Preservation Master Plan 1991 t
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A PRESERVIrION. MASZER -PLAN
0R Its, CST't OF
SrILEM,,wSACHU,$ETTS
3a .
STRATEfi3ES FOR
THE PRESEHQAT-UN_ Of SALEM''S
HISTORIC AND ARCBAEOL0lfjCAL RESOURCES
AUGUST, 1991
REPORT PREPAREJD,�FOR:
CITY OF' SALM4
PLANNING D�,FAROENT
ONE SALEA*"G
SALEM, MA, 01970
PREPARED-BY:
KIM WITHER-5 :BRO.GLE ,
NO"RTH1%IELDS PRE5ERVA'I O t''ASSOCIATES
10 BARR STREgT
SALEM, MA 019" '
CONTENTS
Page
i Acknowledgements i
I. Executive Summary 1
II. Introduction 3
A. Community Profile 3
B. Project Overview 3
C. Scope of Work 4
D. Methodology 4
III. Overview of Preservation Activity in Salem 6
A. Salem Historical Commission 6
1 . Powers & Duties 5
2 . Current Procedures 6
B. Salem Planning Department g
C . Salem Redevelopment Authority/Design Review Board 9
D. Planning Board 10
E. Conservation Commission 11
F. Public Works Department 11
G. Cemetery Division 11
H. Public Property Department/Building Department 12
I . Board of Appeal 12
J . Board of Health 13
K. Park and Recreation Department 13
L . Market and Tourism Commission 13
M. National Park Service/Salem- Pr-oject 13
N. Historic Salem Inc . 14
O . Essex Institute 14
P. Salem Partnership 15
Q. House of Seven Gables 15
R. Peabody Museum 15
S. Others 16
TV. Salem's Historic Properties 17
A. Inventoried Properties 17
1 . Survey Evaluation 17
2. Geographical Areas 17
B. National Register Properties 19
C. Local Historic Districts 20
D. National Historic Landmarks 20
E. Other Designations 20
V. RECOMMENDATIONS 21
A. Salem Historical Commission Policies & Procedures 21
1 . Appointment of Members 21
2. Member Training 22
3 • Guidelines 23
d"In 4 . Enforcement 23
{ 5 . Other Procedures
B. Survey 24
C. Public Buildings 24
1 . City owned Historic Properties 25
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2. County owned Historic Properties
D. Consideration of Project Impacts 2?7
26
E. Designation and Protections of Resources
28
1 . Recommendations for Existing Local Historic
Districts 29
2. Recommended New Local Historic Districts
or Neighborhood Conservation districts 30
3 . Recommendations for Existing National
Register Districts 31
4 . Recommended New National Register Designations 33
F. Land Use Planning, Zoning and Inspectional
Services
35
1 . Zoning Board of Ap
peals & Other Zoning Issues 35
2. Signage 3?
3 • Permitting 38
G. Interdepartmental Integration 39
1 . Boards and Commissions 39
2. Salem Redevelopment Authority 40
3 . Planning Board 41
4 . Conservation Commission 42
5 . Department of Public Works 42
° 6 . Cemetery Division 43
H. Preservation Ordinances 44
1 . Historic Districts Ordinance 44
2. Demolition Delay Ordinance 45
3 • Local Landmark Ordinance 47
I. Education and Public Awareness 47
1 . Workshops , lectures and conferences 48
2. Publications 49
3 . Inventory forms 49
4 . Elementary preservation education 50
5 . Press coverage 50
6 . Preservation awards 51
7 . Public information 51
J. Coordination with Other Preservation Groups 52
1 . National Park Service 53
2. Massachusetts Historical Commission 54
K . Archaeology 55
L. Archives
M. Other Projects 57
N. Management of Expanded Responsibilities 58
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VI Prioritized List of Projects 2
A. Short Term Goals 63
B. Long Term Goals 64
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VII Maps
A. Maps of Existing Local Historic Districts
B. Maps of Recommended New Local Historic Districts
C. Maps of Existing National Register Districts
D. Maps of Recommended New National Register Districts
E. Maps of Salem Redevelopment Authority Areas
VIII Appendices
A. Definitions of Preservation Strategies and Tools
B. Contacts and Resources
C. Salem Redevelopment Authority Rehabilitation
Standards
D. Salem Properties on the State Register
E. Certified Local Government Guidelines
F. MACRIS Profile
G. Model Landmarks Law
H. Sample Neighborhood Conservation District
I . Demolition Delay Ordinances
J. Chapter 40C
K. Chapter 40 Section 8D
L . Article 22 of Massachusetts State Building Code
: ACKNOWLEDGEMENTS
The author would like to acknowledge the following individuals,
departments and preservation groups for their indispensable advice,
assistance and ongoing involvement:
In Salem thanks go to William Luster, City Planner; Jane Guy, Project
Coordinator, and the Salem Planning Department, Annie Harris and the Salem
Historical Commission; Historic Salem Inc. , the Historic Resources and
Cultural Development Committee of the Salem Partnership; Debra Hilbert and
Michael Spratt of the Salem Project. Special thanks also to Mark
Verkennis, Elsa Fitzgerald and others on the staff at the Massachusetts
Historical Commission. Many others have been generous with their time and
advice in the development of this plan.
This project has been funded with the assistance of a matching
grant-in-aid from the Department of the Interior, National Park Service,
through the Massachusetts Historical Commission, Secretary of State
Michael Joseph Connolly, Chairman, under the provisions of the National
Historic Preservation Act of 1966.
This program receives Federal funds from the National Park Service.
Regulations of the U.S. Department of the Interior strictly prohibit
unlawful discrimination in departmental Federally Assisted Programs on the
basis of race, color, national origin, or handicap. Any person who
believes he or she has been discriminated against in any program,
i> activity, or facility operated by a recipient of Federal Assistance should
write to: Director, Equal Opportunity Program, U.S. Department of the
Interior, National Park Service, P.O. 37127, Washington, D.C. 20012-7127.
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I EXECUTIVE SUMMARY
Salem is fortunate in having outstanding historic resources,
providing both the foundation for an enriching quality of life for
its residents, and the basis for a strong tourist industry. With
the double incentive of maintaining our quality of life and
promoting a healthy economy, it is clearly in the best interest of
the city, and its governing bodies, to do all in their power to
encourage historic preservation throughout the community.
Like the natural environment, preservation of the built environment
is a delicate balance dependent on the interactions of many forces.
We cannot preserve our community merely by preserving its most
prominent landmarks. Only by encouraging good preservation in all
Salem's older neighborhoods, and by including the preservation of
historically and architecturally significant buildings of all types
in the day to day processes of city government, will the overall
quality of Salem's built environment be maintained and enhanced.
This plan has identified several major areas of concern. High among
these is the need to better integrate preservation in the entire
process of city government. In a city with such intense
concentrations of historic buildings, actions of virtually every
city department, board and commission have impact on the quality of
preservation around us. Many of the recommendations in this plan
involve incorporating effective preservation policies into the
workings of these bodies.
There are several strong tools to protect historic buildings and
areas; one of the most effective is the local historic district.
This plan recommends expanding the use of local historic districts,
completing the nomination of many eligible properties and districts
to the National Register of Historic Places, and explores other
means of better protecting resources, including those historic
properties owned by the city.
Education is another high priority of the plan. The more the
general public understands the value of our surroundings, the more
sensitive they will be to their care and maintenance. It is in the
city's many older neighborhoods that the greatest promise of
preservation lies if residents understand the value of retaining
original fabric rather than compromising buildings with replacement
siding, new windows, and other inappropriate alterations.
Procedures and ordinances need drafting, revising, and strengthening
for the Salem Historical Commission and other city agencies.
Preservation will remain an active part of public policy-making only
if it is written into local laws and procedures.
The plan also addresses the management of expanded responsibilities
d preservation staffing. If the plan's recommendations are to be
carried out effectively, it may be necessary to change the current
structure of the Salem Historical Commission and increase
preservation staffing.
A specific timetable is needed for timely implementation.. Chapters
and VI provide detailed recommendations and lists of short and
long-term goals, listed in recommended order of priority. The
prioritized list is intended only as a starting point for a more
comprehensive timetable. It is recommended that representatives of
the Planning Department, Salem Historical Commission, and other
affected departments and organizations work together to formulate a
detailed, realistic timetable based on their knowledge of available
funding and manpower.
In many instances recommendations apply to city departments, boards
or commissions not generally associated with historic preservation.
Generally these are listed as projects for the preservation planning
assistant, either as a coordinator for one or more other groups, or
as the initiator, with the policy or task to be continued by another
group.
In order for these recommendations to be implemented, the support of
the Mayor and City Council will be necessary. Therefore the first
priority will be for the Master Preservation Plan to be officially
adopted by the city, and measures taken to assure its implementation
in areas outside the jurisdiction of the Planning Department.
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II INTRODUCTION
A. COMMUNITY PROFILE
The City of Salem is a coastal community located in the southern
portion of Essex County. It is bounded to the south by Marblehead,
Swampscott and Lynn, to the west by Peabody, to the north by the
Danvers River, Beverly Harbor, and Beverly, and to the east by Salem
Harbor. Salem is eleven miles northeast of Boston, and occupies
eight square miles. It is built on a coastal lowland that has seen
significant land filling over the centuries. The coast is
characterized by tidal flat inlets, stretches of salt marsh and
rocky shores. Numerous bodies of water exist, including Forest
River, South River, North River and Spring Pond. The gently
west-sloping land rises sharply at the Salem Highlands.
The city's population is approximately 38,700. Salem has a
mayor-city council form of government. Its economy consists of a
mixture of tourism, various industries, and a service economy
related partially to the Essex County courts located downtown. The
largest local taxpayer is New England Power Company, with its power
plant on the waterfront. Salem is readily accessible by public
transportation, with the Boston commuter train and buses running
through the city.
�wk B. Project Overview
vV Since 1984 when the Salem Planning Department hired a part-time
preservation planner, there has been a steady and on-going effort to
address the city's preservation planning issues in an orderly and
comprehensive process. Through the use of annual Survey and
Planning Grants from the Massachusetts Historical Commission for
projects conducted by Planning Department staff and outside
consultants, the city has completed, organized and analyzed its
historic resources inventory, conducted an archaeological survey,
and established the Lafayette Street Historic District (local) .
Numerous other preservation activities have been undertaken under
the auspices of the Planning Department and Salem Historical
Commission.
In 1990 the City of Salem was awarded a Survey and Planning Grant
from the Massachusetts Historical Commission to prepare this
comprehensive plan for the preservation of the city's historic
resources. Matching funds for the project were provided by the
Salem Planning Department through a Community Development Block
Grant. The Planning Department was responsible for overseeing the
project.
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C. Scope of Work
The scope of work for this project identified five objectives, as
follows.
1 . To develop recommendations on integrating preservation with
existing land use planning, zoning, and inspectional services.
2. To develop recommendations on strengthening preservation in city
ordinances that impact historic resources.
3. To develop recommendations on ordinances or other protective
measures that should be enacted to protect Salem's historic and
cultural resources.
4. To develop recommendations on increasing public education and
awareness of preservation in the community.
5. To develop recommendations on improving coordination of
preservation with local, state and national preservation
constituencies.
D. Methodology
Development of the preservation plan involved three components;
research and evaluation of current and past preservation activity in
Salem, review of relevant procedures and actions in other
communities, and meetings and discussions to identify issues and
areas of concern.
The research and evaluation component involved a review of all city
ordinances related to preservation, land use, and other related
topics, minutes and procedures of the Salem Historical Commission
and Salem Redevelopment Authority, and discussions with
representatives of many city departments and other local
organizations. Work completed in recent years had resulted in
detailed evaluation of the historic resources inventory and historic
designation recommendations, both of which were modified for use in
this plan.
Helpful information on preservation policies and procedures used in
other communities came from review of
a variety of written material, as well as meetings with
representatives from several municipalities.
Finally, numerous meetings and discussions occured with
representatives of many city departments and boards, as well as
local preservation organizations. The purpose of these meetings was
to solicit suggestions and identify concerns on all aspects of
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historic preservation in Salem. Many helpful insights came from
; these discussions and have been incorporated into the plan,
III OVERVIEW OF PRESERVATION ACTIVITY IN SALEM
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An active concern for Salem's cultural and architectural history has
been shown in the city since the nineteenth century. Over the years
numerous preservation-oriented groups have been organized, many of
which continue to operate historic sites, collect and preserve
significant records related to Salem's history, and educate the
public locally, nationally and internationally on Salem's heritage.
Through city agencies, Salem has provided for the consideration and
protection of some of the city's historic resources in the planning
and development process. The following is an overview of many of
the preservation-related organizations and agencies, and the roles
they have played in historic preservation in Salem to date.
A. SALEM HISTORICAL COMMISSION
The Salem Historical Commission and Salem's first local historic
district, the Chestnut Street Historic District (now part of the
larger McIntire Historic District) were established simultaneously
in 1971 by Salem City Ordinance 19-63 under the provisions of
Chapter 40C of the Massachusetts General Laws. Section 14 of
Chapter 40C provides that historic district commissions can also act
as historical commissions. Salem is one of the few Massachusetts
communities which has a joint historical and historic district
commission. Since its creation, new districts have been added and
existing districts expanded. There are currently four local
historic districts, the McIntire Historic District, Derby Street
Historic District, Washington Square Historic District, and the
Lafayette Street Historic District encompassing a total of
approximately 600 properties. The Historical Commission has the
responsibility of conducting design review of proposed alterations
within the four districts.
1. Powers & Duties
The Salem Historical Commission has all the powers and duties
given to a historic district commission under Chapter 40C.
These include the following:
-Recommend and administer the establishment of new local
historic districts or changes to the boundaries of existing
local historic districts.
-Review all new construction, demolition or exterior alterations
to existing buildings (with certain types of work excluded)
within the district.
-Issue or deny certificates of appropriateness,
non-applicability or hardship as necessary.
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In addition, the Historical Commission has the power to have
moneys appropriated or donated, and may employ staff or
consultants for the following purposes:
-To conduct historic properties surveys .
-To propose additional or changed historic districts.
To establish and maintain a system of historic markers.
-To prepare maps, brochures, walking tours.
-To advise the Planning Board, Redevelopment Authority, Public
Works Department and other City agencies on preservation
issues.
-To work with outside preservation agencies, public and private,
as needed.
-To advise owners of local historic buildings.
Through the passage of a Demolition Delay ordinance (1986) and
an ordinance permitting the occupancy of carriage houses for
single family dwelling units (1984) , the Salem Historical
Commission has additional review powers over these specific
matters outside the local historic district boundaries.
The National Historic Preservation Act Amendments of 1980 (P.L.
96-515) created the Certified Local Government Program, a
federal-state-local preservation partnership recognizing
communities with advanced preservation programs. Salem was
certified in 1985. Involvement in the program increases the
responsibilities of the Salem Historical Commission to include
review and approval of nominations of properties to the National
Register of Historic Places and may include a larger role in
environmental review and review of tax act projects. In
recognition of the increased responsibilities, certified local
government communities are eligible for a larger share of
federal preservation funds through matching grants from the
Massachusetts Historical Commission. Salem has received such
funding annually since 1985, resulting in the completion of
numerous preservation planning projects.
2. Current Procedures
a. Appointment of Members - The Salem Historical Commission is
appointed by the mayor, and consists of seven members and two
alternates. Chapter 40C requires that membership be composed
of one member appointed from two nominees submitted by the
local historical society, one member from two nominees
submitted by the American Institute of Architects covering
the area, one member from two nominees of the local board of
realtors, and at least one resident or property owner from a
district.
b. Application and Review Process - Property owners planning
exterior work on a building within one of the historic
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districts must apply for approvals prior to commencing the
! t ' work. The Building Department will not issue a building
permit until the necessary approval has been received.
Applications must be detailed and specific regarding proposed
work to enable the Historical Commission to review projects
consistently and thoroughly. A public hearing occurs, at
which the Historical Commission discusses the project with
the applicant, and hears comments from abutters. The
Historical Commission reviews the proposed work to determine
whether it complies with the district guidelines prior to
voting or continuing the application to a later meeting.
c. Guidelines - The decisions of the Salem Historical Commission
are based on the Salem Historical Commission Guidelines,
available at the Salem Planning Department. These criteria
provide the property owner with information on treatment of
such features as Architectural Trim and Siding; Doors,
Doorways, Porticos, and Steps; Fences; Masonry; Paint Colors;
Parking Solutions; Porches; Roofing; Satellite Dishes;
Secondary Egress; and Windows.
In addition to the guidelines, more detailed advice exists in
the form of the Salem Historical Commission Guidelines
Notebook, prepared in 1984, and also available at the
Planning Department. It provides information under each
category of the guidelines, and includes a section on Salem
Architectural Traditions, providing a frame of reference for
the Historical Commission and property owners seeking
guidance.
d. Comment on non-District matters - In its role as a Certified
Local Government Commission, the Salem Historical Commission
is occasionally called upon to review or comment on a project
outside the local historic districts. Such projects include
those that involve state or federal funds or permits, and
that may have an impact on historic resources. Recent
examples include the Salem Armory, aspects of the Bridge
Street by-pass road, alterations to Middle School West (the
former Salem High School) , and the proposed siting of the
South Essex Sewerage District Secondary Treatment plant
affecting historic and archaeological resources on or near
Winter Island.
B. SALEM PLANNING DEPARTMENT
The Salem Historical Commission has a staff representative in the
Planning Department. A Planning assistant whose position includes
other responsibilities, she spends approximately 70% of her time on
matters relating to the Salem Historical Commission and historic
preservation. Responsibilities include:
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-Providing administrative assistance to the Salem Historical
, 2 Commission and its applicants.
-Sending historic distict information packet containing an
informational brochure, application, and Salem Historical
Commission procedures -to each district property owner. Assessor's
records are checked monthly for property transfers within the
districts and new owners receive the information packet.
-Grant-writing, administering and coordinating preservation-related
grant projects, including Massachusetts Historical Commission
Survey and Planning Grants, National Endowment for the Arts grants,
and ACT feasibility studies.
-Planning workshops such as the Preservation Fair.
-Representing the Planning Deparment and Historical Commission on
the Salem Partnership's Historic Resources and Cultural Development
Committee.
-Maintaining and preparing the records and documentation required of
the Certified Local Government program, such as historic properties
inventory files, minutes and annual reports of the Salem Historical
Commission.
-Preparing Requests for Determination of Eligibility to the National
Register.
-Drafting ordinances and other submissions to the City Council.
-Coordinating historic building re-use projects.
-Representing the city during the Section 106 review process for
various projects.
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C. SALEM REDEVELOPMENT AUTHORITYIDESIGN REVIEW BOARD
The efforts of the Salem Redevelopment Authority (SRA) put Salem in
the vanguard of the national historic preservation movement in the
early 1970s. The Salem Redevelopment Authority (SRA) was formed in
1962 to take on an urban renewal project encompassing 40 acres of
downtown Salem. Early plans, partially carried out between 1968 and
1971 , included major demolition of historic resources and resulted
in strong opposition from community preservationists. By 1972, the
SRA was reorganized and dramatically re-focused on rehabilitation
and preservation rather than demolition and new construction. Plans
were developed and implemented first for the Heritage Plaza-East
Urban Renewal Project, and later the Heritage Plaza-West Urban
Renewal Project, which combined encompass the central business
district.
Bosh plans were written with a strong emphasis on historic
preservation. High on the list of objectives was "preservation and
restoration of historic and architectural values associated with
structures and areas within the Project Area." Goals included
creation of "a central city urban environment sympathetic to and
conducive of the preservation and enhancement of historic and
architectural values associated with an area and building within the
Project Area and to the construction of new buildings and facilities
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compatible with the preservation and enhancement of such values. . ."
Rehabilitation standards to assure preservation were imposed on
properties within the Project Area.
The SRA acquired fifteen to twenty facade easements on numerous
downtown properties in exchange for rehabilitation funds. The
easements were written to preserve the exteriors of these
significant properties, and were taken in perpetuity to be
administered by the SRA. At present their administration falls
under the review that the SRA has over all projects in the area.
The Design Review Board (DRB) was established as an advisory body to
the SRA. Its membership is to represent the following disciplines:
graphic design, architecture, landscape architecture and
architectural history.
An application must be submitted to the SRA prior to any alteration,
construction or demolition within the urban renewal project area.
Plans are reviewed and a hearing held by the Design Review Board.
The DRB often assists the applicant in fine tuning the plans prior
to a non-binding recommendation for approval or denial being made to
the SRA. The SRA gives the final approval or denial to the
application.
Rehabilitation standards are included in both plans, each having a
; section devoted to standards for structures with historical and/or
_ architectural significance. (See Appendix). In addition, the plan
for Heritage Plaza West states that "The purpose of design review
is. . .to insure that the Secretary of Interior's Guidelines for
Rehabilitation have been met."
D. PLANNING BOARD
The Planning Board has the responsibility to review development
projects falling under the city's Subdivision Regulations, and those
applying for Special Permits that require Site Plan, Business Park
Development, or Wetlands and Flood Hazard review.
Of particular relevance to historic properties are the projects
requiring Site Plan Review, which is triggered by any project over
10,000 square feet, involving the creation or alteration of six or
more residential units. Also requiring Site Plan Review are
projects over 2,000 square feet in the city's new Entrance Corridor
Zones. In order to be approved by the Planning Board a site plan
must demonstrate that the proposed development is architecturally
compatible with the surrounding area.
While it is possible that historic buildings could exist in areas
affected by proposed new subdivisions, business parks or wetlands
and flood hazard areas, it is more likely that archaeological
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resources might exist in areas impacted by new development projects.
Submission of an Environmental Impact Statement is required for a
subdivision proposing creation of more than a single-family house.
Specific consideration of impact on archaeological or historic
resources is not presently part of the review process except where
an Environmental Impact process is required.
E. CONSERVATION COMMISSION
The Conservation Commission is charged with the protection of the
city's wetlands through the review of applications for any work that
is to be done within 100 feet of a wetland. In addition, the city
holds three properties in trust as conservation land. A public
hearing is held on each application, with notification sent to
abutters and various city boards. At present the Salem Historical
Commission is not among the boards to be notified of a hearing,
however wetlands are likely locations for archaeological sites,
which are not presently part of the review process.
F. PUBLIC WORKS DEPARTMENT
The Public Works Department is responsible for providing street and
sidewalk repairs which can have an impact on historic resources.
They are also responsible for coordinating with public utilities
when such agencies' work will effect public ways. Local historic
district ordinances are not explicit in requiring review of public
works projects, and as a result present policy does not include
consultation with the Salem Historical Commission or a clear
preservation planning process for any of these undertakings.
G. CEMETERY DIVISION
Under the jusisdiction of the Public Works Department is the
Cemetery Division, which is responsible for the ongoing maintenance
of all city-owned cemeteries, including several of Salem's historic
burial grounds. In addition to Greenlawn Cemetery, (still active) ,
these are Broad Street Cemetery, Charter Street Cemetery, Friends'
Cemetery, and Howard Street Burial Ground. With the exception only
of Greenlawn Cemetery, each of these is designated in the National
Register of Historic Places and/or as part of a local historic
district. Greenlawn Cemetery contains a chapel (189 ) of
architectural and historical significance, in addition to the
importance of the cemetery itself.
Areas of concern include the proper maintenance procedures to ensure
that gravestones are not damaged by lawnmowers and other equipment,
conservation of deteriorating or damaged stones, control of access
for gravestone rubbings, and proper preservation of historic
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settings or buildings associated with burial grounds. While there
are informal procedures in place to deal with these, no formal
preservation policies exist.
H. PUBLIC PROPERTY DEPARTMENT/BUILDING DEPARTMENT
Officially the Department of Public Property, the Building
Department has the important responsibility of maintaining city
property. This includes a large number of historic buildings (see
list in Chapter V) owned by the city, nearly all of which are listed
in the National Register, and many of which are also located in
local historic districts.
The Building Department is also responsible for the inspection of
any construction work done in the city, issues building permits,
occupancy permits, sign permits, and the like. A card exists at the
Building Department on each property in the city. Properties
located in local historic districts are indicated on the card, and
any applicant for a building permit is directed to the Salem
Historical Commission for the necessary review process and approvals
before a building permit can be issued. The Building Department is
also responsible for enforcing the State Building Code.
I. BOARD OF APPEAL
The role of the Board of Appeal is to review requests for zoning
variances and special permits. While the Board of Appeal's
decisions have minimal impact on properties within local historic
districts, which must undergo review by the Salem Historical
Commission regardless of any approvals by the Board of Appeal, their
decisions often have impact on historic resources outside the local
historic districts. When a property owner is permitted to convert a
residential building to a denser use, e.g. from a two-family to a
three-family, this usually requires changes to entries and/or the
addition of exterior stairs, as well as interior alterations. In
the case of an historic building, these changes often compromise the
building's character.
While there is no formal process by which design advice is made
available to the property owner in this situation, the Historical
Commission staff has recently begun notifying the Board of Appeal of
historically significant buildings on the agenda prior to each
meeting. A copy of the inventory form for each significant property
is forwarded to the Board along with a reminder that the Historical
Commission is available in an advisory capacity if necessary.
J. BOARD OF HEALTH
While the Board of Health's responsibilities and actions seldom have
a direct impact on the preservation of Salem's historic,
archaeological and cultural resources, a recent action indicates
that they occasionally do. New regulations passed early in 1991
relating to exterior painting in Salem prohibit the use of all
mechanical sanding methods on exteriors of buildings in preparation
for painting. Necessary to safeguard against the hazard of lead
paint particles being dispersed in the air, the new regulations may
have ramifications on the preservation and maintenance of historic
structures throughout the city. Actions such as these warrant the
inclusion of the Salem Historical Commission in the public hearing
and discussion process. At present the Historical Commission does
not receive Board of Health agendas or notification of their public
hearings.
K. PARK AND RECREATION DEPARTMENT
Historically significant properties under the jurisdiction of the
Park and Recreation Department include Forest River Park which
contains Pioneer Village (now under the management of the House of
Seven Gables) and the e. 1817 Pickering House, Captain William Driver
Park, Salem Willows Park, Mack Park including the 19th century Ledge
Hill house, Gallows Hill Park, Highland Park, Salem Common, Fort
Pickering, Winter Island Lighthouse, the Witch House, and the
National Historic Landmark Nathaniel Bowditch House. At present no
Policy exists regarding proper preservation and maintenance
procedures for these important historic resources.
L. MARKET AND TOURISM COMMISSION
The Market and Tourism Commission was created in 1976. Its
responsibilities include the supervision of the public marketplace,
advising the mayor and City Council on matters relating to tourism,
and serving as the rental agent for Old Town Hall, one of Salem's
most significant city-owned historic properties.
M. NATIONAL PARK SERVICEISALEM PROJECT
The Salem Maritime National Historic Site was established in 1938 on
Derby Street to include the Custom House and several other
eighteenth and nineteenth century buildings along the waterfront.
It was the first park created under the National Historic Sites Act.
Subsequent acquisitions have included the seventeenth century
Narbonne House and the twentieth century St. Joseph's Hall. Through
the Maritime Site's existence the Park Service has maintained a
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presence in the city, operating a variety of interpretive programs
for their properties and themes relating to them.
In 1987 the Salem Project was initiated by the National Park Service
as a joint venture of government and private groups. Its purposes
are to enhance the message of the Salem Maritime National Historic
Site through the preservation and interpretation of related
resources throughout Essex County, and to assist in the expansion of
the county's tourism industry. Through the Federal appropriation of
$13M between 1988 and the present, the project has been involved in
planning studies, proposals for redevelopment of the Maritime Site,
plans for construction of a visitors' center in downtown Salem,
preparation of a transportation plan, and work on a new visitors'
signage system. The involvement of the Park Service in these
projects brings professional preservation and planning expertise to
the city, as well as needed funding.;
N. HISTORIC SALM INC.
Historic Salem Inc. (HSI) is a private nonprofit preservation group
established in 1944. The organization's numerous activities have
included such educational programs as workshops, publications, and
lectures. A biennial house and garden tour draws many visitors to
Salem's historic neighborhoods. HSI has conducted architectural
101 surveys, and has an ongoing
y , g g program of markers for historic houses.
The group takes an active role in commenting on the impact of all
types of projects on the eity's historic character. A recent
project was the creation of an Old House Restoration Resource Center
at the Salem Public Library.
O. ESSEX INSTITUTE
One of Salem's oldest cultural institutions, and arguably its
earliest historic preservation organization, is the Essex Institute,
which was founded in 1848 with the merger of the Essex Historical
Society (1821) and the Essex County Natural History Society. The
Institute's restoration of the John Ward House beginning in 1910 was
amongthe first historic house restorations in the nation. Through
.its operation of seven historic houses, its strong library
collections on Essex County history, architecture and many other
related topics, its museum collections and its active educational
programs, the Essex Institute remains one ofSalem's largest and
most active participants in the preservation of the city's
architectural and cultural.. heritage.`
14
P. SALEM PARTNERSHIP
The Salem Partnership was established in 1987 as a coalition of
public, private, nonprofit and government entities working toward
Salem's economic revitalization. Its goals are economic
revitalization, promotion of tourism, preservation of historic
sites, cultural and educational development, transportation
improvements, marketing local businesses, and enhancement of the
quality of life. From its inception, the Partnership has taken the
view that preservation of Salem's historic resources was a crucial
economic development tool. The Partnership as a whole and its
Historic Resources and Cultural Development Committee have been
active in lobbying Congress for the ongoing funding of the Salem
Project, with which they have been closely associated. Other
preservation-related projects include the joint sponsorship with
several other local preservation groups of a booklet on Salem
Harbor, a maritime festival, and an old house workshop.
Q. HOUSE OF SEVEN GABLES
This organization's role in historic preservation in Salem has been
ongoing since 1908 when the Captain John Turner House was purchased
and restored by Caroline Emmerton, founder of the House of Seven
Gables Settlement Association. Now operated as a historic house
museum in a complex including two other historic houses, the Gables
is an organization active in the city's cultural community through
its own properties, educational programs, and its role in the
management of Pioneer Village. Owned by the city, Pioneer Village
was built in 1930 for the Massachusetts Bay Tercentenary as a
recreation of the earliest settlement in Salem. After years of
neglect, the village has recently been restored and reopened to the
public.
R. PEABODY MUSEUM
The Peabody Museum is the oldest museum in the city, having been
founded in 1799 as the East India Marine Society. Its original
exclusive membership was made up of Salem ship masters who had
navigated to or beyond the Cape of Good Hope. Among their original
objectives was the establishment of a museum of artifacts from their
voyages. The museum continues to have a strong maritime focus, and
relates to historic preservation in Salem through its strengths in
maritime resources and archaeology. The museum also owns several
historically significant properties, including its own East India
Marine Hall (1825), the Bulfinch designed Essex Bank Building,
(later the SalemBoys' Club, 1811), and the Samuel Pickman douse
(before 181 .
1
S. OTHERS
Salem has a number of other individual historic properties which are
open to the public by appointment or on varying schedules. These
include the Pickering House, Stephen Phillips Memorial Trust House,
Hamilton Hall, and the Gedney House. The nonprofit organizations,
foundations and trusts that operate these properties are dedicated
to their preservation.
1
IV SALEM'S HISTORIC PROPERTIES
Under the auspices of the Planning Department and the Salem
Historical Commission, many properties in the city have been
documented and designated. Several techniques exist for the
designation of historically and architecturally significant
resources, each of which provides a different type of protection.
These types of listing are briefly explained below.
A. INVENTORIED PROPERTIES
Salem's historic resources inventory has been conducted by a variety
of local bodies including the Planning Department and its
consultants, Historic Salem, the Salem Historical Commission, and
the Salem Redevelopment Authority, over a period from 1967 to 1991 .
It is now technically complete, although additions and updating are
an ongoing process, and includes 3590 resources appearing on
inventory forms which are on file at the Salem Planning Department
and at the Massachusetts Historical Commission. Among these
properties were 3310 buildings, 224 areas, 32 structures, 16
objects, and 8 burial grounds. Below is the survey evaluation taken
from the Salem FY89 Survey and Planning Grant Completion Report.
1. Survey Evaluation
The quality and completeness of documentation on inventory forms
varies considerably depending on when a form was prepared, and
by whom. Generally the earlier forms were less complete, due
largely to the less stringent approach taken to survey in the
late 1960s and 19708. Work completed in the 1980s was prepared
by consultants or Planning Department staff with expertise in
historic preservation and is generally thorough.
2. Geographical Areas
a. Bridge Street - In 1978 Historic Salem Inc. prepared
streetscape forms and some B forms in this area. These
generally included photographs, some maps, brief
architectural descriptions, and no historical information. A
comprehensive inventory of the area was completed by a
consultant to the Salem Planning Department under an MHC
Survey and Planning Grant in 1985.
b. Castle Hill - Work was completed by Northfields Preservation
Associates for the Salem Planning Department as part of the
FY89 Survey and Planning Grant project.
17
c. Central Salem - This geographical designation includes the
commercial area in Downtown Salem, the residential area
r included in the McIntire Historic District and residential
areas south of the historic district. The area includes
inventory forms from 1967-1968, 1974-1975, and 1978-1979. In
general, the work from 1967-1968 and 1974-1975 was in the
residential areas, and was of similar quality. Most forms
have an adequate photograph, a map, and minimal architectural
and historical information. The forms in the McIntire
Historic District need to be updated.
d. Downtown Salem - The downtown commercial area was surveyed in
1978-1979 by HSI and the Salem Redevelopment Authority staff
in conjunction with the preparation of a Multiple Resource
Area nomination to the National Register. In many cases, two
survey forms exist from this phase; the HSI form having
historical and architectural information, and the SRA form
having a good photograph and occasionally a brief contextual
statement. These forms need to be used together.
e. Derby Street - This area includes survey forms from 1967,
1973, 1977, 1980, and 1985-1986. Buildings surveyed in 1967
and 1973 are located within the Derby Waterfront Historic
District (local and National Register) . These forms
generally have adequate photographs, maps, and minimal
architectural and historical information. A small number of
buildings on several side streets (Becket, Daniels, Hardy)
was surveyed in 1977 and 1980. A 1986 Survey and Planning
grant resulted in the completion of survey in the area,
primarily on side streets. This included new forms for some
buildings previously surveyed. Survey forms on Derby Street
itself should be updated.
f. Gallows Hill - In 1978 HSI did survey work in this area. B
forms generally have acceptable photographs and no maps.
Most have brief architectural descriptions which vary in
accuracy, and some have a limited amount of historical
information. More detailed historical information was
collected for Boston Street forms. Streetscape forms for
this area generally included photographs, no maps, brief
architectural descriptions, and no historical information.
Additional work was completed by Northfields Preservation
Associates for the Salem Planning Department as part of the
PY89 Survey and Planning Grant project.
g. North Salem - Inventory forms exist for this area dating from
1978, 1986, and 1989. In 1978, HSI did survey work west of
North Street. A small number of B forms was prepared,
generally having acceptable photographs and no maps. Most
have brief architectural descriptions which vary in accuracy,
and some have a limited amount of historical information.
18
The majority of the HSI forms for this area were
streetscapes, which generally included photographs, no maps,
`f brief architectural descriptions, and no historical
information. This material was of limited use, and has been
updated (1989) .
A 1986 Survey and Planning grant funded survey work east of
North Street, which was conducted by the Planning Department.
Additional work was completed by Northfields Preservation
Associates for the Salem Planning Department as part of the
1989 Survey and Planning Grant project.
h. Salem Common - Inventory forms for this area were prepared in
1967, 1972, and 1987. While the two early generations of
forms are characteristically sketchy in historical and
architectural information, the inventory for the area was
completed and updated by the Salem Planning Department and
Northfields Preservation Associates under a Survey and
Planning Grant in 1987.
i. Salem Willows - Work was completed by Northfields
Preservation Associates for the Salem Planning Department as
part of the FY88 Survey and Planning Grant project.
J. South Salem - Survey work in this area was conducted in 1985
by Salem Planning Department staff and completed in 1989 by
Northfields Preservation Associates, both under Survey and
Planning Grants.
k. Stage Point - Work was completed by Northfields Preservation
Associates for the Salem Planning Department as part of the
FY88 Survey and Planning Grant.
1. West Salem - Work was completed by Northfields Preservation
Associates for the Salem Planning Department as part of the
FY89 Survey and Planning Grant.
B. NATIONAL REGISTER PROPERTIES
Many of Salem's historic resources have been listed on the National
Register of Historic Places. 13 districts containing 832 properties
have been nominated, as well as 29 properties that are listed
individually, 105 properties included in the Salem Multiple Resource
Area nomination, and 7 included in a Thematic Resource Area
nomination. More information on listed properties can be found in
the Appendix.
19
C. LOCAL HISTORIC DISTRICTS
Four local historic districts have been established in Salem. The
Derby Waterfront Historic District, established in 1974 contains 130
properties. The Lafayette Street Historic District was created in
1985, and contains 37 properties. The 409 property McIntire
Historic District was formed in 1981 by consolidating and adding to
the 1971 Chestnut Street Historic District and the 1976 Federal
Street Historic District. The Washington Square Historic District
consists of 30 properties abutting Salem Common, and was set up in
1977•
D. NATIONAL HISTORIC LANDMARKS
There are 8 National Historic Landmarks in Salem - Nathaniel
Bowditch House, Gardner Pingree House, Hamilton Hall, Peabody Museum
of Salem, Pierce-Nichols House, Salem Maritime National Historic
Site, Joseph Story House, and John Ward House.
E. OTHER DESIGNATIONS
The Massachusetts Historic Landmark program (now defunct) designated
80 Salem properties, and 13 properties in the city have Preservation
Restrictions.
20
V RECOMMENDATIONS
A. SALEM HISTORICAL COMMISSION POLICIES AND PROCEDURES
1. Appointment of members
Purpose:
Vacancies on the Historical Commission should be filled where
Possible by professionals in the disciplines of architecture,
history, architectural history, prehistoric archaeology and
historic archaeology. Requirements of Chapter 40C stipulate
that membership include a nominee from the local historical
society, the local chapter of the American Institute of
Architects, the board of realtors, and a resident or property
owner from one of the districts.
Participation in the Certified Local Government program requires
that a reasonable effort be made to appoint members from the
disciplines above, and that all Historical Commission members
must be able to demonstrate special interest, competence or
knowledge in historic preservation. These requirements should
be adhered to for all new appointments.
Tasks:
a. Identify which nomination category or categories (e.g. a
board of realtors nominee) under Chapter 40C are not
currently filled, and which disciplines recommended under the
CLG program are not represented.
b. Solicit names of nominees from the organizations required by
Chapter 40C. Staff or the Historical Commission may also
recommend a slate of qualified potential nominees to the
nominating organizations.
c. Historical Commission staff should contact resource
organizations (listed below) to establish a pool of qualified
residents from which to draw nominations. This should be
updated periodically.
d. Appoint new members as vacancies arise, beginning with
appointment of an archaeologist.
Timeframe:
Task a - Less than one day
Tasks b and a - Less than one month
Task d - Ongoing
Information and Resources:
Nominating organizations under Chapter 40C
Essex Institute
Historic Salem, Inc.
American Institute of Architects (Boston)
Greater Salem Board of Realtors
Other potential sources of qualified nominees
Salem State College
Historic Massachusetts, Inc.
Society of Architectural Historians - New England Chapter
Action to be taken by:
Tasks a-c - Historical Commission staff
Task d - Mayor
2. Member training
Purpose:
The most essential element in an effective, reasonable and
consistent historical commission is well-trained members who
understand the extent and limits of their review power, and who
are well versed in the guidelines under which they operate.
Tasks;
a. Provide each new Historical Commission member with a packet
of materials containing the following:
-All City Ordinances pertaining to the Salem Historical
Commission
-MGL Chapter 40C
-Salem Historical Commission Guidelines
M -Salem Historical Commission Procedures
Certified Local Government Guidelines
-Master Preservation Plan
b. New members should be given an orientation to the other
preservation materials available in the Planning Department,
including a review of previous Historical Commission
decisions, location and use of the Historic Resources
Inventory, and a review of the SHC Guidelines Notebook and
Preservation Program Handbook.
c. Each member of the Salem Historical Commission should attend
at least one workshop or conference in each three year term,
The Historical Commission should make this a requirement, and__
its budget should cover these costs. Among the many choices
are an annual workshop offered by the Massachusetts
Historical Commission specifically for Certified Local
Government communities, an annual statewide preservation
conference by Historic Massachusetts Inc. (HMI), as well as
an annual workshop given by HMI for local historic district
commissions. The latter is offered on a Saturday in order to
make it easier for volunteer commission members to attend
without disrupting work schedules.
22
Timeframe:
Task a - Less than one day
� Tasks b and c - Ongoing
Information and Resources:
Massachusetts Historical Commission (CLG workshops)
Historic Massachusetts Inc.
Society of Architectural Historians - New England Chapter
National Trust for Historic Preservation
Action to be taken by:
Tasks a and b - Historical Commission staff
Tasks a and b - Historical Commission
3. Guidelines
Purpose:
The Salem Historical Commission Guidelines are generally
thorough and clear. Several revisions and additions are
presently under consideration, and should be approved.
Tasks:
a. Complete review and approval of proposed revisions to
guidelines.
� b. Continue the practice of periodically reviewing and updating
�r% Historical Commission guidelines.
Timeframe:
Task a - Less than two months
Task b - Ongoing
Action to be taken by:
Salem Historical Commission
4. Enforcement
Purpose:
To ensure that all work in local historic districts follows
proper application process and that work is completed as
approved by monitoring approved projects and enforcing fines or
correction of violations.
Tasks:
a. Assign a geographical area to each Historical Commission
member to be checked monthly for work in progress. Any
property owner in violation will be notified that they must
apply to the Historical Commission before continuing work.
3
b. Applicants with approved projects should be given a postcard
at the time of approval to be submitted when the ,project is
complete. When received, a Historical Commission member
should do a drive/walk-by site visit to ensure that the work
was done as approved. If a postcard is not received within
six months of the original approval a fallow-up site visit,
letter or phone call should be made to determine whether the
project has been abandoned, delayed or is complete.
c. Establish a system to enforce fines for violations.
Timeframes
Less than one month to establish/ongoing
Action to be taken by:
Historical Commission
5. Other Procedures
Purpose;
To keep local historic district residents informed of Historical.
Commission policies and procedures.
Tasks:
a. Continue the present policy of sending packets including
x guidelines, application procedures and general district
information to all property owners.
b. Send updates to all district property owners as changes are
made to guidelines or other aspects of historic district
review.
Timeframe:
.ding
Action to be taken by:
Historical Commission staff
B. SURVEY
Purpose.*
Updated survey forms are needed in the McIntire and Derby Street
local historic districts in order to facilitate Historical
Commission review. These forms are generally incomplete and
inadequate for use in evaluation of resource s .gnis ce.
Tasks:
a. Review the approximately 550 survey forms in the W-Intire and
Derby Street local historic districts to prepare a list of those
needing architectural descriptions, statements of significance,
photographs and/or maps.
b. If Historical Commission staff does not Possess
professional
qualifications necessary to conduct survey, hire aconsultant to
conduct survey update. If minimal written revisions are needed,
explore the possibility of using students or volunteers to
complete photography and maps.
c. Update photographs and add maps as needed to the approximately
550 survey forms in the McIntire and Derby Street local historic
districts. Add architectural descriptions and statements of
significance to properties identified in a. If plans are
proceeding to expand either district, existing forms in the areas
of proposed expansion should be reviewed and updated as needed.
Timeframe:
Task a - Several days
Task b - Time will vary depending on funding source
Task c - Dependent on number of forms to be revised
Information and Resources.
Massachusetts Historical Commission - funding
Salem State College - student labor
Historic Salem, Inc. - volunteer labor
Action to be taken by:
Tasks a and b, possibly c - Historical Commission staff
Task c - Consultant, students or volunteers
C. PUBLIC BUILDINGS
1. City-owned Historic Properties
The city owns numerous historically and architecturally
significant properties in varying states of preservation and
use. In some cases, such as the Old Town Hall, the properties
are suffering from deferred maintenance which has escalated to a
threat to the property's continued preservation. Fortunately,
Old Town Hall is the focus of a Joint effort by the city and
Historic Salem, Inc. to raise rehabilitation funds and determine
the most appropriate and economically viable use of this
prominent landmark. At least one building, the Police Station,
will be vacated on completion of a new building. In other
cases, such as the former Saltonstall School and the former
Salem High School (now Middle Schools East and West
respectively), proposed alterations
National Register eligible y have an impact on
g properties.
5
i
i
Purpose:
All city-owned historic properties need protection in the form
of a firm city policy for their maintenance and preservation.
These properties include, but are not limited to:
Old Town Hall (NR)
Salem City Hall (NR)
Nathaniel Bowditch House (NHL)
Witch House (NR)
Salem Schools (including former schools still owned by the
city)
Salem Public Library (NR)
Salem Woods
Mack Park including Ledge Hill
Forest River Park including Pioneer Village and Pickering
House
Monuments
Salem Common (NR)
Fort Lee
Fort Pickering (NR)
Broad Street Cemetery (NR)
Charter Street Cemetery (NR)
Friends' Cemetery
Howard Street Burial Ground (NR)
Greenlawn Cemetery
Salem Police Station (NR)
Tasks:
a. Prepare comprehensive list of city-owned historic properties.
b. Establish policy for the Salem Historical Commission to
review any proposed work on these buildings and participate
in plans for any changes in ownership or use. The commission
should be notified prior to beginning any work involving an
identified historic property owned by the city. Depending on
the nature of the project and its funding, review by the MHC
and the National Park Service may also be required for
properties listed in the State Register or the National
Register of Historic Places.
c. Develop a maintenance and preservation plan for the
preservation of these properties. This should include
general preservation guidelines for all city-owned
Properties, with specific guidelines for individual
properties to follow.
d. Prepare an historic structures report for each structure or
site. Each report would include plans for stabilization and
restoration of the structure or site as well as plans for
alternative uses for vacant, underused or deteriorated
?l
buildings that would be sympathetic to their long term
preservation.
Timeframe:
Task a - Less than one day
Task b - One to two months
Task c - Several months
Task d - Long term
Information and Resources:
The maintenance and preservation plan and historic structures
reports could be funded using MHC Survey and Planning Grant
funds. A similar project in Gloucester, scheduled to begin
late in 1991, might be a useful model.
Action to be taken by:
Task a - Planning Department staff
Task b - Historical Commission and staff
Tasks c and d- Historical Commission staff or consultant
2. County-owned Historic Properties
Purpose:
To ensure the maintenance and preservation of significant
county-owned historic properties located in Salem. These
include the Essex County Courthouses and the Essex County Jail,
all of which are listed on the National Register and are
important elements of Salem's central business district. Their
maintenance and ongoing preservation is of the same importance
to protecting Salem's historic character as the city-owned
properties discussed above.
Tasks:
a. The Salem Planning Department should approach the county
about including these buildings in the proposed maintenance
and preservation plan.
Timeframe:
See City-owned Historic Properties above
Information and Resources:
See City-owned Historic Properties above
Action to be taken by:
Historical Commission staff
r
2
D. Consideration of Project Impacts
Purpose:
Many projects or actions involving Salem's city government have
direct or indirect impact on the historical or architectural
character of the city. These may be private
permits or funds, ordinances projects receiving city
of city boards, commissions or departments,City Council, or policies
The city should establish a system to determine if any such projects
or actions will have a potential impact on an inventoried or State
Register property or identified archaeological resource. The city
should then request a non-binding comment from the Salem Historical
Commission, incorporating options that accomplish all goals,
including preservation, into the earliest stages of the planning
process.
Tasks:
a. Historical Commission staff should coordinate with all city
departments, boards and commissions to establish a notification
system.
b. Once Historical Commission staff has been notified of an action
or project through receiving an agenda or other communication,
staff will cheek the historic resources inventory and State
Register for significant properties.
c. If a project or action may have an impact on identified historic
resources or relates to broader preservation issues, the
Historical Commission will be notified and a non-binding comment
requested.
Timeframe:
Task a - Less than one month
Tasks b and c - ongoing
Action to be taken by:
Task a - Historical Commission staff, all departments, boards
and commissions
Task b - Historical Commission staff
Task c - Historical Commission
E. DESIGNATION AND PROTECTION OF RESOURCES
The several types of historic designations are discussed in Section
IV. Maps can be found at the back of the plan illustrating the
boundaries of all existing National Register and local historic
districts. Maps are also provided with general boundary
recommendations for all proposed expanded and new districts. These
are Preliminary recommendations which will require further research
28
by the Salem Historical Commission, the Ma
yor and well as community input prior to final designation City Council, as
1. RECOMMENDATIONS FOR EXISTING LOCAL HISTORIC DISTRICTS
Purpose:
To expand existing local historic districts to include
additional properties compatible with the districts and that
would benefit from the protection afforded by designation.
Tasks:
a. The Salem Historical Commission should establish a timetable
for expansion of existing local districts and creation of new
local district.
b. Set up study committees and prepare necessary documentation
for the districts recommended below. The procedure for
setting up a new district or enlarging an existing one
requires the use of study committees (which can be the
existing district commission) to pursue the designation. The
committee can conduct research, prepare the necessary
documentation, and hold public meetings, but the process of
setting up or enlarging a district is a time consuming one,
and much of the work should be done by staff or a consultant.
Districts below are listed in recommended order of priority.
e. Washington Square Historic District - The existing district
boundaries are very narrow, including only some of the
properties facing directly onto the Salem Common. A larger
area, including side streets radiating toward Bridge Street
and toward Webb Street should be added to the district. The
FY86 Survey and Planning project examined these boundaries,
and made specific recommendations for expansion. These are
still appropriate, and are currently being pursued by the
Salem Historical Commission.
d. Derby Waterfront Historic District - Cross streets between
Hawthorne Boulevard and English Street, extending south from
Essex Street, contain a dense concentration of buildings
spanning the eighteenth and nineteenth centuries. They vary
in integrity, but the alterations are largely reversible,
consisting primarily of synthetic siding and occasional
window replacement. Possible expansion of the district to
include this area should be considered. One approach would
be to merge the Derby Street and Washington Square Historic
Districts into a single larger district.
e. McIntire Historic District - Existing boundaries are
generally appropriate, however 5-23 Summer Street should be
considered for addition to the district.
29
Timeframe:
Task a - Two to three months
Task b - 0ependent on makeup of study committee, use of staff
or consultant
Tasks c-e - Three to six months for each district
Information i on and resources:
Massachusetts Historical Commission
Action to be taken by:
Tasks a and b Historical Commission and staff
Tasks c-e - Historical Commission, staff, possibly consultant
2. RECOMMENDATIONS FOR POTENTIAL LOCAL HISTORIC DISTRICTS OR
NEIGHBORHOOD CONSERVATION DISTRICTS
Purpose: To establish new local historic districts or
neighborhood conservation districts in areas where
concentrations of buildings are significant, possess integrity,
and would benefit from the protection afforded by designation.
Tasks:
40 a. See Tasks a and b above. Districts below are in recommended
nor s
order of priority.
b. Buffum Street - This district spans the nineteenth century,
and contains a high concentration of well-preserved buildings
from the mid-nineteenth century. Likely boundaries would
include all of Buffum Street between School. and Mason
Streets, with the possible inclusion of several buildings on
School and Mason.
c Dearborn Street - Like Buffum Street, Dearborn, Street
includes notable, well-preserved buildings spanning the<
nineteenth and early twentieth centuries, with its greatest
concentration of fine buildings dating from the mid and late
nineteenth century. A Dearborn Street district would likely
extend from Upham Street to Lee Street, and should include
Southwick Street, and several house, on Walter Street to the
north and south of Dearborn Street.
d. Fairfield Street - Rebuilt following the Salem fire of 1914,
the Fairfield Street area is dominated by large high-style
Colonial Revival houses built by Salem's more affluent
residents, and in some cases designed by Boston architects.
In addition to Fairfield Street, the district could include
part of Cedar Street.
e. Naples and Savoy Roads - Dating from the 1910s and 1920s,
this small self-contained suburban development contains
0
I
excellent examples of middle-sized residences in a variety of
architectural styles, and reflects Salem's early twentieth
century development patterns. Likely boundaries should
include all of Naples and Savoy Roads, as well as several
houses on the east side of Lafayette Street.
f. Salem Willows - The Salem Willows is Salem's only resort
area, containing a high concentration of summer cottages
constructed in a range of late nineteenth century styles, as
well as an area of early twentieth century suburban housing.
Due to the district's size and varied integrity, the
possibility of establishing a neighborhood conservation
district rather than a local historic district should be
explored. This would afford some protection for the
character of the area while allowing property owners greater
flexibility than a traditional historic district.
Timeframe:
Task a - Two to three months for timetable, then dependent on
makeup of study committee, use of staff or consultant
Tasks b-f - Approximately six months for each district
Information and Resources:
Massachusetts Historical Commission
In addition to the general boundary recommendations for the
proposed districts to be found on maps at the back of the
plan, area forms for most are on file with the inventory of
Salem's historic resources, providing more detailed
descriptions and historical information.
Action to be taken by:
Tasks a - Historical Commission and staff
Tasks b-f - Historical Commission, staff, possibly consultant
3. RECOMMENDATIONS FOR EXISTING NATIONAL REGISTER DISTRICTS
Purpose:
Expand existing National Register districts to include
additional properties compatible with the districts and that
would benefit from designation.
Tasks:
a. Historical Commission staff should establish a timetable for
amendments to existing districts, prepare determinations of
eligibility for submission to the Massachusetts Historical
Commission, and begin preparation of nominations. If it is
not feasible for staff to prepare nominations, or if staff
does not possess the required professional qualifications,
hire a consultant to amend districts as recommended below in
order of priority.
b. Derby Waterfront Historic District - Cross streets between
Hawthorne Boulevard and English Street, extending south from
Essex Street, contain a dense concentration of buildings
spanning the eighteenth and nineteenth centuries. The
buildings vary in integrity, but the alterations are largely
reversible, consisting primarily of synthetic siding and
occasional window replacement.
Expansion of the district to include this area would broaden
the area protected by the state and federal environmental
review process and would make additional properties eligible
to apply for federal investment tax credits for historic
rehabilitation projects. In addition the honor of National
Register listing is a helpful educational tool to encourage
property owners to maintain and preserve their historic
buildings.
c. Downtown Salem District - These boundaries are generally
appropriate, however expansion could include the north side
of Essex Street extending to North Street. Expansion of the
41 district would make additional properties eligible to apply
F for federal investment tax credits for historic
rehabilitation projects, and would afford additional
protection through the state and federal environmental review
process.
d. Salem Common Historic District - The FY86 Survey and Planning
project examined these boundaries, and made recommendations
for expansion which are still appropriate. The additions
consist primarily of Boardman Street, a section of Briggs
Street, and several properties on Forrester and Pleasant
Streets.
Expansion of the district to include this area would broaden
protection through the state and federal environmental review
process and would make additional properties eligible to
apply for federal investment tax credits for historic
rehabilitation projects. In addition the honor of National
Register listing is a helpful educational tool to encourage
property owners to maintain and preserve their historic
buildings.
e. Chestnut Street Historic District - Existing boundaries are
narrower than those of the McIntire Historic District
(local), and a larger area is clearly eligible. Boundaries
of the existing local district should provide a starts
ng
point for expansion, but some potentially eligible properties
were identified outside either existing district. Areas of
particular note that should be considered include the east
side of Summer Street (5-23, and from Gedney Street to 61),
Winthrop� p Street (u to 5 and 12) : Broad Street and the
adjacent streets to the south, and the west end of Warren
Street.
While expansion of this district is recommended, it need not
be an immediate priority. Beyond the honor and increased
public awareness, the principal benefits of National Register
listing are the protection of an environmental review
process, and tax credits for rehabilitation projects.
Environmental review protection relating to projects
receiving state or federal funds, permits or approvals is
already in place through the local district's existence, with
the exception of a few eligible properties not in either
district. Similarly, investment tax credits are possible for
projects in local historic districts meeting National
Register criteria.
f. Baker's Island Light Station - The Baker's Island Light
Station is a four-property district. The island has never
been surveyed, and may well contain sufficiently intact
resources to warrant a larger district.
Listing on the National Register would provide valuable
protection in the form of state and federal environmental
review, without in any way restricting the use or rights of
the property owners.
Timeframe:
Task a - Two to three months
Tasks b-f - Three to six months for each district
Information and Resources:
Massachusetts Historical Commission
Action to be taken by:
Task a - Historical Commission staff
Tasks b-f - Historical Commission staff or consultant
4. RECOMMENDED NEW NATIONAL REGISTER DESIGNATIONS
Purpose: Nominate all eligible districts and individual
properties in Salem by the most timely and cost-efficient
method. The large number of potentially eligible properties
makes Salem well suited for a multiple property nomination,
rather than undertaking the nominations individually.
3
Tasks:
a. Work with Massachusetts Historical Commission to determine
feasibility, cost and scope of a multiple property
nomination.
b. If a multiple property nomination is determined feasible and
if funding is available, the project could be undertaken in
its entirety or in phases. If done in its entirety, a
consultant would be required. If done in phases, and if
professionally qualified staff were available, the work could
be done by the Historical Commission staff.
The process for preparing a large multiple property
nomination is complex and time-consuming. It is possible to
prepare the initial nomination by having the context of the
nomination, (in this case probably a broad version of Salem's
historical development, which could be used as the Town
Report for the Massachusetts Historical Commission) approved
by the National Park Service prior to preparing documentation
on any of the specific districts or individual properties.
This would make it possible to pursue the nomination in
phases while spreading the expense over a longer time period.
e. If the decision is made not to pursue a multiple property
nomination, recommended districts and individual properties
have been listed below in order of priority, and nominations
should be pursued as time and funding permit.
y
i. Recommended National Register Districts
In addition to the general boundary recommendations for
the proposed districts to be found on maps at the back
of the plan, area forms for most are on file with the
inventory of Salem's historic resources, providing more
detailed descriptions and historical information.
Salem Willows
Winter Island
Salem State College
Ward and Peabody Streets
Loring Villa/Convent St. Chretienne
Buffum Street
Dearborn Street
Fairfield Street
Naples and Savoy Roads
Derby Estate Area
Prince Street Place
Salem Rebuilding Trust Area
ii. Recommended Individual National Register Properties
29 Grove Street - Ledge Hill
30-36 Grove Street - Harmony Grove Cemetery Caretaker's
House
29 Highland Avenue - Former Salem High School
211 Lafayette Street - Saltonstall School
416 Lafayette Street - Dixey Morgan House
152 Boston Street - Bell-Reith House
175 Boston Street
40 Felt Street - James Brooks and John Bell House
220 Lafayette Street - Walter K. Bigelow House
395 Lafayette Street - Almy House
399 Lafayette Street
418 Lafayette Street
452 Lafayette Street - Benjamin G. Hathaway House
19 Cedarcrest Avenue
1 Devereaux Avenue
18 Felt Street
23 Gardner Street
19 Larchmont Street
10-14 Lynch Street
4 Ocean Avenue - Edmund P. Balcomb House
3 Ridgeway Street
28 School Street
100 School Street
Ti.meframe:
Task a - One to two months
Task b - One year or longer if project is done in phases
Task c - Years
Information and Resources:
Massachusetts Historical Commission
Inventory of Salem's Historic Resources
Action to be taken by:
Task a - Historical Commission staff and MHC
Tasks b and c - Historical Commission staff or consultant
F. LAND USE PLANNING, ZONING, SIGNAGE AND PERMITTING
1. Zoning Board of Appeal and Other Zoning Issues
Purpose:
To enforce and strengthen existing zoning regulations to afford
maximum protection of historic resources and character of
historic neighborhoods.
35
Tasks:
x a. Historical Commission staff should work with the Board of
Appeal regarding types of impact to historic resources to
ensure that preservation concerns are considered in their
decisions. This could be done through
preparation of a detailed memo or through single meeting, by
of the Salem Historical Commission, Salem Redevelopment
Authority, Design Review Board and Planning Board recommended
below.
b. The Historical Commission staff should continue recent
practice of sending a copy of the historic resources
inventory form on any property on the agenda to appear before
the Board of Appeal, and continue to offer design review
assistance by the Salem Historical Commission if needed.
C. The Board of Appeal should routinely integrate the following
preservation concerns into their decisions:
Approvals for increasing density in residential buildings are
a particularly serious concern in historic buildings, which
often cannot aceomodate additional units without major
alterations compromising historic fabric. The addition of a
secondary egress often results in exterior stairs or major
alterations to interior floor plans that would be best
avoided, while creation of needed parking spaces can result
in damage to a building's setting.
Current Board of Appeal. Policy is that decisions should not
take context into account, however the Salem Zoning Ordinance
states that a variance shall not be granted if it results in
"substantial detriment to the public good." In a community
so devoted to and dependent on its heritage, the erosion of
the historical character of city neighborhoods through
inappropriate alterations is clearly a substantial detriment
to the public good, and should be avoided.
d. Another zoning issue is height. The maximum height allowed
in a B-5 zone (Central Development District) and by the Salem
Redevelopment Authority is 6 stories, while existing downtown
Salem commercial buildings are 2-4 stories high. The zoning
ordinance should be revised to reduce the overall height in
the B-5 zone to remain compatible with the general height of
existing buildings, and under no circumstances should
variances be given to exceed the existing allowed height.
This has occured in other communities to a degree that has
destroyed the integrity of downtown historic districts.
e. Consider tighter entrance corridor zoning for areas with the
heaviest concentrations of historic buildings. Entrance
Corridor Overlay Districts have recently been established to
6
Protect and enhance the major entrance ways into the city.
These zoning regulations should Prove a seful tool. Thei
principal impact is on sites, regulating ufences, curb cuts,
parking, landscaping, and signage.
In addition to these controls, it would be valuable to have
tighter zoning to protect the entrance corridors with the
heaviest concentrations of historic builds
ngs, namely North, Boston and Lafayette Streets. The historic character
of these streets has been particularly compromised over the
years by inappropriate new construction and alterations to
existing historic buildings. Since these streets provide the
first impression for most visitors to Salem, it is
particularly crucial that their integrity be retained to the
greatest degree possible. Zoning to control density,
massing, setbacks, and height would be useful.
f. Another alternative would be the establishment of
Neighborhood Conservation districts in historic entrance
corridor areas. (See Appendix) . These would allow review by
a commission of alterations, demolition and new construction,
and Could include criteria relating to the impact of
alterations on the district as a whole.
Timeframe:
Task a - Less than one month
Task b-d - Ongoing
Tasks a and f - Several months
Action to be taken by:
Task a - Historical Commission staff, Board of Appeal
Task b - Historical Commission staff, Historical Commission
Task e - Board of Appeal
Task d - Salem Redevelopment Authority and Board of Appeal
Tasks a and f - Planning Department with Historical
Commission staff
2. Signage
Purpose: To ensure that signage is appropriate to historic
resources.
Tasks:
a. Revise sign ordinance to include appropriate preservation
guidelines. The existing sign ordinance is outdated (1973) ,
and revisions are in progress. The revised version should be
sensitive to preservation issues. Guidelines such as those
provided in "Lowell: The Sign Book" are extremely helpful in
offering commercial owners and tenants a wide range of
historically appropriate choices in designing signs.
7
Design guidelines in the sign ordinance should be explicit in
forbidding signs obscuring significant architectural
elements, and should consider the following elements:
legibility, size, lighting, color, materials, and
relationship to architectural elements of the building or
adjoining buildings. Backlit signs are typically
inappropriate to historic districts.
Timeframe:
Dependent on timeframe for entire new sign ordinance
Information and Resources:
Lowell Sign Book
Massachusetts Historical Commission
Action to be taken by:
Historical Commission staff with other Planning Department
staff
3• Permitting
Purpose:
The role of the Building Department in preservation is a crucial
one. It is through the Building Department's control of
building permits that a project in a local historic district is
channeled to the Salem Historical Commission for review and that
an owner proposing demolition of an older building is directed
to the Historical Commission prior to ing a
Building Department needs to continue tocbev vigilant rint. The
directing all historic district projects and demolitions of
properties over 50 years old to the Historical Commission.
On occasion sign permits have been granted in local historic
districts without the review of the Salem Historical Commission.
This appears to be the result of a procedural problem which
should be corrected.
Through its responsibility to interpret the State Building Code,
the Building Department has the ability to aid in the
preservation of Salem's significant older buildings. Article 22
of the State Building Code allows historic buildings (defined as
any building listed on the National Register or certified by the
Massachusetts Historical Commission) to meet more lenient
standards than new construction or alteration to other types of
existing buildings. It is recommended that the Salem Building
Department use the opportunity Article 22 provides for the
preservation of historic buildings to the fullest extent
Possible. See Appendix.
38
J
Tasks.
a. The Historical Commission staff should review and sign all
sign permit applications. The application has a place for a
signature from the Salem Historical Commission. This
signature should be required before any sign permit is
issued, regardless of whether it is in a district or not.
This will assure that if a building is in a local historic
district the approval of the Historical Commission has been
received.
b. The Historical Commission staff should work with the Building
Department to encourage the most favorable preservation
interpretation of Article 22 of the State Building Code.
Timeframe:
Task a - Ongoing
Task b - Less than one month
Information and Resources:
State Building Code, Article 22
Action to be taken by:
Historical Commission staff, Building Department
G. INTERDEPARTMENTAL INTEGRATION
The tremendous importance of Salem's history and historic buildings
to the city's quality of life and to its economy is widely
acknowledged and discussed by elected and appointed officials in
city government, the business community and the numerous cultural
and educational organizations. In order for these resources to be
preserved and maximized it is important that all city departments
and boards have an understanding of the need for and tools to
preserve historic character, and work effectively together to
achieve these goals.
1 . Boards and Commissions
a. Meeting notification to Salem Historical Commission
Purpose:
The Salem Historical Commission should be used in an advisory
role to any other city board or commission dealing with an
issue relating to historic resources.
Tasks:
a. The City Planner should send a memo to all city boards and
commissions requesting that the Historical Commission
receive agendas for all meetings and public hears
all city boards and commissions {Salem Redevelopment of
t
AMR
r Authority, Design Review Board, Planning Board, Licensing
Board, Board of Appeal, Conservation Commission, Board of
Health, and others), as well as notification of any city
actions with a possible impact on inventoried properties.
b. A representative of the Historical Commission or its staff
should attend any meetings at which topics related to
inventoried properties or relevant to broader preservation
issues will be addressed.
Timef rame:
Task a - Less than one month
Task b - Ongoing
Action to be taken by:
Task a - City Planner
Task b - Historical Commission and staff
b. All-board meetings and inter-departmental staff meetings
Purpose:
Good preservation practices can best be maintained throughout
city government if all city boards and departments are in
communication regarding preservation issues and other common
concerns.
AMI
,y. Tasks:
_ r a. The Planning Department should set up periodic meets
ngs representatives of all city boards and of staff of all
of
related city departments. These would be extremely useful
in identifying areas of overlapping concern, improving
communication, and working out solutions to common issues.
This is a common practice in many communities, and would
be beneficial.
Timeframe:
Task a - Quarterly meetings
Action to be taken by:
Task a - Planning Department
. Salem Redevelopment Authority
Purpose.*
o ensure that the Salem Redevelopment Authority's role in the
preservation ofSalem's historic resources is fulfilled. By
virtue Of its design review control over the entirety of
downtown Salem, an area that might otherwise be an
nt
Local historic district, the BRA has a powerful; and important
role in the protection and preservation of Salem's historic
Azµ
40
I
resources no less significant than that of the Salem Historical
Commission.
Tasks:
a. Hold a combined annual meeting of the Salem Redevelopment
Authority, the Design Review Board and the Salem Historical
Commission to discuss common concerns and clarify
preservation guidelines presently in use for downtown. This
would encourage comparable design review standards. Along
with promoting economic development and redevelopment, the
SRA s design review guidelines are clear in setting historic
preservation as a major priority. Guidelines for Heritage
Plaza West make explicit reference to the Secretary of the
Interior's Standards for Historic Rehabilitation. These
preservation standards should be consistently enforced.
Other boards having frequent dealings with historic buildings
that Might be included in sessions of this type are the
Planning Board and the Board of Appeal.
b. The SRA holds preservation easements on numerous downtown
buildings. Records relating to these easements are somewhat
confused. It is important that a comprehensive list be
prepared, that it be determined whether these easements have
all been recorded, and that a policy be established for
% enforcing their provisions. A preservation easement is a
f
powerful tool for maintaining the integrity of a significant
building. The properties under these restrictions should be
held to appropriate preservation standards as required in the
easements.
Timeframe:
Task a - Less than one month
Task b - Less than one month
Action to be taken by:
Tasks a and b - Historical Commission staff with SRA staff
3. Planning Board
Purpose:
To include the Historical. Commission in the Planning Board's
site plan review process.
Tasks:
a. The Planning Board's site plan review is required to address
the architectural compatibility of a proposed development
with the existing architecture of the area. A zoning
ordinance change should be enacted which adds the Historical
Commission or its representative to the list of requests for
�i
non-binding comment, and uses explicit language regarding
compatibility with the historic character of nearby
architecture.
Timeframe:
Two to three months
Action to be taken by:
Planning Department
#. Conservation Commission
Purpose:
To enhance protection of archaeological and historic resources
under the review of the Conservation Commission. In its review
of projects with potential impact on wetlands, the Conservation
Commission deals with areas having archaelogical potential.
Tasks:
a• Appoint an archaeologist to the Conservation Commission.
b• The Conservation Commission should routinely check for
potential impact on identified archaelogical resources.
% C. Conservation Commission agendas should be sent to the
Historical Commission to check for potential impact on
inventoried properties.
d. Historical COT-mission staff should provide a copy of Salem's
1987 archaeological survey to the Conservation Commission.
Timeframe:
Task a - Indefinite, depending on commission vacancy
Tasks b and c - Ongoing
Task d - Immediate
Action to be taken by:
Task a - Mayor
Task b - Conservation Commission staff
Task c - Conservation Commission staff and Historical
Commission staff
Task d - Historical Commission staff
5. Department of Public Works
Purpose:
To ensure that public works projects with impact on historic
resources are reviewed or commented on by the Historical
Commission.
42
G
w Tasks:
a. Notification of the Historical Commission should be required
in advance of any project with impact on historic resources,
particularly including any work in historic districts. This
would include but not be limited to sidewalk repairs, new
street lights, and other public improvements or major
repairs. The Boston Public Works Department is required to
appear before the Boston Landmarks Commission prior to work
in any local historic district.
Timeframe:
Ongoing
Action to be taken by:
Public Works Department and Historical Commission
6. Cemetery Division
Purpose:
To ensure the documentation and preservation of Salem's historic
burial grounds. The Cemetery Division has a curatorial
responsibility for several of Salem's earliest historic
resources, namely historic burial grounds.
Tasks:
a. City-owned burial grounds have been
partially but the inventory needs to be completed. Vounteertoried,
student labor could be used to complete this project.
b. Preservation guidelines should be developed for historic
burial grounds including early sections of Greenlawn
Cemetery, addressing proper maintenance procedures, policies
for stone rubbings, and care and maintenance of related
historic buildings (chapel at Greenlawn). Priorities for
conservation of stones should be set.
c. Seek approval of the Massachusetts Historical Commission
prior to conservation work on historic gravestones as
required by Chapter 272, Section 73A of the Massachusetts
General Laws.
Timeframe:
Task a - Six months
Task b - Two to four months
Task c - Ongoing
Information and Resources:
Technical advice is available through the Massachusetts
Historical Commission, consultants specializing in historic
43
y .
burial grounds, and several publications on the subject.
Potential funding sources are discussed in the Appendix.
The Boston Experience: A Manual for Historic Burying Grounds
Preservation is available through: Historic Burying Grounds
Initiative, Boston Parks & Recreation Department, lolo
Massachusetts Ave. , Boston, MA 02118
Action to be taken by:
Task a - Volunteer or student labor coordinated by Historical
Commission staff
Task b - Historical Commission, Historical Commission staff
and Cemetery Division staff
Task e - Cemetery Division staff and Historical Commission
staff
H. PRESERVATION ORDINANCES
1. Historic districts ordinance
Purpose:
The ordinance which established the Salem Historical Commission
and Salem's first local historic district in 1971 is in need of
revision to clarify and update it.
Tasks:
a. Revise the ordinance by closely
patterning
language in Chapter 40C, and using the requirements for the
Certified Local Government Program (see Appendix). This
would involve the following changes:
i. Powers and Duties - The CLG program requires that the
ordinance specify the following, none of which appears in
Salem's existing ordinance:
-Criteria for district designation
-Criteria for review of proposals
-Provisions for enforcement and appeals - The MHC recommends
that a time and cost efficient appeals process is to include
an intermediate appellate provision in the ordinance
"designating a person or persons chosen by the regional
planning agency of which the municipality is a member, or if
the municipality is not a member of a regional planning
agency, one selected by the local department of community
affairs, to conduct a review process in lieu of a direct
appeal to Superior Court."
-Time limit for review
-Expiration period for certificates - While not required by
the CLG program, this is recommended.
44
-Certificates of non-applicablilit
y The clearly specify that all work in the district,3aincludinnce g d work not under the review of the Historical Commission, must
apply for a certificate of non-applicability before work may
_ commence.
ii. Salem Historical Commission as district
commission and historical commission - The intent of the
Salem historic districts ordinance is to establish a
commission that serves as both the historic district
commission under Chapter 40C, and as the historical
commission under Chapter 40, Section 8D. However the
ordinance makes no reference to Chapter 40, Section 8D, and
in citing its powers and responsibilities under that
legislation, it omits several important provisions, namely
cooperating with the State Archaeologist in conducting
surveys and reporting on sites, keeping accurate records of
its actions and filing annual reports. While these
responsibilities are currently being carried out, they should
be stated in the ordinance.
iii. Membership - Chapter 40C requires that the membership
include a nominee from the local historical society, a
nominee from the local chapter of the American Institute of
Architects, a nominee from the board of realtors, and a
resident or property owner from one of the districts. These
requirements are not stated in the ordinance and should be
added.
Timeframe;
Three to six months
Information and Resources:
Chapter 40C
Certified Local Government Program guidelines
Action to be taken by:
Historical Commission and staff
2. Demolition delay ordinance
Purpose.
Salem's existing demolition delay ordinance is in need of
revision to strengthen its enforeability and to add several
provisions.
Tasks:
a. Revise the demolition delay ordinance according to
Massachusetts Historical COmmmission guidelines. The most
necessary revisions are the following:
r
i. Purpose - A clear statement of the intent and scope of the
ordinance is advisable, and should stress that the delay
period is intended to provide time to explore alternatives to
demolition.
ii. .Expanded criteria - Criteria for review prior to
demolition should be expanded to include any building or
structure located within 200 feet of any local, state or
federal historic district.
iii. Historic Districts Act - A statement is needed
indicating that if any provisions of the ordinance conflict
With M.G.L. Chapter 40C, the Historic Districts Act, that act
shall prevail. As the ordinance is currently written,
properties within the local historic districts are included
under its restrictions. This sets up a conflict between the
demolition delay ordinance and the local historic district
ordinance which could result in the Salem Historical
Commission having a decreased ability to protect a building
within a local historic district from demolition. The
commission's review powers over district properties allow the
commission to deny an application for demolition, where the
demolition delay ordinance merely establishes a delay period
in which to explore alternatives to demolition. In these
circumstances, the stronger preservation protection of the
historic district ordinance should apply.
iv. Penalities for non-compliance - The ordinance should
specify fines and/or other sanctions for the illegal
demolition of a building to which the ordinance applies.
Some communities have penalized for illegal demolition by a
combination of fines and a two-year building moratorium.
V. Severability - A statement indicating that all other
provisions of the ordinance remain valid if one part is
Judicially declared invalid protects against the entire
ordinance becoming invalid in case of legal action.
Timeframe:
Three to six months
Information and Resources:
Massachusetts Historical Commission guidebook for local
demolition delay ordinances
Sample demolition delay ordinances (see Appendix)
Action to be taken by:
Historical Commission staff
3• Local landmark ordinance
Purpose:
To protect individual significant properties not located
within a local historic district.
Tasks:
a. Explore the possibility of either enacts
ng a ocal landmark
ordinance or designating individual buildings las "single
building districts" through the existing Chapter 40C
Process for local historic districts. Either approach
would allow for design review and protection of significant
properties not located within a local historic district.
Individual properties would be designated in much the same
fashion as local historic districts, and a similar review
by the Salem Historical Commission would occur prior to any
alterations, demolitions or new construction.
b. If a local landmark ordinance is enacted, clear priorities
should be established for designation of buildings.
Landmark designation is an honor which helps preserve and
enhance the quality of life for the entire community.
Designation should be reserved for buildings not under the
protection of local historic districts. These might
include commercial buildings in the central business
district, as has been done in Cambridge, significant
buildings being transfered out of city ownership, and
properties whose owners are anxious to have preservation
protection in place.
Timeframe:
Tasks a and b - Three to six months
Information and Resources:
The Cities of Cambridge, Boston and Somerville are among
the communities that have successfully designated
individual properties as local landmarks. A model local
landmark ordinance can be found in the Appendix.
Action to be taken by:
Tasks a and b - Historical Commission and staff
I. EDUCATION AND PUBLIC AWARENESS
Purpose:
Any discussion about preservation education and
public
Salem's extraordinary historical, architectural andculturalness of
resources must distinguish between education within the community
and education outside it. While there will be overlap between these
in many cases, the focus of this section will be on the process of
OR
increasing the interest, awareness and understands t
residents and those who work here, rather than anyndiscussion of
interpretation and programs aimed at tourists and visitors.
An important element of preservation education is getting out the
message that preservation involves more than the obvioulandmarks.
The challenge is in reinforcing to local
older neighborhoods have wonderful histories, interestli1 of lem's
and great value both for the city's quality of life and for itsng :
economic and cultural vitality. Salem has many private and public
organizations and agencies striving to
get he word
efforts should continue, and be coordinated ofor ut tmaximum,
and their
effectiveness. Methods should be explored for targeting property
owners in all the city's older sections, not Just in the local
historic districts. It is the areas outside the review of the Salem
Historical Commission where the greatest threat exists for buildings
to be inappropriately altered, neglected or demolished. In addition
to residential property owners, efforts are needed to ensure that
the business community understands that preservation is an economic
asset, and that technical assistance is available to guide any
projects affecting historic properties.
Public perception of bodies like the Salem Historical Commission can
be negative due to resentment over the existence of a review
Process. It is essential to emphasize the successes of a local
historical commission, illustrating to the public as graphically and
regularly as possible that the Salem Historical Commission's role is
to maintain and improve the quality of life for all the city's
residents by preserving and enhancing the unique qualities that make
Salem a special place.
.Below are recommended actions relating to the education issues
described above.
Tasks:
1. Workshops, lectures and conferences
The city should continue to sponsor workshops, lectures and
conferences Jointly with other local preservation and cultural
groups. These should be particularly targeted to residential
property owners, commercial property owners, or specific areas
of the city. Topics could include technical advice on design,
rehabilitation and renovation issues, such as appropriate
signage and storefront design for downtown. Other topics might
address the history and development of lesser known historic
neighborhoods in the city, such as North and South Salem.
Greater opportunities for public discussion of plans relating to
tourism and interpretation of local landmarks would increase
public commitment and support for the success of these
undertakings.
Timetable:
One or two each year
Action to be taken by:
Historical Commission staff ,jointly with other groups
2. Publications
The preservation planner, Salem Historical Commission, and other
local preservation organizations should
prepare
publications ranging from simple brochureson a single topicsuch as how to paint your historic house under the new city
painting regulations, or reasons to avoid vinyl or aluminum
siding on historic buildings, to more ambitious projects like
The Salem Handbook prepared by Historic Salem Inc. in 1977.
Prepare simple brochures to be distributed to owners of
properties in National Register districts explaining the
historical and architectural significance of the district and
the properties within it. A similar publication was done in
1980 under the Salem Home Improvement Program.
Timetable:
Several months for each publication
Action to be taken by:
Historical Commission staff, Historic Salem, other groups
X l
4
3. Inventory forms
a. Increase property owners' and tenants' appreciation and
awareness of historic resources by mailing inventory forms to
residents and businesses. People are often surprised to find
that the building they have occupied for years has greater
significance than they imagined. Mailing could be spread over a
year and included in city water bills to save postage. This
type of recognition can provide the impetus for greater
attention to the building's preservation.
b. A complete set of the inventory, including inventories of
historic burial grounds, should be on file in the local history
room at the Salem Public Library.
Timetable:
Task a - One year
Task b - Two to three months
Action to be taken by:
Historical Commission staff
f
9
�i. Elementary preservation education
Appreciation of our built environment can and should begin at an
early age. Historic Salem Inc. developed an excellent
curriculum on Salem's historic architecture in the early 1980s.
The six week program was taught for three
years,
middle schools, and later in all the city's fifth fgrades.
tThe
classes were taught by volunteers from HSI, with the intention
(agreed to by the Salem Public Schools) that the program would
be taken over by the school system. The materials included
handbooks for the students, training materials for the teachers,
and a slide
se
materials were oturnedoover ctoo each eelementary six eschool s. ewhen HSI
ceased teaching the program. Since that time various schools
have offered some local history, but the organized curriculum
has not been continued. This program was a valuable asset, and
the possibility of reviving it should be pursued by the
Historical Commission staff.
Timetable:
Less than one year
Information and Resources:
Historic Salem Inc.
Curriculum materials at elementary schools
Connie Arlander
Action to be taken by:
Historical Commission staff
5. Press coverage
a. Promote greater visibility for routine and special city
preservation activities through more press releases.
b. Establish a regular preservation issues column in the Salem
Evening News. Arrangements could be made jointly by the Salem
Historical Commission, Salem .Redevelopment Authority, Historic
Salem, Inc. , Salem Partnership, and other preservation-related
organizations to rotate preparation of a weekly column in the
Salem Evening News.
c. Invite press to preservation functions (e.g. Salem Historical
Commission annual awards presentation) .
d. Submit the Salem Historical Commission's annual report or a
summary of the year's actions and activities to the Salem
Evening News.
Timetable:
Task a - Ongoing
Task b Ongoing once established
f
50
l?
Task c - ongoing
Task d - Annual
Action to be taken by:
Tasks a, c, d - Historical Commission staff
Task b - Historical Commission staff coordinating with others
6. Preservation awards
The awards currently given each year by the Salem Historical
Commission are an excellent way to encourage and reward good
preservation projects. Recently a few awards have been given to
projects outside the local historic districts. This practice
should be continued as a means of giving recognition to other
areas of the city, and individuals who have made a contribution
to maintaining the character of the city. In addition, the
Massachusetts Historical Commission and the National Trust for
Historic Preservation both have annual preservation awards
programs for which nominations are solicited. The Salem
Historical Commission, and other local preservation groups
should take every opportunity to nominate deserving projects or
individuals for either of these awards.
Timetable:
Annual
Action to be taken by:
Historical Commission, staff, other groups
7. Public information on available resources
A brochure should be prepared by Historic Salem, Inc. for the
general public on sources of preservation information available
at various locations in the city. This would complement HSI's
work in establishing a preservation collection at the Salem
Public Library. These sources include the Salem Public Library,
which has a local history collection with several shelves
devoted to historic preservation materials; the Salem Planning
Department, which has the historic properties inventory; and the
libraries of the Essex Institute, Peabody Museum, and Salem
Athaneum.
Timetable:
Three to six months
51
r
t Information and Resources:
Historic Salem Inc.
Salem Public Library
Salem Planning Department
Essen Institute
Peabody Museum
Salem Athaneum
Action to be taken by:
Historic Salem Inc.
J. COORDINATION WITH OTHER PRESERVATION GROUPS
Purpose:
To improve and maintain communication and Joint efforts among
Salem's preservation organizations and to allow all groups to make
full use of each other's resources. To take advantage of the skills
and facilities of preservation organizations at the regional, state
and federal level.
The local organizations which should be involved with these efforts
are:
-Salem Planning Department/Salem Historical Commission
-Historic Salem Inc.
r -Essex Institute
-House of Seven Gable
-Peabody Museum
-Salem Partnership
-Salem State College
-Salem Maritime National Historic Site
-Hamilton Hall
Outside of Salem many public and private agencies and organizations
exist which can serve as valuable resources for local preservation
efforts of all sorts. Training and educational opportunities for
individuals, historical commissions, and city employees are
available through such organizations as Historic Massachusetts Inc. ,
Massachusetts Historical Commission, the National Trust for Historic
Preservation, and many others. Technical expertise for specific
conservation problems can be found through the Society for the
Preservation of New England Antiquities (SPNEA), National Park
Service at the Charlestown Navy Yard, and the Massachusetts
Historical Commission (MHC).
Research facilities on architectural history, historic preservation
and preservation planning are available at SPNEA, the Boston Public
Library, the Boston Athanaeum, and MHC. Sources of consultants or
interns with skills in various aspects of preservation include the
MHC and Boston University's American and New England Studies
Program. See the Ap
pendix for a list of organizations and funding
sources.
Tasks:
a. Each of Salem's preservation organizations and the Historical
Commission planning assistant should send each other updates with lists of Projects bei Quarterly
recently completed. This would enablelanned, underway, or
groups to er each other
assistance where appropriate and avoid duplications fof effort.
b. Another means of regular contact among the city's preservation
groups exists now through the Historic and Cultural Resources
Committee of the Salem Partnership. This committee should
continue to include representatives of each of Salem's
preservation organizations and the Historical Commission staff.
This is an important means of keeping communication lines open
between the city and the other preservation-related organizations
in Salem.
c. Meetings of the Historic and Cultural Resources Committee should
be structured to include a brief update of each organization's
current activities to identify common concerns.
d. Historical Commission staff should serve on boards or committees
T of local preservation organizations.
l;
Timetable:
Task a - One to two months to set up, then ongoing
Tasks b-d - Ongoing
Action to be taken by:
Tasks a, b, d - Historical Commission staff
Task b, c - Salem Partnership Historic and Cultural Resources
Committee
I. Salem Project, National Park Service
Purpose:
To promote the ongoing work of the Salem Project. This National
Park Service undertaking has the potential for greatly enhancing
Salem's quality of life through physical improvements,
understanding of historic resources through improved
interpretation of Salem's history, and boosting the local
economy through the benefits of increased tourism.
Tasks:
a. Close communication should continue between Salem Project
staff, the Planning Department and the Historical Commission.
At present this includes the City Planner and Salem Project
staff working Jointly on planning for a new visitors' center,
a new signage program, and traffic studies, and comment from
the Historical Commission on proposals for work on the
wharves. Every effort should be made to press for continued
Federal funding, and to maximize the community benefit of
this project.
Timetable:
Ongoing
Action to be taken by:
City Planner, Historical Commission
2. Massachusetts Historical Commission
Purpose:
To make use of the Massachusetts Historical Commission's many
resources available to municipalities and local preservation
organizations, in staff assistance through technical expertise
of many types, financial assistance, reference materials and
special programs.
Tasks:
a. Among the programs that could be useful in Salem is the
MACRIS system, through which the state is computerizing all
available data relating to properties included in the
historic resources inventory or listed on the State Register
Of Historic Places. Salem is among the communities already
entered into the system. This database system enables the
MHC to easily access information on individual properties, or
on types of properties, properties by a specific architect or
builder, or of a given style, period, material or use. This
is a useful tool in planning for or studying historic
resources.
MACRIS could be used to identify commercial or residential
properties to be targeted for a facade improvement program.
Complete lists of individual properties with any type of
historic designation (National Historic Landmark, National
Register, local historic district) could be generated,
including each property within a district. (See Appendix for
the MACRIS profile of Salem).
b. Another technological advance available at the MHC is a CIS
system which is doing computerized mapping of all State and
National. Register properties. Ultimately all inventoried
properties will also be included. The system will be linked
to the MACRIS system, enabling it to respond to queries such
as a map of all eighteenth century brick buildings in Ward 2.
This system could also ultimately be linked to a computer
12
- system within the City to provide a data layer for the
planning department.
Application of these two systems would allow the Planning
Department to evaluate the density and types of historic
- resources in planning for a given area or project. For
example, in establishing the Entrance Corridor Overlay Zone,
it would have been possible to easily produce maps of all
historic resources in a given protect area, and then use the
MACRIS system to create a profile of the ages, styles and
types of properties in that area. This would enable the
Planning Department to tailor the ordinance to the specific
characteristics of the historic resources involved.
Timetable:
Task a - Ongoing
Task b - Dependent on MHC progress with system, ongoing
Information and Resources:
Massachusetts Historical Commission
Action to be taken by:
Historical Commission staff
K. ARCHAEOLOGY
Purpose:
To identify, protect and preserve Salem's archaeological resources.
The City of Salem was the recipient of a Survey and Planning Grant
from the Massachusetts Historical Commission in •1987 to conduct an
archaeological survey of the city.
Identified pre-historic priority areas were:
-Salem Neck and the Islands
-South/Forest River Drainage and Wetlands
-Strongwater Brook
-North/Danvers River Estuary
-Salem Harbor
-North Salem
Identified historic priority areas were:
-Site of the Old Planter's Settlement
-Winter Island
-Blubber Hollow
-Essex Street/Derby Street District
-Salem's Historic Cemeteries
55
5,2
-County Jail, Jailer's Mouse, site of the John Ward House, and
Howard Street Cemetery
-Maritime Waterfront Underwater District
-Salem Willows
The project collected data concerning the city's archaeological
resources and drafted a plan with recommendations for site
protection and long-term management. Also included were
recommendations for interpretation of archaeological sites. Few of
these recommendations have been acted upon. Those that remain
information on implementation of these recommendations, the relevant are below, in some cases expanded or modified. For further
archaeological survey plan and its author should be consulted.
Tasks:
a. The Planning Department should establish a process for evaluating
impact on archaeological resources and for dealing with review
and compliance issues. Alternatives are to develop a cooperative
arrangement with the archaeology department at the Peabody Museum
to share an archaeologist, or to use an archaeologist from the
Peabody Museum or elsewhere on a consulting basis as needed.
b. Using the archaeological survey, the Planning Department should
assess where anticipated development or projects will occur that
may affect archaeological resources and address the need for
further archaeological survey of those areas first. Any project
planned for one of the areas identified above should be carefully
evaluated by the Historical Commission staff in consultation with
an archaeologist for its potential impact on archaeological
resources.
c. Salem should undertake an archaelogical survey of all city-owned
property and combine results with inventory of all known sites.
The complete inventory can be used for planning purposes.
d. The city should work jointly with the Peabody Museum, Essex
Institute, National Park Service and other interested
institutions to encourage other archaeological surveys including
an underwater survey and other sensitive areas identified above.
e. Salem should pass an ordinance to protect archaeological sites
not protected by State or Federal law..
f. Winter Island should become a multi-resource archaeological park
to interpret its prehistoric sites, remains of Salem's
seventeenth-century fishing Community, and Fort Pickering .
g. A major excavation should be conducted at the original site of
the John Ward House on the property of the former Essex County
Jail. This could then be developed into an archaeological
exhibit of seventeenthcentury life in Salem.
56
h. Forest River Park should include a Native reconstruction. American Village
i. The city should initiate discussions with Salem Project staff
regarding the possibility of expanding the Salem Maritime
National Historic Site to include
properties
Street/Derby Street District. Methods of
located in the Essex
ecti and
interpretting nearby archaeological resources tassociated with the
themes of the Maritime Site should be explored.
Timetable:
Task a - Less than three months to establish, then ongoing
Task b - Ongoing
Tasks c, d, f, g, h - Consult archaeologist for timetable
Task e - One to two months
Task i - Indefinite
Information and Resources;
The State Archaeologist with the Massachusetts Historical
Commission can provide much technical advice on these
recommendations. The Peabody Museum has an archaeology
department, and could be a great asset in any archaeological
undertaking by the city. Among the sources of archaeologists
available for consulting purposes are: the University of
Massachusetts - Boston, Boston University, and the Public
Archaeology Lab in Pawtucket, Rhode Island.
Action to be taken by:
Tasks a and b - Planning Department and Historical Commission
staff
Tasks c-h - Archaeologist (consultant or staff) with Historical
Commission staff
Task i - National Park Service, archaeologist, and Historical
Commission staff
L. Archives
Purpose:
Public records of all sorts are important historical documents, and
should be maintained appropriately. Of
architectural plans and early builds particular concern are
basement of Old Town Hall. permits currently in the
Tasks:
a. An Archives Committee, ideally with representatives from the
Essex Institute, Peabody Museum, Essex County, Salem Public
Library and Salem State College, should be formed to address
methods of conducting an inventory of historical archives
throughout the city, and to look into storage and conservation
needs. The committee could be appointed by the
Mayor.
57
Alternatively, it could be formed as a subcommittee of the Salem
Historical Commission, with volunteer members solicited by the
Historical Commission and staff.
b. Once established, the Archives Committee should work to ensure
the adequate care, storage and organization of all types
records by seeking necessar p fu of city
nding
and materials. Obtain advice fromsthenMassachustsal iStater
Archives on how best to proceed.
Timetable:
Task a - Less than three months
Task b - Ongoing
Information and Resources:
Technical advice may be available through the Massachusetts
State Archives. In addition, grant money may be available from
the National Historical Publications and Records Commission by
applying through the State Archives.
Action to be taken by:
Historical Commission staff
r..
-: M. OTHER PROJECTS
Purpose:
Many other new programs would be valuable additions to Salem's
preservation efforts, although time and fiscal constraints may mare
these difficult to achieve in the immediate future. These could
include:
Tasks:
a, Beautification efforts in historic districts - These might
include period lighting, placing utility wires underground, and
greater use of brick sidewalks. As funds are available, the
Planning Department and Salem Historical Commission should
determine which beautification projects to pursue. The
Historical Commission should be consulted for assistance in
selection of appropriate lighting or any form of street
furniture.
Timetable:
Dependent on funding
Action to be taken by:
Planning Department and Salem Historical Commission
b. Facade improvement Programs The establishment of a commercial
facade improvement
program funded by a revolving loan pool is
5
7
being planned for FY91. Expansion to include residential
properties should be a goal. An excellent proposal on the
subject was prepared for the Planning Department in 1986, and
would still be useful.
Timetable:
Ongoing once established
Information and Resources:
Proposal for a Facade Improvement Program for Historic
Residences, Prepared 1986 for the Salem Planning Department
Action to be taken by:
Planning Department with Historical Commission staff
c. Easement program - The city, through the Salem Redevelopment
Authority, already holds numerous facade easements on downtown
properties. If a program involving the acceptance of
preservation restrictions on properties were to be established it
should be administered by the Historical Commission and staff,
and should be set up with adequate funding and clear procedures
to assure its ongoing enforcability.
Timetable:
Two to three months to establish, then ongoing
Information and Resources:
Organizations which accept easements and have policies which
would provide useful models include the Massachusetts Historical
Commission, Architectural Conservation Trust, and the Society
for the Preservation of New England Antiquities.
Action to be taken by:
Historical Commission staff and Historical Commission
d. Preservation funds targeted for low- and moderate-income property
owners - Establish programs similar to several in Cambridge
targeting funds based on income or area. Cambridge has set aside
$20,000 in Community Development Block Grant Funds for a
preservation grant program targeted at low-income areas. These
grants, generally for $1,000, cover work done according to the
guidelines of the local historical commission. Applications for
funds are submitted to the Cambridge Historical Commission,
and
plans are approved in a design review process similar to local
historic district design review.
A similar program provides a 50% subsidy for house Painting for
owners with low or moderate incomes. The subsidy also provides
Y`
technical assistance in selecting a contractor, supervising the
work, and selecting paint colors.
59
i
F
Timetable:
One to two months to establish once funds are committed
Information and Resources:
Cambridge Historical Commission
Action to be taken by:
Planning Department to initiate funding
Salem Historical Commission and staff to administer
e. Plaque program for National Register properties - Historic Salem
Inc. should consider establishing a program of plaques for
properties individually listed on the National Register. Similar
to the general program of historic building markers HSI has
operated for years, this program could easily be started by
soliciting property owners identified from the State Register.
Historical information normally provided to home owners in HSI
existing program could be obtained from the National Register
forms.
Timetable:
One to two months to establish, then ongoing
7
Information and Resources:
State Register of Historic Places
National Register nomination forms, available at the Salem
Planning department or Massachusetts Historical Commission
Action to be taken by:
Historic Salem Inc.
N. MANAGEMENT OF EXPANDED RESPONSIBILITIES
Purpose:
With the proposed expansion of the Washington Square Historic
District, the number of properties under design review of the Salem
Historical Commission would increase from approximately 600 to 840.
If all other recommendations regarding new and enlarged districts
were enacted, this number would approach 1200 properties. This
doubled review workload combined with numerous other recommendations
of this plan - a more active advisory role in other aspects of city
preservation policy, review by Historical Commission members of
completed projects for compliance and regular field cheeks for
violations - would undoubtedly prove unmanageable
Commission as it is currently structured. The
pl for
e Historical
alsocallsfor
staff action on many projects. Several alternatives for
managing
r expanded ed duties exist, including the creation of an historic
district commission separate from the Historical Commission and/or
additional preservation Staffing ,in the Planning Department.
60
Tasks:
3 a. If significant additions are made to the number of� properties in
local historic districts, create an historic district commission
separate from the Historical Commission. The district commission
would handle review of all local historic district applications,
while the Historical Commission would be responsible for all
other preservation matters currently under the existing
Historical Commission and proposed in this plan. Historical
Commission staff and the Salem Historical Commission should draft
a new ordinance establishing the separate commission.
b. Increase the preservation responsibilities of the planning assistant to full-time. preservation
Preservation plan cannot be accomplished rb recommendedapart-time
is the
Person. A city with such strongy part-time staff
emphasis on its with
economic, social and cultural
age has a great need of a full-time
preservation planner to ensure that these concerns are an
integral part of the planning process. Similar positions exist
in New Bedford, Somerville, Newton, Brookline and Gloucester.
c. In order to provide the best ongoing technical preservation
skills for the city, hire preservation planning staff with the
academic and professional training to provide the needed
technical expertise and to spare the cost of hiring consultants.
The National Park Service has strict professional qualifications
standards for certain work, including National Register
nominations and historic resource surveys; the city preservation
staff should meet these standards, since the majority of the
vn recommendations call for staff action or coordination. Partial
funding for the position would probably be available through MHC
Survey and Planning Grant funds earmarked for Certified Local
Governments.
Though much larger than Salem, Cambridge and Boston both have
sizeable staffs for their historical commissions. The Boston
Landmarks Commission has a full-time staff of seven, including an
archaeologist and three staff to administer the 7000 properties
in districts. The Cambridge Historical Commission has three
full-time and several part-time employees administering
approximately 2300 properties in two neighborhood conservation
districts and 150 properties in local historic districts.
Timetable:
Task a - Dependent on timing of district expansions
Tasks b and c - Dependent on availability of funding
Information and Resources:
Massachusetts Historical Commission for advice on establishing a
new commission.
/ k
61
t
Action to be talon by:
Task a - historical Commission staff and Historical Commission
Tasks b and c - Planning Department
/ la
62