United States
Environmental Protection
Agency
Office of Water
(4504F)
EPA 842-F-95-001B
September 1995
vvEPA
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Demonstrating Practical Tools For Watershed
Management Through The National Estuary Program
Characteristics:
• The Buzzards Bay water-
shed includes 228 square
miles, with nearly 236,000
people living in its drainage
basin.
• Buttermilk Bay, located at
the north end of Buzzards
Bay, is a tidal embayment
where many residents and
visitors enjoy shellfishing,
sun bathing, boating, and
recreational fishing.
• Much of Buttermilk Bay's
19 square mile drainage ba-
sin is undeveloped, with
some homes and businesses
located along the coast.
Massachusetts
Cape
Cod
Bay
The Problem: Recurring high fecal
coliform levels have resulted in periodic
closure of Buttermilk Bay and its
beaches to shellfishing and recreational
activities. At the start of this project,
the entire Buttermilk Bay was closed to
shellfishing due to the high fecal
coliform levels.
The Project: The Buttermilk Bay Demon-
stration Project was designed to control the
discharge of fecal coliform into the bay.
Project objectives included identifying
sources of fecal coliform, employing Best
Management Practices (BMPs) to control
runoff, and implementing local regulations to
control coliform input.
tLstuaries and other coastal and marine waters are national
resources that are increasingly threatened by pollution, habitat
loss, coastal development, and resource conflicts. Congress
established the National Estuary Program (NEP) in 1987 to
provide a greater focus for coastal protection and to demon-
strate practical, innovative approaches for protecting estuaries
and their living resources.
As part of this demonstration role, the NEP offers funding
for member estuaries to design and implement Action Plan
Demonstration Projects that demonstrate innovative approaches
to address priority problem areas, show improvements that can
be achieved on a small scale, and help determine the time and
resources needed to apply similar approaches basinwide.
The NEP is managed by the U.S. Environmental Protection
Agency (EPA). It currently includes 28 estuaries: Albemarle-
Pamlico Sounds, NC; Barataria-Terrebonne Estuarine Complex,
LA; Barnegat Bay, NJ; Buzzards Bay, MA; Casco Bay, ME;
Charlotte Harbor, FL; Columbia River, OR and WA; Corpus
Christi Bay, TX; Delaware Estuary, DE, NJ, and PA; Delaware
Inland Bays, DE; Galveston Bay, TX; Indian River Lagoon, FL;
Long Island Sound, CT and NY; Maryland Coastal Bays, MD;
Massachusetts Bays, MA; Mobile Bay, AL; Morro Bay, CA;
Narragansett Bay, RI;New Hampshire Estuaries, NH; New York-
New Jersey Harbor, NYandNJ; Peconic Bay, NY; Puget Sound,
WA; San Francisco Bay-Delta Estuary, CA; San Juan Bay, PR;
Santa Monica Bay, CA; Sarasota Bay, FL; Tampa Bay, FL; and
Tillamook Bay, OR.
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Along the western shore of Cape Cod in southeastern Mas-
sachusetts lies a 28-mile long body of water known as Buzzards
Bay. With 210 miles of shoreline, the bay's beautiful, ragged
coast provides many opportunities for fishing, boating, and sun
bathing. The bay's diverse habitat of salt marshes, eelgrass beds,
and tidal streams lends itself to the support of numerous animal
species such as muskrat, great blue herons, and Canadian geese.
The harbors in Buzzards Bay, scattered along the 11 miles of
public beaches, are used for shellfishing, swimming, and other
recreational activities.
Buzzards Bay is still considered a relatively healthy water-
way. However, the diversity and vitality of the ecosystems and
recreational qualities of Buzzards Bay and of specific tidal
embayments, such as Buttermilk Bay, are threatened by increas-
ing amounts of contamination. Pollution associated with rapid
residential development, industrial wastes, and sewage contami-
nants, such as fecal coliform, contributes to the loss of habitat
and the decline of water quality and related water activities in-
cluding shellfishing and swimming.
JD uttermilk Bay is a small tidal embayment located in the
towns of Bourne and Wareham, Massachusetts, at the north end
of Buzzards Bay. In 1984, Buttermilk Bay was closed to
shellfishing due to high fecal coliform levels. Since that time,
portions of the bay have been reopened for shellfishing, only to
be closed again due to recurring high fecal coliform levels. Fe-
cal coliform bacteria, present in the fecal matter of warmblooded
animals, are indicators that human pathogens may be present.
In 1988, EPA joined forces with the Massachusetts Execu-
tive Office of Environmental Affairs, Barnstable County Health
and Environmental Department, the Buzzards Bay Project, and
Boston University to plan and implement a restoration and pro-
tection project in Buttermilk Bay. Buttermilk Bay was selected
as the demonstration project site because of its similarity to
other tidal embayments in the region. These similarities will en-
able other citizens and local governments in the region to apply
the knowledge gained concerning sources, effects, and mitiga-
tion of fecal coliform pollution in estuaries.
Ji he objective of the Buttermilk Bay Project was to create
and implement a management plan for the control of coliform
entering the bay. The project included the implementation of:
• Techniques to demonstrate stormwater control.
* Beach cleanup.
• Oilier best management practices for other city improve-
ments.
• Public education activities.
A 1985 study of water quality in Buttermilk Bay produced
an inventory of sources of fecal coliform, which included storm
drains, septic systems, wildlife waste, marina discharges, and
freshwater inputs (streams, marsh areas). The inventory showed
that closure of the shellfishing areas was often required follow-
ing periods of rain due to contamination by pollutants in
stormwater runoff. The survey illustrated that storm drains were
the greatest source of fecal coliform bacteria.
It was also discovered that beach wrack, which is decaying
grass and algae, seemed to provide a "home" for fecal coliform
by providing protection and promoting growth. Once the primary
pollution sources had been identified, the first step in implement-
ing the project was to develop techniques and management
practices that would reduce or eliminate coliform inputs.
Nip jjjfei"".. .-• .,, L i, N,|l;;jiiilljjiihiii|,ili ft KJWH-sjiAi,: a^ .d! LJ | ••*»• i, ;,j|J,! il' •
IStormwaterContrQl,
L/f the approximately 30 storm drains that discharge into
Buttermilk Bay, the storm drains at Electric Avenue Beach in the
City of Bourne, and at Red Brook in the City of Wareham, were
chosen for inclusion in the demonstration project. These two
sites were selected based on their high fecal coliform contamina-
tion counts. Local officials and residents supported treatment of
the stormwater discharge as a way to improve water quality and
enhance the communities' enjoyment of the bay's natural re-
sources.
About 8 acres of residential area drain to Electric Avenue
Beach. A storm drain outlet pipe, visible from the public beach
at low tide, discharged stormwater from the watershed directly
into the bay. Stormwater also traveled to the bay through
sheetflow at the end of a public boat ramp.
Construction of the Electric Avenue Beach stormwater con-
trol system began in 1989 and was completed in 1990. The con-
trol plan was aimed at diverting stormwater to three separate
treatment systems. The idea behind each design was similar:
• Divert the water to low areas where catch basins or, in the
case of the boat ramp, a collection trench, were located.
• Pipe the collected stormwater to a gross particle separator
where suspended grit and solids settled out due to the de-
creased water flow velocity.
• Discharge the remaining liquid to nearby leaching pits
filled with crushed stone which provide additional treat-
ment by straining out both fecal coliform and other poten-
tial contaminants.
• Periodically clean out the particle separator units and prop-
erly dispose of the solids.
A second stormwater treatment system using a detention-re-
charge basin is planned at Red Brook. The project was on hold
while an investigation of the area's archeological resources was
completed. A new site has been selected and the project is
awaiting design. In the interim, vegetative swales have been
built along the waterway to filter stormwater. As the
stormwater flows through the grass and is absorbed into the
ground, the vegetation and soil act as natural filters. This
method is successful in removing fecal coliform bacteria and in
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STORMWATER CATCH BASIN DESIGNS IN
BUTTERMILK BAY
ELECTRIC AVENUE SYSTEM _ ;
Electric Avenue . . ":
- " -••—.«,^ —
^ Catch Basin
El Gross Particle Separator
H Distribution Box
H Leaching Chamber
Parking Lot _,.:_:^..v
Pipe transporting
stormwater runoff
Buttermilk Bay
RED BROOK SYSTEM
Maintenance Right-of-Way'
Inlet
Runoff Bleeds through
Riprap to Basin Floor
Water Surface Elevation
Inflow
Riser w/ Hood
Embankment
Barrel
Riprap outfall
Protection
Emergency Spillway
Embankment
^ Emerg. Spillway Elevation
Embankment
Riprap Apron also Serves J
to Trap Sediments Exfi|tration
Storage
reducing concentrations of other pollutants such as metals, pesti-
cides, and hydrocarbons.
Beach Wrack Removal
.Although beach wrack is not the major contributor of fecal
coliform to the bay, it does appear to aid in the survival and
growth of coliform bacteria. The residents of the Buttermilk
Bay area displayed a shared commitment to their environment by
volunteering to participate in beach wrack cleanup at several
beaches. Eager to help restore the vitality of their neighborhood
environment, over 3,000 residents applied a hands-on approach
to fighting fecal coliform pollution in Buttermilk Bay.
To determine the effectiveness of the beach wrack removal
project, the coliform levels of outgoing tides were measured at
one site. The results indicated a distinct reduction in coliform
bacteria counts after the beach wrack was removed. Although
the cleanup effort was a success, the demonstration project
showed that this method of bacteria reduction was extremely la-
bor intensive and it was not continued as a management practice.
J. he Buttermilk Bay Demonstration Project also helped
implement best management practices as a part of other city im-
provements. For example, the citizens of Wareham and Bourne,
with the help of the Buttermilk Bay Demonstration Project, the
Buzzards Bay Project, and local and state officials, rallied to-
gether to reduce coliform input from failing septic systems.
Through state, local, and homeowner funding, 850 septic sys-
tems were replaced using a sewer line extension. This eliminated
faulty septic systems that potentially contributed to coliform dis-
charges.
While the research was conducted by federal and state
agencies, citizen groups played a crucial role in the project. The
residents organized community information and education
programs, including community surveys and meetings. This
form of public involvement enabled citizens to become informed
and educated on the pollution problems that face the bay, and
provided guidance on how residents could become part of the
solution.
The success of the public outreach can be seen in the actions
taken by Wareham residents when a road paving project was
initiated. Realizing the potential for impacts associated with
increased runoff from the project and a subsequent increase in
bay pollution, the residents notified the Buzzards Bay Project
and local officials. The project was modified to include basins
to filter the runoff before it flowed into the bay.
The communities' high degree of involvement was evidence
that they were aware of the problems and determined to save
their bay.
SOURCES OF FECAL COLIFORM IN BUTTERMILK BAY
Red Brook
Runoff ^
Storm Drains'^-
Groundwater Flow
Dy all accounts, the Buttermilk Bay Demonstration Project
is a success story. The stormwater control system at Electric
Avenue Beach achieved a 98 percent reduction in fecal coliform
levels. In addition, the community has replaced failing septic
systems, reducing the potential for pollution. As a result, the
Buttermilk Bay's water quality shows marked improvement. At
the start of the project, the entire Buttermilk Bay was closed to
shellfishing and recreational activities due to high coliform lev-
els. Today, thanks to stormwater control and septic system im-
provements, 90 percent of the bay is presently open, and
residents and visitors are once again enjoying the bay's re-
sources.
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The success of the project has encouraged the communities
of Bourne and Wareham to commit to the restoration of the four
small coves in Buttermilk Bay which still remain closed to
shellfishing and recreational activities. The communities, now
aware of the solutions to high fecal coliform levels, are dedi-
cated to installing similar stormwater control systems and repair-
ing failing septic systems in those areas of the bay that are in
need of pollution prevention devices. The success of this demon-
stration project will ensure the health of the Buttermilk Bay wa-
terway, and the long-term enjoyment of its resources.
JLessons Learned j
/ he Buttermilk Bay Project demonstrated that a manage-
ment approach focused on a single embayment is one of the
most effective ways of mitigating pollution from nonpoint
sources such as storm drains and septic systems. Since these
nonpoint sources are a result of local conditions, they are harder
to regulate on an entire Buzzards Bay-wide scale. Other lessons
learned include:
• An initial inventory of possible sources of contamination is
essential in creating the proper focus of any embayment
project. The information gathered during sanitary surveys
around Buttermilk Bay provided the evidence that indicated
stormwater discharges were by far the most significant factor
in coliform entry into the bay.
• While outreach activities may not always result in high active
citizen involvement, informed citizens can send a strong
message of support to elected officials and city management
for environmental projects. Additionally, informed citizens
can alert local and state officials of events that could have
negative effects on the environment.
• Once the stormwater collection and control systems were in
place, minimal maintenance was required to keep the sys-
tems in good working order. Workers from the City of
Bourne found that regular pumping out of the particle sepa-
rators optimized hydraulic performance.
• The impact of individual projects on the overall water quality
of larger connecting waters is difficult to assess. Fecal
coliform levels in Buzzards Bay still increase during rain
events, but the overall levels have decreased. Monitoring
stations close to the stormwater control project show marked
decreases in fecal coliform during dry weather, and reduced
increases during rainy periods. Monitoring of the treatment
systems has revealed a substantial reduction of pollutant
loading.
• The permitting process can slow and possibly derail projects.
The potential for delay should be anticipated and strategies
developed prior to beginning a project. The staff of the Buz-
zards Bay Project found that providing technical assistance
to local government staff can go a long way in preventing
permitting delays.
This project provides a starting point for actions needed to
reduce fecal coliform in local and regional watersheds which ul-
timately discharge into Buzzards Bay. The lessons learned in
the Buttermilk Bay Project are helping other communities in the
region, and could be used nationwide to restore and protect wa-
terways.
_ 11 i ii . « ii, ,. i i , ,
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Environmental Protection
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