Historic District Commission

Historic District Commission November 20, 2023 Meeting Minutes Page 1 of 9 CITY OF BEVERLY PUBLIC MEETING MINUTES BOARD OR COMMISSION: Historic District Commission SUBCOMMITTEE: DATE: November 20, 2023 LOCATION: Beverly Airport Conference Room, 50 L P Henderson Rd MEMBERS PRESENT: Chair William Finch, Wendy Pearl, John Leahy, Caroline Baird Mason, Vice Chair Suzanne Lamont MEMBERS ABSENT: Gregory Howard OTHERS PRESENT: Associate Planner Jared Contrada RECORDER: Rebecca Gobeil Call to Order Chair Finch opens the meeting at 6:04 p.m. Recess for Public Hearing 1. Public Hearing: Demolition Permit – 272 and 278 Essex Street – Peter Avila & Tim Flaherty Chair Finch reads the public notice. Chair Finch reads into the record the role of the Historic District Commission and its role in reviewing demolition permits in accordance with the Demolition Delay Ordinance. The Commission will deem a building historically significant if it is at least fifty (50) years old and is: (i) a building or structure listed or eligible for listing on the National Register of Historic Places or on the State Register of Historic Places; or (ii) a building or structure importantly associated with one (1) or more historical persons or events, or with the broad architectural, cultural, economic, political or social history of the city; or (iii) a building or structure which is historically or architecturally significant in terms of period style, method of building construction or association with a significant architect or builder either by itself or as a part of a group of buildings; or (iv) a building or structure located within one hundred fifty (150) feet of a Federal, state or local historic district boundary. Chair Finch states that the City has been inventorying City property, and it inventoried 272 Essex Street in 1980 and noted in a 1993 update of the survey, determined that an area of twelve (12) buildings along Essex Street, including 272 and 278 Essex Street are highly significant and that the area is eligible to be a historic district. 1  Historic District Commission November 20, 2023 Meeting Minutes Page 2 of 9 Applicants Peter Avila and Tim Flaherty are present. Chair Finch invites Applicants to present. Applicant Flaherty serves as the Executive Director of the Greater Beverly YMCA, and Applicant Avila serves as the Facilities Director for the North Shore YMCA. Applicant Flaherty is a resident and City Councilor of Beverly and understands Beverly’s historic significance. The YMCA is important to Beverly residents, and thus safety and accessibility to the YMCA are important. The YMCA wants to enhance the safety of entry and exit of the Beverly YMCA. The YMCA is requesting approval for demolition and potential removal of 272 and 278 Essex Street to improve the safety and accessibility of the YMCA. The volume of traffic on Essex Street has increased, and the YMCA has asked for traffic engineering services to assist with the parking layout and to review it for better accessibility to redesign the entry and exit. A traffic circle on Essex Street has already been added to address a fatality that occurred. YMCA wants to improve traffic flow on Essex Street and is ready to explore all options. The YMCA also provides affordable housing to a number of adults and families in Beverly. The Commission requested information on who is performing the traffic study, the Applicants responded that Binasee is performing the traffic study. The Commission requested information on how many residents of Beverly are housed by the YMCA, the Applicants responded that currently, three hundred (300) people are living in YMCA housing in Beverly. The Commission stated that before acquiring 278 Essex Street, Applicant stated that it had plans to demolish 272 Essex Street to provide an exit from the YMCA; the Commission informed the YMCA that 272 Essex Street is an important house and it needed to take care of it and retain it. Since this interaction, the YMCA has acquired 278 Essex Street, and it seems to the Commission that, based on the placement of the buildings, there is plenty of room to construct an exit road between these two properties without demolition. The Commission, prior to this public hearing, requested a walk-through of the buildings but was not allowed to do so; the Commission requested information from the Applicants on why they were not allowed to tour the buildings. The Applicant stated that the Commission could not walk through the properties because of liability, and that particularly 272 Essex Street is not safe for anyone to enter. The Commission understands the inability to access 272 Essex Street but requested more information on why they were denied access to 278 Essex Street. The Applicant responded that in general, they have been advised not to allow anyone to enter either property because of liability issues. The Commission stated that they have never been involved in a hearing where they have not been granted access to see the property. 2  Historic District Commission November 20, 2023 Meeting Minutes Page 3 of 9 The Commission further stated that they appreciate the asset the YMCA is to the Beverly community and hope that the YMCA can become a poster child for a glass building to co-exist with history to show where the community came from as it continues to grow and that the development of a glass building would be a unique opportunity to preserve rather than demolish. Applicant Flaherty responded that he has spent years on the council supporting historic houses and that the YMCA is looking at options and is not set on demolishing at this point. The YMCA feels its responsibility is to the safety of the YMCA members, and Essex Street traffic presents a danger that cannot be ignored, but the YMCA is committed to looking at the best options to solve the problem. The Commission stated that the entrance and exit for the Greater Beverly YMCA has always existed in the same area and requested if there are any other proposed changes to improve safety; in particular, has the YMCA ever talked to the Massachusetts Department of Transportation or the City to improve the traffic situation. The Applicant responded that it retained National Grid to put in lighting, which improved the situation, but the YMCA does not want to wait for an accident or death to make changes, and it is looking at safety and accessibility for the building. The Commission asked if accidents are currently occurring, and the Applicant responded that accidents are happening and that it retains police details for big events. The Commission asked if a traffic study had been completed, and the Applicant responded that it is in the process of hiring a traffic consultant for the entry, exit, and parking lot itself. The Commission asked if the Applicant has developed any specific plans for how to use the properties; the Applicant responded that it is exploring all options, which may or may not include demolition, and it is worried about something happening and feels something needs to be done. The Commission requested information on when the YMCA bought the houses. The YMCA purchased 272 Essex Street in 2004 or 2005. The Commission asked if 272 Essex Street provided housing; the Applicant responded that it did provide housing for a number of years but has been vacant since 2015. The Applicant purchased 278 Essex Street in 2018 and it has remained vacant since the purchase. The YMCA intends to come up with a master plan for the entire property, and this is step one. The utilities are not still in service for either of the buildings. The Commission discusses if the YMCA ever tried to purchase the buildings adjacent to the YMCA, new buildings. The YMCA does own those buildings and owns two of the three closest homes on Essex Street, but it does not own the one closest to the Greater Beverly YMCA building. The YMCA is not currently considering demolishing the newer houses but rather looking at 3  Historic District Commission November 20, 2023 Meeting Minutes Page 4 of 9 options for other entrances and exits. The newer house layouts make it impossible to enter and exits there, and the YMCA is exploring options to find the safest way. The Commission requested clarification on whether the Applicant is interested in reusing the buildings and why the utilities have been cut. The Applicant confirmed that the utilities are not being paid for at the moment, but they have just pulled the meters, and the services are still there and available as needed. The Commission welcomes public comment at 6:32 p.m. and requests that public participants comment on the historic value of the buildings to the City of Beverly rather than comment on what the YMCA would propose to do with the properties. Shawn Cahill of 31 School Street is present to speak against the demolition of 272 Essex Street. Cahill states that he grew up in the Cove area. 272 Essex Street was built in 1800 and is a historically significant home and one of the last examples of the cottage industry home. Cahill states the loss of the Shoe Maker would be a great loss to both the community and the country. Cahill expresses the opinion that 272 Essex Street should not be demolished but fixed up and rented to low-income residents in line with the YMCA’s mission. Cahill further states that tearing down 272 Essex Street would damage the historic feeling of the surrounding area. Chair Finch read into the record a letter from Historic Beverly expressing the group’s strong opposition to the demolition of 272 Essex Street, the “10-footer” Shore Shop at this site, and the property at 278 Essex Street. Chair Finch read into the record a letter from Sarah Madeleine T. Guerin, artist and bootmaker, expressing the historic value of 272 Essex Street and the “10-footer” Shoe Shop. John Taylor of 41 Cole Street is present to provide his thoughts on the proposed demolition of 272 and 278 Essex Street. He expresses that instead of the YMCA mitigating the effects of traffic on Essex Street, it is encouraging traffic at its facility by hosting gymnastics meets where they encourage people to come and park at its facility and that maybe the YMCA should mitigate traffic by encouraging people to not park at their facility. Taylor states if the commission approves the demolition, he is concerned about pedestrians and bicyclists because the street is a tight road, and in 2006, a bicyclist was killed at the intersection of Essex Street into Cole Street. Taylor states that it is important for the YMCA to consider a master plan first and that without a master plan, the public does not know if the plan for the properties is to provide entrances and exits or to provide housing. Taylor generally asks if the City can establish some kind of monument to the buildings no matter what happens. 4  Historic District Commission November 20, 2023 Meeting Minutes Page 5 of 9 Margaret Collins of 271 Essex Street is present to speak about the demolition of 272 and 278 Essex Street. Collins is not a native of Beverly and moved here in 2019. Collins states one of the appeals of moving into her neighborhood is the historic buildings clustered together. Upon moving to her home at 271 Essex Street, Collins was curious and sad to see that 272 and 278 Essex Street were unoccupied and in disrepair. Collins expresses a desire to know what the YMCA’s plan is if it is to demolish these properties. She states that she frequently runs into neighbors who talk about the 10-footer and that the community values the area's historic buildings and, in particular, the 10- footer. Collins states that her house is in the National Register of Historic Places and thinks there is a good chance 272 and 278 Essex Street are as well or could be. Collins states she can see the value in improving the area for the YMCA, and she does not want to speak directly for or against the demolition without knowing the trade-off. She states a crosswalk directly near the YMCA could be added and also that, as an abutter, she has seen big events at the YMCA with no cop directing traffic. Collins states that, at this point, she is speaking against the demolition because she does not know what will happen next. Anna Miller of 284 Essex Street is present to speak against the demolition of 272 and 278 Essex Street. Miller states that as a member of the YMCA, she is concerned and does not believe the YMCA is keeping up with its promises; in particular, she states that there have been events that have gone late and not adhered to noise ordinances. Miller states that the YMCA has available acreage behind it to expand, and it does not need to expand into the present historic neighborhood. Miller states that she has personally almost gotten hit by cars exiting the YMCA and that safety should be considered. Miller states that she does not want the demolition of 272 and 278 Essex Street. Leah Trovskery of 277 Essex Street is present to speak against the demolition of 272 and 278 Essex Street. Trovskery states that the properties are part of the historic neighborhood and that demolishing the properties for any purpose or so that the YMCA may do something in the future seems reprehensible and arrogant. Troveskery states that preserving the homes is very important and that she has walked by the properties and wondered why they are abandoned and have not been cleaned up. Trovskery states that the YMCA could fix up the 10-footer and use it as a place to show and make money off of. Trovskery expresses that she wishes the YMCA had filed its plan five days prior to the meeting. Trovskery further states that she believes that changing the traffic pattern seems like the City’s or Massachusetts Department of Transportation’s problem, and she does not understand why it involves tearing down historic properties. Dorothy Hayes of 680 Hale Street is present to discuss the demolition of 272 and 278 Essex Street. Hayes states that she wants to acknowledge the good work of the YMCA and that she was surprised 5  Historic District Commission November 20, 2023 Meeting Minutes Page 6 of 9 to hear about the demolition proposal because it seems out of character for the mission of the YMCA. Hayes states she understands the traffic concerns but states that it does not seem that any other initiatives have been considered other than tearing down the historical homes. Hayes states that given the area, she thinks it is unnecessary to take the structures down and that under the regulations, the properties qualify for historic protection. Faye Salt of 66 Haskell Street to speak in favor of the demolition delay for 272 and 278 Essex Street. Salt states that she is a lifelong resident of Beverly and a current and long-term member of Historic Beverly, the letter-writing group opposing the demolition. Salt points to the comment directed at the City of Beverly in Salem News on November 2, 2023, stating that Beverly is erasing things that make the City exceptional. Salt states that she is sad the YMCA does not have a plan and does not understand why the City has neglected to do anything to take the step to put in rules and regulations, so businesses have some other recourse than to destroy a property a year down the road. Salt states she is sad that the abutters do not know anything about this other than reading about it in a public notice. Salt states that once resources are gone, they are gone, and she is tired of doing tours and writing articles about what used to be there. Salt states that the demolition delay should be issued and that the YMCA should not be allowed to let the properties deteriorate further. Salt also states she is interested in the demolition by neglect ordinance. Peter Johnson of 677 Hale Street is present to speak against the demolition of 272 and 278 Essex Street. Johnson states he is active in Historic Beverly and that tours of historic Beverly always include 272 and 278 Essex Street. Johnson states he is firmly against the demolition, especially considering the alternatives present. Johnson encourages the delay and would like to have the YMCA and the Commission find a solution to help preserve the buildings and the YMCA and improve the YMCA’s traffic situation. Connor Walsh of 15 Pine Road is present to discuss the demolition permit for 272 and 278 Essex Street. Walsh states he is a member of the YMCA board of directors and finds the demolition delay ordinance interesting. Walsh states he is interested in seeing a collaboration between the Commission and the YMCA. Chair Finch closes the public hearing at 7:09 p.m. and reconvenes the regularly scheduled Historic District Commission meeting. 2. Discussion on closed Public Hearing, if not already decided The Commission discusses the formalized determination of the building’s historical significance. The Commission agrees that there are no disagreements that both 272 Essex Street, the 10-Footer, 6  Historic District Commission November 20, 2023 Meeting Minutes Page 7 of 9 and 278 Essex Street are historically significant. The Commission states that 278 Essex Street is the less obvious historic building, but it is nonetheless historically significant. The Commission is struck by the relationship between the buildings, not just each individually, but together, the buildings are historically significant. Chair Finch states that the buildings do not have to be grand to be significant and recognizes that the affected area is historically significant as a cohesive whole, and the loss of one of the properties would create a hole in the cohesion. Lamont moves to deem 272 Essex Street and the 10-Footer historically significant. Leahy seconded. The motion carries (5-0). Leahy moves to deem 278 Essex Street historically significant. Lamont seconded. The motion carries (5-0). The Commission next discusses the question of whether each property should be historically preserved. Leahy states that 272 Essex Street may be more historically significant than 278 Essex Street but is struggling a bit because of the poor condition of 272 Essex Street, whereas 278 Essex Street is in fine shape. Leahy clarifies that after discussion, he is struggling less and believes that while 272 Essex Street is in tough shape, it is not quite a teardown. Chair Finch states that 272 Essex Street is not typical of many houses that go through the process of renovation; windows and shingles are modern, and anyone wishing to preserve them is going to replace all those items. Leahy states that the chimney is significant. Chair Finch states that irrespective of the interior of 272 Essex Street, the house displays the architectural form of an 1800 half house, and that is clear regardless of deterioration and that this is what the public sees from the outside. Pearl states that both 272 and 278 Essex Street retain enough of their original look, feel, and character to tell people history and how the streetscape changed over time. Pearl states that the average person looking at these properties would know they are historic and that the public can benefit from this history. Pearl moves to preferably preserve 272 Essex Street and the 10-Footer Shoe making as they still convey history in residential development. Leahy seconded. The motion carries (5-0). Leahy moves to preferably preserve 278 Essex Street as it is a historic property and for its significance to the relation to the overall neighborhood. Pearl seconded. The motion carries (5-0). Chair Finch states that he finds the permit application distressing because rather than coming to the Commission prior to discuss and talk about alternatives owner simply put forward the application to demolish so in a year's time, there is no question of whether they will be able to demolish or not. Chair Finch feels that the application is presented not in the spirit of discussion but to get this part of the City ordinance out of the way. The Commission discussed the possibility of addressing this particular project at a future meeting given the amount of public involvement. 7  Historic District Commission November 20, 2023 Meeting Minutes Page 8 of 9 3. Review of Minutes a. October 26, 2023 (if available) October 26, 2023 Meeting Minutes unavailable. 4. New/Other Business a. Other discussion or action items related to Commission business, if any Demolition by Neglect Ordinance Leahy presented his findings from researching local demolition by neglect ordinances. Generally, Leahy found that other local cities and towns have attempted to enact a demolition by neglect ordinance and some have enacted one, albeit with some political difficulty. There is a privately run website, Art in Ruins, which lists historic inventory in Fall River and utilizes the website to publicize what is going on in city buildings. The Commission discussed if this is something Beverly could implement. The Commission discussed another organization, not chartered or affiliated with the City, beginning to take on a similar initiative with or without the guidance of the Commission. A similar initiative would provide easily accessible information to the public about historic City properties and the state of those properties. Other similar tactics an outside group could take on could include press releases, social media publications, supporting ordinances, and raising money to support historic properties. Stockbridge has a delay ordinance which makes it a requirement for owners to take action to try to find alternatives to demolition whereas Beverly just encourages this. Other cities have affirmative maintenance ordinances that allow historic commissions to identify buildings in need and require owners to make minimum repairs. If the owners fail to make these minimum repairs they will face fines and/or liens on the property. Lowell and Nantucket have affirmative maintenance ordinances. Lowell, specifically, has its downtown registered as a National Historic Landmark and grades its buildings. The Commission discussed the need for Beverly to create a historic district to enact an affirmative maintenance ordinance. The Commission discussed that the historic district would need to include the Cabot Theater at a minimum, and all of Cabot Street generally as it contains important historic properties. The Commission also identified Farms Village as a potential historic district needing protection. The Commission discussed whether its strategy should be to focus on ordinances or creating historic districts. The Commission agreed to discuss at the next meeting what efforts it would take to change the language of the demolition delay ordinance and what efforts need to be made to 8  Historic District Commission November 20, 2023 Meeting Minutes Page 9 of 9 preserve Cabot Street. The Commission further introduced the possibility of meeting with Salem to discuss its strategy for protecting its historic properties, including districts and ordinances. b. Relevant Staff Updates, if any None. 5. Adjournment Mason moved to adjourn. Leahy seconded. The motion carries (5-0). Meeting adjourns at 8:23 p.m. The next meeting will be Wednesday December 13, 2023. 9