47 OCEAN AVENUE - LIBRARY, SALEM - ZBA i
47 Ocean Ave. R-3
S. Ford Co. (Petitioner)
\ Salem Library (Owners)
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DECISION ON THE PETITION OF T. FORD COMPANY (PETITIONER) , TRUSTEES OF
THE SALEM PUBLIC LIBRARY (OWNERS) , FOR A SPECIAL PERMIT AT 47 OCEAN AVE.
A hearing on this petition was held March 26, 1986 with the following Board
Members present: James Hacker, Chairman; Messrs. , Bencal, Luzinski and Asso.ciate
Members Dore and LaBrecque. Notice of the hearing was sent to abutters and others
and notices of the hearing were properly published in the Salem Evening News in
accordance with Massachusetts General Laws Chapter 40A.
The petitioner is requesting a Special Permit to allow the premises to be used
for professional offices in this R-3 district.
The provision of the Salem Zoning Ordinance which is applicable to this request
for a Special. Permit is' Section V B 10, which provides as follows:
Notw}14standing anything to the contrary appearing in this
Ordi$dce, t4
e Board of Appeal may, in accordance with the
procure ani conditions set forth in Section VIII F and IX D,
grant',5peciat. Permits for alterations and reconstruction of
noncmforming structures, and for changes, enlargement, extension
or enansion`of nonconforming lots, land, structures, and uses,
provided, hnaever, that such change, extension, enlargement or
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exparTsict shall not be substantially more detrimental than the
exist,3n@Ldiorjconforming use to the neighborhood..
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In more general terms, this Board is, when reviewing Special Permit requests,
guided by the rule that a Special Permit request may be granted upon a finding
by the Board that the grant of the Special Permit will promote the public health,
safety, convenience and welfare of the City's inhabitants.
The Board of Appeal, after careful consideration of the evidence presented at the
hearing, and after viewing the plans, makes the following findings of fact:
1 . This appears to be as close a use as possible to a public library;
2. Building is in a historic area and can be maintained better by
one owner;
3. The plans was supported by neighbors and abutters.
On the basis of the above findings of fact, and on the evidence presented at the
hearing, the Board of Appeal concludes as follows:
1 . The relief requested can be granted without substantial detriment
to the neighborhood and will be in harmony with the district;
2. The proposed use will promote the public health, safety, convenience
and welfare of the City's inhabitants.
DECISION ON THE PETITION OF T. FORD COMPANY (PETITIONER) , TRUSTEES OF
THE SALEM PUBLIC LIBRARY (OWNERS) FOR A SPECIAL PERMIT FOR 47 OCEAN AVE. , SALEM
page two
Therefore, the Zoning Board of Acpeal voted unanimously, 5-0, to grant the Special
Permit requested, subject to the following terms and conditions:
1 . Six (6) on site parking spaces be maintained;
2. No more than ten (10) employees;
3. Approval of the Historic Commission be obtained for any exterior
work on the building;
4. Front lawn area facing Lafayette Street be maintained as a lawn with
appropriate plantings and' under no circumstances shall parking be
allowed on this area;
5. Character of the exterior of the building not be changed;
6. A Certificate of Occupancy be obtained.
SPECIAL PERMIT GRANTED
es B. Hacker, Chairman '
A COPY OF THIS DECISION HAS BEEN FILED WITH THE PLANNING BOARD AND THE CITY CLERK
APPEAL FROM THIS DECISION, IF ANY, SHALL BE MADE PURSUANT TO SECTION 17 OF THE :`JOSS
GENERAL LA:lS, C.IGPTER EC3, AND SHALL BE FILED WITHIN 20 DAYS AFTER THE DATE OF FL!I C
ifs THIS C:CISIr'N IN THE OMOE OF THE CITY CLERK.
GE'!"RFL L"1tlS, CUHUTER 808, SECT!';iJ 11, THE VAR1- B OR SPECIAL PER'.:iT
L RA,!o HEREI:9, SHALL NOT i 'KE EFFECT U.':T!L A COPY OF THEDND r C!F O1I, 6EAF.IFiS ii:E Cini
FIL:ATI�N IF SUCH IA}J APPEAL HAT 0 DA flLE.r7HATL IT�HAS ED AEE N DS'L;SSEDHOR AS BEEN
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T FORD COMPANY
POST OFFICE BOX 107
PRIDES CROSSING, MA 01965
(617) 922-2010
To : Board of Appeals Members , City of Salem
From: Thomas Ford , owner , T Ford Company
Re : Request for Variance and/or Special Permit
South Branch Public Library
Agenda item for meeting of 26 March 86
Date : 18 March 86
cc : Mayor Anthony V. Salvo
Councilor John R. Nutting
Patrick J. Cloherty Jr . , Library Director
Gerard A. Kavanaugh , Planning Director
-------------------------
Dear Board of Appeals Member ,
I am writing to you in advance of. the March 26 Board of Appeals
meeting to summarize my proposal for the adaptive reuse of the
former South Branch Public Library . The .building is a non—
conforming use in an R3 district and is located at the corner of
Ocean Avenue and Lafayette Street . This memo will discuss the
specific elements of the conversion with particular emphasis on
neighborhood issues and development alternatives .
My proposal for professional office use has been selected by the
Library Trustees from the seven offers received . Acting through
the City Solicitor , they have extended a purchase and sales
agreement to my firm contingent upon Board of Appeals approvals .
I hope that you will find time to review this memo in advance of
our meeting on the 26th . I have given a great deal of thought to
this building and to the issues involved in its reuse . After
reading this summary and receiving public comments at the
meeting , I hope you will agree that a small professional office ,
well rehabilitated. is the appropriate contextual use for this
building . I look forward to the meeting and your comments .
c ere 1 y
ThomasFordFord
REQUEST FOR PROPOSALS
The Trustees of the Salem Public Library , with the assistance of
the Planning Department ; solicited proposals for the reuse of the
South Branch Public. Library in August of 1985 . A preliminary
neighborhood meeting was held and development issues and
alternatives were explored with the abutting residents . A formal
"Request For Proposals" (RFP) was then prepared and advertised .
My firm responded to this RFP. Having seen the building ' s unique
architecture and after walking the surrounding neighborhood , I
chose to submit a proposal based upon the guidelines contained in
the RFP . The preferred uses as defined by the RFP were limited
to condominium units and professional office space .
On September 11 , 1985 the Trustees received seven proposals from
interested firms and individuals . All seven were invited to make
individual presentations to the Library Trustees . Following
these , the Trustees chose to advance two proposals , the proposal
of J .B. Herbert & Associates for three residential condominiums
and . the T Ford Company proposal for professional offices . A
second meeting with the neighborhood was then held where
residents were invited to pose questions to the two developers .
This meeting was attended by residents , the Library Trustees ,
Councilor Nutting & Mayor Salvo . On December 3d , the Library
Trustees voted unanimously to negotiate a purchase and sales
agreement with T Ford Company . This was prepared by the City
Solicitor and signed by the City and T Ford in February 1986 .
My motivation for engaging in this process is twofold . First , I
have completed some for-sale residential projects and am looking
to create some long term real estate equities. Second , the
building has a unique "letter head" architectural quality and is
on a heavily traveled street in an historically significant area .
A quality renovation here will advance my reputation as a
responsible real estate professional .
SPECIFIC ELEMENTS OF THE T FORD COMPANY PROPOSAL
T Ford Company proposes to rehabilitate the Library for use as
professional office space . The following paragraphs describe the
look of the building , the site plan and the type of tenancy we
will achieve if awarded the project .
The building ' s exterior would remain very much as it is today .
There would be no new exterior openings or additions . The
windows would be rehabilitated and the wire mesh screens removed ,
the stucco cleaned and patched , the missing copper gutters would
be reinstalled . All of the work undertaken would be in the
interest of rehabilitating and recreating the existing building
architecture. The Historic District Guidelines and the Secretary
of the Interior ' s Standards for Historic Rehabilitation would
supply guidance for the work.
The total land area of the Library site is 7140 square feet or
about one sixth of an acre . The small front lawn is restricted
by deed to remain open. It would be our intent to replace the
foundation planting with something more appropriate to the scale
of the building , regrade the loam and supply a new sod lawn . The
concrete parking area in the rear woud be enlarged and repaved to
provide on—site parking .
The buildings interior is approximately 2000 square feet in a
single open room, formerly housing bookshelves and reading areas .
Our original proposal to the Trustees included the insertion of a
second floor throughout most of the building to increase net
rentable space . Owning to neighborhood concerns over parking,
and , frankly , our desire to build this project , we are now
prepared to eliminate this second floor in favor of a small
mezzanine level above the rectangular rear portion of the
building . It is important to us that some portion of the room
receive a second level in order to visually emphasize the volume
of the space and increase its appeal as a first class office .
. This is a small office building . To put the size of this
building into some perspective , the total area available for rent
is only slightly larger than the minimum house size in our most
recent Hamilton subdivision.
As mentioned earlier , much of the rental appeal for this building
will be derived from its comparatively small size and unique
architectural imageability . When rehabilitated , we would
anticipate leasing this building as a whole to a small law firm,
architectural firm, advertising agency , an accounting or
consulting practice or other similiar professional use . Given
the small size and after accounting for the conference room,
reception areas , reproduction & other support areas , we are
anticipating a likely employee count of six to ten people .
Carlson Commercial will likely be retained as the exclusive
leasing agent for the building.
T Ford Company will remain as owner of this building . Long term
ownership of this building by one owner with a vested interest in
its appearance and performance will ensure an attractive , well
maintained building .
Hours of operation would be very similiar to those of the former
Library , i . e . a typical eight to five office day .
The building ' s prominent location on Lafayette Street , the prime
connecting link between Marblehead and Salem , also helps to make
for a desirable office location. The commercial corridor along
Lafayette is zoned R3 , yet all of the following offices are
located within afew blocks of the Library ; a law office , an
accounting firm, an income tax consultant , . a realtor , a CPA in
private practice , a photographer , a guest house , a dentist , a
bridal shop , a chiropractor and a doctor .
If awarded this project we intend to work entirely within the
existing property ' s physical and site constraints to produce a
small first class office building with unique architectural
charm.
PROFESSIONAL OFFICES AND CONDOMINIUM USES COMPARED
The as-of-right development of this building is multi-family
residential (R3 zoning) . Further , the most likely result absent
my petition for professional offices , is the development of three
condominium units proposed by J. B . Herbert & Assocs . The
differences between the two proposals are significant as outlined
below.
ARCHITECTURE. The changes necessary to reuse the building are
significantly less traumatic if a professional office is chosen .
The oversized windows with fixed transom panels , open floor
expanse and grand portico are all indicative of high quality
public space , and would remain to form distinctive office
amenities . The condominium proposal would have entailed
additional personnel and ventilation openings . Wooden decks were
to be added to the exterior and the large interior spaces would
be divided into units , rooms and "sleeping lofts . "
The buildings exterior appearance is important in that it is a
part of Salem' s Heritage having served some seventy years as a
public facility . Additionally , the building is located in the
Lafayette Historic District and on one of the main entrances into
the city .
OWNERSHIP. The Herbert Condominium Proposal was partly based
upon a pass through of the investment tax credit for historic
rehabilitation . This credit is only available to owners of
income properties . If the building is developed and sold off to
passive investors , I think the level of care and maintenance will
be significantly less than a single owner with long-term horizons
and equity . Also , given the proximity to Salem State , the
obvious tenants for these investor owned units are students .
A single owner with a long-term investment in the property will
be more attentive and responsive than mutiple-owners , some of
whom may not reside at the property .
TENANCY. The professional office alternative offers the tenancy
most similiar to the library use that has been a part of this
neighborhood for over seventy years . The hours of operation are
similiar , and the property is left to provide a visual and
physical separation between the commercial corridor that is
Lafayette Street and the residential neighborhood that exists
between Lafayette and Canal Street . Three families , or three
investor owned rental units , will produce a tenancy and activity
level that is very different than the former educational use that
was the Library .
PARKING. The zoning ordinance of the city requires one and one
half spaces per dwelling unit or about five spaces for three
condominium units . The standard for professional offices is one
space for each professional person plus one space for each two
other employees . If we assume 8 employees , half of whom are
professional , this equates to six spaces . Although the office
use will require slightly more parking , the lot will be empty
nights and weekends to accommodate Bingo , Sunday Service and
resident parking at night .
Eight to ten employees is a good first estimate . That equates to
one person per 300 square feet of interior space . Attached to
this memo are some floor plans that indicate how the interior
might be organized as an architect/engineers office or as an
attorney & accountant sharing a secretary . Recall that we have
eliminated almost all of the mezzanine level in our original
proposal as a response to neighborhood concerns over parking and
density .
To summarize , a professional office will offer the hours of
operation and quality of tenant most similiar to the former use .
Long term ownership by one entity will ensure building
maintenance and aesthetic appeal . The extensive building
alterations required by the condominum conversion will not be
required . And finally , the opportunity for three investor owned
rental units in this small building will be eliminated .
NEIGHBORHOOD CONCERNS ADDRESSED
"We don ' t need any more commercial encroachment into a
residential district . "
I totally agree.- To take an existing victorian residence and put
a photo processing lab in the front living room is a mistake .
But this building has nothing in common with a residential
dwelling . It was built as a public building on a. major
connecting link between Salem & Marblehead . The corner it is
located on , Julian Cohen Square , has a very public & community
service orientation that includes a Temple , a Methodist Church ,
and a public guest house . As a small Library , the building has
served well as alogical transition element from the busy
commercial corridor that is Lafayette Street , to the residential
neighborhood that exists further back on Ocean Ave . , Wisteria
Street , and beyond . As a small , first class professional office ,
it would continue in this same role , blocking the noise and
traffic on Lafayette from the residential neighborhood beyond .
"Parking is a mess . Offices would make the situation worse . "
Parking by Salem State College Students fills the Lafayette
Street spots by about 8 : 45 every morning . ( I sat in my car from 7
to 9 : 30 one morning to watch this happen . ) There are usually
spaces available along the Temple Side of Lafayette Street and
there is a crosswalk with pedestrian signal in front of the
Library . Parking is a concern , for both the residents and the
developer who hopes to lease the space .
I have made three initiatives in this reguard . First , I have
eliminated two thirds of the new mezzanine level that was in my
initial proposal . This will decrease the space available for
rent and will likely result in a total building population of six
to ten people . Second , I have created as much on-site parking as
is practical on the site by altering the stair well that leads
from the basement . Six spaces will be available on-site .
Finally if a problem still exists , I have spoken with Fr . Rhondo
at St . Josephs about the possibility of renting spaces at St .
Teresas Chapel . The zoning code calls for one space per
professional person and one additional space for each two other
employees . If we assume eight employees , half of whom are
professionals , six -spaces would be required , all of which can be
accommodated in the off-street lot . Additionally , there are five
spaces available on the curb surrounding the building .
The real parking problem is not the small library , but rather the
Salem State College . There is a project to upgrade parking
facilities at the college with a budget of $400 ,000. that will be
built this year . I spoke with the architect , Phineas Alpers , and
he said the project will create about eighty new spaces and
improve the existing lot utilization. This work , coupled with
the voluntary enrollment reductions being undertaken by College
Administration , may be 'enough to solve the parking problem in
this area .
Finally , Wisteria and beyond are posted "Resident Permit Parking
Only . " If the building is used as office , all these spaces will
be protected . If however , the building is developed as
condominiums , and student rental units emerge , the number of
residents with cars may well exceed the office density . All of
these vehicles will come with resident stickers and will be
allowed on street parking privileges .
"What about the noise and disruption offices cause?"
This will be a very high-end office geared to the professional
user . I submit to you that the eight to five occupancy of
professional offices by engineers or lawyers or architects , is
very much more in keeping with the neighborhood ' s interest and
former use of the building . If the condos are purchased by non-
resident investors , both the physical look of the building and
the decorum of the neighborhood may change dramatically .
CONCLUDING REMARKS
I am grateful for the opportunity that is presented by this
building to do a thoughtful , quality rehabilitation . The decision
to reuse the building for a professional office is one that makes
the best use of the building ' s prominent architecture , and is
most consistent with the location and surrounding neighborhood .
Specifically , I am asking the Board of Appeals to grant a special
permit and/or variance for a professional office and a waiver
from the parking requirements . The property is an existing non-
conforming use in an R3 district that is being converted to a
less offensive use under the provisions of Chapter Eight of the
Zoning Ordinance .
I would be anxious to discuss the building rehabilitation , my
qualifications and resources for undertaking this project , or any
other questions that you might have after reading this proposal .
Please feel free to call me at 922-2010.
Whatever your decision on Wednesday , thanks for taking the time
to read through this lengthy memo . I look forward to your
comments .
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