pump stations, etc.) 203000 sq. ft. 40,000 sq. ft. Not suitable Private storm drains (swales, occasional) pipe, etc. 40,000 sq. ft. 40,000 sq. ft. Not suitable Public sanitary sewerage syste (pipes, pump stations, treat- ment facilities, etc., and public Under Under Possibly water system) 10,000 sq. ft. 10,000 sq. ft. suitable 55 METCALF & EDDY, I N C. Table 21(Continued). Recommended Minimum Lot Sizes Private on -lot sewerage system (septic tank - leaching field) and private on -lot water system (artesian or gravel - packed deep well)(2) 30,000 sq. ft. Public water system (source, pump stations, pipes, storage tanks, etc.) and private on -lot sewerage sys- tem(2) 15,000 sq. ft. Private on -lot water system (well) and public sewerage system 40,000 sq. ft. NOTE: 1 acre = 43,560 sq. ft. 60,000 sq. ft. Not suitable 35,000 sq. ft. Not suitable 401000 sq. ft. Not suitable 1. These recommended lot sizes are for single - family, year -round dwellings. Although seasonal dwellings will not require as large a lot size, Brewster should be cognizant of the possible conversion of seasonal dewlling to year -round uses. 2. Assumes that public sewerage is not likely. However, if public sewers are expected within the next 30 years, these minimum lot size standards could be reduced. Sources: Drainage.- Experience throughout the United States. 56 r n C,� n Minimum lot sizes Poorly drained Wet soils Well to average soils and and ground - drained soils groundwater water at or and groundwater below 4.5.ft., near surface, Required below 4.5 ft., difficult to not suitable utiliites suitable land develop land land Private on -lot sewerage system (septic tank - leaching field) and private on -lot water system (artesian or gravel - packed deep well)(2) 30,000 sq. ft. Public water system (source, pump stations, pipes, storage tanks, etc.) and private on -lot sewerage sys- tem(2) 15,000 sq. ft. Private on -lot water system (well) and public sewerage system 40,000 sq. ft. NOTE: 1 acre = 43,560 sq. ft. 60,000 sq. ft. Not suitable 35,000 sq. ft. Not suitable 401000 sq. ft. Not suitable 1. These recommended lot sizes are for single - family, year -round dwellings. Although seasonal dwellings will not require as large a lot size, Brewster should be cognizant of the possible conversion of seasonal dewlling to year -round uses. 2. Assumes that public sewerage is not likely. However, if public sewers are expected within the next 30 years, these minimum lot size standards could be reduced. Sources: Drainage.- Experience throughout the United States. 56 r n C,� n R, In some communities, 70 or 80 gallons of water per person are used while a decade or so ago the con- sumption rate was only 50 gpd. per person. To allow for this trend in increased water usage, 120 gpd. per person is used for designing water supplies. At a consumption rate of 120 gpd. per person, one acre of land in Brewster, on the average, assuming an even density of development over a large area can provide enough water to support 3.5 persons the estimated number of persons in the average future Brewster family. Thus, in areas where a public or piped water system is not available, the development density should not be greater than one family per acre or about one family per 40,0000 square feet. Sewerage - In the American Society of Civil Engineers publication "A Study of Sewage Collection and Disposal in Fringe Areas" Vol. 84, Paper 1613, 1958, it is recommended that one acre be considered as the minimum lot size in areas dependent upon both on -lot water and sewerage systems. Detailed studies done by Metcalf & Eddy in 1968 for the Cen- tral Massachusetts Regional Planning Commission on the same subject have revealed that while one acre or less should be satisfactory in average to well - drained areas, 60,000 square feet is a more desirable minimum in poorly drained areas. This assumes that public water will be provided in 20 years, but the area is not likely to have public sewerage. These acreages provide sufficient land area for three relocations of the leaching field on the lot and still not contami- nate the on -lot water supply. The final size for an individual lot should be determined by detailed soils, ledge, and groundwater investigations. 57 METCALF & EDDY, INC. Sources: (Continued) Water - Groundwater for domestic use originates as rainfall. Assuming a 100 percent safety factor to allow for uneven availability of groundwater and variations in the amount of precipitation during the several months of the year, there should be about 5 -3/4 inches of precipitation available annu- ally for domestic water supply. For a house with its own well on an acre of ground, this means that there are about 150, gallons of groundwater available for domestic use per year, or about 420 gpd. (gallons per day). In some communities, 70 or 80 gallons of water per person are used while a decade or so ago the con- sumption rate was only 50 gpd. per person. To allow for this trend in increased water usage, 120 gpd. per person is used for designing water supplies. At a consumption rate of 120 gpd. per person, one acre of land in Brewster, on the average, assuming an even density of development over a large area can provide enough water to support 3.5 persons the estimated number of persons in the average future Brewster family. Thus, in areas where a public or piped water system is not available, the development density should not be greater than one family per acre or about one family per 40,0000 square feet. Sewerage - In the American Society of Civil Engineers publication "A Study of Sewage Collection and Disposal in Fringe Areas" Vol. 84, Paper 1613, 1958, it is recommended that one acre be considered as the minimum lot size in areas dependent upon both on -lot water and sewerage systems. Detailed studies done by Metcalf & Eddy in 1968 for the Cen- tral Massachusetts Regional Planning Commission on the same subject have revealed that while one acre or less should be satisfactory in average to well - drained areas, 60,000 square feet is a more desirable minimum in poorly drained areas. This assumes that public water will be provided in 20 years, but the area is not likely to have public sewerage. These acreages provide sufficient land area for three relocations of the leaching field on the lot and still not contami- nate the on -lot water supply. The final size for an individual lot should be determined by detailed soils, ledge, and groundwater investigations. 57 METCALF & EDDY, INC. POPULATION Size Year -Round Population. The U. S. Census in April 1960 re- corded 1,236 persons living in the Town of Brewster. The State Decennial Census of 1965 recorded 1,533 persons (see Table 22). Usually, for Massachusetts towns, it is difficult to correlate the Federal and State census figures. In Brewster, however, based upon data which was gathered by a count of houses in the town, we find no reason to reject the year -round figures of either of these two censuses. In fact, by using the housing information, we were able to estimate the 1968 population to be 1,790. Historic changes in Brewster's population are listed in Table 22 and illustrated on Figure 6. The population grew slowly during the first four decades of the twentieth century. In fact, during the late 19301s, Brewster experienced a decline in its growth rate, which corresponded to a national decline in growth. Table 22. Population Change unange Year Population Number Percent 1910 631 - - 1920 688 57 9.0 1930 769 81 11.8 1940 827 58 7.5 1950 987 160 19.3 1960 1,236 249 20.1 1965 1,533 297(1) 19.OS1� 1968 1,790 257 16.71`2 (1)Five -year period. (2)Three -year period. Source: U. S. Census, 1960 Massachusetts Decennial Census, 1965 The population growth began an-upswing during the war and postwar years and has continued to the present time. The largest increase (297) was experienced in the 1960 to 1965 period. It should be noted that this increase is for five (not ten) years only. The population is not only increasing but is doing so at an increasing rate. 58 G f] C� t t t t E t c t 180C 150C 1200 c 0 v a 900 0 CL 600 300 0 1910 Fig.6 Past Population Change 1920 1930 1940 1950 Master Plan METCALF S EDDY, INC. ENGINEERS B PLANNERS Years 1960 1970 Town of Brewster,Mass. Sept 1968 BOSTON • NEW YORK PALO ALTO • • • • • 1920 1930 1940 1950 Master Plan METCALF S EDDY, INC. ENGINEERS B PLANNERS Years 1960 1970 Town of Brewster,Mass. Sept 1968 BOSTON • NEW YORK PALO ALTO In order to obtain an estimate of seasonal population, a survey of the numbers and types of residential units in the town was made by Metcalf & Eddy, Inc. This survey included not only summer homes but also commercial residences such as motels, camps, and trailer - tenting sites. Based upon our surveys and the recent town survey of year -round residents, we have estimated the seasonal population for 1968 (see Table 23). Table 23. Seasonal Population Components 1968 Motels and cabins 200 Summer residents in cottages 3,715 Campers (tents and trailers) 43170 Summer camps 1,480 Year -round residents 1,790 Total 11,355 Source: Survey and estimates by Metcalf & Eddy, Inc. Distribution and Densit The majority of the year -round population resides in Central Brewster.* Other large concentrations are in East Brewster and the Ponds District. Seasonal population is also heavily concen- trated in Central Brewster, although all other districts except West Brewster account for over 1,000 seasonal residents each. For an indication of population distribution, see Table 24 and Figure 7• *For indications of Planning District boundaries, see the Existing L,.nd Use section of the Plan. 59 METCALF & EDDY. I N C. Seasonal population. Information about past and present seasonal population is scarce. Neither the Federal nor State cen- sus covers this type of population. In addition, summer population consists of various components: year -round residents, summer only residents, summer weekend only residents and cottage and other overnight guests. In order to obtain an estimate of seasonal population, a survey of the numbers and types of residential units in the town was made by Metcalf & Eddy, Inc. This survey included not only summer homes but also commercial residences such as motels, camps, and trailer - tenting sites. Based upon our surveys and the recent town survey of year -round residents, we have estimated the seasonal population for 1968 (see Table 23). Table 23. Seasonal Population Components 1968 Motels and cabins 200 Summer residents in cottages 3,715 Campers (tents and trailers) 43170 Summer camps 1,480 Year -round residents 1,790 Total 11,355 Source: Survey and estimates by Metcalf & Eddy, Inc. Distribution and Densit The majority of the year -round population resides in Central Brewster.* Other large concentrations are in East Brewster and the Ponds District. Seasonal population is also heavily concen- trated in Central Brewster, although all other districts except West Brewster account for over 1,000 seasonal residents each. For an indication of population distribution, see Table 24 and Figure 7• *For indications of Planning District boundaries, see the Existing L,.nd Use section of the Plan. 59 METCALF & EDDY. I N C. D Table 24. Year -Round and Summer Population Distribution, 1968 Planning district Year -round Summer 1960 Massachusetts percent 1965 Brewster pop. Percent Ponds District 294 2,799 Parks District 25 1,120 West Brewster 193 323 Central Brewster 848 4,273 East Brewster 430 21840 Total 1,790 11,355 As indicated in the Existing Land Use section of the Plan, most of the residential lots, year -round and seasonal, in Brewster are 10,000 sq. ft. or less. This means that there are an average of 4 to 8 families per acre of residential land. Such densities are comparatively high. Much of Brewster remains open and rural in character, but the areas which are developed have been built up in a concentrated manner. Composition Population composition is the distribution of population-by age groups. Table 25 has been prepared to show Brewster's 1960 and 1965 population composition in comparison to the 1960 popula- tion in the State of Massachusetts. Table 25. Past Population Composition Age group Pop. 1960 Brewster percent 1960 Massachusetts percent 1965 Brewster pop. Percent Under 5 115 9.3 10.7 121 8.0 5 -14 196 15.9 18.1 254 16.8 15 -24 121 9.8 12.8 214 14.2 25 -34 122 9.9 12.3 115 7.6 35 -44 152 12.3 13.5 178 11.8 45 -54 140 11.3 11.7 166 11.0 55 -64 168 13.6 9.8 173 11.5 65+ 222 17.9 10.9 289 19.1 Total 1,236 100.0 100.0 1,510 100.0 Median Age - 38.7 Source: U. S. Census, 196o Massachusetts Decennial Census, 1965. 60 cop• cod Boy METCALF & EDDY INC. ENGINEERS & PLANNERS e® Boston - New York - Palo Alto Between 1955 and 1960, large numbers of persons under 19 and others over 50 moved into Brewster. Between 1960 and 1965, fairly large numbers of persons in all age groups except the 25 to 40 moved in. The trend appears to be for persons in the compara- tively young and old age groups to move in, and persons in the middle age groups to move out or to remain unsupplemented by in- migrants. Characteristics Certain economic and social characteristics of Brewster's year -round population are presented here to give an indication of the present status of town residents. Such factors have a direct bearing up;Dn the type and level of services and facilities expected by the town ipeople . As siown in Table 26, in 1960, nearly 3/4 of the town fami- lies earned incomes between $3,000 and $10,000. A small percentage earned less than $3,000, while a comparatively large percentage indicated incomes of $10,000 and over. Brewster's median family income was approximately $500 greater than the state's or the Cape's as a whole, and was higher than all of the surrounding towns, except Orleans. Table 26. Family Income Income Brewster's population gained in both its very young and old Percent age groups. All of the middle age groups declined in their per- 11.2 41.6 centage of the town's population. The fairly high percent in age group 5 -14 can be partially attributed to the high 1945. The sharp drop in the 15 -34 age groups, however, birth rate after indicates 28.6 that members of the young labor force move out of town to seek 18.6 better employment opportunities, attend school, or fulfill service obligations. It can easily be seen that Brewster is attracting older people. When the two oldest age groups are compared with the corresponding Massachusetts percentages, it is found that 31.5 percent of Brewster's population was aged 55 and over in 1960, in the while only 20.7 percent of the state's population was aged 55 and over category. Between 1955 and 1960, large numbers of persons under 19 and others over 50 moved into Brewster. Between 1960 and 1965, fairly large numbers of persons in all age groups except the 25 to 40 moved in. The trend appears to be for persons in the compara- tively young and old age groups to move in, and persons in the middle age groups to move out or to remain unsupplemented by in- migrants. Characteristics Certain economic and social characteristics of Brewster's year -round population are presented here to give an indication of the present status of town residents. Such factors have a direct bearing up;Dn the type and level of services and facilities expected by the town ipeople . As siown in Table 26, in 1960, nearly 3/4 of the town fami- lies earned incomes between $3,000 and $10,000. A small percentage earned less than $3,000, while a comparatively large percentage indicated incomes of $10,000 and over. Brewster's median family income was approximately $500 greater than the state's or the Cape's as a whole, and was higher than all of the surrounding towns, except Orleans. Table 26. Family Income Income Number Percent Under $3,000 38 11.2 41.6 $3,000- $5,999 141 $6;000 - $9,999 97 28.6 $10,000 and over 63 18.6 Median income - $5,817 Source: U. S. Census, 1960. 61 METCALF & EDDY, I N C. In Table 27 is indicated the educational attainments of Brewster adults 25 years old and over in 1960. While about 14 percent had not completed the eighth grade, some 37 percent had completed a high school education and some much more. Apparently, there was a fairly high dropout rate in this adult group after the eighth grade. Current school enrollments are climbing rapidly, with much lower dropout rates. Table 27. Educational Attainment Years completed Number Percent Elementary school (1 -8 years) 116 14.1 High school (1 -3 years) 172 21.0 (4 years) 304 37.1 College (1 -3 years) 112 13.7 (4 years) 115 14.0 Median years - 12.4 Source: U. S. Census, 19 0. In 1960, Brewster's population consisted of 340 persons of foreign stock, 101 of them foreign born. The largest group is from Canada, some 119. Fifty -six were from the United Kingdom. Ireland, Sweden, and German are the origins of most of the remainder. Components of Change Natural Increase. Natural increases and decreases for the period 1955 through 1967 are shown in Table 28. The comparatively low amounts of natural increase and the occurrence of two periods of natural decrease reflect the relatively older age of Brewster's population. It is significant that the six most recent years all show a greater number of deaths than births. This indicates an increasing orientation of the population to the retirement age group. Migration. In- migration has been the sole cause of Brewster's recent population growth. Between 1960 and 1965, in- migration accounted for 97.6 percent of the population growth (see Table 29). However, the in- migrating families are older couples, 60 to 74 years of age. 62 n r C � -1 is 0 Table 28. Natural Increase or Decrease Natural Allocated Allocated increase or Year births deaths decrease 1955 21 13 + 8 1956 14 18 - 4 1957 21 16 + 5 1958 21 27 - 6 1959 20 19 + 1 1955 -1959 97 93 + 4 1960 35 20 +15 1961 31 21 +10 1962 18 24 - 6 1963 18 21 - 3 1964 14 23 - 9 1960 -1964 116 109 + 7 1965 18 23 - 5 1966(l) 15 29 -14 1967(l) 14 29 -15 (1 )Town of Brewster Annual Report. Source: Mass. Dept. of Public Health. Table 29. Components of Growth Number growth Natural Percent growth by increase Net Net Percent or migra- Natural migra- Year Population change decrease tion increase tion 1950 987 1955 1,172 18.7 -7 192 -3.7 103.7 1960 14236 5.4 +4 60 6.3 93.7 1965 1,533 24.0 +7 290 2.4 97.6 Source: U. S. Census, 1950 & 1960. Mass. Decennial Census, 1955 & 1965. 63 METCALF & EDDY, I N C. Future Size Future changes in Brewster year -round population size will come as a result of many factors and conditions existing both within Brewster and within the neighboring region. The most re- cent changes in Brewster's population have been influenced by: 1. The emergence of Cape Cod as an attractive area for retirement. 2. Increased accessibility due to recently con- structed limited access extension to Route 6. 3. A decreasing amount of developable land in the surrounding communities on the Cape. 4. A comparatively favorable tax structure. 5. Comparatively low land costs. The method considered to be the most accurate for predicting Brewster's population is the "cohort survival" method. The "cohort survival" system is founded on a principle of following the age groups composing the population, or cohorts, from a known base year through five -year future periods. As an age group advances, death will occur which will eliminate some of the original groups and which will leave a surviving group five years later. This.is the derivation of the second word in the method's title. The procedure for this method involves applying to each age group age - specific five -year survival rates published by the U. S. Census and adjusted for a particular town or area. Estimated birth rates and age- specific fertility rates give expected figures for the youngest age groups. But population changes are due not only to births and deaths, but also to in and out movements of people. The second step, then, requires adding to or subtracting from the results of step 1 various amounts for estimated migration within each group. The results of this method were checked against pro- jections by mathematical and graphical methods. The projections of Brewster's 1985 population by all of the above methods were based on the following general assumptions: 1. Regional economic trends and conditions surrounding the Cape, particularly in the area of southeastern Massachusetts, will continue to improve. 2. The entire national economy.will continue to expand. 3. Accessibility to Brewster will be increased. 64 �a 4. Residential lands .in other Cape areas will become overcrowded. 5. Sufficient land will be made available within Brewster for the construction of new homes. ILI Other assumptions were made concerning the number of births and deaths and the amount of migration which will occur in Brewster. It was assumed that the number of resident births would increase throughout the forecast period as additional younger couples move into town. Although the death rate will remain comparatively high, it is assumed that a slight decrease will be seen in the rate over the forecast period. The prediction of migration, which has varied considerably over the past decades, was oriented to the 1960 -1965 base. The range of migration assumptions are discussed below. Low Series Forecast. This forecast assumes an initial in- crease in the net in- migration, followed by a decline. This drop is based on the expectation of a sharply rising cost of land. The demand for land throughout the Cape is expected to continue at a high level and may be particularly accute soon in Brewster where present land costs are low. A slow down in home construction due to increased construction and mortgage costs may also contribute to a migration decline. On the basis of these assumptions, the 1985 population could be as low as 2,790 persons. High Series Forecast. The high series forecast is based on the assumption that migration will continue to increase, although the rate is expected to decrease somewhat after 1975• The high amount of net in- migration could be due to the expanding economy throughout southeastern Massachusetts and to overcrowding of other towns on Cape Cod. According to this forecast, Brewster would become a semisuburban town with a commuting labor force. On the basis of these assumptions, the 1985 population could be as high as 3,450 persons. Most Probable Forecast. This forecast is based on some assumptions from each of the previous two. Migration is expected to continuously rise, but at a declining rate after 1975 and by a lesser overall amount than in the High Series Forecast. The high land, construction, and mortgage costs expected in the Low Fore- cast, therefore, will be offset somewhat by an improving economic situation and rising ability to pay expected in the High Forecast. On the basis of these assumptions, it is expected that Brewster's population may reach nearly 3,000 by 1985. Indicated in Table 30 and on Figure 8 are the most probable estimates along with the high and low forecasts. 65 METCALF & EDDY, INC. Estimated Seasonal Population. The projected seasonal pop- ulation in 1970 through 1985 are shown in Table 31. In predicting the future seasonal population, the effect of the existing zoning by -law was taken into consideration. The existing by -law prohibits any increase in trailer and tent sites. It is believed that the attitude of the town will continue in this trend. Consequently, the only increase in sites will occur in land already owned by Nickerson State Park. The by -law does permit, however, the limited building of motels or cabins, and predictions were made accordingly. Table 31. Future Peak Summer Population Components of Population Table 30. Estimated Future Population Year 1975 1980 __1_9_T5_ Motels and cabins 200 245 280 320 Percent Campers (tents and Year 3,800 4,180 Number 4,950 trailers) increase Summer camps 4,170 4,170 Actual 4,380 4,490 Year -round residents 1,480 1,480. 1,480 1,480 1950 Summer total 9,565 987 10,215 10,740 11,270 Total 1955 11,555 12,455 1,172 14,230 18.7 1960 1,236 5.4 1965 1,533 24.0 Low series High Series Most Prob. Ser. Percent Percent Percent Estimated Number increase Number increase Number increase 1970 1,840 20.6 1,880 22.6 1,860 21.3 1975 2,180 18.4 2,280 21.3 2,240 20.4 1980 2,490 14.2 2,820 23.6 2,620 17.0 1985 2,690 12.0 3,250 15.2 2,960 13.0 Source: U. S. Census, 1950 & 1960. Mass. Census, 1955 & 1965. Projections by Metcalf & Eddy, Inc. Estimated Seasonal Population. The projected seasonal pop- ulation in 1970 through 1985 are shown in Table 31. In predicting the future seasonal population, the effect of the existing zoning by -law was taken into consideration. The existing by -law prohibits any increase in trailer and tent sites. It is believed that the attitude of the town will continue in this trend. Consequently, the only increase in sites will occur in land already owned by Nickerson State Park. The by -law does permit, however, the limited building of motels or cabins, and predictions were made accordingly. Table 31. Future Peak Summer Population Components of Population 1968 1970 Year 1975 1980 __1_9_T5_ Motels and cabins 200 245 280 320 350 Campers (tents and 3,715 3,800 4,180 4,560 4,950 trailers) Summer camps 4,170 4,170 4,275 4,380 4,490 Year -round residents 1,480 1,480. 1,480 1,480 1,480 Summer total 9,565 9,695 10,215 10,740 11,270 Total 11,355 11,555 12,455 13,360 14,230 Source: Projections by Metcalf & Eddy, Inc. 66 n Summer cottages. Brewster's largest increase in seasonal population will come from those people who will live in summer cottages. Almost all of these cottages will be separate, single - family units. This type of seasonal unit is the most acceptable within Brewster. The residents of these units are expected to be both com- plete families and couples who are of retirement age and who live in the South during the winter months. Motels and cabins. Future expansion of these units will be due to the demand created by the attraction of weekend trips to the National Seashore and mid -Cape area. However, because of the distance to the seashore and the limited development poten- tial of Brewster's seashore, increases of these units should be moderate. Summer camps. A survey of the summer camps in Brewster revealed that they have no plans of major expansion in the future. There are so many of these camps in Brewster already that it is doubtful that others will locate in the town. Future Distribution and Densit The future distribution of the Brewster population will be largely dependent upon the willingness of large land owners to, part with or subdivide their land, the accessibility of land to highways, land use controls enacted and enforced by the town, and future public utility service areas. It may be expected that the majority of the population growth will occur in the Ponds District and in West Brewster. An estimate of what areas are particularly susceptible to residential growth is indicated on Figure 7. Some of the developing areas may contain lots of 15,000 sq. ft. in accordance with the existing zoning by -law. If the town decides to institute land use controls which will protect it from unde- sirable demands for community facilities' expansion, later devel- opment of year -round settlements could provide for only one family per acre and of seasonal settlements for only one to two families per acre. I 67 METCALF & EDDY, INC. Future Composition and Characteristics The future age composition forecasts for 1970, 1975, 1980, and 1985 are shown offer a basis for on Table 32. These estimating the types forecasts by age groups and extent of town facili- ties and services needed to serve the future year -round popula- tion. This is reflected especially in school and recreation facility needs and anticipated tax revenues. Also, the size and composition of the labor force can be estimated. I 67 METCALF & EDDY, INC. M., >; N" Table 32. Population Composition, 1960 -1985 1960 1970 1975 1980 1985 per- per- per- per- per - Age group No. cent No. cent No. cent No. cent No. cent Preschool age 115 9.3 153 8.3 188 8.4 255 8.6 250 8.4 under 5 yrs. School age 276 22.4 453 24.3 545 24.3 622 23.8 716 24.2 5 -19 yrs. Productive 623 50.4 910 48.9 1,107 49.4 1,326 50.6 1,506 50.9 age 20 -64 yrs. . Retirement 222 17.9 344 18.5 400 17.9 447 17.0 488 16.5 age 65 yrs. - o, and over w TOTAL 1,236 100.0 1,860 100.0 2,240 100.0 25620 100.0 2,960 100.0 Source: U. S. Census, 1960 Projections by Metcalf & Eddy, Inc. M., >; N" 0 � Est. i � Low Est. i i i Fig. B Population Estimates 3500 High Est. 3000 t i � .,Most Probable 2500 2000 c 0 4= 0 CL 0 n- 1500 1000 500 0 1960 1965 1970 1975 1980 1985 Years Master Plan Town of Brewster, Mass. METCALF S EDDY. INC. ENGINEERS S PLANNERS Sept. I9B8 p BOSTON • NEW YORK PALO ALTO � Est. i � Low Est. i i i it The percentage of retirement age people (65 and over) is expected to increase until the 1975 -1980 period, then decrease slightly. Similarly, the percentage of school age persons is expected to decline somewhat by 1985, but the number of school children is expected to continuously increase. The labor force also will increase in numbers and in percentage of the total population. It is likely that Brewster will become a more socially diversified community than it is at present. Although retirement residents and professional people may continue to be large ele- ments in the population, there are also apt to be many more younger, middle class couples and additional children to be accomodated in the school system. The median income should rise in correspondence to the expanding area economy. Nevertheless, Brewster may contain a greater variety of income levels with a median level remaining somewhat above the area towns. The median educational levels and average skills of the population are likely to be higher. Implications for Future Development The projections of future population growth and changes set forth in the previous sections will have certain implications on Brewster's future development. Residential Land Needs. In Table 33 is contained an esti- mate of the future residential land needs for all types of resi- dential development. In general, the needs will range from 350 to 810 acres. Table 33. Range of Additional Residential Land Needs Range of additional acres, Category 1968 to 1985 Motels and cabins (see Economic Base Section of the Plan) Cottages 150 - 310 Camping (tents and trailers) 0 Camps 0 Year -round (most probable 200 - 500 forecast) (high forecast) Source: Estimates by Metcalf & Eddy, Inc. 69 240 - 610 METCALF & EDDY, INC. I Other Community Facilities and Services. As indicated in the Existing Land Use section of this Plan, there is an immediate need to install a public water system to serve Central Brewster. By 1985, an expansion of this system to serve other highly devel- oped areas of East Brewster and the Ponds District may be required. In addition, a larger population will require more and better roads, expanded town recreational facilities, police and fire protection and numerous other services. Subsequent sections of this Master Plan study and analyze these future requirements for community facilities, schools, labor force, and housing in greater detail. Only then are they combined into a total general plan for the Town of Brewster. 70 Educational Facilities. One of the most important areas for town action is the provision of modern educational facilities to meet the needs of its children. The school population (grades K to 12) in 1985 will be approximately 715 students. The increase then from a 1967 enrollment of about 300 will be 400 students. This indicates a need for approximately 16 new classrooms by 1985, not including the replacement of older facilities. Other Community Facilities and Services. As indicated in the Existing Land Use section of this Plan, there is an immediate need to install a public water system to serve Central Brewster. By 1985, an expansion of this system to serve other highly devel- oped areas of East Brewster and the Ponds District may be required. In addition, a larger population will require more and better roads, expanded town recreational facilities, police and fire protection and numerous other services. Subsequent sections of this Master Plan study and analyze these future requirements for community facilities, schools, labor force, and housing in greater detail. Only then are they combined into a total general plan for the Town of Brewster. 70 HOUSING Quantities Based upon an actual count of residences made in April of 1968, we have found 1,432 residential dwellings in Brewster. We estimate that approximately 300 units have been built since 1960, somewhat less than half of which were year -round residences. In our 1968 survey, we noted additional types of residen- tial facilities, including motels and inns, rooming houses, summer camps, and camping areas. The results of our survey, indicating the type and number of residential unit by Planning District,* is presented in Table 34. An indication of the gen- eral distribution of units is presented on Figure 7. Table 34. Types and Numbers of Residential Structures, 1968 Type West East Ponds Park and Brew- Central Brew- Dis- Dis- number ster Brewster ster trict tract Total Year -round 69 256 104 63 4 494 residences Seasonal 95 428 265 144 6 938 cottages Rooming 1 3 0 0 0 4 houses Motels, 3 4 3 0 0 10 cabins, and inns Summer 0 1 4 4 0 9 camps Camping 0 3 1 1 1 6 areas Source: April 1968 Field Survey by Metcalf & Eddy, Inc. *The Planning District boundaries are indicated in the Existing Land Use section of the Plan. 71 METCALF & EDDY, INC. Subdivision Development Recent subdivision development has occurred in several places in Brewster. The major developments are: 1. To the north of Seymour Pond, off Great Field Road - Highlands. There have been 22 single - family residences built in this subdivision, ten of them seasonal. 2. To the east of Long Pond Road - Elder Brewster. Thirty -three single- family residences have been built here, 14 of them seasonal. 3. At the southern point of Orleans Harwich Road. Only three single- family houses were built, none of them seasonal. 4. Off northern Orleans Harwich Road. Three single - family residences have been built thus far, none of them seasonal. 5. Off Route 6A in East Brewster - Bayberry Hill Estates. No units have been built here, although the street pattern is complete. 6. Off Route 6A in East Brewster - Robinwood. Three single - family houses have been built. No seasonal units exist here. 7. Off Route 6A in East Brewster - Blueberry Hill Estates. Nine units have been built, three of them seasonal. 8. To the west of Millstone Road - Blueberry Pond East. Less than ten units have been built here. 9. To the west of Long Pond Road - Sheep Pond Shores. Nearly 15 units have been built here. 10. To the west of Long Pond Road - Beechwood Landing. Less than five units have been built, but the development contains approximately 100 lots. It appears from our survey that subdivisions are developing in response to and in anticipation of year -round population growth in Brewster. 72 e Eq 11 D Types The only information concerning housing characteristics in Brewster is available from the 1960 Census. According to the Cen- sus, nearly all of the year -round residences in Brewster were owner occupied. Approximately 71 percent of the units were listed as vacant. Since the Census was taken in April, these vacant units refer primarily to the seasonal units. The median value of owner occupied housing in 1960 was nearly $14,000. This median was $1,200 above the median for the Cape, and was above the median for all the area towns, except Orleans. The median number of persons per housing unit was 235. This amount was similar to the medians in other area towns. Based upon our survey, which is corroborated by the 1960 Census, we have found that nine out of every ten houses in Brewster is in sound condition. Less than two out of every 100 houses appears to provide unsafe or inadequate shelter for its occupants. Future Demands In order to house the, estimated 1985 year -round population AL of 2,960, approximately 470 additional dwelling units will be needed, an average of 28 dwelling units per year. The estimated seasonal population in cottages will require approximately 350 additional units, an average of 20 dwelling units per year. This is close to the number of units per year which have been built since 1960. In addition, we estimate that there will be a need for 50 to 75 additional motel, cabin, or inn units. We expect no additional summer camp site development, except within Nickerson State Park. Our expectation is based primarily on impressions gained from the existing zoning by -law. It must be stressed again, however, that the town must thoroughly examine its land use policies and determine its goals based upon past trends, existing data, and future desires. L it 73 METCALF & EDDY, INC. Our survey has confirmed the information presented in the 1960 Census that there are only single- family residential units in Brewster. At this time, there are no apartments, either for year -round or seasonal occupancy, in the town. There are a total of 84 units in motels, cabins, and inns, and accommodations for approximately 1,400 children at summer camps. In addition, the camping areas in Brewster contain nearly 930 units. Characteristics The only information concerning housing characteristics in Brewster is available from the 1960 Census. According to the Cen- sus, nearly all of the year -round residences in Brewster were owner occupied. Approximately 71 percent of the units were listed as vacant. Since the Census was taken in April, these vacant units refer primarily to the seasonal units. The median value of owner occupied housing in 1960 was nearly $14,000. This median was $1,200 above the median for the Cape, and was above the median for all the area towns, except Orleans. The median number of persons per housing unit was 235. This amount was similar to the medians in other area towns. Based upon our survey, which is corroborated by the 1960 Census, we have found that nine out of every ten houses in Brewster is in sound condition. Less than two out of every 100 houses appears to provide unsafe or inadequate shelter for its occupants. Future Demands In order to house the, estimated 1985 year -round population AL of 2,960, approximately 470 additional dwelling units will be needed, an average of 28 dwelling units per year. The estimated seasonal population in cottages will require approximately 350 additional units, an average of 20 dwelling units per year. This is close to the number of units per year which have been built since 1960. In addition, we estimate that there will be a need for 50 to 75 additional motel, cabin, or inn units. We expect no additional summer camp site development, except within Nickerson State Park. Our expectation is based primarily on impressions gained from the existing zoning by -law. It must be stressed again, however, that the town must thoroughly examine its land use policies and determine its goals based upon past trends, existing data, and future desires. L it 73 METCALF & EDDY, INC. The expected principal future housing growth areas are shown on Figure 7. The principal neighborhoods predicted to exhibit growth of all residential types are West Brewster and the Ponds District. The density of this growth will depend largely upon plans for a public water system. The present zoning by -law prohibits residential structures containing more than two units per dwelling. Based upon this by- law, as an indication of the town's policies and goals, we have predicted no immediate construction of apartment dwellings in the town. However, due to the pressure for housing units on the Cape and the high costs of land, this policy is likely to be changed. It is expected that most of the new year -round residences will sell for $20,000 to $30,000. Seasonal uninsulated cottages may be expected to sell for $10,000 to $20,000. Implications for Future Development The implications derived from this study are similar to those discussed in the population study. They include primarily the need for the town to establish policies and goals to govern the extent and type of development in Brewster. The sizeable number of housing units predicted to be needed indicate that, if they are allowed to develop uncontrolled, they could place an undue strain on on -lot service systems and on all community facilities. 74 L�� 7 1 1 ECONOMIC BASE Definitions In the discussion that follows, two general terms, "labor force" and "employment" are used. In order that this report may be better understood, the definition of the terms are as follows: Labor Force. The labor force consists of those town residents who are employed or actively seeking employment, regardless of the place of employment. Employment. The town's employment consists of those people who are employed at businesses in the town, regardless of where they reside. Information on the labor force is obtained from the Federal Decennial Census, the only available source. Employment informa- tion is available from the Massachusetts Department of Employment Security. Because of the differences in nature and scope, these terms and their data are not comparable. Nevertheless, both are significant considerations in the economic base of Brewster. An indication of the past trends of these groups is presented on Figure 9. Labor Force Brewster's labor force in 1960 was composed of 328 men and 161 women, or a total of 489 persons. Of these, 465 were employed. In Table 35 is presented the occupations of the 1960 labor force participants. The largest percentages of employed males worked as craftsmen, foremen and kindred workers or as professionals, technicians, and kindred workers. Particularly in the latter category, Brewster's percentage was considerably above the neigh- boring towns of Chatham, Dennis, and Orleans, and was well above the percentage for the Cape as a whole. One of the smaller occu- pational groups for employed males in Brewster was laborers. All of the surrounding towns except Dennis had a larger percentage of their respective labor forces employed in this category. The occupational figures reflect the importance to Brewster of the industries located in nearby towns. Brewster itself con- tains approximately 80 firms, most of which are oriented toward the seasonal trades. Consequently, it is likely that few of the labor force participants in the major categories listed above worked within the town. 75 METCALF & EDDY, INC. Table 35. Occupations of Civilian Labor Force Participants, 1960 Male Female Total Occupations Number Percent Number Percent Number Percent Total employed 320 100.0 145 100.0 465 100.0 Prof., tech. & kind. 71 22.2 12 8.2 83 17.8 workers Farmers & farm mgrs. 4 1.2 - - 4 .9 Mgrs. off., prop., 30 9.4 12 8.2 42 9.0 except farm. Clerical & kind. 4 1.2 50 34.5 54 11.6 workers Sales workers 48 15.0 21 14.5 69 14.8 rn Craftsmen, oremen, & 92 28.8 - - 92 19.8 kind. workers Operatives & kind. 43 13.4 4 2.8 47 10.1 workers Priv. household workers - - 12 8.2 12 2.6 Service workers except 8 2.5 26 18.0 34 7.3 private household Farm laborers & farm - - - - - - foremen Laborers, except farm 20 6.3 4 2.8 24 5.2 and mine 800 c a> E 0 a 60 0 E v c 0 a� 0 400 U- o v J � 0 1950 Fig. 9 Post Labor Force and Employment Trends Master Plan METCALF B EDDY, INC. ENGINEERS B PLANNERS 11111111 labor Force ■ ■ I August Employment MIN November Employment 1955 1960 1965 Sources: U.S. Census, 1950,1960 Mass. Census, 1965 Years Dept. of Emp. Sec. Estimates by Metcalf & Eddy Inc. Town of Brewster, Mass. Oct. 1968 BOSTON • NEW YORK PALO ALTO NON. 111111111111 111 1111111111,11111 1_1 1�1 Master Plan METCALF B EDDY, INC. ENGINEERS B PLANNERS 11111111 labor Force ■ ■ I August Employment MIN November Employment 1955 1960 1965 Sources: U.S. Census, 1950,1960 Mass. Census, 1965 Years Dept. of Emp. Sec. Estimates by Metcalf & Eddy Inc. Town of Brewster, Mass. Oct. 1968 BOSTON • NEW YORK PALO ALTO mom"" i7 n D D Year -Round Emplovment It is not possible to obtain data for the actual total em- ployment within Brewster. Data on "covered employment," however, is available.* Indicated in Table 36 are the trends'in Brewster's year - round covered employment since 1955. Table 36. Changes in Year -Round Employment Economic sector Numoer or em to eeski) 1955 1960 1965 1 Services 25 98(2) 34 35 Retail Trade 11 16 16 18 Construction 11 15 26 28 Mining 0 0 0 0 Manufacturing 0 0 0 0 Agriculture, transportation, 25 22 9 9 communications, and utilities; finance, insurance, real estate TOTAL 72 151 85 90 (1)Data source figures are for the month of November. (2)Due to the temporary location in Brewster of one large employer. Source: Mass. Dept. of Employment Security. During the study period, the service category,has employed the largest percentage of workers. Other large employers have been construction and retail establishments. The growth in con- struction between 1960 and 1965 reflects the large growth in pop- ulation and the need for additional housing units. The decline in agricultural employment, which corresponds to the few agricul- tural workers noted in the labor force, complies with Brewster's transition from a rural to semirural suburban town. *Covered employment includes all jobs insured under the State - Federal Employment Security program. Virtually all manufacturing jobs are covered. About 80 percent of nonmanufacturing jobs are covered. Exceptions are primarily employment in government, non- profit activities, self - employment, and agriculture. 77 METCALF & EDDY, I N C. Seasonal Employment The seasonal character of Brewster's economy induces an increase in employment during the summer months. To determine the extent of the influence, comparisons were made between covered employment totals by industry in August and November. The data used in the comparison was obtained from the Massachusetts Department of Employment Security. According to the Massachusetts legislation regarding employment security, any firm which employs a worker on some day of each 13 weeks per year (not necessarily consecutive weeks) is considered a covered em- ployer and his workers are covered employees. Since the summer season extends for 13 to 14 weeks from early June through the week of Labor Day, most of the seasonal employment change is represented by the covered employment figures. The exceptions in this data would include primarily the self - employed and the nonpaid family workers. In Table 37 it is indicated that there is a great seasonal variation in Brewster's covered employment, and that seasonal in- fluences are increasing. Seasonal employment amounted to 263 covered workers in 1955, but had grown to 354 covered workers by 1966 (see Figure 9). In total, August 1955 employment was higher by 191 jobs, but August 1966 was higher by 264 jobs. As would be expected,. the services category, the one most susceptible to seasonal in- fluences, has shown an increasing difference between August and November employment. In fact, seasonal service employment itself has increased from 177 in 1955 to 260 in 1966. Wages, Income, and Number of Establishments In only one sector of the economy (transportation, communi- cations, and utilities) has the wages per worker shown a constant increase since 1955 (see Table 38). The other industrial sectors have indicated no apparent pattern. The average covered real wage per worker in Brewster in 1960 was approximately $2,210. For the county as a whole, the average was $3,050. During the same year, the real median indi- vidual income per resident reported by the U. S. Census was approximately $6,000. The great difference between these figures could be due to two factors. One is that the wage statistics are underestimated because of part -time employment and unrecorded "tips" or commissions. The second is that residents of Brewster are finding more highly paying jobs in other communities than they could in their own town, and yet they prefer to live in Brewster and commute elsewhere to work. Evidence of the attrac- tion of wages in other parts of Barnstable County, particularly for the highly skilled majority of Brewster's labor force, is included in the county figures in Table 38. Ll 78 1 7 D D Table 37. Seasonal Employment Change Change in Change in Change in Jobs from Jobs from Jobs from Aug. to Nov. Aug. to Nov. Aug. to Nov. 1955 19 0 19 Agriculture 0 -4 0 Construction +4(1) +1 -2 Manufacturing 0 0 0 Transportation, -4 -8 -5 communications, and utilities Wholesale and retail -37 -12 -30 Finance, insurance, -2 -1 -2 and real estate Services -152 -169 -225 1 + indicates that employment was higher in November. - indicates that employment was higher in August. Source: Mass. Dept. of Employment Security. The total number of covered establishments has been stead- ily increasing since 1955 (see Figure 10). Most of these estab- lishments, approximately 60 percent, have remained retail and service firms. The service establishments, however, increased from 12 in 1955 to 16 in 1966, while the retail firms declined from 13 to 12. Economic Sectors The following discussion analyzes in greater detail the town's economy in terms of the various sectors, or industry groups. Determining the behavior of each sector is important for identifying the town's economic resource capabilities or deficien- cies, and for determining Brewster's long -range economic prospects and overall economic base land use demands. Much of the information in this section was obtained from a survey which was distributed to all known businesses in Brewster.* Of the 60 questionnaires which were sent, 24 (40 per- cent) were returned with replies. *A copy of the questionnaire is included in the Appendix. 79 METCALF & EDDY, I N C. Table 38. Changes in Wages(l) tsrewstier k wu Change Change Economic County 1955 -60 1960 -65 sector 1955 1960 1965 1966 1966 percent percent Agriculture, 1,633 1,544 1,471 1,423 3,623 - 5.5 - 4.7 forestry, and fisheries Construction 3,872 2,992 3,606 3,860 43069 - 2.3 +20.5 Manufacturing - - - - 3,627 - - Transportation, 1,478 2,214 3,154 2,671 4,882 +49.8 + 4.2 communications, and utilities OD ° Wholesale and 1,089 1,930 2,502 2,511 2,600 +77.2 +29.6 retail trade Finance, insur- 1,361 1,930 1,767 13709 3,692 +41.8 - 8.4 ance, and real estate Service trade 1,401 2,643 1,937 1,888 25,171 +88.6 -26.7 (1 )Wages are computed from the average number of employees and adjusted to the 1957 -59 base of the Consumer Price Index for the Boston Region. Source: Mass. Dept. of Employment Security. k wu t t t t t t t t t Fig. 10 .1111111111111111 Past Trends in Number of Covered Establishments 50 11111111 Total Establishments ONE Wholesale /Retail ■ 1 ■ Service 40 �i E 30 .a 0 W w 0 20 a� Nunn IIIIpllliiiill Z 10 0 1950 1955 1960 1965 Sources: Mass. Dept. of Emp. Sec. Years Master Plan Town of Brewster, Mass. METCALF S EDDY, INC. ENGINEERS & PLANNERS Oct. 1968 BOSTON NEW YORK PALO ALTO I I I 1 111111111111 .1111111111111111 F-11 Services. According to employment security data, service establishm have continued to employ an increasing number (ce in 1955 to 35 in 1966) of Brewster's year -round covered employment. (The large increase in 1960 was due to the temporary location in town of one significant employer.) The numerical difference be- tween seasonal and year -round employment has continued to increase, from 152 jobs in 1955 to 224 jobs in 1965. 'Nevertheless, the year - round service employment has been increasing slightly also. Most of the service establishments, particularly the motels and cabins, etc., are located on Route 6A. Approximately 80 per- cent of the survey respondents indicated that their businesses were new in Brewster within the last five years, and that at least 90 percent of their receipts were from seasonal customers. Sixty percent expect to expand, although the same percentage do not ex- pect an increase in business due to the National Seashore. Retail Trade. Employment security data indicates that the retail sector grew from 10 percent to 20 percent of Brewster's year -round employment between 1960 and 1966, or from 11 to 18 covered year -round workers. This corresponds to the survey re- sults which indicated that 33 percent of the retail firms have been in Brewster less than five years. Nearly all of the retail establishments are located along Route 6A (see Figure 11). The vast majority of these establish- ments are antique or gift shops, restaurants or food stands, or automotive service garages. Many of the firms are accessory in- dustries located on the same lot, or even in the same building, as a residence. Also, most of the firms are small between 2,000 and 5,000 sq. ft.) and operate on a seasonal basis. Approximately fifty percent of the respondents indicated that seasonal trade represented more than 90 percent of their business. Two - thirds replied that it represented more than 70 percent of their business. Although only two of the respondants stated that business has not improved in the last five years, only one stated definite plans for expansion. Thirty -three percent expected the National Seashore to have at least some favorable effect on their business. Finance, Insurance, and Real Estate. According to employ- ment security data, this category has demonstrated little, if any, growth in covered employment or wages since 1960. That may be due, however, to the fact that many of the employed in this cate- gory are not "covered" workers. It appears from our survey that this group has expanded. Approximately 50 percent of the respon- dents indicated that their business was improved or that it was new altogether. Nearly all of these firms are open year- round, and one -half of the replies stated that seasonal customers repre- sented less than 50 percent of their business. Wen M E T C A L F & EDDY, I N C. E This category is a small covered employer within Brewster, representing only one percent of the total year -round employment. The majority of the firms are located along Route 6A on the same lot or in the same building as the residence. It may be that the zoning ordinance, adopted in 1960, has limited the extent of land speculation and development in the town and hindered the ability of real estate, financing, and insurance firms to operate. Between 1955 and 1960, covered employment in this category dropped from 4.1 percent to 0.6 percent of the total employed. It seems likely, however, considering the comparatively large growth in population between 1960 and 1965, that our available data is simply incomplete and that there is considerable business activity in this category. Other Sectors. Of the remaining sectors of the economy, only construction represents a large amount of covered employment. This sector has grown substantially since 1960, due undoubtedly to the increase in population. However, we received no definitive replies in this category from our questionnaire to indicate actual trends. Agriculture has declined considerably, as have transporta- tion, communications, and utilities. Together, these now represent less than ten percent of the covered employment. The Existing Land Use Map indicates some existing industrial sites in Brewster. The larger ones of these are gravel pits and the town dump. Industrial firms themselves are small operations, none of which are covered employers. The town's zoning by -law prohibits industrial development, other than that which is "cus- tomary or usual in connection with, or as part of" and "is inci- dental" to retail establishments. Presently, there are no commercial fishing establishments in Brewster. Nor has there been any indication of such firms in the available data since 1950. There are, however, fishing sites in the town (particularly at the herring run at Paine's Creek and at some of the stocked ponds) which undoubtedly attract sportsmen - potential retail /service customers to the town. The discussion of these recreational facilities will be included in the Recrea- tion section of the plan. Implications for Future Development Resources. Brewster's economic resources can be grouped according to the following classifications: Physical Resources - including the physical attractions of a Cape Cod community and large amounts of undevel- oped and available land. 82 I ' (m� D r T 90 m a v v O Z f � o `m Z o Z D m c m ;o N Qo r D Z Z m N I LI Locational Resources - including proximity to Route 6, relative proximity to Routes 24, 3, 25, and completed I -495, and a location in the mid -Cape area. Community Resources - including a low tax rate and a projected increase in the labor force. Brewster's economic deficiencies can be stated within the same categories. Physical Deficiencies - including a shoreline of limited development potential. Locational Deficiencies - including a location approximately 30 miles from the Cape Cod Canal. Community Deficiencies - including the lack of public water or sewerage, a zoning by -law which discourages economic development, and competition from surround - ing towns. These resources and deficiencies interact with each other, so that the resources are somewhat offset by the deficiencies. For example, Brewster's growing labor force and undeveloped, in- expensive land might attract manufacturing, but the lack of public services and the distance to growing economic areas in Southeastern Massachusetts are prohibitive. In the same way, Brewster's loca- tion in Central Cape Cod should provide a basis for a burgeoning seasonal trade base, but the restrictive zoning by -law and the difficulty of developing water - oriented commerce along the shore tend to negate eachother. Nevertheless, Brewster does appear to have two important advantages. First, unlike most of the towns on the Cape, Brewster has not developed overcrowded strips and groupings of commercial development. Second, Brewster has a number of large ponds which could be exploited for their recreational potential. It will be up to the town to decide whether or not to allow additional, prop- erly controlled commercial development which will maintain and not be in conflict with Brewster's unique image as a quiet, semirural town. Potential Sites. We have examined 11 potential sites in Brewster for prospective commercial /industrial development. For the location of the sites, see Figure 11. These sites, as noted on the map, must be considered as possible major locations for commerce and industry. They are not the only sites at which smaller interests may develop. Nor is it likely that all of the potential sites will be developed commer- cially or industrially. They are, instead, sites which we think should be examined for their economic potential. M FTCALF t' EDDY, INC. The 11 sites may be organized according to the following classifications: Highway- Oriented Commercial - Sites 1 through 6. Water- Oriented Recreational Commercial - and 9. Sites 7, Highway- Oriented Industrial - Sites 10 and 11. All of the chosen sites are located at least partially on soils which are particularly suitable for development (see the Physiography section of the plan). The particular advantages or disadvantages of each site are as follows: Highway- Oriented Commercial Site 1 - This site was chosen to take advantage of an existing commercial district in West Brewster. Although traffic is less heavy on the western sections of Route 6A in Brewster, there nevertheless is potential for further commercial expansion in this area. Site 2 - This site was chosen because of its location in in Central Brewster. Being adjacent to the town's munic- ipal buildings, the site could be developed with a con- venience retail /service center to serve a year -round as well as a seasonal trade. The disadvantage of this site is the existing location here of a real estate office and campground. Site 3 - This site is suggested to become the major economic center of Brewster. Brewster presently has no focal point for economic activity, and in a growing community, this becomes a necessity in order to provide for orderly development. The site is located adjacent to Route 6A in north - central Brewster. It encompasses several existing commercial establishments. The site contains a variety of soil types, some of which are indicated to present limitations for development. However, the limitation is largely related to a hardpan layer beneath the surface, and the limitation could be overcome with the proper installation of utilities. The site is within the area proposed to be served by public water. Site 4 - This site was chosen for its location near the Griffith's Pond camping area and the growing residential settlements around the Great Ponds. The site could de- velop as a shopping center to serve these residential areas. The disadvantage of this site is, again, its lo- cation off Route 6A and away from the municipal center. 0 84 1 i7 Site 5 - This site is recommended as an extension of the tourist- oriented activity, existing within the site. As the lower sections of the Cape come under more pressure to develop tourist establishments, the need for more of these facilities in Brewster will increase. This site, which contains soils which are suitable for development and which will be served'by public water, is an appropriate location for these expanded activities. Site 6 - Located at the eastern extreme of Route 6A, this site is suggested as the final link in an existing pattern of commercial activity to the north and to the east in Orleans. Commercial use is an appropriate one on this site, which contains suitable soils for develop- ment, is proposed to be served by public water, and extends to an appropriate barrier of the high tension lines in the south. Water - Oriented Recreation Commercial Site 7 - This site has the advantage for seasonal lodging and restaurant development of shoreline location and prox- imity to existing cabins. It is, in fact, the only beach front location which is near an existing commercial site. The area is not zoned for commercial development, however. Site 8 - A growing tendency on the Cape is for tourist establishments to develop around the many ponds because of the paucity of ocean shoreline. This site, which is suitable by means of soil for development, is located on the northern shore of Long Pond and adjacent to Route 124. It appears to have the qualities necessary for the successful development of tourist - oriented activities. Site 9 - This site could take advantage of a waterfront location for similar tourist recreational business de- velopment. Griffiths Pond is already bordered by semi - commercial camping areas but by no permanent residences. There would, therefore, be a compatability of development around the Pond. The site, however, is not zoned for commercial interests. Highway- Oriented Industrial 16 Site 10 - Already existing adjacent to this site is an oil plant. The location is comparatively removed from residential areas and yet is within a mile and a half of Route 6. It is also in a zone which permits limited in- dustrial development. The disadvantage of the site is its location far from the densely developed areas, and ;, consequently from any prospects of public water service METCALF (i. EDDY, INC. within the foreseeable future. It should be noted here, however, that this site appears to have potential also for a small commercial center to serve the growing sub- divisions of south -east Brewster. Site 11 - This site is located adjacent to the proposed refuse disposal facility in the southeastern portion of the town. There are various soil types at the site, but the majority of the area is suitable for development. The site is appropriate for industrial or for highway - oriented commercial use. In summary, we believe that there is particular potential in Brewster for development of additional summer, tourist - directed establishments and convenience shopping areas to serve seasonal and year -round residences. Presently, there are no such conve- nience centers in the town. Where and how these facilities de- velop, will have to be related to the goals, objectives, and Policies to be determined by the town. It must be stressed, how- ever, that these economic areas should be concentrated and not allowed to scatter across the extent of the town. They also should be selected in accordance with the overall Future Land Use Plan for Brewster. Forecasts. As mentioned previously, we expect that the labor force will increase. Our estimates are based upon our popu- lation projections for the town through 1985. The amount and extent of the increase is presented on Figure 12. Realistically, we expect little, if any, in -town manufactur- ing development to make use of the increasing labor force. Instead we expect that the majority of the industrial labor force will be attracted to industries elsewhere on the Cape or in Southeastern Massachusetts. Our projections for other sectors of the economy are based on the assumptions that Route 6A will become a more highly traveled seasonal route and that the climate for economic development will be improved. If for no other reason, we feel that commercial interests should be promoted in a controlled manner in order to improve and broaden the tax base and to help support the cost of such necessary community improvements as a limited public water system. Again, it must be pointed out that properly controlled retail /service development will not "ruin" a semirural community. We expect that there will be development of both types of retail /service establishments - year -round and seasonal. Together, these interests may require 50 to 100 additional acres within the town. It is likely, however, that growth in the year -round retail /service sector will be more limited. As growth occurs in the retail and service sectors, corresponding increases will be 86 F7 Fig. 12 Future Labor Force and Employment 1200 i1111111 Labor Force 1000 August NNE Employment E 1 m November 800 Employment E E 600 W ♦ ♦ ♦♦ -o 0 ♦♦ 400 ♦� ♦♦ LL ♦ ♦♦ 0 0 J 200 1�1 1�1 ISO 1 1 0 1965 1970 1975 1980 1985 Sources: Estimates by Metcalf a Eddy,inc. Years Master Plan Town of Brewster, Mass. GOStON • NEW YORu METCALF G EDDY, INC. Oct. 1968 PALO ALTO ENGINEERS & PLANNERS 3 D apt to occur in the construction and finance, insurance, and real estate sectors. The agricultural and transportation, communica- tions, and utilities sectors are expected to remain relatively unimportant to Brewster's economic base. Based upon the above predictions, we have projected the August and November covered employment totals through 1985. We expect the year -round (November) employment to increase at a gradual rate. The seasonal employment is expected to increase at a more rapid rate, but to remain below the number in the labor force (see Figure 12). Elm METCALF & EDDY. I N C. I PART II 1985 DEVELOPMENT PLAN I 11 I DEVELOPMENT GOALS A Master Plan in any community is merely a reflection of the goals which that town sets for itself. In Brewster, the iden- tification and selection of these goals is particularly important, since the time has now come when pressures for development could radically alter the atmosphere of the town. The directing of these pressures into sound development procedures is the essence of this plan. Having once determined their basic goals, the people of Brewster will be far more able to make ordered, short - term decisions to lead them to their long -range ends. Definitions Defined below are several terms which relate to the planning process in Brewster. Development Goals. These are the long -range objectives for a community as viewed by the residents. Together, the goals iden- tify the desired essential nature of the town beyond the year 2000. iYr Determination of Development Goals In order to obtain an impression of town -wide feeling about development in Brewster, a questionnaire was sent to every house- hold. A copy of the questionnaire is contained in Appendix C. Approximately 425 questionnaires were issued. The actual number returned was 199, or 46.8 percent, a very high percentage for surveys of this type. Based upon the replies to the question - naire and discussions with town officials, a number of general development goals were determined. N Statement of Development Goals Type of Development 1. Maintain the residential character of the town, primarily in single- family dwellings, year round and seasonal. METCALF & EDDY, I N C. Design Scheme. This is a pictorial representation of the development goals. Facility Goals and Standards. These more limited goals express the objectives and needs of the several community facili- ties, both within the planning period (1985) and over the long range. The needs are based upon an established set of facility standards. iYr Determination of Development Goals In order to obtain an impression of town -wide feeling about development in Brewster, a questionnaire was sent to every house- hold. A copy of the questionnaire is contained in Appendix C. Approximately 425 questionnaires were issued. The actual number returned was 199, or 46.8 percent, a very high percentage for surveys of this type. Based upon the replies to the question - naire and discussions with town officials, a number of general development goals were determined. N Statement of Development Goals Type of Development 1. Maintain the residential character of the town, primarily in single- family dwellings, year round and seasonal. METCALF & EDDY, I N C. 2. Maintain a minimum of business development. 3. Allow, but do not encourage, industrial development. Quantity of Development 1. Maintain the rural character of a small Cape Cod town. 2. Plan for seasonal residents, but discourage seasonal transients. 3. Maintain a substantial portion of open space, conserv- ing the particular natural landscape features of Cape Cod. 4. Maintain a commercial base, sized principally for ser- vice to the year -round and seasonal population only. Quality of Development 1. Encourage development of the highest quality. 2. Encourage the development of man -made elements which are harmonious with the natural setting and with other man -made elements. Location of Development 1. Maintain the semirural, residential character of Route 6A. 2. Maintain development within the town's ability to pro- vide essential services and within the physical ability of the land to receive it. 3. Encourage business development in established districts near, but not on, Route 6A. Design Scheme A scheme for the future design of Brewster's environment is represented by the Future Land Use Plan. This plan is the visual expression of the Development Goals, and it is also a summary of the several plan elements (circulation, recreation, conservation, schools, and utilities). Although the elements of the Future Land Use.Plan have a target date of 1985, the Future Land Use Plan it- self provides a framework for growth according to the desired image of Brewster beyond the year 2000. 90 C F r Facility Goals and Standards The facility goals upon which the plan elements are based express the interpretation of the Development Goals as they apply to a particular short- and long -range need. Since the target date for the effectuation program of this Master Plan is 1985, each element of the plan must identify the needs of the community through that date. However, it is also important that long -range goals be developed to express the town's needs beyond the target date. The several plan elements to follow include these facility goals. Tn addition, they contain a list of standards by which the needs of existing and future development may be judged. Following the individual plan elements, the Future Land Use Plan will be presented. 91 METCALF & EDDY, INC. SCHOOL PLAN The purpose of this study is to identify the needs for school facilities to serve Brewster pupils. Based upon a report of past enrollment trends, an evaluation of.the existing school plant, and an analysis of enrollment projections, a school plan for physical facilities is established. Background Public schooling in Brewster for grades K -8 occurs in the Brewster Elementary School. This school is administered under Elementary Union #54, comprising the Towns of Brewster, Eastham, Orleans, and Wellfleet. Prior to September 1, 1966, Brewster was a member of Elementary Union #11, with the Towns of Dennis and Yarmouth. Presently, because there is no junior and senior high facil- ity in Brewster, and because Brewster was not a member of any junior- senior high region, pupils in grades above 8 had a choice of attending on a tuition basis either the Dennis - Yarmouth or the Nauset Regional High Schools. However, by vote of Special Town Meetings in the Union #54 towns in February 1969, Brewster will now become a member of the Nauset Regional School District, to comprise grades 5 -12 by 1971. Until a new Nauset High School is completed in 1971, though, Brewster pupils in grades K -8 will be schooled in Brewster and the senior high students will attend Nauset Regional High. The regionalization of the Union #54 towns on a 5 -4 -4 basis was recommended in a School Building Needs report by the educa- tional. consulting firm of Engelhardt, Engelhardt, and Leggett in 1965. The towns are only now implementing some of the report's suggestions. Past Enrollment Trends The enrollment in Brewster public schools has been increas- ing for several years. In Table 39 is presented the recent trends in enrollment for the major grade levels. Between 1955 and 1.965, the number of Brewster children in the age 5 -19 group increased by 43.5 percent from 20.7 percent to 23.1 percent of the total population. During the same period, the children attending public schools from Brewster increased by 39.3 percent. Although these percentages closely correspond, there have been internal changes in enrollment. In September of 1964, a public kindergarten was instituted in Brewster, which immediately increased enrollment by 30 pupils. The private school enrollments during the early 19601x, however, rose to more than 30 pupils from 92 F n seven pupils in 1955• Consequently, public school enrollment de- creased slightly from 79 percent of the age 5 -19 residents in 1955 to 77 percent in 1965. In summary, the factors affecting the past enrollment of pupils in Brewster schools have been: 1. A substantial growth in the number of town residents aged 5 -19. 2. A growth, and then a decline, in private school enrollment (see Table 39), 3• The initiation of a public kindergarten. Table 39. Enrollment Trends(l) W As of October 1 of each year. (2)In 1964, Brewster instituted a public kindergarten. Sources: Brewster Town Reports. Dennis /Yarmouth and Nauset Regional High Schools. Office of the Superintendent, Orleans. Existing Public School Facilit Until 1969, Brewster maintained only one elementary school, located on Route 6A, approximately mid -way through the town. In Table 40 is summarized general information on the physical plant and site of this school. 93 METCALF & EDDY, INC. 1955 1960 1965 1969 Brewster residents, - - 31 (2) 24 Grade K Brewster residents, 69 70 85 118 Grades 1 -4 Brewster residents, 69 66 78 114 Grades 5 -8 Brewster residents, 51 64 72 105 Grades 9 -12 W As of October 1 of each year. (2)In 1964, Brewster instituted a public kindergarten. Sources: Brewster Town Reports. Dennis /Yarmouth and Nauset Regional High Schools. Office of the Superintendent, Orleans. Existing Public School Facilit Until 1969, Brewster maintained only one elementary school, located on Route 6A, approximately mid -way through the town. In Table 40 is summarized general information on the physical plant and site of this school. 93 METCALF & EDDY, INC. J Table 40. Public School Physical Plant Data Houses grades Year built Materials of construction Height Number of classrooms Existing site size Brewster Elementary 1 -5 (K -8 - prior to September 1969) 1924 - original building 1951 - addition Wood 1 -112 stories plus attic eight 350,000 square feet (8 -1/3 acres) Sources: Superintendent, Union #54. Principal, Brewster Elementary School. Survey by Metcalf & Eddy, Inc., November 1968. In September 1969, Brewster expanded into two additional school facilities. A "portable" classroom with an internal dimen- sion of 960 square feet was installed at the site of the elementary school. This is now being used to house the kindergarten. In addition, the town is leasing the former St. Joan of Arc school in Orleans for the use of grades 6, 7, and 8. This wooden building contains four classrooms, an assembly room, and a corridor library. The surrounding grounds are available to Brewster students for physical activities. Goals and Standards In order to judge the adequacy of the existing facility to meet the needs of Brewster, a number of educational goals must be stated and standards developed to interpret these goals. The following general goals for school facilities in Brewster are suggested.* 1. To develop public school facilities of the highest quality possible within the town's financial capa- bility. 2. To select sites and to develop facilities which com- plement the long -range physical plan of the town. These goals are developed for physical facilities only; they are not intended to interpret the moral and social objectives of education. 94 7) u L D 3. To develop facilities which are multipurpose and which allow use by a variety of age groups. 4. To undertake and implement long -range planning for school facilities so that substandard conditions need never be encountered. Based upon these goals, certain general standards for an elementary school may be derived. These include: mho ci +opt 1. It should be large enough to take care of present needs and future growth (at least 15 acres), 2. It should be large enough to provide for a sightly location for the building, as well as to permit play fields for Physical Education, for Athletics, and for Nature work. 3. If it is to be used as a part of the community park and recreational system, it should provide space for parking and community recreation athletic fields. 4. It should be easily accessible to all the pupils it will serve, either by walking or by bus. 5. It should be large enough so that the building can be placed far enough from the road to avert traffic noise. 6. The topographic and present condition should be such that the investment required to put the land in use for such school purposes should not be great. This would include such things as clearing the site, draining, and grading it. 7. It should be selected based upon suitable soil con- ditions, existing and proposed service areas of utilities, and future population growth areas. The Building and Classrooms 1. The building should provide sufficient classrooms to allow no more than 25 pupils per classroom in grades 1 -8 and 20 pupils per classroom in grades K and 9 -12. Standards No. 1-6 are quoted from the Report of the School Needs Study Committee, Brewster, 1965. 95 METCALF & EDDY, INC. 2. The classrooms should provide at least 30 square feet per pupil and should be designed for a capacity of 30 pupils. 3. There should be a general educational plan for the use of the building. 4. The form and architecture should be harmonious with the natural setting and other man -made elements. 5. The building should provide a safe and flexible internal design. 6. The building should provide adequate space for storage, display, and audio - visual aids. 7. Teaching should take place only in rooms designed for that purpose. The Service Svstems 1. The systems should provide adequate and safe heating, lighting, ventilating, electrical supply, water supply, and sewage and refuse disposal. 2. There should be an adequate system for fire protec- tion, telephones, public address, audio - visual aids, and clocks and bells. Special Uses AA 1. There should be adequate space provided for art, music, a library, physical education, and other - special uses. 2. There should be access available to these special rooms without entering other areas of the building. Adequacy of Facilities* To evaluate the Brewster Elementary School and kindergarten facility, a nationally recognized guide was used. ** This guide establishes criteria, similar to the standards presented above, which serve as the basis of the rating system. The extent of Brewster's compliance with the standards is translated to a numeri- cal-score. The total score possible for any facility is 1,000. The St. Joan of Arc school, since it is a temporary leased facility, was not evaluated. * *Ralph D. McLeary, Guide for Evaluating School Buildings, (Cambridge, New England Development Council, 1952), IV plus 52 pp. 96 1 0 This score is seldom, if ever, attained. The total score for a particular school, however, is translated by the evaluator into descriptive categories as follows: 850 -13000 - Excellent. Few or no improvements needed. 650 -849 - Good. Certain desirable facilities are com- pletely lacking or inadequate. 500 -649 - Fair. Deficiencies are more numerous, although some can be corrected. 400 -499 - Poor. Inadequate and lacking in most of the features of a modern school. Below 400 - Unsatisfactory. The building should be abandoned at the earliest possible time. In Table 41 are presented the results of applying the rating guide to the Brewster school. Table 41. Physical Plant Evaluation Possible Actual Score Score Site 120 113 Building 170 107 Classrooms 315 212 Service Systems 225 118 Special Rooms 170 118 TOTAL 1,000 668 - Fair to Good Source: Field survey by Metcalf & Eddy, Inc., using McLeary Evaluation Guide. The Brewster Elementary School, with the addition of the portable classroom, was rated as a fair -to -good facility. The reasons for this low rating are generally those enumerated in the Engelhardt report of 1965.* These include lack of fireproofing; small classrooms, poor lighting, narrow corridors and insufficient School Building Needs, October 1965, Engelhardt, Engelhardt and Leggett, pp. 29 -31. 97 METCALF & EDDY, INC. storage in the older section; poor facilities for the library; and poor ventilation, heating, and flooring in the all- purpose room. In addition, our survey discovered other deficiencies in the facility. 1. Electrical system. It has been reported that the wiring system, particularly in the old section, is becoming overloaded. 2. Drainage of site. Drainage problems occur in two areas: on the ball field at the front of the school, and around the multipurpose room at the rear. 3. Utility service. There are three problems in this category: first, the well pump in the floor of the boiler room is subject to short circuiting if water should leak from any source; second, the existing boiler is experiencing some lost efficiency; and third, the cesspool for the kitchen is beginning to function poorly. 4. Attic space. The attic space, which is used on a limited basis for storage, is reported to be in- accessible, poorly ventilated, and experiencing water leaks. It is important to note here, however, that despite the* actual physical inadequacies of the facility, some of these in- adequacies could be corrected. For example, the lighting, wiring, boiler, and fireproof problems could be eliminated; and the school could continue to function as an adequate facility for several years. However, because of the age and design of the structure and its lack of expansibility, the facility should be considered for replacement before the end of the planning period. Capacity and Utilization. Space needed within a school facility is related to the total number of pupils, the total num- ber of rooms, and the space provided within these rooms. In Table 42 is presented an indication of the capacity and present use of the Brewster Elementary School. As indicated in this table, the school contains some additional space for expansion. The kindergarten building contains sufficient space to accommodate 32 pupils adequately at one time. However, since this building is available for two sessions per day, the actual capacity is doubled. Presently, the use of the building for 24 pupils in one session is straining the teacher's capacity and is exceeding the standard of 20 pupils per room for kindergarten. G D 0 0 n Table 42. Capacity and Utilization Brewster Elementary plus Portable Room Number of standard classrooms available Number of classrooms being used Standard pupil capacity, based on 25 pupils per room for 3 larger rooms, 20 pupils per room for 5 small rooms, and 25 pupils per session for kindergarten Enrollment, October 1, 1969 Remaining pupil capacity Percent enrollment of total capacity Total square feet of classroom space required, based on 30 square feet of classroom space per pupil enrolled Total square feet of standard classroom space now available Remaining classroom space- square feet Percent classroom space required of space now available 9 8 200 -225 (if port- able room is used for 2 kindergarten sessions) 178 22 -57 79 -89% 5,340 6,708 1,368 80% Sources: Principal, Brewster Elementary School. Town Records. Survey by Metcalf & Eddy, Inc. Future Needs The future school needs of Brewster are based upon the pro- jections of enrollments of town students both within the local school and in regional schools. As stated above, Brewster will become a member of the Nauset Regional School system for grades 5 -12, upon the completion of a new high school in 1971. Until that time, however, the town must continue to assume total respon- sibility for housing grades K -8. 99 METCALF & EDDY, I N C. Future Public School Enrollments. Future public school enrollments, both at the Brewster Elementary School and Nauset Regional schools, have been based on the following assumptions: 1. The population of Brewster aged 5 -19 will total 453 in 1970, 545 in 1975, 622 in 1980, and 716 in 1985 (as projected in the Population section of this report). 2. The parochial school enrollment will become a minor amount. (In 1968, Holy Trinity enrolled no students from Brewster, and St. Joan of Arc only six. St. Joan was closed in June 1969.) 3. The number of students enrolled at Brewster pub- lic schools, including Nauset Regional High School, will total approximately 80 -85 percent of the pop- ulation aged 5 -19 through 1985. In Table 43 are presented the future enrollments of Brewster pupils in grades K -12 as projected by Metcalf & Eddy, Inc. Also included in the table are indications of enrollment projections from other sources. It is obvious closely correspond. our projections and K -4 grades in 1970. committee for grades by only 2 students. from the table that the three projections The greatest divergence (32 students) between those by the Engelhardt firm, occurs in the' However, the projections by the local study 1 -4 in that year, vary from our projections Classroom Needs. The actual classrooms needed to adequately serve Brewster pupils are presented in Table 44. The needs are derived from the projected enrollments within each grade, based upon the standards of 20 to 25 pupils per room. Because of the use of the St. Joan of Arc school and the kindergarten building, the pressing space needs in Brewster have, for the moment, been eliminated. This situation should continue well into the 1970's, because of the construction of new regional facilities for grades 5 -12. However, toward the end of the plan- ning period, there will again be a need for additional space. There will also be a need for other amenities of a modern school, including an adequate library, special activity rooms, and proper utilities. Potential School Sites It appears that Brewster will require an additional school facility within the not -too- distant future. Since the present site is too small to accommodate another facility, it will be 100 n 11 necessary to select another suitable location. Several potential sites for a facility were evaluated. The location of these sites is presented on Figure 13, and an evaluation of each of them is given below.* Table 43. Future Brewster Enrollments Grades 1970 -71 1975 -76 19,80 -81 1985 -86 Projections By: Metcalf & Eddy, Inc. K 22 36 42 49 1 -4 112 130 166 180 5 -8 128 122 135 176 9 -12 113 157 139 168 Engelhardt, K -4 102 Engelhardt and Leggett 5 -8 122 - - - 9 -12 109 155 - - Brewster School K - Needs Study Committee 1 -4 110 - - - 5 -8 106 - - - 9 -12 103 147 - - Sources: School Building Needs, Engelhardt, Engelhardt and Leggett, October 1965. Report of the Brewster School Needs Study Committee, 1965• Projections by Metcalf & Eddy, Inc. Soils information for these sites is derived from the report of the Soil Conservation Service for Brewster. 101 METCALF & EDDY, I N C. Table 144. Projected Future Classroom Needs Brewster and Nauset Schools 1970(1) 1975 1980 1985 Kindergarten Projected enrollment Existing standard spaces Desirable classrooms (based on 20 pupils per room) Space needs Dower School (Grades 1 -4) 22 36 42 2 2 2 1 2 2 49 2 2 -3 (none) (none) (none) 0 -1 (one class- room) Projected enrollment 112 130 166 180 Existing standard classrooms 6 8 8 8 Desirable classrooms (based 5 to 6 6 to 7 8 8 -9 on capacity of existing rooms and needs per grade at average size class of 25 pupils Classroom needs (none) (none) (none) 0 -1 Middle School (Grades 5 -8)(2) Projected enrollment 128 122 155 176 Existing standard teaching 6 0 0 0 spaces Desirable space (based on 5 to 6 5 8 8 capacity of existing rooms and needs per grade at average size class of 25 pupils Space needs 0 5 8 8 Upper School (Grades 9- 12)(2) Projected enrollment 113 157 139 168 Existing teaching spaces 0 0 0 0 Desirable space (based on 6 8 8 8 needs per grade at average size class of 20 pupils) Space needs 6 8 8 8 (1)Assumes use of Brewster Schools for grades K-8 until 1971. (2)Brewster only. Source: Survey and projections by Metcalf & Eddy, Inc. 102 J EI- U v e � d A ��f m s r T m s Z � n o m Z o Z D m m o � N 90 'v r D Z Z m m H Site B - Harwich Road. This site is located near the cen- ter of the town on a major thoroughfare. Soils at the site are Carver course sand and Windsor very stony loamy sand; slopes are less than three percent. Both of these condi- tions make the site physically suitable. Also, there are large lots in the area. The proposed water lines approach the site. Site C - Underpass. This site, containing 51.5 acres, is already owned by the town, although it remains undeveloped. The northern section of the site contains poor soils which are unsuitable for development because of the high water table. However, the southern half of the site contains soils which have only slight to moderate limitations for septic tank sewage disposal. The site borders on the abandoned railroad tracks (which could become a recreational resource). Site D - Long Pond Road. Located almost across the street from Site C, this site contains the same soils as C but is characterized by a greater variety of slopes. There are large lots in the area, and the site is on a proposed water line. Site E - Long Pond Road. Site E is located in the southern portion of the town between Long Pond Road and Millstone Road. The soils (Carver course sand) and the slope (less than three percent) make the site physically suitable. There are large lots in the area, and the site is proposed to be served by public water. Sites F and G - Millstone Road. These sites, located be- tween two growing residential areas and on a major street, have similar soil conditions to those discussed above. Site G, however, is characterized by slopes of 3 to 15 per- cent, while slopes at Site F are generally less than three percent. Both sites contain large lots, and are proposed to be served by public water. 103 METCALF & E D D Y, INC. Site A - Dillingham Road. This site is located in West Brewster near the Old Mill and Paine's Creek (which should be used as an educational resource) and would be accessible to the public school children in that area. The soil at the site is Carver course sand, suitable for a school build- ing; but the slope of three to eight percent is somewhat detrimental. There are large lots in the area which could be easily assembled. The planned water service area ap- proaches the site. Site B - Harwich Road. This site is located near the cen- ter of the town on a major thoroughfare. Soils at the site are Carver course sand and Windsor very stony loamy sand; slopes are less than three percent. Both of these condi- tions make the site physically suitable. Also, there are large lots in the area. The proposed water lines approach the site. Site C - Underpass. This site, containing 51.5 acres, is already owned by the town, although it remains undeveloped. The northern section of the site contains poor soils which are unsuitable for development because of the high water table. However, the southern half of the site contains soils which have only slight to moderate limitations for septic tank sewage disposal. The site borders on the abandoned railroad tracks (which could become a recreational resource). Site D - Long Pond Road. Located almost across the street from Site C, this site contains the same soils as C but is characterized by a greater variety of slopes. There are large lots in the area, and the site is on a proposed water line. Site E - Long Pond Road. Site E is located in the southern portion of the town between Long Pond Road and Millstone Road. The soils (Carver course sand) and the slope (less than three percent) make the site physically suitable. There are large lots in the area, and the site is proposed to be served by public water. Sites F and G - Millstone Road. These sites, located be- tween two growing residential areas and on a major street, have similar soil conditions to those discussed above. Site G, however, is characterized by slopes of 3 to 15 per- cent, while slopes at Site F are generally less than three percent. Both sites contain large lots, and are proposed to be served by public water. 103 METCALF & E D D Y, INC. Fri Site H - Millstone Road and Main Street. This site would allow access from two major roads and would be nearly adja- cent to Nickerson State Park (which should be used as a greater year -round educational resource). The soils at the site are Carver very stony course sand and Carver course sand with a compact substratum, Because of this latter soil type, the site might not be suitable if the substratum were close enough to the surface to inhibit effective internal drainage. The slopes vary up to 15 percent, which could present another difficulty. There are, however, large lots in the area, and water lines are proposed to run adjacent to the site. Site I - Town Hall and Annie Hazard Property. The use of this site will depend upon the town's plan for the town hall building or for possible relocation to this site for the fire and police building. (See the Future Land Use Plan section of this report.) The soils at this site are Carver course sands with a hardpan substratum. This sub- stratum could prove a difficulty if it is sufficiently shallow to interfere with drainage from spetic tanks. The advantage of this site, on the other hand, is that it is already town property. Recommendations Our basic recommendations are twofold: first, that Brewster encourage the present Nauset Regional towns to regionalize the administration of all grades K -12; and second, that Brewster adopt the policy that it provide physical facilities to produce the high- est quality of education for its pupils. The first recommendation does not include the suggestion that grades K -4 be located outside of Brewster. It is, in fact, an expressed opinion of Brewster officials that the town wishes to retain locally grades K -4 facil- ities. However, the efficiency of regional operation, resulting in savings to all of the towns and the advantages to curriculum planning, cannot be overlooked. The second recommendation is for long -term school planning. It includes the suggestion that Brewster determine to prevent a renewal of overcrowded conditions and to recognize the developing needs of a modern school plant. Based these upon policy proposals, we recommend that Brewster construct a new K -4 facility by 1980 and abandon the existing facilities for school purposes. The reasons for this recommendation are several. They include: 1. Age of Existing Plant. Although much can be done to improve the existing school plant to serve for several more years, there is a point of diminishing returns beyond which additional expenditures on an old structure become uneconomical. 104 rw R n n 2. Size of Existing Plant. There will be a need, before the end of the planning period, for up to two additional classrooms. Although the existing plant could be ex- panded, either by additions to the large structure or by purchasing other, single classrooms, the cost would not be justified. In addition, the available space to locate single classrooms or to expand the large struc- ture to the rear is limited because of poor soil con- ditions. 3. Need for Adequate Supporting Facility Space. Until approximately 19d5, the number of classrooms at the Brewster Elementary School will be adequate. However, there are other needs of a modern school plant. For example, there will be a need for larger administrative offices, for a proper library, art and music rooms, for modern lavatories, and for additional storage space. These needs cannot be met properly in the existing structure. 4. Need for Only One Facility. It appears that, well beyond the extent of the planning period, there will be a need in Brewster for only one K -4 facility. It would not be economical to operate both the present elementary school and another school plant. Conse- quently, the new plant should be centrally located and designed for expansion. The site recommended for the new facility is Site C, the site presently owned by the town (see Figure 13). This site is centrally located and contains adequate size, slopes, and soil ditions for use as a school facility. We suggest that access con i to the site be acquired from Underpass Road; and, if possible, via or adjacent to the abandoned railroad tracks from Long Pond Road. The latter is recommended because of the advantage of an entrance from a collector instead of a minor road. The entrance driveway could be so designed as to coordinate and not interfere with the proposed bicycle trail to be developed along the railroad right -of -way. We believe that by 1980, a new elementary education plant will be essential in Brewster to provide the type and extent of instruction required to place Brewster's pupils in the best possi- ble position to succeed in later school situations. Proposals for the future use of the school building are contained in the Recrea- tion and Future Land Use chapters of this report. 105 METCALF & EDDY, I N C. CIRCULATION AND PARKING PLAN The purpose of this study is to identify the highway and parking needs of Brewster. The existing road system was analyzed according to a number of physical. criteria, including cross - sectional and geometric design and traffic volume capacity. In addition, the pattern of the system was compared with the existing and projected development within the town. Parking within the town, particularly that associated with town land, was surveyed and analyzed according to its ability to meet present and future demands. Based upon this analysis of various needs, recommendations for improvements to roads and parking areas are made. Streets and Highways Definitions Technical terms used in this section are defined as follows: 1. A.D.T. (Average Daily Traffic). The total number of cars in both directions passing a point on a street during a 24 hour period. Because of the seasonal variations in traffic through Brewster, A.D.T.'s for this study are noted as Summer (average daily traffic during August) and Winter average daily traffic during January). 2. Alignment, Horizontal. The extent to which a road maintains a straight horizontal course. 3. Alignment, Vertical. The extent to which a road maintains a straight vertical course. 4. Arterial, Primary. A major highway, having controlled access, which serves as the principal means of access to an area. 5. Arterial, Secondary. A highway designed primarily for through or intercommunity traffic without any control of access along its route. 6. Bridge. A structure used to carry one type of bed roadway, railway, stream) over another with a clear - span length of at least 20 ft. 7. Collector, Primary. Streets which receive and dis- tribute traffic to and from subareas within the region. These streets may be part of the state highway system. 106 r it L 8. Collector, Secondary. Local streets which connect to and small population centers and carry traffic from higher level roads. g. Levels of Service. An expression of the relation- ship between roadway conditions.and traffic volumes. As defined by the National Academy of Sciences' Highwa Ca acity Manual, roads function between Level A uninterrupted traffic with light volumes) to Level F (intolerable volumes with heavy, frequently stopped traffic). The Academy recommends that road. Level B to C be used for design of a rural 10. Minor Road. Streets which serve primarily to pro- vide access to individual parcels. These are com- parable to streets developed in a subdivision. 11. Road Capacity• The greatest total number of cars in both directions which a road can practically carry. 12. Sight Stopping Distance. The visible distance, of a roadway measured along the normal travel path when the view is unobstructed by traffic, required for the driver of a car to safely stop his vehicle. Existing Conditions On Figure 14 is presented an inventory of the existing: street and highway system in Brewster. The streets shown as double solid lines are those which have been formally accepted by the town. The broken double lines indicate subdivision streets, which are apt to be accepted eventually by the town, or unused streets, many of which are public ways. The broken single lines indicate minor paths or ways, most of which are private. Streets and. highways within or passing through Brewster may be classified as follows (See Figure 14). Primary Arterial. Secondary Arterial. Primary Collector. Secondary Collector. Minor Road.s. 0 Route 6 Route 6A Satucket Road., Airline Road, Slough Road., Harwich Road, Long Pond. Road., Orleans Harwich Road. Millstone Road all other roads 107 METCALF & EDDY, I N C. F1 The characteristics of the major streets in Brewster are contained in Table 45. Table 45. Street Characteristics, Arterial and Collector Streets 14U. 01 No. of oul ers Total 1Jave- Street Travel Lanes or Parking Lanes ment Width Primary Arterial. Route 6 2 2 shoulders �l) 24 ft. Secondary Arterial Route 6A 2 0 24 Collector Satucket Road 2 0 Airline Road 2 0 24 Slough Road, 2 0 24 Harwich Road 2 0 22 Long Pond Road 2 0 24 Orleans Harwich 24 Road 2 0 Millstone Road 2 0 20 20 (1)Shoulders are not paved. Source: Massachusetts Department of Public Works The traffic which travels these roads varies considerably between summer and winter. See Figure 15.) The contrast 1.s especially evident on Route bA which serves as the "Cranberry Highway " -- a tourist thru way -.- during the summer months but is reduced in function to a local arterial road. for the remainder of the year. A major influence of traffic on Route 6A is Nickerson State Park, whose main entrance is adjacent to the "Cranberry Highway in East Brewster. In fact, summer traffic volumes on Route 6A -East Brewster have averaged nearly twice those on 6A in West Brewster. The minor roads in Brewster are of two types: 1) older roads which originated as cartways or farm roads and 2) new road.s of residential subdivisions. The older roads generally have paved widths of 20 ft. or less. The subdivision streets usually have provisions for drainage, including bituminous berm curbs, 108 f� I a Cape cod Boy H A R W I C H` METCALF & EDDY INC. ENGINEERS & PLANNERS s Boston • New York • Polo Alto METCALF & EDDY INC. ENGINEERS & PLANNERS Boston • New York • Palo Alto Fig.15 _ January doily Volume August daily Volume Scale smo T—n WV �. Mol• RMS s voYwr mLeod tans xis moo D«m•e b: ve • M cavpmoM14 .tn •Mrr ro•4 w ttn.•a. Source Moss DeporWwd of H,Mc Wanks EstimW by Metcalf 9 Eddy MASTER PLAN 3REWSTER, MASSACHUSETTS iuw.f9 TRAFFIC PATTERNS D surfaced and. smooth condition. 4. Level of service - maintenance of a service level of C or better. Level C represents somewhat restricted but stable traffic flow with a medium amount of traffic volume. 5. Pattern - service to and. compatibility with the existing and. future land use. Adequacy The adequacy of the streets and highways was judged . based upon the standards listed above. Cross - Sectional Design. None of the roads in Brewster presently meet e cross -sec Tonal design standard.s. Although the paved lane width of the major streets generally are adequate, (except for Slough, Orleans- Harwich and Millstone Roads), provi- sions for parking lanes, shoulders, sidewalks, or planting strips are almost totally lacking. The minor streets, particularly those not developed. in subdivisions, are inadequate in all aspects, even in pavement width. Geometric Design. The road.s in Brewster presently exhibit ina.equacies in every category of geometric design. Particular problems of geometric design are indicated. on Figure 14. Vertical and /or horizontal alignment problems occur primarily on *Brewster subdivision regulations require a "prepared, roadway" of 25 ft. but pavement of only 20 ft. * *Traffic counts on minor road.s are not available. 109 METCALF & EDDY. I N C. but these roads also are apt to have pavement widths of only 20 feet.* ** There is only one road bridge in Brewster. It carries Freeman's Way, an unpaved road, for most of its length, over Route 6. Because bridge design and. construction is not apt to be a factor in the circulation system in Brewster, it will not be considered further in this report. Standards In ord.er to judge the adequacy of the street and highway system, the following minimum stand.ard.s were applied: 1. Cross - sectional design (see Table 46). 2. Geometric design (see Table 47). 3. Pavement - maintain all public roads in a paved, hard. surfaced and. smooth condition. 4. Level of service - maintenance of a service level of C or better. Level C represents somewhat restricted but stable traffic flow with a medium amount of traffic volume. 5. Pattern - service to and. compatibility with the existing and. future land use. Adequacy The adequacy of the streets and highways was judged . based upon the standards listed above. Cross - Sectional Design. None of the roads in Brewster presently meet e cross -sec Tonal design standard.s. Although the paved lane width of the major streets generally are adequate, (except for Slough, Orleans- Harwich and Millstone Roads), provi- sions for parking lanes, shoulders, sidewalks, or planting strips are almost totally lacking. The minor streets, particularly those not developed. in subdivisions, are inadequate in all aspects, even in pavement width. Geometric Design. The road.s in Brewster presently exhibit ina.equacies in every category of geometric design. Particular problems of geometric design are indicated. on Figure 14. Vertical and /or horizontal alignment problems occur primarily on *Brewster subdivision regulations require a "prepared, roadway" of 25 ft. but pavement of only 20 ft. * *Traffic counts on minor road.s are not available. 109 METCALF & EDDY. I N C. Table 46. Street Cross Sectional Design Standards(1) CoTlector,Streets Minor Streets Primary Secondary (7�— (2) ^(2) (2) (2) (2) Characteristic Urban Rural Urban Rural Urban Rural Permitted access full full full full full full Design speed 60 60 50 50 40 4o Right of way width, ft. 64 56 50 44 46 4o Moving lanes- number 2 2 2 2 2 2 width of each (ft.) 12 12 12 12 11 11 Parking lanes - number 2 0 1 0 1 0 width of each (ft.) 8 - 8 - 8 _ Shoulders, number 0 2 0 1 0 1 width of each (ft.) - 4 - 4 _ 4 Total width of pavement (incl. shoulders) (ft.) 40 32 32 28 30 26 Planting strip, number 2 2 2 2 2 2 width of each (ft.) 6 .6 3 3 3 3 Sidewalk, number 2 2 2 1 2 1 width of each (ft.) 6 6 6 6 5 5 Curbing required Yes No Yes No Yes No (1)Design standards for arterial roads shall be determined by the Massachusetts Department of Public Works. (2) Urban street shall refer to any street within or passing through an area where lots generally are 15,000 sq. ft. or less. Rural street shall refer to any street passing through an area where lots generally are 15,000 sq. ft. or more. Source: Generally accepted cross sectional standards adjusted. by Metcalf & Eddy, Inc. to meet the needs of Brewster. 110 Table 47. Geometric Design Stand.ard.s(1) r(1)Design standards for arterial streets shall be determined by the Massachusetts Department of Public Works. Source: Generally accepted geometric design standards adjusted by Metcalf & Eddy, Inc. to meet the needs of Brewster. 111 METCALF & EDDY, I N C. uolleczor btreets Characteristic Primary Secondary Minor Street Horizontal Alignment Minimum ra ius a centerline (ft.) 1,260 830 510 Vertical Alignment Minimum sight stopping distance (ft.) 475 350 275 Grad.e Maximum 3 5 7 Minimum 0.5 0,5 0.5 Intersection inlmum intersection angle Minimum intersection 60 deg. 60 deg. 60 deg. offset (ft.) 125 125 125 Sight stopping distance (ft.) 625 550 450 Dead. End. Streets - generally d.iscouraged. but if required.: Maximum length (not (not 600 ft. allowed.) allowed.) Minimum turnaround radius (not (not 50 ft. allowed) allowed,) r(1)Design standards for arterial streets shall be determined by the Massachusetts Department of Public Works. Source: Generally accepted geometric design standards adjusted by Metcalf & Eddy, Inc. to meet the needs of Brewster. 111 METCALF & EDDY, I N C. F minor streets, although some difficult areas are found along Route 6A and. Millstone Road. Excessive road grad.es are found within many recent subdivisions; these are especially dangerous in areas of immediate access to water (see Figure 14). Intersec- tion problems involving major and minor streets are found mainly along Route 6A and along the primary collector roads. Most of the inadequacies involve insufficient sight distance at the inter- sections. An example of, excessive intersection angle, however, occurs at Stoney Brook Road. and Run Hill Road.. , Dead end. streets, even those of less than 600 ft., can be the cause of problems for trucks or fire engines. Many dead. end. streets have been allowed. to develop in Brewster, even in places where there is no physical barrier to the extension and joining of streets. These streets, in general, do not have adequate radial distances in the turnarounds. Pavement. The surface of most of the roads is in sound. condition. Only Great Fields Road, and. its extension and. Free- man's Way are major roads which are unpaved, and the town pre- sently is undertaking the paving of Freeman's Way to Route 6. Level of Service. As indicated in Table 48, most of the roads in Brewster are unctioning, even during the summer, at a volume /capacity relationship consistent with or lower than Level of Service C. They are projected to continue to function within or better than Level C throughout the planning period. (1985). - Only central and eastern Route 6A, during the summer, is expected. to approach or exceed that level. By 195, unless alternate conditions cause a reduction of volumes on Route 6A, the traffic wishing to use the eastern end. of that road. is expected during the summer to exceed. the capacity of the road. at its worst operating level (which is 11,300 cars at Level E, the level of unstable flow and low speed.$). Pattern. Brewster appears to be fairly well served by its street system. However, east -west movement through the town requires travel, for at least some of the distance, on Route 6A. During the winter, such a pattern may not create a problem. Considering the heavy amounts of traffic on that highway during the summer, however, frequent entries to and, exits from this through- street create interruptions in the traffic flow and potentially dangerous roadway situations. A growing problem in Brewster is the uncoordinated develop- ment of subdivision streets. Although each subdivision is con- sidered for approval by the Planning Board. as an individual case, many subdivisions are developing directly adjacent to one another with no means of interaccess. This lack of cross access is creating a difficult circulation pattern and is causing undue strain on the existing collector streets. 112 1 i� Table 48. Volume/Capacity Relationships (1) A.D.T. s ima e Projected A.D.T. Capacity at Volumes, 1968 Volumes, 1985 Level C Summer Winter Summer Winter Route 6A - East Central West Airline Road Slough Road. Satucket Road. Harwich Road. Long Pond Road. - North - South Millstone Road. Orleans Harwich Road 8,700 9,200* 1,300 12,600* 1,900 8,700 7,700 1,200 8,800* 1,700 8,700 5,500 1,200 7,100 15600 7,100 1,000 200 1,400 300 7,600 600 200 800 300 8,500 goo 200 1,300 300 8,700 2,000 500 2,700 700 8,700 1,000 200 1,500 400 8,700 2,000 400 2,700 500 7,100 2,000 400 2,700 500 6,500 29000 400 2,500 500 (l)Route 6, since it functions apart from the local Brewster situation, is not considered in this Table. *Indicates Volume exceeds Capacity at Level C. Source: Massachusetts Department of Public Works Estimates and Projections by Metcalf & Eddy, Inc. 113 METCALF & EDDY. INC. Recommendations The recommendations for streets and. highways in Brewster are based primarily on an analysis of the inadequacies described above. A basic recommendation is for the town to ad.opt, both for itself as future road building policy and for developers through the subdivision regulations, the standards suggested in items 1 to 4 of the Standards section of this report. It is further recommended that inspection of construction under subdivision control to ensure compliance with the regulations be strictly and conscientiously pursued. In addition, we suggest that the Planning Board. require under its subdivision regulations a locational map at a scale of 1" = 800' (the scale of the town base map) for definitive plan applications. This will allow the Board to easily transfer sub- division plans onto a town base map where the need to require alterations in plans in order to provide a sensible overall circulation pattern will be readily observable. At the same time, however, we suggest that the town accept as its policy the determination not to upgrad.e existing minor streets, particularly in residential areas, to a collector level. The upgrading of such streets could. cause a considerable lowering of land values in the adjacent area. One other general suggestion is made: that all inter- sections be indicated. with signs or painted strips in the street and. that brush be kept clear on the corners. These minor alter- ations should. eliminate most of the intersection problems. Other more specific recommendations are presented. on Figure 14. These include: 1. Requesting the Massachusetts Department of Public Works to reduce the speed limits along Route 6A. The present limits of 45 to 50 m.p.h. are not compatible with the physical conditions of the road., and they are especially out of order near the entrance to Nickerson State Park. Route 6A has experienced 16 traffic accidents during the last five years. Fifteen of these have been in East Brewster near the entrance to Nickerson where the speed limit is 50 m.p.h. Lowering the limit would produce a double effect of increasing the volume capacity and the safety of this road.. 114 0 D 2. Requesting the Massachusetts Department of Public Works to construct a direct entrance to the state park from Route 6 when that road is "double- barrelled." This new entrance to the reservation, which could be provided either by a new interchange or with a direct access road off the existing interchange, would greatly reduce the burden on Route 6A and. should allow Route 6A to function at a lower, more reasonable traffic level during the summer months. It would. also provide the visitors to the park with a safe and unhindered means of access. (See Figure 14.) 3. Place warning signs on the approaches to the Harwich and Long Pond (Depot) Roads intersections. Despite the flashing lights, there have been ten accidents, including two fatalities, at this intersection during the last five years. We recommend that "dangerous intersection ahead" be placed on Harwich Road and "full stop ahead" be placed on Long Pond Road approaches. In addition, we recommend greater surveilance of this intersection be undertaken to apprehend local drivers who are used to "running" the stop light. 4. Constructing new roadways and reconstructing Underpass Road to service the new Brewster Center (see Figure 14 and the Future Land Use Plan section of this report). The development of the Center, including the proposed recreation center and playfield, are dependent upon provisions for access. Consequently, this project should be given top priority for local effort. 5. Realigning and paving Great Fields Road to function as a secondary collector street. 6. Upgrading of Freeman's Way to the level of a secondary collector street., The upgrading of this street between Long Pond Road and Route 6 was begun in the spring of 1969. However, the town should be certain that the finished roadway conforms to the geometric and cross - sectional design standards of a secondary collector street. 7. Constructing a new secondary collector road between Harwich and Long Pond Roads to connect Great Fields Road and Freeman's Way. The construction or upgrading of these three roads will provide a circumferential route through Brewster which will serve two purposes: a. It will allow traffic a means of crossing east - west through the town without the use of Route 6A. 115 METCALF & EDDY, INC. b. It will connect and improve access to several subdivisions which are developing in southern Brewster. 8. Instituting a one -way system at the intersection of Route 6A and Breakwater Road. The narrow pavement at the Y intersection is sufficient for only one lane of traffic. 9. Eliminate the island at the intersection of Ellis Landing Road and Route 6A. The dangers of crossing traffic and of narrow lanes can be avoided easily (in this case) by the elimination of the island. rw Parking and Traffic Existing Conditions The generators of traffic in Brewster.vary with the season. During the winter and. spring, traffic is attracted to Routes 6A, 124, and 137 as means of access to shopping, work, and essential services in nearby towns. During the summer, traffic is attracted primarily to Route 6A as a scenic Cape highway with tourist attrac- tions and. as an access road to the town's salt water beaches and. to Nickerson State Park. By the fall, traffic is again spread along the main three routes, although Route 6A remains relatively well used., particularly on week - ends, as tourists continue to be attracted by the autumn scenery on the Cranberry Highway. As indicated in the previous section, traffic volumes on the highways are not a problem in Brewster except for a limited time on eastern Route 6A. Some of the traffic, however, desires parking space within the town. The facilities where parking is demanded are several. They include: 1. Local shops, stores, restaurants and. service establishments 2. Amusement and educational facilities (Sealand., Drummer Boy Museum, Wild Animal Farm, Cape Cod. Junior Museum, the Old Mill) 3. Public and semi- public buildings 4. Motels, inns, and camps* 5. Salt and fresh water beaches and landings Standards Planning standards for adequate service to traffic on the town's streets and highways are presented in the above section. The following standards relating to off - street parking are sug- gested for Brewster. kinc uding camping areas but not including Nickerson State Park. 117 METCALF & EDDY, I N C. Table 49. Off- Street Parking Standards Category Number of parking spaces required 1. Local shop, store, res- taurant or service establishment 2. Amusement or educational facility 3. Public and semi - public - school -other assembly facility -other facility 4. Motels, inns, and. camps 5. Salt and fresh water beaches and landings Adequacy One per each 100 sq. ft. of net floor space One per each 4 persons of building or area capacity Two per classroom in an elemen- tary school plus one per each four seats of the largest assembly room One per each three seats of total seating capacity One per each 300 sq. ft. of net floor space One and one -half per rental unit or one per each 3 persons at capacity, whichever is greater One per each 3.3 percent of maximum seasonal population (based on d.esired service of 1 tenth of the population at one time and an average of 3 persons per car) The traffic generated within Brewster or passing through the town is generally well served by the circulation system (see the above section). However, service to the traffic which wishes to stop within the town is not always adequate. The various establishments or facilities in Brewster provide a range of off - street parking needs. Many of the local shops and stores have not established a sufficient number of off - street spaces, thereby requiring their patrons to park at the edge of the roadway and interfere with traffic. On the other hand, most of the restau- rants, churches, amusement facilities, and seasonal residential facilities do provide adequate off - street parking. 118 r, 11 0 0 D Assuming that the desired capacity of the old mill building and surrounding area is 60 persons, there should be at least 15 parking spaces available at the site. At present, there are only 4 to 5 off - street spaces available. The areas least well served by parking are the town's beaches and landings. (See Figure 14.) Included in Table 50 is an inventory of the existing parking capacity of town landings.* Also included is an estimate of the number of persons served by each landing. Application of the parking standards presented above indicates that presently the town landings and beaches should be able to accommodate 380 cars or approximately 1,150 persons at one time. By 1985, the requirement will be for 470 cars or approximately 1,425 persons. There appears, therefore,_ to be a deficiency now of approximately 80 spaces to serve an additional 260 persons and of 170 spaces to serve an additional 535 persons by 1985• This evaluation of deficiency complies with observations of capacity usage of the available landings during peak periods. Recommendations The recommendations for improvements to the traffic system in Brewster are made in the above section. Implementation of the following recommendations concerning off - street parking should also help in maintaining a free flow of traffic. Our basic suggestion for improving the parking supply in Brewster is for the town to include the standards listed above in its zoning by -law and then to actively seek to apply the standards." This is, in effect, the only feasible means of up- grading the off - street parking supply at private commercial or institutional facilities and assuring that adequate parking will be provided in the new commercial and community facility center. In areas w ere parking spaces are marked, the number of'marked spaces were counted. In unmarked areas, estimates of existing capacity were made. * *The off - street parking standards are included in our Proposed Zoning By -Law, submitted under separate cover. 119 METCALF & EDDY, INC. One of the greatest offenders in not providing adequate parking is the Town of Brewster itself. The town is responsible for parking at several locations, including the Town Hall, Brewster Elementary School, the fire and. police station, the old . mill, and. the public beaches and landings. Only the Town Hall is adequately served. According to the above standards, the elementary school should, provide parking for approximately 75 cars. The present capacity is less than 20, and. the parking area is the only paved area for play also. The police and fire station should have at least 5 adequate spaces. Because of the shape of the parking area and entrance there is adequate space for only 3. D Assuming that the desired capacity of the old mill building and surrounding area is 60 persons, there should be at least 15 parking spaces available at the site. At present, there are only 4 to 5 off - street spaces available. The areas least well served by parking are the town's beaches and landings. (See Figure 14.) Included in Table 50 is an inventory of the existing parking capacity of town landings.* Also included is an estimate of the number of persons served by each landing. Application of the parking standards presented above indicates that presently the town landings and beaches should be able to accommodate 380 cars or approximately 1,150 persons at one time. By 1985, the requirement will be for 470 cars or approximately 1,425 persons. There appears, therefore,_ to be a deficiency now of approximately 80 spaces to serve an additional 260 persons and of 170 spaces to serve an additional 535 persons by 1985• This evaluation of deficiency complies with observations of capacity usage of the available landings during peak periods. Recommendations The recommendations for improvements to the traffic system in Brewster are made in the above section. Implementation of the following recommendations concerning off - street parking should also help in maintaining a free flow of traffic. Our basic suggestion for improving the parking supply in Brewster is for the town to include the standards listed above in its zoning by -law and then to actively seek to apply the standards." This is, in effect, the only feasible means of up- grading the off - street parking supply at private commercial or institutional facilities and assuring that adequate parking will be provided in the new commercial and community facility center. In areas w ere parking spaces are marked, the number of'marked spaces were counted. In unmarked areas, estimates of existing capacity were made. * *The off - street parking standards are included in our Proposed Zoning By -Law, submitted under separate cover. 119 METCALF & EDDY, INC. Table 50. Parking at Town Beaches and Landings xis -in _77a 7g n Exis in P 2 on Area Capaccity� l Capacity Salt Water Paine's Creep 30 cars g0 Robin's Hilab) 25 75 Breakwater large 55 165 small 3 9 Point of Rocks 2 6 Ellis Landing 20 60 Linnell Landing 30 g0 Crosby Landing 55 165 Fresh Water Long Pond Sheep Pond. Slough Pond. Pine Pond Walker's Pond TOTAL 45 20 2 (undeveloped) 10 297 cars 135 6o 6 30 886 persons (')Based on actual count of marked spaces, where area is marked, or on -site estimates of capacity. (2 )Based on average carload of 3 persons. (3)Also known as Saint's Landing. Source: Survey and estimates by Metcalf & Eddy, Inc. 120 r t r r i i Our suggestions for improving the parking supply at town facilities are as follows: 1. Brewster school. Expand. the pavement area behind the school, u pave also a separate area for active play use. 2. Fire and. police station. For immediate improvement, he existing lot s ouid be expanded and black topped. When a new station is built, provisions at the new site should, conform to the standards presented. above. 3. The Old. Mill. The town should acquire a portion of lot bd on assessor map 22. (See Figure 14.) The area suggested, contains approximately 1/2 acre of land. and is immed.iately adjacent to the existing town - owned. land.. Although the slope is steep from the mill side of Stoney Brook Road, the grade is less pronounced, from further west on Stoney Brook. Approach to the parking area, which could, accommod.ate at least 50 cars, should. be made from this western direction and signs should. be placed at the mill site directing visitors to the lot. The existing small parking area should. be closed.. More will be said about this area in the Recreation section of this report. 4. Town beaches and. landings. The first recommendation' is for the town to reorganize and mark the parking spaces at the existing landing areas in order to derive optimum usage. Many of the landings, including Paine's Creek, Walker's and. Long Ponds in particular, are not divided or are inefficiently divided into parking spaces. The resulting haphazard parking at these landings is generally below the area's capacity. Another recommendation is to develop the landings on Slough and Pine Pond.s. At Pine Pond., this will include some filling of swamp area. This appears to be war- ranted, in order to provide access to the pond., although parking should. be developed. for a maximum of 10 cars at the existing site. Presently the town is seeking to expand. its holdings at Sheep Pond.. This is desirable, since Sheep Pond is one of the d.eepest and most developable ponds in the town for recreational purposes. It is recommended that approximately fifty parking spaces be d.eveloped at this pond. Expansion of salt water landings is recommended at three locations: Paine's Creek, Crosby Landing, and Point of Rocks. At Paine's Creek, limited. expansion of parking is recommended on town - owned land. to the 121 METCALF & EDDY, INC. east of the existing lot. At Point of Rocks, it is recommended that the town acquire the lot adjacent to the existing landing (lot 8, assessor sheet 10). Development at this site should, be less intense in order to maintain the site as a beach park. Acquisition by the town of land to the east of Crosby Landing is also recommended in order that extension can be made to the existing parking area. We suggest that Paine's Creek and Crosby Landing continue to function as major town landings and that other areas be less intensely utilized.. It is suggested that land. be acquired at two fresh water ponds for development of town landings. Lot 36 of sheet 36 is adjacent to an undeveloped town way which approaches Canoe Pond.. We recommend that part of this lot be acquired and developed with 10 to 15 parking spaces. In addition, we suggest that land. along Elbow Pond (possibly lot 12 or 14 of sheet 51) be acquired and developed with 20 to 30 parking spaces. Our total parking recommendations exceed somewhat the number required by application of the suggested standard. However, over - planning for open space uses in a Cape town such as Brewster is not a liability. In fact, proper deployment and. maintenance of beaches and. landings can create recreational attractions which will add to the development potential and overall valuation within the town. Further recommendations for recreational and. conservation uses are presented. in a later section of this report. J 122 1 n RECREATION AND CONSERVATION Inventory In Table 51 is presented a listing of the various sites used for public or semipublic recreation and conservation purposes in Brewster. Also included in the table is an inventory of all town -owned land, much of which has some potential for recreation/ conservation uses. Presented in Table 52 are the historic sites or structures which are available to the public. As indicated in Table 51, there are thirteen town -owned landings which are available to the general public. It is impor- tant to note here that there are several other pond access points in Brewster. These others, however, are developed within major subdivisions and are restricted in use to the owners of land with- in the particular subdivision. The terms "recreation" and "conservation" have evolved specific and generally mutually exclusive meanings to present -day Americans. Recreation land is considered to be that used solely for active and organized sports activities. Conservation, on the other hand, is thought to be the removal of land from any active use in order to protect its natural features. In effect, however, the difference between recreation and conservation use is a matter of degree. Recreation, defined by Webster's New World Dictionary, can be "any form of play, amusement, or relaxation..., as games, sports, hobbies, reading, walking, etc." Therefore, this report will consider a broad range of recreation /conservation needs and will emphasize the possibilities of multipurpose use of facilities. Inventory In Table 51 is presented a listing of the various sites used for public or semipublic recreation and conservation purposes in Brewster. Also included in the table is an inventory of all town -owned land, much of which has some potential for recreation/ conservation uses. Presented in Table 52 are the historic sites or structures which are available to the public. As indicated in Table 51, there are thirteen town -owned landings which are available to the general public. It is impor- tant to note here that there are several other pond access points in Brewster. These others, however, are developed within major subdivisions and are restricted in use to the owners of land with- in the particular subdivision. 123 METCALF & EDDY, INC, There are a variety of groups in Brewster which have an interest in some aspect of recreation and conservation. Active recreation programs are sponsored during the spring and summer by the Little League Baseball Committee and the Red Cross Swim- ming Committee. Both of these groups are semipublic organizations not appointed by town meeting. The public library is operated by the Ladies' Library Association, a private trust which is supple- mented by local and state funds. Brewster's Conservation Commis- sion, established by town meeting in March 1960, has been indexing the town's open land, acquiring some of this land, and in general, working to discourage potentially destructive development. The Alewives Committee, appointed by town meeting, has the duty of maintaining the fish ladders and protecting the alewife population from excessive catches. The Stoney Brook Mill Sites Committee, town meeting appointed, operates and maintains the historic old mill area. Finally, the several historic sites, structures, and paraphenalia of the town are indexed and catalogued by the Brewster Historical Society, a semipublic organization. 123 METCALF & EDDY, INC, in Table 51. Existing Recreation and Conservation Land(') Total water Recreation Total conservation site size frontage Site development (acres) (ft.) Town owned Town Hall (none) 1.86 (none) Police and Fire Station (none) .31 (none) Annie Hazard Property 1 ball field 9.50 (none) Brewster Elementary 1 ball field, 8.38 (none) School gym, play equipment Wing's Island nature trail 140.87 3,400 (conservation) Lucy Chapman Property (none) 3.50 (none) (conservation) Town Land, Rt. 6A to (none) 50.72 (none) railroad Old Mill (2 sites) fish ladder, 2.54 400 brook flour mill 550 pond Stoney Brook Road (none) .45 (none) Dump (none) 20.68 (none) Great Fields Road (none) 19.01 (none) Freeman's Way (2 sites) (watershed) 245.96 (none) Long Pond North Point of Rocks Road (none) park 7.64 .14 (none)- (none) AA Depot Road park .18 (none) Landings: Paine's Creek boating, swim- 20.6Q 250 ming, shell fishing (restricted) Saint's swimming 2.30 190 Breakwater (west) swimming (ltd.) .25 80 (east) Point of Rocks swimming swimming (ltd.) 1.90 .23 140 65 Ellis swimming .55 85 Linnell swimming .50 80 Crosby swimming .90 200 Long Pond boating, swim- 1.50 240 ming Sheep Pond boating, swim- .40 85 ming Walker's Pond boating .90 270 Slough Pond boating (ltd.) .26 180 Pine Pond (none) 1.70 390 124 r� D Sources: Town Assessor's Office Survey by Metcalf & Eddy, Inc. Table 52. Historic Sites(1) Site size Historic Site (acres) features Red Top Cemetery Dillingham Cemetery First Parish Cemetery First Parish Church Baptist Church Old Mill .51 Table 51. Existing Recreation and Conservation .61 ancient Land(1) (cont.) 1.03 ancient cemetery(2) .51(3) Recreation/ Total Total water built in 1820 conservation site size frontage Site development (acres) (ft.) Factory Other Village Ladies Library reading .18 (none) Association Cape Cod Junior nature study 60.93 5,454 Museum with trails Mass. State Forest (none) 15.09 230 Nickerson State Park camping, 1,775.00 55,490 swimming, picnicking, boating, etc. (1 )Including all town -owned land but not including private camps, campgrounds, or commercial recreation lands. D Sources: Town Assessor's Office Survey by Metcalf & Eddy, Inc. Table 52. Historic Sites(1) Site size Historic Site (acres) features Red Top Cemetery Dillingham Cemetery First Parish Cemetery First Parish Church Baptist Church Old Mill .51 ancient cemetery(2) .61 ancient cemetery(2) 1.03 ancient cemetery(2) .51(3) built in 1834 •43(3) built in 1820 2.54 built in the 18th century at the site of Factory Village (1 )Including only presently available public or semipublic sites. (2)An ancient cemetery, as defined in Mass. General Laws Ch. 1143 Sec. 17, is one which was in use for 100 continuous years. (3)Including only site upon which church structure stands. Sources: Brewster Historical Society Town Assessor's Office. 125 METCALF & EDDY, INC. In summary, although the above- listed groups perform worth- while duties in their specific fields, there is no town committee or department responsible for a comprehensive, year -round recrea- tion program in the town. Goals and Standards The goals for recreation and conservation may be summarized as follows: To provide an adequate quantity and quality of land in Brewster (1) to satisfy the needs of a comprehensive recreation program serving all elements of the population; (2) to shape and enhance the land use plan; and (3) to edu- cate the population to the beauty and variety of the natural landscape. Specific standards for recreation and conservation, based upon these goals, are suggested. They include: 1. Acquisition or control of all the town's natural and cultural resources. 2. Provision within the town's administrative structure for a person or body responsible for comprehensive recreation programming. 3. Coordination among all town departments and groups for the multiple use of facilities, within defined limits. 4. Provision for at least the following physical facilities: a. One playfield, with a minimum of 12 acres, to provide an outdoor center for sports competition for all ages. b. Adequate indoor facilities to service organized active and quiet recreation programs. C. One playground, with a minimum of five acres, to provide an outdoor games cen- ter for younger age groups, for each 800 residents. (One may be combined with the playfield.) 126 d. One tot lot of one -half to one acre to service the preschool and primary school age groups in every major subdivision (subdivision of five acres or more with lots of 15,000 square feet or less, or com- bined subdivision of these proportions). 5. Development of programs which provide a broad variety of opportunities for every age group to develop mentally and physically. Adequacy of Existing Facilities and Programs Judged according to the standards presented above, Brewster's existing facilities and programs are totally inadequate. The physical facilities for active recreation are especially lack- ing. Organized sports activities can be held at only two sites - the rear of the Annie Hazard property, or the front yard of the Brewster Elementary School - although the state park does allow the town to operate part of its swimming program at a pond within the park. In general, Nickerson State Park has a limited number of day -use facilities, such as swimming and picnicking sites, and is not to be considered as meeting any of the town's needs. Each town resident is charged the regular admission price for each trip to the park. Indoor facilities are nonexistent, since the multipurpose room at the school has not generally been made available, and the upstairs of the town hall is being converted into office space for the historical society. The Ladies' Library is presently adequate, but its off - street parking facilities and storage capacity will become evermore strained as the town continues to grow. Summer beach activities are serviced fairly well by the town landings, although there are no lifeguards or bathhouse or picnic facilities, and many.of these beaches are becoming over- crowded with the influx of seasonal residents. This is especially true of the parking areas at the landings, as discussed in the Circulation and Parking chapter of this report. Boating activi- ties, however, are not well served by existing facilities. None of the salt -water landings have developed launching facilities. Only Walker's, Sheep, and Long ponds have publicly developed fresh- water launching sites. The landing at Slough Pond is small and unpaved, and Pine Pond landing is inaccessible. , The town has only begun to protect its cultural and natural resources. Little of the marshland or the inland swamps and bogs is controlled (except under Chapters 130 and 131 of the Mass. General Laws). Fortunately, however, the town and the Cape Cod Junior Museum have moved to protect the Paine's Creek area and its fish run,and the old mill historic area. Also, the "ancient" 127 METCALF & EDDY, INC. cemeteries are protected under Chapter 114, Section 17 of the Mass. General. Laws. Nevertheless, there remain a large number of special features which should be preserved. A recreation program, as indicated above, is almost entirely lacking. During most of the year, there is no recreation program, except for that provided by the library, by public school sports and scouting, and for those with special interests in historic preservation and conservation. Even during the pleasant outdoor seasons, activities are organized for only a limited age group among the children. In a town such as Brewster, which is blessed with many resources and which is considerably removed from a city or other recreation center, the lack of sound programming is par- ticularly unfortunate. Recommendations Our suggestions in the field of recreation and conservation are separated into two parts: those involving facilities and those relating to programs. Facilities. The facilities needed for recreation and con- servation purposes in a town such as Brewster must serve two dis- tinct groups: the year -round and the seasonal population. Many of the facilities developed for year -round use may serve the summer residents also. However, emphasis must be placed on service to, seasonal residents, since this group is the mainstay of the town's economy. The year -round facilities needed in Brewster include a rec- reation center, a playfield - playground, and one additional play- ground. It is recommended that indoor recreation facilities be provided in a new structure to be constructed at the site of the proposed Lower School, to the east of the existing school (see Figure 16). This building should be designed to function as a self- contained recreation center, including, if desired, such facilities as an indoor pool. It should also be conceived, how- ever, as a facility to be available for school recreation use, without the duplication of rooms or equipment, when the Lower School is constructed in the early 19801s. It is further recom- mended that a playfield- playground be developed on this same site, to include various types of ball fields, play courts, and a track. This area would then, in conjunction with additional work areas at the Brewster Elementary School when the new school is construc- ted, function as the focal. point for community activity. Such a center is essential in itself, but the development of access to the site could well encourage the beginning of the entire "town center" complex. (See the Circulation and Parking and Future Land Use Plan chapters of this report.) 128 C1 H I --- e..4 a- .,w«,sE «, «. ME:[% -HLr Ot CENT IIN% -. CIVVIIVCCKJ 6[ rLANNCKJ r(I Su4 b FM � ® Boston • New York • Polo Alto , .ao rro aco n H Service to the summer population of Brewster is proposed in the following facilities: 1. Major town salt -water "landings." It is recommended that Brewster develop two major summer activity centers for swimming, small boating, picnicking, and general relaxation. These facilities are pro- posed for Paine's Creek and Crosby landings. These areas should be provided with bathhouses, lifeguards, picnicking, and "tot -lot" recreation equipment. They should also include developed launching facilities for small boats. 2. Major town fresh -water "landings." Similar devel- opment is recommended for Long and Sheep Pond land- ings. The playground suggested for this area will facilitate the active play needs, but these sites should also be serviced by lifeguards, bathhouses, and picnicking facilities. 3. Minor town "landings." The remaining salt -water public landings are recommended to remain as small facilities serving the local neighborhoods for swimming. Some picnicking and parking facilities are suggested for these areas, but in general, these sites should remain undeveloped. Similarly, the remaining public fresh -water landings are recommended to be developed for boating and fish- ing purposes. These areas also should receive attention for picnicking and quiet recreation, but to a minor extent. 4. Bicycle trails. The Massachusetts Department of Natural Resources has been considering for several years acquiring the abandoned rights -of -way of the railroad through Brewster. We suggest that the town either urge the state to proceed with the necessary actions or move itself to acquire the land through eminent domain so that it may be developed as bicycle paths and picnic facilities.. 129 METCALF & EDDY, INC. We suggest that the town develop an additional playground on existing town -owned land north of the Long Pond landing. This type of facility in this location would be available via the proposed cross -town road to the growing subdivisions in south Brewster, and it would serve both Long Pond and Sheep Pond land- ings. n H Service to the summer population of Brewster is proposed in the following facilities: 1. Major town salt -water "landings." It is recommended that Brewster develop two major summer activity centers for swimming, small boating, picnicking, and general relaxation. These facilities are pro- posed for Paine's Creek and Crosby landings. These areas should be provided with bathhouses, lifeguards, picnicking, and "tot -lot" recreation equipment. They should also include developed launching facilities for small boats. 2. Major town fresh -water "landings." Similar devel- opment is recommended for Long and Sheep Pond land- ings. The playground suggested for this area will facilitate the active play needs, but these sites should also be serviced by lifeguards, bathhouses, and picnicking facilities. 3. Minor town "landings." The remaining salt -water public landings are recommended to remain as small facilities serving the local neighborhoods for swimming. Some picnicking and parking facilities are suggested for these areas, but in general, these sites should remain undeveloped. Similarly, the remaining public fresh -water landings are recommended to be developed for boating and fish- ing purposes. These areas also should receive attention for picnicking and quiet recreation, but to a minor extent. 4. Bicycle trails. The Massachusetts Department of Natural Resources has been considering for several years acquiring the abandoned rights -of -way of the railroad through Brewster. We suggest that the town either urge the state to proceed with the necessary actions or move itself to acquire the land through eminent domain so that it may be developed as bicycle paths and picnic facilities.. 129 METCALF & EDDY, INC. C Indicated on Figure 16 are other sites which the town is recommended to acquire or to which it should gain easement rights. These include the extensions to town landings and parking areas at the Old Mill, as suggested in the Circulation and Parking section of this report. Included also are many areas of outstanding nat- ural resources in Brewster which should be protected - the coastal marsh, the inland swamps and bogs, the fine forests, and access to other ponds. These sites should be left in their natural state or developed only for naturalist paths or trails. In addition to these specific sites, there is presented on Figure '16 a broad plan for green belts through Brewster. Retention of these green areas may be through many means which will be discussed in the later paragraphs of this chapter. As the center of Brewster becomes more densely developed, there will be a need for open space preservation in that area. Some preservation must be carried out by developers of commercial or high density residential units. However, the town itself should evolve a plan for a park or common and landscaping for its own buildings and lands in Brewster Center. As mentioned above, there is no facility in Brewster for launching boats in salt water. Nor is there any harbor for the protection of boats in foul weather. We have considered the pos- sibility of having a basin and channel dredged in the Paine's Creek area to allow boats to approach the shore even during low tide. Such a plan does not appear to be financially feasible. 'A mean low tide depth of seven feet or less extends approximately a mile from the shore in that area.* In addition, depositional action of the currents would be in constant battle with any attempt to maintain a channel in that area. Nevertheless, Brewster should proceed to enhance its attrac- tion for larger boat enthusiasts. Discussions should be undertaken with Dennis and Harwich or Chatham to develop a system by which certain numbers of moorings would be available to Brewster resi- dents in these harbors at prices comparable to those charged to Dennis, Harwich, or Chatham residents. Literature promoting Brewster's assets should include notation of these arrangements. In summary, there is a very large number of facilities which should be provided and lands which should be preserved in Brewster. Unfortunately, the need presently is especially great because the town for many years has ignored the advantages of recreation development and has stressed instead, the false im- portance of noninvolvement. The recommendations for land acquisi- tion, protection, and development listed above are considered to *U. S. Coast and Geodetic Survey Chart No. 581. 130 1 i� i I be the minimum required for a town the size and location of Brewster to prepare it for its projected growth within the planning period. Sound open space and recreation planning, and not the lack of it, is an invaluable aid in molding development to its desired type, intensity, and location. Programs. Our recommendations in the area of programming involve not only suggestions for activities development, but also proposals of means to accomplish the facility recommendations pre- sented above. The basic recommendation for activity programming is for the town to create immediately a Recreation Committee whose duty it would be to administer the recreation center and to develop and coordinate all types of recreation and open space programs. It is suggested that membership on this committee be purposefully com- posed of town residents who have interests in a broad range of recreation and conservation activities. These members should seek involvement by town or area residents, particularly the talented retired citizens, who can instruct in a broad range of subjects and materials. The programs developed by or coordinated through this com- mittee should be oriented to all elements of the population, in- cluding all age groups and ability levels, in a year -round offering of activities. This committee should encourage participation in both quiet and active programs which.develop competence in social and cultural graces and in intellect,as well as in active sports. In fact, emphasis should not be placed on organized sports and active recreation for children, since these are stressed within the school curriculum. In order to maximize its effectiveness, the Recreation Committee should define for itself its goals and policies and should organize its efforts toward established ends. It should act as a coordinating body which would schedule its own programs within the available facilities, but which would not interfere with the administration or activities of autonomous recreation/ conservation groups. It should, in summary, seek to fill in the many gaps now existing in recreation programming in Brewster, and to increase the understanding and tolerances among those groups which emphasize particular elements within the broad category of recreation. Suggestions for programs to implement the facility recom- mendations are several. An initial one is for the amending of the town's subdivision regulations to include the requirement for sub- dividers to leave a portion of their development vacant and avail- able for recreation facilities. (See the Proposed Land Subdivision Regulations chapter of this report.) We then suggest that the town move within the required three years to acquire the vacant site and develop it for tot lots. 131 METCALF & EDDY, INC. Another suggestion is for the town to stress the enforce- ment of state laws, specifically those regarding the filling or alteration of lands bordering on inland or coastal wetlands. The granting of permits for such operations should come only after a thorough investigation has revealed that no harm will be done to either the natural wildlife or the downstream development. Also encouragement should be given the Massachusetts Commissioner of Natural Resources to move as soon as possible to protect Brewster's marshes and inland swamps, under Chapters 130 and 131 of the Mass. General Laws. In other sections of this Master Plan, suggestions are made concerning land policies which can assist in the implementation of the overall green belt system. Particularly important, are those contained in the proposed Zoning By -Law and Subdivision Regula- tions. The buffer strip, cluster development, park, aesthetic value, and varying density provisions of these reports can be invaluable tools in shaping development around open space areas. One further means of obtaining recreation /conservation land is obvious - outright acquisition. It is important to note, however, that acquisition of all rights in land is not necessary. Unless a broad range of activities is planned for a particular site, it may be just as effective to acquire only limited land rights - the rights to access for fishing or hunting, the rights of limited access for nature study, or merely the rights for non - development. In many areas of Brewster where facility development is not contemplated, particularly in the marshes or inland swamp areas, the acquisition of these lesser rights can serve the pur- pose with considerable monetary saving to the town. Similarly, the town should establish as a policy the ac- ceptance of land gifts or easement rights in exchange for tax reductions when the sites involved enhance or further the over- all open space plan. Sites cannot be accepted indiscriminantly, of course, particularly in view of the reductions created on the tax rolls. Nevertheless, land or easement donations can assist both the town and the land owner who wishes to pay lower taxes and to be assured that his land will remain undeveloped. This latter suggestion is recommended also for those areas of town where historic sites or structures are interrupted by large areas of open space. The beauty and charm of the historic feature often is the fact that no distracting development has at emerged beside it. Although historic districting is not recom- mended in Brewster where the sites or structures are dispersed throughout much of the northern area of the town, it is suggested that land donation or the gifts of protective easements be encour- aged as a means of historic preservation. Encouragement should also be given to owners of historic sites or structures to include in their deed restrictions upon any unwanted change in the prop- erty. 132 1 The many suggestions presented above involve a consider- able undertaking for a town the size of Brewster. Although this is realized, it is stressed nevertheless that the action toward an overall recreation /conservation plan and program for Brewster is essential, particularly at this point in the town's history as pressure for development is straining to,alter the rural atmos- phere. It is hoped that recognition of this need will encourage understanding among all the concerned citizen groups and action toward the joint implementation of the recommendations. 133 METCALF 8& EDDY, INC. PUBLIC UTILITIES PLAN The purpose of this study is to identify the needs of Brewster in the area of public utilities. Considered in the study are water, sewerage, drainage, and refuse systems as they relate to specified standards and to present and future demands. Based upon this analysis, recommendations for future service areas are made. Water Inventory There are no public water facilities in Brewster. Conse- quently, the entire town is dependent upon private wells. The town contracted with the engineering firm of Whitman and Howard, and in 1966 received the completed engineering study of water needs and recommendations for a proposed supply and distribution system. Officials of the town indicate that Brewster is expect- ing to carry out these recommendations, even though their request for a construction grant from the federal government is likely to be long delayed. The planned system is shown on Figure 17. Present and Future Requirements For planning purposes, the present and future requirements for water are for the provision of adequate private and public water service consistent with the proposed future Land Use Plan. Thus, this section of the Brewster Master Plan deals with the need for improved water service to various areas within the town, both now and in the future. Present Needs. In recent years, problems have developea with private systems in the areas indicated on Figure 17. It has been reported to us by the Brewster Board of Health that these problems relate to inadequate quantity as well as inferior qual- ity due to high mineral content of the water supplies. There has, however, been no case of drinking -water pollution brought to the attention of the Board of Health. The locations of the re- ported inferior water quality are along and to the north of Route 6A in central Brewster, and in the area of Lower Mill Road. On the other hand, residents in the area of Harwich- Tubman -Depot Road intersections have indicated to the Board that they experi- ence, difficulties in securing a sufficient quantity of water. Wells in this area have to be driven for one to three hundred feet to reach groundwater of sufficient yield. The above - mentioned areas have the most immediate need for • public water system. However, another section of Brewster has • less critical, but still pressing need for public water supply. 134 n fl u I�� o f I o � O D � r o- f r 7 C 0 0 0 4 th t O ' 9 o f I o � O D � r o- f r 7 C 0 0 0 4 th t O 14 L Reports have come to the Board of Health that on -lot sewerage systems are not functioning properly from the area adjacent to Route 6A between Paine's Creek and the Town Hall. It is, therefore, imperative that this area soon be served with public water. Future Needs. The majority of the developments, in- cluding year -round developments, are on lots considered too small to adequately support both on -lot water supply and sewage disposal. Year -round developments are on lots generally under 20,000 square feet in size, and average lot sizes for seasonal developments are 10,000 square feet of less. Well supplies and septic tank systems which are correctly constructed can serve a particular lot for a short time. However, as a general rule, it should be expected that construction less than adequate, particularly of sewage disposal systems, will result in increasing the danger of pollution. Although in some cases seasonal use may not be critical as far as water supply and sewage disposal is concerned, we recommend that planning proceed with the assumption that year - ro-und use in the long range will prevail, and that conversions of homes from seasonal to year -round use is not only possible, but is in fact likely. It appears, therefore, that many of the developed areas of Brewster will have to be served by public water. The timing of service extension should be scheduled according to location and need priorities and should proceed at as fast a race as is financially possible, especially in those areas where the present need is great. However, in any event, construction should follow a comprehensive engineering plan. Standards On -lot systems will continue to exist and to be installed in the areas which are not developed to high densities. To provide adequately for these systems, the following lot size standards are recommended. 135 METCALF & EDDY, INC. Table 53. Recommended Residential Lot Sizes for Development with Individual On -Lot Water Supply and Sewage Disposal Systems Percolation Required Recommended minimum lot sizes for rate (min- seepage area one- family detached dwellin s served utes per (sq. ft. per by on -lot sewerage systemsfl) (2) inch) bedroom) (s .ft.) 5 or less 94 40,000 6 -lo 125 55,000 11 -20 220 60,000 21 -30 250 60,000 (1 )Assumes service by public water system between 20 and 30 years in the future. (2)Assumes four bedrooms per dwelling unit. Source: Standards recommended by Metcalf & Eddy, Inc. In addition to recommendations for minimum lot sizes, other standards regarding the installation of on -lot water supply systems are contained in Table 54. Table 54. Recommended Private On -Lot Water System Standards Planning Category Location Well location Minimum of 50 ft. from a septic tank; .100 ft.(1) from a leaching field, seepage pit, cesspool, and privy; 10 ft. from durably constructed building sewer. Water Quality Refer to U.S. Dept. of Health, Educa- tion, and Welfare, Public Health Service, Drinking Water Standards, P.H.S. Publication No. 956, Revised 1962, Washington, G.P.O., 1962. 136 [i 0 0 n F n Table 54. Recommended Private On -Lot Water System Standards (cont.) Planning Category Location Construction Refer to U.S. Dept. of Health, Educa- tion and Welfare, Public Health Service, Manual of Individual Water Supply Systems, P.H. . Publication No , Revised 1962, Washington, G.P.O., 1963(2)• 1 This distance should be increased where required by conditions peculiar to a location. der (2)This manual be currentlyitnbecomesiavailabdlethe later publica- tion should Sources: Massachusetts Sanitary Code and the U. S. Public Health Service. Standards for the public water system have been developed by Whitman and Howard in their engineering report. Recommendations Proposed Service Areas. Our proposed 1985 service area• for public water is indicated on Figure 17. For initial service, we recommend those areas which cannot meet the quality standards suggested above or cannot derive a sufficient supply from on -lot systems. Following service to the existing development within the town as recommended above, public water may be supplied to areas as they develop or as an incentive for development. In fact, by planning the timing of service to particular areas within the town, Brewster would be able to influence the extent and density of residential, commercial, and industrial growth. The areas indicated for service on Figure 17 are totally related to the proposed Future Land Use Plan for the town. We recommend that service be provided next (after service to those areas described above) to those sections proposed to be developed as 15,000 - square foot lots or less. Later service is recommended for areas which are proposed to develop as 15,000 - to 30,000 - square foot lots. 137 METCALF & EDDY, INC. Proposed Municipal Water System, Brewster should continue to develop the planned public water system in accordance with rec- ommendations of its water consultants. Therefore, Brewster should develop final engineering plans and construct the basic distri- bution system. Next the town should develop an integrated plan for the phased construction of additional supply, distribution mains, and storage facilities to extend service to the area pro- posed on Figure 17. Those additional facilities should be designed to meet the needs of the pattern and intensity of land use envi- sioned by the Future Land Use Plan for fire protection and domestic, commercial, and industrial uses within the normal 25 year design period of water systems. In addition, it is recommended that the town's subdivision regulations include the requirement for public water lines which must comply with the standards of the public water system. Such requirements are included in our Proposed Land Subdivision Regu- lations submitted under separate cover. Finally, we suggest that final planning for Brewster's water system be cognizant of and coordinated with the regional study of the Cape's water needs and means to meet them. Sanitary Sewerage Inventory There are no public sewage disposal facilities in Brewster, nor has the town undertaken a study of the feasibility of con- structing a public system within the town. The soils throughout much of Brewster are favorable for private on -lot disposal systems. However, development has occurred in some areas where poor soils and a high water table could hinder the proper functioning of on -lot systems. The largest area known to the Brewster Board of Health where such problems are occurring is along and adjacent to Lower Road. Much of the development in this district is seasonal, but there are year -round residences in the area which, served by only cesspools or inade- quate septic tank systems, must have their systems pumped several times a year. In addition, it was certified recently by the county and state health departments that pollution is occurring in Paine's Creek. Although all of the sources of the pollution have not been identified, on -lot disposal systems in the area are suspected. Orders of abatement from the town's Board of Health have been issued to two commercial establishments, one of which has a cess- pool within 15 to 20 feet of the creek. Further action is contem- plated after conferences are held with the Massachusetts Division of Water Pollution Control and after a public hearing is held. Thus far, the use of the creek has been closed to shellfishing. 138 C n ro In the previous section, it was noted that all of Brewster is also dependent upon on -lot water supplies. Many areas of the town, particularly some residential developments near the shore, have both the water supply and sewage disposal systems function- ing on the same 8,000- to 10,000- square foot lot. ( See Figure 18.) The possibility of well contamination n Other developed areas north of Route 6A are located on soils which are unsuitable for the proper functioning of on -lot disposal systems because of slopes, wetness, or underlying clay. These districts, one of which coincides with an area of small lots, are also indicated on Figure 18. Present and Future Requirements Any discussion concerning the need for a public sewerage system must necessarily be related to plans for public water installation. That is, the need for public water is considerably more acute and seldom has it been warranted to provide public sewerage service ahead of public water. In addition, the need for public sewerage could be delayed in most areas as the danger of pollution of well supplies is eliminated. As a first step in the elimination of sewage disposal problems, we recommend investigating the systems in existing problem areas as to their soundness of design,.construction and maintenance. It may be that most problem areas are served with inappropriate facilities such as cesspools. Since a considerable capital outlay would be required initially to provide sewer service to even a small part of the town, and since it is presently not acceptable to dispose of sewage into the coastal waters of the Cape, every effort to improve present on -lot disposal systems appears to be warranted at this time. Certain areas which now appear as the major influence toward a public system are: 1. Present Problem Area. Relocation or reinstallation of proper on -site systems may only delay the need for public service because of the poor soil conditions in some sections. 2. Seasonal Areas North of Route 6A. As indicated on Figure 2, many of the seasonal developments north of Route 6A contain very small lots. The on -lot systems in these areas may continue to function effectively as long as they are used for only a few months each L 139 METCALF & EDDY, INC. n year and as long as their loads are less than normally expected from year -round use. Conversion of units to year -round use, however, especially once high water -using conveniences are installed, could strain these systems beyond their capacity. 3• Camp and Trailer Parks In general, the camp and trailer sites in Brewster are effectively serviced by private sewage disposal systems. In some instances, though, these parks are located on soils which are unsuitable for on -site systems. These areas may require service if they are not relocated, even if they remain only seasonal ventures. 4. Development Alon Route 6A. The soils underlying large areas of Route A contain a layer of clay at varying depths. Although development is not especially dense along this route at this time, the clay layer could present problems for the on -site relocation of disposal systems, especially if smaller lots or more dense commercial development is permitted. 5• Potential Industrial Area. Much of the area recently rezoned for light industry contains soils which are unsuitable for on -lot sewage disposal. If this area were to develop as a dense industrial park, public sewerage might have to be provided. In addition, it must be noted that the Future Land Use Plan for Brewster was developed with regard for the soil conditions. If development occurs at a higher density than is indicated on that plan, it may be expected that public sewerage facilities may be required sooner. Standards It appears that private sewage disposal systems will con- tinue in use in Brewster through the planning period (1 985) those systems, the standards of the state Sanitary 9Code . will remain in effect. All town codes and by -laws should be constantly updated to include any changes made in this code. Recommended lot size standards for areas served with public water and for areas not served with public water are presented in Table 55. 0 14o I S°! s y ' !it rn n� D r T 90 rn 0 0 o � 4 Z f o rn Z o Z D rn rn o �p N r D Z Z rn m N .y 0 a s 0 4 m t n n Table 55. Recommended Residential Lot Sizes for Development with On -Lot Sewerage Systems. Percolation rate (min- utes per inch) 5 or less 6 - 10 11 - 20 21 - 30 over 30 Required Recommended minimum lot size for one - seepage area family detached dwelling (sq. ft.) (1) (sq. ft. per With on -lot With public bedroom) water (2) water 94 40,000 15,000 125 55,000 20,000 220 60,000 30,000 250 60,000 35,000 Unsuitable for on -lot sewage disposal system (3) (1) Assumes four bedrooms per dwelling unit (2) Assumes service by public water system between 20 and 30 years in the future. (3) Specified by the state Sanitary Code. Source: Standards recommended by Metcalf & Eddy, Inc. In addition to recommendations for mimimum lot sizes, other standards regarding the design and construction of on -site sewage disposal systems are contained in the Massachusetts Sanitary Code. 141 METCALF & EDDY, INC. Recommendations It is recommended that Brewster avoid as long as possible the development of public sewerage. If proper measures are taken, including the requirement for individual residences or establish- ments to install adequate on -site systems, the development of public sewerage could be delayed beyond 1985. The basic need is for town boards, particularly the Planning Board and Board of Health, to incorporate into their regulations adequate standards and procedures to assure that development will occur only on land which is suitable to accept it and that on -site systems are properly designed and installed. Proper application Of such regulations will require strong cooperation between the Boards; it also will be vastly enhanced by the hiring of a town inspector who could properly supervise all construction in the town and issue an occupancy permit only after he was certain that all work was satisfactorily completed. It is also necessary for the town to adopt land use Policies through zoning which will relate the density of develop- ment to the physical characteristics of the soil and the provision of public water. Formal adoption of such policies will direct development to the more favorable areas of the town and will assist the Planning Board and Board of Health in carrying out their duties. Our future land use planning provides a framework for Brewster's growth beyond 1985. In accordance with this plan, it is likely that Brewster will eventually require a public sewerage system. At such time as the need for such a system develops, we recommend that the necessary engineering reports be prepared prior to the design and construction. This report will probably be necessary by the end of the planning period (1985). Any proposals for a local system should be coordinated with regional plans for sewage disposal and with the town's future land use plan. This should include consideration of the ultimate development of all drainage basins. 142 L r J J F� Drainage Inventory A drainage system normally consists of formal drainage facilities (man -made structures such as culverts, storm drains, etc.) and natural drainage facilities (such as streams, ponds, and wetlands). Brewster has no major formal drainage system. In some cases, provision has been made for drainage easements and for culverts under roads. These are generally adequate, due to the porous soil conditions, although a number of minor road flooding problems during intense storms were reported by the town. Recurring flooding was a problem along Millstone Road particularly, but efforts to eliminate many of the dips in the roadway appear to be effective. The natural drainage system consists of chains of bogs, swamps, streams, and marshes. Natural drainage in Brewster is directed to three major districts. As indicated on Figure 19, approximately half of the town is drained northward toward Cape Cod Bay. Another large area is drained directly southward through Harwich to Nantucket Sound. The remaining section of the town drains southeastward to Pleasant Bay in Orleans. The amount of surface runoff from rainstorms is compara- tively small, due to the droughty character of the sandy soil which reduces the peak runoff. This effect, however, may be reduced as the development density increases. Therefore, drain- age needs may become more important in the future. Present and Future Requirements In a community such as Brewster which contains generally porous soil conditions and predominantly low rates of surface runoff, the need for a formal drainage system is limited. Two conditions could alter this situation: one is the elimination of marshes, swamps, bogs, ponds or stream beds, or areas of seasonal high water from the natural system; and the other is the dense development of the landscape. Since development increases the number of impervious surfaces from which water will run at a rapid rate, a large amount of development, even in Brewster, could require supplementation of the natural system. Based upon the proposals for development envisioned by the Future Land Use Plan, it appears that the needs for formal drainage facilities within the planning period will be confined primarily to within subdivision developments. L 143 METCALF & EDDY, I N C. Standards Any construction of formal drainage structures should be based upon uniform design standards. The standards suggested for Brewster are contained in Table 56, Table 56. Recommended Storm Drainage Standards Item Recommended Standard Basis of design Normally to be determined by the rational method employing data from the nearest U.S. Weather Station, except where another method is shown to be more appro- priate to give the same degree of protection in a specific case. Design storm 5 years in low density residential areas 10 years in high density residen- tial, commercial, and industrial areas 50 years for bridge openings Minimum pipe diameter 12 inches Minimum velocity 3 feet Maximum velocity per second 15 feet per second Maximum spacing of catchbasins At all upstream corners of roadway intersections unless the inter- section is at the top of a vertical curve, at all sags in the roadway and at a maximum spacing of 400 feet on continuous roadway grades. Maximum spacing of 350 feet apart manholes Open chanel sections Trapezoidal with side slopes at 1 foot vertical to 2 foot hori- zontal. A faceboard of at least 1 foot shall be allowed during the design storm. Source: Standards recommended by Metcalf & Eddy Inc. 144 1 L Adequacy of Existing Subdivision Regulations The subdivision regulations of any growing community such as Brewster are most important for protecting the town against drainage problems. It is essential that the design and construction standards prescribed by these regulations provide a sufficient degree of protection. The existing regulations for Brewster refer to drainage only twice. In Section 2A, they state: "No... subdivision shall be approved until the Town Board of Health has advised the Planning Board ... that it has approved the proposed method of providing for ... drainage." And in Section 2C they require that the subdivider shall provide "drainawoi, easements on certain lots where deemed necessary by the (Planning) Board." In both cases, the existing regulations provide little protection for the town. The first requirement is based upon a 1952 state statute which has been superceded by the Subdivision Control Law of 1954. This, then, is no longer a valid regulation. The second requirement would be of little use, also, if applied by a lay board unfamiliar with engineering needs or practices because there are no statements of standards or policies. Recommendations It is recommended that the Brewster Department of Public Works immediately adopt the recommended storm drainage standards for its own construction and the the Planning Board adopt at once and enforce the Proposed Land Subdivision Regulations. In conjunction with open space planning, Brewster should control the development of both inland and coastal wetlands under the appropriate state legislation. These basic provisions should$ suffice to protect the town from future drainage problems throughout our planning period. 145 METCALF & EDDY, INC. Refuse Inventory Brewster owns and operates a single refuse disposal facility located off Run Hill Road adjacent to Smith Pond (see Figure 19).The facility is under the jurisdiction of the Board of Health and is operated by the Department of Public Works. Access to the site is provided from Run Hill Road, a hard -sur- face road which intersects with the principal street (Stoney Brook Road) at approximately a 45 degree angle. The facility occupies a total area of 21.6 acres, 15 acres of which are considered usable. It is estimated that approximately 13.5 acres have already been used.* The facility is open, for Brewster residents only, 24 hours a day, 7 days a week. A custodian is present for 4 hours on Monday, Wednesday, and Friday. The method of disposal may be defined as a modified sanitary landfill. However, open burn- ing at the site has been observed. The average depth of fill over the used area is approxi- mately 20 feet.* No additional depth is possible. It is fur- ther estimated that the average depth possible over the unused area does not exceed 10 feet.* Brewster has no public refuse collection service. How- ever, all types of refuse are accepted at the disposal site, with the exception of abandoned automobiles. No permanent structures exist at the site, and the only equipment used is a rubber - tired, 1 -1/2 -cubic yard front -end loader. The site is not fenced. Recently, the town voted to rezone 225 acres of land south of Route 6 for use as light industry. Within this tract, which is separated from the town's proposed watershed land by the highway, the town expects to develop a new refuse disposal facility of about 90 acres. The potential site is located on soils which are suitable for a trench -type sanitary landfill operation. ** Presently, the Cape Cod Planning and Economic Development Commission is engaged in a study of refuse disposal systems of Cape Cod. It is expected that this study will consider the establishment of regional facilities to serve two or more neighboring towns where appropriate. * Estimates by the Brewster Board of Health, September, 1968 * Based on the Operational Soils Survey by Soil Conservation Service. 146 1 Present and Future Requirements Quantities. According to the information supplied by the Brewster Board of Health, a total of 2,200 tons of refuse were disposed of at the town facility during 1968. This is considerably less than the amount estimated to have been generated in Brewster (4,000 tons in 1968). Based on an estimated 1968 year- around equivalent population of approximately 4,100, this quantity amounts to approximately 2.90 pounds per capita per calendar day. The quantities projected for 1985 are based on the assump- tion that the amount of refuse generated will increase at a rate of 2 percent per year. The population figures used for projections are those contained in the Population section of this report, including those for projected seasonal influences. Using these figures, it is expected that approximately 5,200 tons of refuse per year will be generated in Brewster by 1985. Space Requirements. Based upon the above projections, it is estimated that a total of 225 acre -feet* will be required for the disposal of refuse by the sanitary landfill method, including the necessary cover material, over the next fifteen years. Standards The standards presented in Table57 are suggested for refuse disposal. Adequacy of Existing Facility and Future Site The present method of disposal used by the town is considered to be unacceptable. Open burning is in violation of state law. In addition, an earth cover of at least 6 inches should be provided over both the top and face of the worked surface at the end of each disposal day. The existing site itself is totally inadequate to accom- odate the quantities of town refuse. Access is poor, control is inadequate, and the hours of operation should be consistant with supervision. METCALF & EDDY, INC. The town has recognized the inadequacies noted above and has proposed a new facility site which appears to be adequate from the standpoints of soil, surface drainage, and general An acre foot equals one acre of ground times one foot of depth. Ten acre feet equal 10 acres of ground times one foot of depth, one acre of ground times ten feet of depth, or any combination of the two. 147 METCALF & EDDY, INC. planning. Soils in the area are said by the Soil Conservation Service to have slight limitations for the trench method of sanitary landfill. Surface drainage is away from the town's proposed well sites. Access to the site is to be improved by upgraded Freeman's Way. Its location in an industrially zoned district is acceptable and there can be adequate screening from two major subdivisions which are near the site. Table 57. Recommended Standards for Refuse Disposal Item Recommended standards Acceptable methods of general Central incineration or refuse disposal sanitary landfill Acceptable methods of disposal Shredding, garbage grinding, hog feeding, on -site incinera- tion, salvage and reclamation Period of design: Central incineration Sanitary landfill Sanitary landfill: 25 years 25 years of for any shorter period at the end of which the sanitary landfill method of disposal is planned for termination Location Industrial ;one, low density or rural re,idential accept - able if bufi'ered, if accessible by arterial or collector street normally ex)ected to carry truck traffic, ani if not infringing upon required recreation and conservation areas; near as practical to center of served population Site size 1.0 to 1.5 acre -feet per 1,000 population* per year including cover (stE,ndard should be reduced where a sanitary landfill is used for incineration residue) *A ,year- around equivalent must be used i.l an area such as Brewster where there is a significant seasonal population. 148 0 J L 0 Table 57. Recommended Standards for Refuse Disposal (cont.) Soil and topography Soils mostly sand and gravel to good depth, suitable for use as cover material; slopes generally 0 to 15 percent Utilities Water for fire protection required. Source: Standards recommended by Metcalf & Eddy, Inc. There is a potential danger, however, that subsurface drainage from the site could lead to the watershed and contaminate the town's proposed well supplies which are approximately 1,000 to 500 feet away. The site should be approved by the county Board of Health prior to its use by the town, especially with respect to the safety of the town's proposed water supply. Recommendations It is recommended that an initial determination be made as to the adequacy of the proposed new refuse disposal site with respect to the safety of the town's proposed water supply. If the site is found to be safe from watershed contamination, the town should move immediately to acquire at least 35 acres if there is a ten foot average depth possible over them, or a larger site in that area if less depth is possible. This should provide adequately for the town's refuse disposal to 1985 and over the suggested 25 -year planning period. If tests at the site indicate that the proposed disposal area cannot be properly operated without danger to the public health, it is suggested that an alternate site of similar size be acquired immediately, by eminent domain if necessary, in south- west Brewster (See Figure 19), if such site also is determined by on -site tests to involve no dangerous contamination. Wherever the site is located, it is urged that the facility be operated according to proper sanitary landfill methods. This includes scheduling hours of operation, fencing of the site, separating and compacting of material, and daily covering of the worked faces. Finally, the consideration of regional solutions to Brewster's refuse problems is beyond the scope of this Master Plan Study. However, it is recommended that the Town of Brewster cooperate with the Cape Cod Planning and Economic Development Commission in evaluating, planning, and possibly developing regional refuse facilities. The long -range financing of such facilities could prove a saving to all of the involved communities, one of which could be Brewster. 149 METCALF & EDDY, INC. FUTURE LAND USE On Figure 20 is presented a plan for the future development of Brewster. This plan was prepared to coordinate the existing land uses and land suitabilities in the town with the stated town goals and our projections and proposals for community facilities and additional land use demands. The plan's design is based on an extension of the scheme existing today; that is, a concentration of development toward the northern and central areas of the town, particularly along the major thoroughfares. The outlying areas of Brewster to the south are proposed to remain lightly settled. Plan Target Date The target date for the various elements of the Master Plan, including such items as schools, recreation, conservation, utili- ties and roadways, was established by contract as 1985. The Future Land Use Plan incorporates these proposals, but it goes beyond to provide a framework for the growth of Brewster over a larger period of years. This plan should be viewed as the long -term pattern for land uses beyond the year 2000. Proposals The scheme of future development includes the major devel- oped land uses, such as residential, commercial, and industrial. It also displays an overall pattern of undeveloped uses, such as vacant land, woodland, marsh and water. Residential. Three levels of residential density are pro- posed - rural, low, and medium. Varying densities are needed to provide proper adjustment to variations in existing development patterns, land suitabilities, and proposed service areas for utili- ties. n i• [i No area is specifically recommended for high density resi- dential use. According to the long -range goals element of this Plan, it is not a desire of the town as a whole to change from its present status as a semirural town. Nevertheless, it is recognized that there is apt to be a demand for residential land to be devel- oped at a higher density than presently exists. Provision has been made for this type of residential development in two ways: first, it is suggested that two- or multifamily garden apartments or con- dominiums be allowed within the local commercial areas of Brewster. Second, it is proposed within the Zoning element of this report that regulated allowance be made for clustered multifamily planned unit developments. These high density areas would allow an estab- lished proportion of high density residential structures. In both of these cases, however, control should be strictly enforced con- cerning heights, ratios between developed and open land, and pro- visions for utilities. 150 n ., 3 (rn� D r T Sp m $ °v o `m � Z o Z D rn m o �p N r D Z Z m �o N ca m 0 e 0 4 0 t D By means of these two provisions, Brewster will be protec- ted against heavy invasion of high density development. Since the local commercial areas suggested in the Future Land Use Plan are comparatively small, the competition for land between commercial and high density residential interests will preserve a balance and prevent an undesirable mass grouping of apartments. In addition, since planned unit developments are required *to maintain a set ratio among residential densities and open space and to be designed by professional architects and landscape architects, the total im- pression gained from these types of developments should be aesthet- ically pleasing and in harmony with the rural nature of Brewster. The other types of residential areas specified within the Future Land Use Plan are as follows: Rural density (less than one family per residential acre ) . These are recommended for the areas most dis- tant from the heart of developed Brewster. In general, the land in these districts has at least some limita- tion for development; and since it is assumed that these areas will not be served by either public water or public sewers, the suggested density for development must necessarily be very low. Low density (one or two families per residential acre T These areas generally abut areas of existing development or are areas removed from existing devel- opment which contain few soils limitations. These areas are proposed to be served by public water only within the planning period. Medium density (three to four families per residential acre )'. The areas included within this category are either presently developed or abut existing develop- ment and contain excellent soils. These areas are those proposed to be.served first with public water. Commercial. Two types of commercial districts are desig- nated on the plan. One is titled Local Commercial and the other Seasonal Commercial. Local commercial. Three areas in Brewster are recom- mended for this type of use. The two smaller areas are located on Route 6A in East Brewster and between the intersection of Millstone Road and Freeman's Way with Route 137• The larger area is recommended for Central Brewster along and to the south of Route 6A. 151 METCALF & EDDY, INC. Industrial. It is assumed that industry will not be developed Seasonal commercial. Two areas, to to expand or relocate within Brewster. Consequently, with the types of facilities desired by transient visitors to the Cape, are recommend along Route 6A. The major seasonal area on Route 6A is east of the State Park. A similar district is also suggested rights -of -way and other similar lands which are rec- in South Brewster to the east of Route 121. green belt system through Brewster. Industrial. It is assumed that industry will not flock to central and lower Cape Cod within the next 15 years. Nevertheless, some local firms may wish to expand or relocate within Brewster. Consequently, most of the area recently rezoned for light industry adjacent to Freeman's Way was recommended to remain in that use. Open space. Included in this category are a variety of distinct uses. The areas existing or proposed for recreation and conservation purposes comprise the largest element. Also included are power line rights -of -way and other similar lands which are rec- ommended to remain open and to become parts of a green belt system through Brewster. Water. There is no proposed expansion of the exist- ing water area in Brewster. The Town Center One feature that is presently lacking in the land use pat- tern of Brewster is a consolidated town center. There is no focal point of activity in the town, either for commercial, governmental or recreational services. An important feature of the Future Land Use Plan is a pro- posal to combine these activities into an area to be described as Brewster Center. As indicated on Figure 20, the major Commercial - Local High Density district is proposed for north central Brewster primarily south of Route 6A, west of Underpass Road, and north of Long Pond Road. The reasons for establishing the district in this location are several. They include: 1. The centrality of the district in relation to existing and projected areas of development. 2. The fulfillment of an expressed town goal to encourage business development off Route 6A. The north -south orientation of the district and small amounts of available land in the district on Route 6A should establish a trend away from the Cranberry Highway. In addition, the north -south orientation should give the district self identity and should distinguish it from the east -west influence of Route 6A. 152 DI C n D 3• The location in the district of large tracts whose soils present only slight limitations for development. 4. The location in the district of an existing road containing only limited development (Underpass Road) which, although it will re- quire some upgrading, will service development and connect with proposed roadways. 5. The location in or adjacent to the district of the planned post office, the proposed indoor/ outdoor recreation center and school, and the Brewster Elementary School (which could be used for Town offices and other municipal purposes). 6. The availability in the district of sufficient town -owned land to accommodate a new police and fire station and possibly a new library. These are facilities which belong in or near a town center. It is considered that proposed Brewster Center will serve well a variety of needs now existing in the town. It will accom- modate both the major local commercial and high density residential requirements in a single, inter - related district. It will serve' these uses with such compatible functions as municipal and postal offices, recreation, and possibly library, fire and police services. Finally, it will provide Brewster with the "Town Center," which it thus far has lacked. Amounts and Intensities The amount of area proposed to be devoted to the above types of land uses is indicated in Table 58. The major user of land in Brewster is expected to be medium density residential. In total, it is proposed to comprise 33.5 percent of the town. The second major use is proposed to be open space, including Nickerson State Park. Comparatively small amounts of the town are recommended to be developed as commercial or indus- trial uses. No comparison is attempted between the tabulation of exist- ing land uses and those displayed on the land use plan. The Future Land Use Plan is presented for the general purposes of use rela- tionships, and many areas within the residential categories are expected to become roads or remain as patches of open space. Con- sequently, a tabulated comparison would be both false and mislead- ing. 153 METCALF & EDDY, INC. Similarly, the impression given by the Future Land Use Ulan that development will occur much more intensely is likely to be incorrect. Not all of the land included within the developed use categories will develop. That which does develop is proposed to do so at a density at or below the level which is occurring pres- ently. Thus, although overall quantity of developed uses is antic- ipated to increase, the intensity of development is expected to remain near its present level. Table 58. Proposed Land Use Amounts Use Proposed Acres Residential rural density 2,100 low density 1,650 medium density 5,400 Commercial - local high density 365 seasonal Industrial 65 Open Space 4,852 Water 1,670 Total 16,102 Source: Projections by Metcalf & Eddy, Inc. 154 Percent of Total 'Town 13.0 10.2 33.5 1.9 0.4 0.4 30.2 10.4 100.0 I I PART III EFFECTUATION PROGRAM I I FE n ZONING The Protective Zoning By -Law presently in effect in Brewster was authorized by Town Meeting in 1960. Since that time, only two amendments have been approved; one being the establishment in 1965 of 15,000 square feet as a minimum lot size throughout the town, and the other being the creation in 1969 of an industrial zone. The present by -law creates four zoning districts: residen- tial, limited business, business and industrial. The business district is the least restrictive, since in addition to a broad range of businesses, it also allows all of the permitted uses of the limited business and residential districts. Similarly, the limited business district allows all of the uses of the residen- tial district as well as various commercial or semipublic uses. Adequacy of Existing By -Law The Brewster Protective Zoning By -Law no longer meets the needs of a growing suburban community. Some of these needs which are not served by the present by -law include: 1. The need for restrictive districts for both residential and nonresidential uses. 2. The need for lot size requirements to reflect soil conditions and service areas of existing or proposed public utilities. 3. The need for definitions to specify and limit the meaning of various terms. 4. The need for height and bulk regulations. 5. The need for area regulations to be varied according to a greater variety of zoning districts and uses. 6. The need to establish standards for off - street parking and loading areas. 0 155 METCALF & EDDY, INC. 7. The need for sign regulations to be expanded and to be related more specifically to the types of uses the sign describes. 8. The need to remove from the Board of Appeals the responsibility for sitting in judgment on the majority of nonresidential uses which wish to locate or expand within the town. 0 155 METCALF & EDDY, INC. 0 9. The need to incorporate regulations for inno- vative development schemes, such as cluster zoning and planned unit developments. Recommendations Under separate cover, we have submitted a complete Proposed Zoning By -Law, containing standards and regulations which offer adequate protection for each type of land and land user. It estab- lishes six types of zoning districts, each having requirements for minimum lot areas and structural bulk and maximum structural height and each protected for specified types of land use and against en- croachment by others. In addition, it contains extensive regula- tions for signs and for off - street parking and loading. It is considered that the Proposed Zoning B,y -Law for Brewster is a useful and pertinent document which could assist in organized land use planning and particularly in the development of the new Brewster Center, described in the Future Land Use section of this plan. It also includes many advanced and innovative zoning tech- niques which would be appropriate for Brewster over the next 15 years of this planning period. However, it is understood that a. comprehensive by -law such as this one may be too complex for a small town such as Brewster to accept as a single package at this point in time. Therefore, we suggest that the town move in stages toward acceptance of the proposed by -law. A first step should be the establishment of minimum lot sizes in the basic use districts. These lot sizes are necessary in order to protect the town against the need to expand its proposed utility service area or its other community facilities. At the same time, a process of education should be undertaken to inform the public of the values of such zoning regulations as sign and off - street parking and loading standards and the special regulations relating to clustered and planned unit developments, environmental performance standards, and sand and gravel removal or process operations. The acceptance of these regulations into town by -laws is an important step toward controlling unwarranted development and the first step toward implementing the overall Master Plan. 156 1 r LAND SUBDIVISION REGULATIONS Land subdivision regulations control the design and con- struction of new streets and utilities. Inadequate construction will be paid for in high maintenance or reconstruction costs by the future citizenry. Therefore, it is vital that sound standards be established to ensure that every subdivision is designed and the improvements installed in the best interest of the Town. Existing Regulations In September of 1964, the Planning Board of the Town of Brewster adopted rules and regulations governing the subdivision of land in that town. There have been no formal amendments made to those regulations. Adequacy of Existing Regulations The existing Brewster regulations are principally in accor- dance with the model presented by the Department of Community Affairs. However, it appears that certain alterations of these regulations would be in order. The weaknesses of the existing regulations include: 1. An impression that the applicant, in most cases, is required to provide only the minimum amount of information to the Board. The phrase "when required by the Board" is used several times throughout the regulations. Consequently, it is likely that the subdivider would appear be- fore the Board with minimal information and wait for the Board to require more of him. 2. The lack of a requirement that an engineer be required to design the street construction and installation of utilities. Proper engineering is essential if the Town is to be protected. 3. An indication that the Planning Board will have authority to rule on the suitability of the land for development. According to General Laws Chapter 41, Section 81 -U, the "health board or officer shall ... report to the planning board in writing approval or disapproval of said plan..." and "if such plan does not comply with...the rec- ommendations of the health board or officer, (the planning board) shall modify and approve or shall disapprove such plan." 157 METCALF & EDDY, INC. 4. An indication that approval of utilities systems individually by the Board of Health must precede approval of the subdivision. According to the above noted section, the Board of Health shall merely indicate which lots shall not be built upon without injury to the public-health. Ap- proval of utility systems by the Health Board need only precede the issuance of a building permit, after the subdivision itself has been approved. 5. The inclusion of requirements, such as frontage and lot requirements, which are not authorized by subdivision control. 6. In some cases, the need to reflect recent changes made by the State Legislature in the Subdivision Control Law. 7. The need to provide varied standards for different types of subdivisions. 8. The need to specify in greater detail suffi- ciently protective design and construction standards for streets and utilities. Recommendations The report submitted under separate cover contains the com- plete Proposed Land Subdivision Regulations for the Town of Brewster. These proposed regulations provide extensive protection for the town through the inclusion of specific standards and pro- cedures which improve upon those presently in use by the Planning Board. The proposed regulations provide for three types of sub- divisions - rural (those containing lots of more than 15,000 square feet), suburban (those containing lots of 15,000 square feet or less), and commercial /industrial. The improvements required of a developer are varied according to the type of subdivision which he proposes. But the required standards which he must meet are com- prehensive and specific. They regulate not only the width of road- ways he must construct, but also the type and method of installa- tion of utilities, the method and material of pavement construction, and other improvements he must make within a subdivision, including sidewalks and planting strips, street signs, and permanent monu- ments. The regulations also propose a concise administrative pro- cedure for processing subdivision applications and inspecting the improvements which are made. In summary, it is recommended that a public hearing be held as soon as possible as a first step toward speedy acceptance and application of these regulations. ��l u C r 158 1 �7 A CAPITAL IMPROVEMENTS PROGRAM '; Tax Base and Tax Rates A community's financial resources are - limited by its prop- erty values and the taxes which the town assesses against these values. The total value of property against which the town levies the tax is the town's assessed valuation, or assessable base (tax base). Communities which are experiencing growth are spending more money as the extent of community services is expanded. At the same time, land values increase as the demand for land becomes greater. Therefore, the assessable base, or the town's taxable wealth, grows. When a community's increased spending is balanced by its growth in realized taxes resulting from the increased as- sessed value, the tax rate remains constant. But the more common situation is one in which the increased amounts of spending far exceed the growth in the tax base, resulting in rising tax rates. In Table 59 is indicated the growth in Brewster's tax base and tax rate from 1960 to 1969. A true picture, however, can only be obtained by analyzing the growth of the equalized tax base and rate. Since 1960, Brewster's equalized tax base has increased by $23,816,034 or 168 percent. This amounts to an average yearly in- crease of approximately $2,646,226 per year. The equalized tax rate, however, has remained almost constant, indicating that in- creased amounts of spending have been balanced by the growth in the tax base. Brewster's tax base presently is comprised, to a large extent, of residential properties. Commercial and industrial prop- erties have not been extensive in Brewster. Due to the increased affluence and leisure time of Americans and the continued increase in demand of the recreational amenities of Cape Cod, it may be expected that commercial as well as residential land uses in Brewster will intensify. Assuming this growth, the town may look forward to an expanded tax base within the planning period. Local Tax Levy Local tax levy is the amount of funds which must be raised by the town's taxing of real and personal property. It is this figure, related to the town's assessed valuation, which determines the annual tax rate. Since 1960, Brewster's local tax levy has nearly tripled, increasing from $185,555 to $520,149 in 1969 (see Table 60). This is an annual increase of about $37,200. 159 METCALF & EDDY, INC. Table 59. Town Valuation and Tax Rates, 1960 -1969 Assessed valuations Equalized Actual tax rate Equalized tax rate Tax ratio percent Year Real estate Personal property Total valuations 1960 $ 3,806,620 $ 596,720 $ 4,403,340 $14,2o4,323 $42.00 $13.10 31 1961 4,003,245 618,640 4,621,885 17,776,481 42.00 11.00 26 1962 4,340,950 657,720 4,998,670 19,225,654 44.00 11.60 26 1963 4,599,975 674,735 5,274,710 20,287,346 42.50 10.90 26 1964 4,7693415 705,255 5,474,670 205,2763556 41.00 10.50 27 1965 5,4753445 7563295 6,231,740 20,772,467 41.00 12.20 30 1966 26,345,440 1,327,240 273 672,680 31,092,899 11.60 10.40 89 � 1967 27,579,329 1,405,295 28,984,624 3131663262 10.80 10.10 93 0 1968 29,189,380 13468,525 30,657,905 31,283,576 11.20 11.00 98 1969 35,647,690 1,612,260 37,259,950 38,020,357 14.00 13.70 98 Sources: Town Reports and Massachusetts Taxpayers Foundation. Nib For a community such as Brewster with a growing population, it would be expected that the local tax levy will increase, but the relation of this increase to the population increase is the real indication of any growing tax burdens within Brewster. Be- tween 1960 and 1969, the per capita local tax levy increased from $150 to $273 per person. Thus, per capita tax levy increased by 82 percent while the total local tax levy almost tripled. The per capita tax levy has increased about $30 per capita per year. Note, however, that per capita tax figures become distorted in a seasonal town such as Brewster, and the increase in per capita tax levy does not reflect seasonal population. Receipts In Table 61 are indicated the changes in Brewster's town receipts from various sources for the years 1960, 1965 and 1968. The principal source of funds is local taxes, which has been con- stantly over 50 percent of the total town receipts. In Brewster, the percent of town receipts raised from local taxes has remained constant, while throughout the state, most towns are becoming in- creasingly dependent upon local tax resources for revenue. The nonincrease in the percent of town receipts from local taxes plus the continuous rise in state and federal grants has enabled Brewster to maintain its constant tax rate. 161 METCALF & EDDY, INC. Table 60. Local Tax Levy, 1960 -1.968 Year - Tax levy Population Tax levy per capita 1960 $185,555 1,236 $150.13 1961 194,840 1,295 150.46 1962 200,696 1,355 148.12 1.963 224,175 1,414 158.54 1964 224,299 1,474 152.17 1965 255,506 1,533 166.67 1966 321,003 1,619 198.27 a 1967 312,307 1,704 183.28 1968 341,804 1,790 192.00 1969 520,149 1,900 273.76 Sources: Town Reports and recapitulation sheets; United States and Massachusetts Censuses; and Estimates by Metcalf & Eddy, Inc. For a community such as Brewster with a growing population, it would be expected that the local tax levy will increase, but the relation of this increase to the population increase is the real indication of any growing tax burdens within Brewster. Be- tween 1960 and 1969, the per capita local tax levy increased from $150 to $273 per person. Thus, per capita tax levy increased by 82 percent while the total local tax levy almost tripled. The per capita tax levy has increased about $30 per capita per year. Note, however, that per capita tax figures become distorted in a seasonal town such as Brewster, and the increase in per capita tax levy does not reflect seasonal population. Receipts In Table 61 are indicated the changes in Brewster's town receipts from various sources for the years 1960, 1965 and 1968. The principal source of funds is local taxes, which has been con- stantly over 50 percent of the total town receipts. In Brewster, the percent of town receipts raised from local taxes has remained constant, while throughout the state, most towns are becoming in- creasingly dependent upon local tax resources for revenue. The nonincrease in the percent of town receipts from local taxes plus the continuous rise in state and federal grants has enabled Brewster to maintain its constant tax rate. 161 METCALF & EDDY, INC. 1 Table 61. Change in Town Receipts ($000's) 1968 1965 1960 Source Amount Percent Amount Percent Amount Percent Local taxes 341 50.9 250 51.0 181 51.0 - Excise taxes 60 9.0 42 8.6 25 7.0+ State grants 130 19.4 92 18.8 65 18.3 Federal grants 27 4.0 24 4.9 15 4.3 Highways 33 4.9 33 6.9 30 8.4+ Fines, permits, 11 1.7 6 1.2 4 1.1 licenses Local welfare 10 1.5 1 - -- 4 1.1 Tax title 1 - -- 6 1.2 5 1.4 Agency, trust, 40 6.0 24 4.9 11 3.1 and invest- ment Municipal debt - -- --- --- - -- - -- - - Miscellaneous 17 2.6 12 2.5 15 4.3 Total 670 100.0 490 100.0 355 100.0 Source: Town Reports. Town Expenditures In Table 62 are shown the changes in Brewster's town expen- ditures from 1960 -1968. Over this eight -year period, the total town expenditures have increased from $362,000 to $592,000, an increase of $230,000. (Note: The 1968 town expenditure includes $64,000 in short -term notes for the purchase of conservation land. A more accurate 1968 town expenditure total would be $528,000, an increase of $166,000. This is an average increase of less than $21,000 per year.) As is the case in most Massachusetts towns, the percent of community operating expenditures for schools has been increasing substantially since World War II. Brewster is no exception. In 1960, only 29.0 percent of the town's total expenditures was for school operating costs. By 1968, 39.2 percent of the town's total expenditures went for operating the schools. 162 1 Subtotal 91 15.3 35 7.4 21 5.8 Grand Total 592 100.0 471 100.0 362 100.0 A capital expenditure is one for a major improvement or better- ment of a nonrecurring nature to the physical plant of a commu- nity as differentiated from ordinary repairs or maintenance of a recurring nature. This includes expenditures for construction, reconstruction, replacement, major repairs, additions or other improvements to public buildings, highways, bridges, parks, play- grounds, utilities or other public works or any facility or structure appurtenant to any of these, or any expenditure for purchase of land buildings, structure, or major equipment. Source: Town Reports. Table 62. Change in Town Expenditures ($0001s centage of the Purpose 19 Amount Percent 19 Amount 5 Percent 19 Amount 0 Percent expended in this category were Operating General 45 7.6 76 16.1 government METCALF & EDDY, INC. 29 8.0 Protection Health 43 9 7.3 1. 32 6.8 25 6.9 Highways 74 12.5 70 14.9 1.1 Maintenance 8 1.4- 4 64 17.7 Welfare School 65 11.0 64 .9 13.8 4 58 1.1 Library 232 4 39.E 168 35.6 29.0 105 16.0 Recreation 2 .3+ 3 5 1.4 Agency Miscellaneous 7 12 1.2 2.0 5 .6 1.0- - 14 0.0 3.9- 5 1.0- 33 9.1 Subtotal 501 84.7 436 92.6 341 94.2 Capital* General 10 1.7 8 1.7 7 government 1.9+ Protection - -- 0.0 2 Highway School 9 1.5 - -- .4 0.0 2 5 1.4 Municipal 2 70 11.8 24 5.1 1 - -- 0.0 debt . 7 1.9 Subtotal 91 15.3 35 7.4 21 5.8 Grand Total 592 100.0 471 100.0 362 100.0 A capital expenditure is one for a major improvement or better- ment of a nonrecurring nature to the physical plant of a commu- nity as differentiated from ordinary repairs or maintenance of a recurring nature. This includes expenditures for construction, reconstruction, replacement, major repairs, additions or other improvements to public buildings, highways, bridges, parks, play- grounds, utilities or other public works or any facility or structure appurtenant to any of these, or any expenditure for purchase of land buildings, structure, or major equipment. Source: Town Reports. Another percent of the operating category total town accounting for more than ten centage of the total expenses expenses for is highways. Although the per- this category have continued to drop since 1960, greater in 1968 the than actual monies in 1960. expended in this category were 163 METCALF & EDDY, INC. fl It appears that the amount and percentage expended for the in 1968; but if capital outlays* was much greater in 1960 than is included in the 1968 capital outlays, then conservation note not the amount and percentage expended for capital outlays was less in 1968 than 1965• Brewster undertook no major long -term capital ex- penditures in the study period. An expense category that increased substantially between 1960 and 1968 is welfare. Much of the expense of this item was offset by reimbursements from State and Federal governments; never- theless, some of the actual expenses of the programs had to be raised by the local governments. Following the welfare reorgani- distribution zation in 1968, the monies for the administration and benefits) will be raised of welfare (with the exception of veterans disbursed at the state level. The towns will no longer be and directly responsible for expenses in this category. It is important to note, however, that the local communities will not immediately escape the effects of the state welfare pro- grams. For the time being, the effect will merely become an in- direct one. The rising costs of welfare programs are limiting the amount of monies available for dispersal by the state to the local communities. In fact, state receipts to Brewster were reduced over $42,000 from 1967 to 1968, a reduction in receipts of over 37 per- cent. School Costs The impact of the schools upon the town budget was mentioned above. In Table 63, a detailed statement of expenditures and re- ceipts for 1960, 1965, and 1968 is presented. Since 1960, the total net cost for schools increased by $108,000, or nearly 120 percent. Almost all of this increase is due to an increase in operating expenses, particularly in the categories of instruction and projects with other districts. The net capital expenditures remained virtually unchanged, reflecting little investment in plant or equipment. *A capital expenditure is one for a major improvement or betterment of a nonrecurring nature to the physical plant of a community, as differentiated from ordinary repairs or maintenance of a recurring nature. This includes expenditures for construction, reconstruc- tion, replacement, major repair, addition or other improvements to public buildings, highways, bridges, parks, playgrounds, utilities or other public works of any facility or structure appurtenant to any of these, or any expenditure for the purchase of land, build- ing, structure or major equipment. 164 1 r I Table 63. Trends in School Costs 11 METCALF & EDDY, INC. _ 1968 1965 1960 Operating Expenditures Administration, $129,o45.38 $ 83',580.18 $ 62,174-34 instruction and maintenance Projects with other 65,656.94 57,418.84 --- districts Vocational 1,657.29 713-80 46.20 Special class 238-70 284.64 - -- Lunch program 11,935.50 7,590.41 7,884-70 Title V 363-00 --- - -- Title III 61.60 --- - -- Other 23,448-72 18,960-78 35,181.54* Subtotal 232,406.93 168,548.65 105,286-78 Operating Receipts State 30,638-71 28,690-74 16,690.46 Other --- 161-50 149.00 Vocational 112-50 309-90 37-90 School lunch** 10,282.67 6,780.26 6,059.89 Federal** 1,449.00 --- Subtotal 42,482.88 35,942.40 22,937.25 Net operating costs 189,924.05 132,606.25 82,349-53 Capital Expenditures Direct outlay 1,475.00 800.00 35-00 Debt service 6,367-50 6,682-50 7,257.50 Capital Receipts --- --- --- Net capital costs 7,842-50 7,482-50 r7 t1292-50 Total net costs $197,766.55 $140,o88.75 $89,692-03 Enrollment 332 266 200 Net cost per pupil-total $595.68 $526.65 $448.46 Net, operating cost per $572.06 $498-52 $411-74 pupil "Cost of projects with other districts" in 1968 is included under "other operating expenses." **U. S. Department of Agriculture School Lunch Assistance is in- cluded under school lunch receipts. The 1968 U.S.D.A. Grant was $3,184-72. The amount of the U.S.D.A. Grant for 1960 and 1965 was unavailable. Source: Town Reports. 165 11 METCALF & EDDY, INC. Brewster has recently joined the Nauset Regional School District. The district plans the immediate construction of a new senior high school. Thus, in the future, tuition costs (i.e., projects within other districts) will be dropped; but costs for the operation and capital items for Brewster's share of district cost will be added to the town's budget. Capital Outlay and Debt In Table 64 are indicated the capital expenditures in Brewster by purpose over the past six years, 1963 through 1968. These years were chosen because they were the latest available and because they may be considered representative of the most recent capital spending habits. They may, therefore, provide an insight into the town's spending capacity during the budgeting period 1970 to 1975. Table Purpose 64. Six -Year Capital Outlay by Purpose, 1963 -1968 Direct Debt outlay service Amount ($0001s) ($0001s) ($0001s) Total Percent General 31 - -- 31 8.7 government Protection 6 - -- 6 1.7 Highways 50 - -- 50 14.0 Schools 4 40 44 12.3 Land purchases 124- 28 152 42.5 Miscellaneous 35* 40 ** 75 20.9 Total 250 108 358 100.0 Includes 2,000 for water improvements. * *For anticipatory notes, repayment and interest. Source: Town Report. Of the $358,000 spent, $40,000 was for repayment of antici- patory notes and interest. In effect, only $318,000 was actually expended for capital items. It must be noted, also, that the capi- tal outlay table is composed of gross payments, and that for the school account, the State of Massachusetts paid $8,427, or approxi- mately 21 percent, of the total debt service. The only major capi- tal expenditure was land purchases for conservation, which amounted to $152,000, or 42.5 percent of the total capital outlay. 166 l Flo By subtracting all the amounts aid or short -term borrowing expenses, it is above as being outside p Brewster's actual spending on capital items,whichlamountedetoiap- proximately $309,000 between 1963 and 1968. Annually, the town averaged less than $52,000 in actual capital spending. If capital spending for conservation is excluded, Brewster spent approximately only $157,000 between 1963 and 1968. Annually, ditures for conservation excluded, the town averaged $26,000 pen- ex capital spending. Brewster's low capital spending indicates the town has not recently provided new or improved community facil- ities. At the end of 1968, Brewster had a gross debt outstanding Of $78,500. The debt included two conservation notes, one with $5,000 principal and the other with $55,000 notes were due and were paid in full in 1969. Bothathesepr these are within the debt limit.* Brewster's debt limit presently is is $1,550,000, presently is Brewster also has an outstanding debt for the school addi- tion. The principal for the school debt is $12,000, due to be paid in full in 1971. As previously noted, the school debt is outside the debt limit. By the end of 1969, Brewster will have a debt of only this $12,000, and if no more borrowing occurs, by 1971 Brewster will no longer have any town debt. In Table 65 is compared Brewster's debt picture with that*of other Massachusetts area communities. latest available figures.) In 1968 Brewsster}'srnet debt per the was $51 and the net debt ratio was ignoring h capita that by 1971 Brewster will be debt free, Brewster does havefone of the most favorable debt situations. By 1968, with the exception of Eastham and Wellfleet, Brewster had the lowest net debt, the lowest per capita debt, and the lowest net debt ratio. In al the comparative position of Brewster in relation to area comgmuni, ties appears favorable only because Brewster has not recently pro- vided for certain community facilities which are now needed by the town. *By Massachusetts law, the debt outstanding on funds borrowed for certain items, including certain sewer facilities, roads, bridges, sidewalks, and major equipment, cannot exceed specific limits. For towns, this limit is 5 percent of the equalized valuation as most recently established by the State Tax Commission. The valu- ation is set every two years. Brewster's value, set in January 1968, is $31,000,000. Note that while the debt limit for borrow- ing for most items is 5 percent, indebtedness incurred for acquir- ing land for the public domain may not exceed one -half percent of the last preceding assessed valuation. The town may also incur debt which is not counted against this limit, or "borrow outside the debt limit." Projects in this category include schools and certain water and sewage facilities. 167 METCALF & EDDY, INC. *Net debt is the indebtedness omitting all enterprise debts and debts created in anticipation of taxes to be paid within one year. It is as of October 1, 1968 and does not include school district debts. * *Based on 1965 Massachusetts State Census. ** *Ratio of net debt to equalized valuation. "S" indicates town is receiving State School Construction Aid. Source: Financial Statistics of Massachusetts, January 1969, Boston Safe Deposit and Trust Company. No major municipal construction has been undertaken since t the school addition in 1954.. Nevertheless, there has been a great need for improved school facilities, a suitable refuse disposal facility, a public water system, and adequate town buildings. Considering the tremendous annual rise in construction costs, the town, in effect, has lost money by postponing these projects. Fiscal Projections In order to determine the town's future ability to under- take capital projects, projections were made of all elements which affQct the annual budgets. These elements include appropriations for operating the town (including such items as proper operation of a sanitary landfill) and for acquiring minor capital items (typewriters, police cars, etc), projected nonlevy receipts, and the future assessed valuation. 168 Table 65. Municipal Debt, Brewster Area, October 1, 1968 Net debt * ** Net debt ** _ Town 1968 Net debt* per capita ratio Brewster $ 145,000 95 .505 Dennis 498,000 114 1.665 ' 1.795 Harwich 1,442,500 299 Chatham 1,159,000 276 3.065 Orleans 216,000 68 .475 Eastham 42,000 24 .135 Wellfleet None N/A N/A Barnstable 4,395,000 282 5.585 *Net debt is the indebtedness omitting all enterprise debts and debts created in anticipation of taxes to be paid within one year. It is as of October 1, 1968 and does not include school district debts. * *Based on 1965 Massachusetts State Census. ** *Ratio of net debt to equalized valuation. "S" indicates town is receiving State School Construction Aid. Source: Financial Statistics of Massachusetts, January 1969, Boston Safe Deposit and Trust Company. No major municipal construction has been undertaken since t the school addition in 1954.. Nevertheless, there has been a great need for improved school facilities, a suitable refuse disposal facility, a public water system, and adequate town buildings. Considering the tremendous annual rise in construction costs, the town, in effect, has lost money by postponing these projects. Fiscal Projections In order to determine the town's future ability to under- take capital projects, projections were made of all elements which affQct the annual budgets. These elements include appropriations for operating the town (including such items as proper operation of a sanitary landfill) and for acquiring minor capital items (typewriters, police cars, etc), projected nonlevy receipts, and the future assessed valuation. 168 1-11 A significant change in budgeting over the next will be the fiscal year from July 1 to June 30, insteadfof froms January 1 to December 31. This change will be accomplished in an 18 -month transition period, covering 1971 and half of 1972. An 18 -month tax rate will be established, two - thirds of which will be applied in 1971 and one -third applied in the first half of 1972. Thereafter, the annual budgets will cover the same fiscal period L as the State of Massachusetts and the Federal government. In Table 66 are presented the financial projections during the next six fiscal years. It is obvious from this table that the requirements for expenses, both for operating the town and for re- paying capital charges for Nauset Regional schools will increase substantially. The projected nonlevy receipts are not expected to increase at the same rate, nor is Brewster's assessed valuation. Consequently, the base tax rate is projected to rise over the next six years. Capital Budget As stated above, Brewster has delayed many essential capital projects. In 1969, the town became responsible for its share of a new Nauset Regional High School and for other Nauset capital costs. Thus, the town met its immediate obligations in the area of schools. In addition to schools, however, other projects are essential. The most pressing needs are for an adequate site and equipment for a sanitary landfill refuse disposal facility, for a public water sys- tem, for at least minor improvements in the town's beach and boat- ing facilities, for indoor recreation and for improvements in var- ious roads and intersections and parking facilities throughout the town. The three major projects (schools, sanitary landfill, and water system) will cause a significant increase in the tax rate. In fact, the tax rate required to operate the town and pay for these projects is projected to rise to $23.05 by 1975 -1976. It must be noted here,that the projected cost figures for the water system do not include a possible federal grant of 50 per-' cent of principal costs. Because of the "tight" money policy now favored by the federal administration, it is quite likely that Brewster will not receive such a grant. Nevertheless, the town should continue to press its request, even if this might mean a year's delay in the initial construction. If a federal grant were received, an additional $30,000 to $633000 annually would be avail- able to offset additional capital project costs. A description of proposed capital projects, in order of priority, is given below. 1. Sanitary Landfill. The town should acquire a site of at least 50 adequate acres and should prepare a site plan and provide a building on the site for the use as an operations office and for equipment storage. Equipment needed to prop- erly operate the facility should also be acquired. 169 METCALF & EDDY, I N C. Table 66. Capital Budget and Six -Year Capital Improvement Program Category 1970 1971 -1972* (18 months) Costs per year 1972 -1973 ($000's) 1973 -1974 1974 -1975 1975 -1976 Total assessed 40,600.0 42,000.0 44,200.0 46,300.0 48,400.0 50,500.0 valuation Total school operating 315.0 550.0 428.7 483.8 545.0 615.0 expenses Local school debt 6.0 6.0 --- - -- service Nauset regional capital 92.9 154.9 106.5 108.9 108.5 110.3 costs Total costs 413.9 710.9 535.2 592.7 653.5 725.3 Total school receipts 51.2 82.9 58.3 61.9 65.4 70.2 ° Net costs 362.7 628.0 476.9 530.8 588.1 655.1 School tax rate $8.95 $14.95 $10.80 $11.50 $12.15 $13.00 ($10.00 and $4.95) Total general operating 307.3 458.0 316.8 333.7 345.0 351.4 expenses Total general receipts 93.4 169.8 137.9 155.9 169.4 177.2 Net costs 213.9 288.2 178.9 177.8 175.6 174.2 General tax rate $5.25 $6.85 $4.05 $3.85 $3.65 $3.45 ($4.55 and $2.30) Total operating tax $14.20 $20.80 $14.85 $15.35 $15.80 $16.45 rate ($14.55 and $7.25) R z n m 0 0 z n Table 66. Capital Budget and Six -Year Capital Improvement Program (cont.) osts per year Brewster elementary improvements New fire and police station N (10.0) (10.0) (10.0) 100.0 (20.0) Total capital costs 160.0 1971 -1972* -- 451.0 Category 1970 (18 months) 1972 -1973 1973-1974 1974-1975 1975-1976 Proposed Capital Projects ($6.05 New refuse site and 100.0 equipment $2.95) Total tax rate Beach and parking 50.0 50.0 $25.40 improvements ($20.60 Water system ** Road improvements and (311.5) * ** (264.0) (321.5) (314.0) (306.0) New recreation area (10.0) (15.0) 50.0 (10.0) 100.0 50.0+ 15 0+ 15 0+ Brewster elementary improvements New fire and police station N (10.0) (10.0) (10.0) 100.0 (20.0) Total capital costs 160.0 376.5 324.0 381.5 439.0 451.0 Total capital tax $3.95 $9.00 $7.35 $8.25 $9.10 $8.95 rate ($6.05 and $2.95) Total tax rate $18.15 $29.80 $22.20 $23.60 $24.90 $25.40 ($20.60 and $10.20) *During the 18 -month budgetary period, a single tax rate will be computed, two - thirds of which will be paid in 1971 and the remaining third in 1972. * *Costs shown assume no federal assistance. If a 50 percent federal aid grant is re- ceived, the costs in 1972 -1973 to 1975 -1976 would be $233.0, $259.0, $251.5, and $244.0 respectively, representing $.70, $1.35, $1.30, and $1.25 on the tax rate during these periods. ** *Brackets ( ) are used to indicate a payment on a debt service requirement. Source: Projections by Metcalf & Eddy, Inc. 2. Beach and Parking Improvements. Because of financial obligations in other areas, a total of only $100,000 was allocated for these im- provements during the budgetary period. How- ever, if additional monies become available, they should be applied in this area to fulfill the recommendations of the Recreation and Con- servation section. This includes first the preparation of site plans for the four major facilities. It also includes the proper paving and marking of existing parking areas. Next proposed new sites should be acquired or ex- panded and properly paved and marked. Then, signs indicating access to the areas should be installed. Finally, bathhouses, trash cans and fireplaces should be installed at the major beach facilities. In a tourist town such as Brewster, these improvements are a necessity for overall economic stability. 3. Water System. We recommend that a water system to service the areas suggested in the Utilities section be begun by 1971. If necessary to re- ceive federal assistance, however, this project would be delayed a year. 4. Road Improvements. As in the case of beach im- provements, a ceiling was set of $150,000 during the budgetary period for road and parking im- provements. This amount will not be sufficient to meet the needs in this area, as described in the Circulation and Parking section of this re- port. However, the budgeted monies should be used to (1) improve the intersections which were indicated as being dangerous, (2) provide proper access to the new.town center, (3) improve Great Fields Road, and (4) construct a new cross -town road. As additional monies become available, they should be applied in this area. 5. Recreation Center. A site plan for a new recrea- tion center and playfield should be prepared and the facilities constructed on the site of the proposed Brewster Lower School. 6. Brewster Elementary School. As suggested in the Schools section of this report, there are many repairs and renovations which could be made to upgrade this facility. They include the proper lighting of all rooms, proper drainage around the multipurpose room, improved electrical wiring in the older section, improved facilities for sewage disposal, renovations in the boiler room, 172 t and renovations art, and music carried out as in view of its center. to provide adequate library, facilities. These should be soon as possible, particularly suggested use as a recreation 7• New Fire and Police Station. If other improve- ments were not so pressing, this would be an immediate requirement. Nevertheless, a new central facility should be built as soon as Possible. The following items are proposed to be undertaken after 1975 -1976. Consequently, they are not included in the budget table. 8. New Library. A new library should be built, Possibly through a combination of public and semipublic funds and private gifts. 9. Improved D.P.W Facilit Improved facilities for the Department of Public Works should be provided. Perhaps the most economical. means of meeting this need would be by adding to the equipment building at the sanitary landfill site. If this plan is approved, the original building at the landfill site should be designed and situated in anticipation of this addition. 10. New Pla ground. As recommended in the Recrea- tion and Conservation section of this report, a new playground should be built between the Long and Sheep Pond landings. 11. Land Acquisition. It was suggested in both the Recreation and Conservation, and Circulation and Parking chapters that additional lands be acquired for public purposes. To offset the rising land costs, this should be accomplished as soon as possible. As indicated above, the number of specific projects which should be undertaken are beyond the town's immediate financial ability. However, the financial condition may change in a number of unforeseen ways, either through increased receipts from the state or federal governments, a reduction in the rise in cost of living, or a large addition to the tax base. fir For the very reason that it is difficult to make financial predictions, it is recommended that the capital budget be reviewed and updated annually. As conditions change and if more monies be- come available, additional capital projects should be included in the budget. And as 1980 nears, plans should be made for the in- clusion of debt payments on the new Brewster Lower School. 173 METCALF & EDDY, I N C. I I 11 I APPENDIX D I n DETAILED EXISTING LAND USE TABULATION Table A -1. Existing Land Use., 1968 Cateizory Acres Residential - Year round 297.4 Seasonal 377.8 Rooming and lodging houses 5.6 Commercial - Retail sales and service year round 17.2 Retail sales and service seasonal 15.1 Professional and related services 5.7 Motels and cabins 14.0 Automotive and marine 4.6 Industrial - Light industrial 5.9 Warehousing, storage, construction 3.1 Transportation, communication, 247.0 utilities Institutional Semipublic 114.4 Town Buildings and Lands 534.6 Circulation 675.6 Recreational.and Conserved Open Space Public 1,491.6 Semipublic 434.4 Nonrecreational Open Space Agricultural 134.5 Nonrecreational 6.9 Vacant land 9,505.6 Wetlands and Water Wetlands 541.0 Water 1,670.4 Total 16,102.4 Source: April 1968 Field Survey and Tabulation by Metcalf & Eddy, Inc. A -1 :: METCALF & EDDY, INC. B BUSINESS QUESTIONNAIRE Survey of Seasonal Commerce in Brewster September 1968 1. What is Yp our type of business? Y (grocery, store, motel, antique shop, etc. Is your business. open year round? How much square feet does your business cover? 2. Are you happy with the existing zoning provisions for businesses in Brewster? If not, how would you like to see them changed? 3. What is your estimate as to how much of your receipts are from a seasonal clientele? (50 %, 90 %, etc.) 4. What is your estimate as to how many of your seasonal cus- tomers are summer residents of Brewster? (50 %, etc.) 5. What is your estimate as to how many of your seasonal cus- tomers have stopped on their way through town? 6. five Was your business (better, worse) years ago? 7. Are you considering expanding your business in Brewster? If so, how much area will your business cover? 8. Are you considering moving your business elsewhere? If so, to (another town on the Cape, to another town in Massachusetts, etc.)? 9. Do you expect the National Seashore to have a great effect , on your business in Brewster? 10. How many off - street parking places do you provide? 0 A -2 1. 2. 3. 4. 5. 7. C CITIZEN QUESTIONNAIRE Brewster Planning Questionnaire Address (street name) Year house built Lot size Profession of head of household Place of occupation No. of people in family Ages Shopping place: Food - Brewster Clothes - Brewster Orleans Orleans Harwich Harwich Hyannis Hyannis Dennis Dennis Types of recreation enjoyed: Furniture - Brewster Orleans Harwich Hyannis Dennis fishing tennis boating swimming football water skiing ice skating baseball other (specify) Brewster presently has a winter population of approximately 1,500. How great an increase would you like to see occur in the town's winter population in the next 20 years? (specify amount of desired increase) Are you in favor of attracting more summer residents to Brewster? If so, how? (more summer homes, more motels, more camping and trailer sites ?) Specify no 9. What do you find to be pleasing about Brewster's present physical environment? (a lot of open land, closeness to the ocean, a lot of old structures, well- maintained lots, other ?) Specify L L 10. What do you feel are Brewster's greatest assets? a. b. C. A -3 METCALF & EDDY, I N C. 11. What do you feel are the greatest needs in Brewster? a. b. C. 12. In order to fulfill these needs, would you favor easing the tax burden on the single- family residential property owner by: a. Expanding the tax base by encouraging more commercial development? more industrial development? b. Expanding the tax base by encouraging the development of multifamily dwellings? C. Other means (specify) 13. If you would like to see additional commercial facilities located in Brewster, what type of facility would you prefer? Would you like to see additional commercial development occur along Route 6A? 14. What residential lot sizes would you prefer for developing areas south of Route 6A? 15. On the attached map, indicate: 1. Areas where you would like to see additional residential development. 2. Areas, if any, where you would like to see additional commercial and industrial development. 3. Areas you would like to see conserved as open space or used for recreational purposes. A -4