Final Report June 2000MAYOR'S BLUE RIBBON COMMISSION
ON NORWOOD POND
FINAL REPORT
JUNE, 2000
Kevin Burke
Todd Lampert
Virginia McGlynn
Donald G. Martin, Chairman
Neiland Douglas, Vice-Chairman
Tina Cassidy
David Lang
Joyce McMahon
William Frost
J. Michael Lawler
Bruce Nardella
MAYOR SCANLON'S CHARGE
Mayor William ScanIon formed the Mayor's Blue Ribbon Commission on Norwood Pond (Norwood Pond
Commission) in the fall of 1997 with the charge to recommend land use options for the Norwood Pond area.
A major part of the impetus for its formation was a $5 million pledge from the State toward the design and
construction of an overpass, interchange, and roadway system, total cost of which in 2000 dollars for the April
2000 conceptual plan, stands at approximately $11-12 million.
ORGANIZATION
Mayor ScanIon appointed eleven members to the Commission:
Donald G. Martin (Chairman) - Ward 5 Councilor representing the entire affected area
Neiland Douglas (Vice-Chairman) - expert on land use planning
Kevin Burke - District Attorney and closely identified with youth sports and facilities
Tina Cassidy - City Planner and link to the City
William Frost - member of Norwood Pond Association
Todd Lampert - closely identified with youth sports and facilities
David Lang - Conservation Commission Chairman and qualified geo-technical expert
J. Michael Lawler - neighborhood representative
Virginia D. McGlynn - Ward 4 Councilor representing parts of Brimbal Avenue neighborhood
Joyce A. McMahon - Councilor at-Large and link to the Economic & Community Development Council
Bruce Nardella - former city council president and resident of one of the abutting neighborhoods
SCOPE OF STUDY
In 1997, Governor Cellucci pledged $5 million to the City of Beverly for the design and construction of an
overpass over Rte. 128, improvements to the Brimbal Avenue interchange and the construction of a new access
road to the former city landfill.
The study area was delineated to include all geographic areas north and south of Rte. 128 which would be
served by an improved road system from Rte. 128 and Brimbat Avenue. This area embraces the following:
(1) A large undeveloped area including Norwood Pond consisting of city-owned property accommodating the
water tower and the former planned North Shore Community College campus site.
(2) Several privately owned parcels of land north of Rte. 128 zoned for restricted industrial use including
properties owned by the Essex County Newspapers, Hasbro, North Shore Music Theatre and Maestranzi
Brothers.
(3) Several privately owned parcels of land south of Rte. 128 zoned for restricted industrial use including
properties owned by Cycles 128, Santin, Beverly Hospital, Vittori-Rocci Post, Maestranzi Brothers and Sunoco.
(4) The city-owned, former municipal landfill south of Ronte 128.
The entire study area embraces approximately 377 acres of land.
See Exhibit A.
FORMER LANDFILL
The City entered into an Administrative Consent Order with the Department of Environmental Protection (DEP)
that called for the former landfill to be capped by November 1999 and assessed substantial monetary penalties
for violation of the decree.
In order to learn more about the former landfill, the Commission conducted a site visit to the property on April
25, 1998. The Commission discovered that the leachate pump, which pumps leachate from the landfill into the
sewer system, was not functioning. One Commission member noted that the leachate pump system had been
installed in 1973, but had been identified as non-functional since 1983. At the request of the Commission, the
pump was replaced, and a back up was purchased, allowing the leachate to once again be pumped into the sewer
system. The City also installed an emergency overflow switch that will send a signal to the Beverly Department
of Public Services if there is a malfunction.
The City was faced with an October 15, 1998 deadline from DEP to determine a use for the landfill after it was
capped. The Commission met with representatives of the City's landfill design consultant, Malcolm Pirnie, to
discuss possible land uses for this area on August 5, 1998. The Commission was presented with three options.
Category 1 called for the closure of the landfill with no future Use. The cost of this option was approximately
$5 million. Category 2 called for the closure of the landfill with passive recreation end use. The cost of this
option would have been an additional $500,000 for a total project cost of approximately $5.5 million. This
option, once implemented, would require an additional expenditure of $500,000 for additional amenities
including a parking lot and landscaping. Category 3 called for the closure of the landfill with immediate active
recreation end use. The cost of this option was estimated at an additional $1 million for a total of $6 million.
This option would require an additional expenditure of $500,000 for an active gas flare and collection system.
The Commission recommended to the Mayor that a simplified, less expensive version of Category 2 (passive
recreation, including wetlands, ledges, trails) be pursued as a post-closure plan for the former landfill. After
further review and research, in January 1999, the Mayor committed the City to constructing playing fields on
the former landfill once all environmental concerns had been met. The City' s five-year capital expenditure plan
(FY2000 - FY2004) calls for the City to conduct a risk assessment of the capped landfill in FY2001 at a cost of
up to $100,000.
MEETINGS WITH BUSINESS OWNERS
In order to be better informed of the affected private businesses' long-term development and expansion plans,
and to enhance better communication between the City and these individuals, the Chairman and Vice-Chairman
met with representatives of Maestranzi Brothers, North Shore Music Theater, Hasbro (formerly Parker
Brothers), Essex County Newspapers, Cycles 128 and the owner of a leasehold interest in the Burger King
property. The business owners and/or representatives were interested in possible transportation improvements
to the entire Brimbal Avenue/Rte. 128 interchange. Each business pledged to work with the Commission and
the City as the overpass/interchange project unfolds.
TRANSPORTATION IMPROVEMENTS
The state allocated up to $500,000 in engineering funds for the City to prepare preliminary design analysis and
studies related to infrastructure improvements for the proposed overpass. The City hired the engineering firms
Highway Traffic and System Design (HTSD) and Greenman-Pedersen to design the overpass and work on
transportation improvements at the Rte. 128/Brimbal Avenue intersection. Any proposed overpass design will
call for the dead-ending of Dunham Road after the last home and before the Essex County Newspapers and
should alleviate the traffic problems on Brimbal Avenue and Dunham Road. The consultant's scope of services
includes preliminary base mapping, structural components, surveying, traffic studies and overpass/interchange
design concepts. A public information meeting was sponsored by the City's Engineering Department on April
13, 2000. A presentation was made on the latest conceptual design and potential timeline for the project.
See Exhibit B for a summary of the project and a copy of the latest project design prepared by Highway Traffic
and Signal Design, Inc.
ECONOMIC IMPACT ANALYSIS
In order to determine how much development could occur with an overpass and interchange improvements, the
City's Economic and Community Development Council (ECDC), conducted an economic impact analysis for
the Norwood Pond/landfill area. The ECDC worked cooperatively with the City's engineering consultants from
HTSD regarding a determination of the development potential within the study area. The analysis identified
about 58 acres of land zoned for light industrial use north of Route 128. Excluded from the analysis were the
North Shore Music Theatre property (26.1 acres) and all property south of Route 128, including approximately
13.2 acres of industrial land, which is available for development (i.e. Maestranzi, Cycles 128, Santin, Sunoco
and Beverly Hospital). This limited ECDC analysis estimated potential tax revenues from industrial
development in the range of $640,000 to $800,000 per year. Again, excluding any impact from properties south
of Route 128.
The report also notes that certain quality of life benefits would also result from the development of the
overpass/interchange project. The members of the ECDC unanimously approved the report on September 2,
1999.
See Exhibit C for a copy of the ECDC's report.
CLEAN-UP OF NORWOOD POND LAND AREA
At the request of the Norwood Pond Commission, the Department of Public Services conducted a one-day clean
up of the entire Norwood Pond site. A number of Commission members and private citizens joined city
workers in removing significant amounts of heavy debris from the site. Although progress has been made,
additional resources are needed to eliminate all remaining debris.
4
WETLANDS DELINEATION STUDY
At their January 6, 1999 meeting, the Commission requested that the Mayor appropriate funds for a wetlands
delineation study of the entire Norwood Pond land area. This study will show what land around the Pond is
suitable for recreational use. At this time, the study has not been conducted. The Commission strongly
recommends that the City undertake this project in the near future.
NORWOOD POND
In 1998, the City with the assistance of the Norwood Pond Association received a grant from the Department of
Environmental Management to conduct a Feasibility Study of Norwood Pond and develop pond management
recommendations for the City. The City hired Baystate Environmental Consultants to perform the study.
Overall, the study showed that the water quality is satisfactory but excessive vegetation may be a problem in the
future. Norwood Pond is not getting excess nutrients from the watershed, however, it contains a lot of nutrients
in its sediment. This sediment is contributing to the growth of aquatic weeds and causing it to "eutrify" or
transform into a bog.
The final report from Baystate Engineering stated that the most effective approach for maintaining its "pond"
status includes the following principal elements:
1. Reconstruction and stabilization of the dam to reduce leakage.
2. Implementation of Best Management Practices throughout the watershed to limit future phosphorous
introductions into Norwood Pond.
3. The design and implementation of a hydraulic dredging program for the lake to remove the nutrient-rich
organic sediments and weeds and to deepen the water body and limit potential re-growth. The preliminary cost
of dredging Norwood Pond is estimated to be $2 million.
RECOMMENDATIONS FOR NORWOOD POND
The Commission on December 1, 1999 approved the following recommendations:
1) Recommend that the Mayor and City Council appropriate funds to hire a consultant to conduct a "Feasibility
Study and Implementation Plan on Preserving Norwood Pond" for passive and recreational uses and to evaluate
appropriate spillway control measures and the feasibility of dredging Norwood Pond, consistent with future
recreational uses of the pond.
2) Recommend that the Mayor and City Council take the necessary steps to repair the dam at Norwood Pond
immediately.
3) Draft a letter to the City's Open Space and Recreation Commission requesting that the dredging of Norwood
Pond - if recommended by the "Feasibility Study and Implementation Plan on Preserving Norwood Pond" - be
considered a high priority in the City's new open space and recreation plan.
4) Draft a letter to the Planning Board recommending that it consider incorporating the Commonwealth's storm
water management regulations/Best Management Practices into its subdivision rules and regulations, and that
the site plan review section of the zoning ordinance be amended to require the same provisions for all new
developments in the City.
RECOMMENDATIONS FOR NORWOOD POND LAND AREA
Based upon the work completed by the Commission, there are several findings, which would give direction to
the formulation of a land use plan for this study area.
1 ) The most productive improvement to the area's road system would entail the redesign and upgrading of the
entire Brimbal Avenue/Rte. 128 interchange. Such improvements should be directed to provide direct
access/egress to northbound/southbound Rte. 128 from the study area. The Commission would therefore
anticipate the planning for a new interchange road system to achieve this objective. (Recommendation passed 7-
2. Voting in favor: Martin, Douglas, Cassidy, Lawler, McGlynn, McMahon, Nardella. Opposed. Frost, Lang.)
2) The quality of residential and economic life in the City of Beverly is sustained and enhanced by its unique
waterfront, open space and industrial land resources. These resources are limited and the policies governing
their effective utilization and/or preservation will dictate the nature and attractiveness of our community in the
future. The study area is largely comprised of open space and water resources, and to a lesser degree, by
industrially zoned land. In this regard, the Commission does not believe that any productive purpose can be
achieved with the development of city-owned property surrounding Norwood Pond for any use other than its
preservation for open space and recreation. Further, the Commission would also endorse the objective of the
Baystate Engineering Report to preserve Norwood Pond and its surrounding wetland area. Such public
initiatives should benefit all residents of the City through the provision of public access to this large land area in
a manner that is not invasive to surrounding neighborhoods. Thus, the Commission would encourage the City
to negotiate limited public use of privately-owned parking areas adjacent to the Norwood Pond site to facilitate
use of the City's land by the public. Approximately 188 acres of land, or 53% of the study area, has been
identified for open space and passive recreational use. (Recommendation passed unanimously.)
3) While open space and recreation are central to the quality of life in Beverly, so too is the viability of its
economy and the fiscal stability that a healthy business environment can bring to the government of this City.
However, there must be a balance and restraint in this pursuit, as there must also be respect for the right of
private property owners to utilize their land for purposes that would be allowed under current land use policy.
In this regard, the Commission is aware of the interest of several property owners to enlarge their business
facilities and the light industrial use of their land holdings. While the scope of such development is not fully
known at this time, it is clear that such development cannot proceed without upgraded road infrastructure and
utility systems. More importantly, these property owners have indicated their willingness to consider additional
investment to assure improved access and egress and the provision of sewer and water facilities to serve the
area. Such initiatives carmot be taken lightly for public/private cooperation is fundamentally important to the
future economic health of the City. For this reason, the Commission would affirm the advancement of a
cooperative planning strategy encouraging the City and the property owners to work collectively to develop a
comprehensive development plan supported by an expanded interchange roadway, which will provide the
infrastructure required to meet their development needs. The scope of the light industrial area has been
estimated at 95 acres or 25% of the study area. (Recommendation passed unanimously.)
4) The North Shore Music Theatre represents a singular cultural attraction in the performing arts serving the
population of this region. Hundreds of thousands of people attend these performances every year and the season
has expanded from three months to nine. The contribution of this program to the betterment of the North Shore
region cannot be minimized. This theatre and its growing constituency of supporters are rooted in the study
6
area. The theatre cannot be relocated and its growing demand for an adequate system of access and egress
cannot be downplayed. The Commission would therefore affirm the continued development of this cultural
facility in Beverly and would anticipate its support through a new system of access and egress directly to Rte.
128. Such relief would not only remove all institutional and industrial traffic from the residential portion of
Dunham Road, but at the same time, remove a major portion of this same traffic from Brimbal Avenue as well.
Additionally, these improvements would considerably improve the dangerous traffic and safety issues, which
have long plagued this area, while at the same time, greatly improve the quality of life for the residents of this
area. The theatre property represents 26.1 acres of land or nearly 7% of the study area. (Recommendation
passed unanimously.)
5) The need for development of new and expanded recreational facilities in Beverly has been underscored by the
City's Recreation Commission and its scores of volunteer workers who provide active recreational programs for
both the City's youth and adult populations. For this reason, the Commission would urge the City to install
three to four lacrosse/soccer/softball fields on top of the former landfill together with the selective use of some
abutting parcels for the immediate development of active recreational facilities. The Commission would
encourage the City to negotiate with abutting property owners for the selective use of abutting parcels for active
recreational use. In addition, the Commission would recommend the City explore placing playground
equipment, picnic areas, canoe launches and hiking trails around Norwood Pond itself. The area recommended
for active recreation embraces approximately 44.2 acres or nearly 12% of the study area. (Recommendation
passed unanimously.)
6) The Commission also recommends construction of one or two ballfields behind the North Beverly
Elementary School. However, discussions relating to the placement of any recreational facilities behind the
renovated school need to be held with the abutting neighborhoods, especially if there will be no direct access
from an overpass. Measures to prevent unreasonable traffic, parking and safety issues from affecting the quality
of life of residents in Putnam Street and Dodge's Row neighborhoods must be taken prior to use of the North
Beverly Elementary School site for active recreation. (Recommendation passed 8-1. Voting in favor:Douglas,
Cassidy, Frost, Lang, Lawler, McGlynn, McMahon, Nardella. Opposed. Martin.)
7) The Commission recommends that City's Parks and Recreation Commission and the Open Space and
Recreation Committee, be charged with designing specific active and passive recreational improvements for this
entire area, with final approval by the Mayor and City Council. The Commission envisions that nearly two-
thirds of the study area will be set aside for open space and passive and active recreation.
These findings illustrate the great potential inherent in the land resources of the study area. In substance, the
Commission would underscore the importance of preserving one of Beverly's remaining interior ponds, vernal
pools and its surrounding land affirming its use for open space and recreation and the assurance of public
access. The Commission would stress the importance of allowing one of the City's few remaining industrial
areas to be more fully developed in ways respectful of the unique environmental assets, which embrace its
districts. Any development adjacent to Norwood Pond should be sensitive to this fragile eco-system. Further,
the Commission applauds the past and future contributions of the North Shore Music Theatre to the
entertainment and cultural enrichment of the region's population and would anticipate and support its future
growth in this area. Finally, the Commission would not overlook the City's need for active recreation resources
and would seek to develop recreational facilities at a minimum on land south of Rte. 128. See the following
summary table of recommended land uses.
Land Use Recommendations
Norwood Pond Study Area
Use Lot and Block Area (in acres)
OPEN SPACE
(a) Underground Reservoir 81 61B 58.4
(b) Passive Recreation
Norwood Pond/ 82 9 46.2
City Property 74.7
Camevale/et al 81 191 19.3
Sub-Total 140.2
(c) Active Recreation
North Beverly School 81 61A 5.9
Landfill Area 56 36 30.3
Maestranzi 35 18 (part) 8.0
Sub-Total 44.2
Total Open Space 242.8
% of Total
64.4
RESIDENTIAL
Dunham Castle
White
Total Residential
69 1 4.9
56 22 .2
5.1
1.4
INDUSTRIAL AREA
Essex County Newspapers 69 2A 6.0
Hasbro 69 2 55.0
Naugler 69 5 1.3
Maestranzi 69 4 1.5
(north of Rte. 128) 69 6 1.3
69 7 9.0
Maestranzi 56 35 (part) 10.0
(south of Rte. 128)
Use
Cycles 128
Santin
Northeast Health
Total Industrial
Lot and Block
56 20A
56 20B
55 24
55 20
COMMERCIAL AREA
Vittori 55 19
Sunoco 55 21
Texaco 55 23
Burger King 55 26
Cycles 128 55 20
Total Commercial
ARTS & ENTERTAINMENT AREA
North Shore Community 69 3
Arts Foundation 69 34
Total Arts & Entertainment
Total Area
Area (in acres)
1.2
2.0
3.0
94.7
1.3
2.0
.3
3.2
1.3
8.1
24.8
1.3
26.1
376.8
% of Total
25.1
2.2
6.9
100.0
9
CONCLUSION
It is clear that the cost of the projects discussed in this report, including prospective recreation, land
preservation, pond restoration, road and infrastructure development requirements, represent a major financial
challenge for the City. well exceed the resources currently available to the City. Yet, it is equally clear that the
environmental, social, cultural, recreational and economic benefits which would accrue to the community and
its surrounding region would fully justify subsequent initiatives to bridge any funding deficiencies. We would
therefore call upon the state to address the urgent need to fully upgrade the access and egress systems serving its
interstate roadways in the City, to correct adverse safety conditions, to accept responsibility to pay for these
improvements and to set forth a capital expenditure program which would allow the commencement and
ultimate completion of the interchange project at Brimbal Avenue.
We would urge the City to form new coalitions which would explore all federal, state and private funding
sources, including local property owners, to generate the plans and resources required to preserve Norwood
Pond and its surrounding city-owned land and to develop this area as a passive recreational facility. We would
anticipate a clear and significant commitment by institutional and industrial land owners to support and pay for
the needed public utility systems required to support the full economic development of their properties. Finally,
the City is urged to advance its planning for the future development of the former landfill area and surrounding
properties as an active recreational complex. Provision for such a program should be incorporated into the
City's Capital Expenditure Plan.
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EXHIBIT A
Map of Study Area
EXHIBIT B
Conceptual Design
Overpass/Interchange Project
April 2000
PROPOSED INTERCHANGE AND INFRASTRUCTURE IMPROVEMENTS
Proposed Interchange and Access Road
The proposed access road would provide access to the Norwood Pond
area from Brimbal Avenue. The access road would depart Brimbal
Avenue south of Route 128, at the vicinity of the intersection with Otis
Road, and follow the existing layout of Otis Road northerly and pass over
Route 128 and eventually tie into the existing site drive at Parker
Brothers. The typical cross section of the access road would be a 2-lane
section, consisting of 1 - 3.75 m (12.3 ft.) through lane in each direction,
2 - 2.50 m (8.2 ft.) shoulders and a 1.75 m (5.7 ft.) sidewalk located on
the east side of the roadway. The total width would be 14.25 meters
(46.8 ft.).
The proposed bridge would be located approximately 500 meters (1,640.4
ft.) east of the existing Brimbal Avenue bridge. The typical cross section
of the proposed bridge would be a 3-lane section consisting of 1 - 3.75 m
(12.3 ft.) through lane in each direction, 2 - 2.50 m (8.2 ft.) shoulders, a
3.75 m (12.3 ft.) exclusive back to back left turn lane and a 1.75 m (5.7
ft.) sidewalk located on the east side of the roadway. The total width
would be 18.0 meters (59.1 feet).
Access to Parker Brothers, Dunham Castle condominiums, the North
Shore Music Theater, Essex County News, Maestranzi Brothers and
Naugler Engineering would be provided off of the access road. New on
and off ramps from Route 128 northbound and southbound would
intersect with the access road. The Route 128 northbound on and off
ramps would utilize the existing rest area road right-of-way. Access to
Burger King would be maintained with additional access being provided
off of Route 128 southbound via the access road.
Three traffic signals are being proposed along the access road; one at the
intersection with Brimbal Avenue, the second at the intersection with the
Route 128 northbound on/off ramps and the third one at the
intersection with the Route 128 southbound on/off ramps. In addition,
an unsignalized intersection would be located approximately 110 meters
(360.9 ft.) north of the Route 128 southbound on/off ramps at the
proposed frontage road.
Three existing on/off ramps from Route 128 would be removed; the
Route 128 northbound on-ramp from Sohier Road, the Route 128
southbound off-ramp to Brimbal Avenue, and the Route 128 southbound
on-ramp from Brimbal Avenue northbound. The existing Route 128
northbound off-ramp to Sohier Road and the slip ramp off of Brimbal
Avenue to Route 128 southbound would remain.
Dunham Road / Proposed Frontage Road
Dunham Road would remain as existing from the intersection with
Brimbal Avenue to the Essex County News. Here Dunham Road would
be dead-ended and access to the businesses located at the eastern end of
Dunham Road would be prohibited from this street. Access to those
businesses would be provided off a proposed frontage road.
The proposed frontage road would depart the access road approximately
110 m (360.9 ft.) north of the Route 128 southbound on/off ramps and
follow the existing Dunham Road right-of-way to Naugler Engineering.
The typical cross section of the frontage road would be a 2-lane section,
consisting of 1 - 3.75 m (12.3 ft.) through lane in each direction, 2 - 1.25
m (4.1 ft.) shoulders and a 1.75 m (5.7 ft.) sidewalk located on the south
side of the roadway. The total width would be 11.75 meters (38.5 ft.).
The existing Dunham Road right-of-way was utilized to minimize impacts
to the existing wetland area located adjacent to Parker Brothers.
Brimbal Avenue
Brimbal Avenue would be upgraded from Sohier Road to the proposed
intersection with the access road. Upgrades would include a back to
back left turn lane and a sidewalk located on the southeasterly side of
the roadway. The upgraded typical cross section would consist of a 2-
lane section, consisting of 1 - 3.75 m (12.3 ft.) through lane in each
direction, 2 - 0.75 m (2.5 ft.) curb offsets and a 1.75 m (5.7 ft.) sidewalk.
The total width would be 10.75 meters (45.3 ft.).
EXHIBIT C
Economic and Community Development Council's
Economic Build-Out Analysis
September 1999
Economic Build-Out Analysis of
IR Zoned Land at
Norwood Pond
Beverly, Massachusetts
Prepared By:
City of Beverly
Economic and Community Development Council
September 2, 1999
Economic Build-Out Analysis of IK Zoned Land at Norwood Pond, Beverly, MA. September 2, 1999
Introduction & Purpose
The City of Beverly's Economic and Cogunity Development Couucil (ECDC)
at lhe request of Mayor Scanlon's Blue Ribbon Commission on Norwood Pond prepared
this report. The ECDC's task was to analyze the potential tax revenue the Ciry of
Beverly might expect to receive should an overpass and interchange be constructed at
Roule 128 into the IZR. (Restricted Industrial -- Research and Office District) zoned land at
Norwood Pond, Beverly. Massachusetts.
The members of the Economic & Community Development Council are all residents of
the City of Beverly and bring a variety of professional experience as required by the
City's ordinance governing the composition of this multiple-member body. The
members are:
Joyce McMahon, Chairman, Councillor-at-Large
William Rodenbaugh, Vice-Chairman, retired, General Electric, Industrial Experience
Wayne Mastin, Member-at-Large
Richard Mooney, Sterling Insurance, Commercial Experience
Deborah Rosser. Beverly National Bank,. Financial Investment Expeaience
Brenda Spence, Chamber of Commerce Representative
Donald Stacey, Member-at-Large
Background & Assumptions
A total of six privately owned parcels, on the north side of Route 128,
representing 57.8 acres of land zoned IR (see Attachmenl A) were used in this study.
Areas identified as vegetative wetlands were eliminated from lhe study area. Two parcels
(a total of 26.3 acres) owned by the North Shore Music Theater which are zoned IR were
not used in this analysis given that their ownership by a non-profit institution renders
them exempt from property taxes,
The analysis assumes that any buildings constructed on the available land would
be used for light industrial, general office or research and development purposes, all of
which are allowed uses by right on IR zoned land by the City of Beverly Zoning Code
(see Attachment B). Potential average building size based on square foreage is shown at
Attachment C
The tax rate used to calculate potential tax revenues is the current (1999)
commercial and industrial rate of $24.73 per thousand dollars of valuation.
Assumed value of land and buildings per acre is based on the City of Beverly's
Fonzo Road Tax Model (see Attachment D) which estimated $2 million in tax and lease
revenue would be generated from 100 acres of land at the 1998 tax rate of $26.69 per
thousand or approximately $20.00 per acre in taxes for both land and building. This
was recalculated by the ECDC at the 1999 Commercial and Industrial tax rate of
approximately $18.50 per acre and generation of tax revenue.
Economic Build-0ux Analysis of ~, Zoned Land ax Norwood Pond· Beverly; MA. September 2, 1999
Analysis
Using the assumptions listed on page 2, the ECDC estimates that within 15-20
years and at full build-out, approximately $800,000' per year in new taxes would be
generated by the developnlent of the [P, zoned land at Nor~'ood Pond. A more
conservative esrlnlate, wtfich assttraes thai 100% build-out does not occur, alld the type of
buildings constructed are not all high-end office space, would be approxinhately $640,000
per year in new tax revenues to the City of Beverly. The ECDC based this ophfion on the
prog-rcss of development at Cherry Hill Industrial Park located in Danvers and Beverly.
A memo received from Dick Cane of the Flatley Company, dated June 7, 1999 (see
attaclunent E) shows a~ occupancy rate of more th:m 80% after nearly twenty years.
Specific Calculations for the full build-out at the 1999 tax rote are:
57.8 acre. s x $18.500 -~ $1,069,300.00
- 278,000.00 cun'ently received flora the area under analysis
$ 791,000.00 new tax revenues.
This analysis was -~hared with William LaChanee, MAI of Peter-~,-~ffLaChauce
Real5, Advisors, a real estate appraisal firm located ht Danvers, l~fassachusert$. In
addition to being a licensed appraiser, ML LaChance is a re~idem of Beverly. After being
provided file estimates of buildout developed by the City's consulting engineer for each of
the site's potential industrial arid office building categories, Mr. LaChance provided an
estimated range of ta.x revenue at $1.2 - $1.5 toillion dollars. That estirnate was based
upon a full buildout with a mix of office, industrial and R&D buildings, a corresponding
estimate of total improved property value, and application of the current tax rate. The
current dollar scenario is hypothetical, as buildore will take years: however', future tax
revenues at full buildout are also likely to be greater than this forecast range. Overall,
Mr. LaChance's analysis supported the range of tax revenue developed by the ECDC. He
ackr~owledged that while hc had not specifically walked the land, general obseB'ations
would lead hint to assume that die Norwood Pond land would have more site expenses
(esp the removal of ledge) than the Fonzo Drive land. However, these additional
e>:penscs could be offset by the benefit of having both sight fron~ and direct access to
P, outc 128, aq well as by the views offered overlooking Norwood Pond.
\\:i,er~ asked ~bout residential property values in the ar~a. Mr. LaChmncc indica~-d
~hat residences along a~d off of Duob:~m Road most hkeiy would see ~ increase in v~lue
(althou~ "no~ an al~g amounl") due ~o the d~rcasc of traffic brought ~out by ~t
Bex~, ove~as~' 3~d highway imercha~ge.
;",Iow: A.I the lime Ibis information win; received (May, 1999)~ Mr. LaChance was
unable ~o provide a xwi. iucn specific valuation as hc is responding to a City of Bcverb,
Reques~ for ~roposal's for appraisal work at the Forgo Dn:'e development. Hc was
bo,-vevcr co~k;rrabie o/fcriBg :~r,d being quoted on Ihe above lisleci estimates of tat,,
Econon~ic Build-Out Aualysis of IX Zoued Land at Norwood Pond, Beverly,
Qualit3' of Life Benefits
Members of the ECDC also believed it important to mention ceaain Qtadi(v of
L~ Benefits that should also result from the construction o fan overpass and interchange
at Route 128 and Norwood Pond in Beverly. Benefits inchtde:
Removal of traffic on Dunham Road and Brimhal Avenue that is generated by
the bus~esses (including the NS Music Theater) in the LR zoned land. This
will restdt in safety irnptoven~ents and enltanced residential property values.
o Access into the City-Owned land that is held for open-space and recreation
uses at Norwood Pond. Currently that land is only accessible by traversing
residential neighborhoods or going over privately owned land in the IR zone.
Potential development era gravel or other enviromentaIly sensitive parking
lot would 'allow convenient and direct access for Beverly re__~idents who wish
to enjoy the pond and its surrounding hildng wails and woodlunch.
o Safety intpt~vements at intersections along Brimhal Avenue_
,, Improved emergency vehicle access to the land under stttdy.
* Improved access to the former landfill located south of Route 128, which may
be used for playing fields in the next 5-I0 years.
* Water, sewer and drainage infrastructure improvements that will redtree
flooding problems and protect water and wetlands by directing run-offand
sewage away from sensitive areas.
Conclusion
The construction of an overpass ~ud interchatXge at Route 128 and Dimbarn
RoadfNoBvood Pond will facilitate development of land in that area. 'I'txe ECDC's
conservative estimates show thai the City ~ands to increase its commercial and industrial
tax revenues by $640,000 per year. Given that Beverly has little land already zoned for
industrial use, it is irr~poriant to maxin~ize opportuvities in ~he areas available. Should the
area under study be developed. m appt'oximately 20 ),ears it would represent: > over 20~/;, of Beverly's total industrial tax value, and
)~ a 50% increase in the area's t~: revemte paid to the City,
nil whi ie keeping the an~otmt of Bevcrly's industrial zoned land constant. The tax dollars
f:om lhis prospective develop~nent would help ~abilize Beverly's tax base and
pote~aially reduce the tax btuden on residential property owners.
The ECDC notes that cen ain quality of life benc~is would also result from the
de','clc~pmcnt of the ove~33ass:mtercharlge prqjec~. ~1 Beverly residenxs would be able tc
r~ccess and c~ioy the pond a:~d su~ou~din5 a~s withou~ ~avelin~ t~ough adjacen~
neighborhoods. Potential acxivities idemifie~ by the No~,ood Pov. d Co~ission include
p}~ymg fioldy. fis~ang, ice-skating and ori~¢r noD.-m<ao~zed recreation. as well as hiking.
ATTACHMENT "A"
INTERCHANGE FEASIBILITY STUDY
Access Improvcmcnts, Norwood Pond Area
Brimbal Avcnuc southbound access to Route 128 South would remain, while the existing
through movement to the ramp from Duuha~n Road would be removed.
Plans are pending for proposed improvements to Route 1 A, including the Route 1A at Route 128
interchange. These improvements involve the widening of Route IA through the interchange to
two 11 foot lanes in each direction.
TRAFFIC GROWTH
To develop the 2018 No-Build forecast volumes, two components of traffic growth were
considered. First, an annual average traffic growth percentage was determined. The previous
study performed on the area by VHB yielded a growth rate of 1.7 percent per year. Average
growth rates of two roadways in the area, similar in size and purpose to those of the study,
yielded a growth rate of 1.8 percent. To be conservative, base traffic volumes were forecasted 2
percent per year uncompotmded (40 percent overall) to the Year 2018. Growth rate calculations
are also illustrated in Appendix A. Figures 6, 7, and 8 illustrate the Year 2018 No Build A.M.,
P.M., and Saturday peak hour turning movement volumes, respectively.
Typically, the second component of future No-Build traffic volumes would include investigation
of any specific developments planned to be consn-ucted in the area by the 2018 design year that
may add substantial volume of traffic to the study area roadways. This study assumes, however,
that any increased utilization of the properties surrounding the Norwood Pond Area would be
directly dependent on the construction of the proposed interchange and access road.
TRIP GENERATION
\x, naile tile cit_v-o\~med parcel is currently zoned as light industrial, the city conncil has adopted a
resolutiou that the city-owned parcel cannot be used for anything other than recreation. The
surrounding properties are currently zoned as light industrial and were assumed to be used to
their maxinmm potential in order to generate a maximum "build-out" condition for the Year
2018 Build evaluation, In other words. the properties were D'pically evaluated based on their
entire acreage and not just the acreage currently vacant.
In light oflbc imporlance ofwetland areas to the conservation of nature, the wetland areas v,,hicl~
could be identified and quantified were not included in the calculation of acreage for each
propen.,'. The properties impacted bv wetlands include the Norwood Pond area, the Parker
Brothers properlx, and the NSCAF. The total area of the Norwood Pond Parcel is 118.1 acres
wilb the pond itself accounling tier 48.3 acres. The l~lnner Camavale and Maestranzi properties
are impacted bv wetlands but the acreage could not be quantified at this time. ]'able 3 illustrates
lht~ !,lqe;1G::! ~:lili7;!l}on acrca?e Ihr cach property and tile expected trips generated by' tile
INTERCHANGE FEASIBILITY STUDY
Access Improvements, Norwood Pond Area
maxiintm~ use of each property. The trips generated are based on information provided in the
Institute of Transportation Engineers (ITE) ]'rip Generation Manual.
TABLE 3: TRIP-GENERATION SUMMARY
AM TRIPS' PM TRIPS SAT TRIPS
Parcel Area (acres) IN OUT IN OUT IN OUT
Norwood Pond 69.8 6 6 6 6 40 40
Camevale 19.34 2 2 2 2 I 1 I 1
Parcel
Dunham Castle 3.7 23 5 6 21 2 2
Essex News 9.7 61 12 16 55 5 5
ParkerBrothers 31.4 196 40 50 178 14 16
NSCAF I 0.9 6 I 2 5 I 1
NSCAF 2 25.4 158 33 41 144 11 13
MaesWanzi I 1.4 9 2 2 8 I I
Maestranzi 2 1.3 8 2 2 7 I I
MaesWanzi 3 12.7 80 16 20 72 6 6
Naugler 1.3 3 2 2 7 I 1
Total 176.94 557 121 149 505 93 97
aSourcc: ITE Trip Generation
Please refer to Figures 9, 10
sites listed on the figures.
and 11 for AM, PM and Saturday proposed trip distribution for the
TRIP DISTRIBUTION
Once the trip generation rates have been established, it is necessary to determine ~vhere in the
surrounding areas would the new trips come from. The following trip distributions are based on
a gravity model based on the 1990 Census:
· 45 percent of the generated trips are expected to come from the south via Route 128 from
such communities as Danvers, Salem, and Peabody;
· 40 percent of the generated trips are expected to come from the urban center of Beverly;
· 5 percent of tile trips generated are expected to come from the north side of Bri mbal Avenue;
and
· 10 percent oftlie site generated traffic is expected to come from the north via Routes 22 (2%)
and 128 (8%).
In light of the grow'tl~ in the North Beverly area since 1990, these percentages were adjusted
accordingly to represent a higher percentage of site generated traffic coming from the norlh as
follows:
· 44 percent of Ihe generated trips are expected to conic from the south via Roule 128;
CITY
ZONIN'G iAt, p
OF BEVERLY, MASS.
j:' R-22
R-22~
Study Ar~a
R-90
AYTACHIvIENT "B"
29-19 IR - RESTRICTED INDUSTRIAL, RESEARCH & OFFICE DISTRICT
A. General Description
This district is established to provide principally for office complexes, light
industrial parks, and necessary support facilities, including ancillary storage,
service, and retail uses.
B. Uses bv Rieht
Property and buildings shall be used only for the following purposes:
1. Historic site including historic dwellings, or museum not operated for profit.
2. Sanitary landfill facilities, provided that the same are operated by the
municipality, or pursuant to a municipal lease or license.
3. Business and professional offices; banks.
4. Agricultural, hortieultura[, and ~orieultural uses and expansion or
reconstruction of existing structures relating thereto, permitted with a
minimum lot size of 5,000 square feet.
5. Manufacturing assembly, processing, paekagin,~ research and testing
operations including the following uses, provided that such operations shall be
conducted entirely within an enclosed building or structure; products
developed fTom previously-processed materials such as bone, ceramic, cloth,
glass, leather, metals, plastics, paper, rubber (except tires), wood (except
planing mills), electrical and mechanical instruments and appliances, optical
goods, cosmetics. toiletties, and pharmaceutical products.
6. Administrative offices, data processing cemers, and laborator), for scientific
and industrial research including testing and product development.
7. Printing and publishing establishment, including photoslatic copying sen,ices
8. Taxi, rail. bus passenger terminal.
9. Contractors' or cra~smen's shop. including carpentry, welding. ornamental
iron works. electrical and machine shops, provided that such use is nol located
within 200: ofanv "R" District. and further provided that such use is screened
from surrounding uses. as defined in Section 29-2-40
10. Essential public services such as transformer stations. substations. putnping
stations. au~ommic telephone exchanges not inch,ding ouldoor vehicle or
equipmere storage.
I I. Accessory buildings and uses required for and clearly mcidenlal to the
principal buildin,._, or use are perufitted
t2. Those t,~.es allo:,.'e.~ by right under Section 29-.5
Uses by Special Permit
l'he tbllowing uses are only allowed by Special Permit, granted by the Board of
Appeals:
2.
3.
4.
5.
6.
10.
12.
13
Subsidized elderly housing.
Commercial marina for the sale, mooring, and rental of boats.
Private, non-commercial stable.
Hotel or motel.
Restaurant selling food for consumption entirely on the premises.
Place of commercial recreation such as a theater, bowling alley, roller.
skating rink or ice skating rink where the use is conducted entirely
indoors. For purposes of this subsection the term commercial-indoor
recreation does not include those uses regulated by M.G.L. Chapter 140,
Section 183A.
Animal hospital or commercial kennel, provided that such use shall not be
within 200 feet of any residential district and the kennel area shall be
completely enclosed by a solid wall or fence.
Auto body or paint shop; vehicle repair garage excluding the repair of
heavy motorized equipment and the open storage of inoperable equipment,
provided that such use shall be permitted upon the approval of a Special
Permit therefore by the Board of Appeals. Review shall follow the
procedural requirements in Section 29-28~C. Special attention should be
given to possible adverse noise, odor, or visual effects of the use upon the
surrounding neighborhood Proper screening and buffering should be
provided to eliminate undesirable adverse effects.
Warehouses: including mini-storage warehouses, where all storage is
indoors, bor, ling plant, frozen food locker, ice manufacturing plant,
wholesale establishment. and similar distribution center.
Open storage of new building materials, machinery and metal products,
but not including junk. scrap. metal, wastepaper, and similar used
materials; provided that the area is enclosed xvitbin a wall, solid fence, or
compact evergreen hedge at least six (6) feet in height.
Essenlial public services such as transformer stations. st~bstalions.
pumpin.~ stations, automalic ~elephone exchanges not including ouldoor
vehicle or equipment storage.
Parking lots or garages as principal use ofthe lot.
Pork~Chop lots on streets in existence prior Io December, 1984. sub. iect to
the provision of Section 29-5 I. above.
Bed and breakfasl eslablishmenls.
Those uses. including accessor), uses, allowed by Special Permit under
Section 29-6.
Buildin~ and Area Requirements
2.
3.
4.
Minimum lot area: 2 acres
Maximum lot coverage: 40%, no more than 60% including parking.
Minimum lot frontage: 225 feet
Minimum front yard setback: 30 feet, 150 feet for buildings and for
parking which abut Residential Districts.
Minimum side yard setback: 20 feet
Minimum rear yard setback: 25 feet
Maximum building height: 60 feet
Parkin~ Requirements
Off-street parking shall be in accordance with the requirements set forth in
Section 29-24 below.
.Sign Requirements
All .signs in the IR District shall conform to the regulations set forth in
Section 29-25 below.
Special Requirements
Screening of conflicting uses: at the time of occupancy of a new non-
residential use, or the expansion of the outside outline of an existing non-
residential use of any lot in an industrial or commercial district, there shall
be a bufferyard along each boundary which adjoins an "R" District or use
This bufferyard shall consist of landscaped planrings, including
evergreens, the planrings to be of such height and density as is needed to
adequately screen from view, any light glare, parking lots, loading bays,
accessor3, buildings or uses. Fences, walls. and earthen berms may be
included as part of the buffer3,ard, but shall not be used in place of the
landscaped screening.
The adequacy of screening and landscaping shall be approved by the
building inspector, after consuhation with the Planning Board, and shall be
iucorporated in the building inspector's records. In the event a special
permit or site plan review is required, the planting plan shall be considered
in this review.
Required screening and landscaping shall be in good condition and
appearance. Failure to maintain same shall be deemed a violation of this
Ordinance. and shall be subject to the enforcemenl procedures contained
hcrein
TECHNICAL MEMORANDUM
ATTACHMENT "C"
REF:
DATE:
Tb:
FROM:
9g037.001
March 8, 1999
Ms. Tina Cassidy
Director, Department of Planning & Development
City of Beve~y
191 Cabot Street
Beverly, Massachusetts 01915
William F. Lyons, Jr., P.E., Senior Project Manager
Beverly - Overpass/Interchange Feasibility Study
INTRODUCTION
This Technical Memorandum has been prepared to illustrate the possible square footage
utilization (i.e. building size) of the parcels in the Norwood Pond area. This possible utilization
is based on the trip generation analysis prepared in the "Proposed Route 128
Overpass/Interchange Feasibility Study", dated March_ 1999- The expected trips generated by
utilization of the parcels are back-calCulated into squaie footage ba.sed on average hip rates for
each type of possible land use.
TRIP GENERATION
The hip generation analysis prepared in the study used empirical data relating parcel acreage to
vehicle trips as illustrated in ITE's Trip Generation Manual. Table 1 illustrates the trip
generation analysis restfits depicted in the study. These trips are based on the acreage available
for utilization in each parcel.
TABLE I Trip Generation Based on Parcel Acreage Available
~' i"~rccl AM 1 oral 1 rips i P~I lotal lrips
l: !9tl:ljlan~. Castle 2~ i 2'/ i 4
d ...............................................................................73 ......................' ....................71 .......................
I:.5SCX INe\v$
i' 'P:~?i~FB'?6'i]i';?~'~ ..........................................2'3S .................~ .............22'8 .........................................
!!"..,:.qC ~F"I ...............................................7 ......................: .........................7 .........................
['X~C:~T-'2 ..................................: .......................rgl .........................! ..........................1"85 .....
I";x~iiiS-'iii:ii'fi~f'2 ........................i ...........................1'0 ..........................i .........................'9 .............................
............................................................. lo ................; ............................9 ...................................................
~ 1 ot:,-t002 i 638
· - TECHNICAL MEMORANDUM
Evaluation of possible utilization depends upon which land use codes apply to the parcels, based
on the zoning regulations. According to the zoning regulations, the parcels in the study area are
zoned as IR - Restricted Industrial, Research, & Office District. The zoning regulations state that
".this district is established to provide principally for office complexes, light industrial parks, and
necessary support facilities, including ancillary storage, service and retail uses."
Based on this zoning information, the major land use trip generators evaluated are: Light
Industrial, General Office, Research & Development, Warehousing and Shopping Center. Land
use by special permit is not evaluated in this memorandum. Table 2 illustrates the possible
square footage of each type of development based on the expected trips: These square footage
calculations are based on average trip rates for A.M., P.M., and Saturday peak hours.
TABLE 2 Average Building Size Based On Expected Trips and Land Use (Square Footage)
Light
Parcel Industrial
Dunham Castle ] 28,900
'Ei~News i"T47400
Parker Brothers ! 234,500
NSCAF I .-: 9700
'~SCAY2' .......i""Tgg,~0o
MaesUar~ r ....i 12,100
Maesu-anzi z--'.-.:'--rl~oo
MaesU-arm 3 ......]"g41600
Naugler % ~ 1,400
lotal { 661pOe
General { Research &
Office { Development
lb,300 { 21,400
39,600 { 55,400
125,8 frO' 1757500
4,'7~Y0 6,800
101,70U 141,800
6,200 i 8,800
5,800 i 8,200
50~900 { 70;900
5,800 i 8,200
354,200 ] 494,200
Warehousing
49,500
128,300
407,200
15,300
329,100
20,200
18,800
164,600
18,800
1,146,200
Shopping
Center
11,700
30,600
98,700
3,0~0
79,900
4,600
4,200
40, I00
4,200
276,900 '
The square footage values illustrated in Table 2 are the building size for the average trip rates for
each parcel depending upon land use. These values assume that each parcel is utilized under one
land use code and not under a combination of land use codes. For example, the Essex News lot
could be utilized as a 74,400 square foot light industrial building or a 39,600 square foot general
office, but not both.
Fina Cnssidy
3ircctor
)~bra Hurlburr
~sst. Planning Director
City of Beverly
l'lanning and Development
Department
Dawn Goodwin
Community Development Mgr.
ATTACHMENT "D"
8/4/98
Sam Fonzo Drive / Airport Road project
Current revenue
City land (approximately 35 acres)
Fonzo land (approximately 65 acres)
: $ 0.00
: $236,890.00 (FY98 assessment)
· Projected Revenue
City land (35 acres): assume three (3) lots created. Lots would be leased, not sold.
Assume lease payment revenue ors 150,000 / lot per year
* Total Annual Lease Revenue: $450_000
Fonzo land (65 acres): assume five (5) lots created. Lots will generate tax revenue.
Assume average tax bill of $300,000 per year. ($26.69 / $1,000 assessed value. Assume
average building/land value [office/manufacturing] orS12.000.000)
· Total Annual Tax Revenue: $1.500,000
ity Hall
Aim,: The.~ ligures are estimales only. Total revenue will ultimately depend on the
actt,al number of lots Ihal are crea~ed. the type and value of buildings dmt are
conslruct~.lhe tax role in a:gi~n year. mrkel ~itinns. etc. s.": . ~;~r~{~:~:':~4' ' .
'.' A1TACHMENT "E"
MEMORANDUM
TO'
TINA CASSIDY
FROM:
DATE:
DICK CANE ~
l,,{q(qet
JUNE 7, 1999
CHERRY HILL PARK, BUILDOUr OF PARK
In re~l~otBe to your inquiry ~ to our experience with the buildout of Cherry Hill Park
since we took ownership in 1981, I offer the following infonnatiou:
2.
3.
4.
Lots developed prior to our ownership: 3
Lots developed and/or sold since 1931': 15
Lots remaining to develop: 2
Total lots in development: 20
Based on the above, it appears that the development race has been about g lois per decade.
Ill can be of any t'hrther assistmtce, please let me know.
cc: R. Ellis
J. McParlaa}d
J. Shields
Includes btFedLronics
ROUTE
128
CHERRY HILL .PARK
DANVERS/BEVERL Y, MASSACHUSETTS