SECTION 1:   INVENTORY AND ANALYSIS OF EXISTING CONDITIONS

1.1  Community Character/History

1.1.0     Introduction

Frye Island is located in Lake Sebago, closer to the east side of the lake than the west, just off Raymond Cape. The Island is approximately 1000 acres, 3 miles long, running north south, and a mile wide at its mid-line. Highest elevation on the Island is 385 feet above sea level.

 

As of 2000, the Island with seven miles of shorefront had approximately 400 cottages and a store and café.  Recreation facilities include 16 beaches, a nine-hole golf course with club house, a swimming pool with cabana, four tennis courts, a Community Center with pool tables, ping pong tables, a football table and an air hockey table, a Marina with 68 slips (expandable to 120 slips), and an 80 boat tie up area.  Construction of a ball-field/park was initiated in July 2001.  Two, 1960-70’s vintage ferryboats, which are owned by Frye Island Incorporated (FII) and operated by the Town, provide access to the Island on a seasonal basis.  The boats are 65 feet long and 24 feet wide.

 

1.1.1     Development 1949 – 2000

For many decades before 1949, the Island was unoccupied and owned as one tract of land.  Modern development started after the forest fires of 1947.  The Island was purchased by John P. Porell, who sold a number lots to others and 100 acres for the Frye’s Leap Sailing Camp.  But in 1964 Porell sold his remaining property to Leisure Living Inc. and the major development of a resort community began.

 

The intervening years saw growth of this resort community, legal actions over the development and ultimately the demise of Leisure Living Inc.  This led to the establishment of two new entities to administer the Island community.  (Frye Island Inc. and the Municipal Services Corporation).  Because of deteriorating relations with the Town of Standish, to which the Island belonged, the Island petitioned, and the State Legislature approved the formation of the Town of Frye Island on 1 July 1998.

 

A detailed Town Historical Background is at Section 5.3.1

 

 

1.2  Population

1.2.0     Introduction: 

Development of a Town Comprehensive Plan must depend on an understanding of the town’s past history and “… demographic data describing the municipality and the region in which it is located.”  While the state law requiring comprehensive plans doesn’t specify a state goal on Population, it does include the noted quote.  The impacts/needs of the town’s inhabitants must be understood if a viable plan is to be developed.  This section will address past population growth through the Town’s unique development from a generally uninhabited island to a vacation resort, which on 1 July 1998 became Maine’s newest town.  This unique progression will be used to predict the future growth trends needed to develop a viable Comprehensive Plan for the Town of Frye Island, Maine.

 

1.2.1     Characteristics of Frye Island Inhabitants:

The 1999 town survey results and summary included in this plan well document the very unique aspects of the Town of Frye Island as a vacation/second home community.  Located in the south end of Sebago Lake, the approximately 1000-acre town complements and reflects the lake vacation ambiance of the Lakes Region and the communities of Sebago, Naples, Raymond and Windham.  This region’s attractiveness as an inland waters oriented summer vacation area is reflected in regional growth while also drawing attention to Frye Island as a unique community.

 

In 1964, Frye Island began its development as a resort community.  However, it was viewed as an isolated island attracting a limited number of vacation/second home inhabitants “from away”.  Records reveal a cottage/camp community that in 37 years (1964-2001) has grown from basically zero to approximately 400 cottages with a locally assessed value in excess of 31 million dollars and a state assessed value in SAD#6 calculations in excess of $41 million.  Figure 1:  Frye Island Cottage Growth & Projection highlights the trends of slow growth, as well as peak periods of growth such as 1984-87.

 

Figure 1:  Frye Island Cottage Growth & Projection

Since July 1997, there has been increased public awareness of the island community since it has taken actions to become a self sufficient Maine town.  This was further nurtured by a strong national and local economy, which allowed renewed interest in vacation/second homes.  This was especially evident from the 1999 existing cottage sales and construction permits for improvements and new construction.  However, such growth is attributed to a select clientele who are attracted to a town administered on a year around basis and inhabited each year only from the end of April through the first week in November.  Such owners also accept that electrical and phone services are commercially provided and remain active on the Island in the winter (unless suspended till spring by weather conditions), but all other services are local (Town) and cease.  Despite these conditions, some of the more adventuresome owners may visit by snowmobile and/or skis, if the lake freezes over.

 

The Town property owners are a diverse group as documented in the Town Survey.  While there are only 74 registered Frye Island voters and a 2000 national census count of zero, current local estimates indicate a population of over 1400 when all existing cottages are occupied.  (This is based on the results of survey question #43.)  Adding guests and renters, it is believed the population could double to 2800 on a peak holiday weekend such as 4 July.  In the past “day trippers” have generally been golfers and/or house guests.  While at present no data exists to validate this belief, additional “day trippers” now include the occasional bikers.  To obtain such data and facilitate future plan updates a local census process should be developed.

 

To better understand the demographics of the Town inhabitants the following selected data, as extracted from the Town Survey, are emphasized. It is assumed that the respondents generally represent the total Town population.

 

·       The “from away” population dominates the Town inhabitants.

Massachusetts 36.8%

Maine                          14.2%

Connecticut                  11.7%

New Hampshire          10.8%

Florida                          9.8%

All others                    16.7%

Note:  The 5 New England states account for 74% of the Town property owners.

 

·       Town resident time:

57% of the survey respondents consider themselves “seasonal residents”.  A majority of the respondents spend over 100 nights per year on the Island.  As noted in Figure , the greatest number of respondents, 24% have been on the Island for 11 to 16 years.  This agrees with the major growth period shown on the “Frye Island Cottage Growth & Projection Curve”.  The next significant period of residency is 1 to 5 years.  This corresponds with cottage resales and limited new construction.  The original “resort” inhabitants are found in the 30 to 33 year category.  However, as owners age, a tendency for longer stays on the Island is noted.  This conclusion is supported by an increase in mail deliveries.  Again there is a lack of statistical data to validate these statements, which are based on verbal contacts.

 

Figure 2:  Years on Frye Island

·       Occupations and education:

Approximately 50% of the household adults are fulltime employees at their primary residences.  Approximately 28% are retired.  Approximately 60% of the household adults have a college or graduate degree.  Another 18% have some college education.  However there are no Town children attending the local school district, which serves Frye Island (SAD#6).

 

·      Cottage rental:

Of the cottage owners reporting, 83% do not rent their cottages.  This does not reflect use by family and friends, however.  Of the 17% of owners who rent their cottages, 24% rent for 2 to 3 weeks a season, 17% rent for 5 to 6 weeks, and 13% rent for 6 to 7 weeks.  Thus, considering that there is no industrial or agricultural activity in the Town, vacation rentals are one of the few aspects impacting the Town economy.  Rental income helps owners to keep up with their property tax payments while also providing a continuing customer base for the Island store/restaurant and the golf course.  This rental activity also clearly defines the Town’s high season as 1 July through Labor Day.  These data are based on the records of the predominant rental agent on the Island.

 

·       Demographic Representation by Age:

The age distribution displayed in Figure 5 is also a reflection of Island development trends. The dominance of the 40-59 year group meshes well with the major growth on the Island in the 1980s. Now, as these owners age they may extend their stays on the Island and ultimately stay for the season. But they may also decide to sell, as was demonstrated in 1998 and 1999 by increased property sales

 

·       Regional Aspects:

The Town of Frye Island’s regional ambiance is based on Sebago Lake and it’s recreational environment.  The Town’s unique rural surroundings, gravel roads, private beaches (owned by FII and leased to the Town) and wildlife attract a class of people from all walks of life in Maine and “away”.  This Island environment, on an inland lake, seems to provide an experience not readily available in many mainland communities.

 

Positive national and regional economies facilitate an interest in Frye Island.  The part time habitation of the Town is unique and offers a certain security to property owners when they are away for the winter.  But during May-October the inhabitants impact the local and regional economies by subsistence purchases, maintenance and new cottage construction contracts and Town contracts for services such as fire, emergency rescue, police and solid waste disposal.  Though the Town is fully supportive to state and regional education programs, none of the Town’s children attend the School Administrative District (SAD) #6.  This due to the seasonal status of the Town’s residency.  The growing impact of membership in SAD#6 on the Town’s fiscal capacity has resulted in a referendum-initiated withdrawal movement, which was endorsed by the Town voters in the October 2000 Town Meeting.  Subsequent progress was stymied in the fall of 2000 by a state legislative action to preclude withdrawal from SAD#6 without specific legislative action.  At this writing new options are under development.  

 

These selected population characteristics reflect the broad diversity of the Town’s inhabitants and support the findings outlined in the Town survey.  These findings emphasize a desire for a rural community in a natural environment, while protecting the quality of that environment and Sebago Lake.  These findings also indicate a desire for public safety and a viable recreational experience at a reasonable cost.

 

1.2.2     Trends of Town Growth

As outlined above, the Island and now Town growth is only documented by land sales and increased cottage/home construction.  True historical records are scattered between the three and now four entities involved in development on the Island.  Growth prediction is controlled by the national and local economies and the public’s interest in acquiring a seasonal second/vacation home.  Growth on the Island is further constrained by the PWD court decision, which limits Island “build-out” to no more than 750 septic systems.  This may not translate to 750 homes as septic system equivalents have also been applied to recreation and other Town and FII facilities.  There is also no comprehensive population data.

Population:

The lack of any formal, local, “full-time resident” population data is further complicated by the lack of any National Census results. The only census number is a 1990 tract number from Standish that shows a population of one for Frye Island.  This was only an anecdotal entry as, at that time, Frye Island was part of Standish and seasonal.  The 2000 Census, while recognizing the Town’s existence, collected no data from the Town, as the island is closed on 1 April.  Further, Census forms were not delivered to island property owners, and no door to door follow up was conducted.  Figure 3, Cumberland County Population Forecast by Community: 1995-2025 was obtained from the Greater Portland Council of Governments and was considered in developing Town of Frye Island growth trends.  None of the listed communities are occupied part time. While many of the towns do enjoy the impact of the seasons, the communities of Sebago, Raymond and Naples were given specific consideration due to their proximity to Frye Island and Sebago Lake.

 

Figure  3  Cumberland County Population Forecast by Community: 1995-2025
 

 

To arrive at a reasonable estimate for current population and future growth trends, it was decided to use the Frye Island Cottage Growth & Projection curve in conjunction with the results of the Town survey.  Also considered was the average number of new home construction permits issued over the last five years.  Details for 1998-2000 are enclosed on the next two pages as a reflection of recent enhanced activity.

Figure 4:  Building Permits – 1998 - 2000

1998 Building Permits

 

The Community Survey at Question 43 yielded a count of 729 inhabitants for the 205 households that responded to the Survey.  In 1999, there were approximately 390 cottages on the Island.  The reported numbers would indicate an average household of 3.55 inhabitants.  Thus, the population for 400 cottages, if all were simultaneously occupied, is estimated at 1420. As previously noted, on a peak holiday weekend it is conceivable that the population could double to 2800.  To validate these estimates a special weekend survey would be needed.  Also, for a better household estimate consideration might be given to including a Town Statistics questionnaire in the annual property tax bills.

 

Cottage Growth:

Analysis of the “Cottage Growth Curve” (Figure 1) reveals the historical growth pattern of a vacation resort that became a Maine Town.  It reflects the following cottage per year growth for the periods noted.

            Full period                  (1964-2000)                11 cottages/year

            Initial growth               (1964-1971)                20 cottages/year

            Problem years             (1971-1986)                6 cottages/year

This period includes a number of impacts, such as a growing concern by the Portland Water District  (PWD) over septic systems impact on the Lake.  A court order in 1974 had placed a limit of 750 cottages with septic systems on the Island development.  This was also the period during which the resort developer (Leisure Living) chose to abandon the development and sold the Island to Frye Island Incorporated, a new company made up of Island property owners.  The initial years proved to be lean for development as the new management/owners took on their task.

            Major growth      (1986-1988)            35 cottages/year

            Recent 12 years  (1988-2000)             8 cottages/year

            Recent   6 years  (1994-2000)             6 cottages/year

            Recent   3 years  (1998-2000)             8 cottages/year

 

Data for the most recent period, 1999-2000, shows an increase in building activity on the Island, corresponding with a strong regional/national economy.  At that time, a building boom for 2001 was predicted approaching the “boom “ years of the mid-80’s.  A potential for 27 new foundations/homes was estimated.  The intervening economic change into 2001, complicated by fuel and gas prices may have a negative impact.

 

1.2.3     Projections of Town Growth

Considering the above trends, national and local economy factors, and the continued interest in vacation/second homes a 10-year projection using the last five year trend is deemed logical. However, the inhabitants’ desires that no condominium or campground developments occur must also be remembered.  Also, growth may be tempered by the limited number of remaining waterfront lots.  Thus, the future growth may rely on development of shoreline one back lots, or lots around the golf course.

 

After a careful review of the various data and the projection options shown on the “Cabin Growth & Projection Curve”, a 10 year projection of 6 to 10 new cottages per year appears to be reasonable.  Assuming a worst case of 10 per year, it would result in 100 new cottages for a new total of 500 in 2011.  This is still well under the PWD 750 limit.  This imposed limit must, however, be a continuing consideration.  How quickly it could result in a moratorium on construction will depend on changes in subsurface disposal technology acceptable to the proper authorities and the rate of  construction of cottages on lots already in private ownership.  New lot sales by Frye Island Incorporated (FII) are generally restricted to privacy or septic pump back lots which have no impact on the 750-lot limit, or to buildable lots within the 750 septic system limit.  In 2001 FII initiated a land use / real estate study on all its holdings.

 

Applying the current derived factor of 3.55 inhabitants per household the 2011 population is projected at 1575 before peak holiday impact.  Using the holiday doubling assumption 3000 is possible.  The 10 year (2001-2011) population increase attributed to cottage growth is 355 and an annual growth rate of approximately of 2.5 % per year.  While this appears lower than the local lake community estimates for Sebago, Naples and Raymond, it appears reasonable based on the unique aspects of the Town of Frye Island.

 

1.3  Local Economy

A Town of only second/vacation homes, a six-month occupancy per year and with no industrial or commercial basis except tourism, tends to show no strong economic base.  This is reflected in the property tax rate required to operate the Town.  If a year around occupancy were pursued the associated costs to achieve it appear cost prohibitive and contrary to the Town’s present focus.   Even if year around living were possible, there would be no major employment increase except possibly for home based businesses.

 

Within the Town of Frye Island’s 1000 acres there are 823 privately owned lots, 512 lots owned by Frye Island Incorporated (FII).  One 1-acre parcel and one 11-acre parcel have not been previously subdivided.  Frye Island has 74 registered voters and at full occupancy, it is estimated there would be 1400 inhabitants.  Since Town occupancy does not occur at National Census time, there is a distinct need for a local census program.  These data could have a viable impact on State and Federal grants and the Town economy.  In recent years, a slight increase in fall season occupants has been noted.  Employment opportunities on the Island remain very limited, as there is no industry and very little commercial activity. This mirrors the employment interests of the Town inhabitants.  Of the residents who stay for the season and might consider employment, many are retired and their wage income may be limited due to pensions.  Other residents, who stay for varying periods, are employed off Island.  There are also a small number who are self-employed as home maintenance contractors and limit their activity to work on the Island.

 

The provision of Town services provides year round employment for 3 people and seasonal wages for an additional 15.  None of these personnel can live on the Island year around.  The Frye Island Golf Course provides seasonal employment for approximately 7 people.  The only other employment opportunity on the Island is the general store/café, which employs approximately 8-12 people.  These jobs provide no significant revenues toward sustaining the Town.  The revenue stream generated by the town’s inhabitants is more significant to the regional economy (food, fuel, home repair, maintenance and construction).

 

The Town of Frye Island adopted the Grand List on properties from the Town of Standish when Frye Island became a town in 1998.  The last complete outside revaluation of the Island properties was in 1983.  In subsequent years, the Standish tax assessor kept the Island tax valuation comparable to the States valuation.  After becoming a Town, July 1, 1998, the Town of Frye Island’s ratio of local valuation to State valuation has dropped to 70.5%, necessitating a re-evaluation in the near future, based on State standards.

 

There is no fiscal database to further substantiate this narrative other than the previous MSC and now Town budgets.  Additional research might consider previous State sales tax information and employee wages.   

 

1.4  Housing

The town of Frye Island is a full-time town with part-time residency. The Island generally opens the last week in April and closes about November 1 with the cessation of all municipal services except for administration.  Property owners do not have access to their property via the car ferry, the entire Island water system is drained, fire and police services cease (except for emergency services), and the administration offices move off the Island.  Maintenance crews continue to work for one or two months after closing and begin work again about a month before opening to prepare the roads and water systems for owners to arrive.

 

The seasonal nature of the Town’s residency has a major impact on how the Comprehensive Plan must consider housing.  In addition, there is the added factor that the Island is under a 1974 court order that restricts the number of lots with septic systems to a maximum of 750.  The Court Order also provides that each septic system must meet the State Plumbing Code and that no dangerous phosphate concentrations will result to the Lake.

 

From its inception, the Island has been considered as a recreational and, for some, a retirement haven. As a result, all homeowners have second homes in other locations throughout the United States, and generally spend more time at these other locations than in the Town.  37% of survey respondents listed Massachusetts as their winter home, while 14% are from elsewhere in Maine, 12% from Connecticut, and 11% from New Hampshire.  Florida was listed by 10% of the respondents.  Figure  shows the distribution of the population by age and supports calculations that almost 20% of the Town survey respondents fall in the retired age range of 60 and older.  Also approximately 57% of the respondents, ages 18-59, fall in the employment range.

 

The Comprehensive Plan survey conducted in September 1999 indicated the owners wanted to maintain the rural and recreational character of the Town.  They did not want townhouses or condominiums to be constructed, nor did they want bed and breakfasts or any significant commercial development to occur.

 

The court ordered limit of 750 septic systems has had and will continue to have an impact on housing development in the Town.  Currently 830 lots are held by private owners and about 350 of them remain as buildable.  511 lots are owned by Frye Island, Inc.  There are nearly 400 homes and if all the remaining 350 lots met the perk conditions for septic systems, then the limit of 750 systems would be reached.  Some lots on which homes have been built did not pass the

 

Figure 5:  Demographic Representation by Age

septic seepage tests.  Back lots have been purchased for septic fields thus reducing the total available lot inventory.  Some privacy lots that have been purchased can not be built on, thus reducingthe inventory even further.  The zoning ordinances require a minimum lot size of 20,000 square feet and as shown in Figure 6, only 15% of the lots satisfy this requirement.
 

Figure 6:  Frye Island Lot Sizes

 

Single non-conforming lots may be developed due to grandfathering regulations, but if two non-conforming contiguous lots are held in common ownership they must be combined to satisfy State regulations.  This applies to the privately owned lots as well as to lots owned by Frye Island, Inc.  Shoreland frontage requirements that reflect State Statutes must also be applied.  Therefore, zoning regulations further reduce the available inventory of lots.  The combination of these factors significantly limits the possibility of housing development in the Town.

 

Nevertheless, homes are being built.  As discussed in the section dealing with population, the rate is between 6 and 10 homes per year.  To an appreciable degree, the rate of building varies with the national economy.  The quality of housing being built has increased as well and distribution of costs of homes has shifted toward being more expensive.  Regardless of costs, the impact of 60 to 100 more homes over the next 10 years will have a major impact on the infrastructure of the Town, particularly the water system, ferry usage and the environment.  These issues were discussed in Section 1.2.2.  Given the small lot sizes, it is important that consideration be given to controlling the footprint area of new construction and additions.  Current ordinances do not address this concern and for environmental as well as aesthetic reasons the size of homes should be addressed.

 

Affordable Housing.

 

The issue of affordable housing must be addressed.  It is particularly difficult to apply the State Statutes to the part time usage of the Town of Frye Island.  It is hard to imagine a situation in which a low income family whose income can not support an affordable year round home being able to afford a second home that has as its purpose a recreational use and is accessible only for six months.

 

Affordable housing can be discussed based on median income and the definition of what constitutes affordable for very low, low and moderate income households.  The median family income for 1999 in the Greater Portland Municipal District that contains the Town of Frye Island was $47,400.  Under state guidelines, it is assumed that a family can not afford more than 30% of its income for rental housing, and no more than 28% for home ownership costs including mortgage and utility costs.  Figure 7 shows the affordable housing costs for the three income groups.

 

Figure 7:  Affordable Housing costs

 

 

Figure 8 shows the distribution of the market value of the existing homes in the Town.
 

Figure 8:  Market Value of Frye Island Cottages

 

The distribution of affordable selling prices is given in Figure 9.

Figure 9:  Distribution of Affordable Housing Prices

 

This would indicate that there is a substantial inventory of affordable homes in the Town if they were available for sale.  However, as noted previously, all of these homes are accessible only for the months of May through October and not for year around occupancy.  The meaning of affordable housing in this context is misleading.  It is doubtful that very many families falling in the lower two income groups could consider a second home, and even the moderate income group families would find it difficult to afford a second home.

 

Affordable rentals are an even more difficult situation.   In 1999, approximately 38 cottages were rented through the most active real estate office handling Frye Island properties.  In 2000, this same real estate office had 34 rental properties.  The average rental was $3916 per month.  Inland rentals were somewhat less expensive but the average was $3080 per month. Waterfront rentals would have been significantly more than the average.  These rental costs are set by the owners and depend on demand and the economy.  It is obvious that none of the rentals satisfy the definition of affordable for any income group.  Given the small inventory of rentals and the recreational use of these homes, it is unlikely this situation will change over the next 5, or even 20 years.

 

The relevant land use ordinances as of October 2000 do not allow mobile homes but this is expected to be corrected at the July 2002 Town meeting. However, the deed covenants (see Section 5.5) that pertain to every lot, except for those few not contained in the properties transferred from Leisure Living to Frye Island, Inc., do not permit mobile homes.  This is a matter of a contract between buyer and seller and has nothing to do with the provision in the ordinances for an area for mobile homes.

 

The State requires that towns “seek to achieve that at least 10% of the new housing units constructed in the municipality in the 5 years after plan adoption be affordable housing”.  However, the State does not require that this criterion be met for second homes serving only part of a year and primarily for recreational or retirement purposes.  Over the next 5 years, it is possible that homes will be built in the Town that satisfy the State definition of affordable but these homes will not be affordable when considered as second homes.

 

In discussions with the Portland Council of Government it would appear there are no regional affordable housing plans.  The Town of Frye Island must continue to monitor any changes in regional plans

 

1.5  Natural Resources   

              1.5.1   Water Resources

The Town of Frye Island is ever mindful of the importance of groundwater and surface water quality.  The Town relies on water from Sebago Lake as its source of drinking water, as does the Portland Water District (PWD) who serves 10 Greater Portland communities.  Also impacted are the six shoreland towns surrounding the Lake.  This section will present an overview of the Town of Frye Island’s water resources and their related management and use.

 

Water Resource Management

 

The 2001 PWD “Sebago Lake State of the Lake Report” sets the standard to be maintained by any user or neighbor to the Lake.  The following is quoted from the report.

 

“The lake is revered for its cleanliness.  The quality of the trillion gallons of water in Sebago Lake is outstanding.  This fact is demonstrated by almost all scientific measures of water quality – transparency, nutrient levels, dissolved oxygen, and the amount of attached and floating algae, among others.  But one does not need to be a scientist to see that the lake is unusually clean – any first time visitor to the lake will immediately notice that you can see the bottom in 20 or 30 feet of water.  This is true of few other lakes in Maine or anywhere in the country.”

 

The PWD Report also included data on water quality based on scientific measurement using Secchi Disk Transparency and the Carlsen Index to calculate the Trophic State Index (TSI).  The results classify the Lake as “oligotropic” with transparency greater than 7 meters (actual 8-12 meters) and TSI less than 40 (actual for 1990-2000 ranged from a low of 21 to a high of 40).  TSI is a calculation of the productivity of a lake using total phosphorus concentration, chlorophyll a concentration, or the Secchi readings.  For the noted 10 year period, phosphorus readings ranged from 21 to 32, chlorophyll from 33 to 40 and Secchi 25 to 31.   All the readings average below 40 indicating an Oligotropic lake. “Oligotropic” means the lake has few nutrients and thus low algae production potential.  It also reflects undeveloped watersheds and that PWD controls in lake watersheds such as Frye Island must be working.

 

There is one area of concern in the Lakes health as related to aquatic plants.  The variety and density can change from lake to lake and place to place within a lake.  The appearance of non-native plants can have a detrimental impact by out-competing native plants and spreading rapidly to choke shallow areas.  There are 11 plants identified as potentially harmful to Maine lakes.  One, a “variable leaf watermilfoil (variable milfoil)” has been identified in the Lake.  A 2000 survey identified 15 locations of the rooted plant.  At Frye Island, the only reported sighting was of plant “floating fragments” in the waters off Cocktail Beach.  Efforts should be made to educate Islanders about the plant and encourage their involvement in plant identification and control.

 

The people of Frye Island treasure Sebago Lake.  The general sentiment is: “We drink it, we swim and fish in it, we boat on it, we feast our eyes on its pristine beauty and we must take steps to protect it.”  In 1989, in conjunction with a court case involving the PWD, the Island commissioned its own environmental impact analysis for phosphorus and nitrate export into the lake. (See Map 7, Town of Frye Island, Phosphorus Loading).  Literature about water resource protection is available free at the Town Offices.   There is a volunteer Watershed Committee.  The Town Garden Club sponsors speakers from entities, to include the Portland Water District (PWD), who talk about ways to protect the lake by stabilizing its banks and maintaining vegetative buffer zone along shorelines and stream banks. But to insure that a continuing Island wide effort is maintained, an “official” Town of Frye Island Conservation Commission should be considered.

 

Occasionally, the question arises regarding “housing developments” on the Island.  In the 1960’s the Leisure Living development was platted as “Sebago Shores” and deemed by Standish to be a development.  Issues arose regarding lot size and no development site plan was ever approved by Standish.  Before this was resolved the demise of Leisure Living occurred and the Island was transferred to FII.  The FII property has not been treated as a development, but as an island surveyed into lots.  Hence, there are currently no “housing developments” in the Town, but if any were developed they would now have to conform to the Town of Frye Island Subdivision Ordinance, as well as PWD and DEP review.  Routinely, each home built on the Island must meet the approval of the Town CEO, the DEP and the PWD.

 

In assessing the Island’s water resources, consideration must be given to watersheds and their related impacts.  The 2001 PWD Report states:  “The Lake Sebago watershed comprises all, or parts, of 23 towns and covers 231,00 acres (346 square miles).  The 6 towns bordering the Lake and Frye Island account for 86,440 acres, ranging from 862 acres in Frye Island to 20,452 acres in Naples.  However, when new construction building permits for 2000 are analyzed, Frye Island issued 9.2 per 1000 acres and the 6 mainland towns averaged only 1.55 per 1000 acres.  This tends to explain the attention PWD devotes to Island construction activity.

 

The Island watersheds were evaluated as part of the 1989 Frye Island Phosphorus Study.  The study identified and addressed the development (existing and potential) in 20 watersheds. (See Map 9 Frye Island Watershed Boundaries, Portland Water District.)  Construction in any of the watersheds requires a permit from PWD in accordance with a court order.  Normally PWD’s jurisdiction around the Lake extends only 200 feet inland along the shoreline.  However, by the 1974 court order ALL of Frye Island is subject to PWD permitting authority.  The Island’s topography, soils and wetlands maps when considered with the watersheds (See Maps Section 5.13) portray the runoff potential to the Lake.

 

As detailed in the Community History (See Section 5.3.1, {Development 1964-1989}), {Growth 1989-1995}) and in Appendix 5.6, Court Findings and Background, Portland Water District vs. Leisure Living Communities Inc. the number of septic systems to be allowed on Frye Island was challenged in court.  As a result of this action, the Island was limited to 750 lots, each with a septic system.  The initial finding was made in 1974.  Subsequently, PWD reopened the issue in the 1980s in an attempt to reduce the limit to approximately 600 systems.  After phosphorus and nitrate studies were each done by FII and PWD a “Consent Agreement” was negotiated and approved by the Court in 1990.  (Copies of the PWD, Robert G. Gerber INC. and FII, Normandeau Associates Inc. studies are on file in the Town Office.)  The Consent Agreement reaffirmed the 750 limit, pending mitigation through construction of a detention pond at the intersection of Birch Road and Leisure Lane.  This construction was promptly completed and the current Island septic system limit remains at 750.  A unique aspect of the initial Court decision is that either party may petition the court at any time, as the case remains open.  In conjunction with this settlement, during Island occupancy, May-October, PWD provides an inspector weekly on the Island to monitor compliance with lake watershed regulations.  All new home, or Town, construction requires a permit from PWD and septic system equivalents are assessed against the 750 system limit.

 

Beginning in 2001 for area disturbances such as playgrounds and golf course additions, PWD began accepting “remedial actions” such as conservation areas and detention ponds versus septic system equivalents.  Thus, PWD continues to monitor all activities on the Island for compliance with environmental and water resource protection considering runoff, wetlands, (See Wetlands, Map 3) and phosphorus loading (See Phosphorus Loading, Map 7).  In some respects this process appears more stringent for the Island than the Lake’s six shoreland communities, however it is the Town’s contribution to maintaining “Sebago Lake as one of Maine’s most impressive and important natural resources.”

 

There are areas on the island where the groundwater table is generally within three feet of the surface and areas of swampy and organic soils.  The Zoning Map ( Map 5) shows the identified flood plain that encircles the island and several small ponds and streams.  At the July 2000 Town Meeting, voters adopted a Flood Plain Management Ordinance tailored to FEMA standards.  On the Frye Island Shoreland Zoning Map (Map 6), stream protection district, resource protection districts and the upland edges of wetlands are also marked.

There are a limited number of inland bodies of water and streams on the Island.  Some are detention ponds or hazards on the golf course.  Others are natural wetlands.  The mix and location of these resources are shown on the Town of Frye Island Wetlands Map (Map 3).

 

There are no water wells in use on Frye Island.  There may have been in the past, but after interviewing homeowners, real estate agents and former Town Managers, the conclusion is that the lake is the only source of drinking water for the Island.   In the early 1990’s, Goodwin Drilling was hired to see if ground water could be a viable source of drinking water for the Island.  Several sites were drilled to a depth of 300 feet but could not produce enough water to serve as a viable source of potable water.  According to State geologists, there is no known aquifer under Frye Island.

 

The Town funds efforts to protect Sebago Lake from septic and hazardous waste.  It assumes the cost of ferrying trucks from the mainland to pump out homeowners’ septic tanks.  To validate the value of this approach, consideration should be given to an ordinance requiring pump out every 6 years and proof to the Town office of compliance.  If approved this may also require re-negotiation of the existing PWD Municipal Septage Agreement from the present annual limit of 25,000 gallons per year.  In 2000, 23,388 gallons were accepted from Frye Island.  This agreement complies with a State requirement.   Free and readily available lavatory facilities are provided at the Marina for sanitary waste from boaters.  Future consideration should be given to a pump out facility at the marina for marine toilets. The Town also promotes and pays the fees associated with hazardous household waste disposal for all homeowners who participate in an annual regional (Casco, Naples, Raymond) collection effort.  There are concrete self contained bunkers for paint cans, etc at the town waste transfer station.  Another concrete self contained bunker exists in the Public Works Area to guard against contamination.

 

All but three Island homes use septic systems for wastewater disposal. One property on the south end of the Island and a double lot with two houses on the east side, which were not part of the original Leisure Living development, have outhouses

 

Storm water runoff from roads is diverted into shallow ditches and culverts, which eventually connect to natural streams. Natural plant and tree growth help with water control.  The areas of concern are where trees and brush have been cleared and water is allowed to run toward the lake over non-wooded areas.   Road maintenance (See Section 1.8.2 Roads) also focuses on improved ditching, culvert placement and maintenance.  This will minimize improper diversion of runoff.

 

Town ferry crews are trained to respond quickly and effectively to any ferry related hazardous leakage into the lake.  During the summer of 2000, they were called upon and demonstrated their proficiency in this type of emergency by responding to a diesel fuel leak from one of the ferries. 

 

Town Water Supply

 

Untreated water is pumped out of the lake on the east side of the Island for exclusive delivery to a nine hole golf course situated in the middle of the Island and surrounded by buffer areas consisting of undeveloped land and homes.  These buffer zones minimize the golf course’s pesticide and nutrient impact on the lake.  Course treatment is generally limited to use of fungicides and fertilizer on the greens.  Better documentation of this program seems warranted.  However numerous water hazards on the course serve as detention ponds.

 

The Town of Frye Island, except for the southeast corner of the Island, is presently served by a filtered surface water supply utilizing Sebago Lake as its source.  This system operates from late April to November and is considered a non-transient, non-community public water supply under the Federal Safe Drinking Water Regulations.  The system serves approximately 400 seasonal homes, municipal facilities, the golf course pro shop and lounge, and the Frye’s Leap Store/Café and is intended to serve a maximum of 750 dwellings if the island were developed to capacity.  (See also Section 1.9.1.2 Water, in Section 1.9 Public Facilities and Services.)

 

On July 25,2001 the Town was notified of modifications to the State Act to improve public water supply protection.  Included in the notice was a map reflecting the required Source Water Protection Area (SWPA) at the Town pump station.  This is shown on the Shoreland Zoning Map (Map 6).  The act also stipulates that the SWPA will be treated as an abutter under definitions set forth in Town ordinances.  The act also addresses controls over underground fuel storage tanks and septic systems, existing or contemplated, for the impacted area.  Town related ordinances will be modified in 2002.

 

In the spring and fall, there are approximately 200 residents drawing on the system. During July and August, the population could swell to between 2000 to 2500 people.  Every spring the system is purged and recharged.  Every fall, when the island closes, the system is drained and winterized.

 

In 1993, a series of pressurized bag filters were installed to meet the filtration requirement of the Safe Drinking Water Act.  Water is pumped from the lake by one of two 10 hp pumps to the Public Works garage where the filtration system is located.  Two pre- filters using coarse bags and four filters with fine bags comprise the system.  After filtration, sodium hypochlorite is added and the treated water flows to a 54,430 gallon steel standpipe.  After treatment, the water is pumped to homes through surface and shallow plastic pipe.  During 2000, the system delivered an average of 72,275 gallons of treated water per day with a maximum day, on 31 August, of 130,890 gallons.

 

In the fall of 2000, the Town hired Pine Tree Engineering to evaluate the water system, with a goal of upgrading the treatment and storage system and capacity to meet changing water quality standards.  An additional goal was to also insure a more cost effective and lower maintenance operation.  As of June 2001 draft reports have been received and remain under consideration.   

 

          1.5.2      Natural Critical Resources

 

As an island the Town of Frye Island is in effect a natural critical resource.  In the Town Survey, 95% of respondents agreed that scenic and natural areas should be protected and preserved.  79% considered the protection of natural resources “most important” another 19% think it is “important”.  49% valued the island’s rural character as “most important” with another 43% rating it “important”.  55% of the answers supported the establishment of a “Land Trust” to buy or receive land to protect it.  Another 32% indicated that it would “maybe” be a good idea.  As already outlined under Water Resources, there is a need for a Town Conservation Committee that could have as one of its tasks the management of a “Frye Island Land Trust”.  The following aspects highlight the Island as a critical resource.

 

Marina Conservation Area

The 13 acres of land bordering the Marina on the south side of the island have been conserved with a Conservation Easement.  (See Map 1, Land Use) as part of the DEP approval of the Frye Island Marina.  A comprehensive environmental impact study of the south end of the island was completed and filed with the State Department of Environmental Protection in preparation for the permit which allowed the construction of the Marina.

 

Streams, Wetlands, Soils and Shorelands 

The integrity of wetlands and streams is protected on a case by case basis by Town Ordinances and related field inspections.  At Map 3 is the Frye Island Wetlands Map W/Legend.  Major wetlands and streams are shown.  The need for continuing watershed management is further enhanced by reviewing the Island Topography (See Map 2) and Soil Types (See Map 4 W/Legend). There is continuing coordination between the Portland Water District, DEP and Town CEO in the permitting and inspection process for each lot as it is developed to control runoff as well as the phosphorus impact on the Lake (See Map 7, Potential Phosphorus Hotspots).  They provide additional oversight on the construction and maintenance of any Town facilities that might affect the watersheds on the Island and thus the water quality of the Lake.  However, additional and continuing effort is warranted as build-out on the Island continues.

 

Soils on Frye Island vary from sandy loam to exposed bedrock.  The Soils Type Map (See Map 4) displays the Islands soils.  Included with the map is a synopsis of soils data for the Island as extracted from the USDA, Natural Resources Conservation, Soil Survey Data For Growth Management, Cumberland County Maine dated March 2000.  Using this source, the map has been annotated to reflect areas with slopes greater than 15 percent and soils which “may” or “don’t support” installation of septic systems according to the Maine State Plumbing Code Criteria.  Any soil type not colored is considered as septic “permitted”.  In addition to soils type impact on septic disposal, the Code also prohibits subsurface disposal systems on slopes exceeding 20 percent.  This overlay can then be considered in assessing the Towns future land use. However, it is recognized that field perc. tests and other onsite conditions will be the final determining factors for land use.

 

Shoreland protection is another continuing concern.  The Island’s development has been from the shore inland.  Presently, there remains little vacant shoreland except at the south tip of the Island. (See Land Use Map 1).  The current Island Shoreland Zoning Map (See Map 6) displays resource protection districts, shoreland development overlay districts and stream protection districts.  Beach front damage occurs due to the high speed operation of motorized water craft close to shore.  Beginning in the early 1990s, high lake levels with westerly winds have caused beach front damage particularly along a section of the Island’s southwestern bluffs and the Island’s Beach 6.  At the southwestern bluffs, approximately 500 feet of shoreline has eroded up to 3-6 feet exposing a major clay layer.  The exposed layer is now a continuing source of high turbidity and negative impact on the Lake’s water quality.  In 1997 an application for a 319 DEP fund grant was submitted on this area and not funded.

 

The Lake level is controlled by the Eel Weir Dam as managed by the S. D. Warren Co. that is owned by South Africa Pulp and Paper Company.  Because the dam is used to generate hydroelectric power, the Federal Energy Regulation Commission (FERC) licenses operation of the dam.  Beginning in the 1990s, FERC began receiving comments on lake level operations due to high, as well as low, water complaints.  Key participants in this dispute are the Friends of Sebago Lake to which a number of Islanders belong.  The result has been the 1997 development, in coordination with State DEP, of a lake level management plan, which set target date elevations of 265.17 feet above MSL for 1 August and 262.5 +/-.5 feet MSL for 1 November.  To reduce winter storm bank erosion, the lake is to be lowered to 261.0 feet MSL, two times in every nine year period.  The theory is that this should build back shorelines that may have eroded during high water years.  At Appendix 5.6 is the 1997 State Department of Conservation, “Summary of Sebago Lake Shoreline Change Studies, 1990-1997” which includes Frye Island as one of the problem sites.  It provides insights and recommendations and was completed before the 1997 Lake Management Plan was implemented.  But in 2000, due to continuing public comments and in an attempt to mitigate the impact of weather events from August to November, FERC lowered the Fall Management Lake Levels (ranges).  The periodic Lake lowering to 261 feet MSL was exercised in the fall of 2001 and there was no positive effect on the Frye Island western bluffs problem.  In fact, the 1999 Fall/Winter impacts were severe and the exposed clay layer is now a continuing problem throughout the year.  By letter 23 September 2000, the Friends of Sebago Lake challenged the 2000 FERC action and requested a “State of Emergency” be declared for many beaches and shorelines of Sebago Lake.  That letter included the following statement for Frye Island’s southwestern bluffs.

 

“Along southwestern Frye Island cohesive embankments are rapidly eroding into the lake causing almost continuous clay pluming. One stretch of property with an eight foot high phosphate rich clay bank suffered a three foot loss of land this past year.  This property has been permanently damaged.  These embankments before 1989 were stable with sand protective berms, and had 6 inch oak trees growing on the bluff face.  The damage and shoreline reconfiguration is accelerating.”

 

The debate continues as to the cause.  Is it a lake level problem, weather problem or combination of both?  Irrespective, it is a Town, PWD, State Department of Conservation, DEP and property owners’ problem that merits attention to facilitate corrective action.

 

Scenic Areas and Vistas

Island residents and their guests have access to 15 strategically placed beaches and waterfront recreation areas, which ring the Island.  The most prevalent interest seems to focus on sunrise and sunsets.  Western beaches and waterfronts are the common gathering spots for a view of the western mountains, to include Mt. Washington, as the sunsets.  Moon lit and star filled nights are also considered a special treat in the Island environment.

 

Wildlife and Endangered Species

To date, no animals on the Maine Endangered Species List, obtained from the State, have been identified on the Island.  The deer population, water fowl and other wildlife who entertain home owners on the south and south west end of the Island are valued by islanders as part of the attractive natural setting which enhances Frye Island’s charming rural character.  They live untended and unhampered.  An occasional moose swims over to graze in island ponds.  Locally, it is considered a praiseworthy deed to capture one of these visitors on film.  Bird life is abundant on the Island including water birds, song birds and raptors.  The thrill of Loon calls is always a delight.  Raccoons, squirrels, and the occasional ferret are also Island inhabitants.  But construction efforts by beavers do pose the occasional problem.  However, with the help of the Maine Inland Fisheries and Wildlife staff, they are humanely relocated.

 

Lake fishery is a major attraction to Islanders as “Sebago Lake is famous for it’s outstanding cold water fisheries.”  In assessing this topic the recommendations in the 1999 Maine Department of Inland Fisheries and Wildlife Sebago Lake Fishery Management Report were considered.  However the PWD, “2001 Sebago Lake State of the Lake Report” provides the latest review of this important resource.  The following are extracts from that report.

·       Sebago Lake is a classic oligotropic lake with excellent water quality.

·       Sebago Lake’s primary fisheries include landlocked salmon, lake trout, brook trout, small mouth bass and large mouth bass.

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