HomeMy Public PortalAbout02.02.22 FinCom Packet
Town of Brewster Finance Committee
2198 Main St., Brewster, MA 02631
fincommeeting@brewster-ma.gov
(508) 896-3701
MEETING AGENDA
Remote Participation Only
February 2, 2022 at 6:00 PM
This meeting will be conducted by remote participation pursuant to Chapter 20 of the Acts of 2021,. No in-person meeting
attendance will be permitted. If the Town is unable to live broadcast this meeting, a record of the proceedings will be provided on
the Town website as soon as possible.
The meeting may be viewed by: Live broadcast (Brewster Government TV Channel 18), Livestream (livestream.brewster-
ma.gov), or Video recording (tv.brewster-ma.gov).
Meetings may be joined by:
1. Phone: Call (929) 436-2866 or (301) 715-8592. Webinar ID: 862 2956 9696 Passcode: 565167
To request to speak: Press *9 and wait to be recognized.
2. Zoom Webinar: https://us02web.zoom.us/j/86229569696?pwd=MUhJNGpoU3VocTZ0cTU0VGpYcWdVQT09
Passcode: 565167
To request to speak: Tap Zoom “Raise Hand” button or type “Chat” comment with your name and address, then
wait to be recognized.
Finance
Committee
Harvey (Pete) Dahl
Chair
Frank Bridges
Vice Chair
William Meehan
Clerk
Andrew Evans
William Henchy
Alex Hopper
Honey Pivirotto
Robert Tobias
Robert Young
Town
Administrator
Peter Lombardi
Finance Director
Mimi Bernardo
1. Call to Order
2. Declaration of a Quorum
3. Meeting Participation Statement
4. Recording Statement
5. Public Announcements and Comment: Members of the public may address the Finance Committee on
matters not on the meeting’s agenda for a maximum 3-5 minutes at the Chair’s discretion. Under the Open Meeting
Law, the Finance Committee is unable to reply but may add items presented to a future agenda.
6. Town Administrator/Finance Director Report
7. Integrated Water Resource Management Plan – Financial Impacts
8. Budget Calendar – Discussion and Approval
9. Nauset Regional Public Schools Budget – Discussion and Strategic Direction
10. Nauset Regional Public School and Brewster School Department – Budget reconciliation
11. Liaison Assignments and Reports
12. Review and Approval of Minutes
13. Request for agenda items for future meetings.
14. Matters Not Reasonably Anticipated by the Chair
15. Next Finance Committee Meeting
16. Adjournment
Date Posted: Date Revised: Received by Town Clerk:
Integrated Water Resource
Management Plan
2022 Update
Town of Brewster
Brewster Town Hall
2198 Main Street
Brewster, Massachusetts 02631
Table of Contents
Introduction .................................................................................................................................. 2
Overview of Water Quality in Brewster ........................................................................................ 3
Brewster’s Public Drinking Water Supply .................................................................................. 4
Pleasant Bay Watershed ........................................................................................................... 5
Herring River and Bass River Watersheds ................................................................................. 5
Other Coastal Estuaries ............................................................................................................. 5
Fresh Water Ponds .................................................................................................................... 6
IWRMP Summary .......................................................................................................................... 6
Implementation of the IWRMP ..................................................................................................... 7
Pleasant Bay Watershed ........................................................................................................... 8
Golf Course Fertilizer and Wastewater Management ............................................................... 9
Golf Course Fertilizer Leaching Rate Evaluation ...................................................................... 10
Install a Neighborhood Wastewater Treatment and Collection System .................................. 10
Onsite Septic System Treatment Upgrades ............................................................................. 11
Nitrogen Trading ..................................................................................................................... 11
Buildout Nitrogen Management ............................................................................................. 12
Fresh Water Ponds .................................................................................................................. 13
Stormwater Management ....................................................................................................... 15
Herring River Watershed ......................................................................................................... 16
Summary of Potential Costs & Funding Sources ......................................................................... 16
Conclusions – Summary of Next Steps ........................................................................................ 17
REFERENCES ................................................................................................................................ 18
2
BREWSTER’S INTEGRATED WATER RESOURCE
MANAGEMENT PLAN - 2022 UPDATE
Introduction
Since the 1980’s, Brewster has actively focused on protecting and restoring the Town’s water
resources. This includes significant investments to protect undeveloped land to prevent the
pollution of groundwater and surface waters associated with residential and commercial
development.
In 2009, the Town of Brewster began a detailed study (known as the Integrated Water Resource
Management Plan or IWRMP) to identify the issues associated with the Town’s water systems
and propose strategies to protect and restore water quality. This planning process led to a
series of recommendations related to groundwater, freshwater ponds, stormwater
management and coastal estuaries, with a focus on Pleasant Bay. In the last 10 years,
significant work has been done to advance these recommendations. The purpose of this
updated report is to summarize the goals of the Town’s planning process, describe the actions
that have been taken to date and present the current plans for continued water management
in Brewster, including the costs needed to implement these plans. As will be described
throughout this report, the Town’s investments in protecting open space have preserved
drinking water quality throughout Brewster and have significantly reduced the future
investments needed to restore the quality of freshwater ponds as well as Pleasant Bay and
other coastal estuaries.
Integrated Water Resource Management
Groundwater and surface waters, throughout Brewster, are interconnected. Rainfall is the
source of Brewster’s groundwater and surface waters. Rainwater lands on the ground surface
and either infiltrates through the soil into groundwater or flows over the ground surface to a
freshwater pond, Cape Cod Bay or one of the coastal estuaries in or near Brewster.
These interrelationships led to the decision to develop the IWRMP to evaluate the quality of the
groundwater that provides drinking water to Brewster’s residents, as well as the quality of the
Town’s many freshwater ponds and coastal estuaries. This planning process recognized that
individual plans or actions are needed for specific watersheds in town; those areas that
contribute groundwater or surface water to freshwater ponds, or coastal estuaries (Figure 1).
The IWRMP process also recognizes ongoing planning is needed for those areas that contribute
groundwater to the Town’s public drinking water wells. These areas are known in
Massachusetts as Zone II’s, or wellhead protection areas, and are shown in Figure 2. In
£¤6
UV137UV124
UV6A
DENNIS
HARWIC H
YARMOUTH
ORLEANS
CHATHAM
Cape Co d Bay
Stony BrookQuivett Creek Ple asa nt Bay
Bass River Herring River
Namskaket
Swan Pond
Little Namskaket
Source: Esri, Maxar, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID,
IGN, and the GIS User Community
/
0 10.5
Miles
Date: 1/18/2022
Path: H:\Projects\2011\11109 Brewster Int.Wtr.Res.Mgt Plan\GIS\Maps\Report\Figure B-2.mxd
Figure 1. Brewster's Water
Reso urces
C apeC odB ayP l e a s a n t B a y
Cape Cod Bay
Legend
Ponds
Streams Subwatersheds
Wetlands
Town of Brewster Watersheds
!A
!A
!A
!A
!A
!A
UV6A
£¤6
UV137
UV124
WELL # 6
WELL #5
WELL # 4
WELL # 1
WELL # 2
WELL # 3
DENNIS
HARWICH
ORLEAN S
CHATHAMYARMOUTH
/
0 10.5
Miles
Date: 1/26/2022
Path: H:\Projects\2011\11109 Brewster Int.Wtr.Res.Mgt Plan\GIS\Maps\Report\Figure 2.mxd
Figure 2. Brewster
Conservation Lan ds and
Zone II Are as
C apeC odB ayPleasantBayCape Cod Bay
!A Publi c Wells
Legend
Conservation Lands
Ponds
Brewter Zone II
Town of Brewster
Other Zone II
3
addition, the areas contributing groundwater and surface water to freshwater ponds must also
be assessed and the sources of pollution to these ponds managed.
The interrelationships between groundwater, surface water and different sources of pollutants
can be seen in Figure 3. The graphic shows how day-to-day activities of town residents impact
the quality of drinking water and the quality of freshwater ponds and coastal estuaries. What is
flushed down a toilet into a septic system can impact water quality in downgradient wells,
ponds or coastal estuaries. Pollutants on town roadways (e.g., automobiles, fertilizers, and pet
wastes) are collected in stormwater runoff that flows into waterways or soaks into the ground
and impacts groundwater quality.
Figure 3 – Integrated Connections Between Water Resources and Pollutants
Overview of Water Quality in Brewster
Brewster is fortunate to have a public water system that provides high quality drinking water.
However, there are ongoing issues with the water quality in many of the freshwater ponds in
town, in Pleasant Bay and in Herring River in the adjacent town of Harwich. While Brewster
only has frontage on a small portion of Pleasant Bay, and none on the Herring River, a portion
of the watersheds that contribute pollutants to them are located in Brewster and the Town has
a regulatory obligation to manage these watersheds. An overview of the regulatory
requirements for managing the Town’s water resources, and the protection and restoration
strategies the Town is currently evaluating, are summarized below. The status of the Town’s
actions to restore these waters is then discussed in the following report sections.
4
Brewster’s Public Drinking Water Supply
Most Brewster residents get their drinking water from the Town’s public water supply system.
Brewster’s public water supply provides high quality drinking water pumped from six wells
withdrawing groundwater from the area surrounding each well. The Zone II protection areas to
these wells are shown on Figure 2. The protection of undeveloped open space around the
Town’s wells serves to minimize the potential for contaminants to impact drinking water
quality. In 2012, 40% of the Town’s Zone II areas were protected open space (See IWRMP
Phase II Report). The extent of protected open space has grown since then, with further
acquisitions by the Town and the Brewster Conservation Trust.
Public supply wells using groundwater are typically threatened by nitrogen from septic systems,
lawn fertilizers, road runoff, hazardous material releases from fuel storage tanks, and
accidental spills from roadway accidents. The open space protection in Brewster has
significantly reduced the number of onsite septic systems potentially affecting drinking water
quality. The Town’s Water Quality Review Bylaw also prohibits hazardous materials use, or
storage at volumes above those typically used in a household, in the Zone II areas. The Town’s
wells are tested regularly, and the tests confirm there are no contaminants exceeding federal
and state drinking water standards. This data is reported annually in the Consumer Confidence
Report, which the Water Department is required to produce. As can be seen in the 2020 report
(Town of Brewster Water Department, June 2021), the nitrogen concentration in the Town’s
drinking water averaged less than 1 part per million (mg/L). The drinking water standard for
nitrogen is 10 mg/L. Nitrogen is an indicator of contamination from septic systems, fertilizers
and runoff. The low value is reflective of the extent of protected open space in the Zone II areas
around the town wells.
Emerging contaminants are an ongoing concern for every drinking water system. One of the
emerging contaminants of concern for many drinking water systems is per-and polyfluoroalkyl
substances (PFAS). PFAS compounds are found in firefighting foams, a variety of personal care
products, food wrappings, Teflon coated cookware, and clothing. The recently updated state
drinking water standard for six of these PFAS compounds is now 20 parts per trillion. Note, this
drinking water standard is six orders of magnitude lower than the standard for nitrogen. Small
releases of these compounds to soil and groundwater can create issues for public water
systems, so ongoing testing and evaluation is needed. Tests conducted in 2021 showed no
PFAS compounds have been detected in the Town’s public water supplies.
There are properties in Brewster that use private wells for drinking water, and they are located
in various locations across the Town. These wells face the same water quality issues as the
Town wells and often also benefit from nearby protected open space. One issue with private
wells is their placement relative to an onsite septic system on the same property or an abutting
property. Even if a septic system is outside the required 100-foot setback from a private well, if
groundwater is flowing from the septic system towards the well it can bring nitrogen and other
contaminants to the well. For this reason, it is important for residents to test the water quality
in their private wells on a regular basis.
5
Pleasant Bay Watershed
The majority of the IWRMP implementation work over the last four years has focused on
Brewster’s portion of the Pleasant Bay watershed. Nitrogen inputs from the land uses within
the watershed that contributes groundwater to the bay is the major water quality concern.
Excess concentrations accelerate the growth of algae and invasive plants leading to the loss of
fish and shellfish habitat. A main concern is the loss of eelgrass that provides habitat for fish to
lay eggs and threatens protection of bay scallops. Brewster occupies approximately 25% of the
overall watershed shared by Orleans, Harwich, and Chatham, but only contributes to 13% of the
total nitrogen load entering the Bay. Brewster still needs to reduce its load by 981 kg/year and
has agreed to do this under the Watershed Permit issued by the Massachusetts Department of
Environmental Protection (DEP) to the four Pleasant Bay Towns.
Herring River and Bass River Watersheds
Portions of the watersheds to Herring River in Harwich and Bass River in Dennis and Yarmouth
are located in Brewster. Like Pleasant Bay, nitrogen is the pollutant of concern for these
estuaries. Brewster’s portion of the Bass River Watershed is quite small, at 160 acres (Univ of
MA Dartmouth, April 2011). Given this small area and the fact most of the watershed land
within Brewster is protected open space there are no nitrogen management requirements for
this watershed. For the Herring River watershed there is likewise no need to reduce the
existing nitrogen load within Brewster. However, any additional load resulting from new
development in the watershed will need to be managed to minimize the extent of additional
nitrogen entering the Herring River system (Univ of MA Dartmouth, May 2013). Recent open
space acquisitions in the watershed have reduced the potential for additional nitrogen impacts
and the Town will be updating the quantity of nitrogen that needs to be managed in this
watershed in the future.
Other Coastal Estuaries
Nitrogen management for the Namskaket Creek and Quivett Creek watersheds has also been
evaluated in Brewster. These estuaries are located on the north shore of Brewster and drain
into Cape Cod Bay. Namskaket Creek is different from the estuaries discussed above as the
current and future nitrogen load to this estuary is lower than the threshold established by DEP.
So, there is no current need to develop a management plan for this system (Univ of MA
Dartmouth, December 2008). The Quivett Creek watershed was evaluated by the Cape Cod
Commission (October 2018), and it determined there is no need for nitrogen management at
this time. Recent data for Quivett Creek developed by the Association to Preserve Cape Cod
(APCC) is currently being reviewed by the Brewster Natural Resource Advisory Commission to
determine if water quality has changed. The tidal range in Cape Cod Bay and within these
6
estuaries is much higher than in Pleasant Bay, Herring River or Bass River. Therefore, nitrogen
entering these systems is quickly flushed out into Cape Cod Bay and does not have the same
impact on the health of the estuaries.
Fresh Water Ponds
Brewster is home to over 80 freshwater ponds located throughout the Town. Unlike coastal
waters, pond water quality is impacted by both phosphorus and nitrogen. Excess inputs of
these nutrients fuel the growth of algae which, when they die and decay, reduce the oxygen
level in the water. Fish kills can result if algae blooms get too big and result in anoxic conditions
in the water. In addition, the mixture of nitrogen and phosphorus can promote the growth of
toxic organisms like cyanobacteria which were found in three ponds in the summer of 2021
based on testing conducted by APCC. Warmer temperatures and drought conditions over the
last year have extended the growing season in the ponds, exacerbating some of these water
quality issues. Many ponds are experiencing water quality impairment as shown in Figure 4.
The main sources of these nutrients to ponds are septic systems, lawn fertilizers and road
runoff. Since phosphorus does not travel extensive distances in groundwater, the concern with
septic system discharges is only related to those within approximately 300 feet of the pond
shore, especially on the upgradient side of the pond, as mapped on the Water Resource Atlas
described later in this report.
IWRMP Summary
As mentioned above, Brewster’s IWRMP development began in 2009. Since then, a series of
reports specific to Brewster have been prepared to outline specific water quality issues and
recommend actions to address them. The majority of them can be viewed on the Town’s
Website at www.brewster-ma.gov (click on the Water Planning button on the home page). A
summary of the main reports that continue to direct the IWRMP process is provided below.
• Integrated Water Resource Management Plan Phase II Report, January 2013. This
report provided a review of the regulatory process governing water quality
management in Brewster and made specific recommendations for restoring and
protecting water quality for drinking water, freshwater ponds and coastal estuaries.
• Pleasant Bay Nitrogen Management Alternatives Analysis Report, March 2015. This
report focused on strategies to reduce nitrogen loading from Brewster’s portion of the
Pleasant Bay Watershed to help achieve the nitrogen reduction goals to restore water
quality in the Bay. The alternatives considered included a neighborhood sewer system,
changes in fertilization practices at the Captain’s Golf Course, the use of innovative
septic treatment systems and other potential solutions.
• Pleasant Bay Watershed Permit and Targeted Watershed Management Plan, 2018.
Brewster entered into an agreement with the DEP and the three other Pleasant Bay
£¤6
UV137
UV124
UV6A
Long Pond
Cliff Pond
Upper Mill Pond
Seym our Pond
Sheep Pond
Walkers Pond
Flax P ond
Low er Mill Pond
Elbow Pond
Slough Pond
Cahoon Pond
Griffiths P ond
Bakers Pond
Greenland Pond
Pine Pond
Little Cliff Pond
Higgins Pond
Cobbs Pond
Mill PondSmalls Pond
Blueberry Pond
Canoe Pond
Grassy PondMud Pond
Smith Pond
Black P ond
Sols Pond
Owl PondMyricks Pond
Eel PondSchoolhouse Pond
Round Pond
Lees Pond
Widger Hole
No Bottom Pond
HARWIC H
ORLEANS
DENNIS
CHATHAM
/
0 10.5
Miles
Path: H:\Projects\2011\11109 Brewster Int.Wtr.Res.Mgt Plan\GIS\Maps\Report\Figure 1_20171002.mxd
Figure 4. Water Quality
in Brewste r's Po nds
C apeC odB ayPleasantB ayCape Cod Bay
Legend
Ponds
Town of Brewster
Ponds Health Assessment
Water Q uality Category
1 - High Quality
2 - Meets Most Uses
3 - Some Im pairment
4 - ImpairedMassDOT Major Roads
Wetlands No Data Date: 1/14/2022
7
Watershed towns to restore water quality in Pleasant Bay (DEP, August 2018). The
Permit specifies specific requirements to reduce nitrogen loading to the bay. The
Pleasant Bay Alliance prepared a companion report, the Targeted Watershed
Management Plan, outlining the strategies proposed by each town to meet the nitrogen
reduction goals in the Permit. (Pleasant Bay Alliance, March 2018)
• Meeting the Nitrogen Reduction Goals for Pleasant Bay, October 2020. This report
provides an update to the Pleasant Bay Nitrogen Management Alternatives Analysis
Report mentioned above. The update was prepared for the Select Board and
incorporates updated information on the nitrogen management alternatives available to
Brewster based on the requirements of the DEP Permit issued in 2018.
• Mill Ponds Management Plan, November 2014. This report, prepared by the School
for Marine Science and Technology (SMAST) at the University of Massachusetts,
provided recommendations for the restoration of Upper Mill, Lower Mill and Walkers
Pond. Based on these recommendations, the Town purchased a weed harvester to help
manage Walkers Pond. They also conducted an alum treatment in Upper Mill Pond to
reduce water quality impacts from phosphorus historically discharged to the pond,
which is now contained in the sediment on the pond bottom.
• Water Resource Atlas – Fresh Water Ponds. This Atlas provide maps of the surface
watersheds and groundwater recharge areas to each pond in Brewster, and provides the
areas proposed for additional septic system management within 300 feet on the
upgradient side of each pond, and 100 feet on the downgradient side of the pond.
Additional reports have been prepared as part of the Massachusetts Estuaries Project and on
behalf of the Pleasant Bay Alliance and these are referenced in the following section of this
report.
Implementation of the IWRMP
The Town’s actions to implement recommendations in the IWRMP are currently focused on the
following topics:
• Nitrogen reduction in the Pleasant Bay Watershed, as required in the watershed permit
issued by DEP.
• Actions to protect and restore water quality in the Town’s freshwater ponds.
• Implementation of the recently adopted stormwater management bylaw to protect
water quality.
• Plans to reduce future nitrogen loading in the Herring River watershed.
An update on the status of each of these topics is provided below, summarizing the actions
being considered, the associated costs, and the work needed to make final decisions.
8
Pleasant Bay Watershed
Brewster has collaborated on managing nitrogen in Pleasant Bay with the other towns in the
watershed through the Pleasant Bay Alliance. This has included documenting the nitrogen
removal responsibilities for each town and establishing the Pleasant Bay Watershed Permit
with DEP that provides a framework to meet these nitrogen reduction goals over a 20-year
period. The details of these plans are summarized in the Pleasant Bay Targeted Watershed
Management Plan, prepared by the Alliance and referenced in the DEP Permit.
Much of the data in this plan was obtained from the 2006 Linked Watershed Model, developed
by SMAST, as part of the Massachusetts Estuaries Program (Univ of MA Dartmouth, May 2006).
It documents the existing nitrogen loading from each town, divided up by the watersheds
contributing groundwater to the Bay. It then establishes the nitrogen reduction requirements
for each town in each watershed.
The Permit requires Brewster to remove of 2,262 kg N/year from the watershed and to address
nitrogen impacts from future development. At the time it was issued, the Town had already
removed 56% of this load, taking advantage of fertilizer and irrigation management at Captains
Golf Course as well as the adoption of a town-wide fertilizer management bylaw (Table -1).
This was done with minimal cost to the Town.
Total Nitrogen Reduction Required 2,262 kg N/year
Golf Fertilization Reduction -930 kg N/year
Golf Irrigation Recapture -230 kg N/year
Town-wide Fertilizer Bylaw -121 kg N/year
Total Nitrogen Removed to Date -1,281 kg N/year
Remaining Reduction Needed 981 kg/N/year
Table -1 Pleasant Bay Nitrogen Load Summary
The permit also requires that the Town address nitrogen inputs from future development in the
watershed. Based on an assessment in 2018 (HW, April 2018), this could include an additional
1,209 kg N/year. The Pleasant Bay Alliance will be working over the next year to update this
buildout number to assist with the planning needed to manage this additional load. Any future
load created will have to be offset by further reductions in existing loads.
The Pleasant Bay Alliance is currently working with SMAST to evaluate and revise the nitrogen
reduction requirements for each Town based on updated land use information since the initial
report was prepared in 2006 and considering the changes in hydrology in Pleasant Bay given
the new inlet that was formed in 2007 that increases the tidal flushing in the estuary.
The extent of nitrogen entering Pleasant Bay from the Tar Kiln portion of the watershed is
currently being reviewed and is an important issue for the Town. If groundwater containing
9
nitrogen enters a freshwater pond or wetland, some of the nitrogen is attenuated, or taken up
by the algae and plants, and less is transferred back into groundwater which then flows to
Pleasant Bay. No attenuation was attributed to the Tar Kiln watershed in the initial SMAST
Model, but recent studies by SMAST led them to conclude that there is attenuation in this
marsh system. As such, the existing nitrogen impact from this watershed is reduced, meaning
that septic systems, lawns and stormwater in this area of the watershed do not have as much
impact on Pleasant Bay. However, a portion of Captains Golf Course lies in this watershed, and
the plans for managing further nitrogen reductions may be somewhat offset by the new
attenuation attributed to the Tar Kiln Marsh. The Town is working with the Pleasant Bay
Alliance to quantify how this affects Brewster’s requirements under the Watershed Permit.
However, the effects should not be significant enough to require major changes in the plans
developed to date.
The options to fully comply with the Watershed Permit are summarized below. One major
opportunity is continued fertilizer management at Captains Golf Course. The extent to which
this will reduce nitrogen loading will affect the scale and cost of the other options the Town is
considering. Each option is discussed below, with an initial estimate of the cost for
implementation.
Golf Course Fertilizer and Wastewater Management
In 2020, the Town has collaborated with the U.S. Golf Association to identify additional
strategies to further reduce nitrogen inputs at Captains Golf Course. Proposed changes at the
golf course include:
• Changes in fertilization practices to reduce applications on the fairways and roughs,
incorporating sprayed applications of liquid fertilizers that can be readily adsorbed by
the turf. These new practices began in 2020.
• Reductions in the size of fairways by a total of approximately 2.5 acres by converting
this turf to rough and reducing fertilizer demand. The areas selected are based on an
inspection by the U.S. Golf Association and would not hinder the way the course is used.
• Installation of a nitrogen treatment system to the septic system at the course that
would reduce the nitrogen concentration in the effluent to 10 mg/L or less.
If implemented, these actions would further reduce nitrogen loading by 458 kg/year, such that
the Town will only need to manage the remaining current nitrogen load of 523 kg/year. There
would be little to no cost for changes in fertilization applications, the cost for the adjustments
to the size of the fairways would cost about $20,000 and the septic system upgrades would cost
approximately $200,000. The golf course has already begun to implement the sprayed
applications of fertilizer at reduced rates and this process will continue moving forward.
Nitrogen Reduction 458 kg/year
Estimated Cost $220,000 – Current Estimate
10
Golf Course Fertilizer Leaching Rate Evaluation
Separate from the reduced amount of fertilizer applied to the golf course turf, the Town could
receive a nitrogen reduction credit related to the amount of fertilizer that actually leaches into
groundwater and flows to Pleasant Bay. Currently the DEP watershed permit assumes that 20%
of the nitrogen in fertilizers leaches into groundwater. The proposed management practices
will likely reduce this leaching rate. If so, additional nitrogen reduction credits can be obtained.
The Town has begun a study to evaluate the fertilizer leaching rate that involves the testing of
water in the soil and the underlying groundwater for nitrogen. A series of six lysimeters have
been installed in the golf course fairways that capture water infiltrating through the upper 1-2
feet of soil. Six monitoring wells located near the lysimeters have also been installed.
Quarterly testing of nitrogen concentrations will be conducted for two years to document how
much nitrogen applied in fertilizer actually enters groundwater below the golf course. Based on
this data, an updated leaching rate for fertilizers will be documented and used to determine the
remaining nitrogen load that must be managed by Brewster. This option is attractive because
the only expense is the cost for a study to document this leaching rate. If the leaching rate is
substantially lower, the nitrogen reduction requirements for both existing and future loads
could be reduced.
Nitrogen Reduction To be determined
Cost (for leaching rate study) $140,000 – funded in 2021 and underway
Install a Neighborhood Wastewater Treatment and Collection System
A traditional wastewater system could be installed in the upper, western portion of the
watershed to treat effluent prior to its discharge to groundwater. This area was selected based
on the concentration of development that reduces the length, and therefore the cost, of sewer
lines needed to collect wastewater. There are two options for this, either site the wastewater
disposal field in the watershed or locate it outside the watershed. If the disposal field is not
within the watershed, all the nitrogen from the homes connected to the system is removed,
and therefore fewer homes need to be connected to reach the required nitrogen load
reduction. The siting of a disposal field outside the Pleasant Bay watershed needs to account of
other potential impacts to drinking water supplies or other sensitive watersheds. The sizing of
the system assumes no change in the golf course leaching rate. Both of these options could be
expanded to accommodate additional nitrogen from future development. The costs listed
below are broken out into those needed to design and permit the system and those needed for
construction and a long term (20-year) operation.
Disposal in the watershed Disposal outside the watershed
11
No. of Homes 152 No. of Homes 100
Nitrogen removed 523 kg/yr. Nitrogen reduction 523 kg/yr.
Planning Cost $450,000 Planning Cost $400,000
20-year cost $10,000,000-$15,000,000 20-year cost $9,000,000
Onsite Septic System Treatment Upgrades
Septic systems serving individual properties could be upgraded to provide additional nitrogen
treatment. Currently, it may be possible to utilize an innovative treatment system to treat
nitrogen to about 12 mg/L, well below the typical system which discharges nitrogen at a
concentration of about 35 mg/L. There are innovative systems that could meet this goal, but
they are still being evaluated. Based on the best, currently available data, approximately 320
septic systems would need to be upgraded to this relatively new technology to provide the
necessary nitrogen reduction. This number may change based on the results from the golf
course leaching rate study and the nitrogen attenuation attributed to the Tar Kiln Marsh
watershed. More septic systems could be upgraded with nitrogen treatment to help
accommodate future nitrogen loads from buildout.
The Pleasant Bay Alliance evaluated the cost for the design, construction and long-term
operation of these systems and reported that the price for an individual system could run as
high as $33,900 with annual operation and maintenance costs of $2,360 (HW, 2020, Appendix
C). Over 20 years this results in a total cost for 320 properties of $26,000,000. This cost makes
this option more expensive than the neighborhood system described above. The Town is
continuing to evaluate these costs, based in part on a pilot program led by the Barnstable Clean
Water Coalition documenting actual construction costs for 15-20 systems which are somewhat
lower than that estimated by the Alliance. The use of these systems could be beneficial if the
leaching rate study at the golf course shows fewer of them are needed. They may also be
useful for managing future development not just in the Pleasant Bay watershed but in
watersheds adjacent to freshwater ponds as well.
No. of Homes 320
Nitrogen reduction 523 kg/yr.
20-year cost $26,000,000
Nitrogen Trading
The Town can negotiate a “nitrogen trade” with another Pleasant Bay town by financing
nitrogen removal actions they are taking. As an example, if a neighborhood treatment plant
would cost $10,000,000 to remove 523 kg N/year, the Town could negotiate an agreement with
Harwich, Orleans, or Chatham to fund wastewater treatment in their community to remove the
same amount of nitrogen, taking advantage of economies of scale and excess nitrogen removal
in their new wastewater systems. The size and cost of the trade could be adjusted to
accommodate future nitrogen impacts from buildout. This would eliminate the long-term
management of a facility in Brewster.
12
Buildout Nitrogen Management
Under the Watershed Permit, Brewster needs to develop a plan to ensure future development
is managed to keep the nitrogen loading in the Town’s portion of the watershed within the
levels allowed for Pleasant Bay. Part of this can be accomplished through the strategies
discussed above. In addition, there are regulatory options that the Town can evaluate to make
sure that the loading from future development is minimized to the extent possible.
The Water Quality Review Bylaw currently in place limits the amount of nitrogen from
development within the Pleasant Bay watershed. For any new project, or for an expansion of
an existing development, the applicant must demonstrate the overall nitrogen load is limited to
an average of 5 mg/L in groundwater underneath the site. Several changes to this bylaw were
approved by Town Meeting in November 2021 and the Board of Health recently approved
related nitrogen loading calculation regulations pending town counsel review. This 5 mg/L limit
applies to both residential properties and to commercial/industrial areas also located within the
Pleasant Bay watershed. The Town is considering changing the 5mg/L limit for commercial and
industrial properties to 3 mg/L. If this change is made, the overall nitrogen load from buildout
is reduced by 25-30% in this watershed.
New data from the Pleasant Bay Alliance’s ongoing buildout assessment will refine the actual
benefit of this change. Preliminary calculations suggest that most commercial/industrial uses
allowed in the watershed could comply with the 3 mg/L threshold. If not, a project may need to
install an innovative septic system technology to treat nitrogen in wastewater effluent to meet
this goal. Given any new development increases the overall nitrogen management load, it is
worthwhile to consider having some limitations on the extent of additional load that could be
allowed.
Other buildout options include limiting the extent of development allowed on town-owned
properties within the watershed and further limiting the allowable nitrogen load from
residential properties. Further discussion and public input are needed on these options. These
discussions will benefit from the ongoing collection of data from the golf course study discussed
above.
In summary, there are several viable options to fully comply with Brewster’s obligations under
the Pleasant Bay Watershed Permit. The proposed leaching rate study will document potential
additional nitrogen reductions at the golf course with minimal cost. This would further reduce
the costs for the remaining actions the town will have to take. The neighborhood wastewater
treatment options could be used to manage the remaining nitrogen or as a basis for a nitrogen
trade with another Pleasant Bay town. Each of these options can also be expanded, if needed,
to accommodate future development. The Town is required to provide annual updates to DEP
under the Watershed Permit and coordinates these updates with the other Pleasant Bay
Towns. The Cape Cod Commission also reviews ongoing work in the watershed as part of its
13
implementation of the Section 208 Area Wide Water Quality Management Plan. Its most
recent review is provided in Appendix A.
Fresh Water Ponds
As discussed above, if too much phosphorus enters a pond, it will accelerate the growth of
algae. When algae dies it decays, and as this happens the oxygen in the water column is
depleted. In extreme situations, this results in fish kills as there is not enough oxygen to keep
the fish alive. Phosphorus does not travel far in groundwater as it readily binds to the iron and
manganese in the subsurface soils and sediments. This means that, for phosphorus, the
primary concerns with septic systems are those located within 300 feet of a pond on the
upgradient side where groundwater is traveling towards the pond. Recent studies have shown
that nitrogen is also a concern in ponds, as the combination of nitrogen and phosphorus can
create conditions that support the growth of cyanobacteria, a toxic organism that can affect
people and wildlife.
Water Quality Data
The Town has conducted regular water quality monitoring of many of the larger ponds in
Brewster and used that information to support restoration projects in Long Pond, Walkers
Pond, and Upper Mill Pond. A summary of this water quality data was last published in 2009.
An update on the current water quality status based on the data collected since 2009 would be
useful and the Town is working to review ongoing monitoring data and develop a new status
report. The cost for this update report is estimated at $50,000. It should be noted that
bacteria testing of pond water quality is also conducted by the Board of Health monitoring
water quality at the public beaches at ponds in Town.
Board of Health Septic Regulations
The Board of Health currently has a regulation prohibiting septic system leaching facilities
within 300 feet of a pond. This serves to minimize phosphorus impacts from future
development. However, there are approximately 600 properties either fully or partially within
the 300-foot buffer to the ponds in Brewster. Applicants looking to update or expand their
septic system are regularly asking for a variance to this regulation as they cannot move their
leaching facility outside the 300-foot buffer.
HW prepared a draft revision to this Board of Health regulation in 2016. The draft requires
septic systems within 300 feet upgradient and 100 feet downgradient of a pond to install a
leaching facility or alternative technology that will provide phosphorus treatment. This
regulation was discussed at a public Board of Health Hearing in 2016. There were questions
related to the cost of the treatment systems and the performance of the technologies available
at that time for phosphorus treatment. Further evaluation of the draft regulation is needed to
advance the process to restore pond water quality. In part, it needs to consider the treatment
for nitrogen as well as phosphorus given concerns about cyanobacteria. Along with evaluating
14
the technologies available, it will be important to consider the cost of implementing a new
regulation and the process for funding it.
Innovative/Alternative Septic Pilot Program
In 2018, a charrette was held with members of the Board of Health, Town staff, local design
engineers and a representative from the MA Septic System Test Center to evaluate the
proposed phosphorus treatment technologies then available and associated costs. The
installation of pilot systems within 300 feet of one or more ponds in Brewster to test the
technology and document the costs was recommended at each session.
Newer technologies are now being tested to document their performance for treating both
nutrients and these could be incorporated into a pilot project in Brewster. A pilot project
testing 6 innovative septic systems would cost approximately $300,000.
Based on recent work conducted in the Shubael Pond neighborhood by the Barnstable Clean
Water Coalition (December 2021), the cost to design, permit and install an alternative
treatment system is approximately $20,000-$25,000. Note, this cost is lower than the estimate
for similar systems developed by the Pleasant Bay Alliance. This is in part due to the need for a
greater amount of monitoring of the systems under the Pleasant Bay Permit. The cost for each
site will vary based on the size of the property, the slope of the land and the operational status
of the existing septic tank and leaching facility (if they can be maintained). There may be more
affordable technologies, but this provides an initial estimate for implementing this regulation.
Large-Scale Innovative/Alternative Septic Upgrades
The overall cost if all 600 properties within the proposed setback to ponds were upgraded
would be approximately $12,000,000 to $15,000,000. There would also be annual operation,
maintenance and monitoring fees for these systems.
Further discussion on who should pay for some or all of these upgrades is needed. Not all
ponds in Brewster are accessible by the public, as the shoreline at some locations is all privately
owned. A question that has been raised is whether the town should provide funding for system
upgrades if there is no public access. The next steps for implementing actions for ponds
include:
• Updating information available on the technologies that can provide phosphorus and
nitrogen treatment, including their performance and cost.
• Revising the draft health regulation.
• Evaluating other sources of nutrient pollution to ponds and develop strategies to
minimize these threats.
As discussed below, the stormwater bylaw adopted in November 2021 will help with pond
water quality management. Additional outreach and public discussion will be needed to
achieve consensus on the best approach for pond management.
15
Neighborhood Sewer Systems
It should be noted that there was discussion about providing neighborhood sewer systems
around ponds in Brewster at the public meeting in 2016 and at the charrette in 2018. This
option seems to be significantly more costly than using individual onsite systems. It would not
be feasible to construct one system to sewer all the areas around Brewster’s ponds. There
would be a need to construct sewer lines around each pond as well as multiple treatment
facilities. In addition, a location for each neighborhood system would also have to be selected
and acquired by the owner of the facility, be it the Town or a neighborhood association.
Further analysis comparing neighborhood sewer systems to individual systems will need to be
part of future technical evaluation and public policy discussions.
Stormwater Management
Stormwater management has been a key part of the IWRMP process since the beginning.
During the development of Phase II of the IWRMP, a series of proposed stormwater
improvements were identified to limit the direct discharge of stormwater to surface waters in
Town. One location was the town-owned boat ramp for Long Pond on Crowells Bog Road.
Currently stormwater runs directly down the access road into the Pond. However, the Town is
redesigning the boat ramp, parking area, and incorporating updated stormwater practices to
prevent direct discharge of untreated runoff into Long Pond. Other stormwater improvements
at Breakwater Landing, Crosby Landing and Paine’s Creek have been completed and the
Walker’s Pond boat ramp upgrade is planned for this spring.
Brewster adopted a new stormwater management bylaw at its November 2021 Town Meeting.
This bylaw is required under the federal Municipal Separate Storm Sewer (MS4) regulation
under the federal Clean Water Act. The bylaw requires both minor and major projects to
design and build stormwater management systems to prevent the overland flow of water
directly to ponds and coastal waters. It also incorporates treatment requirements to protect
groundwater quality where stormwater is infiltrated into the ground. Over time it will help
improve water quality, especially in areas where stormwater is currently flowing directly to a
surface water.
Projects creating less than 500 square feet of impervious cover or disturbing less than 10,000
square feet of land are required to apply for a minor permit. As part of the application the
runoff volume from the project must be calculated and one or more stormwater management
practices, such as a rain garden or vegetated swale must be sized and installed. Larger projects
must apply for a major permit to be reviewed by either the Planning Board or the Conservation
Commission if the Conservation Commission has jurisdiction under the state Wetlands
Protection Act. These larger projects must document that the stormwater will be managed in
accordance with the state’s stormwater management regulations.
16
The Planning Board is now finalizing a set of implementation regulations for the bylaw. They
are also working with Town staff to develop application forms and instructions for both the
major and minor permits. These new requirements for stormwater will help improve water
quality through Brewster.
Herring River Watershed
As mentioned above, the Town’s obligations for nitrogen management in the Herring River
watershed involve limiting the nitrogen load from future development. The strategies
considered for future development in the Pleasant Bay watershed could be applied for the
Herring River watershed as well. Further work is needed to quantify the extent of buildout
possible in this watershed given recent open space acquisitions by the Town to refine the
management strategies for Herring River.
Summary of Potential Costs & Funding Sources
Based on the information provided above, the overall cost for implementing the primary
components of the IWRMP as of 2022 is approximately $22,970,000 - $31,070,000. Table 2
shows a breakdown of costs for the Pleasant Bay watershed and freshwater pond management
which are the two issues with significant management costs. For Pleasant Bay, the overall cost
includes the neighborhood wastewater treatment plant option as this is less expense than using
individual septic treatment systems.
In most towns, the implementation of wastewater management strategies includes funding
from the property owner and the town. How the funding is managed in Brewster still needs to
be evaluated. The extent of town funding is often based on the benefits received by all
residents in the town. For example, the restoration of water quality in a pond or coastal
estuary can benefit all resident who have access to the water.
Table 2 also provides information on the potential for the Town to obtain a State Revolving
Fund (SRF) loan to finance the costs or to get funding from the recently created Cape Cod and
Islands Water Protection Fund (CCIWPF). Funding for CCIWPF is through taxes on hotels and
short-term rental facilities. To receive an SRF Loan, the Town must apply through the MA Clean
Water Trust. If the Trust approves a project, it is then eligible for funding from the CCIWPF.
The CCIWPF funds are used to repay a portion of the SRF loan.
For a project to be eligible for SRF funding, the Trust requires DEP approval of a comprehensive
wastewater management plan, IWRMP, targeted watershed plan or project specific plan. Cape
Cod Commission Clean Water Act Section 208 approval is also required for a project to be
eligible for SRF funding. Proposed project(s) must be submitted to the Clean Water Trust for
inclusion on the annual Intended Use Plan. If a project is included on the plan, it is then eligible
for SRF funding. Funding is provided as a 20-year loan with a maximum interest rate of 2%.
Some projects can qualify for a lower interest rate as well. Projects demonstrating their
Table 2: Summary of IWRMP Costs and Funding Options Pleasant Bay Watershed Project Golf Course Fertilizer Adjustment and Fairway Size Refinements Cost: $20,000 SRF Funding Eligibility No CCIWPF Eligibility No Construction of Captains Golf Course I/A Treatment System. Cost: $200,000 SRF Funding Eligibility Possible CCIWPF Eligibility Possible at 50% of SRF cost WWTP Planning. Cost: $200,000 ‐ $225,000 SRF Funding Eligibility Possible CCIWPF Eligibility Possible – At about 50% WWTP Design and Permitting. Cost: $200,000 ‐ $225,000 SRF Funding Eligibility No CCIWPF Eligibility No Construction of a Neighborhood WWTP*. Cost: $10,000,000 ‐ $15,000,000 SRF Funding Eligibility Possible CCIWPF Eligibility Possible –at 25% Fresh Water Ponds Project Development of an Updated Report on Pond Water Quality Cost: $50,000 SRF Funding Eligibility Possible CCIWPF Eligibility Possible – At about 50% Development of a Pilot Program for Septic Upgrades Near Freshwater Ponds. Cost: $300,000 ‐ $350,000 SRF Funding Eligibility Possible CCIWPF Eligibility Possible – At about 50% Installation of I/A Septic Systems Adjacent to Fresh Water Ponds. Cost: $12,000,000 ‐ $15,000,000 SRF Funding Eligibility Unlikely CCIWPF Eligibility Unlikely Total Cost: $22,970,000 ‐ $31,070,000 Total SRF Funding Eligibility $10,750,000 ‐ $15,825,000 Total CCIWPF Eligibility $2,875,000 ‐ $4,162,500 * Note: The WWTP cost is for the larger system serving approximately 150 homes. The costs for onsite septic treatment systems for Pleasant Bay are not included here as the neighborhood WWTP is currently the more cost effective option.
17
implementation will not result in any growth in development can qualify for a 0% interest rate.
In 2021, 75% of the projects that requested SRF support were awarded a loan by the Clean
Water Trust.
The CCIWPF provides separate funds, as grants to the Towns that participate in the program.
The funds are provided only for projects approved for an SRF loan. Each year the grants are
provided based on the funds available and the number of projects eligible for funding. This
data is used to select a subsidy percentage for each project. For the first round of funding
through the CCIWPF, awards for projects on the Intended Use Plan were provided at a rate of
25% of the project cost. Small projects, below $1,000,000, are eligible for twice the percentage
awarded to other projects. Awards for all projects are paid out in equal installments over four
years after they are awarded.
Per correspondence with DEP officials in Summer 2021, based on the information provided in
Table 2, Brewster could potentially receive SRF funding on one or more 20-year loans, for the
planning projects, the installation of the septic treatment system at Captains Golf Course, and
the construction of the neighborhood wastewater facility. A total of $10,750,000 - $15,825,000
could be funded. If awarded SRF funding, there would then be funds available from the CCIWPF
to support the repayment of the SRF loans. Assuming a 25% payment of the cost of each
project (and 50% for projects under $1,000,000 in cost) a total of $2,875,000 - $4,162,500 could
be financed through the CCIWPF.
Conclusions – Summary of Next Steps
Reducing the nitrogen load to Pleasant Bay and developing a plan to restore pond water quality
are the two main water resource issues for Brewster. For Pleasant Bay, the extent of nitrogen
reduction that can be achieved at Captains Golf Course will determine the extent of wastewater
management needed in the watershed, either through a neighborhood wastewater treatment
plant, the use of nitrogen treatment technologies for onsite septic systems or a nitrogen trade
with another town in the watershed. For freshwater ponds, the Town is planning to develop
updated information on their water quality status. With that information, the primary goal is to
develop a program to upgrade septic systems along the pond shores to minimize impacts from
nitrogen and phosphorus.
Following additional data collection and technical analysis, decisions on these topics will need
to be made in the next 1-3 years and ongoing outreach is planned to obtain input from town
residents to help inform these critical policy decisions.
18
REFERENCES
Barnstable Clean Water Coalition. December 2021. Coalition Quarterly – Fall 2021 Newsletter.
https://bcleanwater.org/living-lab-cape-cod-blog/coalition-quarterly-issue-17-fall-2021/.
Cape Cod Commission, 2017. Watershed Report – Quivett Creek, Brewster and Dennis.
https://www.capecodcommission.org/resource-
library/file/?url=/dept/commission/team/Website_Resources/208/watershedreports/2017_Wa
tershed_Report_MC_Quivett_Creek.pdf .
Horsley Witten Group, Inc. July 2020. Pleasant Bay Alliance Task 1A: On-Site Denitrification
Systems Summary Report. Prepared with grant funding from the EPA Southeast New England
Program.
Horsley Witten Group, Inc. April 16, 2018. Memorandum - Updated Buildout Analysis for the
Pleasant Bay Watershed.
Horsley Witten Group, Inc. January 2013. Integrated Water Resource Management Plan - Phase
II Report
Horsley Witten Group, Inc. March 2015. Pleasant Bay Nitrogen Management Alternatives
Analysis Report.
Massachusetts Department of Environmental Protection. August 2018. Pleasant Bay Watershed
Permit 001-0.
Pleasant Bay Alliance. March 2018. Pleasant Bay Targeted Watershed Management Plan.
Town of Brewster Water Department, June 2021. 2020 Water Quality Report (CCR).
(https://www.brewster-ma.gov/departments-mainmenu-26/water-department-mainmenu-39)
University of Massachusetts Dartmouth School of Marine Science and Technology. May 2006.
Linked Watershed-Embayment Model to Determine Critical Nitrogen Loading Thresholds for
the Pleasant Bay System, Orleans, Chatham and Harwich, Massachusetts.
University of Massachusetts Dartmouth School of Marine Science and Technology. December
2008. Linked Watershed-Embayment Model to Determine Critical Nitrogen Loading Thresholds
for the Namskaket Marsh Estuarine System, Orleans, Massachusetts.
University of Massachusetts Dartmouth School of Marine Science and Technology. April 2011.
Linked Watershed-Embayment Model to Determine Critical Nitrogen Loading Thresholds for
the Bass River Embayment System, Towns of Yarmouth and Dennis, Massachusetts.
19
University of Massachusetts Dartmouth School of Marine Science and Technology. March 2013.
Linked Watershed-Embayment Model to Determine Critical Nitrogen Loading Thresholds for
the Herring River System, Harwich, Massachusetts.
University of Massachusetts Dartmouth School of Marine Science and Technology. June 2021.
Linked Watershed-Embayment Model to Determine Critical Nitrogen Loading Thresholds for
the Pleasant Bay System, Orleans, Chatham and Harwich, Massachusetts 2020 Update Final
Report.
Appendix A - 208 Compliance Reports 2021
The Cumulative Town Snapshot section summarizes
the funding snapshot categories since 2015
Complete or
Approved Partial Not Shared or
Not Approved Not AvailableSYMBOL
LEGEND
OTHER
LEGEND
The Cumulative Town Snapshot section summarizes
the funding snapshot categories since 2015
Progress shown is for the period from
November 2020 through November 2021
208 COMPLIANCE REPORT | 2021
Brewster
Town Team:
• Comprehensive
Water Planning
Committee
(dissolved 2015)
• Water Quality
Review Committee
• Town Planner
• Health Agent
• Natural Resources
Director
• Horsley Witten
Group
Collaborations:
• Pleasant Bay
Alliance
• Town of Chatham
• Town of Harwich
• Town of Orleans
• MassDEP
• Cape Cod
Commission
• SNEP Network
Town of Brewster
Town(s) with Joint Agreement
or Plan in Place
Priority Watershed
Watershed
28,910 kg N22,690 kg N
48,210 kg N40,201 kg N
Town of ALL PROPERTIES
SERVED BY
CENTRALIZED
SYSTEMS
-
Plans and permits in the priority watersheds as identified
by the 208 Plan Implementation Report in 2017.
*Bass River
watershed,
<1% nitrogen
allocation for
Brewster
**Swan
Pond River
watershed,
<1% nitrogen
allocation for
Brewster
*
**
PRIORITY WATERSHED PROGRESSTEAM
Team members engaged in water quality
planning efforts.
MS4 COMPLIANCE
12 Cape Cod towns are required to address
stormwater discharge under the MS4 Permit.
Towns with nitrogen impaired waters must meet
additional permit requirements.
TMDLTMDL
NON-
TRADITIONAL
PROJECTS
UNDERWAY
TOTAL FLOW
COLLECTED BY
CENTRALIZED
SYSTEMS
TOWN MEETING
APPROVED
FUNDING
CUMULATIVE TOWN SNAPSHOT SINCE 208 PLAN APPROVAL
GRANT
FUNDING
RECEIVED
3 -$612K $482K*
Subject to MS4 Permit
No Additional nitrogen related
requirements
In compliance with MS4 Permit
requirements
Plan In Place
Agreement In Place
Consistency Determination
Permits Issued
Plan In Place
Pleasant Bay Watershed Plan (2018)
Agreement In Place
Pleasant Bay IMA
Consistency Determination
208 Consistency Determination (2018)
Permits Issued
Watershed Permit (2018)
Pleasant BayHerring River (Harwich)
Current Attenuated
Watershed Load
Current Attenuated
Watershed Load
Complete or
Approved Partial Not Shared or
Not Approved Not AvailableSYMBOL
LEGEND
OTHER
LEGEND
Text color indicates that data made
available is 5 years or older
2016 201720192019Brewster
208 COMPLIANCE REPORT | 2021
WATER
USE
EMBAYMENT
MONITORING
PARCEL
DATA
ASSESSOR
DATA
TOWN
REGIONAL
DATA SHARING
STATUSTown of
IMPLEMENTATION
Actions taken relative to plan and project implementation and regulatory and town meeting actions.
FUNDING
Cape Cod and Islands Water Protection Fund Member Community
Actions taken during the reporting period to secure funding for water quality
improvement plans and projects.
Progress shown is for the period from
November 2020 through November 2021
TOWN IMPLEMENTATION ACTIONS LOCAL REGULATORY ACTIONS
Fertilizer By-Law in Place
Zoning Changes
• None in reporting period
Adoption of Regulations
• None in reporting period
Town Funding Actions
• 2021 Professional services for MS4 stormwater permitting and compliance
($80,000 Approved)
• 2021 Walkers Pond Water Quality Evaluation ($40,000 Approved)
• 2021 Pleasant Bay Fertilizer Impact Assessment at Captains Golf Course
($140,000 Approved)
• 2021 Integrated Water Resources Planning and Implementation ($75,000
Approved)
Grant Funding
• None in reporting period
Implementation Actions reflect unfunded municipal actions
such as, inter-municipal agreements, procedural approvals, and
committee actions.
• None in reporting period
* From Town Snapshot: grant funds reflect a decrease of $20k from the 2020 report, as a
grant was previously duplicated.
PROJECT STATUS Project Stage
Captains Golf Course Fertilizer Reduction
Captains Golf Course Fertigation
On-site Denitrification Systems
PRestoration
Project
Remediation
Project
Reduction
Project
Pilot
project
FEASIBILITY
IMPLEMENTATION
IMPLEMENTATION
Horsley Witten Group, Inc.
Integrated Water Resource
Management Planning
2022 Update
Horsley Witten Group, Inc.
All Water Resources are
Interconnected
Therefore:
Horsley Witten Group, Inc.
An Integrated Plan!
Horsley Witten Group, Inc.
The Big Picture…
Protecting the Town’s Waters
Protecting Public and Private Drinking
Water Supplies
Managing Nitrogen Loads to Coastal
Embayments
Protecting and Restoring Fresh Water
Ponds
Improving Stormwater Management
Horsley Witten Group, Inc.
Brewster’s Conservation Lands
and Zone II Areas
Horsley Witten Group, Inc.
Coastal Watersheds
Horsley Witten Group, Inc.
Status of Brewster’s Ponds - 2009
Horsley Witten Group, Inc.
Water Quality Issues - Nitrogen
Impacts Drinking Water, Coastal Waters and Fresh
Water Ponds
SOURCES – Septic Systems, Fertilizers, Road Runoff
Horsley Witten Group, Inc.
Water Quality Issues - Nitrogen
Septic System Discharge 35 mg/L
Drinking Water Standard 10 mg/L
State DW Planning Standard 5 mg/L
Brewster Drinking Water < 1 mg/L
Coastal Estuary Threshold ~0.3 mg/L
Horsley Witten Group, Inc.
Phosphorus and Ponds
Horsley Witten Group, Inc.
Water Quality Issues –
Emerging Contaminants
Per and Polyfluoroalkyl Substances (PFAS)
Found in Fire Fighting Foams, Cleaning Products
Teflon Pans, Food Wrappers, Skin Care Products and
Waterproof Clothing
State Drinking Water Standard of 20 Parts Per
Trillion
Currently Not Detected in Brewster’s Public Wells
Horsley Witten Group, Inc.
Integrated Water Planning
Timeline
2009 Comprehensive Water Planning Committee
Formed
Integrated Water Resources Management Plan
Phase I - 2011
Phase II - 2012
Pleasant Bay Nitrogen Management Alternatives
Assessment -2015
Horsley Witten Group, Inc.
Timeline - Continued
Implementation Phase
Water Resource Atlas – Fresh Water Ponds – 2016
Pleasant Bay Watershed Permit – 2018
Pleasant Bay Targeted Watershed Management
Plan - 2018
Golf Course Fertilization/Leaching Rate Study –
Ongoing
Horsley Witten Group, Inc.
Timeline - Continued
Implementation Phase
Walkers Pond Weed Harvesting Program
Upper Mill Pond Alum Treatment
Elbow Pond Weed Harvesting Program
Ongoing Water Quality Assessments
Horsley Witten Group, Inc.
Key Issues in 2022
Pleasant Bay Nitrogen Management to Comply with
Watershed Permit
Development and Implementation of Strategies to
Protect and Restore Fresh Water Ponds
Horsley Witten Group, Inc.
Horsley Witten Group, Inc.
Pleasant Bay Watershed Permit
Brewster makes up 25% of the Pleasant
Bay Watershed and is accountable for
13% of the N load.
Horsley Witten Group, Inc.
Open Space Purchases Protect Brewster’s
Waters
Horsley Witten Group, Inc.
Pleasant Bay Watershed Permit
Permit Signed in August 2018.
Requires Brewster to remove of 2,262 kg of nitrogen per year and address future development.
The town has already removed 56% of this load through changes in fertilizer practices at Captains Golf Course.
Horsley Witten Group, Inc.
Nitrogen Reductions Achieved To Date
Nitrogen Reduction Required:2,262 kg-N/year
Approved Reductions in Watershed Permit:
Golf Fertilizer Reduction (pre-2015) 930 kg-N/year
Golf Irrigation Recapture 230 kg-N/year
Town-wide Fertilizer Bylaw 121 kg-N/year
Total Nitrogen Removed 1,281 kg-N/year
Remaining Reduction Needed 981 kg/N/year
Horsley Witten Group, Inc.
Nitrogen
Reductions
by
Watershed
Horsley Witten Group, Inc.
Nitrogen Impacts in Tar Kiln Subwatershed
Currently Being Reevaluated
Tar Kiln Watershed
Horsley Witten Group, Inc.
Nitrogen Management Alternatives
to Meet Permit Goals
Additional Captains Golf Course
Fertilizer Management
Neighborhood WWTP
I/A Septic Treatment Systems
Nitrogen Trading
Horsley Witten Group, Inc.
Further Nitrogen Reduction Opportunities at
Captain’s Golf Course
Reduce fertilizer applications on the fairways and
roughs, incorporating sprayed applications of liquid
fertilizers (underway).
Potentially reduce the size of fairways by
approximately 2.5 acres (course-wide) –subject to
further discussion.
Septic System Upgrade to Treat for Nitrogen (Cost
approx. $150,000 -$170,000)
Horsley Witten Group, Inc.
Example of how a fairway could be shortened to
reduce fertilizer applications
Horsley Witten Group, Inc.
Further Nitrogen Reduction Opportunities at
Captain’s Golf Course
Fertilizer Reductions -364 kg-N/year
Fairway Changes -49 kg-N/year
Septic Upgrade -45 kg-N/year
Total New Reduction 458 kg-N/year
Final Reduction Needed 523 kg/N/year
Horsley Witten Group, Inc.
Golf Course Fertilizer Leaching Rate
Evaluation
•Changes in fertilizer practices may mean that less
nitrogen is leaching into groundwater.
•The permit assumes that 20% does leach.
•Documenting a lower leaching rate would further
reduce Brewster’s obligations under the permit.
•Study underway to document how much nitrogen
enters groundwater from fertilizer applications.
Horsley Witten Group, Inc.
Golf Course Fertilizer Leaching Rate
Evaluation
Six fairway sites being
tested using subsurface
lysimeters and
groundwater monitoring
wells
Horsley Witten Group, Inc.
Golf Course Fertilizer Leaching Rate
Evaluation
Horsley Witten Group, Inc.
Golf Course Fertilizer Leaching Rate
Evaluation
•Results of this study – completed in 2023 - will
determine what additional nitrogen load must be
managed using other techniques
Horsley Witten Group, Inc.
Neighborhood Wastewater Treatment
and Collection System
Disposal in the watershed Disposal outside the
watershed
Number of Homes = 152 Number of Homes = 110
Nitrogen reduction ~ 523 kg/yr Nitrogen reduction ~ 523 kg/yr
20-year cost = $10,000,000 -
$15,000,000
20-year cost = $9,000,000
•A traditional wastewater system could be installed in
the upper portion of the watershed to treat effluent
prior to its discharge to groundwater.
•Can offset future development
Horsley Witten Group, Inc.
Horsley Witten Group, Inc.
Option 3: Onsite Septic System Treatment Upgrades
Septic systems serving individual properties could be
upgraded to provide additional nitrogen treatment.
On-site septic system treatment upgrades have until
recently been recently been the preferred alternative.
Through the PB Watershed Permit and supporting SNEP
Grant, this approach appears to be less cost effective for
this watershed at this scale.
Number of Homes = 320
Nitrogen reduction = 523 kg/yr
20-year cost = $26,000,000
Horsley Witten Group, Inc.
Nitrogen Trading
•The permit allows the town to negotiate a
“nitrogen trade” with another Pleasant Bay town.
•Eliminates the long-term management of a
facility in Brewster.
•Size and cost of the trade could be adjusted to
accommodate future nitrogen impacts from
buildout.
Horsley Witten Group, Inc.
Summary
75% of Brewster’s obligations can be achieved at
Captains Golf Course with Minimal Cost.
A successful study of leaching rates will further reduce
the town’s obligation.
Options to manage the rest includes:
Neighborhood WWTP
Onsite Septic Upgrades
Nitrogen Trade
Horsley Witten Group, Inc.
Ongoing Pond Restoration Activities
Walkers Pond – Weed harvesting to remove plants
and associated phosphorus. Water quality
continues to deteriorate and further study by
SMAST is underway
Upper Mill Pond – Alum Treatment to minimize
phosphorus input from pond sediments
Elbow Pond weed harvesting
Horsley Witten Group, Inc.
Ongoing Water Quality Testing
Annual testing of 28 ponds across Brewster
Last update report on testing published in 2009
New update would be useful
Estimated cost - $50,000
Horsley Witten Group, Inc.
Septic Management Near Ponds
Horsley Witten Group, Inc.
Septic Management Near Ponds
Horsley Witten Group, Inc.
Current Regulation Proposed Regulation
Pond Nutrient Management Areas
Nutrient Management Area for Ponds
Horsley Witten Group, Inc.
Water Resource Atlas - Fresh Water
Ponds
Horsley Witten Group, Inc.
Draft Health Reg for Ponds
Reset septic buffer
300 feet upgradient
100 feet downgradient
Require phosphorus treatment units or
shallow leach fields to capture phosphorus
in iron rich soils
Require nitrogen treatment as well
Horsley Witten Group, Inc.
How Many Properties Affected?
Estimate up to 600 Homes Would Require
an Upgrade
Total Cost at $20,000-$25,000 per Property =
$12,000,000 to $15,000,000
Horsley Witten Group, Inc.
Pilot Project Proposed
Installing and Testing I/A Septic Systems for
Phosphorus and Nitrogen Treatment Would
Answer Many Implementation and
Performance Questions.
Estimate Pilot Cost - $300,000
Horsley Witten Group, Inc.
Financing – Who Pays?
Town’s Contribution?
Property Owner’s Contribution?
Horsley Witten Group, Inc.
Potential Financing Options
State Revolving Fund (SRF) Loans at Low or 0%
Interest for Eligible Projects
Barnstable County Septic System Loan Program
Cape and Islands Water Protection Fund
Local Funding Alternative
Horsley Witten Group, Inc.
Cost Summary – Pleasant Bay
Golf Course Design Refinements $20,000
Captains I/A Septic System $200,000
WWTP
Planning $200,000 - $225,000
Design and Permitting $200,000 - $225,000
Construction 10,000,000 - $15,000,000
A lower fertilizer leaching rate at Captains Golf Course
will reduce these costs.
Horsley Witten Group, Inc.
Cost Summary – Fresh Water
Ponds
Pond WQ Update Report $50,000
Pilot Septic Program $300,000 - $350,000
I/A Systems $12,000,000 - $15,000,000
Horsley Witten Group, Inc.
Cost Summary – Total
Total Cost:$22,970,000 - $31,070,000
Total SRF Funding $10,750,000 - $15,825,000
Total CCIWPF $2,875,000 - $4,162,500
Local Funding up to $1,000,000/year
Horsley Witten Group, Inc.
Questions?
Brewster Select Board
May 24, 2021
•Established by MA legislature in 2018 to help 15 Cape &
Island towns pay for wastewater infrastructure and water
quality remediation projects (Chapter 337 of the Acts of
2018) to meet the obligations of the 208 Plan
•Affiliated with existing state programs – Clean Water State
Revolving Fund and Clean Water Trust
•Funded through 2.75% additional surcharge added to all
lodging transactions (traditional and short-term rentals)
effective July 1, 2019
•Comprised of member representatives from each town –
must be TA/M, Town staff, or Select Board
•Cape Cod Commission provides support and technical
assistance
•Responsible for determining the subsidy allocation, including
equitable distribution among participating towns for projects
and debt relief
•Developed and adopted regulations and bylaws in Fall 2020
•Project must be eligible for SRF funding to receive a subsidy
from the CCIWPF
•CCIWPF regulations specifically identify eligibility:
•Innovative strategies and alternative septic systems
•Drainage improvements
•Projects to improve water quality in fresh water ponds
•Brewster has never participated in SRF loan program
•CCC is committed to assisting communities with SRF
•25% subsidy for new eligible projects in equal installments
over 4 years for Clean Water Trust loans
•25% subsidy for pre-existing projects in equal installments
over 10 years for already issued debt
•Expense assumptions:
•$65.9M in prior eligible debt – commitments made in April 2021
•Existing CWT loans ($30M in FY18; $65M in FY19; $24M in FY20;
$86M in FY21) – commitments made in April 2021
•$60M/year in new loans in FY22+
•2% project cost annual escalator
•Revenue assumptions:
•$9.1M actual FY20 revenues
•$15M estimated FY21 revenues
•$17.4M projected FY22 revenues (+16% from FY21 estimates)
•$19.1M projected FY23 revenues (+10% from FY22 projections)
•2.5% projected revenue increases in FY24+
•.5% investment earnings
•Brewster contributions to date: $1.4M
•Likely annual contribution of ~$1M based on recent lodging tax data
•Water Resource Planning - $75k/year (Free Cash @ Spring 2021 Town Meeting)
•Captain’s Golf Course Fertilizer Impact Assessment (Nitrogen Leaching Rate Study) - $140k (Free Cash @ Spring 2021 Town Meeting)
•Captain’s Golf Course Septic System Upgrade - $170k
•Neighborhood Wastewater Facility (or Nitrogen Trade) - ~$6M
•Road & Drainage Improvements - $200+k/year
•Alternative/Innovative Septic Systems (Phosphorus Mitigation) - $6-10M
•2.75% rooms tax on all lodging via CCIWPF, subject to disbursement of Management Board consistent with regulations & bylaws – current practice
•Free Cash appropriations – current practice
•2.75% rooms tax on all lodging via special act where Town would retain full control over revenues & expenditures – Town Meeting & State Legislature approval required
•Up to 3% community impact fee on short-term rentals (only) via local option – Town Meeting approval required (35% of revenues collected must be spent on affordable housing or infrastructure)
•Up to 3% Water Infrastructure Investment Fund (WIIF) tax on local property taxes – Town Meeting approval required
•Work with Town staff/consultants to finalize list of upcoming
Brewster water resource projects and associated costs
•Determine SRF eligibility of Brewster projects with Cape Cod
Commission
•Decide on preferred approach to funding future Brewster
water resource projects
Archive d: Thursday, January 27, 2022 1:45:29 PM
From: Erin Perry
Se nt: Fri, 7 Jan 2022 20:50:52 +0000ARC
To: Erin Perry
Cc: Kristy Senatori
Subje ct: CCIWPF Management Board Mtg - 1/11/2022
Se nsitivity: Normal
Attachme nts :
20220111 Agenda CCIWPF.pdf; 2020 IUP Projects - PRA Project Costs.pdf; 2021-04-14 Draft CCIWPF Board Minutes.pdf; 2021-12-14 Draft Minutes CCIWPF Executive Committee.pdf; 20211130 Draft Minutes CCIWPF Bylaws&RegsComm.pdf; Cape Cod and Islands
Water Protection Fund Regulations_amended_draftrevDec2021.pdf; CCIWPF Annual Report for 2021.pdf; Verified Pre-Existing Debt.pdf;
Good afternoon,
We look forward to seeing you all at the next CCIWPF Management Board meeting. The meeting will take place at 4pm on Tuesday 1/11/22 via zoom. I am attaching the agenda and meeting materials to this e-mail. I will also attach these documents to the calendar invitation previously sent to the
Board. To join the meeting, please use the following Zoom link and details:
Zoom link: https://capecodcommission.org/cciwpf/join; password: join
Call in details: 1-929-205-6099; meeting ID 962 3150 0800
Please also see the latest CCIW PF distributions, below. The most recent distribution covers the period from September 2021 through November 2021 and totals $8,845,378.63. As a reminder, you will also see the Year 1 subsidies that have been set aside per the Management Board’s approval of
subsidy awards in April 2021.
Please feel free to reach out with any questions.
Sincerely,
Erin
Erin PerryDeputy DirectorCape Cod Commission508-744-1236eperry@capecodcommission.org
2021 ANNUAL REPORT
CAPE COD AND ISLANDS
WATER PROTECTION FUND
PREPARED FOR:
Chairs of the Joint Committee on Environment,
Natural Resources and Agriculture
Senate:
Rebecca L. Rausch, Chair
James B. Eldridge, Vice Chair
24 Beacon Street, Room 218
Boston, MA 02133
House:
Carolyn C. Dykema, Chair
Mindy Domb, Vice Chair
24 Beacon Street, Room 473F
Boston, MA 02133
Cape Cod and Islands Legislative Delegation
Senator Julian Cyr
24 Beacon Street, Room 312-E
Boston, MA 02133
Senator Susan L. Moran
24 Beacon Street, Room 506
Boston, MA 02133
Representative David T. Vieira
24 Beacon Street, Room 167
Boston, MA 02133
Representative Kip A. Diggs
24 Beacon Street
Boston, MA 02133
Representative Sarah K. Peake
24 Beacon Street, Room 7
Boston, MA 02133
Representative Timothy R. Whelan
24 Beacon Street, Room 542
Boston, MA 02133
Representative Dylan A. Fernandes
24 Beacon Street, Room 472
Boston, MA 02133
Representative Steven G. Xiarhos
24 Beacon Street
Boston, MA 02133
PREPARED BY:
Cape Cod Commission, on behalf of the
Cape Cod and Islands Water Protection Fund
Management Board
3225 Main Street
P.O. Box 226
Barnstable, MA 02630
January 2021
CAPE COD AND ISLANDS WATER PROTECTION FUND 2021 ANNUAL REPORT
3
The Cape Cod and Islands Water Protection Fund (CCIWPF) was established by the Massachusetts
Legislature in 2018 (M.G.L. Chapter 29C, Section 19) to help Cape Cod and Islands towns pay for
necessary wastewater infrastructure and water quality remediation projects. Creation of the CCIWPF
was the result of efforts by a diverse set of stakeholders, including the Cape Cod and Islands
Legislative Delegation, local officials, environmental groups, business leaders, and the Cape Cod
Chamber of Commerce, who recognized the need for new financial tools to address the region’s
degrading water quality and lack of wastewater infrastructure.
The CCIWPF is a dedicated fund within the Massachusetts Clean Water Trust set up to solely benefit
communities within the counties of Barnstable, Dukes, and Nantucket. Its source of revenue is a
2.75% excise tax on traditional lodging and short-term rentals. The fund is administered by the
Clean Water Trust and overseen by a management board comprised of representatives from every
member town from the region. Currently, the 15 Cape Cod communities are members of the
CCIWPF.
The Cape Cod and Islands Water Protection Fund Management Board (Board) was established by
M.G.L. Chapter 29C, Section 20. The Board is responsible for determining the method for allocating
subsidies from the fund, including, but not limited to, an equitable distribution among participating
municipalities consistent with revenue deposited from each municipality into the fund. The Board Is
also responsible for ensuring that the Water Protection Fund is spent only for the purposes set forth
in M.G.L. Chapter 29C, Section 19.
This report has been prepared pursuant to M.G.L. Chapter 29C, Section 20, Cape Cod and Islands
Water Protection Fund Management Board.
CAPE COD AND ISLANDS WATER PROTECTION FUND 2021 ANNUAL REPORT
4
CCIWPF Revenue
As received from the Department of Revenue through the Clean Water Trust, fund revenue to date
(July 2019 through November 2021) totals $39,337,123.18. Income generated by the fund for this
period totals $95,312.05.
Subsidies for projects listed on Intended Use Plans for the Clean Water State Revolving Fund dating
back to the creation of the CCIWPF (2018) will be paid over 4 years, while subsidies for eligible pre-
existing debt incurred for clean water projects that pre-date the CCIWPF will be paid over 10 years.
Subsidy awards made to date are described below. The Year 1 transfer from the Clean Water Trust
totals $13,708,673, as detailed in the Expenses and Project Summaries section below. The balance of
the fund at the end of the calendar year 2021 is $25,723,762.23.
CCIWPF Amounts
Revenue to Date $39,337,123.18
Fund Income to Date $95,312.05
Year 1 (2021) Transfer $13,708,673.00
Balance $25,723,762.23
Expenses and Project Summaries
On April 14, 2021 the Board voted to award the first set of subsidies to qualified and eligible water
quality projects in several Cape Cod towns. Per the regulations established by the Board in 2020,
projects in excess of $1 million received subsidies equal to 25% of the project costs. Projects of $1
million or less received 50% subsidies.
Projects eligible for funding include, but are not limited to, innovative strategies and alternative
septic system technologies, water quality and wastewater management planning, the construction
of sewer collection systems and wastewater treatment plants, and the implementation of drainage
improvements and water treatment programs to improve water quality in freshwater ponds and
marine resources. Member communities must go through the Clean Water State Revolving Fund
program, or SRF, and be listed on the Clean Water SRF Intended Use Plan (IUP) to receive funds.
Contingent commitments are made upon release of the annual IUP. Final commitments are made
following execution of a Project Regulatory Agreement (PRA).
CAPE COD AND ISLANDS WATER PROTECTION FUND 2021 ANNUAL REPORT
5
Final Commitments for 2018 and 2019 Intended Use Plans Projects
Town IUP Year Description Project Cost Total Subsidy
Chatham 2018 Phase 1D – Chatham/Harwich
Regionalization $8,174,858 $2,043,715
Chatham 2019 Sewer Extension $1,324,983 $331,246
Harwich 2018 Harwich Sewer Collection System –
Phase 2 $22,214,467 $5,553,617
Bourne 2019 Buzzards Bay Wastewater Treatment
Facility $4,660,410 $1,165,103
Orleans 2019 Downtown Area Collection System and
Wastewater Treatment Facility $59,409,200 $14,852,300
Totals $95,783,918 $23,945,981
Contingent Commitments for 2020 and 2021 Intended Use Plans Projects
Town IUP Year Description Project Cost Total Subsidy
Barnstable 2020 Wastewater Pump Station
Improvements Project $1,000,000 $500,000
Barnstable 2020 Strawberry Hill Road Sewer
Expansion $13,275,023 $3,318,756
Barnstable 2020 Route 28 and Yarmouth Road
Intersection Sewer $1,853,762 $463,441
Barnstable 2020 Solids Handling Upgrade Project $8,495,050 $2,123,763
Chatham 2021 Chatham Queen Anne Pumping
Station Upgrade 2021 PE $2,464,000 $616,000
Chatham 2021 Chatham Stormwater Improvement
Projects - 2021 $6,161,000 $1,540,250
Barnstable 2021 Route 28 East Sewer Expansion
Project $17,106,000 $4,276,500
Barnstable 2021 Wastewater Pump Station
Improvements Project $2,000,000 $500,000
Mashpee 2021 Mashpee WRRF and Collection
System - Phase I $51,200,000 $12,800,000
Falmouth 2021 Falmouth Wastewater Treatment
Facility TASA Improvements $19,000,000 $4,750,000
Totals $122,554,835 $30,888,710
CAPE COD AND ISLANDS WATER PROTECTION FUND 2021 ANNUAL REPORT
6
Pre-Existing Debt
Consistent with the provision in M.G.L. Chapter 29C, Section 19, certain Cape Cod and Islands
communities are eligible for subsidies for debt incurred for water pollution abatement projects
apart from the Clean Water Trust prior to the establishment of the CCIWPF. On April 14, 2021, the
Board voted to award subsidies for pre-existing debt to the towns of Barnstable, Chatham,
Falmouth, and Provincetown, subject to verification of eligibility. In April 2021, estimated pre-existing
debt totaled approximately $65.9 million, 25% of which would be subsidized through the fund, per
the unanimous vote of the Board.
Town Estimated Pre-Existing Debt
(April 2021)
Estimated Total
Subsidy
Provincetown $19,198,453 $4,799,613
Barnstable $3,958,400 $989,600
Chatham $34,619,778 $8,654,945
Falmouth $8,113,640 $2,028,410
Totals $65,890,271 $16,472,568
Upon verification, the final pre-existing debt and subsidy amounts are presented below.
Town Eligible Pre-Existing Debt Total Subsidy
Provincetown $11,729,661 $2,932,415
Barnstable $4,842,300 $1,210,575
Chatham $21,391,410 $5,347,853
Falmouth $7,675,200 $1,918,800
Totals $45,638,571 $11,409,643
Administrative Expenses
The Cape Cod Commission is charged with providing administrative and technical support to the
Board. On behalf of the Management Board, the Commission contracts with consultants to provide
additional financial and legal support, as necessary and requested by the Board. Costs associated
with this support from January 2019 through November 2021 total $112,057.30, as detailed below.
At their December 14, 2021, the Board’s Executive Committee voted to recommend the Board
reimburse the Commission for these expenses. It is anticipated the Board will vote on this matter in
early 2022.
CAPE COD AND ISLANDS WATER PROTECTION FUND 2021 ANNUAL REPORT
7
Expenditures Amount
Cape Cod Commission Personnel
Salaries, including fringe benefits and indirect costs $38,352.30
Contractual Services
Pierce Atwood – legal $44,455.00
PFM Financial Advisors $29,250.00
Total Expenditures $112,057.30
5-Year Revenue Projections
The Board, through Barnstable County through the Cape Cod Commission, contracted with PFM
Financial Advisors to provide advisory services relative to subsidy allocations and revenue
projections. In consultation with the Board and based on their expertise in forecasting and financial
modeling, PFM Financial Advisors developed the following 5-year revenue projections. Growth in
revenue is anticipated to be greater in 2022 and 2023, as a result of increased short-term rental use
over the course of the COVID-19 pandemic.
2021 2022 2023 2024 2026 2027
Revenue $15,000,000 $17,400,000 $19,140,000 $19,618,500 $20,108,963 $20,611,687
Revenue Growth 16.00% 10.00% 2.50% 2.50% 2.50%
In summary, the Cape Cod and Islands Water Protection Fund receipts through November 2021
totaled $39,337,123.18. In 2021, the CCIWPF Board voted to award subsidies for 15 projects and to 4
towns for pre-existing debt. The total transferred from the CCIWPF in 2021 for project subsidies
totaled $13,708,673. With the addition of fund investment income totaling $95,312.05, the balance
of the fund at the end of the calendar year 2021 was $25,723,762.23.
CAPE COD AND ISLANDS WATER PROTECTION FUND 2021 ANNUAL REPORT
8
At their meeting on January 11, 2022, the CCIWPF Board voted to approve final commitments for
subsidies to fund qualified projects listed on the 2020 Clean Water State Revolving Fund Intended
Use Plans, for which Project Regulatory Agreements have been executed in the amounts of:
Town Project Project Cost in PRA Total Subsidy
Barnstable Solids Handling Upgrade Project $11,313,805 $2,828,451
Barnstable Wastewater Pump Station
Improvements Project $1,226,751 $306,688
Barnstable RTE 28 Yarmouth Rd Sewer $1,731,512 $432,878
Barnstable Strawberry Hill Road Sewer
Expansion $12,289,531 $3,072,383
The CCIWPF Board also voted to approve final subsidies to qualified and eligible town projects for
verified pre-existing debt in the towns of Barnstable, Chatham, Falmouth, and Provincetown in the
amounts of:
Town Eligible Pre-Existing Debt Total Subsidy
Provincetown $11,729,661 $2,932,415
Barnstable $4,842,300 $1,210,575
Chatham $21,391,410 $5,347,853
Falmouth $7,675,200 $1,918,800
Totals $45,638,571 $11,409,643
Lastly, the CCIWPF Board voted to approve additional subsidies for authorized debt and debt that
was not issued as of April 14, 2021 in the amounts of $1,478,010 for Provincetown, pending loan
issuance and closure, and $803,750 for Chatham, as show below:
Town Amount Status Total Subsidy
Provincetown
$1,651,000 Pending Loan Closure
$1,478,010 $2,486,000 Pending Loan Closure
$1,775,041 Pending Issuance
Chatham
$1,850,000 Closed 5/27/2021
$803,750 $235,000 Closed 5/27/2021
$1,130,000 Closed 5/27/2021
These subsidies, and any transfers or payments made related to these subsidies, will be reflected in
the 2022 annual report.
Brewster Finance Committee
Budget for 2022-2023
Budget Questions for Nauset Regional & Brewster School Committee, Superintendent and
Nauset Regional Finance Director
The primary goal of the Brewster Finance Committee is to see a budget that is accurate, honest
and understandable. With that in mind, we would like the Nauset regional school Committee
to address the following questions:
Could we please have a reconciliation of the Reserve for Negotiations line items from the prior
year’s budget. This report should demonstrate how the monies were allocated and spent.
In the budget for the current year $229,234 was budgeted for Brewster, 487,495 was budgeted
for the Middle School and $864,809 was budgeted for the High School. In the 2022-2023
budgets those numbers are not included in the Budget 2021-2022 columns. Have these been
placed in there respective line items, and if so could be get a report that details which line they
are in that balances to the reserve numbers.
There has been a presumption of a 2.5% increase in NRSD Budgets. Will that increase be in this
year’s budget. How is current inflation considered in this year’s budget?
Given the trends in declining enrollment, what is the strategy to match the expense budget to
the enrollment trend?
Is the decline in Choice intentional or is it driven by decline in student applications?
What is your strategy for full borrowing for the new high school? What is the current rate on
the BANS and when will full borrowing take place?
We would like the Superintendent to address Nauset Per Pupil spending vs other districts.
What is the budgeting strategy for Health insurance in the FY2023 Budget?
Please address strategy with respect to retaining Students leaving for Charter Schools vs
bringing in School Choice students.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
MEMORANDUM
RE: Sea Camps Planning Committees
DATE: December 20, 2021; Revised January 10, 2022
At their December 20, 2021 meeting, the Select Board unanimously approved the
following charges for the two new planning committees tasked with developing
Comprehensive Plans for the former Cape Cod Sea Camps properties. At the January
10th, 2022 Select Board meeting, the charge was updated to include a member of the
Water Commission as a voting member instead of a liaison.
Bay Property Planning Committee (BPPC)
1. Purpose:
a. Identify existing conditions of the former Cape Cod Sea Camps Bay
property
b. Evaluate potential low-cost, short-term public access opportunities
c. Develop and propose interim public access plan
d. Develop and implement a public engagement strategy to ensure broad
community input
e. Determine priority long-term uses appropriate for the Bay property, taking
the adjacent Spruce Hill property into consideration
f. Identify and evaluate potential partner organizations with shared interests
and values, particularly MA Audubon and YMCA Cape Cod
g. Propose recommended long-term uses and partnerships
h. If recommended long-term uses include construction of a community
center and/or Town offices, evaluate alternative uses of Council on Aging
site, Town Hall, and Eddy School as appropriate
i. Develop an implementation plan for the proposed uses
2. Strategies:
a. Actively engage the public and stakeholders
b. Provide residents with regular updates regarding progress and milestones
c. Consider a range of interests, needs, ages, and abilities
d. Collaborate with design professionals to develop and present a
comprehensive plan to the Select Board and Town Meeting
Office of:
Select Board
Town Administrator
i. Consider Brewster’s key strategic planning documents (Vision Plan,
Open Space and Recreation Plan, Coastal Resource Management
Plan, Housing Production Plan, and others)
ii. Incorporate maintenance, safety, and legal requirements
iii. Identify estimated one-time project costs, ongoing operating
expenses, funding sources, and timelines, incorporating prudent
financial practices and exploring opportunities for revenue
generation
3. Composition:
Eleven (11) total members, including:
a. Two (2) representatives from Select Board (Select Board Chair shall not be
eligible)
b. One (1) representative from each of the following committees: Vision
Planning Committee; Natural Resources Commission; Recreation
Commission
c. Six (6) at-large members (may be part-time residents)
d. Term: One (1) year, subject to annual reappointment; first term through
June 30, 2023
e. Officers: Committee shall initially and annually thereafter elect a Chair,
Vice Chair, and Clerk; Chair position shall not be held by a Select Board
member; Chair and Vice Chair will meet on quarterly basis with their
counterparts on PPPC to ensure coordination
f. Liaisons (non-voting): Finance Committee; Open Space Committee;
Council on Aging; Affordable Housing Trust; Cultural Council
g. Representatives (non-voting): MA Audubon, YMCA Cape Cod, and
Brewster Conservation Trust; other organizations such as Trustees of
Reservations, etc may be included as needed
h. Lead Town Staff Support: Town Administrator; other Department Heads
as needed
4. Appointment Process:
a. Notice soliciting letters of interest and completed applications from
residents will be posted on Town website – due January 21, 2022
b. Residents seeking to serve as at-large members will be asked to complete
new Board/Committee application form
c. Members of representative committees will be asked to submit letters of
interest
d. Select Board members appointed to serve on BPPC will individually vet all
applicants (at-large and representative members) and then make their
recommendations to the full Board in February
e. Select Board are anticipated to make all appointments by the end of
February
f. Committees and outside organizations may identify their own
liaisons/representatives
5. Selection Criteria:
In addition to the criteria outlined in the Select Board’s recently revised Board &
Committee Appointment Policy, Select Board members will also take into account
the following criteria in selecting members to serve on this committee:
a. Record of effective teamwork ability; able to collaborate well with others
to achieve common goals
b. Experience in community planning, municipal activities, project
management, equity and inclusion, conservation/environment, park
management, sustainability, historic preservation, recreation, public
finance, (landscape) architecture, youth services, human services,
engineering, community housing, and/or law
c. Excellent written and verbal communication skills
d. Previous volunteer service
e. Sufficient time to actively participate in meetings and take on tasks
outside of meetings
Pond Property Planning Committee (PPPC)
1. Purpose:
a. Identify existing conditions of the former Cape Cod Sea Camps Pond
property
b. Evaluate potential low-cost, short-term public access opportunities
c. Develop and propose interim public access pan
d. Develop and implement a public engagement strategy to ensure broad
community input
e. Determine priority long-term uses appropriate for the Pond property,
taking the adjacent Long Pond Woodlands (Robinson) property into
consideration
f. Identify and evaluate potential partner organizations with shared interests
and values, particularly MA Audubon and Brewster Conservation Trust
g. Propose recommended long-term uses and partnerships
h. Develop an implementation plan for the proposed uses
2. Strategies:
a. Actively engage the public and stakeholders
b. Provide residents with regular updates regarding progress and milestones
c. Consider a range of interests, needs, ages, and abilities
d. Collaborate with design professionals to develop and present a
comprehensive plan to the Select Board and Town Meeting
i. Consider Brewster’s key strategic planning documents (Vision Plan,
Open Space and Recreation Plan, Coastal Resource Management
Plan, Housing Production Plan, and others)
ii. Incorporate maintenance, safety, and legal requirements
iii. Identify estimated one-time project costs, ongoing operating
expenses, funding sources, and timelines, incorporating prudent
financial practices and exploring opportunities for revenue
generation
3. Composition:
Ten (10) total members, including:
a. Two (2) representatives from Select Board (Select Board Chair shall not be
eligible)
b. One (1) representative from each of the following committees: Natural
Resources Commission; Open Space Committee; Affordable Housing
Trust, Water Commission
c. Four (4) at-large members (may be part-time residents)
d. Term: One (1) year, subject to annual reappointment; first term through
June 30, 2023
e. Officers: Committee shall initially and annually thereafter elect a Chair,
Vice Chair, and Clerk; Chair position shall not be held by a Select Board
member; Chair and Vice Chair will meet on quarterly basis with their
counterparts on BPPC to ensure coordination
f. Liaisons (non-voting): Finance Committee; Vision Planning Committee;
Recreation Commission
g. Representatives (non-voting): MA Audubon & Brewster Conservation
Trust; other organizations may be included as needed
h. Lead Town Staff Support: Assistant Town Administrator; other
Department Heads as needed
4. Appointment Process:
a. Notice soliciting letters of interest and completed applications from
residents will be posted on Town website – due January 21, 2022
b. Residents seeking to serve as at-large members will be asked to complete
new Board/Committee application form
c. Members of representative committees will be asked to submit letters of
interest
d. Select Board members appointed to serve on PPPC will individually vet all
applicants (at-large and representative members) and then make their
recommendations to the full Board in February
e. Select Board are anticipated to make all appointments by the end of
February
5. Selection Criteria:
In addition to the criteria outlined in the Select Board’s recently revised Board &
Committee Appointment Policy, Select Board members will also take into account
the following criteria in selecting members to serve on this committee:
a. Record of effective teamwork ability; able to collaborate well with others
to achieve common goals
b. Experience in community planning, municipal activities, project
management, equity and inclusion, conservation/environment, park
management, sustainability, historic preservation, recreation, public
finance, (landscape) architecture, youth services, human services,
engineering, community housing, and/or law
c. Excellent written and verbal communication skills
d. Previous volunteer service
e. Sufficient time to actively participate in meetings and take on tasks
outside of meetings
Finance Committee Minutes
January 19, 2022 Page 1 of 4
TOWN OF BREWSTER
FINANCE COMMITTEE
Date: January 19, 2022 Time: 6:00 PM
VIRTUAL MEETING MINUTES
Present: Chair Pete Dahl, Vice Chair Frank Bridges, Clerk Bill Meehan, Honey Pivirotto, Robert Tobias,
Alex Hopper, Andy Evans, Bob Young, William Henchy
Also present: Peter Lombardi, Town Administrator
Absent: Mimi Bernardo, Finance Director
The Chair called the meeting to order at 6:01 pm and announced a quorum.
This meeting will be conducted by remote participation pursuant to Chapter 20 of the Acts of 2021. No in-person meeting attendance will be permitted. If the Town
is unable to live broadcast this meeting, a record of the proceedings will be provided on the Town website as soon as possible.
The meeting may be viewed by: Live broadcast (Brewster Government TV Channel 18), Livestream (livestream.brerwster-ma.gov), or Video
recording (tv.brewster-ma.gov).
1.Public Announcements and Comment- none
2.Town Administrator/Finance Director Report
Peter Lombardi said there are three items of note – work has recently been completed to have a school
consolidation feasibility study done – they will be presenting their report tomorrow night to the Brewster School
Committee and to the Select Board next Monday night, and a presentation for staff in the beginning part of
February, and a Community Forum on March 1st. There is a link on the website to the report. They did a very
comprehensive job in looking at the various needs, scenarios, and cost estimates. The US Treasury issued their
final rules and regs around use of Federal ARPA dollars – the little over $1M to Brewster – any allocation less
than $10M direct to a municipality can be used for general municipal purposes. It is assumed as lost revenues.
We have pretty significant discretion on how those funds will be allocated. Lastly, wanted to let the Committee
know we will be holding a joint meeting with the Select Board and Board of Health next Thursday, January 27th
at 6PM - we will be sending out invitations to other committees to join – we will have a discussion around
water quality planning, where we stand today, and potential next steps. We will also talk about the town’s
participation in the Cape & Islands Water Protection Fund which we have already brought in a little over $2.6M
in the 2.5 years we’ve been participating as a member of that fund. There are significant policy implications
both long and short term.
Pete said $1M from the Federal Government, and a potential $1.8M from the County – if it was all directly
allocated. Peter Lombardi answered that if we had no active county government, our share would be just under
$2.6M.
Approved:
VOTE:
Finance Committee Minutes
January 19, 2022 Page 2 of 4
3.Budget Calendar – Discussion and Approval
We added a meeting on February 2, 2022.
4. Nauset Regional Public Schools Budget – Discussion and Strategic Direction
Pete said there has been a fair amount of information disseminated, but we don’t have the final enrollment
numbers. Peter Lombardi said he has been in budget meetings all day and there have been enrollment numbers
given and proposed budgets for the region, the High School, and the Middle School. For Brewster, we had a
dramatic enrollment increase a couple years ago, and for 22-23, we are set to go down approximately 1.6% as a
share of Nauset’s budget. This is a bottom-line number, but we had been waiting for the final numbers and these
include the out of district numbers. Big picture, we have been on the “wrong” side of the enrollment shift for the
past couple of years, but this time, with a slight decrease, it will give us a bit of a break. Pete asked when Peter
Lombardi would be able to send out those numbers. Peter Lombardi said he would send what he has out to the
committee after this meeting tonight. Robert Tobias said the Nauset Public School’s website has the middle
school and high school budgets up on their calendar. Brewster School Committee will be getting their budget
tomorrow. Peter Lombardi said that we just received notice that they are now posting their packets on their
website to view once it has been sent out to their school committee. Pete said that was some good news to give
us time to come up with our questions and have enough time to get those questions answered as we go along.
Pete then opened the meeting to discuss strategies that will be helpful going forward. We did not have a budget
meeting set until February 7th but thinks we can add in February 2nd so we could have some discussion. Bill
Meehan said that over the last couple of years, he has raised the question of the presumption of holding to a
2.5% increase from year to year and wondered about allowing that increase on infinitum. He would like to
examine this budget to see if this assumption is carried forward, if so, he renews his question. Who says you can
have 2.5% and why? Honey said that her question is trying to track this enrollment, if numbers are going down,
what adjustments are being made to expenses to correlate with that? Andy asked about using Choice as a formal
strategy to generate some revenue in the face of declining enrollments. And if that is true, what is the long term
strategy around that? Also, with the ARPA funds, would the school system have a call on any of those funds
directly? Peter Lombardi said the one-time Federal and State funding sources available to use as supplemental
revenues in their budgets. So, in looking over the horizon and long-term sustainability, it would be good to
know how those funds have been used to date and the extend to which they are relying on those funds to come
in at budget. He also said that in what Frank was talking about, he thinks one potential concern is we have seen
2.5% increases when our health insurance increases have been negligible. Once we get back to where we are
used to being with insurance prices rising yearly, that is a potential concern. Pete said it still is in the face of
declining enrollments. One of the things he sees, the number of students attending charter schools have
increased every year. Here’s the conundrum, it is important to keep as many students in the Nauset system as
possible. What is the reimbursement they receive versus what has been budgeted? Pete is trying to find out what
the probing questions should be. The 2.5% increase, inflation, health insurance, etc. it needs to be a budget
based on the reality of your expenses and not on a 2.5% increase for increase’s sake. Bill Henchy thanked Bob
Young for his help in understanding this information as he is new to the conversation. We’ve got declining
enrollment in member towns, the school committee is using School Choice to make up the difference, so it
seems an appropriate starting point to see what the differential is between actual costs of operating the school
and funding the capital costs of the school to the member towns as opposed to the reimbursements in tuition
from other school choice communities. How do the member towns address that imbalance – if there is one? He
thinks this is a Select Board question and doesn’t think the Finance Committee can get too far out front as this
will be a Town Meeting issue ultimately. Pete said we have dealt with this issue for a year or two, and it’s
important for the committee to not let this go to the back burner. If we don’t make this an important public
Finance Committee Minutes
January 19, 2022 Page 3 of 4
discussion issue, it will become status quo. He is all in favor of making sure that as we deal with the issues at
hand, we don’t lose sight of this bigger question. Frank is focused on having an operating budget that is
accurate, honest, and understandable. Peter Lombardi said that he does think that Choice numbers are down
dramatically. He doesn’t know if that is based on a school committee decision or based on demand. He thinks
this would be a good question to ask. Andy looks at the chart and wonders if it could be extrapolated by three
years or so – he hasn’t seen that at all. No organization only looks back, they must look forward. Pete agreed
that this would be a very good question – this is certainly something we could ask them for and there might be
more interest, with the new Superintendent, to look at and develop into a five-year plan, giving some direction.
Frank said if you look at the Habib Report, there is some information that looks at Barnstable County and
Brewster. They are projecting a decline and look at other school information that is similar. It also looks at
housing statistics. Bob Young said the enrollment numbers are important, but to him, it’s the solid yellow and
red lines (on the chart) that reflect the 2.5% every year regardless of enrollment changes. This gets down to
sustainability. We need to bend the line on the inflation adjusted operating expense budget and you can’t do that
by accepting the 2.5% increases every year. We need to understand how the School Committee and District
Administration is going to strategically address this. It just doesn't make sense; we are already nearing private
school costs per student. As we look forward, how are they going to bend the curve, so it comes back down?
Pete said there is a need to get the budgets and start looking at those items that need to be addressed and
reconciliations we would like to have presented. It may be premature to put that list together until we have seen
the budgets themselves. He thinks we should meet on February 2nd with those questions in mind. If people have
specific questions they would like included, please send them to Pete separately, not send/or reply “All,” and he
will include them in the packet.
5.Nauset Regional Public School and Brewster School Department – Budget
reconciliation
No further discussion from the Agenda Item above.
6.Liaison Reports
Pete said the Select Board had completed the charges for the Bay Parcel Committee and the Pond Parcel
Committee. He wants to leave it open for anyone on the committee with interest in either of these committees.
The Bay Parcel will be an intense assignment; the Pond Parcel will be quite different. It is important to have a
Finance member as part of these committees as there will be a lot to do there. Peter Lombardi said the scope of
work for the Bay Property is anticipated to include the Eddy School Property relative to potential future uses.
There has been some interest in using the Eddy for a Community Center, prior to the Sea Camps acquisition.
That committee will be having those high-level policy discussions around potential future uses of the Eddy
School if the Bay Parcel gets used for a Community Center, as a possibility. Pete said the School Department
controls the use of that building - Robert Tobias is following along as their liaison.
Honey said with Council on Aging – as of Jan 4th Elder Services suspended their hot meals program b/c of
Covid. The Tax Preparation help is going to begin February 2nd – room C at Town Hall. If it is a basic Tax
Return, they are availed of that help. During the Medicare enrollment, the workers who interacted with the
seniors, saved 340 clients just under $290,000 with help sorting through this process. There’s been a lot of
discussion about the storm preparation for elderly housing and what the Council’s role is in that. One of the
things that came up during the storm predictions, a few people that have had concerns came together and
purchased quite a bit of handwarmers and non-perishable foods. Thank you, Robert Tobias, as he has worked
closely with some of those residents.
Finance Committee Minutes
January 19, 2022 Page 4 of 4
Honey said on the Vision Committee there has been a substantial amount of work – a survey is going out to the
town. Please go online and complete the survey – please tell others to do the same. There will also be pop-ups
around Town to ask questions. Please spread the word as they are hoping to get 2000 responses. We are sorting
out, right now, what the contractor is doing to shore up the project. Hopefully more help is coming in support of
the pop-ups and the survey compilation. We would like to finish up in early March.
Pete said he attended the Select Board meeting and will circulate information from that meeting – very
interesting report on roads and throughways – the pavement management report. There is a report and summary
of findings in the packet from that night that might be worth reviewing. Peter Lombardi said that one of the
goals for the Select Board this year is to complete that update to the pavement management plan and use that
specific to road construction – maintaining existing roads and other larger projects in the que. It might make
sense to have Griffin Rider come in from the DPW to discuss the pavement management and let us know what
is in the capital plan -big picture.
7. Review and Approval of Minutes – 12/15/21
Bill Meehan MOVED to approve the Minutes of 12/15/21 as presented. Frank Bridges second.
Roll Call Vote: Frank Bridges – yes, Bill Meehan – yes, Honey Pivirotto – yes, Andy Evans – yes, Robert
Tobias – yes, Bob Young – yes, Alex Hopper – yes, Bill Henchy – abstain, Chair Pete Dahl– yes.
The Committee voted: 8-yes 0-no 1-abstain
Bill Henchy abstained as he was not at that meeting.
8. Request for agenda items for future meetings – please email Pete
9. Matters Not Reasonably Anticipated by the Chair- none
10. Next Finance Committee Meeting – February 2, 2022
11. Adjournment
Bill Meehan MOVED to adjourn the meeting at 7:37 PM. Frank Bridges second.
Roll Call Vote: Frank Bridges – yes, Bill Meehan – yes, Honey Pivirotto – yes, Andy Evans – yes, Robert Tobias
– yes, Bob Young – yes, Alex Hopper – yes, Bill Henchy – yes, Chair Pete Dahl– yes.
The Committee voted: 9-yes 0-no
Respectfully submitted, Beth Devine
Packet of supporting materials on the website for public review.