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SALEM, MASSACHUSETTS HIS 'T' ORIC AREA STUDY
Prepared by BLAIR ASSOCIATES CITY PLANNING CONSULTANTS PROVIDENCE, RHODE ISLAND
In cooperation with the SALEM PLANNING BOARD and the MASSACHUSETTS DEPARTMENT OF COMMERCE
i
September, 1963
w
BLAIR ASSOCIATES • PLANNERS
36 EXCHANGE PLACE • PROVIDENCE 3.RHODE ISLAND • ELMHURST 1-4900
Lachlan F. Blair •Robert M.Griffin,Jr.•Edward S.Koester •Edward W.Wood,Jm
September, 1963
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Mr. John B. Hooper, Chairman
i
Salem Planning Board
i City of Salem
1 Salem, Massachusetts
I Dear Mr. Hooper: ,
We are transmitting herewith the fifth of a series of eight reports in connec-
tion with the comprehensive planning program with the Salem Planning Board
{ and the Massachusetts Department of Commerce.
We are particularly gratified for the assistance provided to us bythe late Mr.
Charles Copeland, City Librarian; Mr. Dean Fales of the Essex Institute; the
Greater Salem Chamber of Commerce; andbythe members of the Salem His-
toric District Study Committee and Historic Salem, Incorporated.
Mrs. George Downing of Providence, Rhode Island, , has served as our con-
sultant with respect to the survey and analysis of historic architecture in Sa-
lem, Mrs. Downing, a noted architectural historian, is active in the field of
preservation and rehabilitation. She is currently chairman of the College -
Hill Historic District Zoning Committee.
j. No city in the United States has a more outstanding treasury of fine historic
architecture than Salem. We hope that this report will serve as a basis for
resolute action to preserve and to make use of this physical heritage for the ,
I
benefit of all people. - -
I Sincerely,
,I
Robert M. Giffin, Jr.
� SII
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e" I PHYSICAL GROWTH OF THE CITY . . . . . . . . . 1
■
II HISTORIC ARCHITECTURE . . . . . . . . . . . . 5 G
R.
III PLANNING CONSIDERATIONS . . . . . . . . . . 17
M.
IV RECOMMENDATIONS . . . . . . . . . . . . . 21
APPENDIX A -- EXPLANA.TION OF PROPOSED . . 41
DRAFT LEGISLATION F
APPENDIX B -- A. PRELIMINARY DRAFT OF . 44
A. BILL TO AUTHORIZE THE ESTABLISH-
MENT OF A. HISTORICAL COMMISSION
FOR THE CITY OF SALEM AND DEFIN-
ING ITS POWERS AND DUTIES, AND PRO-
VIDING FOR HISTORIC DISTRICT REG-
ULATIONS
APPENDIX C -- A PRELIMINARY DRAFT OF . . . . 51 F
AN ORDINANCE ESTABLISHING HISTORIC
DISTRICT REGULATIONS FOR THE CITY !
OF SALEM UNDER PROPOSED SPECIAL I
ENABLING LEGISLATION
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I, PHYSICAL GROWTH OF THE CITY
r' d 5I
At the time the first English settlers arrived in
1620, Salem consisted of a long peninsula run- r9ry n R" o
ning from the western end of what is now Essex N d d x
k
Street to Salem Neck and was bounded on thet ouicove ya i
north and south sides by tidal rivers. The land Ste# £ !
was formed by a glacial outwash plain that was
free of bed rock and boulders. The early set- d `
tlers found it to be good farm land.
w �I``?(�l. � I
North River, the northerntidal stream, extended
1�
inlandbeyondthe present Boston Street and west
ewrxrn )i [
towards Peabody. The South River, now for the Wino
most part, existing underground, formed a siz- OQ s�
able harbor along Front Street. This river was
deep enough to accommodate several wharves
and a shipyard which were located on the site of
Post Office. A dam separated the
the present Po i;
South River from a broad mill pond that reached
to the Castle Hill area. At times of extremely First'' Settlement
high tides, this pond was connected with Forest
River, thus making much of the South Salem a- At a point where a narrow strip of land sepa-
rea an island. Beyond the rivers lay the South- rated the North and South Rivers and provided
fields and Northfields, respectively, which made two good harbors, the first settlers selectedthe
excellent farm land. To the west, however, were site of Town Hall Square in 1628. The. central
the rocky highlands, which were suitable only
area surrounding the site was granted to the set-
for pasture. tlers,'for farming.
The deep inlets of the North and South Rivers
cBy 1660, most of the area of present day Salem
created a fine harbor. Accordingly, the early
towards the sea. had been granted as farm land. From that date
owa -
' s t i
settlers focused their activities wth was accomplished by subd
onward most 9270
Communication by boat between Salem and sur- vidin these original grants as interest turned
rounding areas was facilitated by these rivers from agriculture to trade byway of the sea.
and inlets. 1
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The Early Maritime Era
By 1640, the sea represented a major means of / \
livelihood for the people of Salem. Freight trade
grew, andwithit, the city began to develop around o
u00.iN PIY[Y
' the old harbor that occupied the area in the vi-
k „", `ca.uxs cove
cinity of the Riley Plaza. Slowly the city spread .."`°
towards the eastward along the present day Der-
by Street. The expanding and profitable trade in
! fish with the West Indies brought about a great
�. interest in larger and finer houses during theJ`L�o�r�� �, �O�
;t •' early and middle eighteenth century, as exem-
' plified by the Cabot House on Essex Street, the �\ T
Elias Hasket Derby. house, and the brick Richard
Derby residence, now part of the Salem National u ,
Maritime Site. By the time of the outbreak of eo
0 i -
. i
the Revolution, the old harbor was found to be
. � too shallow for the larger vessels of the Salem
fleet and newer wharves were being built along population explosion in the area. With the excep-
the upper Derby Street area in the neighborhood tion of the depression created by the Embargo
of Hawthorne Boulevard. Shipyards were now and the War of 1812, the period from 1783 to
1 moved from the Post Office area to the section 1820 saw most of Salem's great houses built in
> . along South River near the Pequot Mills. various parts of the city. Many of the ancient
dwellings were removed and new ones of more
t" modest proportions, were erected. The Derby
During this period, Salem exhibited a most
3 amazing patchwork of small shops intermixed Street section assumed much of its present ap-
with residences. It was an era when artisans pearance at this date and the Broadfield beyond
' had shops in their homes and frequently a tan- Summer and North Streets became the new fash-
ner built his own fine residence in the middle ionable district of Salem. Samuel McIntire was
of his tan yard. the great architect of the period and many ex-
r - amples of his genius can be found in the central
, {
The Era of the Great Seaport part of the city. Washington Square, Essex
Street, and Chestnut Street represent Salem's
The postrevolutionary expansion of trade brought greatest architecture. It is most fortunate that
. � considerable hard cash into Salem and createda Salem's greatest prosperity coincided with one
j 2
,. J
of the finest periods of architectural develop- hp i} r
ment,
hence there are more fine specimens of
/ ..
Federal architecture in this city than in anyX41
other city in the United States.
NXINOMR � ¢r.f y � Y
The Industrial Era
After 1820 the shipping of Salem began to decline �� "/�,wt" pc�C/ �•' €1
and with it the rapid growth that had charcter-
ized the previous era. Industry began to appear
in the form of factories and tanneries, and a new v .: oOl�/0[ o
WV P ,
type of development commenced. As the old
central part of Salem was filled, residential k,
growth spread to the Northfields and Southfields,
respectively. The establishment of the Naum- 820u�.. �0; ,�
keag Steam Cotton Company created a sectionof
South Salem that was built to rent to workers, J,
and the building of tanneries near the Peabody advantage of the North River flats to construct
a route to Peabody. As demand for railroad
line created similar areas in North Salem. The
establishment of the shoe industry created an purposes grew, the companies filled in the space
on either ide of the trestles until the original
even greater demand for rental property, and bodies of water were almost obliterated.
the Derby Street section was rapidly filled with
three-decker housing built in the gardens of old-
The Salem Fire
er houses. Since most of these new places were _
{ constructed to secure maximum income from The era of industrial development terminatedin
the smallest investment, they were barren and 1914, the year of the great Salem fire. The path
not too desirable as residences. of the fire destroyed much of the development of
' During this period, railroads built a series of the industrial era, but left em intact the central por-
tions of Salin which most of the architecture
trestles over the surrounding bodies of water to of the Seventeenth Century, Pre-Revolutionary,
enter Salem through unused land. By 1839, the and Federal Period was located. The area de
Eastern Railroad had constructed long bridges
stroyed by the fire was rapidly developed with
over the Mill Pond from Castle Hill to the cen- housing, much of which was in the Colonial Re-
a R ter of the city and along the North River toward vival Style.
i "
Beverly. The Salem and Lowell Railroad took 3
"
fld
i
Pattern Today
The events of history and the accidents of geo -
graphy have combined to leave a most remark-
able city. The area of historic Seventeenth Cen-
tury, Pre-Revolutionary, and Federal architec- .-
ture is sharply defined by the water to which
these developments were oriented and by the path
of the fire.
The growth of Salem was sharply curtailed in
1914 so that the impact of the automobile era
was reduced and little change occurred in the
street system. The modest growth between
1920 and 1963 was easily accommodated in the
burnt-out sections of Salem so that the central
area was left relatively intact. This has pro-
vided Salem with a unique central area, char-
acterized by buildings and entire streets of dis-
tinct historic interest and charm.
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II HISTORIC ARCHITECTURE Purpose of Study
Characteristic of the central area of Salem is Withthe selection of a study area, a survey was
the wealth of buildings and areas of historic and conducted to identify and precisely locate areas
architectural significance. The predominance containing buildings of historical and architec-
of these buildings and areas and the desire to tural significance. This was done through dating
emphasize their unique character and value to each building and evaluating its architectural
the city requires careful consideration in devel- significance. Since the purpose of the survey
oping planning recommendations for Salem. was to identify areas of distinction for general
planning purposes, the survey was limited to an
Definition of the Study Area exterior evaluation of the buildings and did not
involve validation of, field judgments through de-
The selection of the central area for intensive tailed historical research. A more d =tailed par-
survey and analysis was based upondiscussions allel study is presently being considered .,by the
with an architectural historian, local historians, Historic Districts Study Committee.
and members of the Salem Planning Board. It
was evident from these discussions that the ma- The determination of the location, character,
jority of buildings and areas of architectural and significance of historic areas provides a
and historic significance were located within an factual basis for preparing plans for land use,
area bounded roughly by Bridge Street on the traffic movements and pedestrian movements
north, Collins Cove on the east, Boston and Jack- and for developing an approach for protecting
son Streets on the west, andthe old shoreline of and enhancingthe unique character of these areas.
the South River onthe south. This area includes
the Central Business District, the residential Period of Architecture
areas in the vicinity of Chestnut Street, and the
residential areas in the vicinity of Salem Com- Each building in the study area was analyzed
mon. Because of several problems in the plan- to determine the period of architecture it rep-
ning of the Bridge Street peninsula, this area resented. Emphasis was placed, as lar as pos-
was also surveyed to determine the extent of sible, on the original construction date of each
architecturally and historically significantbuild- building.
ings. The Salem Neck, the North Salem area
and the areas to the southwest of North Street The colors on the map entitled "Periods of Ar-
were omitted from the study since these areas chitecture" re'p 'resent the date of construction
lacked concentrations of buildings of historical for each building. Black indicates buildings
x and architectural significance. originally constructed in the seventeenth century.
5
g
Buildings constructed between 1700 and 1775, out the entire area. Seven exceptional buildings ?
known as Pre-Revolutionary, are shown in pur- of this period are located along Essex Street,
ple. Red represents the buildings of the Federal west of Summer Street. Like the seventeenth
style dating from 1775 to 1830. Buildingsof the century buildings, these Pre-Revolutionary
Greek Revival style are shown in orange and structures contribute enormously to Salem' s ar-
cover the period from 1830 to 1850. Buildings chitectural importance.
of the Victorianperiod dating from 1840 to 1900
are indicated in tan. Gothic Revival, Italian Federal. The number and exceptional quality of
buildings in Salem representing the Federal pe-
Villa, Bracketed, Mansard, and Colonial Revi-
val stvles are included in this period. Twentieth riod are unparalleled in the United States. At least
century buildings are shown in light tan. 500 such buildings exist in the study area. Par-
ticularly noteworthy are the concentration of man-
Seventeenth Century. At least nine seventeenth - sions along Chestnut Street and in the vicinity of I
century buildings are still standing in the study Federal and Essex Street, the stately homes a-
area of Salem. The House of Seven Gables and round the Salem Common, and the public and
the Benjamin Hooper house are included in the semipublic buildings in the Central Business Dis-
important historic museum grouping on Turner trict. These include the Market House, the East
2 Street: while the John Ward house and Quaker. India Marine Hall, and the Essex Bank. The
Meeting house are part of the Essex Institute Barton Street Church, the Custom House, Ham- F
i complex. Three moreare located along Essex ilton Hall, and the Assembly House are other sig- �.
Street in the vicinity of Derby Wharf. Seven- nificant buildings of the Federal style.
teenth century buildings include the "Witch House"
at the corner of Essex Street and Summer Street Greek Revival. The study area contains approx-
and the rebuilt Pickering house on Broad Street. imately 100 buildings of the Greek Revival peri-
The Ruck house, which formerly stood at 8 Mill od. Most of these are residential structures of
4 Street, has been moved to Forest River Park good quality and modest scale. The City Hall
where the reconstructed Pioneer Village serves and the old Courthouse are the most important
to inform the visitor of the earliest days of the public buildings in this style.
Massachusetts Bay Colony. Any such collection
of seventeenth century architecture is extreme- Victorian. The quality of buildings of the Vic- -
ly rare in the United States. torian period also strengthens the importance
p� of historic architecture in Salem.
{ Pre-Revolutionary. Approximately ninety build-
ings in the study area were built prior to the The large mansions in the Italian Villa style in-
Revolutionary War. These are scattered through- terspersed among the Federal houses along Es-
;i '
6
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e a a+/ J4 � moi,';♦ .. I QY�+\Aa e n .-,:c ...._ -r-'�J_ m ,xy�a
t:'[[(,n,.pl• a a dv e b�ln e � � a'. ` �� � Fr n�♦ ' '9�wa e � la.
E'b8 a.-+/ .,;� J• i�� � �a0 inn /. l \e f.6 1® a♦/pr.:� c a
♦ • � mak! �.. , h �..`•♦ A{�`!. � , ! e
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Seventeenth Century
Pre-Revolutionary
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Federal
E ''�>/ Greek Revival
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Victorian
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t G� Twentieth Century
PERIODS OF ARCHITECTURE
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sex Street are similar in scale and form to the successful Revival buildings include the Taber-
earlier buildings. nacle Church and the Registry of Deeds at Fed-
eral and Washington Streets, the police station,
The ireaeast of the Salem Commonis composed the post office, and the Salem Athenaeum.
of sniall scaled Victorian buildings that are re-
markably consistent in character. These build- Twentieth Century. Buildings of the twentieth
I ings, which differ in scale to the mid-ninteenth century are primarily concentrated in the cen-
century mansions in the west Essex Street area, tral section of the study area. However, with
are iarmonious with the Federal and earlier the exception of the Colonial Revival structures,
buildings around them. few of these are of architectural significance.
Throughout the study area there are a number Architectural Quality and Historic Importance
of important Victorianpublic and religious build-
ings. Among the finest are two Gothic Revival Each building in the study area was examined to
churches, St. Peter's Church and the First determine its architectural quality. Factors con-
Church, on Essex Street. Other churches include sidered in making the evaluation were:
Minard LeFevre's Second Church on Washington
Square, the Federal Revival First Baptist Church 1. The importance of the
on Federal Street, St. James Church on Federal building as an example
Street, the Immaculate Conception Church on of the architecture of
Hawthorne Boulevard, and the Greek Orthodox its period.
Church at Forrester and Webb Streets. The old
high school and the old Normal School on Broad Z. The importance of the ar-
Street, and the Second Courthouse on Federal chitectural period as it re-
Street are also Victorian. dates to the totalhistory
of Salem. For example,
Salem also has interesting Federal and Classical the group of seventeenth
Revival buildings constructed during the Victo- century buildings along
rian and later periods. Many are successfully Turner Street represents
integrated with surrounding buildings of the Fed- an extremely important
eral period. Some of the commercial buildings phase of Salem's early
on Washington and Essex Streets are especially history.
good, notably, the Naumkeag Bank Building, the
Merchants Bank, the Sears Roebuck building, 3. The importance of build-
Essex House and the Masonic Temple. Other ings associated with his-
8
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toric individuals, such The Essex Institute buildings form an important
as those buildings asso- group that adds to the total unity of the square.
ciated with Nathaniel These include the excellent mid-nineteenth cen- i
Hawthorne. tury :Institute buildings, the Pingree house, the
early eighteenth century Dr. Crowninshield-Bent-
Since she purpose of the survey was to determine ley house, the seventeenth-century John Ward
i
the architectural quality of each structure, the house, the frame of an early Quaker Meeting „
actual physical condition and the extent to which house and the Cupola designed by McIntire for ,
it is deteriorated was not evaluated at this time. the Pickman-Brookhouse mansion. The Second
Church, built in the early Gothic Revival style '
Based on the above factors, buildings were rated by Minard LeFevre on Washington Square North
according to the judgments of the architectural is one of the most important and interesting Vic-
historian in categories ranging from outstanding torian buildings in the city. The fine quality and
to poor. The results of this survey are present- majestic scale of all these noteworthy buildings
ed on the map entitled "Architectural Signifi- is enhanced by their proximity to the Salem Com-
cance, " mon.
Areas of Significant Architecture The Waterfront Area. The buildings on Derby
Street fronting on Derby Wharf Park form an-
.The drtermination of areas containing buildings other important. group. They include: The Cus-
of historical and architectural significance was tom House (1817), the Rum Shop ( 1800), Richard j
based upon a careful analysis of the survey find- Derby's house ( 1761) the house at 180 Derby ¢b
ings and the historical developments of the city. Street built by McIntire for Benjamin W. Crown-
A discussion of these areas follows: inshield, the Simon Forrester house at 188 Der-
by Street by McIntire, and the Richard Derby r
Salem Common Area. The buildings around house (1738) at the corner of Derby and Herbert
the Sa'em Common form one of the most signifi- Streets. Further east on Derby Street are two
cant architectural groupings in Salem. With . important houses, the Captian Edward Allen
few exceptions, most of the buildings are of ex- house at 125 and the house at 96 where General
traordinarily fine quality. Several are associ- Frederick Townsend Ward lived.
ated w:th the name of Samuel McIntire. McIntire's
son, Samuel Field McIntire, was the designer The Turner Street Area, At the end of Turner
of the Joseph Fennon house at 12-14 Hawthorne Street, several important buildings have been
Boulevard, and the houses at 12 and 14 Pickman restored to form a historical group around the
Street just north of the Common. House of Seven Gables, the seventeenth-century
10 Fr
house made famous by Nathaniel Hawthorne. the second Courthouse built by Enoch Fuller
One of the houses located here is Hawthorne's (1861), and the Registry of Deeds ( 1909), a
birthplace which was moved from its original Classic Revival structure designed by Clar-
site at 27 Union Street. The other was Benjamin ence Blackall. Two churches, the First Bap-
Hooper house which was formerly on Washington tist Church built in 1806 and rebuilt in a Fed-
Street. The eighteenth century Retire Becket eral Revival style in 1868, and the Tabernacle
house, which formerly stood on Becket Street, Church designed by Smith and Walker (1922)
, . the little Central Grammar School (1784), Tur- complete the group. Although the buildings
ner Hall, and "The Seaman's Bethel"(1890) com- are of different periods and styles, their sim-
plete the group. ilar scale and relationship to one another is
effective in forming an impressive and uni-
Essex Street-Derby Street Neighborhood. The fied architectural grouping. This grouping
densely built-up area defined by Essex Street provides a striking introduction to the Cen-
and the waterfront and extending from Union to tral Business District as one approaches
Webb Streets contains many small buildings dat- Washington Street from the north.
ing from the seventeenth century to the late nine-
_} teenth century. The majority of the houses, The Business Area. Several individual buildings
many of which are of high architectural quality, and groupings within the business arca are his-
were built before 1830. With nearly all of the tonically significant. The Market Building ( 1816)
houses built at the sidewalk edge along narrow has a fine setting off Essex Street in the center
streets, the character of this early neigh- of a small, open-ended court. Surrounding Fed-
borhood provides an exciting contrast in scale eral and early Victorian buildings tend to com-
and architectural style to the imposing buildings plement the Market Building in character and
around the Salem Common and Derby Wharf. scale. In addition, a number of other important
Several seventeenth century buildings of smaller early public buildings are situated within the cen-
scale are located on Essex Street. These include tral area. These include the East India Marine
the Babbidge house at 46 1/2 Essex Street, the Hall, on Essex Street, the Barton Square Church,
Narbonne house at 71 Essex Street, and the Dan- on Crombie Street; the First Custom House de-
iels house at 9 Daniels Street. signed by Samuel McIntire on Central Street,
the Salem Fraternity,formerly the Essex Bank, de-
Federal Street-Washington Street Group. A dig- signed by Charles Bulfinch, the City Hall and
nified and grand scale is created by the five large the Lyceum Hall on Church Street. The full
buildings located at Washington and Fed e r_al visual potential of these buildings has not been
Streets. These include three civic buildings: realized due to the dominance of the largerbuild-
the old Courthouse built by Richard Bond (1841), ings around them.
11
7t.
The Broad Street Area. The three schoolbuild- In addition, there are twelve Pre-Revolutionary
ings at. the corner of Summer Street and Broad buildings situated on the street. Seven of them
Stree+. form an effective group which is enhanced are large gambrel-roofed structures that are
by th( open space of the seventeenth century cern- comparable in scale to the great square post-
etery behind them. The Oliver School, formerly Revolutionary houses. There are also a num-
the old Latin Grammar School (1818), is an im- ber of impressive Victorial houses on Essex
portant Federal building. The building on the Street. Although they are somewhat large in
southwest corner is the former State Normal scale, they do not overpower the earlier houses
School and was built in 1854, while the building around them. ;
containing Salem's Health Department is the
former High School. Both are good examples of The buildings on Federal Street aregenerally
early Victorial buildings. smaller than those on Chestnut Street. However, the
character of the buildings and the street add to
The Federal-Essex-Chestnut Area. The archi- the over-all environment of the entire residential
tectural importance of the western part of the area. The street contains several Pre-Revolu-
study area encompassing Federal, Essex and tionary and Federal buildings, the latter being
Chestnut Streets and part of Broad Street cannot second in importance only to those of Chestnut
be ovc restimated. Street and the Salem Common area. The Pierce-
Nichols house at 80 Federal Street, the Assembly
The splendid scale of the great Federal man- House at 138 and the Samuel Cook house at 142,
sions lining Chestnut Street creates an architec- were all designed by Samuel McIntire. I
tural entity which is similar to that around the
Salem Common. Of the thirty-two great houses Together with the Salem Common group, the ex-
on Chestnut Street twenty-five were built in the ceptional quantity and quality of great Federal
Federal Period. Most of them, including the mansions and the almost unbroken unique Fed-
McIntire house at number 12, are structures of eral character of Chestnut Street and Federal e
the highest architectural merit. The David Wa- Street make Salem the most important Federal
ters house, just south of Chestnut Street at num- city in the nation.
ber 14 Cambridge Street was also designed by
Samuel McIntire. Individual Buildings. Scattered throughout the
study area are many buildings that do not fall cv
The mixed architectural character of the build- within a particular grouping. However, their
ings along Essex Street is historically import- architectural and/or historical interest should
ant. The fine seventeenth century "Witch House" not be overlooked. A few of the important ti
k
stands at the corner of Essex and Summer Streets. buildings are described below.
12
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Salem Common
2 The Waterfront Area
a °
3 The Turner Street Area
4 Essex Street - Derby Street
d�J Area
5 Federal Street -Washington
Street Area
6 Business Area
7 Broad Street Area
8 Federal - Essex - Chestnut
Area
AREAS OF SIGNIFICANTARCHITECTURE
Witlin the eastern section of the study area, a hind the Essex House. The Bowman house has
1773 gambrel-roofed house, the birthplace of also survived. Conrad's Oriental Bazaar, built
t is located on Kimball Court. in 1870 at 153-155 Essex, is a very picturesque
Nathaniel Bowditch
The Nathaniel Silsbee home stands at 27-29 Victorian structure. A number of small Federal
Daniels Street. Samuel Field McIntire de- and earlier houses are located on Crombie Street 1
near the Barton Square Church. and some Fed-
signed the houses at numbers 12 and 14 Pick- eral commercial buildings stand along Washing-
man Street. The Reverend Dr. Brazer lived and on Front Street itself.
at ,.imber 17 Winter Street while Judge Story ton at Front Street
n
lived at number 26 Winter Street where he en- The house at 53 Charter Street was made fa-
pari
President Monroe in 1817. The early
par! of the Essex County Jail on St. Peter Street nous by Nathaniel Hawthorne as "The Grimshawe
was built in 1813 and was enlarged in a pictur- house. " It was the home of Dr. Nathaniel Pea-
esq..e Victorian Style in 1884. The nearby body, whose daughter Sophia Amelia, was mar-
riedrne. The oldest cemetery in Sa-
keeper's house was designed by Samuel Field to Hawthoo the rear of the house on the south
McIntire. The Greek Orthodox Church at num- lem lies just t
ber 66 Forrester Street is a delightful Victorian side of Charter Street.
building in the Russian style.
Samuel McIntire designed the house at 148-15Z
In the northeastern section of the study area Washington Street for Joshua Ware in 1781.
sGeorge Washington was entertained here, and
stands the house Samuel McIntire built for
it is still known as the Washington house.
Thomas Woodbridge in 1809 situated at 48
Bridge Street.
In the western section, a group of Pre-Revolu-
In the central section, the Universalist Church tionary houses are located at the junction of }
built in 1808 on Rust Street has recently been Broad and Summer Streets. McIntire designed
restored. The 1757 house of Captain John Felt the doorway of the Eden-Brown house at 40 Sum- !
stands at 47 Federal Street. Captain Joseph mer Street and the stables at 18 Summer Street.
Barr 1 ived in the Pre-Revolutionary house at
lity and the splendid scale of the
25 Lynde Street and Rufus Choate lived at 14 Scale. The qua
Lynde Street. Lieutenant Benjamin West's home, particular areas described in the preceding sec-
built in 1753, is located at 24 North Street. tion are enhanced by the old neighborhoods sur-
rounding them. Most of the eastern section, for j
There are a number of important mansions in example. is densely built up with small scaled
the central part of the city along Essex Street. houses set close to the sidewalks on narrow
Billy Gray's mansion (1745) is still visible be,- streets. It is rare in America for such complete
i
14
early neighborhoods to have survived. The ver- ter and favorable image. This image is created
nacu ar character of these neighborhoods con- by the complementary relationship of both these
trasts with the great mansions around the areas to one another in terms of both scale and
Salem Common. continuity.
The scale of most of the central section is Continuity. A visual continuity exists along the
established by almost continuous rows of large entire length of Essex Street which serves to
scaled Victorian and twentieth century commer- relate the residential and business sections of
tial building exteriors. The area is generally the study area to each other. This continuity
so densely developed that the commercial becomes apparent as one moves from one end
buildings tend to distract from the early public of Essex Street to the other. Starting from
buildings scattered among them. In this dense Webb Street on the east, one passes through
mass of building, the little court opening off the densely built-up residential area containing
Essex Street where the Market House stands small, early houses, skirts the great mansions
offers.a welcome change of pace and the com- of Salem Common, passes through the business
mercial scale is again broken by the bold open section with its large commercial structures
grouping of the public and religious buildings at and urban spaces, and finally enters the resi-
Washington and_Lynde Streets. dential area on the west with its spacious,
large-scaled residential structures. In the
The open residential character and large scale unfolding panorama, Essex Street provides the
of the mansions on Chestnut Street creates a linkage which relates three areas of distinc-'
psychological link with Washington Street and tive quality.
forms the architectural climax of the eastern
section. The rest of this area is slightly less
majestic, but there is a remarkable consistency
of scale in spite of the fact that Pre-Revolution-
ary gambrel roofed houses and large Victorian
buildings are mingled with the predominating
Federal building on Essex, Federal and near-
by streets.
The existence of these historical areas and
groupings of buildings in Salem provides a pleas-
ant physical environment for its residents and
visitors and contributes to the city's unique charac-
15
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III PLANNING CONSIDERATIONS The construction of a new thoroughfare, substi-
tuting for Bridge Street and running parallel to
The abundance of architecturally significant the Boston and Maine Railroad along the North
buildings and historic areas is one of the finest River, would enable through traffic to avoid the
features of Salem. The uses of these buildings Salem Common area. Traffic could then continue
in the future will influence the type and extent south on a new and improved Summer Street.
of their rehabilitation of preservation. The These new and improved thoroughfares would
uses of these buildings not only should be con- facilitate, easy vehicular movement between
' sistent with their architectural character, but Beverly„the South Salem area, and other neigh-
also in harmony with the function of each historic boring communities. They would also provide
area within the city. The starting point in plan- convenient and direct access to the Central
ning the rehabilitation of buildings is therefore Business District of Salem.
planning the future use for an area.
At the present time, Essex Street to the east of
Proposals for future land use are shown in the the 'Central Business District is used to carry
Land Use and Circulation Plan for the central traffic to the Salem Neck area. This traffic
area. This. Plan has been developed in conjunc- creates a nuisance and a barrier between the
tion with preliminary land use and circulation housing on both sides of the street. Derby
planning for the entire city. A discussion of Street also carries traffic to and from Salem
the major elements of the plan follows. Neck. The traffic congestion which exists along
Derby Street during the summer months is caused
Circulation by the interrelated problems of on-street park-
ing, narrow street width, and high traffic vol-
Several thoroughfares in the existing circulation umes. In order to reduce traffic on Essex Street
system of Salem have influenced the pattern of and facilitate an easier flow of traffic from the
land use in the central area. At the present south and southwest, an improved Derby Street
time, through traffic movement .from Bridge is proposed from Summer Street to Webb Street
Street to Lafayette Street progresses along Win- This street would be a continuation of Broad
ter Street, Washington Square West, Hawthorne Street. Parking on Derby Street would be
Boulevard, Derby Street and then onto Lafayette eliminated and replaced by off-street parking
Street. Much of this through traffic interferes areas behind the buildings.
with local traffic in the residential area around
the Salem Common and tends to separate the The proposed improvements in the over-all cir-
housing to the west of the Common from the culation system would enable traffic to bypass
remainder of the neighborhood. the residential areas to the west and east of the
17
�rY
Central Business District and would protect study as a result of changes in the thorough-
their stability as residential neighborhoods. fare system.
They will also reduce existing traffic conges-
tion and provide for easy access to the Central Residential Area - East. The pattern of land
Business District and historic areas . use which now exists to the east of the Central
Business District should remain basically un-
Land Use changed in the future. However, within the
existing residential pattern, three key areas
The existing pattern of land use in the central serve to attract visitors to Salem. These in- 4f
area of Salem consists of a mixture of housing, elude the historic buildings in the vicinity of ['
offices, retailing, light manufacturing, service Turner Street, the Derby Wharf complex, and
and institutional facilities. the Hawthorne Hotel.
t
While this diversity of uses suggests a general The national trends toward higher automobile
F
lack of order and an improper relationship of ownership and more leisure time should result
uses, broad functional areas within the central in an increased rate of tourism. Salem will
area are readily identifiable. These funetionable undoubtedly feel the impact of this increase .
areas include the Central Business District, the With an improved Derby Street, the potential .
residential areas to the east and west of the for accommodating more tourists in the cen-
Central Business District, and the Bridge tral area of Salem will also increase. The
Street Peninsula. concentration of fine historic buildings around
the House of Seven Gables on Turner Street
Central Business District. The land use pat- provides an ideal nucleus for a tourist attrac-
t
tern in the Central Business District consists tion representative of the maritime era of Sa-
of a core of office and retail uses surrounded lem's history. An important tourist area ad-
by institutions, government buildings, service jacent to Turner Street is proposed. Existing
uses and parking. The functional relationship historic structures could be supplemented by [ '
of these uses to each other is basically work- historic buildings moved in from other areas t
able. However, improvements in the pattern of the city. These buildings could be used for I
f.
have been suggested in an earlier study by tourist homes, guest houses and small offices.
Blair and Stein Associates. Basically, these
improvuments involve a consolidation of the An improved park at Derby Wharf could also
retail uses and provision of new and improved serve as a major tourist attraction and provide
off-street parking facilities. Slight modifica- a pleasant introduction to the historic area
tions of this proposal have been made in this of Salem.
18
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A small commercial center is proposed along each end and strip commercial development
Derby Street between the Derby Wharf and along Bridge Street. While the physical envi- 1
Turner Street. Touri3t-oriented shops as well ronment on the peninsula is generally poor,
the relocation of Bridge Street will tend to
as stores for convenience shopping would g
serve both tourists and residents of the area. improve conditions and prevent further dete-
These could include gift and antique shops, rioration of the area. New residential develop-
drug .stores and food markets. ment to the west of old Bridge Str,eet would be
more closely related to the housing across
The close proximity of the Hawthorne Hotel to Bridge Street and in the Salem Common area.
the toarist facilities around Derby Wharf and Commercial uses should be concentrated in
Turner Street and its relationship to the ma- the vicinity of Webb and Bridge Streets. These
jor shopping area and the Common is ideal for uses would"'supplement the commercial facili- t
visitors to Salem. Provision for expansion of ties along Derby Street and could serve pri-
hotel facilities adjacent to the existing hotel is marily as the neighborhood shopping center for 1,
suggested in order to concentrate major hotel- the entire population of the north of the Central
oriented activities and capitalize on the fine Business District. Industrial uses at the end $
physical relationship of the hotel to its sur- of the Bridge Street peninsula could be replaced F
roundings. by public and semipublic uses at some time in x.
the future. Uses such as a park or marina
Residential Area - West. The area to the would be more compatible with surrounding
west of the Central Business District is pre- residential development.
dominantly residential with a concentration of
government buildings along Broad Street. The Further modification in this stage of planning
quality of housing in this. area and its relation- may take place in the future as detailed studies
ship to surrounding uses makes this neighbor- of the waterfront, schools, and recreational
hood ideal for residential use in the future. In facilities are formulated.
addition, the proposed traffic routes around
most of this area will tend to preserve and
strengthen its quiet residential character by
r
minimizing traffic movement through the
area.
Bridge Street Peninsula. The Bridge :street € y
Peninsula is predominantly residential in use t
with iwo major concentrations of industry at
20
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IV, RECOMMENDATIONS pealing.! Only isolated places such as Chestnut
Street and the Salem Common retain much of
The Land Use and Circulation Plan for the ce'n- their original appeal.
tral area is intended to provide a frameworkfor
further action. This section presents proposals This neglect need not continue. There are large
for action and is based upon an objective survey neighborhoods in the central area of Salem
which demonstrates that Salem is an outstanding which can be as charming and liveable as the
city in several respects. Chestnut Street or the Salem Common areas.
Downtown Essex Street could be the core of a
First, Salem has a unique collection of buildings handsome business district. To achieve these
of every major period of American architecture goals, those who are interested in architecture
of great historical interest which could be of sub- and history should join forces with the political
stantial economic value as a tourist attraction, leaders, business leaders, and many others in
abroad action program.
Second, Salem is the most outstanding city in the
United States in its collection of Federal archi- Public Policy
tecture - a particularly rich period of American
building. Many buildings are associated with dis- The foundation of a successful action program
tinguished persons in American mercantile, should be firm public policies with respect to the
literary, political, and architectural history. use and renewal of historic areas. These poli-
cies must be broad, long-term commitments on
Third, its buildings of all periods are handsome which private and public agencies may rely in
and offer the possibility of superior residential planning their own activities.
living accommodations.
Housing Policy for Historic Areas.
Building and Environmental Conditions
Most historically significant buildings in Salem
Unfortunately, relatively few people in Salem are in residential use. Some of these buildings
realize the unique architectural character of the show signs of deterioration and neglect,but many
city and its potential value for the entire commun- are still in relatively sound structural condition.
ity. Too many buildings and their environments
have been permitted to become rundown and drab. While residential structural conditions are gen-
e _ While no severely blighted areas exist in Salem, erally satisfactory, the residential environment
as indicated in the :Neighborhood Analysis report, is less satisfactory. Conditions include
most of the historic areas look dingy and unap- overcrowding of land, lack of open space and off-
21
street parking, high population densities, traffic conditions a thfeir housing standards rise. It
congestion, and poor exterior maintenance of follows from these facts that a"do nothing policy,
property. These physical conditions are often avoiding all but a minimum expenditure of public
related to social conditions such as anaged popu- and private funds, is not workable for Salem. k
lation, a high incidence of renter occupancy, and Yet this is a very common practice by citieswho
families of limited income. The extent of these operate on the tacit and unspoken theory that
conditions varies throughout the study area.. eventually properties will deteriorate further and
become eligible for clearance and redevelopment _-
through urban renewal.
Unlike cities which also have good architecture,
it is not likely that high income families will In Salem, this practice would be suicidal. Not
move into historic areas and restore and rehabili- only would it tend to be economically harmful to
tate historic buildings. An increase in high in- the Central Business District, make Salem less
come families may take place inthe central area attractive to business and industry, and reduce the
as Salem improves its desirabilityas a residential tax base, but it would lead to the destruction of E
community; but the increase will not be large irreplaceable historic architecture.
enough to cause a dramatic change in historic
neighborhoods in the immediate future. Itfollows It is necessary for the city to supplement the
that housing and the physical environment in his- limited means of the families living in the historic
toric areas must be improved to accommodate central area by taking action to assist inhousing
primarily the present middle-income population. rehabilitation and to remove environmental defi-
ciencies. It would be futile to expect the residents
Most historic houses would be ineligible for clear- of the area to act without public leadership; the en- p
ance ac cording to requirements of the Urban Re- vironmental problems go beyond their lot lines , and pr
newal Administration. Rehabilitation of buildings they usually do not have the resources to correct
under rt Federal program of conservation will run these problems. The city government exists to act
into difficulties with respect to meeting modern on problems and needs which are of a social type. F•
residential standards. Yet the further deteriora-
tion of this housing would decrease the income It is therefore recommended that the City of Sa- t
level of the occupant, and make rehabilitation lem adopt a clear. and unequivocable policy to _
more difficult to achieve, eventually leading to support with all the means at its disposal the con-
loss of retail sales in Salem, a declining tax base servation and rehabilitation of historic residential
and increased costs of municipal services. It is, area. Included in this policy position should be
therefore, important to continue to hold the pres- commitment to make necessary expenditures for
ent middle-income populationby improving housing needed public improvements.
22
Policies for the Central Business District ingly depends upon a striking visual appeal and
functional design. In Salem, this must be de-
The historic areas of Salem include the Central veloped around historic architecture, and the
Business District. As indicated in the Central scale, mass, texture and colors established by
Business District study, this area is suffering significant buildings.
from problems of competition, obsolescence,
accessability, and poor design. The following The recommended basic policy 'of the city is to es-
policies have been proposed for the Central tablishfirmand clear design requirements towhich
Business District: all buildings and open spaces must conform just
as is done bythe management of shopping centers.
1, improvement of accessability for the
~` regional population; Unlike a shopping center, the design framework
cannot be just a plan on paper; it must be an ap-
2. the provision of modern conveniences proach which will evolve through a successionof
and facilities including city facilities; design studies and plans over the years as the down-
town is renewed. This approach will become a
3. increased visual attractiveness, espec- vital influence only if public officials require that
ially in open spaces, walkways, and all construction which will affect the: appearance
historic buildings. of the downtown be given careful deign study.
4. stimulation of new investment, particu- Public Controls
larly through urban renewal.
The city must not only have policies with respect
These policies are equally necessary for the to historic areas, but it must have coordinated and
preservation of historic architecture in the Cen- adequate legal regulations and controls. In the past,
tral Business District. Without at least the expec- the city has not been unmindful of its heritage of
tation of prosperity, investment in rehabilitation historic architecture. Several years, ago, the city
of historic business structures is unlikely. established a historic district in the Zoning Ordin-
ance for a limited area of Salem. Ntore recently,
It should, however, be stressed that the redesign it established a Historic District Study Committee
of the Central Business District should be rooted to recommend historic districts under Massachusetts
in the historic architecture of the downtown. While enabling legislation in Chapter 40C of the General
improved streets, parking and other shopping Laws, providing for control by Historic District
center-type facilities are essential to prevent de- Commission of exterior improvements to structure
cline, the success of shopping areas todayincreas- appurtenances andgroundsinhistoric districts.
23
While these efforts are to be commended, the city or facades. The insensitive design in reno-
has not gone far enough. Its codes and ordinances vation of some historic residential buildings
need revisions. Its zoning is not consistent with for commercial use and the use of some over-
existing conditions and current planning. Its his- powering signs and displays detract from the
toric areas are too complex for the simple type otherwise good qualities of the area.
of regulations provided in the current Zoning
Ordinance and permitted for historic districts Under Chapter 40C, it is possible to regulate all
under the General Laws of Massachusetts. of these types of areas by giving a Historic Dis-
trict Commission authority to approve all ex-
Historic District Legislation terior improvements. While this is simple to
conceive, it would probably prove difficult to ad-
A.s a result of this study, it is clear that Salem minister and apply in Salem. It would seem ap-
has three types of historic and architecturally parent that this.type of regulation is intended for ti
significant areas: use in towns where there is one limited historic
area; it does not seem well-designed for an area
1. It has magnificent residential streets, such of the size, diversity, and complexity of Salem.
as Chestnut Street and Federal Street, and
building clusters, such as those around the It is therefore recommended that the Historic
Salem Common, which represent excellent District Study Committee draft special legisla-
architecturally unified groupings. tion to be submitted to the Massachusetts legis-
lature during its 1964 session under the sponsor-
2. It has large areas in which are located scores ship of Salem's legislative representatives, with
of outstanding individual buildings whose qual- the support of the Mayor and City Council. This
ities are set off and complimented by less sig- legislation should permit a historic district corn-
nificrmt buildings of similar scale which are mission to divide the city into at least the follow-
wellarranged along pleasant streets. Goodar- ing types of districts in Salem:
chitcctural qualities result from both individual
buildings and a particular pleasant environment. 1. Historical ,Residential Districts. This type
of district should include Chestnut Street,
3. It has, within the Central Business District, a sections of Derby Street and Turner Street,
mixture of admirable public buildings and open and the Salem Common area. All exterior
spaces, attractive Federal and Victorian com- improvements to buildings, grounds, appur-
mercial buildings, and ugly buildings - some of tenances and public ways and property in the
which are without merit and some of which are district should be approved by the Historic
fine buildings with desecrated exterior skins District Commission.
24
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o ,a
® District
EM Historic Protective
District
HISTORIC DISTRICTS
N,
._
of this district is to protect the general
2. Historic Business District. This type of dis- environment rather than detailed archi-
tecture of each building. The power of
tract is intended for historic business areas,
where the need is more to control streets, the Commission would be restricted to
sidewalks, walkways, signs, building fa- major remodeling or rehabilitations
cades, market places, parking Lots, and
which might change the visual character
similar urban open spaces than to control of an area. This power would be used sparingly
individual buildings. In the business dis- and flexibly. �-
trict, the impression is more on the space
formed by buildings rather than the in- In addition, it is proposed in special legislation
dividual buildings. that the City Council, as recommended by the
Commission, could establish a priority of historic
In this district, the Commission should ex- buildings for preservation. It is expected that I
ercise necessary design control to preserve the great majority of the structures on the
qualities of architecture by approving the
priority list will fall within the study area.
design of new buildings and areas and by There appears, however, to be no reason for
regulating items such as signs and displays. excluding the few buildings outside the study area.
If a new building is to be built, its design
oust be compatible with the architecture This general scheme of regulations should be
of Salem; but a new building may be as coni- refined further by the Historic District Study
patible as an old building. This control in Committee. A draft outline of recommended
no way should prevent good modern archi- special legislation is contained in the Appen-
tecture, for compatibility is achieved dix. It requires further study and refinement
primarily through shape, scale, texture
by the Historic District Study Committee.
and mass - not imitation. i
The Commission will need as a guide an
Revised Zoning O
rdinance
urban design plan for the Central Business
for
anning Board.
District adopted by the PlA comparison of the existing Land Use Plan
�t
This can be prepared in a manner which the central area with existing zoning districts
is sufficiently general to be flexible, but indicate that revisions are needed in the zoning
still cover the essential features. Design of historic areas. Proposals for zoning re The
will have to be evaluated.by visions will be made in a separate report. The
the principles will be applied in
he Commission. following gene
The purpose
rezoning the historic areas:
3. Historic Protective District.
26 '
1, The zoningfor the central area should con- ment rather than extensive clearance and red"e-
. form generally to the Land Use Plan. velopment. Modern codes, vigorously administered
constitute major elements of the program to con-
2, The number of families permitted for each serve historic buildings for residential purposes..
residential building should not be excessive
The,intensity of use of buildings should be Coordination of Regulations. The above regulations
consistent with the proper use and main- would establish the following type of standards:
tenance of buildings,
design and appearance (historic dis-
3. The existing zoning which permits extensive trict regulations)
business use to the west of Hawthorne Boule-
vard and along Bridge Street should be re- use, occupancy, area, height, building
! vised. With the exception of certain estab- coverage, parking and accessory uses
lished retail areas, most of the existing (revised Zoning Ordinance)
historic areas should be zoned for residen-
tial use and limited special purposes, This interior housing conditions, structural
is required not only to protect neighborhoods soundness, plumbing and electrical facili-
for historic and residential purposes, but ties, and sanitation (various codes. )
also to reinforce the Central Business Dis-
trict as the major commercial center. These controls can help preserve historic build-
Ings in an active, well-maintained use. It is im-
4. Industrial zones for major industrial con- portant that their provisions be consistent with
centrations should be retained, but should one another; this coordination should be carried
be sharply defined and limited so as not to out by the Planning Board.
conflict with other purposes.
Technical and administrative coordination of en-
Code Review and Enforcement. Review and updat- forcement activity will be required among the
ing of codes and ordinances covering minimum various agencies and departments. Procedures
housing standards, building, plumbing, electrical have been recommended in the Program of Com-
j
and sanitary matters has been recommended in munity Improvement (Workable Program).
the Program for Community Improvement (Work-
able Program). Additional funds will need to be Public Direction
made available for their administration. As in-
dicated in the Neighborhood Analysis study; most The most important official in organizing and
of the historic area requires conservation treat- leading the effort toward improving historic areas
2'
^! r
i
is the Mayor. He can provide the good offices by Bill 3507. It is, however, recommended that
which the various groups within the community the functions of the regulating historic districts
may meet, study and develop programs to carry and actin on historical matters be combined to
out plans. He and the City Council have the re- avoid further fragmentation. This can be done
sponsibility for providing the initiative in public through the special legislation.
improvements which will be required.
Proposed Activities of the Commission. The func-
In addition to the Mayor, there are many other tions of the action-oriented Salem Historical
public Lind private groups which should partici- Commission would be generally as follows:
pate in the program. An approach is needed to
give direction to their efforts. 1. Coordination. There are a number of public
agencies with which the city should have of-
Need for a Salem Historical Commission. While ficial and continuing relationships in order
the Planning Board and Redevelopment Authority to obtain maximum assistance. These in-
have important responsibilities in improving his- elude the National Park Service and the
toric areas, there is a need for an action agency proposed Massachusetts Historical Com-
concerned with implementing historic area plans. mission. In addition, there is at present no
This has been recognized in the State of Massa-, official channel by which agencies of the city
chusetts. At the date when this report was pre- such as the Redevelopment Authority, Plan-,
pared, there was pending in the Massachusetts ning Board, or City Council, can obtain
House of Representatives a bill (House No. 3507) recommendations on the historical aspects
to establish a Massachusetts Historical Commis- of the programs which they are undertaking.
sion with authority to certify and mark historical While Historic Salem, Inc. , has shown a ,
sites and structures. The same bill would author- dedicated spirit on historical matters, it is
ize cities and towns to establish historical and necessary for there to be a publicly respon- j
cultural assets commissions which could under- sible agency to which questions of coordina- l
take a wide range of activities, including acquir- tion and public policy on historic matters
ing, receiving and managing properties. can be referred for authoritative disposition.
While it is recognized that Salem already has a In addition, there are many national, re- '
large number of private agencies in the field of gional, state and local private agencies ac-
history, and many public agencies related to the tive in the field of historic architecture:
field of historic architecture, it appears to be nec- Their participation is invaluable, but there
essary to establish apublic Historical Commission is no clear way in which the ideas and rec- '
with powers similar to those proposed under House ommendations of experts can be officially
28
x
reviewed and formulated in public policy. 4. Implementation. There is no city agency at
Much of the activity and thought devoted present with the responsibility and interest
to historic matters is therefore lost. A in developing historic trails, providing house
Salem Historical Commission should main- plaques on historic buildings, raising funds
tain continuous contact with groups such to acquire selected buildings, and demonstrat-
` as the National Trust for Historic Pres- ing how buildings can be restored. There is
ervation, Society for the Preservation of no city agency to publicize and to promote
New England Antiquities, the Salem Cham- historic activities. These functions must be
ber of Commerce, the Essex Institute, carried out within a framework of public re-
and Peabody Museum, and Historic Sa- sponsibility and accountability.
lem , Inc.
It is therefore recommended that a Salem His-
2. Technical Assistance. There will be torical Commission be established with mixed
many occasions when matters requiring expert and lay membership including, major his-
expert architectural or historical advice torical groups and that provision for such an
will be necessary. Informal methods are agency be included in special legislation in 1964.
too uncertain and unreliable. The tech- Suggested provisions are contained in draft leg-
nical assistance and advice must be ren- islation in the Appendix.
dered within the framework of an official
policy and approach. In particular, it Public Investment
follows from the recommended housing
policy that highly specialized assistance The city should follow up the adoption of the firm
must be made inexpensively available to policy position for historic areas and the establish-
middle-income families in efforts to re- ment of protective regulations with planned and se-
habilitate their properties, especially to lective programs of public investment. Three
restore them. If expert staff services projects have been identified which should pro-
are developed by the Commission in ur- vide superior benefits in relationship to costs.
ban renewal conservation projects, the
Redevelopment Authority may contract for Historic Waterfront Project. It is recommended
these services. that the city undertake immediate studies andac-
tiontoorganize, develop and detail the following:
3. Regulation. In view of the fact that there
mustbe aCommissionto administer historic 1. Expansion and further development of the
district regulations, there is no reasonwhy Salem National Maritime Site by the Na-
they should not serve broader functions as well. tional Park Service.
29
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IR
1 Historic Waterfront q
F
r Renewal Project
IR 2 Central Business District �YF
Renewal Project
3 East Salem Renewal Project
PROJECT AREAS
T-4
2. Studies of potential redevelopment of the agencies involved, including the National Park
north bank of the South River, as proposed service, the Naval Reserve, the United States
in the Waterfront Study. Corps of Engineers, the Massachusetts De-
partment of Public Works, both Division of
3. Development of a waterfront walk between Highways and Division of Waterways, and
` the Salem National Maritime Site and the cohme involved. The planning er gencies which may bstudynsho tlyld be
' House of Seven Gables.
concerned with:
3` 4. The construction of an authentic seventeenth. 1. develo in detailed plans with all of the
to nineteenth century building complex be- developin
tween the Maritime Site .and the House of public agencies involved;
Seven Gables.
2. with determining what portion of the area
5. The construction of a major public marina should be redeveloped through urban renewal;
¢ facility to the east of the House of Seven
Gables and a major yacht basin between 3. with planning the subsequent disposal and
Derby Wharf and new pier-breakwater- operation of public facilities;
1 marina berthing facility, as proposed in
the Waterfront Study.
4. determining general costs;
6. Definition of a renewal area and proposed 5. preparing a final report which represents the
general treatment inthe neighborhood roughly coordinated thinking of all agencies that are
formed by Essex Street and Derby Street. involved;
7. Improvement of traffic circulation, particu- 6. preparing and presenting architectural ren
-
larly on Derby Street. derings and a scale model of the proposed
improvement.
8. An expanded hotel center.
State and congressional representatives should
' for initiating this be kept informed on the project as it progresses.
The recommended procedure
- project is for the Planning Board to recommend
a detailed planning and design study to the City It is believed that much s this project can be to
Council, and for the City Council to appropriate funds.sTh through the use this
sisp Federal and State
funds. The City Council should officially request funds. The extent to which this is possible de-
the cooperation of the various State and Federal pends upon establishing a cooperative planning
,a
31
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41
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1'v r-ti x cY�?y45 �� (a � �� ° /j]�,�9p zcq' i' �.
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1 Salem NatlOnal
Maritime Site
li :3 rte; 2 South River
j' Axr ' rt
r Housing
.. 1 3 Waterfront Walk
4 Historic Building f
Complex
j
5 Public Marina
1
6 Essex Street
Neighborhood
�r
7 Derby Street Traffic
PImprovement
F
//" 8 Hotel Center
HISTORIC WATERFRONT DEVELOPMENT PLAN
Y
relationship with Federal and State officials so buildings could be utilized as museum facili-
that a common plan is informally accepted by the ties and small shops that are in character
agencies involved, followed up by the use of with the early nineteenth century maritime
scale models and drawings to develop general era of history.
public support, and by legislative action by Con-
gressional and state legislative representatives. 2. At the end of Derby Wharf, a tall monument
to the maritime era of Salem could serve as
It is not recommended that this area be made an a focal point to the entire harbor area.
immediate urban renewal project. Urban re-
newal planning procedures are tightly defined 3. The existing park should be landscaped
by the Urban Renewal Administration and very with trees and earth modeling to give
flexible approaches are needed to obtain maxi- visual relief to a dull expanse . Considera-
mum cooperation. tion might be given for its enlargement.
Most of the investment. in the area will not in- 4. The buildings fronting on the park on Kos-
volve urban renewal funds, and it would be help- ciusko Street could be acquired and all but
_ ful to later urban renewal project selection and a selected few removed. This strip could
planning to pin down prior to project delineation be developed as a site for old structures
the areas in which state and federal agencies moved from other areas of the city. The
will make improvements. For example, the buildings could be utilized as homes for
National Park Service should be approached to small shops, restaurants, and residences.
help develop the Turner Street building complex This developed strip would tend to define
and, expand their site to include the Naval the park and tie in the Custom House com-
Training Center. These and other matters plex with Derby Wharf.
should be clarified in relationship to other
public programs. 5. Boats should be encouraged in the area
by expanded marina facilities. If possible,
The waterfront improvements recommended for an old ship should be anchored at Lhe
this area are discussed in the Waterfront Study. Derby Wharf.
1f The following preliminary design ideas mightbe 6. In the Turner Street building complex, de-
applied to-the historic areas portion of the project. teriorated and obsolete buildings would be
removed. Vacant sites should be used for
1. Warehouses, similar to those that once lined screened parking areas, historic structures
_ Derby Wharf might be reconstructed. These relocated from other areas, and l,,.rge land-
33
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Il r. �Lvl
scaped gardens similar to those existing in of this project corresponds with minor altera-
the eighteenth and nineteenth centuries. tions to first priority renewal treatment area
recommended in the Central Business District
7. Buildings on the north side of Derby Street Study. The selection of this project conforms to
between Kosciusko Street and Derby Street the list of first priority projects recommended
should be rehabilitated for commercial use in the Neighborhood Analysis study.
and could serve the residents of the neigh-
borhood as well as the tourists. As conceived in the Central Business District
1 study, the project should make certain improve-
8. Pedestrian walkways and historic trails can ments which relate to the historic character of
also provide a connection between Derby the city, including:
Wharf and the Salem Common-Hawthorne
® Hotel area. Possible expansion of the hotel 1. Articulating the structure and form of the
facilities could take place adjacent to the downtown and its architecture through im-
! present buildings as demand for additional proved circulation, parking locations, and
hotel-motel accomodations increases. The open spaces;
new structure should be built on the existing
{ parking area and should relate in scale to 2. The development of Old Market Square as
the other buildings around the Common. It visual and pedestrian focal point in the
is recommended that the hotel develop the downtown area;
Washington Square frontage with terraces,
�p lounge space,and restaurants so as to capi- 3. The provision of pedestrian walko;Nays
talize on the amenities of the Common. which set off outstanding buildings and
public open spaces;
In future years additional motor hotel
� W
facilities would be constructed south of 4. The introduction of landscaping and street
the Hawthorne Hotel. This hotel could furniture along pedestrian areas;
relate nicely with Hawthorne Boulevard
;. and form an introduction to the historic 5. A mall along portions of Essex Street
area from the Central Business District. when feasible;
Central Business District Renewal Project. As 6. Improvement of signs and facades.
# this report is written, the first urban renewal
project for Salem has been tentatively selected It is recommended that an urban design plan be
in the Central Business District. The boundaries developed for the Central Business District, as
z
1
35
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discussed to serve as a basis for Historic Busi- Historic Trail. It is recommended tliat the
ness Districts. Such a plan would be general proposed Salem Historical Commission estab-
in scope and character, but would provide a lish in cooperation with the National Park Serv-
useful guide for urban renewal activities with- ice a new and improved historic trail in Salem.
out duplicating any of the planning customarily This trail should be clearly marked and planned
done in an urban renewal project. to take advantage of the centers of historical
interest revealed in this report, as shown on the
East Salem Conservation Project. As discussed map of Historic Trails.
�. in the Waterfront Study the relocation of Bridge
Street traffic on a North River Expressway is House Plaques. Under House Bill No. 3507,
fdependent upon dredging the North River and it is proposed that the Commonwealth establish
the provision of fill for the right-of-way. This a Massachusetts Historical Commis=ion. This
{ improvement would set the stage for renewal Commission would have the authority to certify
Iactivity in the Bridge Street area. In addition, historic landmarks. It is recommended that
it has been proposed in the Waterfront Study the Salem Historical Commission work with the
that Collins Cove be dredged and fill be used proposed Massachusetts Historical Commission
to establish a waterfront park. A feeder route in identifying structures which meet the stand-
from the Expressway to Salem Neck and to the ards of the Commission as historic landmarks.
3 proposed Derby Wharf Marina might utilize fill The Salem Historical Commission should, in
in Collins Cove. addition, establish a format for plaq<<es to iden-
tify and to describe historic buildings in Salem
} These interrelated projects will bring about which might not qualify as Commonwealth land-
different environmental conditions in the resi- marks. The Commission should be ;liven an ap-
dential area to the west of Salem Common and propriation to provide plaques for all buildings
ito a portion of Bridge Street. Due to the close in the vicinity of the proposed historic trail.
physical relation between the two residential
areas, and their related problems of traffic Selective Acquisitions and Demonstriitions. It is
j circulation, it is recommended that the two recommended that the Salem Historical Commis-
areas be combined into one renewal project. sion consider acquisition of two or three houses
j for restoration and rehabilitation as a demonstra-
Throughout most of the renewal project area, tion to the general public. It is suggested that
the principal treatment would appear to be the structures be selected as prototypes of com-
conservation, with pockets of clearance and mon historic building types in Salem. While
Iredevelopment in the Bridge Street area. these restored buildings could be retained as
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37
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'f historic museums, the prime objective should 1. Through conventional mortgage financing,
be to sell the rehabilitated and restored building. with capital provided by private foundations
or by public sources;
The purposes of these selected acquisitions
j and demonstrations are several: 2. Through application by the City for a
Demonstration Grant from the Urban
1. If properly timed in relation to develop- Renewal Administration;
ment of ptblic interest in the historic pro-
gram, such a restoration at reasonable 3. Through private funds;
cost could stimulate additional improve-
ments by residents of Salem. 4. Through a contract with the Redevelopment
j Authority or in an urban renewal conserva-
j 2. Invaluable experience could be gained by tion project area.
the Salem Historical Commission in the
i proper techniques and methods for rehabili- Private Actions
tating historic buildings at a. reasonable
J cost, and this experience could be made It is clear that the Salem Historical Commission
available to the citizens desiring to make could rehabilitate only a small portion of the
similar improvements. total historic area. The great bulk of rehabilita-
tion will require private initiative. Even in ur-
3. The sale of the building will lead contractors, ban renewal conservation projects, renewal
developers, and realtors to investigate the funds are generally used only to make public
market for rehabilitation. The persuasion improvements and to provide design and techni-
of these groups is extremely important to cal assistance to property owners.
the success of the historic program. The
successful, well-publicized rehabilitation A formidable array of public improvements and
of such buildings is more effective sales- projects have been proposed in this report. If
manship than a thousand words. the full benefit of these activities are to be
realized, then each successful step in the pro- .
4. The techniques used in such a study would gram must be accompanied with maximum pub-
be invaluable in urban renewal conserva- licity. The purpose of this publicity is outlined
tion projects. as follows:
Funds for this purpose can be obtained in any 1. interest property owners in restoration and
of several ways. rehabilitation;
r
39
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f1
2. create confidence in the soundness of in- and even hire contractors for the improvement
vestmei.t in historic buildings; of whole areas at a time. It is extremely im-
portant to provide some substitute for the
3. educate property owners as to what kind entrepreneurs who buy deteriorating structures
of imprt>vements can be made and at as a group and resell them after rehabilitation
what cost; to higher income groups - a successful technique
in rehabilitation for higher income housing, but
4. acquaint. property owners with sources of not likely to work for most of historic Salem.
financing= rehabilitation;
This program may from time to time be supple-
5. inform individuals of the availability of mented and enforced by urban renewal conserva-
detailed technical and design guidance tion activities, particularly in code enforcement
for restoration. and design assistance. The future of the historic
areas, nevertheless, will be the responsibility
In addition !o concrete action and maximum of the people of Salem, to whom is given the
publicity, support P y, the pp t of key private groups is privilege. of making a great city out of a
essential. This could be best demonstrated b great Y g past.
cooperative action by banks, savings and loan
institutions, contractors, realtors, historic i
architects and
groups, y officials cials in his-
toric renewal and planning activities. These
groups should develop a plan of action to make
funds and assistance available to interested
parties. Faderal low-cost financial assistance
must be used when possible. Banks and other
lending institutions must evaluate investment
in the property planned and design home im-
provement in historic areas to the future health I'
of the city.
Consideration should be given at the appropriate
time to the formation of neighborhood associa-
$ons, with representation from historic groups,
lending agencies, and city officials, which can
successfully plan, design, assist in financing, Al
40
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APPENDIX A
EXPLANATION OF PROPOSED DRAFT LEGISLATION
In the following pages, preliminary drafts of a proposed special bill for
submission to the Massachusetts legislation and an ordinance for subse-
quent adoption by the Salem City Council are presented. A brief explana-
tion of these specific drafts may clarify their intent.
Purpose of Enabling Legislation
The draft special art for the Massachusetts legislature provides the City
of Salem with the authority (a) to combine in one commission the function
of regulating historic districts and specially designated priority historic
buildings with the function of promoting and implementing a program of
historic preservation and rehabilitation, (b) to divide the historic areas
of the city up into districts with different regulations applied uniformly
within each district, (c) to identify buildings which deserve special prior-
ity protection from damage, removal or demolishment, without requiring
that they be located within a historic district, and (d) to regulate public
{
open spaces and their enclosures which are very important features of
a historic business district.
Need for Enabling Legislation
Under the current general laws in Massachusetts at the time when this
report was prepared, there were no clear provisions to permit these ac-
tivities. Pending legislation (House bill 3507) would permit the establish-
ment of historic and cultural assets commissions to implement and to
promote a program of historic preservation and rehabilitation; but this
legislation had not passed at the time of this report's preparation, and
would not, in any event, be combined with the function of regulating his-
toric districts. Current general law permits the establishment of his
I toric districts, but does not provide for different regulations in each
district, special protection to priority list structures, and authority
41
over public open space. The current general law, in Chapter 40C of the -
General Laws of Massachusetts, appears to be designed more for the reg-
ulation of isolated, small districts rather than for a broad central city of his-
toric and architectural significance such as Salem. More complex regula-
tions are needed in Salem, both to protect its heritage and to avoid apply-
ing a very strict law, intended for a small area, to a large and diverse
central city, with possible unfairness to the individual.
Historic Residential District
This plan of regulation is to be implemented by the proposed draft or-
dinance for enactment by the City Council after passage of special leg-
islation. Under the proposed draft ordinance, the Salem Historical
Commission could regulate very strictly and completely certain key
residential areas of unusually great historical and architectural sig-
nificance, such as the Salem Common area and Chestnut Street. In
such areas, the Commission would have very complete authority over
the construction, repair, removal; alteration and demolishment of
buildings and public open spaces. This would be done through the pro-
posed Historic Residential District.
Historic Business District
In the historic downtown, the problem is of a different character the i
on Chestnut Street and around the Salem Common. One of the majo .
problems is the visual and design relationship of new buildings to the
appearance of the whole downtown. Another problem is the terrible
ruin which has been inflicted on very fine houses through poor remodel-
ing of facades and the infliction of garish signs and displays on dignified
architecture. Parking areas, sidewalks, walkways, malls, and public
street furniture could also be a problem in a revitalization program
without design standards and control.
In the proposed Historic Business District, therefore, the controls
which are proposed are primarily over new construction and over public
42
i
1�
open space and advertisement facing on public open spaces. The con-
trols are less stringent than those used in most modern shopping cen-
ters through leasing stipulations.
,
Historic Protective District
j
There is a third type of area which has been identified. This area con-
stitutes most of the remainder of the Central Area studied in this re-
port. Within the area, there are many buildings of outstanding or su-
perior architectural or historical merit; but these buildings are mixed
iwith others which usually compliment the significant building in scale,
mass, and texture. Here the need is only to preserve an overall char-
acter of appearance through flexible regulations with regard to overall
appearance and design. These are provided under the proposed Histor-
ic Protective Districts.
Priority Historic Buildings
Throughout the city, there are buildings which should be stringently
preserved, although these buildings do not fall into groupings to any
great extent. It is therefore proposed in the draft legislation and or-
dinance that these buildings be designated on a priority list as historic
buildings and subject to complete control wherever they are.
Procedures are recommended in both the draft ordinance and draft
bill for submission to the Massachusetts legislature for protection of
individual rights and notice to property owners. The authority of the
Historical Commission is restricted to exterior improvements which
are visible from public ways, and must not be inconsistent with the
master plan of the city.
These preliminary drafts should be given further study by the Historic
District Study Committee before action is taken. The Historic Districts
Study Committee should recommend legislation to the City Council and
to the Mayor.
43
t•
a
Y
APPENDIX B
A P.;.ELIMINA.RY DRAFT OF A. BILL TO AUTHORIZE THE ESTABLISHMENT OF
AHI �TORICA.L COMMISSION FOR THE CITY OF SALEM AND DEFINING ITS POW -
ERS AND DUTIES, AND PROVIDING FOR HISTORIC DISTRICT REGULATIONS
Be it enacted, etc. , as follows:
SECTION 1 Purpose -- The purpose of this act is to promote the eco-
nomic; educational; cultural and general welfare of the public through
the preservation, protection, and development of buildings and places
of historic and architectural significance by providing appropriate set-
tings for their active use for residential and business purposes in en-
vironments which preserve the historic character and traditions of the
City of Salem for all people.
SECTION 2 Establishment of Historical Commission -- The City
Council of the City of Salem may establish a Salem Historical Commis- _
sion to designate and to regulate historic buildings; to administer his-
toric district regulations; to acquire, maintain; manage, preserve,
promote and develop places of historic value; to conduct research, ad- _
vertise, prepare, print and distribute books, maps, charts, plans and
pamphlets; and to coordinate activities of unofficial bodies organized
for similarur oses. Said Commission shall consist of not less than
P P
three nor more than seven members appointed by the mayor, subject
to the confirmation by the City Council, including one member from
two nominees submitted by Historic Salem, Inc. , one member from _
two nominees submitted by the Essex Institute, one member from two
nominees submitted by the Society for the Preservation of New England
Antiquities, one member from two nominees submitted by the Massachu-
setts State Chapter of American Institute of Architects, &nd one mem-
ber from two nominees of the Massachusetts Historical Commission
The appointments to membership in the Commission shall be so ar-
ranged that the term of at least one member shall expire each year,
and their successors shall be appointed in a like manner for terms of I
44
three years. Vacanies shall be filled in a like manner for the unex
pired term. All members shall serve without compensation.
The Commission shall elect annually a chairman and vice chairman from
its own members. In the case of absence, inabilityto act, or unwillingness
to act because of self-interest onthe part of a member of the Commission,
his place shall betaken by an alternate member designatedbythe chairman.
The Commission shall hold regular meetings each month. The Com-
mission may adopt rules and regulations, and may, subject to appropri-
ations, employ clerical and technical assistants or consultants and may
accept monetary gifts and expend the same for such purposes.
SECTION 3 Establishment of Historic Districts -- The City of Salem
may, by two-thirds vote of the City Council, establish historic districts
according to the procedures provided in Chapter 40C of the General
Laws of Massachusetts, provided, however, that upon the recommenda-
tion of the Salem I-li.storical Commission, the City Council may divide
areas containing buildings, structures, features, or surroundings of
historical significance into two or more districts and establish regula-
tions for each. dist7:ict to be applied uniformly throughout each district
and establish regulations to be applied to all districts. The Salem His-
torical Commission may exercise the powers of the Historic Districts
Study Committee under Chapter 40C as well as powers under this act.
Any such ordinance may, from time to time, be amended in the same
manner except that the Salem Historical Commission shall study such
proposed amendments and report thereon as required hereunder.
SECTION 4 Adoption of Priority List -- The City of Salem may, by
two-thirds vote of the City Council, adopt by ordinance a priority list
of historic buildings in accordance with the following procedures:
a. prior to adoption of the priority list, the Salem His-
torical Commission shall prepare a recommended
45
i
priority list and a report on the historical and archi-
tectural significance of buildings included on the list,
and shall transmit copies of its report to the Salem
Planning Board andl the Massachusetts Historical
Commissiono�the Art Commission of the Common-
wealth for their consideration and recommendations;
b. sixty days after such transmittal the Salem Historical
Commission shall hold a public hearing thereon after
proper notice, which shall include a written notice,
postage prepaid, to the owner or owners of property
considered for designation as a priority historic
building or site;
C. following the public hearing, the Commission shall
submit a final priority list to the City Council for adop-
tion by ordinance. The priority list shall be restudied
every five years by the Salem Historical Commission,
which may appoint a committee of members of nonmem-
bers for this purpose. Amendment to the list shall be
adopted in the same manner as the priority list.
SECTION 5 Certificate of Appropriateness -- Within historic districts
established under this act, no building or structure, including stone
walls, fences, porches, steps, and paving, and no parking area, side-
walk, public shade tree, public way, or other public open space shall
be constructed or reconstructed, altered, repaired, moved, or demol-
ished, and no permanent commercial display, light or other appurte-
nant fixture shall be erected, installed, or displayed on any lot, struc-
ture, or public open space, unless a certificate of appropriateness has
been issued by the Salem Historical Commission. No building or its y
appurtenant fixture on the priority list of historic list of historic build-
ings shall be altered, repaired, moved or demolished unless a certifi-
cate of appropriateness has been issued by the Salem Historical Coin-
inission.
46
SECTION 6 Conditions for Certificate of Appropriateness -- The Sa-
I leen Historical Commission, in considering applications for certificates
of appropriateness for any of the purposes specified in Section 5, shall
consider the appropriateness of proposed exterior features of buildings,
structures, and appurtenant fixtures, location on the lot, and the re-
moval or demolition of any building or structure in said district, wher-
ever such exterior features, buildings, structures and appurtenant fix-
tures are subject to public view from a public street or way. The Com-
mission shall consider the effect of proposed public open space on the
appearance of the district and related building or structures. All plans,
elevations and other information deemed necessary by the Commission
to determine the appropriateness of the exterior features of buildings
or open spaces in question shall be made available to it by the applicant.
The Commission; in considering the appropriateness of exterior fea-
tures, shall keep in mind the purposes of this chapter as set forth in
Section 1, and shall consider among other things, the historical and ar-
chitectural value and significance, the architectural style, the general
design, arrangement. texture, material and color of the building or
structure or appurtenant fixtures in question, the relation of such fea-
tures to similar features of buildings in the immediate surroundings,
and the position of such building or structure or appurtenant fixture in
relation to the street or public way and to other buildings and structures.
The Commission shall not make requirements which are inconsistent
with any portion of the master or comprehensive plan adopted by the
i Planning Board for the district. The Commission shall not make re-
quirements which are inconsistent with the historic district regulations
i
for the district and shall not make requirements except for the purpose
of preventing development obviously incongruous to the historic aspects
of the surroundings and the historic district.
h
SECTION 7 Procedures for Issuing Certificate of Appropriateness --
Within seven days after the filing with the Salem Historical Commis-
sion of an application for a certificate of appropriateness, said Com-
mission shall determine the estates to be materially affected by such
47
W
application and shall forthwith send by mail, postage prepaid, to the ap-
plicant, to the owners of all such estates as they appear on the most re-
cent real estate tax list, and to any person filing written requests for
notice of hearings, such requests to be renewed yearly in December,
reasonable notice of the public hearing to be held by the. Commission on
said application.
As soon as it may be convenient after such public hearing, but in all
events within a period of sixty days after the filing of the application
for the certificate of appropriateness, or within such further time as
the applicant may in writing allow, the Commission shall determine
whether the proposed construction, reconstruction, alteration, restor-
ation, moving, or demolition of the buildings, structures or appurte-
nant fixtures involved will be appropriate to the preservation of the
historic district or historic building or site for the purposes of this
chapter, or whether, notwithstanding that it may be inappropriate,
owing to conditions especially affecting the structure involved, but not
affecting the historic district generally, failure to issue a certificate
of appropriateness will involve a substantial hardship, financial or
otherwise, to the applicant, and such certificate may be issued without
substantial detriment to the public welfare and without substantial dero-
gation from the intent and purposes of this chapter.
If the Commission determines that the proposed construction, recon-
struction, alteration, moving, or demolition is appropriate, or is not
appropriate, owing to conditions as aforesaid but that failure to issue a
certificate of appropriateness would involve substantial hardship to the
applicant and that issuance thereof may be made without substantial det-
riment or derogation as aforesaid, or if said Commission fails to make
a determination within the time hereinbefore prescribed, the Commis-
sion shall forthwith approve such application and shall issue to the ap-
plicant a certificate of appropriateness. If the Commission determines
that a certificate of appropriateness should not be issued, it shall place
upon its records the reasons for such determination, and may include
recommendations, if any appear in the records of said Commission.
48
A
SECTION S Repairs and Maintenance -- Nothing in this chapter shall
Ibe construed to prevent the ordinary maintenance or repair of any ex-
terior architectural feature in any historic district which does not in-
volve a change in the design, material, color or the outward appearance
thereof; nor to prevent the construction, reconstruction, alteration, or
demolition of any such feature which the building inspector or similar
agent shall certify is required by the public safety because of an unsafe
or dangerous condition; nor to prevent the construction, reconstruction,
alteration, or demolition of any such feature under a permit issued by
a building inspector or similar agent prior to the effective date of estab-
lishment of said district.
SECTION 9 Procedure for Appeal -- Any applicant aggrieved by a de-
termination of the Salem Historical Commission may, within twenty
days after the making of such decision, appeal to a superior court sit-
ting in equity for Essex County. The court shall hear all pertinent evi-
dence and shall annul the determination of the Commission if it finds
the reasons given for such determination to be unsupported by the evi-
dence or to be insufficient in law and may make such other decree as
justice and equity may require. The remedy provided by this section
shall be exclusive; but the parties shall.have all rights of appeal and
exception as in other equity cases.
Costs shall not be allowed against the Commission unless it appears to
the court that the Commission acted with gross negligence, in bad faith
or with malice.
Costs shall not be allowed against the party appealing from the decision
of the Commission unless it appears to the court that said appellant
acted in bad faith or with malice in making the appeal to the court.
SECTION 10 Powers of the Superior Court -- The superior court
shall have jurisdiction in equity to enforce the provisions of this chap-
ter and the rulings issued thereunder and may restrain by injunction
violation thereof.
49
^�Lra�:f3f
r4 r:
rvtl
SECTION 11 Violation --- Any person who violates any of the provi-
sions of this chapter shall be guilty of a misdemeanor, and, upon con-
viction thereof, shall be fined not less than ten dollars nor more than
five hundred dollars. Each day that a violation continues to exist shall
constitute a separate offence.
SECTION 12 Validity -- In case any section, paragraph, or part of
this chapter be for any reason declared invalid or held unconstitutional
by any court of last resort, every other section, paragraph, or part `
shall continue in full force and effect.
i
50 '
APPENDIX C
IAPRELIMINARY DRAFT OF AN ORDINANCE ESTABLISHING
HISTORIC DISTRICT REGULATIONS FOR THE CITY OF SA-
LEM UNDER PROPOSED SPECIAL ENABLING LEGISLATION
SECTION 1 Purpose -- (The purpose of this ordinance should be the
o same as the purpose stated in the final draft of the proposed special en-
abling legislation)
j SECTION 2 Establishment of Historic Distrwicts -- The following dis-
tricts are hereby established in accordance ithEhapter of the
Acts of 1964 of the Commonwealth of Massachusetts.
j
Historic Residential District
Historic Business District
Historic Protective District
SECTION 3 Certificate of Appropriateness --- No building or structure,
including stone walls, fences, porches, steps, and paving, and no park-
ing area, sidewalk, public shade tree, public way, or other public open
space shall be constructed, reconstructed, altered, repaired, moved,
or demolished, and no sign, permanent commercial display, light, or
other appurtenant fixture shall be erected or displayed on any lot, build-
ing, structure, or public open space within any historic district unless
a certificate of appropriateness has been issued by the Salem Historical
Commission as hereinafter provided. No building or its appurtenant
fixture on the priority list of historic buildings shall be altered, repaired,
, moved or demolished unless a certificate of appropriateness has been
v issued by the Salem Historical Commission.
a
1
SECTION 4 Historic District Regulations -- The following sched-
ule of regulations under which certificates of appropriateness shall
be required for the purposes of Section 3 above are hereby estab-
lished:
51
a
within historic residential districts, a certificate of
appropriateness shall be required to construct, re-
construct, alter, move, or demolish the exterior fea -
tures of any building, structure, or appurtenant feature
and any public way or public open space, including side-
walks and shade trees;
b. within a historic business district, a certificate of ap-
propriateness shall be required to construct hereafter F
any structure or building, parking area, sidewalk,
walkway, or mall, or to repair, alter, erect, or install
any sign, commercial facade, exterior permanent com-
mercial display, lights, or public street furniture;
C. within a historic protective district, a certificate of
appropriateness shall be required to extend or to en-
large any building or structure or to change the ma-
terial used in exterior.walls or to erect or to install
signs or permanent commercial displays.
SECTION 5 Priority List Historic Buildings -- Notwithstanding the
provisions of Section 4 above, a certificate of appropriat(�ness shall be
required to alter, repair, move or demolish any building or its appur-
tenant fixtures on the priority list of historic buildings. The fbllowing
priority list of historic buildings is-.ierebyadopted under Chapter
of the A.cts of 1964 of the Commonwealth of Massachusetts
(Here the buildings of exceptional or superior historic
significance or architectural merit should be listed)
e.
SECTION 6 Administrative Procedure. -- (Repeat Section 6, 7, and
8 of proposed special enabling legislation)
SECTION 7 Repairs and Maintenance -- (Repeat Section 8 of proposed
special enabling legislation)
52
SECTION 8 Appeals Procedure -- (Repeat Section 9 and Section 10 of
special enabling legislation)
SECTION 9 Violation -- (Repeat Section 11 of special enabling legis-
lation)
53