WINTER ISLAND_AN ANALYSIS OF RESOURCE SIGNIFICANCE AND MANAGEMENT OPTIONS_NPS_NOVEMBER 1984 WINTER ISLAND
AN ANALYSIS OF RESOURCE
SIGNIFICANCE AND MANAGEMENT
OPTIONS
NATIONAL PARK SERVICE
NORTH ATLANTIC REGION
POSTON, MASSACHUSETTS
NOVEMBER 1984
Congressman Nicholas Mavroules, on behalf of Mayor Anthony Salvos ,
of Salem, Massachusetts, has asked the National Park Service to
determine the significance of Winter Island and offer a full view
of management options . With excellent cooperation from both the
congressman' s and mayor ' s staffs , the North Atlantic Regional
Office has examined the resource significance and explored the
management options that the City of Salem may use for the
administration, operation and maintenance of Winter Island.
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I. SUMMARY
SIGNIFICANCE
Fort Pickering, nominated to the National Register of Historic
Sites in 1973, and located on Winter Island, possesses both strong
local historical associations and a reasonable degree of -physical
integrity. Due to reconstruction during the Civil War which required
considerable demolition of the early Federal fort, Fort Pickering
essentially dates from the mid-19th century. Although of interest
as a typical type of 19th century coastal fortification, it does
not possess the national significance required by the National
Park Service ' s management policies to permit its inclusion in
the National Park System. Its historical associations are represented
in other sites already within the system.
MANAGEMENT OPTIONS
Due to the resource significance of Fort Pickering and Winter
Island, a range of management options are proposed with major
organizational responsibilities directed towards the City of Salem.
The City, through a well represented local coordinating organization,
may use these proposed options , that is , funds and resources from
either public or private sources , either individually or collect-
ively, to create a management group that will produce a community
endorsed development program that will meet the future needs of
Winter Island as a public park.
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*Beverly
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128 Salem - -
WINTER ISLAND
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VICINITY
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II . Existing Conditions
Winter Island, a 38 acre, 1/2 mile long island, is situated on
the western side of Salem Harbor and two miles from the center
of Salem. The study area, consisting of 20 . 5 acres , located on
the south end of the island, is bordered by the Plummer Home for
Boys and residential neighborhoods to the north and west. Winter
Island Road, a two lane paved road on a causeway from Salem Neck,
provides access through property belonging to the Plummer Home
for Boys. Sparsely vegetated with irregular topography, the site
commands excellent views of Salem and Beverly Harbors as well
as the open waters of Massachusetts Bay. Adjacent neighbors include
the New England Power Company generating station, South Essex
Waste Water Treatment Plant and the Cat Cove Marine Laboratory
to the west and north of Winter Island, across Cat Cove.
Presently operated as a city park, Winter Island provides both
active and passive activities for land and water recreationists .
Facilities for park users include a seasonally operated information
gatehouse at the area entrance, a concession food building, a
boat ramp, and chemical toilets . Other structures are former
U. S. Coast Guard facilities transferred to the City of Salem in
1972. The predominant structures , all significantly vandalized,
are the commandant/office building, the seaplane hanger, radio
shack and a powder house.
On the east end of Winter Island, adjacent to a small but popular
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beach, is the site of Ft. Pickering and the recently restored
Ft. Pickering Lighthouse. The Ft. Pickering Site, occupying aprox-
imately two acres , has been a fortified site since the mid-17th
century. The present structures have deteriorated to ruins since
the last garrison left after the Spanish American War in 1898 .
The Fort Pickering Site has been on the National Register of Historic
Sites since 1973 .
III . SIGNIFICANCE
HISTORICAL BACKGROUND
There have been at least three fortifications erected on the site
of Fort Pickering that relate to the present ruin. These three
fortifications are illustrated in the following drawings . A plan
of Fort William dated September 4 , 1794 , depicts essentially a
square fortification with a blockhouse/powder magazine centrally
located on the parade. Modified during the following 20 years
and renamed in 1799 , Fort Pickering by 1820 was larger than its
predecessor and constructed more to the natural configurations
of the island. During the Civil War, Fort Pickering was almost
wholly reconstructed and assumed its present appearance. The
fort doubled in size at that time but incorporated much of the
earlier fort. The curtain walls that faced the harbor were retained,
and in all probability the foundations of the razed west wall
remain intact below the present parade.
In design, material, and construction, For Pickering was similar
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WINTER ISLAND
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WINTER ISLAND
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FORT PICKERING, 1863
WINTER ISLAND
SALEM, MASSACHUSETTS
NOTE ORIGINAL 1820 FORT OUTLINE
to other coastal forts of the period. Designed to discourage
an attack from the sea, Fort Pickering was sufficiently successful
that, once erected it was never tested.
ARCHEOLOGICAL RESEARCH POTENT
Fort Pickering today is essentially an archeological ruin. Stripped
of its earlier detail, isolated from its long removed garrison
structures , allowed to moulder into a mere reminder of its appearance
of a century ago, Fort Pickering like many other abandoned and
razed fortifications , has extensive archeological resources .
Because of the theoretical existence of remnants from the 1860s ,
1820s , and 1790s , as well as earlier, Fort Pickering might be
examined to shed light on the following general research topics :
1. Most archeological research projects involving military sites
have been either at large, constantly garrisoned installations
or at briefly occupied frontier posts . There has been no
research into forts that have been occupied by both militia
units and regular Army garrisons . The differences and
similarities in equipment, uniforms , and other government
issue items could be analyzed through excavated artifacts
and their distributions .
2 . During the Revolutionary War, militia officers were chosen
or elected because of their relative social status and wealth.
By the time of the Civil War that had changed. Up until the
1860s, officers customarily supplied their own person, quarters ,
and mess . Glass and ceramic artifacts could give insight
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into social and economic status of militia officers and their
relative status in the community. Regional trade distribution
patterns can also be inferred from those classes of artifacts .
3 . On a larger scale, the place of Salem in national and world
trade could be inferred from the identification of nonlocal
artifacts .
It is not the intent of the National Park Service to conduct such
an archeological research project. Neither the existence of the
research potential nor the possible results of an archeological
exploration affect the significance of the site relative to the
purposes of this study. The potential for research suggests ,
instead, that however Fort Pickering is ultimately developed,
its below grade resources should be respected. Indeed, the National
Register of Historic Places nomination form could be amended to
include a statement about the site ' s research potential .
RESOURCE SIGNIFICANCE
For an historic property to be eligible for inclusion in the
National Park System, it must be of exceptional national signifi-
cance and possess a high degree of .structural integrity. National
significance is ascribed to properties at which events occurred
that have significantly contributed to, are identified prominently
with, or outstandingly represent the broad cultural, political ,
economic, military, or social history of the nation; to properties
associated directly with the lives of persons nationally significant
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in the history of the United States ; or to properties associated
with an important event that outstandingly represents some great
idea or ideal of the American people. National significance may
also be ascribed to structures that embody the distinguishing
characteristics of an architectural type specimen; that are
exceptionally valuable for a study of a period, style , or method
of construction; or that represent the work of a master builder,
designer, architect, or engineer .
For structures , integrity is a composite quality derived from
original workmanship, original location, and the elements of
feeling and association. Sites that possess their original
location, and elements of feeling and association are considered
to have integrity, and the site of a structure no longer standing
may possess national significance if the person or event associated
with the structure was transcendent importance in the Nation ' s
history, and the association consequential.
The site of Fort Pickering has been occupied by some type of forti-
fication since the mid-17th century. Although in existence since
1644 , the present fort ' s character and configuration date from
rehabilitation efforts in 1794 and 1820 , and a more complete
rebuilding in 1863 . Because the reconstruction project during
the Civil War required considerable demolition of the early Federal
fort, today ' s fort essentially dates from the mid-19th century.
Photographs illustrating views of Fort Pickering between 1866
and 1925 are included in the Appendix.
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Fort Pickering is-- significant because it is typical of a number
of fortification sites along the Eastern seaboard which experienced
cycles of occupation and abandonment, reconstruction and decay.
The extended period of occupation spanning 300 years on an intermittent
basis, further makes the site significant for its aforementioned
archeological potential. It is , as its 1971 National Register
nomination form makes clear, "the oldest remaining fortified site
in Salem and one of the oldest in Massachusetts . "
An examination of the historic record, however, indicates that
while Fort Pickering is of local and perhaps of state significance,
it does not possess the historical associations sufficient to
qualify it for inclusion in the National Park System. Fort Pickering
is not associated with nationally significant events or individuals ,
and structurally it is not notable for its architectural values .
The structural integrity of the fort, while far from being absolute,
is reasonably high. It possesses its original location and is
characterized by a high sense of feeling and association. Although
the wooden superstructure of the bomb proofs (an interesting archi-
tectural feature ) has long since been removed, the stone walls
and the powder magazines combine to create a stong military associa-
tion. With little imagination, the 19th-century fort can begin
to take form.
Ancillary historic sites on Winter Island such as the remains
of the "Derby" wharf and the site of the construction of the
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U. S. S. Essex are of interest, but due to a lack of integrity and
nationally historic associations do not add enough to raise the
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remains to a level of national significance. -,� Ct -c 41 G
The Coast Guard facilities possess little historical or architect-
ural significance, but the buildings could be adaptively used.
The hangar particularly offers a number of possibilities . Listing
on the National Registershould be possible at least for the hangar,
C C,
as the Miller Field Seaplane Hangar, Staten Island, is a near
twin. Preservation tax credits
edits would then be possible were the
site to be developed.
In summary, Fort Pickering possesses strong local historical
associations and a reasonable degree of physical integrity. Of
interest as a typical type of 19th-century coastal fortification,
it does not possess the national significance required by the
Service ' s policies to permit its inclusion in the National Park
System. Its historical associations , furthermore , are represented
in other sites already within the System.
IV. MANAGEMENT OPTIONS
Before management options can be discussed, a statement regarding
the problems of Winter Island is required to focus attention
and direction to this review. Simply stated, the facility disrepair,
vandalism, and general appearance of the area illustrates that
the administrative, operational , and maintenance requirements
are not being achieved. Therefore, the purpose of this management
review will be to present a range of management options for the
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admini.G�:ration, operation, and maintenance of Winter Island,
increasing both recreational opportunities and the local capacity
to maintain those opportunities . These management options will
provide a basis for a management action plan which will identify
resources , responsibilities , and control for administration and
guide the formation of development and implementation plans for
Winter Island. The use of Winter Island as a public park or
for other public uses , established as conditions of conveyance
by the Federal government to the City of Salem in 1922 , continues
to be endorsed by elected officials and interested groups as
community goals .
The management options can be illustrated as a continuum of resources ,
responsibilities , and control required for the administration
of Winter Island. The complete administration of Winter Island
by the City of Salem only is at one end of the continuum and
the complete administration by a public or private organization
only is at the opposite end. The intermediate management options
are combinations of city, public, and private organizations ,
each contributing varying amounts of resources , responsibilities ,
and control to the administration of the area .
Winter Island Management Options
City City/Federal City/State City/Local City/Private Outside
of Groups Public
Salem or
Private
Organizations
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Due to the current increasing demand on shrinking tax dollars ,
resources , and the current conservative fiscal environment surrounding
both public and private organizations , the management options
at opposite ends of the continuum do not appear to be realistic
and will not be further discussed.
The city component in the remaining management options consists
of either a continuation of one of the existing local coordinating
organizations-Winter Island Commission or Winter Island Committee,
or establishment of a new group. This organization, consisting
of the City of Salem, public and private representation with
citizen participation, would focus community attention, rally
public support and achieve timely results . Citizen participation
will ensure that the issues , goals , and implementation strategies
have neighborhood and community support , avoid delays in
implementation, and possibly reduce costs through volunteerism.
This city component requires the City of Salem to actively pursue
a community solution for Winter Island..
A. City/Federal Management
If Winter Island had been determined to be nationally significant ,
a variety of actions by the National Park Service could have
been pursued. However, at this point, the basis for active ,
on-site National Park Service management does not appear possible
under U. S. Department of Interior Managagment Policies for the
National Park Service. Other actions by the Park Service, i .e. ,
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assistance in recreational land planning and interpretative planning
for Fort Pickering, or seasonal on-site interpretation of Fort
Pickering by uniformed personnel, may be possible, subject to
available funding, through cooperative agreements . At this time ,
other federal agency administration of Winter Island does not
seem imminent.
Secondary federal participation through grant and aid programs
is possible , although funds have been reduced in many programs .
The UPARR, established in 1978 and administered by the National
Park Service, specifically encourages distressed jurisdictions
to develop and adopt innovations in planning, programming, managing,
and delivering recreation services to increase the number of
recreation opportunities available to urban residents . In accomp-
lishing its objective, the program emphasizes the development
of linkages among recreation recovery activities at all levels
of government, and through other community resources and revitaliza-
tion activities , including voluntary efforts by neighborhood
residents .
Three types of grants have been used to meet UPARR objectives :
1. Recovery Action Program Grants - 50% matching grants to urban
communities to develop priorities and strategies directed at
the overall recovery of local recreation systems ;
2 . Rehabilitation Grants - 70% federal matching grants to renovate
existing indoor or outdoor recreational facilities in urban areas ;
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3 . Innovation Grants - 70% federal matching grants to local
governments to cover costs of personnel, facilities , equipment,
supplies , and services to be used to demonstrate innovative and
cost-effective measures to enhance park and recreation systems
in neighborhoods . Funded projects are expected to address common
problems related to program development, facility operations
and delivery of recreation services
Salem has a completed and approved Recovery Action Plan enabling
the city to secure additional funds under the UPARR. Unfortunately,
there are no funds for rehabilitation or innovation grants .
However, an additional grant, the Recovery Implementation Plan,
with 50% federal matching funds for planning, is available .
If a Salem grant application were funded, the city and the local
coordinating organization could fine tune a management mechanism
and begin to form a solid development plan.
An additional source of assistance for small construction projects
may be the Seabees , a constsruction unit with the U. S. Army or
the use of U. S. Coast Guard for short intermittent periods .
This management option would envision the city identifying a
coordinating organization with citizen participation; pursuing
a cooperative agreement with the National Park Service for limited
services ; applying for available funds ; and preparing a management
action plan for development programs and implementation opportunities .
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B. City/State Management
This management option would utilize resources from state agencies
and programs . Approaching the Division of Forest and Parks within
the Massachusetts Department of Environment Management, the city
could solicit interest active on site administration and technical
assistance
Outdoor recreation opportunities and historic resource appreciation,
both indigenous to Winter Island, are goals that the Division
of Forest and Parks actively pursues through land acquisition
and/or management actions . Land acquisition funds specifically
identified for coastal acquisition are available . The Heritage
State Park Program, an effort that seeks environmental enhancement
and economic revitalization, is a joint effort between state,
municipalities and private developers . Established in 1978 ,
this program has eight existing and six new parks . The program
to date does not have a park representing the rich maritime heritage
and associated events of the State. Winter Island could provide
this maritime theme to the heritage park program. Although perhaps
not a popular management alternative for citizens of Salem, the
establishment of a state park at Winter Island would address
many identified problems .
Management actions committing state personnel to on site activities
and/or technical assistance for management planning could be
established through cooperative agreements .
For the development of recreational facilities , distribution
of funds through two grant-in-aid programs by the Executive
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Office of Environmental Affairs , Division of Conservation Services
could be enlisted. The types of grants have been used to meet
the Division' s major responsibilities are :
1. Land Water Conservation Fund - 50% federal matching funds
for acquiring and/or developing lands for outdoor recreation.
While the National Park Service administers the program, fund
allocation is performed by the Division of Conservation Services .
2. Urban Self Help Program - 90% state matching funds to acquire
and develop lands to be used for park and recreation purposes .
At this time over $731, 000 has been identified for recreation
development at Winter Island. Subject to additional development
plans additional funds could be solicitied.
This management option would involve the city identifying a
coordinating organization with citizen participation; determining
the amount of state involvement advantageous to the community
and pursuing available state park programs ; developing a cooperative
agreement for technical assistance; continuing to apply for available
grants and funds through the state ' s recreational programs ; and
preparing a management action plan for development programs and
implementation opportunities.
C. City/Local Group Management
Under this option, a variety of local initiatives would be under-
taken to generate interest and assistance in the operation and
maintenance of Winter Island. The major thrust would be to mobilize
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local interest through participation. Neighborhood, civic interest,
community service and senior citizen groups to name a few, would
be contacted for funds and labor. Using limited amounts of personnel,
material and equipment from the city, to act as seed money, community
projects could be initiated. A successful example, the Senior
Citizen Maintenance Corp in Revere, was established to maintain
eight city parks . Using Federal funds from the UPARR program,
twenty five senior citizens were responsible for cutting grass ,
planting, watering and pruning plants , painting, making minor
repairs and undertaking general light maintenance and landscaping.
The program results to the city were decreased maintenance costs ,
reduced vandalism, and an increase in civic pride and use of
the eight city parks .
The relocation of the city parks and recreation department , another
city department or a county office to the former commandant/office
building would both provide a stable presence to the area and
reduce vandalism and neglect. The_Y.M. C.A_. could be approached
for either office space participation or other on-site activities
which may tap some organizational resources. Of coures , these
proposals all depend on complete building rehabilitation.
Though not popular, operation and maintenance funds generated
through local sales taxes for recreation purposes only, revenue
bonds, or increasing user fees could be pursued.
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In the interest of community relations, donations could be solicited
from such sources as New England Power Company or other businesses
within Salem. Gift catalogs, identifying specific projects and/or
materials could be produced and used as a funding and public
interest tool.
Historical societies and special interest groups for volunteer
labor may be used to leverage additional materials and/or services .
For demolition and/or construction activities , the support of
local labor unions could be utilized.
This management option would envision the city identifying a
coordinating organization with citizen participation ; increasing
grassroot support through active participation ; expanding the
constituency and community support ; and preparing a management
action plan for development programs and implementation opportuni-
ties.
D. City/Private Management
This option would envision the city, with assistance through
the designated local organization, contracting with either several
small companies or one large company for appropriate activities
on Winter Island. This option could shift some operational
maintenance and financial risk and responsibility from the city
to a private company and possibly generate income for the City
of Salem. This option could also allow a company to take advantage
of tax credits for preservation work as well as the normal business
tax deductions available. Care should be taken by the city so
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that economic goals in the recreation proposals would not eliminate
some valid or important recreation opportunities due to poor
economic analysis .
Other private sector involvement could provide for financial
donations, grants, in kind resources and recreational service
coordination.
This managemetn option could, depending upon the scope of operations
and if successfully executed, eliminate many operational and
maintenance responsibilities at Winter Island for the City of
Salem.
E. City/Federal/State/Local /Private Management
The previous options examined Winter Island management from
selected perspectives . A more effective option may be the selective
combination of the best aspects of the different options into
a consolidated partnership. Using the experience and expertise,
as well as funding. assistance from federal and state sources,
the support and participation of local groups within the community
and the advantages and capabilities of private enterprise, this
partnership of interested groups could be focused through a local
coordinating organization and develop a comprehensive management
action plan for Winter Island.
This consolidated partnership combining limited resources and
large tasks would envision the city identifying a coordinating
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organization with citizen participation; solicit UPARR funds ;
pursue heritage state park program and state funding sources ;
expand local and private group support and involvement; and
prepare a management action plan for development programs and
implementation opportunities .
The future of Winter Island will be decided by the elected officials
and residents of Salem. The National Park Service is hopeful
that the information presented will assist in determining the
appropriate administration and subsequent recreational development
of winter Island.
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V. INFORMATION SOURCES
NATIONAL TRUST FOR HISTORIC PRESERVATION
BOSTON, MASSACHUSETTS
DAVID GILLESPIE, 223-7754
REGION DIRECTOR
NATIONAL PARK SERVICE
MID ATLANTIC REGIONAL OFFICE
PHILADELPHIA, PENNSYLVANIA
LESLIE LUCHONOK 215-597-6605
GRANTS PROJECT OFFICER
DEPARTMENT OF ENVIRONMENTAL AFFAIRS
DIVISION OF FOREST AND PARKS
BOSTON, MASSACHUSETTS
CHRIS GREEN 727-3160
GRANTS AND AID TO CITIES
JOHN FEINGOLD 727-3160
LAND ACQUISITION
BOB FRIEDMAN 727-3174
URBAN SERVICES
EXECUTIVE OFFICE OF ENVIRONMENTAL AFFAIRS
DIVISION OF CONSERVATION SERVICES
BOSTON, MASSACHUSETTS
JOEL LERNER 727-1552
DIRECTOR
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