Massachusetts Water Policy 20041 Commonwealth of Massachusetts Mitt Romney, GovernorKerry Healey, Lieutenant GovernorMassachusetts Executive Office
of Environmental Affairs Ellen Roy Herzfelder, SecretaryMassachusettsWater PolicyThe Commonwealth of MassachusettsExecutive Office of Environmental Affairs100 Cambridge Street, Suite 900Boston, MA 02114-2119Mitt RomneyGOVERNORKerry HealeyLIEUTENANT GOVERNOREllen Roy HerzfelderSECRETARYTel: (617) 626-1000Fax: (617) 626-1181http://www.mass.gov/envirNovember 9, 2004
Dear Friend:Governor Romney traveled across the state during much of 2002. He spoke a great dealabout the many challenges that faced the Commonwealth in the new century and he pledged to
reform and rebuild our state at every level. From fixing our state’s aging infrastructure and
reforming our regulatory and planning processes to determining the most effective and efficient
way to protect and restore our critical natural resources—there was much work that needed to be
done. To develop a new approach for managing our water resources and growing smarter about
water conservation, I convened a Water Policy Task Force that brought the state’s best minds to
the same table to look at these issues and strategically plan for our future.The recommendations in the water policy will create a more effective and more proactiveworking relationship between the state and its local and regional partners. This partnership will
be an important component of my office’s Smart Conservation strategy and will complement the
Administration’s Smart Growth strategy, as we work with localities to promote growth in a way
that respects the wonderful resources with which this state has been blessed.It will take time and a commitment of resources to complete the ten recommendationscontained in this policy report. We look forward to the challenge. Regards, Ellen Roy HerzfelderTable of ContentsAcknowledgements 4WaterPolicyTaskForce 5Introduction 6Challenges 6TheCharge 7Principles of the Water Policy7PolicyContext 8A New Working Relationship8PolicyRecommendations 9Data23Implementation of Recommendations24ImplementationSchedule 28Appendix A. For Future Consideration29AppendixB.Glossary 31Massachusetts Water Policy 2004Executive Office of Environmental Affairs4Acknowledgements The recommendations developed with the assistance of the Water Policy Task Force are a result of
significant effort on the part of many people during a compressed time period. The Executive
Office of Environmental Affairs would like to express its gratitude to all of the Task Force
members, for their ideas, commitment to developing a high-quality product, and patience.
The chairs of the Task Force working groups are due a special debt of thanks for their leadership, as
are our public partners, who helped in scheduling public meetings and soliciting public input.
Behind many task forces is a hard-working and dedicated staff. Ours was particularly well supported
by Vandana Rao (EOEA), Melissa Cryan (EOEA), and Denise Zambrowski (EOEA/OTA) - who
provided lead policy and logistics assistance respectively to the Task Force and its four working
groups - and to Janice Snow, our intern (Tufts University). Design/Layout Vandana Rao and Arden MillerWater Policy Task ForceThe Executive Office of Environmental Affairs (EOEA) would like to thank the members of the Water Policy
Task Force for their advice in the composition of this document. Members of the task force were:
Ralph Abele, United States Environmental Protection Agency
Elizabeth Ainsley Campbell, Nashua River Watershed Association
David Begelfer (and Richard Nylen), National Association of Industrial and Office Properties
Ilyas Bhatti, The Bhatti Group
Roger Brooks, Leominster Water and Sewer Department
Philip Christiansen, Massachusetts Homebuilders Association
Vicki Gartland, Massachusetts Department of Conservation and Recreation
Robert W. Golledge, Jr., Massachusetts Department of Environmental Protection
William Guenther, Massachusetts Insight
Phil Guerin, Worcester Department of Public Works
Bennet Heart, Conservation Law Foundation
Pamela Heidell, Massachusetts Water Resources Authority
Karl Honkonen, EOEA
Joan Kimball, Massachusetts Department of Fish and Game
Leo Pierre Roy, Vanasse Hangen Brustlin, Inc.
Eileen Simonson, Water Supply Citizens Advisory Committee
Joe Superneau, Springfield Water and Sewer Commission
Margaret Van Deusen, Charles River Watershed Association
Lou Wagner, Massachusetts Audubon Society
Peter Weiskell, United States Geologic Survey
Mayor John Yunits, City of Brockton
Facilitator: James Stergios, EOEA
Staff: Vandana Rao, EOEA
Assistance: Melissa Cryan, and Denise Zambrowski, EOEAMassachusetts Water Policy 2004Executive Office of Environmental Affairs6IntroductionMassachusetts faces a number of significant water resource management challenges - water quantity, quality,
and habitat. These challenges will only be exacerbated by new development unless the Commonwealth
develops new approaches that promote effective management of its water resources and sustainable patterns
of growth. To reach this goal the state needs to work in partnership with cities and towns, as they are vested
with the responsibility of oversight over growth and either directly or through regional bodies manage
important water resources. This policy seeks to move both the state and its partners to a proactive stance, by
providing local and regional partners with greater clarity through wider use of performance standards and
regulatory improvements, flexibility to manage their resources, technical assistance, better science, and
incentives.ChallengesOne of the state’s biggest challenges is maintaining sufficient quantities of streamflow so as to sustain
ecological and anthropogenic demands. Massachusetts receives a significant amount of precipitation—the
equivalent of 44 inches of rainfall per year—that fills our reservoirs and streams, and sustains our aquifers. In
dry years, the amount of water remaining in our streams often becomes dangerously low. In the summer
months, the thin, discontinuous aquifers of eastern and central Massachusetts and the limited aquifers (mainly
fractures in bedrock) of western Massachusetts provide the only source of stream flow. The combination of
high summer demand and low stream flows can adversely impact water availability and quality, vegetation and
fish counts.
The impacts of insufficient water quantity behoove us to do our
utmost to use water indoors and outdoors with maximum
efficiency. Addressing quantity challenges requires the
promotion of efficient water fixtures, conservation efforts, and
new tools such as water offsets for new demands. Better use
patterns will help minimize the need to develop new sources of
water supply.We also need to rethink where the water that we use goes. Existing infrastructure often transports
precipitation away from where it lands instead of letting it infiltrate. Transporting dirty water far from its
source made sense historically, but today, with significant improvements in wastewater treatment techniques
and standards, treatment levels often make the water available for reuse or recharge, thereby replenishing the
natural stream flows and aquifers in the basin or sub-basin.
An important subset of wastewater is stormwater—that is, precipitation that does not seep into the ground
but runs off the surface. Traditional development patterns allow stormwater to travel across roads, parking
lots, and other impervious surfaces into sewers and detention areas far away. Techniques to keep stormwater
local and prevent it from becoming contaminated have been developed, including local infiltration via
vegetative areas and rain gardens.Massachusetts Water Policy 2004Executive Office of Environmental Affairs7Finally, as regards quantity, we also need to make improvements to our aging and often leaky water supply,
sewer, and stormwater infrastructure. Water supply infrastructure can leak water into the ground via cracks in
the pipes that would otherwise send water to users. Leaking sewer infrastructure takes on ground water and
conveys it to treatment plants resulting in increased treatment load and costs.
The Commonwealth also has impaired waters and debilitated aquatic habitat areas. Ensuring clean water
requires that we do a better job of limiting point and non-point source pollution. Recent patterns of growth
have introduced impacts due to runoff (e.g., changes in temperature and oxygen, suspended solids and
bacteria), discontinuous critical habitat areas, and altered habitats. As a result, alarming changes in fish
populations are evident in many of the Commonwealth’s rivers, such as the Ipswich, the mainstem of the
Charles, and the Housatonic Rivers. For example, the fish population in the stressed Ipswich River is
composed of only 4 percent river fish (59 percent less than the expected level), while 93 percent of fish are
more akin to pond fish.
The problems described above will only get worse if we continue to grow and manage water in the way we
have over the last half-century. During the past 20 years, considerable land mass has been developed,
rippling outward from Boston, even as total housing starts have not sufficed to meet the state’s housing
needs. Assuming growth continues on the basis of recent land use patterns, demand for water and the
development of land critical to future drinking, recreational and habitat purposes will increase significantly.
In addition, this will, over the long run, undermine the state’s ability to ensure sufficient drinking water
supplies for new growth and will overextend state resources.The ChargeIn early 2004, the Secretary of Environmental Affairs, Ellen Roy Herzfelder, convened a Water Policy Task
Force to help craft a strong and forward-looking water resource management policy that more effectively
complements and supports Governor Romney’s Smart Growth agenda. Throughout this policy document is
reflected the Governor’s commitment to the coordination of development and environmental concerns, as
manifest in the creation of the Office for Commonwealth Development (OCD) and Secretary Herzfelder’s
“Lean and Green” and “Smart Conservation” agendas.Principles of the Water PolicyThe Water Policy seeks to advance the following environmental principles: Keep water local and seek to have municipalities live withintheir water budgets by addressing issues from a watershed
perspective Protect clean water and restore impaired waters Protect and restore fish and wildlife habitat Promote development strategies consistent with sustainablewater resource managementRecognizing that current utilization patterns of the Commonwealth’s water resources are frequently not
sustainable, that the Commonwealth’s economic growth and quality of life depend on a sustainable waterMassachusetts Water Policy 2004Executive Office of Environmental Affairs8supply, and that we must create a more effective partnership with municipalities that are empowered with
critical land use and development decision-making authority, the Water Policy Task Force sought in its work
to:Focus on the state’s partnership with municipalities and regional water organizationsBe bold—not recklessEmphasize desired results over processUse the best available science to develop policies, priorities and specific action recommendationsPolicy ContextThe 2004 Water Policy sets out a blueprint that cuts across all aspects of water policy and builds upon aspects
of prior policy-setting activities, such as the 1996 Water Supply Policy, the Interim Infiltration and Inflow
Policy, the Wetlands and the Stormwater Policies and Guidances, the Water Management Act and Interbasin
Transfer Acts. The policy supports the Federal Clean Water Act mandate that each state maintain, safeguard
and restore the physical, chemical, and biological integrity of its waters underscoring the significance of
natural hydrologic cycles, establishing a method for
prioritizing watersheds in need of restoration, and integrating
better science into resource management decisions.
In addition, the policy incorporates key elements of the
Governor’s Smart Growth agenda. Working with localities, it
includes recommendations on planning and design
innovations, fix-it-first strategies to encourage compact
development and the revitalization of cities and towns, and
proactive protection of future water supplies and critical water resources. A New Working RelationshipIt is with some urgency that the state seeks to establish a more effective working relationship with
municipalities on water resource management and growth issues. The relationship will be one where the state
provides the direction, planning, the tools, technical assistance, incentives, and finally a larger framework for
municipalities and regional water departments to address the challenges described above. Municipalities and
water departments, for their part, will need to adopt a more proactive stance and a longer-term vision to
address these challenges.
In order to help communities put resources into the partnership, the policy identifies permitting issues of
concern to municipalities. It seeks to make the costly, potentially exhaustive regulatory review and approval
processes for New Source applications and new water withdrawal applications, among other issues, more
predictable. The policy also addresses the need to give towns and regions greater flexibility in managing water
sources, additional tools, and appropriate technical assistance.Massachusetts Water Policy 2004Executive Office of Environmental Affairs9Policy RecommendationsAddressing the Commonwealth’s many water resource challenges will require that the state work more
effectively with our municipal partners on a number of resource management fronts. The water policy
recommendations include development and refinement of planning, tools and strategies to promote efficient
use of water, measures to promote proper infrastructure maintenance, wastewater reuse and recharge,
stormwater recharge, water supply development, resource protection and restoration strategies, and permit
streamlining. The implementation plan included at the back of this document reflects the breadth of this
work and ranges over four years.
Overall, the water policy recommendations on resource management
move the state from a posture of reacting to problems to that of
proactively working with local and regional partners to solve or avoid
problems. Similarly, the recommendations complement the smart
growth strategy of articulating and promoting more efficient local land
use and more thoughtful designs rather than that of mitigating the
negative impacts of development. Sustainable water use and effective
pollution strategies (such as addressing non-point sources) will require
more active pursuit of sustainable development practices - in essence, protection of critical resource areas,
targeted resource restoration, higher-density growth, and more up-to-date designs and landscaping. These
strategies will be important as areas of the state undergoing heavy development in the coming years have
significant water resource, habitat, and dam issues.RECOMMENDATION 1: Create a “Stress Framework” with increasingly stringent performance standards,
recommendations and requirements as a community’s basin approaches highly
stressed.
The Water Resource Commission (WRC) has identified communities situated in basins that are in stressed
conditions. As a result, the state has been able to coordinate reactions to water resource crises in
communities like in the Ipswich and the SuAsCo (Sudbury Assabet and Concord) basins. In order to
encourage local and regional water entities to assume proactive water management policies (and avoid reaching
the crisis point), the state needs to provide inducements to maintain lower levels of stress and clarity about
the kinds of resource management tools that should be used within certain performance standard
bandwidths. Functionally, the Stress Framework would provide a way for communities to understand the
cost of allowing the shared basin to fall into a more stressed condition and, therefore, encourage proactive
and, where appropriate, regional solutions.
The Stress Framework would set performance standards for the overall basin based on streamflow and, later,
biological and chemical integrity. It would also identify performance standards for specific infrastructure and
resource management issues, such as Infiltration-Inflow, Combined Sewer Overflows, and Target Fish
populations, and establish a menu of targeted recommendations and requirements, including actions toMassachusetts Water Policy 2004Executive Office of Environmental Affairs10promote water efficiency and conservation, peak pricing strategies, infrastructure maintenance, planning,
mitigation and water banking (both within a community and across communities).
In this way, the policy would seek to replicate a conservation approach and would make the Commonwealth
more proactive in decreasing the level of stress across the State. The successful establishment of such a
system, with increasingly stringent recommendations and requirements as a community approaches “high
stress” conditions, would rely on a variety of actions related to sustainable water use and water management.
To create such a system would require a consistent policy effort on the part of the WRC.Actions(a) The WRC should establish under its oversight a multi-stakeholder working group to expandthe existing “stressed basin” into a tiered “stress level” framework(b) Devise a graduated menu of actions related to specific performance standards includingwater efficiency and savings, seasonal peak pricing, the adoption of local wastewater
treatment, water reuse and on-site stormwater and wastewater recharge, leak detection,
metering, the adoption of technologies and products, the adoption of water enterprise
accounts (and percentage of water rate payments going into the dedicated accounts),
ratios of specific kinds of mitigation (water offsets), and establishing water banks(c) Develop mitigation strategies and appropriate tiered ratios to encourage developers, watersuppliers, and communities to take actions that “find water or get recharge” at a
beneficial ratio and in the right place(d) Revise the Water Conservation Standards to include measurable criteria for use inpermitting decisions, grant awards and loans that can be incorporated into the Stress
Framework. The Massachusetts WRC developed Water Conservation Standards for the state in 1992.Since that time new information on conservation has become available especially in the area of irrigation.
In addition, the Interbasin Transfer Performance standards (1999) and the Water Management Act Policyof 2004 have illustrated the value of having measurable
criteria for program implementation. Updating the
Standards would allow for the incorporation of new
information and new science, and provide the opportunity
to make them more specific and measurable. In addition,
the standards should be revised to include a tiered approach
to conservation based on the level of stress in the watershed.
(Related data requirements are outlined in Data A.)(e) Develop a policy on maintenance and repair of leaking water supply and sewer systeminfrastructure, including requirements for adequate monitoring. The most successful tools forproper operation and maintenance of sewer systems, water supply systems and stormwater systems are
maintenance plans based on good monitoring data and a dedicated source of revenue for implementing
these plans. Specifically, the state should (a) refer communities to DEP’s Operations and MaintenanceMassachusetts Water Policy 2004Executive Office of Environmental Affairs11manual and monitor impact; (b) develop new or refine criteria for prioritization of infrastructure
maintenance and repair (including percentages of leakage and steps to take), (c) encourage enterprise
accounts (see Recommendation 3), and (d) incorporate standards for monitoring and repair frequency for
all water conveying infrastructure to be used in developing local Operation and Maintenance plans.RECOMMENDATION 2: Develop clear guidance and planning materials to help communities meet existing
and future water uses by developing watershed solutions based on water budgets.
Analyses should be undertaken to gain a more comprehensive understanding of local water budgets—that is,
the inflow and outflow of water within communities—and those areas that currently and in the future will
place pressure on water supply and wastewater capacities. The resulting water budgets will need to be
incorporated into local and regional planning to ensure that growth and land use decisions are made with full
knowledge of water supply and wastewater capacity implications. (Related data requirements are outlined in
Data, Section A.)
More complete consideration of water resource management will be possible after the release of the
Integrated Water Resource Management Plan (IWRMP) guidance currently under development in DEP. The
IWRMP evaluates a wide range of water resource issues, such as existing and potential water supply needs,
any interconnection with wastewater options, groundwater recharge, stream flow and water quality
considerations.Actions(a) From a Water Budgets study, identify areas in Massachusetts where existing and futuregrowth pressures can negatively impact riverine and estuarine ecosystems(b) Provide guidance as to when specific “tools” (water banks, stormwater, reclaimed water,wastewater recharge, etc.) should be part of strategies to meet existing and future water
supply demands or restore resources(c) Identify critical areas where environmental and human needs may best be met by directinggrowth away from these areas, or by regional water systems where appropriate(d) Finalize the IWRMP Guidance as soon as practicable and include wastewater, watersupply, stormwater, and sustainable development principles that respect the natural
hydrological cycle Massachusetts Water Policy 2004Executive Office of Environmental Affairs12RECOMMENDATION 3: Pursue legislation requiring the use of enterprise accounts to fund operation and
maintenance of infrastructure, stormwater mitigation and other water resource
protection efforts.
Establishing a water-specific enterprise account allows a municipality to plan, operate and undertake
infrastructure maintenance more effectively. The dedicated revenue account can also be useful in
complementing state and federal funding or in addressing
other needs, such as the protection of critical water
resource areas and nonpoint source pollution.Actions(a) Promote enterprise accounts through incentivesand, preferably, through legislation that goes beyond
M.G.L. Chapter 44 Section 53 F ½ to require the
establishment of water enterprise accounts. If
legislation fails, incorporate a requirement in various
permits, grant programs and loans for the
establishment of an enterprise account. As part of the
effort, promote the use of enterprise accounts to help
fund maintenance and repair of leaking water and
sewer system infrastructure, stormwater mitigation
and select supply protection activities.RECOMMENDATION 4:Increase treated wastewater recharge and reuse.
Infiltration and recharge of water and treated wastewater into the ground will help replenish aquifers, enhance
riverine base flows, and maintain healthy flow levels even in high demand summer months. In
Massachusetts, treated wastewater has already been used, though less frequently than in some other states and
parts of the world. The Commonwealth can safely put it to greater use, most cost effectively through on-site
applications. Once the wastewater is treated and free of pathogens and contaminants, this nutrient rich
medium can be used for crops, recreational areas and aquaculture. Treated wastewater can also be used to
augment base flows by direct injection into the ground.
In addition, the state should also encourage appropriate recharge of stormwater. Such efforts can be applied
to new developments as well as retrofitted in existing developments and subdivisions.Enterprise AccountsThe enterprise account in Concord (established
in 1974) provides consistent quality service
with long-range planning and accounting, and
prevents sudden changes in rates in response
to new capital projects. It has been used to
acquire two groundwater well sites, and several
parcels of property to protect groundwater
resources and the watershed around their
surface water supply, Nagog Pond. It has also
been used to build two pumping stations and
an ozonation facility for Nagog Pond, and for
water main replacement.Massachusetts Water Policy 2004Executive Office of Environmental Affairs13Actions(a) Create a working group including DEP, the Office of Technical Assistance (OTA), MAAssociation of Boards of Health (BOH), and representatives of consultancies,
municipalities, and commercial properties to review current treated wastewater disposal
policies and practices and to recommend ways to augment reuse and recharge efforts.Specifically, the working group should encourage communities building new or expanding existing
treatment plants, where feasible, to recharge treated
wastewater into the ground; and commercial and
industrial facilities to reuse their treated wastewater. The
working group should make further recommendations
after:•Researching similar efforts in other states and howeffectively different wastewater treatment
technologies are at removing endocrine disrupters
and pharmaceuticals•Developing criteria to identify sites that are suitable
for groundwater discharge and creating incentives to
use these areas for recharge(b) Recommend that BOHs track and regulate septic system maintenance to extend septicsystem life and maintain proper performance. Furthermore, provide specific
recommendations to guide BOH work after assessing the performance and feasibility of
the SEPTRACK electronic data sharing effort in Buzzards Bay and the septic system
management program in Gloucester(c) Actively promote reclaimed water reuse at specific recreational and institutional venuesand new large development sites•Strongly encourage use of reclaimed water for ballparks, golf courses, and other recreational irrigation
and state maintained properties, as well as for large-scale development projects through MEPA, DEP
permitting, DCS Self-Help and Urban Self-Help grants, and relevant Department of Housing and
Community Development (DHCD) grant programs•Together with developers and environmental consultants, develop guidance documents for
distribution to DHCD and through technical assistanceRECOMMENDATION 5: Promote stormwater recharge close to its site of origin.
Stormwater is a source of water for many surface water bodies. Unfortunately, this same stormwater can also
become a conduit for pollutants from parking lots and other impervious surfaces, to water bodies. The
pollutants – everything from fertilizers to pesticides, salt, bacteria, nutrients, and metals - can cause severe
water quality problems. Stormwater is one of the unfortunate by-products of development and increased
impervious surface. As many of the larger subdivisions come through the Massachusetts EnvironmentalTreated Wastewater ReuseGillette Stadium, Foxborough, reuses its
treated wastewater for flushing its toilets.
The stadium has an on-site wastewater
treatment facility and a leach field capable
of handling 200,000 gpd. In addition it has
a 500,000 gal holding tank for reclaimed
water that provides water for toilet
flushing. The stadium expects to see a
50% savings in water use.Massachusetts Water Policy 2004Executive Office of Environmental Affairs14Protection Act office (MEPA), and as many of the
landscaping and design techniques are well known, MEPA
would be a good venue for recommending the inclusion of
appropriate design practices. The state should also ensure
that existing requirements do not unduly discourage
stormwater recharge and that authority exists for towns that
want to develop local funding options, such as stormwater
utilities.
One of the easiest ways to control the volume and
concentration of pollutants in stormwater is at the source via
natural vegetation. Vegetation can absorb and use excesswater, impede the velocity of the flow, and through the root zone, trap and biodegrade many of the
components in stormwater. Communities should be encouraged to reduce the amount of impervious surface
in new development and to use LID techniques to control stormwater runoff and increase recharge.Actions(a) Provide guidance on appropriate Best Management Practices (BMPs) based on nature ofcontamination and impact, and have DEP finalize its current effort to update the
Stormwater Guidance including an emphasis on increasing infiltration(b) Extend the application of the Stormwater Guidance from wetland to upland areas andencourage stormwater recharge outside areas designated by Phase II of the National
Pollution Discharge Elimination System (NPDES)(c) Have MEPA highlight to project proponents opportunities to incorporate low impactdevelopment (LID) techniques for stormwater management(d) Make recommendations as to the most effective way of promoting the establishment ofstormwater utilities after investigating the Chicopee Stormwater Utility (see also
Recommendation 3)RECOMMENDATION 6: Advance effective management of water supplies.Decisions affecting the amount, location and type of growth in a community are made at the local level. To
maintain sufficient flow levels in the watershed there is a need to outline a clear process for making supply
development decisions that will give preference to those with minimal environmental impacts.Low Impact DevelopmentGeoSyntec Consultants working for Littleton,
Massachusetts has undertaken the restoration
of Long Lake, which has deteriorated due to
stormwater. The watershed contributing to the
lake has been retrofitted with Low Impact
Development techniques such as rain gardens,
vegetated swales, rain barrels, and a
constructed wetland park.Massachusetts Water Policy 2004Executive Office of Environmental Affairs15Clarity of direction and process from the state should be
balanced by greater flexibility to municipalities to manage their
supplies effectively. Specifically, water suppliers should have
greater flexibility to develop redundant sources of water in
order to take overburdened wells offline and undertake
maintenance. (Redundant supplies will be developed within
Water Management Act (WMA) permitted volumes and with
appropriate DEP supervision in order to avoid excessive
withdrawals, which can cause long-term environmental
impairment if they occur during low streamflow periods.)
Exercised properly, this flexibility will allow optimal resource
management that matches the rate and timing of withdrawals
to the natural storage capacity and flow of rivers.Actions(a) Craft a state policy on water supply development in order to promote better long-termplanning and provide clear information to local decision-makers regarding the development
of new water supplies. Because decisions which affect the amount, location and type of growth acommunity undergoes are made at the local level, state actions must focus on setting a clear policy
direction for preferred types of water supply development that cause the least environmental impact,
including the requirement that all communities should meet all existing conservation standards before
pursuing a new source to meet growth demands.•Develop a policy on preferred methods of meeting water supply demands that establishes
conservation as the first source, followed by recharge and reuse of water. The policy should also
consider options that may have the smallest environmental impact, including surface reservoirs,
regional supplies, flood skimming, desalination, and interbasin transfers(b) Review current guidance and practices, and provide guidance for water suppliers on theoptimization of sources so as to:•Actively encourage the optimization of water withdrawals, by allowing multiple water supply sourceswithout increasing withdrawal amounts so
as to balance the rate and timing of
withdrawals from multiple sources•Have communities with rivers showing
significant impact on stream flow from
bank-side withdrawals strongly consider
moving their sources•Provide guidance on the placement of
new wells where their use will reduce the
overall impact to aquatic systems
(including limits on the timing of
pumping)Regional WaterTreatment PlantBraintree, Holbrook and Randolph are
building a single regional facility in
Braintree to supply water to the three
towns. They are considering establishing
a regional water agency that would
increaseefficiency, produce water atlower cost, and have an adequate supply
for the high pressure summer months.Massachusetts Water Policy 2004Executive Office of Environmental Affairs16•Evaluate the benefits and costs of using publicly protected lands (municipal, state) for water supply
and maintenance/optimization purposes•Have DEP define plans for implementation and oversight, including supervision of source
substitution by DEP regional offices, the maintenance of a database at DEP’s central office, and
monitoring of compliance in conjunction with IWRMPsRECOMMENDATION 7: Protect and restore critical land and water resources. The earliest human impacts on Massachusetts’ watersheds were caused by agricultural and industrial
expansion, later by massive timber harvest, damming, and industrial or urban waste disposal, and most
recently by sprawl development. As the pace of growth quickens
on the North and South Shores, the Cape and central
Massachusetts, the state needs to assume a more proactive stance
on water resource protection and restoration.
Given the significant role they play in the management of water,
local and regional water entities can provide expertise to the state’s
efforts to protect land supporting drinking water supplies. In
many cases the priority lands to protect are obvious, such as
municipal water supply lands; in other cases, determining which
priority lands are worthy of protection requires a high level of
analysis and coordination between the state and its partners. By
incorporating the land protection program into Commonwealth
Capital, the state can ensure that localities give due consideration to
sustainable development opportunities and can maximize the
state’s ability to leverage new land use patterns.
Measures are also needed to identify and prioritize aquatic habitat areas. Changes in water quantity and
quality can make rivers unsuitable habitat for fish - especially fish species that naturally occur in rivers. Thestate needs a clear, replicable methodology to identify rivers and streams
in need of restoration and the steps that will attain restoration goals.
Finally, aquatic habitat restoration and protection requires a variety of
tools - enhanced local stewardship of lakes and ponds to protect them
from cultural eutrophication, invasive species, and hydrological
alteration, and facilitated lake restoration efforts. To leverage local, not-
for-profit and private efforts, the state should disseminate for planning
purposes the most up-to-date information on resource management,
restoration and protection.Habitat RestorationHadley Falls, a rare habitat area on
the Connecticut River has been
deprived of streamflow in the summer
months because of diversions. Using
streamflow studies and identifying
biological needs of key fish species,
the Division of Fisheries and Wildlife
was able to help restore minimum
flows and critical fish habitat
to this reach. The summer of 2004
witnessed a come-back of native
fluvial fish.Massachusetts Water Policy 2004Executive Office of Environmental Affairs17Actions(a) Establish a grant program to protect water resources that:•Prioritizes current and future unprotected municipal water supply lands, such as Zone I and Zone II
land areas, aquifers lands, land abutting headwaters (primary order streams), and other riparian
corridors•Identifies acquisition projects that maintain natural filtration capability and can serve as recharge areas•Leverages municipal / external resources and municipal actions to promote sustainable development
by incorporating the program in Commonwealth Capital•Provides extra points for biological integrity, i.e., for land referenced in Living Waters and Bio Map(b) Protect and restore riverine and estuarine habitat by developing a methodology forprioritizing restoration projects•Conduct target fish community assessments for
mainstems and major tributaries as an indicator of
environmental conditions•Define appropriate fish community and habitat for
small streams using Indices of Biological Integrity (IBI)•Consider undertaking a geomorphic analysis to indicate
target river structure (See Appendix A-2)•Continue efforts to reduce local impediments to
movement of fish, wildlife and other aquatic life
requiring stream passage by maintaining the River
Continuity project(c) Disseminate information on resource management, restoration and protection, integratingLiving Waters and Biomap into planning efforts and providing technical support on lakes
and ponds issues•Advance an education and outreach effort to landowners, local decision-makers, Conservation
Commissions, developers, watershed associations, and stream teams about the importance of Core
Habitats and Critical Supporting Watersheds and ways to protect them•Incorporate Living Waters education into state programs that work with volunteers, such as RiverwaysRIFLS, Adopt-A-Stream and River Continuity•Support the lake and pond technical review group
recommended by the Citizen Advisory Committee for the
Lake GEIR, currently convened by DCR, as a central point
of reference to facilitate the review of lake management
project proposals, dissemination of lake protection and
management information, and to assess lake and pond
management and restoration techniques and measures not
evaluated in the GEIR•Inform municipalities, private land conservation
organizations, and private landowners of the need to protect
the lakes and ponds and the tools available to protect themMassachusetts Water Policy 2004Executive Office of Environmental Affairs18RECOMMENDATION 8: Promote sustainable development, timely maintenance of old infrastructure
(Fix-It-Early), and the protection of priority water resources through refinements to the Clean Water (CW) and Drinking Water (DW) State Revolving Fund (SRF).
The CW and DW SRF’s programmatic objectives are to promote public health, compliance and access to
affordable water. Keeping those objectives in mind, the program’s loan application can be refined to
promote broader sustainable development and maintenance goals. Recognizing the significance of
development that reduces non-point source pollution, the protection of parcels critical to supply, water
quality, and wildlife habitat, and other state water policy goals, DEP is currently incorporating a greater
consideration of sustainable development into the SRF criteria.
In addition, there are water resource management and fiscal reasons to focus on changes that will render
municipal initiatives and the SRF program more effective in addressing crucial water infrastructure projects.
Across the Commonwealth, water pipes and treatment plants are relatively old. In the coming decade, the
many treatment plants constructed in the seventies will also require substantial updates and investments.
Given the long list of communities applying for SRF loans, it is likely that many will not be able to undertake
needed repairs. (Recommendation 3 identifies water enterprise accounts as a strategy that will extend the
reach of SRF dollars, while Recommendation 1 calls for the development of a policy on infrastructure
maintenance and repair.)Actions(a) Adjust the DW and CW SRF criteria to promote development in downtown areas, previouslydeveloped areas and “new growth centers,” making sure to involve communities, the
Environmental Protection Agency (EPA), the development community, and others•OCD agencies, in collaboration with the Massachusetts Municipal Association, Regional Planning
Agencies, and watershed associations, should provide technical assistance to ensure that the additional
sustainable development criteria are not burdensome for communities within regional water
authorities or without adequate planning resources.(b) Encourage ongoing maintenance of existing wastewater and water infrastructure by givingpreference or evaluation points to communities fixing old infrastructure priority in state
grants and permits (over those seeking expansions), or using year-end slippage in the
program (approximately $20 million) to fund exclusively Fix-It-Early projectsMassachusetts Water Policy 2004Executive Office of Environmental Affairs19RECOMMENDATION 9: Develop clear guidance and planning materials (including the “Growing Smarter
Toolkit”) to help municipalities, developers and consultants advance development
that reduces negative impacts on the environment. Also, provide a single point
of contact for technical assistance on permits requiring multiple agency review,
environmentally-friendly development strategies, fast-tracking, and resource
protection strategies within EOEA.
Communities develop differently and at different rates. Often communities barely have time to plan how
to grow much less learn from other communities. Many new techniques have been developed across the
country and in Massachusetts that are useful in planning for development in environmentally sensitive ways.
Advancing sustainable development projects will require a cooperative approach that involves municipalities,
developers, consultants, and the state, and, therefore, the development of clear guidance (the “Growing
Smarter Toolkit,” elements listed below) and incentives.
In addition, technical assistance and a coordinated permit process will enhance a proponent’s ability to obtain
appropriate permits in a timely manner and avoid costly and unnecessary delays. When environmental
permits involve more than one agency, that coordination is best housed in EOEA, as EOEA can bring
together the various agencies and harmonize their timelines. Technical assistance to promote the broader
environmental agenda of sustainable growth is also best located in EOEA as the agenda involves regulatory,
recreational, agricultural, and wildlife related issues, as well as issues related to other OCD agencies.
Provision of technical assistance will be more effective if it is coordinated with various external partners.Actions(a) EOEA should develop information, outreach andrelevant technical assistance strategies for
municipalities, water suppliers, developers, and
consultants as they relate to water issues and
sustainable development. The “Growing Smarter
Toolkit” should include but not be limited to
outreach materials on:•Water budgets, data, assessments, and monitoring
efforts (the science) in watersheds•State water policy documents, reports, permitting data,
etc., in one portal•Definition of Best Management Practices (BMPs)•Case studies on Pinehills and developments undertaken
in coordination with the Green Neighborhoods Alliance•Stormwater by-laws that encourages reduction in storm-water runoff•By-laws such as Open Space Residential Design (OSRD) and Open Space Mixed Use District
(OSMUD), which preserve open space and natural resources by clustering development away from
those resourcesSmart GrowthPinehills is a planned open-space mixed-
use development in Plymouth,
Massachusetts, which is an alternative to
standard grid subdivisions. It serves as
one example of cluster design based on
preservation of natural features, reduction
of impervious surfaces, water
conservation, wastewater reuse, and
historic preservation.Massachusetts Water Policy 2004Executive Office of Environmental Affairs20•Zoning ordinances which incorporates green
building standards (LEEDs) for certain sizes and
types of structures•The adoption of LID techniques, especially in areas
around wetlands and rivers•Information packet for developers based on national
LID brochure produced in cooperation with the
National Home Builders Association•Materials on non-acquisition strategies (model zoning, by-laws and ordinances, and various
partnerships) available for municipalities to protect critical water resources, such as headwaters, Zone
IIs, aquifers critical for source water and recharge, significant soils, slopes, riparian buffers, etc.•Information on sustainable development and incentives available to developers (complementary
grants to municipalities, fast-track “sustainable development” criteria, etc.)(b) Seek legislative approval to expand the mission of OTA from that of providing technicalassistance exclusively to businesses to include technical assistance to communities,
developers and consultants(c) Create a working group led by EOEA and including its agencies and interested parties tocreate a coordinated process for permits requiring multiple agency review, resulting in a
single application, and concurrent, predictable timelines•Set up pre-application framework to discuss
feasibility and point out probable issues early -
e.g., for significant municipal/regional projects,
hold an initial meeting prior to MEPA
submission that involves all permitting
authorities and local interests so as to put all
issues on the table•Maintain current permit authority, but
coordinate timelines and identify permitting, plan
approval, and process redundancies so as to
reduce duplicative processes and advance multi-
agency coordination. Work to establish a
consistent time period [e.g. 60 days] for
interested parties to send in comments and
concerns and providing communities the option
of posting a pre-permitting notice in the Environmental Monitor•Clarify regulatory roles of state and local players (e.g., of Conservation Commissions)•Define interaction with pertinent non-EOEA agencies (the US Army Corps of Engineers, Mass
Historical Commission, Mass Highway, etc.) regarding relevant project permits and impacts through
such vehicles as memoranda of understanding (MOU)•Develop model contracts for consultants to use with water suppliers•Start with New Source Approvals but also address permitting bottlenecks as regards important
environmental goals (e.g., dam removals)Dam RestorationLed by Riverways (DFG), partnerships between
dam owners, non-profit conservation groups,
corporate sponsors, state and federal agencies
have resulted in breaching on the Old Berkshire
Mill dam, the Billington Street Dam and the Silk
Mill Dam. This has doubled the amount of high
quality trout habitat, freed stream passage of
alewives, and restored five miles of
free-flowing habitat for Atlantic salmon and trout
respectively.Massachusetts Water Policy 2004Executive Office of Environmental Affairs21(d) Assign OTA staff to act as Ombudsmen on permits requiring multiple agency review andcoordinate permits for applicants and provide coordinated, consistent, and unbiased
technical and regulatory assistance to municipalities from the pre-planning to permit stage(e) Provide robust interaction and clear guidance to suppliers, localities, developers, andconsultants on performance standards, permit information, policies, and reports generally,
and on the Growing Smart Toolkit, Fast-Tracking, and non-acquisition land protection
strategies. Include efforts to involve external partners such as watershed associations,
regional planning agencies, consultancies and developersRECOMMENDATION 10: Take advantage of the new OCD structure to advance more effective
planning with Mass Highways and other development agencies.Improved coordination with other OCD agencies, within EOEA’s own agencies, and with externals—
whether municipalities and Conservation Commissions, other federal government partners, or non-profits—
is crucial in order to ensure that we are taking advantage of new opportunities to protect and restore aquatic
habitats, that we are maximizing the work we can get done with the dollars we have, and that we are in a
systematic manner communicating about permit issues and regulatory changes within EOEA.
The quality and quantity of fish habitat can be markedly reduced when roads and rivers come together. This
can be avoided in many instances if consideration of design
improvements that could alleviate many impacts on riverways,
fish and aquatic habitat were incorporated into construction and
maintenance projects. As the state repairs its roads, as
MassHighway and other agencies implement the Fix-It-First
policy, and as new projects are undertaken in response to
development pressures, particularly in the central and western
part of the state, better design and maintenance guidance can be
helpful in addressing environmental issues related to road/water
crossings and habitat along highways.
At the thousands of locations streams and rivers within the Commonwealth are crossed by roads, artificial
barriers such as (metal and some concrete) culverts and bridges. These, if designed incorrectly, create barriers
to migration of fish (and wildlife), fragmenting fish habitat. Fragmentation of habitat leaves segmented
populations ill equipped both physically and behaviorally to move through these structures, make them more
vulnerable to external disturbances, reduces gene flow within the body of water, leaves important spawning
and rearing habitat beyond the reach of migratory species, and may ultimately eliminate species that should be
found in that particular body of water.Massachusetts Water Policy 2004Executive Office of Environmental Affairs22Actions(a) Form a working group to draft a BMP guidance document for habitat lands next toroadways for existing strips of land between roads and nearby rivers to promote resource
areas for shade, nutrient absorption and habitat value to rivers and streams, including:•Prompt sand sweeping and recovery practices•BMPs to control runoffs on existing roads•Steps to control invasive plants along right-of-ways(b) Enhance Division of Fisheries and Wildlife (DFW) coordination with MassHighway onroad/water crossings to:•Offset project costs and maximize the use of existing federal grant programs that support fish passage•Develop crossing standards / guidance for project design and a GIS crossing database(c) Work with MassHighway to involve the DFW early in the design of roadways where aroad/water crossing occurs such that:•DFW can review Transportation Improvement Project lists for fish and wildlife passage concerns and
promote new structures, retrofits, and designs that meet Target Fish Community passage needs•MHD avoids, where feasible, enlarging roads that share the flood plain with a river and increasing the
length of armored riverbank•MHD uses infiltration and retention structures to control road runoff and weighs relocation of roads
away from rivers when the environmental impacts to the river and the costs of periodic maintenance
to the roadbed make this a viable optionFinally, in order to improve coordination among its agencies and to promote implementation of this policy,
EOEA will create an interagency group composed of key water staff. The interagency group will coordinate
capital planning, data gathering, assessment and monitoring, information sharing related to regulation and
permitting, and outreach to and collaboration with external partners, such as the WRC, watershed
associations, municipal groups, universities, the USGS, and others.Massachusetts Water Policy 2004Executive Office of Environmental Affairs23DataThese new data gathering and assessment efforts will support the recommendations outlined above:(a) Expand the current “Stress/ Flow” framework definitions developed by the WRC, establish
“water budgets,” and move gradually and systematically toward updating the standards to
reflect and integrate the relationship between water quantity, quality and the protection of
existing and designated uses. This policy suggests that the stress framework would meet communities’need for clear guidance on how to meet future water supply and wastewater needs while protecting and
restoring water resources. The first step is to provide communities with a baseline of information on
availability of resources, existing and future demands and environmental standards that need to be met on a
community and watershed scale. By combining standards for streamflow and habitat protection with
assessments of potential need and resources, the state can provide a clear picture in the form of a watershed
budget that guides decisions at the state and local level. Informing decisions early on in the project proposal
process ultimately leads to a more efficient and predictable permitting system. Quantifying the degree to
which stressed areas are out of balance allows for projects to be adjusted or to go forward with mitigation.Actionsi. Assemble the data that will provide the basis for greater considerations of flow in regulations (e.g.,WMA) and approvals (e.g., IBTA)ii. Complete the Water Asset Management (WAM) studies for the entire state
iii. Through the Streamflow Standards Task Force and the USGS cooperative program develop streamflowstandards for each watershed (sub-basin)iv. Build “water budgets” for watersheds from the WAM and streamflow standards
v. Refine the different stress levels in order to allow for incentives and triggers to be developed for planningand actions before basins become stressedvi. Focus information dissemination and outreach efforts on providing information about natural streamflow to all players (water suppliers, municipalities, etc.)(b) Gather data on target fish and fish communities and develop a methodology for using
target fish as an indicator of environmental conditions and as targets for restoration. Fishcommunities are a reflection of the health of the entire ecosystem and can be monitored to evaluate and
measure restoration progress and success. This recommendation describes a scientific process developed by
DFG to analytically assess aquatic resources in the Commonwealth, identify those resources that are in the
most need of restoration and conservation, and ultimately protect the biological integrity of fish, wildlife and
aquatic resources at the watershed level.Actionsi. Gather information from Conservation Commissions to update cold water resources
ii. Finish regional development of Target Fish Communities for mainstems of watersheds
iii. Conduct fish community and habitat analysis for small streams using IBIMassachusetts Water Policy 2004Executive Office of Environmental Affairs24Implementation of RecommendationsREC # ACTION RESPONSIBLE PARTY PARTNERS1Create a Stress FrameworkaDefine a Stress Framework that includes increasing efficiency of water usebDefine performance based mitigation strategiescRevise and update Water Conservation StandardsdDevelop policy on maintenance and repair of infrastructureWRC (via Task Force orSubcommittees)DCR, DEP, USGS,WatershedAssociations2Help communities meet water needs via watershed solutions based on water
budgetsDCR, DEPaFrom water budgets, study and identify areas where net losses of water could
negatively impact ecosystemsbUse tools to meet existing and future supply demandscIdentify critical areas where water needs are best met by directing growth away or
by regional water systemsEOEA, WRCdFinalize the Integrated Water Resources Management Plan (IWRMP) GuidanceDEP3Develop policy and pursue legislation requiring use of enterprise accounts
for objectives such as infrastructure maintenance and improvements,
stormwater mitigation, etc.EOEA4Increase treated wastewater recharge and reuseaReview current wastewater disposal policies and practices and recommend
recharge and reuse; research efforts in other states; identify suitable sites for
recharge; create incentivesWRC, DEPUniversities, DARbRecommend Boards of Health track and regulate septic system maintenanceEOEA,DPHcActively promote reclaimed water reuseWRC, DEPiEncourage use in ballparks, golf courses, for recreational irrigation, state
maintained properties, large scale developmentDCSiiDevelop guidance for distribution to DHCD interacting with developers,
consultants, municipalitiesMassachusetts Water Policy 2004Executive Office of Environmental Affairs25REC # ACTION RESPONSIBLE PARTY PARTNERS5Promote stormwater rechargeaProvide guidance on appropriate BMPsDEPbExtend current guidance from wetlands to upland areas and beyond Phase II areasDEPcMEPA recommend incorporation of LID techniques for all projectsMEPAdPromote establishment of Stormwater UtilitiesDEPLID Task Force,MMA, WatershedAssociations,MACC, MHD,OCD, DAR6Advance effective water supply managementaCreate a state policy on water supply developmentWRCbPromote optimization of water withdrawalsEOEADEP, DCR,NEWWA/MWWA7Protect and Restore critical land and water resourcesaEstablish a grant program to protect critical land and water resourcesEOEAProtect priority lands that protect water supply lands, Zone I, II etc.Coordinate aquifer protection program with Commonwealth CapitalbProtect and Restore Riverine and Estuarine habitatWatershedAssociationsDevelop methodology for prioritizing restorationTarget Fish Community assessments for mainstems and major tributariesDefine fish community and habitat for small streams using IBIDFGDetermine target river structureContinue River Continuity pilot projectcDisseminate information on restoration, protection; Protect habitats by
implementing and integrating Living Waters and BioMapDFGAdvance outreach and education and inform municipalities, landowners and
organizations about tools to critical habitatsIncorporate Living Waters into State ProgramsSupport technical review group recommended by Citizen Advisory Committee
for Lake GEIRAdvance an education and outreach effort to landowners and local decision
makers-Conservation Commissions, planners, developers, WAs, stream teamsDFG, VendorMassachusetts Water Policy 2004Executive Office of Environmental Affairs26REC # ACTION RESPONSIBLE PARTY PARTNERS8Promote sustainable development & Fix-it-Early through CW and DW SRF
loan programsEOEA, DEPaEncourage ongoing maintenance of water and wastewater infrastructurebAdjust applications to revise caps on new capacity in targeted areas and reduce
extensionscProvide technical assistance and do outreach to stakeholders via OCD and its
agenciesOCDdRequire adequate metering of wastewater between system and userseConsider requiring enterprise accounts as part of SRF application9Provide guidance to help municipalities advance development with reduced
negative impacts on the environment. Provide single point of contact for
technical assistance on permitting, development strategies, fast tracking,
resource protectionEOEADARaDevelop informational packet and technical assistance for towns on:iStormwater and developmentiiNon-acquisition protection strategies for water resources, model zoning, by-
laws, ordinancesiiiRedesign and distribute LID brochureLID sub-committeeHomebuildersAssociationivDevelop certification programRPAAPAvWater issues - budgets, data, assessment, monitoring; centralize all
documents, reports, dataOngoingviSustainable development and smart growth - on OCD, EOEA, MEPA websites;
online brochures for developersOCD, EOEAbSeek legislative approval to expand OTA missionEOEA, OTAcAssign staff to coordinate permits and provide technical and regulatory assistance
from pre-planning to permit stage. Define pre-application process, coordinate public
comment periods, develop consistent timelines for permits through a working groupEOEAiCreate working group through IWC to setup pre-application frameworkMassachusetts Water Policy 2004Executive Office of Environmental Affairs27REC # ACTION RESPONSIBLE PARTY PARTNERSiiDefine interaction with pertinent non-EOEA agencies on permitsiiiCoordinate timelines, identify permitting, plan approval, single EIR process
redundancies, reduce duplication, advance multi-agency coordinationivImprove New Source approval processdAssign EOEA staff to act as OmbudspersonEOEAeProvide guidance on Growing Smart Toolkit, fast-tracking, non-acquisition land
protectionEOEA, OTA10Advance effective planning with Mass Highways via OCDOCD, DOT, DFGaForm working group to draft BMPs for habitat lands next to roadwaysDFGbImprove DFW coordination with MassHighways on road/water crossingscWork with MH to involve DFW early in design of roadways near crossings, and
abutting habitat landsDATA NEEDS aExpand Stress Framework definitionsWRC staffAssemble flow data that can be used in regulationsComplete water assets studyDevelop streamflow standards for each basinBuild water budgets for each basin/sub basinRefine the different stress levelsDo outreach and provide information on natural flowsbCollect data on target fish communities and develop methodology for
establishing restoration targetsDFGGather information from Conservation Commissions to update cold water
resourcesComplete regional development of target fish data for key watershedsConduct fish community and habitat analysis for small streams using IBIMassachusetts Water Policy 2004Executive Office of Environmental Affairs28Implementation SchedulePHASE IPHASE IIPHASE IIIFiscal 05Fiscal 06Fiscal 07Fiscal 08No.ACTIONJan-05Jul-05Jan-06Jul-06Jan-07Jul-07Jan-08 Jul-081Create a Stress FrameworkWRC / DCR2Meet water needs based on water budgets WRC / DCR3Use of enterprise accountsEOEA4aIncrease treated wastewater recharge and
reuseWRC / DEP4bTrack septic system maintenanceEOEA4cPromote reclaimed water reuse WRC / DEP5a+b Stormwater BMP guidance DEP5cIncorporation of LID into MEPA projectsMEPA5dEstablish stormwater utilitiesEOEA6aPolicy on water supply development WRC6bOptimization of water withdrawals DEP / DCR / NEWWA / MWWA7aGrant program for critical land and water
resourcesEOEA7bMethodology for restoration of habitatDFG7cIntegrate Living Waters and BioMap into
planning; lake and pond restorationDFG8Promote sustainable development and Fix-it-
Early through CW and DW SRFDEP9aDevelop technical assistance to townsEOEA9bExpand OTA missionEOEA / OTA9cCoordinate permits; provide regulatory
assistanceEOEA / permitting
agencies9dEOEA staff act as OmbudspersonEOEA9eGrowing Smarter Toolkit, fast tracking, etc.
guidanceEOEA / OTA10Planning with Mass HighwaysOCD / DOT / DFG /
MassHighwaysDATAaStress FrameworkWRC / DCRbTarget fish and methodology for restoration
targetsDFG / DFWMassachusetts Water Policy 2004Executive Office of Environmental Affairs29APPENDIX A: For Future ConsiderationRECOMMENDATION A-1:Pilot watershed permittingDEP should pilot a watershed permitting scheme that seeks to take into account the interrelationship of and
the cumulative impacts of permits so as to coordinate water (WMA), stormwater (Stormwater Phase II) and
wastewater (NPDES) permits throughout the watershed. Making use of lessons learned from the pilot, over
the following year DEP should develop a process and regulatory changes in order to standardize “watershed
permitting” on a wider basis.
The ideal situation for permitting decision would be one that is coordinated and takes into consideration the
larger watershed perspective. Such a pilot should be undertaken in either an easy-to-manage watershed (with
few issues and concerns) or in a watershed with a lot of data, such as the Ipswich River Watershed. In either
case, the pilot could be undertaken together with a watershed association and a case study should follow
drawing together “lessons learned”.Actions• Determine data and measurements that are not currently in hand (ex., waste load allocation, etc.)
• Identify an appropriate watershed for the piloting of this effort. A discrete pilot in an easy to managewatershed should be explored, as it could provide lessons of interest across the stormwater, wastewater
and water supply planes• Interest a not-for-profit (university or environmental advocacy group) to study the pilot forenvironmental outcomes and workability (cost, staffing, time to permitting, etc. for agencies and for
regulated parties)Partners: DEP, DCR, non-government agencies, universitiesRECOMMENDATION A-2:Provide a quantifiable target river structure study to help
prioritize restoration actionsThe increasing intensity of development in Massachusetts has altered the natural flow regime and sediment
load of many rivers, creating unstable river channels. These changes cause erosion and sediment pollution
and result in the loss of aquatic habitat.Tobetter understand the stream processes that govern river channelstability, and hence to provide a better target restoration in these reaches, a physical habitat assessment
(geomorphic) of our rivers is needed. Results of this study will enable the Commonwealth, local
municipalities and other proponents and decision-makers to apply quantifiable targets to restore impaired
river corridors and essential habitat for aquatic communities.Massachusetts Water Policy 2004Executive Office of Environmental Affairs30Actions• To describe the expected physical structure of stable rivers in each watershed in the state, determineregional curves of river channel hydraulic geometry• Develop a target river habitat structure in each watershed using river cross-sectional surveys and habitatdata from reference reaches• Identify a flow regime and accompanying river structure that is achievable in both an urban and suburbansetting. Establish stable habitat restoration targets over a range of watershed development levelsPartners: Riverways (lead), DFW, DEP, DCR, USGS, FEMA, US Fish and Wildlife Service, EPA,universities and nonprofit partners.Massachusetts Water Policy 2004Executive Office of Environmental Affairs31Appendix B: GlossaryAdopt-a-Stream: is one of the Riverways (DFG) programs that supports groups who want to "adopt" ariver or stream by working to improve water quality and protect lands adjacent to rivers.http://www.mass.gov/dfwele/river/rivaas_toc.htmBiomap:is an EOEA publication that guides land conservation for biodiversity in Massachusetts byidentifying those areas most in need of protection.http://www.mass.gov/dfwele/dfw/nhesp/nhbiomap.htmBMP: Best Management PracticesCommonwealth Capital: an effort across all OCD agencies to coordinate capital expenditures with thepurpose of providing incentives to municipalities to promote high-density growth, limited traffic and
environmental impacts, and the protection of open space and critical natural resources.http://www.mass.gov/ocd/comcap.htmlConservation Commission: Massachusetts Association of Conservation Commissionshttp://www.maccweb.org/CZM: Massachusetts Office of Coastal Zone Managementhttp://www.mass.gov/czm/czm.htmDCR: Department of Conservation and Recreationhttp://www.mass.gov/dcr/DEP: Department of Environmental Protectionhttp://www.mass.gov/dep/dephome.htmDFG: Department of Fish and Gamehttp://www.mass.gov/dfwele/dpt_toc.htmDPH: Department of Public Healthhttp://www.mass.gov/dph/FEMA: Federal Emergency Management Agencyhttp://www.fema.gov/GEIR: Generic Environmental Impact Report – The Practical Guide to Lake Management in Massachusettshttp://www.mass.gov/dcr/waterSupply/lakepond/lakepond.htmI / I: Infiltration and Inflow is extraneous water that enters the wastewater collection system through a varietyof sources. It may either be groundwater that seeps into the infrastructure via cracks or joints (infiltration) or
it can originate from a point source like stormwater runoff, drains, sump pumps, manhole covers (inflow),
etc.IBI: Index of Biological Integrity assesses the biological integrity of a habitat using samples of livingorganisms to evaluate the consequences of human actions on biological systems.IWRMP: The Integrated Water Resources Management Plan evaluates current and future wastewater andwater supply needs, assesses natural resource issues, identifies tradeoffs, and develops wastewater
management alternatives to meet current and future needs.http://www.mass.gov/dep/brp/mf/files/fpintro.htmLEED: The Leadership in Energy and Environmental Design (LEED) Green Building Rating System is avoluntary, consensus-based national standard for developing high-performance, sustainable buildings.http://www.usgbc.org/leed/leed_main.aspLID: Low Impact Development is an approach to environmentally friendly land use planning. It includes asuite of landscaping and design techniques that attempt to maintain the natural, pre-developed ability of a site
to manage rainfall.http://www.mass.gov/envir/lid/default.htmMassachusetts Water Policy 2004Executive Office of Environmental Affairs32Living Waters: is an EOEA publication that guides and promotes the strategic protection of freshwaterbiodiversity in Massachusetts.http://www.mass.gov/dfwele/dfw/nhesp/nhaqua.htmMEPA: Massachusetts Environmental Policy Act is an agency of EOEA.http://www.mass.gov/envir/mepa/index.htmMOU: Memorandum of UnderstandingMRIP: Municipal Recycling Incentive Programhttp://www.mass.gov/dep/recycle/cities.htmNPDES:National Pollution Discharge Elimination Systemhttp://www.mass.gov/dep/brp/npdes/surfabou.htmOCD: Office of Commonwealth Developmenthttp://www.mass.gov/ocd/OSMUD: Open Space Mixed Use DevelopmentOSRD: Open Space Residential Designhttp://www.greenneighborhoods.org/site/Index.htmOTA: Office of Technical Assistancehttp://www.mass.gov/ota/Regional Planning Agencies:http://www.pvpc.org/marpa/html/marpa_index.htmlRIFLS: River Instream Flow Stewards program at Riverways (DFG) helps local groups identify, documentand restore rivers and streams suffering from abnormally low flows.http://www.mass.gov/dfwele/river/rifls/rifls_home.htmlRiver Continuity: is a Riverways program at DFG aimed at reducing local impediments to movement offish, wildlife and other aquatic life, which require instream passage.http://www.mass.gov/dfwele/river/rivercontinuity.htmSEPTRACK: is a software package that enables each Board of Health to better track septic system permits,inspection and maintenance information in order to better protect public health and theenvironment.http://www.buzzardsbay.org/septrfct.htmStormwater Phase II:

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