SALISBURY BEACH STATE RESERVATION - Mass.Gov
SALISBURY BEACH STATE RESERVATIONBARRIER BEACH MANAGEMENT PLANEXECUTIVE OFFICE OF ENERGY & ENVIRONMENTAL AFFAIRSDEPARTMENT OF CONSERVATION & RECREATIONSeptember 2008i
SALIBURY BEACH STATE RESERVATIONBARRIER BEACH MANAGEMENT PLANTABLE OF CONTENTSPAGEI.PURPOSE OF THE PLAN1II.BACKGROUNDA. GeneralB. History of Salisbury BeachC. Description of Salisbury Beach State Reservation1. Recreational Opportunities2. Natural ResourcesD. Improvements at Salisbury Beach Reservation1. Recreational Improvements2. Natural ResourcesE. Department of Conservation and RecreationF. Geological History and Processes33358910III.ENVIRONMENTAL REGULATIONSA. MA Wetlands Protection Act (MGL c. 131 s.40)B. Additional Regulations1. State2. Federal121212IV.BEACH MANAGEMENT AREASA. Beach Management Area 1 – ReservationB. Beach Management Area 2 – ResidentialC. Beach Management Area 3 – Beach Center14141416V.PUBLIC USE, ACCESS AND SAFETYA. Public Use1. Facilities2. Beach and Dune Areas3. Public Use Beach PermitsB. Public Access1. General2. Pedestrian Access3. Maintenance of Public Access Ways4. Vehicular Access5. Beach Access AuthorizationC. Public Safety1. Lifeguards17171927ii
2. Emergency Response3. Beach Patrols4. Bathing Beach Water QualityD. Public Access Ways and Facility Management Recommendations 31VI.RESOURCE AREA MANAGEMENT AND PROTECTIONA. General DescriptionB. Barrier Beach (310 CMR 10.29)1. Definition2. Functions3. Critical Characteristics4. Performance StandardsC. Coastal Beach (310 CMR 10.27)1. Definition2. Functions3. Critical Characteristics4. Performance Standards5. Existing Conditions of Coastal Beach6. Coastal Beach Management and Protectiona. Debris and Trash Removalb. Beach Groomingc. Beach Maintenanced. Beach NourishmentD. Coastal Dunes (310 CMR 10.28)1. Definition2. Functions3. Critical Characteristics4. Performance Standards5. Existing Conditions of Coastal Dune6. Coastal Dune Management and Protectiona. Control of Pedestrian Accessb. Dune Maintenancec. Dune Nourishment7. Dune Crossing Design StandardsE. Salt Marsh (310 CMR 10.32)1. Definition2. Functions3. Critical Characteristic4. Performance Standards5. Existing Conditions of Salt Marsh6. Salt Marsh Management and ProtectionF. Land Subject to Coastal Storm Flowage (310 CMR 10.04)1. Definition2. Functions3. Critical Characteristics4. Performance Standards36363637414849iii
5. Existing Conditions of LSCSF6. LSCSF Management and ProtectionG. Riverfront Area (310 CMR 10.58)1. Definition2. Applicability to Salisbury Beach State ReservationH. Resource Area Management RecommendationsVII.RARE SPECIES AND WILDLIFE MANAGEMENTA. Rare Species Protection and Habitat ManagementB. Wildlife ManagementC. Rare Species and Wildlife Habitat Management Recommendations515154545657VIII. STORM-RELATED MAINTENANCE AND DAMAGE PROTECTIONA. GeneralB. Debris RemovalC. Access Way RepairD. Storm-Related Beach and Dune MaintenanceE. Storm-Related Maintenance and Damage ManagementRecommendations616161616262IX.PUBLIC OUTREACHA. GeneralB. Outreach Recommendations646465X.LITERATURE CITED66TABLESTable 1Table 2Table 3Table 4Existing Equipment and Typical UsesExisting Public Access Ways within BMA 1 (Ocean)Existing Public Access Ways within BMA 2Existing Public Access Ways within BMA 3FIGURESFigure 1Figure 2Figure 3Figure 4AFigure 4BFigure 4CFigure 4DFigure 5AFigure 5BFigure 6Figure 7AFigure 7BFigure 8Aerial Image of Salisbury Beach State ReservationDCR Recreational FacilitiesBeach Management AreasPedestrian & Vehicular Access BMA 1 – Reservation (Ocean)Pedestrian & Vehicular Access BMA 2 – Residential (South)Pedestrian & Vehicular Access BMA 2 – Residential (North)Pedestrian & Vehicular Access BMA 3 – Beach CenterLifeguard Post Location BMA 1 –Reservation (Ocean)Lifeguard Post Location BMA 3 – Beach CenterProposed Sand Stockpile Area (SSA) BMA 1–Reservation (Ocean)Dune Restoration Areas BMA 2 – Residential (South)Dune Restoration Areas BMA 3 – Beach CenterShorebird Nesting Areas BMA 1 – Reservation (Ocean & River)iv
APPENDICESAPPENDIX AAPPENDIX BAPPENDIX CAPPENDIX DAPPENDIX EAPPENDIX FAPPENDIX GAPPENDIX HAPPENDIX IAPPENDIX JAPPENDIX KAPPENDIX LAPPENDIX MAPPENDIX NAPPENDIX OApplicable Laws and RegulationsExecutive Order No. 181 regarding Barrier BeachesExecutive Order 149 regarding Flood Insurance CoordinationBeach Access Authorization FormResource Protection PartnersDCR Guide to Dune StabilizationSalisbury Beach Dune Walkover Access Design StandardsDune Crossing Authorization Tracking SheetFIRM MapsNHESP and USFWS Guidelines for Managing Recreational Use ofBeaches to Protect Piping Plovers, Terns, and their Habitats inMassachusettsPiping Plover Nesting LocationsDCR and Other Official Vehicle Use on the BeachSample Sand Specification for Off-site MaterialPhotographsOrder of Conditions – 2008 Salisbury Beach State ReservationBarrier Beach Management Planv
ACRONYMS AND ACEUSFWSUSGSV-ZoneWPAAmericans with Disabilities ActSpecial Flood Hazard AreaBeach Management AreaCoastal Hazards CommissionCode of Massachusetts RegulationsMassachusetts Office of Coastal Zone ManagementMassachusetts Department of Agricultural ResourcesMassachusetts Department of Conservation and RecreationMassachusetts Department of Environmental Management (now DCR)Massachusetts Division of Fisheries and WildlifeMassachusetts Department of Fish and GameMassachusetts Executive Office of Energy and Environmental AffairsFederal Emergency Management AgencyFlood Insurance Rate MapGeographic Information SystemLand Subject to Coastal Storm FlowageLand Stewardship ZoneMassachusetts Department of Environmental ProtectionMassachusetts Department of Public WorksMassachusetts Office of Geographic and Environmental InformationMassachusetts Barrier Beach Task ForceMassachusetts Endangered Species ActMetropolitan District Commission (now DCR)Massachusetts Department of Public HealthMassachusetts Emergency Management AgencyMassachusetts Environmental Policy ActMassachusetts General LawNatural Heritage and Endangered Species ProgramNotice of IntentOffice of Fishing and Boating AccessMassachusetts Office of Law EnforcementRecreational Use PermitSand Stockpile AreaSalisbury Conservation CommissionSpecial Use PermitUnited States Army Corps of EngineersUnited States Fish & Wildlife ServiceUnited States Geological SurveyVelocity Zone: Coastal High Hazard AreaMassachusetts Wetland Protection Actvi
I. PURPOSE OF THE PLANSalisbury Beach State Reservation (Reservation), located in Salisbury, Massachusetts, isconcentrated near the southern end of Salisbury Beach, which extends 3.8 miles fromsouth to north along the Atlantic Ocean from the Merrimack River to the New Hampshireborder. This entire length of shoreline consists of a high-quality sandy beach. TheReservation, which is owned by the Commonwealth of Massachusetts and managed bythe Department of Conservation and Recreation (DCR), provides a number ofrecreational opportunities to the public, including swimming, fishing, camping andboating. Along with 3.8 miles of beach, the Reservation also contains vast areas ofcoastal dunes and salt marsh located behind the barrier beach. These coastal resourceareas are all located within a complex barrier beach system. Because the Reservation iswithin a highly dynamic and sensitive ecosystem and there is such a great desire forpublic use, DCR is challenged with finding and maintaining a balance between providingsafe and enjoyable recreational opportunities to its visitors, while protecting the barrierbeach system, which includes fragile coastal dunes, beach, rare species and wildlifehabitat.In Massachusetts, a barrier beach is a resource area provided protection under theMassachusetts Wetlands Protection Act (WPA), Massachusetts General Law (MGL)c. 131 s. 40 and its implementing regulations, 310 Code of Massachusetts Regulations(CMR) 10.00. By definition, a barrier beach consists of two additional protected resourceareas, Coastal Dune and Coastal Beach. As such, all activities that occur on a barrierbeach fall under jurisdiction of the WPA. An Emergency Order of Conditions wasrecently issued by the Salisbury Conservation Commission (SCC) to allow for dunerestoration, repair to public access ways and beach clean-up caused by storm damageresulting from the April 15th, 2007 Nor’easter. As part of this Emergency Order, DCR isrequired to file an updated Barrier Beach Management Plan to address short and longterm protection measures for the Reservation and barrier beach system. Once finalized,this barrier beach plan will be submitted as part of a new NOI to the SCC with copiesalso being submitted to the Massachusetts Department of Environmental Protection(MassDEP) and the Division of Fisheries and Wildlife (DFW) Natural Heritage &Endangered Species Program (NHESP). The SCC and other regulators will review boththe current and future management activities described in the plan in regards to meetingthe performance standards of the WPA.In addition to the SSC condition for DCR to prepare a updated barrier beach managementplan, Executive Order 181 (issued in 1980) dictates that management plans for Stateowned beach property shall be prepared and be consistent with state wetland policy.The purpose of the Salisbury Beach State Reservation Barrier Beach Management Planpresented herein is to identify issues pertaining to existing resource areas and to establishguidelines for coastal resource protection through appropriate management practices, inSalisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 1
order to establish a framework in which DCR can conduct sustainable recreationplanning, facility improvements and maintenance activities. The primary goal fordeveloping a beach management plan is to allow for the public to pursue recreationalopportunities and environmental education in a safe and enjoyable environment, whileinstituting protection of the existing dune and beach system and other importantecological features which are an integral part of these coastal resources located within theReservation.Salisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 2
II. BACKGROUNDA. GeneralSalisbury Beach is a complex barrier beach system, comprised of coastal beach, coastaldunes and salt marsh. Within the Salisbury Beach barrier beach system is the SalisburyBeach State Reservation, which is managed by DCR. The Salisbury Beach StateReservation is concentrated at the southern end of Salisbury Beach adjacent to theMerrimack River, and extends in a northerly direction along 3.8 miles of the AtlanticOcean to the New Hampshire border as shown in Figure 1. The Merrimack River entersthe Atlantic Ocean at the southern end of Salisbury Beach, and the western sector of theReservation is bordered by adjacent areas of salt marsh. This extensive barrier beachsystem plays a critical role in the protection of the Merrimack River estuary, along withassociated salt marsh habitat, dune preservation, and habitat for threatened andendangered species and other wildlife.The section presented herein describes the history of Salisbury Beach and theReservation, as well as the management of the Reservation, including the geologicalhistory and processes that formed Salisbury Beach which continue to play an importantrole in the management of this dynamic system.B. History of Salisbury BeachPrior to settlement by the English colonists, members of the Pawtucket Indian groupinhabited coastal areas of Massachusetts Bay from the Saugus /Salem, Massachusettsarea to York Village, Maine. This group is locally referred to as the Pentuckets. TheseNative Americans subsisted primarily on shellfish, and supplemented their diet with wildgame and a variety of both wild and domesticated plants. They hunted both wetland andupland game birds and fished shad, salmon and trout along the Merrimack River, whichwas their summer fishing ground (MHC 1997).Signs of the early inhabitants have been found mostly along the Merrimack River.Thirteen shell mounds have been discovered along the bank of the river. In addition, in1868, Jeffries Wyman reported discovering large collections of Indian arrowheads andimplements on the beach, approximately one mile from the left bank of the Merrimack(Wyman, 1868).In addition to these artifacts, local historians have re-traced a number of Indian trailsalong and in close proximity to Salisbury Beach, as well as inland. These trails includewhat are now Ferry Road and Seabrook Road. This trail later developed into a Colonialroute that linked coastal areas to the north (New Hampshire) with the Merrimack River.Elm Street was likely as western-running trail (MHC, 1997). Water travel was alsoSalisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 3
Insert Figure 1Salisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 4
extremely important throughout the coastal area. Numerous creeks and coastal rivers suchas the Merrimack River provided transportation routes to the coast.In September 1638, Simon Bradstreet, Christopher Batt and ten other proprietors receivedpermission from the General Court of the Massachusetts Bay Colony “to begin aplantation at Merrimac”, north of the Merrimack River. Bradstreet and Batt had exploredthe area in August 1638, rowing across the Merrimack River from Newbury and up TownCreek. Nearby they found a broad open space on high ground previously cleared byIndians. European diseases spread by fishermen had already decimated the localPentucket Indian tribe and left the land open for settlement. The proprietors laid out thetown around this open space which today is known as “Town Green”.Initially, the Town of Salisbury included areas as far north as Hampton, New Hampshireand extended into the wilderness. Bradstreet and the proprietors recruited settlers for thenew plantation, first named Colchester, by offering grants of land which included theTowns of Amesbury and Merrimack, Massachusetts as well as the New Hampshire townsof Seabrook, South Hampton, Newton, Hampstead, Plaistow and Kingston. The firstsettlers arrived in 1639. In 1640, the town was renamed “Salisbury” after Batt’shometown in England. Haverhill Massachusetts was established in the same year andbecame the western boundary of the Town of Salisbury.The primary access to the settlement of Salisbury was via the Merrimack River to a dockat Town Creek near Mudnock Road. In 1644, George Carr established a ferry across theMerrimack at Carr’s Island. In 1645, Beach Road (Route 1A) was established andprovided an access way to the beach. In 1649, a vote at Town Meeting ordered that allmeadow on the north side of the Merrimack River should be reserved as common land.A proclamation read: “a beach common running from the Merrimac River’s mouthincluding all meadow and marsh not disposed of should remain a town common,forever.” However, this resolution did not last as the salt hay produced in the salt marshwas valuable as fodder and bedding for livestock, and the marsh was eventually dividedinto hundreds of private lots.C. Description of Salisbury Beach State Reservation1. Recreational OpportunitiesThe Salisbury Beach State Reservation contains 521 acres, including 3.8 miles ofocean beach and one mile of river beach. All of the 3.8 miles of ocean shorelinealong Salisbury Beach is high quality sandy beach which is available to the public forstrolling, swimming and other water-related activities. The Reservation also includesan area of beach along the Merrimack River which is used primarily for boating,fishing, strolling and dog walking. Because the Merrimack River currents are verystrong and boat activity is high, swimming with in the river area of the Reservation isSalisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 5
prohibited. Waterfowl hunting is also allowed at the Reservation within the marshesalong Black Rock Creek.The Salisbury Beach State Reservation is the most used camping area withinMassachusetts. It is also one of the most popular sites for beach use, swimming,boating and fishing. On an annual basis, the Reservation generates over 500,000 inday-use revenues and over 850,000 in camping revenues. The Reservation has anannual attendance rate of over one million visitors. A total of eighteen (18) publicaccess ways are currently maintained by DCR and provide access to the ocean sidebeach. At the most southern end of the Reservation are several facilities andassociated amenities which DCR currently owns, operates and maintains. Thesefacilities include several public bath houses and campground comfort stations, shadeshelters, playground and picnic areas, parking lots, staff headquarters and a newLifeguard Command Center which was completed in 2008.There are currently 484 campsites available on the west side of the Reservation. Boataccess is provided to Black Rock Creek and the Merrimack River at the most westerlyend of the campground. At this location, there are two concrete boat ramps and aparking area capable of holding up to 60 vehicles and trailers. These ramps providewater access for canoes, kayaks, powerboats and sailing craft. The larger of the tworamps is maintained by the Massachusetts Department of Fisheries and Wildlife(DFW) Office of Fishing and Boating Access (OFBA), formerly the Public AccessBoard (PAB) and includes seasonal docks. This ramp and dock system wasconstructed by OFBA in 1995. The small boat ramp was also constructed by OFBAin 1963. Although the small ramp is still in use, it is no longer maintained by OFBA.DCR presently manages both ramps and the parking lot which are open year round.The boat ramp facility experiences heaviest use from spring through fall.All DCR managed recreational facilities and amenities are shown in Figure 2.Photographs of many of these facilities and amenities are presented in Appendix N(see Photographs N-1 through N-17). Details pertaining to the management offacilities are presented in Section V, Public Use, Access and Safety.2. Natural ResourcesSalisbury Beach contains many important natural resources that DCR strives to not onlyprotect, but to enhance. These areas include the Coastal Beach, Coastal Dune, Salt Marshand important wildlife and rare species habitat. The natural resource areas are protectedunder many different laws and regulations and are discussed in greater detail in latersections of this plan.It is the combination of natural resources and public facilities and amenities at theSalisbury Beach State Reservation that makes it one of the most attractive and popularrecreational areas in the Commonwealth.Salisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 6
Insert Figure 2Salisbury Beach State ReservationBarrier Beach Management PlanSeptember 2008Page 7
D. Improvements at Salisbury Beach State Reservation1. Recreational ImprovementsPrior to 1969, the Reservation was owned and maintained by the MassachusettsDepartment of Public Works (MassDPW). During that period, MassDPW developedmuch of the day use areas and camping facilities, including the administration andfirst aid buildings, the pavilion bath house and changing rooms and a parking areawhich accommodated up to 3,500 vehicles. In 1969, the State Legislature transferredcare and control of the Reservation to DCR.DCR implemented major renovations to campground comfort stations in 1996,making the camping experience at the facility much more attractive to visitors. Inaddition, three new comfort stations were built by DCR for the convenience of beachgoers. These elevated buildings, are located behind the primary dune on existingpavement areas and utilize alternative waste disposal technology that eliminatespotential threats to this sensitive area. With the construction of new bu
Salisbury Beach is a complex barrier beach system, comprised of coastal beach, coastal dunes and salt marsh. Within the Salisbury Beach barrier beach system is the Salisbury Beach State Reservation, which is managed by DCR. The Salisbury Beach State Reservation is concentrated at the southern end of Salisbury Beach adjacent to the
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