Historic Preservation Plan Update - 2015
2015
City of Salem Historic Preservation Plan Update
City of Salem
Department of Planning and
Community Development
Prepared by:
Community Opportunities Group, Inc.
Unless noted otherwise, all images in this document provided by Patricia Kelleher, Community Opportunities
Group, Inc.
The Salem Historic Preservation Plan Update has been financed in part with Federal funds from the National Park
Service, U.S. Department of the Interior, through the Massachusetts Historical Commission, Secretary of the
Commonwealth William Francis Galvin, Chairman. However, the contents and opinions do not necessarily reflect
the views or policies of the Department of the Interior, or the Massachusetts Historical Commission.
This program received Federal financial assistance for identification and protection of historic properties. Under
Title VI of the Civil Rights Act of 1964, Section 504 of the Rehabilitation Act of 1973, and the Age Discrimination Act
of 1975, as amended, the U.S. Department of the Interior prohibits discrimination on the basis of race, color,
national origin, disability or age in its federally assisted programs. If you believe you have been discriminated
against in any program, activity, or facility as described above, or if you desire further information, please write to:
Office for Equal Opportunity, National Park Service, 1849 C Street NW, Washington, DC 20240.
Table of Contents
Executive Summary ………………………………………………………………………………. 1
Chapter 1 – Historic Overview of Salem ……………………………………………............ 18
Preservation Timeline …………………………………………………………….. 25
Chapter 2 – Salem Today ……………………………………………………………………….. 27
Historic Neighborhoods …………………………………………………………. . 29
Historic Resources ………………………………………………………………… 41
Publicly-Owned Historic Resources ……………………………………………. 51
Overview of Previous Planning Studies ………………………………………… 59
Agencies & Organizations Engaged in Preservation Efforts …………………. 65
Chapter 3 - Existing Planning Efforts, Regulations & Policies………………………………. 76
Salem’s Historic Resource Inventory ….………………………………………... 76
Historic Designations …………………………………………………………….. 80
Existing Preservation Ordinances ………………………………………............. 85
Other City Regulations ……………………………………………………………. 92
Other Existing City Programs & Operations…………………………………… 93
Public Property Management …………………………………………………….. 95
Planning For Natural Disasters and Climate Change …………………….….. 96
Preservation Outreach and Education .………….…………………………….. 97
Chapter 4 – Issues, Opportunities, Goals & Recommendations ……………………………. 99
Promoting Salem’s History and Historic Resources ………………………….. 100
Promoting Economic Benefits of Historic Preservation ………………………. 103
Integrating the Arts and Historic Preservation ………………………………... 104
Identifying and Evaluating Salem’s Historic Resources ……………………… 105
Protecting Historic Resources and Historic Character ……………………….. 108
Other Preservation Tools …………………………………………………………. 115
Integrating Preservation Objectives into Zoning & Development Review … 117
Preservation & Management of City-Owned Historic Resources ……………. 124
Planning for Natural Disasters and Climate Change …………………………. 129
Funding for Historic Preservation Efforts ………………………………………. 130
Action Plan ……………………………………………………………………………………….. 132
Appendix …………………………………………………………………………………............ 143
• Studies Promoting Economic Benefits of Historic Preservation
• Historic Preservation Funding Sources
• Model Demolition Delay Bylaw
• Community Outreach and Public Comments
Executive Summary
For more than a century, Salem has engaged in efforts to protect,
promote and preserve its historic assets, from efforts in 1908 to save
the House of the Seven Gables to current efforts to preserve the
historic buildings of the Point Neighborhood. It has long been
understood that Salem’s heritage – as seen through its historic
buildings, landscapes and objects – defines its unique character and
sense of place and also serves as an important tool for the city’s
economic health. Today, Salem is home to world class museums,
historic and cultural landmarks, and some of the nation’s finest
examples of historic architecture. Passionate City staff and boards,
local organizations and numerous individuals work diligently to
preserve this heritage for residents and tourists alike.
Salem’s accomplishments are impressive. More than 4,300 resources are documented in the City’s
historic inventory, the third largest inventory in Massachusetts. The City has designated 600 buildings
within its four historic districts and has 31 resources protected with preservation restrictions. Salem also
has 33 individual properties and 20 multiple-property districts listed in the National Register of Historic
Places with an additional 112 properties included in Multiple and Thematic Resource Area nominations.
Many of the community’s most iconic historic buildings and landscapes are well-preserved, and the City,
local organizations and institutions, and private individuals are currently engaged in restoration efforts at
their historic properties. However, in spite of these impressive statistics, the majority of Salem’s historic
resources and many of its historic neighborhoods remain unprotected from inappropriate changes that
could alter or even destroy their architectural integrity, and past efforts to implement additional historic
regulations have been unsuccessful. There are also instances of private and City-owned historic
buildings and landscapes suffering from deferred maintenance and deterioration due to a lack of funding
and an awareness of their importance.
Commonly Used Acronyms
SHC Salem Historical Commission
DPCD Department of Planning and Community
Development
CPC Salem Community Preservation Committee
CPA Community Preservation Act
MHC Massachusetts Historical Commission
NR National Register of Historic Places
PR Preservation Restrictions
LHD Local Historic Districts
NHL National Historic Landmark
NCD/NPD Neighborhood Conservation/Preservation District
This Historic Preservation Plan Update seeks to serve as both an educational tool for fostering greater
awareness and appreciation for Salem’s historic resources and the role these buildings, structures, objects,
landscapes, and burial sites play in visually defining the City’s character and unique sense of place, and
as a guidance document to prioritize local preservation efforts. The Plan is divided into four chapters -
Salem City Hall
Salem Historic Preservation Plan Update 2015
Executive Summary Page 1
Chapter 1 provides an overview and timeline of Salem’s history and preservation activity; Chapter 2
discusses Salem’s historic neighborhoods and provides a summary of the city’s historic resources and the
City agencies and local organizations engaged in their preservation; Chapter 3 provides a review of the
City’s existing policies, regulations, and planning efforts related to historic preservation; and Chapter 4
discusses the opportunities and issues affecting Salem’s historic resources and presents recommendations
for the City to consider in future preservation efforts. The Plan culminates in an Action Plan that
identifies implementation responsibility and timelines for each of the recommendations.
The Planning Process
In 2014, the City received a matching Survey and Planning Grant from the Massachusetts Historical
Commission to update its Historic Preservation Plan, which was last prepared in 1991. With support
from the Department of Planning and Community Development and the Salem Historical Commission
staff, the City hired Community Opportunities Group (COG) to assist with the endeavor. This 2015 Plan
Update represents a yearlong effort to identify and evaluate Salem’s historic resources and to identify the
issues affecting their future protection.
To gather public input for the Update, the City held three community meetings – a preservation partners’
focus group forum and two community-wide meetings. In addition, COG presented updates on the
project to the SHC at two of their regularly scheduled meetings. Attendees at the focus group forum,
which included representatives from all of the city’s preservation groups, participated in a SWOT
(strength, weaknesses, opportunities and threats) exercise to identify Salem’s strengths, weaknesses,
opportunities and threats related to historic preservation in the city. At the community-wide meeting,
attendees identified and prioritized the city’s most threatened historic resources and began a discussion
of their future preservation needs. COG also met individually with various city staff and local
preservation partners to gather additional insight into Salem’s wealth of historic assets and their
preservation needs. Representatives from the following groups provided information that is
disseminated in this Plan:
Cemetery Department Historic Salem, Inc. Salem Athenaeum
Planning & Community Development House of the Seven Gables Salem Chamber of Commerce
Destination Salem National Park Service Salem Historical Commission
Essex National Heritage Commission Parks Department Salem Main Streets
Friends of Greenlawn Cemetery Pickering House Salem Partnership
Hamilton Hall Salem Public Arts Planner Witch House/Pioneer Village
Historic New England
This community outreach informed much of this Plan and assisted the City with identifying current
preservation opportunities and concerns, including: the need for increased documentation and protection
of the city’s historic resources, the need for increased communication between the City, its agencies, and
local preservation partners, and the need for better integration of historic preservation objectives into the
development review process. While this plan is designed primarily as a municipal document to guide
City-sponsored efforts, it also acknowledges the important role that local preservation partners play in
preservation efforts. These organizations provide much of the city’s preservation education and outreach
efforts and own some of Salem’s most important historic landmarks.
Salem Historic Preservation Plan Update 2015
Executive Summary Page 2
Salem’s Preservation Partners
Historic Salem, Inc.
National Park Service
Essex National Heritage
Commission
Historic New England
Peabody Essex Museum
House of the Seven Gables
Hamilton Hall
Pickering House
Salem Main Streets
Salem Partnership
Destination Salem
The following is a summary of the opportunities and issues affecting Salem’s historic resources and
community character and the priority recommendations set forth in this plan to address the City’s
preservation needs. A complete analysis of Salem’s preservation needs and a full list of recommended
actions can be found in Chapter 4 of the plan.
Fostering Awareness and Appreciation of Salem’s History and Historic Resources
Increasing Educational Programming and Activities
To promote Salem’s heritage and historic assets to both residents and visitors alike, the City and its
preservation partners continue to engage in education and outreach initiatives, which include the
installation of interpretive markers and signage and the development of walking tours, informational
brochures, workshops, lectures, and events. Salem’s non-profit organizations undertake most of these
activities, including programming specifically designed to engage Salem youth in local history and
programs for historic property owners to address building maintenance and restoration concerns.
Identifying opportunities for the SHC to collaborate with local partners on education initiatives would
reinforce the SHC’s role as the municipal steward for all of Salem historic resources, not just those located
within local historic districts, and would help to increase support for instituting preservation tools
throughout the community. This could include programs and activities held during National
Preservation Month each May and other educational initiatives such as:
• Development of new signage at the entrances to the City’s historic districts, and the creation
of historic interpretive displays at City-owned properties; and
• Expanding the City’s website to include a separate interactive webpage focused solely on
promoting Salem’s heritage and historic assets.
Supporting Salem’s Preservation Partners
In addition to their educational efforts, Salem’s Preservation
Partners also own some of the city’s most significant historic sites.
These partners have all expressed an eagerness to work together to
accomplish common goals, but many expressed challenges with
limited funding and staffing capacity. Like the City of Salem, many
of these organizations own and manage significant inventories of
historic buildings, and, like the City, they face the ongoing
challenge of maintaining these buildings with limited financial
resources. Several are currently engaged in capital improvement
projects to address maintenance concerns, and restoration needs,
and these efforts could assist the City with its own restoration
projects. Instituting an ongoing dialogue between the City and its
preservation partners through regularly scheduled meetings and
online discussion groups would allow all of Salem’s preservation
groups to share and discuss preservation concerns and
opportunities.
Salem Historic Preservation Plan Update 2015
Executive Summary Page 3
Recommendations to support Salem’s preservation organizations and facilitate ongoing communication
between the City and its local partners include:
• Instituting quarterly meetings and a local online email system for Salem’s preservation
partners and SHC to discuss common concerns, explore cooperative opportunities, and share
resources;
• Supporting partners’ preservation efforts through the distribution of local CPA funds for
eligible projects that serve a public benefit, providing letters of support for grant applications,
and offering technical and construction support, when possible;
• Continuing efforts by preservation partners to collaborate with Salem teachers to further
integrate local history and architecture into the class curriculum and into after school
programs; and
• Continuing to support HSI’s ongoing educational work, including its annual Preservation
Awards program. The SHC should continue to recommend nominees for awards.
Promoting the Economic Benefits of Historic Preservation
Despite a general awareness of the important role that historic assets play in Salem’s economy, the city’s
preservation groups still struggle to build support for historic preservation in the community. Heritage
tourism, which has served as an economic engine in Salem for more than a century, has become
overshadowed by the city’s Halloween tourism industry. In addition, local developers and property
owners often perceive new construction and modern building materials as financially more beneficial
than reusing historic buildings, despite numerous national and statewide studies that document the long-
term cost savings and increased property values that result from restored historic buildings. Identifying
opportunities to highlight the economic benefits of historic preservation will continue to be important,
particularly during this era of increasing development activity in the city. Opportunities could include:
• Collaborative efforts between traditional historic preservation partners and tourism agencies
to promote Salem’s wealth of historic sites, art museums, and architectural assets to a new
generation of cultural tourists; and
• Promoting the economic benefits of historic preservation to local officials, residents,
developers, realtors, and historic property owners through symposiums, educational
sessions, newspaper articles, brochures and case studies that highlight the costs and benefits
of retaining historic buildings and materials.
Integrating the Arts and Historic Preservation
Salem’s heritage tourism efforts rely on the integration of the city’s artistic, cultural
and historic assets. The city is home to important works of historic sculptures and
other public artwork and many iconic historic buildings serve as museum space and
venues for performing arts and cultural events. Contemporary public art installations
can also reinforce this connection between art and history and help to make Salem’s
history relevant for all. Future initiatives could include collaborative efforts between
artists and historic preservation advocates to develop historically-themed artboxes,
murals, and downtown window displays as well as light installations to highlight the
city’s historic architecture. Supporting the use of City-owned buildings and properties
Salem Historic Preservation Plan Update 2015
Executive Summary Page 4
for art and cultural events, particularly events that promote the city’s heritage, will support the endeavors
of both local arts and preservation groups and will reinforce Salem’s identity as a vibrant and historic
community.
Protecting Salem’s Historic Resources & Community Character
Salem’s Historic Resources Inventory
Salem’s historic resource inventory is an important tool for fostering awareness and understanding of
local historic resources, both for City staff and for the general public. Information in the inventory can be
used by the SHC to encourage residents to consider historic designations and by other City agencies to
ensure the preservation of historic resources in the community during the development review process.
Therefore, continuing efforts to ensure that Salem’s inventory is complete and comprehensive is critical to
ensure that the city’s historic character is protected and preserved. Future survey efforts should focus on
updating older forms that lack important historical and
architectural information. This is particularly important for
older forms completed for resources in Downtown Salem,
which is experiencing significant new development and
rehabilitation of existing buildings. Other survey efforts
should include further documentation of underrepresented
geographic areas, such as South Salem, West Salem, North
Salem, Gallows Hills, and Castle Hill, and resource types
including historic landscapes, outbuildings, and mid-20th
century resources. To facilitate the use of the City’s
inventory by its municipal agencies, the following efforts could be considered:
• Provide links to Salem’s inventory forms on the City’s website in a more graphic, interactive,
and user-friendly way;
• Institute a system to distribute inventory forms to City boards, agencies and staff reviewing
or managing projects affecting historic resources and/or develop MACRIS training sessions
for City staff; and
• Develop and maintain historic inventory information on the City’s GIS system and on a city-
wide map of documented historic resources, which could be used by municipal departments
and boards during the development review process.
Documenting and Protecting Salem’s Archaeological Resources
Development can adversely affect a community’s archaeological sites, particularly those that are not
documented. These fragile resources could be lost without much awareness that they ever existed. The
City has completed a city-wide archaeological reconnaissance survey and maintains a confidential city-
wide archaeological resource map that documents the location where archaeological resources have been
found and areas where they might exist. These resources include the remains of fortifications at Fort
Pickering, where the City is currently engaged in documentation and conservation work. Continuing
efforts to document additional historic and prehistoric archaeological sites in Salem would ensure that
these resources are protected when development projects are proposed. This information can also be
utilized to develop public awareness initiatives to foster greater appreciation and understanding of
Salem’s past.
Mid-20th century house in South Salem
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Buffum Street, North Salem
National Register of Historic Places
While the National Register is primarily an honorary designation, NR listing is an important tool to
increase community pride and understanding of local history. NR listed resources are afforded limited
protection through Section 106 of the Historic
Preservation Act if the listed resource will be impacted
by a project that utilizes federal funds, or permits or
licenses. Listed properties are also eligible to seek
historic tax credits and apply for MHC preservation
grants, two funding sources that can be instrumental in
efforts to preserve Salem’s threatened and deteriorated
buildings. Since property owner agreement may be
required for listing, it will be important for the City to
engage in extensive public outreach to educate owners
about the National Register and its benefits. General
recommendations related to National Register efforts
include:
• Working with property owners to expand boundaries of existing National Register districts
and to pursue new National Register districts and individual listings. Priorities include at-
risk resources and those with resident support; and
• Pursuing National Register eligibility opinions and listings for City-owned historic properties
not already listed in the National Register to honor resource and make resources eligible for
preservation grant funding.
Preservation Restrictions
Similar to a conservation restriction that protects an open space from future development, a preservation
restriction is a vital tool to protect the architectural features of an historic building. To date, Salem has 31
resources protected with preservation restrictions, including both City-owned properties and those
owned by non-profit organizations. This number will continue to grow as the City distributes its CPA
funds to non-City owned properties.
While the CPA regulation does not require a preservation restriction to be instituted when funds are used
to restore a publicly-owned resource, the placement of restrictions on restored City-owned historic
buildings would protect the City’s financial investment, ensure the future preservation of the resource,
and reinforce the City’s role as a historic steward. For historic public buildings that are deaccessioned
and placed into private ownership, preservation restrictions are a particularly important tool to ensure
that these resources are protected from future alterations that could alter or destroy their historic and
architectural integrity. The City could work with the Historic New England Stewardship Program or
another local preservation organization to serve as the entity to hold restrictions on City-owned
properties.
Protecting Salem’s Historic Resources and Historic Character
Preserving Salem’s historic fabric is integral to preserving the city’s identity and sense of place. Without
some protective regulations in place, the physical features that make Salem’s historic buildings and
neighborhoods so special – architectural trim, building scale, streetscape patterns -could be lost.
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Executive Summary Page 6
Salem has adopted two of the traditional preservation tools
available for municipalities to protect important historic
resources – a demolition delay ordinance and a local historic
district ordinance. As the City’s municipal preservation agency,
the Salem Historical Commission is responsible for overseeing
administration of these regulations and for other city-wide
preservation planning efforts. While the Commission works to
protect Salem’s historic resources, the City’s preservation
ordinances are limited in their strength and oversight
capabilities. Additional preservation tools are available to
protect a community’s historic character that Salem could
consider, including Neighborhood Preservation Districts, previously considered by the City, single
building local historic districts, and demolition by neglect regulations.
Salem Historical Commission
The Salem Historical Commission is comprised of dedicated volunteers who work diligently to protect
historic resources located within the City’s four local historic districts, as well as properties outside of the
districts. SHC members are volunteers and have limited time available for historic preservation activities,
which emphasizes the need for continued board member training and staff support.
The SHC is currently supported by a part-time DPCD staff person, who provides administrative support
to the SHC and grant writing and project management services for municipal preservation projects. Other
DPCD planning staff members also undertake preservation and municipal building restoration-related
projects. Together, these staff members have engaged in an impressive list of preservation projects over
the past 25 years. However, Salem’s extensive stock of historic buildings and structures and the
propensity for development projects to affect neighboring historic resources may warrant an expanded
staff role to provide insight into preservation objectives for historic properties not designated within a
LHD or for projects that may affect an adjoining or nearby historic resource.
As the City’s municipal preservation agency, the SHC struggles to reinforce and promote its dual role as
both a historic district commission and a historical commission to local officials, municipal boards and
staff, and to the general public. In much the same way that the Conservation Commission and its staff
serve as the municipal steward for Salem’s natural resources, the SHC and its staff are the municipal
stewards for Salem’s historic resources. The SHC is a vital resource to ensure that City sponsored and
approved projects are completed in a manner that respects Salem’s historic buildings and character. Re-
instituting the regular distribution of historic inventory forms and other historic information to City
boards and agencies reviewing or managing projects affecting historic resources would support these
efforts. Additional recommendations relating to SHC member training, staff support, and reinforcing the
SHC’s role as the City’s municipal preservation steward include:
• Dedicate funding for SHC members to attend preservation trainings, workshops or
conferences and encourage all members to participate in MHC’s preservation listserve, a
statewide online discussion forum for historical commissions, historic district commission,
planning boards, municipal staff and preservation professionals;
• Consider expanding SHC’s staff position responsibilities and expertise in preservation issues.
This could include training existing staff or hiring a new planner with preservation expertise;
Peabody Street, Point Neighborhood
Salem Historic Preservation Plan Update 2015
Executive Summary Page 7
• Schedule SHC annual meeting to develop a work plan and establish goals for community-
wide preservation activities for the year, utilizing the recommendations set forth in this plan;
• Ensure that the SHC is aware of all development review projects that impact historic
resources by encouraging SHC members to enroll in the City’s existing e-mail subscriber for
public meeting agendas;
• Continue to discuss issues, opportunities and concerns regarding preservation of the city’s
historic character at regular DPCD staff meetings and Department head meetings; and
• Develop a City policy that all City departments and boards seek SHC or SHC staff comment
on any City project that will have an effect on historic resources.
Strengthening Salem’s Historic Preservation Ordinances
Demolition Delay Ordinance
While the City has been very successful in ensuring that all applicable historic buildings threatened with
demolition are reviewed by the SHC prior to the issuance of a demolition permit, the City’s existing
demolition delay regulation has a very limited delay period of only six months and no penalties for
demolition without approval. Reviewing the ordinance to identify opportunities to strengthen this tool
could include adopting language from MHC’s model demolition delay bylaw, which includes a longer
delay period to allow greater time for a Commission to work with a property owner to seek alternatives
to demolition, as well as language that requires proponents to receive all necessary approvals for the new
construction before a demolition permit is issued. Another challenge facing the SHC is the determination
of whether a building is structurally deficient. Proponents often argue that their building is “structurally
unsound” and should therefore be demolished. The SHC does not have a budget to hire an engineer or
architect to provide a professional assessment on the structural or architectural integrity of a threatened
building. Recommendations to strengthen the City’s ability to successfully implement its demolition
delay ordinance include:
• Revisions for a longer delay period; language that requires demolition proponents to submit
a copy of the demolition plan, the reasons for the demolition and the proposed reuse of the
property; language stating that the proponent must receive all approvals necessary for a
building permit for the new construction prior to the issuance of a demolition permit; and
penalties for demolition without approval and moratoriums on rebuilding.
• Institute a fee for demolition delay applications to provide funding for the SHC to hire a
professional to assess the structural and historic integrity of buildings threatened with
demolition.
Local Historic District Ordinance
In a city with as many important historic resources as Salem, the limited number of properties protected
by local historic district (LHD) designation hinders the City’s ability to successfully protect the
community’s architectural heritage and character. While the City was unable to garner support for the
designation of new districts in the past, participants at public meetings held in support of this plan voiced
optimism that city residents may now be more receptive to historic district designation.
Salem Historic Preservation Plan Update 2015
Executive Summary Page 8
37 Chestnut Street, McIntire District
For the City’s existing local historic districts,
fostering owner awareness and appreciation for the
importance of historic designation has long been a
goal for the SHC. Staff and budget limitations make
outreach efforts challenging, although technology
such as email blasts and social media platforms
could be better utilized to reach owners. District
signage and training sessions for local realtors
could also help to increase resident awareness. In
addition to increasing resident awareness, the SHC
has expressed the need for strengthening the City’s
historic district ordinance. Currently, each district
is protected with its own specific ordinance and
regulations. In several instances, buildings within the district are visible from public ways that are not
included in the designated list of streets, leaving the very visible rear of properties open to extensive
alteration that is not in keeping with the character of the neighborhood.
Addressing violations in historic districts – both for work completed without proper approvals and for
approved work that is completed incorrectly - is also a concern of the SHC. In the past, individual SHC
members were assigned with specific areas to monitor regularly for violations, a policy the SHC could
consider reinstituting. The SHC could also institute a process to review approved projects once work is
completed. This could include distribution of a postcard or development of an online notification system
for applicants to notify SHC when a project is complete so that a site visit can be completed.
To facilitate the application review process, the SHC recently created an application checklist to ensure
that all necessary information is submitted prior to the public hearing, and SHC staff sends copies of this
information to SHC members in advance of the hearing to provide members with an opportunity to
request additional information, if necessary. Ensuring that all SHC members review meeting packets and
visit each site on an individual basis to familiarize themselves with an applicant’s property prior to the
public hearing will be important. General recommendations relating to the City’s local historic district
ordinance include:
• Utilize the SHC’s webpage and other technology such as social media to inform residents
about historic district regulations, highlight preservation success stories, discuss innovative
restoration techniques, and promote preservation activities;
• Review the existing LHD ordinance and regulations to consider potential changes to
strengthen the review process and establish a system to impose fines for violations;
• Assign each board member with a geographical area to check monthly for violations and
institute a process to review approved projects once work is completed;
• Engage in significant public outreach to neighborhood residents and public officials to
promote the benefits of historic district designations; and
• Work with local residents and public officials to expand the City’s existing local historic
districts and designate new local historic districts.
Salem Historic Preservation Plan Update 2015
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Other Preservation Tools Available to Protect Historic Resources
There are additional preservation tools available to protect a community’s historic character that Salem
could consider adopting, including tools to protect individual resources and larger historic areas. Any
effort to adopt new or expand existing preservation regulations will require extensive community
outreach to local officials, neighborhood groups, property owners and community residents to explain
the benefits of the tool and to build support for their adoption.
Tools to Protect Individual Resources
Consider Adopting a Demolition by Neglect Ordinance
Through the City’s Demolition Delay Ordinance, the Salem Historical Commission often reviews
buildings that are structurally deficient or are in serious disrepair. In some instances, this situation is the
direct result of a property owner’s negligence and disregard for building maintenance. While the
majority of Salem’s historic buildings are well preserved, there are some highly visible exceptions. The
ongoing neglect of these buildings has a significant negative impact on the surrounding streetscape and
could eventually result in the loss of these valuable resources. Fortunately, the City’s current Building
Inspector has used his authority to enforce emergency repairs, rather than requiring demolition.
However, ongoing neglect can also have a negative effect on property values (which can effect resale
value and tax assessments). To address deliberate building neglect proactively, the SHC could consider
adoption of a local Demolition by Neglect Ordinance (often referred to as an Affirmative Maintenance
Ordinance), which could be applied community-wide or to specific areas such as historic districts.
Consider Designating Single Building Local Historic Districts
In some instances, Salem’s historic buildings are isolated resources, surrounded by new development or
resources that have lost architectural significance. In other situations, the SHC may be confronted with
the proposed demolition of a historically significant structure that is located outside of the city’s local
historic districts and is afforded no regulatory protection beyond the 180-day demolition delay. To
address these scenarios, the City could designate single buildings under its existing local historic district
ordinance, a tool utilized by communities such as the Town of Brookline and the City of Somerville.
Tools to Protect Historic Neighborhoods
Salem is a community with distinctive neighborhoods, each with its own unique historic resources. These
historic neighborhoods stand as visible reminders of Salem’s historic development patterns and social
and economic heritage and provide a glimpse into the city’s past while contributing to the visual
character that defines its unique sense of place today. Preserving the building fabric of these
neighborhoods is more than just an effort to protect the city’s history; preserving each neighborhood’s
unique building scale and streetscape pattern helps to maintain the cultural identity and pride of place
felt by neighborhood residents.
Neighborhood Preservation Districts
While Salem’s previous designation efforts have focused primarily in the McIntire District, the Common,
Lafayette Street and the Derby Street areas, other neighborhoods warrant recognition and protection.
Salem has many areas worthy of historic district designation, and the historic inventory can be used to
educate the public and generate community support for adopting new districts. For those neighborhoods
where protecting building scale and streetscape patterns is more important than protecting individual
architectural details, the City could consider designating a Neighborhood Preservation District (NPD).
Salem Historic Preservation Plan Update 2015
Executive Summary Page 10
In 2008, the City commissioned a study to explore this
tool and identified potential neighborhoods for NPD
designation, but never adopted any districts. Adopting
a general NPD ordinance, which can be later adapted to
a designated neighborhood, is the first step toward
promoting this preservation tool to Salem
neighborhoods. Once residents determine that this tool
is beneficial to their neighborhood, they could work
with the City to define the distinguishing characteristics
of their neighborhood’s scale and streetscape pattern
and draft specific regulations.
Integrating Preservation Objectives into Development Review Process
Due to the density of the city’s existing building stock, Salem’s development projects can cause significant
pressure on the city’s historic built environment. Identifying ways to guide this development in a manner
that respects Salem’s historic character and the architectural integrity of its neighborhoods is important.
Further integration of historic preservation objectives into the City’s development review process was a
goal expressed by attendees at the community meetings held during the development of this plan.
Encouraging communication between City departments, boards and commissions to raise awareness of
historic resources and preservation concerns is particularly important in Salem since most City agencies
play some role in protecting the city’s heritage and historic character. DPCD provides staff support to
most of the City’s development review boards, which allows DPCD staff, including the SHC’s staff
person, to notify each other of preservation concerns and provide information on a resource’s historic
significance. Increasing dialogue between the SHC and other City development review agencies
continues to be important. The SHC is a valuable technical resource for the community, and City staff,
boards and officials should take advantage of this resource and utilize the expertise of SHC members. In
addition to the distribution of inventory forms to review agencies, SHC staff should participate at One
Stop Meetings for projects located in an historic area or neighborhood, even if the property is not
designated within a LHD. This would ensure that City
agencies are aware of any preservation concerns at the
onset of the development review process.
The approval of special permits and variances can also
have significant repercussions on historic buildings and
neighborhoods, particularly those outside local historic
districts. Adopting flexible zoning regulations that allow
for different standards for dimensional and parking
requirements when an historic building is preserved
and reused is a tool that communities can utilize to
protect and preserve historic resources. Salem currently
has flexible zoning regulations for the conversion of carriage houses to a residential unit, but this
provision has rarely been utilized and should be reviewed to determine opportunities to improve it.
Salem’s current downtown zoning incorporates flexible parking requirements for rehabilitation projects
to encourage the preservation of historic buildings. The Planning Board and SHC could work together to
review the City’s zoning ordinance to identify other opportunities to incorporate flexible regulations for
Bridge Street Neck
Carriage Houses, Common Neighborhood
Salem Historic Preservation Plan Update 2015
Executive Summary Page 11
the protection of historic buildings, including modifying dimensional standards for new building lots to
ensure that an existing building on a large parcel is retained. Other recommendations for considering
historic preservation objectives during the development review process include:
• Institute an agenda sharing process for all City review boards, including the SHC, and re-
institute process for distributing historic resource inventory forms and other historic
information for affected properties during the development review process.
• Establish a system to determine if any public or private project receiving city funds, permits
or any ordinance or policy will have potential negative impact on an inventoried or state
register property or archaeological resource. For any project that may impact on an
inventoried or listed property or relates to broader preservation issue, the SHC should be
notified and a non-binding comment requested.
• Develop a preservation checklist for City boards to consider when they are reviewing
development proposals that might affect an historic asset or area that isn’t formally
designated “historic”.
• Ensure that all board approvals be given appropriate consideration regardless of where
approval falls in timeline and ensure that SHC stays abreast of project reviews before other
City boards and commissions and submit comments to those boards, as necessary.
• Encourage opportunities to incorporate preservation objectives of scale and context of new
development within historic streetscapes and neighborhoods.
• Consider adopting additional flexible zoning regulations that allow different standards
for dimensional and parking requirements when an historic building is preserved.
Urban Renewal Area
While each of Salem’s neighborhoods contain small clusters of commercial development, downtown
Salem is the city’s primary commercial center. Brick,
granite and masonry buildings spanning more than
two centuries of development line the streetscapes in
the downtown and exhibit some of the city’s most
beautiful architectural details. Downtown Salem is
included within Salem’s Urban Renewal Area and a
portion is also a National Register Historic District.
The City’s recently updated Urban Renewal Plan
reiterated the important role of historic preservation
in downtown development and SHC involvement in
the review of new development proposals.
As the downtown’s renaissance continues with new
stores, restaurants, and residences opening in existing and new buildings and the iconic Essex County
Court Buildings await revitalization, it will be even more important to ensure that new development is
compatible within the context of the area’s historic architecture, scale, and character. This includes use of
the Commercial Design Guidelines developed in 2005. Other efforts to encourage preservation of Salem’s
historic downtown could include:
• Developing a preservation checklist for use during the DRB/SRA review that includes whether a
property is historically and architecturally significant, has been documented on an inventory
Washington Street, Downtown Salem
Salem Historic Preservation Plan Update 2015
Executive Summary Page 12
form, is listed in the National Register, etc. Distribute copies of existing inventory forms as well
as relevant sections of the National Register nomination to establish historic context and
architectural significance of properties undergoing review.
• SHC to attend DRB/SRA meetings or provide written comment for development projects
affecting historic properties.
• Engage downtown property owners and local preservation partners such as Salem Main
Streets on historic preservation efforts in the Downtown.
Entrance Corridor Overlay Districts (ECOD)
The City created overlay zoning districts for its entrance corridors to protect and enhance these major
entrance ways and ensure that such areas are improved in a manner which is in the best interest of the
City. These entrance corridors include the historic commercial streetscapes of Bridge, Boston, North, and
Lafayette streets, areas that also abut historic neighborhoods. Attendees at community meetings held
during the development of this plan expressed concerns
about the potential impacts of commercial zoning on the
adjacent neighborhoods. Because the threshold for site
plan review for nonresidential new construction is lower
in ECODs than in other districts, there are greater
opportunities for the SHC to provide input through the
Planning Board review process regarding the protection
of historic character in these neighborhoods. The City
also acknowledges the historic significance of these areas
when it implements improvement projects, such as the
period lighting installed along North Street and Bridge
Street to enhance the appearance of these historic
streetscapes. Recommendations relating to the consideration of preservation objectives within the City’s
ECOD include ensuring that existing design guidelines are utilized for development proposals in the
ECOD and reviewing existing ECOD regulations to consider whether the protection of individual historic
resources, surrounding historic streetscapes and adjacent historic neighborhoods could be incorporated
into the regulations.
North River Canal Corridor Neighborhood Mixed Use District (NRCC)
The North River Canal was once the city’s most important industrial corridor. As factories closed, the
area’s industrial buildings became obsolete with many standing vacant for years. Environmental
concerns further complicated the reuse potential of these buildings and many were demolished. The
nearby modest housing built for workers in these factories still remains, however, and continues to
provide affordable housing options for Salem residents. As the City plans for the redevelopment of
vacant and underutilized properties along the North River, it will be important to reinforce the City’s
goal that new development honors the legacy of the area and preserves the historic character of the
surrounding neighborhood. This includes the retention and preservation of existing historic buildings
when possible and ensuring the new construction is compatible with the scale and character of the
historic streetscape and neighborhood.
Historic Buildings on Bridge Street
Salem Historic Preservation Plan Update 2015
Executive Summary Page 13
Old Town Hall
Preservation and Management of City-Owned Historic Resources
City-Owned Historic Buildings
The City has generally been a good steward of its historic buildings, parks, and cemeteries. It recently
completed restoration projects at several of its iconic historic buildings, landscapes and objects and is
currently overseeing restoration projects at additional historic sites. The City has also utilized caretaker
programs to initiate repairs and restoration at several
formerly vacant properties. Despite these efforts, however,
several City buildings remain in need of repair and
restoration. Instituting formal procedures to require
historically appropriate preservation of historic properties,
and instituting a regular, formal role for the Salem
Historical Commission in reviewing and commenting on
projects that affect City-owned historic resources are two
important steps to ensure the future preservation of the
City’s historic buildings. Developing a capital
improvements program and long-term strategies to ensure
that restored resources receive regular maintenance to
protect these irreplaceable assets will also be important. This is particularly critical at the City’s historic
parks, which are heavily used by residents and visitors alike.
Prioritizing and funding Salem’s extensive list of building restoration projects was one of the most
pressing concerns expressed by participants during the preparation of this plan. Instituting ongoing
maintenance procedures at City sites to prevent emergency situations and designating maintenance
funds within the City’s budget were also cited as important. Several of Salem’s preservation partners are
currently developing capital improvements planning processes that could serve as models for the City in
its efforts to prioritize and fund its own restoration projects. Other considerations relating to the
protection of the City’s historic assets included placing preservation protections on public building
determined obsolete for City use, identifying City-owned assets at risk of damage due to sea level rise
and natural disasters, and continuing to utilizing local CPA funds for City-owned properties. Other
recommendations set forth in this Plan for preserving the City’s historic buildings include:
• Review City’s 1998 Historic Preservation Maintenance Plan and individual property reports and
update recommended actions as necessary as basis for establishing priorities for restoration and
repair needs through a Capital Improvements Plan;
• Establish a formal City policy that historic public buildings will be maintained and preserved in
keeping with the Secretary of the Interior’s Standards for the Treatment of Historic Properties,
and that the SHC will review any proposed work on City-owned historic resources and
participate in any plans for change in ownership or use;
• For vacant, underused or deteriorated City-owned properties, complete individual plans for
stabilization and restoration as well as plans for alternate uses that would be sympathetic to long-
term preservation;
• As each building is restored, develop and implement ongoing maintenance plans to protect the
public investment and prevent serious deterioration in the future; and
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Executive Summary Page 14
Greenlawn Cemetery Gates
• Develop a funding mechanism for Old Town Hall that would require a portion of funds raised at
the property to be used specifically for property maintenance.
City-Owned Cemeteries, Burial Grounds, and Parks
Salem’s burial sites and public parks contain some of the city’s most important historic resources,
including burial markers and tombs, historic fencing,
historic buildings, and other structures. The City has
commissioned a planning study to identify and prioritize
preservation concerns at its historic burial grounds, but
has not completed a similar study for its historic parks.
Salem’s public parks contain some of the city’s most
deteriorated historic resources, including buildings,
structures and landscape features. Developing
appropriate procedures for ongoing maintenance at these
historic sites and prioritizing restoration and conservation
efforts is critically important, especially as the City seeks
to balance public access to these spaces with the need to
protect historic resources and landscape features from irreversible damage. Other recommendations
include:
• Review the previous Burial Grounds Study and update, as needed, to establish priorities and
funding for conservation and repair needs;
• Review existing conditions at City’s historic parks and open spaces and establish priorities for
preservation efforts;
• Establish landscape maintenance guidelines and procedures, including trimming and mowing, to
prevent damage to historic features at burial sites and parks; and
• Continue encouraging the development of Friends groups to oversee and provide general
maintenance at City-owned cemeteries and parks.
Sidewalks and Infrastructure in Historic Districts
Salem’s local historic district ordinance does not require SHC review of public works projects located
within a historic district, nor does the City have a policy in place for SHC consultation for this work.
Maintenance of the city’s brick sidewalks was a concern expressed by many attendants at meetings held
during the preparation of this plan. Developing a clear policy on brick sidewalk repair and identifying
priority areas for brick walks could help to address some of these concerns. Attendees also expressed
concerns about the impact of other infrastructure improvements on historic streetscapes, including
installation of new overhead lights. Recommendations include:
• Institute clear policy that requires SHC review of any public works project that is proposed in
local historic district and establish a consultation process for all public works projects that affect
historic resources outside of historic districts;
• Establish clear policy on sidewalk repairs, especially pertaining to City’s network of brick
sidewalks; and
• Advise snowplow contractors and City Public Works staff on the appropriate procedures for
plowing on or near historic resources.
Salem Historic Preservation Plan Update 2015
Executive Summary Page 15
Planning for Natural Disasters and Climate Change Impacts
Several recent emergencies at local museums highlight the vulnerability of Salem’s historic resources.
Climate change could also impact Salem’s historic resources, many of which are located within close
proximity to the shoreline. Rising sea levels, severe
coastal storms and extreme heat conditions pose
significant threats to both the city’s natural and built
environment. Salem recently completed a study to
examine the potential effects of climate change on
Salem’s natural and built resources. Historic assets such
as Pickering Wharf, the Willows, Pioneer Village, Winter
Island, the Gables, the Salem Maritime Park, and Baker
Island Light are at particular risk of damage from rising
sea levels and storms. Reviewing the City’s disaster
preparedness protocols and maintaining a dialogue
between the City, COSTEP MA and its local Cultural Triage Officer is critical to ensure that the City can
respond quickly when an emergency occurs. Other recommendations include:
• Commission a planning study that focuses specifically on Salem’s historic resources most at risk
from rising sea level; and
• Include discussion of natural disaster planning at preservation partners meeting and consider
hosting a regional forum on climate change and natural disaster planning for historic resources.
Funding for Historic Preservation
Salem’s municipal staff has been very successful in soliciting grants for preservation activities for the
City’s historic buildings and parks. Continuing these efforts will be critical as the City struggles with
limited finances and an aging building inventory. Salem’s adoption of
the Community Preservation Act (CPA) provides a much needed
source of funding for Salem’s historic resources. CPA guidelines allow
funds to be used for both public and private resources providing that
they serve a public benefit, which is reflected in the City’s category
specific criteria for historic preservation projects. Since this funding
source is limited and local needs far exceed the available funds,
leveraging other funding sources is critical. Balancing the restoration
needs of Salem’s City-owned assets with the needs of historic assets
owned by local non-profit groups can be challenging. It will be
important to understand the public benefit of the individual projects that are proposed in order to best
meet the CPA guidelines.
Funding for private restoration projects is more limited. Several communities in Massachusetts are using
local CPA funds to assist the preservation efforts of private property owners, but in Salem, the public
need for preservation funds far exceeds the funds available and the city’s non-profit partners are also in
need of funding for their historic properties. State and Federal historic preservation tax credits are
available for owners of private income-producing properties who are undertaking restoration projects
that meet certain cost thresholds and comply with specific restoration requirements. Encouraging and
Salem Maritime Park
Salem Historic Preservation Plan Update 2015
Executive Summary Page 16
supporting developers who seek to utilize preservation tax credits for certified rehabilitations will be
important. Other recommendations relating to the funding of historic preservation activities include:
• Apply for CPA funds to implement the recommendations in this plan, including
recommendations relating to historic resource survey efforts and National Register
nominations and restoration projects at City-owned properties;
• Apply for grant funding from other regional, state and national programs such as those
offered by the MHC, ENHC, the Metropolitan Area Planning Council (MAPC), and the City’s
CDBG program to implement recommendations in this plan;
• Continue efforts to solicit preservation grants for City-sponsored preservation projects; and
• CPC, through its historic commission representative, should work with SHC and other
preservation partners to identify and prioritize historic preservation projects for CPA funding
that best serve a public benefit, including both publicly-owned resources and those owned by
private non-profits.
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Executive Summary Page 17
Chapter 1 - Historic Overview of Salem
Information for this section has been compiled from numerous documents including the MHC Reconnaissance Report for Salem and various
National Register documents.
Salem’s history has been extensively chronicled in numerous publications and has long been a source of
pride and economic opportunity for the city. From the infamous witch trials of 1692 to the city’s maritime
heritage, Salem’s early history is well-documented and appreciated. While its significance as an industrial
center during the late 19th and early 20th centuries is perhaps not as well known, efforts to highlight this
heritage are underway. The city’s emergence as a cultural and tourism center during the mid-20th century
and the renaissance of its downtown at the turn of the 21st century has resulted in the vibrant community
seen today. The following narrative is intended to provide a brief overview of Salem’s history from its
pre-1600 Native American settlement to its 21st century revival in order to provide a context for Salem’s
unparalleled collection of historic resources.
Contact Period (1500-1620)
The area now Salem was inhabited by members of the Pawtucket group of Native Americans (often
called Penacook), commonly referred to as the Naumkeags. Their settlement sites probably included
places near the mouths of the North, South, and Forest rivers. These and other coastal locations and areas
adjacent to interior wetlands in Salem and its vicinity would have been likely locations for villages and
habitations, agricultural fields, seasonal hunting, fishing and food gathering activities, and human
burials. The population in Salem has been estimated to have numbered around 200 during this period,
but it was certainly decimated by the series of epidemics that the preceded the European settlers. By the
end of this period, there may have been fewer than 50 individuals, or even none,
remaining. Archaeological discoveries relating to these and earlier inhabitants of the Salem vicinity
indicate the likely survival of many more as yet unknown archaeological sites with the potential to reveal
significant evidence of the lifeways of the area’s early inhabitants. Today, many local street and place
names commemorate Salem’s Native American heritage. The painting “Native Encampment, Salem,
1840” (attributed to Joseph Ropes) in the collection of the Peabody Essex Museum also highlights the
presence of seasonal Native encampments in Salem as late as the 1840s.
Plantation Period (1620-1675)
The first Europeans arrived in Salem in 1626 when Roger Conant and associates from England’s
Dorchester Company established a settlement at the mouth of the Naumkeag River. Two years later, a
second wave of European settlers arrived led by Captain John Endecott from the Massachusetts Bay
Colony. Known initially by its Native American name, Naumkeag or “Fishing Place”, the colony was
renamed “Salem”, a name derived from the Hebrew word Shalom or “peace”. At the time, the colony of
Salem encompassed most of the land area now known as the North Shore. Concentrated settlements
developed along the waterfront and in Salem Village, now part of Danvers, with most residents involved
in farming, fishing, and other maritime trades. This history is evident in First Period houses located near
the city’s original waterfront and in the downtown including the John Turner House* (1668), which is
Salem Historic Preservation Plan Update 2015
Chapter 1: Historic Overview of Salem Page 18
now the House of Seven Gables, the Pickering House* (ca. 1664) at 18 Broad Street, the Narbonne House*
(1675) at the Salem Maritime National Historic Site, and the Eleazer Gedney House* (c. 1664), a study
house owed by Historic New England, Inc. at 19-21 High Street in the Knockers Hollow section of the
city. In addition, many of Salem’s burial grounds date to this period with slate markers displaying 17th
century iconography of the “death’s head” with later stones depicting winged cherubs, urns, and
weeping willows as ideologies and philosophies about death and mourning changed during the 18th and
19th centuries.
Colonial Period (1675-1775)
During the Colonial period, Salem continued to develop as one of the leading maritime centers in the
New World with fishing, commerce, shipbuilding and related trades dominating the community’s
economic base. By this time, Salem had become one of the chief shipbuilding areas in the colonies and
was a thriving, densely settled community. During this period, the town began dividing portions of its
common lands, while reserving some land for perpetual use by the town such as the military training
grounds of the Salem Common and the fishing grounds of Winter Island, which was later fortified during
the Revolutionary War. Other common lands included the North Fields and South Fields.
As Salem’s economy prospered, building activity intensified with residential homes joining the
shipyards, wharves, warehouses and other maritime buildings along the town’s harbor. This included
homes such as the John Ward House (1684) preserved by the Peabody Essex Museum and relocated to its
campus, Nathaniel Hawthorne’s Birthplace (ca. 1740) relocated and preserved within the House of the
Seven Gables Complex, and the Samuel Pope House (ca. 1730) at 69 Boston Street, which was saved from
demolition through the efforts of Historic Salem, Inc. Later 17th and early 18th century Georgian style
homes with gambrel roofs, corner quoins, and moulded cornices and doorways can still be seen on the
northern end of Essex Street.
Witch Trials of 1692
The events that occurred during the year of 1692 constitute Salem’s most infamous legacy, when a group
of young girls became ill and were diagnosed as “bewitched.” Ten months of hysteria followed with
more than 150 men and women accused of witchcraft and imprisoned. By October of 1692, when calmer
reason prevailed, 20 men and women had been hanged or stoned to death. While many of these events
occurred in Salem Village, which is now Danvers, Salem has embraced its moniker “The Witch City.”
Today, the Salem Witch Memorial seeks to honor the memory of those who were falsely accused and
killed during this period. Other resources relating to the Salem Witch Trials include the area known as
Gallows Hill, where many of the accused were hung and is now considered sacred ground by the City’s
modern-day Wiccans, and the Judge Jonathan Corwin House* (1675) at 310 Essex Street, more commonly
known as “The Witch House”, which was the original home of the judge who presided over the trials.
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Chapter 1: Historic Overview of Salem Page 19
Federal Period (1775-1830)
Salem’s Maritime Trade
By the beginning of the eighteenth century, the maritime trade -
cod fishing, commerce, shipbuilding - and other related
maritime enterprises continued to dominate Salem’s economy
although agriculture and husbandry were still practiced. Large
vessels built in Salem allowed for longer voyages to destinations
such as the West Indies, whose trade proved particularly
lucrative. Salem’s important role in the Atlantic trade network
fueled the rise of a wealthy merchant class and the development
of Salem’s waterfront where wharves, warehouses, and
residences were constructed. Throughout the century, Salem was growing in prominence, ultimately
solidifying its reputation as the nation’s leading maritime port during the Revolutionary War. When the
larger ports of Boston and New York were closed by the British during the Revolutionary War, Salem
remained open and local ship owners transformed their fleet into privateering vessels that ultimately
secured significant profits for ship owners, captains, and crews. The Salem Maritime Site National Park
honors this heritage through the preservation of the U.S. Custom House and other buildings associated
with Salem’s maritime port, as well as through the 1998 reconstruction of The Friendship (171-foot, 3-
masted Salem East Indiaman built in 1797), which is the largest wooden, Coast Guard certified, sailing
vessel to be built in New England in more than a century.
After the war, Salem’s merchants began to diversify their international trade with Europe, the West
Indies, Africa, Russia and China, producing such great wealth and prosperity that Salem became the
richest per capita community in the newly formed United States of America. This prosperity resulted in
extensive building and infrastructure activity in Salem, including new residences, civic, religious, and
industrial buildings and new roads and bridges connecting the north and south sections of town, which
allowed residential construction to expand outward from the urban core. Salem’s wealthy merchants
constructed mansions in the Federal period’s fashionable neo-classical style of architecture along
Chestnut Street and the newly landscaped Common. Architect and wood carver Samuel McIntire (1757-
1811) was the pre-eminent designer in Salem at the time and was responsible for many of the
community’s grandest Federal style residences as well as Hamilton Hall on Chestnut Street. Today,
Salem retains one of the most important collections of Federal style architecture, and McIntire’s exquisite
carved woodwork is preserved in many residential interiors. The Peabody Essex Museum (PEM) is
another legacy of Salem’s maritime trade and prosperity. Originally founded as two separate entities -
the Peabody Museum (1799) and the Essex Institute in (1848) - the PEM is the oldest continually operated
museum in the United States.
During this period, the areas to the north, south and west of downtown Salem remained primarily
undeveloped with common agricultural fields (North Fields in North Salem and the Great Pasture in
West Salem) and scattered large summer estates such as the Derby Estate in South Salem.
Replica of The Friendship,
Salem Maritime Site
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Chapter 1: Historic Overview of Salem Page 20
Early and Late Industrial Periods (1830-1915)
Salem’s Industrial Heritage
Salem’s global maritime prominence ultimately proved short lived, lasting only until the War of 1812
when maritime interests shifted to the larger ports of Boston and New York. As Salem’s reputation as a
great shipping port waned, the community began to transition to an industrial economy. By the mid-19th
century, Salem had developed a more diversified economic base that included manufacturing and local
retail and financial interests in the burgeoning downtown commercial district. This was a period of
significant social and physical changes in Salem. In 1836, the Town voted to adopt a city form of
government, making it the second city in Massachusetts after Boston. The development of leather, cotton,
and lead industries along Salem’s North and South Rivers spurred the development of these former
agricultural and summer estate areas to year-round residential neighborhoods. As Salem’s industrial
development continued to expand, significant numbers of immigrants came to Salem seeking
employment in factories and by the late 19th century, Salem’s foreign-born population accounted for more
than 20% of the city’s total population. While the majority of immigrants were Irish Roman Catholics,
others immigrant groups included French Canadians, as well as English, Swedish and Scottish
immigrants and immigrants from Eastern Europe. Today, this industrial and cultural legacy can be seen
in the renovated Naumkeag Steam Cotton Mill (now known as Shetland Park), in the remnants of
industrial buildings along the North River Canal, in the City’s Polish and Greek churches, and in current
and former ethnic social clubs such as the French Canadian Richelieu Club and the former St. Joseph Hall
(1909) on Derby Street, which was built by the St. Joseph Society, a branch of the national Polish Roman
Catholic Union of America. Today, this building is preserved as part of the Salem Maritime Site.
Salem’s growth continued at the end of the 19th century as its manufacturing base expanded and its
extensive streetcar network facilitated new residential development in outlying areas. The former
farmlands of the North Fields and South Fields and the large estates of South and North Salem were
subdivided and developed during this period. In contrast to these expensive homes, modest workers’
housing was constructed to accommodate Salem’s growing immigrant population who worked in nearby
factories. Streetcar service also facilitated the development of parkland outside of the city’s urban core.
Forest River Park in South Salem and the Salem Willows were both created in the 1890s. The Willows,
which had been the location of an infirmary during the small pox epidemic of the early 19th century,
included hotels, restaurants, casinos, a landscaped picnic area and a summer cottage community. In
North Salem, Greenlawn Cemetery and Harmony Grove Cemetery were designed to serve as community
parks with walking paths, picnic areas, ponds, and fountains.
Great Salem Fire of 1914
There was perhaps no event with a greater impact on the landscape of Salem than the Great Fire of 1914.
The fire, which began on the morning of June 25, was caused by an explosion at a leather factory on
Boston Street in the “Blubber Hollow” neighborhood of North Salem. Hot weather and strong breezes, as
well as Salem’s prevalence of wood-shingled roofs, helped to fuel the blaze, which burned for 13 hours
destroying more than 256 acres of the city, 1,800 buildings, homes, and factories, and left more than
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Chapter 1: Historic Overview of Salem Page 21
15,000 people homeless. The City recently honored the 100th Anniversary of the disaster with lectures
and walking tours.
After the fire, the City reacted quickly, setting up temporary tents on the Common to house the
displaced. Within weeks, the City had instituted new building codes and regulations and begun
rebuilding efforts through its newly appointed Salem Rebuilding Commission (SRC), which was given
significant authority to oversee public building and roadway construction, take land by eminent domain,
grant building permits, and create new building regulations. While the SRC initially considered banning
all wood construction in the burned district and providing uniform building designs, the committee
ultimately reconsidered when residents voiced concern that free architectural services would eliminate
work for local architects and might result in a monotony of building styles and types. However, the SRC
did develop prototypes of residential construction to serve as examples of preferred building types. These
brick Colonial Revival single and two-family houses still stand on Franklin Street in North Salem.
The SRC’s “Regulations for the Erection of
Buildings within the Burned District of the
City of Salem” established a series of
construction codes based on building size
and use. These regulations ranged from
requiring completely fireproof buildings for
multi-story, multi-family buildings to
allowing wood frame construction and
exteriors for one- and two-family buildings
less than two stories in height. In addition to
overseeing building construction, the SRC
also sought to improve the city by widening
and straightening the city’s narrow street
networks. The SRC rebuilt almost 80 streets
destroyed by the fire including street widening, realignments to straighten roads and round sharp
corners, and the decommissioning of some streets.
By 1917, more than 65% of the burned district had been rebuilt with construction considered far superior
to pre-fire buildings. Despite efforts by SRC to promote the use of fire-proof masonry exteriors for all
new housing, the vast majority of buildings constructed were wood-frame construction similar to
housing present in the burned district before the fire. However, during this period, brick apartment
houses grew in popularity, particularly within the Point Neighborhood, which today contains the city’s
most impressive collection of Classical Revival style brick apartment buildings. Rebuilding efforts also
included the erection of new public buildings such as schools (Saltonstall School and Salem High School
(now Collins Middle School)), and fire stations (Ward 3 Essex Street Station) and commercial buildings
in the downtown.
Aerial view of Salem after the Fire, Boston Journal (1914)
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Chapter 1: Historic Overview of Salem Page 22
Downtown Salem storefront, 1960s
Image courtesy of City archives
Salem in the 20th Century
The City’s population remained relatively stable through the 20th century, growing from 36,000 residents
in 1900 to 40,000 residents in 2000, which was roughly the same number of residents living in Salem at the
time of the Great Fire. Through the 20th century, residential development in the City continued to expand
outward with construction booms in the 1920s, including Pickman Park, Osgood Park, and Saltonstall
Parkway, and the 1950s and 1960s in areas such as Gallows Hill/Witchcraft Heights and West Salem. of
Gallows Hill and in South Salem and the Highland Avenue section of the city. By the mid-20th century,
Salem had become an important retail, business and legal center. Department stores, movie theaters, and
restaurants attracted residents from communities throughout the North Shore. The City also continued to
serve as the County Seat with the County Court buildings and County Jail both located in downtown
Salem. The Salem Jail was decommissioned in the 1990s and rehabilitated for mixed use, including
residential, a restaurant, small jail exhibit, and one affordable unit. Other local institutions in Salem
during the 20th century include the Salem Hospital (now North Shore Medical Center), which was rebuilt on
Highland Avenue after the 1914 fire, and Salem State University, which originally began as the Salem
Normal School in the 1850s.
Salem as “Witch City”
During the 20th century, Salem began to capitalize on the economic potential of its legacy as “the Witch
City”. As early as the late 1800s, a local fish company sold its products under the brand name “Witch
City” and a local jeweler produced commemorative spoons with a witch motif. Even Parker Brothers,
one of the city’s premier companies in the early 1900s, created a board game called “Ye Witchcraft”. In
1944, a group of concerned citizens formed Historic Salem, Inc. to restore the Judge Corwin House (the
only surviving structure with direct ties to the Witchcraft Trials, which was turned over to the City of
Salem and opened to the public as “The Witch House”. By the 1970s, Salem’s witch trial tourism industry
was booming with the police department, Chamber of Commerce and the local newspaper all adopting
witch motif logos. In 1982, the City hosted its first Haunted Happenings and today, visitors from around
the world descend on Salem in the month of October to celebrate Halloween. Salem is now a major
tourist destination and is home to historic institutions including the Peabody Essex Museum, the House
of Seven Gables, the Salem Maritime National Historic Site, and the Salem Athenaeum.
Urban Renewal
The 20th century was also a time of great changes in Salem’s
downtown. After years of disinvestment in the downtown,
the City embraced the urban renewal movement in the 1960s
and began demolishing “old” buildings to make way for
new development. One downtown resident, 80-year-old
Bessie Munroe, refused to allow her house on Ash Street to
be demolished, and, today it is one of the only surviving
two-story brick Federal period houses in Salem. The outcry
against the demolitions extended beyond the boundaries of
the city to preservationists throughout the country,
Salem Historic Preservation Plan Update 2015
Chapter 1: Historic Overview of Salem Page 23
including architectural critic Ada Louise Huxtable who wrote an article in the New York Times decrying
Salem’s demolition practices. Within a decade, the City reversed course and began to embrace the
historic character of the downtown, revising its urban renewal plan to focus on historic preservation
instead of demolition.
Salem in the 21st Century
Today, Salem’s downtown continues to witness significant renewal with new businesses, restaurants,
hotels and stores operating in restored historic buildings. The City continues to serve as the regional
center with a new courthouse constructed in downtown Salem. Two of the County’s original courthouse
buildings, the Superior Court and County Commissioners’ building, are poised for revitalization.
Throughout the city, homeowners are engaged in efforts to restore the architectural features of their
homes.
Salem Historic Preservation Plan Update 2015
Chapter 1: Historic Overview of Salem Page 24
Historical Timeline of Preservation Activities in Salem
Date Preservation Activity
1799 The Peabody Museum, Salem’s first museum, is founded as the East India Marine Society.
1848 The Essex Institute is founded after the merger of the Essex Historical Society (1821) and
the Essex County Natural History Society.
1908 The Captain John Turner House (House of Seven Gables) is purchased and restored by
Caroline Emmerton, founder of the House of Seven Gables Settlement Association.
1910 The John Ward House is restored by the Essex Institute as one of the first historic house
restorations in the nation.
1910 The House of Seven Gables opened for public tours.
1911 The Hooper-Hathaway House (ca. 1682) is moved to House of Seven Gables complex and
restored.
1914 The Salem Rebuilding Commission (SRC) established to oversee rebuilding efforts after
Great Salem Fire.
1930 The City constructs Pioneer Village for the Massachusetts Bay Tercentenary as a recreation
of the earliest settlement in Salem.
1937 Salem Maritime National Historic Site is established. The 8.93 acre campus with 24
contributing resources formally designated in 1938.
1944 Historic Salem, Inc. established to save the Judge Corwin House (Witch House) and
Nathaniel Bowditch House from demolition for the widening of North Street.
1946 Hamilton Hall Ladies Committee begins first annual lecture series devoted to world affairs
to raise funds for the restoration of Hamilton Hall.
1948 Historic Salem Inc. restores Jonathan Corwin House to its ca. 1675 appearance and the City
of Salem opens it to the public as the “Witch House”.
1954 Boston & Maine Railroad Station (1886) demolished for construction of Riley Plaza.
1962 The Salem Redevelopment Authority (SRA) is formed to undertake urban renewal projects
within a 40-acre section of downtown.
1965 Ada Louise Huxtable article against Salem’s Urban Renewal efforts appears in the New York
Times.
1966 National Historic Preservation Act established and City lists its first properties in the
National Register of Historic Places.
1966 Historic Salem begins historic house plaque program.
1967 Historic New England acquires the Gedney House to save the First Period house from
demolition.
1968 The SRA begins a three year period of major demolition within downtown.
1971 The City designates its first local historic district, The Chestnut Street Historic District.
1971 Salem Historical Commission (SHC) is established.
1972 The SRA is reorganized with a new mission of rehabilitation and preservation.
1973 The Phillips family officially opens the Stephens Phillips Memorial Charitable Trust for
Historic Preservation in the family home on Chestnut Street. (Property acquired by Historic
New England in 2006)
1974 The City designates the Derby Street Historic District with 130 properties.
1976 The City designates the Federal Street Historic District.
1977 The City designates the Washington Square Historic District with 30 properties.
1978 Rear addition to City Hall added for climate controlled storage vaults for city archives.
Salem Historic Preservation Plan Update 2015
Chapter 1: Historic Overview of Salem Page 25
Date Preservation Activity
1979 Historic Salem, Inc. hosts first Christmas in Salem house tour.
1981 McIntire Historic District formed by consolidating and adding to Chestnut Street and
Federal Street Historic Districts.
1982 Fire destroys Second Corps Cadet Armory on Essex Street. National Park Service restores
drill shed at rear and stabilizes remaining portions of Armory’s façade.
1983 Salem Multiple Resource Area (99 properties) listed in the National Register.
1984 City establishes a Carriage House Ordinance to encourage preservation of City’s historic
outbuildings.
1985 Lafayette Historic District established with 37 properties.
1985 The SHC receives Certified Local Government (CLG) Certification.
1986 City approves Demolition Delay Ordinance.
1986 Essex National Heritage Area established with three primary themes – Colonial settlement,
Maritime, and early industrial.
1987 Salem Partnership established as a coalition of public, private, nonprofit, and government
entities working toward Salem’s economic revitalization.
1987 The Salem Project initiated by the National Park Service as a joint venture of government
and private groups. To enhance the message of the Salem Maritime Historic Site and to
assist in the preservation and interpretation of resources throughout Essex County.
1991 City prepares its first city-wide Historic Preservation Master Plan.
1992 Peabody Museum and Essex Institute merge to form the Peabody Essex Museum (PEM).
1994 Salem Willows Historic District listed in the National Register.
1996 U. S. Congress designates the Essex National Heritage Area, encompassing 34 communities
within Essex County.
1998 City Hall Council Chamber and Mayor’s Suite restored.
1998 City prepares comprehensive maintenance plan for City-owned historic properties.
1999 City acquires Salem Jail from the Commonwealth of Massachusetts.
2000 Historic Salem, Inc. establishes its Most Endangered Historic Resources Program.
2000 City deeds the Bowditch House to Historic Salem for restoration.
2002 Salem Redevelopment Authority sells the Old Salem Police Station to a private developer
who restores the building to include 14 condominium units.
2002 Bridge Street Neck Historic District listed in the National Register.
2008 Historic resources survey and preservation plan completed for the Point Neighborhood.
2008 City completes Neighborhood Preservation District Study to identify areas in city
appropriate for designation as a NPD. Report identifies Bridge Street Neck and the Point
Neighborhoods as potential districts and includes a draft NPD ordinance and specific
design guidelines for each neighborhood.
2009 Salem Redevelopment Authority sells Salem Jail complex to private developer, who
completes a certified rehabilitation of the Jail and Jail Keeper’s house in 2010 for residential
apartments, restaurant, and small jail exhibit.
2011 City updates its Urban Renewal Plan.
2013 City residents approve Community Preservation Act (CPA) with surcharge of 1% and the
North Street Fire Station listed in the National Register of Historic Places.
2014 Point Neighborhood Historic District listed in the National Register.
2015 Greenlawn Cemetery listed in the National Register.
Salem Historic Preservation Plan Update 2015
Chapter 1: Historic Overview of Salem Page 26
Chapter 2 - Salem Today
Salem’s Historic Neighborhoods & Areas
Historically, Salem began as a concentrated settlement on Salem Harbor. Over three centuries of
development, Salem transformed into a city with distinct neighborhoods surrounding and radiating from
the historic commercial and civic core of the downtown and waterfront. Each of Salem’s historic
neighborhoods and its commercial district are defined by unique historic development and land use
patterns. Each area is visually and culturally distinct, comprised of a collection of physical resources that
represents each neighborhood’s rich architectural and cultural heritage. These neighborhoods maintain
their own unique collection of historic homes, open spaces, schools, churches, institutions, and businesses
that, together, tell a collective story of the generations of residents who have called each area home.
Salem residents closely identify with their respective neighborhoods and demonstrate significant pride in
their community.
In a 2013 Salem Neighborhood Signs Report, the City identified 18 individual neighborhoods and areas:
Blubber Hollow Downtown North Salem Vinnin Square
Bridge Street Neck Gallows Hill Salem Common Winter Island
Broad Street Highland Avenue Salem Willows Witchcraft Heights
Castle Hill Mack Park South Salem
Derby Street McIntire District The Point
These areas, which are shown on Map 1: Salem’s Neighborhood Boundaries, differ from those discussed in
the City’s 1991 Preservation Plan, which focused on 11 geographic areas as identified in the City’s historic
resource inventory and the Massachusetts Historical Commission’s (MHC) Inventory of Historic and
Archaeological Assets of the Commonwealth. While this Preservation Plan Update uses the 2013
neighborhood list, the City’s inventory has not been updated to reflect this expanded list. Any
discrepancy between current and past neighborhood lists and boundaries are noted in the following
section on individual neighborhoods and in the historic resource inventory section in Chapter 3.
Since the 1970s, the City has inventoried 4,357 historic resources, listed more than 1,700 resources in the
National Register and protected more than 600 resources within local historic districts. While the City
initially concentrated most of its preservation activities in the McIntire District, Derby Street, and Salem
Common areas, it has expanded its efforts to identify, document and protect resources throughout the
community, including nominating resources in The Point, North Salem, and Salem Willows areas to the
National Register of Historic Places. Despite these efforts, areas such as Castle Hill, Witchcraft Heights,
Vinnin Square and Highland Avenue remain relatively undocumented and unprotected.
This Plan recognizes that historic neighborhoods and communities are not static; they continue to evolve
and change with each generation of residents. Due to the varied nature of Salem’s historic
neighborhoods, each area presents unique opportunities and challenges relating to historic resource
protection. As such, they may require individualized preservation strategies in order to protect their
special historic features. What works in one area may not be appropriate for another.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 27
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Map updated by SalemGISSeptember 30, 2015
CITY OF SALEM
MayorKimberley Driscoll
0 1,700 3,400850
Scale in Feet
City of Salem
Neighborhoods
Bridge Street Neck
Historic Highlights
• McIntire-designed Thomas March Woodbridge House
• Well-preserved collection of Federal, Greek Revival and
Victorian-era homes
• Former industrial area
• Collins Cove
• Bridge Street – former Ferry Lane (est. 1743)
Preservation Activity
• Bridge Street National Register Historic District
• 448 resources documented on historic resources inventory
forms
Recommendations
• Consider designation as a NPD or LHD
Preservation Opportunities & Concerns
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 listing of Bridge Street Neck Historic District in the
National Register in 2002 highlighted the historical significance
of this early neighborhood and residents are actively engaged
in efforts to restore their historic homes. The City has also
completed infrastructure improvements to Bridge Street, which
serves as one of the city’s primary entrance corridors. Previous
planning studies by the City identified the Bridge Street Neck
neighborhood as a potential Neighborhood Preservation
District. Attendees at meetings held in support of this Plan
expressed concern that commercial development along the
spine of Bridge Street could have negative impacts on the
adjoining residential neighborhood without thoughtful
consideration of design and use.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 29
Castle Hill
Preservation Opportunities & Concerns
Located to the west of the railroad tracks and south of the Broad Street
neighborhood, Castle Hill originally served as common pastureland known as
the Great Pasture and home to the Derby family farm. In the 1830s, the
Derbys sold their land to the Boston and Main Railroad, which blasted the top
of Castle Hill for the construction of new railroad tracks. Beginning in the
1850s, French Canadian residents began to relocate from the congested Point
Neighborhood to the rural atmosphere of Castle Hill where they constructed
new homes. After the City constructed a bridge in the early 1900s, linking the
area to downtown Salem, residential development expanded with new streets
and new single and two-family houses. The French Canadian community
continued to thrive, constructing Sainte Anne’s church in 1902. After a fire
destroyed the church in 1986, the congregation rebuilt and Sainte Anne’s
continues to be a community landmark for the neighborhood. The area also
includes an interesting collection of 19th century Victorian eclectic cottages and
late 19th and early 20th Queen Anne and Colonial Revival style houses and Craftsman style
bungalows. Unlike other areas of Salem, many of Castle Hill’s streetscapes include identical house
designs that present a pleasing repetition of roof forms and porches.
This area of Salem has had little preservation activity. Only nine resources have been documented
in the City’s historic resource inventory and no properties have been listed in the National Register
of Historic Places or designated as a local historic district. The City’s plan to place an historical
interpretive sign in the neighborhood would be the first step in focusing attention on the historic
and cultural significance of this important neighborhood.
Historic Highlights
• Once known as the Great Pasture & location of
the Derby Estate
• Sainte Anne’s Church
• Cultural importance as Salem’s French
Canadian Community
• Collection of modest late 19th and early 20th
century homes
Preservation Activity
• No historic designations
• 9 documented historic resources
Recommendations
• Priority for survey efforts
• Identify potential National Register resources
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 30
Downtown
Historic Highlights
• Historic commercial district
• Old Town Hall
• City Hall
• PEM historic campus
• Salem Jail
• Essex County Court Buildings
• Charter Street Burial Ground
• Howard Street Cemetery
• U. S. Post Office
• Historic churches
Preservation Activity
• Inventoried as part of “Central
Salem”
• Downtown Salem National
Register District
• Salem Urban Renewal Area
Recommendations
• Update inventory forms
• Consider preservation objectives
as part of development review
Preservation Opportunities & Concerns
Downtown Salem includes the city’s historic commercial district with an impressive collection of brick
and granite commercial buildings spanning more than two centuries of development. It is also serves as
Salem’s civic and cultural center with some of the community’s most significant public buildings,
churches, burial grounds and museums. Once the focus of demolition plans, to combat blighted
conditions during the 1960s, the downtown is now well-preserved and is listed in the National Register of
Historic Places as an historic district. It is also a designated urban renewal area overseen by the Salem
Redevelopment Authority.
The continued renaissance of the downtown has been a source of great economic opportunity and
excitement for the city as historic buildings are restored and revitalized, often through the use of historic
tax credits. Participants at public meetings held in support of this Plan expressed the important role that
design review plays in the urban renewal area to ensure that new development is visually compatible
with the historic buildings of the downtown and does not negatively impact the adjoining McIntire
Historic District. Continued vigilance to ensure the future preservation of City-owned historic buildings
and infrastructure and the currently-vacant State-owned County Courthouse buildings will also be
important. These efforts could be supported by updating the Downtown’s inventory forms, which were
last completed in the 1970s.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 31
McIntire District & Broad Street
Historic Highlights
• Nathaniel Bowditch House
• Witch House
• Broad Street and Howard Street Cemeteries
• Salem Public Library
• Salem Athenaeum
• Chestnut Street
• Hamilton Hall
• Quaker (Friends) Burying Ground
• Historic churches
Preservation Activity
• Inventoried as part of “Central Salem” (835 resources)
• National Register and Local Historic District
• MA Historic Landmarks
Recommendations
• Consider expanding historic district boundaries
• Strengthen LHD regulations
Preservation Opportunities & Concerns
The McIntire District and the Broad Street neighborhood are adjoining areas
bordering Salem’s Downtown. These neighborhoods include some of the
City’s most iconic residential architecture - the brick and wood Federal-era
mansions of Chestnut Street, the Federal and Greek Revival homes that line
Federal Street and the Victorian-era and Classical Revival style houses
surrounding Broad Street. These neighborhoods also contain some of the
city’s most significant public buildings, churches, burial grounds and
museums. Residents take great pride in their homes, which are well-
preserved and maintained. Portions of these neighborhoods are listed
together in the National Register as the McIntire Historic District and are
protected through designation as a local historic district. The City has highlighted the district through
interpretive signage and decorative bollards at the district’s entrance.
The 1991 Preservation Plan recommended expanding the McIntire District boundaries to include
additional resources, a recommendation still relevant in 2015. As stated earlier in the discussion on
Salem’s Downtown, it will also be important to ensure that new development along the periphery of the
historic Downtown is visually compatible with the visual character and scale of the McIntire Historic
District.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 32
Derby Street
Historic Highlights
• National Maritime Site
• House of Seven Gables
• Derby Wharf
• Derby Wharf Lighthouse
• Georgian style architecture
• Salem Harbor
Preservation Activity
• Derby Street National Register Historic District
• Derby Street Local Historic District
• 425 resources documented
Recommendations
• Consider expanding historic district boundaries
• Owner outreach to encourage preservation of
historic building fabric
Preservation Opportunities & Concern
Located on Salem Harbor, Derby Street is one of Salem’s oldest
neighborhoods with a collection of resources that span more than
four centuries of development. From the maritime legacy
preserved in the National Park Services’ Salem Maritime Site to
the literary significance of the House of Seven Gables historic
museum complex, this area has long been recognized for its
historic and cultural importance and has attracted visitors from
around the world. Residents take great pride in preserving the
17th, 18th and 19th century homes along the narrow streetscapes of
this densely settled neighborhood and new businesses with restored storefronts continue to open along
Derby Street.
Much of the Derby Street neighborhood is listed in the National Register and is protected as a local
historic district. In addition, the House of Seven Gables property is recognized as a National Historic
Landmark. The 1991 Preservation Plan recommended expanding the Derby Street Historic District’s
boundaries to incorporate additional resources, a recommendation still relevant in 2015. Identifying
opportunities to address building deterioration and deferred
maintenance, which is threatening the historic character and
architectural fabric of the neighborhood, will also be important.
In addition, the neighborhood’s close proximity to Salem Harbor,
which has been so integral to its identity and vitality, is now
posing a potential threat to its historic resources through climate
change impacts such as rising sea levels and storm surges.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 33
Gallows Hill – West Salem/Witchcraft Heights – Blubber Hollow
Preservation Opportunities & Concerns
Included within the City’s historic inventory area of “Gallows Hill”, the neighborhoods of Gallows Hill,
Witchcraft Heights and Blubber Hollow are three distinct areas with diverse collections of historic and
cultural resources. Within this area are the heritage landscapes of Gallows Hill and Salem Woods, the
19th century residential and commercial streetscape of Boston Street, the former industrial area of Blubber
Hollow along the North River Canal, and the mid-20th century Ranches and Split-level homes of
Witchcraft Heights.
The City has documented almost 500 historic resources within Gallows Hill and Blubber Hollow, but
documentation is still needed in the Witchcraft Heights/West Salem neighborhoods. Highlighting the
significance of these areas can help to foster greater public recognition and appreciation of the
architectural fabric of these modest homes and encourage property owners to preserve original features
such as wood windows, clapboards and architectural trim. There are currently no historic designations
in these three neighborhoods - no resources are listed in the National Register or designated as part of a
local historic district. The City has created the North River Canal Corridor (NRCC) district to encourage
the revitalization of this area and the preservation of its remaining historic resources and has installed
period lighting along Boston Street.
Historic Highlights
• Witchcraft Heights
• Gallows Hill
• Boston Street
• Pope House
• Joseph Hodges Choate Statue
• Dairy Witch
• 19th century workers’ housing
• Blubber Hollow
• North River Canal Corridor
• Industrial legacy of factory buildings
and modest workers housing
Preservation Activity
• Areas documented as part of larger
“Gallows Hill” area (471 resources)
• North River Canal Corridor Overlay
District
Recommendations
• Priority area for survey
• Consider preservation objectives
within NRCC
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 34
North Salem & Mack Park
Historic Highlights
Diverse collection of well-preserved
19th and 20th century homes
Northfields neighborhood
North Street corridor
Greenlawn, Harmony Grove & St.
Mary’s Cemeteries
Kernwood Country Club
Cabot Farm
Mack Park
North Street Fire Station
Preservation Activity
Individual NR properties
788 resources documented as part of
“North Salem”
Buffum Street recommended for NR
listing
Recommendations
Priority area for survey
Pursue NR listing for Buffum Street
and other eligible resources
Potential LHD areas
Preservation Opportunities & Concerns
Included within the MACRIS area of “North Salem”, the North Salem and Mack Park areas contain
impressive collections of 18th, 19th and 20th century residences, including both large single family homes in
the former North Fields and more modest workers housing built in the Mack Park neighborhood,
especially near the former factory area of the North River. Both neighborhoods also contain historic
public and private landscapes. The commercial streetscape of North Street travels between the
Northfields and Mack Park areas with converted residences, single story commercial blocks and an
historic fire station, while two historic cemeteries flank the east and west ends of North Salem.
Previous survey efforts and planning studies identified potential historic districts in these neighborhoods
but no local or National Register district designations have been pursued. The City has sought to improve
the residential and commercial streetscape of North Street through infrastructure improvements such as
period lighting and recently completed exterior repairs to the historic North Street Fire Station. The City
is also beginning efforts to restore the Dickson Chapel at Greenlawn Cemetery. However, despite the
efforts of many private homeowners, the area is experiencing incremental losses of historic building
fabric through replacement windows, siding and the removal of decorative architectural features.
.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 35
Salem Common
Historic Highlights
• Salem Common
• Hawthorne Hotel
• McIntire-designed Clifford-
Crowninsheld House
• Exceptional collection of well-
preserved Georgian, Federal,
Second Empire and Queen
Anne style homes
• Bertram House
• Roger Conant Statue
Preservation Activities
• Salem Common Local Historic
District
• National Register District
• 456 resources inventoried
• Efforts of Salem Common
Neighborhood Association to
preserve historic features of
Salem Common
Recommendations
• Expand boundaries of historic
districts
• Continue efforts to preserve
features of Common
Preservation Opportunities & Concerns
The Salem Common neighborhood contains some of the City’s most important and visually striking
collections of Federal, Greek Revival, and Victorian-era architecture. These residences are rendered in
both high style and more modest examples and constructed in both brick and wood. Surrounding the
Common and along its radiating streets, these houses are well-preserved and maintained. The landscape
of the historic Common is also well-maintained and efforts are underway to restore the cast iron fence
that borders the historic park.
This area has long been a focus of the City’s preservation efforts. The City designated the Common and
its surrounding residences as a local historic district to protect these houses from alterations that could
threaten or destroy their architectural and historic integrity. A recommendation in the 1991 Preservation
Plan to expand the boundaries of the district is still relevant. The Salem Common Neighborhood
Association has expressed concerns about the ongoing preservation of the historic Common as continued
public use and aging landscape features threaten the historic integrity of this iconic community
landmark.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 36
Salem Willows & Winter Island
Historic Highlights
• Willows Park
• Juniper Point summer
cottages
• Winter Island
• Coast Guard Hangar &
Headquarters Building
• Fort Pickering
• Fort Lee
• Lighthouse
• Plummer Home
Preservation Activities
• Willows National Register
Historic District
• 62 Buildings and 5 areas
documented
• Master Plan completed for
Winter Island
• Restoration efforts to
stabilize Fort Pickering
Recommendations
• Continue efforts to restore
historic forts
• Identify preservation
opportunities for Winter
Island resources
Preservation Opportunities & Concerns
The Salem Willows and Winter Island represent Salem’s longtime connection with its waterfront. These
areas contain exceptional collections of historic public buildings, landscapes and Victorian-era summer
cottages and commercial buildings set within the picturesque setting of Salem’s coastline. The Willows
Park, Winter Island, Fort Pickering and Fort Lee are all City-owned properties with great historic
significance. Each has been the focus of efforts to stabilize and restore their historic landscape features
and built assets. Both the Willows and Winter Island are listed in the National Register.
The City has identified the residential area of Juniper Point for potential designation as a local historic
district or Neighborhood Preservation District but has not pursued either designation due to a lack of
resident support. Over the past decade, the neighborhood has witnessed several demolitions of historic
houses as properties in this waterfront location are often worth more than the historic summer cottages
that sit upon them. Threats from climate change and rising sea levels are also a concern at Fort Pickering
and Winter Island lighthouse. Identifying opportunities to preserve the Coast Guard Hangar and
Headquarters building at Winter Island will also be important.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 37
South Salem & Vinnin Square
Preservation Opportunities & Concerns
South Salem and Vinnin Square are visually distinct areas located east of the railroad tracks between the
Point neighborhood and the Swampscott town line. South Salem contains one of the City’s most
impressive collections of late 19th Victorian-era and early 20th Revival style buildings. Many of these well-
preserved homes feature the elaborate architectural detail typical of the Queen Anne and Shingle styles of
architecture. Others exhibit the more reserved Classical features of the Colonial Revival. Rare examples
of mid-century modern houses are also found in this area. These historic residences are joined by the
distinctive yellow brick buildings of Salem State University and by the heritage landscapes of Forest
River Park and Pioneer Village. In contrast, the residential area of Vinnin Square contains a mix of 20th
century Craftsman style bungalows, Colonial Revival style homes, and Ranch and Cape houses.
The City has documented more than 250 resources on inventory forms and Lafayette Street is designated
a local historic district. However, the majority of historic resources in South Salem and Vinnin Square
remain undocumented and unprotected. Residents have expressed concerns about the potential impacts
of Salem State’s expansion on the character of the neighborhood. In addition, Pioneer Village’s remote
setting on the South River has raised concerns about flooding and vandalism.
Historic Highlights
• Forest River Park & Pioneer
Village
• Lafayette Street
• Salem State University
• Palmer Cove
• Fairfield Street
• Naples and Savoy Road
• Former Salem Branch Library
Preservation Activities
• Lafayette Street Historic
District
• 256 resources documented
primarily in South Salem area
• Naples and Savoy Roads
identified as potential NPD or
LHD
Recommendations
Priority areas for survey
Consider historic designations
to protect resources
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 38
The Point
Preservation Opportunities & Concerns
Stage Point represents one of Salem’s most visual reminders of the rebuilding efforts after the Great
Salem Fire of 1914. Almost entirely destroyed by the conflagration, the neighborhood was rebuilt within
a five to ten year period resulting in Salem’s most intact collection of Colonial and Classical Revival
architecture. The neighborhood of single and multi-family wood and masonry houses and brick
apartment buildings continues its legacy of providing affordable housing for local workers.
The recent listing of the Point Neighborhood in the National Register recognizes this area’s historic and
architectural significance. The area is undergoing a revitalization effort spurred by the efforts of the
North Shore Community Development Coalition (CDC). The CDC is utilizing both historic preservation
and affordable housing tax credits to restore its historic buildings and is encouraging other property
owners to restore their historic buildings. A previous planning study by the City recommended
designating this area as a Neighborhood Preservation District, a recommendation with continued
relevancy in 2015.
Historic Highlights
• Classical Revival style masonry
apartment buildings
• One of city’s most intact
collections of early 20th century
architecture
• Naumkeag Mill/Shetland Park
Preservation Activities
• Point Neighborhood National
Register Historic District
• 352 properties documented
• Identified as a potential
Neighborhood Preservation
District
Recommendations
• Consider for potential NPD
designation
• Continue to highlight historic
significance of neighborhood
• Support ongoing efforts to
preserve historic buildings
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 39
Highland Avenue
Historic Highlights
• Highland Park/Salem
Woods
• Old Salem Greens (est.
1933)
• Salem-Danvers Boundary
Marker (c. 1855)
• Salem Hospital (North
Shore Medical Center)
• Salem High School
(Collins Middle School)
• Highland Avenue
(originally Salem & Boston
Turnpike est. 1802)
Preservation Activity
• 14 resources documented
9 buildings
3 structures
2 objects
• No historic designations
Recommendations
• Priority areas for survey
• Consider areas for NR
listings and historic
designations
Preservation Opportunities & Concerns
As shown on the neighborhood map, the Highland Avenue area is a large geographic area located south
of Witchcraft Heights and west of the railroad tracks. This area encompasses the spine of Highland
Avenue between the downtown and Salem’s border with Lynn and Peabody. This geographic area
overlaps with Gallows Hill/Witchcraft Heights and there is some discrepancy between the recognized
boundaries of these areas in recent planning studies and the boundaries as defined in the City’s historic
inventory and the MACRIS database. As such, historic resources such as Salem Hospital (North Shore
Medical Center), Collins Middle School/Old Salem High School, Salem Woods and Salem Greens are
identified in the inventory and MACRIS as part of West Salem but are shown as part of West
Salem/Witchcraft Heights in the City’s recent Neighborhood Signs initiative.
Today, this area is known more for its new residential development, modern shopping plazas and
commercial development than for its historic significance. Little to no survey has occurred in this area,
and, as a result, very little is known about its history and the presence of historic assets. The area does
contain some examples of mid-20th century residential styles.
Salem Historic Preservation Plan Update 2015
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Salem’s Historic Resources 1
Note: Resources denoted with an asterisk (*) in this Chapter have been documented on an historic resource inventory form.
Salem is home to an exceptional collection of historic buildings, structures, objects, landscapes,
cemeteries, and archaeological resources found throughout the community. Each of the city’s historic
neighborhoods and its downtown contain unique resources, including: Central Salem with its historic
commercial buildings and Federal style architecture; Stage Point with its masonry Classical Revival
apartment buildings; South Salem with its Victorian-era and early 20th century homes; North Salem with
its intact collection of 19th century workers housing along the North River; the Willows with its well-
preserved Victorian summer cottages and amusement area; and Witchcraft Heights with its streetscapes
of mid-20th century Ranches, Capes and Split-level homes. Salem’s historic structures and objects include
wharves, lighthouses, seawalls, park structures, and public sculptures. While the majority of the city’s
public and private historic resources are well-preserved by their owners, there are instances of
deterioration and neglect. Futhermore, the ongoing use of artificial siding, roofing and replacement
windows is resulting in the incremental loss of historic building fabric which is slowly eroding the city’s
historic character. The need to identify, protect, and preserve Salem’s historic resources has been a
recurring theme through most of the City’s planning efforts over the past thirty years.
Historic Buildings
Salem’s rich cultural heritage is expressed through its historic buildings. Each of the city’s historic areas
has a distinct development pattern and building fabric that define its unique visual character. For
example, the Point Neighborhood’s collection of early 20th century masonry buildings indicates the
lasting impact of the Great Fire of 1914, which decimated the neighborhood. Determining appropriate
preservation strategies to protect the historic character of each historic area is important; what may work
in one neighborhood may not be appropriate in another.
To date, Salem has documented approximately 4,000 buildings on historic resource inventory forms
according to the Massachusetts Historical Commission’s MACRIS database. However, this represents
only a fraction of city’s buildings that are older than fifty years. According to estimates of the City’s
Community Preservation Committee, more than 12,500 building units in Salem were built prior to 1960.
Residential Buildings
Salem’s historic housing stock is varied, ranging from the grand
Federal brick mansions of Chestnut Street and the Salem Common
to modest vernacular wood-frame houses built for leather factory
workers in the 19th century. Examples of most architectural styles
popular in the United States during the past four centuries are
found in Salem’s historic neighborhoods, with some styles more
prevalent than others. From First Period homes of the mid-17th
1 Unless noted otherwise, construction dates and names for historic buildings identified in this section are based on information
accessed through the Massachusetts Historical Commission’s historic resource database.
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century to modern mid-20th century residences, these styles are rendered in various forms, materials and
levels of ornamentation. In addition to the Georgian and Federal period architecture that defines Salem’s
prominence as a Colonial seaport, other architectural styles present in Salem include examples from the
mid- and late 19th-century (the Second Empire style, rare examples of the Gothic Revival style, and
Queen Anne and Shingle style homes) and early and mid-twentieth century Colonial Revival style
homes. Rare examples of mid-20th century modern houses can be found in South Salem and West Salem
and Witchcraft Heights displays the city’s largest collection of mid-20th century Ranches and Split-level
homes. More sophisticated, architect-designed examples can be found on Chestnut Street, one of the
nation’s most architecturally significant streets, and around the Common, while examples of modest
vernacular workers housing can be found near Salem’s former industrial areas along the North River and
near Boston Street. In the Willows, the former summer colony of late 19th century Victorian-era cottages
still stand in Juniper Point although they have been winterized into year-round houses.
Salem’s historic residences are generally well-preserved, with many
private homeowners undertaking extensive restoration efforts to
protect the architectural details that make their homes special.
However, despite these efforts, the community continues to lose
historic building fabric and architectural details through the
replacement of wood clapboards, historic windows and slate roofs
with modern materials in neighborhoods not protected as local
historic districts.
Institutional Buildings
Salem has many public and private institutions that own some of the city’s most significant historic
buildings. These include the yellow brick and limestone Classical Revival style Y.M.C.A.* building (1898)
on Essex Street in downtown Salem and the Second Empire style Plummer Home for Boys* (1870) on
Winter Island, which began operations in 1855 with a bequest from philanthro pist Caroline Plummer.
The Y.M.C.A. and the Plummer Home continue to operate in their original buildings and the Y.M.C.A.
recently completed a restoration of its historic theater. Other
institutions include Salem Hospital and Nurse’s Home* (now the
North Shore Medical Center) on Highland Avenue, a 27-acre
complex that contains two early 20th century Neoclassical brick
buildings designed by the architectural firm of Haven and Hoyt.
While most of the city’s institutional buildings have been
documented, few have been protected from alterations that could
damage or destroy their historic and architectural integrity.
Religious Buildings
Salem is home to an exceptional collection of historic and architecturally significant ecclesiastical
structures, including the First Parish Church* on Essex Street designed by architect Gridley J. F. Bryant,
with windows by Tiffany and LaFarge, described as one of the most outstanding stone masonry Gothic
Revival ecclesiastical structures in the United States by architectural historian Bryant Tolles. Salem’s
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religious buildings are rendered in the popular architectural styles of their respective periods, including
the Federal, Greek Revival, Gothic Revival, Neo-Gothic, Romanesque Revival and Classical Revival
styles, as well as some rare Salem examples of the Shingle (the former Christian Science Church on Lynde
Street) and Exotic Revival (St. Nicholas Russian Orthodox Church* on Forrester Street) styles. Many of
these buildings were built by the leading architects of the time,
including the historic Calvary Baptist Church* (now Saint John’s
Ukrainian Greek Catholic Church) and the Exotic Revival style St.
Nicholas Russian Orthodox Church* both designed by Salem
architect William Devereux Dennis and the Church of the
Immaculate Conception* designed by Enoch Fuller who also
designed Plummer Hall at Essex Institute, the Superior Courthouse
and the Classical and High School at 5 Broad Street.
In addition to St. Nicholas Russian Orthodox Church* on Forrester Street, other Salem churches reflect
the city’s ethnic populations of their era including the former French Baptist Mission Church* on Canal
Street near the Point Neighborhood, St. Mary’s Italian Church (1925) and the former Irish Catholic
congregation of the Church of the Immaculate Conception* on Hawthorne Boulevard.
Today, most of these community landmarks are well preserved and continue to serve their original
religious purpose, although several have been renovated for reuse as residential and commercial uses,
most notably the Witch Museum. The majority of Salem’s churches are listed on the National Register
and several are located within local historic districts. Several are further protected with preservation
restrictions established when congregations received a preservation grant. The City has documented 22
of its churches on historic resource inventory forms, although many forms are more than 20 years old
with limited historic and architectural information. As these buildings continue to age, congregations
will be tasked with ongoing maintenance and restoration needs that can often exceed the financial
capacity of the church. Identifying opportunities to assist local parishes to ensure that these valuable
historic assets are preserved will continue to be important.
Table 1: Documented Historic Religious Buildings
Name Address Date Style Present
Use
Designation
Calvary Baptist Church 122-124 Bridge St 1904 Queen Anne Church NR
First Universalist Church 211 Bridge St 1808 Federal Church NR
French Baptist Mission
Church
65 Canal St c. 1912 English Revival Church
Crombie Street Church/J.
W. Barton Theater
7 Crombie St 1828 Greek Revival NR
First Church in Salem 227-231 Essex St 1826 Federal/
Romanesque
Revival
commercial NR
First Parish (North) Church 316 Essex St 1835 Gothic Revival Church NR, LHD, PR
Grace Episcopal Church 385 Essex St 1926 Neo-Gothic Church NR, LHD
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Name Address Date Style Present
Use
Designation
Revival
First Baptist Church 54 Federal St 1805 Federal, Italianate Court
library
NR
Saint James Catholic
Church
150-154 Federal St 1891 Neo-Gothic
Revival
Church LHD
Saint Nicholas Orthodox
Church and Rectory
64-66 Forrester St 1908 Exotic Revival Church NR, PR
Church of the Immaculate
Conception
17 Hawthorne Blvd c. 1860 Romanesque
Revival
Church
Lafayette Street United
Methodist Church
292-296 Lafayette
St
c. 1909 Neo-Gothic
Revival
Church LHD
First Church of Christian
Scientists
16 Lynde St 1897 Shingle Style Tourist
attraction
Wesley Methodist Church 18 North St 1889 Romanesque
Revival
Church NR, PR
Advent Christian Church 127 North St c. 1890 Victorian Eclectic Private
residence
Saint Thomas the Apostle
Roman Catholic Church
290 North St 1931 Neo-Gothic
Revival
Church
Saint Peter’s Episcopal
Church
24 Saint Peter St 1833 Gothic Revival Church NR
Saint John the Baptist
Church
30 Saint Peter St 1826 Federal Church NR
Saint Theresa’s Roman
Catholic Chapel
26 Summit St 1946 Postwar
Traditional
LHD
Free Spiritualist Church 34 Warren S c. 1915 Colonial Revival LHD
East Church 19½ Washington
Sq. N
1844 Gothic Revival “Witch
Museum”
NR, LHD
Tabernacle Church 50-54 Washington
St
1923 Classical Revival Church NR
Commercial Buildings
While each of Salem’s neighborhoods contain small clusters of
commercial development, downtown Salem is the city’s primary
commercial center. Commercial structures in Salem’s downtown
date from the early 19th century to the mid-20th century and
include the two-and-one-half story Federal style Abel Lawrence
House and Store* (1808) at 133 Washington Street to the four-story
1915 Classical Revival Masonic Temple* designed by Little and
Brown at 68-74 Washington Street. Downtown Salem is included
within Salem’s Urban Renewal Area and a portion is a National
Register Historic District. Outside of the downtown, the city’s entrance corridors of Boston, Bridge,
Lafayette and North Streets display a variety of historic commercial building types, including mid- to
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late-19th century multi-story wood-frame buildings (Boston and Bridge Streets), single-and multi-story
20th century masonry structures (North and Lafayette Streets) and converted residential buildings
(Boston, Bridge and North). The City has created overlay zoning districts for its entrance corridors to
enhance the major entrance ways to the City through emphasis on landscaping, fencing, and signage. The
City worked with the Massachusetts Department of Transportation (MADOT) to incorporate period
lighting along North Street and Bridge Street as part of the State’s roadway reconstruction projects to
enhance the appearance of these historic streetscapes.
Summer Resort and Tourism-Related Buildings
Salem’s waterfront location contributed to a burgeoning summer tourism industry in the mid- to late-19th
century. The City created Salem Willows Park* in 1858, named for the towering European white willows
planted in 1801 to benefit the patients at the small pox hospital (present area of Settlers Way). The first
concession stand opened in 1873 and in 1877, the Naumkeag Street Railway began running horse drawn
trolleys to Salem Willows. Railway owners built the Willows Pavilion at the end of the line with a skating
rink, restaurant for 300, and an observation tower. Within the next decade, an amusement park opened
as well as hotels, restaurant row, a casino, theater, ballroom, and carousel. A small summer cottage
enclave developed on Juniper Point adjacent to the Willows. While many of the original buildings of the
Willows have been lost, Willows Park still retains its original public park structures including a pavilion
and public bathhouse, and a long row of commercial buildings, with varying degrees of historic integrity,
still stands on the north end of Fort Avenue. The Victorian-era cottages of Juniper Point, including Queen
Anne, Colonial Revival, Shingle and Victorian Eclectic style examples, have been adapted to year-round
use and are well-preserved. The City nominated the Willows to the National Register in 1994.
The rise of Salem’s tourism industry during the early 20th century
resulted in a significant collection of historic assets, including the
Colonial Revival style Hawthorne Motor Hotel* (1924) designed
by Philip Horton Smith, which is listed on the National Register
and located within the Salem Common Historic District. In
addition, a number of private residences were converted to inns
and bed and breakfasts, including the Salem Inn located within the
former West-Cogswell House* (1834), a Greek Revival style brick
rowhouse on Summer Street.
Building Reuse - Former Public Schools, Libraries and Police and Fire Stations2
The City of Salem has a long history of ensuring that its former civic buildings are rehabilitated for new
uses when they can no longer serve their original public purposes. These include former schools, libraries
and public safety buildings that have been decommissioned and sold to private owners for new uses,
primarily residential. Two of the City’s former libraries, the North and South Branches, have been
restored for commercial uses and the former Endicott School* on Boston Street is now owned by
Children’s Friend and Family Services. Most of these former public buildings have been documented
2 Further discussion of Salem’s current education facilities and public library located within historic buildings is included later in
this chapter.
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and are now well-preserved by their current owners. As shown in the table below, some are listed in the
National Register and others are protected within local historic districts. However, none of these
buildings were protected by the City with preservation restrictions prior to their sale to private owners.
Three historic former parochial school buildings are currently vacant. The Saint James Catholic Church
School* (1906) at 154 Federal Street is still owned by the Archdiocese of Boston and is vacant, although it
has been leased by the City for public school purposes during school renovation projects. This building is
located within the McIntire Historic District. The former St. Mary’s School* at 13 Hawthorne Boulevard
in downtown Salem was most recently occupied by the Boys and Girls Club of Salem, but it is now
vacant and in deteriorated condition. The St. Joseph’s School and Rectory buildings in The Point
Neighborhood are also vacant and their future is uncertain.
Table 2: Former Public Schools, Libraries and Police and Fire Stations
Historic Building Date Location Protection
FORMER SCHOOLS
Salem State Normal School for Girls 1854 3 Broad Street LHD
Bentley Elementary School 1861 50-50 ½ Essex Street
Endicott School Boston Street
Pickering School 1893 181 North Street
Pickering School – Cogswell School ca. 1862 5 School Street
Philip Brinsley Sheridan School ca. 1930 41 Upham Street
Phillips School 1883 50 Washington Sq S. LHD
FORMER LIBRARIES
North Branch Public Library 1934 176 North Street
Salem Public Library – South Branch c. 1912 47 Ocean Avenue LHD
East Branch Library 1861 50 Essex Street Façade Easement
FORMER FIRE & POLICE STATIONS
Old Salem Firehouse c. 1875 30 Church Street SRA
Salem Police Headquarters 1913 17 Central Street NR/SRA
Engine House #9 – House Company #2 1858 121 Webb Street
Industrial Buildings
While Salem has a long history of industrial development,
particularly related to maritime industry, there are few
remnants of this heritage remaining today. Boat building
and other water-related industries were once staples along
Salem’s waterfront, but little evidence remains of these
important industries. Textile manufacturing and tanning
industries later became Salem’s primary industries. The
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Naumkeag Steam Cotton Mill* (1915), now redeveloped as the Shetland Properties, is one of the city’s
most prominent reminders of its industrial past. Other former industrial buildings include the Hygrade
Sylvania Corporation Building* (ca. 1935) at 71 Loring Avenue. This Art Deco building, a rare example
of this architectural style in Salem, has been incorporated into the Salem State University Central
Campus. Another Sylvania facility at the corner of Boston and Bridge Streets was demolished. Other
early 20th century industrial buildings located on Goodhue and Grove Streets on the North River in North
Salem near the North River are in varying stages of disrepair. While many of the City’s industrial
resources are documented on historic resource inventory forms, their history and presence are not well
understood by the public. The future reuse and revitalization of these vestiges from Salem’s industrial
past is often complicated by contamination issues found on many of these sites. Promoting preservation
tools such as historic preservation tax credits could encourage the preservation of these remaining
underutilized industrial landmarks.
Museums
Salem contains some of the region and the nation’s most important historic and
cultural museums. These include individual historic house sites as well as museum
complexes. The city also has a central Visitor Center operated by the National Park
Service. Further discussion of these museums, their missions, and their resources
are included later in this document.
• The Salem Maritime National Park Historic Site is located on Derby
Street and includes the Customs House, Pickering Wharf, and the
Friendship.
• The Peabody Essex Museum (PEM) is located in downtown Salem and
includes 20 historic buildings.
• The House of the Seven Gables is located on Turner Street in the historic Derby Street
neighborhood. The museum’s campus includes the iconic House of Seven Gables as well as
numerous historic buildings and an historic garden.
• Pioneer Village is located in South Salem within the City-owned Forest River Park is a recreated
village commemorating Salem’s first European settlement.
• The Witch House is a historic house museum located at the entry to the McIntire District on
Essex Street. The museum is owned and operated by the City of Salem and highlights the history
of its owner Judge Jonathan Corwin and the Salem Witch Trials.
• The Phillips House, operated by Historic New England, is a Federal style mansion constructed
in 1821 on Chestnut Street. This historic house museum displays interior furnishings from five
generations of the Phillips family and includes artifacts from Salem’s Great Age of Sail.
• The Salem Athenaeum is located on Essex Street in the McIntire District. Founded in 1810, the
Athenaeum constructed this red brick Classical Revival building in 1905. Today, the private
library is home to over 50,000 volumes.
• Hamilton Hall is located at the head of Chestnut Street and one of the nation’s most important
Federal buildings. Designed in 1805 by Samuel McIntire, the building has been in use as an
assembly hall for cultural and social events for over two hundred years.
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• The Pickering House is historic house museum owned and operated by the Pickering
Foundation. This 1651 First Period house was updated in the Gothic Revival style in 1841 and
today is America’s oldest home owned by a single family.
• The Gedney House, also owned by HNE, is a unique house museum that displays the original
structural components in its interior. One of the oldest surviving buildings in Salem, the house
was partially deconstructed in the 1960s before it was saved and preserved as an example of early
timber framing.
Carriage Houses, Garages and Outbuildings
While Salem has documented 87 historic outbuildings on inventory
forms, many others are undocumented and vulnerable to
alterations and demolition. These include the city’s collection of
residential outbuildings including carriage houses and garages,
which are frequently omitted from their respective historic
property inventory forms. The City has instituted a zoning
provision that encourages the reuse of historic carriage houses, but
few property owners have utilized this incentive.
Structures
Salem’s historic structures encompass residential, transportation, recreational, industrial and water-
related resources, including fences, gates, foundations, lighthouses, wharves, piers, seawalls, bridges, and
pavilions. According to the Massachusetts Historical Commission’s Massachusetts Cultural Resource
Information System (MACRIS), the City has documented 104 structures, including Baker’s Island
Lighthouse (1798), an iconic landmark in Salem Harbor that was acquired by the Essex National Heritage
Commission in 2015. The ENHC has begun restoration of the lighthouse and has opened the structure to
the public.
Today, Salem documented resources represent only a small percentage of the historic structures found in
the city and future inventory projects should include further documentation of these valuable resources.
Efforts should also include confirmation that previously inventoried resources are still extant and
document their current condition to ensure the future protection of these historic structures.
Landscapes
Salem’s heritage landscapes – areas created by human interaction with the natural environment – span
more than three centuries of development. Massachusetts Department of Conservation and Recreation’s
(DCR) Heritage Landscape Inventory Program identified the city’s heritage landscapes and presented
recommendations for their future preservation.
Examples of heritage landscapes in Salem include the Kernwood Country Club*, established in 1914 on
the former “Kernwood” estate (1844) of chemist Colonel Francis Peabody. The new Club converted
Peabody’s Gothic Revival estate house into a clubhouse. While this building was lost to fire in the 1930s,
the property still includes historic landscape features, structures and Gothic Revival caretaker cottages.
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Its location on the Danvers River adjacent to Cabot Farm, another important heritage landscape, provides
vestiges of the rural past of the former Northfields area of Salem. The Country Club was identified as
potentially eligible for listing in the National Register but has not been designated.
Another heritage landscape is Winter Island*. First known as “Aquidneck” (the Island) by Native
Americans, the island was renamed by English Colonists who moored their boats there during the
winter. The island played an essential role in Salem’s defense for centuries with the first fortification
erected in 1643 and later used as a U.S. Coast Guard Air Training Station, the first air and sea rescue
station on the Eastern seaboard. After the facility closed in 1970, the land reverted to the City for use as a
public park. Today, Fort Pickering (previously Fort William and Fort Anne), named in honor of Timothy
Pickering who served as Secretary of State under Washington, is poised for stabilization through City and
MHC funds. The Coast Guard Barracks and Seaplane Hangar have also been the subject of planning
studies in the past and are in need of restoration.
Other important landscapes in Salem include the Salem Common and the designed landscapes of
Greenlawn Cemetery and Harmony Grove Cemetery where decorative plant materials and structures
such as footbridges, fountains, man-made ponds, retaining walls, terraces, footpaths, and fencing were
incorporated into the cemetery design. These resources are discussed later in this chapter.
Private Cemeteries
Salem has three private burial grounds, one located in downtown Salem and the other two located in
North Salem. One is a historic burial ground located on the grounds of a church, while the other two
remain active cemeteries. While each of these cemeteries present very different features and designs, each
contains historic markers, fencing, objects and landscape features. Each cemetery is well maintained,
although some historic markers, tombs and landscape features are exhibiting signs of deterioration and
are in need of stabilization and restoration. These burial grounds have been surveyed and are included
in the MACRIS inventory, but limited historic information is provided on these forms. Further
documentation of individual markers and features would be beneficial, both in terms of documenting
carvings and inscriptions, as well as existing conditions. Only Saint Peter’s has been designated in the
National Register of Historic Places.
• Saint Peter’s Church Burying Ground* (ca. 1720), 22-24 Saint Peter Street. Listed in the National
Register, this burial ground contains an exceptional collection of 18th and 19th century slate
headstones displaying traditional carvings of death’s heads, winged effigies and urns.
• Harmony Grove Cemetery* (ca. 1840), 36 Grove Street. Designed in the rural cemetery style with
extensive landscape features, elaborate monuments and tombs, and picturesque views, this cemetery
also features an elaborate stone entrance and a well-preserved Neo-Gothic Revival Chapel. Many
prominent Salem and Peabody residents are buried in the cemetery, including members of the
Bentley, Crowninshield, Derby and Peabody families.
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• St. Mary’s Cemetery* (ca. 1845), 214-222 North Street. This Catholic cemetery reflects Salem’s Irish,
French and Polish heritage. Monuments are primarily granite or marble with many displaying Celtic
or Latin crosses, urns and laurel motifs.
Objects
Salem has an extensive collection of well-maintained and
preserved historic objects, including statues, monuments and
fountains found in the city’s parks, cemeteries, and traffic islands.
The City has documented 57 local objects on historic resource
inventory forms, ranging from 19th century boundary markers to
late 20th century military memorials but has not developed a map
identifying their location. The majority of documented objects are
City-owned, including historic monuments at Greenlawn
Cemetery. The City has iconic sculptures located at the Salem
Common and within traffic islands at various entrance gates to the
downtown. These include The Nathaniel Hawthorne Monument*
(1910) at 20 Hawthorne Boulevard, the Roger Conant Statue*
(1911) at Washington Square West and the Joseph Hodges Choate
Memorial* (1923) on Highland Avenue at one of the entrances to
the McIntire District on Essex Street. (See discussion under City-
Owned Objects later in the chapter.)
Archaeological Resources
Salem’s historic archaeological resources extend beyond the period of European settlement on the North
Shore. The city also has a wealth of archeological resources remaining from the area’s once extensive
Native American settlements. The State has documented Native American archaeological sites and
recorded 18th and 19th century historic archaeological sites within its boundaries. Archaeological
resources are extremely vulnerable to human interference and their locations are not made public. A
product of an archaeological survey of the city conducted in 1988, the City holds a city-wide map that
identifies all documented sites and areas that are considered potential locations for archaeological
resources. In order to protect these fragile resources, this map is confidential and not available as a public
document. Beyond the known archaeological sites, it is likely that more sites exist in Salem that have not
been identified. The City has identified general areas where the likelihood of archaeological resources is
high in an Archaeological Reconnaissance Survey completed in 1988.
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Publicly-Owned Historic Resources – City, State and Federal Resources
City-Owned Historic Resources 3
Historic buildings under the care and custody of the City represent many of the types of structures
usually owned by a municipality: a city hall, library, fire stations, schools and parks. The City also retains
ownership of its original Town Hall as well as other less traditional municipal buildings such as an
historic house museum (Witch House) and a recreated historic site (Pioneer Village.) The City also owns
numerous historic public parks and public objects located throughout the community.
In total, the City of Salem owns 16 buildings and numerous structures that are more than fifty years old.
These buildings represent a diverse collection of architectural styles and building materials including
several early 20th century brick buildings built after the Great Fire of 1914 as well as earlier and later
examples of buildings constructed in wood, granite, cast stone, and brownstone. The City also owns a
unique collection of late 19th century wood frame shingled bathhouse structures located in various city
parks. The structures are in varying stages of repair. The majority of the City’s buildings are listed in the
National Register and several are located within local historic districts. Several are also protected by
preservation restrictions in exchange for MHC-funded preservation grants.
While the majority of these buildings are well preserved with minimal alterations to their historic
architecture, these buildings are aging and many are in need of restoration. In response, the City has
sought Community Preservation Act historic preservation funds to restore its historic municipal
buildings and resources. The City has also sought creative solutions to address some of its underutilized
public buildings, leasing several buildings to private individuals who agree to restore the structures. (See
further discussion in section on Municipal Building Management.)
Salem’s Historic Public Buildings
City Hall*, 93 Washington Street in Central Salem. This iconic
granite Greek Revival style building with elaborate temple front
façade was built in 1837-38 and enlarged in 1876. The building’s
roof-top gilded American eagle was copied from an original by
Salem carver Samuel McIntire. The Council Chamber (1838)
features detailing and furniture dating from the building’s original
construction date. In 2014, the City completed an exterior
restoration project that included a roof replacement, masonry
repointing, and restoration of the building’s wood windows, front
doors, eagle, and light. City Hall is located within the City’s Urban Renewal Area and is listed in the
National Register of Historic Places. It is also protected by a preservation restriction held by the MHC.
3 Unless otherwise noted, historic information for these buildings was researched through historic resource inventory
forms and National Register documents.
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Old Town Hall*, 32 Derby Street in Central Salem. Built in 1816,
this brick Federal-style building was constructed by local builder
Joshua Upham. The building originally functioned as an open
market on the first floor and town offices on the second floor. The
building now serves as community meeting space with historic
interpretive displays on the first floor. In 2015, the City completed
exterior improvements and restored the building’s wood windows.
The building is located within the City’s Urban Renewal Area and
is listed in the National Register of Historic Places as the Old Town
Hall Historic District. The building is protected by a preservation restriction held by the MHC.
Fire Stations
• North Street Station*, 142 North Street in North Salem. This
Victorian Paneled Brick building, built in 1881, features elaborate
brick corbel details and arched wood windows. In 2014, the City
received an MHC MPPF grant to complete exterior repairs. The
building is listed individually in the National Register and is
protected with a preservation restriction held by the MHC.
• South Salem Station*, 40 Loring Avenue in South Salem. Built in 1917 and designed by Frank S.
Whearty, this brick Colonial Revival station features a limestone cornice, panels with glazed tiles,
and slate and copper roof. No protections or historic designations.
• Ward 3 Fire Station*, 415 Essex Street in Central Salem. Built in ca. 1915, this Colonial Revival
brick station with slate roof was designed by noted architects Kilham & Hopkins in collaboration
with Salem architect, Philip Horton Smith. The building features a slate hip roof, wood roof
balustrade with square balusters and fan panels, cast stone ornamentation, and wooden louvered
panels in the arch details above vehicle entrances. The building is located in the McIntire Local
Historic District.
Salem Public Library* 372 Essex Street in Central Salem. Built in 1855 as
the home of Captain John Bertram, this Italianate style brick and
brownstone building was given to the City in 1899 for use as a public
library. The building was enlarged in 1912 and a new wing was added
in the 1950s. In 2015, the City completed exterior repairs to the building
with partial funding through the CPA. The building is located in the
McIntire Local Historic District and is individually listed in the National
Register. The building is also protected with a preservation restriction.
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Center for Council on Aging, 5 Broad Street in Central Salem. Originally
constructed as the Salem Classical and High School*, this brick Classical
Revival style building is now used as a community center. Architectural
features include a heavily ornamented bracketed and modillioned wood
cornice, segmental arched stone window lintels, and a cupola with arched
openings. The building is in a significantly deteriorated condition and is
slated to be de-accessioned when a new Community Center is constructed.
Witch House, 310½ North Street in Central Salem. This 17th
Century First Period wood-frame and clapboard dwelling was
originally the home of Jonathan Corwin*, magistrate and justice
for the Salem Witch Trials. In 1945, Historic Salem acquired the
building, moving it back from Essex Street and restoring the
house to its 17th century appearance. The City of Salem took title
to the building in 1948 and opened it to the public as a furnished
historic house site. In 2009, the City completed restoration work
making the first floor universally accessible, replacing the wood
shingle roof, restoring plaster walls damaged by water, and repairing clapboards, which was partially
funded with grants from MHC and the Essex National Heritage Commission.
Collins Middle School, 29 Highland Avenue in Gallows Hill. Built in 1908-09, the former Old Salem
High School* was constructed in 1927-28 based on a design by architects Kilham & Hopkins. This
building is the largest and most elaborate of Salem’s three Neo-classical style school buildings. Details
include dentils and modillions, stringcourses, splayed lintels, swags and pilasters. The building ceased to
be the High School when the new Salem High School was opened in 1976. The exterior was recently
restored.
Saltonstall School*, Lafayette Street in South Salem. This
Neoclassical-style school was built in 1917 and designed by
architect James E. McLaughlin. Brick building features portico of
fluted Ionic columns, entry with paneled entablature and dentilled
broken pediment, dentil cornice, decorative swags, and splayed
lintels. The building’s exterior was restored in 2014.
Pioneer Village*, located in Forest River Park in South Salem. This replica of the colonial village of John
Winthrop and the Arbella fleet passengers was constructed in 1930 as Salem’s contribution to the
Massachusetts Bay Tercentenary celebration. The village was designed by Colonial Revivalist George
Francis Dow of the Society for the Preservation of New England Antiquities (SPNEA). The City restored
the village in the 1970s and after a series of management entities, it now operates the site as the nation’s
oldest living history museum. However, its remote location on the South River has resulted in flooding
and vandalism. Resources within the village include:
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• Governor’s House;
• Small dwellings made in period thatched-roof style;
• Blacksmith shop; and
• Period plantings, a small pond, and housewife’s gardens.
Salem’s Historic Public Parks and Landscapes
Fort Lee* (1776). Located on Salem Neck to the west of the Willows, Fort Lee is one of the State’s few
forts that still resembles its original configuration from the American Revolution and the War of 1812.
The earthwork fortification is organized in an irregular four pointed star configuration on the highest
point of the Neck. The fort is listed in the National Register. However, it is now overgrown with
secondary tree growth and high reeds, and advocates struggle to raise public awareness and recognition
of this important historic site.
Salem Common* (1802). Once a nine-acre parcel of swampy land,
the Common was upgraded in 1801 with new walkways, a
wooden fence and ornamental gates. The original gate included
carved wooden medallion of George Washington by Samuel
McIntire. The smaller replica of the Washington Arch, now
located on the Common, dates from 1976, when it was installed in
honor of America’s Bicentennial. Salem Common was the site of
the First Muster (1637) of the East Regiment, which signaled the
start of the National Guard. The Common is listed in the National Register and is located in a local
historic district. It is also protected with a preservation restriction. Resources include the cast iron fence
(1850), which is being restored with City’s funds and a matching grant from the MHC, and the 1926 Neo-
Classical Bandstand designed by Phillip Horton Smith and constructed during the City’s Tercentenary
Celebration. The Salem Common Neighborhood Association continues to advocate for the preservation
of the Common’s trees and landscape features.
Salem Willows Park*, Fort Avenue. Willows Park was created by
the City in 1858 and was named for the towering European white
willows planted in 1801 to benefit the patients at the small pox
hospital (now Settlers Way). The park’s first concession stand
opened in 1873. The Park is now a popular attraction throughout the
summer season for residents and visitors alike. Resources include
three shingled cottages (1905), five pavilions (ca. 1890) and an iron
gate with stone posts (1968). Ongoing maintenance of these
structures as well as the park’s trees and landscape features is challenging and the City recently leased
the former men’s bathhouse to a private steward who agreed to restore the exterior of the structure. The
Park is listed in the National Register.
Winter Island Park*, Winter Island Road in Salem Willows. This park played an essential role in Salem’s
defense for centuries. The first fort was built in 1643 with a series of added fortifications over the next
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century. Initially named Fort William, the fort was renamed Fort Pickering to honor Salem’s Timothy
Pickering, Secretary of State under George Washington. The fort was utilized during both the Civil and
Spanish-American Wars and in 1944 became home to the U.S. Coast Guard Air Training Station, the first
air and sea rescue station on the Eastern seaboard. After the Coast Guard Station closed in 1970, the
property reverted to the City to become a public park. The site is listed in the National Register and is the
subject of an ongoing stabilization project at Fort Pickering. Resources include:
• Fort Pickering (1643, 1864)
• Fort Pickering Light (1871)
• Coast Guard Barracks
• Seaplane Hangar
Mack Park, 59 Grove Street in North Salem. This park was
originally the estate of Dr. William Mack who constructed his stone
house on Ledge Hill in ca. 1860. In 1896, his heirs donated the
property to the City for use as a public park, Ledge Hill Park. The
City constructed several shingled bathhouses and a pavilion on the
property. Despite its continued use as a public park, the site’s
structures are now deteriorating and the stone entrance gates to the
park were recently vandalized and are in need of repair. The City
instituted a lease agreement with a private steward to restore the Mack House and serve as caretaker to
the site.
Gallows Hill Park, 53 Hanson Street in Gallows Hill. Established in 1912, this park features a
Playground Club House (1913) and an open pavilion with Doric columns. The City is seeking to
undertake repairs to the existing resources at the Park.
Forest River Park, 32 Clifton Avenue. Created in 1910, Forest
River Park incorporated the historic farmhouse of Colonel
Timothy Pickering (ca. 1817), which became the park
caretaker’s house. The City added bathhouses, playground,
courts and fields and a salt water swimming pool
(transformed to fresh water in 1999). In 1930, the City
constructed Pioneer Village to commemorate the Tercentenary.
Salem Woods, Willson Street (1906) was used as a pasture for
animals until the City purchased the land in 1906 for the creation of the public “Highland Park”. In 1933,
the City opened the 75-acre Old Salem Greens Golf Course as a Works Progress Administration project
within the park.
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Salem’s Historic Public Objects
City-owned historic objects include monuments, sculptures and memorials located in the Downtown,
Salem Common, McIntire District, and North Salem areas. These include:
• Joseph Hodges Choate Memorial* (1923) bronze statue at corner of Essex and Broad Streets
• Roger Conant Statue* (1911) bronze statue located on Washington Square West
• Nathaniel Hawthorne Monument* (1910), bronze statue located at 20 Hawthorne Boulevard
• Father Theobald Matthew Monument* (1887) marble statue located at 28 Hawthorne Boulevard
• Civil War Monument* (Salem 23rd Regiment Volunteer Infantry, boulder with bronze plaque
located at Washington Square North
In 1994, local volunteers completed SOS (Save Our Sculptures) questionnaires to document the conditions
of many of its larger sculptures and over the past decade has restored several of its bronze sculptures,
including the Roger Conant statue, which was selected as one of 100 milestones in heritage development
by the Essex National Heritage Commission and received a President’s Award from the Commission in
2006, and the Choate Memorial, which was restored in 2015 with CPA funds.
Salem’s Historic Public Cemeteries
The City of Salem maintains and operates five cemeteries, with only one (Greenlawn Cemetery) still
active for new burials. All of Salem’s cemeteries and burial grounds are listed in the National Register of
Historic Places and several are designated within local historic districts. Each site contains important
historic resources, including burial markers and tombs, historic fencing, buildings, and other structures.
As with the city’s private cemeteries, all of Salem’s municipally-owned cemeteries are well maintained,
but many of the historic stones and their foundations are beginning to deteriorate and are in need of
restoration. The City commissioned a plan to identify restoration needs at each of its cemeteries.
Volunteers have begun to document stone inscriptions in several cemeteries. When funds are available,
the City has hired a restoration professional to stabilize stones and restore features, including recent
efforts in 2015. Participants at the public hearing for this plan identified the need to institute management
programs for each of the City’s historic cemeteries.
♦ Charter Street Burial Ground, 51 Charter Street in Central Salem. Salem’s oldest burial ground
was established in 1637 in what was then a residential area of the city. This cemetery contains
one of New England’s finest collections of gravestones from the 17th, 18th and 19th centuries,
including slate stones and box tomb markers organized in informal rows. The landscape includes
relatively flat terrain and mature trees bordered by major granite retaining walls on Central
Street (west side) and Derby Street (south side) and a smaller granite block wall along Liberty
Street It is now one of the City’s most visited historic sites and is listed in the National Register.
♦ Howard Street Burying Ground, 29 Howard Street in Central Salem. Established in 1801, this
burial ground is one of Salem’s youngest and features approximately 1,200 gravestones with
more than half rendered in slate. Prominent burials include members of the Bates, Dodge, Dow,
Endicott, Peabody, Parker, Ropes and Putnam families as well as Irish immigrants and war
veterans. There are a significant number of tombs in the cemetery. The site features a relatively
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flat terrain that slopes to Bridge Street with three stone retaining walls all bordered by a chain
link fence. It is listed in the National Register.
♦ Broad Street Cemetery, 5 Broad Street, in Central Salem. Established in 1655, this cemetery is
bordered by high stone walls along its east, south and west sides and a wrought iron fence with a
wrought iron gate with granite posts at its Summer Street entrance. The cemetery features
gravestones that exemplify the changing views of death in American society through materials
(slate, marble, granite) and iconography (early carvings of winged face images and later
examples of classic urn and willow motifs.) It is listed in the National Register and located
within the McIntire Historic District.
♦ Friends Cemetery, Essex Street in Central Salem. This narrow rectangular burial ground is
Salem’s smallest cemetery set amidst a residential neighborhood off Essex Street. It is
surrounded by high granite walls on its east, north and west sides and a fence with wrought iron
pickets on a low granite base on the south/Essex street side. A single entrance with a wrought
iron carriage gate on granite posts is located on Essex Street. The cemetery features
approximately 144 headstones and footstones, primarily marble. Gravestones reflect philosophy
of Quakers with little or no iconography or decoration. It is listed in the National Register and is
located within the McIntire Historic District.
♦ Greenlawn Cemetery, 57 Orne Street in North Salem. Established in 1807, the cemetery was
expanded in 1846 when it was redesigned in the garden style with fountains, paths and flowers.
It was later enlarged at the turn of the 19th century to its
present 100 acres and a stone Neo-Gothic Chapel was
constructed. In the 1930s, a brick Cemetery office and a
greenhouse were built and WPA workers planted
hundreds of trees and shrubs on the grounds. Greenlawn
now features more than 150 species of trees and shrubs,
including several rare species. The Cemetery was listed in
the National Register in 2015 and a Friends Group is
working to highlight its historic significance through
walking tours and interpretive markers. The City is also considering plans to restore the historic
Dickson Memorial Chapel (1894). Other historic resources in the cemetery include:
• Cemetery Office building (1933)
• Main entrance gate (1903) and Orne Street gate (1942)
• Dickson Bridge (1928)
• Dickson Steps (1929)
• Cast iron fence (1887)
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Commonwealth of Massachusetts Historic Resources
Salem’s designation as the Essex County Seat in 1643 had a profound impact on the development of
Salem’s downtown and resulted in some of the city’s most distinctive architectural landmarks within the
City’s Urban Renewal Area. Many of these buildings are listed in the National Register as part of the
Downtown Salem Historic District. Some buildings, such as The Essex County Jail* (1811) and
Jailkeeper’s House* (1813), are also protected with a preservation restriction. These former jail buildings -
the imposing granite Federal style jail and its adjoining brick Federal style jailkeeper’s house - have been
restored for residential use as a certified historic tax credit project. The Jail building also includes a
restaurant space and small museum display that commemorates the history of the jail. Today, these two
buildings stand as iconic landmarks at the edge of Salem’s downtown district.
The three historic Courthouse buildings that make up the Essex County Court Complex National Register
District are still owned by the Commonwealth of Massachusetts. They stand together on a single block of
Federal Street linking the downtown to the McIntire Historic District. These buildings, which are in
varying stages of preservation and use, present one of the city’s most impressive historic streetscapes.
The only building still in use by the Commonwealth of
Massachusetts is the Registry of Deeds and Probate
Building* (1909) at 36 Federal Street, which is being
preserved as part of the new Michael J. Ruane
Courthouse development for continued use as the
Probate Court. Architectural historian Bryant Tolles
called it one of the finest Classical Revival buildings in
the Boston area. This granite Classical Revival style
building was designed by Boston architect Clarence H.
Blackall. The historic building’s imposing fluted, two-
story, Ionic columned portico served as inspiration for
the façade of the building located directly to its west. The former First Baptist Church* (1805) at 54
Federal Street was also incorporated into the judicial complex as a legal library.
The remaining two courthouse buildings are currently vacant and still owned by the Commonwealth
through its Division of Capital Asset Management and Maintenance (DCAMM). The Old Granite
Courthouse* (1841) at 32 Federal Street, a massive granite building with two-story Corinthian columns
designed by architect Richard Bond, who also designed Salem City Hall, was described by Tolles as one
the most outstanding Greek Revival civic buildings surviving in New England. The Essex County
Superior Courthouse* (1862) at 34 Federal Street is dramatically different in design and materials from its
neighbors. This three-story brick Italianate style building with Romanesque Revival modifications was
designed by Enoch Fuller.
Salem State University* (1897-1960) was established in 1854 as the State Normal School. Originally
located at 1 Broad Street, the school was moved to its present location on Lafayette and Loring Avenue in
1896. In 1972, the University incorporated the former Italianate style Loring Villa* and Second Empire
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style Convent St. Chretienne* (ca. 1870-1918) at 262 Loring Avenue as its South Campus. The University
also owns the National Register-listed Salem Diner in South Salem and the Cat Cove Facility on Winter
Island. Salem State University (SSU) and Loring Villa/St. Chretienne were both identified as potentially
eligible for listing in the National Register of Historic Places.
Federally-Owned Historic Resources
The National Park Service operates the Salem Maritime Site on Derby Street, which encompasses a
significant collection of historic buildings and waterfront resources (see later discussion in the section on
Preservation Partners). Other historically significant federal government buildings in Salem include the
Colonial Revival style brick U.S. Post Office – Salem Main Branch* (1932) at 2-4 Margin Street.
Overview of Previous Preservation Planning Studies in Salem
For almost 50 years, the City of Salem has engaged in planning efforts to protect its historic character and
architectural resources. The following overview of these planning studies includes recommendations set
forth in these plans. The City has implemented many of the recommended strategies but others are still
outstanding and should by pursued if still relevant
1979 Community Development Master Plan
First in a series of comprehensive long-range plans developed by the City, this report focused on
the following elements: environment, economy, waterfront, housing, neighborhoods, and
community appearance; community facilities and services; and transportation and
communication. Discussion of historic resources and preservation concerns were incorporated
into the chapters on Economy (tourism) and Waterfront (historic overview of resources and goal
to recognize and reclaim waterfront heritage). Completed in the decade following urban renewal
demolition in the downtown, this plan acknowledged that the City was beginning to recognize
the historical and architectural significance of its residential and commercial structures. It also
provided a survey of each of the city’s neighborhoods, establishing defined boundaries and
housing conditions. Recommendations and action strategies included:
Restore Fort Lee and Fort Pickering and encourage their use by residents and tourists;
Provide public incentives for private investments in architectural preservation,
housing rehabilitation, and neighborhood stabilization;
Provide public improvements in the Common Neighborhood including capital
improvements to the Common itself, as well as sources of funding to repair fence;
Preserve the character of existing Victorian structures in the Lafayette Street
neighborhood; and
Expand Historic District Area to include other historic structures.
1987 Winter Island Comprehensive Plan
Developed in conjunction with the City’s receipt of Urban Self-Help and Coastal Zone
Management funding for landside and marine improvements to the park, this report identified
the need to restore the former Coast Guard hangar and barracks building and secure the Powder
House and harbormaster’s headquarters from further damage. According to the plan, the NPS
had indicated some interest in becoming a managing partner with the City for the restoration of
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the island, but after the NPS backed out, the City eliminated building improvements from its
plans for the park. In 1987, the City was exploring the possibility of listing the entire island on the
National Register to make it eligible for MPPF grant funds and was seeking assistance from Salem
State College to restore the hangar as a boat building and storage facility in conjunction with the
College’s sailing program. The report identified goals to immediately secure the barracks building
(which was open to weather) from further damage and renovate the office building for municipal
office space such as the Parks Department.
1988
Salem, Massachusetts: An Archaeological Survey of the City, Mrozowki, Shaw, Holland &
Zisk
Dr. Stephen Mrozowksi and a team of graduate students from UMass Boston and Amherst
conducted a city-wide survey to collect and analyze data of archaeological resources in Salem,
provide recommendations for site protection and long-term management, and prepare public
information materials. The team identified priority archaeologically-sensitive areas and presented
opportunities to use several of these areas for public interpretation: Site of Old Planter’s
Settlement, Winter Island, Blubber Hollow, Essex Street/Derby Street District, Salem’s Historic
Cemeteries, County Jail/Jailkeeper’s House, site of John Ward House and Howard Street
Cemetery, Maritime Waterfront Underwater District, and Salem Willows. The report concluded in
a set of recommendations for consideration:
Undertake an archaeological survey of all city-owned properties;
Pass ordinance to protect archaeological sites not covered by state or federal
legislation;
Hire a City Archaeologist, possibly in conjunction with PEM;
Compile inventory of City’s historic cemeteries and take steps to curb vandalism and
repair damaged headstones;
Include Winter Island as part of a multi-resource archaeological park;
Revitalize Forest River Park and include Native American Village reconstruction;
Expand Salem Maritime National Historic Site to include properties in Essex
Street/ Derby Street District; and
Place more emphasis on interpretive potential of City’s historic cemeteries.
1991
Salem Preservation Master Plan, Northfields Preservation Associates
Salem’s first municipal historic preservation plan focused on improving identification,
documentation and protection of the city’s historic resources. This included recommendations
relating to historic survey efforts, National Register and local historic district designations,
strengthening of municipal preservation regulations, and integration of preservation objectives
into the development review process. Over the past 25 years, the City has implemented many of
the recommendations set forth in this plan, including recommendations for National Register
listings. The SHC has also improved its design review guidelines and has engaged in historic
resource survey efforts. The City also completed a comprehensive maintenance plan for its
historic buildings in 1998. Other recommendations remain outstanding, however, including many
related to the integration of historic preservation objectives into the development review process.
Recommendations related to the City’s demolition delay regulations are also still outstanding. For
this update, the SHC’s staff reviewed the outstanding recommendations to assess their continued
relevancy in 2015. Recommendations still relevant are incorporated into Chapter 4 of this Update.
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1996 City of Salem Master Plan Update and Action Plan, The Saratoga Associates
This planning document included goals to improve maintenance of the City’s parks and target
Winter Island for major improvements: improve maintenance of the Salem Common and Salem
Willows Park, restore and develop interpretive signage for historic resources on Winter Island;
and protect and improve areas of historical significance including expansion of Salem’s 1630
Pioneer Village. Specific recommendations relating to historic preservation objectives included:
Consider Neighborhood Conservation Districts to protect historic resources outside of
official historic districts (Buffum Street, Dearborn Street, Fairfield Street, Naples/Savoy
Roads, Willows/Juniper Point); and
Consider expanding historic districts including streets surrounding Common to Bridge
Street, Derby Street and Collins Cove.
1998 Historic Preservation Maintenance Plan, City of Salem, Finch & Rose
This report provided an historical overview of 20 City-owned historic properties with
stabilization, restoration, and maintenance recommendations for each property. All of the
properties are still owned by the City of Salem and several have been restored or are in the
process of restoration since the plan was prepared, including City Hall, the North Street Fire
Station, public library and several monuments. Others have been renovated, including a bath
house at the Salem Willows and the Palmer Cove Community Center. While the
recommendations set forth in this plan are now almost 20 years old, those that have not been
addressed can still serve as a guide for future efforts. These resources are discussed in greater
detail earlier in this chapter and in the Public Property Management section of Chapter 3.
2002 Burial Ground Planning Project, Paysage, Fannin-Lehner Consultants, Warwick Carpenters
Company and CME Associates, Inc.
This plan was intended to provide the City with a first step in its long-term efforts to preserve its
historic burial grounds and provide public access to these important cultural resources.
Objectives of the plan included preserving and protecting landscape features and enhancing
entrances and circulation systems. The plan focused at the Broad Street, Charter Street and
Friends Cemeteries and the Howard Street Burying Ground, describing historic contexts and
views, current conditions through narratives and maps, description and assessment of landscape
features, and long term recommendations for improvements and care. Recommendations focused
on each site’s specific landscape features, objects, and structures and included cost estimates for
each site. The plan also included landscape management guidelines with techniques to stabilize
landscapes and make them self-sustaining to limit the need for maintenance. Additional sections
of the plan included an historical chronology and historic photographs, images and maps of the
city’s burial grounds, engineering reports on each burial ground’s tombs, retaining walls, and
fences with estimated costs for improvements; an assessment of conditions of
gravestones/monuments in each burial ground, with conservation needs and treatments; and
general recommended methods and techniques for stone conservation. Survey documents for
individual markers and MHC Form E- Burial Grounds forms for each burial ground are also
included in the report.
2003 “For the Defense of Salem” Fort Lee and Fort Pickering, Conditions Assessment, Cultural
Resource Management Survey, and Maintenance and Restoration Plan Project, Final
Archaeological Report. Crane & Morrison Archaeology and Gray Architects, Inc.
This planning endeavor resulted in two separate documents, one to document the historical and
archaeological significance of the forts and the other to address comprehensive management of
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both sites. The management document focused on the preservation of archaeological resources,
as well as issues of public access, public education, maintenance, restoration, appropriate uses,
and management structure. In particular, the management report focused on issues of public
access vs. protection of each fort’s historic integrity. This included consideration of impacts of
existing pathways on historic features and recommendation for the removal of trees/vegetation
that obstruct historic viewsheds and cause physical damage to resources. Current preservation
efforts at Fort Pickering, funded in part with a MHC grant, are addressing some of the
recommendations of this plan, which included repairs to both sites and the removal of brush and
some mature trees. The report also recommended banning bicycle and motor bikes, installing
barricades to discourage foot traffic in high-risk areas, relocating gardens to more appropriate
sites, establishing guidelines for public activities, and raising awareness of shoreline erosion.
2005 Salem Reconnaissance Report: Essex County Landscape Inventory, Massachusetts Department
of Conservation and Recreation
Completed as part of the Massachusetts Heritage Landscape Inventory Program, this report
examines priority heritage landscapes that were identified as part of a public participation
process: Bridge Street Neck, Common and Derby Street; Broad Street Cemetery, Charter Street
Cemetery, and Howard Street Burying Ground; Kernwood/Cabot Farm Area; Pioneer Village;
Salem Neck; Salem Woods (Great Pasture); and Winter Island. The historical significance of each
landscape was presented and planning issues were identified. The report concludes with a set of
planning recommendations that included updating the City’s 1991 Preservation Plan, continuing
survey and National Register efforts, as well as more specific recommendations relating to burial
ground preservation (specialized training for cemetery workers), preservation of the city’s
neighborhood character (designation of new local historic districts and neighborhood
conservation districts) and securing preservation funding (grant programs and adoption of the
Community Preservation Act). Site-specific resource recommendations including; designation of
Bridge Street Neck and Juniper Point as Neighborhood Conservation Districts; documentation of
Pioneer Village and Salem Woods on inventory forms and nomination to National Register if
determined eligible; preparation of interdisciplinary management plan for Salem Woods that
addresses natural, cultural and recreation issues; and securing funds for stabilization, and a
master plan for Winter Island.
2007 Open Space and Recreation Plan 2007-2012, Vanasse Hangen Brustlin, Inc.
This plan was completed in 2007, with an action plan update in 2012 to extend the plan’s
relevancy to 2014. While open space and recreation plans are primarily focused on a community’s
natural and recreation resources, many of Salem’s open space and natural resources have historic
and cultural significance. The plan does provide a brief analysis of the city’s cultural,
archaeological and historic areas, including Forest River, Winter Island, the Willows and Salem
Woods. While the Plan does not specifically identify needs and goals for historic and cultural
resources, it does identify needs relating to the City’s historic facilities, including the restoration
and reuse of historic resources at Winter Island and repairs to structures at the city’s historic
parks. Action items include adoption of the Community Preservation Act, a general goal to work
with SHC and Historic Salem to assess historic resources to prioritize those most endangered, and
a recommendation to improve resident and visitor perception of Salem’s waterfront and harbor
location by providing information on the City website regarding Salem history and
recreational/historic opportunities for visitors.
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2007 Structural Assessment for the Old Town Hall and Old Town Hall Building Condition Report,
Structures North, Inc. and Essex On-Site Services
These two plans assessed the current condition of Old Town Hall, including interior and exterior
conditions, structural systems, mechanical systems, and ADA and MAAB compliance. The plans
presented recommended work based on these conditions. At the time, only a relatively minor
amount of repair and maintenance was required to bring building structure and exterior envelope
up to a “state of good repair”.
2008 Point Neighborhood Historic Resources Survey and Preservation Plan, Vanesse Hangen Brustlin
The purpose of this plan was to prepare an inventory of the Point Neighborhood’s historic
resources and assess current conditions and historic and architectural significance of the
neighborhood. Based on the findings, the plan identified possible programs and policies that
would benefit preservation efforts in the neighborhood and presented a series of
recommendations and an action plan for accomplishing preservation goals. In addition to a
recommendation to seek National Register listing for the neighborhood, which has been
accomplished, the report also established many recommendations that are still relevant today.
These include recommendations to strengthen the City’s demolition delay ordinance by
increasing delay period to 12 months and establishing a penalty for non-compliance, establishing
a Neighborhood Conservation District Ordinance and a demolition by neglect program, and
developing educational initiatives such as improvements to City’s website relating to historic
preservation; creating illustrated brochure on Point Neighborhood’s history and architecture;
establish walking tours and interpretive signage and materials for the Point.
2008 Neighborhood Preservation District Study 4, Vanesse Hangen Brustlin
Purposed to research the concept of Neighborhood Preservation Districts and identify relevancy
for Salem’s neighborhoods, prepared a draft ordinance and drafted design guidelines for two
neighborhoods and created educational materials/brochures. Included a map of potential NPD
boundaries and recommendations for area preferable as LHDs. Examined the neighborhoods of
Salem Willows, area between Derby Street and Salem Common, High/Endicott Streets area, North
Salem (Grove Street, Buffum Street, Flint Street, Dearborn Street, Salem Rebuilding Area, and
North Street), South Salem (Fairfield Street, Pre-Fire Area, Derby and Messervy Estates Area),
Naples and Savoy Roads, Gallows Hill and Boston Street Area, Bridge Street, and the Point. After
an extensive public process, the City chose to focus on the Point and Bridge Street Neck for the
study and presented recommendations for the NPD approval process.
2009 Salem Bridge Street Neck Neighborhood Revitalization Plan, The Cecil Group, Inc.
Funded through the Gateway Plus Action Grant Program, this plan focused on improving
housing conditions, quality of life and community engagement to revitalize the Bridge Street
Neck neighborhood, one of the city’s oldest settlements. Goals included improving business
climate on Bridge Street, identify measures to reduce foreclosure and stabilize local housing
market, and physical improvements to enhance overall quality of the neighborhood. While not
specifically focused on historic preservation, the plan acknowledges the neighborhood’s historic
resources including two National Register Districts and one listed building and recommends
promoting the use of historic preservation tax credits for building revitalization and the potential
for designation of the neighborhood as a local historic district or Neighborhood Preservation
District (NPD).
4 Note: The term “ Neighborhood Preservation District” is used interchangeably with “Neighborhood Conservation District”.
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2014 Ready for Tomorrow: The City of Salem Climate Change Vulnerability Assessment & Adaptation
Plan
This planning document begins with an overview of Salem’s development history, particularly its
filling of coastal areas and wetlands to create more land area. The report investigates some of the
most serious climate change impacts (extreme precipitation events, sea level rise, storm surge and
extreme heat events) that may affect the city and the resulting stresses to different sectors of the
community. It culminates in an outline of project ideas to address some of the most critical issues.
These ideas include opportunities to proactively plan for climate change rather than reactively
responding after an event. As part of its review of the Critical Building Infrastructure sector, the
plan reviewed historical and culturally significant buildings and areas. For historic resources in
the city, the plan recommends conducting vulnerability assessments, prioritizing vulnerabilities,
developing adaptation strategies, and publishing an adaptation plan.
This plan provided a general overview of potential property damage and loss of historic
properties. While it did not focus on specific sites, it did discuss tide gates at the South and Forest
Rivers and Lafayette Street, which were noted as aging and in need of repair. The report also
discussed the insufficient capacity and drainage of the City’s stormwater system with
recommendations for green roofs and permeable pavements. The following are the
Recommended Strategies for Property Damage or Loss of Historic Properties:
Evaluate buildings for flood proofing opportunities;
Re-site existing facilities outside of future flooding levels;
Elevate buildings out of flood risk;
Elevate a building’s critical uses within the building; and
Flood proof buildings through “dry flood proofing” to prevent water infiltration and
“wet flood proofing” to allow controlled water infiltration that can be easily repaired.
2013 Salem Public Art Master Plan, Via Partnership, LLP
This plan outlines innovative and community-building public arts projects for Salem, some
related to proposed construction projects and others focused on existing places. In addition to
promoting new art in the community, the plan identified the need for conserving and maintaining
the city’s existing public artworks. For new artwork, the plan set forth priorities for focusing art
in civic spaces, entrance gateways, along historic walks, and in city neighborhoods. The plan
recommends that a Public Art Commission member have a background in architectural history.
2015 Community Preservation Plan FY 2015
This annual plan provides an overview of the CPA in Salem and looks at Salem’s community
preservation needs, possibilities and resources. It also establishes general and specific funding
criteria, including projects that implement recent planning recommendations. For historic
preservation projects, priority is given to properties owned by the City and non-profit groups
(particularly those that are threatened) and projects that serve a public benefit, are highly utilized
or visible, provide permanent protection for the resource, and incorporate universal design where
feasible. The Secretary of the Interior Standards for Rehabilitation is included in the appendix.
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Salem’s Municipal Agencies and Private Organizations Engaged in Historic
Preservation Activities
Salem is blessed with a passionate group of City boards and staff, organizations, and individuals
committed to the preservation and promotion of Salem’s heritage. While not all groups are directly
engaged in historic preservation activities, all play a role in honoring the city’s heritage and historic
character.
The Salem Historical Commission (SHC) is the City’s municipal regulatory and planning agency
dedicated to historic preservation. The Commission serves a dual role as both an historical commission
and an historic district commission (see later discussion). Other municipal departments and boards,
including the Department of Planning & Community Development, Salem Redevelopment Authority, the
Planning Board, the Conservation Commission and the Department of Public Services (DPS), also play a
role in preserving the city’s historic character through regulatory review and property management
oversight. These agencies are discussed later in this chapter.
In addition to public agencies, Salem has many non-profit organizations engaged in preservation
activities. The city has one non-profit organization – Historic Salem, Inc. - dedicated to citywide historic
preservation planning and advocacy. Three other preservation organizations with offices in Salem - the
National Park Service, Essex National Heritage Commission, and Historic New England, Inc. - have a
regional focus that extends beyond their Salem-based resources. The city also has an extensive list of
non-profit organizations with site-specific preservation objectives, such as museum or collections
management, and organizations with tourism and economic development missions.
This chapter provides an overview of each group’s role in preserving Salem’s heritage and historic built
environment.
Salem’s Municipal Preservation Agency
Salem Historical Commission (SHC)
The SHC is one of the few municipal agencies in the Commonwealth that serves a dual role as both an
historical commission (MGL Ch. 40 Sec. 8D) and an historic district commission (MGL Ch. 40C.) The seven-
member Commission (with two alternates) was established in 1971 in conjunction with the City’s
designation of its first local historic district and in 1985, the SHC became a Certified Local Government
(CLG).5
In compliance with Chapter 40C and CLG requirements, the SHC is comprised of local residents who
possess certain categories of expertise. While membership can vary year to year, M.G.L. Chapter 40C
requires that three of the members be appointed by seeking nominations from the local historical society,
chapter of the American Institute of Architects and the Board of Realtors. In addition, the City seeks to
5 A Certified Local Government (CLG) is designated by the NPS through the MHC based on the strength of a community’s historic
preservation programs. CLGs are eligible for a larger share of funding through the MHC, are able to participate in specialized
training programs and are granted a stronger role in nominating properties to the National Register of Historic Places.
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include members who are local historians, architectural historians,
archaeologists, and residents of a local historic district when possible.
To ensure an engaged and knowledgeable membership and comply
with CLG requirements that all members demonstrate special interest,
competence or knowledge in historic preservation, each member is
required to attend at least one preservation training session during
their three-year tenure. This can include a workshop, conference or
online webinar.
Each year, the SHC, through the Department of Planning and
Community Development, engages in preservation planning activities
such as historic resource surveys and preparation of National Register
nominations and preservation studies, such as this Preservation Plan.
The SHC also maintains and prepares CLG records, solicits and
manages preservation grants and represents the City during the
Section 106 review process for various projects. As an historical
commission, the SHC is also responsible for drafting preservation
ordinances and other submissions to the City Council and serves as an
advisor on public building projects that affect historic resources. The
Commission’s regulatory responsibilities include both administration
of the City’s local historic districts and its demolition delay ordinance.
Over the past five years, the Commission has issued 712 certificates
for projects within the City’s local historic districts and has reviewed
and acted upon 28 requests under the City’s Demolition Delay Ordinance.
The SHC is supported by a staff person designated through the Department of Planning and Community
Development who provides part-time assistance to the Commission. In addition to assisting the SHC and
applicants through the LHD and demolition delay review process, the staff person also leads planning
activities, and engages in grant writing, grant management and project oversight. The City also engages
preservation consultants for specific preservation planning projects.
Other City Agencies Engaged in Historic Preservation Activities
Salem’s four centuries of development has resulted in a densely settled built environment with little
remaining undeveloped land. Over the past decade, the city has witnessed significant building reuse and
new development projects, particularly in the downtown, with new stores, restaurants, residences, and a
new commuter rail parking garage opening in the past few years. As the city’s renaissance continues, it
will be rare for any municipal project or development proposal undergoing municipal review not to have
some impact on the city’s historic character.
Historic preservation plays a vital role in revitalizing the City’s parks, open spaces and cemeteries, all of
which contain significant collections of historic resources. Local wetlands can also contain significant
collections of archaeological artifacts important for understanding the city’s development. While the
Historical Commissions
(HC) participate in
community-wide planning
initiatives to promote
historic preservation
objectives. Activities can
include historic resource
surveys, National Register
nominations, historic
walking tours and
brochures. HCs also serve
an advisory role for other
city agencies on
preservation issues.
Historic District
Commissions (HDC) are
responsible for
administering design
review in a local historic
district(s).
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City’s Department of Planning and Community Development, Department of Public Works, Inspectional
Services, Park, Recreation and Community Services Department and Cemetery/Shade Tree and Open
Space Department and boards (Conservation Commission, Planning Board, Salem Redevelopment
Authority, Zoning Board of Appeals, Cemetery Commission, Public Art Commission) are responsible for
different missions and resources, all play a role in protecting Salem’s heritage and historic character.
City Departments
The following is a brief overview of City departments and boards engaged in protecting Salem’s historic
character through regulatory review, property management and resource protection. Further discussion
on specific regulations can be found in the section on Municipal Policies, Regulations, and Management.
Department of Planning and Community Development (DPCD)
In addition to providing administrative support to the Historical Commission, the City’s Department of
Planning and Community Development (DPCD) provides staffing for most of the City’s development
review boards including the Planning Board, Zoning Board of Appeals, Redevelopment Authority, and
the Conservation Commission. In addition, the Community Preservation Committee, which oversees the
City’s Community Preservation Act funds, is administered by DPCD staff and the majority of CPA
funded historic resource projects are undertaken directly by the DPCD. Recent CPA-funded projects
overseen by DPCD staff include restoration of the Salem Common fence and the Choate Statue, Fort
Pickering restoration, Old Town Hall window restoration, Salem Council Chambers artwork restoration,
Dickson Memorial Chapel improvements, and Charter Street Burial Ground preservation and
improvements.
The Department also manages several programs that benefit historic resources in Salem - the City’s
Storefront Improvement Program and Housing Rehabilitation Program, both funded in part with
Community Development Block Grant funds through the U.S. Department of Housing and Urban
Development (HUD). CDBG funds are also used to undertake or provide matching funds for various
historic preservation projects, such as improvements to structures within parks (i.e. Gallows Hill Park
gazebo), costs associated with National Register nominations (i.e., North Street Fire Station and
Greenlawn Cemetery), development of neighborhood history panels, handicapped access improvements
in historic buildings (i.e., City Hall, Witch House, Old Town Hall), completion of historic building
surveys (i.e. Bridge Street area) and various studies (i.e. Winter Island Master Plan). The Department is
also actively engaged in sustainability and environmental impact planning and planning for the arts.
Public Works Department
The Public Works Department is responsible for providing infrastructure repairs, including repairs to
streets and sidewalks, which can have an impact on historic resources and the overall historic character
and appearance of the city. The department is also responsible for coordinating with public utilities
when work will affect a public way.
Cemetery/Shade Tree/Open Space Department
The Cemetery/Shade Tree/Open Space Department is responsible for maintaining and overseeing the
City’s five historic cemeteries and burial grounds and for maintaining public green spaces throughout the
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community. The Department is also responsible for planting, pruning and maintaining the City’s public
shade trees, which contribute to Salem’s overall character and sense of place.
Inspectional Services (Building Department/Public Property)
This department is responsible for maintaining the city’s public properties, the majority of which are
historic buildings. Nearly all of these buildings are listed in the National Register and many are
designated within a local historic district. (See Table 9 in Chapter 3) Several are also protected by
preservation restrictions instituted by the MHC when grant funding was approved. The Department has
overseen the restoration of several iconic public buildings, including City Hall and the North Street Fire
Station.
The Building Department is also responsible for zoning enforcement and enforcement of the State
Building Code, as well as inspection of construction work and issuance of building, occupancy, and sign
permits. The Department maintains a list of properties located within the LHD and directs permit
applicants to the SHC, if an approved Certificate of Non-Applicability or Appropriateness is not already
on file. The Building Inspector also determines whether or not the removal of portions of a building
constitutes “demolition”.
Park, Recreation and Community Services Department
The Park, Recreation and Community Services Department
(Park Department) is responsible for managing and maintaining
the City’s extensive inventory of parks, which are located
throughout the community. They also run numerous
community programs throughout the year. Most of the City’s
parks have historic significance and many contain historic
buildings, structures and objects.
Salem’s public parks contain some of the City’s most
deteriorated historic resources, including the public bathhouse and shelters at Salem Willows Park, the
entrance gates, historic house (recently leased as private housing in exchange for improvements) and the
closed bathroom buildings at Mack Park, the bathhouse at Forest River Park, the fortifications at the
Willows and Winter Island and the recreational structures at Camp Naumkeag.
The Witch House and Pioneer Village are also under the auspices of the Parks Department with staff
dedicated to each site’s daily operation and management. While the City has operated the Witch House
as a museum for many years, Pioneer Village has undergone a succession of management entities and
periodic episodes of closure over its 75 year history. The Director and staff for the Witch House and
Pioneer Village host festivals at each site, such as the Salem Spice Festival and Shakespeare Festival, to
promote the resources. The Director has also sought to develop maintenance plans for both sites and has
expressed concerns regarding vandalism and flooding at Pioneer Village.
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City Boards and Commissions
Salem Redevelopment Authority/Design Review Board
The Salem Redevelopment Authority has been responsible for urban renewal projects in Salem’s
downtown since 1962. While the City’s original Urban Renewal Plan included major demolition of
historic resources, strong opposition from preservationists resulted in a shift to rehabilitation and
preservation by the late 1960s. Today, the SRA oversees approximately 213 properties in the historic
downtown, reviewing development proposals located within the City’s urban renewal project area, the
Downtown Renewal Area (the former two areas: Heritage Plaza East and Heritage Plaza West were
combined into one area during the most recent Plan update in 2011). The SRA’s Design Review Board
(DRB) serves as an advisory body to the Redevelopment Authority for the Urban Renewal Area and to
the Planning Board for projects located within the North River Canal Corridor (NRCC).
Planning Board
Salem’s Planning Board is responsible for reviewing development projects that fall under the City’s
subdivision regulations, or require approval under Site Plan Review (SPR), Business Park Development
or Flood Hazard Overlay District. The Planning Board is also responsible for approving some special
permits as detailed in the City’s Zoning Ordinance.
Board of Appeals (ZBA)
The ZBA is responsible for reviewing requests for zoning variances and special permits. The ZBA also
hears and decides appeals from decisions of a zoning administrator, which in Salem is the Building
Inspector. For properties located outside local historic districts, variances and special permits can have
significant implications on unprotected historic resources. For example, the approval of additional units
in a building can result in exterior changes to the building design, altering a historic neighborhood’s
streetscape unless the work is done in a thoughtful manner consistent with its context.
Community Preservation Committee (CPC)
The CPC is a recently appointed board to oversee the City’s distribution of
Community Preservation Act funds. As required under state enabling
legislation, the Committee includes representatives from the Historical
Commission, the Planning Board, the Conservation Commission, and the
Park & Recreation Commission, along with a representative from the
Salem Housing Authority, two Mayor appointees, and two Council
appointees. Each year, the CPC is required to develop a Community
Preservation Plan to establish priorities for the distribution of local CPA
funds. The CPC reviews all project applications for funding, and makes recommendations to the City
Council for approval.
Conservation Commission
The City’s Conservation Commission is responsible for protecting Salem’s coastal and inland wetland
resource areas through the implementation of the Massachusetts Wetlands Protection Act (WPA) and the
City of Salem’s Wetlands Ordinance. The Commission regulates and monitors various projects and
activities that may impact wetlands or water bodies. The Commission also works to preserve open space
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and wildlife habitat and investigates reported violations of illegal construction and destruction of
wetlands. The Commission also holds three properties in trust as conservation land. While protection of
archaeological resources does not fall under the jurisdiction of the Commission, wetlands are likely
locations for these resources.
Cemetery Commission
The Cemetery Commission oversees and implements policies regulating the City's five cemeteries. Those
cemeteries include Greenlawn Cemetery, Charter Street Cemetery, Howard Street Cemetery, Essex Street
Cemetery and Broad Street Cemetery. The Commission consists of five members, of which one member
must be a funeral director currently engaged in business in the city, one must be a florist or horticulturist
who resides in the city, and one must be a resident of ward six of the city, as required by ordinance.
Public Art Commission
In 2013, the City commissioned a Public Art Master Plan. Based on
recommendations set forth in that plan, the City created a Public Art Planner
position within the Planning and Community Development Department and
appointed a new Public Arts Commission. The Commission oversees approval of
an annual public art plan and reviews proposed public art projects as well as
artwork for private development projects where the developer is to provide public
art as part of an agreement with the City. In addition to other duties, the Public
Art Planner is also responsible for management of Old Town Hall and Artists’
Row. Like the Director of the Witch Museum, this position is self-funded with
proceeds generated from cultural activities and rental fees.
Salem’s Preservation Partners
State and National Preservation Organizations
There are a number of state and national groups dedicated to the preservation of historic and cultural
resources. Although these groups are not directly engaged in the preservation of Salem’s historic
resources, they have been instrumental in funding historic preservation projects and providing technical
assistance to the city and its local preservation partners. A list of preservation funding sources is
provided in the Appendix.
Massachusetts Historical Commission
The Massachusetts Historical Commission (MHC) is the state agency charged with identifying,
evaluating, and protecting the important historical and archaeological assets of the Commonwealth. The
agency serves as the office of the State Historic Preservation Officer and the State Archaeologist and is
responsible for Federal and State regulatory review, administration of the National Register of Historic
Places in Massachusetts and administration of Federal and State historic tax credits. MHC also
administers funding through the Massachusetts Preservation Projects Fund and Survey and Planning
Grant programs and provides technical assistance to local historical commission and local historic district
commissions.
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MHC maintains the state’s Inventory of Historic and Cultural Resources as well as National Register
reports, local historic district study reports, preservation restrictions, and reconnaissance surveys
completed for each community. Most of these files are now available online through the Commission’s
MACRIS database.6 The MHC also maintains records of archaeological assets identified in the
Commonwealth. While the MHC does not allow public access to the specific locations where artifacts
have been found in Salem, they do provide a list of archaeological surveys completed in the town.
Preservation Massachusetts, Inc.
The only statewide non-profit preservation organization in Massachusetts, Preservation Massachusetts,
Inc. provides support and technical assistance to local preservation groups in the Commonwealth. The
organization also maintains a Statewide Most Endangered Properties List and hosts an annual
Preservation Awards Program each spring. These programs provide an opportunity for local
communities to raise awareness of threatened properties and to recognize important local preservation
projects. Several recent preservation projects in Salem have received preservation awards from
Preservation MASS including the Salem Jail. Other Salem properties have been listed on the
organization’s Endangered Property List, including the Wendt House and the Salem Jail.
National Trust for Historic Preservation, Inc.
The National Trust for Historic Preservation (NTHP) is a privately funded non-profit organization that
provides leadership, education, advocacy, and resources to save diverse historic places throughout the
country and to revitalize local communities. In addition to its magazine, website, field offices, and
annual conference, the Trust sponsors a number of programs, including an annual Most Endangered
Properties List, an annual Preservation Awards program, a preservation grant program, and the National
Main Street Program.
Local Preservation Organizations
Historic Salem, Inc. (HSI)
HSI is a non-profit preservation organization established in
1944. In addition to administering a historic house plaque
program, this membership-based group also hosts annual
events, including a fall walking tour series and its highly
successful Christmas in Salem house tour, which just celebrated
its 35th anniversary. HSI also collaborates with other local
groups on educational programming and promotes
preservation efforts through its annual Preservation Awards Program and its Most Endangered Historic
Resources Program, which has included City-owned properties as well as the Essex County Courthouse
Buildings. In 1977, the organization developed The Salem Handbook as a renovation guide for historic
property owners. While the book is no longer in print, limited copies are available for circulation at the
Salem Public Library and at HSI. In 2000, the City of Salem transferred ownership of the National
Historic Landmark Nathaniel Bowditch House to Historic Salem, which now operates from the property.
6 Massachusetts Cultural Resource Information System, http:// mhc-macris.net/
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Through grant funds and fundraising efforts, HSI completed an exterior restoration of the building and is
now considering a phased interior restoration.
HSI has an active Preservation Committee that reviews proposed development projects to ensure that
new construction complements Salem’s historic character. The organization is often an interested party
under Section 106 and Chapter 254. Current preservation priorities for the organization include
advocating for more effective demolition protection in Salem and more protections for historic resources
through appropriate planning mechanisms. For this plan, HSI prepared a white paper to present its
preservation concerns, which is included in the appendix of this plan.
HSI continues to be a passionate advocate for the city’s heritage. Encouraging opportunities for the
organization to work in partnership with the City toward preservation goals would help to foster
dialogue, understanding, and support between the City and one of its most ardent preservation partners.
Salem Maritime National Historic Site, National Park Service (NPS)
Established in 1938, Salem’s Maritime National Historic Site
was the first park created under the National Historic Sites
Act. Over its 75 year history, the National Park Service has
acquired additional properties on and near Derby Street and
now manages a nine-acre complex with seven significant
historic buildings, three wharves, a lighthouse, and the tall
ship Friendship of Salem. In addition, the Site operates the
Salem Visitor’s Center, which is located on Essex Street in
the former Salem Armory Headhouse.
Today, the NPS is engaged in facility planning for the
Maritime site and is currently developing new interpretive
programs for its properties. The Park Service will soon be
unveiling its State of the Park Plan, which will provide
guidance for the park’s preservation. Over the past few
years, the Park Service has restored several of its historic
buildings and is now exploring options to reopen several
currently closed properties. The NPS operates a maintenance
workshop at the Maritime Site and coordinates with the
Lowell National Park, which has a restoration carpenter on
site. Specialized restoration carpenters are also utilized for
building projects at the site..
Salem Maritime Site Resources
• U. S. Customs House (1819)
• Friendship (1999, replica of
1797 cargo vessel)
• Narbonne House (1675)
• Derby House (1762)
• Hawkes House (1780)
• West India Goods Store (ca. 1800)
• Scale House (1829)
• Forrester Warehouse foundation
(pre-1832)
• St. Joseph Hall (1909)
• Derby Wharf Light Station (1871)
• Central Wharf Warehouse
(ca. 1805)
• Pedrick Store (ca. 1770)
• Derby Wharf (1762)
• Central Wharf (1791)
• Hatch’s Wharf (1819
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Essex National Heritage Commission (ENHC)
The non-profit Essex National Heritage Commission was established in 1996 to serve as the steward for
the Essex National Heritage Area, a 500 square mile region encompassing the 34 cities and towns of Essex
County. The ENHC works to preserve and enhance
the area’s historic, cultural and natural resources
through collaboration with community leaders and
heritage organizations.
In 2006, the Commission led Salem’s Heritage
Landscape Inventory project in cooperation with the
Massachusetts Department of Conservation and
Recreation (DCR) and is currently engaged in efforts
to preserve the historic Baker Island Lighthouse. It
recently acquired the lighthouse and keepers’ houses
on the privately-owned island, completed a
fundraising campaign and initiated restoration of the
structure. Every fall, the Commission hosts Trails &
Sails, a two weekend event to highlight historic
properties throughout Essex County. Other initiatives
have included youth-based educational programs
such as Salem at SEA, a joint venture with the City, PEM and Salem State University. The organization
also distributes grant funding through its Partnership program to foster and support stewardship
activities. Over the past 17 years, it has distributed $1.5 million in grants to municipalities and non-profit
agencies for three categories of projects: education, interpretation, and preservation. Recipients have
included the Gables, Historic Salem, and the City of Salem.
Historic New England (HNE)
The regional, non-profit preservation organization Historic New England (formerly the Society for the
Preservation of New England Antiquities) owns and operates two historic house museums in Salem - the
Phillips House and the Gedney House. In addition to site management, the HNE also seeks to be an
engaged community partner in its host communities. The organization hosts community events at its
properties, offers education and outreach programs, and
provides advice and expertise to historic homeowners. In
addition, NHE holds a preservation restriction on one
property in Salem.
In addition to its preservation outreach programs, the
organization is also developing a governance training
curriculum for volunteer boards and non-profits, which
could benefit many of the City’s boards and commissions
as well as Salem’s preservation partners. Maintaining a
What is a National Heritage Area?
A region recognized by the US Congress for
its unique combination of natural, cultural,
historic and recreational resources have that
shape a cohesive, nationally distinctive
landscape.
In heritage areas, local communities and
leaders work together to preserve the
resources that are important to them. This
planning strategy encourages residents,
government agencies, non-profit groups
and private partners to agree on and
prioritize programs and projects that
recognize, preserve and celebrate many of
America's defining landscapes.
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PEM Properties
• Samuel Pickman House (ca. 1685)
• Summer School Building (1876)
• Vilate Young House (ca. 1841)
• Gilbert Chadwick House (ca. 1805)
• East India Marine Hall (1824)
• L. H. Rogers Building (1830)
• Quaker Meeting House (ca. 1688)
• Lye-Tapley Shoe Shop (ca. 1830
• John Ward House (ca. 1684)
• Andrew-Safford House (1819)
• Crowninshield-Bentley House
(ca. 1727)
• Gardner-Pingree House (1804)
• Gardner-Pingree Carriage House
(1860s)
• Derby-Beebe Summer House (1799)
• John Tucker Daland House (1851)
• Plummer Hall (1856)
• Ropes Mansion (1727)
• Ropes Garden (1912)
• Peirce-Nichols House (ca. 1782)
• Cotting-Smith Assembly House (1782)
• Two Essex Street commercial blocks
dialogue between the City and HNE and providing support for the organization and its mission, as well
as its role in emergency planning will be important.
Organizations with Historic Museums & Venues
Peabody Essex Museum (PEM)
The Peabody Essex Museum was formed in 1992, when
two of the City’s most iconic historic institutions - the
Essex Institute and the Peabody Museum - merged. In
2003, the PEM completed a significant expansion,
relocating several historic houses to add new gallery
space. The PEM is now one of the City’s largest owners
of historic properties. The museum owns 22 historic
buildings and structures, spanning a range of
architectural styles and building types. These buildings
are located within the PEM’s Essex Block Main Campus
as well as at scattered locations on Federal, Essex, and
Charter Streets. During the past three years, the PEM
has also acquired several historic commercial blocks on
Essex Street.
The PEM is currently engaged in an extensive capital
improvements campaign for its historic buildings and is
developing new interpretive programs for its
properties. The museum recently commissioned
comprehensive historic structures reports for 16 of its
buildings and has begun addressing immediate needs
such as roof, fence and window repairs. Restoration
projects are also in progress at many of the PEM’s
properties.
PEM’s re-energized commitment to its historic
buildings provides a great opportunity for all of Salem’s
preservation partners to explore and discuss innovative techniques for building preservation. The PEM
will be developing and implementing a database to prioritize and implement its maintenance work and
will be posting reports online. The organization will also create a Historic Structures Department with
skilled carpenters. The Department’s Director will work closely with the museum’s education
department on interpretation at its historic sites. The PEM has reopened three of its historic houses for
public tours and will be exploring innovative ways to incorporate public access at its other historic sites,
including hosting community classes and cultural events in the buildings. The organization’s current
efforts to develop innovative techniques for restoration projects, interpretation programs and public
access opportunities at its historic buildings can assist the City and other preservation partners with
restoration efforts at their historic buildings.
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Gables Historic Resources
• Capt. John Turner House/House
of the Seven Gables (1668)
• Retire Beckett House (1655)
• Hooper-Hathaway House (1682)
• Nathaniel Hawthorne’s
Birthplace (1750)
• The Counting House (ca. 1830)
• Seaside Gardens (1909, 1924,
1958)
• Capt. Joseph Waters House
(ca. 1806)
• Reproduction Barn & Teach
House (1926)
• Joshua Phippen House (ca. 1782)
The House of the Seven Gables
The House of the Seven Gables organization was first established in 1908 by Caroline Emmerton to both
preserve the Captain John Turner House and form a settlement association. Today, the Gables manages a
two and one-half acre complex with eight historic houses and a Colonial Revival-era garden. The Gables
also owns the Captain Joseph Waters House (ca. 1806) at 117
Derby Street, which is currently for sale. The private, non-
profit Gables offers public tours, building and grounds rentals,
lectures and educational programming, and small grants to
local community groups.
Like the PEM, the Gables is engaged in a capital improvements
campaign and is developing new interpretive programs for its
historic buildings. The organization recently developed a 20-
year capital improvements plan to identify needed facility
improvements. The first phase of the plan will address
deferred maintenance, including new roofs for several of its
buildings. The Gables has applied for a variety of grants to
fund this initial phase, including Massachusetts Cultural
Council grants and local Community Preservation Act funds.
The Gables also works closely with community groups to
develop interactive youth programs. It recently collaborated
with several Salem teachers and the National Park Service to develop after-school programs to connect
local youth with the City’s history.
Other Organizations
Other non-profit organizations in Salem that own historic
buildings and collections include the Salem Athenaeum,
which still operates a private library in the Colonial
Revival building on Essex Street, the Pickering House
Foundation and Hamilton Hall. These organizations are
responsible for preserving the historic assets and
collections associated with their individual properties. All
three organizations also engage in community outreach
and educational programs, such as the annual speakers
series at Hamilton Hall. As stated earlier in this document, many of the City’s religious institutions also
own historic buildings.
Tourism and Economic Development Agencies
Salem Main Streets
Originally established in the late 1990s, Salem’s Main Street program was resurrected in 2006 after several
years of dormancy. While the National Main Street model includes historic preservation activities in its
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approach, Salem’s smaller program focuses primarily on economic development initiatives since the
community has so many active preservation groups.
The organization recently instituted a new design committee and is developing a pilot program for a
portion of Essex Street to explore how Main Streets can help to revitalize the storefronts along the streets.
The committee does not currently include a preservation planner or preservation architect.
Salem Partnership
The Salem Partnership was established in 1987 as a coalition of public, private, non-profit, and
government entities working together to encourage Salem’s economic revitalization. Members include
the Salem Chamber of Commerce, Salem Main Streets, Salem State University, and the Salem
Neighborhood Alliance as well as major institutions such as local banks and law firms. Board members
include representatives from the City’s larger preservation organizations – the ENHC, the Gables, and the
NPS. When the City completed its last preservation plan in 1991, the Partnership operated a Historic
Resources and Cultural Development Committee, which was active in lobbying Congress for ongoing
funding of the Salem Project . However, after the project ended, the committee was disbanded.
Destination Salem
Originally established in 1976 as the City’s Office of Tourism, Destination Salem is now a quasi-public
agency funded mainly through the City’s local option hotel tax. The agency advises the Mayor and the
City Council on tourism matters and is currently exploring opportunities for Salem to expand beyond its
traditional “witch city” tourists to attract visitors seeking art and cultural activities. Salem’s wealth of
historic sites and art museums, its architectural assets and its maritime heritage would be a significant
draw for “cultural tourists.”
COSTEP MA (Coordinated Statewide Emergency Preparedness in Massachusetts)
COSTEP MA program is a statewide disaster preparedness initiative for cultural resources that seeks to
bring together cultural heritage organizations with emergency management agencies and first responders
to address disaster prevention, preparedness, response, recovery, and mitigation. The COSTEP
framework provides a blueprint for preparing for area-wide disasters and building alliances with federal,
state, and local emergency management agencies. The City of Salem is a COSTEP Partner and has a
designated Local Cultural Triage Officer who facilitates response efforts by managing contact information
for each of the City’s emergency agencies. The local property manager of HNE is currently serving as the
local Triage Officer. The Salem Fire Department serves as the City’s emergency agency and the
Department’s Fire Chief and Assistant Director have been supportive participants in the COSTEP
process.
Salem Historic Preservation Plan Update 2015
Chapter 2: Salem Today Page 76
Chapter 3 - Existing Planning Efforts, Regulations, and Policies
Affecting Historic Resources
Salem’s Historic Resource Inventory
Identifying a community’s historic resources through a historic resource survey provides the foundation
for historic preservation planning at the local level. Each completed inventory form is intended to
provide information on a resource’s historic significance, architectural style, and physical condition with
a photograph and map. Resources can be documented individually on a single inventory form or
recorded as a collection (such as a streetscape with similar buildings or an historic landscape with
associated assets) on an Area Form. Survey standards have evolved over the years, from early forms
requiring minimal documentation to current forms requiring complete architectural descriptions and
historical context.
Salem has engaged in historic resource survey efforts since the 1960s, when Historic Salem first
documented historic buildings on basic inventory forms. Subsequent efforts in the 1970s documented
additional resources throughout Salem. In most instances, these early forms had acceptable photographs
and brief architectural descriptions that varied in accuracy, but most lacked locus maps and historical
information. These early survey efforts frequently documented entire streetscapes on a single Area Form,
which included photographs of individual buildings but only limited information on architectural styles
and no historical information. Later efforts in the 1980s and the early 1990s, often funded by MHC Survey
and Planning Grants and completed by professional preservation consultants, resulted in a collection of
inventory forms that are generally thorough with photographs, locus maps, architectural descriptions
and historical significance statements. These later forms also include information on outbuildings, where
extant.
When the City completed its last plan in 1991, Salem’s inventory was considered technically “complete”
although resources remained undocumented and older forms did not meet survey standards. Since 1991,
the City has engaged in limited survey work through grant-funded consultant efforts. Between 1995 and
1998, consultants completed inventory forms for resources located throughout the city while surveys in
2005 and 2011 were neighborhood-based. Since the last plan, Salem has documented an additional 767
resources and the City now has 4,357 historic resources documented in the Massachusetts Historical
Commission’s (MHC) Inventory of Historic and Archaeological Assets of the Commonwealth, the third
highest inventory total of all communities in the Commonwealth.1 Original copies of Salem’s inventory
forms are kept at the Department of Planning and Community Development and at the MHC. The forms
are also accessible through the MHC’s online searchable database, Massachusetts Cultural Resource
Information System (MACRIS).2
1 Not all resources included in the inventory have individual inventory forms. Many are documented as part of a collection of
resources on an Area Form, district nomination, or other type of form.
2 MACRIS, http://mhc-macris.net/
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Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 76
As explained in Chapter 2, Salem’s
inventory is currently organized into 11
geographic areas; the City has not
updated its historic resource inventory
areas to reflect additional historic
neighborhoods identified in the 2013
Neighborhood Signs Report. Therefore,
the following analysis of Salem’s historic
inventory is based on the City’s 11 inventory areas with notations where additional historic
neighborhoods have been identified.
Bridge Street. Today, 448 properties in this area are listed in MACRIS. This includes 32 area forms for
streetscapes on both the east and west sides of Bridge Street. Most of these area forms were completed in
1978 with minimal information. Five structures are listed in MACRIS, with only one (Collins Cover Park
and Playground) documented on an historic inventory form. This form was completed in 1989 and is
complete. While 411 buildings are listed in MACRIS, only 291 are documented on individual inventory
forms. These forms were completed by preservation consultants in 1985 and 2011 and meet MHC survey
standards. No objects or burial grounds are documented in this area.
Castle Hill. Only nine resources in this area are documented on inventory forms. Completed in 1989 by
a preservation consultant, these forms include a Castle Hill area form (SAL.GH), one bridge (SAL.951),
three houses, and three resources associated with the Sainte Anne’s Church complex – the Couvent Sainte
Anne (SAL.582) at 9 Cleveland Street and the Sainte Anne’s Rectory (SAL.584) and Sainte Anne Statue
(SAL.946) both at 290 Jefferson Avenue. While the area form provides historical and architectural
significance statements, information on individual buildings is limited.
Central Salem (Downtown, McIntire District, and Broad Street). In total, 835 properties in Central Salem
are listed in MACRIS, including 18 documented areas (13 streetscapes, 4 historic districts, and the
Naumkeag Steam Cotton Mill); 2 structures; 8 objects; 3 burial grounds, and 796 buildings (613 on
individual inventory forms). Inventory forms for this area date from 1967-1968, 1974-1975, 1978-1979,
1985, 1995, 1996, 1997, and 2002. Earlier forms have adequate photographs (now outdated) and maps but
provide minimal architectural and historical information. A series of survey initiatives in the late 1990s
addressed the 1991 Preservation Plan recommendation to update forms in the McIntire District. The
inventory forms completed in 2002 were part of a city-wide burial ground survey. Today, despite recent
survey efforts, entire streetscapes remain documented only on the older area forms with no individual
buildings documented on B forms. These streets include Broad Street, Endicott Street, Gedney Street,
Orne Square, and Hathorne Street.
In downtown Salem, which is not delineated as a separate area, commercial buildings have not been
surveyed since the late 1970s, when HSI and SRA staff completed inventory forms in conjunction with a
Multiple Resource Area (MRA) National Register nomination. In many cases, two sets of forms were
3 Source: MACRIS database accessed on December 19, 2014.
4 The MACRIS term “Structures” includes landscape forms.
Table 3: Salem’s Historic Resource Inventory Statistics
1991 to 2015
Resource Type 1991 20153*
Total Resources Documented 3,590 4,357
Areas 224 170
Buildings 3,310 4,018
Structures 4 32 104
Objects 16 57
Burial Grounds 8 8
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completed for each resource - with HSI forms providing historical and architectural information and SRA
forms providing a photograph and brief contextual statement. These forms, which should be used
together, provide very limited information on architectural style and historical significance.
Derby Street. 425 resources within this area are included in MACRIS, including 7 Areas (2 with
individual Area Forms), 19 structures (17 on individual forms), and 389 buildings (all but 17 have
individual forms). Inventory forms in this area date from 1967, 1973, 1977, 1980, and 1985-1986. Forms
completed in 1976 and 1973 within the Derby Waterfront Historic District generally have adequate
photographs (now outdated) and maps but have minimal architectural and historical information. Forms
completed in 1977 and 1980 document resources on side streets, while a 1986 grant-funded survey effort,
which also concentrated on side streets, included new forms for some buildings previously surveyed. In
1995, a consultant updated Derby Street forms in response to a recommendation of the 1991 Plan. In 1998,
a city-wide consultant survey resulted in several new forms completed for resources in the Derby Street
area. Forms completed in the late 1980s and 1990s are complete.
Gallows Hill (Gallows Hill, Witchcraft Heights, Blubber Hollow and portions of Highland Avenue). 471
resources in this area are documented in MHC’s MACRIS database. This includes 25 area forms, 3
objects, 6 structures, and 437 buildings. Area forms include 21 streetscapes, as well as Salem Hospital, the
Colonial Terrace Elderly Housing Project, the Larrabee and Hingston Wood Tanning Vessel Company,
and the Salem Oil and Grease Company. Three objects and six structures are also documented in the
neighborhood. Of the 437 buildings documented in Gallows Hill, only 248 are documented on individual
B Forms. While Boston Street properties are documented on individual forms, most buildings on the side
streets are documented on Area Forms. Most of these forms date to the 1970s with acceptable
photographs, no maps, brief architectural descriptions that vary in accuracy, and little to no historical
information. More detailed historical information is provided on inventory forms completed for Boston
Street properties. A 1989 MHC Survey and Planning Grant funded some additional consultant survey in
the area and a 1997 consultant survey of properties on Boston Street resulted in forms with detailed
architectural descriptions and historical significance statements.
North Salem (North Salem and Mack Park). The City has documented 788 resources in this area, including
32 Area Forms, 3 burial grounds, 22 structures, 33 objects, and 697 buildings. However, of the 697
buildings listed in MACRIS, only 343 have individual forms. In 1978, HSI completed survey work west of
North Street with a small number of inventory forms with acceptable photographs and no maps. Most of
these forms contain brief architectural descriptions and limited historical information. The majority of
these forms are streetscape forms with photographs, no maps, brief architectural descriptions and no
historical information. Additional survey work in 1986 and 1989 by a preservation consultant resulted in
inventory forms that meet documentation requirements. However, a review of the MACRIS map
indicates areas in North Salem with little to no inventory, including streets between North Street and
Liberty Hill Avenue, streets in the northern section of the Northfields neighborhood, streets north and
east of Mack Park, and streets located between Highland Street and Balcomb Street. An Area Form for
Buffum Street and a CLG opinion on National Register eligibility was submitted to MHC in August 2015.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 78
Salem Common. In this area, 456 resources are included in MACRIS, including 9 Area Forms, 2 burial
grounds, 6 objects, 7 structures, and 426 buildings (395 on individual B forms). Inventory forms date
from survey efforts in 1967, 1972, 1987, 1997-8 and 2011 with the majority of the Area Forms completed in
1972. The majority of forms were completed in the 1980s and 1990s by consultants and are well
documented. Forms completed in 2011 were part of the effort to survey the Bridge Street Neck
neighborhood. This area contains one of Salem’s most comprehensive and complete inventories.
Salem Willows (Salem Willows and Winter Island). Today, there are 5 Area Forms completed for resources
in the Willows including Camp Naumkeag, Salem Neck and Winter Island, Salem Willows District,
United States Coast Guard Air & Sea Rescue, and Lee Fort Terrace Elderly Housing Project. 28 structures
are documented, including resources part of the Salem Willows and Winter Island Area Forms, and one
monument. 247 buildings are listed in MACRIS; however, only 62 buildings are documented on
individual B forms with the remaining included on Area Forms. The majority of the Willows inventory
was completed by a consultant in 1987-88, with some later forms completed in the 1990s.
South Salem (South Salem and Vinnin Square). In this area, 286 properties are listed in MACRIS, including
13 Area Forms, 2 objects, 5 structures, and 264 buildings. All but 29 of the buildings are documented on
individual inventory forms. The majority of forms were completed in 1985, with additional forms
completed in 1989. Each survey effort was completed by a consultant and funded through a Survey &
Planning grant. While these existing forms are complete and meet current survey standards, a review of
the MACRIS Map for South Salem indicates many streets in the area with little to no inventory, including
streets east of Canal Street, streets east of Lafayette Street between Lafayette Place and Ocean Avenue,
streets east of Lafayette Street between Ocean Avenue and Belleau Road, Raymond Road, portions of
Jefferson Avenue and adjoining streets, and Loring Avenue and side streets near the Swampscott border.
Stage Point. In this area, 8 areas are documented on Area Forms, including several streetscapes, the
Naumkeag Steam Cotton Mill, and the entire Point Neighborhood. In total, 351 buildings are documented
through either individual inventory forms (120) or through inclusion on an Area Form. While several
early inventory forms were completed in the 1970s, the majority of individual B Forms were completed in
1988 by a grant-funded consultant. In 2005, a Survey & Planning grant also funded a consultant-based
survey to document Stage Point on a comprehensive Area Form. While the majority of buildings in the
neighborhood are included as part of this Area Form, Stage Point’s inventory is generally thorough and
meets current survey standards.
West Salem (Portions of Highland Avenue and Witchcraft Heights). In this area, only 14 resources in this
area have been surveyed - 3 structures, 2 objects, and 9 buildings. Inventory forms, which were
completed by preservation consultants in the late 1980s and 1990s, are generally complete. Documented
resources, which range in date from 1874 to 1961, are located on Highland Avenue, and Marlborough and
Swampscott Roads. Significant areas of West Salem are undocumented including the Witchcraft Heights
neighborhood, and streets to the north and south of Highland Avenue west of Salem Hospital.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 79
Historic Designations
National Historic Landmarks
As shown in Table 4 below, Salem has ten properties designated as National Historic Landmarks (NHL)
by the Secretary of the Interior. NHL’s are nationally significant historic places that possess exceptional
value or quality in illustrating or interpreting the heritage of the United States. Fewer than 2,500 historic
places in the United States have been honored with this National distinction.
Table 4: National Historic Landmarks in Salem
Property Address Date Listed Resources
Salem Maritime National Historic
Site
178 Derby Street, Customs House
and Public Stores
10/15/1966 28
House of Seven Gables Historic
District
Turner, Derby and Hardy Street 3/29/2007 10
John Ward House 7-9 Brown St 2/8/1978 1
Hamilton Hall 9 Chestnut St 12/30/1970 1
Derby Wharf Lighthouse Derby Wharf 10/15/1966 1
Gardner - Pingree House 128 Essex St 12/30/1970 1
Peabody Museum of Salem - East
India Marine Hall
161 Essex St 10/15/1966 1
Peirce - Nichols House 80 Federal St 11/24/1968 2
Nathaniel Bowditch House 9 North St 10/15/1966 1
Joseph Story House 26 Winter St 11/7/1973 1
Massachusetts Historic Landmarks
During the 1960s and 1970s the Massachusetts Historical Commission actively engaged owners of
significant historic properties in a voluntary program to protect their properties as certified
Massachusetts Historic Landmarks (MA/HLs). Owners of MA/HLs have consented to the certification of
their properties and have agreed to follow established Standards for Care and Management, under which
they are required to maintain the historically significant architectural features of their property, and to
seek the prior review and approval of the Massachusetts Historical Commission before undertaking any
major alterations. The Certification and Standards for Care and Management for each property are
recorded at the Registry of Deeds, and all certified properties are included in the State Register of Historic
Places. Between 1969 and 1972, 49 Salem properties were voluntarily certified as MA/HLs (See Table
5). These include institutionally-owned historic properties, including many owned by PEM, and many
private residences on Chestnut Street. The voluntary certifications of these properties over 40 years ago
remain in effect today. Salem owners of Massachusetts Historic Landmarks should be aware of their
voluntary obligations to follow the recorded Standards for Care and Management that have been
established to assure the ongoing preservation of their properties.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 80
Table 5: Massachusetts Historic Landmarks in Salem
Property Address Date Listed Resources
Andrew-Safford House 13 Washington Sq West 6/22/1972 1
James B. Bott House 18 Chestnut Street 6/22/1970 1
Thomas Butman – John G. Waters House 14 Cambridge Street 5/2/1969 2
Dodge-Huntington Carriage House 35 Chestnut Street 5/2/1969 1
Pickering Dodge – Barstow House 25 Chestnut Street 5/2/1969 1
Pickering Dodge – Benjamin D. Shreve House 29 Chestnut Street 5/2/1969 2
Pickering Dodge Jr. – Charles Saunders House 33 Chestnut Street 5/2/1969 1
Essex Institute Historic District 126, 128, 132-134 Essex
St, 3 and 5 Brown St, 13
Washington St W
6/22/1972
10
Essex Institute Museum 134 Essex Street 6/22/1972 1
Gardner-Pingree House 128 Essex Street 6/22/1972 1
Daniel Gregg – Dea. John Stone House 8 Chestnut Street 5/2/1969 1
Hamilton Hall 9 Chestnut Street 6/9/1970 1
House of Seven Gables 54 Turner Street 6/9/1970 1
J. Kimball House – Stephen Fogg House and Store 25 Flint Street 5/2/1969 1
John Clarke Lee House 14 Chestnut Street 5/2/1969 1
Capt. George Nichols – Shattuck Carriage House 37R Chestnut Street 5/2/1969 1
Capt. George Nichols – Ann B. Shattuck House 37 Chestnut Street 5/2/1969 1
Charles B. Nichols House 6 Chestnut Street 5/2/1969 1
Henry and John Pickering Double House 21 Chestnut Street 5/2/1969 2
Capt. Dudley Leavitt Pickman – Shreve House 27 Chestnut Street 5/2/1969 1
Nathan Robinson – Phillip Little House 10 Chestnut Street 5/2/1969 1
Maria Ropes House 42 Chestnut Street 5/2/1969 1
Leverett Saltonstall – Tuckerman Double House 41 Chestnut Street 5/2/1969 1
Leverett Saltonstall – Tuckerman Double House 43 Chestnut Street 5/2/1969 1
Leverett Saltonstall – Tuckerman Garage 43R Chestnut Street 5/2/1969 1
Capt. Thomas Saunders House 39 Chestnut Street 5/2/1969 1
Deacon John Stone Double House 2-4 Chestnut Street 5/2/1969 1
Deacon John Stone Double House 5 Chestnut Street 5/2/1969 1
Eliza Stone – J. B. F. Osgood House 3 Cambridge Street 5/2/1969 1
James W. Thompson – William A. Rea Double House 20 Chestnut Street 6/22/1970 1
James W. Thompson – William A Rea Double House 22 Chestnut Street 5/1/1971 1
Amos Towne and Capt. Solomon House 15 Chestnut Street 5/2/1969 1
Ichabod Tucker House 28 Chestnut Street 5/2/1969 1
Nathaniel West – James W. Thompson Double House 40 Chestnut Street 5/2/1969 1
Nathaniel West Carriage House 34 Chestnut Street 5/2/1969 1
Nathaniel West House 34 Chestnut Street 5/2/1969 1
Ann M. Wheatland House 30 Chestnut Street 5/2/1969 1
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National Register Individual Properties and Historic Districts
(
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Map Inset 3:
Baker's Island
Map Inset 2:
Salem Willows &
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Map Inset 4:
Salem Diner
Legend
^NATIONAL REGISTER INDIVIDUAL PROPERTY
National Register Districts
BAKER'S ISLAND LIGHT STATION
BRIDGE STREET NECK
CHARTER STREET
CHESTNUT STREET
CROMBIE STREET
DERBY WATERFRONT
DOWNTOWN SALEM
ESSEX COUNTY COURT BUILDING COMPLEX
ESSEX COUNTY JAILKEEPER'S HOUSE AND JAIL
ESSEX INSTITUTE
FEDERAL STREET
GEDNEY AND COX HOUSES
GREENLAWN CEMETERY
HOUSE OF SEVEN GABLES
OLD TOWN HALL
PEABODY MUSEUM
PICKERING HOUSE AND BARN
POINT NEIGHBORHOOD
SALEM COMMON
SALEM COMMON DISTRICT
SALEM MARITIME NATIONAL HISTORIC SITE
SALEM WILLOWS
WINTER ISLAND HISTORICAL AND ARCHEOLOGICAL
Map No. 15-018Map created by SalemGIS, September 2015
Legend
NATIONAL REGISTER INDIVIDUAL PROPERTIES
ADDRESS HISTORIC NAME NATIONAL
HISTORIC
LANDMARK
1 57 Orne Street Greenlawn Cemetery
2 Derby Wharf Derby Wharf Lighthouse Yes
3 50 Winter Island Rd Fort Pickering - Fort William - Fort Anne
4 9 Chestnut Street Hamilton Hall Yes
5 2-4 Margin Street U. S. Post Office - Salem Main Branch
6 14 Lynde Street Rufus Choate House
7 18 North Street Wesley Methodist Church
8 298-304 Essex Street Shepard Block
9 284-296 Essex Street Y. M. C. A. Building
10 5-9 Summer Street West - Cogswell House
11 15 Summer Street John P. Peabody House
12 9 North Street Nathaniel Bowditch House Yes
13 22 Beckford Street Punchard - Dunlard House
14 142 Federal Street Cook - Oliver House
15 80 Federal Street Peirce - Nichols House Yes
16 142 North Street North Street Fire Station
17 70 1/2 Loring Ave The Salem Diner
18 51-55 Lafayette Street Salem Laundry
19 150 Washington St Joshua Ward House
20 26 Winter Street Joseph Story House Yes
21 7 Ash Street Bessie Monroe House
22 211 Bridge Street First Universalist Church
23 93 Washington Street Salem City Hall
24 144-156 Essex Street Bowker Place
25 134 Essex Street Essex Institute Museum
26 7-9 Brown Street John Ward House Yes
27 128 Essex Street Gardner - Pingree House Yes
28 12-14 Hawthorne Blvd Joseph Fenno House - Woman's Friend Society
29 161 Essex Street Peabody Museum of Salem - East India Marine Hall Yes
30 48 Bridge Street Thomas March Woodbridge House
31 39 Essex Street William Murray House
32 64-66 Forrester Street Saint Nicholas Orthodox Church and Rectory
33 54 Turner Street House of the Seven Gables Yes
34 Fort Lee
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 83
National Register of Historic Places
Authorized under the National Historic Preservation Act of 1966, the National Register of Historic Places
is the official federal list of historic and cultural resources worthy of preservation. Properties listed in the
National Register include districts, sites, buildings, structures, and objects that are significant in American
history, architecture, archeology, engineering, and culture. The National Register is administered by the
National Park Service, which is part of the U.S. Department of the Interior. Section 106 of the National
Historic Preservation Act requires Federal agencies to consider the effects of their projects on historic
properties. (See discussion on Section 106 Review later in this chapter.)
To date, Salem has 33 individual properties and 20 multiple-property districts listed in the National
Register. An additional 105 properties are included in a Multiple Resource Area nomination and 7
included in a Thematic Resource Area nomination. Since 1991, new National Register listings include the
North Street Fire Station, the Willows, the Point Neighborhood, Bridge Street Neck, Winter Island, St.
Nicholas Orthodox Church and Rectory, and Greenlawn Cemetery. (See Map of Salem’s National Register
Properties) While National Register resources are located throughout the city, the majority of listed
resources are concentrated in the Central Salem, Salem Common, and Derby Street inventory areas.
State Register of Historic Places
The State Register is a compendium of all Massachusetts properties designated within local or National
Register historic districts, individually listed in the National Register, designated as a National Historic
Landmark, protected by preservation restrictions under M.G.L. c. 184, ss. 31-32, or formally determined
eligible for National Register designation by the National Park Service. The MHC publishes the list
annually. There are more than 2,000 resources in Salem listed in the State Register. To protect properties
listed in the State Register from potentially adverse State actions, any project seeking funding, licenses, or
permits from a state agency is subject to review in compliance with M.G.L. c. 9, ss. 26-27C, as amended by
St. 1988, c. 254. (See discussion on Chapter 254 Review later in this chapter.)
Preservation Restrictions
A preservation restriction is one of the strongest tools available for preserving historic resources.
Restrictions consist of a recorded legal agreement between the property owner and a qualified non-profit
or governmental organization to maintain identified architectural features of an historic building or
structure. These features can include both interior and exterior elements. Similar to the legal structure of
a conservation restriction, preservation restrictions are attached to the deed of a property. The
organization that holds the restriction is responsible for monitoring the property and approving any
proposed changes to the portions of the building included in the restriction. Donation of a preservation
restriction to a qualified organization may allow the owner to take a federal charitable contribution tax
deduction if the property is listed in the National Register of Historic Places.
Salem currently has 31 resources protected by preservation restrictions under M.G.L. ca. 184, §§ 31-33
(See Table 6). All but one of Salem’s existing preservation restrictions run in perpetuity (the Pickering
House and Barn preservation restriction expires in 2015.) The City does not currently maintain a list of
these restrictions and their holders.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 84
Table 6: Preservation Restrictions for Salem Properties
Property Address Date Resources
House of Seven Gables Historic District Turner, Derby and Hardy
Sts
11/18/2004 10
Pickering House and Barn 18 Broad St 10/21/2005 2
Essex County Jailkeeper's House and Jail 48-50 St Peter St 7/30/2002 2
Salem Common 0 Washington Sq 5/13/2003
Pope, Samuel House 69 Boston St 7/13/2006 1
Ward, John House 7-9 Brown St 7/22/1972 1
Essex County Bank 11 Central St 5/15/1997 1
Hamilton Hall 9 Chestnut St 2/24/1988 1
Salem Old Town Hall 32 Derby Sq 6/2/1997 1
Crowinshield, Benjamin W. House 180 Derby St 9/25/1987 1
Corwin, Judge Jonathan House 310 Essex St 2/9/2009 1
First Parish (North) Church 316 Essex St 3/25/2003 1
Salem Athenaeum 337 Essex St 7/9/1998 1
Bertram, Capt. John House 370 Essex St 2/22/2008 2
Saint Nicholas Orthodox Church and
Rectory
64-66 Forrester St 5/26/2000 2
Bowditch, Nathaniel House 9 North St 2/21/2003 1
Wesley Methodist Church 18 North St 3/24/1998 1
Andrew - Safford House 13 Washington Sq West 3/22/1989 1
Salem City Hall 93 Washington St 12/17/1986 1
Source: State Register of Historic Places
Existing Preservation Ordinances
Demolition Delay Ordinance
Salem adopted its Demolition Delay regulation in 1986. Local demolition delay regulations impose a
temporary stay on the demolition of a historic building found “preferably preserved” during a public
hearing process. The City defines an “historic building” as a building:
1. Listed or eligible for listing on the National Register;
2. Located in an established historic district; or
3. More than 50 years old.
Instead of a stand-alone section within the City’s Code of Ordinances, Salem’s demolition delay
regulations are included within Article IX – Public Property under Section 2-1572 “Review Process for
granting demolition permits for historic buildings or structures.“ This section directs the City’s Director
of Public Property to forward any demolition proposal affecting a “historic building” to the SHC for
review. If the Commission issues a “recommendation in opposition to granting permit for demolition”, a
delay of 180 days (six months) is imposed to allow the SHC to work with the property owner to explore
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Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 85
alternatives to demolition or identify appropriate mitigation. However,
after the delay period expires, a property owner is allowed to demolish the
building if he or she is unable or unwilling to seek an alternative if the
building is not located within a designated local historic district or within
the Urban Renewal Area boundaries.
Through the demolition delay process, the SHC has had success saving
historic buildings, including an important neighborhood landmark in the
Northfields area of North Salem. After extensive dialogue with the new property owner, who wanted to
demolish the Queen Anne house and build three new houses on the oversized lot, the SHC Chair was
able to convince him that restoring the house and constructing one new building on the rear section of
property would be a more financially beneficial option than demolition. This restored house now serves
as an important example of the economic benefits of historic preservation.
Local Historic District Ordinance
The City of Salem adopted its first local historic district in 1971 under M.G.L Chapter 40C through a local
City Ordinance 19-63, Article IV – Historical Commission and Historic Districts. To date, the City has 601
properties designated within four local historic districts. (See Table 7 below) Under this ordinance, the
Salem Historical Commission has the authority to review and approve all proposed alterations visible
from a public way to buildings and structures located within a district. Demolition and new construction
also require SHC approval. The SHC reviews proposals in a public hearing to determine if a Certificate
of Appropriateness or a Certificate of Hardship can be issued for the proposed work.
Table 7: Salem’s Local Historic Districts
Name Location Date
Designated
Properties
Derby Street Historic
District
Derby St from Herbert St to Block House
Sq
12/17/1974 95
Lafayette Street Historic
District
Lafayette St between Holly, Leach, Forest
and Clifton Sts
8/12/1985 36
McIntire Historic District Federal, Essex, Chestnut, Broad and
Warren Sts, and Dalton Pkwy
3/3/1981 424
Washington Square
Historic District
Roughly area surrounding Salem
Common
9/26/1977 46
To support the historic district ordinance, the Commission established design review guidelines in its
Guidelines Notebook (last amended in 2010), which is available on the Commission’s website. These
guidelines are organized by type of work proposed, including sections on siding, roofing, masonry,
windows, doors, fences, downspouts, paint, porches and parking solutions. The Notebook also includes
guidelines relating to barrier free access, satellite dishes, and solar energy systems. For each section, the
Notebook provides specific design guidelines, general information, and an overview of Salem’s
Architectural Traditions relating to the work.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 86
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Data Sources & Notes
- Local Historic Districts developed using Department of Planning & Community Development records - Parcel and related data compiled by Camp, Dresser & McKee, 1999 and updated annually by SalemGIS
¸1" = 800'
CITY OF SALEM
MayorKimberley Driscoll
Map updated by SalemGISSeptember 30, 2015
Map No. 15-013
Legend
Local Historic District Parcels
Local Historic District Boundary
Local Historic District
Map
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W A R R E N S TFEDERAL STB R ID G E S T¸1" = 350'
CITY OF SALEM
MayorKimberley Driscoll
Map updated by SalemGISSeptember 30, 2015
Map No. 15-012
Data Sources & Notes
- Local Historic Districts developed using Department of Planning & Community Development records- Parcel and related data compiled by Camp, Dresser & McKee, 1999 and updated annually by SalemGIS
McIntire
Local Historic District
Legend
Local Historic District Boundary
Local Historic District Parcels
LAFAYETTE STGREEN STL E A C H S T
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W I L L O W A V E
L A URE L S T
H O L L Y S T
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LINDEN STL I N D E N S TLafayette Street
Local Historic District
Legend
Local Historic District Boundary
Local Historic District Parcels
¸1" = 160'
CITY OF SALEM
MayorKimberley Driscoll
Map updated by SalemGISSeptember 30, 2015Map No. 15-015
Data Sources & Notes
- Local Historic Districts developed using Department of Planning & Community Development records- Parcel and related data compiled by Camp, Dresser & McKee, 1999 and updated annually by SalemGIS
E S S E X S T
D E R B Y S TWASHINGTON SQ EGERRISH PL
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D A N IE L S
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CARLTON
STBRIGGS STData Sources & Notes
- Local Historic Districts developed using Department of Planning & Community Development records- Parcel and related data compiled by Camp, Dresser & McKee, 1999 and updated annually by SalemGIS
Derby Street
Local Historic District
Legend
Local Historic District Boundary
Local Historic District Parcels
¸1" = 250'
Map updated by SalemGISSeptember 30, 2015
Map No. 15-014
CITY OF SALEM
MayorKimberley Driscoll
Salem
Common
E SSEX ST
B R IDGE STW
A
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M
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W A S H I NG T O N S Q S
H
OWARD STData Sources & Notes
- Local Historic Districts developed using Department of Planning & Community Development records- Parcel and related data compiled by Camp, Dresser & McKee, 1999 and updated annually by SalemGIS
Washington Square
Local Historic District
Legend
Local Historic District Boundary
Local Historic District Parcels
¸1" = 180'
CITY OF SALEM
MayorKimberley Driscoll
Map updated by SalemGISSeptember 30, 2015
Map No. 15-016
Other City Regulations
Urban Renewal Area
Salem’s Urban Renewal Area encompasses most of the city’s historic downtown. Originally organized in
two separate areas – Heritage Plaza East and Heritage Plaza West - the City combined these two areas
into a single Downtown Renewal Area in 2011. The Downtown Renewal Plan, the City’s urban renewal
plan, includes objectives for the preservation and restoration of Salem’s historic and architectural values.
Plan objectives include: “To develop and apply urban design criteria, standards and guidelines … that
are sympathetic to and conducive of the preservation and enhancement of historic and architectural
values and to the construction of new buildings and facilities compatible with the preservation and
enhancement of such values.”
Site Plan Review
Under the City’s zoning regulations, any development larger than 10,000 square feet or involving the
creation or alteration of six or more residential units is required to seek a special permit with site plan
review (SPR). SPR is also required for development projects larger than 2,000 square feet that are
proposed for the City’s Entrance Corridor Overlay Districts.
Ordinance Permitting Use of Carriage Houses for Single Family Dwellings
Salem’s Zoning Ordinance contains one provision that encourages the preservation of historic structures.
The Carriage House provision allows owners to convert their historic carriage houses to single family
dwellings.
Entrance Corridor Overlay Districts (ECOD)
This overlay district protects. The purpose of the ECOD is to augment the underlying zoning regulations
in order to protect and enhance the major entrance ways into the City, which includes the historic
commercial streetscapes of Boston, Bridge, Lafayette, and North Streets, and ensure that such areas are
improved in a manner which is in the best interest of the City. The ECOD has additional requirements for
fences, parking, signage, curb cuts, and the location of mechanical equipment and refuse storage areas. In
addition, new construction in nonresidential uses triggers site plan review at 2,000 square feet. These
districts include historic commercial and residential properties and abut historic neighborhoods.
North River Canal Corridor District (NRCC)
After completing a Neighborhood Master Plan for the North River Canal Corridor, the City established
the North River Canal Corridor Neighborhood Mixed Use District (NRCC) to encourage redevelopment
of the area that is appropriate for the physical, economic, environmental, and social needs of the
community. These regulations also encourage development that is in keeping with the historic character
of the neighborhood and preserves its valuable historic resources.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 92
Other Existing City Programs and Operations
One Stop meetings
To facilitate the review process, the City instituted the One Stop Process where developers in the initial
design phase of a project can meet with City staff to identify relevant issues, concerns and permits that
will be required. Depending on the nature of the development project under review, staff from the City’s
planning and community development department including those representing the zoning board,
planning board, conservation commission, and Salem Redevelopment Authority as well as staff from the
fire, police, engineering, health, and building departments may be in attendance. The SHC staff person
attends only meetings for projects affecting a property in a local historic district.
Environmental Review - Section 106 and Chapter 254 Review
While National and State Register listings are primarily honorary, there are limited protections afforded
to listed resources when a federal or state action may cause an adverse effect. Section 106 of the National
Historic Preservation Act requires Federal agencies to consider the effects of their projects on historic
properties. Therefore, any development or construction project seeking federal funding, licenses, or
permits must be reviewed by the State Historic Preservation Officer (in Massachusetts the MHC) to
determine if the project will have an adverse effect on a National Register listed or eligible resource. If a
National Register listed or eligible resource will be adversely affected, the proponent is required to
consult with the MHC to see if there is an opportunity to avoid, minimize or mitigate the adverse effect.
Any project seeking funding, licenses, or permits from a state agency is subject to review in compliance
with M.G.L. c. 9, ss. 26-27C, as amended by St. 1988, c. 254. The purpose of this law is to eliminate,
minimize, or mitigate adverse effects to properties listed in the State Register. MHC is the state agency
authorized to review and comment on state licensed, permitted, or funded projects to determine any
adverse impact on historic or archaeological resources. Similar to Section
106 Review for federal projects, the state process requires that all state
agencies, including but not limited to the MBTA, Department of Education,
Division of Capital Asset Management and Maintenance (DCAMM), and
the Department of Housing and Community Development submit projects
to MHC for a determination of potential impacts to historic properties. If
MHC determines that adverse impacts will occur, then mitigation is
explored to minimize any threats. The Massachusetts Environmental
Protection Act (MEPA) also requires that impacts to historic resources be
identified and mitigated during development review.
Through this review process, the SHC has been involved in many
development proposals, including the Footprint Power Plant at Salem
Harbor, the Essex County Court buildings, and the Old Salem Jail. As part of the environmental review
process for the City’s CDBG program, the City continues to utilize a Programmatic Agreement with
Massachusetts Historical Commission that includes provisions regarding historic preservation objectives.
CDBG funded projects are reviewed for impact on historic resources and the SHC is asked to comment on
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 93
those activities. For buildings listed or eligible for listing on the National Register, the City will not
approve vinyl replacement windows or siding for projects funded under its Housing Rehabilitation
Program. Historic preservation, when related to code compliance, housing quality standards,
handicapped accessibility and/or lead hazard abatement is encouraged.
Community Preservation Act (CPA)
Salem adopted the Community Preservation Act in 2013. The CPA is a
tool to help communities preserve open space and historic sites, create
affordable housing, and develop outdoor recreational facilities – all vital
components for maintaining strong community culture. When Salem
approved the CPA, it imposed a 1% surcharge on residential property
tax bills. The Commonwealth provides matching funds from the
Community Preservation Trust Fund to each participating community.
The actual amount that communities receive from the state varies from
year to year, depending on the funds available in the trust fund and the
number of participating CPA communities.
All projects funded through a local CPA program must meet the requirements of M.G.L. Chapter 44B.
For historic preservation projects, this includes full compliance with the Secretary of the Interior’s
Standards for the Treatment of Historic Properties and placement of preservation restrictions on historic
properties acquired with CPA funds. Some communities have required preservation restrictions for all
preservation projects, private and public, funded through their CPA programs. This is consistent with
MHC’s requirement for communities receiving funding from the Massachusetts Preservation Projects
Fund (MPPF) program, which requires that any organization, public or private, must place a preservation
restriction on the affected building as a condition of receiving MPPF funds. Salem requires preservation
restrictions for only non-City owned properties.
The adoption of the Community Preservation Act provides a much needed source of funding for Salem’s
historic resources. CPA guidelines allow funds to be used for both public and private resources
providing that they serve a public benefit, which is reflected in the City’s category specific criteria for
historic preservation projects. The CPC is currently considering applications for both City and non-City
owned properties.
To date, Salem has committed almost $1,371,000 in CPA appropriations to eligible projects, with the
majority of funds allocated to historic preservation projects. The City has allocated the remainder of its
CPA funding for open space and recreation projects and for the development and preservation of the
city’s affordable housing stock. The majority of awarded projects involved City-owned properties.
Table 8 below lists all of the projects funded to date through the City’s CPA program that affect a historic
resource, including several projects funded through the Affordable Housing and Open Space &
Recreation categories. Projects creating affordable housing units are located in historic buildings in the
historic Point Neighborhood and are also utilizing Federal and State Historic Tax Credits. In addition,
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 94
several of the projects creating and protecting open space and recreational resources are located within
important historic landscapes.
Table 8: Local Community Preservation Act Projects Affecting Historic Resources
Project Funds Allocated Fiscal Year
AFFORDABLE HOUSING
Harbor/Lafayette Housing (NSCDC) $93,505 2015
Congress/Dow Housing (NSCDC) $100,000 2014
HISTORIC PRESERVATION
Old Town Hall Window Restoration $114,070 2014
Salem Common Fence Restoration (Phase2) $100,000 2014
Winter Island/Fort Pickering Phased Rehabilitation $90,000 2014
Choate Statue Restoration $40,000 2014
Public Library Rear Roof Replacement $135,500 2014
Artwork Restoration (Council Chambers) $25,000 2015
Dickson Chapel @ Greenlawn Cemetery $86,000 2015
Charter Street Burial Ground $90,550 2015
7 Gables: Hawthorne Birthplace Roof $29.850 2015
Hamilton Hall Window Restoration $20,000 2015
Salem Common Fence (Phase 3) $60,000 2015
OPEN SPACE & RECREATION
Winter Island Scenic Trail $51,000 2014
Mack, Palmer Cove & Pickman Parks Community
Gardens improvements (SCG)
$23,048
Forest River Trails $15,000 2015
Camp Naumkeag Master Plan $25,000 2015
Public Property Management
The City of Salem owns one of the region’s most significant collections of historic properties. These
resources, which include buildings, structures, objects, landscapes and burial grounds, span more than
four centuries and represent all of the city’s major periods of architecture.
Over the past 25 years, the City has commissioned numerous studies for its historic properties, including
the 1998 Historic Preservation Maintenance Plan, which established restoration recommendations for 14
historic properties and 6 historic monuments. The City has also commissioned individual planning
studies for its historic burial grounds and forts. (See section on Previous Planning Documents) Over the
past decade, the City has restored many of its historic buildings and is in the process of completing
repairs to the North Street Fire Station and restoring the Greenlawn Cemetery Chapel, City Hall, Old
Town Hall, and the Salem Common Fence. However, others remain in deteriorated condition including
the Council on Aging building, police and fire stations, park buildings and structures, and Greenlawn
Cemetery’s bridge and stairs. The City has engaged in creative approaches to building management and
restoration by soliciting long-term leases with private individuals to use the historic Mack House at Mack
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Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 95
Park and the former men’s bathhouse at the Willows in exchange for the restoration and maintenance of
the public buildings. The City will also be undertaking short-term repairs at the Center for Council on
Aging building at 5 Broad Street to address deteriorated conditions at the property.
Table 9: City-Owned Historic Resources
Historic Resource Location Date Inventoried NR LHD PR
City Hall 93 Washington St 1837-8 √ √ √
Old Town Hall 32 Derby St 1816 √ √ √
North Fire Station 142 North St 1881 √ √ √
South Fire Station 40 Loring Ave 1817 √
Ward 3 Station 415 Essex St 1915 √ √
Salem Library 372 Essex St 1855 √ √ √ √
Saltonstall School Lafayette St 1917 √
Collins Middle School 29 Highland Ave 1908-9 √
Council on Aging 5 Broad St √ √
Pioneer Village Forest River Park 1930 √
Witch House 310 ½ North St 17th c. √ √ √ √
Salem Willows 1858 √ √
Mack Park 59 Grove St 1860 √
Winter Island Winter Island Rd √ √
Fort Lee Willows 1776 √
Fort Pickering Winter Island Rd 1643 √ √
Forest River Park 32 Clifton Ave 1907 √
Salem Common 1802 √ √ √ √
Gallows Hill Park 53 Hanson St 1912 √
Salem Woods Willson St 1906 √
The Director of the Witch House is currently serving as a volunteer “overseer” for the Charter Street
Burying Ground to initiate clean-up efforts at the property and initiate marker conservation. She has
begun an inventory of broken stones and has developed a map and database identifying condition
categories for each stone. In 2015, the City allocated CPA funds for the restoration of headstones and
tombs, improvements to pathways and improved landscaping at the burial ground. A local friends
group is also working closely with the DPCD and the Cemetery Department on preservation efforts at
Greenlawn Cemetery, soliciting grant funds to restore the Dickson Memorial Chapel and placing
interpretive signs throughout the cemetery. The site was listed in the National Register of Historic Places
in 2014 and a new map of the cemetery has been issued. The Chapel has also received an award of CPA
funds for restoration work.
Planning for Natural Disasters and Climate Change
Recent flooding from a burst water pipe at the House of Seven Gables visitors’ center and a fire at the
PEM’s Ropes Mansion highlight the vulnerability of Salem’s historic resources. Rapid response by the
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City’s fire department saved the PEM’s Rope Mansion and the Gables’ Visitor Center and archives from
irreversible damage. Climate change is also expected to have a significant impact on Salem’s historic
resources, many of which are located within close proximity to the shoreline. Rising sea levels and severe
coastal storms threaten both the city’s natural and built environment.
As stated in the City’s 2014 climate change plan, sea level in Boston is expected to increase 4.23 feet by
2100 from levels identified in 1998, while storm surge is expected to be 13.03 by 2100. These changes
could have significant impact on the city’s historic assets such as Pickering Wharf, the Willows, Pioneer
Village, Winter Island, and Baker Island Light, which are at particular risk of damage from rising sea
levels and storms. While the City commissioned the recent city-wide study of climate change impacts, it
has not developed site-specific studies to identify potential risks at its historic buildings and sites and
plan for their future protection.
Salem participates in COSTEP (Coordinated Statewide Emergency Preparedness), an emergency response
effort designed to bring cultural institutions together with emergency management agencies to prepare
for area-wide disasters. Each community participating in COSTEP is tasked with designating a Cultural
Triage Officer to oversee local response efforts. HNE’s local property manager is currently serving as
Salem’s Cultural Triage Officer.
Preservation Outreach and Educational Programming
As stated earlier, Salem’s private non-profit groups play a major role in preservation education and
outreach. The City of Salem owns and operates two historic museums where educational programming
and community programs are offered. In addition, the City is in the process of updating its collection of
neighborhood interpretive markers with new sign boards and updated narratives and graphics. City
efforts to provide preservation education and outreach outside of these areas is limited.
Role of other organizations
Historic Salem, Inc. manages the city’s house plaque program and honors successful preservation projects
through its annual Preservation Awards program. The organization also raises awareness about Salem’s
threatened historic resources through its annual Most Endangered List.
Walking tours, newsletters, community events, and lecture series are also
offered by HSI.
The Park Service, the Gables, Historic New England, Peabody Essex
Museum, Hamilton Hall, the Salem Athenaeum and Historic Salem all offer
educational programming to highlight and promote Salem’s heritage. The
House of Seven Gables offers programs for local youth through combined
initiatives with the Salem Public Schools (Salem Through Hawthorne’s Eyes)
and its own programming (Caribbean-Connections Summer Program). ENHC, the PEM and the NPS also
offer successful youth programs. Continuing and expanding these youth programs to teach Salem’s next
generation to be conscientious stewards of local history is a goal expressed by many of the city’s
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preservation partners during this planning process. HSI and HNE offer programs specifically designed
for historic property owners to address building maintenance and restoration issues.
Many of the city’s historic properties are free to Salem residents, including the PEM, the Gables, the
Witch House and Pioneer Village. These organizations are exploring opportunities to interpret their
museums in a new, sustainable way to make their sites more relevant for the 21st century. They are also
exploring innovative uses of integrated media and hands-on technology to make local history more
engaging for the public.
Salem Historic Preservation Plan Update 2015
Chapter 3: Existing Planning Efforts, Regulations, and Policies Affecting Historic Resources Page 98
Chapter 4 – Issues, Opportunities, Goals, & Recommendations
Salem’s history is tangible – it is visible in the slate headstones of its early burial grounds, the ornate
architectural embellishment of its 19th century sea captains’ houses, in the repetition of rooflines on the
small workers’ cottages around the former industrial area of the North River, and in the brick and
cobbled walkways of the McIntire historic district. It is also evident in the decorative storefronts in
Salem’s downtown and in the wharfs, military fortifications, lighthouses, summer cottages, and public
parks developed over the past three centuries to take advantage of the city’s waterfront location.
Preserving this historic fabric is integral to preserving Salem’s identity and sense of place.
For more than a century, Salem residents have undertaken efforts to promote, protect, and preserve the
city’s heritage and historic resources. This commitment and passion is documented in the extensive
timeline of preservation activity found at the beginning of this Plan and in the number of prior City-
sponsored planning initiatives discussed in Chapter 2. Since 1991, the City has implemented many of the
recommendations from its first Historic Preservation Plan, including recommendations for historic
resource survey efforts, National Register listings,
improvements to the Salem Historical Commission’s
(SHC) design review guidelines, and development
of a Historic Preservation Maintenance Plan for
historic properties owned by the City. Other efforts
to implement recommendations from the 1991 Plan
were less successful, however, including efforts to
integrate historic preservation objectives into the
development review process. In 2008, a
Neighborhood Conservation District plan was
developed, but did not garner support within the
neighborhoods. In 2012, a new mixed-use zoning district for the Bridge Street neighborhood was
proposed that would have required design review for development projects comparable to the
requirements in the North River Canal Corridor zoning district; however, this proposed mixed-use
concept was not supported by the community and was not pursued. For this update, the DPCD, which
provides staff assistance to the SHC, reviewed the outstanding recommendations from 1991 to assess
their continued relevancy in 2015. Recommendations from other planning documents, as described in
Chapter 2 of this Plan, were also considered.
While this Historic Preservation Plan Update is a municipal document intended to guide City-sponsored
efforts to preservation Salem’s historic resources and character, it also acknowledges the important role
that local preservation partners play in preservation efforts. These partners informed much of this plan
and assisted with the identification of current issues and opportunities affecting Salem’s historic
resources. As demonstrated in this chapter, successful implementation of a city-wide preservation
program will require a collaborative effort between the City and these partners.
Salem Historic Preservation Plan Update 2015
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Promoting Salem’s History and Historic Resources
As stated in the brief historical overview at the beginning of this Plan, Salem’s history is impressive and
its historic buildings, landscapes, structures, objects, landscapes and cemeteries present a tangible link to
this past. Together, this tapestry of historic resources truly makes Salem a special place and is a vital part
of its economic health. Raising awareness of the city’s historic resources is critical for fostering
appreciation of and support for protecting and preserving these irreplaceable assets, as well as sustaining
its vitality.
Educational Programming and Activities
To promote Salem’s heritage and historic assets to both residents and visitors alike, the City and its
preservation partners continue to engage in education and outreach initiatives and seek to present
information in formats that are attractive, accurate and easily understood. In 2013, the City redesigned its
collection of neighborhood interpretive signs with updated narratives and graphics and will be seeking
funding to install these signs. Developing signage and interpretive displays for City-owned historic
buildings, parks, and burial grounds is also important, as is signage to highlight the City’s historic
districts. Expanding Salem’s historic house plaque program, operated by Historic Salem, Inc., to highlight
other types of historic buildings, such as churches and commercial buildings, would also be beneficial.
Other educational efforts are undertaken by the City’s preservation partners. While the SHC’s role as an
historical commission includes educational programming, it concentrates most of its efforts on
administration of the City’s preservation regulations. (See next section for discussion on collaboration
with Salem’s preservation partners and further discussion on the Salem Historical Commission and its
role as a “historical commission” later in this chapter.) Identifying opportunities for the SHC to
collaborate with its local partners on initiatives to foster greater appreciation for the city’s heritage would
reinforce the Commission’s role as the municipal steward for all of Salem historic resources, not just those
located within local historic districts, and would help to increase support for instituting preservation
tools throughout the community. These efforts could include working with preservation partners to
develop an innovative, interactive webpage focused solely on promoting Salem’s heritage. This page
could include an historical overview of Salem’s four centuries of development, highlights of historic
landmarks, and self-guided walking tour maps. Other initiatives could include sponsoring educational
programs and activities during National Preservation Month each May, including articles in the Salem
News highlighting local restoration projects and programs to highlight the historic significance of the
City’s parks and open spaces such as Mack Park, Salem Woods and Forest River Park. In some cases,
programs may already be in place and may only need to be marketed collectively.
Recommendations:
• Secure funding to install recently redesigned neighborhood interpretive signs. Responsibilities:
DPCD
• Develop, secure funding, and install signage at the entrances to the City’s historic districts.
Responsibilities: DPCD/SHC
Salem Historic Preservation Plan Update 2015
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Salem’s Preservation Partners
• Historic Salem, Inc.
• National Park Service
• Essex National Heritage
Commission
• Historic New England
Peabody Essex Museum
• House of The Seven
Gables
• Hamilton Hall
• Pickering House
• Salem Main Streets
• Salem Partnership
• Destination Salem
• Develop, secure funding, and install historic interpretive displays at historic City-owned
properties currently without signage. Responsibilities: DHCD/SHC, Park & Rec Commission,
Cemetery Commission
• Develop historic plaques for Salem’s commercial and ecclesiastical buildings. Responsibilities:
HSI
• Expand City’s website to include separate interactive webpage focused solely on promoting
Salem’s heritage and historic assets. Work with preservation partners to identify innovative
tools to present information in an attractive and user-friendly format. Responsibilities:
DPCD/SHC
• Continue to collaborate with local preservation partners on educational programs and
activities, particularly during National Preservation Month each May. Responsibilities:
DHCD/SHC, Parks & Recreation Department, preservation partners
Collaboration with Salem’s Preservation Partners
Salem’s non-profit organizations undertake most of the city’s
preservation education and outreach activities. The National Park
Service (NPS), the House of Seven Gables, Historic New England
(HNE), the Peabody Essex Museum (PEM), Hamilton Hall, the
Salem Athenaeum, and Historic Salem, Inc. (HSI) all offer
educational programming to highlight and promote Salem’s
heritage. The Gables, the Essex National Heritage Commission
(ENHC), PEM and the NPS also offer successful youth programs.
Continuing and expanding these youth programs to teach Salem’s
next generation to be conscientious stewards of local history is a
goal expressed by many of the city’s preservation partners during
this planning process. In addition, HSI and HNE offer programs
specifically designed for historic property owners to address
building maintenance and restoration issues. HSI also developed
The Salem Handbook, now out of print, which is a valuable resource
for owners of historic properties.
Many of the city’s historic museums are free to Salem residents, including the PEM and the Gables, as
well as the City-owned Witch House and Pioneer Village. These organizations are exploring
opportunities to interpret their museums in a new, sustainable way to make their sites more relevant for
the 21st century. They are also exploring innovative uses of integrated media and digital technology to
make local history more engaging for the public. Identifying ways to engage the public in local history
through re-interpretation efforts and technology could be one of the themes discussed during a local
preservation partners meeting (see recommendation below).
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Salem’s preservation partners have all expressed an eagerness to work together to accomplish common
goals, but many expressed challenges with limited funding and staffing capacity. Like the City of Salem
itself, many of these organizations own and manage significant inventories of historic properties, and,
like the City, they face the ongoing challenge of maintaining their historic properties with limited
financial resources. Several are engaged currently in capital improvements projects to address
maintenance concerns and restore architectural features. Many have received local, regional, state and
federal preservation grants and have engaged in extensive fundraising campaigns. Communication and
collaboration between Salem’s preservation organizations have been limited primarily to specific events
and projects, although the city’s larger organizations regularly work together to promote economic
development initiatives through the Salem Partnership. Upcoming preservation anniversaries, including
the 50th anniversary of the Historic Preservation Act and the 100th anniversary of the National Park
Service, both in 2016, the 400th anniversary of Salem’s first settlement in 2026 and the 300th anniversary of
Salem’s incorporation in 2029, provide exciting opportunities for additional event collaboration.
Instituting an ongoing dialogue between the City and its preservation partners through regularly
scheduled meetings and online discussion groups would allow local groups to share and discuss
preservation concerns and opportunities.
Recommendations:
• Institute quarterly meetings for Salem’s preservation partners, including SHC members, to
discuss common concerns, explore cooperative opportunities, and share resources. Meetings
could be coordinated by EHNC or HSI staff. Discussion topics could include:
♦ Creative and innovative ways to address capital building needs, including
development of databases to prioritize and schedule restoration projects;
♦ Identification of skilled craftsmen, grant opportunities, building restoration
techniques, and technology programs;
♦ Best practices for property maintenance;
♦ Collaborative education and outreach activities that could be held during
Preservation Month each May or in support of anniversary celebrations;
♦ Opportunities to interpret historic sites in new sustainable ways through
integrated media and hands-on activities;
♦ Opportunities to utilize social media to promote events, sites, and collections
access.
♦ Discussion of proper conservation techniques for historic collections and
document storage;
♦ Tools to balance public access to historic sites with each site’s preservation needs;
♦ Preservation of coastal resources at risk of damage from rising sea level changes
and preparing for and responding to natural and manmade disasters; and
♦ Engaging with downtown property owners, including PEM, to discuss
preservation concerns and opportunities in the Downtown.
• Establish a local email system (listserve) to encourage ongoing correspondence between groups.
Responsibilities: preservation partner such as ENHC or HSI
Salem Historic Preservation Plan Update 2015
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• Support the efforts of local preservation organizations to be engaged community partners
through their educational programming, community events, and historic homeowner outreach
by continuing to provide information and links to these programs and each organization’s
historic sites on the SHC webpage, City website and cultural events calendar. Responsibilities:
DPCD/SHC
• Support efforts of preservation partners to preserve their historic buildings and other assets,
including historic buildings at the Gables, PEM, the Salem Maritime Site and Hamilton Hall,
Pickering House, Bowditch House and the Salem Athenaeum. These efforts could include
supporting the distribution of local CPA funds for eligible projects that serve a public benefit,
providing letters of supports for grant applications, and offering technical and construction
support, when possible. Responsibilities: DPCD/SHC, CPC
• Preservation partners (Gables, NPS, ENHC) should continue efforts to collaborate with
elementary, middle school and high school teachers to further integrate local history and
architecture into the class curriculum and into after school programs. Partners to encourage local
teachers to participate in programs and help identify local funding sources such as Cultural
Council grants. Responsibilities: preservation partners
• Continue to support HSI’s ongoing educational work, including its annual Preservation Awards
program. The SHC should continue to recommend nominees for awards. Responsibilities: SHC
• HSI to make The Salem Handbook available online. Responsibilities: HSI
Promoting the Economic Benefits of Historic Preservation
Despite a general awareness of the important role that historic assets play in
Salem’s identity and economic development, the city’s preservation groups
still struggle to build support for historic preservation in the community.
Heritage tourism has served as an economic engine in Salem for more than a
century by attracting visitors to the city to shop in its downtown, enjoy its
museums and attractions and, in some cases, relocate to its historic
neighborhoods. However, with the community’s embrace of the moniker
“Witch City” in the mid-20th century, Salem’s heritage has become
overshadowed by the Halloween tourism industry. Organizations such as
Salem Main Streets and Destination Salem are currently exploring
opportunities for Salem to expand beyond the Witch City tourist to attract
visitors seeking art and cultural activities. The city’s wealth of historic sites
and art museums, its architectural assets and its maritime heritage are poised
to attract a new generation of “cultural tourists.”
For developers, new construction is often perceived as a more financially
feasible alternative than reusing historic buildings, the ultimate in sustainable
recycling. For residential properties, convincing homeowners that restoring
historic elements such as slate roofs and wood windows is a better long-term
Salem Historic Preservation Plan Update 2015
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financial investment than replacement materials continues to be a challenge for the SHC. Numerous
studies have been completed that support the economic benefits of historic preservation for communities.
These include a study by Donovan Rypkema, a development consultant and authority on the economics
of preservation who recently participated in events held in Salem to honor the 50th anniversary of Ada
Louise Huxtable’s seminal article against Salem’s 1960s urban renewal efforts. These studies (see list
included in the Appendix) could serve as a basis for outreach efforts to promote the economic benefits of
historic preservation activities to local officials, developers and residents. Compiling case studies of local
building projects that preserved historic materials such as slate roofs, wood windows, and wood
clapboard siding such as the Felt Street house in North Salem could also highlight the cost benefit of
retaining historic materials compared to replacement with new modern materials.
Recommendations:
• Seek to promote the positive correlation between historic preservation and economic
development to developers and realtors in Salem through activities such as symposiums,
educational sessions, newspaper articles and brochures to promote historic preservation’s role in
the city’s economy. Responsibilities: DPCD/SHC, preservation partners
• Identify opportunities to promote the economic benefits of historic preservation efforts to owners
of historic properties, including collecting case studies of historic preservation projects to
highlight the cost benefit of retaining historic materials. Responsibilities: DPCD/SHC, preservation
partners
• Facilitate an ongoing dialogue between traditional historic preservation partners and tourism
agencies to discuss efforts to increase cultural tourism in Salem. This could include inviting
Destination Salem and Salem Main Streets to preservation partner meetings (see earlier
recommendation). Responsibilities: preservation partners, DHCD/SHC
Integrating the Arts and Historic Preservation
Art, culture, and history have long been linked in Salem. The city is home
to important works of historic public art such as the Roger Conant statue
and historic paintings in the Council Chambers of City Hall. Salem’s art,
culture, and historic resources also serve as the foundation for heritage
tourism efforts. Some of the city’s most important historic buildings serve
as museum space to display art and artifacts, and venues for performance
activities and cultural events.
Integrating the arts and historic preservation activities helps to create a
vibrant community, particularly in a historic city such as Salem.
Contemporary public art installations, with the Painted Ladies project in
2012 as an example, can highlight the city’s heritage and help to make
history relevant for all. Future initiatives could include coordinated
Salem Historic Preservation Plan Update 2015
Chapter 4: Issues, Opportunities, Goals, & Recommendations Page 104
efforts between artists and historic preservation advocates to develop historically-themed artboxes,
murals, and downtown window displays, as well as light installations to highlight the city’s historic
architecture.
Recommendations:
• Continue to support efforts to utilize City-owned buildings and properties for art and cultural
events, particularly events that promote the city’s heritage. Responsibilities: DHCD/SHC
• Seek opportunities for city’s preservation groups and arts advocates to work together to promote
the city’s heritage through interpretation and education efforts, creative outreach, and public art
installations. Responsibilities: Public Arts Commission, preservation partners, DHCD/SHC
• Continue efforts to conserve the City’s historic documents and public art collections.
Responsibilities: Public Arts Commission, preservation partners, DHCD/SHC
Identifying and Evaluating Salem’s Historic Resources
Salem’s Historic Resources Inventory
Salem’s historic resource inventory is an important tool for fostering awareness and understanding of
local historic resources, both for city staff and for the general public. This inventory can be used by the
SHC to encourage residents to consider historic designations and by other City agencies to ensure the
preservation of historic resources in the community during the development review process. Therefore,
continuing efforts to ensure that Salem’s inventory is comprehensive and complete is important.
The majority of Salem’s existing inventory forms
are complete with historic significance statements
and architectural descriptions, but some older
forms lack this important information. This is
particularly apparent in the inventory forms for
resources located in downtown Salem, which is
part of the City’s Urban Renewal Area. As
discussed earlier in this document, significant
areas of the community have not been
documented and resources such as historic
landscapes, historic setting elements such as fencing and walls, outbuildings, and mid-20th century
resources remain underrepresented in the inventory. City staff has also identified discrepancies in the
inventory’s existing geographic areas and additional areas that could be added to the inventory.
Recommendations:
• Continue efforts to document Salem’s historic resources through historic resource surveys.
Priorities to include historic resources located in geographic areas with little to no existing
inventory, such as Castle Hill and West Salem. Also, document underrepresented resources such
as mid-20th century resources, landscapes, and outbuildings, including commercial buildings like
the Dairy Witch on Boston Street, residential areas such as Witchcraft Heights, and the city’s
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Chapter 4: Issues, Opportunities, Goals, & Recommendations Page 105
collection of early 20th century concrete block garages. (See section on Salem’s Historic Resource
Inventory in Chapter 3 for specific areas of need.) Responsibilities: DPCD/SHC
• Continue utilizing professional historic preservation consultants through grants and local funds
to complete inventory forms. The City could also use interns from local colleges such as Salem
State University, Boston University, and University of Massachusetts to complete forms.
Responsibilities: DPCD/SHC
• Update older inventory forms that were prepared without adequate historic significance
statements and architectural descriptions, particularly for resources located within local historic
districts and within the City’s Urban Renewal Area. Consider use of preservation interns to
update photographic documentation of LHD resources. Responsibilities: DPCD/SHC
• Review the inventory’s existing geographic areas codes to add additional historic areas such as
the Downtown, McIntire District, Northfields, Witchcraft Heights, and Blubber Hollow.
Responsibilities: DPCD/SHC
• Review SHC webpage for opportunities to provide links to historic resource forms in a more
graphic, interactive, and user-friendly way. Responsibilities: DPCD/SHC
• Institute a system to distribute inventory forms to City staff and boards during the development
review process and/or develop MACRIS training sessions for City staff. Responsibilities:
DPCD/SHC
• Utilizing information available through MHC’s MACRIS mapping system, SHC staff and the
City’s IT department should develop and maintain historic inventory information on the City’s
GIS system and on a city-wide map of documented historic resources. Maps should be used
routinely by municipal departments and boards during the permit review process.
Responsibilities: DPCD/SHC
Archaeological Resources
Development can adversely affect a community’s archaeological sites, particularly those that are not
documented. These fragile resources could be lost without much awareness that they ever existed. Salem
has completed a city-wide archaeological reconnaissance survey to identify and document areas where
prehistoric and historic archaeological resources exist. The City and private organizations have also
undertaken site specific surveys, including on-going work at Winter Island and Fort Pickering. SHC
maintains a confidential citywide archaeological resource map that documents the location where
archaeological resources have been found and areas where they might exist. This map, which is
confidential per state regulations, together with the City’s previous planning studies, can provide
information to City agencies during the development review process. Developing a public awareness
campaign to highlight the city’s prehistoric and historic artifacts and non-confidential sites is also
important to foster greater appreciation and understanding of the city’s past.
Recommendations:
• Encourage collaboration between SHC and preservation partners on public education programs
to highlight Salem’s archaeological resources during Massachusetts Annual Archaeology Month
each October. Responsibilities: DPCD/SHC, preservation partners
Salem Historic Preservation Plan Update 2015
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• Continue documenting the City’s archaeological sites through archaeological surveys to ensure
that these resources are protected when development projects are proposed. Responsibilities:
DPCD/SHC
National Register of Historic Places
While the National Register (NR) is primarily an honorary designation, NR listing is an important tool to
increase community pride and understanding of local history. NR listed resources are afforded limited
protection through Section 106 of the Historic Preservation Act if the listed resource will be impacted by a
project that utilizes federal funds, or permits or licenses (see later discussion in section on Environmental
Review). Listed properties are also eligible to seek Historic Tax Credits and apply for MHC preservation
grants, two funding sources that can be instrumental in efforts to preserve Salem’s threatened and
deteriorated buildings. Previous planning efforts by the City identified specific areas and resources
worthy of National Register listing that are still relevant and should be pursued. Prioritizing efforts to
NR listing based on a resource’s preservation needs, potential threats, and owner support will be
important. Since a property owner’s concurrence may be required for listing, it will also be important for
the City to engage in extensive public outreach to educate owners about the National Register and its
benefits.
Recommendations:
• Identify and prioritize amendments to existing districts, prepare determinations of eligibility
for submission to MHC and begin preparation of nominations.
♦ Derby Waterfront Historic District – include cross streets between Hawthorne
Boulevard and English Street, extending south from Essex Street.
♦ Downtown Salem District – include north side of Essex Street extending to North
Street.
♦ Salem Common Historic District – include resources on Boardman Street, a section
of Briggs Street, and several properties on Forrester and Pleasant Streets.
♦ Chestnut Street Historic District – review boundaries of existing McIntire local
historic district for potential inclusion within an expanded Chestnut Street National
Register District. Also review resources outside both districts, including east side of
Summer Street (5-23 and from Gedney Street to 61), Winthrop Street (up to 5 and
12), Broad Street and the adjacent streets to the south, and the west end of Warren
Street.
• Work with property owners to pursue new National Register historic districts and individual
listings. Recommendations for potential new listings include the following in order of priority:
♦ St. Mary’s School, 13 Hawthorne Boulevard;
♦ Buffum Street (Note: A CLG opinion of eligibility and updated Area Form was sent
to MHC in August, 2015);
♦ Salem State University (including Loring Villa/Convent St. Chretienne);
♦ Northfields Neighborhood - bounded by Franklin Street, North Street, Orne Street,
and Bay View Circle (district would include resources on Dearborn and Felt Streets);
Salem Historic Preservation Plan Update 2015
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♦ South Salem – review boundaries to identify district within area roughly bounded by
Collins Cove, South River, Forest River Park and Canal Street (this larger boundary
would include Lafayette Street and streets located to the east and west, including
Fairfield Street and Ocean and Linden Avenues);
♦ Fairfield Street;
♦ Naples and Savoy Roads;
♦ Cabot Farm, Orne Street;
♦ Pilgrim Diner, 4 Boston Street;
♦ Church of the Immaculate Conception and Parsonage, 17 Hawthorne Boulevard and
30 Union Street;
♦ Harmony Grove Cemetery, Grove Street; and
♦ Kernwood Country Club.
• Pursue National Register eligibility determinations and listings for City-owned historic
properties not already listed in the National Register (see further discussion in Public Buildings
Recommendations):
♦ Friends Cemetery;
♦ Salem Woods;
♦ Mack Park/Ledge Hill;
♦ Forest River Park including Pioneer Village and Pickering House;
♦ Camp Naumkeag; and
♦ South Salem Fire Station.
• Pursue National Register listings for eligible resources identified in future survey efforts.
Protecting Salem’s Historic Resources and Historic Character
Preservation Restrictions
Preservation restrictions are one of the strongest tools available to protect the architectural features of
historic buildings. To date, Salem has 31 resouces protected with preservation restrictions, including
both City-owned properties and those owned by private non-profit organizations. This number will
continue to grow as the City distributes its CPA funds to non-City owned properties. Protected buildings
include the North Street fire station, Salem Common, Salem Public Library, the Witch House, Salem City
Hall, Old Town Hall, Hamilton Hall, the Nathaniel Bowditch House, House of the Seven Gables, Salem
Athenaeum, the Pickering House, several churches and several properties owned by the PEM.
The CPA regulation requires that a preservation restriction be instituted when a municipality acquires a
real property interest with monies from its Community Preservation Act fund.1 The use of CPA funds for
the restoration of a non-municipally owned historic property, such as a property owned by a non-profit
agency, constitutes a real property interest acquisition and requires a permanent preservation
restriction. The use of CPA funds for municipal properties, which are already publically-owned, does not
1 M.G.L. Chapter 44 B, Section 12.(a)
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constitute a real property interest acquisition. However, placing restrictions on City-owned historically
significant buildings that are not already protected by a preservation restriction or located within a local
historic district would reinforce the City’s role as a historic steward and would ensure the long-term
preservation of these community assets. For historic public buildings that are deaccessioned and placed
into private ownership, especially those not located within a local historic district, preservation restriction
are particularly important to ensure that these resources are protected from future alterations that could
alter or destroy their historic and architectural integrity. The City could consider working with Historic
New England Stewardship Program or another local preservation organization to serve as the entity to
hold restrictions on City-owned properties.
Recommendations:
• Compile a list of the City/SHC’s preservation restrictions and continue to monitor existing and
future preservation restrictions to ensure that care is being taken to preserve the protected
buildings. Responsibilities: DPCD/SHC, Public Properties
• Consider adopting a policy for placing restrictions on CPA-funded projects for City-owned
historically significant buildings that are not already protected with an existing preservation
restriction or located within a local historic district. This would not only ensure the long term
preservation of these publically-owned buildings but also promote the City’s role as a steward of
its historic properties. Responsibilities: Mayor, DPCD/SHC
• Consider placement of restrictions on other City-owned significant historic properties not
currently protected, to ensure their future preservation and to promote the City’s role as a
steward of historic resources. This could include the placement of preservation restrictions on
the City’s historic fire stations and on structures and buildings located within City parks such as
Mack Park. Responsibilities: Mayor, DPCD/SHC
• Establish City policy to place preservation restrictions on significant historic buildings not
located in a local historic district that are decommissioned by the City and placed into private
ownership to ensure that resources will be protected from future changes that may negatively
impact the architectural character of the building. Responsibilities: Mayor, DPCD/SHC
• Encourage other public agencies and non-profit organizations to consider preservation
restrictions on properties that will be sold for private use. Responsibilities: Mayor, SHC
• Continue to promote the use of preservation restrictions for private properties, when such
restrictions would be beneficial. Consider working with HNE to promote organization’s
preservation restrictions program (i.e, distribution of informational literature at City Hall or other
public venues and on the City’s website). Responsibilities: DPCD/SHC, preservation partners
Salem’s Municipal Preservation Efforts
The Salem Historical Commission is the City’s municipal agency charged with protecting the city’s
historic assets. The SHC is responsible for preservation planning efforts and administration of the City’s
two historic preservation regulations – a demolition delay ordinance and a local historic district
ordinance. While the Commission works to protect the city’s historic resources, the City’s demolition
delay bylaw is more than 25 years old and is in need of revisions to strengthen its relevancy. Further, the
City’s historic district ordinance protects only 600 buildings – a small fraction of the city’s historic
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buildings – leaving many of Salem’s valuable historic resources
unprotected and vulnerable to inappropriate alterations and even
demolition. Due to a lack of public support in the past, Salem has
not expanded its existing local historic districts or designate
additional districts, despite recommendations in previous planning
efforts.
Additional preservation tools are available to protect a
community’s historic character that Salem could consider. The City
commissioned a Neighborhood Preservation District Study to
explore the tool but has not adopted a general ordinance, nor has it
designated any districts due to lack of support for moving forward
after the study was completed. Other preservation tools such as
single building local historic districts could also be considered by the City.
The following sections discuss the Salem Historical Commission’s membership, staff support and
oversight of the City’s local historic district and the demolition delay ordinances. Discussion on
additional tools for consideration follows.
Salem Historical Commission
The Salem Historical Commission has a dedicated board of appointed commissioners committed to the
preservation of the city’s historic resources. These members work diligently to protect historic resources
located within the City’s four local historic districts, as well as properties outside of districts. However,
Commission members are volunteers with limited time available for historic preservation activities. The
SHC is supported by a part-time DPCD staff person. While the 1991 Plan recommended the City expand
this position to a full-time preservation planner, existing DPCD planning staff members undertake
numerous preservation and municipal building restoration-related projects that surpass a full time
equivalent (FTE) position. With the large stock of historic buildings and structures in Salem, along with
the propensity for any development projects to affect neighboring historic resources, an expanded staff
role to provide insight into preservation objectives for historic properties not designated within a LHD or
for projects that may affect an adjoining or nearby historic resource is warranted. Other municipalities in
Massachusetts with dedicated historic preservation planners include Brookline, Cambridge, Lowell,
Newton, and Somerville. The MHC’s Survey & Planning grant program is a potential source of funding
for the creation of a preservation planner staff position. The program requires matching local funds and is
for a limited duration.
The Commission struggles to reinforce and promote its dual roles as both a historic district commission
and a historical commission. As a historic district commission, the SHC reviews alterations to properties
located in Salem’s local historic districts (LHDs). As a historical commission, the SHC is the City advisor
to other City agencies on preservation issues and is available to provide to provide comment on City-
sponsored projects and private development projects requiring City review. In much the same way that
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the Conservation Commission and its staff serve as the municipal steward for Salem’s natural resources,
the SHC and its staff are the municipal stewards for Salem’s historic resources.
Recommendations:
Support SHC Member Training and Education
• Seek funding to attend preservation trainings, workshops or conferences, such as those offered
by the MHC, Preservation Massachusetts, the NPS, and HNE. Responsibilities: SHC
• Participate in MHC’s preservation listserve, a statewide online discussion forum for members of
historical commissions, historic district commission, planning boards, and municipal staff to
discuss preservation concerns and share resources. Responsibilities: SHC
Municipal Staff Support
• Consider expanding SHC’s staff position responsibilities and increasing staff expertise in
preservation issues. This may include training for existing staff. Alternatively, when hiring a new
planner, consideration could be given to hiring someone with a background in preservation. In
addition to providing administrative support to the SHC and grant writing and project
management services for municipal preservation projects (tasks currently handled by SHC staff),
the expanded staff role could include:
♦ Technical support to the Commission on complex projects by conducting site visits
and preparing technical memos to expedite the public hearing process;
♦ Active participation in discussions with demolition proponents and propose
alternatives to demolition;
♦ Active monitoring of LHDs for violations and proper completion of SHC approved
projects;
♦ Attendance at One Stop Meetings;
♦ Collaboration with City officials and other City staff and departments on
development review projects and public re-use projects affecting historic buildings;
♦ Representation of the City during Section 106 and Chapter 254 review process;
♦ Completion of inventory and national register nomination forms; and
♦ Expanded outreach efforts to historic property owners.
Strengthen SHC Role as a Historical Commission
• Clarify Commission’s joint role as historical commission and historic district commission on
City’s website. Responsibilities: SHC
• Hold an annual meeting to develop a work plan and to establish goals for community-wide
preservation activities for the year, utilizing the recommendations set forth in this plan. The
Commission should invite the preservation partners to this meeting. Responsibilities: SHC
• Ensure that the SHC is aware of all development review projects that impact historic resources by
encouraging SHC members to enroll in the City’s existing e-mail subscriber for Planning Board,
ZBA, Conservation Commission and Salem Redevelopment Authority agendas, etc.
Responsibilities: DPCD/SHC
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• Continue to discuss issues, opportunities and concerns regarding preservation of the city’s
historic character at regular DPCD staff meetings and Department head meetings. Responsibilities:
DPCD.
Develop a City policy that requires City departments and boards to seek SHC or SHC staff
comments on any City project that will have an effect on historic resources. Responsibilities: Mayor
Re-institute process for distributing historic resource inventory forms and other historic
information to City boards and agencies reviewing or managing projects affecting historic
resources. Responsibilities: DPCD/SHC
When the Mayor institutes periodic all-board meetings, utilize the opportunity to discuss
preservation objectives relating to the City’s natural and built resources. Responsibilities: SHC
For projects not undertaken by staff or Commission members, continue to solicit grant funding
and hire professional preservation consultants to complete local planning initiatives.
Responsibilities: DPCD
Strengthening Salem’s Historic Preservation Ordinances
Demolition Delay Ordinance
While the City has been very successful in
ensuring that all applicable historic buildings
threatened with demolition are reviewed by the
SHC prior to the issuance of a demolition permit,
the City’s existing demolition delay regulation has
a limited delay period of only six months and no
penalties for a demolition that occurs without
approval. The MHC has developed a model
demolition delay ordinance for municipalities to
consider. This model document includes a 12-
month delay period as well as language that
requires demolition proponents to submit a copy
of the demolition plan, a description of the building or structure to be demolished, the reasons for the
demolition and the proposed reuse of the property. The model document also includes language stating
that the proponent must receive all approvals necessary for a building permit for the new construction,
including any necessary zoning variances or special permits, and all appeals from the granting of such
approvals must be concluded prior to the issuance of a demolition permit. (See Model Document in
Appendix)
Other challenges facing the Commission in its review of demolition proposals include the determination
of whether a building is structural deficient. Proponents often argue that their building is “structurally
unsound” and should therefore be demolished. The Commission does not have a budget to hire an
engineer, architect or historian to provide a professional assessment on the structural or architectural
integrity of a threatened building.
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Recommendations:
• Review Salem’s existing demolition delay ordinance for opportunities to strengthen the
regulation. Consider revising ordinance in keeping with the provisions found in MHC’s model
demolition delay bylaw, including:
♦ Extending delay period to allow greater time for Commission and staff to work with
property owner to seek alternatives to demolition;
♦ Language that requires demolition proponents to submit a copy of the demolition
plan, a description of the building or structure to be demolished, the reasons for the
demolition and the proposed reuse of the property;
♦ Language stating that the proponent must receive all approvals necessary for a
building permit for the new construction, including any necessary zoning variances
or special permits, and all appeals from the granting of such approvals must be
concluded prior to the issuance of a demolition permit; and
♦ Penalties for demolition without approval and moratoriums on rebuilding.
Responsibilities: SHC (requires approval from City Council)
• Consider instituting a fee for demolition delay applications that would provide a funding source
for the Commission to independently hire a structural engineer, architectural historian or other
preservation professional to assess the structural and historic integrity of buildings threatened
with demolition. Responsibilities: DPCD/SHC (requires approval from City Council)
Local Historic District Ordinance
Salem’s historic district ordinance is not intended to create museums nor freeze a streetscape in time; it is
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. Without adequate protective regulations in place,
the physical features – architectural elements, building scale, streetscape patterns - that make Salem’s
historic buildings and neighborhoods so special could be lost.
In a city with as many important historic resources as Salem, the limited number of properties protected
by local historic district designation hinders the City’s ability to successfully protect the community’s
architectural heritage and character. In the past, the City was unable to garner support for the
designation of new districts, but participants at
public meetings held in support of this plan
voiced optimism that city residents may now
be more receptive to historic district
designation.
For the City’s existing historic districts,
fostering owner awareness and appreciation for
the importance of historic designation has long
been a goal for the Commission. Staff and
budget limitations make outreach efforts
challenging, however, although technology
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such as email blasts and social media could be better utilized to reach owners. District signage and
training sessions for local realtors could also help to increase resident awareness.
In addition to increasing resident awareness, the SHC has expressed the need for strengthening the City’s
historic district ordinances. Currently, each district is protected with its own specific regulations within
the ordinance. For example, the McIntire District ordinance specifically list streets for which public view
can be considered. In several instances, buildings within the district are visible from public ways that are
not included in this list of streets, leaving the very visible rear of properties open to extensive alteration
that is not in keeping with the character of the neighborhood.
To facilitate the review of applications in the historic district, the SHC recently created an application
checklist to ensure that all necessary information is submitted prior to the public hearing. SHC staff
sends copies of the applications to SHC members at least one week in advance of the hearing to provide
members with an opportunity to request additional information if necessary. Ensuring that all
Commission members review meeting packets and visit each site on an individual basis to familiarize
themselves with an applicant’s property prior to the public hearing will be important.
Addressing violations in the historic districts – both for work without proper approvals and for approved
work that is completed incorrectly - is also important. In the past, individual Commission members were
assigned with specific areas to monitor regularly for violations; this is a lapsed policy that the SHC could
consider reinstituting. The SHC could also institute a process to review approved projects once work is
completed. This could include distribution of a postcard or development of an online notification system
for applicants to notify SHC when project is complete so that a site visit can be completed. The Building
Department could also notify the SHC when a permit is closed. Once notified, SHC members could be
tasked with performing site visits to completed projects and signing off on the work.
Recommendations:
Foster Public Awareness of Existing Local Historic Districts
• Utilize technology and social media to inform residents about historic district regulations,
highlight preservation success stories, discuss innovative restoration techniques, and promote
preservation activities. This could include email blasts, a Facebook page or blog, highlights on
the City’s website, newspaper articles, and other potential tools such as an historic district
cellphone app. Responsibilities: DPCD/SHC
• Consider additional improvements to the SHC webpage that would make the site more user-
friendly and interactive for historic district owners. Look at examples of websites from other
historic district commissions to identify possible improvements. Responsibilities: DPCD/SHC
• Install identification signage for each historic district to highlight the districts and foster public
awareness. Responsibilities: DPCD/SHC
• Establish annual training sessions for local realtors to discuss historic designation and distribute
literature such as MHC’s There’s a Difference booklet at City Hall and other public venues.
Responsibilities: DPCD/SHC
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Improve Historic District Administration
• Review existing local historic district ordinance to consider potential changes to strengthen
review process and establish a system to impose fines for violations.
• Review McIntire District regulations to consider revisions to add visibility from Bridge Street to
the Commission’s jurisdiction. Responsibilities: DPCD/SHC (requires approval from City Council)
• All Commission members should carefully review application packets and visit each site on an
individual basis to familiarize themselves with an applicant’s property prior to the public
meeting to expedite the public hearing process. Responsibilities: SHC
• Assign each board member with geographical area to check monthly for violations. Regular
patrols for violations could be provided by SHC staff, should the City expand the position (see
earlier recommendation). Building Department should be notified of any violations. Responsibilities:
DPCD/SHC, SHC
• Formalize a process to review approved projects once work is completed. This could include
distribution of a postcard or development of an online notification system for applicants to notify
SHC when project is complete so that a site visit can be conducted. Responsibilities: DPCD/SHC,
SHC
Expand Existing Districts and Establish New Local Historic Districts
• Engage in significant public outreach to neighborhood residents and public officials to promote
the benefits of historic district designations. Responsibilities: DPCD/SHC, preservation partners
• Consider and promote expansion of existing local historic districts. Responsibilities: DPCD/SHC
♦ Expand boundaries of Washington Square Historic District to include side streets
radiating towards Bridge Street and Webb Street;
♦ Expand boundaries of Derby Waterfront Historic District to include cross streets
between Hawthorne Boulevard and English Street, extending south from Essex
Street; and
♦ Consider adding 5-23 Summer Street to the McIntire Historic District.
• Consider and promote designation of new local historic districts and work with local residents
and public officials to highlight the importance of these historic areas and the benefits of historic
designation. Responsibilities: DPCD/SHC
♦ Buffum Street;
♦ Dearborn Street;
♦ Fairfield Street; and
♦ Naples and Savoy Roads.
Other Preservation Tools Available to Protect Historic Resources
Protecting Individual Resources
Demolition by Neglect Ordinance
Through the Demolition Delay Ordinance, the Salem Historical Commission often reviews buildings that
are structurally deficient or are in serious disrepair. In some instances, this situation is the direct result of
a property owner’s negligence and disregard for building maintenance. While the majority of Salem’s
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historic buildings are well preserved, there are some highly visible exceptions. The ongoing neglect of
these buildings has a significant negative impact on the surrounding streetscape and could eventually
result in the loss of these valuable resources. This neglect can also have a negative effect on property
values, which can effect resale value and tax assessments.
Fortunately, the City’s current Building Inspector has used his authority to enforce emergency repairs,
rather than requiring demolition. To proactively address deliberate building neglect, the SHC could
consider adopting a local Minimum Maintenance and Demolition by Neglect Ordinance, which requires
owners to provide sufficient maintenance to prevent the deterioration and/or the potential loss of their
building. This tool has been adopted by Brookline, Lowell, Nantucket, Newton, and Worcester. In Salem,
this regulatory tool could be applied community-wide or to specific areas such as historic districts.
Recommendations:
• Establish a Minimum Maintenance and Demolition by Neglect Ordinance to address ongoing
concerns that property owners are intentionally neglecting their historically-significant buildings,
which visually diminishes the streetscape and negatively impacts the surrounding area. This
could be applied specifically to the City’s local historic districts to address demolition by neglect
in these areas. Responsibilities: DPCD/SHC
Single Building Local Historic Districts
In some instances, Salem’s historic buildings are isolated resources, surrounded by new development or
resources that have lost architectural significance. In other situations, the SHC may be confronted with
the proposed demolition of a historically significant structure that is located outside of the City’s local
historic districts and is afforded no regulatory protection beyond the 180-day demolition delay. To
address these scenarios, the City could consider designating single buildings under its existing local
historic district ordinance. Designation of the single building districts would require compliance with all
M.G.L. Chapter 40C designation requirements. Other communities in Massachusetts have adopted this
approach, including Lincoln, Somerville, Wellesley and West Springfield. In most of these communities,
the existing historic district commission oversees the single building districts.
Recommendations:
• Use single building local historic district designation for particular resources at risk. This would
include compliance with all designation requirements under MGL Chapter 40C. Responsibilities:
DPCD/SHC
Protecting Historic Neighborhoods
As discussed in Chapter 2, Salem is a community comprised of visually distinct neighborhoods, each
with its own unique collection of historic resources. These historic neighborhoods stand as visible
reminders of Salem’s historic development patterns and social and economic heritage. They provide a
glimpse into the city’s past while contributing to the visual character that defines them. Preserving the
fabric of these neighborhoods is more than just an effort to protect the city’s history, however: preserving
each neighborhood’s unique scale and streetscape pattern helps to maintain the cultural identity and
pride of place felt by neighborhood residents.
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Neighborhood Preservation Districts
Salem’s previous National Register and local historic district efforts have focused primarily in the
Downtown, McIntire District, the Common, Lafayette and the Derby Street areas. However, other
neighborhoods warrant recognition and protection. As discussed earlier, Salem has several areas worthy
of historic district designation and the historic inventory can be used to educate the public and generate
community support for adopting new districts.
For those neighborhoods where protecting
building scale and streetscape patterns is more
important than protecting individual
architectural details, the City could consider
Neighborhood Preservation District (NPD). In
2008, the City commissioned a study to
explore this tool and identified potential
neighborhoods for NPD designation, but never
adopted any districts. Adopting a general
NPD ordinance, which can be later adapted to
a designated neighborhood, would be the first
step towards to applying this preservation tool
to Salem neighborhoods. Once neighborhood residents determine that this tool is beneficial to their
neighborhood, they can work with the City to define the distinguishing characteristics of the
neighborhood’s scale and streetscape pattern that should be preserved and develop specific regulations.
Recommendations
• Promote the use of Neighborhood Preservation Districts through outreach efforts to
neighborhood groups, property owners, and City officials to explain the benefits of designation.
Responsibilities: DPCD/SHC Potential neighborhoods for NPD designation could include:
♦ Bridge Street;
♦ The Point Neighborhood; and
♦ Salem Willows/Juniper Point
• If, and when, support is gained, move forward with adopting a general NPD ordinance, which
can be later adapted to a designated neighborhood. Responsibilities: DPCD/SHC, City Solicitor,
approved by City Council
Integrating Historic Preservation Objectives into City’s Zoning Ordinance &
Development Review Process
Salem is a community with an exceptional collection of historic resources located throughout the
community. Due to the density of the city’s existing building stock, most development projects in Salem
will have an impact on the city’s historic character and sense of place. Identifying ways to guide this
development in a manner that respects Salem’s character and the architectural integrity of its
neighborhoods has been a goal of the community since the City completed its last Preservation Plan in
1991. Attendees at meetings held during this Plan Update reiterated the 1991 recommendation for
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integrating historic preservation objectives into the City’s development review process, including the
need to address scale and context for new construction. It is noted that preservation tools, such as Local
Historic Districts and Neighborhood Preservation Districts, are the primary means by which to ensure the
overall preservation of historic streetscapes and neighborhoods. Encouraging communication between
the SHC and other City development review agencies is also important. As discussed earlier in the
recommendations for supporting the SHC’s role as an historical commission, the SHC is a valuable
technical resource for the community and City staff, boards and officials should take advantage of this
resource and utilize the expertise of Commission’s members.
Zoning can be used as a tool to incentivize historic preservation; most commonly by allowing flexibility
with respect to dimensional requirements (setbacks, minimum lot size, frontage, floor area ratio, lot
coverage, and other such metrics) and parking requirements. Density bonuses are commonly used to help
make a development project more financially viable. The City currently has a zoning regulation that
encourages the restoration of historic carriage houses by allowing these buildings to be converted into a
secondary residential unit even when the underlying zoning district permits only one unit per parcel.
This provision has rarely been utilized, however, and the City may wish to review other examples of
carriage house bylaws and ordinances to identify opportunities to improve Salem’s ordinance. Salem’s
current downtown zoning incorporates flexible parking requirements for rehabilitation projects to
encourage the preservation of historic buildings. Other communities have adopted flexible regulations to
protect historic buildings from demolition when the building lot is worth more than the house that sits
upon it. These communities have authorized the granting of special permits for new building lots with
modified dimensional standards when a historic building is preserved. Other communities allow more
intensive “rear-yard” development on the lot of a historic building, which is generally screened by the
asset, to make retention of the building more financially feasible. The Planning Board and Historical
Commission could work together to review the City’s zoning ordinance to consider adopting additional
flexible regulations that would encourage the retention of the city’s historic buildings.
Zoning can also be utilized to address design issues for infill development and partial redevelopment of
historic properties, particularly in historic areas that are not protected by a local historic district. In many
communities, dimensional requirements for new construction, such as setback and minimum lot size
requirements are not reflective of the existing conditions of the surrounding streetscape. The divergence
between existing conditions and current dimensional requirements can cause disruptions to the
streetscape and mandate the construction of disharmonious new development to meet regulations.
Managing this issue through zoning typically requires the codification of either exemptions for infill
development or the addition of new language to allow for requirements to be based on the existing
conditions within a radius of the project site.
In addition to issues related to dimensional requirements, architectural design review is a tool that can be
utilized to ensure that proposed infill development or partial redevelopment of existing structures is
complementary to the existing building stock and appropriate to the area. The requirement for design
review is typically codified under zoning and utilizes criteria similar to historic preservation design
criteria, but it is typically less rigorous and is generally used in areas that are historically sensitive but not
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protected by a local historic district. For example, design review requirements for new and existing
developments, inclusive of major renovations, could be incorporated for National Register districts
through an overlay zoning district.
Recommendations:
• Review existing Carriage House ordinance to identify modifications that would encourage
owners to reuse these historic buildings before they deteriorate and must be removed.
Responsibilities: DPCD/SHC
• Consider additional flexible regulations that allow different standards for dimensional and
parking requirements when an historic building is preserved. Responsibilities: DPCD/SHC
• Consider other zoning incentives that would encourage the preservation of the city’s historic
resources, particularly resources at risk. Responsibilities: DPCD/SHC
♦ Review existing zoning ordinance to identify potential conflicts between regulations and
the preservation of the city’s historic character. Explore potential zoning revisions or
tools such as overlay districts and neighborhood preservation districts that could
address these concerns. Responsibilities: DPCD/SHC
♦ Identify opportunities to incorporate language in site plan review regulations for
compatibility with historic context. Responsibilities: DPCD/SHC
• Encourage opportunities to incorporate preservation objectives of scale and context of new
development within historic streetscapes and neighborhoods. It is noted that the City is pursuing
the adoption of a mixed-use zoning overlay district for the Point Neighborhood, recently listed as
a National Register District, and this overlay district will include design standards.
Responsibilities: DPCD/SHC
• Create and maintain a community-wide historic and cultural resource map identifying both
designated properties and inventoried resources for developers and City boards and
commissions to use (see earlier recommendation).
• Develop a preservation checklist for City boards and commissions to consider when they are
reviewing development proposals that might affect an historic asset or area that isn’t formally
designated “historic”. This could include whether a building has architectural features that
should be preserved or whether resources along a particular streetscape have common physical
characteristics such as setbacks, front porches or rooflines that should be preserved.
Responsibilities: DPCD/SHC
• Engage and inform developers about historic preservation objectives in order to foster awareness
and appreciation of the city’s historic resources and ensure that building reuse and new
development proposals are complementary to the Salem’s heritage. This could include the
development of a small guidebook or handout for developers to explain process and historic
significance of city. Planning and SHC staff could work with local developers, both those
specializing in historic restoration/reuse and those in new construction to develop guidebook.
Responsibilities: DPCD/SHC, preservation partners
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Communication between City’s Boards, Commissions and Departments
As in many communities, departments often focus on their individual missions, with staff and boards
working in individual “silos.” Encouraging communication, cooperation, and collaboration between
departments, boards and commissions helps to eliminate these silos and raise awareness of a
community’s historic resources and preservation concerns, which is particularly important in Salem since
most of the City’s departments and boards play some role in protecting the city’s heritage and historic
character. DPCD provides staff support to most of the city’s development review boards. Working
closely together under the umbrella of one department allows DPCD staff, including the SHC’s staff
person, to notify each other of preservation concerns and provide information on a resource’s historic
significance.
Recommendations:
• Institute an agenda sharing process for all of the City’s review boards, including the SHC. This
could include all SHC members subscribing to the meetings notice notification system. Re-
institute process for distributing historic resource inventory forms and other historic information
for affected properties. Responsibilities: DPCD/SHC (See earlier recommendation)
• Continue SHC involvement in reviewing public projects to assess potential impacts on Salem’s
historic character. Responsibilities: DPCD/SHC
• Establish system to determine if any public or private project receiving city funds, permits or any
ordinance or policy will have potential negative impact on an inventoried or state register
property or archaeological resource. DPCD/SHC staff should coordinate with all City
departments, boards and commissions to establish a notification system for all development
projects. Once notified, DPCD/SHC staff should check if the property is inventoried or on the
State Register of Historic Places. If it is determined that project may have an impact on an historic
resource or relates to broader preservation issue, the SHC should be notified and a non-binding
comment requested. Responsibilities: DPCD/SHC
• Ensure that all board approvals be given appropriate consideration regardless of where approval
falls in timeline. Responsibilities: DPCD/SHC
• Ensure that SHC stays abreast of project reviews before other City boards and commissions and
submits comments to those boards, as necessary. Responsibilities: DPCD/SHC
• Identify local historic resources most at risk, such as the former St. Mary’s School (most recently
the Salem Boys and Girls Club) at 13 Hawthorne Boulevard. Identify proactive opportunities to
encourage preservation of such properties. This could include organizing a charrette to bring all
partners together to consider innovative preservation techniques and reuse options. This tool
could also be utilized for new development proposals within historic streetscapes in the
downtown or an historic entrance corridor. Responsibilities: preservation partners, DPCD/SHC
One Stop Meetings
The City’s One Stop Meeting process provides an opportunity for a variety of City Departments to meet
with developers to discuss an upcoming project and the approvals that will be required as part of the
permitting process. Currently, the SHC’s staff person is only present at One Stop meetings if the
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proposed project is located within one of the City’s local historic districts. For historic properties not in a
LHD, even those listed in the National or State Registers, there is no preservation advocate present at the
meeting.
Recommendations:
• Institute a policy that DPCD/SHC staff will attend all One Stop meetings for projects located in an
historic area or neighborhood, even if property is not designated within a local historic district.
Responsibilities: DPCD/SHC
Site Plan Review
The 1991 Plan expressed a need for the City’s site plan review (SPR) process to include language
regarding compatibility with historic context, a need that is still apparent today. Ensuring that Board
members and staff are aware of historic resource and preservation concerns at the beginning of the
development review process is also important. Currently, SPR project applications are only sent to the
departments and boards required by the zoning ordinance (Section 9.5.5). This includes the Building
Commissioner, City Engineer, Fire Department, Board of Health, and the Conservation Commission.
Each of these departments and boards has its own jurisdiction in regard to development projects. Since
SPR review includes consideration of a project’s architectural compatibility with the surrounding
neighborhood, the SHC’s knowledge of Salem’s neighborhoods’ historic resources, streetscapes, and
development patterns is beneficial to tap into as part of the project review process.
Recommendations:
• Include DPCD/SHC staff on the routing of project plans for site plan review. Responsibilities:
DPCD/SHC
Special Permits and Variances
The approval of special permits and variances can have significant repercussions on historic buildings
and neighborhoods, particularly those outside local historic districts. For the city’s densely settled
neighborhoods, current setback requirements may be significantly different than actual conditions.
Height requirements may also be in conflict with historic areas where existing resources are significantly
smaller than current height requirements allow. Changes or intensifications of use can also impact an
historic building. For example, when a two-family building is permitted for three-family use, it can result
in changes to the building’s exterior with new entries and stairs as well as significant changes to the
neighborhood streetscape. While the 1991 plan noted that SHC staff was notifying City boards when their
agendas included historically significant buildings and was providing copy of an inventory form, this
procedure is no longer regularly occurring.
Recommendations:
• Re-institute procedure of providing copies of inventory forms for distribution with special permit
and variance packets. Responsibilities: DPCD/SHC
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Urban Renewal Area
While each of Salem’s neighborhoods contain small clusters of commercial development, downtown
Salem is the city’s primary commercial center. Brick, granite and masonry buildings spanning more than
two centuries of development line the streetscapes in the downtown and exhibit some of the city’s most
beautiful architectural details. Downtown Salem is included within Salem’s Urban Renewal Area and a
portion is also listed as a National Register Historic District. The City’s recently updated Urban Renewal
Plan for the downtown reiterated the importance of historic preservation in downtown development and
requires SHC involvement in the review of new development proposals.
Many participants in the public meetings for this plan expressed the need for the Salem Redevelopment
Authority’s (SRA) continued awareness of the historic and architectural significance of buildings in the
downtown and the potential impact that
new construction could have on the area’s
historic character. As the downtown
experiences a continued renaissance with
new stores, restaurants and residences in
both existing buildings and new
construction and with the iconic Essex
County Court Buildings poised for
revitalization, it will be even more
important to update inventory forms for
Salem’s downtown buildings with new
photographs and historic and architectural
information that would provide SRA
members and the public with a greater understanding of the historic and architectural context of the
downtown.
Recommendations:
• Institute a preservation checklist for use during the DRB/SRA development review that
includes whether a property is historically and/or architecturally significant, has been
documented on an inventory form, is listed in the National Register, etc. Include distribution
of copies of the existing inventory forms as well as relevant sections of the National Register
nomination to establish historic context and architectural significance of properties
undergoing review. Responsibilities: DPCD/SHC
• SHC to attend DRB/SRA meetings or submit comments on development projects affecting
historic properties. Responsibilities: DPCD/SHC, SHC
• Update existing inventory forms within the Urban Renewal Area to include additional
information on architectural and historical significance as well as update photographs.
Responsibilities: DPCD/SHC (See earlier recommendation)
• Engage downtown property owners and local preservation partners such as Salem Main
Streets on historic preservation efforts in the Downtown. Responsibilities: DPCD/SHC, SRA
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• Continue to use the Commercial Design Guidelines developed in 2005. Responsibilities:
DPCD/SHC, SRA
Entrance Corridor Overlay Districts (ECOD)
The City has created overlay zoning districts for its major entrance corridors to protect and enhance these
areas and ensure that they are improved in a manner that is in the best interest of the City. Four of these
entrance corridors (Bridge, Boston, North Street and Lafayette Streets) contain historically significant
collections of multi-story late 19th century wood-frame buildings (Boston and Bridge Streets), single-and
multi-story 20th century masonry structures (North and Lafayette Streets) and converted residential
buildings (Boston, Bridge and North.) These areas also abut important historic neighborhoods and
attendees at community meetings held during the development of this Plan expressed concerns about the
potential impacts of commercial zoning on these adjacent neighborhoods. Because the threshold for site
plan review for nonresidential new construction in ECODs is lower than in other areas (2,000 sq. ft.
versus 10,000 sq. ft.), the SHC has more opportunity to provide input through the Planning Board review
process to ensure the preservation of each streetscape’s historic character.
In addition to the zoning requirements of the ECOD, the City has sought to preserve the historic character
of each streetscape through infrastructure projects. For example, the City installed period lighting along
North Street and Bridge Street to enhance the appearance of these historic streetscapes.
Recommendations:
• Ensure that existing design guidelines for the City’s entrance corridor overlay districts are
utilized for development proposals. Responsibilities: DPCD/SHC, Planning Board
• Review ECOD regulations to determine whether regulation could incorporate the protection
of historic resources, surrounding historic streetscapes and adjacent historic neighborhoods.
Responsibilities: DPCD/SHC
North River Canal Corridor Neighborhood Mixed Use District (NRCC)
The North River Canal was once the city’s most important industrial corridor. As factories closed, the
area’s industrial buildings became obsolete with many standing vacant for years. Environmental
concerns further complicated the reuse potential of these buildings and many were demolished. The
modest housing built for workers in these factories still remain however and continue to provide
affordable housing options for Salem residents. As the City plans for the redevelopment of vacant and
underutilized properties along the North River Corridor, it will be important to reinforce the City’s goal
that development honors the legacy of the area and preserves the historic character of the surrounding
neighborhood.
Recommendations:
• Encourage the retention and preservation of existing historic buildings when possible. For
new construction, ensure that design is compatible with the scale and character of
surrounding historic streetscapes and neighborhoods. Responsibilities: DPCD/SHC, Planning
Board
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Environmental Review
The SHC has been involved in many development proposals through the Federal Section 106 and State
Chapter 254 Review processes, including the redevelopment of the Footprint power plant at Salem
Harbor, the Essex County Court buildings, and the Old Salem Jail. As part of the environmental review
process for the City’s CDBG program, the City continues to utilize a Programmatic Agreement with
Massachusetts Historical Commission that includes provisions regarding historic preservation objectives.
Through this agreement, CDBG-funded projects are reviewed for impact on historic resources and the
SHC is asked to comment on those activities. For buildings listed or eligible for listing on the National
Register, the City will not approve vinyl replacement windows or siding for projects funded under its
Housing Rehabilitation Program. Historic preservation, when related to code compliance, housing
quality standards, handicapped accessibility and/or lead hazard abatement, is encouraged.
Recommendations:
• Identify training opportunities for SHC members and staff on Section 106 and Chapter 254
review processes in order to learn how to be more effective. Responsibilities: DPCD/SHC, SHC
• Continue SHC involvement in the Section 106 and Chapter 254 review processes to ensure
that no adverse impacts will occur on local historic or archaeological resources listed in the
National or State Registers. Responsibilities: DPCD/SHC, SHC
• Continue the City review policy for the CDBG-funded activities, including the Housing
Rehabilitation Program, and request comment from the SHC when applicable. Responsibilities:
DPCD/SHC
Preservation and Management of City-Owned Historic Resources
City-Owned Historic Buildings
The City of Salem’s inventory of municipally-owned historic properties is impressive and includes some
of the community’s most iconic buildings and landscapes. The City has generally been a good steward of
its historic buildings, parks, and cemeteries, culminating in the recent restoration of City Hall and the
Choate Statue and ongoing projects at the North Fire Station, Salem Common and Old Town Hall. The
City is also in the process of repairs at Fort Pickering, Charter Street Burial Ground, Salem Public Library
and the Dickson Memorial Chapel at Greenlawn Cemetery and has utilized caretaker programs to initiate
repairs and restoration at two previously vacant properties. Despite these efforts, there are still City
buildings, structures, objects and landscapes in need of restoration and prioritizing and funding this
work was one of the most pressing concerns identified by the City, its preservation partners, and
attendees at community meetings during the preparation of this Plan.
Developing ongoing maintenance procedures at City sites and designating maintenance funds within the
City budget would help to prevent future emergency situations at City properties. Instituting a capital
improvements program and continuing to seek CPA funding and preservation grants for restoration
projects will also be important. To ensure that restoration efforts respect a building’s architectural
integrity, the City could establish formal procedures to require historically appropriate preservation of
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municipal resources and institute a regular, formal role for the Salem Historical Commission to review
and comment on projects that affect City-owned historic resources.
Once restoration is complete, it will be
important to develop long-term maintenance
plans to ensure that restored resources receive
regular maintenance to protect these valuable
assets. The City’s 1998 Historic Preservation
Maintenance Plan remains a good source of
information for general preservation guidelines
at each of the City’s properties, but this
document is almost 20 years old and should be
reviewed and updated as appropriate.
Deteriorated conditions remain at several
historic properties identified in the Plan and in
some instances, conditions have worsened. At
some City properties, such as Pioneer Village
and Mack Park, site improvements are also needed to improve the visual appearance of the site, maintain
the resource’s visibility to the public, and address erosion and flooding concerns. New signage is also
needed at many City sites and fencing and security systems may be warranted to deter vandalism.
Climate change impacts and natural disasters are also a concern at City-owned sites, particularly those
located along the coastline.
As stated earlier, the Peabody Essex Museum, the House of Seven Gables and the National Park Service
are engaged in capital improvements projects that could serve as models for the City for prioritizing,
managing, and funding its own restoration projects. These organizations are developing innovative
techniques for restoration, interpretation, and public access at their historic buildings, which could assist
the City with restoration efforts at its own historic buildings.
Recommendations:
• Seek National Register listing for all applicable City-owned resources to make resource eligible to
seek historic preservation grant funds. Responsibilities: DPCD/SHC (See earlier recommendation)
• Identify opportunities to improve visual appearance of historic properties. This could include
the relocation of trash receptacles away from primary views of resource, installation of new
signage, and repairs and/or replacement of existing fencing. Responsibilities: DPCD/SHC, Public
Properties
• Address needs for improved security measures at City-owned historic properties. Responsibilities:
DPCD/SHC, Public Properties
• Review the City’s 1998 Maintenance Plan and all individual property reports and update
recommended actions as necessary. Use updated recommendations as basis for establishing
priorities for restoration and repair needs through a Capital Improvements Plan. Responsibilities:
DPCD/SHC, Public Properties, Open Space/Cemeteries/Shade Tree
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• As each City building, park and cemetery is restored, develop long-term maintenance plans to
protect the public investment and prevent serious deterioration in the future. Responsibilities:
DPCD/SHC, Public Properties, Cemetery/Shade Tree/Open Space
• Establish a formal City policy that historic public buildings will be maintained and preserved in
keeping with the Secretary of the Interior Standards for Historic Preservation. Responsibilities:
SHC, Public Properties (with approval by City Council)
• Ensure that maintenance procedures do not damage resources at City parks, cemeteries and
burial grounds. Responsibilities: Open Space/Cemeteries/Shade Tree Park Recreation & Community
Services
• Establish a formal policy that the SHC will review any proposed work on City-owned historic
resources, including historic buildings, structures, landscapes and burial grounds, and
participate in any plans for change in ownership or use. The Commission should be notified prior
to any work beginning on an historic property. Review by MHC and NPS may also be required
should work involve any State or Federal funding, permits, or licenses. Responsibilities:
DPCD/SHC, SHC, Public Properties, Open Space/Cemeteries/Shade Tree, Park Recreation & Community
Services
• For vacant, underused or deteriorated City-owned properties, such as historic structures at the
City’s parks, commission individual reports that include plans for stabilization and restoration as
well as plans for alternate uses that would be sympathetic to long-term preservation.
Responsibilities: DPCD/SHC, Public Properties, Park Recreation & Community Services
• For any building determined obsolete for City use, consider placing preservation restriction or
other preservation protection on building before it is placed in private use. Responsibilities:
DPCD/SHC, Public Properties (with approval from City Council) See earlier recommendation.
• Identify City-owned properties at greatest risk of damage due to sea level rise and natural
disasters and develop planning strategies to protect historic resources. Responsibilities:
DPCD/SHC, SHC, Public Properties, Open Space/Cemeteries/Shade Tree, Park Recreation & Community
Services
• Continue to utilize local CPA funds for public projects and leverage these funds to solicit
additional grant funding, including grant sources such as MHC’s MPPF program. Responsibilities:
DPCD/SHC, Open Space/Cemeteries/Shade Tree, Park Recreation & Community Services
• Develop a funding mechanism for Old Town Hall that would require a portion of funds raised at
the property to be used specifically for property maintenance. Responsibilities: DPCD/SHC
• Encourage the development of Friends Groups to oversee and provide general maintenance at
the City’s historic parks. Responsibilities: Open Space/Cemeteries/Shade Tree, Park Recreation &
Community Services
• Use local preservation partners, SHC, and friends groups as resources to identify innovative
techniques for historic resource preservation and funding opportunities that could benefit the
City. This could include sharing resources on issues such as capital improvements planning for
historic assets, development of a database to prioritize and monitor restoration and maintenance
projects, the use of modern technology for documenting the condition and age of historic
buildings and landscapes, employing private resident caretakers for public buildings, and
Salem Historic Preservation Plan Update 2015
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utilizing student craftsmen and other restoration interns for building projects. Responsibilities:
DPCD/SHC, SHC, Public Properties, Open Space/Cemeteries/Shade Tree, Park Recreation & Community
Services
City-Owned Cemeteries and Burial Grounds
Salem’s historic burial grounds and cemeteries contain significant collections of important resources,
including burial markers and tombs and historic fencing, buildings, and other structures. The City
commissioned a planning study in 2002 to identify preservation concerns at its historic burial grounds
and to prioritize restoration efforts. However, there is still a need for developing preservation guidelines
to address proper maintenance procedures. This includes procedures to ensure that gravestones are not
damaged by lawnmowers and other equipment and that deteriorated or damaged stones are properly
conserved. Maintenance guidelines should also include procedures to protect and preserve historic
settings including buildings and landscape features associated with the burial grounds. At Greenlawn
Cemetery, maintenance procedures should also include the in-kind replacement of the cemetery’s tree
inventory. The Massachusetts Department of Conservation and Recreation’s Preservation Guidelines for
Municipally Owned Historic Burial Grounds and Cemeteries can serve as a best practices reference for the
City.2 Developing policies to balance public access to the city’s historic burial grounds with the need to
protect markers and landscape features from irreversible damage should also be considered.
Volunteers and Friends Groups can assist with efforts to preserve the City’s historic burial grounds and
cemeteries and local CPA funds can provide critical funding. The Director of the Witch House is currently
serving as volunteer “overseer” for the Charter Street Burying Ground to initiate clean-up efforts at the
property and initiate marker conservation. She has begun an inventory of broken stones and has
developed a map and database identifying condition categories for each stone. CPA funds have recently
been awarded for restoration of headstones and tombs, improvements to pathways and improved
landscaping. A local friends group is also working closely with the DPCD and the Cemetery Department
on preservation efforts at Greenlawn Cemetery, raising private funds to restore portions of the Dickson
Memorial Chapel and placing interpretive signs throughout the cemetery. The site was recently listed in
the National Register of Historic Places and a new map of the cemetery has been issued. The Chapel also
received an award of CPA funds for restoration work.
Recommendations:
• Review 2002 Burial Grounds Study and update as needed. Implement relevant recommendations
from study. Responsibilities: DPCD/SHC, Open Space/Cemeteries/Shade Tree
• Establish priorities and funding for conservation and repair needs for monuments, structures,
and landscape features at City cemeteries. Responsibilities: Open Space/Cemeteries/Shade Tree
• Establish landscape maintenance guidelines and procedures, including trimming and mowing, to
prevent damage to stones and features from equipment. Consider training sessions for crew,
both regular and seasonal. Responsibilities: Open Space/Cemeteries/Shade Tree
2 MA Department of Conservation and Recreation, http://www.mass.gov/eea/agencies/dcr/conservation/planning-and-resource-
protection/best-management-practices.html
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• Continue efforts to conserve and restore stones and landscape features through the use of private
conservation specialists. Responsibilities: Open Space/Cemeteries/Shade Tree
• Continue encouraging the development of Friends groups for City’s cemeteries and burial
grounds. Responsibilities: Open Space/Cemeteries/Shade Tree
• Catalogue conditions at individual cemeteries and provide information through maps and
databases. Responsibilities: DPCD/SHC, Open Space/Cemeteries/Shade Tree
• Develop interpretational signage at city’s cemeteries where there is none currently.
Responsibilities: DPCD/SHC, Open Space/Cemeteries/Shade Tree
• Institute procedures to ensure that public access is not detrimental to historic resources. This
could include roping to prevent pedestrians from travelling over burial sites and/or the
installation of lighting and/or security cameras to deter vandalism. Responsibilities: Open
Space/Cemeteries/Shade Tree
City-Owned Historic Parks
Salem’s public parks contain some of the City’s most iconic landscapes and buildings and some of its
most deteriorated historic resources, including the public bathhouse and shelters at Salem Willows Park,
the entrance gates, historic house, and the closed bathroom buildings at Mack Park, the fortifications at
Fort Lee and Winter Island and the recreational structures at Camp Naumkeag. Efforts to restore features
at Fort Pickering on Winter Island and to repair the historic fencing at the Salem Common are ongoing.
Prioritizing preservation efforts at the City’s other parks and instituting preservation procedures for
ongoing maintenance at these historic sites will continue to be important.
Recommendations:
• Review existing conditions at City’s historic parks and open spaces and establish priorities for
preservation efforts. Inter-department dialogue between Parks Department and DPCD/SHC staff
to identify opportunities to preserve historic landscapes and built resources. Responsibilities:
DPCD/SHC, Park Recreation & Community Services
• Institute preservation procedures for ongoing maintenance at parks to ensure that historic
resources are protected, especially since these assets are heavily used by residents and visitors.
Responsibilities: DPCD/SHC, SHC, Park Recreation & Community Services
• As with City’s public buildings, continue efforts to solicit grant funds for restoration and repair
needs. Responsibilities: DPCD/SHC, Park Recreation & Community Services
Public Sidewalks and Infrastructure in Historic Areas
Maintenance of Salem’s brick sidewalks was a concern expressed by attendants at meetings held during
the preparation of this Plan. Developing a clear policy on brick sidewalk repair and identifying priority
areas for brick walks could help to address some of these concerns. Attendees also expressed concerns
about the impact of other infrastructure improvements on historic streetscapes, including installation of
new overhead lights. Currently, Salem’s local historic district ordinance does not include SHC review of
public works projects located within a historic district, nor does the City have a policy in place for SHC
consultation for this work, although consultation does sometimes occur on an informal basis.
Salem Historic Preservation Plan Update 2015
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Recommendations:
• Institute clear policy that requires SHC review of any public works project that is proposed in
local historic district. Responsibilities: Public Works, DPCD/SHC, Mayor
• Establish a consultation process for all public works projects that affect historic resources, even
those outside of historic districts, either through SHC member review or discussions with SHC
staff. Responsibilities: Public Works, DPCD/SHC, Mayor
• Establish clear policy on sidewalk repairs, especially pertaining to the city’s network of brick
sidewalks. This could include identifying priority areas for preservation and maintenance of
brick walks. Responsibilities: Public Works, DPCD/SHC, Mayor
• Advise hired snow plowing contractors on the appropriate procedures for plowing on or near
historic resources (i.e. Salem Common fence) and hold them responsible for damages. Likewise,
advise City Public Works staff on the proper plowing procedures. Responsibilities: Public Works
Planning for Natural Disasters and Climate Change Impacts
Several recent emergencies at local museums
highlight the vulnerability of Salem’s historic
resources to unexpected disasters. Rapid response
by the City’s fire department saved the PEM’s
Rope Mansion (fire) and the Gables’ Visitor Center
and archives (burst water pipe) from irreversible
damage. Climate change could also have a
significant impact on Salem’s historic resources,
many of which are located within close proximity
to the shoreline. Rising sea levels and severe
coastal storms threaten both the city’s natural and
built environment. The National Park Service is
engaged in efforts to identify climate-based threats to its Maritime Site and wharves and the ENHC is
also engaged in climate-change planning efforts.
The City of Salem recently completed a study to examine the potential effects of climate change on
Salem’s resources. Expanding this planning effort to develop specific strategies to protect the city’s
historic buildings, structures, landscapes and collections from rising sea levels, flooding concerns and
coastal storms would help to ensure that these irreplaceable assets are protected. This is particularly
important for waterfront resources such as Pickering Wharf, the Willows, Pioneer Village, Winter Island,
Baker Island Light, the House of The Seven Gables, and the National Park Service Salem Maritime
National Historic Site. Reviewing the City’s disaster preparedness protocols and maintaining a dialogue
between the City, COSTEP MA and its local Cultural Triage Officer is critical to ensure that the City can
respond quickly when an emergency occurs.
Salem Historic Preservation Plan Update 2015
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Recommendations:
• Implement recommendations set forth in the City’s 2015 Climate Change Report. Responsibilities:
City of Salem (see report)
• Work with preservation partners to identify historic resources at risk from climate change,
including City-owned resources and resources at Bakers Island, the Salem Maritime Site and
House of Seven Gables. Responsibilities: DPCD/SHC, preservation partners
• Commission a planning study that focuses specifically on Salem’s historic resources most at risk
from rising sea level. Responsibilities: DPCD/SHC
• Continue to participate in COSTEP MA and support efforts of the Local Cultural Triage Officer to
prepare and respond to emergencies. DPCD/SHC staff should work with Local Officer to
coordinate City staff involvement in COSTEP. Responsibilities: DPCD/SHC
• Review recent emergency responses to identify needed changes in protocol. Responsibilities:
DPCD/SHC, Department of Emergency Management (Fire), preservation partners
• Include discussion of natural disaster planning at preservation partners meeting and consider
hosting a regional forum on climate change and natural disaster planning for historic resources.
Responsibilities: preservation partners, DHCD/SHC , Department of Emergency Management (Fire)
Funding for Historic Preservation Efforts
Salem’s municipal staff has been very successful in soliciting grants to fund City-sponsored preservation
activities. Local CPA funds have also been invaluable in restoring some of the City’s most important
historic resources. Continuing to seek and utilize all available funding sources will remain critical as the
City struggles with limited finances and an aging building inventory. Earlier discussion in this section
also identifies the need for developing a capital improvements program to prioritize regular maintenance
and repairs for the City’s historic buildings, parks, and cemeteries.
Funding for the restoration of privately owned historic buildings is more limited. Several Massachusetts
communities are using local CPA funds to assist private property owners with their preservation efforts,
including purchasing preservation restrictions to provide owners with funding for restoration work.
While Salem could consider this strategy with its own local CPA funds, the City’s public building needs
far exceeds the funds available and the city’s non-profit partners are also in need of funding for their
historic properties. State and Federal historic preservation tax credits are available for owners of private
income-producing properties who are undertaking restoration projects that meet certain cost thresholds
and restoration requirements. Developers in Salem have utilized these tax credits to restore some of the
City’s most iconic landmarks, including the Salem Jail which was restored and redeveloped as residential
units and a restaurant, the Joshua Ward House at 148 Washington Street in downtown Salem which is
poised to open as an inn, and Classical Revival apartment buildings in the Point Neighborhood that were
restored for continued use as affordable housing units. Encouraging and supporting developers who seek
to utilize preservation tax credits for certified rehabilitation projects will be important.
Salem Historic Preservation Plan Update 2015
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Community Preservation Act
Salem’s adoption of the Community Preservation Act provides a much needed source of funding for
preserving the city’s historic resources. M.G.L. Chapter 44B allows communities to allocate funds to both
public and private resources providing that they serve a public benefit, which is reflected in the City’s
category specific criteria for historic preservation projects. Since this funding source is limited and local
needs far exceed the available funds, it will be important to understand the public benefit of each
individual project to ensure that they best meet the CPA guidelines. This is particularly important as the
City seeks to balance the restoration needs of its publicly-owned assets with the needs of historic assets
owned by local non-profit groups, including historic museums, institutions, and churches. Encouraging
proponents to leverage other funding sources for their restoration projects will be critical.
Recommendations:
• CPC, through its SHC representative, should work with SHC and other preservation partners to
identify and prioritize historic preservation projects for CPA funding that best serve a public
benefit, including both publicly-owned resources and those owned by non-profits organizations.
Responsibilities: DPCD/SHC, SHC, CPC, preservation partners
• Require preservation restrictions for all preservation projects, private and public, funded through
the City’s CPA program. Responsibilities: CPC
• Apply for CPA funds to implement the recommendations in this plan, including
recommendations relating to historic resource survey efforts and National Register nominations
and restoration projects at City-owned properties. Responsibilities: DPCD/SHC
• Apply for grant funding from other regional, state and national programs such as those offered
by the MHC, ENHC, the Metropolitan Area Planning Council (MAPC), the Massachusetts
Cultural Facilities Fund, and the City’s CDBG program to implement recommendations in this
plan. Responsibilities: DPCD/SHC
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Action Plan
Timeframe: I = Immediate S = Soon (1-3 years) IM = Intermediate (3-5 years) LT = Long Term (5-10 years)
SHC – Salem Historical Commission DPCD – Department of Planning and Community Development
PB – Planning Board CC – Cemetery Commission
P&R – Park and Recreation Department CPC – Community Preservation Committee
PP – Public Properties HSI – Historic Salem, Inc.
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
A Promoting Salem’s History and Historic Resources
Educational Programming and Activities
A.1 Install neighborhood interpretive signs DPCD X
A.2 Install historic district signage DPCD/SHC X
A.3 Install interpretive displays at historic City-owned properties DHCD/SHC, P&R, CC X
A.4 Develop historic plaques for Salem’s commercial and ecclesiastical buildings DHCD/SHC, HSI X
A.5 Expand City website to include interactive Salem history webpage X
A.6 Continue to collaborate with local preservation partners on educational
programs and activities
DHCD/SHC, Partners X
Collaboration with Salem’s Preservation Partners
A.7 Institute quarterly meetings for Salem’s preservation partners Preservation Partner X
A.8 Establish a local online email system (listserve) Preservation Partner X
A.9 Support efforts of local preservation organizations DPCD/SHC X
A.10 Support efforts of preservation partners to preserve their historic assets DPCD/SHC, CPC X
A.11 Continue efforts to collaborate with local teachers Preservation Partners X Salem Historic Preservation Plan Update 2015Action PlanPage 132
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
A.12 Support HSI’s ongoing educational work, including its annual Preservation
Awards program and SHC to recommend nominees for awards
X
A.13 Make The Salem Handbook available online HSI
Promote the Economic Benefits of Historic Preservation
A.14 Promote correlation between historic preservation and economic development to
developers and realtors in Salem
DPCD/SHC, Partners X
A.15 Promote economic benefits of historic preservation to historic property owners DPCD/SHC, Partners X
A.16 Facilitate ongoing dialogue between preservation partners and tourism agencies
to increase cultural tourism in Salem.
DHCD/SHC, Partners X
Integrate the Arts and Historic Preservation
A.17 Utilize City-owned buildings and properties for art and cultural events DHCD/SHC X
A.18 Seek opportunities for preservation groups and arts advocates to work together
to promote the city’s heritage.
PP, SHC, Arts Planner X
A.19 Conserve City’s historic documents and public art collections Arts Commission, Partners,
DHCD/SHC
X
B Identifying and Evaluating Historic Resources
Historic Resource Inventory
B.1 Document Salem’s historic resources through new historic resource surveys DPCD/SHC X
B.2 Utilize preservation consultants and/or interns to complete inventory forms. DPCD/SHC X
B.3 Update older inventory forms DPCD/SHC X
B.4 Review existing geographic area codes to add additional historic areas DPCD/SHC X
B.5 Provide improved links to historic resource forms on SHC webpage DPCD/SHC X X Salem Historic Preservation Plan Update 2015Action PlanPage 133
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
B.6 Distribute inventory forms during development review process and/or develop
MACRIS training sessions for city staff
DPCD/SHC X
B.7 Develop and maintain historic inventory information on City’s GIS system and
on a city-wide map of documented historic resources
DPCD/SHC X
Archaeological Resources
B.8 Develop education programs to highlight Salem’s archaeological resources DPCD/SHC, Partners X
B.9 Document archaeological sites through archaeological surveys as needed DPCD/SHC X
National Register of Historic Places (NR)
B.10 Review and expand existing National Register districts DPCD/SHC X
B.11 Pursue new National Register districts and individual listings DPCD/SHC X
B.12 Pursue NR eligibility determinations and listings for City-owned historic
properties
DPCD/SHC X
B.13 Pursue additional National Register listings identified in future survey efforts DPCD/SHC X
C Protecting Salem’s Historic Resources and Historic Character
Preservation Restrictions
C.1 Compile list of preservation restrictions and establish monitoring system DPCD/SHC, PP X
C.2 Place restrictions on CPA-funded City-owned historic properties Mayor, DPCD/SHC X
C.3 Place restrictions on unprotected City-owned significant historic properties Mayor, DPCD/SHC X
C.4 Establish City policy to place preservation restrictions on historic buildings
decommissioned by the City and placed into private ownership
Mayor, DPCD/SHC X
C.5 Encourage other public agencies and non-profit organizations to consider
preservation restrictions for properties sold for private use
Mayor, SHC X Salem Historic Preservation Plan Update 2015Action PlanPage 134
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
C.6 Promote use of preservation restrictions for private properties DPCD/SHC, Partners X
Salem’s Municipal Preservation Efforts
SHC Member Training and Education
C.7 Fund SHC members to attend preservation trainings, workshops or conferences SHC X
C.8 Participate in MHC’s preservation listserve SHC X
Municipal Staff Support for SHC
C.9 Expand SHC’s staff position responsibilities and expertise in preservation issues X
Strengthen SHC Role as a Historical Commission
C.10 Clarify Commission’s joint role as historical commission and historic district
commission on City’s website
SHC X
C.11 Hold annual meeting to develop a work plan and establish goals for the year SHC X
C.12 Encouraging SHC members to enroll in the City’s existing e-mail subscriber DPCD/SHC X
C.13 Discuss preservation issues, opportunities and concerns at regular DPCD staff
meetings and Department head meetings
DPCD X
C.14 Develop policy for City departments and boards to seek SHC comment on City
projects affecting historic resources
Mayor X
C.15 Distribute inventory forms and other historic information to City boards and
agencies reviewing or managing projects effecting historic resources
DPCD/SHC X
C.16 Discuss preservation objectives relating to the City’s natural and built resources
during Mayor’s periodic all-board meetings
Mayor X
C.17 Solicit grant funding and hire preservation consultants to complete local
planning initiatives not undertaken by staff or Commission members
DPCD X
Salem Historic Preservation Plan Update 2015Action PlanPage 135
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
Strengthen Salem’s Historic Preservation Ordinances
Demolition Delay Ordinance
C.18 Review and update demolition delay ordinance SHC (requires approval from
City Council)
X
C.19 Institute fee for demolition delay applications to provide funding source to hire
professionals to assess structural integrity of threatened buildings
DPCD/SHC (requires
approval from City Council)
X
Local Historic District Ordinance
C.20 Utilize technology and social media to inform residents about historic district
regulations and promote preservation efforts
DPCD/SHC X
C.21 Improve SHC webpage to make more user-friendly and interactive DPCD/SHC X
C.22 Install historic district signage DPCD/SHC X
C.23 Educate local realtors about historic designations DPCD/SHC X
C.24 Strengthen LHD review process DPCD/SHC (requires
approval from City Council)
X
C.25 Impose fines for violations in LHD DPCD/SHC (requires
approval from City Council)
X
C.26 Review McIntire District regulations to consider revisions to add visibility from
Bridge Street in the Commission’s jurisdiction
SHC X
C.27 Review applications and visit each site prior to public hearing SHC X
C.28 Assign each board member a geographical area to check monthly for violations DPCD/SHC, SHC X
C.29 Formalize process to review approved projects once work is completed DPCD/SHC, SHC X
Expand Existing and Designate New Local Historic Districts
C.30 Promote benefits of historic district designations to residents and officials DPCD/SHC, Partners X Salem Historic Preservation Plan Update 2015Action PlanPage 136
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
C.31 Consider and promote expansion of existing local historic districts DPCD/SHC X
C.32 Consider and promote designation of new local historic districts DPCD/SHC X
Other Tools for Consideration
Demolition by Neglect Ordinance
C.33 Establish a Minimum Maintenance and Demolition by Neglect Ordinance DPCD/SHC X
Single Building Local Historic Districts (LHD)
C.34 Use single building LHD designation for threatened resources DPCD/SHC X
Neighborhood Preservation Districts (NPD)
C.35 Promote NPDs to neighborhood groups, property owners, and City officials DPCD/SHC, Partners,
Neighborhood Assoc.
X
C.36 Adopt a general NPD ordinance DPCD/SHC, City Solicitor,
approved by City Council
X
Integrate Historic Preservation Objectives into Salem’s Zoning
Ordinance and Development Review Process
C.37 Strengthen Carriage House ordinance DPCD/SHC X
C.38 Consider other zoning incentives to encourage preservation of city’s historic
resources, particularly resources at risk
DPCD/SHC X
C.39 Incorporate preservation objectives into development review process when
possible
DPCD/SHC X
C.40 Develop a preservation checklist for City boards and commissions DPCD/SHC X
C.41 Engage and inform developers about historic preservation objectives DPCD X
Salem Historic Preservation Plan Update 2015Action PlanPage 137
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
Communication Between City Boards, Commissions, and Departments
C.42 Institute an agenda sharing process for all City review boards and distribute
inventory forms and other historic information
DPCD/SHC X
C.43 Continue SHC involvement in reviewing public projects to determine potential
impacts on Salem’s historic character
DPCD/SHC X
C.44 Institute SHC comment on private projects receiving city funds, permits or any
ordinance affecting inventoried, state register-listed or archaeological resources
DPCD/SHC X
C.45 Ensure that all board approvals be given appropriate consideration DPCD/SHC X
C.46 Ensure that SHC stays abreast of project reviews before other City agencies and
submits comments, as necessary
DPCD/SHC X
C.47 Develop strategies to encourage preservation of at-risk historic resources DPCD/SHC, Partners X
One Stop Meetings
C.48 Institute policy that DPCD/SHC staff will attend all One Stop meetings for
projects located in an historic area or neighborhood
DPCD/SHC X
Site Plan Review
C.49 Include DPCD/SHC staff on the routing of project plans DPCD/SHC X
C.50 Incorporate language in site plan review for compatibility with historic context DPCD/SHC X
Special Permit and Variances
C.51 Review existing zoning ordinance to identify potential conflicts between
regulations and the preservation of the city’s historic character.
DPCD/SHC X
C.52 Distribute inventory forms for special permit and variance packets DPCD/SHC X
Urban Renewal Area
C.53 Institute a preservation checklist for use during development review DPCD/SHC X Salem Historic Preservation Plan Update 2015Action PlanPage 138
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
C.54 Institute policy for SHC attendance at DRB/SRA meetings or submission of
comments for development projects
DPCD/SHC, SHC X
C.55 Engage downtown property owners and local preservation partners on
downtown preservation efforts
DPCD/SHC, SRA X
C.56 Continue to use Commercial Design Guidelines DPCD/SHC, SRA X
Entrance Corridor Overlay Districts
C.57 Use existing design guidelines for entrance corridor overlay districts DPCD/SHC, PB X
C.58 Review EOCD regulations to incorporate protection of historic resources,
streetscapes and neighborhoods when possible
DPCD/SHC X
North River Canal Corridor
C.59 Retain and preserve existing historic buildings when possible and ensure
new construction is compatible with scale and character of surrounding
historic streetscapes and neighborhood
DPCD/SHC, PB X
Environmental Review
C.60 Engage in SHC training on Section 106 and Chapter 254 review process DPCD/SHC, SHC X
C.61 Continue involvement in the Section 106 and Chapter 254 review processes DPCD/SHC, SHC X
C.62 Continue CDBG historic preservation policies and request SHC comment when
applicable
DPCD/SHC X
D PRESERVATION AND MANAGEMENT OF HISTORIC CITY-OWNED
RESOURCES
City-Owned Historic Buildings
D.1 Improve visual appearance of City-owned historic properties DPCD/SHC, PP X
D.2 Address security measures at City-owned historic properties DPCD/SHC, PP X Salem Historic Preservation Plan Update 2015Action PlanPage 139
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
D.3 Review 1998 Maintenance Plan and individual property reports and update
recommended actions as necessary. Use updated recommendations to establish
restoration and repair priorities through Capital Improvements Plan
DPCD/SHC, PP, Open
Space/Cemeteries/Shade Tree
X
D.4 Develop long-term maintenance plans for restored City-owned historic
buildings, cemeteries and monuments.
DPCD/SHC, PP,
OS/Cemetery/Shade Tree
X
D.5 Establish City policy to preserve and maintain historic public buildings in
keeping with the Secretary of the Interior Standards for Historic Preservation
SHC, PP (with approval by
City Council)
X
D.6 Ensure that regular maintenance procedures do not damage resources at City
parks, cemeteries and burial grounds.
OS/Cemeteries/Shade Tree,
P&R
X
D.7 Establish formal policy for SHC to review proposed work on City-owned
historic resources
DPCD/SHC, SHC, PP, OS/
Cemeteries/Shade Tree, P&R
X
D.8 Commission individual reports for City-owned vacant, underused or
deteriorated properties
DPCD/SHC, PP, P&R
Services
X
D.9 Place preservation restrictions on historic public buildings determined obsolete
for City use
DPCD/SHC, PP (with
approval from City Council)
X
D.10 Identify City-owned properties at greatest risk of damage from climate
change and develop planning strategies to protect historic resources
DPCD/SHC, SHC, PP,
OS/Cemeteries/Tree, P&R
X
D.11 Continue to utilize local CPA funds for public projects and leverage these funds
to solicit additional grant funding
DPCD/SHC, OS/Cemeteries/
Tree, P&R
X
D.12 Develop a funding mechanism for Old Town Hall to require a portion of
funds raised at the property to be used specifically for property maintenance
DPCD/SHC X
D.13 Develop additional Friends Groups to oversee and provide general maintenance
at the City’s historic parks
OS/Cemeteries/Tree, P&R X
D.14 Identify funding opportunities and innovative techniques for historic resource
preservation
DPCD/SHC, SHC, PP, OS/
Cemeteries/Tree, P&R
X
Salem Historic Preservation Plan Update 2015Action PlanPage 140
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
Cemeteries and Burial Grounds
D.15 Review previous Burial Grounds Study and update as needed DPCD/SHC, OS/Cem/Tree X
D.16 Establish priorities and funding for conservation and repair needs OS/Cemeteries/Tree X
D.17 Establish landscape maintenance guidelines and procedures and consider
training sessions for crew
OS/Cemeteries/Tree X
D.18 Conserve and restore stones and landscape features through private
conservation specialists
OS/Cemeteries/Tree X
D.19 Develop Friends groups for city’s cemeteries and burial grounds OS/Cemeteries/Tree X
D.20 Catalogue conditions at individual cemeteries and provide information through
maps and databases
DPCD/SHC,
OS/Cemeteries/Tree
X
D.21 Develop interpretational signage at city’s cemeteries DPCD/SHC, OS/Cem/Tree X
D.22 Institute procedures to ensure public access is not detrimental to resources OS/Cemeteries/Tree X
City-Owned Parks
D.23 Review existing conditions at City’s historic parks and open spaces and establish
priorities for preservation efforts
DPCD/SHC, P&R X
D.24 Institute preservation procedures for ongoing maintenance at parks DPCD/SHC, SHC, P&R X
D.25 Solicit grant funds for restoration and repair needs DPCD/SHC, P&R X
D.
Public Sidewalks and Infrastructure in Historic Areas
D.26 Institute policy for SHC review of public works projects in local historic districts Public Works, DPCD/SHC,
Mayor
X
D.27 Establish SHC consultation process for public works projects that affect historic
resources, even those outside of historic districts
Public Works, DPCD/SHC,
Mayor
X
Salem Historic Preservation Plan Update 2015Action PlanPage 141
RECOMMENDATIONS Primary
Responsibility
I S IM LT Ongoing
D.28 Establish policy on sidewalk repairs, including priority areas for preservation
and maintenance of brick walks
Public Works, DPCD/SHC,
Mayor
X
D.29 Advise hired snow plowing contractors and Public Works staff on appropriate
procedures for plowing on or near historic resources
Public Works X
E PLANNING FOR NATURAL DISASTERS AND CLIMATE CHANGE
IMPACTS
Implement recommendations set forth in the City’s 2015 Climate Change Report DPCD/SHC X
E
1
Identify historic resources at risk from climate change DPCD/SHC, Partners X
E.2 Commission study for historic resources most at risk from climate change DPCD/SHC X
E.3 Continue to participate in COSTEP and support efforts of Local Cultural Triage
Officer to prepare and respond to emergencies
DPCD/SHC, Partners X
E.4
Review recent emergency responses to identify needed changes in protocol DPCD/SHC, Emergency
Management (Fire), Partners
X
E.5 Discuss disaster planning at preservation partners meeting and host regional
forum on climate change and natural disaster planning for historic resources
DPCD/SHC, Emergency
Management (Fire), Partners
X
F FUNDING FOR HISTORIC PRESERVATION
F.1 Identify and prioritize historic preservation projects for CPA funding that best
serve a public benefit
CPC, DPCD/SHC, SHC,
Partners
X
F
2
Require preservation restrictions for all preservation projects, private and
public, funded through CPA program
CPC X
F.3 Apply for CPA funds to implement the recommendations in this plan DPCD/SHC X
F.4 Apply for grant funding from other regional, state and national programs to
implement recommendations in this plan
DPCD/SHC X
Salem Historic Preservation Plan Update 2015Action PlanPage 142
Appendix
Salem Historic Preservation Plan Update 2015
Appendix A-1
12 Economic Benefits of Historic Preservation
1. Rehab costs are roughly same as new construction
2. Historic Preservation creates jobs
3. Historic Preservation increases property values
4. Historic Preservation conserves resources
5. Historic Preservation uses existing public investments
6. Historic Preservation supports small businesses
7. Historic Preservation revitalizes Main Street
8. Historic Preservation attracts investment
9. Historic Preservation attracts visitors
10. Historic Preservation prevents sprawl
11. Historic Preservation creates affordable housing
12. Historic Preservation is good economic development
Studies on the Economic Benefits of Historic Preservation
Economics and Historic Preservation: A Guide and Review of the Literature. Randall Mason, paper
prepared for the Brookings Institution, September 2005. (http://brookings.edu)
Economic Impacts of Historic Preservation in Massachusetts, Massachusetts Historical Commission, May
2002. (http://www.sec.state.ma.us)
Measuring Economic Impacts of Historic Preservation. Donavan R. Rypkema and Caroline Chung for
Advisory Council on Historic Preservation, November 2011, Second Ed. September 2013.
(http://achp.gov/economic-statewide)
Measuring the Economics of Preservation: Recent Findings. Advisory Council on Historic Preservation,
June 2011.
The Economics of Historic Preservation: A Community Leader’s Guide. Donovan Rypkema, 2011.
The Advisory Council on Historic Preservation’s website (http://achp.gov/economic-statewide) includes
links to studies documenting the economic benefits of historic preservation activities in individual states:
Arkansas Iowa Missouri N. Carolina Texas
Colorado Kentucky Nebraska Oklahoma Utah
Connecticut Maryland New Jersey Pennsylvania Washington
Florida Massachusetts New Mexico S. Carolina West Virginia
Georgia Michigan New York Tennessee
The City of Lafayette, Indiana website highlights 12 Economic Benefits of Historic Preservation
(www.lafayette.in.gov/190/12-Economic-Benefits-of-Historic-Preserv)
Salem Historic Preservation Plan Update 2015
Appendix A-2
Historic Preservation Funding Programs
MASSACHUSETTS PROGRAMS
Massachusetts Historical Commission (http://www.sec.state.ma.us/mhc)
Massachusetts Preservation Projects Fund (MPPF) is a competitive matching grant program for
municipal and non-profit organizations for pre-development and construction costs.
Survey and Planning Grant Programs (S & P) is a competitive matching grant program for
preservation planning projects, including historic resource surveys, National Register
nominations, and educational outreach programs. A portion of the annual funds are specifically
distributed to Certified Local Government (CLG) programs.
Massachusetts Humanities (http://www.masshumanities.org)
Project Grants program supports public programming in the humanities in Massachusetts,
including film-, lecture-, reading-, and discussion series; exhibits; media pre-production and
distribution; and other public activities. Standard maximum award is $5,000.
Local History Grants is a small grant program for small historical organizations with a record of
presenting interpretive programs to the public. This includes the Research Inventory Grant (max.
$1,500) and the Scholar in Residence Grant (max. $3,000).
Public Squared Challenge Grant is an annual grant supporting the collaborative efforts of two
or more organizations to create interactive, face-to-face public programs addressing the thematic
initiative, Negotiating the Social Contract. The maximum award is $25,000: $15,000 in outright
funds and a $10,000 challenge portion.
Massachusetts Cultural Council (http://www.massculturalcouncil.org)
Adams Arts Program is a matching grant program that offers funds for projects related to
Creative Economy initiatives, including downtown revitalization and cultural tourism.
Massachusetts Cultural Facilities Fund
This program provides matching Capital Grants to promote the acquisition, design, repair,
rehabilitation, renovation, expansion, or construction of nonprofit cultural facilities in
Massachusetts.
Boston Foundation for Architecture (http://www.bfagrants.org/grants.html)
Provides grants for community-based public education programs, exhibitions and tours, in-
school educational programs, conferences, lectures, symposiums and other community activities
related to planning, design, and the built environment in Massachusetts.
Salem Historic Preservation Plan Update 2015
Appendix A-3
NATIONAL PROGRAMS
National Park Service (http://www.nps.gov/preservation-grants
Note: The following grant programs are authorized but are not currently funded as of November 2015.
Save America’s Treasures Grant is a collaborative effort between the Park Service and the
American Architectural Foundation to preserve nationally significant historic properties and
collections.
Preserve America Grants is a competitive matching grant program to fund designated Preserve
America Communities to support preservation efforts through heritage tourism, education and
historic preservation planning.
National Endowment for the Humanities (http://www.neh.gov/grants/preservation/
preservation-assistance-grants-smaller-institutions)
Preservation Assistance Grants assist small and mid-sized institutions—such as libraries,
museums, historical societies, archival repositories, cultural organizations, and town and county
records offices—improve their ability to preserve and care for their significant humanities
collections. These may include special collections of books and journals, archives and
manuscripts, prints and photographs, moving images, sound recordings, architectural and
cartographic records, decorative and fine art objects, textiles, archaeological and ethnographic
artifacts, furniture, historical objects, and digital materials.
National Trust for Historic Preservation - <www.PreservationNation.org>
Note: The following National Trust Programs are available only for Forum members and National Main
Street Network members
Johanna Favrot Fund for Historic Preservation provides matching grants to non-profit and
public agencies for projects that contribute to preservation or recapture an authentic sense of
place. Funds may be used for professional services, conferences, workshops, and education
programs. Grants range from $2,500 to $10,000 with approximately $50,000 awarded each year.
Preservation Funds provide matching grants to nonprofit and public agencies for planning and
educational efforts.
The Cynthia Woods Mitchell Fund for Historic Interiors is a highly competitive program that
provides matching grants to nonprofit organizations and public agencies to assist in planning for
the preservation, restoration, and interpretation of historic interiors. Grants range from $2,500 to
$10,000.
Historic Tax Incentives
Massachusetts Historic Rehabilitation Tax Credit Program (MHRTC)
Under this program, a certified rehabilitation project on an income-producing property is eligible
to receive up to 20% of the cost of certified rehabilitation expenditures in state tax credits.
Salem Historic Preservation Plan Update 2015
Appendix A-4
Federal Historic Preservation Tax Incentives Program
This program provides a 20% income tax credit for the rehabilitation of historic, income-
producing buildings that are determined by the Secretary of the Interior, through the National
Park Service, to be “certified historic structures”. The State Historic Preservation Office and the
Park Service review project work to ensure compliance with the Secretary of the Interior’s
Standards for Rehabilitation.
Salem Historic Preservation Plan Update 2015
Appendix A-5
SAMPLE DEMOLITION DELAY BYLAW – AGE BASED
This bylaw can be emailed to you by contacting the Massachusetts Historical
Commission.
This bylaw should be passed as a General Bylaw, not a Zoning Bylaw.
This bylaw is for a twelve month delay period as recommended by the
Massachusetts Historical Commission. However, most demolition delay bylaws in
Massachusetts are for six months.
Consult with your municipal legal counsel regarding this sample bylaw.
Consult with your municipal legal counsel regarding the use of non-criminal
compliance as an enforcement provision for this bylaw.
For more information on demolition delay bylaws including a map of
municipalities with demolition delay, contact the Massachusetts Historical
Commission at (617) 727-8470 or by email at Christopher.Skelly@state.ma.us.
+++++++++++++++++++++++++++++++++++++++++++++++++++++++++
Title of Bylaw
The Preservation of Historically Significant Buildings
Intent and Purpose
This by-law is enacted for the purpose of preserving and protecting significant
buildings within the Town which constitute or reflect distinctive features of the
architectural, cultural, economic, political or social history of the town and to limit
the detrimental effect of demolition on the character of the town. Through this
bylaw, owners of preferably preserved buildings are encouraged to seek out
alternative options that will preserve, rehabilitate or restore such buildings and
residents of the town are alerted to impending demolitions of significant buildings.
By preserving and protecting significant buildings, streetscapes and
neighborhoods, this bylaw promotes the public welfare by making the town a more
attractive and desirable place in which to live and work. To achieve these purposes
the Historical Commission is authorized to advise the Building Inspector with
Salem Historic Preservation Plan Update 2015
Appendix A-6
respect to demolition permit applications. The issuance of demolition permits is
regulated as provided by this by-law.
Definitions
APPLICANT-Any person or entity who files an application for a demolition
permit. If the applicant is not the owner of the premises upon which the building is
situated, the owner must indicate on or with the application his/her assent to the
filing of the application.
APPLICATION-An application for the demolition of a building.
BUILDING-Any combination of materials forming a shelter for persons, animals,
or property.
BUILDING COMMISSIONER - The person occupying the office of Building
Commissioner or otherwise authorized to issue demolition permits.
COMMISSION – The [name of town] Historical Commission or its designee.
DEMOLITION-Any act of pulling down, destroying, removing, dismantling or
razing a building or commencing the work of total or substantial destruction with
the intent of completing the same.
DEMOLITION PERMIT - The building permit issued by the Building Inspector
for a demolition of a building, excluding a building permit issued solely for the
demolition of the interior of a building.
PREFERABLY PRESERVED - Any significant building which the Commission
determines, following a public hearing, that it is in the public interest to be
preserved rather than demolished. A preferably preserved building is subject to the
twelve month demolition delay period of this bylaw.
SIGNIFICANT BUILDING – Any building within the town (city) which is in
whole or in part fifty years or more old and which has been determined by the
Commission or its designee to be significant based on any of the following criteria:
The Building is listed on, or is within an area listed on, the National Register of
Historic Places; or
Salem Historic Preservation Plan Update 2015
Appendix A-7
The Building has been found eligible for the National Register of Historic Places;
or
The Building is importantly associated with one or more historic persons or events,
or with the broad architectural, cultural, political, economic or social history of the
Town or the Commonwealth; or
The Building is historically or architecturally important (in terms of period, style,
method of building construction or association with a recognized architect or
builder) either by itself or in the context of a group of buildings.
Procedure
No demolition permit for a building which is in whole or in part fifty years or more
old shall be issued without following the provisions of this bylaw. If a building is
of unknown age, it shall be assumed that the building is over 50 years old for the
purposes of this bylaw.
An applicant proposing to demolish a building subject to this bylaw shall file with
the Building Commissioner an application containing the following information:
The address of the building to be demolished.
The owner's name, address and telephone number.
A description of the building.
The reason for requesting a demolition permit.
A brief description of the proposed reuse, reconstruction or replacement.
A photograph or photograph(s) of the building.
The Building Commissioner shall within seven days forward a copy of the
application to the Commission. The Commission shall within fifteen days after
receipt of the application, make a written determination of whether the building is
significant.
Upon determination by the Commission that the building is not significant, the
Commission shall so notify the Building Commissioner and applicant in writing.
The Building Commissioner may then issue the demolition permit.
Salem Historic Preservation Plan Update 2015
Appendix A-8
Upon determination by the Commission that the building is significant, the
Commission shall so notify the Building Commissioner and the applicant in
writing. No demolition permit may be issued at this time. If the Commission does
not notify the Building Commissioner within fifteen days of receipt of the
application, the Building Commissioner may proceed to issue the demolition
permit.
If the Commission finds that the building is significant, it shall hold a public
hearing within thirty days of the written notification to the Building Commissioner.
Public notice of the time, place and purpose of the hearing shall be posted in a
conspicuous place in town hall for a period of not less than seven days prior to the
date of said hearing and the applicant and the building inspector shall be notified in
writing of the meeting time and place.
The Commission shall decide at the public hearing or within fourteen days after the
public hearing whether the building should be preferably preserved. If agreed to in
writing by the applicant, the determination of the Commission may be postponed.
If the Commission determines that the building is not preferably preserved, the
Commission shall so notify the Building Commissioner and applicant in writing.
The Building Commissioner may then issue the demolition permit.
If the Commission determines that the building is preferably preserved, the
Commission shall notify the Building Commissioner and applicant in writing. No
demolition permit may then be issued for a period of twelve months from the date
of the determination unless otherwise agreed to by the Commission. If the
Commission does not so notify the Building Commissioner in writing within
twenty one days of the public hearing, the Building Commissioner may issue the
demolition permit.
Upon a determination by the Commission that any building which is the subject of
an application is a preferably preserved building, no building permit for new
construction or alterations on the premises shall be issued for a period of twelve
months from the date of the determination unless otherwise agreed to by the
Commission.
No permit for demolition of a building determined to be a preferably preserved
building shall be granted until all plans for future use and development of the site
Salem Historic Preservation Plan Update 2015
Appendix A-9
have been filed with the Building Commissioner and have found to comply with all
laws pertaining to the issuance of a building permit or if for a parking lot, a
certificate of occupancy for that site. All approvals necessary for the issuance of
such building permit or certificate of occupancy including without limitation any
necessary zoning variances or special permits, must be granted and all appeals
from the granting of such approvals must be concluded, prior to the issuance of a
demolition permit under this section.
The Building Commissioner may issue a demolition permit or a building permit for
a preferably preserved building within the twelve months if the Commission
notifies the Building Commissioner in writing that the Commission finds that the
intent and purpose of this bylaw is served even with the issuance of the demolition
permit or the building permit.
Following the twelve month delay period, the Building Commissioner may issue
the demolition permit.
Administration
The Commission may adopt such rules and regulations as are necessary to
administer the terms of this bylaw.
The Commission is authorized to adopt a schedule of reasonable fees to cover the
costs associated with the administration of this bylaw.
The Commission may delegate authority to make initial determinations of
significance to one or more members of the Commission or to a municipal
employee.
The Commission may pro-actively develop a list of significant buildings that will
be subject to this bylaw. Buildings proposed for the significant building list shall
be added following a public hearing.
Emergency Demolition
If after an inspection, the Building Commissioner finds that a building subject to
this bylaw is found to pose an immediate threat to public health or safety due to its
deteriorated condition and that there is no reasonable alternative to the immediate
demolition of the building or structure, then the Building Commissioner may issue
an emergency demolition permit to the owner of the building or structure. The
Building Commissioner shall then prepare a report explaining the condition of the
Salem Historic Preservation Plan Update 2015
Appendix A-10
building and the basis for his decision which shall be forwarded to the
Commission.
Enforcement and Remedies
The Commission and/or the Building Commissioner are each specifically
authorized to institute any and all actions and proceedings, in law or equity, as they
may deem necessary and appropriate to obtain compliance with the requirements
of this by-law or to prevent a threatened violation thereof.
Any owner of a building subject to this bylaw that demolished the building without
first obtaining a demolition permit in accordance with the provisions of this bylaw
shall be subject to a fine of not more than Three Hundred Dollars. Each day the
violation exists shall constitute a separate offense until a faithful restoration of the
demolished building is completed or unless otherwise agreed to by the
Commission.
If a building subject to this bylaw is demolished without first obtaining a
demolition permit, no building permit shall be issued for a period of two years
from the date of the demolition on the subject parcel of land or any adjoining
parcels of land under common ownership and control unless the building permit is
for the faithful restoration referred to above or unless otherwise agreed to by the
Commission.
Historic District Act
Following a determination that the building is significant and preferably preserved,
the Commission may recommend to town meeting that the building be protected
through the provisions of Massachusetts General Law, Chapter 40C, the Historic
Districts Act. The steps required under M.G.L. Chapter 40C shall be followed
prior to the establishment of a local historic district. Nothing in this by-law shall
be deemed to conflict with the provisions of the Historic District Act,
Massachusetts General Laws Chapter 40C. If any of the provisions of this by-law
do so conflict, that act shall prevail.
Severability
In case any section, paragraph or part of this by-law be for any reason declared
invalid or unconstitutional by any court, every other section, paragraph, and part
shall continue in full force and effect.
Salem Historic Preservation Plan Update 2015
Appendix A-11
Community Awareness and Participation
During the second phase of this project, the City sought public input on current issues and opportunities
affecting Salem’s historic resources. This input was gained through a variety of methods, including
individual interviews, attendance at board meetings, a stakeholder focus group and a community
meeting.
The City’s consultant conducted individual interviews with many of Salem’s preservation groups to
identify both specific organizational concerns and general concerns regarding the city’s historic resources.
Interviews were conducted with:
Destination Salem Peabody Essex Museum
Historic New England Salem Main Streets
Historic Salem, Inc. Salem Maritime Site/NPS
House of Seven Gables Salem Partnership
In addition, the Consultant attended meetings of the Salem Historical Commission and Historic Salem
Inc.’s Preservation Committee. Historic Salem prepared several comment letters identifying specific
concerns for incorporation into this Plan. (See HSI letters in Appendix) The consultant also met with
City staff, including staff for the Planning Board, Zoning Board of Appeals, Conservation Commission
and Redevelopment Authority to discuss Salem’s development review process.
During these interviews, several common concerns emerged:
• The need for ongoing communication between Salem’s preservation groups;
• The need for better promotion on the benefits of historic preservation, including the economic
benefits of preservation;
• The need for further documentation and protection of Salem’s historic resources, especially in
underrepresented areas;
• The need to plan for climate-based threats to Salem’s historic resources;
• The need for prioritizing, funding, and implementing restoration efforts for the City’s historic
public assets;
• The need for regular, ongoing maintenance at the City’s historic properties; and
• The need for better incorporation of historic preservation objectives in the development review
process.
Focus Group
After the interviews, the City hosted a focus group meeting for local stakeholders, including
representatives from Salem’s preservation, tourism, economic development, and neighborhood groups.
During this meeting, attendees participated in a SWOT exercise to identify strengths, weaknesses,
Salem Historic Preservation Plan Update 2015
Appendix A-12
opportunities, and threats pertaining to Salem’s historic resources. Attendees at this meeting included
representatives from:
Chamber of Commerce National Park Service
Essex National Heritage Commission Pickering House
Hamilton Hall Salem Athenaeum
Historic New England Salem Common Association
Historic Salem, Inc.
House of Seven Gables
Salem Neighborhood Alliance
Salem State University
Focus Group attendees identified the following strengths, weaknesses, opportunities and threats:
Strengths
Salem is the historic & cultural center of the North Shore. The city’s active organizations, many having
been in existence for many years, contribute to the community’s overall vibrancy. These include both
public and non-profit organizations and churches, museums, and art groups. The city hosts a major
museum, university, health center, and the National Park Service all located within a compact walkable
area. Attendees also noted that Salem’s public and private architecture is unparalleled. In addition, the
city boasts numerous historic intact neighborhoods, a beautiful waterfront, historic active green spaces,
including cemeteries, parks and the Salem Common. Brick sidewalks, found throughout the community,
an extensive inventory of street trees contribute to city’s character. Salem’s history is varied with many
stories to be told and its cultural diversity extends back centuries. And finally, attendees expressed the
important role that the recently adopted Community Preservation Act will play in efforts to preserve
Salem’s historic resources.
Weaknesses
Salem’s lack of public awareness, documentation and protections for its historic resources, including its
brick sidewalks, threatens these important assets. Salem over-celebrates “witches”, while under-
celebrating its history. Limited communication and collaboration between the city’s non-profits
preservation organizations was also cited as a current weakness. Attendees expressed particular concern
about the City’s historic public buildings, noting a lack of preservation standards and funding for
preservation efforts at historic public sites. They also expressed concern that the City’s current rules and
regulations hinder preservation efforts in regards to development. The City needs to develop a holistic
approach to streetscape design and infrastructure improvements to highlight historic streets and
neighborhoods like on North Street. Other noted weaknesses included a lack of connectivity between
Salem’s historic sites, a need for better pedestrian and bicycle access to sites through improvements to
bike paths and walkways, particularly within new developments. Attendees also expressed a lack of
understanding of how public art it can fit in, enhance, and highlight the city and its historic assets.
Salem Historic Preservation Plan Update 2015
Appendix A-13
Opportunities
Attendees noted that Salem has the opportunity to learn from its past, such as the negative impacts of
demolition through urban renewal efforts of the 1960s. The City also has the opportunity to encourage
owners and developers to appreciate the city’s history and resources and to encourage better new
architecture and preservation of existing buildings through tax credits. Salem has significant
anniversaries coming up that can be opportunities to celebrate local history and plan for future
preservation efforts. City can engage next generation of immigrants and youth to be stewards of Salem’s
history through existing projects at Gables and ENHC (Salem at Sea – how to build upon, good model to
expand), local history curriculum in the schools, through city’s museums, and through ELA training.
Other existing training programs (see Holyoke) can serves as models for Salem. Attendees noted that the
PEM has re-engaged in preservation activities for its historic buildings and can serve as a leader in local
efforts.
The City has the opportunity to protect its historic buildings by strengthening its local preservation
regulations (demo delay and LHD) and adopting new regulation such as a minimum maintenance
ordinance. Updating the City’s historic preservation plan provides an opportunity to engage City
Councilors in preservation interests, assess the reallocation of City resources towards historic
preservation efforts, including expanding current staff to a preservation planner, the opportunities to
incorporate preservation objectives into the city’s zoning. Other new initiatives such as art & culture
designations and neighborhood preservation districts could also be explored. Salem’s new National
Register listings provide opportunities to highlight the city’s history. Other opportunities include
working with city’s new organizations, utilizing the City’s public art plan to highlight and conserve local
collections, historic sculpture, objects, and fencing.
Additional opportunities to explore included: use of technology such as apps to engage public in history
and report concerns about problem properties; use of friends, groups, volunteers to undertake
maintenance at City sites; initiate new fundraising efforts such as percent for art; instituting a guide for
developers that encourages preservation; and development of city-wide historic resources map that can
build upon information already collected (history pins).
Threats
Current apathy towards Salem’s historic character and historic buildings and sites is threatening the city’s
historic character – local residents and official often take the city’s history for granted. While Salem has
many dedicated volunteers and staff, most of these individuals have too much on their plate, making it
difficult to accomplish all necessary tasks. Salem, as with many other communities, is also seeing fewer
people interested in volunteering. The city has many needs in the community and historic preservation is
often not a priority. One of the most critical threats to Salem’s historic resources is a lack of funding for
maintenance and restoration. Some of the City’s historic public sites are suffering from weather damage
and lack of maintenance and are in need of repair. The City’s budget cannot address all of the City’s
needs and there are limited sources available for preservation funding. This increases the need for
balancing public priorities, identifying creative solutions and developing long-term maintenance
planning.
Salem Historic Preservation Plan Update 2015
Appendix A-14
The City’s existing preservation regulations, including the demolition delay ordinance, are old and
outdated and should be strengthened. City’s development review agencies and staff often operate in
their individual silos and could benefit from a better understanding of how historic resources and historic
preservation can benefit everyone. The City needs a consistent vision that includes the importance of
designing new to fit within Salem’s historic context and scale. Without instituting values through policies
and regulations, a change of administration could reverse efforts to reinforce preservation interests.
Other issues affecting Salem’s historic character is a lack of wayfinding tools, traffic, climate change and
modern materials. Disaster preparedness is very important as is promoting how preservation and energy
can work together
Community Meeting
The City held an open community meeting, where approximately 20 attendees participated in an
interactive dot exercise to identify and prioritize concerns regarding the Salem’s historic resources.
During this meeting, attendees identified Salem’s historic resources in need of preservation. The top four
resources identified were:
• Salem’s cemeteries and burial grounds • Salem Common
• Winter Island Hangar • Street trees and sidewalks in historic
neighborhoods
Attendees were next asked to prioritize preservation efforts. The top five priorities identified during the
meeting were:
1. Strengthening the City’s demolition delay ordinance
2. Creating a Preservation Planner position at City Hall
3. Restoring the City’s historic buildings and parks
4. Establishing a City maintenance plan with funding and timetable
5. Incorporating SHC input/involvement in the review of development projects affecting Salem’s
historic buildings and character.
Salem Historic Preservation Plan Update 2015
Appendix A-15
Historic Preservation Pivotal to Economic Renewal in Salem
March 1, 2015
In October 1965, New York Times architectural critic Ada
Louise Huxtable faulted “short-sighted commercial interests”
and municipal conservatism for promoting destructive urban
renewal in Salem. A national architectural heritage was at
risk of demolition, she argued, because of the city’s
unwillingness to fund restoration of the elegant artifacts of
Salem’s rich historical legacy and preserve the streetscapes of
an intact 18th Century seaport.
Today Salem’s officials and residents know that the costs of
historic preservation more than pay for themselves. Heritage
tourism underlies the city’s economy. A statewide marketing
campaign promotes Salem with the line “Still Making
History”. Salem's historic fabric and its walkability create
value for businesses as well as homeowners.
Restoration of Salem’s architectural inheritance advanced
slowly but measurably in the 50 years since the Huxtable
article. The city enacted historic commission legislation and
created local historic districts. City officials spearheaded
efforts to preserve and reuse municipal properties. Municipal
landmarks like the 1837 City Hall, the Salem Common and
1816 Old Town Hall were renovated as project funding
became available. Although 450 historic structures in Salem’s
downtown were demolished prior to Huxtable’s broadside, no
demolition of City-owned historic properties has occurred
since.
Today lack of maintenance does the work of demolition.
Salem’s garden-style Greenlawn Cemetery and its historic
Burying Grounds, including the Howard Street, Charter
Street, Essex Street and Broad Street Burying Grounds, are
neglected. Fort Lee, a Revolutionary-era fort, the Winter
Island officer’s barracks and the Coast Guard Hangar have
been abandoned to the elements. The Salem Council on
Aging’s Italian Revival building at 5 Broad Street, designed by
Enoch Fuller, is visibly deteriorating with no plan for
maintenance or restoration in place.
Salem Historic Preservation Plan Update 2015
A-16
As the City develops an updated Preservation Plan, it must
take action to stop the neglect. The plan must mandate
appropriate redevelopment of historic properties both public
and private. Our architectural heritage is still at risk.
Funding issues are still as thorny as when Huxtable wrote her
exposé in 1965. Large renovation projects require state and
federal funding and private monies. While voters in 2013
passed the Community Preservation Act, the CPA one-
percent property tax for recreation, historic preservation and
affordable housing projects doesn’t cover the need.
Updating Salem’s Preservation Plan provides an opportunity
for us together to develop a plan, a program, and an intention
to protect private and public property that contributes to the
historic fabric of the City. Since the 1940s, Historic Salem Inc.
has been instrumental in preserving Salem’s unique
architecture and public spaces. Historic Salem was among
the first to see the City’s historic resources as key to its
identity, its quality of life and its economic vitality. HSI
members work to ensure that historic resources are available
to future generations and that new development
complements the historic character of the city. Historic
Salem accomplishes its mission through preservation,
including its own headquarters in the Bowditch House,
education programs including walking tours, workshops and
lectures, an annual Christmas in Salem house tour that brings
hundreds to Salem to view historic homes, collaborations
with Salem neighborhood groups and developers on
development projects, and the House Plaque program that
documents individual histories of Salem's residential
properties.
The following is an outline of steps we believe should be
taken in connection with the 2015 revision of Salem’s
Preservation Plan.
The Preservation Plan should call for sufficient investment in city-owned historic
resources to enable renovation by:
(A) Listing and prioritizing endangered city-owned historic properties and identifying
potential funding sources, including these resources:
Salem Historic Preservation Plan Update 2015
Appendix A-17
• Cemeteries:
Greenlawn Cemetery Renovation Project
Municipal Burying Grounds Improvement Project
• Maintenance and Restoration of 5 Broad Street (Enoch Fuller Building)
• Winter Island Barracks and Coast Guard Hanger Restoration
• Historic Forts at Willows and Winter Island
• Structures such as the Common fence and
stone walls
(B) Requesting implementation of a maintenance policy for city-owned properties that:
• Creates maintenance plans for historic resources including sidewalks
and cemeteries
• Secures maintenance funding in City budget
• Enables communications between public and responsible City officials.
(C) Addressing retention and restoration of brick sidewalks and street trees throughout
the downtown and historic neighborhoods.
(D) Providing transparent de-accessioning policies favoring preservation such as:
• Ensuring early public input
• Securing existing public easements and rights of way
• Establishing renovation guidelines for historic properties
• Strengthening incentives to retain and reuse historic materials.
The Preservation Plan should suggest ways the Salem Historic Commission can
educate and advocate for historic resources by:
(A) Outlining the authority of the Salem Historic Commission and staff to educate and
advocate for preservation information in Salem. For example:
Salem Historic Preservation Plan Update 2015
Appendix A-18
• Disseminate the economic argument for preservation to businesses and
large employers
• Create a permanent record of information about historic properties that
can be accessed by residents
(B) Addressing historic resources owned by non-profits by:
• Calling for the city to assist in developing reuse plans for non-profits
with historic properties that are in need of assistance, eg: Universalist
Church
• Partner with Salem non-profits and with churches to ensure
maintenance of historic properties.
(C) Being proactive in establishing the historic significance of buildings and
neighborhoods:
• In addition to specific buildings, document landscape features like parks,
sidewalks, street trees, viewpoints and wharves
• Draft unique descriptions of each neighborhood and National Register
District
• Develop a list of NR eligible buildings in addition to those already
identified
• Include a list of neighborhoods for which survey forms are needed.
The Preservation Plan should outline ways to strengthen legal structures that
promote preservation such as:
(A) Rewriting Demolition Permit Ordinance to:
• Bring the Demo Delay Ordinance in line with MHC model
• Close the 50% floor area loophole
• Mandate that owners have all permits in hand before demolition
• Require owners to retain or replace historic materials
Salem Historic Preservation Plan Update 2015
Appendix A-19
• Address demo by neglect with stronger tools
(B) Strengthening role of all permitting Boards & Commissions to advocate for historic
preservation and contextual development:
• Recommend ways that the Zoning Board of Appeals, Planning Board
and Building Inspector can be informed about and take into
consideration the impact of specific decisions and projects on historic
resources:
1. For example, staff could provide surveys of properties that
are the subject of applications, where such surveys are
available
2. For National Register-eligible properties, provide context,
when new developments are under consideration, for
adjacent historic resources and properties.
• Review the path that projects take through the permitting process to
ensure that historic reviews, including both Historic Commission and
Chapter 106 reviews, are clearly included in the process so that they do
not become perfunctory because “all the other reviews are complete.”
(C) Creating and updating regulatory districts:
• Expand boundaries of existing Local Historic Districts (e.g. between
Washington Square and Derby Street)
• Create new Local Historic Districts
• Review boundaries and historic regulations of SRA
• Create Neighborhood Preservation (Conservation) Districts using the
existing draft ordinance. Educate City Councilors on this tool
• Document landscape features such as parks and open space in Historic
Districts.
The Preservation Plan should address scale and context as preservation issues. As
Huxtable writes, "What counts overwhelmingly today are the multiple ways any
building serves a very complex and sophisticated set of environmental needs. What is
it part of? How does it work? How does it relate to what is around it? …What does it
Salem Historic Preservation Plan Update 2015
Appendix A-20
add to, or subtract from, the quality of life?"
• Preservation of streetscapes and views
• Preservation of walkability and scale of buildings
• Preservation of historic fences, walls and other non-building structures
• Areas of the city with historic significance that are scheduled for new
development should be indicated and guidelines for integration of new
and old should be proposed.
The Preservation Plan should set a timeline for periodic updating of said plan.
Salem Historic Preservation Plan Update 2015
Appendix A-21
Natalie Lovett
City of Salem
Department of Planning and Community
Development
120 Washington Street, Salem MA 01970
Re: Historic Preservation Plan Update 2015
Dear Natalie,
Thank you for giving the opportunity to members of HSI’s Preservation Committee to
provide comment on the proposed City of Salem Historic Preservation Plan 2015. It is an
extensive, detailed documenting of resources that distills a great deal of research. I
would make the following suggestions.
The draft is too long. To draw attention to the recommendations relevant to planning,
several chapters can be moved to an appendix. These include Chapter 1, which provides a
well-written historical overview with a timeline, Chapter 2(d), which is the overview of
previous planning studies, and the section detailing those various agencies engaged in
historic preservation activities.
The organization of the report is confusing, circling back to discuss the same architectural
resources in different sections. An inventory of neighborhood historic assets is followed
by an inventory according to building type, then a separate listing of city-owned
properties. The Plan’s focus should determine the organization of the listing of resources.
If the focus is to be on preservation successes, then the report should discuss how the
success was achieved. If the focus is on threats to historic resources, then the report
should organize according to the type of threat.
In our view, current threats to preservation fall into 3 categories. First, there is
demolition by neglect. Where residential properties are neglected and exposed to
damaging weather (as was the 18 Carlton St property and the Peabody houses) there are
tools available for the city to use, and these could be strengthened.
Seawater rise and storms intensified by global climate disruption is another
threat to historic resources. Not noted in the report is the extensive effort by
the National Park Service to identify climate-based threats to its National
Maritime Site and to the wharves. ENHD is also preparing a climate-change
plan of action. The City of Salem has not identified historic resources
threatened by climate and thus has not yet begun to identify appropriate
preparations to protect them.
Defunding and decontextualizing of historic resources is another threat.
Where this is happening it is generally supported in the name of economic
development. But historic preservation and economic development are not
Salem Historic Preservation Plan Update 2015
Appendix A-22
incompatible, as has been shown in many instances. An example is the
replacement of the Parker Brothers manufactory with housing that leaves no
trace of early twentieth century uses. There was to have been a Monopoly
Park on or near this site, but this plan failed to appear. What might have been
done differently to preserve a piece of the context of this history? In 2015 we
might expect our Historic Preservation Plan to raise questions to enable us to
begin discussing how to move forward in a less destructive way.
Finally, this draft missed an opportunity to focus on how Salem can capture the economic
development opportunities of heritage tourism. Donovan Ruyskema, who spoke at
HSI’s recent conference “Mightier Than a Wrecking Ball” presented convincing evidence
of the economic value to cities of retaining heritage buildings, streetscapes and town
layouts in this era of sprawl. It’s an enormous potential windfall. But heritage tourists in
Salem are given zero guidance on how to find resources and what they offer. Municipal
priorities do not make the city a welcome place to walk around in on the brick-and-
mortar level. Clean, safe sidewalks, good signage, a pleasant pedestrian environment
need to be a consistent goal. There is much work that could be done to advance our
heritage tourism. Salem needs a full-time preservation planner to advance this work, with
a budget to institute improvement and keep new work underway.
Sincerely yours,
Nina Cohen
Preservation Committee, Historic Salem Inc.
Mass in Motion Salem
Salem Main Streets Design Committee
Listing in the National Register of Historic Places, as has been done in our
neighborhoods and our buildings, is a beginning of the effort to recognize resources that
are irreplaceable. But Washington DC is a long distance away and it cannot save the
material elements of our surroundings.
Salem Historic Preservation Plan Update 2015
Appendix A-23