Waquoit Bay Research Reserve

Case Authors

Dave Gershman, Julia Wondolleck and Steven Yaffee, University of Michigan

Summary

The Waquoit Bay National Estuarine Research Reserve (WBNERR) is located in southeastern Massachusetts and includes a network of non-contiguous protected parcels within the Waquoit Bay watershed.

WBNERR was established in 1988 to improve the stewardship of the Waquoit Bay area, and promote the stewardship of similar estuarine areas in the Northeast. Its original property was purchased by Massachusetts, at the urging of the Citizens for the Protection of Waquoit Bay, to prevent a proposed development that would have damaged the ecosystem. WBNEER has also acquired additional land that was threatened by development.

The health of the estuary had been damaged by excessive nutrients from wastewater and fertilizers entering the watershed from nearby development. The town of Mashpee, where much of the watershed is located, has no municipal sewer system.

While WBNERR lacks regulatory authority over the open waters of Waquoit Bay and the upstream sources of freshwater, the reserve uses several strategies to foster improved stewardship, including educating teachers, policy-makers and members of the public about environmental issues; conducting habitat restoration efforts in the watershed in partnership with other entities; facilitating research aimed at priority issues facing the watershed and other coastal areas; and advocating for conservation policies before state decision-makers.

WBNERR is part of the National Estuarine Research Reserve Program, which is a federal-state partnership that has established 27 such reserves around the country.

MEBM Attributes

Scale: Focus on an ecosystem-wide scale.
Adaptive Management: Use of research findings to develop lessons learned and adapt conservation strategies.
Complexity: Emphasis on promoting behavioral changes outside of reserve’s boundaries.

Mission and Primary Objectives

Mission

The mission of the Waquoit Bay National Estuarine Research Reserve is to improve the stewardship of the Northeast region’s estuarine and coastal watershed ecosystems.

Objectives

The following five objectives are listed in its management plan:

Improve the understanding of coastal ecosystems and human influences on them.
Improve environmental literacy in our communities to enable environmentally-sustainable decision-making.
Demonstrate sustainable stewardship of the land and water ecosystems within the reserve to serve as a model for community stewardship in the region.
Foster dialogue and development of coastal ecosystem management solutions through sustained community engagement.
Improve the operations, infrastructure and stature of the reserve.

Key Parties

Lead Organizations

Federal

National Oceanic and Atmospheric Administration, Estuarine Reserves Division

State

Massachusetts Department of Conservation and Resources

Key Parties

Federal

U.S. Geological Survey

State

Massachusetts Division of Marine Fisheries

Local

Town of Mashpee
Town of Sandwich
Town of Falmouth
Town of Barnstable

Academic

Numerous academic institutions are partners in research or training, including:

University of Massachusetts-Boston
Boston College
Boston University
Woods Hole Oceanographic Institution

Program Structure

Administrative

A visitor’s center and other facilities are maintained at the Waquoit Bay National Estuarine Research Reserve (WBNERR), and are staffed by 13 full-time employees, and another two job-sharing positions that are equivalent to a full-time staff person. Additional personnel work on a seasonal basis. The staffing figures represent 2005 levels, as reported in the 2006-2011 reserve management plan. The staff members are employees of the state Department of Conservation and Resources. They include a reserve manager, education coordinator, research coordinator, Coastal Training Program coordinator and stewardship coordinator.

Advisory Committee

An Advisory Committee, composed of individuals with an interest in preserving the bay and watershed, functioned during the early years of WBNERR, but after the committee failed to meet for three successive years, it was dissolved by the reserve. The reserve manager has initiated a process to reform an advisory committee from a broader base of constituents. As of the publication of the 2006-2011 management plan, a list of nominees to serve on a reconstituted committee had been developed, though the committee had not yet been formed.

Administrative Committee

Established in 1995, the Administrative Committee is intended to improve communication and coordination among the various agencies with interests in the reserve, and expedite financial and administrative matters. The committee includes representatives of the state Department of Conservation and Resources (DCR), Coastal Zone Management (CZM), Division of Marine Fisheries, and, at times, other agencies within the Executive Office of Environmental Affairs.

South Cape Beach Advisory Committee

South Cape Beach State Park includes a barrier beach popular with swimmers, and walking trails adjacent sand dunes. The state park is a component of the WBNERR. The advisory committee was established through a memorandum of understanding between the town of Mashpee and the state. The advisory committee makes beach management recommendations to DCR. It includes eight residents of Mashpee, and one resident from each of the following towns: Sandwich, Falmouth and Barnstable. Non-voting representatives on the committee hail from CZM, the state Department of Fisheries and Wildlife, and include the state representative and state senator of the Mashpee area.

Research Working Group

Each year, the Research Working Group develops research priorities for the WBNERR. The priorities alert external scientists to research interests that might be eligible for funding, or would greater support from the reserve. The working group is composed of technical staff from the reserve, DCR and CZM.

Motivations for Initiating Effort

Concern for the health of estuarine areas had been growing by the time Massachusetts applied for the Waquoit Bay area to be included in the National Estuarine Research Reserve System (NERRS) in 1981.

In 1963, Massachusetts had established an estuarine research program, which led to the publication of a study in 1975 that developed data to compare species diversity and environmental quality among selected estuaries.

NERRS had been created in 1972 by the federal Coastal Zone Management Act, which provides for federal-state partnerships to establish and manage a national system of Estuarine Research Reserves that are representative of various regions and estuarine types.

The reserves are established with the objective of providing opportunities for three types of activities:

Long-term research
Education
Interpretation

Between 1974 and 1978, Massachusetts considered several potential sites for application to NERRS, with Waquoit Bay among its top candidates. Meanwhile, the significance of Waquoit Bay was being better appreciated. In 1979, Waquoit Bay and some of its surrounding uplands were designated Areas of Critical Environmental Concern, a state designation that requires certain new proposed uses to be evaluated against stricter criteria, though the designation does not create new regulations or supersede local regulations or zoning.

In the 1980s, before Waquoit Bay was formally accepted into the NERRS program, Massachusetts acquired more land in the area, using money obtained from the National Oceanic and Atmospheric Administration (NOAA), the federal agency that administers the NERRS program. NOAA funds also paid for the construction of supporting facilities at Waquoit Bay. In 1988, Waquoit Bay was formally accepted into the NERRS program.

Ecosystem Characteristics and Threats

The Ecosystem
Waquoit Bay and its watershed is a representative example of the shallow bay, estuarine system found along the coast of the Northeast. The Waquoit Bay area includes 2,700 acres of open water, freshwater and salt marshes, barrier beaches, sand dunes, mixed pine and oak forests, and sandplain grasslands. The bay is less than nine feet deep and is warmer in the summer and colder in the winter than the adjacent Vineyard Sound.

A variety of key marine wildlife can be found in the different habitats provided by the bay and watershed, including finfish, alewife, herring, blue crabs, quahogs, soft-shelled clams, ribbed mussels, turtles and harbor seals. Marine birds can be found in the open waters and other waterfowl use the wetlands for breeding, feeding and their migratory needs. Deer, opossum and raccoons depend on the wetlands during certain times.

Threats
Declines in water quality have affected what was once one of the most diverse estuarine fish communities in Massachusetts. The most significant threat is eutrophication, caused by excessive nutrients. Environmentally-ineffective wastewater disposal practices and run-off containing fertilizers are degrading the water quality.

Eelgrass habitat, which was once plentiful, has disappeared from the bay, and is shrinking elsewhere in the focus area.

Major Strategies

Zoning

Three zones and overlay areas have been established within the reserve to restrict activities and help resource managers guide research, education and recreational activities to the most appropriate areas.

Zone 1 is the most restrictive zone, encompassing unique and highly-sensitive resources and landscapes. Educational and research activities are permitted, but only under the supervision of reserve staff. This zone includes 459 acres that are considered the core areas of the reserve.
Zone 2 is the largest zone, encompassing 802 acres that are characterized by the diversity of wildlife and plant habitats among terrestrial and aquatic ecosystems. Management activities are intended to be consistent with the policies established in the management plan.
Zone 3 is the smallest zone at 24 acres, and includes structures used for administrative, maintenance or recreational purposes, and parking lots. Bike pathways also are considered to be part of this zone.
Significant Feature Overlays can preserve or protect specific features across the reserve. The features are identified through an inventory process or research, and the overlay allows stricter management of those areas regardless of the zone in which they are located. One example is the Protected Species Habitat Area, which designates areas in which federally and state designated shorebirds nest on portions of South Cape Beach and Washburn Island. During those nesting periods, public access is limited and signs are erected. Staff and volunteers monitor the nesting.

Stewardship Focus Area

Through a planning process, the reserve has established a stewardship focus area that encompasses the actual boundary of the reserve, and other properties that are located nearby and whose development could harm the resources of the reserve. Although most of the land within the Waquoit Bay watershed has either been set aside for conservation or developed, several undeveloped parcels of important habitat still exist. The reserve does not have any regulatory powers or oversight of those parcels, but it can use the stewardship focus area as a vehicle to highlight their special status, focusing public attention or education efforts on the importance of proper stewardship of the parcels.

Education and Outreach Efforts

A variety of education efforts are tailored to specific groups of constituents, and the reserve has decided to adapt its education strategies to reflect research showing learning is more effectively promoted through engagement in multiple, in-depth activities.

A Coastal Training Program is run for decision-makers, such as land-use planners, elected officials, regulators, and land developers, consisting of seminars, hands-on events, skill training, workshops and lectures.
Education courses are held for K-12 teachers and students.
Community education efforts include entertainment and community-building events that convey environmental information, such as the watershed block party; along with in-depth courses on topics of community interest, such as how to facilitate a green home or business, and the use of Cape Cod appropriate landscaping.

Land Acquisition

The reserve continues to pursue a strategy of acquiring land within the environs of the reserve, and incorporate the property into its long-term resource conservation activities. Land acquisition is undertaken to protect drinking water resources, protect undeveloped properties and eliminate the threat of nutrient infiltration if they should be developed, preserve aesthetic values, and provide controlled recreational access.

Protected Species Management

Two species of concern, the piping plover and least tern, nest on the grounds and disguise their eggs, which can be accidentally destroyed by humans. The reserve’s seasonal shorebird manager works with the Department of Fisheries and Massachusetts Audubon Society to protect the nesting birds. The reserve trains volunteers to identify nesting activity, and erect protective fences around nesting areas. Education efforts aim to inform the public about the risks to the eggs from dogs and human activities.

Habitat Restoration

The reserve partners with other entities to conduct habitat restoration activities, providing planning services, volunteer coordination, piloting of restoration strategies, and other services. The projects are aimed at reducing nutrients in the bay and watershed. Among the projects listed in the 2006-2011 management plan as underway or planned are: Eelgrass and benthic community restoration; re-vegetation of the Quashnet River; restoration of the tidal flow to the South Cape Beach Saltmarsh, where road construction had limited the natural flow of salt water; and the proposed replacement and expansion of a culvert to increase the tidal water flowing into Abigail Brook, a small tributary supporting wetland habitats.

Monitoring, Assessment and Evaluation

Monitoring

A three-phased plan, initiated in 1989, characterized the environment, developed a site profile, and implemented a system-wide monitoring plan. It provides standardized data on national estuarine environmental trends, and assesses issues of local concern, measuring short-term and long-term changes to the reserve. It measures water quality indicators, such as salinity, temperature and dissolved oxygen.

Other monitoring projects focus on submerged and emergent vegetation, vernal pools, aquatic insects, and stream fish. The reserve had planned to implement additional components that map and evaluate changes in the watershed and coastal habitat, examining any links with local land-use activities, according to the management plan. Two volunteer groups assist in the monitoring effort, the BayWatchers and CoastWaters.

Assessment and Evaluation

Staff prepare a performance monitoring plan, monitor and evaluate implementation of the management plan, and ensure all guidelines and requirements are met, according to the 2006-2011 management plan. Annually, staff meet to review progress and reflect on past experiences, incorporating lessons learned into future work plans. A series of milestones that support the objectives of the reserve, are listed in the management plan.

External research findings are incorporated into the management plan. The findings inform education and training programs of the reserve. Research results are used to discern the impact of management actions. The reserve makes external researchers aware of funding offered through the National Oceanic and Atmospheric Administration and the National Estuarine Research Reserve System.

Accomplishments/Impact

Increased Habitat Protection

The Waquoit Bay National Estuarine Research Reserve (WBNERR) has added parcels to its footprint, protecting more habitat from development. The 2006-2011 management plan formalized the inclusion of several parcels, including the 2003 acquisition of the 35-acre Abigail Brook property, the 2004 acquisition of the 10-acre Phinney Property, and the 2005 acquisition of the 31-acre NStar property. Acquisition eliminates potential sources of nitrogen infiltration into the watershed and bay.

Expanded Community Presence

WBNERR has expanded in staffing, increased its education and outreach work, and established a presence in the communities. Volunteers assist in monitoring efforts, showing support among community members for stewardship of the resources. Reserve staff participate on local and regional planning committees with decision-making authority that affects freshwater and marine resources.

Fostering Community Stewardship

The multiple strategies used by WBNERR has contributed to a greater sense of stewardship among southeastern Massachusetts communities. Massachusetts began an estuary project to develop information on nitrogen sensitivity of the estuaries and bays in the southeastern portion of the state. The project produces technical reports showing communities how implementation of nitrogen management practices, such as improved wastewater treatment facilities, can improve water quality. WBNERR helped define the problem; monitoring data collected at the reserve was used in watershed-embayment models employed by the project to calculate Total Maximum Daily Loads for nitrogen. Reserve staff serve on the Massachusetts Estuary Program (MEP) committee, review and comment on reports, and offer technical assistance.

The towns of Mashpee and Falmouth, which share responsibility for water inputs into the Waquoit Bay, have recognized the severity of eutrophication and the need for watershed nutrient management, according to an MEP report. Mashpee residents voted in 1999 to appropriate money to develop a Watershed Nitrogen Management Plan, which could recommend the development of treatment facilities and other management options. Progress has been slow, although a Needs Assessment Report and Technology Screening Report were released in 2007. Work is progressing on the development of five alternative scenarios for development of wastewater facilities to meet nitrogen loading targets, according to the town of Mashpee. Falmouth has identified wastewater and nutrient management as the top priority to maintain quality of life; several projects have been completed and others are on-going, according to the town of Falmouth.

Website Links

Waquoit Bay National Estuarine Research Reserve: http://www.waquoitbayreserve.org/index.aspx

The Massachusetts Estuaries Project: http://www.oceanscience.net/estuaries/reports.htm

Town of Mashpee, Watershed Nitrogen Management Plan: http://www.mashpeewaters.com/

Town of Falmouth, wastewater and nutrient management projects Web page: http://www.falmouthwastewaterprojects.org/