CITY OF SALEM OPEN SPACE AND RECREATION PLAN UPDATE 1996_VOL 1 CITY OF
REPORTOPEN SPACE AND RECREATION PLAN UPDATE
1996
VOLUME 1:
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NEIL J.
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HARRINGTON, MAYOR
OPEN SPACE AND RECREATION PLAN UPDATE COMMITTEE
ABBY BURNS
WILLIAM CULLEN
REBECCA CURRAN
JOHN GALARIS
WENDI GOLDSMITH
GARY MOORE
DOMINIQUE PAHLAVAN
RANDALL WIETING
CRAIG WHEELER, CITY PLANNER
PRINCIPAL AUTHOR: LARISSA BROWN,ASSISTANT DIRECTOR FOR COMMUNITY PLANNING
Acknowledgments
William E. Luster, City Planner(to May 1996)
Salem Planning Department: Juli Riemenschneider, Jane Guy, Steve Dibble
Salem Assessors' Department
November 1996
TABLE OF CONTENTS
Volume 9: Report
Section 1 - Plan Summary . . . . . 1
Section 2 - Introduction . . . . . . . . . 1
A. Statement of Purpose . . . . . . . . . . 1
B. Planning Process and Public Participation 2
Section 3 - Community Setting 2
A. Regional Context . . . . . . . 2
B. History 3
C. Population Characteristics . . . . . . . . . 5
D. Growth and Development Patterns . . . . . . . . 7
Section 4 - Environmental Inventory and Analysis . . . . 10
A. Geology, Soils and Topography 10
B. Landscape Character . . . . . . 11
C. Water Resources . . . . . . . . . . . . . . . . . . . . . . . . . 13
D. Vegetation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
E. Fisheries and Wildlife . . . . . . . . . . . . . . . . . . . . . . . . 15
F. Scenic Resources and Unique Environments . . . . . . . . . . . 15
G. Environmental Problems . . . . 17
Section 5 - Inventory of Lands of Conservation and Recreation Interest . . . . . 19
A. Protected Parcels . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
B. City-Owned and Private Unprotected Parcels . . . . . . 21
C. Public and Nonprofit Parcels . . . . . . . . . . . . . . . . 22
Section 6 - Recreation Programs . . . . . . . . . . . . . 24
A. City Recreational Facilities . . . . . . . . 24
B. Team Sports and Fitness Programs . . . . . . . . . . . . . . 26
C. Private Recreational Facilities . . . . . . . . . 26
Section 7 - Community Goals . . . . . . . . . . . . . . . . . . . . . . 27
A. Description of Process . . . . . . . 27
B. Statement of Open Space and Recreation Goals . . . 28
Section 8 -Analysis of Needs . . . . . . . . . . . . . . . . . . . . . . . 28
A. Summary of Resource Protection Needs . . . . . . . . . . 28
B. Summary of Community's Needs . . . . . . . . . . . . . . . 29
C. Management Needs - Potential Change of Use 29
Section 9 - Goals and Objectives . . . . . . . . . . . . . . . . . . . 32
Section 10 - Five-Year Action Plan . . . . . . . . 33
Section 11 - Public Comments 39
Section 12 - References . . . . . . . . . . . 45
List of Maps
Map 1 - Zoning
Map 2 - Surface Geological Features
Map 3 - Soils
Map 4 - Hydrology
Map 5 - Vegetation
Map 6 - Scenic Resources and Unique Environments
Map 7 - Lands of Conservation and Recreation Interest
Map 8 - Five-Year Action Plan
Land Inventory Matrix
Tables
1. Population Change 1800-1994
2. 1980 and 1990 Population by Census District and Population Density
3. 1994 Population by Ward - Percentage of Population under 17 years
4. Land Use Classification - 1985
5. Estimated Build-Out Figures Under Current Zoning
6. North Shore Public Coastal Frontage By Municipality
7. Plants Typical of Salem Habitats
8. Fish, Shellfish, Birds, and Mammals Documented in Salem
9. Prehistoric and Historic Site Preservation Priority Areas
10. Size of City-Owned Open Parcels
Volume 2: Appendices
A - Historic Maps
B - Rare and Endangered Species
C - Hazardous Waste Sites
D - Parks and Playgrounds Inventory
E - Community Survey
F - Site Visits Checklist
G - Salem Multi-Purpose Trail System
H - Section 504 Self-Evaluation for Handicap Accessibility
SECTION 1 - PLAN SUMMARY
The City of Salem is a mature urban community with over 11 miles of coastline,
relatively large expanses of wetlands and woodlands, historic sites and architectural
districts, and over 30 parks and playgrounds — including parks of regional significance.
The 1996 Salem Open Space and Recreation Plan gives the highest priority to the
protection and enhancement of Salem's unique environmental, recreational, and cultural
resources, with a special focus on waterfront issues. The Plan recommends acquisition
of a few key sites to support these goals, as well as other specific actions designed to
enhance the environmental and recreational quality of life in the City of Salem
The first six sections of the Plan contain information and analysis on the City's
cultural and natural environment; development history; protected and unprotected lands
of recreational or conservation interest; and recreation programs. Based on this
information and on community input, the Open Space Committee developed the
community needs analysis, goals, objectives, and five-year program of specific actions
delineated in the second half of the Plan.
SECTION 2 - INTRODUCTION
A. Statement of Purpose
This Plan is a comprehensive update of the City's open space planning priorities.
The plan is intended to serve as a source of information on the City's environmental, open
space, and recreation resources, a guide to open space and recreation policy, and an
agenda to be pursued in the next five years. This is the first plan written in conformance
with the 1990 requirements of the Commonwealth's Executive Office of Environmental
Affairs.
Salem's first Open Space and Recreation Plan was prepared for the Conservation
Commission in 1973 and focused especially on an environmental inventory. The
Community Development Master Plan of 1979 included a detailed and extensive section
on the environment (including recreation) and numerous recommendations. Many of the
recommendations of these two previous plans have been carried out, particularly the
addition of land to the Forest River Conservation Area and the park and playground
improvement program. Some recommendations remain on the City's agenda, awaiting the
convergence of opportunity and funding. Although the 1996 Plan recommends specific
actions, its flexibility accommodates a realistic and practical approach to preserving,
enhancing, and expanding the City's open space and recreational resources.
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B. Planning Process and Public Participation
The 1996 Open Space and Recreation Plan was developed by the Open Space and
Recreation Committee, appointed in June 1995 by Mayor Neil J. Harrington, and prepared
by Salem Planning Department staff members. The Committee included representatives
of the Planning Board, Recreation Commission, and Conservation Commission, as well as
Salem residents who have special expertise in open space issues including a wetlands
consultant, a biologist, an urban planner/landscape architect, a landscape designer, and
an open space administrator.
Committee members were divided into three subcommittees: Landscape Values;
Recreation; and Conservation. They reviewed a draft of the plan sections on community
setting and environmental analysis and relevant materials prepared by other City groups,
including the recreation and open space goals of the 1996 Master Plan Update committee,
and the 1994 Maritime Development District Study. Committee members also went into
the field to inventory both public and private open spaces. Planning Department staff
inventoried playgrounds, parks, and cemeteries. The Committee sought public input and
collaboration in the update process through a variety of means - a survey, interviews with
neighborhood activists, public review of the draft, and a public hearing.
SECTION 3 - COMMUNITY SETTING
A. Regional Context
Salem, a city of 8.1 square miles in area, is located in Essex County, approximately
16 miles northeast of Boston. It is one of the oldest urban centers on the North Shore, a
subregion of the greater Boston area which stretches along the coast from the Mystic to
the Merrimack Rivers. Salem is bordered on the north by the Danvers River, Beverly
Harbor and the City of Beverly beyond. The eastern shore of Salem faces the Beverly and
Salem Harbors and the town of Marblehead. The southern land boundary of Salem abuts
the towns of Marblehead and Swampscott and the City of Lynn. To the west is the City of
Peabody. Salem is a member of the North Shore Task Force, one of eight subregions of
the Metropolitan Area Planning Council, collaborating with neighboring communities in
open space activities and discussions of regional open space issues and opportunities.
Compared to other urban communities in its region, Salem has exceptional open
space resources, both in size and quality. The coastal lowlands between Boston and
Beverly have been modified in many places to accommodate an almost unbroken expanse
of urbanized environments. Salem is lucky to have one of the most significant natural open
space interruptions along this densely-occupied coast: the combination of Thompson's
Meadow, the Forest River Conservation Area, and significant portions of the Salem
Highlands.
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B. History
Salem's founding and subsequent history have been strongly marked by its location
and environment. Its estuaries provided rich fishing grounds for the Native Americans who
made their summer camps in the area. One of the first English settlements in North
America, Salem was established in 1626 by a group of colonists from Cape Ann looking
for a new site for a fishing station and trading post.
During the seventeenth and eighteenth centuries Salem became a center of fishing,
shipbuilding, and trade with the West Indies, the Mediterranean, and East Asia. By the
early nineteenth century, the port of Salem was second only to Boston in New England
trade volume. Rich merchants built mansions in the Chestnut Street area and around the
newly landscaped Common.
Salem's golden age of international trade was permanently disrupted by the War of
1812. In addition, as merchant ships increased in size over the course of the nineteenth
century, Salem's shallow inner harbor was unable to accommodate them. Salem residents
then turned to industry, succeeding particularly in shoe-making, leather-processing, and
textile production.
As the City grew in population, residential districts expanded. Immigrant workers
lived in cramped tenements along the waterfront and in industrial districts, but in the
second half of the nineteenth century more spacious residences extended up North Street
in North Salem, along Lafayette Street towards South Salem, and along Bridge Street.
Development in the Salem Highlands and the southern part of the city remained very
limited. Juniper Point, the oldest residential section of Salem Neck, originated in 1870 with
a subdivision of lots for summer cottages.
The Great Fire of 1914 accelerated the development of downtown. The fire started
with a warehouse explosion in Blubber Hollow and raged until it reached the harbor,
incinerating some four hundred businesses, including the Naumkeag Cotton Mill, and
nearly three thousand homes. The mansion districts escaped destruction, but millworker
housing in the Point and the Lafayette Street area up to Leach and Holly Streets were in
ashes. The mills and their housing were quickly rebuilt but the formerly residential district
of lower Lafayette Street took on a more commercial character with the construction of
hotels, commercial blocks, and auto salesrooms.
Salem's population peaked in the 1930s. It was the business, legal, and retail
center of Essex County. Since the decline of rail and the opening of Route 128 in the
1950s, Salem has become one of several centers on the North Shore. The City is also
known as a tourist destination while continuing to support an industrial sector. In addition
to Salem State College, founded in 1854, the City is home to the Peabody Essex Museum,
and the Salem Maritime National Historic Site, the first National Historic Site in the National
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Park System. The Park Service has constructed a new visitor center and made
improvements to Derby Wharf and other sites. The renovated complex will be completed
with the construction of a replica sailing ship and replica warehouses. The Museum will
also be making a $75 million investment in its downtown Salem facilities in the next few
years.
Early environmental, park and open space history. In Salem's early history, its
coastal location and riverine environment were the keys to the city's development.
However, over the centuries the pressure of increased population and new industrial and
transportation-related activities modified the coastline and the extent and configuration of
the North and South Rivers. As the City became more densely-populated and industrial,
residents created a strong park system.
At the time of colonization, the South River formed a tidal basin and harbor at the
present site of Riley Plaza. Over the eighteenth and nineteenth centuries, the tidal basin
and the downstream shores of the river were filled to provide land for warehouses,
wharves, railroad yards, and a train station until nothing remained of the original river
except the short channelized stream which today emerges from a culvert under Lafayette
Street near the intersection with Derby Street. The channel originates in the wetlands at
Old Mill Pond. The last fill project on the river was completed in 1941.
The North River also originally had a wide estuary stretching between present
Mason and Federal Streets nearly to Pope Street. Industrial pollution made the river so
noxious during the nineteenth century that the City dredged and filled the river as part of
a sewage system construction project. The North River still flows from its origin in Peabody
into Salem, but it is now a narrow, channelized river until it emerges from under the Route
114/North Street overpass into downtown Salem. (See Appendix A - Historic Maps.)
Salem Common was the City's first urban park. The swampy pasture was drained
and landscaped by public subscription and renamed Washington Square in 1802.
Greenlawn Cemetery was laid out in 1807 and Harmony Grove in 1840. Salem citizens
participated in the public parks movement which emerged as reaction to the intense
industrialization of the nineteenth century. Salem also became a summer tourist
destination, attracting visitors to the Willows by the first train on the North Shore and to
resort hotels on Salem islands.
Over 350 acres of public parks were created in a few decades: Salem Willows
(1883), Liberty Hill Park (1883, now the Bates School), Ledge Hill/Mack Park (1886),
Highland Park (1906), Forest River Park (1907), and Gallows Hill Park (1912). Most of
these lands were estates that had escaped subdivision and the City saw the value of
preserving them for public use. The city obtained these lands in a variety of ways: the
bequest of public-spirited residents, purchase, and eminent domain. For example,
Highland Park had been pasture land (Salem Great Pastures) since at least the mid-
4
eighteenth century. The City purchased the land to build the high school, and the
remaining land became Highland Park.
In succeeding years the City continued to add to Salem's park and playground
network. Highlights include the opening of the municipal golf course in 1933 and the
creation of five neighborhood parks and playgrounds in the 1940s (Pickman, McGlew,
Splaine, Juniper Point, and McGrath). Kernwood Marina opened in 1961 and the special
playground for handicapped children at the Willows also dates from the sixties. Creation
of new parks and playgrounds continued into the 1970s. After a period of reduced
attention, the initiation of the annual park and playground improvements plan in 1990
focused on renovations and maintenance. Nearly every park and playground in the City
has benefited from improvement projects since 1990
C. Population Characteristics
Salem's population reached 36,000 by 1900 and has fluctuated relatively little
during the twentieth century. According to the City Census, the population peaked at over
43,000 in the 1930s. By the 1960s the population was approximately 40,000 and began
to decline in the 1970s and early 1980s. Total Salem population at the time of the 1990
U.S. Census was 38,091. From 1980 to 1990 Salem's population remained essentially
stable, decreasing by 173 or less than 0.5%. According to the 1994 City Census, the
population has declined very slightly since 1990 to 37,988. Over the next 15 years total
population is projected to remain at the same level of approximately 38,000. (See Table
1.)
Population distribution and density. As one of the oldest urban centers in the nation,
Salem is very densely populated in its historic core (census tracts 2042 and 2043): the
Historic Districts, downtown, and the Point. Bridge Street Neck, which has many tightly-
packed 2-to 4-family buildings, is the next most densely populated area of the city. Where
the housing stock is primarily single family or large two-family houses -- North Salem,
South Salem, and Witchcraft Heights -- the population density is correspondingly lower.
Finally, the southwestern and south central parts of the City, which contain extensive open
spaces and areas unsuitable for development, have the lowest overall population densities
in Salem.
Population densities declined slightly in all census tracts between 1980 and 1990,
with the exception of slight increases in density in the southern parts of the City and the
Witchcraft Heights area. (See Table 2.)
Sex and age composition. The 1990 population had a small majority of females
over males: 20,465 (53.7%) females to 17,626 (46.3%) males. The median age was 33.5,
slightly older than the 32.1 median in 1980. Nineteen percent of the City's population was
17 or under, and 12.3 percent was age 65 or older. According to the 1994 City Census,
5
20 percent of the population was 17 or under while 15 percent was age 65 or older. These
statistics suggest that the populations of both the young and the old have been growing
slightly at the expense of the 18-64 population segment.
The most densely-populated part of the City also has the highest proportion of
children. Nearly 25 percent of the population in Ward One, which includes areas such as
the Point and the Derby Street neighborhood, was under 17 years old in 1994. However,
high population density does not always imply a high proportion of young people. Wards
Three and Five contain the second most densely-populated census tracts, but the
percentage of children and youth is at or below the overall city average. Ward Seven, the
southeastern portion of the city, has the lowest percentage of residents under 17, probably
because of the presence of Salem State College. (See Table 3.)
Race and ethnic composition. The Salem population in 1990 was 93 percent white,
2.7 percent black, 1.4 percent Asian or Pacific Islander, 0.3% American Indian, Eskimo
or Aleut, and 2.7 percent "Other." The largest minority population is Hispanic, making up
6.7 percent of the total population. The majority of Hispanics in Salem are of Dominican
origin, with significant numbers from Puerto Rico as well. The Hispanic population tends
to be younger than the overall population, with a median age of 24 years in contrast to the
overall median of 33. Nearly 37 percent of the Hispanic population was under 18 years old
and only 3.3 percent was 65 or older in 1990. The majority of the Hispanic population
lives in the Point Neighborhood.
Household composition. Sixty percent of all Salem households in 1990 were
classified as "family households," and 12.6 percent of all Salem households were female-
headed families with children. In contrast, 32 percent of all Salem households were made
up of one person. Twenty-eight percent of Salem households contained one or more
persons aged 65 or older. Salem's recreational facilities must serve single people as well
as families, the elderly as well as youth.
Housing. Three-quarters of Salem housing units are in multi-family buildings,
ranging from two-family homes to condominiums and large apartment buildings. In 1990
only 42.4 percent of occupied housing units were occupied by their owners. Nearly 50
percent were renter-occupied and the rest were vacant. Even if every existing single family
home, 2- and 3-family home, and condominium unit in Salem were occupied by an owner,
only 53 percent of the housing units in the city would be owner-occupied.
Income characteristics. Salem is a middle-income community. In 1990 the median
household income was $32,645, slightly below the state median of $36,952. Nearly
twelve percent of the population in 1989 had incomes below the poverty level. Poverty
levels were particularly marked among households with female heads, 28 percent of whom
had incomes below the poverty level.
6
Journey to work. In 1990, slightly over 70 percent of Salem residents drove to work
alone. The average travel time to work was 23 minutes. These data imply that the majority
of employed Salem residents work outside the city.
Major employers. The most significant employers in Salem include North Shore
Medical Center; Sears Credit; Salem State College; New England Power; EG & G
Electronics; and collectively, city, county, state, and federal government. Some of these
employers -- Salem State, NEPCO, the national historic site -- offer open space amenities
that are formally or informally available to Salem residents.
Tourism. As a major tourist center on the North Shore, Salem draws thousands of
visitors every year. Although they are essential to the City's economy, their presence also
contributes to residents' perception of population density, especially downtown and in the
historic districts, and particularly in the summer and fall.
Implications of population composition and trends. To meet the needs of its
population, Salem must offer recreational amenities and open space resources for a
complex urban population: single persons as well as families, youth and the elderly,
households with their own backyards and those which depend on public parks. Ward One,
in particular, may need more neighborhood-based recreation and open space resources
because it includes dense neighborhoods with the highest proportion of children and low-
income households and a large number of renters.
D. Growth and Development Patterns
Patterns and Trends. Salem conforms to the historic pattern of settlement on the
North Shore: coastal lowlands and lowland valleys first, river basins second, and uplands
last.
After World War II, Salem's population had already passed its peak and residential
development pressures were not strong enough to overcome the high cost of development
in the ledge- and marsh-filled southern part of the city. In the center-west part of the city
Witchcraft Heights subdivision was built in the 1960s and in the southeast the Pickman
Park subdivision appeared in the 1970s. When the first urban renewal plan began in the
1970s with the demolition of several historic buildings, citizen outcry redirected the process
towards adaptive reuse and infill projects. The Essex Street pedestrian mall and the
Pickering Wharf complex were products of the downtown revitalization movement of the
1970s.
Although Salem has limited land suitable for development and the population is not
expanding, the increasing number of households during the last quarter century has had
an encroaching effect on the non-urban acreage in Salem. According to the state's
Executive Office of Environmental Affairs, between 1971 and 1985 the urbanized acreage
7
in Salem increased 8 percent, while the open acreage decreased 14 percent, forested
acreage (already limited) decreased 10 percent, and wetlands decreased one percent.
The regional real estate boom of the late 1970s and the 1980s fueled limited
residential and commercial growth in Salem. The existing commercial development along
Highland Avenue and Loring Avenue expanded, attracting shoppers who formerly
patronized downtown stores. New infill condominium developments and condominium
conversions of existing buildings proliferated in the already built-up parts of the City. In
addition new condominium complexes in South Salem were built off Highland Avenue and
Loring Avenue. Some 1100 condominiums have been approved, of which approximately
half have been constructed.
Twenty-one percent of Salem's land, approximately 1150 acres, is under public or
quasi-public ownership. Land in this category includes Winter Island, Thompson's
Meadow, the Forest River Conservation Area, Greenlawn Cemetery, and city parks and
beaches. (See Table 4: Land Use Classification.)
Infrastructure.
a. Transportation. The major regional highways, 1-95 and Route 128, are both within
4.5 miles of the city limits. The arterial roads serving Salem are state Routes 1A, 107, and
114, and the Boston Street entrance corridor from Peabody which links with Route 128.
Public transit is provided by MBTA buses and commuter rail service to Boston and other
North Shore communities, and by an MBTA-subsidized private bus line within the City.
A number of transportation improvements are underway in Salem which are
designed to improve traffic safety, to relieve traffic congestion caused by through traffic,
and to provide alternative and intermodal links with neighboring communities. The
Salem/Beverly Transportation Project, combining a new bridge, a new parkway and
boulevard, and a linear park, is the largest single transportation improvement in North
Shore history. The first section of a bicycle path has been constructed at Webb Street.
Also programmed for improvements are the City's major entrance corridor, Boston Street,
and Bridge Street, which will be the main artery of a revitalized Bridge Street
Neighborhood.
b. Water supply. Salem's primary water source is Wenham Lake which is
recharged by the Putnamville Reservoir, the Ipswich River, and Longham Reservoir.
Water supplies for Salem and Beverly are administered by the Salem-Beverly Water
Supply Board. The total storage capacity of the Salem-Beverly Water System is 3.5 billion
gallons. The average daily water use by Salem is 5.143 million gallons per day (MGD),
approximately 135 gallons per day per capita. Today, the system's maximum treatment
capacity is 24 MGD with possibilities of expanding up to 32 MGD; however, due to a raw
water supply problem, expansion capabilities are limited.
8
c. Sewer service. Almost all residences and businesses in Salem are served by the
municipal sewer system. No new septic systems are permitted. The Salem sewer system
is tied into a regional treatment plant operated by the South Essex Sewerage District
(SESD) serving Salem, Peabody, Danvers, Beverly, and Marblehead. There are only a
handful of remaining septic systems in the city.
Scheduled and proposed subdivisions. In the fiscal year ending June 30, 1995, the
Salem Planning Board endorsed nine small subdivision plans that did not require approval
and issued a Site Plan Review Special Permit for 20 housing units (Phase 3A) of the
Fafard Residential Development. In addition, two small subdivisions were approved: Hilton
Street (3 lots); Calumet Street (5 lots).
Two retail project Site Plan Review Special Permits were approved for Highland
Avenue: 1) Bagel Shop, 2,808 sf., and 2) Rockett Development, 52,000 sf. The Planning
Board also issued a Planned Unit Development Special Permit for the construction of a
Stop & Shop Supermarket on Howley Street at the Salem-Peabody line. The permit
includes many conditions related to traffic, site design, and neighborhood improvements.
The subdivision plan for the Swampscott Road Industrial Park was also approved.
Some of the last remaining unbuilt industrial land in Salem, this 29-acre park will contain
six parcels with a potential build-out of 300,000 square feet of industrial space. Thermal
Circuits, the first tenant in the industrial park, was granted all the required approvals for
construction and ground-breaking took place in October 1995.
No other subdivisions have been proposed as of late 1995. The focus in the future
is expected to be on redevelopment of abandoned industrial sites, for example, the former
Parker Brothers site, GTE-Sylvania, Flynntan, and empty buildings, such as the old Police
Station and the old County Jail.
Long-term development patterns. Salem's long-term development is regulated
through the city's zoning ordinance and subdivision regulations by the Planning Board and
the Zoning Board of Appeals in conformance with the Master Plan (an update will be
issued in 1996). The zoning districts and mechanisms include the following: residential,
industrial, commercial, wetlands, multifamily, cluster, planned unit development, central
development district (mixed use), business park, and entrance corridor overlay district.
(See Map 1: Zoning.) Site plan review by the Planning Board is required for all
nonresidential projects over 10,000 square feet and all residential projects over 5 units.
There is no available maximum build-out plan under current zoning. A very rough
estimate based on gross acreage and zoning limitations results in a total maximum of
2,218 housing units in 941 structures. However, because many parcels do not meet
minimum zoning requirements and much of the land is unbuildable, a realistic number of
9
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potential new housing units is likely to be less than half these numbers. (See Table 5 for
details.)
If demand for new housing increases, the City's Master Plan encourages infill
construction of single-family homes, adaptive reuse of existing structures, and cluster
development. Likewise, City policy emphasizes retail development in existing downtown
or corridor sites, and industrial development in the Swampscott Road industrial park or
existing industrial sites.
Salem's development issues are those of older, industrial small cities: preservation
and upgrading of existing housing and businesses, and economic development. The City
seeks to balance needed economic development with the preservation and enhancement
of neighborhood quality of life. Extreme development pressure on open land is not a
concern in Salem.
.............................................................................................................................................................................................................
COMMUNITY SETTING: IMPLICATIONS FOR OPEN SPACE AND RECREATION
> Salem's densely-populated ward One, which includes the neighborhoods;
:with the highest proportion of children and low-income households, as well;
:as large numbers of renters, lacks sufficient neighborhood-based recreation:
:and open space facilities. However, the City's concentrated population;
;pattern has permitted the City to maintain substantial open space available:
to all residents in the southern part of the municipality.
> Unlike more rural communities on the North Shore, Salem is not:
:experiencing excessive residential development pressures. Building:
:constraints on remaining open land in Salem are severe given the:
:combination of environmental conditions and large areas of protected land. ::
:Already approved condominium developments are not yet complete. Future:
:residential development in Salem is likely to focus on adaptive reuse of:
:existing buildings and infill development. Commercial or industrial:
:development will be directed to existing commercial corridors, underused:
:industrial sites, or designated industrial parks. Upcoming transportation:
:improvements are designed to ameliorate traffic congestion within the City.
........... . .._ ............ .
SECTION 4 - ENVIRONMENTAL INVENTORY AND ANALYSIS
A. Geology, Soils and Topography
Geology. Salem's geological character results from the advance and retreat of
glaciers which deposited mixtures of clay, sand, gravel, and boulders (glacial till) on the
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underlying bedrock during the Pleistocene Era, some 12,000 years ago. Over time the sea
level fluctuated, leaving deposits of marine clays inland, and rivers cut deep valleys.
Because bedrock is at or near the surface throughout most of the city, little groundwater
is collected. Collection areas include the Forest River estuary and various wetlands. Over
one-half the precipitation is runoff and flows along fractures and rivers to the ocean. (See
Map 2: Surface Geological Features.)
Soils. Soils in Salem are rocky and shallow, and in many places have been
modified for urban development. Natural coastal areas consist of sandy beaches, rock
bound outcroppings, and tidal marshes, while the harbor and the South and North River
basins have been modified by fill. Lowland areas are typically peat and muck or meadow,
and bedrock outcroppings (ledge) are interspersed at high elevations. Hickley gravelly
sandy loam deposits are found in pockets on outwash plains. Coarse fragments are found
in the upper soil layers. Sand and gravel lies below the second layer. Gloucester soils
developed from glacial tills are found on gently sloping areas to steep uplands. Stone
fragments make up to 35-37 percent of the soil volume. Other soils include Orono silt
loam, Merrimac fine sandy loam, and Essex fine sandy loam, stoney phase. (See Map
3: Soils)
Topography. Salem is situated in the New England Seaboard Lowlands and shares
common natural features with its neighboring towns and cities: coastal lowlands of varying
width, irregular rocky or marshy coastlines, diverse stream and river basins, and scattered
small hills and upland areas. Most elevations are well below 400 feet and the average
elevation is below 100 feet. Land surfaces generally slope from the interior to the coast.
The two major drainages are the North River, which drains into Beverly Harbor, and the
Forest River, which drains into Salem Harbor.
The highlands and uplands of Salem consist of several steep hills with 100-200 foot
elevations located in southwest Salem. These steep slopes historically presented the
most enduring constraints on urban development, and the area has been undeveloped
until recently.
B. Landscape Character
Salem's landscape today mixes distinctive natural and cultural landscapes with the
urbanized residential and industrial areas of varying vintages characteristic of Eastern
Massachusetts communities.
Much of the natural coastline and inland water bodies have been filled to
accommodate centuries of development, and very few of the original plant and animal
communities have been left untouched by the same forces. However, within its small area,
Salem retains a variety of natural landscapes: wetlands, rivers and streams, ponds, tidal
flats, coves and harbors, rocky shores, upland ledges, and scrub forest.
11
The city's unique cultural landscapes derive from its long history. The sites
associated with Salem's colonial and federal history are the most well-known, though
residents also value the pockets of Victorian residences in South and North Salem and
emblematic sites such as the Salem Willows. Less often acknowledged as distinctive are
the landscapes of Salem's industrial and immigrant history: Blubber Hollow, the area
around the Russian Orthodox Church, the mills and worker housing in the Point. These
also contribute to the experience of Salem's historic landscape.
Salem has 11.22 miles of coastal frontage, of which 50.2 percent is publicly owned -
by local, state, or federal government or by nonprofit land conservation organizations. In
the North Shore region, from Saugus to Salisbury, only Ipswich, Newbury, Rockport,
Rowley and Salisbury have higher percentages of publicly-owned coastal frontage. (See
Table 6: North Shore Public Coastal Frontage by Municipality.)
Although half Salem's coastal frontage is publicly owned, access is not always easy
because these figures include remote areas such as harbor islands. The main streets are
inland from the water and much of the downtown shoreline is taken up by residential or
industrial development, offering at best only a few glimpses of the sea. The New England
Power Company plant, the South Essex Sewer District sewage plant, and Shetland Office
Park impinge on many views of Salem Harbor, overwhelming by their size both the historic
buildings on the shore and the boats in the harbor. The Boston Gas tanks in Collins Cove
and the junkyard and parking lot on the North River have a similar effect on the visual
character of these shorelines.
There are, however, many points of public access to the water, especially outside
of downtown:
• access to Salem Harbor: Forest River Park, Palmer Cove, Derby Wharf, Winter
Island,
• access to Beverly Harbor/Collins Cove: the Willows, Collins Cove Park and
Walkway, McCabe Park/Kernwood Marina
• access to the North River: Furlong Park
In addition, Great Misery and Little Misery Islands, owned by the Trustees of Reservations,
offer harbor views, meadows, specimen trees, stands of pines, and ruins of a turn of the
century casino hotel to those with access to private boats or the summer weekend
excursion boat that leaves from Beverly.
Finally, there are several significant expanses of relatively natural wetland and
wooded upland in Salem. The Forest River Conservation Area contains 138 acres of
wetlands, dense forests, an estuary, and tidal coves, performing an essential ecological
role and providing a sense of natural open space very close to the densely-built city center.
Wooded swamps extend along the tributaries of the Forest River, edge Strongwater Brook
12
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west of Highland Avenue, and border Thompson's Meadow, a large wet meadow (owned
by the Town of Marblehead) adjacent to the Conservation Area and Highland Park.
Natural areas of thick, woody vegetation are rare in Salem, both because of
development pressures over the centuries and because the shallow or nonexistent soils
of much of the Salem Highlands will not support woody plants of significant size or density.
Remaining areas of this type, which contribute to the variety of Salem's landscape include:
the slope facing Spring Pond, the area west of Strongwater Brook, the hill directly between
the Forest River salt marshes and Thompson's Meadow, areas in Highland Park and
between Highland Park and Thompson's Meadow, and areas south of Swampscott Road
surrounding the Prophet Elias Monastery near the Salem-Swampscott line.
C. Water Resources
Surface water. In addition to the saltwater expanses of Salem Harbor and Beverly
Harbor, major water bodies in the City include the Forest River, the Danvers River, the
North River, the South River Canal, Strongwater Brook, Spring Pond, and the Gravel Pit
Pond. Old Mill Pond and Rosie's Pond are slowly being filled in by their surrounding
marshes. There are also small ponds at Peter's Point.
The three rivers -- the North, South, and Forest Rivers -- define the City's major
watersheds. The Gravel Pit Pond is owned by Marblehead for an emergency water supply.
Spring Pond, which straddles the Salem-Peabody line, is part of the water supply system
for the City of Peabody.
Flood hazard areas. The boundaries of the one hundred year floodplain are shown
on Map 4: Hydrology. Floodplain and shoreline areas in Salem are necessary to
conservation because of their role in flood control. Beyond the floodplains, wetland and
stream areas are periodically flooded. Many areas affected by seasonal flooding (such as
the North River) have characteristics of both freshwater wetlands and tidal flats.
Wetlands. There are approximately 171 acres of inland wetlands (i.e. freshwater
marshes and swampland) in Salem. Freshwater marshes in Salem include Spring Pond,
Thompson's Meadow, a marsh in Highland Park, a marsh on Strongwater Brook, and
marshes along the Forest River and South River. Fresh water marshes provide habitat for
birds and marsh animals, replenish groundwater, and store surface runoff, slowing the
progress of flood waters.
Wooded swamplands in Salem are located along Forest River tributaries, north and
south of Swampscott Road, along Strongwater Brook tributaries west of Highland Avenue,
and opposite Thompson's Meadow east of the B & M railroad tracks. Wooded swamps
recharge groundwater areas by absorbing water during spring rain periods and gradually
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releasing it during summer months. Moreover, because of their water holding abilities,
swamps are also excellent flood control areas.
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Forest River Conservation Area
There are approximately 37 acres of salt water marshes in Salem, including the
Forest River estuary and small areas surrounding Peter's Point in the Danvers River. Salt
marshes are highly productive ecosystems which form the basis of the food chain and
protect marine life during spawning and growth periods. Salt marshes also protect inland
areas from ocean storm damage. Because of their flushing abilities, salt marshes also
clean inland waters.
Aquifer recharge areas . Groundwater recharge takes place in the Forest River
estuary and other wetlands. The high percentage of impermeable surfaces in Salem, both
natural and man-made, results in a high rate of precipitation runoff.
D. Vegetation
Forest land. Wooded vegetation found today in Salem is "secondary growth" and
includes oak, birch, hickory, and white pine in the forest areas. Thickly wooded uplands'
which serve as halItat for both birds and mammals are rare.
14
Wetland vegetation. In freshwater marshes, the predominant vegetation is narrow-
leaf cattail and phragmites, an invasive reed. Invasive exotic species such as purple
loosestrife are also evident. Wooded swamps typically contain trees and shrubs such as
alder, willow, dogwood, and red maple. Vegetation typical of the salt marshes includes
saltwater cord grass, high water cord grass, spike grass, and sea lavender.
Rare plant species. The Massachusetts Natural Heritage and Endangered Species
Program, an agency of the Department of Fisheries, Wildlife, and Environmental Law
Enforcement, has listed five rare plant species as historically documented in Salem. The
last documented observation of any of these species was in 1901, but habitat for them
continues to exist and individuals may still be extant. (See Appendix B: Rare and
Endangered Species for more detailed information.)
(See Map 5: Vegetation and Table 7: Plants Typical of Salem Habitats.)
E. Fisheries and Wildlife
The combination of aquatic, wetland, and upland environments, and their edges
give Salem an unusually wide variety of habitats for such an urbanized place. Salem's
parks, "urban wilds," and suburban residential areas support a fairly diverse number of
species.
Fish, shellfish, birds, mammals, and reptiles that have been documented in Salem
are listed in Table 8.
Rare animal species. The Massachusetts Natural Heritage and Endangered
Species Program, an agency of the Department of Fisheries, Wildlife, and Environmental
Law Enforcement, has listed thirteen rare animal species as historically documented in
Salem. Only 3 species of birds on this list were documented in recent decades. The most
recent documented observation of any of the other listed animals dates from 1934.
However, as in the case of listed plants, the habitat for these species remains and
undocumented individuals may exist. (See Appendix B: Rare and Endangered Species
for more detailed information.)
F. Scenic Resources and Unique Environments
Scenic landscapes. Salem has a number of scenic natural and historic landscapes
which are attractive in themselves and/or provide scenic views: the Willows, Derby Wharf,
Winter Island, the Common, Forest River Park, Ledge Hill Park, Highland Park, Gallows
Hill Park, the Forest River Conservation Area, and the Misery Islands Reservation.
Major characteristics or unusual geologic features, and any other resources for
potential protection and exploration. Many of the most important unique natural and
15
cultural environments in Salem are already preserved. Acquisition of the Leggs Hill
property, which contains Salem's highest point, has been under discussion. In addition,
improvement of downtown waterfront access and amenities is a priority of the City
government, which recently received the results of a planning study for waterfront
redevelopment.
Cultural, archeological and historic areas. Salem has a long tradition of historic
preservation and consciousness. The early establishment of the Peabody Museum and
Essex Institute (now the Peabody-Essex Museum) testifies to Salem residents' concern
for their cultural heritage. The Salem National Maritime Historic Site was the first urban
historic site designated by Congress for preservation and administration by the National
Park Service. Although the continuing maintenance of historic properties requires
substantial attention and resources, both private owners and public institutions focus
considerable efforts in this direction. Salem's historic resources include:
• one of the few remaining
colonial period wharves in the
country ' -
• many seventeenth and early ,l
eighteenth century structures from
the Puritan and early maritime
periods -
• four local historic districts �� r
encompassing approximately 550
seventeenth, eighteenth, and early
nineteenth century structures
• a large early cotton textile
factory, immigrant settlement
houses and neighborhoods, and
leather industry archeological .
resources - -
• historic sites associated with the
late seventeenth century witchcraft _
trials - -
Salem has twenty-four National Register _ - _- -
Individual Properties and nine National
Register Historic Districts. A multi-million
dollar improvement project is underway at
the National Maritime Historic Site which Turner Street at Salem Harbor
will be capped by the construction of a and the House of Seven Gables
replica tall ship to be moored at Derby
Wharf.
16
The archeological survey of Salem prepared for the City in 1988 lists preservation
priority areas for prehistoric sites and historic sites based on previous archeological
findings and historic documentation. (See Table 9 for more information.)
Areas of critical environmental concern. Salem has no state-listed Areas of Critical
Environmental Concern.
(See Map 6: Scenic Resources and Unique Environments.)
G. Environmental Problems
Hazardous waste sites. State-listed confirmed hazardous waste sites are shown
in Appendix C. Salem has one Federal Superfund site, known as Salem Acres, at 57
Marlborough Road. PCBs, sludge, wastewater and chromium were released at this
undeveloped site from a lagoon or pit resulting in a groundwater release, a surface water
release and a threat to the soil.
Landfills. No landfills currently operate in Salem. The last landfill was closed
approximately 50 years ago and was located at the present site of the Bentley School.
Solid waste is collected at the curbside by a private contractor once a week and is taken
to Laidlaw Waste System, a transfer station located in Peabody. At the transfer station,
wastes are compacted and then transported to either a materials recovery facility in West
Roxbury or a landfill in Plainville. Salem also operates a successful curbside recycling
program and is a member of the North Shore Regional Recycling Committee.
Erosion. Natural erosion occurs along the Danvers River from Cabot Farm
northward, in the northwestern section of Collins Cove, and the east side of Winter Island.
There is seawall erosion at Juniper Point. Removal of natural vegetation along the banks
of the North River, parts of Memorial Drive, and the areas near March Street and the
Salem-Beverly Bridge makes these areas vulnerable to erosion. In addition, City
regulations do not require soil conservation measures to mitigate erosion during
construction.
Chronic flooding. According to the City Engineer there is periodic flooding at the
following locations:
• Juniper Point - Winter, Cheval, and Hosmer Streets
• Bridge and Howard Streets - the drains fill with seawater at high tide and then
cannot accommodate additional water when it rains
• Commercial Street and North River Canal area
• Emmerton and Forrester Streets
17
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• Canal Street between Ocean and Hersey, where there is a congested drain line
• Jefferson Avenue near Margin Street
As part of its drainage and road improvement plans, the City will be addressing
these flooding problems.
Sedimentation. Sediment is carried into Salem's rivers and harbor by stormwater
drains and runoff. The undredged portions of Salem Harbor and the rivers are extremely
shallow.
Development impact. Because of the paucity of easily developable land in Salem,
the City is not under severe development pressure. However, the new development that
does take place is carefully monitored by the Planning Board and Conservation
Commission to avoid environmental damage. For example, approval of proposed
drainage systems routinely requires gas and oil separators in catch basins which must be
cleaned out regularly. Restricted use of salt as a de-icing agent on roadways and parking
areas proposed for construction is also a condition of approval.
Many wetlands along Highland Avenue have been lost to landfill, and the water
quality of the lowlands and coastal plains is still unsatisfactory, threatening recreation land
in these areas.
Ground and surface water pollution: point and non-point. Water pollution in Salem
includes historic pollution from industrial uses which can affect water if sediments are
disturbed, a few remaining combined sewer outflows, boat waste, and stormwater runoff.
The state goals for water quality in Salem Harbor, the North River and the Forest River are
to make those water bodies fishable and swimmable. None of these uses is currently
supported, according to a 1995 report by the Massachusetts Bays Program. All shellfish
beds (836 acres) have been closed for harvesting in Salem since the 1960s.
However, efforts to eliminate point pollution should improve water quality in the next
five years. The South Essex Sewerage District (SESD) is building a secondary treatment
plant which is expected to begin operation in late 1997. A program of extensive
rehabilitation, repair, and replacement of the City's water, sewer, and drainage systems is
underway, including elimination of combined sewer outflows and cross-connections, to
improve water quality, pressure, and flow. Both stationary and mobile boat waste pump-
out stations have been established to ameliorate pollution from boats.
As a result of all these efforts, nonpoint pollution from stormwater runoff will soon
be the only major remaining source of pollution to Salem waters. The City is preparing a
pamphlet for distribution to all residents to let them know how they can reduce their
contribution to water pollution. Salem Sound 2000, a public-private partnership
18
encompassing six municipalities, has active scientific, educational, and community
programs focused on improving water quality in the region.
...............................................................................................................................................................................................................
:ENVIRONMENTAL INVENTORY AND ANALYSIS: IMPLICATIONS FOR OPEN SPACE AND RECREATION
> Much of the remaining undeveloped land in Salem is marked by the:
presence of ledge (bedrock at or near the surface), steep slopes, or wetlands.
Water quality is improving as a result of programs to control point pollution.;
:Salem's cultural landscapes receive significant protection, as do many of the:
City's natural landscapes, in particular the City's last remaining natural
estuary, the Forest River. Preservation, if not restoration, of other wetlands;
:is essential and more visual and physical access to the water is needed. The:
:rarest natural landscape resource in the City is wooded upland.
.............................................................. . . .
fi - -
SECTION 5 - INVENTORY OF LANDS OF CONSERVATION AND
RECREATION INTEREST
A. Protected Parcels
Conservation Lands. The Salem Conservation Commission holds title to 128.91
acres of land which is protected as conservation land in perpetuity. Most of this land is
composed of the numerous parcels that make up the Forest River Conservation Area,
much of it swamp, wet meadow, and marsh, with some upland woods and brush. Hiking
trails and a marsh boardwalk exist in part of the conservation area, but the Conservation
Commission does not budget funds for maintenance.
Park& Recreation Department Lands. The City of Salem has 39 parcels of park or
playground land, ranging from Highland Park, the City's biggest park, to numerous
neighborhood playgrounds, and tiny urban squares. Eighty-five percent of the City's
557.87 acres of parks and playgrounds are dedicated parklands under Article 97 of the
state constitution and are managed by the Park & Recreation Department. Conversion of
these lands to other uses would require action by the state legislature. In several cases,
19
city-owned parcels on paper streets have been added to existing protected parks. These
parcels are not permanently protected.
In addition, there are several city-owned areas that the Park & Recreation
Department maintains but which are not permanently protected: Broad Street Playground,
Patten Park, and Memorial Field. Cabot Farm Playground, a 2-acre parcel, is also
managed by the Park & Recreation Department but owned by the Kernwood Country Club.
This land is somewhat protected by the Country Club's Chapter 61 B status, but is not
permanently protected. (See Item C below.)
In 1990 the City of Salem launched a park improvement program. An annual park
and playground inventory and improvement plan has been implemented ever since, with
resulting improvements to virtually every park and playground in the City at a cost of$ 2.2
million by the end of fiscal year 1996. The funds come primarily from federal and state
grant programs.
Salem's network of parks and playgrounds effectively covers almost the entire City.
There are, however, two neighborhoods that lack totlots or small playgrounds for the use
of younger children who cannot cross major roads to get to the nearest playground: the
Cabot Street area in South Salem, and the Beaver Street area near Boston Street. The
Point, Salem's most densely-populated neighborhood. could also benefit from more open
space. The parks in the neighborhood, Mary Jane Lee Park and Palmer Cove, are very
heavily used.
(Appendix D: Parks and Playgrounds Inventory contains maps and assessments
of each park and playground in the City.)
f
i
Greenlawn Cemetery
20
Cemeteries. Public and private cemeteries in Salem take up 225.48 acres of land
and contribute to the City's inventory of open spaces, both downtown and in North Salem.
In addition, several Salem cemeteries have historic importance. Public cemeteries
comprise 62.71 acres, including the seventeenth-century cemetery at Charter Street (1.47
acres) and the 55.8-acre Greenlawn Cemetery, laid out in the early nineteenth century.
It is reputedly the second-oldest landscaped cemetery in the country (after Mt. Auburn in
Cambridge).
B. City-Owned and Private Unprotected Parcels
City-owned open parcels. The City owns 93 open parcels of land totaling 115.74
acres, including parking lots. Some of these parcels are extremely small; only one parcel
is over 10 acres - the 38-acre tract at 0 Loring Avenue rear, much of which is wetlands.
(See Table 10: Size of City-Owned Open Parcels.)
Although these parcels are not formally protected, a substantial number are not
developable because they are mostly wetlands or very steep, or they are small remnants
of land left over many years ago after subdivision into house lots. Many of these parcels
function as "urban wilds," natural buffers which provide open space and environmental
services (wetlands, habitat)within the urban environment. Certain parcels are smaller than
required by zoning for development, and some cover the Palmer Cove and Collins Cove
flats. Five parcels have addresses on a paper street and have been incorporated into
Gallows Hill Playground. Two parcels are small inner harbor islands, Jeggle Island, and
the Island Southwest of Jeggle Island. Ram Island, also City-owned, lies off Marblehead.
The City also owns several open parcels on Bakers Island. Given the delicate
island environment and considerable summer population already using the island, it might
be prudent to convert these parcels into permanently protected conservation land.
Two of the parcels on this list were recently deeded to the City and will be used for
a neighborhood park on Northey Street. Seven parcels are used for parking downtown;
the best alternative use for these lands in the City core would not likely be recreation or
open space.
Privately-owned parcels. Like many of the City-owned open parcels, many private
parcels are not developable because of the existence of wetlands or extremely steep
ridges. New England Power Company owns approximately 75 acres for electric power
rights-of-way. These lands have important buffer and conservation value and most would
be difficult to develop because of site conditions. It is highly unlikely that there will be any
change of use in the near future, though the power company may eventually change its
operations or distribution methods in Salem.
Most of the remaining developable land in the City is in relatively small parcels.
21
However, there are several larger tracts of land in South Salem that extend into
Marblehead that have long been of interest to the City of Salem for recreational and open
space use:
• 0 Leggs Hill Road - 18.48 acres, including the highest point in Salem
• 485 Lafayette Street - 1.39 acres, known as the "Lead Mills" property, which is on
the water at the mouth of the Forest River estuary.
Other private parcels have potential for expanding recreational use on the North
River and creation of pedestrian and bicycle trails:
• 16-20 Franklin Street- 1.67 acres, abutting Franklin Park and currently occupied
by an automobile junkyard which could be relocated to a suitable site
• Boston & Maine Railroad right-of-way - unused railroad lines can be transformed
into bicycle and pedestrian trails
-North River Parkway (Bridge Street Bypass) - The preliminary design for this new
roadway includes a landscaped pedestrian/bicycle path along the road from
Washington Street to March Street. This plan will also provide for best
management practices to treat road runoff into the North River.
In addition there is a parcel on Highland Avenue, the site of an old farm, which could be
studied for possible nature value in conjunction with neighboring NEPCO lots. Potential
post-mining uses for the Lynn Sand and Stone Company gravel pit are also worthy of
consideration.
Finally, there is some discussion of seeking funding for acquisition and construction
of a new wharf for both cargo and cruise ships adjacent to the NEPCO plant. That project
would include some public open space.
C. Public and Nonprofit Parcels
City-owned open parcels which have not been specifically protected are discussed
in item B above. However, Salem also includes open lands owned by neighboring
municipalities, the federal government, the state, and the transit authority. Nonprofit
organizations include recreation, educational, and conservation institutions.
Other Municipalities. The City of Peabody owns 146.22 acres, originally acquired
for watershed land, in southwest Salem near Spring Pond and off Marlborough Road
around the Peabody water tank. The Marlborough Road parcel may be included in a
proposed Peabody municipal golf course.
The Town of Marblehead owns two significant parcels, originally for reserve
watershed protection, and two smaller parcels of less than half an acre each. The two
22
large parcels are known as "Gravel Pit Pond," 26.9 acres at 445 Loring Avenue, and
"Thompson's Meadow," 79 acres at 161 Swampscott Road, adjacent to Highland Park.
The Gravel Pit Pond land is zoned for single family housing. Thompson's Meadow is
zoned Residential Conservation, meaning any residential development requires two-acre
lots. Most of this parcel is wetlands, but 12 to 14 acres could be developed. Acquisition
of Thompson's Meadow has long been one of the City's conservation goals, but
Marblehead has been unwilling to sell. Because the parcel is no longer official watershed
protection land, the town is now believed to be willing to consider a sale.
The Town of Swampscott owns 1.8 acres on Swampscott Road abutting
Thompson's Meadow. Although this parcel is zoned for business development, it is almost
entirely wetlands.
Except as noted above, there is no indication that the neighboring municipalities
plan any changes in the use of these parcels.
State Lands. The Commonwealth of Massachusetts owns 62 acres at Salem State
College. Some of that property is open space used for athletic fields and passive
recreation, with relatively easy access for all Salem residents.
Federal Lands. The U.S Department of the Interior owns 8.21 acres in downtown
Salem as the Maritime National Historic Site, including Derby Wharf on the water, an herb
garden, and other small open spaces open to the public. The federal government also
owns a lighthouse site on 8.8 acres of Bakers Island. The lighthouse is no longer in use
by the Coast Guard and it is not known if any new uses are planned. Some Salem
residents would like to see this parcel provide public access to Bakers Island, which is
otherwise entirely private, including the only pier. Any kind of public access proposal would
undoubtedly meet stiff opposition from property owners on Bakers Island.
Transportation Lands. The MBTA owns 36.5 acres at 242 Bridge Street, the parcel
containing the commuter rail line track.
Nonprofit Lands. Nonprofit lands of recreation or conservation interest in Salem are
open to the public to varying degrees.
Two large private cemeteries in Salem, Harmony Grove and St. Mary's Cemetery,
and one very small private church cemetery, St. Peter's, total 162.77 acres of land that
contribute to the City's open spaces.
Two significant parcels of Salem land are used for summer camp activities open to
participants only. Camp Lion of Lynn, MA (the Lynn Lions' Club) owns 69.31 acres of
unprotected land which are used by the Campfire Girls summer camp and other youth
organizations. The property is also a favorite location for birdwatchers. Although the
23
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MAP 7: LANDS OF CONSERVATION AND
RECREATION INTEREST
C071Y OF
�''•1'�.`I�.�.%' °�..`:�. '`� ° LAC � 9 MQ� �o
t 10,114 s 191 RL 9y
property has no deed restriction, the charter of Camp Lion specifies that the land is to be
used for youth recreation. The Marblehead/ Swampscott YMCA owns Children's Island
(formerly known as Cat Island). It is used as a children's day camp during the summer and
can also be reserved on weekends for adult and family groups. Children's Island has a
swimming pool and playing fields.
The Kernwood Country Club is a private club. However, it is not fenced and
neighborhood residents are permitted access for walking, sledding, and cross-country
skiing. The Club's recreational lands receive tax abatements under Chapter 61 B which
operates as an incentive for continued open space and recreational use. If the land is
offered for sale, the City will have first right of refusal, and if the land use is changed to
nonrecreational uses, the owner must repay the last 10 years of abated taxes, with
interest, to the City.
The Trustees of Reservations (TTOR) own two beautiful islands in Salem Harbor,
Great Misery Island (75 acres) and Little Misery Island (5.78 acres). On summer weekends
there is a boat to Great Misery Island run by TTOR from Beverly. Otherwise, only those
with private boat transportation have access to the island. There is no pier.
The House of Seven Gables includes in its 1.78 acres on Derby Street a gracious
waterfront park. This park is open only to visitors to the House. Finally the Trustees of the
Plummer Farm School, a home for boys, own 23.60 acres on Winter Island for the use of
the residents of the home.
(See Map 7: Lands of Conservation and Recreation Interest and the Land Inventory
Matrix.)
SECTION 6 - RECREATION PROGRAMS
A. City Recreational Facilities
Parks. The community survey results (though unscientific) suggest that the Willows,
Winter Island, Forest River Park, and the Common draw users from all over the City. Many
of the other large parks, however, are rarely visited by residents from outside the
immediate neighborhood, especially Mack Park, Gallow's Hill Park, and McCabe Park
(Kernwood Marina). Promoting public awareness of these parks should be part of any
program to expand residents' knowledge of the City's open space and recreation
resources.
Athletic fields and courts. Salem's athletic fields are located in parks and on school
grounds. They are very heavily used and include 7 Little League baseball diamonds, 3
major league baseball diamonds, 3 regulation softball diamonds, 4 regulation soccer fields,
and one football field. In addition there are 16 tennis courts (3 lighted) and 25 basketball
24
courts (2 lighted). The Municipal Golf Course in Highland Park has 9 holes and soon will
have a new clubhouse.
There is heavy demand for all the athletic fields which are used by school teams,
city-sponsored teams, and private leagues. Because of this demand it is difficult to allocate
the proper amount of time for fields to rest between games.
Staffed playgrounds. In July and August, 21 playgrounds are staffed with two
playground instructors each from 9 a.m. to 5 p.m. Some 250 children participated in the
summer playground program in the summer of 1995.
Waterfront facilities. Certified lifeguards staff the city's seven beaches (two at
Forest River) and the Olympic-sized salt water swimming pool at Forest River.
There are approximately 1500 mooring spaces in Salem Harbor. Spaces are in high
demand and usually filled by the beginning of the boating season. Kernwood Marina,
which has space for only some 15 boats, is particularly in demand because it offers parking
and a boat ramp. Winter Island offers about 150 spaces in Cat Cove, a tender rack with
126 spaces, and floats which can accommodate five to seven boats. New boat ramps are
scheduled for construction in 1996 at both Winter Island and Kernwood Marina. Five
private yacht clubs and marinas offer mooring spaces and approximately 200 boat slips to
members.
J �
The Willows
Other recreational facilities. Salem's parks include 30 picnic grounds. There are
pedestrian nature trails in Highland Park, parts of the Forest River Conservation Area and
along Collins Cove, as well as a stone dust walking trail around the Common. The first
25
section of the multi-purpose trail system has been completed at Webb Street. The
wetlands mitigation portion of the Salem/Beverly Transportation Project will create a new
park with bike and pedestrian paths along the North River between Flint and Washington
Streets.
There is no city-owned recreation building in Salem. Indoor activities sponsored by
the City use school facilities and private organizations such as the YMCA also have indoor
recreational facilities.
B. Team Sports and Fitness Programs
The Salem Parks and Recreation Department offers a wide array of summer and
winter programs to residents, including basketball leagues for adults, youth, and children,
softball leagues,and a women's volleyball league. An aerobics program attracts
approximately 200 participants. Free swimming lessons are available at Forest River pool.
In addition, the City offers a sailing program. Eight privately operated sports leagues offer
Little League Baseball and Softball, Babe Ruth Baseball, Legion Baseball, North Shore
Baseball, Youth Soccer, Youth Football, Youth Hockey, and Youth Tennis. Salem State
College baseball and women's softball teams also use city fields, as do teams from Salem
businesses.
The sports leagues serve many residents. Youth Soccer and Little League each
have 1000-1200 participants, and the city-sponsored basketball league attracts about 500
children and youths. In addition there are several teams which play in inter-city leagues.
Softball and volleyball leagues have the largest adult participation: 20-23 men's softball
teams (about 275 men), 8 women's softball teams (about 100 women), and 18 volleyball
teams (approximately 220 participants). There is also an adult over-30 soccer team and
two Hispanic softball teams which play teams from other communities.
According to Parks and Recreation staff, participation in the City's sports programs
increases every year, but programs are limited by the facilities available. As noted earlier,
the demand for athletic fields and facilities for team sports is very high. In the spring and
summer almost every field is in use on weekday evenings and during the day on
weekends, precluding a resting period for the fields. Indoor programs, such as basketball,
must compete with school programs for the use of school facilities.
C. Private Recreational Facilities
Private recreational facilities in Salem offer activities for a fee. Indoor swimming
pools are available at the Salem YMCA and the Salem State College O'Keefe Center.
Salem State also has an indoor skating rink and the YMCA offers a variety of fitness
programs. Salem State programs are available to community members on a limited basis
during the school year and more widely during the summer. Children's activities are
26
available at the Boys and Girls Club and the House of Seven Gables Settlement House.
Kernwood Country Club has a golf course, swimming pool, and tennis courts
available to members, who pay substantial membership fees and must provide references.
The Naumkeag Association has a facility on the ocean near the Willows which members
can use for events. The membership fees are modest. There are also five private yacht
clubs or marinas: Jubilee, Hawthorne Cove, Salem Willows, Palmer Cove, and Pickering
Cove. These facilities offer approximately 200 boat slips.
SECTION 7 - COMMUNITY GOALS
A. Description of Process
The Open Space and Recreation Plan Committee members developed community
goals by analyzing existing environmental conditions and recreational resources in Salem,
reviewing other planning documents which touched on these issues, such as the recreation
and open space goals of the Master Plan Update committee and the Maritime
Development District Study, analyzing the results of a survey of residents, and interviewing
neighborhood leaders. In addition, the Committee consulted the staff members in the
Parks and Recreation and Planning Departments with responsibility for environmental and
recreational issues. Public review of the draft Plan during October 1996 and a public
hearing on November 4, 1996, provided yet more public input.
In early fall of 1995 approximately 1500 survey questionnaires on open space and
recreation needs were distributed to public places in the City of Salem, including the library,
banks, City Hall, and retail businesses. One hundred completed surveys were returned.
A copy of the survey and the results are included in Appendix E.
In order to broaden the range of community input, Committee members also
interviewed local leaders representing neighborhood associations and other interest groups
about open space and recreation issues:
North River Historic Neighborhood Juniper Community Club
Association Federal Street Neighborhood
Boston Street Improvement Association Association
Point Neighborhood Action Group Chestnut Street Neighborhood
Salem Common Neighborhood Association
Association Salem Harbor Community Development
Northfields Neighborhood Association Corporation
Mack Park Area Little League
South Salem Neighborhood Association Friends of Salem Woods
Pickman Park Neighborhood
Association
27
B. Statement of Open Space and Recreation Goals
Within its 8 square miles Salem is richly endowed with extremely valuable natural
and cultural resources. The depth and breadth of its architectural heritage may be
unmatched by any other city of its size. At the same time, the City is not entirely built up
and has an extensive network of playgrounds, parks, and protected natural areas. The
natural landscape ranges from high, ledge-crowned ridges to quiet ocean coves and the
wetlands of the Forest River estuary. Protection of the City's unique resources for
recreational, environmental, and cultural purposes and upgrading of access and
maintenance is the community's overriding goal. Acquisition of new recreation and
conservation lands is secondary, although there are a few select sites which are needed
for conservation or recreation purposes.
Salem residents identify particularly strongly with their water resources. An ideal
open space system would provide better access to the waterfront, both visual and physical,
improved beaches and oceanfront public lands, and a more attractive landscape along the
North and South Rivers. Residents also support a system of bicycle and pedestrian trails.
In addition, they recognize the importance of conservation land but would like better trails
and nature study information in the City's conservation lands, particularly the Forest River
Conservation Area. Finally, residents strongly support actions to enhance environmental
health, especially water quality improvement.
SECTION 8 -ANALYSIS OF NEEDS
A. Summary of Resource Protection Needs
Over the more than 350 years of Salem's history, many natural environmental
processes have been significantly modified by human agency. Two of the three major river
basins in the City have been filled and/or channelized, and drainage and encroachment
upon other wetlands has been widespread. Upland meadows and woodlands have
disappeared because of development for agriculture and housing. Harbor and stream
pollution remains a concern. The preservation of remaining natural ecological processes
and examples of Salem's environmental diversity, and the restoration, where possible, of
compromised ecological processes, are the most critical environmental issues facing the
City— both to promote ecosystem health and to provide residents with a better quality of
life. Survey respondents overwhelmingly supported the preservation of conservation land
and pollution prevention and control. Although they generally supported acquisition of
more conservation land, they preferred using state or federal funding, rather than city
funds, for any acquisition.
The City's environmental goals focus on protection and enhancement of existing
resources and selective acquisition of a few key properties. Coastal habitat preservation
and improvement of water quality and beaches is essential, particularly in light of plans for
28
waterfront development. Although the City's last remaining natural estuary, the Forest
River, is permanently protected by conservation lands, improved oversight of these lands
can better ensure that they are not used for illegal dumping or other damaging activities.
The Conservation Commission should continue aggressive enforcement of wetlands
regulations and protection of wetland resources.
B. Summary of Community's Needs
Salem residents recognize and value the City's unique cultural and recreational
resources. Historic sites and architecture, waterfront sites, and important parks such as
the Willows, the Common, Winter Island, and Forest River Park, symbolize Salem's sense
of place to the people who live here. Excellent maintenance of these "symbolic
landscapes" is especially important to a sense of community well-being. Community
priorities include improved maintenance of existing facilities, improvement of beaches and
waterfront access (including access to harbor islands), and better access to Salem's
recreational resources by pedestrian and bicycle trails. Residents express a desire for
nature-based and environmentally-friendly recreation — biking, hiking, and skiing trails
along the water, in the woods, and linking Salem sites with areas in neighboring
jurisdictions. As is the case in many communities, there is great demand in Salem for a
limited number of athletic fields and for space for indoor recreational activities.
Salem has made a strong commitment to providing park access to the disabled.
All parks renovated within the last five years meet Americans with Disabilities Act
requirements. The City's goal is to remove all barriers from every City park. In addition,
four major parks will have specially designed or adapted facilities for disabled persons:
Forest River Park, Salem Common, Salem Willows, and Winter Island.
C. Management Needs - Potential Change of Use
Management Needs. The survey and interviews suggest that community residents
tend to prefer enhanced maintenance over acquisition of more property. Parks and
playgrounds are well-maintained, but conservation lands are not properly maintained due
to a lack of maintenance funding. Maintenance expectations are very high for the
"symbolic landscapes," such as the Common and the Willows, which are emblems of
Salem's sense of place.
Maintenance trends are positive. The recent merger of the Parks and Recreation
Departments under one superintendent has consolidated many maintenance
responsibilities. Current management is shared by several entities:
• Parks and playgrounds: Park & Recreation Department
• Trash removal in parks and playgrounds: Park & Recreation; Public Works;
private contractor. Trash barrels are painted different colors to indicate which of the
29
departments or the contractor is responsible. There can be barrels of all three
colors in a single park.
• Traffic islands outside of downtown: Park & Recreation waters these spaces.
Other maintenance is provided by private contractors, summer youth programs, and
volunteers.
• Downtown from the Washington Street rotary to Riley Plaza, including the Essex
Street mall: Cemetery and Shade Tree Department.
• Public cemeteries: Cemetery and Shade Tree
• Street trees: Cemetery and Shade Tree
• Conservation lands: no regular maintenance performed
• Lighting: most park lights are rented from Mass Electric, which is responsible for
maintenance and repair
Some summer maintenance is performed by seasonal labor, mainly students. They
can be good workers if there is sufficient training and supervision and programs to ensure
such training and supervision should be developed. The City Beautification Committee is
investigating the possibility of privatizing the maintenance of all traffic islands to a
landscaping company.
The small, left-over parcels of City-owned land which are not traffic islands, too
small to be parks, and not clearly functional, are often the areas whose maintenance is
neglected. New and future open space areas, such as the multi-purpose trail whose first
portion has already been built along Webb Street, must also be included systematically in
a maintenance plan. Any review of management arrangements should take these areas
into account.
Accessible parts of the Forest River Conservation Area are suffering from a lack of
maintenance, improvement, and oversight. In many places trails are in rough and eroded
condition, and degraded by bicycle and motor bike use. The Forest River boardwalk needs
repair, but its old-fashioned design — boards dropped onto the marsh — should be
abandoned. Reconstruction should use up-to-date designs which protect the marsh as
much as possible. Another serious problem in the conservation area is littering and
dumping. During site visits in September 1995 a Committee member observed bottles,
dumping of trash, and dumping of soil and grass clippings in a parking area by a trail head.
Improved maintenance of trails in conservation areas is desired by many residents and
illegal dumping should be curbed. However, access and use of conservation areas must
be balanced with their primary functions of ecological services and provision of habitat.
Finally, continuing the annual inventory of the condition of parks, beaches,
cemeteries, and other public spaces will provide information for timely replacement,
rehabilitation, and restoration of deteriorated resources.
Potential Change of Use. All parks and playgrounds are expected to continue to be
30
heavily used. There is great demand for athletic fields, and the Park & Recreation
Department is always looking for new space for more fields, but abutters sometimes object
to the noise and parking problems created by team uses and prefer retaining passive
recreational uses. The City's annual park planning process, in operation since 1990, has
enhanced communication among park neighbors, athletic field users, and City
representatives about these issues.
The most often discussed open space and recreation issue in Salem is the
possibility of expanding the municipal golf course from 9 to 18 holes. (There is consensus
on the need for a new clubhouse, which is expected to be under construction in 1996.) In
addition, several private parcels of land are under consideration for park or conservation
land, and there are plans to purchase unused railroad rights-of-way for a multi-purpose trail
system.
Golf_Course Expansion. The existing golf course covers 55 acres of Highland
Park's 270 acres. Highland Park includes high ledges, wooded uplands (known as Salem
Woods), meadows, and wetlands. There is no current expansion proposal, but a 1988
feasibility study presented a conceptual plan to expand the course and all its associated
buildings to approximately 83 acres, leaving 187 acres.
Proponents of golf course expansion point out that Highland Park would then
provide a first class recreational facility while continuing to accommodate non-golf uses
such as nature trails and cross-country skiing. An expanded golf course could be funded
from the revenue it would generate, as a new golf course would not only be self-sustaining
but would generate revenue for the City. Some of that revenue could be used to fund and
promote nature study activities, trail maintenance, creation of accessible scenic overlooks,
and so on.
Opponents of golf course expansion argue that it would replace much of the last
remaining wooded uplands in Salem with golf holes. They point out that preservation of
specimen trees and woody growth to enhance playing characteristics is not the same as
preservation of an entire ecological area. In addition, opponents argue that the
modifications of environmental conditions (vegetation, soils, drainage, and so on) where
the new holes would be constructed, as well as the chemical maintenance requirements
of an additional 9 holes, would inevitably affect adjacent areas, including wetlands.
Leggs Hill and Lead Mills Parcels. Both of these private properties straddle the
Salem-Marblehead boundary and are being considered for acquisition in conjunction with
the Town of Marblehead as open space. As noted earlier, the 18.5-acre Leggs Hill parcel
contains the highest point in Salem, overlooking the Forest River tidal basin. It may
become subject to development pressure and sale. The Salem portion of the Lead Mills
property contains 1.39 acres and is located between Salem Harbor and the Forest River
tidal basin. The property owner is willing to donate the property, but remediation of lead-
31
contaminated soil is necessary.
Ferris Junkyard. This 1.67-acre property occupies a prominent spot on the North
River shore. It abuts Furlong Park and can easily be seen from the train station and the
roads which converge on downtown Salem. Relocation of the automobile junkyard
business on the parcel to a suitable site and conversion of the property into parkland has
been discussed.
Railroad Rights-of-Wadi. The City is negotiating to buy the Boston & Maine Railroad
right-of-way, which runs into Marblehead, for conversion to a bike/pedestrian trail. The
planned Salem Multi-Purpose Trail System includes bike lanes on roadways, walking trails,
and conversion of unused railroad rights-of-way to bike/pedestrian trails separated from
motorized traffic. The trail system is designed to link with routes in Peabody, Marblehead,
and Beverly, thus fitting in with regional plans such as the North Shore Trails Study
prepared by the Metropolitan Area Planning Council in 1995. A prototype of the Salem rail
to trail conversion is already complete at Webb Street and planning is underway for the
Boston & Maine project. (See Appendix G: Proposed Salem Multi-Purpose Trail System.)
SECTION 9 - GOALS AND OBJECTIVES
The Committee used information from the environmental resource inventory, the
community needs inventory(including the survey and interviews) and the 1996 Master Plan
Update to develop goals and objectives for recreation and open space development:
Goals Objectives
Protect and improve coastal and inland -Acquire key wetland and buffer
water resources. properties.
-improve information and training
available to Conservation Commission.
-Eliminate/reduce point and nonpoint
pollution.
-Eliminate/reduce contaminated sediment
in rivers.
Protect locally rare and unique natural -Protect examples of Salem's ecological
resources. variety.
Protect and improve areas of historic and -Focus on neglected areas.
scenic significance, especially along the -Provide consistent highest maintenance
water. standards for "symbolic landscapes."
32
•Acquire key parcels to provide scenic
viewing points and visual access to the
water, and align multi-purpose trails along
waterways to the extent possible.
Enhance public access to waterfront and •Improve resident and visitor perception
harbor. of and experience of Salem's waterfront
and harbor location.
Expand recreational facilities and •Provide more recreation options in the
programs. following categories: team sports; indoor
recreation; winter recreation; water-based
recreation; nature-based recreation.
Continue capital improvements to parks •Continue to update equipment and
and playgrounds as needed. surfacing to comply with current safety
and Americans with Disabilities Act (ADA)
standards.
Improve public awareness of recreational •Make residents aware of underutilized
resources. resources.
Improve overall beach and park •Organize maintenance activities for
maintenance. maximum efficiency and effectiveness.
SECTION 10 - FIVE-YEAR ACTION PLAN
Goal 1: Protect and improve coastal and inland water resources.
Objective: Identify and plan for acquisition of key wetland and buffer properties.
Actions 1996 1997 1998 1999 2000
• Plan for acquisition of Thompson's Meadow ■ ■ ■ ■
Objective. Improve expertise of Conservation Commission membership
Actions 1996 1997 1998 1999 2000
• Provide workshops or other training
for new Conservation Commission members. ■ ■ ■ ■
• Update wetlands map. ■ ■ ■
33
Objective: Eliminate/reduce point and nonpoint pollution.
Actions 1996 1997 1998 1999 2000
• Eliminate Combined Sewer Outflows ■ ■
• Publish and distribute to public a pamphlet
on resident actions to reduce nonpoint pollution ■
• Develop an ordinance to require soil erosion
control at construction sites. ■
• Develop plans for stormwater runoff best
management practices into all new development
plans through subdivision regulations and zoning
ordinances, and in golf course and athletic field
maintenance. ■ ■
• Pursue funding to expand household
hazardous waste collection program. ■ ■ ■ ■
Objective: Eliminate/reduce contaminated sediment in rivers and harbor.
Actions 1996 1997 1998 1999 2000
• Request Army Corps of Engineers dredging
and sediment disposal of federal channel. ■
• Pursue Seaport Bond funding for dredging and
sediment disposal for expanded deep water port. ■ ■
• Dredge South River and dispose of sediment ■
• Pursue funding for sediment testing in the
North River basin in preparation for possible
dredging and sediment disposal. ■ ■ ■
Goal 2: Protect and improve areas of historic and scenic significance, especially
along the water.
Objective: Focus on neglected areas.
Actions 1996 1997 1998 1999 2000
• Inventory City-owned parcels of less than
one-quarter acre to determine if they should be
retained, offered to abutters, or to neighborhood
groups for greenspace projects ■ ■
• Study potential uses for barracks and hangar
building at Winter Island ■ ■
• Restore and interpret historic resources on
Winter Island ■ ■
34
Objective: Provide consistent highest maintenance standards for"symbolic landscapes."
Actions 1996 1997 1998 1999 2000
• Request City Beautification Committee to
create a short list of the most important and
emblematic public landscapes, such as the
Common, the Willows, and Winter Island,
for a special priority maintenance program. ■
Objective:Acquire key parcels and sites for multi-purpose trails, scenic views, and visual
access to the water.
Actions 1996 1997 1998 1999 2000
• Acquire old railroad rights of way for
multi-purpose trails ■ ■
• Pursue funding for public space along the
North River in the Bridge Street neighborhood ■ ■ ■
• Pursue funding to relocate existing junkyard on
North River to a more suitable site and redevelop
the parcel as park land ■ ■ ■
• Pursue acquisition of Leggs Hill and Lead
Mills properties in conjunction with Marblehead ■ ■ ■
• Pursue funding to acquire parcels for proposed
South Harbor Plan. ■ ■
Goal 3: Protect locally rare and unique natural resources.
Objective: Protect examples of Salem's ecological variety.
Actions 1996 1997 1998 1999 2000
• Transfer city-owned parcels on Baker's
Island to Conservation Commission for
permanent protection. ■
• Develop a process to review policy on the
tidal gates at the Forest River estuary from an
ecological, public health and economic perspective ■ ■
• Prepare environmental study of possible golf
course expansion impact on Salem Woods ■ ■
35
Goal 4: Expand recreational facilities and programs.
Objective: Provide increased recreational opportunities.
Actions 1996 1997 1998 1999 2000
• Construct multi-purpose trail systems for bikes,
pedestrians, and cross-country skiers as funds
and land become available ■ ■ ■ ■
• Study feasibility of construction of indoor recreation
center ■ ■
• Find a location to provide outdoor ice skating
and review control of and opportunities for skating
on local ponds ■ ■ ■
• Improve hiking trails in Forest River Conservation
Area and Highland Park ■ ■ ■
• Expand programming for water related activities
such as swimming, water safety, and environmental
awareness ■ ■ ■
• Acquire land for neighborhood totlots or
playgrounds as it becomes available in the
Cabot Street and Silver Street areas ■ ■ ■
• Find a location, pursue funding, and
construct additional soccer fields ■ ■ ■
• Pursue funds to acquire land and construct
proposed family recreational park at
South River (Peabody and Congress) ■ ■ ■
Goal 5: Continue capital improvements to parks and playgrounds as needed.
Objective: Update equipment and surfacing to comply with current safety and ADA
standards.
Actions 1996 1997 1998 1999 2000
• Continue annual inventory and project plan
for park maintenance and improvements ■ ■ ■ ■ ■
• Continue ensuring Americans with Disabilities
Act compliance in all improvement projects ■ ■ ■ ■ ■
36
Goal 6: Improve public awareness of recreational and conservation resources.
Objective. Make residents aware of underutilized resources.
Actions 1996 1997 1998 1999 2000
• Publicize recreational opportunities more
effectively using mailings, the press, events,
cable access TV, etc. ■ ■ ■ ■ ■
• Promote use of picnic areas at McCabe Park. ■ ■ ■ ■
• Develop brochures and guides for trails
in the Forest River Conservation Area. ■ ■
• Update and republish Salem Woods trail guide. ■ ■
Goal 7: Enhance public access to the waterfront and harbor.
Objective: Improve resident and visitor perception of and experience of Salem's waterfront
and harbor location.
Actions 1996 1997 1998 1999 2000
• Pursue funding for continued implementation
of the South Harbor Plan for downtown
waterfront development ■ ■ ■ ■ ■
• Continue increasing float space at Winter Island
pier and construct a new boat ramp ■
• Identify and preserve all existing public
waterfront access areas ■ ■
• Convert portion of old Salem-Beverly Bridge
to a public recreational pier as part of the
Salem/Beverly Transportation Project ■ ■
• Study appropriate access to islands ■ ■
• Connect waterfront to multi-purpose trail system ■ ■ ■
• Increase public landings in downtown ■ ■
• Create public waterfront walkway beginning at
Shetland Office Park and downtown to designated
port area ■ ■
• Study feasibility of waterfront walkway connecting
Forest River Park to downtown ■ ■
37
Goal 8: Improve overall beach and park maintenance.
Objective: Organize maintenance activities for maximum efficiency and effectiveness.
Actions 1996 1997 1998 1999 2000
• Review management of maintenance
activities ■ ■
• Insure adequate supervision of summer
maintenance employees ■ ■ ■ ■ ■
• Develop and implement a priority maintenance
plan for the symbolic landscapes designated by
the City Beautification Committee ■ ■ ■
• Encourage formation of neighborhood
"Friends of the Park" groups to assist the
City in routine maintenance ■ ■ ■
See Map 8: Five Year Action Plan
Consistency with Regional and State Plans. The Metropolitan Area Planning
Council (MAPC) and the Commonwealth of Massachusetts have developed recreation and
open space plans for metropolitan Boston and for the state as a whole, known as
MetroGreen and the Statewide Comprehensive Outdoor Recreation Plan (SCORP)
respectively. Salem's focus in this Open Space and Recreation Plan on the protection and
enhancement of water resources and waterfront access, as well as the protection of unique
landscape and cultural resources and the expansion of recreational opportunites, are
consistent with regional and state open space goals.
MetroGreen. MAPC's criteria for land protection as delineated in MetroGreen
include lands of local conservation interest, rights-of-way and adjacencies with recreational
potential, wetlands, scenic landscapes, and major waterbodies. Salem's Action Plan
includes proposals which fit under all these criteria.
SCORP. Salem is part of the Northeastern Massachusetts region for the purposes
of SCORP, though its urban character gives it much in common with the neighboring
Metropolitan District Commission (MDC) region. SCORP priorities for the Northeastern
Region and the MDC Region include improvement in the maintenance and quality of all
types of recreation facilities, development of new sports/recreation facilities, and special
attention to water-based recreational activities. Salem's plan contains similar recreation
priorities.
38
� . 1100,• }
A, Waterfront Access, Acquisition, �
�
and Recreation
i — — Bicycle/Pedestrian Trails: Acquisition
and Construction
• �k Other Potential Acquisition Projects
• Trail Guides and Improvements
North River Properties -
• Dark development _.,..K
..NO—
� , • Recreational Pier
Bypass Bike" ath
Thompson s Meadow Salem Woods
j
South i er �•••�
Forest River / L. ••
Conservation Area Marbiehea ranch Bike Path ^�
�..��� � Port Deve ment -
public access '��
� `.- �. •^,,.ter'
1 1 ,�•..y• �'t -fit i(hter Island
�• Leggs Hill •• ^� L .�v' MAP 8: FIVE-YEAR ACTION PLAN Improvements
•� � Lead Mills
• �.� v Tawr
L Brow n
SECTION 11 - PUBLIC COMMENTS
Letters of review follow from:
• Mayor Neil J. Harrington
• Salem Planning Board
• Salem Park and Recreation Commission
• Salem Conservation Commission
• Metropolitan Area Planning Council
39
yig -� frr0
CITY OF SALEM, MASSACHUSETTS
NEIL J. HARRINGTON
MAYOR
November 22, 1996
Craig Wheeler
City Planner
Salem Planning Department
One Salem Greer.
Salem, MA 01970
Dear Mr. Wheeler:
I have reviewed the draft City of Salem Open Space and Recreation Plan Update
prepared by the Planning Department and the Open Space and Recreation Plan Update
Committee.
The Plan's thorough discussion and analysis of Salem's environmental, recreational, and
cultural resources successfully conveys the unique mix of our City's open spaces. The
delineation of goals, objectives, and specific actions for implementation makes the Plan a
practical and flexible blueprint for open space and recreation activities over the next five years.
The Plan's special focus on waterfront issues is consistent with the many initiatives now
underway to rejuvenate Salem's maritime identity.
I support this Plan and look forward to implementing its recommendations during the
next five years.
Sincerely,
Neil J. Harrington
Mayor
SALEM CITY HALL • 93 WASHINGTON STREET SALEM, MASSACHUSETTS 01970 • 508/745-9595 FAX 508/744-9327
ICOVDI
HassadjusrIts
One �$tt1em Guru
October 23, 1996
Craig Wheeler
City Planner
Salem Planning Department
One Salem Green
Salem, MA 01970
Dear Mr. Wheeler:
The Salem Planning Board has reviewed the draft City of Salem Open Space and
Recreation Plan Update. The Board was effectively represented on the Open Space and
Recreation Plan Committee which worked on the Plan and fully supports the goals, objectives,
and five-year action program outlined in the Plan.
The Board will refer to the Open Space and Recreation Plan in matters affecting open
space and recreation resources.
Sincerely,
Walter B. Power,III
Chairman
CITY OF SALEM,MASSACHUSETTS
ti On
gecrea
j
�4j• E.Lawrence McIntire
Mack Park l r Superintendent
P.O.Box 465 l�
Salem,Massachusetts 01970
744-0733 ' 744-or8o
John A Galaris Fax:74 0-9 299
Philip E.Harrington
Katherine O'Leary t,
Dr.James T.Ryan ' 1996
James W. Shea
v
November 20, 1996
Larissa Brown
Planning Department
City of Salem
1 Salem Green
Salem, MA 01970
Re: Open Space Use Plan
Dear Ms. Brown:
This letter is to notify you that the Park and Recreation Commission reviewed the City of
Salem Open Space Plan draft as submitted.
The report was approved unanimously by Commission members at the Park and Recreation
Commission meeting held on November 5, 1996
We look forward to receiving the final report.
Very truly yours,
/James
Shea
an
JS:dt
�oN Cpti�
z� zConservatimCommissim
li\ Salem. Massachusetts 01970
ASS
9%Fy M�,yv
November 14, 1996
Craig Wheeler
City Planner
One Salem Green
Salem, MA 01970
Dear Mr. Wheeler:
The Conservation Commission was pleased to review the draft City of Salem Open Space
and Recreation Plan Update. Abby Burns, one of our members, was actively involved in
developing the plan as the Conservation Commission's representative on the Open Space and
Recreation Plan Committee.
The Plan provides a thorough discussion of conservation issues and the Conservation
Commission supports the goals, objectives, and actions developed in the Plan. The Commission
will refer to the Plan,when appropriate, to guide its deliberations on open space and conservation
activities.
Sincerely Yours,
Fred J. Harney
Chairman
Metropolitan Area Planning Council
60 Temple Place,Boston,Massachusetts 02111 617/451-2770 Fax 617/482-7185
MAPC Serving 101 cities and towns in metropolitan Boston
November 6, 1996 N 0e
Craig Wheeler
Salem Planning Department
One Salem Green
Salem, MA 01970
Dear Mr. Wheeler:
The Metropolitan Area Planning Council has reviewed the City of Salem Open Space
Recreation Plan Update - 1996. The plan is thorough and well-written. I would like to
offer the following minor comments:
1) Subregion-The plan should mention that Salem is a member of the North Shore Task
Force, one of eight MAPC subregions. The North Shore Task Force is a group of
communities that meet regularly to discuss issues of common interest and is an excellent
forum for discussing regional open space issues and opportunities. There should also be
mention made of the North Shore Trails Study which MAPC did for the North Shore
Task Force in 1995.
2) Regional Open Space - On page 21 there is reference to open space in Salem owned by
other municipalities. This would be a good place to discuss the open space efforts of
surrounding communities with particular attention to any parcels of open land that
straddle town boundaries.
Thank you for the opportunity to review this plan.
-'sincerely,
Pavid C. Soule
Executive Director
cc: Joel Lerner, Division of Conservation Services
salemos.doc
ltrfrdcs.dot
William G.Constable,President Richard A.Easler, Vice President Grace S.Shepard,Secretary Richard C.Walker,III, Treasurer
David C. Soule, Executive Director
PRINTED ON RECYCLED PAPER
SECTION 12 - REFERENCES
A Conservation, Open Space and Recreation Plan for the City of Salem - 1973. Prepared
by Wallace, Floyd, Ellenzweig for the Salem Conservation Commission.
"Section I. The Environment," in the Salem Community Development Master Plan, 1979.
Brengle, Kim Withers (Northfields Preservation Associates), A Preservation Master Plan
for the City of Salem, Massachusetts: Strategies for the Preservation of Salem's
Historic and Archaeological Resources. 1991
Massachusetts Bays Program, "Massachusetts Bays 1995 Comprehensive Conservation
and Management Plan: An Evolving Plan for Action," June 1995.
Massachusetts Department of Environmental Management. Massachusetts Coastal Land
Inventory: Extent and Distribution of Publicly Owned Shoreline. 1988.
National Park Service, The Salem Project: Study of Alternatives, January 1990.
Maritime Development District Plan, Hopkinson & Partners/Keefe Company/Raine
Associates, June 1994
Master Plan 1996 Update, draft January 1996.
45
Land Inventory Matrix
Land Inventory Matrix
The Inventory of Lands of Conservation and Recreation Interest lists parks and
playgrounds, conservation lands, cemeteries and unprotected open parcels owned by the
City of Salem, as well as the larger traffic medians and islands, which were included
because they are City properties which require maintenance. Some of them have
protected status under Article 97 of the state constitution. Also included in the inventory
are lands owned by other public entities and nonprofit organizations, some of which are
also protected to varying degrees.
Finally, the matrix includes a limited number of private open parcels. Many of these
are undevelopable because of wetlands or steep topography. These lands, along with
parcels such as the electric distribution rights-of-way function as "urban wilds," providing
habitat for wildlife and relief from built-up spaces for people. Other private parcels are
listed because their location or other characteristics make them potentially suitable for
recreational development or open space conservation. Inclusion on this list, however, does
not in itself imply plans for a specific parcel.
Funding key:
CDBG - Common Development Block Grant (federal)
UPARR - Urban Park and Recreation Recovery Program (federal)
USH - Urban Self-Help (state)
LWCF - Land and Water Conservation Fund (federal through state)
47
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TABLE 2
1980 AND 1990 POPULATION BY CENSUS DISTRICT AND POPULATION DENSITY
Census Tract 1980 Pop./Sq. Mil. 1990 Pop./Sq. Mi.
2041(S. Salem) 8,016 5,344 8,546 5,697.33
2042 (Chest- 4,854 13,118.92 4,702 12,708.11
nut/Canal)
2043 (Point/Derby) 3,382 14,704.35 3,159 13,734.78
2044 (Com- 3,759 4,176.67 3,435 3,816.67
mon/Neck)
2045 (Bridge St.) 3,062 7,468.29 3,033 7,397.56
2046 (N. Salem) 2,249 4,940.68 5,339 4,524.58
2047.01 (High- 3,865 1,375.44 4,118 1,465.48
land/SW Salem)
2047.02 (Witchcraft 5,452 5,738.95 5,809 6,114.74
Heights)
Source: U.S. Census 1980 and 1990
61
TABLE 3
1994 POPULATION BY WARD -PERCENTAGE OF POPULATION UNDER 17 YEARS
Ward A ie 0-16 % of Total Age 17+ Total
1 1327 24.73 % 4036 5365
2 974 17.58 % 4566 5540
3 1011 19.30 % 4226 5237
4 1073 19.62 % 4396 5469
5 946 17.63 % 4420 5366
6 1105 20.42 % 4312 5412
7 846 15.12 % 4750 5596
Source: City Census 1994
62
TABLE 4
LAND USE CLASSIFICATION- 1985
The most recent available breakdown of Salem land use was issued by the state's
Executive Office of Environmental Affairs (EOEA) in 1985. Salem was not included in a
land use update project in 1990 because it was among a group of communities where
changes in land use between 1985 and 1990 were deemed to be minor. It is likely that the
1985 information remains valid.
Acres Percent
Residential 1,785 34.1
Commercial 256 4.9
Industrial 267 5.1
Transportation 180 3.4
Agriculture 16 0.3
Urban Open Land 382 7.3
Recreation 345 6.6
Water 64 1.2
Other 1,936 37.0
63
TABLE 5
ESTIMATED BUILD-OUT UNDER CURRENT ZONING
Figures given below for the maximum number of units are based on gross acreage and
zoning limitations. Not all parcels meet minimum zoning requirements and much of the
land is not buildable for environmental or other reasons. There is less land available for
multi-family construction than for single-family construction. Realistically, the actual
number of new housing units which could be produced under current zoning is likely to be
less than half the numbers given here.
Zoned RC (Residential Conservation):
• 560.8 acres available
• parcels average 18.7 acres each
• maximum number of units - 250
Zoned RI (Single-Family Residential):
• 137.07 acres available
• parcels average 3 acres each
• maximum number of units - 411
• some portion of an additional 161.5 acres may become available when the
Superfund site located on the parcel is cleaned up. (Clean-up is scheduled to begin
in 1995. Monitoring and development restrictions will be put in place on some
portion of the site under all clean-up alternatives.)
Zoned R2 (Two-Family Residential):
• 16.33 acres available
• parcels average 2 acres each
• maximum number of units - 95 (48 buildings)
Zoned R3 (Multi-Family Residential):
• 116.48 acres
• only two parcels are larger than 8 acres (one 36-acre parcel and one 18-acre
parcel)
• maximum number of units - 1,462 (232 buildings)
Total maximum number of housing units: 2218 in 941 structures
Source: Computed from Assessor's Records
64
TABLE 6
NORTH SHORE PUBLIC COASTAL FRONTAGE BY MUNICIPALITY
Municipality Total Coastal Publicly Owned % of Total Publicly
Frontage Coastal Frontage Owned
Salem 11.22 5.63 50.2%
Beverly 10.58 0.94 8.9%
Essex 3.03 1.52 50.2%
Gloucester 47.19 4.74 10.0%
Ipswich 22.99 18.55 80.7%
Lynn 4.38 1.18 26.9%
Manchester 11.85 1.82 15.4%
Marblehead 16.22 2.69 16.6%
Nahant 11.49 5.03 43.8%
Newbury 12.69 6.89 54.3%
Newburyport 7.11 0.80 11.3%
Rockport 14.74 12.33 83.6%
Rowley 8.20 6.72 82.0%
Salisbury 6.90 4.92 71.3%
Saugus 0.36
Swampscott 3.80 0.33 8.7%
Total 192.75 74.08 38.4%
Source: DEM, Massachusetts Coastal Land Inventory, Table 3.
65
TABLE 7
PLANTS TYPICAL OF SALEM HABITATS
Upland Areas: Older remaining woody growth is mostly pitch pine, juniper, and scrub oak.
Vegetation in nonwoody areas includes moss, lichens, and wild grasses. Wild herbs, pitch
pines, and sumac are found in rock and humus pockets. Forest vegetation includes oak,
poplar, maple, birch, white pine, hemlock, pitch pine, and rhododendron
Wooded Swamps: alder, willow, dogwood, red maple, swamp white oak, red oak,
American elm, tamarack, hemlock, yellow birch, and Atlantic white cedar.
Freshwater Marshes: sedges, bur reed, shortweed, pickerel weed, arrowhead, duckweed,
wild rice, spike rush, bulrush, reeds, cattails, watershields, water lilies, grasses, water
milfoil, coon tails, wild celery, and pond weeds.
Source: 1972 Conservation, Open Space, and Recreation Plan
1979 Community Development Master Plan
66
Greater yellowlegs Barn Swallow Black-and-white Warbler
Solitary Sandpiper Blue Jay American Redstart
Ruddy Turnstone American Crow Northern Waterthrush
Semi-palmated Sandpiper Black-capped Chickadee Mourning Warbler
Least Sandpiper Tufted Titmouse Common Yellowthroat
Short-billed Dowitcher White-breasted Nuthatch Wilson's Warbler
American Woodcock Brown Creeper Canada Warbler
Laughing Gull House Wren Northern Cardinal
Ring-billed Gull Winter Wren Rufous-sided Towhee
Herring Gull Marsh Wren American Tree Sparrow
Iceland Gull Ruby-crowned Kinglet Chipping Sparrow
Great Black-backed Gull Blue-gray Gnatcatcher Field Sparrow
Common Tern Veery Henslow's Sparrow
Rock Dove Swainson's Thrush Fox sparrow
Mourning Dove Hermit Thrush Song Sparrow
Black-billed Cuckoo Wood Thrush Swamp Saprrow
Yellow-billed Cuckoo American Robin White-throated Sparrow
Eastern Screech-Owl Gray Catbird White-crowned Sparrow
Great Horned owl Northern Mockingbird Dark-eyed Junco
Barred Owl Brown Thrasher Red-winged Blackbird
Northern Saw-whet Owl Cedar Waxwing Rusty Blackbird
Common Nighthawk European Starling Common Grackle
Chinmey Swift Warbling Vireo Brown-headed Cowbird
Belted Kingfisher Red-eyed Vireo Orchard Oriole
Yellow-bellied Sapsucker Blue-winged Warbler Northern Oriole
Downy Woodpecker Nrothern Parula Purple Finch
Hairy Woodpecker Yellow Warbler House Finch
Northern Flicker Chestnut-sided Warbler American Goldfinch
Eastern Wood-Peewee Magnolia Warbler House Sparrow
Willow Flycatcher Yellow-rumped Warbler Wild Turkey (reintroduced)
Least Flycatcher Black-throated Green Warbler
Eastern Phoebe Blackburnian Warbler
Great Crested Flycatcher Palm Warbler
Eastern Kingbird Blackpoll Warbler
Horned Lark
Tree Swallow
N. Rough-winged Swallow
Bank Swallow
C. Mammals
Raccoon Cottontail Rabbit Little Brown Bat
Muskrat Gray Squirrel Big Brown Rat
Skunk Red Squirrel Norway Rat
Fox Mole Jumping Mouse
Long-tailed Weasel Opossum House Mouse
Short-tailed Weasel Short-tailed Shrew White Footed Mouse
Mink Chipmunk
Beaver Meadow Vole
68
D. Reptiles and Amphibians
Snapping Turtle Brown Snake Fowlers Toad
Spotted Turtle Green Frog Two-Lined Salamander
Box Turtle Wood Frog Red-Backed Salamander
Wood Turtle Leopard Frog Dusky Salamander
Black Racer Snake Pickeral Frog Red Spotted Newt
Milk Snake Grey Tree Frog Marbled Salamander
Ribbon Snake Spring Peeper
Garter Snake American Toad
Sources: 1972 Conservation, Open Space, and Recreation Plan
1979 Community Development Master Plan
1996 "Birds of Salem" -Species reported since 1985,
Natural History Dept., Peabody-Essex Museum
69
TABLE 9
PREHISTORIC AND HISTORIC SITES PRESERVATION PRIORITY AREAS
Prehistoric priority areas:
• Salem Neck and the Islands
• South/Forest River Drainage and Wetlands
• Strongwater Brook
• North/Danvers River Estuaries
• Salem Harbor
• North Salem
Historic period priority areas:
• Old Planters' Settlement (March Street area)
• Winter Island
• Blubber Hollow
• Essex Street/Derby Street District
• Historic Cemeteries
• County Jail, Jailer's House, site of John Ward House,
and Howard Street Cemetery
• Maritime Waterfront Underwater District
• Salem Willows
Source: Brengle, Kim Withers (Northfields Preservation Associates),
A Preservation Master Plan for the City of Salem, Massachusetts:
Strategies for the Preservation of Salem's Historic and Archaeological Resources. 1991.
70
TABLE 10
CITY-OWNED OPEN PARCELS
Size of parcel Number of parcels Number of acres
<114 acre 39 4.44
1/4 acre to 2 acres 44 28.5
>2 acres to 8 acres 9 36.47
>8 acres 2 46.5
Total 94 115.91
Source: City Assessor's Maps
71