This Fact Sheet provides highlights of the recently completed Lakeside Communities/Clark Shores Study, and provides information on the expanded study proposed on the Spring Town Meeting warrant.

Environmental and health problems resulting from dense, cottage development on land with unsuitable soils and groundwater conditions have long been recognized in Lakeville. On-site drinking water wells have been contaminated with bacteria and nitrates from nearby on-site cesspools and septic systems, due to small lot sizes as well as inadequately designed or constructed facilities. These problems are exacerbated when such cottages, with their marginal facilities, come into year-round use.

In 1977, the State of Massachusetts conducted a study entitled Managing Seasonal Neighborhoods in Transition – with Case Study for Buena Vista Shores, Lakeville, Massachusetts. At the time of the study, Clark Shores was known locally as Buena Vista Shores. The study identified a range of problems typical of dense lakeside neighborhoods originally built for seasonal use, as they become used more intensely and converted to year-round use. The case study for Clark Shores identified a number of specific concerns, and made recommendations for improved regulations, planning, and infrastructure to support the cottages and improve environmental quality and health.

Since that time, while the Town took some actions, such as the seasonal conversion bylaw, the management of wastewater or the widescale provision of safe drinking water in Clark Shores have not significantly changed, while seasonal conversions and increased use exacerbate environmental problems.

In 2002, a study of groundwater quality was conducted by the University of Massachusetts – Dartmouth, entitled A Study of Private Well Source Water Quality Within and Outside the Communities of Clark Shores and an Analysis of a Water and Wastewater Survey of Homes within the Community of Clark Shores, Lakeville.

The UMASS-D study made the following key water quality findings based on monthly samples from August 2001 to June 2002, with 8 sample sites within Clark Shores and 4 sites at other cottage colonies around Long Pond:

• Within the sampling period, there were 7 instances of E. coli contamination, at 4 locations around Long Pond. E. coli is a bacteria that can cause serious illness in humans.
• Groundwater sample sites within Clark Shores had nitrate levels above the typical ‘background’ level of 1-2 mg/L. One location had nitrate levels exceeding the public drinking water standard. Such elevated levels are evidence of wastewater contamination.
• The study also showed that most sites show evidence of wastewater contamination, but that there was no significant statistical difference between groundwater quality at Clark Shores as compared with other developed locations around and near Long Pond.

The Lakeville Water Study Committee initiated a study concerning local regulations pertaining to the environmental health of the lakeside communities, and development of a wastewater management plan for Clark Shores. The study was funded by the Massachusetts Department of Environmental Management (now the Department of Conservation and Recreation or DCR) Lakes and Ponds Initiative Demonstration Program. The study was conducted by CDM under the direction of the Water Study Committee. The study concluded with a report titled Lakeside Communities/Clark Shores Study (May 30, 2004).

The study is available at the Town Office Building.

The study had two main goals:

(1) Review and identify improvements to local regulations relative to seasonal conversions, septic systems, and drinking water protection

(2) Develop a plan for wastewater management for the Clark Shores community by considering a package treatment plant versus collection and pumping to another municipal system

This study has confirmed the previous studies’ findings that the Clark Shores area has inadequate wastewater treatment and disposal systems. Soils present in this area are not well suited to support on-site systems, and the problem is exacerbated by the density of development. The existing cesspools and septic systems are contaminating private and public drinking water supplies. Therefore, it is necessary to provide improved wastewater treatment and disposal.

Several alternatives were evaluated, ranging from cluster systems within the development, to a single treatment plant to serve the development, to connecting to an existing facility of a neighboring municipality. Based on feasibility, environmental, and cost considerations, the recommended approach is a new package plant to serve Clark Shores.

The recommended plan includes the following components:

The estimated cost for this option is approximately $20,000 to $25,000 per developed lot, or a total of $8.9 million.

The study also identified a number of questions that need to be resolved to determine how the plan will move forward:

• Ownership and Operation of the System -- Consideration of a Wastewater Management District to own, implement, and operate the system; if Town-owned, consideration of options for operations (contractor or employees)
• Funding – Application for available state low interest loans and possibly grants/loans from the Rural Utilities Service
• Local costs – Assessment of betterments to pay debt service on capital costs (design and construction)
• Connection and Development Policies – Policies and regulations concerning connection to the wastewater system, including a possible Overlay District
• Water System – Consideration of whether a new or expanded drinking water system should be constructed along with the wastewater system
• Roads – Consideration of road reconstruction
• Expanded Study of Other Areas with Possible Wastewater Needs – During the study, concerns were raised that there are other areas with wastewater needs, and such needs should be coordinated with any Clark Shores solution

In light of these implementation issues, and in particular the need to look beyond Clark Shores, an expanded study is recommended.

The proposed expanded study will address the implementation issues, and assess wastewater needs in other areas around Long Pond. This is a specific concern in Lakeville, as there are at least seven additional areas of dense cottage development similar to Clark Shores, and numerous residences along the Long Pond waterfront. There are also at least two areas of such development adjacent to Long Pond in the Town of Freetown.

The recommended scope of the study includes:

• Identify potential areas of wastewater need around Long Pond. Determine geographic boundaries of potential service areas.
• Conduct questionnaire survey in each area, modeled after the one conducted in Clark Shores.
• Evaluate alternatives for off-site wastewater treatment and disposal, following the model of this study. Alternatives to be considered include (1) regional WWTPs, (2) connection into the Clark Shores system and (3) localized package plant. Evaluate additional area required for Clark Shores site. Estimate relative planning-level costs.
• Within Clark Shores, evaluate the need for water improvements through meetings with the Clark Shores Water Company, DEP, and the Lakeville Board of Health.
• Recommend whether any of the other areas have a compelling need for off-site wastewater disposal; whether the Clark Shores project should be expanded to accommodate any other areas; and whether water improvements should be undertaken at Clark Shores in conjunction with wastewater.
• Resolve related implementation issues for the Clark Shores wastewater system, including working with the various parties to determine whether a water and sewer district should be established.

The study has been selected for funding by the Massachusetts Department of Environmental Protection (DEP) funding program known as the State Revolving Fund. Projects funded by the SRF receive a low-interest loan that essentially represent a partial grant. The Town now has the opportunity to participate in the loan program for this study, which has an estimated cost of $150,000.

To take advantage of the SRF loan, the Town Meeting must appropriate funds for the study at this Town Meeting. Therefore, an article has been put on the warrant to make this appropriation and accept the state subsidized loan.

If passed, the Article authorizes the Town to participate in the SRF program and to borrow funds for the study.

• To consider the long term needs of the other lakeside communities with respect to water and wastewater
• To determine, in the context of all lakeside communities’ needs, whether localized package plants or connection to a regional facility is preferable
• To determine how the Clark Shores improvements should proceed (as package plant as outlined in the recent study, or as part of a larger scale regional connection)
• To investigate growth and development concerns in more detail, including outlining tools such as an overlay district
• To address implementation issues and to develop a revised implementation plan and schedule

• Protects water quality of Lakeville
• Protects public health
• Provides needed relief from difficulties with on-site septic systems and on-site wells due to pervasive poor soils, older development
• Provides essential infrastructure for low-income and affordable housing

The remainder of this document is organized into questions and answers in the following categories:

• Results of Recent Study
• Planning and Development
• Costs and Betterments
• Next Steps

The study makes recommendations in several areas:

• Local Regulations – Local regulations, including Board of Health septic system and private well regulations, need to be reviewed and updated.
• Clark Shores – The recommended approach to a Clark Shores wastewater system is a package plant, such as an Amphidrome system, with a groundwater discharge. A potential site for the discharge was identified and preliminary testing performed to determine its suitability.
• Expanded Study – An expanded study was recommended to allow evaluation of the wastewater needs among the various lakeshore communities, which could affect the Town’s preference for a local solution versus connection to a neighboring town’s municipal wastewater treatment plant. The study would also provide for evaluation of drinking water and road improvement needs in Clark Shores.
• Planning and Overlay District – Whether Clark Shores is served by a local wastewater treatment system or connected to a neighboring municipal system, the Town needs to develop appropriate zoning and other controls to accompany the new infrastructure. It is recommended that the Town consider a Planning and Overlay District.
• Implementation Plan – The study laid out a possible implementation plan and schedule, tied to the schedule for the State Revolving Fund. The implementation of wastewater improvements will involve numerous details. The study outlines optional approaches to some of these issues, such as the use of betterments to fund the project.

The sewer service area was defined based on:

• Lot sizes and population density, which are a relative measure of wastewater rates being applied.
• Assessors maps and other GIS data.
• Soils data from Natural Resources Conservation Service maps.

Several adjoining or nearby areas were evaluated but determined to have lower density, larger lot sizes, and/or were noncontiguous and could disproportionately increase costs. The exact boundaries of the service area can be re-evaluated during the preliminary design phase.

The study looked at two categories of wastewater management:

(1) connection to the existing wastewater treatment collection and treatment system of a nearby municipality, such as New Bedford, Middleborough, or Taunton; and

(2) a local wastewater treatment and disposal system to be sized for and located nearby Clark Shores.

Within the local facility option, a range of treatment alternatives were considered based on effectiveness, ease of operation, and other characteristics.

The study focused on the Clark Shores area only. Connection of Clark Shores to one of the neighboring city wastewater treatment plants is a potentially feasible option. The costs of such a connection were estimated and compared to that of a local treatment option. A major variable in the cost of connecting to another city’s treatment plant is the initial connection fee that would be charged to reflect that city’s past investment in the treatment facilities. The connection fees are not known for all the municipal treatment facilities. With best available information, the estimated cost of connection to a municipal treatment facility would be approximately $0.8 million more than the local treatment option.

The proposed expanded study will evaluate additional lakeshore communities. It is expected that, if additional communities are determined to require improved wastewater infrastructure, the expanded study will look at whether the regional connection is more cost-effective with more connections.

Note that should a regional plant connection be selected in the expanded study, the recommended overlay district and zoning controls will be especially important, as the connecting sewer will adjoin significant undeveloped properties.

Package treatment alternatives include systems or technologies that serve groups of homes where the total flow is in excess of 10,000 gallons per day (gpd). These systems are not within the jurisdiction of Title 5, and are administered by the Massachusetts Department of Environmental Protection (DEP) Groundwater Discharge Permit Program, that requires a high level of treatment (e.g. nitrogen removal) and therefore requires treatment system.

Package Plants use pre-manufactured process equipment (often patented) whereas a WWTF may involve more conventional treatment processes and is custom-designed. Also, package plants are usually automated so an operator only checks performance and conducts maintenance periodically, unlike municipal facilities that have greater staffing requirements.

Both traditional and alternative wastewater treatment processes may be used in package facilities, depending on the desired degree of wastewater treatment. The sequencing batch reactor (SBR) and the rotating biological contractor (RBC) are two common package treatment processes approved for use in Massachusetts, with established track records with regulatory agencies.

The study identified a potential site for wastewater discharge, on Susan Lane. To obtain a DEP discharge permit for this site, additional study and modeling would be needed for design of the discharge facility and to ensure no adverse environmental impacts.

The study reviews the public drinking water system in Clark Shores.

The recent UMASS-Dartmouth study evaluated groundwater quality by testing private drinking water wells. The CDM study summarizes highlights of this study.

First, it is recommended that the Town review, revise, and update zoning regulations and consider an Overlay District prior to constructing new infrastructure, to ensure that the resulting development is appropriate and can be adequately supported.

Generally, if a vacant lot is buildable, it will be eligible for connection, and must connect when developed. In other words, it is anticipated that the Board of Health will not permit new septic systems within the sewer service area.

An owner of land that does not intend to develop it can avoid any sewer charges by placing irreversible conservation restrictions on the property. If this is done, the property will not be eligible for connection in the future, and no betterment will be charged.

Several residents have commented on their interest in purchasing such lots. It is anticipated that part of the implementation process will involve community meetings focusing on the recommended overlay district and other zoning and connection considerations. Such meetings could include discussion of existing residents’ purchase of vacant lots, and what the Town may be able to do to assist such efforts.

The study identifies the number of lots that could be developable if sewers are constructed. The study also looked at one possible approach, requiring improved roads, to reduce the immediate number of developable lots. The Town will need to consider these options, and others, prior to implementation. The expanded study will help support such evaluations and discussion.

An overlay district is similar to a zoning district, but applies in addition to the regular zoning district. Typically, overlay districts are focused on specific objectives, such as water quality protection. An overlay district for lakeshore communities could impose access, private well requirements, on-site system standards or maintenance requirements, or other requirements to help improve water quality and public health protection.

The Clark Shores local wastewater system has an estimated planning-level cost of approximately $8.9 million, or about $20,000-$25,000 per connection.

The funding approach has not been finalized; the study discusses typical approaches and options for the Town to consider. At this time, it is envisioned that the sewer and water facilities will be paid largely by the property owners who will be eligible for connections. These properties would be charged betterments, in accordance with state law. The study provides basic information on betterments; for example, property owners can typically decide whether to pay betterments at once or in annual payments over a long timeframe, such as 20 years.

The next step will be Town Meeting, at which the article to appropriate funds and accept the SRF funding will be voted upon. If the article passes, the expanded study will be conducted over the next year. The expanded study will look at the wastewater needs of the other lakeshore communities, how such needs could best be met, and begin to address the implementation issues.

The article accepting SRF funding was approved at the annual town meeting in June.

Camp Dresser & McKee will be working on the scope of work for the project this fall.

A subcommittee of the Water Study Board is being put together to help with the tasks that will need to be completed as the project moves forward.