BRIDGE STREET NECK VISION UPDATE - WINTER 2020CITY OF SALEM
BRIDGE STREET NECK NEIGHBORHOOD
VISION UPDATE STUDY
Winter 2020
CITY OF SALEM
BRIDGE STREET NECK NEIGHBORHOOD
VISION UPDATE STUDY
Funding for this study was provided by the
Massachusetts Housing Finance Agency, the
Massachusetts District Local Technical Assistance
Program, and the City of Salem (CDBG funds)
2012 Bridge Street Neck Working Group
• Michael Sosnowski, Ward 2 Councilor
• Rob Liani, owner, business owner
• Helen Sides, Planning Board and Design
Review Board member
• Bob Mitnik, Salem Redevelopment Authority
and business owner
• Marlene Schaedle, Historic Salem, Inc.
• Kosta Prentakis, business owner
• Peter Kastrinakis, business owner
• Christine Ayube, Bridge St. Neck resident
• Doug Sabin, Bridge St. Neck resident
• Dorothy Hayes, Historic Salem, Inc.
• Rick Bettencourt, Bridge St. Neck resident
• Tim Kavanagh, Planning Board
• Rinus Oosthoek, Executive Director, Salem
Chamber of Commerce
Thank you to the many community members that have participated in the planning process,
including those who began this work over a decade ago, as well as the newer residents and
business owners who have contributed.
2019 Bridge Street Neck Working Group
• Christine Madore, Ward 2 Councilor
• Rob Liani, business owner
• Helen Sides, Planning Board and Design
Review Board member
• Matthew Smith, Planning Board
• Rinus Oosthoek, Executive Director, Salem
Chamber of Commerce
• Emily Udy, Historic Salem, Inc.
• Christian Bednar, resident
• Carey Qualkenbush, resident
• Breaux Silcio, business owner
• Cynthia Cifrino, resident
• Flora Tonthat, BSN Neigborhood Association
• Patricia Kelleher, City of Salem
Preservation Planner and resident
CONTENTS
1.0 Executive Summary
2.0 Introduction
2.1 Study Background and Goals
2.2 Study Area Context
2.3 Previous Studies and Relevant Information
2.4 Study Area Location and Diagram
3.0 Existing Conditions
3.1 Study Area
3.2 Zoning
3.3 Land Use and Development Patterns
3.4 Circulation and Mobility Patterns
3.5 Composite Mapping of Challenges and Opportunities
4.0 Vision
4.1 Vision Statement
4.2 Principles Supporting the Vision Statement
5.0 Developing the Vision
5.1 Community Forum
5.2 Concept Plan
5.3 Mixed-Use Node Example
6.0 Implementing the Vision -- Zoning Recommendations
6.1 Location and Boundaries of Zoning Changes
6.2 Options for Rezoning along Bridge Street
6.3 Proposed Bridge Street Neck Corridor Overlay District
7.0 Implementing the Vision -- Other Recommendations
7.1 Managing Neighborhood Change
7.2 Connectivity Improvements
7.3 Economic Development
7.4 Design Guidelines
7.5 Historic Preservation Tools
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1.0 EXECUTIVE SUMMARY
Salem Bridge Street Neck Neighborhood Vision Update
What kind of neighborhood do we want?
As part of a neighborhood planning effort,
the City, local residents, business owners, and
other stakeholders of the historic Bridge Street
Neck Neighborhood have come together to
develop a future vision for the area. The work
builds upon previous planning efforts and
incorporates analyses of existing conditions,
opportunities and challenges the neighborhood
faces. But it also brings a fresh lens to an area
that continues to grow and change.
Through this public engagement process, an
updated vision and associated principles were
developed that emphasizes:
• A family-friendly area that is both
welcoming and affordable across a range
of incomes.
• A neighborhood that is safe and
comfortable for all ages and abilities to
walk and bike.
• A thriving Bridge Street filled with local
businesses in commercial and mixed-use
developments.
• A distinct sense of place that builds upon
the neighborhood’s history as the location
of the original settlement of Salem
and existing assets related to its later
commercial and residential history.
• Development that has high quality design
and is appropriate for the scale and
context of the neighborhood.
• Connections to non-vehicular travel, not only
within the neighborhood but to other parts
of Salem, as well.
This Vision Update plan describes in further
detail the vision, process, and recommendations
to help achieve the future the community wants
for its neighborhood.
The plan begins with a discussion of relevant
planning efforts, both past and present. It then
provides existing conditions, which help frame
the context and also helped inform community
input. Understanding the existing conditions, in
particular the existing regulatory framework
(i.e., zoning) was also critical in developing the
report’s recommendations and associated draft
zoning ordinance.
A detailed description of the process, primarily
an interactive community forum, provides
further details and nuance to the vision. This
process developed:
• The vision statement and associated
principles.
• Preferred visual imagery for buildings,
open spaces, and streets appropriate to
the neighborhood, especially Bridge Street
itself.
• High level conceptual plans.
• An example of a future mixed-use
development node that would be consistent
with the vision, principles, visual imagery,
and conceptual plan.
The Implementation section provides a holistic
set of recommendations to help achieve the
vision. Zoning is one of the most important
tools a city has at its disposal to help shape
future development. Unfortunately, much of
Salem Bridge Street Neck
6 Salem Bridge Street Neck Neighborhood Vision Update
1.0 EXECUTIVE SUMMARY
this corridor has zoning that is not conducive
to achieving the vision. As such, a focus of the
recommendations is on developing appropriate
zoning, primarily for Bridge Street.
There are numerous ways that the area
could potentially be rezoned. Currently, the
preferred method is to develop an overlay
district, whereby the existing uses under the
existing base zoning would remain intact. The
overlay district would provide an alternative
means for development for landowners who
wish to utilize it. The pros and cons of the
alternative zoning methods are included for
the City to ultimately decide on the best path
forward.
The overlay district provides an opportunity
for mixed-use development, i.e., ground-floor
commercial space with residences above. It
also puts a strong emphasis on the built form
and the development’s relationship to the street
and public realm.
Some of these elements are fairly standard
in typical zoning ordinances, such as ensuring
minimal setbacks so that the building is close
to the sidewalk with parking in the rear. But
zoning often offers only cursory guidance
to controlling the actual form of the building
(e.g., heights) and can result in low quality
design or design that is not harmonious with
the existing context. Therefore, the zoning
recommendations and draft overlay district
go a step beyond typical zoning by providing
additional standards and requirements that
help to regulate the form, while allowing for a
variety in design and flexibility to meet specific
site conditions.
While zoning is one of the most important
tools to achieving the vision, it is not the only
one. After the zoning recommendations section
are additional sections that, taken together,
are critical to help achieve the vision. The
Managing Neighborhood Change section
provides a set of recommendations for the City
to consider to mitigate the negative effects
often associated with growth and gentrification.
Connectivity, in particular pedestrian and
bicycle modes of transportation, was one of
the areas most emphasized by the community
members taking part in the visioning effort.
The recommendations in this section put a strong
focus on “traffic calming,” to slow vehicular
speeds and improve pedestrian safety. There
are also bicycle and pedestrian infrastructure
recommendations. Ensuring a walkable
neighborhood goes beyond safety, however, to
being a place where people want to walk. This
section, therefore, includes recommendations for
improving the public realm.
The economic development recommendations
provide some examples of ways to help further
improve the retail and office environment along
Bridge Street.
The report includes a number of design
guidelines elements that can help guide future
development in a way that enhances the
neighborhood and is sensitive to the existing
context.
Finally, the report includes recommendations
focused on preservation of the built
environment as a tool for meeting the
neighborhood’s vision.
7
2.0 INTRODUCTION
Salem Bridge Street Neck Neighborhood Vision Update
10 Salem Bridge Street Neck Neighborhood Vision Update
City’s context. The area shaded in red is the
Bridge Street Neck Neighborhood and study
area for this visioning effort. The neighborhood
is located to the north of the downtown and
commuter rail station. A bridge connects the
area to Beverly, located to its north.
2.0 INTRODUCTION
2.3 Previous Studies and Relevant
Information
In 2009, the City worked with the Cecil
Group to develop the Salem Bridge Street
Neck Neighbored Revitalization Plan. The
revitalization plan compiled key findings,
planning concepts, and recommendations for
the neighborhood. It was envisioned that the
recommendations and strategies would help
to shape the future of the community through
2019.
In 2012, the City worked with MAPC to
develop new zoning for the neighborhood. The
2012 effort was intended to help implement
the 2009 Bridge Street revitalization plan. A
neighborhood vision emerged throughout that
2009 planning process that was aimed at
maintaining the residential character and scale
of the neighborhood, while attracting more
business and visitors to its commercial areas.
At that time, rents were too low on the Bridge
Street Neck to support new development. The
revitalization plan considered redevelopment
of some of the large commercial properties,
currently used for automotive repair businesses
and boat storage, into new townhomes and
moderate-scale residential development
that would increase home buying and rental
opportunities for young families and smaller
households. A key recommendation of that
plan was to change the neighborhood’s zoning
from its current mix of residential, automotive,
and other commercial zoning to a more
uniform zoning that would allow for mixed-use
development with residential and small-scale
businesses.
2.0 INTRODUCTION
2.1 Study Background and Goals
As Salem continues to grow and change,
the city has been proactive in planning
and implementing appropriate changes to
continually address the community’s needs.
Some of these planning efforts are city-
wide, such as the development of the City’s
master plan, preservation plan, bicycle plan,
inclusionary zoning ordinance, etc. The City
has also invested its time and resources into
neighborhood-level planning efforts. These
plans allow for greater specificity and tailoring
to help meet the needs of various areas of the
City. This memorandum summarizes one such
recent planning effort for the Bridge Street
Neck Neighborhood.
Study Purpose
This study seeks to establish a community-
supported vision and to make recommendations
that support the vision. Recommendations
include regulatory changes (e.g., zoning and
other ordinances), as well as priorities for
public investments. Through this process the City
and MAPC seek to create community-supported
tools that addresses the several key questions:
• How should the overall community vision
translate into redevelopment opportunities and
improvements?
• What are the characteristics of new buildings
that would properly integrate into the existing
neighborhood?
• What are the public realm improvements
that will contribute to a safe, walkable
neighborhood?
2.0 INTRODUCTION
2.2 Study Area Context
The diagram on the following page identifies
the Bridge Street Neck neighborhood within the
11
Bridge Street Neck Neighborhood in context
Bridge
Street Neck
Neighborhood
Study Area
NORTH
NOT TO SCALE
Since that time, numerous changes have
occurred. Market demand has shifted, with a
stronger demand for mixed-use and residential
development. For example, Bridge Street Neck
has seen several new private market residential
developments. The zoning, however, is often not
supporting the type of development that the
neighborhood wants.
Demographics have changed, as new residents
have moved to the City to take advantage
of its high quality of life. Home prices have
risen dramatically, putting new pressures
on meeting the needs of the cost-burdened
community members. And the neighborhood
itself has changed, with the construction of the
Bridge Street bypass road, as well as new
development throughout the neighborhood.
In the fall of 2018, MAPC and City staff
convened a Community Forum with Bridge
Street Neck (BSN) residents. The Bridge Street
Neck Community Forum was held on October
23, 2018 at the Carlton Elementary School
in Salem. The meeting was designed around
a review of the 2012 Bridge Street Neck
Zoning study and community residents were
asked to indicate their support for the ideas
and uses expressed in the 2012 plan. During
the meeting, attendees asked many questions
about the scope and impact of the 2012
report and its recommendations for allowing
mixed-use buildings along the Bridge Street
Neck corridor. Following the meeting, City
planning staff established a Bridge Street
Neck Working Group to gain feedback and
understanding on the questions and concerns
expressed at the October forum meeting, to
gain a sense of what Working Group members
saw as the future of the neighborhood, and to
elicit support for moving forward with zoning
changes in the corridor.
Subsequent discussions between city planning
staff, Working Group members and MAPC
have made it clear that future changes to the
Bridge Street Neck Neighborhood must come
from an updated, unified vision created by the
community. This work will act as a springboard
for development of actual zoning language to
help achieve the vision.
Other City documents that were consulted and
incorporated include:
• Imagine Salem: Community Visioning for
2026 (Master Plan)
• 2010-2020 Historic Preservation Plan
• Salem Bicycle Master Plan
• Sample Bridge Street Neck Neighborhood
Preservation District Design Guidelines
• Bridge Street Neck Neighborhood
Association Traffic Calming Program Petition
• Salem for All Ages Action Plan
• Commercial Design Guidelines
• The Harbor Connector Path
12 Salem Bridge Street Neck Neighborhood Vision Update
NOT TO SCALE
Study Area Boundary
Bridge Street
To Beverly
March StreetOsgood StreetWebb Street2.0 INTRODUCTION
2.4 Study Area Location and Diagram
The diagram below provides a bird’s eye
view massing model of the neighborhood. This
three-dimensional digital model is a depiction
of the existing building massings, streets, and
property lines in the Study Area. The three-
dimensional depiction of the study area was
used to explore the current conditions and
to help communicate the future vision for the
neighborhood. (Note the north axis has been
rotated.)
Bridge Street forms the spine of the
neighborhood. An analysis of the existing
conditions in the district is presented in Section
3.0 of the report. The diagram to the right
provides details of various parts of the
neighborhood to provide a better sense of the
neighborhood, including density and range of
building types.
13
Study Area Selected Details
Bridge Street
To Beverly
March StreetOsgood StreetWebb StreetA C
D
B
E
F
A
B
C
D
E
F
These thumbnail aerial photos
provide a sense for the area’s
diversity, all close together in a
compact, historic neighborhood.
Single, two-family, and three-
family homes sit on small lots
(A). Auto-centric businesses,
large parcels, and industrial
sites comprise portions of
the neighborhood, adjacent
to these homes (B, D, F). The
Carlton School is an important
asset for the neighborhood
(C). Small-scale businesses line
portions of Bridge Street (E).
3.0 EXISTING CONDITIONS
Salem Bridge Street Neck Neighborhood Vision Update
16 Salem Bridge Street Neck Neighborhood Vision Update
3.0 Existing Conditions
This report section briefly summarizes the
current conditions of the historic Bridge Street
Neck neighborhood. This information identifies
patterns in the uses and the built environment
that are part of the neighborhood today. The
primary vehicle for developing the future vision
of the neighborhood came from members of
the community itself. The existing conditions
analysis provided context to help inform
community members’ thoughts. This information
can also provide an additional perspective to
the neighborhood’s issues and opportunities
and to inform strategies that could advance the
district toward the community vision.
3.1 Study Area
Located on a narrow peninsula of land
between Salem’s downtown, the Danvers River
and Beverly Harbor, Bridge Street Neck was
one of the earliest areas to be settled in Salem
with Bridge Street serving as the primary
transportation route from Salem to communities
to the north. The neighborhood is now a densely
settled neighborhood of 19th and early 20th
century residences surrounding the commercial
corridor of Bridge Street, which contains
a diverse collection of historic commercial
buildings and converted residences.
The study area for this planning effort was
bounded on the south by Webb Street
and comprised all land to the north, up to
the bridge to Beverly. This area contains
approximately 450 parcels, comprising
approximately 86 acres, excluding rights of
way. The median parcel size is only 0.1 acre
or 4,300 square feet. (Average parcel size
is a bit larger at 0.2 acre, due to a few large
industrial spaces on the northeast corner of the
neighborhood.)
The average floor-area ratio, a measure of
density, is 0.8, which generally considered a
moderately dense environment considering
the location and context. Dwelling units per
acre, a measure of residential density, is
approximately 8 units per acre, also generally
considered a moderately dense area.
The physical character of the neighborhood
itself is diverse. The neighborhood is filled
with homes of various sizes, from modest capes
to stately Greek Revivals. Utilitarian, auto-
centric businesses line Bridge Street alongside
small-scale retail and mixed-use buildings. The
neighborhood has both independent businesses,
as well as chains.
Bridge Street Neck is a historic neighborhood,
and one of the earliest neighborhoods
established in Salem. Bridge Street, originally
called Ferry Lane, was created in 1743. In
2002 the neighborhood was listed in the
National Register of Historic Places. The
city has also nominated it for inclusion as a
National Register. The 382 builidings listed
on the nomination form span ca. 1780-1952
and include a mix of Georgian, Greek Revival,
Italianate, Second Empire, and Queen Anne
styles.
The neighborhood contains a well-preserved
collection of Federal, Greek Revival, and
Victorian-era homes, as well as unique
examples of mid-20th century commercial
buildings. Many of the buildings throughout
the neighborhood are historic: more than 450
properties are documented in the MA historic
resource inventory.
The neighborhood also has a number of public
open spaces, including pocket parks, sports
fields, and beaches.
Many of the above elements, as well as
the Carlton Innovation School, suggest a
neighborhood well-suited to households of all
types, especially families.
17
Selection of neighborhood photos
18 Salem Bridge Street Neck Neighborhood Vision Update
3.0 Existing Conditions
3.2 Zoning
Zoning is one of the most important tools a
municipality has to help achieve the vision.
Communities are divided into various zoning
districts. Zoning regulates a number of aspects
within each district that are critical to a
neighborhood’s character, including:
• Allowable uses, such as residential, office,
retail, industrial, etc. and whether the use
is allowed by-right or through a special
permit;
• Dimensional regulations, such as heights,
density, minimum lot size, building setbacks
from the property lines, etc.;
• Requirements for affordable housing, if
applicable;
• The amount of parking required;
• The amount of open space required; and,
• Other requirements that are intended
to ensure that a development integrates
harmoniously into the neighborhood.
While zoning can be a tool to help achieve
a community’s goals, unfortunately it is often
a hindrance, especially in diverse, mixed-
use neighborhoods. As such, a key aspect in
developing the recommendations that will help
implement the vision is an understanding of the
existing zoning.
Bridge Street Neck contains a number of zoning
districts. The Residential Two-Family District
comprises much of the neighborhood. As its
name suggests, this district allows both single
family and two-family homes. A much smaller
portion of the study area, the Residential
One-Family District allows single family homes.
These two residential districts also allow various
other uses, either by right or through a special
permit that are deemed compatible. These
uses include, among others, child care facilities,
hospitals, municipal facilities, farmstand, etc.
Along Bridge Street itself are several business-
oriented districts. These districts each have
slightly different allowed uses, as well as
different dimensional standards, depending
upon their intended purpose. The southern
end of the study area contains the Business
Neighborhood District (B1), which allows for
smaller scale businesses in keeping with the
walkable nature of much of the neighborhood.
Importantly, this district allows mixed-use
development, defined in the Salem Zoning
Ordinance’s Table of Uses as a “dwelling unit
above first floor retail, personal service, or
office use.” Examples of other allowed uses
include banks, offices, restaurants, breweries,
and single/two-family residences.
Further north is the Business Wholesale +
Automotive District (B4). This district allows
for larger buildings (e.g., 45 foot height) and
additional uses such as wholesale, warehouse,
and distribution (residential uses, including
mixed-use, are prohibited) as compared to the
B1 District.
The Business Highway District (B2) allows for
many of the same uses as the B4, as well as
other uses, such as supermarkets. This district
has larger minimum lot sizes than the other
business districts (12,000 SF vs 6,000) and
lower maximum lot coverage (25% vs 40% for
B1 and 80% for B4).
Finally, a portion of the site is part of the
Industrial district. This district has the largest
minimum lot size (40,000 SF) and allows uses
expected as part of an Industrial district,
including light manufacturing, manufacturing,
research, etc.
19
District Min Front
Setback
(FT)
Min Side
Setback
(FT)
Min Rear
Setback
(FT)
Max
Height
(FT)
Min
Distance b/n
Buildings
(FT)
Min Lot
Area (SF)
Max Lot coverage
(%)
R1 15 10 30 35 40 15,000 30
R2 15 10 30 35 30 15,000 35
B1 15 10 30 30 0 12,000 25
B4 0 0 25 45 0 6,000 80
B2 30 10 30 30 0 12,000 25
I 30 30 30 45 -40,000 45
Residential
Two-Family
(R2)
Residential
One-Family
(R1)
Wholesale +
Automotive
(B4)
Business
Neighborhood
(B1)
Business
Highway
(B2)
Industrial
Study Area Zoning Districts and Selected Dimensional Standards
20 Salem Bridge Street Neck Neighborhood Vision Update
3.0 Existing Conditions
3.3 Land Use and Development Patterns
Whereas understanding a neighborhood’s
zoning helps one understand what may be
built in the future, understanding the land
use provides a snapshot of what is in the
neighborhood today. This snapshot helps
inform whether the types of uses and balance
among uses should generally remain or evolve
over time.
A comparison between land use patterns and
zoning regulations can also provide insight
into how properties could change in the future.
Uses that do not conform with the underlying
zoning could be redeveloped into a new use
that conforms, or it could be redeveloped into
another, less detrimental non-conforming use
through a Special Permit from the Zoning Board
of Appeals. Since 2014, seven properties have
received special permits to be converted into a
less detrimental non-conforming use.
The Bridge Street Neck Neighborhood contains
a diverse mix of uses. The majority of the land
area is residential, comprised of mainly single
and two-family homes in the districts zoned
primarily for residential uses on the many
streets radiating off of Bridge Street.
Bridge Street itself is the neighborhood’s
commercial corridor. As the diagram on the
following page indicates, many of parcels
along the street are residential, especially
on the southern end of the corridor. This is
reflective of the fact that a portion of the
zoning along Bridge Street is residential, as
well as the Neighborhood Business District
allowing residential uses.
The southern half also contains several mixed-
use developments, where commercial uses
(retail, food, or office) are on the ground
floor with residential uses above. These types
of mixed-use developments are generally
considered critical to the success of ensuring a
walkable, vibrant commercial corridor.
The commercial properties in the neighborhood
range considerably. There are restaurants,
both independent and chains; auto-oriented
services such as a gas station, service uses, such
a gas station, repair services shops, etc; offices;
and a variety of other businesses, such as a
yoga studio and hair salon.
Additionally, properties located in the northeast
quadrant of the neighborhood have industrial
uses, primarily a large National Grid facility.
This area abuts both residential and commercial
uses.
The Carlton Innovation School is a public
elementary school located to the west of
Bridge Street, off of Skerry Street.
The diverse range of land uses in the district is
a benefit to the economic vitality and flexibility
of the properties and has been a part of the
support for local businesses and services in the
neighborhood. An illustration of these patterns
of current land use are shown in the diagram
on the following page.
South of the study area the uses along Bridge
Street are primarily residential, which then
becomes commercial, civic, multifamily, and
mixed-use as the roadway flows into the
downtown. Continuing north over the bridge to
Beverly is that city’s downtown, primarily along
Cabot Street and Rantoul Street.
21
Residential Mixed Use IndustrialCommercial
Land Use
Breakdown of Land Use by Area
22 Salem Bridge Street Neck Neighborhood Vision Update
3.0 CURRENT PATTERNS
3.4 Circulation and Mobility Patterns
Roadways represent a key element of the
public realm and, therefore, one of the prime
opportunities to effect change in a community.
Bridge Street, part of the Essex Heritage
Scenic Byway system, forms the spine of the
neighborhood. This arterial provides access to
the bridge to Beverly on the north and Salem’s
downtown to south. Approximately a decade
ago, a bypass road was constructed. The bypass
road is located adjacent to the train tracks on
one side and what is in effect the back of the
neighborhood. Because of this the roadway can
provide an unfettered higher speed connection
through the study area. Off of Bridge Street are
“local streets,” which are classified for providing
access from the parcels along them to arterials.
Bridge Street functions in two ways: it still
functions as an arterial, meaning its purpose
is to provide connections for vehicles to other
areas. But it also functions as a mixed-use
corridor with a rich mix of businesses catering
to the neighborhood itself. The needs of a
neighborhood corridor differ from a traditional
arterial, such as the bypass road. Since the land
use pattern and the scale of the neighborhood
makes the area very walkable, maintaining a
safe and inviting pedestrian environment will
be a critical component to sustain the corridor’s
vitality. The types of land uses and urban design
characteristics help promote walkability and
the vibrancy that residents often want for these
neighborhood corridors.
The diagram on the right depicts as a typical
cross section for Bridge Street. The street within
the study area is generally a single lane in each
direction with on-street parking along either side.
The vehicular travel lanes are approximately 15
feet wide and the parking is 10 feet, totaling
50 from curb to curb. Sidewalks run along both
sides of the street and are around 8 feet wide.
As noted previously, the location of the building
in relation to the lot line, as well as the location
of parking, has a tremendous effect on a street’s
character. Setbacks vary widely along Bridge
Street. In some cases the building meets the lot
line, providing the effect of a walkable, downtown
street, and in other locations buildings are set
back more than 100 feet with rows of parking (or
storage) in front.
The mass of the buildings is another factor
affecting a street’s character. Buildings of a similar
size and mass can provide a harmonious effect
on a street. Conversely, dramatic changes in the
heights and widths of buildings can provide a
jarring effect on the street’s character. Buildings
on Bridge Street are generally two to three stories,
with some single story structures throughout.
There are several takeaways regarding the
neighborhoods roadway network:
• Given the bypass road’s purpose of diverting
high speed traffic away from Bridge Street,
Bridge Street itself should serve as a local
neighborhood road with lower speeds and
safer conditions for pedestrians.
• There appears to be an opportunity for on-
road bicycle facilities, i.e., buffered bicycle
lanes, which was identified as a high priority
project in the City’s Bicycle Master Plan.
• Sidewalk quality and amenities vary throughout
the corridor.
• Street parking provides a buffer for
pedestrians from traffic but can also reduce
visibility when crossing
• Large front setbacks with parking in front
of buildings in some locations diminishes
walkability
• Single story buildings with frontage on Bridge
Street indicate that the corridor’s full economic
potential may not be fully realized.t
23
Transportation Network
Typical Cross Section of Bridge Street
Arterial Local Street
Multi-Use
Path
MassDOT Roadway Functional
Classification
Buildings range
from 1-3 stories
Setbacks range from
0’ to > 100’
8’10’15’
50’
15’10’8’
*Measurements are approximate, based on visual imagery
Bridge Street
East Collins Street
tIn some cases (e.g., Brake & Clutch storefront, single story buildings should be preserved for their contribution to the historic
character of the neighborhood.
24 Salem Bridge Street Neck Neighborhood Vision Update
3.0 Existing Conditions
3.5 Composite Mapping of Challenges and Opportunities
The list below and diagrams on the right summarize a number of the strengths and challenges that
currently exist in the neighborhood.
Strengths
A. Sidewalks. Sidewalks extend consistently along Bridge Street
B. Multi-use path. The multi-use path provides off-road bike and pedestrian mobility
C. MBTA bus. The MBTA Rt 451 bus runs along Bridge Street, providing access to north Beverly
D. Proximity to downtown. A large portion of the study area is a relatively short walk to the
downtown and MBTA commuter rail station.
E. Building scale. Portions along Bridge Street, especially in the southern half, have a “fine grain”
scale that promotes walkability.
F. Ground-floor retail. Several developments along Bridge Street have ground-floor retail meeting the
edge of the sidewalk, improving the pedestrian realm.
G. Diversity of businesses. The neighborhood has a wide variety of businesses and services to meet
the needs of the neighborhood and city at large.
H. Beach and parks. There are numerous open spaces and beach access in the neighborhood.
I. Elementary School. The Carlton Innovation School underscores the family-friendly nature of the
neighborhood and serves as a hub of social activity.
Challenges
A. Location of Parking. Parking is the dominant visual feature along portions of Bridge Street.
B. Lack of full multi-use path network. Currently, the there are gaps in both the multi-use path itself,
as well as connections to other local multi-modal networks.
C. Lack of bicycle facilities. Bridge Street lacks bike facilities and bike parking.
D. Wide curb cuts. Portions of Bridge Street have wide and frequent curb cuts, hindering pedestrian
safety.
E. Potentially unsafe crossings. Many intersections along Bridge Street may provide a danger to
pedestrians attempting to cross the street.
F. Relatively long distance to downtown. Portions of the neighborhood are relatively far for
pedestrians to access the downtown and commuter rail station. (For example, the 99 Restaurant is more
than a mile from the downtown.)
G. Lack of cohesive built form. The character and quality of building design along Bridge Street
varies considerably, particularly post 1950s commercial developments on larger parcels.
H. Existing non-conforming uses. Salem’s ordinance allows for redevelopment of an existing non-
conforming use to another, less detrimental non-conforming use, which may not necessarily be in keeping
with the neighborhood’s vision.
25
I
H
D
A
A
F
F
C
C
G
G
E
E
Bridge Street Neck Neighborhood Strengths
Bridge Street Neck Neighborhood Challenges
B
B
D
H
4.0 COMMUNITY VISION
Salem Bridge Street Neck Neighborhood Vision Update
The Bridge Street Neck Neighborhood Vision:
The Bridge Street Neck Neighborhood is a historic, family-friendly neighborhood an proud
part of Salem, welcoming to residents of all ages and affordable across a range of incomes.
The neighborhood celebrates a strong identity, based upon its history and coastal location.
Building on its historical commercial strengths, local and small businesses thrive along
Bridge Street, supported by both neighborhood residents, as well as visitors. Clusters of
retail and mixed-use development are interspersed with residential development, helping to
maintain the neighborhood’s character. The neighborhood is resilient, seeking to minimize its
contributions to climate change, while also adapting to changes taking place.
Sidewalks, pedestrian crossings, and paths create a safe network for pedestrians and cyclists
within the neighborhood and to other parts of the City. The appropriately scaled blend of
retail, restaurants, services, residences, and smaller-scale office spaces attract business, jobs
and increased consumer spending along Bridge Street, while the neighborhood itself is safe
and attractive with a robust tree canopy, plantings, benches, lighting, and other amenities.
A critical aspect of the Bridge Street Neck Neighborhood visioning effort was hearing from local
residents and business owners to understand how they want their neighborhood to function, look,
and feel. Through an interactive forum (described more fully in the following chapter), residents
communicated their vision for the Bridge Street Neck Neighborhood’s future. The following is a
vision statement that will serve to help guide future decisions and investments.
What kind of Bridge Street Neck Neighborhood do we want?
28 Salem Bridge Street Neck Neighborhood Vision Update
4.0 COMMUNITY VISION
4.1 Vision Statement
29
4.2 Principles Supporting the Vision
The vision statement is supported by a series of principles. These principles provide greater
detail for how the vision will be achieved in the future.
A strong sense of identity. The neighborhood should take advantage of its location, unique
assets, history, and architecture to position itself as a distinct neighborhood within Salem. This
includes everything from the types of buildings retained and developed to wayfinding that
showcases the neighborhood’s history to programming of arts/culture activities.
Active commercial uses along Bridge Street. Uses, such as restaurants, cafes, and retail along
Bridge Street, especially where the building meets the sidewalk and parking is located in the rear,
help create a vibrant, pedestrian-oriented neighborhood. Both regulations and initiatives should
support all commercial enterprises.
Development at appropriate scale and of high quality design. Regulations should ensure that
the existing scale and height of the neighborhood’s buildings is maintained. While development
should not seek to mimic previous architectural styles, it should incorporate be compatible in style
and materials with existing buildings along the corridor.
Maintain housing affordability. As Salem becomes an increasingly popular place for people
to live, rising housing prices threaten to displace existing residents and limit who is able to afford
to move to the community. A number of efforts can help ensure Bridge Street Neck remains
affordable.
Traffic calming and other pedestrian safety improvements. The streets of Bridge Street Neck,
including Bridge Street itself, should be safe for all pedestrians.
Enhanced sidewalks and amenities. Being “walkable” goes beyond simply being safe for
pedestrians. Walkable areas are places that people want to walk and are comfortable doing so.
Widened sidewalks, an increased shade canopy, trash receptacles, benches, parklets, and other
amenities are also important, as is urban design based on human-scaled principles.
A network for cyclists. Shared multi-use paths should be extended and connected throughout
the neighborhood and connect seamlessly to other neighborhoods, supplemented by safe on-road
travel opportunities.
Invest in public spaces. Open spaces such as parks and beaches should be well-maintained
and, where needed, access should be improved. Programming and events can help make these
spaces more vibrant and well-used.
5.0 DEVELOPING THE VISION
Salem Bridge Street Neck Neighborhood Vision Update
32 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
The community vision was developed in
three parts that together form the basis for
guiding the future of the Bridge Street Neck
neighborhood. The primary activity to develop
the community vision was an interactive forum
held in September 2019. After a brief
presentation, community members -- including
residents, business owners, and City officials --
worked together in groups on three facilitated
exercises. Supplementing the work from this
forum was input from the Bridge Street Neck
Steering Committee, as well as City staff.
The first part is the Vision Statement and
accompanying principles, which articulate the
community’s vision. (See Section 4.) Groups
worked to develop their statements, which
were then synthesized and refined. The
Vision Statement is intended to provide the
general character, open space characteristics,
transportation elements, types of development,
and other goals. The principles provide a
degree of greater specificity that support
achieving the vision. Taken together, the Vision
Statement and Principles should guide the
development of the various recommendations
that will be applied to the Bridge Street Neck
Neighborhood.
The second aspect are a range of images that
help depict aspects of the vision. Each group
was asked to choose six images based on three
categories (described below). The groups had
the flexibility to have slightly more or less for
any of the categories. These visual images help
communicate the desired look and feel of the
neighborhood. The results of this aspect can
help inform zoning, design guidelines, aspects
of site plan review, and priorities of public
investments.
The images were based upon three categories
that will help shape the future of Bridge
Street Neck. The first are BUILDING
CHARACTERISTICS. These images help
communicate desired elements such as scale,
height, architectural style, architectural details,
materials, and uses. Generally, the images are
not intended to advocate for the replication
of a specific building or building type; rather,
these images help distill the key elements that
the community desires to help shape the vision
and associated recommendations.
The second category are STREET/SIDEWALK
CHARACTERISTICS. These images help
communicate priorities related to sidewalk
characteristics, pedestrian needs, bicycle
infrastructure, and how private development
interacts with the public domain.
The final category is OPEN SPACE/PLAZA
CHARACTERISTICS. The images communicate
the types of open spaces, both public and
private, that are needed in Bridge Street Neck.
Images include the types of amenities, intended
users, and the general feel of the open spaces
(e.g., natural state vs. manicured, softscape vs.
hardscape).
The third aspect is a concept plan that
illustrates both broad, neighborhood-level
desires, as well as specific, location-based
elements. Participants were provided with
cut-out “game pieces” representing various
uses, open space needs, street improvements,
etc. and worked together to place them on
an aerial map of the neighborhood. The
land use pieces were intended as “bubbles”
that provide general desires for an area of
the neighborhood, rather than for a specific
parcel. Participants were encouraged to use an
iterative approach, “testing” an idea, reflecting
on it, and refining as needed. The results of
the concept plan help visually communicate the
vision at the neighborhood scale.
33
Photos from the community forum
34 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.1 Community Forum
Among each of the groups there was a fair
amount of overlap for the vision statement,
images, and concept plan. But each group
also had its own focus and distinctions from the
others.
Community Forum Group 1
The first group focused on building images of
2.5 to three stories. Two of the images were
of single family homes on small lots. The other
four images were all of mixed-use buildings
with residences above ground-floor retail.
This group showed a clear preference for
traditional, moderately-scaled buildings. The
building faces have either narrow masses or
are articulated often. The buildings contain
peaked roofs, which further reduces structures’
mass. (The one example of contemporary
architecture was annotated to explicitly say the
group liked the mixed-use characteristics but
not the architecture itself.)
The street characteristics continued the theme
of ground-floor retail to activate the space, as
well as wide sidewalks with street trees and
other landscaping to buffer from the roadway.
The open space photos included plazas with
shade and seating, as well as a playground for
children.
The concept plan called for enhanced
streetscape along Bridge Street, as well as a
need for safe crossings at several intersections,
including at Skerry Street (which leads to the
Carlton School), March Street, and Ames Street
(before joining the bridge).
This group also saw a need to improve all of
the existing public open spaces, as well as to
create public access to the beach area behind
the 99 Restaurant.
The south part of the neighborhood would
largely stay the same. The group did see
the opportunity for more multi-family units on
the east side of the neighborhood in what is
currently the residential single family district.
This group would like to see additional mixed-
use development towards the north end of the
site.NORTHGroup 1 Composite Plan and Visual Imagery Choices (Opposite)
35
36 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.1 Community Forum
Community Forum Group 2
The second group chose a greater variety of
residential building types, ranging from smaller
single family to townhomes to triple deckers.
They also chose a slightly larger-scale mixed-
use building that was four stories (although
sloped roofs to reduce the building’s bulk). This
group also wanted a focus on retaining the
existing Victorian and Greek Revival buildings.
The street characteristics focused on safe
crossings, bicycle parking, and landscaping.
The open spaces focused on active spaces, such
as a playground, community garden, fitness
areas, splash pads, food trucks, and seating.NORTHThe district plan was focused on retaining the
positive aspects, including businesses, the school,
and unique buildings, and enhancing them with
mixed-use development along Bridge Street.
The group envisioned a new, updated hotel
to replace the existing Clipper Ship Inn that
would have mixed-use development along the
frontage.
The group believed that numerous intersections
along Bridge Street must be improved to
enhance safety. They also saw the need for
bicycle facilities along Collins Street to connect
with the playground and beach.
Group 2 Composite Plan and Visual Imagery Choices (Opposite)
37
Authentic Historic Victorian
and Greek Revival
[write-in note]
38 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.1 Community Forum
Community Forum Group 3
This group chose building images similar to
the previous one, except choosing a different
mixed-use example (potentially focusing on the
scale more than the architecture). This group
also chose a three-story multi-family building.
The images for street characteristics were
also similar to the previous group, with a focus
on plantings and buffering the pedestrian
experience from the roadway. In addition, this
group chose photos depicting bicycle lanes and
bike racks.
Finally, the open spaces put a focus on both
active uses and passive uses. Active use images
included two with playgrounds, underscoring
the need for high quality spaces for children.
Passive use images were quieter spaces for
sitting or passing through.
This group’s concept plan was the most holistic
and detailed. The group envisioned a number
of mixed-use nodes along Bridge Street, NORTHspecifically noting a desire for a small grocery
store and new hotel.
For multimodal transportation, the group would
like the see a continuation of the existing
shared-use path behind the Carlton School.
They would also like to see a new path or on-
road bike facilities that would connect from the
Collins Cove Playground through East Collins
Street and connecting to the bridge to Beverly.
Finally, the group cited the need for improved
crossing for pedestrians all throughout Bridge
Street, as well as the need to improve sidewalk
amenities along Bridge Street and a portion of
Collins Street.
Group 3 Composite Plan and Visual Imagery Choices (Opposite)
39
40 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.1 Community Forum
Community Forum Group 4
The final group chose images that focused
primarily on smaller scale residential. These
included modest-sized story homes, larger
single family homes, and triple deckers. All
of these residential uses are on smaller lots,
in keeping with the existing characteristics
of Bridge Street Neck’s residential areas.
The members of the group also chose a
mixed-use example, noting that they like the
materials, building articulation, and general
character; however, they would want this type
of building modified to be three rather than
four stories. This brick building is the closest
approximation to Salem’s downtown and is
a departure from the buildings along Bridge
Street in the neighborhood today. This was the
only group that chose fewer than six building
characteristics images.
For sidewalk characteristics, planters, seating,
and shade were key characteristics of the
pictures chosen. They also showed a desire
for ground-floor retail, wide sidewalks, and NORTHbicycle parking. Preferred open space
characteristics continued the desire for shade,
plantings, and seating. The group chose
pictures showing both park-like open spaces, as
well as more modern, hardscape plazas.
The concept plan was the “lightest touch”
among the groups. That is, there were the
fewest interventions and the most bubbles
to retain existing uses. The group saw the
opportunity for a couple of mixed-use nodes
along Bridge Street, one towards the south end
of the neighborhood and a second one at the
north end.
As with a previous group, this table saw an
opportunity for an updated hotel development
at the existing Clipper Ship Inn. The group
saw a need to improve the safety of the
intersection at Skerry Street. Finally, they felt
that the Charles Curtis Memorial Park could be
improved.
Commercial
Group 4 Composite Plan and Visual Imagery Choices (Opposite)
41
42 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.1 Community Forum
Community Forum -- Synthesis
Despite differences among the groups,
especially for the concept plans, the similarities
tended to outweigh these differences.
Furthermore, the groups’ various preferences
did not generally conflict with each other;
rather, they tended to reflect differences in
focus rather than in overall vision.
Some of the takeaways:
Retain the positive elements. The groups
viewed the future of Bridge Street neck as
an “evolution, rather than revolution” of the
existing neighborhood. Unique buildings such
as the Brake & Clutch building, cherished
businesses such as Coffee Time, community focal
points such as the Carlton Innovation School,
and the existing residential neighborhoods,
are all important to retain for the future of the
neighborhood.
Improve pedestrian comfort and safety
along Bridge Street. All groups cited
numerous locations where intersections should
be improved to enhance pedestrian safety,
especially along Bridge Street. In addition to
safety, the groups saw opportunity to improve
the amenities along Bridge Street Neck.
Improve pedestrian/cyclist realm throughout
the neighborhood. The groups found potential
opportunities for additional on- and off-road
paths to build upon Salem’s already strong
network of multi-use paths.
Increase mixed-use buildings. Ultimately
the amount of commercial uses that can be
supported in the neighborhood is a function
of market demand. Nevertheless, all groups
would like to see the amount of mixed-use
buildings along Bridge Street increase to the
extent that there is, in fact, market demand.
These mixed-use buildings provide ground-
level activation, which enhance the vibrancy of
Bridge Street and provide more amenities for
area residents.
Retain scale of neighborhood. With very few
exceptions, groups wanted to maintain three-
story maximums for buildings. In addition, the
tables chose buildings that either had relatively
narrow building faces along the street frontage
or were articulated often to provide the visual
effect of reduced masses.
Retain character of residential areas.
Groups wanted to generally keep the types
of residential buildings currently in place
throughout Bridge Street Neck.
Support local businesses. Through both the
vision statement and visual imagery exercises,
participants value the presence of businesses
that are complementary to the neighborhood.
Improve public open spaces. Bridge Street
Neck Neighborhood is fortunate to have
a number of public open spaces, including
multiple playgrounds and beach access. The
forum participants, however, felt that most of
these spaces could be improved.
43Top photos among tables at Community Forum
44 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.2 Concept Plan
The final component of the Vision is a
Concept Plan. The concept plan provides a
neighborhood-level view of the future land uses
and public realm improvements. Because it is a
high-level summary, accompanying the concept
map is a “zoomed-in” view that provides an
on-the-ground example of the concept plan’s
vision. This example, of one of the mixed-
use nodes envisioned in the plan, is provided
in the next section and further utilized in the
Implementation chapter.
Taken together, the Vision Statement, Visual
Imagery, and Concept Plan, guide the
recommendations outlined in the next section.
They should also help inform the various
decisions stakeholders make that will affect the
future of the Bridge Street Neck Neighborhood.
As such, all stakeholders -- including City staff,
City officials, land use boards, developers,
neighborhood advocates, etc. -- should refer to
this document to consider whether their actions
will advance the neighborhood vision.
The diagram on the top right provides a
“bubble diagram” illustrating one way the
vision could be realized from a land use
perspective. Generally speaking, forum
participants favored retaining the existing
uses throughout most of the neighborhood,
especially the residential areas. They also
envision Bridge Street continuing it’s evolution
with pockets of mixed-use development, along
with commercial and residential.
While this vision should be pursued at a high
level, it is important to note that, especially
along Bridge Street, the actual land uses
could develop in numerous ways and still
largely comport with the vision. The bubble
diagram depicts a nodal approach, where
mixed-use development is concentrated
along several points of Bridge Street. Under
current circumstances, it is unlikely there is
market demand for groundfloor commercial
along the entire stretch of Bridge Street in the
neighborhood. Furthermore, the timing of if/
when redevelopment occurs can vary based
on a multitude of factors. The neighborhood’s
and City’s role is to develop the framework
and set the conditions for redevelopment
to occur, described in the next section. The
framework, i.e., the zoning, should be flexible
enough to allow market conditions and
land-owner preferences to guide any future
redevelopment.
The diagram on the bottom right illustrates
other elements of the concept plan related to
connectivity and public realm improvements.
45
Concept plans
Mixed-Use Nodes
Retain residential uses and scale
Add streetscape improvements
and amenities to Bridge Street
Retain existing assets*
Between the mixed-use
nodes would continue to be
commercial or residential
properties
Extend multi-use path
Improve pedestrian intersection
safety
Enhance connection to BeverlyBetter signage for path
Improve parks
Explore path / on-road bike
facility options
*Coffee Time Bake Shop, the Brake & Clutch building, and the Carlton School were
identified as important neighborhood assets.
46 Salem Bridge Street Neck Neighborhood Vision Update
5.0 DEVELOPING THE VISION
5.3 Mixed-Use Node Example
The accompanying diagram represents an
example of a “mixed-use node” that could
be developed along Bridge Street. It depicts
a section on the west side of the street at
34, 28, and 40 Bridge Street. Note, this
diagram is hypothetical and intended to
demonstrate how future development and
public realm improvements can comport
with the neighborhood vision. It is not a
recommendation to redevelop these specific
properties.
The diagram includes a number of elements
that incorporate the neighborhood vision,
principles, and associated recommendations.
These include:
• Mixed-use buildings. Mixed-use buildings
typically have commercial space on the
ground floor and, generally, residential
above. The upper floor(s) could also
contain office space.
• A reimagining of the Clipper Ship Inn
into a more traditional, New England-
style inn. Multiple groups at the forum
expressed a desire to keep the lodging use
but in an updated development that would
better define the street edge.
• Context-sensitive scale. The heights
and massing of the buildings reinforce
the pedestrian-focused nature found
along portions of Bridge Street’s. Larger
buildings are articulated to avoid the
feeling of an overly massive structure.
• Parking location. Parking for new
development is located in the rear of the
building. Screening through landscaping
or other means can minimize the negative
visual impacts of existing parking lots, and
create a more desirable street edge that
has more visual interest at the pedestrian
level and fosters a welcoming environment
for pedestrians.
• Minimal setbacks. Buildings generally
meet the lot line at the sidewalk, creating
a walkable environment. Where setbacks
occur, they are generally to activate the
space with outdoor seating.
• Intersection improvements. Pedestrian-
safety elements are included, such as curb
bulb-outs and crosswalks.
• Bicycle facilities. Bicycle infrastructure
provides a safer, on-road way for bicyclists
to travel than the existing sharrows.
• Sidewalk amenities. Improving the
sidewalks along Bridge Street further
enhances pedestrian comfort and can help
stimulate economic development.
This mixed-use example will be used in the
following section, Implementing the Vision, to
further explain the various recommendations.
47
Hypothetical example representing a mixed-use node along Bridge Street*
Note, this diagram is hypothetical and intended to demonstrate how future development and public realm improvements
can comport with the neighborhood vision. It is not a recommendation to redevelop these specific properties.
6.0 IMPLEMENTING THE VISION --
ZONING RECOMMENDATIONS
Salem Bridge Street Neck Neighborhood Vision Update
6.0 IMPLEMENTING THE VISION -- ZONING
Because zoning regulates many aspects of
private development, it is one of the most
important tools the community has to help
implement the vision. Zoning creates the
framework for how land is developed or
redeveloped in the future.
Zoning ordinances can be complex and
have a number of unintended consequences.
Furthermore, there are often multiple ways an
area’s zoning could be crafted, each of which
could achieve the vision but also could have
various drawbacks. The recommendations
and an initial draft ordinance (included as an
appendix) are intended to be a starting point
for developing zoning appropriate to help
achieve the Bridge Street Neck Neighborhood’s
vision. It is expected that the City will work
with the Bridge Street Neck Steering Committee
to refine the zoning.
It is also important to note that while zoning
is a critical element, it is not the only element
needed to achieve the vision. The sections
following this contain recommendations by other
topic areas to create achieve the vision, i.e.,
creating a vibrant, affordable, family-friendly
neighborhood filled with local businesses and
easy to get around.
6.0 IMPLEMENTING THE VISION -- ZONING
6.1 Location and Boundaries of Zoning
Changes
Location and Boundaries of Zoning Changes
Regarding zoning, an aspect that was
unanimous among all participants in the
community forum was that the majority of the
neighborhood should retain its existing uses and
character. That is, the residential areas, which
comprise the majority of the neighborhood,
should remain so. The area is primarily zoned
as Residential Two-Family (R2), and based on
community input MAPC recommends no change
to these areas.
The primary focus for zoning changes should
be along Bridge Street itself. The previous
planning effort from 2012 proposed an
overlay district that would capture the Business
Highway (B2), Wholesale + Automotive (B4),
and Business Neighborhood (B1) districts. In this
updated planning effort, MAPC recommends
consideration to expand the parcels under
consideration to include all parcels along
Bridge Street, including those zoned as R2.
Several of these parcels already contain
businesses or dwelling units in excess of two
units and including them in the district would
make them conforming.
6.0 IMPLEMENTING THE VISION -- ZONING
6.2 Options for Rezoning along Bridge Street
Based upon the previous planning efforts,
input from City staff, and other considerations,
MAPC recommends drafting of an overlay
district for Bridge Street. With this approach,
the existing “base zoning” remains in place.
Landowners have the choice of developing
under the existing base zoning or choosing to
develop under the overlay district. The choice,
therefore, maximizes flexibility and options.
In making this recommendation, MAPC
considered alternatives. This section provides
a brief summary of each, as several of them
are viable options that, if the City and working
group agree, could be alternatives to an
overlay district approach.
Other Options Considered: No Changes to
Zoning
The base option is to make no changes to
the zoning. This is the default and would
not require any additional work. The
existing zoning, however, does not support
the neighborhood vision. As noted earlier,
50 Salem Bridge Street Neck Neighborhood Vision Update
Option Recommendation Summary Comments
Overlay District Preferred option A new district crafted to
fit the Vision
An overlay district retains the existing
base zoning, retaining existing rights
and providing maximum flexibility.
New Base Zoning Potential option A new district crafted to
fit the Vision
This would replace the existing base
zoning districts. Landowners would no
longer be able to develop under the
existing base zoning.
Expand and Modify B1
District
Not a preferred
option, but better than
making no changes
Expand the B1 district
and make modifications
to better reflect the
Vision
The B1 District allows for mixed-use
development, which is part of the
Vision. Dimensional standards can
be modified to better reflect the
Vision than the existing B1 standards.
Because this alters the base zoning,
a number of businesses will no longer
be conforming. Modifications to the
B1 standards would also affect B1
districts throughout the City, not only
Bridge Street Neck.
Expand B1 District Not a preferred
option, but better than
making no changes
Expand the
Neighborhood Business
District (B1) to replace
the existing B2 and
B4 districts along the
corridor
This is an easier approach than
making modifications to the B1
District, but a number of the existing
B1 dimensional standards are not
aligned with the Vision.
Amend B2 and B4
Districts
Not recommended Modify to the
Wholesale + Automotive
and Business Highway
Districts to better reflect
the Vision
Modifications to the B2 and B4
districts would affect these districts
throughout the City, not only in Bridge
Street Neck. Because they are by
nature auto-centric, the existing uses
and standards are appropriate for
these districts.
No Change to Zoning Not recommended Maintain existing zoning The existing zoning does not always
meet the neighborhood’s needs and
development could occur that is not in
keeping with neighborhood character.
Summary of Zoning Options Considered for Bridge Street Neck
51
change is occurring in the neighborhood, as
developers can apply for a Special Permit to
redevelop properties that are out of context
with the neighborhood; therefore, new zoning is
important to ensure future development meets
the needs of the neighborhood.
Other Options Considered: Expand B1
(Neighborhood Business) District
One option, and potentially the simplest to
administer, would be to expand the B1 district
north, substituting the B2 and B4 districts with
the B1 zoning (and potentially the R2 parcels
along Bridge Street). This was a consideration
in the previous planning effort. Critically,
since that time, B1 now allows for mixed-use
development.
While simplest to implement, expanding the B1
has two issues. First, it provides non-conformity
issues related to a number of the existing
properties in B2 and B4. It may be difficult,
especially politically, to rezone an area where
the existing uses would not be conforming under
the new zoning.
Furthermore, the dimensional standards of the
B1 are not fully reflective of the community’s
vision for development. In particular, the
current height limit of 30 feet may lead to
buildings that do not add to Bridge Street’s
character. The building height maximums for
the R1 and R2 are 35 feet. Allowing this extra
height allows for 3 stories with peaked roofs,
which is in keeping with the character. Thirty-
foot, three-story buildings would likely result in
flat roofs.
In addition, front setbacks in B1 are 15 feet.
The buildings from the visual imagery exercise
generally had buildings that met the sidewalk
directly with no setback. Indeed, many of the
buildings today have minimal setbacks.
Other Options Considered: Expand and Modify
B1
A second option would be both to expand
the B1 district and amend the dimensional
requirements to accommodate the issues
outlined above. This would more fully allow the
regulations of the B1 to comport with the vision.
The drawback to this approach is 1) there
are still the non-conformance issues described
above and 2) these changes will affect the B1
throughout the City. If the City chooses this
approach it should, therefore, consider the
impacts on the City’s other B1 districts.
Other Options Considered: Create a New Base
Zoning District
Another alternative is to develop a new base
zoning district. New base zoning would allow
for something tailored to Bridge Street and
would not affect other districts in the City.
New base zoning has some advantages over
an overlay district approach. For example, it
ensures that only those uses that are compatible
with the vision are allowed if redevelopment
takes place. With an overlay district, the hope
is generally that the market conditions will be
enough incentive for redevelopment to use
the overlay versus base zoning, but that may
not necessarily be the case. As such, some
communities have recently been eliminating the
use of overlay districts and relying on base
zoning instead.
The drawback, as with expansion of the B1
district, is that many parcels may no longer be
conforming. Pre-existing, non-conforming uses
would be grandfathered in under a new zoning
district; however, a variance would needed if
that business wished, for example, to expand its
property.
Perhaps more importantly, changing the base
zoning can be the most difficult to implement
52 Salem Bridge Street Neck Neighborhood Vision Update
because of political considerations. For
example, landowners may not want to operate
under conditions where it will no longer be
conforming to the allowable uses.
An option that may satisfy the concerns of
existing non-conforming uses and structures
would be to make specific provisions for
existing uses to not only continue but expand
if desired. Example language to serve as a
starting point is:
I. Nonconformance
A. Nonconforming Structures and Uses
a. Nonconforming structures lawfully in
existence prior to [date of new zoning
adoption] may be modified in conformance
with the provisions of this Article.
b. The [Special Permit Granting
Authority] may, by special permit,
allow a modification to a preexisting
nonconforming structure that extends or
increases an existing nonconformity, with
the following restrictions:
i. The gross floor area may not be
increased by more than twenty-five
percent (25%) from the gross floor area
in existence prior to [date], as identified
by the City Assessing Department.
ii. The building must be occupied or
intended to be occupied by either a
conforming use or an existing use as of
[date].
Other Options Considered: Modify Existing Base
Zoning Districts
Another option is to simply amend the B2 and
B4 to allow for mixed-use development, in
the way that B1 was amended. This raises
the same issues of amending the B1 district
but more significantly. Rather than relatively
minor changes to building heights and setbacks,
this would now allow mixed-use development
on all sites zoned B2 and B4. Because B1
is developed as a district for small-scale
commercial businesses, allowing residences
above these businesses makes intuitive sense.
B2 and B4, however, are by their nature auto-
centric. While it may make sense to allow
for mixed-use for these parcels along Bridge
Street, it likely would not be appropriate
for B2 and B4 districts in other parts of the
City. As such, MAPC does not recommend
this approach unless careful consideration is
given to these concerns and the implications of
allowing mixed-use in these districts.
Preferred Option: Create an Overlay District
The final option, therefore, is development
of an overlay district. As with new base
zoning, overlay districts allow for uses and
development styles that can be crafted to the
specific area. They also have the advantage of
allowing existing uses to remain in conformity.
The drawback to an overlay district is that it
allows land owners the option of choosing to
redevelop under the overlay district or the
base zoning. This could allow landowners to
choose the zoning option that does not help
realize the vision. It could also allow future
development that is in conflict with the desires
of abutters (e.g., a new automotive center
being constructed next to existing residences).
Despite these drawbacks, an overlay district
is a good approach where a community,
either for political reasons and/or where the
underlying uses are acceptable, wants to retain
its base zoning. Furthermore, the overlay
district can include incentives to encourage its
use.
53
6.0 IMPLEMENTING THE VISION -- ZONING
6.3 Proposed Bridge Street Neck Corridor
Overlay District
These recommendations can provide a
starting point for a new zoning district that
will help achieve the vision. Furthermore, the
recommendations would still apply if the City
in the future decides to create a new base
district rather than overlay district. (In this case,
the recommendations would still apply but the
draft text may be more appropriate for an
overlay district. For example, in the case of
new base zoning the table of uses and table of
dimensions would need to be amended.)
As an appendix to this Vision Update Plan,
a draft overlay zoning for Bridge Street is
provided. The draft includes elements and
inspiration from the previous 2012 zoning
effort, information from this current vision
planning, and other bylaws/ordinances in the
metropolitan Boston region.
This draft overlay district is intended to be
a starting point for the City and the Bridge
Street Neck Steering Committee to use to help
achieve the neighborhood vision. The City can
amend, add, and delete to this draft to refine
the zoning to best meet its needs.
The following summarizes aspects of the zoning.
Purpose. The zoning begins by summarizing
elements of the vision and principles from this
Vision Update that are relevant to zoning.
Uses. The October 2018 forum sought
feedback on proposed uses and found
strong support for a variety of uses, including
residential and mixed-use. Overall, the
Vision Update did not put a deep focus on
the numerous and detailed options for specific
uses. The draft provides a starting point that
allow for a variety of retail, office, residential,
and other uses that may be compatible with
the vision for future development along Bridge
Street. Because this is an overlay district,
existing auto-centric types of uses were omitted
from the draft. This section should be discussed
in detail and both the types of uses and
whether allowable by right or special permit
should be amended as needed.
Lot requirements. One of the key takeaways
from the community forum was a preference for
minimal front setbacks of new buildings along
Bridge Street. Where setbacks do exist they
should serve to activate the space, such as with
restaurant seating. Parking should be placed
in the rear or side of the building. The lot
requirements section sets these standards.
The lot requirements are also intended to be
flexible for the existing parcels, many of which
are relatively small, and to utilize this overlay
district in a way that allows development
to occur in conformance with the standards.
Minimum lot size, therefore, is set to 5,000 SF,
which would encompass most parcels in the
potential overlay district.
Building standards (general). Preference
at the community forum was for a maximum
of three story buildings. Building coverage
maximum was set at 75%, which is intended
to provide flexibility for creating a feasible
DRAFT overlay district: Lot standards diagram
54 Salem Bridge Street Neck Neighborhood Vision Update
development, especially on smaller parcels.
Other requirements, such as an introduction
of required open space for residential
uses, residential density limits, and parking
requirements would ultimately dictate the
amount of lot coverage possible.
Residential dwelling unit maximum is proposed
at 16 units per acre, which is often considered
a moderate density. As an example, this would
allow a 5,450 SF site (typical of the district), to
have ground-floor retail and two units above it.
Building standards (additional). The draft
overlay district goes a step beyond typical
zoning districts by providing greater specificity
of various standards. The purpose is to guide
development to more closely to fit into the
existing and historical context of Bridge Street.
The draft design guidelines emphasize the
importance of windows on the ground floor.
The draft overlay district, therefore, sets a
requirement for the amount of glazing required
on the front facade of the ground floor (60%
for commercial uses between 2 and 12 feet of
the first-floor facade).
There is not a single architectural style of
buildings along Bridge Street. The draft
overlay district, therefore, does not dictate
specific building styles of types. It does,
however, set standards for the overall form
of the building beyond height that will
integrate into the neighborhood context. The
general mass that would be appropriate for
buildings is provided, and, equally important,
a requirement for vertical facade modulation
of large buildings is set at every 40 ft. This
helps to visually reduce the bulk of any larger
buildings that may be built and fits with both
the existing context and the visual preference
exercise from the community forum. In addition,
because most buildings have pitched roofs, the
appropriate roof types are specified as part
of the standards. As some existing buildings
do have flat roofs, these are allowed through a
special permit.
Building standards (components). While
buildings’ architectural style varies along
Bridge Street, there are a set number of
“building components” common among a
number of buildings along the corridor
and which would be desirable to integrate
into future redevelopment. These building
components are accessory elements integrated
into the buildings’ massing to increase
building usefulness and provide a variety and
individuality of design. Common components
along Bridge Street include bay windows,
dormers, and shed dormers.
DRAFT overlay district: building massing options diagram DRAFT overlay district: Vertical articulation diagram
55
The draft overlay district, therefore, creates a
set of permissible building components which
are either found today along the corridor or
would be consistent with meeting the future
vision. Each component provides a description
and associated standards to help ensure high
quality design.
Parking standards. As noted, parking is
required to be at the rear or side of a building,
where possible. These standards also require
that where parking is visible from the street
(e.g., if placed on the side of a building), that
they are adequately screened from pedestrians
along Bridge Street.
The parking ratios were set based on generally
accepted best practices for the context similar
to Bridge Street Neck. As the vision process
did not specifically seek input on parking ratios,
this should be discussed closely among the City
staff and BSN Steering Committee.
In addition to the standards set, the overlay
district also provides the opportunity for a
landowner to reduce the parking requirements
through a special permit based on several
options, including:
• Availability of on-street parking
• Shared parking arrangements between
properties
• Shared parking based on a mixed-use
development
• Presence of a car-sharing program
• Availability of off-site parking
Screening requirements. To further enhance
the experience in the public realm, the overlay
provides requirements for screening loading
facilities, service areas, and mechanical
equipment.
Process. The overlay district uses language
from the current zoning ordinance, which
requires a site plan review for new commercial
construction of 2,000 square feet or more as
well as site plan review for 6 or more new
residential units. Since Bridge Street Neck is
an Entrance Corridor, the Design Review Board
will need to provide a recommendation to the
Planning Board on all site plan reviews.
Taken together, this draft overlay district seeks
to allow existing thriving businesses to continue
and to shape future development in a way
that is compatible with the existing context and
achieves the vision.
The City may wish to consider adding
additional controls for ensuring development
utilizing the underlying zoning districts include
historic preservation elements. This could
include requiring requiring Salem Historical
Commission approval for any building
alterations in the underlying zoning; requiring
that any structure 50 years or older in the
overlay district would need such approval;
and/or, recommending Local Historic District
designation concurrent with the zoning changes
and specifically addressing this under the
process section.
DRAFT overlay district: Building components diagram example
56 Salem Bridge Street Neck Neighborhood Vision Update
Proposed District
Zoning format Overlay District
Height 3 stories, 35 ft
Setbacks Front setback: 0-15 ft. Where front setbacks do exist the space should be used for seating
or landscaping, not parking. Side setback: 10 ft. Rear setback: 20 ft
Minimum frontage 60 ft
Min. Lot Size 5,000 SF
Max. Lot Coverage 75%. Open space and parking requirements will help drive the effective maximum lot
coverage.
Selected Uses To be determined. Generally, should allow for a variety of retail, office, residential, and
other uses that may be compatible with the vision for future development along Bridge
Street.
Ground Floor
Glazing
60% commercial; 30% other
Max. Building
Length
175 ft
Min. Vertical Facade
Modulation
40 ft
Open Space 15% if containing residential uses; 0% otherwise
Parking 1.25 spaces per Residential Unit, 4 spaces per 1,000 SF for Commercial Uses; 3 spaces
per 1,000 SF for other uses. Inclusion of options to reduce required parking.
Design Standards Potential inclusion of standards to better ensure high quality design and architectural
components that are compatible with existing Bridge Street Neck development and the
Vision
Site Plan Review Required
Summary of Proposed Bridge Street Neck Corridor Overlay District
57
58 Salem Bridge Street Neck Neighborhood Vision Update
7.0 IMPLEMENTING THE VISION --
OTHER RECOMMENDATIONS
Salem Bridge Street Neck Neighborhood Vision Update
59
Zoning, however important, is not the only
tool needed to help achieve the Bridge
Street Neck vision. The following sections
provide recommendations related to
managing neighborhood change (i.e., equity
considerations), pedestrian/bike improvements,
economic development considerations, potential
design guidelines, and establishing a historic
district.
7.0 IMPLEMENTING THE VISION -- OTHER
RECOMMENDATIONS
7.1 Managing Neighborhood Change
One of the elements of the vision is ensuring
that Bridge Street Neck remains affordable
and family-friendly. One of the concerns
facing the City of Salem is addressing the
effects of gentrification. Gentrification usually
coincides with one of two changes in housing
occupancy:
• Replacement: Replacement occurs when the
number and composition of out-migrants
does not change, but the people who move
in have different demographics from those
who move out. With this pattern, current
residents do not face pressure to leave,
but those who choose to are replaced by
residents with a different demographic
profile.
• Displacement: Displacement occurs when
the rate of outmigration is higher than it
otherwise would be because lower-income
residents move due to increases in housing
costs and a lack of affordable options. In-
migrants can afford a higher cost of living
and tend to have a different demographic
profile from those who move out.
The differences between these kinds of
housing occupancy changes can be subtle, but
meaningful. Importantly, either of them—not
just displacement—result in profound changes
in the demographic composition and social
cohesion of a community. It is vital, then, that
the City and community leaders take action to
manage the market inflation that results from
reinvestment and can prompt the relocation of
low- and moderate-income residents, either by
choice or displacement, to less accessible areas
where housing is more affordable.
One of the most powerful actions a Community
may have at its disposal is the adoption of
an inclusionary zoning ordinance. At the time
of writing of this report, the City has been
working on drafting and refining this important
tool to ensure that new market-rate residential
development includes a minimum percentage of
affordable units for various income levels.
Inclusionary zoning typically applies for
developments that would be larger than what is
likely in the Bridge Street Neck neighborhood.
The following are additional measures that
should be considered to help ensure the
neighborhood remains affordable.
Facilitate a Robust Housing Production and
Preservation Strategy
The City should demonstrate a commitment
to maintain and increase the diversity of
housing types and price points. Given that
41% of Salem’s 2,465 Subsidized Housing
Inventory (SHI) units could expire between
now and 2035, it is vital that the City work
with owners of expiring-use properties and
subsidy providers to renegotiate terms. The
MA Department of Housing and Community
Development regularly updates the SHI. The
City can monitor those properties approaching
60 Salem Bridge Street Neck Neighborhood Vision Update
expiration and conduct outreach to their
owners so that they’re aware of their option to
maintain affordability and how to do so.
At the same time, the City can work with the
development community to attract market-
rate residential projects that range in scale,
housing type, and unit size. Creative re-use to
large-scale development to smaller townhouse
or rowhouse projects, and rental projects
in particular, should all be considered. In
addition, the City can support the efforts of
the local community development corporation
and other affordable housing developers to
increase the supply of deed-restricted housing.
Adopt a Condominium Conversion Ordinance
In strong housing markets composed mainly
of rental housing stock, demand from higher-
income populations for ownership housing
incentivizes landlords to convert their units
from the former to the latter. Because Salem’s
housing is particularly vulnerable to conversion,
given not just its tenure but also its age and
scale, the City should adopt a condominium
conversion ordinance to protect tenants of
rental housing when the property owner
proposes to convert units to condominium or
cooperative ownership, or to gut or demolish
the structure.
The ordinance provides for various tenant
rights and landlord duties and obligations.
First and foremost, the ordinance stipulates the
percentage of units that may be converted
city-wide within a calendar year. Rental units
cannot be removed from the market without a
removal permit, typically issued by the Planning
Board after an application process. The Board
Friends,
family, +
neighbors
61
Pathways of Neighborhood Change
often considers the benefits to the citizens of the
city issuing the permit, the hardships imposed
on the tenant, the potential for relocating
the tenant to comparable housing in the city,
amongst other factors. The ordinance also
governs tenant notification of a conversion with
a given timeline. It provides the tenant with
the right to purchase the unit after conversion.
Should the tenant decide instead to relocate,
the ordinance requires the landlord to provide
reimbursement for moving costs.
Raise Funding for Affordable Housing
There are several strategies the City can
implement in order to raise resources to
support affordable housing production and
preservation. Salem should consider raising the
Community Preservation Act (CPA) surcharge
on property taxes. Salem voters adopted
CPA in 2012 in order to raise revenue for
historic preservation, open space and outdoor
recreation, and affordable housing through
a surcharge of 1%. This surcharge can be
as high as 3%. Salem should consider a slight
increase to 2% in order to raise additional
funds for CPA-allowed activities.
Use Developer Agreements and Community
Benefits Agreements
As markets heat up, municipalities find
themselves in a position to negotiate with
the development community for the public
good. Towards that end, Salem should
adopt a standard articulating City values
for negotiating with developers to generate
resources and amenities that advance equity,
specifically affordable housing. There are
two primary ways to do this. The first tool is
the developer’s agreement. This is a contract
entered into between a municipality and a
property owner, typically the developer, that
provides the latter with certainty that their
project will be immune from zoning changes
over the course of development in exchange
for benefits to the city, such as infrastructure
improvement or monetary payments.
62 Salem Bridge Street Neck Neighborhood Vision Update
Summary of Vulnerable Housing Stock, Salem
The second tool is a Community Benefits
Agreement (CBA). This is a contract signed
by a community group or a coalition of
community groups and a real estate developer
that stipulates the latter will provide specific
benefits and/or mitigations to the community
in which new development is occurring. It is a
tool intended to empower those traditionally
left out of the planning process for their own
communities. Benefits could include green
building requirements, public space, and, as
is recommended here, inclusion of affordable
housing.
Consider Adopting Just Cause Eviction Controls
Increased housing demand from a higher-
earning demographic can incentivize landlords
to raise rents or even evict current tenants in
order to replace them with new ones that can
afford higher housing costs. Just Cause Eviction
Controls (JCEC) deter landlords motivated to
evict tenants to raise rents by requiring them
to identify a proper reason like failure to pay
rent or destruction of property.
Salem has significant populations of those
typically most prone to eviction: low-income
and fixed-income households, people of
color, and the elderly. JCEC can protect
these tenants from discrimination while also
curbing rapid rent increases by preventing
high rates of turnover -- an important
strategy for preserving affordable housing in
emerging housing markets. This stabilization
of the community during periods of growth
ensures that existing tenants benefit alongside
developers, landlords, and newcomers.
Salem should first assess and, if needed,
foster community and political support for
JCEC. In order to implement and enforce such
a policy, the City will need both local and
state approval. In Massachusetts, landlord-
tenant relationships are usually regulated
by the State, so the City must submit a Home
Rule Petition to the State legislature to secure
regulation authority over the JCEC. The policy
must also be adopted by City Council.
Monitor impacts of neighborhood change on
vulnerable populations
The City of Salem should identify and monitor
benchmark indicators on demographics and
housing in order to evaluate the efficacy of
managing neighborhood change strategies
recommended herein, and revise as needed in
response to shifting trends. If it is determined
that unfavorable changes are occurring
within the City’s population composition, the
regulations recommended above can be
strengthened.
63
7.0 IMPLEMENTING THE VISION -- OTHER
RECOMMENDATIONS
7.2 Connectivity Improvements
Improving multi-modal connectivity is one of the
most important elements of the Bridge Street
Neck Neighborhood. This recommendation has
two broad categories:
1. Safety improvements for both pedestrians
and bicyclists
2. Public realm improvements within the public
rights-of-way
Bike-Ped Safety Improvements
The Bridge Street Neck Neighborhood should
be safe to travel for pedestrians and bicyclists
of all ages and abilities. Particular emphasis
should be placed at intersections along Bridge
Street, which were pointed out as an issue by
all groups at the forum.
A critical aspect of improving bike-ped
safety is “traffic calming,” which seeks to slow
vehicular travel speeds. The presence of the
relatively high-speed bypass road provides
an opportunity for Bridge Street itself to have
slower travel speeds. Slowing vehicular travel
speeds can dramatically improve safety, as
motorists have more time to react. Additionally,
studies show that if a conflict does occur with a
pedestrian or cyclist, they tend to be far less
severe at speeds below 25 miles per hour.
There are numerous traffic calming strategies,
ranging from lower cost, near-term solutions to
more expensive infrastructure investments. The
Bridge Street Neck Neighborhood Association
recently petitioned the City for a traffic
calming program, which contained a number of
potential elements. A transportation planning
firm, focused on bike-ped issues can assist the
City with prioritizing the neighborhood’s needs
in a holistic manner, using a wide range of
solutions. The Urban Street Design Guide from
the National Association of City Transportation
Officials also provides guidance for a number
of conditions along city streets. Focus should
be along Bridge Street, as well as entry from
Beverly, as vehicles may be traveling at high
speeds from the bridge.
The accompanying diagrams provides an
example of an intersection improvement.
A) Curb bump outs reduce crossing distance
and increase the visibility of pedestrian
crossing the street. Flashing crossing beacons
can also be installed at key intersections.
B) Crosswalks should be in the continental or
ladder style, which are more highly visible
than other styles. Although more expensive,
thermoplastic is a highly visible, more durable
material than paint. Raised crosswalks which
force cars to reduce speed and further raise
pedestrian visibility could also be considered.
C) Sidewalks run the length of Bridge Street.
They should remain in good repair. Brick, if
maintained properly, can be an attractive
alternative that suits the historic character of
the neighborhood; however, if not properly
maintained can become uneven, providing a
hazard for people with disabilities.
D) Sidewalks should remain free and clear
for at least three feet from shrubs and
other potential impediments for people with
disabilities.
E) Reduce curb cuts. The more pedestrians
64 Salem Bridge Street Neck Neighborhood Vision Update
have to cross the paths of cars, the more
chances for conflict that arise. Curb cuts should
be minimized to the extent possible.
For bicyclists, the vision calls for an extension
of the multi-use path, as well exploration of
new connections. The City has also recently
completed a Bicycle Master Plan. The relevant
recommendation is:
F) Install buffered bicycle lanes along Bridge
Street. Buffered lanes provide increased
comfort and safety from traditional bicycle
lanes by increasing the distance between
the cyclist and vehicles. The design should
follow the latest guidance from MassDOT (see
its Separated Bike Lane Planning & Design
Guide).
65
Examples of bike-ped safety improvements on Bridge Street
A
B E
F
F E
C
C
D
D
B
A
frequenting nearby cafes and restaurants.
With an almost limitless potential of various
designs, they can help the neighborhood create
a sense of place.
F) Bike parking. Finally, bicycle parking should
be provided at convenient locations along
Bridge Street, using high quality bike racks.
7.0 IMPLEMENTING THE VISION -- OTHER
RECOMMENDATIONS
7.3 Economic Development
The neighborhood envisions thriving small
and independent businesses along Bridge
Street. The following recommendations
provide strategies for positively impacting
economic development, especially for retailers.
Supplementing these recommendations, the
City should consider relevant recommendations
from the Salem Downtown Retail Action
Plan (December 2017). Note that all of the
recommendations in this report, from pedestrian
improvements to zoning changes play a role in
economic development.
Work with Existing Property Owners to Improve
Properties
• Implement Façade and Sign Improvement
Programs. This can be done through the
City or through organizations working
to revitalize downtown Bridge Street
Neck. Grants to business owners can
be reimbursable and can set signage
guidelines. Many communities have
employed local artists to work on signs.
This could help further the neighborhood’s
Public Realm Improvements
Ensuring pedestrian and bicyclist safety
is a minimum step towards achieving the
neighborhood vision. The neighborhood
must also be comfortable to walk and bike
through the implementation of public realm
improvements.
Public investment in the street network should
be combined with private investment in
property redevelopment and improvement.
Public investment in the streets is a viable
technique to encourage private investment
in a district and can be used to strengthen
walkability and bikability.
Elements include:
A) Sidewalk amenities. Amenities include trash
receptacles located in convenient locations.
Seating is another important amenity.
B) Pedestrian-scale lighting. Adequate lighting
improves both comfort and feelings of safety.
Not only along Bridge Street, but the multi-use
path, near parks, and other locations should be
adequately lit.
C) Street trees. Street trees can improve the
visual character of the street. They can also
provide shade during the summer months and
various of environmental benefits.
D) Al fresco dining. Allow outdoor dining
to increase liveliness along Bridge Street
(potentially with City approval).
E) Parklets. The City should also consider
installing “parklets” in areas with potentially
large numbers of pedestrians. A parklet is a
sidewalk extension that provides more space
for people using the street. They generally
extend out from the sidewalk and often occupy
one of more on-street parking spaces. The
parklets can provide seating for people
66 Salem Bridge Street Neck Neighborhood Vision Update
E F
67
C
C
B
B
A
A
Examples of public realm improvements on Bridge Street
D
D
arts + culture reputation. These programs
can also be applied block by block as was
done by Beverly Main Streets.
• Sponsor Workshops and Provide
Resources to Existing Property Owners.
Working with existing property owners
can help determine why certain property
owners may not be re-developing or
improving their properties. Identifying
these issues can help the City and
neighborhood partners to think through
how to best address these issues. There are
many potential issues that might come up in
these conversations including parking, the
cost of renovation versus the market rents
that property owners can charge, etc.
Support Existing Local Businesses
• Work with Current Retailers to Implement
Retail Best Practices. There are many
resources available that can help individual
retailers to employ best practices related
to different aspects of their business,
including window displays, colors, lighting,
and arranging space. The Massachusetts
Downtown Initiative often awards technical
assistance related to working with
individual retailers.
• Collaborate to Plan Additional Events
That Attract New Customers to the
neighborhood. Programming through
various events can be a critical element in
both placemaking and positively impacting
economic development. Bridge Street Neck
stakeholders should plan events that attract
people to the neighborhood and help to
boost the customer base for existing local
businesses.
• Utilize Revolving Loan Fund. A small loan
fund (e.g., the existing Bridge Street Neck
Commercial Corridor fund) can be used
to support local businesses in a variety of
manners.
• Encourage Businesses to Take Advantage
of Existing Resources. There are many
state programs, such as the Massachusetts
Downtown Initiative, as well as nationwide
marketing campaigns, such as Small
Business Saturdays, that can provide
technical assistance to small businesses.
Market Bridge Street Neck to Attract Interest
from Developers, Commercial Establishments, and
Potential Customers
• Create Cohesive Brand and Marketing
Materials for Bridge Street. Emphasizing
the neighborhood’s assets can help create
a place close to but distinct from Salem’s
downtown.
• Identify and Recruit Retail Stores That
May Be Interested in Opening on Bridge
Street. Steps include:
• The Chamber of Commerce or similar
group can hold networking events for
existing and prospective neighborhood
business owners.
• Maintain a list of interested/prospective
retailers that can be matched up with
space on Bridge Street once it become
available.
• Focus on recruiting restaurants as they
are often a top attractor to an area,
consistently cited in studies as a top
reason why people want to visit a new
place. Restaurants also tend to do
better when there are many of them
located in one place as they create
68 Salem Bridge Street Neck Neighborhood Vision Update
more of a dining destination that can
draw people in.
• Another focus should be on arts-
related businesses and entertainment
options that can help to boost the
neighborhood’s cultural assets.
• Provide Retail Incentives Programs to
Attract Retailers. Incentive programs
that offer grants or seed money to new
retailers can be an effective way to bring
in new business. In Beverly, the Main
Streets program granted new retailers
a small amount of money for first year
rent assistance and also offered free/
discounted services (legal, printing,
website, light pole banners, etc.). Tenants
had to agree to certain terms including a
longer term lease and applications for the
program were based on business type,
impact on the downtown, experience of the
owner, as well as a number of other factors.
This could be a model for groups working in
Bridge Street Neck to explore.
• Work with Real Estate Brokers. It is
important for real estate brokers to
understand the vision and the advantages
of attracting particular types of tenants
to difference spaces on Bridge Street.
They are the ones who are showing space
to potential tenants. Communicating the
benefits of a thriving corridor with quality
tenants can help them to more efficiently
fill up additional space and attract future
tenants. Brokers are a critical partner in
helping to revitalize a mixed-use corridor.
• Utilize City Website to Post Economic
Development Resources. The City is
currently working on developing a new,
improved economic development website,
which can be a resource for businesses,
including those in Bridge Street Neck.
The City should also consider working
with or supporting organizations in the
community that maintain databases of
available commercial properties and/or
vacant properties that may be available
for redevelopment. A copy of the
Bridge Street Neck Neighborhood Vision
Update plan should also be available for
developers and potential tenants to easily
access.
Expand the Market
• Increase Residences in the Study Area. In
order to increase the market opportunities
for additional retail establishments, it is
important to consider ensuring adequate
housing supply remains in the neighborhood.
Creating additional housing, including
along Bridge Street with pockets of slightly
higher density residential, can increase the
customer base for businesses. Retailers
often look for locations that have a higher
number of residences because it promises a
better customer base and the opportunity
for higher sales.
69
7.0 IMPLEMENTING THE VISION -- OTHER
RECOMMENDATIONS
7.4 Design Guidelines
The physical character of development
in the neighborhood is another important
aspect of the community vision. Traditional
zoning ordinances include aspects that
affect the physical form of structures, such
as heights, setbacks, etc. But these can be
“blunt instruments” for guiding the look and
feel of future development. The Zoning
Recommendations section and accompanying
draft overlay district seek to incorporate
additional elements that can help ensure high
quality design.
An alternative or supplement to the design
elements included in the overlay draft would
be to develop and adopt neighborhood
design guidelines. While advisory in nature,
this document would communicate the
neighborhood’s expectations for ensuring high
quality design and assist with site plan review.
They could also extend beyond the proposed
overlay district boundaries and apply
neighborhood-wide.
The elements described below can provide a
starting point. In addition, the City previously
commissioned a document called Sample
Bridge Street Neighborhood Preservation
District Design Guidelines. Although not
officially adopted, much of the guidance
remains relevant and could be incorporated
into an updated design guidelines document.
The City also has commercial design guidelines
for commercial development meeting a certain
size threshold in its entrance corridors, including
Bridge Street Neck.
An alternative to developing an entire design
guidelines document would be to reference
this document for the Design Review Board to
reference in formulating their recommendation
to the Planning Board for site plan review.
Site + Building Design
Building investments should strengthen the
neighborhood, reinforce its intimate and historic
scale, and contribute to the vitality, activity, and
continuity of a walkable place.
A) Building Orientation. Buildings should be
located and oriented towards the street.
B) Building Mass. The historic context of the
neighborhood should be respected. Large
buildings should be visually reduced by
changes in the massing, architectural elements,
and other articulations. Generally, larger
buildings should be articulated into bays of 40
feet or less.
C) Setbacks. Historically, buildings had minimal
front setbacks along Bridge Street. New
development should generally have minimal
setbacks, as well. Setbacks are appropriate
to provide outdoor seating. Setbacks may also
be used strategically to set apart signature
buildings.
D) Reduce Visual Impact of Parking. Parking
should generally be located in the rear of
buildings. Where possible, driveways should
be consolidated.
E) Sensitive Building Height. The building
height of future development should be
sensitive to its context, such as through stepping
down a portion of the building of nearby, lower
buildings.
F) Interesting Rooflines. No one roof type
characterizes the neighborhood’s buildings,
although the front gable is most common. Roofs
of new buildings should respect the styles that
currently exist.
70 Salem Bridge Street Neck Neighborhood Vision Update
71
C
C
D
D
A
A
E
F
F
B
B
Site and Building Design Elements
H
Example of inappropriate development with features
such as pyramidal-shaped corner pavilion that is not
compatible with context. (Source: Bridge Street Pres-
ervation Design Guidelines)
G Example of appro-
priate alteration
where bay window
is an appropriate
scale to existing
structure. (Source:
Bridge Street
Preservation Design
Guidelines)
E
G) Strategic Modifications. The draft
Preservation District Guidelines provides
extensive guidance for alterations to existing
buildings. These should be reviewed and
incorporated as appropriate into updated
Design Guidelines.
H) Appropriate Building Design. Bridge
Street Neck has experienced almost continuous
development over its three centuries of
existence, resulting in a number of historic
styles. While new development does not need
to mimic previous styles, it should be designed
in a way that is compatible with the character
of nearby existing properties.
Facade Design
Building investments should improve character
and quality by elevating design, using high
quality materials, and increasing visibility of
vibrant activity. The following are primarily
applicable to commercial and mixed-use
buildings.
A) Facade Organization. Often, facades can
be divided vertically into a base, middle, and
top with distinct visual cues for each section.
The base provides the anchor for the structure,
while displaying ground-floor activity. The
middle portion reflects uses on upper floors,
often with smaller, regularly spaced windows
on and different facade materials. The top of
the building transitions and integrates with the
roof.
B) Active Ground-floor Uses. Activity on the
ground floor, facing the street, strengthens the
vibrancy of the neighborhood. This activity
traditionally includes shops, restaurants, and
other businesses. It may also include residential
lobbies, community rooms, exercise rooms,
cafes, or gallery spaces.
C) Ground-floor Windows. The ground floor
of buildings should generally include a higher
percentage of windows compared to the
rest of the building (60% is often a target).
Glass should be clear, as opposed to tinted or
reflective.
D) Canopies and Awnings. Canopies and
awnings can be used to provide a human-
scaled element to the ground-floor of buildings
by reducing the building’s appearance of bulk
and mass. They also provide protection from
the elements.
E) Architectural Details. Architectural details
characterized by simple facade details
help reinforce the neighborhood’s character.
Facade details can draw attention to the
doors, windows, ground floor levels, cornices,
and eaves of buildings. They can also help
modulate the mass of large buildings by
dividing them into a patter of smaller bays.
F) High Quality Materials. Authentic and
natural materials, such as clapboard (wood
or composite), stone, and brick, should be
used where possible. Vinyl siding and similar
synthetic materials should generally be
avoided.
72 Salem Bridge Street Neck Neighborhood Vision Update
73
C
C
D
D
A
E
E
B
B
Base
Middle
Top Architectural details help
break down the mass of
large buildings
E
Facade Design Elements
F
Landscape + Open Space Design
Open spaces and landscape elements,
especially facing the right-of-way, should
strengthen the vibrancy of the neighborhood.
A) Plazas and Seating. Front setbacks can be
used to strengthen the area’s pedestrian focus
by using the space for seating. Seating could
be associated with ground-floor uses, such as
for restaurants or cafes. It could also be open
to the general public, such as small plazas.
B) Front Setback Landscape. Where front
setback areas exist for reasons other than
seating, high quality landscaping with native
species can enhance the public realm.
C) Screening Parking. Where parking lots do
abut Bridge Street, for example, at existing
uses, shrubs, fences, and trees can help create a
buffer between the sidewalk and lot.
D) Connections. Pedestrian walkways and
paths should provide connections throughout
the site and, where applicable, should form
connections to adjacent areas. Potential
connections could include multi-use paths, parks,
and neighboring properties. (Note, this element
is not depicted.)
E) Public Art. Public art should be used to
define and punctuate spaces available to the
general public. Art installations should maintain
clearances from pedestrian areas and be
constructed in materials that are durable, easily
maintained, and do not present safety hazards.
(Note, this element is not depicted.)
Other Design Guideline Elements to Consider
The elements described in this section can
provide a strong starting point for guiding
development in a manner consistent with the
Bridge Street Neck Neighborhood Vision.
Design Guidelines can build upon each of the
categories listed above. They can also provide
guidance on additional categories, such as
signage, lighting, and street design (in cases
where new roadways may be constructed).
The Sample Bridge Street Neighborhood
Preservation District Design Guidelines also
provides language regarding demolition of
structures more than 50 years old, which can be
reviewed and incorporated.
7.0 IMPLEMENTING THE VISION -- OTHER
RECOMMENDATIONS
7.4 Historic Preservation Tools
Many neighborhoods’ historic assets are
not well-protected from demolitions and
insensitive alterations. There are several
historic preservation tools available for
the neighborhood to consider as a way to
preserve the character of the Neck’s historic
buildings. The strongest form of protection
is a local historic district (or, alternatively, a
neighborhood preservation district). Salem
currently has four local historic districts,
protecting approximately 600 buildings.
The establishment of these districts has
numerous benefits, and it is critical that they
are established with neighborhood support.
They are not intended to create museums or
freeze a streetscape in time; instead, they are
designed to guide changes and alterations
to historic buildings in a manner that will
respect a building’s architectural heritage
and a streetscape’s overall scale. Salem’s
local historic districts, such as the Derby
Street Historic District, continue to be thriving
neighborhoods.
Other strategies, including changes in
local zoning and development policy, the
implementation of facade, home improvement
or other preservation incentive programs,
targeted planning efforts, preservation
74 Salem Bridge Street Neck Neighborhood Vision Update
restrictions, demolition delay bylaws,
neighborhood conservation districts, technical
and design assistance, public investments,
etc. can contribute to the goal of furthering
historic preservation and preserving community
character.
The Salem Historical Commission provides
a number of services to help communities
navigate the process (salem.com/historical-
commission).
75
CA
B
Setbacks can be used
for seating and similar
elements to activate
the space and add
vibrancy to the neigh-
borhood.
Front setbacks with
passive areas should
have high quality
landscaping to add
visual interest.
Shrubs, trees, and
fences can shield
parking lots from
pedestrians on the
sidewalk.
Landscape + Open Space Design Elements
CITY OF SALEM
BRIDGE STREET NECK NEIGHBORHOOD
VISION UPDATE