Crafting Solutions to Small Community Wastewater Problems Analysis,
Alternatives, and Opportunities for Oak Bluffs and Tisbury, Massachusetts

Carl Patrick Palmer

Oak Bluffs and Tisbury are small rural towns on the island of Martha's Vineyard in Massachusetts facing serious wastewater problems. This thesis analyzes the town's wastewater treatment facilities planning process and potential solutions to their problems. Information was gathered on Martha's Vineyard, in interviews and phone conversations, and through library research. The study took place from September 1994 to May 1995. Oak Bluffs and Tisbury operate septage lagoons that discharge untreated wastewater in violation of the Massachusetts Clean Waters Act. In addition, the downtown areas of both towns are unsuited to the treatment systems in use, and portions of the downtown areas require collection. Both towns are under a state administrative order (Consent Decree) mandating that they:
  1. design and construct collection systems and a wastewater and septage treatment facility
  2. close the septage lagoons
The towns are engaged in a facilities planning process in an effort to comply with the state mandate. Oak Bluffs and Tisbury made fundamental mistakes in the design of their facilities planning process. The towns decided on a solution before they defined the problem they faced. The solution they chose called for collection in both towns and treatment of the combined effluent at a remote regional treatment facility. The towns investigated twenty-nine potential sites for this facility, gaining DEP approval for just one. That site is the center of a controversy over potential impacts to the aquifer and Sengekontacket Pond. In pursuit of a single solution, the towns failed to investigate alternatives. A citizens group has organized in opposition to the proposed solution and in support of alternatives. They propose a decentralized solution for the towns, combining advanced on-site treatment where possible and collection for cluster treatment where required. A decentralized solution consisting of elements of this proposal and other alternatives has the potential to effectively and efficiently meet the town's needs. Massachusetts DEP has actively directed the process on the island. DEP issued the Consent Decree and has tried to facilitate the design of a workable decision-making process. In an attempt to amend the process, DEP persuaded the towns to enter into MEPA review prior to when required by the Consent Decree. That environmental impact review has added public participation to the process and requires the preparation of an Environmental Impact Report including analysis of alternative solutions. It also requires investigation of the potential of a water conservation program. This thesis presents a thorough and detailed analysis of the potential for a water conservation program in the towns. Both towns have a number of effective water conservation mechanisms available, including rate structure redesign and a retrofit program. The towns are in a position to benefit doubly from implementing such a program. Reducing wastewater flows will facilitate siting scaled down treatment facilities near town. Decreasing water consumption can defer the impending need to expand water supplies. DEP has effectively managed the Consent Decree. Their intervention addressed the flaws in the process at the local level. But the Consent Decree could have been more effectively designed. To some extent, the design led the towns down the path they pursued. The Consent Decree stipulated a solution (collection and a wastewater/septage treatment facility) and based the timeline on that solution. The Consent Decree should have allowed for and perhaps required investigation of alternatives. Although it seems that DEP may be most effective if allowed to bring in MEPA review at their discretion, the Consent Decree should have required MEPA review earlier in the process.