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Executive Office of Environmental Affairs Massachusetts Office of Coastal Zone Management

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Executive Office of Environmental Affairs Massachusetts Office of Coastal Zone Management Executive Office of Environmental Affairs Massachusetts Office of Coastal Zone Management Massachusetts Chapter 91 Mapping Project Final Report February 22, 2007 Commonwealth of Massachusetts Page 1 of 78 June 9, 2006 Chapter 91 Mapping Project BSC Group, Inc. Executive Summary In the winter of 2002, the Massachusetts Office of Coastal Zone Management (CZM), in conjunction with the Department of Environmental Protection (DEP), began working on a project with The BSC Group, Inc., an interdisciplinary group of Land Surveyors, Civil Engineers, and Environmental Planners, to map state tidelands jurisdiction, pursuant to Chapter 91 and the Waterways Regulations (310 CMR 9.00). The project was designed to pursue a vigorous and comprehensive plan-based program of historic research, plan evaluation, technical analysis, and professional review to develop presumptive lines of jurisdiction. For those geographic areas that are located on filled tidelands, a key focus of this work included the mapping of Historic High and Low Water Marks as these terms are defined in the Waterways Regulations at 310 CMR 9.02. The project generally covers the entire Massachusetts coast (excluding Provincetown, which was mapped in 1995, and the Elizabeth Islands) from New Hampshire to Rhode Island (including Cape Cod, Martha’s Vineyard, and Nantucket). This report, in conjunction with the appended project notebooks and electronic database includes the following: • An indexed and cross-referenced cartobibliography of all historic maps, plans, etc. evaluated as part of the research program, including hard and digital copies of all recovered plans. • A discussion of the methodology used for historic plan registration. • A discussion of potential sources of error and estimated accuracies associated with historic sources evaluated. • A description of the Sequential Cartographic Analysis (SCA) process developed for the progressive plan screening and evaluation associated with Historic High and Low Water Mark Determinations (RFR Section 4.0) and ultimately the development of Chapter 91 Shoreline Maps (RFR Section 5.0). • Documentation of the methodology used in final Historic High and Low Water Mark determination and depiction. • A discussion of the estimated accuracy of the Historic High and Low Water Lines depicted on the final plans and their conformance with appropriate technical standards and specifications discussed above. • A discussion of the basis for the depiction of DEP tidelands jurisdiction on the final plans, including documentation of the origin of each jurisdictional line type and a discussion of those lines, such as contemporary high water that, by necessity, have been depicted as approximate and statements of final plan accuracy. Scot MacDonald, PLS BSC Group, Inc. prepared by: BSC Group, Inc. 384 Washington Street Norwell, MA 02061 Commonwealth of Massachusetts Page 2 of 78 June 9, 2006 Chapter 91 Mapping Project BSC Group, Inc. Table of Contents Executive Summary Pg. 1 1.0 Background and Definitions Pg. 7 2.0 Project Purpose Pg. 9 3.0 Research Pg. 11 3.1 General Considerations Pg. 11 3.2 Potential Sources of Information Pg. 12 3.3 Research Methodology Pg. 14 3.4 Plan Reproduction Pg. 14 3.5 General Types of Plans Recovered Pg. 15 3.6 Archiving and Databasing Pg. 17 4.0 Plan Qualification and Analysis Pg. 18 5.0 Registration Methodologies Pg. 20 5.1 Mathematical Transformations Pg. 21 5.2 Independent Assessment of Plan Registration Pg. 24 5.3 Uncertainty Assessment Pg. 25 5.4 Historical Base Map Pg. 27 6.0 High and Low Water Determination Pg. 29 6.1 Historical High Water Lines Pg. 29 6.2 Historical Low Water Lines Pg. 30 6.3 Historic Shoreline Analysis Pg. 31 6.3 Sequential Cartographic Analysis Pg. 35 6.4 New England Salt Marshes and Sequential Cartographic Analysis Pg. 37 7.0 Interpretation and Use of Chapter 91 Shoreline Maps and Jurisdiction Plans Pg. 40 7.1 Chapter 91 Shoreline Plans and Digital Product Pg. 41 7.2 Jurisdiction Plans Pg. 43 8.0 Deliverable Products Pg. 46 9.0 Summary of Deliverables Pg. 49 10.0 Phase Specific Discussions 10.1 Phase I – Boston Harbor Pg. 50 10.2 Phase II – North Shore Pg. 54 10.3 Phase III – South Shore Pg. 58 10.4 Phase IV – South Coast (Buzzards Bay) Pg. 59 10.5 Phase V – Cape Cod, Martha’s Vineyard, Nantucket Pg. 61 Appendix A – Historical Survey Efforts Pg. 65 Horizontal Datums Pg. 68 Vertical Datums/Tidal Datums Pg. 69 Planes of Reference Pg. 70 Appendix B - 310CMR 9.00 Waterways Jurisdiction Pg. 73 Appendix C – Chesbrough’s Report to the Joint Standing Committee on Boston Pg. 77 Harbor Appendix D – List of municipalities not providing roadway acceptance dates Pg. 78 prepared by: BSC Group, Inc. 384 Washington Street Norwell, MA 02061 Commonwealth of Massachusetts Page 3 of 78 June 9, 2006 Chapter 91 Mapping Project BSC Group, Inc. “All maps are graphic interpretations of spatial information. They are abstractions of spatial reality at a point in time where the reality was perceived by a particular author within the framework of accepted cartographic procedures. As such, maps vary in quality with the state of knowledge of an area, the drafting skills of the author, the purpose for which the maps were drawn, and the state of technology that permitted the author to make his original observations and transform them into a map…” Heidenreich, C.F. Explorations and Mapping of Samuel De Champlain, 1603-1632. CARTOGRAPHICA, Monograph No. 17. 1976. 142 pages (p. xi.) prepared by: BSC Group, Inc. 384 Washington Street Norwell, MA 02061 Commonwealth of Massachusetts Page 4 of 78 June 9, 2006 Chapter 91 Mapping Project BSC Group, Inc. Project Team Massachusetts Office of Coastal Zone Management Stephen T. Mague - Project Manager Alex Strysky –Project Review Coordinator (formerly of DEP Waterways Program) Diane Carle, Data Information Manager (formerly of CZM) Massachusetts Department of Environmental Protection – Waterways Program Ben Lynch – Waterways Program Chief Sharon Pelosi (former Waterways Program Chief) BSC Group, Inc. Scot Macdonald, M.S., PLS - Project Manager Roger Corbin, PLS Marie Hassanova, PLS Ken Fields – Manager of Research Effort Evanson Browne, Adam Sloat, Lincoln Versoy, Monika Bruzkova, Nicole Girard, Steve Cohen, Ken Thompson, Jeremy Reardon, Timothy Witman, Brad Washburn, Peter Baisley, Magdalena Pavlak-Chiaradia Geonetics, Inc. Matt von Wahlde – President Andrew Arace, Hichame Tagzine, Gurudev Lotun – Senior Programmers Boelter & Associates Alice Boelter, President Urban Harbors Institute/University of Massachusetts, Boston Campus Jack Wiggin – Director, Urban Harbors Institute Dr. Richard Gelpke, Dr. Alberto Giordano Acknowledgements: The Project Team would like to thank Scott Seiler (Records Manager, DEP Bureau of Resource Protection), Mike Trust, (GIS Database Administrator, MASSGIS) David Doyle (National Geodetic Survey), Greg Ketcham (Harbor Planning Coordinator for the City of Gloucester), Betsy Lowenstein and Christine Gebhard (The State Library of Massachusetts Special Collections), Martha Clark and Janis Duffy (Massachusetts Archives at Columbia Point), Eric Frazier (Boston Public Library Rare Books & Manuscripts), Kathy Flynn (Phillips Library Peabody Essex Museum), Rachel Penner (Phillips Academy Oliver Wendell Holmes Library), Donna Maturi (Peabody Institute Library of Danvers), Lincoln Thurber (Nantucket Athenaeum), Martin von Weiss (Boston Redevelopment Authority), Stephen Z. Nonack, William D. Hacker (Head of Reader Services, The Boston Athenæum), and all other individuals and organizations that provided invaluable assistance in completing this project. The project team would like to extend a special word of thanks to Captain Albert (Skip) Theberge of the National Oceanographic and Atmospheric Administration (NOAA) for providing prepared by: BSC Group, Inc. 384 Washington Street Norwell, MA 02061 Commonwealth of Massachusetts Page 5 of 78 June 9, 2006 Chapter 91 Mapping Project BSC Group, Inc. high quality diapositives of U.S. Coast Survey T and H sheets, his vast knowledge of the history of the U.S. Coast Survey, its development and methods, and perhaps most importantly his ever- present sense of humor. Peer Review Group In September of 2004, CZM convened a Peer Review Working Group (the Group) consisting of knowledgeable and respected professionals with experience in cartography, shoreline mapping and the Chapter 91 licensing process, to review and evaluate project methodology relative to contemporary principles of best practice and standards of professional care applicable to a project of this nature. The Project Team wishes to thank the following participants for their review of project methodology and information, the drafting of incisive and constructive comments and recommendations, and to further project goals: Mr. Daniel J. Bailey, Director Environmental and Land Use Department, Rackemann, Sawyer, & Brewster, Boston, MA. An attorney, and former geologist, Mr. Bailey concentrates his law practice in the areas of zoning, land use and real estate development advising property owners, lenders, fiduciaries, property managers and tenants regarding the applicability and effect of state and local zoning, land use and environmental laws, with particular expertise in the permitting and development of Massachusetts waterfront mixed use projects pursuant to Chapter 91 and the Waterways Regulations (310 CMR 9.00) and all aspects of Brownfields redevelopment in Massachusetts, including site assessment and remediation, drafting and implementation of Activity and Use Limitations
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