# *Field Report* Parker River National Wildlife Refuge {#field-report-parker-river-national-wildlife-refuge .unnumbered}

##  1.0 Summary

The Parker River National Wildlife Refuge (NWR) is located on Plum
Island on the Atlantic Coast in Essex County, Massachusetts, 38 miles
northeast of Boston. It includes over six miles of coastline and is one
of the few unspoiled natural barrier beach islands left in the
northeastern part of the United States. The Parker River NWR was
established in 1942 to provide feeding, resting and nesting habitat for
migratory birds. It is located along the Atlantic Flyway and is of
special significance to waterfowl and shorebirds, including the
threatened piping plover. Due to its location along the Atlantic Ocean
in the midst of a heavily populated area, the Parker River NWR has had
to address recreational needs as well.

The Parker River NWR consists of 4,662 acres that incorporate a variety
of characteristics. These include barrier beach and dunes, salt marsh
and mud flats and additional fresh water marsh located in three major
impoundments. Also found on the Refuge are grass­land, forest, brush and
74 acres of administrative land, including buildings, roads and parking
lots. Twelve non-contiguous acres were purchased on the mainland side of
the Plum Island Turnpike for the development of a Refuge Headquarters
and Visitor Center. The Refuge shares Plum Island with a residential
community at the northern end of the island that reaches a population of
over 5,000 persons in the summer months. This area, located in the towns
of Newburyport and Newbury, was traditionally a seasonal commu­nity, but
is now inhabited primarily by year-round residents. The southern tip of
Plum Island includes the approximately 75-acre Sandy Point Reservation,
which is owned and operated by the Massachusetts Department of
Environmental Management (DEM).

The proposed new Visitor Center represents a major change in the
operation of the Parker River NWR. The ability to provide interpretive
and educational services will be greatly enhanced by a dedicated
facility. The potential Alternative Transportation System (ATS) options
for Parker River relate to the implementation of this facility. ATS
options include:

-   Purchase of a clean fuel bus by the NWR for the purpose of providing
    guided tours of the NWR. Given the limited parking in the Refuge and
    the educational and interpre­tive goals of Refuge management, guided
    tours are preferred to a general transit serv­ice along the main
    Refuge road.

-   Both the Merrimack Valley Regional Transit Authority (MVRTA) and a
    private, rubber-tired trolley operated from downtown Newburyport
    provide service near the Refuge entrance. While regular transit
    service within the Refuge does not appear to be a realistic option,
    improved service could be provided to the Refuge entrance.

##  2.0 Background Information

### 2.1 Location

The Parker River NWR is located primarily on Plum Island, 38 miles
northeast of Boston. The Plum Island portion of the Refuge is located in
three communities; Newbury, Rowley and Ipswich. The new 12-acre section
purchased for the Visitor Center is located off-island in the city of
Newburyport. Other mainland sections of the Refuge are located in Rowley
and Ipswich. The Refuge borders the Atlantic Ocean and incorporates
Broad Sound and portions of the Parker and Plum Island Rivers. While the
Parker River NWR is located in a heavily populated region near the
interchange of I‑95 and I‑495, access to the Refuge itself is limited to
two-lane local streets. Figure 1 contains a map of the Refuge.

Figure 1. Map of Parker River National Wildlife Refuge

> ![](media/image1.png){width="3.252083333333333in"
> height="5.590972222222222in"}

### 2.2 Administration and Classification

The Parker River NWR is a National Wildlife Refuge established under the
auspices of the Migratory Bird Conservation Commission. The original
Refuge consisted of 1,600 acres purchased from the Massachusetts Audubon
Society. An additional 3,000 acres were added using funds available from
the Migratory Bird Hunting Stamp Act. The basic authorities for Refuge
Administration are the Migratory Bird Treat Act and the Migratory Bird
Conservation Act.

### 2.3 Physical Description

The Parker River NWR consists of 4,662 acres that incorporate a variety
of characteristics. These include 818 acres of barrier beach and dunes
(see Figure 2), 2,994 acres of salt marsh and mud flats and 265 acres of
fresh water marsh located in three major impoundments (see Figure 3).
The remaining 573 acres include 88 acres of grassland, 11 acres of
forest, 400 acres of brush and 74 acres of administrative land,
including buildings, roads and parking lots. Twelve non-contiguous acres
were purchased on the mainland side of the Plum Island Turnpike for
development of a Visitor Center. The Refuge shares Plum Island with a
residential community at the northern end of the island that reaches a
population of over 5,000 in the summer months. This area, located in the
towns of Newburyport and Newbury, was traditionally a seasonal
community, but is now inhab­ited primarily by year-round residents. The
southern tip of Plum Island includes the 75‑acre Sandy Point
Reservation, which is owned and operated by the Massachusetts DEM.

Figure 2. Dunes Figure 3. Estuary

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> height="2.2430555555555554in"}
> ![](media/image3.jpeg){width="2.9694444444444446in"
> height="2.2430555555555554in"}

Access to the Barrier Island portion is through a single point at the
northern end of the Refuge. There are two access points to the mainland
portion of the Refuge.

### 2.4 Mission and Goals of the National Wildlife Refuge

The goals of the Parker River NWR were identified in the 1986 Master
Plan as follows:

-   Achieve the maximum number of migratory bird species indigenous to
    the Refuge biotype consistent with other important management needs
    and habitat limitations;

-   Contribute to the Migratory Bird Program goals for wintering black
    duck populations;

-   Achieve a duck breeding population at or above the 1975-1980
    average, based on five key species: mallard, black, gadwall,
    green-winged teal, and blue-winged teal;

-   Maintain a resident Canada goose population that does not exceed the
    1975-1980 aver­age population of 200 to 300 birds;

-   Protect and enhance breeding and maintenance habitat for non-game
    birds, especially those with decreasing populations;

-   Manage Refuge lands for a diversity of mammal and non-migratory
    species at opti­mum production levels by providing a wide range of
    habitats at various successional stages;

-   Manage, preserve and maintain the existing Research Natural Area;

-   Promote environmental education and interpretive programs to broaden
    public awareness of and appreciation for the natural and managed
    environments of the Refuge; and

-   Provide visitors with a safe and enjoyable recreational experience
    without conflicting with the basic Refuge purpose.

The stated goal of the proposed new Visitor Center is to "provide a
place where people can gain an understanding of how they are partners
with the USFWS in the conservation of the wildlife resources of our
nation. Visitors will also have the opportunity to discover recreational
activities that will not harm the island's natural resources."

### 2.5 Visitation Levels and Visitor Profile

Since the issuance of its Master Plan in 1986, the Parker River NWR has
taken actions to emphasize the protection of wildlife. Recreational
beach use, while still accommodated, has been reduced in favor of more
passive recreation such as birding and nature photog­raphy. The parking
supply has been reduced and since the mid-1980s, the Refuge has
instituted beach closures to protect nesting areas of the piping plover.
The first partial closure was initiated in 1986 and full closures have
been implemented during parts of the peak season since 1991. Entrance
and user fees were charged for the first time in the late 1980s. The
impact on visitation has been significant with visitation declining from
a peak of 476,000 annually in 1977 to 233,000 in 1997. In 1998,
visitation climbed back to 259,000 due largely to an increase in
off-peak season visitation. The party size used to calculate visitation
was lowered from 2.85 persons per vehicle to 2.4 persons in 1995, based
on the results of a Refuge visitation study.

Visitation during the three peak months of July, August, and September
has been in the range of 40 percent of the annual total over the past
several years. Variation occurs largely due to the length of closures
required to protect the piping plover nesting areas. The University of
New Hampshire (UNH) conducted an economic study in 1994 to assess the
impact of closures on the local economy. Closures have generally
occurred between April 1 and July 1 but has been extended as necessary
in specific years.

The survey taken for the UNH studies indicated that 60 percent of Refuge
visitors were female with an average age of 43, a household income of
over \$40,000 and a college edu­cation. An average visit was two and
one-half hours and most visitors were regular users, visiting once or
twice per month. On average, visitors had been using the Refuge for 11
years. Primary activities cited were as follows:

-   Beach 29%

-   Wildlife observation 25%

-   Walking 16%

-   Birding 14%

-   Other 16%

Survey respondents expressed strong satisfaction with their experience
with 96 percent ranking their overall experience as good or excellent.
The overwhelming majority (89 percent) said the Refuge was well managed
and 80 percent expressed support for the beach closures, although
25 percent did say that it detracted from their experience.

The vast majority of visitors are from Massachusetts (77 percent)
followed by New Hampshire at 13 percent. Of those residing in
Massachusetts 57 percent were from Essex County and 27 percent from
neighboring Middlesex County. Approximately 87 percent said they were
visiting on a day trip, and of the 13 percent staying overnight in the
area most were in neighboring communities. Of those staying only for the
day, 26 percent said that they would visit downtown Newburyport on the
same trip, indicating a strong eco­nomic impact on that City. Estimates
of party expenditures were between \$25 (median) and \$54 (mean).

##  3.0 Existing Conditions, Issues and Concerns

### 3.1 Transportation Conditions, Issues and Concern

A single road that serves the island portion of the Refuge runs south
from the main entrance on Sunset Road, to Sandy Point at the southern
tip. The northern half of the road is paved; the southern half is not.
The road has a speed limit of 25 MPH to protect both wildlife and
visitors. The Refuge uses both speed bumps and intensive enforcement
activity to keep speeds down. Access to the island itself is via a
single road, the Plum Island Turnpike. This road is accessed from Water
Street in the city of Newburyport and Rolfe's Lane/Ocean Avenue, which
connects to State Route 1A in the Town of Newbury. While one must travel
local streets through either Newburyport or Newbury, the Refuge is
easily accessible from I‑95 and I‑495. Over one million people live
within a 25-mile radius of the Refuge and over eight million live within
a 100-mile radius.

A number of significant transportation issues impact the Refuge:

-   **Parking --** In order to accomplish the conservation goals set in
    the Master Plan, parking has been significantly reduced since the
    1970s. There are currently 362 parking spaces on the NWR portion of
    the island, in 12 different lots. The largest of these is Lot No. 1
    (see Figure 4), located adjacent to the entrance, which contains 138
    automobile and two bus spaces or over one-third of the supply. The
    next largest is Lot No. 4, (38 spaces) which serves the popular
    Hellcat Interpretive Trail. Of the 362 NWR managed spaces on the
    island, 256 are available for beach access, 78 are available for
    wildlife observation (see Figure 5) and related activities and the
    remainder are shared. The Sandy Point State Reservation which is
    managed by the Massachusetts DEM includes an additional 75.

> Figure 4. Parking Lot No. 1 Figure 5. Trail Parking
>
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> height="2.06875in"}
> ![](media/image5.jpeg){width="2.7493055555555554in"
> height="2.06875in"}

Parking capacity is frequently exceeded on summer days when the beach
areas are open to general use. The Refuge used to operate on a "one-out,
one-in" basis for vehi­cles when capacity was reached. In an attempt to
reduce the long lines of traffic that formed outside of the entrance, a
minimum two-hour closure is now instituted when parking areas fill. This
strategy has generally been successful in reducing waiting lines,
although some visitors still prefer to wait the full two hours in order
to assure they will get in.

A complicating factor is that the Parker NWR charges a \$5.00 per car
entrance fee (\$2.00 for pedestrians and bicyclists), while entry to
Sandy Point is free. NWR person­nel inform visitors who enter the Refuge
and say they are going to Sandy Point that they are not entitled to stop
on the Refuge or use its facilities. This creates enforce­ment
difficulties for the NWR, and some inevitable revenue leakage.
Approximately 50 percent of the people coming through the entry gate
(129,000 in 1998) report that Sandy Point is their destination and do
not pay a fee. Refuge management believes that a percentage of these
users are using Refuge facilities. When the Sandy Point parking lot does
fill up, state officials inform the NWR, and no free admissions are
permitted after that point.

Two additional 25-car parking areas are provided on the mainland portion
of the Refuge. These are open seasonally and used primarily for hunting
and shellfishing access, and are located off Route 1A from the towns of
Rowley and Newbury.

-   **Bicycling/Hiking --** A number of popular trails are provided on
    the island portion of the Refuge, including seven different
    boardwalks used to access beach or marsh areas. The Refuge converted
    a number of trails to raised boardwalks in order to preserve the
    dune environment, provide for easier maintenance and provide the
    user with scenic views of the Refuge.

    Accommodation of bicycles has presented a more difficult challenge
    for Refuge man­agers. The large population base surrounding the
    Refuge, the heavy volumes of traffic on many of the region's roads
    and the magnificent scenery and views all combine to make the Refuge
    a popular bicycle destination. Bicycling conditions are not optimal,
    however, due to the narrow width of the road, heavy volumes of peak
    season traffic and the fact that many drivers are distracted while
    viewing the scenery. Poor sight­lines in some areas also put
    bicyclists at risk. Since much of the road borders marsh or other
    wetlands, opportunities for widening to accommodate bicycling are
    minimal. In addition, widening the road would encourage higher
    automobile speeds, which already require significant enforcement
    efforts. The Refuge does not permit off-road bicycling due to the
    sensitive nature of the environment. Refuge management believes that
    bicyclists will continue to use the facilities, and that education
    and enforcement are the only viable options at this time for
    addressing safety issues.

-   **Public Transportation --** The MVRTA provides summer season
    service to Plum Island, as an extension of its route between
    Haverhill and Newburyport. The route only serves the residential end
    of the island and thus does not directly access the Refuge entrance.
    Service is infrequent, with four buses per day on approximately
    three-hour headways. A private trolley service has recently been
    initiated in Newburyport. It primarily provides tours around the
    region, including Plum Island, but could be expanded to provide
    tours on the Refuge itself. Opportunities for serving the Refuge
    with existing public transportation services are limited.
    Attractions in the Refuge are spread out, and with low speeds and
    sightseeing traffic, running times would be long. Except for a few
    summer weekends, it is not likely that such service would attract
    sig­nificant ridership.

-   **Traffic Impact of Visitor Center --** The location of the proposed
    new Visitor Center is on the south side of Plum Island Turnpike,
    just east of where Water Street and Ocean Avenue come together. The
    Massachusetts Audubon Society's Joppa Flats Education Center is
    currently under construction across the road along the banks of the
    Merrimack River. There have been concerns raised in Newburyport
    about traffic impacts at this location, including increased volumes
    and pedestrian safety for those crossing between the Parker River
    NWR Visitor Center and Joppa Flats. Analysis by the NWR has shown
    that traffic impacts will be minimal, particularly at peak hour. The
    Refuge anticipates that many users of the Center will be educational
    groups, who will then tour the Refuge by bus.

### 3.2 Community Development Conditions, Issues and Concerns

The Refuge is located in three communities, Newbury, Rowley, and
Ipswich. The major route of access is through the city of Newburyport,
which serves as the primary gateway community to the Refuge. Newburyport
has been transformed over the past 25 years from an economically
distressed maritime community to a major center of tourism and
residential development. Most downtown commercial buildings have been
restored to their early 1800s appearance and contain a wide range of
shops and restaurants. A water­front boardwalk and park have been
developed and expensive condominiums have been developed along the
waterfront as well. The MBTA recently restored commuter rail serv­ice to
Newburyport, creating additional development pressure. Marketing efforts
designed to attract tourists to Newburyport feature the Parker River NWR
as one of its major attractions.

There is also heavy tourist activity in other nearby communities,
particularly Salisbury, Massachusetts and Seabrook, New Hampshire.
Newbury and Rowley are primarily resi­dential communities with limited
tourist amenities while Ipswich contains Crane's Beach/Castle Hill,
another very popular summer tourist destination.

The residential portion of Plum Island is divided between Newburyport
and Newbury, with each community supplying services to its portion of
the Island. The close proximity of dense residential areas to the Refuge
has created a need for strong educational and enforcement efforts with
regard to the plover protection program and required beach clo­sures.
Refuge management believes that these efforts have generally been
successful.

### 3.3 Natural or Cultural Resource Conditions, Issues and Concerns

As noted in Section 2.5, Mission and Goals of the Refuge, the primary
goals of the last Master Plan related to wildlife management and natural
resource preservation. This led to a significant reduction in the number
of parking spaces and subsequent decline in annual visitation. Actions
taken to protect the piping plover are consistent with the Master Plan,
as well as the Piping Plover Recovery Plan, the Refuge Recreation Act of
1962 and the Refuge System Administration Act of 1966. The two refuge
acts require that all recreational activities be reviewed for
compatibility with endangered or threatened spe­cies protection efforts.
Beginning in the early 1990s, full beach closure during plover nesting
season was regarded as the only way of minimizing human impacts on
nesting areas. Construction of enclosures around plover nesting areas
has been undertaken to protect nesting areas from other predators.

There are remains of Native American hunting and fishing camps on the
Refuge, in addi­tion to sites of Colonial settlement.

### 3.4 Recreation Conditions, Issues and Concerns

Primary uses of the Refuge are beach activities (see Figure 6), bird
watching, wildlife observation photography, and hiking. Fishing, hunting
and clamming are also activities that may be undertaken in season with
proper permits. Major periods of activity for birdwatching are in May
and September when warblers stop at the Refuge along their migration
path. October is the most popular month for educational groups, and
annually 3,000 to 5,000 students and teachers use the Refuge.

Figure 6. Beach Activity

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> height="3.5305555555555554in"}

Off-road vehicles are permitted on the beach for surf fishing purposes
only. There are currently 171 permits outstanding; 25 vehicles are
allowed on the beach at one time from mid-August through Labor Day. A
controlled public deer hunt takes place in December, with hunting
allowed only on the island portion. There is a limitation of 45 hunters
per day allowed in the Refuge. Canoeing and kayaking are popular
activities in the inland tidal areas of the Refuge, although launch
sites are limited.

##  4.0 Planning and Coordination

### 4.1 Unit Plans

As noted, the Master Plan for the Parker River NWR was completed in
1986. Current unit plans center around the proposed new Visitor Center
on the Plum Island Turnpike. The proposed Center will include 5,350
square feet for public use, including 1,000 square feet of exhibit space
and an 1,150-square-foot multipurpose room. A sales area, Refuge tour
area, and lab/classroom are other key features. An additional 4,050 feet
is proposed for Refuge administration and staff support. A separate
maintenance facility will also be pro­vided on the grounds. This will
enable the Refuge to consolidate its administrative head­quarters, which
is now located 2.5 miles north of the Refuge on Plum Island, and its
maintenance facilities, which are located on the Refuge itself. A total
of 25 staff parking spaces will be provided and 50 public parking
spaces, in addition to three or four bus spaces. This facility is a
\$7 million project that will enable the Refuge to greatly increase its
educational programs and enhance the quality of visits for both students
and the gen­eral public.

### 4.2 Public and Agency Coordination

The Parker River NWR works closely with the local communities in
management and planning activities for the Refuge. Refuge staff work
frequently with city/town boards in the four municipalities where it
owns land. The 1994 UNH economic study did indicate that the economic
impact of the Refuge on nearby communities is significant. The Refuge
has an excellent working relationship with the Massachusetts DEM, which
manages Sandy Point. There is an active Friends group supporting the
Refuge and a close working relationship with the Massachusetts Audubon
Society.

##  5.0 Assessment of Need and System Options

### 5.1 Magnitude of Need

The current parking supply is viewed by Refuge Management to be in
balance with the goals and objectives of the Parker River NWR. While
public transportation could permit larger number of beach visitors on
peak summer weekends, this is not a high priority. With the development
of the new Visitor Center, the Refuge management does see an opportunity
to increase visitation in a controlled fashion. ATS are seen as an
important tool in accomplishing this goal. The Refuge prefers that any
significant increases in visi­tation come through guided tours and
school-based educational programs.

### 5.2 Feasible Transit Alternatives

-   The Refuge would like to obtain a clean fuel bus for use in
    providing tours from the new Visitor Center. While the initial
    purchase would involve only one small to medium sized bus, the fleet
    could be increased as demand for services increases.

-   Service levels of existing public transportation to the Refuge could
    be improved through more frequent service and institution of a stop
    at the Refuge entrance. This could be accomplished through either
    the MVRTA Plum Island route or the Newburyport trolley service.
    Users would be limited primarily to the beach area near Parking Lot
    No. 1, however, which is within walking distance of the entrance.

-   Improved advanced information systems would be helpful to the Refuge
    in managing traffic on crowded summer days. Alternatives include
    advanced signs on approach roads, including I‑95 and I‑495,
    notifying motorists when the parking areas are full. Information
    could also be provided via the Internet or a toll-free number, which
    would provide information on other visitor opportunities in the
    region. This system could be formalized and incorporated into the
    new Visitor Center when it is opened.

##  6.0 Bibliography

U.S. Fish and Wildlife Service, Northeast Region 5, Master Plan Parker
River National Wildlife Refuge, Essex County, Massachusetts, April,
1986.

Parker River National Wildlife Refuge Visitor Station and Headquarters.

Gilbert, Jansen, Halted and Robertson, Economic and Social Impacts of
the Parker River National Wildlife Refuge and its Piping Plover
Management Program, New Hampshire Agricultural Experiment Station,
University of New Hampshire, October, 1994.

Parker River National Wildlife Refuge, Visitation Statistics.

Parker River National Wildlife Refuge, Parking Inventory.

U.S. Fish and Wildlife Service, Parker River National Wildlife Refuge --
Birds.

U.S. Fish and Wildlife Service, Parker River National Wildlife Refuge --
Hellcat Interpretive Trail Guide.

##  7.0 Persons Interviewed

John L. Fillio, Refuge Manager, Parker River NWR

Steve Haydock, Outdoor Recreation Planner, Parker River NWR

Frank Drauszewski, Deputy Refuge Manager, Parker River NWR

Nancy Colbert, Newburyport City Planner