WaterFRONTiers

By Rob Marino
Friday, June 6, 2003

From a comprehensive strategic plan to potential development projects, the future of Newburyport's waterfront is a work in progress

From Joppa Park on Water Street to Yankee Landing on Merrimac Street, Newburyport's waterfront likely will see some changes in the not-too-distant future.

Plans for an inn, bed and breakfast and a seafood handling business are just some of the projects being eyed along the Merrimack River, as well as expanded public access along the waterfront. However, strategy plays an important part in how these potential projects and improvements evolve.

With a broad spectrum of community feedback in hand, city planners, in conjunction with the Harbor Commission and the architectural and design firm Goody, Clancy & Associates, are developing a plan that seeks to capture the area's full potential and encompasses a real understanding of working waterfronts, land use relationships and implementation.

"This process can set the framework for redevelopment of underutilized properties, enhancing connections to the waterfront and contribute directly to the enhancement of open space along the Newburyport waterfront," wrote GC&A's David Spillane in the firm's proposal to the city. "We believe that this plan must both shape the framework for the future and build community support and enthusiasm for both near-term and long-term actions by the public and private sectors to make the plan a reality."

Back during the administration of former Mayor Lisa Mead, the city received a $50,000 grant from the state Coastal Zone Management through the Seaport Bond Bill to do some harborfront planning, explains Planning Director Nick Cracknell. That money hadn't been used, however, and would have expired the end of this fiscal year. Now, the city's planning office is making good use of that money to update the city's harborfront management plan, which was established in the late 1980s.

However, the strategic plan being developed, which examines the waterfront from Joppa Park to Yankee Landing Marina, goes further than simply updating the original harborfront management plan.

"We hope we can refine the goals and objectives of both the 1989 waterfront management plan as well as the 2002 master plan within this target area," Cracknell says. "Then we can begin to work through a review of alternatives and implementation strategies for particular public and private projects and hopefully come up with some suggested land use revisions that the city would be able to implement over the next six to 12 months."

Community input has already played an important part of the process, Cracknell points out, with well over 35 people in attendance at two public workshops in April and May. Those present represented a wide variety of interest groups, including Friends of the Cashman Park, city officials, local residents and boaters.

As part of the first public workshop in April, the waterfront area included in the plan was broken into four distinct pieces, Cracknell says. The first area is the North Water Marine Dependent Zone, which runs from Yankee Landing Marina to the Towle Building on Merrimac Street. The second focus area, the Central Water Marine Dependent Zone, runs from the Towle Building past Cashman Park to Route 1. The third entails the Water Mixed Use Zone, which stretches from Route 1 through the central waterfront and Market Square to the Coast Guard Station on Water Street. The fourth area includes the South Water Marine Dependent Zone, which runs from the Coast Guard station to Joppa Park.

"The Water(front) Mixed Use Zone is more of an urban district," Cracknell says. "It has a different array of uses and a different set of dimensional and density requirements that are more urban in nature than the water marine dependent zones which are almost like bookends to the more active and urban zone that's laid out."

Testing the waters

"What we did in that first broad brush was test the waters on what people were thinking and what should be done in the target area. Essentially, what are the issues," Cracknell says about the initial workshop. "And a lot of them came up that we hadn't even thought of."

For instance, workshop attendees clearly expressed concern about residential encroachment onto boatyards in the North Water Marine Dependent Zone. Currently, one-third of the marina land in that zone can be developed as residential.

"The fact that the boat yards were so precious was not as explicit to us prior to the workshops," Cracknell says. "There was considerable consensus that boat storage is a valuable commodity in Newburyport and we need to be very careful, especially in outlining marinas. One of the supporting recommendations of the participants was that we limit free-standing residential encroachment within those areas."

"They want to protect them. They don't want to see them sort of whittled away," says GC&A project manager Herb Nolan. "It's going to require a careful re-examination of the zoning laws that govern those area along the waterfront."

However, there was also some discussion of possibly permitting mixed uses or limited upper-floor residential units, provided such use of space doesn't compete for limited land. Restaurants were also suggested.

"There was some discussion of having a small inn or some accommodations within the area and I think that was fairly well supported, providing it did not displace a lot of the parking," Cracknell says. "So there's a real delicate balance there. The community wants to support and see these marinas thrive, but there's also recognition that in order to have them thrive, they may need some ancillary support."

Ron Guertin, who owns Yankee Landing, has spent well over $100,000 making improvements to his marina, which has a north and south pier. In addition to a new single-family house on one side of the marina, Guertin says the north pier has been rebuilt. Rusty machinery and unsightly boat lifts that once cluttered the portion of waterfront have been replaced with landscaping and a large American flag.

"We're going to town and we've been busy as a bugger," Guertin says. "We've done an incredible job. If you went down to see the place, you wouldn't believe it."

Guertin, who bought the property in February 2002, initially planned 12 condominium units for the marina, but the project was rejected by the Zoning Board of Appeals. However, Guertin, who's done close to 100 rehabilitation projects on local buildings and properties, says he hopes to appear before the city boards later on this year for approval to build a seasonal bed and breakfast as part of a mixed-use approach. Guertin says he already has the necessary permits to build a marina office on the property.

"I think we have a pretty good calling for that," he says. "I think real good things are happening, and I'm really happy to be a part of Newburyport."

Park parking

As for the Central Water Marine Dependent Zone, a lot of discussion during the workshops took place about Cashman Park, Cracknell says. An idea floated by the Harbor Commission to put in a city-owned marina at the park or a marina that could be leased to generate revenues for the harborfront was sunk by workshop attendees.

"It was pretty clear that there didn't seem to be support for that," Cracknell says. "Adding a marina would just be too much and it would take away from the open waterfront, because this is one area where you don't have a marina in front of the water.

"The neighborhood and the folks that live over in this area felt Cashman Park is a wonderful resource that's working very well, but it was either at or near capacity, so you really couldn't introduce new uses there."

Parking issues at the waterfront park were also addressed since virtually all of the parking is for boat trailers. There's only six spaces for automobiles. Many workshop attendees supported the idea of exploring shared parking with the nearby Towle Building.

"There's been a lot of discussion about the Towle property because it's no longer an industrial property. It's been transitioned into a commercial property," Cracknell says. "People really felt that we should have shared parking with the Towle Building, because they don't use it all weekend and it's a huge resource for that park."

While the parking lot of the Towle Building is zoned water marine dependent, the actual building is zoned industrial, Cracknell says. First Republic, the corporation that owns the building, is looking at providing an ancillary use, such as a café or some type of food service. In addition to expanding the existing building's use, First Republic may consider constructing additional buildings for new residential use on the property.

While the status of any new development on the property is unclear, Cracknell says the owners of the Towle Building have expressed interest in sharing its parking space on the weekends with park goers. While Cracknell stresses that there are no guarantees, he also says First Republic is keeping an open mind to possibly opening up its waterfront space to the neighboring North End Boat Club so that it could expand its marina operations.

The park also includes a fairly new "harbor walk" along the river's edge, Cracknell says, adding, "We want to get that trail finished and back to Merrimac Street. There's a lot of discussion about what a great resource it is. We not only need to tie it back to Merrimac Street, but we also need to tie it into the central waterfront." (See related story.)

The inn crowd

Moving onto the Water Mixed Use Zone, Cracknell says a group of developers, including Chuck and Ann Lagasse, is interested in redeveloping the area near the Route 1 bridge that includes Michael's Harborside Restaurant, Windward Yacht Yard, Hilton's Fishing Dock and Richard's Brake and Alignment.

"The challenge is how best to redevelop these properties and obtain the most beneficial public improvements," Cracknell says. "What we got out of the first public workshop was that we should continue the quality and character of development that's in the central business district on State Street and in Market Square. I think that it was a real benefit to be able to get out in front with this study and see what the general public, again from this spectrum of interests, feels should be done there, because the zoning might not represent the interests of the public as to how we're going to get amenities like parks, waterfront access, alleys, brick sidewalks and period lighting.

"There was a healthy discussion about making sure when it gets redeveloped that not only does it expand the vernacular of the downtown, but that we've got to make sure that we preserve these water dependent and water related uses that are there," Cracknell adds.

"They understand that development is coming and they want to see it reflect the historic character of Newburyport without necessarily mimicking it," Nolan says. "And they want clear public access down to the waterfront. I think people are very excited about the potential and they want to see it go forward, but with the right character."

Nolan adds that many participants at the public workshops supported the idea of extending Market and Green streets across Merrimac Street and down to the waterfront for greater public access.

"We're looking at the zoning right now to make it coincide with the vision that people have developed for the waterfront," Nolan says. "The zoning really needs work, because it doesn't support the kind of ideas that people have brought forward. We have to look at the zoning and customize it so that people can build in a way that reflects the historic character of Newburyport. These aren't huge changes, but it needs to be done to make sure that zoning doesn't get in the way and prevent developers from doing what the people want them to do."

While no official plan has been announced, it appears that a mixed use similar to what's in the downtown now is the focus of the proposed redevelopment area. In addition to retaining water- related uses, new buildings with retail and office space on the first floors and residential uses on the upper floors are a likely possibility. Plans for a restaurant and an inn have also been suggested.

"The city wants to look at the future, which is a positive thing, and we want to look out with them and work with the owners down there to try to do the right thing," says Chuck Lagasse about the area eyed for redevelopment. The Lagasses bought Michael's Harborside Restaurant a few years ago in hopes of improving and rehabbing it.

"When you look at historically what was there, it's been a combination of boatyards, marinas and large mixed-use buildings. I think as the city looks forward, it will envision more of what makes Newburyport work and what makes Newburyport special and that's marine uses and mixed uses. I think all of the owners down there feel the same way," Lagasse continues. "What makes the downtown work is that we've added a lot apartments on the upper floors and we have people working and living in downtown. It makes it a lively downtown."

Over the years, the Lagasses have been instrumental in restoring many of the downtown's historic buildings (see related story). While they have received much praise and support from the community for their efforts, they're also familiar with the face of opposition. They are still wading through a long Land Court process regarding their plans to build a 68-room waterfront inn, restaurant and conference area on the former Atkinson Lumber Company property, which is now the home of Oldies Marketplace. Abutter Bennett and Co. appealed the project's city and state approvals.

Last December, the Lagasses won the appeal regarding their state Chapter 91 waterways license. "Now, we're just waiting for Land Court," says Ann Lagasse. "We're plugging away on this and this is hopefully going to come up for a review shortly."

While some eyes seem to be wandering toward the proposed redevelopment area around Michael's Harborside as a possible location for an inn, the Lagasses say they're still interested in building an inn on the former Atkinson property.

"We've got plenty of time," says Ann Lagasse. "Even when we get to Land Court, it's not going to be a quick, overnight decision. But we're definitely going to still pursue it and are very enthused, because we know the market is very strong for it. We have a beautiful community and people want to stay here. We're very confident about its success."

Bill Piercey, who heads up the Newburyport Chamber of Commerce, says that with less than 60 rooms in the city, overnight accommodations in the downtown are desperately needed.

"People ask the Chamber every day why isn't there any accommodations on the waterfront," Piercey says. "To me, this would be a tremendous revenue generator for the city and it would add to the economic vitality of the downtown. In light of where the city is today with their budget constraints, new revenue sources are what they're trying to identify, and what better revenue source than an inn?"

Gone fishing

As for the South Water Marine Dependent Zone, participants at the public workshops favored moving forward with the rail trail project, Cracknell says. They also supported improvements to the city's commercial fishing "pier" in a way that creates greater public use.

"There's strong support for pushing forward the improvement plans for the fish pier that were not fully executed five to 10 years ago," Cracknell says. "They don't have a lot of space there now, because there isn't enough water in the embayment. They cannot go in there now unless it's high water, so it needs to be dredged and blasted where there's ledge. We also need to construct a pier."

Cracknell and Senior Project Manager Geordie Vining recently met with several fisherman from the local fleet who supported making improvements to the pier as well as incorporating it into the more public realm.

"We brought the boardwalk right down to it now with the expansion," Cracknell says about the boardwalk extension project. "What we'd like to do is work with the fisherman to create a well, nice-designed storage shed for their nets, clean up their parking area and have them really be on display. They think it's appropriate that the public, including kids, can come right up and see the boats and smell the boats."

In addition, Dick MacKenzie, who owns Mackenzie's Wharf, adjacent to the Coast Guard Station, has plans for a seafood handling business. His is the only local marina that makes and sells saltwater ice for fisherman along the Merrimack River in Newburyport. He also sells bait and fuel. Currently closed during the winter months, Mackenzie says building a new 4,160-square-foot fishery will allow him to operate year round and expand his business to include the direct wholesale of seafood.

Currently, the refrigeration equipment at the marina isn't large enough for a direct seafood wholesale business. "Without good refrigeration, I can't keep a constant supply," he says. "We don't have enough room and it hampers our business considerably."

However, the new building will provide refrigeration equipment ample enough for the direct wholesale of all types of seafood as well as greater fish processing capabilities. Another building on the property has already been constructed for a restaurant and retail space. Mackenzie says he already has his city approvals to build the new fishery, but that he is still waiting for the approval of his state Chapter 91 waterways license. He expects to be up and running next spring.

In addition to supporting Mackenzie's new business venture, Cracknell says the Mackenzie's Wharf property is one possible spot for the relocation of the historic Front Range Light. The Coast Guard has turned ownership of the lighthouse over to the city ,and it must be moved off the Coast Guard property, which is next door.

"We're trying to fold it into this planning process so we can identify an appropriate spot to put it," Cracknell says.

With a June 30 deadline for completing the plan, GC&A is moving forward with examining the public input from the two public workshops to come up with some design guidelines and zoning recommendations for the waterfront area as part of the final plan. A final public workshop is slated to take place next week.

"It's the essence of Newburyport that we're showing in this plan," Nolan says. "The city is getting ready to move forward with a positive plan and one that reflects the special and unique character of Newburyport, and that's a wonderful thing."