Winter Island Barracks Building Feasibility Re-use Study - June 25, 2007Vine Associates,Inc.
372 Merrimac St.
Newbwyport,MA 01950
978-465-1428
978-465-2640
Vine Associates,Inc.
190 Old Derby Street
Hingham,MA 02043
781-749-2530
781-743-2751
Vine Associates,Inc.
18 Beach St.
P.O.Box 555
Monument Beach,MA 02553
508-743-0390
508-743-0391
Submitted to:
City of Salem
Submitted by:
Vine Associates,Inc.
In Association with:
Candace Jenkins
Adaptive Environments
Karl S.Seidman Consulting
RECE;\/ED
JU'('~'IOIJ/L U L,.
DEPT.Or-PLAI~Nll\iG &
COMMUNIlY DEVELOPMENT
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
i
Acknowledgements
The U.S. Coast Guard Barracks Building Re-Use Feasibility Study was prepared for the City of Salem
with funding provided by the Massachusetts Historic Commission under its Survey and Planning
Grant Program, a federally funded matching grant program used to support historic preservation
planning activities in communities throughout the state, and City of Salem Community Development
Block Grant funds.
The report is an assessment of the historical significance of the Barracks Building and its architectural
elements with recommendations for two phases of repair: one that stabilizes the structure to prevent
further deterioration caused by weather and vandalism and another that improves the building to a
leasable condition. The report also contains optional floor layouts, universal accessibility
requirements and preliminary cost estimates for outline specifications and baseline drawings as well
as a pro forma analysis of building renovation and re-use.
Any permanent construction work to be undertaken on the Barracks Building should be in
compliance with the Secretary of the Interior’s Standards for the Treatment of Historic Properties
Rehabilitation Standards, the Massachusetts State Building Code and the Americans with Disabilities
Act in consultation with the State Historic Preservation Office. This report is on file with the City of
Salem Department of Planning and Development.
City of Salem
Kimberley Driscoll, Mayor
Lynn Duncan, ACIP, Director Department of Planning and Development
Kathy Winn, Assistant Planning Director Department of Planning and Development
Carey Duques, Project Manager Department of Planning and Development
Consulting Team
Vine Associates, Inc. (VAI)
Susan St. Pierre, AICP, Project Lead, VAI
Stephen Demos, Architect, Adaptive Environments
Candace Jenkins, Preservation Consultant
Karl S. Seidman, Market Consultant, Karl Seidman Consulting and Associates
With Assistance from
Thomas St. Pierre, City of Salem Building Inspector
Doug Bollen, City of Salem Parks and Recreation Department
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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CONTENTS Page
Executive Summary ............................................................................................................................1
1.0 Introduction ...................................................................................................................................2-4
1.1 Study Scope and Process
1.2 Community Setting and Surrounding Neighborhood
1.3 Current Uses and Programming at Winter Island
2.0 Property History ............................................................................................................................5-14
2.1 Winter Island Site History
2.2 History of the Coast Guard on Winter Island
2.3 History of the Barracks Building
2.4 Timeline
2.5 Historic Photographs and Plans
3.0 Conditions Assessment and Character-defining Elements ..............................................15-30
3.1 Site
3.2 Barracks Building
3.21 Building Exterior
3.22 Building Interior
3.3 Architectural Assessment
3.3.1 Site
3.3.2 Roofing and Drainage
3.3.3 Wood Trim
3.3.4 Doors and Windows
3.3.5 Foundation
3.3.6 Plaster and Interior Partitions
3.3.7 Interior Woodwork
3.3.7 Flooring
3.4 Conceptual Design Suggestions for Restored Barracks Building
3.5 Code Requirements and Universal Access
3.6 Conclusions and Recommendations
4.0 Historic Preservation Guidelines and Recommendations ..............................................31-33
4.1 Barrack’s Building
4.2 Site
4.2.1 Key Elements & Spaces to Maintain
4.2.2 Secondary Elements & Spaces
5.0 Building Rehabilitation Recommendations and Cost Estimates .................................34-53
5.1 Phase 1 Stabilization Work
5.1.1 General Requirements
5.1.2 Site Work
5.1.3 General Demolition
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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5.1.4 Selective Demolition
5.1.5 Roof Replacement
5.1.6 Sealing Building
5.2 Phase 2 Renovation
5.2.1 General Conditions
5.2.2 Site Work
5.2.3 Site Work Utilities
5.2.4 General & Select Demolition
5.2.5 Exterior Construction
5.2.6 Exterior Doors & Windows
5.2.7 Exterior & Interior Steel
5.2.8 Interior Doors and Windows
5.2.9 Rental Area
5.2.10 Common Areas
5.2.11 Utility Spaces
5.2.12 Toilet Rooms
5.2.13 Utility Closets
5.2.14 Plumbing
5.2.15 Electrical
5.2.16 HVAC
5.2.17 Elevator
5.3 Cost Estimate Summary
6.0 Re-Use Options and Analysis ...................................................................................................54-64
6.1 Market Conditions
6.2 Re-Use Options Considered
6.3 Uses Retained for Evaluation
6.4 Comparison to Market Rates
6.6 Conclusion & Next Steps
Tables
Table 1 Barracks Building Historic Timeline ..............................................................................11
Table 2 Phase 1 Cost Estimate ......................................................................................................41
Table 3Phase 2 Cost Estimate .......................................................................................................42-43
Table 4 Cost Estimate for Equipping Function Hall ................................................................44
Table 5 Use Evaluation Matrix .....................................................................................................55
Table 6 Summary Information on Selected Function Facilities ..............................................56
Table 7 Barracks Building Development Budget .......................................................................62
Table 8 Operating Revenue and Expenses for Barracks Building Reuse ...............................65
References ..............................................................................................................................................66-69
Attachments
1 Historic Plans and Photographs
2 List of Servicemen who perished while based at Air Station Salem
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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Executive Summary
The City-owned U.S. Coast Guard Barracks Building (hereinafter referred to as the “Barracks Building”)
was part of a former Coast Guard station that operated on a portion of Winter Island from 1935 to 1970.
The Winter Island Station played an important role in the country’s defense during World War II and
therefore, the Barracks Building and its associated site is considered worthy of historic preservation and
restoration. The Winter Island Historic and Archaeological District was listed in the National Register of
Historic Places on April 14, 1994 consisting of 36 properties.
The City of Salem would like to rehabilitate the Barracks Building for adaptive re-use. However, the
building has suffered from years of neglect and is in need of major repairs to become usable. Additionally,
potential uses are restricted to those of a public nature due to use restrictions imposed through various
property transfers over the past hundred years. Public uses would also complement the existing uses that
occur in the City-owned Winter Island Park where the structure is located. An assessment of necessary
repairs and associated cost estimates were developed along with an evaluation of potential uses for the
building as part of this study.
Based on visual inspections of the building, historical details on the building architecture and discussions
with persons knowledgeable about the structure, preliminary cost estimates were developed for two
different levels of repair/restoration as follows:
Stabilization/Emergency repairs required to stabilize the structure and address safety code issues,
prevent winter weather related deterioration, and vandalism.
Long Term improvements to improve the building to a level suitable for leasing and tenant fit out
with restoration of the buildings; more important exterior architectural details.
Phase 1 Stabilization $ 165,000
Phase 2 Long Term $ 695,000
A separate cost estimate, (included in the report) was developed for the installation of a catering kitchen,
tables, and chairs should the City decide to create a function hall in the building.
Potential uses were identified based on public input and interviews with various interested parties. Uses
considered in the Study include a function hall, a community boating program, common office and
meeting room space for public organizations, and other uses.
The Study recommends that the City move forward with securing grant monies to restore the building to a
level that would allow leasing to one or more suitable users under a long term agreement with the City
retaining title to the property and in a manner that rehabilitates the more important architectural exterior
features of the building.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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1.0 INTRODUCTION
1.1 Study Scope and Process
Vine Associates, Inc. was retained by the City of Salem in the fall of 2006 to prepare a re-use feasibility
study of the Barracks Building located on City-owned land on Winter Island. The purpose of the feasibility
study was to:
determine the condition and historical significance of the building
make recommendations and develop guidelines to ensure the preservation of character-
defining elements and areas
develop rough costs estimates to repair and/or renovate the facility
identify potential feasible uses for the building
The interior and exterior of the building were surveyed by an architect and historic preservation planner as
well as the local Building Inspector. Original but poorly reproduced building drawings were obtained
from the National Archives in Washington D.C. from which base drawings were developed (see
Attachment 1). Photographic documentation of the interior and exterior of the building and its environs
was also undertaken (see Attachment 1).
Historic information on the Barracks Building was collected from a variety of sources including the U.S
National Archives, the U.S. Coast Guard web site, the Salem Room at the Salem Public Library, the
Phillips Library at the Peabody Essex Museum and files, plans at the City Engineering and Planning
offices, and City staff. Doug Sabin, a local resident and former National Park Service employee who has
gathered information on the U.S. Coast Guard base and the adjacent Fort Pickering walked the site with
the consultants and provided valuable information and insight including a list of servicemen who lost their
lives while stationed at the base (see Attachment 2).
Public input on preferred uses for the building was solicited at a meeting in February of 2007 and through
public outreach to community neighborhood associations and personal interviews. Preferred uses
expressed during this process included the following:
community boating program including classroom space
facilities for veterans council including offices, meeting space and function hall
military museum
offices for Salem Coastwatch
coastal interpretive center
bed and breakfast
boutique inn
restaurant
observatory
classroom for Mass Maritime Academy
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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Because the uses on Winter Island are restricted to those that are “public”, uses such as the bed and
breakfast and inn were dropped from further consideration. Interviews were then held with the
representatives of remaining user groups to determine what type of program they are seeking and how that
program might be incorporated into the building re-use. Potential sources of funding to undertake the
building restoration were also identified. The list of uses was further refined and narrowed to three
potential use groups based on the building layout, existing use restrictions on the property, the unique
conditions of the building, and the site context. Conceptual floor layout plans were then developed for
the three use scenarios and are included in Chapter 5. A second public meeting was held in May 2007 to
review the potential uses, building cost estimates and pro formas and following the public meeting the
final document was produced. Another use suggested at this meeting, was indoor recreational space for
youth groups that use the facilities on Winter Island.
1.2 Community Setting and Surrounding Neighborhood
Winter Island is a 38 acre, approximately ½ mile long, ¼ mile wide island located on the western side of
Salem Harbor about 2 miles from the downtown. The Island includes a small residential neighborhood on
Winter Island Road; the Plummer Home for Boys which is a residential facility for youth located on a large
18 acre site, and Winter Island Park which is a city-owned 27 acre public park.
Surrounding land uses include the Salem
Willows neighborhood and park to the north,
Fort Lee to the west, Winter Island Yacht Yard
across the Causeway, the Cat Cove
Aquaculture facility across Cat Cove, the
Southeast Essex Sewerage District Facility, and
the Dominion Power Company on the south
side of Fort Avenue.
Access to the island is provided via Winter
Island Road which intersects with the common
roadway that is shared by the City and the
Plummer Home for Boys. Winter Island Road
is narrow and has a steep curve where it
intersects with the common roadway. The
common roadway is also narrow, but straight
and leads straight to the gate house marking
the entrance to Winter Island Park. Both
residents and visitors pay to use the park.
Once in the park, there is an internal road
system which provides access to two different
portions of the Island. One road leads
southwest from the gate house and
Aerial View of Winter Island
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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provides access to a tot-lot, the Barracks Building, and the Harbormaster’s Building at the top of the hill.
There is a small turn-around in front of the Harbormaster’s Building. The other road veers to the
southeast from the gate house and provides access to campgrounds, Fort Pickering, boating facilities, the
Hangar, and a small function hall.
There are also internal paths that lead to and from the parking areas, the City Harbormaster’s Office, a
pergola and shade structure, the Barracks Building, and Waikiki Beach.
1.3 Current Uses and Programming at Winter Island
Winter Island has stunning views of the Salem
Harbor and has been developed as a public park
providing various recreational opportunities for
Salem residents as well as non-residents. The
island contains 14 tent camping sites along the
northerly side of the island near the bathouse and
gate house and 28 Recreational Vehicle (R/V)
spaces in the main parking lot adjacent to the small
function hall along the slope to the west of the gate
house. There are also seven group area sites, 12
Tent/RV sites, five Pop Up sites and three picnic
areas.
The island contains three beach areas: Waikiki Beach, which is a long sandy beach located on the northeast
side of the island is heavily used during the summer months for swimming and sunbathing activities, a
cobble beach which is located on the easterly side of the island between the Pickering Lighthouse and the
Public Pier, and a sandy/cobble beach located just south of the Hangar and west of the State Boat Ramp.
The Coast Guard igloo area is used as a place to gather and play cards. There is large concrete state-
owned double width Public Boat Ramp as well as a City-owned pile supported Public Pier and transient
floating dock system used for short term passenger loading and drop off located along the south side of
the Island.
The Harbormaster Office is at the southwesterly tip of the island south of the Barracks Building. The
Harbormaster keeps its boat(s) docked at the docking system in the summer. There is also a small
1,670sqft single story function hall that is rented for events, as well as an outdoor covered shelter area that
is also rented for functions and concerts. Fort Pickering, which is located on the northeasterly side of the
island and is in a state of disrepair, was placed on the National Register of Historic Places in 1973.
View from Barracks Building towards Salem Harbor
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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2.0 PROPERTY HISTORY
2.1 Winter Island Site History
As noted, the Barracks Building is located on a Winter Island, a location that has always played an
important role in Salem’s history. Native Americans were attracted to Winter Island and Salem Neck for
many of the same reasons the early settlers were as the area offered protected coves and inlets with
abundant shellfish and fish resources and ready access to the harbor.
Seventeenth, Eighteenth and Nineteenth Centuries
According to various historical records, Winter Island at the time of English settlement in the early 1600s
was an island separated from the mainland, held as common land by the Proprietors and used as a
fortification and for fishing activities (Perley, 1924). During the 1600s various ½ acre lots were leased to
fishermen for fishing and flaking activities and later in the 1600s lots were leased for the construction of
wharves. Fish Street, which remains on the site today, (adjacent to the Barracks Building) was the road
used by the fishermen to haul and load fish onto vessels from other ports for export. A causeway was
built in the 1660’s to connect the island to the mainland.
During the 1700’s the island continued to be used for fishing and fish flaking and the Essex Frigate was
constructed near where the small beach area is located just south of the former Coast Guard Hangar. The
old fortification which was named Fort William then renamed Fort Ann, was rebuilt around 1706 under
the direction of the Royal Engineers who had originally been sent by King William III to fortify the
colonies (Finch, 1998: Salem Observer 1978). In 1775, the Salem Selectmen leased land on Winter Island
in the vicinity of the existing Harbormaster’s Office and the remnants of an old powder house building to
Richard Derby to build a wharf and warehouse. In 1794, the City of Salem ceded the fort to the federal
government and a new fort was constructed in its place. In 1799 it was renamed Fort Pickering in honor
of Timothy Pickering, then Secretary of State of the U.S. (Observer 1978). In 1870, the Secretary of War
permitted the Trustees of the Plummer Farm School to establish their institution on Winter Island.
During the 1800’s the island was used primarily for fortification and in 1864 the City again ceded the
island to the federal government in support of the Civil War efforts. The lighthouse (and lighthouse
keeper’s house) were constructed and lit in 1871. A plan of land dated 1854 prepared by C.A. Putnam
entitled “A plan of Winter Island and Salem Neck” showed Derby Wharf and Fish Street Wharf, both
fairly large structures along the southwest portion of the island (Dempsey, 1994).
Twentieth Century
From the 1930’s to the early 1970’s, Winter Island was used by the federal government as the U.S. Coast
Guard Air Station at Winter Island in Salem, MA. The Station was commissioned on February 15, 1935
and operated as a rescue patrol and law enforcement facility until November of 1941. The Coast Guard
use of the island continued until the early 1970’s. The facility was originally staffed with 35 men and two
airplanes and at one point had over 100 men at the facility. The station was replaced by the Cape Cod Air
Station and decommissioned in the fall of 1970 (Knife, 2004).
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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That same year (according to letters on file in the Salem City Clerk’s Office) the U.S. Coast Guard
informed the City that it planned on retaining 5.8 acres of the site which included the Hangar and aircraft
ramp for a buoy facility. The remaining 14.7 acres would be referred to the federal General Services
Administration for disposition with a notice that the U.S. Navy was interested in developing a joint Navy,
Army, and Coast Guard Reserve training center on the island, the City of Salem and National Park Service
were interested in use of the land as park, and the Plummer Home for Boys was also interested in the land.
According to the City Clerks records, in 1972, the City Council voted to “effect an entry” on Winter Island
in order “to protect and enforce the reversionary interest of the City of Salem...”. In response to local
concerns, the General Services Administration issued a Declaration of Termination of Interest in 1973 and
the City regained control of the island including all remaining federal buildings. In the fall of that year,
the Salem Park and Recreation Commission developed a conceptual re-use plan for Winter Island that
included moving the parks and recreation operations to the Barracks Building, creating an indoor
recreation center with tennis courts, restoring the two Coast Guard outdoor tennis courts, reserving an
area for a sailing club, and developing a marina in Cat Cove. The same year, Mayor Samuel Zoll appointed
a Winter Island Study Commission to “analyze island potential for development and prepare
recommendations for future use.” The Commission, in association with Tufts University, published a
report that considered a variety of actions and uses including fort restoration and enhancement, tourism,
elderly housing, temporary camper trailer areas, condominiums, park uses, and a marina. In 1974, the New
England Power Company proposed to use the island to create a large administrative complex that would
require the demolition of the Barracks and Hangar buildings.
In 1980, to resolve long standing property disputes, the City of Salem and the Plummer Home for Boys
entered into an Agreement which granted Plummer Home the rights to its 15 acre property (among other
rights) and the City of Salem the rights to the 32 acre Winter Island Park. The Agreement also stipulated
that both parties would use the roadway in common and that the City would have rights to install and
maintain utilities.
Since the City assumed ownership in 1972, some of the U.S. Coast Guard and other structures such as the
powder house and tennis courts have been demolished and/or removed. Other structures such as the
Pickering Lighthouse were restored or stabilized. The Coast Guard Hangar Building remains on site but
has been vacant for many years with the exception of a few years during the 1980’s when Salem State
College operated its intercollegiate varsity level sailing program renovated the Hangar for use as a
boathouse for vessel maintenance, classroom space, and seasonal office space.
A master plan was developed for the island in the mid 1980’s for the City, by Wallace Flloyd and other,
which recommended several improvements to the park, many of which were implemented including:
landscaping, picnic areas, path systems, a pergola, parking lot improvements, a new bathhouse with
restroom and shower facilities, renovation of the old radio shack into the Harbormaster’s headquarters,
and securing of the old powder house against further damage. The City received federal and state funding
to undertake several of these improvements including the construction of the existing 16 foot wide by 150
foot long fixed timber, concrete pile supported pier with aluminum gangway and floating dock system.
The state constructed the concrete boat ramp in 1998.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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Fort Pickering was placed on the National Register in 1973, and the Winter Island Historic District as well
as the Winter Island Archeological District were both placed on the National Register in 1994. In 2000,
Historic Salem, Inc., an active non-profit architectural preservation organization, added Winter Island on
its "Endangered Historic Resources" list in 2001 and currently lists Winter Island as showing “Signs of
Improvement” in recognition of the stabilization of the Hangar roof undertaken in 2001 and the City’s
initiative in authorizing the preparation of this feasibility study.
2.2 History of the Coast Guard on Winter Island
As noted, the U.S. Coast Guard Air Station at Winter Island in Salem, MA was commissioned on February
15, 1935 and operated as a rescue patrol and law enforcement facility until November of 1941. The facility
was originally staffed with 35 men and two airplanes. The facility was replaced by the Cape Cod Air
Station and decommissioned in the fall of 1970.
The Barracks Building was one of six original Coast Guard buildings constructed at this time. The other
buildings included a gate house, ammunition shed, a Hangar that opened to a concrete apron providing
access to a pile supported timber ramp in Salem Harbor, a motor pool (garage), and a radio tower. The
former light keeper’s house which was on the site, was also used by the Coast Guard initially for quarters.
The Coast Guard complex included a softball field, tennis court, a rifle range, and retained the original
Fort Pickering moat. All of the aforementioned Coast Guard structures remain on the site today. The
former light keeper’s house which was used by the Coast Guard before the Barracks Building was
constructed was subsequently demolished by the Coast Guard. As World War II approached, the Coast
Guard facility was expanded to function as an Air and Sea facility and several additional buildings
including two Quonset Huts, an Infirmary, an Administration Building, and a new Gate House at the
entrance to the current Winter Island Park were added to the facility. The softball field was removed to
add additional paved areas for seaplane queuing and staging, and a new concrete ramp was built east of the
Hangar and was used as a concrete calibration area. All of the additional structures built to support World
War II including the concrete ramp were removed over the years except for the new gatehouse. See
Historic Site Plans and Photographs on pages 9-11.
The Coast Guard facility was very important for the country’s defense program and on October 21, 1944,
the facility was officially designated as the first U.S. Air-Sea Rescue service on the eastern seaboard.
According to an article written by Jamie Knife of the U.S. Coast Guard District Public Affairs Office in
Boston, the air station performed 26 medevacs of troubled boaters in its first year of operation. From
1942 to 1944, the facility provided anti-submarine warfare services and patrolled the New England coast
looking for German submarines. The facility housed aircrafts as well as seaplanes. Aircraft types included:
Douglas RD-4 Dolphin, Grumman JRF-2 Goose, Grumman J4F-1 Widgeon, and various Sikorsky
helicopters. Seaplanes which utilized the ramp included Vought VO-4, the larger General Aviation "Flying
Lifeboats" of the 1930’s and even larger flying boats/amphibians, including PBY Catalinas. As HH-52A
Seaguard amphibious helicopters entered service, the need for flying boats declined. According to local
historian Doug Sabin, 12 servicemen based at the Air Station lost their lives performing their military
duties (personal interview January 5, 2007). The list of servicemen is found in Attachment 2. Air stations
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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that only had water-landing abilities were now being phased out by the federal government so Air Station
Salem was disestablished and replaced by Air Station Cape Cod in fall 1970.
2.3 History of the Barracks Building
The Barracks Building was constructed in 1934 and housed quarters for the servicemen, a mess hall, and a
small infirmary. Surviving architectural plans credit the design to Louis A. Simon, Supervising Architect.
The Office of the Supervising Architect was created within the Treasury Department in 1852 in response
to the enormous increase in federal building construction, primarily post offices, customs houses, and
court houses. Simon, who graduated from M.I.T. in 1891, joined the supervising architects’ office in 1896.
He was superintendent of the office’s architectural division from 1905-1933, and was the last person to
hold the post of Supervising Architect, serving from 1933-1939 when the office was abolished. Noted as a
conservative designer and decorous man, Simon was the first president of the Association Federal
Architects, founded in 1927 as a forum for architects employed by the federal government.
All early images including architectural drawings, site plans, and photographs show the Barracks Building’s
exterior essentially as it exists today. Even the white paint over the red brick walls appears to be an early if
not original treatment. Originally labeled and referred to as the Barracks Building, it is presently unknown
when it acquired the local designation as Administration Building. A one story Administration Building,
north of the Barracks Building was one of several new buildings that were constructed in the early 1940’s
when the base was expanded. That building was subsequently demolished. The Barracks Building served
the Coast Guard until 1970 when the Salem Air Station was decommissioned and operations moved to
Cape Cod.
2.4 Timeline
The Coast Guard facility was very important for the country’s defense program and on October 21, 1944,
the facility was officially designated as the first U.S. Air-Sea Rescue service on the eastern seaboard. The
Barracks Building has been vacant ever since it was acquired by the City in 1972. The building’s condition
has gradually deteriorated through vandalism and non-use. In 2000, Historic Salem Inc. placed Winter
Island on its “Most Endangered Historic Resources” list. The current Historic Salem, Inc. designation is
“Improved”.
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U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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The following Table presents a Timeline of the U.S. Coast Guard Barracks Building at Winter Island:
Table 1
U.S. Coast Guard Barracks Building Timeline
1934
U. S. Coast Guard Air Station constructed on Winter Island in Salem because there was no room for expansion
at the existing Gloucester Air Station on Ten Pound Island. Buildings constructed at this time included the
Barracks Building, gate house, ammunition shed, a large hangar, a garage, and a radio tower.
1935
U.S. Coast Guard Air Station Salem officially commissioned on February 15, 1935 (www.check-
six.com/Coast_Guard/Salem_Armed_Forces_Day_Crash.htm)
1941
Salem Air Station operated as rescue patrol and law enforcement facility until November, 1941.
Early 1940s
Station expanded with two Quonset huts, an infirmary, an administration building, and a new gatehouse at the
entrance to the current Winter Island Park. All of these buildings were later demolished except the gatehouse
1944
On October 21, 1944 the Salem Air Station was designated as the first U.S. Air-Sea Rescue service on the eastern
seaboard.
1950
The lack of a runway at Coast Guard Air Station Salem necessitated the establishment in 1950 of Coast Guard
Air Detachment Quonset Point, Rhode Island as a sub unit of Air Station Salem.
1970
With the development of the HH-52A, an amphibious helicopter, the need for a fixed-wing amphibian was
passing. Air stations having only water landing capabilities, such as Salem, were becoming obsolete. In 1970, Air
Station Salem, without any runways, was finally decommissioned and operations were moved to the new Coast
Guard Air Station at Cape Cod.
1972
Coast Guard property turned over to City of Salem on July 20, 1972.
1972
City Park and Recreation Committee developed conceptual reuse plan for Winter Island that included moving
the Parks and Recreation operations to the Barracks Building.
1973
Winter Island Study Committee appointed to analyze island potential for development and prepare
recommendations for future use.
1980’s
Master Plan for development of recreational uses prepared.
1990’s
Basement and first story windows boarded.
1994
Winter Island Historic and Archaeological District listed in National Register of Historic Places; district consists
of 36 properties.
2000
In 2000, Historic Salem, Inc., placed Winter Island on the "Most Endangered Historic Resources" list, and the
organization has since been actively advocating the revitalization of the old air station. Winter Island is also listed
on the National Register as a Historic District and Archeological site.
2007
Feasibility Study for Building Re-Use completed. Historic Salem Inc. lists Winter Island as “Improved”.
2.5 Historical Plans and Photographs and Current Photographs
The historic appearance of the Barracks Building and site associated are documented by several early site
plans and eight pages of floor plans, building elevations, and building details, both exterior and interior.
There are also several early photographs of the primary east façade and a series of aerial views taken from
various altitudes and directions dating primarily from the 1940’s. The Historic Site Plans and Photographs
are presented on the preceding pages and the historic Building floor plans, building elevations and building
details are provided on the following pages.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study 13
U.S. Coast Guard Barracks Building Re-Use Feasibility Study 14
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
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3.0 CONDITIONS ASSESSMENT AND CHARACTER-DEFINING ELEMENTS
A two hour site visit was held on December 4, 2006 to view the condition of the Barracks Building and its
immediate environs, and evaluate requirements for access by persons with reduced abilities. In attendance
at the meeting were representatives from the City of Salem, including the Building Inspector, Thomas St.
Pierre and the Project Manager, Carey Duques; and members of the Vine Associates consulting team,
including Susan St. Pierre the Project Manager, Stephen Demos the architect and universal access expert,
and Candace Jenkins the historic preservation planner. The exterior and interior of the building were
viewed to identify the building construction methods and materials and to assess the building condition. A
second building inspection was conducted on February 23, 2007 to view the structural condition of the roof
and supporting member. A summary of the evaluation building and site conditions follows. Photographs
of the existing conditions are found throughout this Chapter.
3.1 Site
The Barracks Building was part of the U.S.
Coast Guard Air Station that operated on
Winter Island from the 1930’s to the early
1970’s. In that context, the Barracks Building
does not have a separate “site” per se, but today
shares a campus with the various other
buildings such as the Coast Guard Hangar
Building, the City of Salem Harbormaster
Building, a function hall, the Winter Island
Manager’s office and store (see map to right).
Within this campus, the Barracks Building is
located on a hilltop on the southwestern, more
sheltered portion of the island. On the
southeastern shore of the island is the Coast
Guard’s former Hangar. This building with its
adjacent parking lot is reached by turning left
once past the guard house at Winter Island and
following the main roadway.
The north side of the building faces a hill
where the tot lot is located; the south side
faces a lawn area that extends up a hill to the
Harbormasters building; the west façade
(hereinafter referred to as "the rear") faces Cat
Cove; and the east façade (hereinafter referred
to as "the front"), faces the Hangar some 300
feet away.
Winter Island
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A large, sloping lawn is located in front of the Barracks Building that includes paths leading between the
Barracks Building and the Hangar. The rear of the Building faces an internal roadway which continues past
the Barracks Building up a hill to the Harbormasters building where it ends in a cul-de-sac. This roadway is
accessed by turning right once past the guard house at Winter Island.
In general, while there are a few overgrown cedars and weed trees around the entrance to the Building,
these are the only trees immediately adjacent to the building, a condition that would allow land contouring
without negative consequences. While there are several large, mature trees sprinkled around the site on the
east and west, there are no trees in front of the building. This gives the site an appearance of a lawn for a
stately manor.
3.2 Barracks Building
As previously noted, the only original building plan that was obtainable was a poor quality copy of
microfilmed plans provided by the National Archives in Washington D.C. The building plan was traced to
the extent possible and put into AutoCAD format to create base drawings. These drawings are found in
Chapter 2.
The Barracks Building was constructed in 1934 by the Federal Office of the Supervising Architect. The
structure is designed in the Federal Revival Style, a mode that was popular for institutional buildings of the
period. The historic appearance of the building and site is documented by the previously mentioned early
site plans and eight pages of floor plans, building elevations, and building details, both exterior and interior.
There are also several early photographs of the primary southeast façade and a series of aerial views taken
from various altitudes and directions dating primarily from the 1940’s. From the front, the south elevation
is Palladian in composition, and in general, the building can be considered an example of the Federal
Revival Style. Although it lacks corner quoins, it does have keystones in the expressed lintels over the
windows on the first floor (the entrance or mid level).
The building's primary building block is approximately 93-feet long by 41-feet wide and is capped with a
7:12 hipped roof. Two massive, ornamental, brick chimneys are centered 30ft from the north and south
ends of the building.
In the center of the rear façade is a three-story secondary wing, about 24-feet long by 22-feet wide. To the
north of this wing, protruding from the façade is a double-flue functional chimney. An exterior staircase
perhaps more properly defined as a fire escape, leads from the first level to grade running along the south
side of the wing.
In the center of the front façade is a 30-foot wide by 12-foot deep portico with an enclosed second story
above it. This central portico, with its three arched bays and 5:15 pediment is the feature most responsible
for the Palladian feel to the facade.
The structure is 2 ½ stories high in the front (up seven risers), and three stories high in the rear, where the
grade is lower and has an at-grade access to the basement for the full length of the building. The building
has a slate, shallow hip roof with two massive, ornamental, central chimneys.
In the rear of the building, a single open stairway provides access from the first floor to the second floor.
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3.2.1 Structural System of the Barracks Building
Framing System: The exterior walls are bearing walls of 4-whyth brick on the basement level and 3-whyth on
the upper floors. The basement and first floor are divided into three bays of 17-feet, 6-feet, and 17-feet
(outside face - center line - center line - outside face) running the long direction. Two parallel longitudinal
beams, 6-feet on center support the middle bay. These beams are resting on 12-inch x 12-inch concrete
columns, randomly spaced, with no span greater than 18-feet. The beams appear to be concrete, but could
be steel encased by concrete. The columns appear to be concrete.
Floor Structure: The basement floor is slab on grade; the second and third floors are concrete (probably pre-
cast) sections, arched in cross section, about two feet wide with a poured concrete topping.
Roof Structure: The roof structure is steel trusses without fireproofing, board sheathing over wood rafters,
and slate shingles.
3.2.2 Building Exterior
The Barracks Building consists of a primary building block with a 22-foot x 23-foot wing centered on the
rear wall and a 30ft x 10ft portico on the front. The main block is approximately 93-feet long x 40-feet
wide. The structure rises two stories to a low-pitched slate hip roof with a molded wood cornice in
deteriorated condition, and two non-functional, central chimneys. The sloping site exposes the full
basement story on the rear elevation and partially exposes the west ends of the south and north side
elevations. Exterior walls are covered with red brick laid up in common bond. Understated trim consists
of a canted cast stone water table that sets off the basement story, narrow cast stone window sills, and
sprayed brick lintels with cast stone keystones over the first story windows. As noted above, window sash
throughout the building has been removed. Historic views show 8 over 8 double-hung sash at the first and
second stories and the basement story where fully exposed.
East Elevation: Due to its classical Palladian
portico and its prominence in the landscape,
the view of the building from the east is the
most important. From an aesthetic point of
view as well as a functional point of view, the
main entry to the building wants to be from
this direction. Also, this façade commands
ones attention when arriving at the Hangar and
the main parking lot some 300-feet away.
From that distance, a person can judge the
proportions of the building and see all its
features, including the massive chimneys.
The primary east façade contains nine bays. It
is centered on a 10-foot wide, three bay, projecting frontispiece that serves as a vestibule for the main
entrance. The first story contains three open arches on the front and one on each side, all with header brick
surrounds and cast stone keystones. Three standard window openings that originally contained 8 over 8
East Elevation
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West Elevation
sash are aligned above. The frontispiece rises to a boxed pediment with an oculus centered in the gable
field. The center arch is approached by a flight of granite stairs with delicate iron railings. Similar railings
appear in the flanking arches and on the sides of the vestibule.
Three arched openings on the building are aligned with those of the frontispiece. They contained two
windows framing the primary entrance. All three elements have been removed and are now boarded up.
The original architectural drawings show the appearance of both the arched windows and the entrance,
which contained double doors, each with 12 glass panes over a single, square wood panel. The three bays
on both sides of the frontispiece contain three windows at the basement and two upper stories. Basement
windows are typically narrow.
West Elevation: Up close, the west (rear) elevation can
never be viewed in total, however, from the bay
beyond; one can get a distant view. The elevation
consists of four bays on both sides of a two bay
central wing. The rear wing is two bays deep and has
irregular fenestration. An open concrete stair, shown
on original plans, rises along the wing’s south side to a
first story entrance. The south end of the rear
elevation contains four evenly spaced window at all
three stories.
The west elevation has little architectural merit: the
wing is disproportionate, the chimney off balance, and
the fire escape utilitarian looking. If alterations to this
side of the building are necessary, such alterations would
have minor ramifications on historical or architectural
character.
North Elevation and South Elevation: These facades fare a
little better than the west facade. From the north, the
fenestration of the wing is more composed than the
south fenestration where the stairs can be seen and the
doors seem disproportionate. Fortunately, the view
from the south is not prominent. However, the North
elevation can be seen from the entrance to the site, and
hence should be treated with sensitivity. On this side of
the building, historical and architectural character should
be maintained.
North Elevation
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The South elevation contains four windows arranged in
groups of two at all three stories. The eastern pair of
basement windows are narrow due to the higher grade.
The north end is similar.
In general, the exterior surfaces might be considered
more visually appealing now than they were in the 1930's
and 1940's when the building was regularly maintained.
This is due to the fading coat of white paint on the
bricks, a condition that softens the overall sparseness of
detail. From a distance, the front elevation has great
potential; the other three elevations are undistinguished,
but each has different viewing conditions that must be
considered.
Windows: Essentially, the building had two window sizes: an 8 over 8, 42-inch x 64-inch, double hung
window on the basement and second level; and an 8 over 8, 42-inch x 76-inch, double hung window on the
first floor. There are also two, semicircular topped, 60-inch x 108-inch windows, one on each side of the
entrance door; and ten awning windows on the basement level on the south, east and north facades. On
the first floor, lintels with raked ends and a keystone are expressed on the façade. Today, all the windows
are missing and the drawings are not sufficiently detailed to establish for certain what the window sashes
and trim were like. However, enough of the brick mould exists that it could be replicated, and it is highly
likely that this was a stock item still available today. Window sub-sills and lintels are concrete and looked in
good condition.
Exterior Trim: The exterior trim which is predominately wood, is mostly gone, but sufficient trim exists to
enable replication. A strong feature which should be replicated is the cornice. Since the building was
constructed in the 1930's, most trim is probably stock. Another architectural feature is a horizontal
concrete band that articulates the separation between the basement and first floor.
Roof: The building's roof design is a shallow hip (circa 7 1/2 in 12) covered with slates. Ornamental brick
chimneys are positioned about 30 feet from the north and south ends.
South Elevation
U.S.Coast Guard Barracks Building Re-Use Feasibility Study
Barracks Building Original Details
IIEEEB
EHE
TYPICAL DETAIL OF WINDOW TYPICAL DETAIL OF STAIRS
TYPICAL DETAIL OF BUILDING TYPICAL DETAIL OF WINDOW
Roof East and Northeast
Front Roof South Side
Barracks Building 2007 Roof and Trim
RoofTrim and Chimney Northeast
Roof North
Roof South Side EL
Front Roof North Side
West Roof Trim Roof North East
20
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Character-defining Elements of the Building Exterior
In general, the character defining elements of the building exterior are as follows:
Symmetrical organization
Red brick walls laid up in common bond and painted white
Regular fenestration with windows aligned vertically and horizontally
Low-pitched hip roof with slate shingles and molded wood cornice
Concentration of architectural detail on primary façade which faces other buildings in
Coast Guard complex from low rise overlooking broad lawn area and Salem Harbor
Façade with projecting, pedimented frontispiece with arched openings at first story
Cast stone watertable
Window openings with narrow cast stone sills, and splayed brick lintels with cast stone
keystones at first story
Original multi-pane sash with 8 over 8 double-hung sash were important character-
defining elements until their removal sometime after 1972
Original arched windows and center entrance were important character-defining elements
until their removal sometime after 1972
3.2.3 Building Interior
The building interior was designed with an emphasis on function rather than elegance. All of the original,
simple features and finishes have deteriorated to the point that preservation is not an option. They included
concrete floors, plaster walls and ceilings on wire mesh, and molded wood door and window casings.
The building contains three levels: the basement with full access to the rear, the first floor up seven risers
from grade, and the second floor, which is a clear-span. A single, open stairway connects the three levels,
and an exterior steel stair goes from the second level to grade in the rear.
The basement level included five primary spaces: a large recreation room occupying the entire north half of
the basement, a laundry room and boiler room occupying the center space, a long narrow workshop on the
south side, and a storage area in the rear wing. The area under the front portico served as an entrance area
with access via stairs leading down from the south.
The first floor was divided into approximately eight rooms of varying size including a separate kitchen and
mess hall on north side. The quality of the remaining plans is too poor to determine the uses of the other
rooms. Circulation was provided by a narrow center hall that led back from the main entrance to a cross
passage that connected the east and west sides of the building. Stairs leading to the basement and second
stories and an adjacent passage to the rear wing were offset to the south of the entrance hall.
The second story contained two large dormitory spaces for 14 men each flanking the stairs. The front
central portion of the second story, including the space within the projecting frontispiece, housed the
apartment of the commanding officer. The rear wing contained an infirmary.
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The floors are described in more detail in the following paragraphs.
Basement Level: The basement level exits to grade in the rear, and is nine+/- feet floor to ceiling. There are
several masonry interior walls still standing that can either be retained or removed. The south end of the
building is a single room 37 ½-feet deep by 44-feet wide, punctuated by five columns; the north end is a
narrow room 37 ½-feet deep and 17-feet wide. The central 1/3 of basement is used for boiler/mechanical
space with bearing walls and an exterior chimney on the back wall. The whole of the basement can be
opened up except for the support columns. Alternatively, the existing brick walls could be repaired and
retained. A narrow windowless room under the portico, leading to an areaway to grade, can be used as a
second means of egress from the basement.
Entry Level (First floor): - The entry level is up seven risers from grade and has 11 +/- feet floor to ceiling.
Although currently there are a few wood and plaster partitions, the plaster on these will have to be
removed. As a result, the entry level can, more or less, be divided as one wishes except for the 11 support
columns. The stair to the second floor is in front of the entry, slightly off-center. The stair to the basement
is located under this stair. On the west side of the wing is an exterior stair leading to grade.
2nd Floor: The second floor is 10-feet high and clear span, including a full opening to the wing and no
structural impediment to the area over the portico. There are only a few inconsequential remnants of
partitions comprising of wood studs and plaster.
Character-defining Elements of the Building Interior
The building interior is deteriorated throughout, with openings in the roof (north side) and standing water
in the basement. There are no features or spaces of sufficient quality or condition to reinstate or preserve.
3.3 Architectural Assessment
The building has been vacant since the City took ownership in 1972 and has experienced significant
vandalism over the years. As noted earlier in this report, there are no windows, no interior doors, the
interior stairways are dilapidated, the interior trim and molding has been removed and there is nothing in
the interior of any historic significance. Currently the upper floor windows on all sides and the first floor
windows on the rear side are open to the elements and there are holes in the roof allowing water to
penetrate the structure. The basement contains at least
one foot of water.
3.3.1 Site
The site appears to be relatively free of encumbrances to
further development. The sloping terrain lends itself to
molding and the vegetation is unremarkable.
Via the roadway in the rear of the building, a person can
get close to the building with a vehicle, and the area
could be designed to accommodate vehicular parking.
To access the front entry from this side, though, a four
View of East Lawn
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foot wide sidewalk around the building from back to front would be necessary.
Major site work would be required in the front of the building to make the front door accessible. There is
sufficient room, though, that through a combination of a 30-foot ramp and re-grading, the front portico can
be made accessible.
3.3.2 Foundation
A quick, outside-the building, visual inspection was made of the foundation. It appeared in good condition,
and only cosmetic work should be anticipated.
3.3.3 Structure
The visual inspection revealed minimal structural problems except for the roof which needs to be replaced.
There are some problem areas including the timber framing supporting the ornamental chimneys which has
deteriorated to the point that it presents hazard for chimney collapse. Both chimneys seem to be out of
plumb, need coping stones, and could have water damage. Whether these will have to be removed and
rebuilt or only repaired depends on the condition of the roof structure. Recommended approach is to
remove and replace with lighter materials of the same size and appearance.
There were several places in both columns and floors where reinforcing mesh/rods were exposed. There is
also pervasive cracking of the concrete pan joists under the second and first floor. Because many of the
joists are not currently visible, it is recommended that the concrete be tested for calcium chloride
contamination as salt was often used in times past to cure concrete which can corrode the reinforcing steel.
Not enough of the basement slab was available for inspection, but what was visible appeared in reasonable
shape. An engineer's opinion on the structural integrity of these features would be required by the building
official before allowing work to be undertaken.
3.3.4 Exterior Walls
The exterior brick appeared to be plumb with no out of line bricks. There are steel lintels along the
windows that are corroding and causing the bricks to lift up. The lintels probably do not need to be
removed and may not need to be replaced. No shear cracks were apparent, and the mortar looked pretty
good. A thorough inspection should be made to ascertain where tuck pointing would be required.
It is not known at this time whether there are weep holes above the lintels and at the foundation/earth line,
or whether the cavity is blocked or open. However, given the appearance of the bricks, it appears that the
original construction detail suffices. The plate supporting the rafters was not in good shape which suggests
that there is a possibility for some water damage at the cornice line.
3.3.5 Roofing and Drainage
The entire roof needs to be replaced. Currently water enters through the roof and freezes in the joints
between the concrete floors and the walls causing damage to the structure.
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Structure: Although exposed to the elements for many years, the steel trusses looked pretty good, in spite of
the rust and scaling. A more detailed inspection is necessary to determine if they are sound, although they
appear adequate at this time. If they are retained, they will need fire proofing to meet the code. The board
sheathing and the wood rafters are in poor condition. Much of the sheathing is missing. The roof should
be replaced.
Slates: The slates were in very good shape, but there appeared to be many missing. There is no reason not
to expect that they can be salvaged and re-used. An as yet undetermined number are missing and have to
be replaced.
Gutters and rainwater leaders: There is indication that copper gutters and rain water leaders existed at one time,
and they are shown on the drawing elevations. Further historical analysis needs to be undertaken to
ascertain their design.
3.3.6 Doors and Windows
All exterior windows will have to be replaced. The openings will have to be taken back to the brick at the
jambs, to the concrete sub-sills at the sill, and to the lintels at the head. Likewise for the doors in the rear,
one on the south side of the wing, the other on the main structure just north of the wing. This latter door,
as well as the front door, will have to be custom made to get a 36-inch door in a 60-inch space. The other
door and the windows can probably be stock, with the slack made up in the sills and jambs.
3.3.7 Surfaces and Interior Partitions
Floors: There are no re-usable floor surfaces. All floor surfaces should be taken down to the concrete, and
new surfaces installed where desired. Levelastic would probably suffice for all repairs in the concrete
topping. While no cases were detected of holes that exposed reinforcing, if such is the case, they should be
addressed as structural repairs. It appears that the structural design is sufficient to carry any surface
material, including stone.
Interior walls: There are not any reusable wall surfaces. All existing wood stud/plaster partitions should be
taken down to the studs. Where they are retained, the brick and the clay tile/plaster walls should be
individually evaluated as to whether all plaster is removed or plaster is repaired. Strapping and plaster
should be removed from the interior of the exterior walls.
Ceilings: New ceilings will be required throughout the building. It appears that the structural design is
sufficient to carry any surface material. On the top floor, given the design of the roof, it may be possible to
increase the ceiling height to create a more dramatic space.
3.3.8 Wood Trim and Interior Woodwork
Exterior Trim: Consistent with this building type, the cornice trim is visually fairly heavy, but probably made
up of stock sections. Although some of it looks in good shape, it should be assumed that all of it will need
to be replicated and replaced. There may also have been some special features and trim on the pediment (it
appears that the full overhang was molded) that may need to replicated and replaced such as the circular
window and medallion. (See also Doors and Windows.)
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Interior Woodwork: All interior woodwork will be new, and as such there is no reason that the new trim be
historically accurate. It can be as dictated by the design, although a standard detail should be established by
the owner for the tenants to follow when they do their build-out.
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3.4 Conceptual Design Suggestions for Restored Barracks Building
Suggested Site and Building Renovations Plans and associated cost estimates are included in Chapter 5. The
suggested building improvements are generally described below. The suggested interior renovations
propose a scheme which does not connect the basement and the upper two floors (to achieve the most cost
effective solution). Considerable savings in the elevator costs will accrue if the elevator services only two
floors, not three as the structure would be smaller and excavation below the basement to accommodate the
mechanicals would not be necessary. There also would be some savings in code compliance: sprinklers on
only two levels and only one new stair.
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For this concept to work, all efforts must be made to encourage people to see the building as two separate
entities. The basement building accessed from grade in the rear, and the Main Building, accessed from the
Hangar side. For way finding, each level would have a separate address and separate signage at the entry to
the campus. For the upper two floors, (the building proper), users would be directed to go to the left as
they enter the campus; for the basement (with a different name) users would be directed to go to the right.
A two-stop elevator with a cab size of 68-inches by 54-inches would be required to connect the two upper
levels. The elevator machine room would be in the basement.
3.4.1 Site
Parking: There is an existing parking area at the rear of the building, which could be redesigned to
accommodate about 12 vehicles. There may be potential to create additional spaces across from the
roadway as well. The rear parking would likely be programmed primarily for use by the basement level
tenants and their visitors, although some tenants of the upper building might park there. The tenants of,
and people coming to the upper two floors would likely park in the existing parking lot near the Hangar.
Path between Rear and Front: To accommodate people parking in the rear who's destination is the front door,
a 5-foot wide path at a slope no greater than 5% is necessary between the rear and the front steps which
could be placed around the west end of the building. Given its length and slope, a bench with some
planting should be installed about half way up to accommodate universal access.
Access to the Portico: Access to the front portico would be via a ramp along the face of the north end of the
east facade. In order to bring this ramp length down to 30-feet, a portion of the yard in front of the
building needs to be re-graded at a 5% grade, which would eliminate the bottom step, and up at also a 5%
grade 16-inches to the east. In order to fit in with the Palladian character, the elements for this ramp that
are visible from the east should be horizontal. The portico level must also be raised five inches or so to be
flush with the interior floor level of the first floor.
Emergency Egress from the Basement Level: While the basement level will have its major entrance/exit in the
rear, a secondary exit from under the portico is required for emergency egress. This requires replacing the
exterior areaway stairs from under the portico with a ramp running along the south end of the east façade.
Again, in order to fit in with the Palladian character, the elements for this ramp that are visible from the east
should be horizontal.
Utilities: According to record plans from 1935, the Barracks Building is serviced by a six inch cast iron
water main that extends from the access road between the Hangar Building and the east side of the Barracks
Building. There is also a six inch cast iron sewer pipe that extends form the northeast side of the building
to a septic tank located behind the Hangar. On the 1935 plan, a no. 1/10 I.C. W and no. 6 Bare neutral in
underground conduit electrical service is provided from a transporter located at the rear of the Hangar
Building. The condition and functionality of these utilities were not evaluated as part of this study and will
need to be reviewed as part of future design efforts.
3.4.2 Basement Level:
Major Changes from Existing Conditions: The interior stair would be removed and the last, north south interior
wall on the east end would be removed. Mechanical space will be reduced.
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Rental Area: The building basement essentially divides into two parts: the south end with roughly 1,600
rentable square feet, and the north end with around 900 rentable square feet. In the center is mechanical
space, an elevator, and an elevator machine room. Some of this center space may become rentable as the
drawings evolve. Also, these two areas could be combined to make a single rentable space.
Two Toilet Rooms are proposed in the wing on this level -- one with a water closet (WC) and urinal for men,
and one with 3 WCs for women. These would meet all universal access regulations.
3.4.3 First Floor:
Major Changes from Existing Conditions: All existing partitions would be removed. A new, enclosed stair to the
top floor would be added beside the existing stair to the top floor. An elevator providing access to the
second floor would installed.
Egress: An area of refuge assistance at the exterior stairs on the north side would be used to meet the
accessible requirements for the second means of egress from the first floor Rental Area. The first floor also
divides into two parts: the south end with roughly 1,400 rentable square feet and the north end with around
1,350 rentable square feet. In the center is the entry, the elevator, a corridor and the two stairs, the one in
the existing stair space being open to the floor above. These two areas could be subdivided into smaller
rentable areas, but because of the entrance functions, are not easily joined unless a prospective tenant
doesn’t mind going through public areas to access these spaces.
Toilets Rooms on this level are proposed in the wing -- one with a WC and urinal for men, one with 3 WCs
for women. These would meet all universal access regulations.
3.4.4 Second Floor:
Major Changes from Existing Conditions: All existing partitions would be removed. A new, enclosed stair to the
first floor would be added beside the existing stair. An elevator providing access to first floor would be
installed.
Egress: The center hallway would be designed to be an area of refuge assistance, thereby meeting the access
requirements for a second means of egress from the top floor.
Rental Area: This level divides into three parts: the south end with roughly 1,250 rentable square feet, the
center with roughly 640 rentable square feet, and the north end with around 1,300 rentable square feet. In
the center is the elevator, two corridors, and the two stairs, the one in the existing stair space being open to
the corridor and the floor below. These three areas could be subdivided and combined into a number of
configurations from a single space to 4 or five spaces.
Toilets Rooms on this level are proposed in the wing -- one with 1 WCs and 2 urinals for men, one with 3
WCs for women. These would meet all universal access regulations.
3.5 Code Requirements and Universal Access
Egress: Currently there are two interior stairs and one exterior stair. None of these meets access regulations;
nor does the handrail. Stairs and handrail will have to be removed and the new ones designed to meet
regulations. While the stair between the first floor and top floor can be open, all the others must be
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enclosed. With the fire department's permission, the exterior stair leading from the first floor to grade in
the rear could be upgraded and used as a fire egress. If this is allowed, only one new stair (enclosed) will be
required; if not allowed, another enclosed interior stair will be required.
Sprinklers: Any future design should have a sprinkler system. Whether it is for the full building or only a
portion depends on the design. Our proposal is that it be only for the upper two floors.
Access: Access requirements for the building and site are governed by Title II of the Americans with
Disabilities Act, Public Law 101-336, known as the ADA. The regulations for Title II are found in 28 CFR
Part 35. This document, in turn, incorporates the ADA Accessibility Guidelines for Buildings and Facilities
(ADAAG) as its design standards. The building and site must also meet 521 CMR, the Rules and
Regulations of the Massachusetts Architectural Access Board (MAAB Regs).
Built in the 1930's, the building lacks any consideration of universal access: the main level (first floor) is up
seven risers from grade in the front; there is no accessible route to the top level; and there is no interior
accessible route to the basement.
Further, since the accessible entrance to the building must be coincident with the entrance used by others,
the front door is required to be the main entrance. This doorway originally had a pair of 30-inch leaves;
however, the minimum width of an accessible door is 36 inches, which means that the new door can not be
the same as the original.
On the plus side, the basement level can be accessed from grade, and the building could be configured so
that the basement is a separate structure for code purposes. Under such a scheme the only required interior
accessible connection would be between the first floor and top level. We are recommending that this
concept be followed since an elevator that does not go to the basement level will require no excavation in
the cellar.
Two exterior ramps which were previously described will be needed. A ramp enabling a person who cannot
use steps is needed on the south side to get out of the basement; also needed is a ramp from grade to the
first floor.
3.6 Conclusions and Recommendations
In general, the building is highly salvageable, much more than expected given its treatment over the years.
The structure is sound, the code modifications (including access) are straight forward, and the rentable area
can be subdivided into anywhere from one to eight tenants. Without hesitation, we recommend that
investigations go to the next level.
To this end, we recommend
1. Engaging an engineer or a contractor qualified in the discipline professional to assess the
condition of the steel, of the bricks, and of the concrete floors.
2. Hiring an architect or engineer to prepare contract drawings which include specifications and
cost estimates for the following:
a) Securing the exterior of the building with plywood in the window and door openings.
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b) Demolishing all non-structural elements except the stairs and roof -- interior partitions,
wall surfaces, etc. be demolished and removed from the site; and the holes for the elevator
and new stairs be cut.
c) Replacing the roof, including removal and replacement of the chimneys. Existing slates
should be re-used.
d) Engaging an Architect to prepare schematic plans based on the description contained
herein which shows the minimal amount of work to be done for rental, leaving build-out
to future tenants.
e) Take three calcium chloride test for the concrete pan beams to determine potential extent
of corrosion of reinforcing steel.
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4.0 HISTORIC PRESERVATION GUIDELINES AND RECOMMENDATIONS
Rooted in over 120 years of preservation ethics in both Europe and America, the Secretary of the
Interior's Standards for the Treatment of Historic Properties are common sense principles in non-
technical language. They were developed to help protect our nation's irreplaceable cultural resources by
promoting consistent preservation practices.
Preservation focuses on the maintenance and repair of existing historic materials and retention of a
property's form as it has evolved over time. (Protection and Stabilization have now been consolidated
under this treatment.)
Rehabilitation acknowledges the need to alter or add to a historic property to meet continuing or
changing uses while retaining the property's historic character.
Restoration depicts a property at a particular period of time in its history, while removing evidence of
other periods.
Reconstruction re-creates vanished or non-surviving portions of a property for interpretive purposes.
The recommended treatment standard for the Barracks Building and its related site is Rehabilitation and
the specific recommendations are found in Section 4.1 and 4.2 below.
The ten standards for rehabilitation are provided below. Greater detail is provided in the Secretary of the
Interior’s Standards for Rehabilitation & Illustrated Guidelines for Rehabilitating Historic Buildings. See
also The Secretary of the Interior’s Standards for Rehabilitation are found in the web site at
http://www.cr.nps.gov/hps/TPS/tax/rehabstandards.htm
The Standards for Rehabilitation are applied to projects in a reasonable manner, taking into consideration
economic and technical feasibility. Standards 1, 2, 5, 6, and 9 have the greatest applicability to this project.
It should be noted that the Building interior had no special features with possible exception of central iron
stairway.
1. A property shall be used for its historic purpose or be placed in a new use that requires
minimal change to the defining characteristics of the building and its site and environment.
2. The historic character of a property shall be retained and preserved. The removal of historic
materials or alteration of features and spaces that characterize a property shall be avoided.
3. Each property shall be recognized as a physical record of its time, place, and use. Changes
that create a false sense of historical development, such as adding conjectural features or
architectural elements from other buildings, shall not be undertaken.
4. Most properties change over time; those changes that have acquired historic significance in
their own right shall be retained and preserved.
5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that
characterize a historic property shall be preserved.
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6. Deteriorated historic features shall be repaired rather than replaced. Where the severity of
deterioration requires replacement of a distinctive feature, the new feature shall match the
old in design, color, texture, and other visual qualities and, where possible, materials.
Replacement of missing features shall be substantiated by documentary, physical, or pictorial
evidence.
7. Chemical or physical treatments, such as sandblasting, that cause damage to historic materials
shall not be used. The surface cleaning of structures, if appropriate, shall be undertaken using
the gentlest means possible.
8. Significant archeological resources affected by a project shall be protected and preserved. If
such resources must be disturbed, mitigation measures shall be undertaken.
9. New additions, exterior alterations, or related new construction shall not destroy historic
materials that characterize the property. The new work shall be differentiated from the old
and shall be compatible with the massing, size, scale, and architectural features to protect the
historic integrity of the property and its environment.
10. New additions and adjacent or related new construction shall be undertaken in such a
manner that if removed in the future, the essential form and integrity of the historic property
and its environment would be unimpaired.
4.1 Barracks Building
Efforts should be focused on the building exterior which retains much of its historic appearance. The
building interior is in deteriorated condition throughout with openings in the roof and standing water in
the basement. There are no features or spaces of sufficient quality or conditions to reinstate or preserve.
Key Elements to Maintain, Repair, or Reinstate
1. Maintain low-pitched hip roof; repair slate shingles and molded wood cornice where possible
and reinstate where not using remaining elements and original architectural drawings as a guide.
2. Reinstate copper gutters and downspouts as indicated on original architectural drawings.
3. Reinstate windows and exterior doors using historic photographs and original architectural
drawings as a guide.
4. Maintain symmetrical organization, especially of primary east façade.
5. Maintain red brick walls laid up in common bond; white paint appears to be an original or very
early treatment.
6. Maintain primary east façade with projecting, pedimented frontispiece with arched openings at
first story.
7. Maintain concrete/cast stone water table and window sills, and splayed brick lintels with cast
stone keystones at first story.
4.2 Site
Maintain the character-defining site elements identified in section 4.1 to the greatest extent possible.
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4.2.1 Key Elements and Spaces to Maintain
1. The unobstructed views over Salem Harbor to southeast should be maintained.
2. The open turf-covered landscape in these areas should be maintained, especially the area
between the front of the Barracks Building and the Hangar.
3. Access roads and parking areas should remain at the rear of the building where they are
currently located. Some enlargement of the parking area is likely to be required by most new
uses. It should remain on the west side of the access road with possible expansion to the small
area at the rear of the building. Uses that do not require major expansion of parking facilities
should be favored.
4. Footpaths connecting the Barracks Building to the harbor and nearby buildings should follow
the examples provided in early site plans and historic photographs. An example is the original
walkway that still connects the Barracks Building and the Hanger. The original material was
concrete.
4.2.2 Secondary Elements and Spaces
Replacement of the following features is desirable if the budget allows:
1. The flagpole base seen in historic views remains next to the walkway. The flag might be
replaced if desired.
2. A few stationary cannon are seen on the east lawn in historic views. Similar items might be
replaced if desired.
3. A few trees are shown on the primary east lawn. They might be replaced if desired.
4. Small shrubs are seen as foundation plantings in front of the primary east façade. The
overgrown giants currently in place should be removed. Similar elements might be replaced if
desired.
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5.0 BUILDING REHABILITATION RECOMMENDATIONS AND COST ESTIMATES
Two different phases of building repair and related cost estimates were developed for the Barracks
Building. Phase 1 covers demolition work plus the activities necessary to stabilize the building while
Phase 2 repairs involve work necessary to bring the building up to code, into compliance with the
Americans with Disabilities Act and to renovate the interior to a condition that is rentable, with the tenant
responsible for build out. The following paragraphs describe the suggested Phase 1 and Phase 2 Outline
Specifications organized by Type of Work. The recommendations are only to provide basic information.
A full set of specifications should be developed with construction drawings when the Scope of Work for
each phase of construction is fully developed.
Building Elevation and Floor Plans that indicate the recommended renovations are included at the end of
this Chapter.
5.1 Phase 1 Stabilization Work
The following Specifications outline the Phase 1 improvements recommended to stabilize the building.
5.1.1 General Requirements
1. The Scope of the project involves the stabilization and improvements the interior and
rehabilitation of the exterior of the existing building including installation of exterior ramps to
the basement and an elevator servicing the first and second floor to provided universal access
to the building. Site work includes removal of plantings, re-grading and installation of ramps
along the south side of the building and parking to universal access.
2. All Contractors shall be licensed in the Commonwealth of Massachusetts.
3. All work shall comply with state and local codes and ordinances, and shall be done to the
highest standards of craftsmanship by journeymen of the respective trades. Contractor shall
provide products of acceptable manufacturers that have been in satisfactory use in similar
service for three years and shall deliver, handle, and store materials in accordance with
manufacturer's instructions.
4. This property is listed in the National Register of Historic Places. Certain work elements as
specified will meet the Secretary of the Interior's Standards for the Treatment of Historic Properties.
5. The contractor must have at least five years of experience with National Register Properties
or properties eligible for listing on the National Register.
6. The contractor shall clean and restore work areas to previous condition after work.
7. The contractor shall obtain all permits and approvals required for the project.
8. The contractor shall remove and dispose of all debris (demolition, general refuse). Leave
floors broom clean.
9. The contractor shall supply temporary facilities as required.
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5.1.2 Site Work
1. Remove all trees and other vegetation around foundations and around building to a distance
of 8-feet.
5.1.3 General Demolition
1. Remove and dispose of all exterior wood trim (exterior windows, doors, cornice, pediment)
except for samples of typical sections which should be numbered and stockpiled so that their
design can be replicated. Cornice should be removed under supervision of roofing
contractor.
2. Remove and stockpile for future use/replication the stair railings in the front stairs and the
portico railings.
3. Pump out water in basement and remove and dispose of all debris and refuse on the floors.
4. Remove and dispose of all loose and hanging metal, wood, and other debris that could pose a
hazard.
5. Remove and dispose of the stairs between basement and first floor.
6. Remove and dispose of all finish on the interior of the exterior walls, bring surface back to
the brick.
7. Remove and dispose of all wood and plaster partitions.
8. Remove and dispose of all other partitions where called for on the plans.
9. Remove and dispose of all ceilings.
10. Remove and dispose of flooring material down to the concrete topping or as directed by
owner's representative.
11. Remove and dispose of the remnants of all mechanical, electrical, and plumbing.
5.1.4 Selective Demolition
1. Cut a rectilinear hole in the first and second floors, approximately 72 inches wide by 84
inches long. Remove and dispose of all debris from the cuts.
2. Cut a rectilinear hole in the first and second floor, approximately 60 inches wide by 17 feet
long. Remove and dispose of all debris from the cut.
5.1.5 Roof Replacement
1. Supervise the removal of the cornice and stabilizing the temporary condition.
2. Selectively remove and stockpile slates from areas where sheathing must be removed.
3. Remove and dispose of board sheathing and rafters as shown on drawings or as agreed to
with owner's representative.
4. Remove chimneys and dispose of all material.
5. Purchase materials for, and construct of lighter material and simulated brick new ornamental
chimneys the same size and shape as existing.
6. Remove scale from and fireproof steel as required by code.
7. Purchase materials for, and replace removed rafters and sheathing.
8. Restore slate roof using salvaged and new slates as needed.
9. Purchase materials for and construct new roof for flat portion of roof including new joists,
sheathing, and rubber roof.
N.b.: New gutters, new rain water leaders, and the restored cornice is not done under this contract.
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5.1.16 Sealing Building
1. Purchase materials for, and install plywood closures for all windows and doors. One door in
the rear, and the front door shall have a cutout plywood door that can be used for access to
the building.
2. Purchase material for, and install a plywood enclosure to keep people from entering building.
5.2 Phase 2 Renovation
The following Specifications outline the Phase 2 renovations recommended to improve the building to a
leasable condition suitable for tenant build out.
5.2.1 General Conditions
1. Obtain all permits and approvals required for the project.
2. Remove and dispose of all construction debris. Leave floors broom clean.
3. Conditions 2 though 9 as detailed in Phase 1.
5.2.2 Site Work
1. Re-grade in front of entrance to raise grade 7-inches +/-. Slope back at 2% until other side
of new intersecting walk. From there, slope down at 4.5% until existing grade.
2. Re-grade to north of entrance stairs at a slope of 4% upward until the end of the building.
Continue at 2% both directions for 8-feet. Slope to existing grade.
3. Re-grade to south of entrance stairs loping downward at 4%. Continue at 2% both directions
for 8-feet. Slope to existing grade.
4. Re-grade at south end of building from end of ramp to basement to parking for a path 60-
inches wide a 4.5% slope .
5. Provide the materials for and construct a new 5-foot wide path over old from entrance to
Hangar parking, including gravel sub-surface and two layers of bituminous.
6. Provide the materials for and construct a new 5-foot wide path from ramp to portico on the
north side of the entrance stairs to the exit ramp from basement on the south side of the
entrance stairs.
7. Provide the materials for and construct a new 5-foot wide path from ramp on the north side
of the building to the exist ramp on the south side from basement.
8. Provide the materials for and construct a new 5-foot wide, concrete ramp to the portico at a
slope of 8%, including two 8-inch concrete walls, footings and brick facing on one side of the
outside wall. Provide 1 ½-inch diameter double handrail each side meeting access
regulations.
9. Excavate for a ramp from basement to grade on the west side of the portico. Remove from
site un-needed barrow.
10. Provide the materials for and construct a new 5-foot wide, concrete ramp from grade to the
basement at a slope of 8%, including two 8-inch concrete walls with footings. Provide 1 ½-
inch diameter double handrail meeting access regulations on each side.
11. Provide the materials for and construct a new 5-foot wide path from exist ramp from
basement to ramp to parking in rear.
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5.2.3 Site Work Utilities
1. Provide the materials for and install new utility lines to the building, including storm and
waste drains, water, and buried electrical and buried communications lines.
2. Provide the materials for and install four drywells for storm drainage, including drain lines to
rainwater leaders.
3. Provide the materials for and install an adequately sized oil storage tank.
5.2.4 General and Selective Demolition
1. Remove and dispose of all plywood coverings of doors and windows, and all temporary work
constructed during Phase 1.
2. Remove and dispose of 10 +/- square feet of 4 whyth brick wall below one basement
window.
3. Remove interior walls indicated for removal and dispose of material.
4. Remove and dispose of all temporary constructions provided in the stabilization phase.
5.2.5 Exterior Construction
1. Provide the materials for, and raise the portico floor to be level with first floor.
2. Provide the materials for and install copper gutters at cornice, and rain water leaders at all
corners. Provide drainage to drywells
3. Rake and tuck point mortar where indicated.
4. Provide materials for and construct with matching brick a 2-whyth wall in former door
opening on wing, basement level.
5. Provide materials for and construct, including waterproofing, concrete block infill in three
former window opening on east basement level.
6. Provide materials for and construct from wood two new ornamental chimneys. Face with
simulated brick.
5.2.6 Exterior Doors and Windows
1. Provide and install, including brick mould, trim, and hardware, one 36-inch wide, 1/2 glazed
wood door with one sidelight in 63-inch wide masonry opening in east face of basement
level. Door, brick mould, and trim should replicate original design as much as possible.
2. Provide and install, including brick mould, trim, and hardware, one 36-inch wide, 1/2 glazed
wood door in 42-inch masonry opening where window has been removed in north face of
basement level. Door, brick mould, and trim should replicate original design as much as
possible.
3. Provide and install, including brick mould, trim, and hardware, two separate 36-inch wide
wood doors in two 48-inch wide masonry openings in south face of basement level.
4. Provide and install, including brick mould, trim, and hardware, one 36-inch wide, 1/2 glazed
wood door in 48-inch wide masonry opening in first floor of wing. Door, brick mould, and
trim should replicate original design as much as possible.
5. Provide and install, including brick mould, trim, and hardware, full glazed 36-inch wide door
with two sidelights in 66-inch wide by 126-inch high arched masonry opening in south face of
first floor. Door, brick mould, and trim should replicate original design as much as possible.
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6. Provide and install, including brick mould and trim, two Palladian windows in two 54-inch
wide by 91-inch high masonry openings in east face of first floor. Door, brick mould, and
trim should replicate original design as much as possible.
7. Provide and install, including brick mould and trim, six, in-swinging hopper windows in
south, east, and north face of basement level in 48-inch wide by 20-inch high masonry
opening. Window, brick mould, and trim should replicate original design as much as
possible.
8. Provide and install, including brick mould and trim, thirteen, double-hung windows in 48-
inch wide by 66-inch high masonry opening on basement level. Window, brick mould, and
trim should replicate original design as much as possible.
9. Provide and install, including brick mould and trim, twenty-six, double-hung windows in 48-
inch wide by 81-inch high masonry opening on first level. Window, brick mould, and trim
should replicate original design as much as possible.
10. Provide and install, including brick mould and trim, thirty-one, double-hung windows in 48-
inch by 66-inch masonry opening on second level. Window, brick mould, and trim should
replicate original design as much as possible.
5.2.7 Exterior and Interior Steel
1. Provide and install exterior fire escape.
2. Install 3 railings in 3 portico openings and install 2 stair railings. Re-use existing railings
where possible. Where new railings required, provide and install replicas of original railings
as much as possible.
3. Remove scale from, and fire proof steel roof trusses.
4. Provide materials for and install a new enclosed egress stair from second floor to first floor,
including railings and rubber treads.
5.2.8 Interior Doors and Windows
1. Provide and install, including trim and hardware, seven 36-inch wide, and one pair of 36-inch
wide wood doors on basement level.
2. Provide and install, including trim and hardware, five 36-inch wide fire rated wood doors on
first level.
3. Provide and install, including trim and hardware, two 36-inch wide fire rated wood doors
with two sidelights each on first level.
4. Provide and install, including trim and hardware, three 36-inch wide fire rated wood doors
with two sidelights each on second level.
5. Provide and install, including trim and hardware, four 36-inch wide fire rated wood doors on
second level.
5.2.9 Rental Areas
1. Exterior Walls: Provide the materials for and install 3-1/2 metal studs 16-inches on center
and R-13 fiberglass batts.
2. Demising partitions: Provide the materials for and install 3-1/2 metal studs 16-inches on
center.
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3. Floors: Smooth and fill existing concrete floors suitable as sub-floor for carpet
4. Ceiling: No work
5.2.10 Common Areas
1. Exterior Walls: Provide and install 3-1/2 metal studs 16 inches on center, R-13 fiberglass
batts, and 5/8-inch drywall. Finish walls including 2 coats paint.
2. Demising partitions: Provide and install 3-1/2 metal studs 16 inches on center, R-11
fiberglass batts, and 5/8-inch drywall on public side. Finish walls including 2 coats paint.
3. Floors: Smooth and fill existing concrete. Provide the materials for and install marble tile in
entry foyer. Provide the materials for and install carpet in corridors.
4. Main Stairs: Provide the materials for and install one flight (12-feet floor to floor) ornamental
wood stairs, including railings.
5. Ceiling: Provide the materials for and install suspended ceilings.
5.2.11 Utility Spaces
1. Demising partitions: Provide and install 3-1/2 metal studs 16-inches on center, R-11
fiberglass batts, and 5/8-inch fire-coded drywall. Finish walls, including 2 coats paint.
2. Floors: Smooth and fill existing concrete. Harden surface.
3. Ceiling: Clean and paint, 2 coats.
5.2.12 Toilet Rooms:
1. Exterior Walls: Provide and install 3-1/2 metal studs 16-inches on center, R-13 fiberglass
batts.
2. Wall surfaces: Provide the materials for and install thinset ceramic tile wall surface to a height
of 48 inches over cement board. Provide the materials for and install 5/8-inch drywall above
tile wainscot. Finish walls including 2 coats paint.
3. Toilet partitions: Provide and install metal partitions and doors for 10 toilet stalls including 6
which meet MAAB Regulations, and miscellaneous partitions at entry and at urinals.
4. Floors: Smooth and fill existing concrete and provide the materials for and install ceramic tile
floors, including 6 marble thresholds.
5. Ceiling: Provide the materials for and install suspended ceilings.
6. Provide the materials for and install counters and mirrors for 10 lavatories, all of which meet
MAAB Regulations.
7. Provide the materials for and install miscellaneous towel dispensers, paper dispensers, grab
bars, etc. for 6 public bathrooms.
5.2.13 Utility Closets (4 closets)
1. Wall surfaces: Provide the materials for and install thinset ceramic tile wall surface to a height
of 48-inches over cement board. Provide the materials for and install 5/8-inch drywall above
tile wainscot. Finish walls including 2 coats paint.
2. Floors: Smooth and fill existing concrete and provide the materials for and install ceramic tile
floors, including 4 marble thresholds.
3. Ceiling: Provide the materials for and install suspended ceilings.
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5.2.14 Plumbing
1. Provide the materials for and install hot and cold water service, including hot water boiler.
2. Provide the materials for and install 6 complete public toilet rooms, including 12 water
closets, 4 urinals, 10 lavatories, and all the required plumbing, rough and final.
3. Provide the materials for and install 4 mop sinks, including all the required plumbing, rough
and final.
4. Provide the materials for and install a complete sprinkler system for first and second floor,
including all the required plumbing, rough and final and all alarm systems.
5.2.15 Electrical
1. Provide the materials for and install 220 volt, 600 amp service with 6 meters.
2. Provide the materials for and install 8satellite 200 amp load centers, one in each rental area
and one common.
3. Provide the materials for and install twenty 24-inch by 48-inch drop-in florescent light
fixtures in bathrooms and common areas, including switches.
4. Provide the materials for and install 4 wall sconces in entry foyer, including switches.
5. Provide the materials for and install outlets in common areas and toilets per code.
6. Provide the rough wiring for miscellaneous electrical devices installed by other trades.
5.2.16 HVAC
1. Provide the materials for and install heating all floors.
2. Provide the materials for and install ventilation system for basement and 6 toilet rooms.
3. Provide the materials for and install cooling system for first and second levels.
5.2.17 Elevator
1. Provide the materials for and install complete, 2-stop, double door, hydraulic elevator with
60-inch by 68-inch cab, including shaft walls.
5.3 Cost Estimate Summary
As noted earlier in the report, rough cost estimates were developed for two phases of repair. The cost
estimates are found in Tables 2 and 3 (on the following pages). Cost estimates were derived using the RS
Means Building Construction Cost Data 65th Annual Edition, 2007 and adjusted for the Boston area. An
additional cost estimate was developed to create a kitchen for catered functions should the City decide to
create a function hall on the top floor as shown in Table 4.
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Table 2
Phase 1 Cost Estimate
Scope of Work Quantity Unit Unit Cost Amount
Site Work and Disposal
Remove trees and vegetation 8 Each 104.81 838
Pump out basement water 1 Each 800.00 800
Debris Removal - overall 1 Each 811.72 812
Debris Removal - per floor 11,700 Square Foot 0.54 6,318
Dumpster and disposal 9 Each 800.00 7,200
Demolition
Exterior
Remove exterior wooden trim 333 Linear Foot 0.87 290
Remove iron railings on southern side 1 Lump Sum 500.00 500
Remove fire escape 1 Lump Sum 2,000.00 2,000
Interior
Remove basement stairs 1 Each 1,250.00 1,250
Strip all materials from outside walls 7315 Square Foot 2.50 18,288
Remove wall partitions 326 Linear Foot 22.50 7,335
Remove ceiling 11,700 Square Foot 1.29 15,093
Roof
Remove existing roof 4920 Square Foot 1.75 8,610
Replace broken or damaged roof joists 3600 Square Foot 2.29 8,244
Install plywood sheathing 4920 Square Foot 1.35 6,642
Slate tiles (10%) 492 Square Foot 6.00 2,952
Install slate on roof 4920 Square Foot 5.25 25,830
Install rubber on roof 325 Square Foot 2.50 813
Install aluminum flashing 63 Linear Foot 24.50 1,544
Remove ornamental chimneys 2 Each 250.00 500
Construction
Exterior
Plywood window openings (80% need installation) 2120 Square Foot 1.35 2,862
Install rear plywood door 1 Each 300.00 300
Interior
Fireproof steel members 2000 Square Foot 2.25 4,500
Cut 72" x 84" shaft on first and second floor add
bracing 2 Each 1,700.00 3,400
Cut 60" x 17' shaft on second floor 1 Each 2,300.00 2,300
Subtotal: $ 129,219
Bid Documents/Construction (12%)
$
15,506
Contingency (15%)
$
19,383
TOTAL: $ 164,109
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Table 3
Phase 2 Cost Estimate1
Scope of Work Quantity Unit Unit Cost Amount
Site Work
Regrade for ramps 1 Lump Sum 2,000.00 2,000
Remove plywood from doors and windows 1 Lump Sum 1,000.00 1,000
Debris removal - overall 1 Each 811.72 812
Debris removal - per floor 5,000 Square Foot 0.54 2,700
Dumpster and Disposal 3 Each 700.00 2,100
Demolition existing stairs 1 Lump Sum 3,000.00 3,000
Calcium chloride testing 9 Each 90.00 810
Install drywell and piping 4 Each 2,000.00 8,000
Windows and Doors
Install basement windows 48" x 20" opening 7 Each 165.00 1,155
Install basement windows 48" x 66" opening 12 Each 495.00 5,940
Install first floor windows 48" x 76" opening 26 Each 590.00 15,340
Install first floor palladian windows 54" x 91" opening 2 Each 2,530.00 5,060
Install second floor windows 48" x 66" opening 31 Each 495.00 15,345
Install basement floor entry doors 3 Each 425.00 1,275
Install basement door with sidelite 1 Each 670.00 670
Install front entry door 1 Each 1,500.00 1,500
Install rear entry door, 2nd floor 1 Each 425.00 425
Install wooden interior doors (basement) 7 Each 319.00 2,233
Install wooden fire rated interior doors 9 Each 462.00 4,158
Install wooden fire rated interior doors w/sidelights 5 Each 675.00 3,375
Roof
Install copper gutter and downspouts 466 Linear Foot 26.35 12,279
Install ornamental brick faced chimneys 2 Each 2,200.00 4,400
Install trim and molding 333 Linear Foot 3.40 1,132
Install 18" x18" wooden cornice 333 Linear Foot 11.25 3,746
Construction
Exterior
Install new iron stair railings 14 Linear Foot 30.60 428
Install new porch railings 18 Linear Foot 26.46 476
Increase height of concrete deck 285 Square Foot 6.32 1,801
Install concrete ramps 407 Square Foot 4.87 1,982
Install sidewalk 2,000 Square Foot 4.87 9,740
Install footing - 10" x 20" 120 Linear Foot 18.51 2,221
Install concrete wall - 10" x 72" 120 Linear Foot 95.93 11,512
Install concrete rebar 840 Square Foot 1.61 1,352
1 Note that the cost estimates do not include utility services exterior to the building.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
43
Table 3
Phase 2 Cost Estimate (Continued)
Scope of Work Quantity Unit Unit Cost Amount
Install fire escape staircase 1 Each 3,300.00 3,300
Install concrete ramp railings 120 Linear Foot 20.00 2,400
Install gravel parking lot 350 Cubic Yard 25.00 8,750
Install handicapped parking lot (base course) 115 Cubic Yard 12.87 1,480
Install hancp. parking lot (binder course) 15 Ton 69.30 1,040
Install brick face wall along ramp 240 Square Foot 13.00 3,120
Install brick wall on removed doors/windows 80 Square Foot 45.10 3,608
Install replica medallion 1 Each 1,500.00 1,500
Interior
Install urinals 4 Each 753.50 3,014
Install toilets 6 Each 715.09 4,291
Install handicapped toilets 6 Each 715.09 4,291
Install sinks 10 Each 1,469.15 14,692
Install mop sinks 4 Each 1,180.00 4,720
Install two story elevator 1 Each 150,000.00 150,000
Install 2 x 4 metal studs 11,000 Square Foot 1.71 18,810
Install R13 insulation to exterior walls 6,973 Square Foot 0.83 5,788
Install 5/8" drywall (common area) 3,565 Square Foot 1.89 6,738
Paint common area 3,565 Square Foot 0.73 2,602
Install stairways between 1st and 2nd floors 2 Each 2,700.00 5,400
Install suspended ceiling (common area/bathroom) 1,850 Square Foot 4.92 9,102
Install marble flooring (common area) 165 Square Foot 37.50 6,188
Install carpet w/ padding (common area) 72 Square Yard 3.08 222
Install bathroom tiles 1,170 Square Foot 14.91 17,445
Install lighting 2'x4' (common area/bathroom) 20 Each 195.50 3,910
Install sprinkler system (1st and 2nd floor) 7,800 Square Foot 3.50 27,300
Install electric utilities 1 Lump Sum 8,000.00 8,000
Install 200 amp load distribution stations 8 Each 3,770.00 30,160
Install HVAC system 1 Lump Sum 15,950.00 15,950
Install plumbing system 1 Lump Sum 10,000.00 10,000
Install oil fired boiler 1 Lump Sum 39,710.00 39,710
Level concrete floors 1 Lump Sum 3,000.00 3,000
Subtotal:
$
544,496
Structural Assessment
$
1,700
Bid Documents/Construction (12%) $ 65,340
Contingency (15%) $ 81,674
TOTAL: $ 693,210
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
44
Table 4
Function Hall Cost Estimate
Scope of Work Quantity Unit Unit Cost Amount
Kitchen
24" x 24" pot sink 1 Each 2,260.00 2,260
18" x 18" prep sink 1 Each 383.68 384
Commercial refrigerator 2 Each 2,696.00 5,392
Commercial stove w/ two ovens 1 Each 7,300.00 7,300
2' x 4' table 3 Each 325.00 975
Install 36" deep plastic laminate counter top 42 Linear Foot 46.57 1,956
Install toilets 4 Each 715.09 2,860
Subtotal:
$
21,127
Contingency (15%)
$
3,169
TOTAL:
$
24,296
Scope of Work Quantity Unit Unit Cost Amount
Dining Hall
5' diameter round plywood folding banquet table 20 Each 160.00 3,200
Chairs (8 chairs per table) 160 Each 89.00 14,240
Subtotal:
$
17,440
Contingency (15%)
$
2,616
TOTAL:
$
20,056
Proposed Site Plan
Scale in Feet
Called North
N
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 80
U.S. Coast Guard Barracks Building Re-Use Feasibility Study Salem, MA
Hangar
Barracks Building
Pavillion
Barracks Building
Hangar
Pavillion
Tot Lot
Proposed Parking
Proposed
Ramps
Existing Roadway
40
Barracks Building Site
Scale in Feet
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 30
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
15
N
Called North
East Elevation
Scale in Feet
Called North
N
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
16
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
80
West Elevation
Scale in Feet
N
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 16
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
Called North
8
North Elevation
Scale in Feet
Called North
N
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 16
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
8
South Elevation
Scale in Feet
Called North
N
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 16
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
8
Basement Level Renovation
Scale in Feet
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 8
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
N
Called North
16
First Floor Renovation
Scale in Feet
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 8
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
N
Called North
16
Second Floor Renovation
Scale in Feet
Vine Associates, Inc.
372 Merrimac Strret
Newburyport, MA 01950
0 8
U.S. Coast Guard Barracks Building Re-Use Feasibility Study, Salem, MA
N
Called North
16
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
54
6.0 RE-USE OPTIONS AND ANALYSIS
6.1 Market Conditions
The Request for Proposal issued by the City of Salem requested that a market assessment be undertaken
to determine feasible uses for the Barracks Building. Initially, a public meeting was held to solicit public
ideas on potential uses for the building and from that meeting, the following potential uses were
identified:
Community Boating program which is actively being pursued by a new non-profit
organization Sail Salem Inc.
City Senior Center
Function Hall
Facility for the local Veterans Council Organization
Office and interpretive space for Salem Sound Coastwatch
Observatory
Hotel/bed and breakfast
During the course of undertaking the Study it was found that due to the terms of various property
conveyances and agreements, uses allowed at Winter Island are generally restricted to public uses. In
response to this restriction a series of interviews were conducted with various nonprofit organizations to
determine if there might be interest in using the building. Such organizations included the adjacent
Plummer Home for Boys, Salem State College, Mass Maritime Academy, the aforementioned Sail Salem,
Inc., the local Veterans Council, the Salem Theater Company, and the Rebel Shakespeare Company. Sail
Salem expressed a strong desire to house a community boating program in the building that would require
a classroom, storage space and three offices. The Veterans Council also requested common office space,
a potential military exhibit area and is interested in being able to use a meeting room and a function hall if
such facilities were provided. The Veterans Council is actively seeking space somewhere in the City and
will be undertaking a fundraising campaign. Massachusetts Maritime Academy also expressed interest in
housing a training facility in the building that could provide a northern site for certain MMA types of
classes and training such as 100 ton and license training, small boat training, environmental compliance
training, and emergency management training, programs. These discussions were preliminary and will
require additional follow-up to determine MMA’s resources, timing and space needs to implement these
types of programs. There was some interest in occasional use of meeting, office or rehearsal space by
other organizations but not a need to rent space on a regular or long-term basis.
6.2 Re-Use Options Considered
The uses identified above were further analyzed to determine feasibility in regards to use (whether or not
allowed by zoning and/or deed restrictions) compatibility with adjacent land uses, identified program,
ability to accommodate program within building, and revenue generation. The evaluation matrix is found
in Table 4. Those uses that were found to have potential were further explored through interviews and
reviews of proposed programs. It should be noted that at the point where specific uses are identified for
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
55
the building, the zoning should be analyzed to ensure that the use(s) is allowed under the City of Salem
Zoning Code.
Table 5
Use Evaluation Matrix
Use Allowed
by
Zoning(a)
Allowed by
deed
restriction
Compatible
with
Adjacent
uses
Identified
Program
(square feet)
Building can
accommodate
Program
Financial Feasibility
Hotel No No No No Not Evaluated Not Evaluated
Bed and Breakfast No No Maybe No Not Evaluated Not Evaluated
Restaurant No/Maybe Yes (if publicly
owned)
Yes
(depending
on size)
No Not Evaluated Not Evaluated
Function Hall Yes Yes (if publicly
owned similar to
existing function
hall) (b)
Yes Yes Yes for up to 200
people. Require
kitchen and
additional bathrooms
Feasible for one floor as
part of mixed use project.
Community Boating Yes Yes (b)
Yes Yes Yes Requires raising
substantial grants,
sponsors and donations
Non Profit
Office/Meeting Space
Maybe Yes (b)
Yes Yes Yes Requires raising
substantial grants
Observatory No Yes Yes No Not Evaluated
Classroom Space Yes Yes (b)
Yes No Yes No
Salem Sound
Coastwatch
Yes Yes Yes No Yes Requires raising
substantial grants
Coastal Interpretive Yes Yes Yes No Unknown Not Evaluated
Military Museum Yes Yes Yes No Unknown Not Evaluated
Notes (a) Winter Island is zoned R-1 which restricts land uses to those typically associated with single family residential.
Other uses such as marinas, boatyards and recreational facilities are allowed by special permit and several uses are
prohibited. Consultation with City Zoning Officer would be required to ascertain if preferred uses are allowed under
City Zoning.
(b) Allowable uses must be those that are determined to be public.
6.3 Uses Retained for Evaluation
Based on the evaluation presented in Table 4 above, the list of potential uses was narrowed to the
following potentially feasible uses:
• Community Boating
• Function Hall and Meeting Space with kitchen facilities that could be operated and
managed by the City
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
56
• Classroom/meeting space
• Office space for lease to nonprofits
Because there was such a strong interest expressed by different groups for each of these uses and the size
and layout of the building is flexible enough to accommodate most if not all of the uses, potential floor
layouts for a mixed use facility were developed with some alternative floor plans. These floor layouts are
found on the following pages.
Because the function hall was viewed as a use that could generate revenues for the City, an assessment of
market conditions for the function hall use of the building was conducted through interviews and analysis
of several other function facilities in and near Salem. A summary of these results in presented in Table
5. An estimate of rental rates that could be generated by office uses was also researched as described in
the following paragraphs.
Although there are many competing function facilities serving Salem, there does appear to be excess
demand that the Barracks Building can address. Most function spaces indicated that demand is strong and
that they do turn down requests especially on weekends in the peak wedding months of May, June, and
October. There is also strong demand in December for holiday parties. Several function spaces are
already fully booked through this year. With a waterfront setting, the Barracks Building should provide an
attractive site for weddings and other social events during summer months. Since most existing facilities
require the use of in-house catering services, the Barracks Building could also have a competitive
advantage in providing a space with kitchen facilities that would allow users to use their own selected
caterer. However, this would require additional investment for a suitable kitchen. On-site parking is
another advantage over the function spaces in downtown Salem. To avoid competing with the existing
function hall on Winter Island, the Barracks Building would need to accommodate larger events and
provide a kitchen for on-site catering.
Table 6
Summary Information on Selected Function Facilities
Facility Capacity Rental Fee Catering Comments
Beverly Yacht Club 60 seated inside
100 on porch
$200 Required to use their
catering
Only available to members.
Active Memorial Day to
Columbus Day
Hamilton Hall 160 sit-down event
300 cocktail party
$4250--full building for 5 hours
$185 to $285 per hour for
different rooms
Choice of approved
caterers
Not open July & August.
Fully booked for this year.
Hawthorne Hotel 7,090 square ft in 7 rooms
Up to 200 seated
Up to 350 theater
Fee covered by catering. If no
food, $300 to $500 per room.
Required to use their
catering
Strong demand in peak
season. Often turn people
away for peak Saturday
nights.
Lyceum Bar & Grill 100 sit down
120 theater style
$300 for a wedding
$150 for 4 hours
Required to use their
catering
Strong demand, booked thru
Nov. Often turn people
down
Waterfront Hotel 3000 sf up to 220 for sit
down event
2 other smaller rooms
Minimum catering of $7000
peak, $4,000 off peak
Required to use their
catering
Active use for social
functions and business
meetings
Winter Island Function
Hall
60 to 80 seated $150/$300 for 4/8 hours for
residents
$350/$500 for 4/8 hours for
non-residents
No kitchen Used for small parties.
Strong demand for
weekends May to Sept. Turn
people away. Need for larger
facility.
SECOND FLOOR 35'x 37'
0,295 S.F.)
38'X 37'
O,406S.F.)
36'X 37'
O,332S.FJ
FIRST FLOOR c
c c
27'x 2S'
(675 S.F.)
c
38'x 37'
(1,406 5.F.)
c
c
-E-IUlMP UP
BASEMENT FLOOR
c
c
44'X 37'
(1,628 S.F.)
D
c c
23'x 37'
(851S.F.)
o
o
o
I
Scale in Feet
25 Potential Floor Layouts
U.S.Coast Guard Barracks Building Re-Use Feasibility Study Salem,MA
Vioc Associates,Inc.
372 Merrimac Strret
Newburyport,MA 01950
-h
DO
~/'/'
----<:==>
Called North
N/
~
Conference Room
15'6"x 20"
,,
I
I,
p_/
Offices
o
I
.~
Printer
Sn'ack
I'>-..E::;
(f '1-\•......"/
W"
o
I'VI
III
Scale in Feet
I I I I I I
o 4 8 First Floor North End Alternate Layout with Conference Room
U.S.Coast Guard Barracks Building Re-Use Feasibility Study Salem,MA
Vine Associates,Inc.
372 Merrimac Strret
Newburyport,MA 01950
,
,
,----'
~
Prep
Sink
Manager's
Office
Ovens Refridg.
,,
c:J L._.I
r-
Table/Chair
Storage
c=J
Men's
I,
m
000
II
,"
Scullery
f?r mmu._um mum\);Coat Closet '.
~~_.-----------------.~I '.
.',Refridg.
,\,
,,
Reception
(~)
,,\I
Dining for 164
~-E:::::l __(
o 0()0/\0(\I '.I\/'-_/./../-',.0 Dining for 164
/\I I
\'---_///\l.)
DO
10.......1 10.......1 10.......1
Second Floor Alternate with Function Hall
u.s.CoaH Guard Bamcks Building Re~U5e Feasibility Study Salem,MA
Vine Associates,Inc.
372 Mcrrimac Strrct
I'\'cwburyport,MA 01950
Sca1ein Feet
_I
-====r/
'7//"Lecture ~
Setup
Or----r---'Dr----1
rw--::~-----:t,I I I I I
Classroom:~---L __J ~_-~~4----,:~---....I
20'6"x 29':'I ::;:
:;----t----~;-----,
r---~l ;~----i :I I I I I
!..----r--·--1-----L J'-----;1 "I :I I ,I
:.~._--J-_--~L ~L ~I •..~•I I I I,I ,I I
1..1..1 L J
Reception
Desk
~
N/
Called North
o
L/"
~
II
/'
\\
,/'\..
/
(
\42"Door\
Storage
375 sf
o
,,\
\
42"Door 1/-I
Waiting Area
I/~I
Office
9'6"x 10'6':
Office
9'O"x 15'
Scale in Feet
I I I I I I
o 4 8 Basement Level South End Layout for Community Boating
U.S,Coast Guard Barracks Building Re-Use Feasibility Study,Salem,MA
Vine Associates,Inc.
372 Merrimac Strret
Newburyport,MA 01950
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
61
6.4 Comparison to Market Rates
The most comparable types of space supplied in the private real estate market are office space and
function space rental. A review of current office space listing and interviews with real estate brokers were
used to determine market rate for office space. Most vacant office space in Salem is listed for rents
ranging from $12 to $18 per square feet with the higher figure for either very small spaces or modern
buildings. These rents were confirmed by brokers who indicated that $12 to $18 per square foot plus
utilities is the typical office rents in Salem. One broker indicated that there is plenty of space currently
available, including rehabbed space in former industrial buildings and there is not a market need for more
office space. Winter Island would be a less competitive office location since it is neither near a major
highway nor close to other business services and amenities. Consequently, a market rent at the Barracks
Building would be at the low end of the market around $12 per square foot.
All the identified tenants for the Barracks Building are non-profit organizations that may not be able to
pay the full market-rent for space. Moreover, the use restrictions on the property limit the ability to lease
to for-profit tenants that could pay the highest potential rent.
A market rate function hall rent is more complex to determine since most of the function facilities are not
comparable to Barracks Building. Hotel and restaurant facilities gain their revenue from food services and
thus charge no or a reduced rental fee. Other facilities such as Hamilton Hall are unique buildings and
offer a higher level of staff services to help with planning and on-site coordination. The current Winter
Island function hall is the best comparable given its location. Since a function space at the Barracks
Building would be larger and provide a kitchen, it would command a higher rental rate. A reasonable
conservative estimate is $500 for a half-day rental and $800 to $1,000 for a full day rental.
6.5 Financial Analysis
A financial analysis was undertaken to evaluate the financial feasibility of the proposed reuse options.
This analysis combines the estimated development costs to rehabilitate the Barracks Building with the
expected operating revenue and expenses upon completion and occupancy to determine how much
private debt and equity financing the project can support and what portion of the development costs most
be funded with grants.
The reuse option used for the financial feasibility analysis is a mixed use building with the following
components:
Basement: Community Boating Program ( 1,590 square feet)
1st Floor: office and meeting space for Non-profit organizations and shared conference room
(3,190 square feet).
2nd Floor : Function Hall with kitchen and support space (3,547 square feet)
The results of this analysis are summarized in Table 6, which presents the project costs and sources of
funds. Total development costs are estimated at $916,782. These costs include the site and building
construction costs, function hall equipment, and design fees projected by Vine Associates, plus a 10%
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
62
allowance for other soft costs, such as legal and permit fees and developer overhead. A $25,000 debt
service reserve is also included to cover debt payments in the first year when rental discounts are offered
to tenants.
Table 7
Barracks Building Development Budget
Use of Funds Amount
Acquisition $0
Site improvements $20,422
Building Construction $524,075
Function Hall Kitchen & Equipment $38,567
Construction Contingency (15%) $87,460
Sub-Total Hard Costs $670,524
Architecture/Engineering Fees $67,040
Other Soft Costs (10%) $67,052
Soft Cost Contingency (15%) $20,114
Developer Overhead (10%) $67,052
Debt Service Reserve $25,000
Sub-total Soft Costs $246,259
Total Uses of Funds $916,782
Sources of Funds Amount
Senior Debt $195,720
Subordinate Debt $31,162
Historic Tax Credit Equity $269,000
Grants $420,900
Total Sources $916,782
The first part of the analysis is a projected operating pro forma with revenue and expenses for the
completed building. Revenue estimates assume part of the lower level is rented to Sail Salem, the lst floor
is rented to non-profit organizations for office and meeting space, and the top level is a function hall.
Rents are assumed to be below market at $7.5 per square foot for the basement and $8.50 per square foot
for the 1st floor plus utilities. The first year rent is reduced by 50% to help the non-profit programs get
established in the new space and complete fund-raising efforts to afford the full rental income. Rents are
assumed to increase by 3% to 4% annually to cover increases in building operating expenses. Function
Hall rent assumes 28 full day and 27 half-day rentals per year at $1000 and $500, respectively. Rental fees
are projected to increase by 5% every two years. Operating expenses assume the Salem Park and
Recreation will be responsible for the maintenance of the building and surrounding site and can perform
these functions without incurring additional costs for staff and equipment. Thus, the operating costs for
the building are limited to heat and common area utilities, supplies, insurance, marketing costs, a
replacement reserve and other direct expenses. These expenses were estimated based on published data
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
63
from the Institute for Real Estate Management or suburban office buildings in the Boston Metropolitan
area and are projected to increase by 4% annually to account for inflation.
The resulting operating proforma is presented in Table 7. It projects stabilized revenue in year 2 of
$71,416, operating costs of $46,860 and net cash flow of $24,556. Based on standard private bank
underwriting standards of 1.25 debt service coverage, a 20 year repayment period and an 8% interest rate,
the project can afford a senior loan of $195,720. A second subordinate loan of $31,162 is also possible
based on a 1.10 debt service, 6% interest rate and 20-year amortization. This loan might be provided by a
non-profit community development lender (e.g., Boston Community Capital) or by the City of Salem with
Community Development Block Grant funds.
A third funding option is to use federal and state historic tax credits to raise investment dollars from
private investors. These investors make cash investments in return for tax credits. Since the Barracks
Building is on the National Register of Historic Places, it qualifies for federal historic tax credits and
should qualify for state credits. A for-profit limited partnership or limited liability corporation would have
to have an ownership interest in the building through a long-term lease for this option to be feasible.
Using an estimated tax basis of $757,0002, both federal and state tax credits could raise an additional
$269,000 from tax credit investors.
With total development cost of $916,782 and combined debt and tax credit investment of $495,882, the
reuse scenario for the Barracks Building faces funding gap of $420,900.
6.6 Conclusion and Next Steps
The results of the study suggest that the Barracks Building could be repaired to a usable condition for just
under $1,000,000 and that there are specific public oriented uses that could feasibly be located in the
structure. For the project to be feasible, however, additional funding sources are necessary to cover the
funding gap identified in Section 6.5 above.
The City of Salem should seek grant funds to cover some of the capital costs of construction. Sources of
such grants include state and federal government agencies and private foundations. The following page
provides a listing of information on the major grant sources that fit the project’s historic and recreational
objectives. Based on the consulting team’s research, the following grants sources represent the most
feasible funding options:
Massachusetts Historic Preservation Projects Fund. Administered by the
Massachusetts Historic Commission, this fund provides reimbursable 50% matching
grants of up to $100,000
National Trust for Historic Preservation’s National Preservation Endowment
offers several grant programs to assist nonprofit organizations, public agencies, for-profit
companies, and individuals involved in preservation-related projects to restore historic
2 The tax credit basis does not include the site costs, equipment, developers overhead and debt service reserve.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
64
buildings and homes. Financial assistance is also available through loans and tax-credit
equity investments.
Save America's Treasures Grants. This program of the National Park Service and
National Endowment for the Arts makes grants to state and local governments for the
preservation of historic properties and cultural artifacts. Historic properties receiving
funds must be nationally significant and be threatened, endangered, or otherwise
demonstrate an urgent preservation need. Grants require a dollar-for-dollar non-Federal
match. The maximum grant is $1 million, and the minimum is $250,000 for historic
property projects.
Lowe's Charitable and Educational Foundation Preservation Fund provides grants
ranging from $25,000 to $100,000 to help preserve historic sites in the northeast United
States.
Additionally, the City could work with the organizations that have expressed interest occupying the
Barracks Building, such as Sail Salem Inc., the Veterans Council, and Salem Coastwatch to determine if
there are other grant sources and/or fundraising opportunities that those organizations could take
advantage of. As the City moves forward with programming the second floor as a function hall, it is
important that the facility be professionally managed.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study 65Table 8 Operating Revenue and Expenses for Barracks Building Reuse Revenue Year 1 2 3 4 5 6 7 8 9 10 Sail Salem Rent $6,000 $12,000 $12,500 $13,000 $13,500 $14,000 $14,500 $15,000 $15,500 $16,000 Non Profit Office Rent $10,838 $21,675 $22,575 $23,475 $24,375 $25,275 $26,175 $27,075 $27,975 $28,875 Function Hall Rent $41,500 $41,500 $43,575 $43,575 $45,754 $45,754 $48,041 $48,041 $50,444 $50,444 Vacancy Allowance (5%) -$2,917 -$3,759 -$3,933 -$4,003 -$4,181 -$4,251 -$4,436 -$4,506 -$4,696 -$4,766 Total Revenue $55,421 $71,416 $74,718 $76,048 $79,447 $80,777 $84,281 $85,611 $89,223 $90,553 Expenses Year 1 2 3 4 5 6 7 8 9 10 Maintenance and repairs $14,520 $15,101 $15,705 $16,333 $16,986 $17,666 $18,372 $19,107 $19,872 $20,666 Utilities $22,176 $23,063 $23,986 $24,945 $25,943 $26,980 $28,060 $29,182 $30,349 $31,563 Insurance $2,288 $2,380 $2,475 $2,574 $2,677 $2,784 $2,895 $3,011 $3,131 $3,257 Marketing/leasing/other admin costs $2,640 $2,746 $2,855 $2,970 $3,088 $3,212 $3,340 $3,474 $3,613 $3,758 Replacement Reserve $2,771 $3,571 $3,736 $3,802 $3,972 $4,039 $4,214 $4,281 $4,461 $4,528 Total Expenses $44,395 $46,860 $48,756 $50,624 $52,667 $54,681 $56,882 $59,055 $61,426 $63,772 Net Cash Flow Before Debt $11,026 $24,556 $25,961 $25,424 $26,781 $26,096 $27,399 $26,556 $27,796 $26,781 Senior Debt Service $19,645 $19,645 $19,645 $19,645 $19,645 $19,645 $19,645 $19,645 $19,645 $19,645 Net Cash Flow After Senior Debt -$8,619 $4,911 $6,316 $5,779 $7,136 $6,451 $7,754 $6,911 $8,151 $7,136 Senior Debt Service Coverage Ratio 0.56 1.25 1.32 1.29 1.36 1.33 1.39 1.35 1.41 1.36 Total Debt Service $22,632 $22,632 $22,632 $22,632 $22,632 $22,632 $22,632 $22,632 $22,632 $22,632 Combined Debt Service Coverage Ratio 0.49 1.09 1.15 1.12 1.18 1.15 1.21 1.17 1.23 1.18 Net Cash Flow After Total Debt -$11,606 $1,924 $3,329 $2,792 $4,149 $3,464 $4,767 $3,924 $5,164 $4,149
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
66
REFERENCES
Bibliography
City of Salem Open Space and Recreation Committee. Plan for Winter Island. Fall 1972. Essex Institute
Winter Island Files.
City of Salem Winter island Study Committee, Excerpts from 1973 Plan for Winter Island prepared with
assistance from Tufts University. Essex Institute Winter Island Files.
City of Salem. Excerpts from Master Plan for Winter Island. Prepared by Wallace Flloyd and others. Circa
1980.
Crane, Pamela, Leslie Shaw, Peter Morrison and Anne Wilder. For the Defense of Salem Fort Lee and Fort
Pickering Conditions Assessment, Cultural Resource Management Survey and Maintenance and Restoration Plan Project
Final Archeological Report. Crane & Morrison Archaeology in association with Gray Architects, Inc.
December 2003
Dempsey, Claire, William Stockinger, Mary Beaudry, Betsy Friedberg and Leonard Loparto. Winter Island
Historic and Archeological District. National Register of Historic Places Registration Form. March 1994.
Fort Lee and Fort Pickering Conditions Assessment, Cultural Resources Survey, and Maintenance and
Restoration Plan prepared by City of Salem and Massachusetts Historic Commission in 2003
Felt, Joseph B. Annals of Salem. W. and B. Ives, Boston. Perley, Sidney. The History of Salem,
Massachusetts. Vol. 1, 1626-1637. 1924 and Volume II, 1638-1670. 1926. and Vol. III, 1671-1716. Sidney
Perley, Salem, MA.
Finch and Rose Salem Historic Preservation maintenance Plan Winter Island Park Draft, June 1998.
Phillips, James Duncan Salem in the Seventeenth Century. Cambridge, Houghton Mifflin Company, the
Riverside Press. 1933.
Pinkham, Harold A., Jr. “Winter Island Salem: Its Use and Abuse.” Essex Institute Historical Collections 118.
1982. pp. 189-199.
Salem Observer. Letters from the Willows, No. 3. Juniper House, Salem Neck, Winter Island. July 27, 1878
Streeter, G.L. The Story of Winter Island and Salem Neck. Essex Institute Historical Collections 33:105-7.
Welch, William, Salem Neck and Winter Island a Story of a Walk Around Salem Neck and Winter Island
Noting Points of Interest and Ancient Nomenclature of the Natural Features. Essex Institute Historical
Collections 33:82-104.
U.S. Coast Guard. Salem Air Station. Coast Guard Magazine April 1937, pp. 3, 30-31. (from official on-line
Coast Guard Bibliography)
Coast Guard and Related Web-sites
Google: US Coast Guard Salem Air Station History
Coast Guard General History Bibliography www. us cg.mil/ history /generalbib.html -
Coast Guard Historian’s Office Official Website www. us cg.mil/ history / -
Coast Guard Aviation History Index www. us cg.mil/ history /AVIATIONINDEX.html
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
67
Official Homepage, Coast Guard Air Station Cape Cod /www.globalsecurity.org/military/facility/cape-
cod.htm
Air Station Salem Armed Forces Day Crash, May 18, 1957 www.check-
six.com/Coast_Guard/Salem_Armed_Forces_Day_Crash.htm
Coast Guard Air Station Salem: fate unknown
Naval Aviation News , May-June, 2004 by Jaimie L. Knife
httpp://findarticles.com/p/articles/mi_m0IAX/is_4_86/ai_117626518
Historic Plans
Original Building Plans, Elevations, and Details
Original architectural and site plans now exist only as microfilm of varying quality at the Cartographic
Branch of the National Archives Records Administration. According to staff there, the original documents
were destroyed after the microfilm record was made due to their large size and poor condition. The
Cartographic Branch was able to provide microfilm copies of the documents listed below. In many cases
the microfilm copies are very hard or impossible to read. For example, the drawing dates appear to be
6/19/25, although the buildings were constructed in 1934. The plans and content are noted below.
1. General Improvements; site plan showing Barracks Building with stairs leading to main entrance on
east façade, facing east to the Hanger, Garage, Dwelling, and Soft Ball Diamond
2. Elevation drawings; #1-100 US Coast Guard Air Station: Barracks Building; 6/19/25; Louis A.
Simon, Supervising Architect (2 copies)
3. Basement and Roof Plans: #1-1 US Coast Guard Air Station: Barracks Building; 6/19/25; Louis A.
Simon, Supervising Architect
- large recreation room takes up entire left room
- laundry room and boiler room center spaces
- shop?? Long narrow room along right side
- storage, rear wing
4. First and Second Floor Plans: #1-2 US Coast Guard Air Station: Barracks Building; 6/19/25; Louis
A. Simon, Supervising Architect.
- Impossible to read
5. Basement Plumbing, Heating, Lighting Plans: #PHL-1-450; US Coast Guard Air Station: Barracks
Building; 6/19/25; Louis A. Simon, Supervising Architect
6. Exterior Details: #1-200: US Coast Guard Air Station: Barracks Building; 6/19/25; Louis A. Simon,
Supervising Architect.
- façade
7. Interior Details: #1-202: US Coast Guard Air Station: Barracks Building; 6/19/25; Louis A. Simon,
Supervising Architect.
- kitchen fittings
- steel stairs
8. Details: #326D; US Coast Guard Air Station: Barracks Building; 6/19/25; Louis A. Simon,
Supervising Architect
- Lighting fixtures
9. Details: #M-370; US Coast Guard Air Station: Barracks Building; 6/19/25; Louis A. Simon,
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
68
Supervising Architect
- Miscellaneous standard details; specifies materials
10. illegible drawing of front façade
Historic Site Plans from City Engineer’s Office
Several old plans of the Air Station are on file at the City Engineers Office which are listed below.
1. U.S. Coast Guard Air Station. Plan showing utility lines to Barracks Building prepared by Treasury
Department Public Works Branch Procurements Division, Rear Admiral C. J. Peoples, Director of
Procurement and dated 6-19-35.
2. U.S. Coast Guard Air Station. Plan of New Barracks and Garage Prepared by Treasury Department
Public Works Branch Procurements Division Rear Admiral C. J. Peoples, Director of Procurement and
dated 6-19-35.
3. U.S. Coast Guard Air Station Plan showing architectural drawings for Barracks Building prepared by
Treasury Department Public Works Branch Procurements Division, W.C. Reynolds, Assistant Director
of Procurement 6-17-35.
4. U.S. Coast Guard Air Station Salem, Plot Plan. Prepared by U.S. Coast Guard First District, Boston,
MA Civil Engineering. C.G. Drawing 6121 and dated 1957.
5. U.S. Coast Guard Air Station Plan showing campus, no titles and dated Noted “Restricted” and dated
2-12-43.
6. Undated, unnamed topographic plan of land showing U.S. Coast Guard Airs Station Salem buildings
and facilities.
7. Plan of Land in Salem, MA prepared for Plummer Home for boys December, 1980 by Essex Survey
Service, Inc.
Historic Photographs
Several Historic Photographs of the Air Station Campus and the Barracks Building were located from
various sources.
Historic Photographs: NARA Still Pictures Branch holdings
These are all aerial views most of which were taken at high altitude and provide less detail than the city
views. None are included in the report.
1. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-367737) 6/10/1942.
Aerial view of Island with Administration/Barracks Building occupying lower right corner. High
altitude (8,000’) provides little building detail; facing southeast.
2. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-367738) 6/10/1942.
Aerial view of Island with Administration/Barracks Building occupying lower right corner. High
altitude (8,000’) provides little building detail; facing southeast.
3. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-367739) 6/10/1942.
Aerial view of Island with Administration/Barracks Building occupying lower right corner. High
altitude (8,000’) provides little building detail; facing southeast.
4. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-367740) 6/10/1942.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
69
Aerial view of Island with Administration/Barracks Building occupying lower right corner. Very high
altitude (15,000’) provides little building detail; facing southeast.
5. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-062797) 4/29/1943.
Aerial view of Island with Administration Building/Barracks occupying upper left corner. Very high
altitude provides little building detail; facing northwest.
6. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-062798) 4/29/1943.
Aerial view of Island with Administration Building/Barracks occupying upper left corner. Very high
altitude provides little building detail; facing northwest.
7. US Coast Guard Air and Sea Station, Winter Island, Salem, Mass. (neg. #80-G-062799) 4/29/1943.
Aerial view of Island with Administration/Barracks Building occupying upper left corner. Very high
altitude provides little building detail; facing northwest.
Historic Photographs: Other
1. Barracks Building circa 1943.
View of front façade with plane flying overhead. Source: local resident, Kevin Cornacchio
2. Barracks Building circa 1943.
View of front façade with portion of hangar and wind sock. Source: Kevin Cornacchio
3. U.S. Coast Guard Air and Sea Station, Winter Island, MA. Peabody Essex Museum.
Plan showing view of Air Station from the former ramp circa 1952.
4. U.S. Coast Guard Air and Sea Station, Winter Island, MA. Views of Servicemen on Ramp and near
Hangar Building. Date unknown. Source U.S. Coast Guard.
U.S. Coast Guard Barracks Building Re-Use Feasibility Study ATTACHMENT 1 Historic Plans and Photographs
U.S. Coast Guard Barracks Building Re-Use Feasibility Study
Historic Photographs from U.S. Coast Guard and World Wide Web
ATTACHMENT 2
List of Servicemen Who Perished While Based at Air Station Salem
The following is a list of servicemen who lost their lives serving their country while stationed at the U.S. Coast
Guard Air Station Salem. The list was provided by local resident and historian, Mr. Douglas Sabin.
Name Date of Death
Herbert Stanley Hale June 20, 1940
Edward T. Werner April 3, 1942
Robert J. Lafferty April 16, 1942
S. J. Jarapchak April 16, 1942
W.A. Boutillier April 16, 1942
C.R. Byrd September 21, 1943
Joseph F. McCue November 13, 1952
Henry J. White November 13, 1952
John J. Kohan June 24, 1956
Harold W. Wooley June 24, 1956
Leo J. Richard June 24, 1956
Albert P. Hartt, Jr. May 18, 1957
William J. Tarker May 18, 1957