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                                                                                    A        Framework for
                  F
                  73.63                                                         Planning Discussion
                  . H37
                  1984
                                                               Harb                                                                        ark

                                                                          CITY OF BOSTON 0 RAYMOND L. FLYNN. 0 MAYOR
                                                         BOSTON REDEVELOPMENT AUTHORITY 13 STEPHEN COYLE El DIRECTOR

                                                                                                       BOARD MEMBERS
                                                        Robert L. Farrell      Joseph J. Walsh       JarriesK.Flaherty Clarerv-ei,jor*s William A.McDermott,Jr
                                                        chairman               Vice Chairman         Treasurer              Assistant Treasurer    Wmber

                                                    0 brr

                                                   FA)S
                                                   MhMM AJ1

                                                                     U S  DEPARTMENT OF COMMERCE NOAA
                                      CITYOF BOSTON   MASSACHUSETr!FCOAST AL SERVICES CENTER
                                                                   1 2234 SOUTH HOBSON AVENUE
                                             OFFICE OF THE MAYOR    CHARLESTON , SC 29405-24 13
                                             RAYM,OND L. FLYNN

               There has alwaSts been a parallel between the fortunes of this city and the
               well-being of its waterfront.  For more than 200 years, Boston's \iital water-
               front reflected our city's emergence as a center of shipping and international
               commerce, just as rotting piers and empty warehouses represented Boston's
               economic decfine after the Depression and through the period following World
               War 11.

               In recent yearsi we have seen encouraging signs of rebirth along our water's
               edge. But if commercial development'is enhanced.by locating along Boston's
               waterfront, then this renewal must be extended into the heart of our city and
               into our neighborhoods.    I see the challenge to be guaranteeing that the
               quality of life of all our residents is improved by this economic growth.

               Harborpark presents a framework for discussing a set of new issues and new
               public policies for the development of Boston Harbor.

               First and foremost, Harborpark is designed to guarantee public access to the
               unique environment along the Boston Harbor, while encouraging balanced
               growth along the entire waterfront.

               Second, the Harborpark concept brings. rationality and a sense    of public
               purpose to the process of growth.     Each pier and wharf retains its own
               identity, yet each area has been integrated into.an uninterrupted walkway
               that extends from Charlestown to South Boston.

               Third, it combines public access to the water's edge with a diversity of uses:
               maritime and commercial activity which creates jobs, new housing for every
               income and household group, and the creation of areas for arts facilities.

               Most importantly, this planning process should rekindle the spirit of commun-
               ity, excitement and vitality in the place of Boston's origins. Boston has one
               of the world's most attractive harbors. We are now going to make sure that
               people, those who live in Boston and those who visit and work here, will be
               able to take full advantage of this great natural resource.

               Sincerely,

                                                              property of CSc LibcmT
               R

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                                      HARBORPARK

                          A FRAMEWORK  FOR, PLANNING DISCUSSION

                                                       October, 1984

                                      TABLE OF CONTENTS

                                                                 PAGE

                    INTRODUCTION

                    1.  THE CONTEXT, FOR PLANNING                   4

                    2.. HARBORPARK                                19

                    3.  PUBLIC BENEFITS                           33

                    4.  CITIZEN PARTICIPATION                     48

                    5.  ZONING                                    51

                    6.  INTERGOVERNMENTAL COORDINATION            64

                    7.  FOLLOW THROUGH                            76

                    CREDITS                                       77

                                                  INTRODUCTION

                         Boston Harbor led the country into the mercantile period of
                         the 18th century and helped finance the industrial revolution
                         of the 19th century.    Boston's economic competitiveness,
                         however, waned during The Great Depression of the 1930s.
                         A shift in patterns of trade and the location of manufacturing
                         activities after the War resulted in decaying port facilities and
                         abandoned warehouses and factories.      Boston's economic
                         revival, which began in the early 1960's and has continued to
                         this day was initially spurred by the growth of non-Harbor
                         related service activities.  The attractiveness of Boston's
                         waterfront has drawn development interests to the Harbor's
                         edge, and the Harbor is once again a vital    source of new
                         growth for Boston's economy.

                         Harborpark is meant to be a framework for     discussing the
                         ordering of this growth.    It seeks balance, rationality, and
                         harmony in the revival of the waterfront.     By attempting to
                         blend public interests and benefits with private Harbor uses,
                         Harborpark encourages the creation of new jobs, investment,
                         tax revenue, housing, and public access to the Harbor.        A
                         plan for ordered growth is necessary for the City at this time
                         because the Harbor area can provide as much as one-third of
                         the City's growth from 1984-90, including 8,000 new dwellings
                         and 12,000 new residents. Without the public formulation of
                         ground rules for this growth, the opportunity for revitalizing
                         old neighborhoods and for creating new ones from abandoned
                         piers, shipyards, and vacant land could be lost in the dis-
                         putes and controversies which follow a closed process.
                         Harborpark recognizes that these opportunities must not be
                         lost, but also that revitalization must reflect a profound
                         understanding of Boston's unique heritage. Rational land
                         development and redevelopment policies are therefore essen-
                         tial.

                         With community involvement and support, Harborpark will
                         evolve into a comprehensive Harbor plan containing five
                         components, one corresponding to each Harborpark planning
                         area:   Inner Harbor, East Boston, Charlestown, South Boston,
                         and Dorchester Beaches and Harbor Island (in conjunction
                         with the state). The first Harborpark component, Harborpark
                         Phase One -- Inner Harbor, is initiated by this report.

                         The unifying principle of Harborpark together is public
                         access,   Harborpark guarantees that a balance will be struck
                         between the economic health of the City and its inner life--its
                         need for places where people can gather for social events,
                         common recreation, or the quiet enjoyment of life and nature.
                         The Harborpark concept guarantees not only public access to

                        the Harbor itself but also to the process that will guide
                        rational growth.   In short, it is a framework for discussion,
                        produced for the purpose of initiating a planning dialogue and
                        process that will ultimately result in the formulation of a
                        comprehensive Harborpark plan.

                        Split into seven sections, this report addresses the necessary
                        considerations for developing and adopting a comprehensive
                        Harbor plan.    Section one, Context for Planning, presents a
                        history of the  Harbor and briefly discusses the waterfront
                        planning area  neighborhoods -- East Boston, Charlestown,
                        South Boston, and Dorchester Beaches.       It is meant to pro-
                        vide a perspective from which to proceed. The next section,
                        Harborpark, outlines the important planning principles that
                        will guide the future growth and development of the water-
                        front; these principles endorse public access, urban design
                        standards, and a set of public benefits -- recreational,
                        cultural, educational, and economic -- which should flow from
                        development activities. The seven mile Harborwalk is also
                        proposed in this section; approximately five miles must be
                        finished for the Harborwalk to become a reality. The
                        Harborpark concept ensures that all private development
                        includes public benefits.   It is a principle that should be
                        applied to all development citywide.

                        The third section, Public Benefits, describes the twenty-one
                        existing and planned projects for the inner Harbor and
                        outlines the actual benefits that these projects will bring to
                        the residents of Boston. This section conveys how public
                        benefits can be attained through the planning and implementa-
                        tion of development.

                        Section four, Citizen Participation, starts with the premise
                        that this plan can only be achieved with the active partici-
                        pation, through the planning process, of all citizens inter-
                        ested in the Harbor.    Participants include Harbor community
                        residents, business people operating on the waterfront, and
                        citizens seeking the serenity 'and aesthetics of the Harbor.
                        This section proposes the formation of a Harborpark Advisory
                        Committee and outlines a timeframe for accomplishing its
                        tas ks.

                        The following section, Zoning, discusses how this significant
                        planning tool should be used in achieving the goals and
                        objectives of Harborpark. The report proposes the creation
                        of an Interim Overlay Zoning District. The purpose of this
                        temporary control is to prevent the intrusion of environ-
                        mentally dangerous land uses in the Harbor area during the
                        rezoning process.

                                                     2

                        The sixth section, Intergovernmental Coordination, provides
                       .an overview of the institutional framework within which deci-
                        sions affecting the Harbor are currently made, and highlights
                        the institutional problems which currently present barriers to
                        a coordinated and unified effort for the development of water-
                        front properties. A recommendation is made for taking immed-
                        iate actions to reduce the time associated with public appro-
                        vals of Harbor projects.

                        The final section, Follow-up, outlines the next steps that
                        must be taken for the fruitful continuation of this planning
                        process; it also provides a timeframe for near-term activities.

                        The four Appendices to the report, Bibliography, Parcel
                        Profiles, Economic Data, and Institutional Framework, provide
                        additional detailed information that will serve as important
                        reference resources for those who participate in the Harborpark
                        planning process.

                        In sum, the Harborpark planning      report is the beginning of
                        an important public process. As      a minimum, it should engender
                        a serious public discussion about    the future of Boston Harbor.
                        It should produce, as well, new approaches       to planning,
                        design, and development policies that could     assist policy
                        development for other areas of the City.       It could help forge
                        a genuine spirit of cooperation between the public and private
                        sectors on the issue of balanced growth and development.          It
                        could provide for the citizens of Boston, and for the millions
                        who visit our City each year, full enjoyment of continuous
                        public access to the City's greatest physical asset, the Harbor.
                        Finally, it will produce, through the process of open and
                        informed public debate, a community more aware of the need
                        to improve and preserve what it holds in trust for the contin-
                        uing benefit of future generations.

                        Perhaps one hundred years from now, people will celebrate
                        the natural beauty and splendor of the Harbor and enjoy the
                        continuous walkway along its edge the way we now appreciate
                        the unique benefits of the Common, the Arboretum, Jamaica
                        Pond, and the other parks and open spaces which were
                        planned for our benefit and use one hundred years ago.

                                               Ai
                                              /1011

                                                                                      e 4

                                                                   i                                  i U

                                       THE CONTEXT FOR PLANNING

                       Boston Harbor has played a varied role in the City's history.
                       After generating great economic prosperity, the Harbor
                       declined in both economic significance and physical condition
                       from 1930 to 1960. Since this period, the City has enjoyed
                       an economic revival while the Harbor has languished, having
                       been overlooked until recently in the economic and physical
                       transformation of the City.   The Harbor, perhaps Boston's
                       greatest natural resource, today it is underutilized and in
                       danger of unsuitable and inappropriate development. Our
                       greatest needs at this time are to assure balanced economic
                       development and to guarantee increased public access to the
                       waterf ront.  Harborpark is an effort to address these problems
                       .and to comprehensively plan the impending development of the
                       Harbor in a balanced, thoughtful way. This section begins
                       that process by providing a brief history of the Harbor, some
                       characteristics of its surrounding communities, a description
                       of Harbor-related environmental concerns, and finally, a
                       glimpse of the Harbor's future.

                       HISTORY

                       The history of Boston Harbor spans three periods:      (1) The
                       Harbor as Dynamo:     17th, 18th, and 19th Centuries; (2) The
                       Decline of the City and the Harbor (1930-1960); and     (3) The
                       Current State of Boston Harbor (1960-1984).

                       The Harbor as Dynamo: 17th, 18th, and 19th C,enturies

                       In the City's beginning, the Port of Boston was literally a
                       dynamo.    It helped transform the U.S. into a mercantile
                       nation in the 17th and 18th centuries, standing as the
                       country's leading port until the mid-19th century. Creating
                       opportunity and wealth, the Harbor was the binding force
                       within the City's economy.

                            In the first decade of the 1700s, practically one
                            of every three adult males in Boston enjoyed
                            some degree of ownership in at least one ocean-
                            going vessel .... At the end of the clipper ship
                            era (1855), Boston was a metropolis of refine-
                            ment and wealth, the richest city for its size in
                            the world.

                            Louis E. Cellineri, Seaport Dynamics, Lexington Books,
                            Lexington, Massachusetts, 1976.

                                                         4

                         The riches gained in trade by Boston seafarers were used to
                         spur the Industrial Revolution in New England, to finance
                         medical facilities and higher education, and to develop the
                         West.   Imports of sugar cane, cocoa bean, wool, cotton,
                         hides, coffee, and tea filled warehouses from East Boston to
                         Fort Point Channel.    Fishing also became a large industry.
                         Fleets of sailing ships were constructed on the Harbor's ways
                         and docks; the U.S.S. Constitution (Old Ironsides) was built
                         in the North End. The Boston Navy Yard, situated in
                         Charlestown and South Boston, was. one of the nation's first
                         and largest shipyards, building vessels through World War 11.

                         The Harbor had indeed become so integral to the City's
                         economic well-being that by 1930, when Boston had more than
                         100,000 manufacturing jobs, almost half were Harbor-related.
                         In the meantime, Boston's population had mushroomed from
                         18,320 in 1790, to 136,881 in 1850, 560,892 in 1900, and
                         781,188 in 1930.

                         Mercantile riches, and the industrial revolution which they
                         spurred, became the base for Boston's mid-19th century
                         emergence as one of the nation's leading fiduciary and finan-
                         cial centers, as the family fathers decided that fortunes
                         gained at risk should not be risked again. These fortunes
                         were used. to found Symphony Hall and the Museum of Fine
                         Arts in the late 19th century; they also helped fund Fenway
                         Park in 1912 and the Boston Garden in 1928.

                         The Decline of the City and the Harbor (1930-1960).

                         The Harbor's decline started with the creation of the
                         Chesapeake & Ohio and the Erie Canals in the 1830s and
                         1840s, the construction of the railroads after 1850, and the
                         building of the St. Lawrence Seaway a century later. These
                         non-maritime transportation systems drastically shifted trade
                         patterns, diminishing the Port of Boston's importance forever.
                         The Harbor's decline accelerated as textile and shoe produc-
                         tion moved to the South and West in the early 20th century.
                         Manufacturing jobs became more scarce, to the extent that
                         Boston lost more than 50,000 such jobs after 1930, over half
                         of which were in the Harbor area. .

                         Compounding the decline of port-related trade and manufactur-
                         ing was the decay in public infrastructure that followed The
                         Great Depression in 1930.    No capital improvements, were
                         made to the Harbor's piers and transportation system during
                         this period as public and- private investment had collapsed.
                         After the construction of the Ritz-Carlton, Parker House,
                         Bradford, and Boston Park Plaza hotels in 1927, a new hotel
                         was not bui.It in Boston for more than thirty years. Simi-

                      larly, following the completion of the United Shoe Machinery
                      Building in 1928, the next major office complex, the
                      Prudential Center, was not constructed until 1960. Public
                      investment sank to a low during this period with the net
                      long-term debt of Boston declining to $59 million in 1956.
                      The resulting loss of jobs and population in turn brought
                      property value decreases and a drastic reductions in City
                      revenues.  Economic historian Russell Adams graphically
                      describes the scene.

                           The sagging, rotting, disused, misused wharves
                           were not the only battered remnants of days.
                           long past. There were also ships, or what was
                           left of them after the ravages of time and scav-
                           engers.  Like dead and floundered sea creatures
                           nipped by marauding sharks, a fleet of derelict
                           hulls littered the harbor, bleached by the sun at
                           low tide. Even at that, their day was not yet
                           done; in the grim and needy winters of the early
                           1930s, some 120 of these skeletal vessels were
                           dragged ashore, broken to bits, and picked over
                           for firewood.*

                      The Current State of Boston Harbor (1960-1984)

                      Boston has experienced a steady economic transformation since
                      the beginning of the last quarter of this century. The City's
                      reshaped economic structure now favors a broad range of
                      financial and service-based activities in which Boston has a
                      specialization, and in which rapid national growth is occurring.
                      Such activities include higher education, medicine, profes-
                      sional services, and financial management. Since 1976, 60,000
                      new jobs (13,000 in 1983 alone) were created, private develop-
                      ment investment exceeded $5 billion (measured in 1983 dollars),
                      and the City's taxable property value more than doubled (to
                      $14 billion). This new prosperity has allowed the population
                      of Boston proper to stabilize after decades of disinvestment
                      and suburbanization, and has brought development pressures
                      and opportunities to the Harbor.

                      Thus far, however, the role of Boston Harbor in the City's
                      economic life and recent revival can be characterized as
                      secondary in comparison to the pre-1930 period. Of the
                      City's 560,000 jobs, perhaps 60,000, or about 11%, are Harbor
                      related, a figure significantly below the 50% rate attained

                           Russell B. Adams, The Boston Money Tree, Thomas Y.
                           Crowell Co., New York, 1977.

                                                  6

                           during the Port of Boston's zenith. , Nonetheless, the Harbor
                           area is not without resources and investment. The Harbor
                           perimeter includes approximately $3 billion of the City's $14
                           billion of property value. One billion dollars of, the City's
                           post-1975 growth of $5 billion has been invested in the area.
                           And, roughly 2,000 of the City's 10,000 new housing units
                           since 1970 have been constructed near the Harbor (primarily
                           in the North End, Waterfront, and Charlestown neighborhoods).

                           A careful look at the Harbor area, however, reveals serious
                           misuse of this natural resource. Of the 2,000 acres of land
                           bordering the Harbor (excluding Logan Airport), one-third is
                           vacant, made up largely of land that once held warehouses,
                           factories, piers, and houses. The majority of the vacant land
                           is located in East Boston, Charlestown, and South Boston.
                           Only 18 percent of this waterfront land is accessible to the
                           public.   In East Boston, about half the waterfront land is
                           vacant, and little is accessible.    A significant share of land
                           parcels in the Harbor perimeter neighborhoods are in tax
                           delinquency (tax possession and tax title), including 13
                           percent in Ward 6 (South Boston-North) and 27 percent in
                           Ward 13 (Savin Hill); together these two Wards contain 1,500
                           tax delinquent   parcels.   In addition, there are a total 1,600
                           tax delinquent   parcels in Ward 1 (East Boston), Ward 2
                           (Charlestown), Ward 3 (Boston Proper) and Ward 7 (South
                           Boston-South).

                           Environmental problems also exist, particularly with respect to
                           sewage treatment and water quality. A plan for improving
                           the Harbor's water quality was presented in 1975, but from
                           1979 to 1982, less than $1   '5 million of a recommended $1.2
                           billion was invested. An $11 million expenditure in 1983
                           represented only a fraction of the $500 million needed in the
                           1984-1989 period, -as projected by the MDC.* State action is
                           expected soon on sewer treatment and water quality issues.
                           Without administrative reform and a substantial public funding
                           commitment (at least $300 million), no progress will be made
                           on these vital issues.

                           HARBOR NEIGHBORHOODS

                           The neighborhoods contiguous to the Harbor -- East Boston,
                           Charlestown, South Boston, and portions of Dorchester -- are
                           most directly affected by the condition of the Harbor. These
                           neighborhoods are each currently faced with opportunities

                                 Boston Redevelopment' Authority,- Boston's Infrastructure-
                                 Investment Record: 1978-1983 and Current Plans, April,
                                 1984.

                                                            7

                       to develop their Harbor lands. (Neighborhood development
                       opportunities are listed in Table 1.) Whether a particular
                       development project or land use is beneficial to a neighbor-
                       hood depends on a number of factors: the type of project,
                       its scale and density, the characteristics of that neighbor-
                       hood, and the goals of its residents.

                       Changes in labor force, unemployment rates, average number
                       of weeks unemployed, occupations, and industry of employment
                       of residents from each Harbor neighborhood and for the City
                       as a whole are listed in Table 2. These figures show that
                       the Harbor neighborhoods have a somewhat higher unemployment
                       rate than exists City-wide and that the workers in these
                       neighborhoods are more likely to be employed in blue-collar
                       jobs. As a result, Harbor area residents are likely to be
                       slightly worse-off economically than the average Boston resi-
                       dent. Orderly growth along the Harbor presents the oppor-
                       tunity to help the residents of these neighborhoods recapture
                       losses suffered from the diminished role of Boston Harbor as
                       a major seaport. The benefits can be economic, recreational,
                       and. aesthetic.

                       The major resources- of these neighborhoods are land and
                       people. A short profile on these two aspects of each neigh-
                       borhood follows.

                       East Boston

                       East Boston contains.about 480 acres of land along the Harbor,
                       half of which is vacant and little of which is accessible.   In
                       the early 1800s, East Boston's waterfront was important in
                       Boston's commercial history, particularly for shipbuilding at
                      .sites such as the Donald McKay shipyards.      Existing port
                       facilities, however, are now obsolete, and modernization is
                       constrained by a lack of space, inadequate. access roads, and
                       the prohibitive costs of infrastructure requirements.

                       The labor force of East Boston decreased by 11% between 1970
                       and 1980, a rate significantly greater than the City-wide
                       decrease of 2.1%.   East Boston's unemployment rate of 7.4% is
                       also significantly above the City-wide figure of 6.1%. These
                       figures demonstrate East Boston's traditional dependence on
                       manufacturing related activities and their long decline.

                       Charlestown

                       Charlestown, founded in 1629, grew quickly with its water-
                       front devoted to shipbuilding and industrial uses. The Navy
                       Yard, now nearly 200 years old, was the town's chief employer
                       and the site where 35 warships were built in a short 40-year

                        period beginning in 1825. Charlestown's waterfront proper-
                        ties, nearly all of which are used for commercial and indus-
                        trial purposes, total about 350 -acres.

                        Charlestown has the highest unemployment rate of all the
                        Harbor neighborhoods (7.7%), but has fared better with those
                        who are employed than the other three Harbor communities.
                        An influx of new residents arrived in the 1970s, increasing
                        the labor force by 6%. As a result, more workers are employed
                        in professional and managerial level jobs (25%) than in the
                        other neighborhoods.

                        South Boston

                        In South Boston, nearly half of the 600 acres of w@terfront
                        land is used for public recreational purposes along the south-
                        ern shoreline. The remaining 300 acres, located at Fort Point
                        Channel, are used for commercial and industrial purposes.
                        Planned major new transportation improvements, including the
                        Seaport Access Road, Third Harbor Tunnel, and the new
                        Northern Avenue Bridge, will provide dramatically expanded
                        access to these areas.

                        South Boston faces continued unemployment  problems. Presently
                        6.7% of its work force is unemployed and the average length
                        of unemployment is over 15 weeks, almost a month longer than
                        the City-wide average. South Boston is also nearly as depen-
                        dent as East'Boston on manufacturing activities (17.3%). -All
                        neighborhoods have experienced a shift in their employment
                        base since 1970, from manufacturing to service industries,
                        but South Boston has shifted the least, and is well below the
                        City-wide shift. Additionally, South Boston has lost almost
                        16% of its workforce, the worst of any Harbor neighborhood,
                        and 13% higher than the average City-wide loss.

                        Dorchester

                        Dorchester,. from Columbia Point to Port Norfolk, completes
                        the southern edge of the Harbor area. Of the approximately
                        600 acres bordering the waterfront, nearly half are vacant, a
                        third are used for commercial and industrial purposes, and
                        about 70 acres are used for public recreation at the MDC-
                        owned Malibu and Tenean beaches. Substantial housing
                        development efforts are contemplated at Columbia Point, and
                        additional land is being acquired and developed by the MDC
                        for public bikeways and walkways connecting the beach areas
                        with the marshes along the Neponset River.

                        The areas of Dorchester nearest the Harbor have the most
                        workers of the four neighborhoods, and comprise 7% of the
                        total Boston labor pool. The unemployment rate (7.3%) is

                                                      9

                       similar to East Boston's. The labor pool is fairly balanced,
                       with 24% employed in professional and managerial occupations,
                       and 21% employed in crafts and operatives.

                       ENVIRONMENTAL CONCERNS

                       For the past several years, development in Boston has been
                       intensifying, transforming the urban topography, and conse-
                       quently affecting the interaction of the natural elements -- air
                       circulation, wind, and sunlight. Tall, closely spaced buildings
                       cause a variety of conditions which affect human health,
                       safety, and psychological well-being.

                       High velocity, localized winds that are generated by densely
                       configured structures, for example, can be uncomfortable as
                       well as dangerous to pedestrians. When high velocity winds,
                       which naturally occur at higher elevations, sweep down the
                       leeward face of a tall structure, they are brought to ground
                       level. Because Boston is a naturally windy city, with average
                       annual wind speeds of 13.3 miles per hour, winds can accel-
                       erate to gale force when whipping around the corners of
                       monolithic structures or when channeled into narrow corridors
                       between the walls of buildings.   insensitive building height,
                       massing, and density can also block sunlight at the pedestrian
                       level, creating a dark oppressive environment and minimizing
                       the beneficial effects of the sun in the warmer and colder
                       months of the year.

                       Being a naturally windy city Boston conversely has the
                       opportunity to help disperse automobile. pollution. The over-
                       whelming source of air pollution in Boston is the automobile,
                       which releases carbon monoxide and hydrocarbons. Because
                       these pollutants are released at ground level, where dense
                       rows of buildings on narrow streets can form "street canyons",
                       these pollutants sometimes become condensed and trapped. In
                       the event of a temperature inversion, dispersion of such
                       pollutants is inhibited and can cause acute human respiratory
                       problems. Another environmental danger comes from industries
                       that pollute the Harbor's water by dumping heavy metals,
                       chemicals, and organic pollutants. Storm drainage from road
                       surfaces also sends toxic lead and petroleum residue into the
                       marine ecosystem.

                       To help alleviate these environmental ills, Boston must be
                       viewed as an element in an ecosystem that includes plant and
                       animal life, air and light, surface and ground water, geologic
                       features, and people.   Harborpark approaches development as
                       part of this natural system with the goal of balanced growth
                       for the harborfront. As Anne Whiston Spirn has commented:

                                                     10

                               More fortunate are those few cities that have
                               adapted ingeniously to nature: Stuttgart, West
                               Germany', which has, deployed its parkland to
                               funnel clean, cool air into its congested down-
                               town; Woodlands, Texas, a new town whose
                               private and public open spaces function as an
                               effective storm drainage system, soaking up
                               floodwaters and preventing floods downstream;
                               Boston, where wetlands upstream of the city
                               were purchased for flood storage at a fraction of
                               the cost of a new dam.*

                          Harborpark is a continuation of this tradition.     Low rise
                          buildings are proposed for the Harbor's edge.       The interim
                          zoning ordinance will give the opportunity to avoid the clus-
                          tering of large buildings and the resultant strong ground
                          level winds. Special design will be required in large build-
                          ings and intensive tree plantings proposed in the design of
                          Harborpark will reduce wind impacts.

                          Encouragement of the use of water taxies,     off-site parking,
                          and mass-transit are incorporated into.Harborpark to reduce
                          automobile pollution.

                          Strict design standards for new buildings and the interim
                          zoning will prevent new sources of Harbor pollution. Federal
                          and court mandated improvements to the regional sewerage
                          handling system will result in reduction of water pollution
                          over time.

                          THE FUTURE OF BOSTON,AND THE HARBOR

                          The Boston   economy 's expected growth, for the remaining
                          years of this decade and beyond, should have a special
                          significance for the Harborpark neighborhoods.        Projections
                          for the City's economic future show the continued transforma-
                          tion of Boston's economic base and a growing specialization in
                          a broad range of service activities.    Between now and the
                          early 1990s, Boston could gain more than 70,000 new jobs,
                          and $6 bill ion of private development investment. More than
                          40,000 of these jobs are projected for the greater Central
                          Boston area, encompassing all of downtown, Charlestown, East
                          Boston piers, the North End, the waterfront, and South

                               Whiston Spirn, Anne, The Granite Garden: Urban Nature
                               and Human Design, Basic Books, Inc., New York, 1984,
                               P. 10.

                       Boston, Beacon Hill, and Back Bay.* (See Table 3.) The
                       Harbor area could likewise account for $2 billion of the pro-
                       jected $6 billion of private development investment anticipated
                       in the 1984-90+ period and generate $150 million of the $450
                       million in anticipated added property tax revenue. (See
                       Table 4.) Harbor related growth could strengthen and broaden
                       the City's economy, and it could do so without harming the
                       environment or excluding local residents from the benefits.
                       By 1990, 8,000 new housing units with an additional popula-
                       tion of 12,000 people are expected for the Harbor area.  (See
                       Table 5.) The challenge Boston faces is to channel growth,
                       to achieve a balance between new economic development, jobs,
                       restoration, and public access, and between port and non-
                       port related activities. An orderly and comprehensive plan-
                       ning process is the first step toward realization of this goal.

                           Boston Redevelopment Authority, Boston Employment,
                           City of Boston, Central Boston and Downtown Office,
                           1976-1983 and 1990 Projected, August 1984.

                                                      12

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                                                             TABLE 2

                                       EMPLOYMENT CHARACTERISTICS OF HARBOR
                                          NEIGHBORHOODS AND CITY OF BOSTON

                                                   East     Charles- South      Dor-       Total    Total
                                                   Boston   town       Boston chester Neigh.         Boston

                                LABOR FORCE        14,547     6,462    14,055 18,974        52,826   272,794

                                % Employed--
                                 Change
                                 1970-1980         - 11.0       6.2      15.5       N/A        6.8       2.1

                                Unemployment
                                 Rate                  7.4      7.7        6.7      7.3        7.3       6.1
                                Mean Weeks
                                 Unemployed          1.2.2    14.0       15.2     16.0       14.7      11.5

                                OCCUPATIONS

                                %Prof. Manag.
                        1980     Tech.               15.2     24.7       15.9     23.5       19.8      30.2
                                %Crafts &
                                 Operatives          .27.4    18.6       25.2     21.2       23.1      17.4

                                %Prof. Manag.
                        1970     Tech.               11.5 @   12.1       12.4       N/A      12.0      22.4
                                %Crafts &
                                 Operatives          37.6     27.7       29.0       N/A      31.4      24.0

                                INDUSTRY OF EMPLOYMENT

                                %Services &
                        1980     Finance             36.8     43.5       34.8     37.9       38.3      50.1
                                %Manufacturing       20.5     13.1       17.3     15.4       16.6      14.2

                                %Services &
                        1970     Finance             23.6     26.9       27.6       N/A      26.0      38.3
                                %Manufacturing       27.0     21.1       20.2       N/A      22.8      17.6

                                                           TABLE 3

                                                  THE BOSTON ECONOMY:
                                        EMPLOYMENT TRENDS AND PROJECTIONS

                                                                     Harbor      City        Periphery
                                                                    Periphery    of          as Percent
                                                                                 Boston     of Boston

                             Increase in Jobs (1976-83)              10,000       60,000         17%
                             Total Existing Jobs (1983)              60,000      560,000         11%
                               Manufacturing*                        14,000
                               Logan Airport                         11,000
                               Eating, Drinking, Hotels               7,000
                               Finance & Business Services           10,000
                               Truck & Warehouse                      4,000
                               Ship Repair                               800
                               Fishing & Professional                    500
                               Health, Education & Legal              4,000
                               Other                                  .8,700

                             Projected Increase in Jobs
                             (1984-90)                               25,000       75,000         33%
                               Office                                16,000
                               Industrial.                            2,000
                               Communications                         2,000
                               Fishing                                2,000
                               Eating, Drinking, Hotels               2,-000
                               Transportation                         1,250

                               Includes food processing, printing and publishing, and apparel.

                             Source: BRA Research Department,          September 28, 1984.

                                                    TABLE 4

                                           THE BOSTON ECONOMY:
                       PROPERTY VALUE AND INVESTMENT TRENDS AND PROJECTIONS.

                                                                            Millions
                                                           Harbor       City       Periphery
                                                           Periphery    of         as Percent
                                                                        Boston     of Boston

                       Property Value   (1983)             3,000        14,000        21%
                       Property Tax Revenue (1983)             70          333        21%

                       Private Development Investment
                         (1976-83)*                        1,000        5,000         20%
                       Public Investment (1976-83)            500       2,500         20%

                       Projected Increase in Property
                         Tax Revenue (1984-90)                150          450        33%

                       Projected Private Development
                         Investment (1984-90)**            2,000        6,000         33%

                       Projected Public Investment
                         (1984-90)                         1,000        3,000         33%

                           Includes-
                             Federal Reserve Building
                             Boston Marine Industrial   Park
                             Charlestown Navy Yard
                             Marriott Long Wharf Hotel
                             Bird Island Flats

                           Includes officespace growth of ove   r 4  million square feet
                           and industrial space growth of over 1    million square feet.

                       Source: BRA Research Department, September 28, 1984.

                                                       16

                                                        TABLE 5

                                               THE BOSTON ECONOMY:
                              POPULATION AND HOUSING TRENDS AND PROJECTIONS

                                                                 Harbor      City       Periphery
                                                                Periphery    of         as Percent
                                                                             Boston     of Boston

                           Population Change (1970-80)             4,500     -78,000
                           Population (1980)                     111,653     5631000       20%@

                           Housing Unit Increase (1970-80)         2,191       10,000      22%
                           Housing Units (1980)                   50,881     2411000       21%

                           Persons per Household (1980)              2.2          2.3

                           Projected Increase in
                             Population (1984-90)                 12,000       221000      55%

                           Projected Increase In
                             Housing Units (1984-90)               8,000       16,000      50%

                           Source: BRA Research Department, September 18, 1984.

                                                            17

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                                                                  Ram

                                                       THE FILLED-IN ARE             AS OF BOSTON

                      Boston has greatly increased in am by filling bays,            6. South Boston, mount about        714 acres, begun in
                    coves, and inlen. The original area is usually given as        1836, still in process.
                    783 acreL The filled-in lands add between three and
                    four times that amount. Dates and amounts given below            7. Marine Park, acquired in 1883, about 17 acres;
                    are approximate only as records do not agree, having been      bridge to Castle bland, July 1, 1891, included in. South
                    made at differenc times and by different men, and in cer-      Boston fillinS.
                    tain localities filling-in is still in procem The figures
                    are the best available and the numbered paragraphs refer         LBoston Air Port, authorized, May 12, 1922, about
                    to sections indicated on the accompanying map.                 150 acres in 1928, opened Sept. 8, 1923; part of the East
                      1. Back Bay, amount about 170 acres, mostly done             Boston fillinS. .      I
                    after ISS6 and continued to 1894.                                9. East Boston, amount about 370 acrm begun in
                      Ia. West Cove, amount about So acres, begun in 1803          1880, not yet completed.
                    and completed in 1863.                                           10. Charlestown, amount about 416 acres, begun..
                      2. Mill Cove, amount about 70 acres, begun      in 1804      1860, completed to present state about 1896.
                    and completed in 1831. Much of the filling north of
                    the Causeway (indicated on the map by a line) was done           11. Columbus Park with Strandway, amount about
                    in 1935.                                                       261 acres, acquired, 1890-1901; part of South Boston
                      3. Gr,:21 Of East Cove, amount about 112 acres, begun        filling, as given above. .'
                    in 1823 and completed in 1874.                                   Much of the filling material for the Back Bay disttict
                      4. South Cove, amount about 86 acres, begun in 1806          came from Needham; the contractors, Goss and Munsm,
                    and completed in 1843.                                         built six miles of railroad to - facilitate transportation.
                      5. Roxbury, mount about 322 acres, the filling-in of         The mill pond was filled from the cutting down of Sen-
                    whi,Lh might be said to have started with that of the          tr,- (Beacon) and Cotton (Pemberton) Hills. The West
                    Back Bay as it was a continuation of it, becoming quite        Cove was filled in part from the cutting down of West
                    active in 1378 and completed in the 1890's, excepting          Hill (Mt. Vernon). Fort Hill contributed to the filling
                    that part bordering on the South Bay, which is in the sec-     along Atlantic Avenue and to raising the gra& of terri-
                    tion marked "Ia".                                              tory whose drainage had been impaired by the filling-in
                                                                                   of the Back Bay. The dumping of city ashes and the
                      Ia. South Bay, amount about 138 acres, begun in 1810,        dredging of the harbor also furnished material for vari.
                    not yet completed.                                             ous filling&

                                                                               18

                                                    Harborpark

                                  *4A

                                                    HARBORPARK

                        Harborpark Phase One is represented by a proposed         physical
                        plan for public and private improvements, presented      on the
                        following page, and by a series of proposed policies     and
                        guidelines regarding Inner Harbor Access and Urban Design,
                        the first and second sections, respectively. The third des-
                        cribes Harborwalk; the fourth presents Harborpark's related
                        objectives with respect to; Recreation; Culture, Education,
                        and the Arts; Economic Development; and Transportation.

                        Harborpark Phase One is the proposed plan for Boston's
                        Inner Harbor.    It encompasses a seven mile area, stretching
                        between the Charlestown Navy Yard, the North End, downtown
                        waterfronts, Fort Point Channel, and the Fan Piers. As the
                        first installation of Harborpark, Phase One seeks to generate
                        a public discussion about the Inner Harbor.      It thus presents
                        both a plan and a set of concepts. The plan is for a water-
                        front walkway, Harborwalk, and the provision of certain
                        public amenities along that walkway. Harborpark's concept is
                        to ensure balanced, controlled, and rational growth in the,
                        Inner Harbor.

                        Central to the concept of Harborpark Phase One are the goals
                        of ensuring that all people have access to the water's edge
                        and access to the waterfront's economic and physical opportuni-
                        ties. The Harborpark plan and policies which follow aim to
                        meet these goals in a number of ways:

                          o  By encouraging   a balanced mix of private development
                             and public improvements;

                          o  By proposing the creation of a continuous seven-mile
                             long waterfront walkway and the reforestation of the
                             waterfront adjacent to the walkway;

                          o  By establishing guidelines and criteria for private clevel-
                             opments to ensure their compatibility with the character
                             of the waterfront and to minimize their adverse environ-
                             mental effects; and

                          c  By proposing a series of public spaces and public facili-
                             ties which will provide opportunities for recreational and
                             cultural activities.

                        ACCESS

                        An important proposed goal of Harborpark Phase One is to
                        improve public access to the Boston waterfront.      Public
                        access in this context means not only that all citizens can

                                                                                                                                                                 UP

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                                           (D FAN PIER                                                             AQUARIUM                                                             SARGENT'S WHARF                                                      CHARLES RIVER DAM AREA
                                                Public Marina, Promenade                                           Harborview, Seat Pool and Fountain                                   Water Twd, Public Boat Docking, Housing                              Observaton Bridge, Paul Revere Landing
                                                water Taxi Dock                                                (D LONG WHARF/T WHARF                                                    UNION WHARF                                                          CHARLESTOWN CITY SQUARE/
                                           (D NEW NORTHERN                                                         Boat Docks, Major Vicinity Area, Park                             @  Harborwalk                                                           RAPIDS WAREHOUSE
                                                AVENUE BRIDGE                                                      WALK TO THE SEA                                                      LINCOLN WHARF                                                        DEVELOPMENT
                                                Harbor Walk and Landscape Park                                     Bandstand, Public Promenade,                                         Fireboat Pier, Tall Ship Dock                                        Harborview, Marina, Harborwalk
                                           (D HISTORIC NORTHERN                                                    Landscaped Area
                                                AVENUE BRIDGE                                                                                                                           BATTERY WHARF                                                        HOOSAC PIER
                                                                                                                   COMMERCIAL WHARF                                                     Lobster Pound, Harbor Viewing Area                                   Harborwalk
                                                Public Dock  'Manna, Boat Basin,                                   Maritime Museum, Public Dock
                                                Observation Tower                                                                                                                       CONSTITUTION WHARF                                              @CHARLESTOWN
                                                                                                                   LEWIS WHARF                                                          Harbor Viewing Pier, Harborwalk                                      SHIPYARD PARK
                                           (D ROWES AND FOSTER'S WHARF                                             Wintergafden, Aviary                                                                                                                      Public Marina, USS Consttuton, Major
                                                Boat Terminal, 8th Floor Public Observation                                                                                             NORTH END PLAYGROUND                                                 Path Park
                                                Deck, Public Access                                                PILOT HOUSE                                                          Boccie Courts, Hockey Rink,
                                           (1) INDIA WHARF                                                         Harborvew, Public Seating                                            Swimming Pools
                                                Harborwalk-Seating

                                                                                                                                                                                                                                                         Harborpark Phase One

                     gain physical proximity to the Harbor, but th?it they ca*n also
                     take advantage of the new jobs, housing, and recreational
                     opportunities that develop along the waterfront. Harborpark
                     Phase One seeks to guarantee pedestrian, visual, land, and
                     water access to the Harbor through the following concepts
                     and proposals.

                     Pedestrian Access

                       o  Harborpark Phase One proposes a continuous seven mile
                          public waterfront path, called Harborwalk, connecting
                          the wharves and linking waterfront activities together.

                       0  Harborwalk and its links to downtown, the North End,
                          and City Square could be clearly identified with lighting,
                          signs, special landscaping, and fine art.

                       o  Harborwalk could also include connections to the Freedom
                          Trial, the Esplanade and the existing network of open
                          space amenities, parks, paths, and bikeways.

                          Harborwalk could be free from barriers that would
                          inhibit wheelchair access; and paving textures and other
                          techniques could be used  to facilitate access by people
                          with impaired vision.

                                                      20

                         Water Access

                           o  Harborpark Phase One proposes to encourage the use of
                              ferry service to East Boston, water-taxis to the airport,
                              Charlestown, and Columbia Point, and commuter boats to
                              the North and South Shores and to the Harbor Islands.
                              Creation of this Inner Harbor water transit system could
                              more than triple the current volume of 2,000,000 boat-
                              based passenger trips.

                           �  Water transit terminals, marina facilities, dinghy landings
                              and moorings, and marine -service and supply stations
                              are proposed for locations at the Fan Piers, Northern
                              Avenue Bridge, Rowes, Long, Commercial, Lewis, Sargent's
                              and Lincoln Wharves, and in. Charlestown.

                           �  When new roads and bridges are needed, they should be
                              designed to accommodate marine activities@ and to enhance
                              the character of the waterfront.

                                                         21

                       0  The proposed private development plans for major wharves
                          Long, Sargent's, Lincoln, and Fan Pier -- now include.
                          facilities for the docking of Tall Ships and for public
                          viewing, and present opportunities for special maritime
                          events.

                     Visual Access

                       o  Harborpark Phase One attempts to enhance existing
                          views of the wharves and the Harbor from the City at
                          City Square along Hanover Street at Fleet, Clark, and
                          Battery Streets; from Government Center along the
                          Walk-to-the-Sea; from the Downtown Financial District
                          along Broad and High Streets; and from South Boston at
                          Pittsburgh, Sleeper, and Farnsworth Streets. New
                          vistas should also be established by defining new view
                          corridors.

                       o. Harborpark Phase One proposes to secu  re unobstructed
                          public views of the City from Fan Pier, Long Wharf, and
                          Sargent's Wharf, and from across the Harbor, so that
                          the public pier-heads become attractive places to visit.

                       o  Viewing towers and large-scale sculpture are also pro-
                          posed to identify major public docking facilities at Fan
                          Pier, Fort Point Channel, Rowes, Long, Sargent's and
                          Lincoln Wharves.

                               itI/

                                                22

                        URBAN DESIGN

                        Harborpark Phase One design standards will seek to create a
                        new image that derives from the traditional scale and character
                        of the waterfront and that recalls the highest standards of
                        Boston's architectural heritage. The relationship between
                        land and water should be enhanced by sensitive site planning
                        and building design that encourages recollection of our history,
                        while recognizing the special design problems of a marine
                        environment. The Boston Redevelopment Authority will
                        publish interim design standards for Harborpark on
                        November 20, 1984. The following design principles will
                        guide these standards.

                                               2 0 U 10 1z D U             0
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                        -M

                        Site Design

                          o Central to Harborpark Phase One's design concept should
                             be the provision of attractive public amenities on each of
                             the wharves.

                                                       J@

                    'PIZ

                        o  New developments should be required to provide low
                           structures at the edge of the water and to enhance the
                           finger pier form for wharves.

                        o  The public nature of Harborpark Phase One should be
                           expressed through easily recognized symbols -- arcades,
                           domes, and observation towers. Piers should be designed
                           to be welcoming.

                                     el

                       o Fine art     sculptures, murals, and special gardens
                           should be signatures that identify Harborwalk and
                           enhance the user's. sense of quality.

                     Building Design

                       �   Harborpark building design 'guidelines should require
                           that new buildings be designed with respect for architec-
                           tural history and traditions.

                       �   Building design should recall the traditional shape, roof-
                           lines, and massing of the historic waterfront.

                       �   The local architectural vernacular of penthouse and shed
                           structures should also be reflected in new buildings.

                                                      24

                         o  The careful use of color, texture, detailing, and
                            masonry materials could enhance the maritime character
                            of Harborpark.

                         o  Special public spaces should be recognized as   deserving
                            special forms that have kinship with the best  examples of
                            exhibit and waterfront architecture.

                                            a a t- m

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                       Landsc      lesign

                         �  Harborpark Phase One should offer citizens and visitors
                            of Boston a great many new plantings and respite from
                            city streets.  This concept devolves from Frederick Law
                            Olmsted, designer of Boston's Emerald Necklace and
                            Marine' Park/Castle Island among many other important
                            open spaces in the country.    He designed his parks as
                            "places of respite from the City, spaces to provide... a
                            pleasure common, constant and universal ... which results
                            from the feeling of relief... on escaping from the cramped,
                            confining and controlling circumstances of the streets of
                           .the town." Olmsted also said, "The principal element of
                            a park is its plantings."

                         � Harborpark seeks to return the edge of the Harbor to a
                            more natural state with the planting of thousands of
                            trees and plants.

                                                      2S

                        0  Rows of leafy, canopy trees should edge broad promena   des
                           and walks, providing dappled shade on hot sunny days
                           for the pleasure of strollers, joggers, and busy citizens.
                           Seasonal changes of color and texture, fragrant spring
                           and summer flowering trees, wind deflection and strong
                           feelings of place should be other benefits.

                                                  4111

                       o   These street trees will also link Harborpark back into
                           the city and similarly lead people from the city core to
                           Harborwalk; trees should define the streets and walks
                           with ribbons of green.

                                            0
                                           I +A

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                                                      26

                       ''fit

                          o   Bosques and groves of evergreen trees in the more
                              protected garden areas could insure greenery for the
                              winter months, variety of form and texture, and wind-
                              breaks for easier access during stormy weather.   Evergreen,
                              trees could define space, frame and reveal views and
                              vistas, screen and provide privacy, and reduce glare,
                              noisel and air pollution.

                          o   The microclimate of the Harbor requires the use of
                              hardy, seaside plant varieties, which will tolerate salt
                              spray and windy conditions. Sycamore Maples (Acer
                              pseucloplatanus), Thornless Honeylocusts (Gleditsia
                              triacanthos inermis), London Planetrees (Platanus aceri-
                              folia), and Pin and Red Oaks (Quercus palustris and
                              Quercus rubra) are therefore recommended, as are
                              Austrian Pines (Pinus nigra) and Japanese Black Pines
                              (Pinus thunbergii) as evergreens.   Recommended shrubs
                              include the Juniper (Juniperus horizontals 'Blue Rug'
                              and 'Bar Harbor'), Yew (Taxus baccata), Rock Spray
                              Cotoneaster, Barberry, Bayberry, and Rosa rugosa since
                              they are at home in this ocean setting and will provide a
                              variety of color, texture, and interest.

                          o   Planting beds and tubs featuring hardy perennials, low
                              shrubs, spring bulbs and seasonal flowers could enliven
                              and beautify Harborwalk; they should be placed in quiet
                              sitting spaces with a backdrop of green trees and shrubs,
                              in large open plazas with vendors, in restaurants and
                              shops, on terraces of adjoining buildings, and on walk-
                              ways and boardwalks.

                                                            rf

                          r L

                                                       27

                           o   The palette of landscape materials established at
                               Waterfront Park, the Marriott Long Wharf Hotel,, the
                               Aquarium, Harbor Towers and 400 Atlantic Avenue
                               should continue in Harborpark Phase One to further
                               define and identify the space. These materials include
                               'Mariner' light fixtures, wooden benches with backs,
                               trash receptacles, and signage. Appropriate walkway
                               paving materials -- brick, granite, wooden deck,
                               stoneclust -- could also permit ease of movement in all
                               types of weather.

                         THE HARBORWALK

                         When complete, the Harborwalk will be a seven mile pedestrian-
                         way that will provide access to both the waterfront and the
                         cultural and recreational facilities outlined in the Harborpark
                         plan. At present, less than two miles of the Harborwalk is
                         complete.

                         Over five additional miles of the    Harborwalk will be built by
                         1990. As delineated in the following schedule, over half of
                         the improvements will occur during the next three years.

                                              Harborwalk Completion Schedule

                         1984-85
                           Walk to the Sea                           .61 miles
                           Constitution Wharf                        .63
                           North End Playground                      .45
                              Subtotal                             1.69   miles

                         1985-87
                           Rowes/Fosters Wharf                       .22
                           India Wharf                               .11
                           Union Wharf                               .22
                           Lincoln and   Battery  Wharf              .50
                           Charles River Dam                         .09
                           Hoosac and Shipyard Park                  .23
                              Subtotal                             1.37   miles

                         1987-89
                           Fan Pier                                1.24
                           Northern Avenue                           .40
                           Long Wharf                                .11
                           Commercial Wharf                          .22
                           Lewis Wharf                               .05
                           Sargent's Wharf                           .25
                              Subtotal                             2.27   miles

                         Over 80% of   this additional Harborwalk will be built, and
                         maintained,   by the private sector.

                        RELATED OBJECTIVES

                        Recreation

                        Harborpark would encourage a variety of recreational attrac-
                        tions at each Of the wharves for the public to participate in
                        and enjoy year round.

                          o  Harborwalk, as proposed, is designed to attract a broad
                             range of residents and visitors to boating activities, as
                             well as to more passive pursuits such as sun-bathing
                             and brown-bagging.

                          o  Swimming pools, softball fields, boccie courts, a hockey
                             rink, and a fishing pier should offer opportunities for
                             waterfront enjoyment to the North End community.

                          o  Harborpark's amenities and attractions should appeal to a
                             broad spectrum of interests, returning the life of the
                             City to the water's edge.

                          o  Harborpark Phase One would enable the City and public
                             to program many events including a possible Harborpark
                             run, the blessing of the fleet, concerts, drama, clam-
                             bakes, a-fireboat demonstration, and a July 4th display
                             of fireworks.

                                                                                        A

                             Mao

                                                         29 -

                        Culture, Education,   and the Arts

                        Another major objective of the plan is to bring Boston's
                        unique love of culture,  education, and the arts to its
                        waterfront. This could    be accomplished as follows:

                          o Harborpark Phase     One proposes settings for concerts,
                              drama, music, and dance.

                          o   Harborpark recommends new cultural facilities including
                              public art and museums for the Harbor area.

                          o   Harborpark would encourage cultural and historical
                              exhibits and displays of research efforts, bringing
                              Boston's history to life.

                        Economic Development

                        A critical element of Harborpark is to provide for balanced,
                        rational, and orderly growth along the Harbor. This is a
                        two- part process:    Harborpark must control and channel
                        growth where development pressures are severe, so that the
                        public's interests are advanced, and it must seek creative
                        techniques to encourage growth where it is needed but not
                        forthcoming.

                          o   Harborpark Phase One seeks to encourage a balanced mix
                              of private development, which would include affordable
                              housing, office space, retail shops, and entertainment,
                              hotel, and conference facilities.

                          o   A central precept of Harborpark is that Boston residents
                              and visitors of all income levels be served by Harborpark
                              facilities; a diversity of uses is therefore contemplated.

                          o   Special planning efforts will be needed to evaluate the
                              best opportunities and to shape longer term strategies
                              for the economic development of the South Boston, the
                              East Boston piers, and the Charlestown Navy Yard.
                              These efforts must involve the appropriate City depart-
                              ments and agencies, the state government, the private
                              sector and the neighborhoods.

                        Transportation

                        Harborpark seeks not only to take advantage of current
                        private development resources but also to help improve the
                        City's transportation art work.

                          o Harborpark helps establish the increased use of water
                              transit systems to reduce the current dependence on
                              vehicular transportation.

                                                             30

                           o  Harborpark proposes enhanced automobile and tour'bus
                              access and parking.

                           o  Harborpark also proposes.that new parking be required
                              as part of the development process at the following
                              locations: Charlestown Navy Yard, Sargent's Wharf,
                              Rowes/Fosters Wharf, Fort Point Channel Area, South
                              Station, and North Station.

                           o  In and adjacent to Harborpark, parking. should be. limited
                              to underground sites or the reuse of existing buildings.

                           o  Subway stations should be marked with a distinctive
                              Harborpark logo and provide detailed area maps to help
                              encourage the increased use of mass transit.

                           .o Special design attention could be given to the creation of
                              all weather connections between parking and mass transit
                              stops and the.various boat terminals.

                                                              00         0

                                                           31

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                                                                                                V                                SARGE
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                                                                                          Taxi & Ferries to Columbia Point,
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                                                                                                                                                         Harborpa r k -Transportation -Components

                        SUMMARY

                        Harborpark must be a cooperative effort. The map of the
                        walkway, the identification of specific improvements and the
                        statements of policies and guidelines represent a proposal for
                        an integrated plan to bring balanced and orderly growth to
                        the waterfront and make the waterfront more enjoyable and
                        accessible to all people. This proposed plan, however, is
                        only the beginning.  Citizen participation is the essential next
                        step for Harborpark.

                        Balanced growth, economic and recreational benefits, improved
                        environment, and public facilities resulting from implementing
                        Harborpark Phase One should provide an example and goal for
                        other parts of Boston's waterfront. The following chapters
                        describe the public benefits of Harborpark and a public
                        participation process for the implementation of the plan.

                                                       32

                                                                                                                                            Public Ben.efits

                                                                                                                                                                                                                                                                                               ----------

                                                                                                                                                                                                     Will,

                                                                                                                                                                                                                       OR             i @

                                                                                                   1.      iNT

                                                  PUBLIC BENEFITS

                        The principal goal of Harborpark is to boost Boston's quality
                        of life.  In keeping with this goal, Harborpark will result in
                        numerous Public economic and social benefits for the residents
                        and visitors of Boston. These benefits, including new job
                        opportunities, new housing, improved public transportation,
                        additional tax revenues, and a variety of new cultural and
                        recreational opportunities are discussed below.

                        JOBS

                        The seven Harborpark developments, which include existing
                        and proposed projects, represent a total investment of over
                        $450 million by 1990.    (See Table 1) The four projects,
                        which have an estimated completion date of 1987, will produce
                        an investment of over $136 million. The largest project, at
                        the Fan Pier, will not be completed until the 1987-1989      period,
                        and will double all investments of the previous period. This
                        investment.will be guided by Harborpark's concepts to       d i rect
                        the economic benefits to Boston neighborhoods.

                                                      TABLE 1

                        HARBORPARK DEVELOPMENT INVESTMENTS AND JOBS GENERATED

                                                 Development                 Jobs
                                                 I nvestment     Construction    Permanent

                        1985-87
                           Rowes & Fosters       $ 56,760,000         756           1,379
                           Sargent's Wharf         38,240,000         510             647
                           Lincoln Wharf           17,650,000         235                3
                           City Square/
                             Rapids Warehouse      24,000,000         320             827
                                                  136,650,000       1,821           2,856

                        1987-89
                           Fan Pier               279,000,000       3,720           1,628
                           Commercial Wharf        11,410,000         152             402
                           Lewis Wharf             23,600,000         315             596
                                                  314,010,000       4,187           2,626

                        TOTAL                    $450,660,000       6,008           5,482

                        These investments will generate over 6,000 construction jobs
                        and nearly 5,500 permanent jobs.       An important objective of
                        Harborpark is to direct these jobs to Boston residents, minori-

                                                          53

                        ties and women. Therefore, it is proposed that hiring goals,
                        such as those expressed in Mayor Flynn's Executive Order,
                        which mandates that 50% of construction jobs be awarded to
                        Boston residents, 25% to minorities and 10% to women, be
                        adopted as part of the long-term Harborpark plan.   Because
                        there have been shortfalls in implementing this Executive
                        Order, better monitoring of hiring agreements will be re-
                        quired if the promise of benefits is to produce actual employ-
                        ment opportunities.

                        Not only will Boston residents directly benefit by increased
                        jobs, but local service oriented businesses will prosper as
                        they meet the needs of new developments. This ripple effect
                        increases the economic benefits of the seven development
                        projects to produce a larger overall effect.

                        By 1990, investment in the Harborpark area could surpass $2
                        billion, which is over one-third of the total $6 billion invest-
                        ment in the City of Boston currently anticipated in the same
                        period. This $2 billion i.s double the sum invested in the
                        same area during the 1976-1983 period.

                        This growth could provide space and demand for up to 25,000
                        new jobs, compared to the 10,000 new Harbor area jobs
                        generated between 1976-1983; such employment would consti-
                        tute one-third of Boston's expected 75,000 new jobs.  New
                        office space will generate a lesser number of jobs. Blue
                        collar jobs will be created in the fishing, industrial, com-
                        munications, hotel, and restaurant industries. The remaining
                        jobs will be in the transportation sector.

                        The key questions that arise from this amount of development
                        interest are: (1) How much growth is optimal; (2) What
                        kinds of projects are best for each Harbor area or parcel;
                        (3) What public benefits can be obtained from each development;
                        (4) What overall plan can maximize the quality of life for
                        Boston residents; and (5) Is such a plan consistent with
                        maximizing private benefits?

                        Since Harborpark includes all of Boston's shoreline, its
                        ultimate and direct benefits will be felt by more than 100,000
                        residents or close to 20% of the City's population. These are
                        neighborhoods which experienced an overall drop in population
                        and a labor force loss as the Harbor declined. Balanced
                        development can revitalize those neighborhoods which are
                        among those most in need.

                                                     54

                       HOUSING

                       An important contribution to the City's quality of life will be
                       the housing generated by Harborpark. Steady population
                       growth and a continuing decline in average household size
                       hold the prospect for a healthy increase in the number of
                       households. Given this, and the current situation where
                       sixty-three percent of the City's 1980 housing stock was built
                       before 1940, it's clear that Boston will require substantial new
                       housing over the next decade. New demand for housing,
                       based on population growth and an increasing household
                       formation rate, is projected at 22,500 units during the 1980s.
                       Adding an allowance for the replacement of the existing
                       housing stock at the rate of five percent a decade (12,000),
                       indicates a decennial need for roughly 34,500 new housing
                       units, or 3,450 a year.*

                       Housing developed along the Harbor can help meet this.growing
                       demand. Because Harbor views command a market premium,
                       however, new Harbor area housing will be expensive to
                       construct, rent or purchase. 'Harborpark proposes to simul-
                       taneously address the supply and affordability questions by
                       encouraging the construction of Harbor housing, while re-
                       quiring that 30% of such housing units be available to low and
                       moderate income citizens. This objective can be achieved
                       through a variety of production means: (1) fully subsidized
                       or mixed income projects; (2) market-rate projects with
                       inclusionary low and moderate income components; (3) special
                       projects, employing UDAG or other funds; and (4) off-site
                       linkage units. Table 2, while not representing a definitive
                       housing plan or development agreement, demonstrates, neverthe-
                       less, that the 30% goal- is attainable even during this period
                       of scarce Federal funding for affordable housing.

                       Linkage funds could be used to subsidize the supply and/or
                       demand side of, rental housing or to subsidize homeownership.
                       This latter mechanism, homeownership, should be the pre-
                       ferred goal of Harborpark since it would allow Harborpark
                       citizens to share in the inevitable property value appreciation
                       along the Harbor. Another mechanism for accommodating low

                            "Boston's Prospective Development and the Linkage to
                            Housing Needs", Boston Redevelopment Authority
                            Research Department, October, 1983.

                                                      35

                                                        TABLE 2

                                        ESTIMATED HOUSING DEVELOPMENT

                                                              Low and
                                                              Moderate    Linkage     Total
                               Project              Units      Units       Units     Low/Mod

                            1. Charlestown            112         112                   112
                               Bldg. 103

                           2.  Lincoln Wharf          190

                           3.  Lincoln Wharf   11       50         -         12*          12

                           4.  Sargent's Wharf        185          36          -          36

                           5.  Fan Pier             1'.000        50*        90*        140

                           6.  Columbia Point       1,400         800          -        800
                               Redevelopment

                           7.  Rowes & Fosters        310          -         63           63

                           8.  Lewis Wharf              80         8         17*          25

                           TOTALS                   3, 327      1,006        182       1,188

                                These figures represent minimum       estimates.

                           and moderate income residents could be the use of linkage
                           funds for off-site construction. @ In this context such funds
                           could be used to help renovate housing units near or along
                           the waterfront.

                           Whatever the mechanism, Harborpark stands for two principles:
                           Boston's substantial housing needs dictate that housing con-
                           struction and rehabilitation should be encouraged along the
                           Harbor, and 30% of such housing should be available to low
                           and moderate income citizens.

                           TRANSPORTATION

                           Harborpark is designed to get people out of their cars., o     n to
                           their feet, on to boats, and on to mass transit. The seven
                           miles of continuous walkway will provide an attractive connec-
                           tion for the many uses in the waterfront/downtown area. The
                           walkway will become a transportation route for the many
                           people living, visiting, and working in Harborpark.

                                                             36

                       In designing Harborpark, special attention must be given to
                       water transportation. The goal is to triple the number of
                       passengers now using commuter boats and water taxis.
                       Congestion will be reduced by the replacement of automobile
                       trips.  Ferry terminals will be located at the Fan Pier, Rowes
                       Wharf, Long Wharf, Sargent's Wharf, and in the Charlestown
                       Navy Yard. Boats will provide transportation to and from
                       East Boston, the Airport, Columbia Point, Squantum, and
                       other South Shore communities. Efforts will be made to
                       provide connections to Revere, Nahant, and other North
                       Shore communities.

                       New marinas will be constructed and required to provide a
                       certain percentage of their spaces for visiting boats.  In
                       addition, the Harbormaster will designate moorings for short-
                       term use. Nearby piers will provide landing places for
                       dinghys so that people can get from their boats to the shore.
                       These new marinas will be located at the Fan Pier, Old
                       Northern Avenue Bridge, Rowes & Fosters Wharves, Sargent's
                       Wharf, T Wharf (adjacent to Long Wharf) and in the Charlestown
                       Navy Yard.

                       Most of the area through which Harborpark winds makes up
                       the oldest part of Boston. Streets are narrow and congested,
                       parking is limited and always a problem. As a result, special
                       attention is given to the provision of mass transit and auto-
                       mobile parking. Four MBTA stations are in close proximity to
                       Harborpark. Special signage and maps will be provided
                       showing the connections from the stations to Harborpark and
                       its various amenities.

                       Four thousand new off-street parking spaces, as part of new
                       development projects, will be located with easy access to
                       Harborpark.   In addition to the major parking facilities
                       already planned for North and South Stations, large scale
                       parking are proposed for the Fan Pier and the Charlestown
                       Shipyard.   In each of these four areas, cars will be parked
                       before they enter the downtown/waterfront area. Other
                       facilities are included in the design of Sargent's and Rowes &
                       Fosters Wharves.

                       Drivers who today sit in their cars for the 20 minute last mile
                       of their trip to Boston will be able to use offstreet parking
                       and shift to water taxis for a relaxing 5 minute trip to a site
                       no further from their destination than  they would park today.
                       Carefully designed and located parking garages and mass
                       transit terminals (including Commuter Boat and Water Taxi
                       terminals) will support the user who makes the wise decision
                       to avoid the use of cars in this congested area.

                                                     37

                           TAX REVENUES

                           The City of Boston, the Commonwealth of Massachusetts, and
                           the Federal Government would all benefit through tax revenues
                           that would be generated by Harborpark projects. The State
                           and Federal governments would gain the lion's share of the
                           tax benefits. These revenues will contribute to the economic
                           health of the City, State, and Nation, helping to build and
                           maintain infrastructure, and provide monies for the main-
                           tenance and servicing of public needs and places.

                           A.   Revenues Generated to the City

                                Property Tax

                                The Harborpark, project will generate an estimated $150
                                million in additional property tax revenues to the City
                                over the six year 1984-90 period. These additional
                                property tax revenues would help allow the City of
                                Boston to provide increased Police, Fire, Public Works
                                and other City services which are sorely needed, and
                                currently overburdened.

                                The annual projected property tax yield of selected major
                                projects along would be $13 million.

                                                                            Annual Property
                                                                            Tax Revenues for
                                Projects                                    Selected Project

                                AREA 1
                                    Fan Pier                                $ 8,370,000

                                AREA 2
                                    Rowes and Fosters                           1,432,000
                                    Commercial Wharf                             342,300
                                    Lewis Wharf                                  619,600-
                                    Sargent's Wharf                              899,680

                                AREA 3
                                    Lincoln Wharf                                472,000

                                AREA 4
                                    City Square/Waterfront                       720,000

                                TOTAL                                       $12,855,580

                              Developmen  t Impact Project Payments,

                              Development Impact Project payments of selected major
                              Harborpark commercial projects will be $5,575,000 over a
                              twelve, year period. These payments could be used to
                              construct affordable rental housing. The following table
                              estimates the linkage benefits from the Harborpark
                              developments.

                                                  Commercial                Total
                                                  Square                    Linkage
                        Projec                    Footage                   Contribution

                        Fan Pier                    500,000                 $ 2,000,000
                        Rowes Wharf                 415,000                   1,575,000
                        Lewis Wharf                 200,000                     500,000
                        Sargent's
                          Wharf                     300,000                   1,000,000
                        City Square                 200,000                     500,000

                        TOTAL                     1,615,000                 $ 5,575,000

                        All figures are estimates based on developers'      plans, and are
                        subject to change.

                        B.    Revenues Generated to the Commonwealth        of
                              Massachusetts

                              Harborpark developments would generate        $450 million in
                              tax revenues to the State in the six year period 1984-90.
                              The composition of the projected growth in State revenus
                              is as follows:

                              Source*                     Amount                 %

                              Income Tax               $211,000,000             47
                              Sales Tax                  63,000,000             14
                              Hotel Tax                  36,000,000              8
                              Meals Tax                  32,000,000              7
                              Corporate  Tax            108,000,000             24

                        C.    Revenues   to the Federal  Government

                              The Federal government     would gain an estimated $1
                              billion in income and corporate tax revenue over the six
                              years,  1984-90.

                              "Impact of Boston Capital Construction Freeze on Jobs
                              and Tax Revenues", Boston Redevelopment Authority,
                              Research Department, April, 1981..

                                                    39

                         CULTURAL AND RECREATIONAL BENEFITS

                         Through public access and design guidelines, Harborpark will
                         restore to those neighborhoods Boston's most attractive natural
                         feature, the Harbor.   Developers will be attracted by
                         Harborpark's natural amenities, and will,, in turn, pay for
                         high quality construction and maintenance of additional ameni-
                         ties for the enjoyment of all Bostonians. The amenities thus
                         created will provide cultural and recreational attractions not
                         now available in Boston, and will include the following:

                         Major Public Facilities

                         Museums will be created including an archaeology museum,
                         and an historical ships museum.    Existing attractions, such as
                         the USS Constitution, the Charles River Dam public exhibit,
                         and the New England Aquarium, which already attract year-
                         round, crowds, will be further strengthened by the addition of
                         new activity centers such as a bandstand and Tall Ships
                         dock. At least five new harborviews will be constructed, one
                         of which will be an 8th floor observation deck. At least five
                         new public and commuter docks and marinas at Sargent's
                         Wharf, Rowes and Fosters Wharves, T Wharf, and Hoosac and
                         Fan Piers will be constructed or renovated, greatly improving
                         the existing shortage of public marina space in the Boston
                         Harbor. These attractions will be united with parks, family
                         recreational areas, and enclosed public cafes by the seven
                         mile harborwalk.

                         Public amenities, parkland and activity centers are delineated
                         in Table 3; they  total 1,903,265 square feet, or 43.7 acres,
                         of improved public space. This is a double benefit to the
                         City, in that City funds are not required to construct or
                         maintain these improvements. Construction costs paid by
                         private and non-municipal public sectors total $76,480,000.
                         The City will also be relieved of maintenance, thus saving    the
                         City an estimated $122,360 per year.*

                         Boston residents and visitors will have easy access to these
                         cultural and recreational amenities through Harborpark's
                         intermodal transportation network. This system will integrate
                         land, air and water transportation to capitalize on the
                         Harbor's geographic configuration, thus relieving some of the
                         current burden of auto and subway modes.

                              Figures derived from Fiscal 1985 budget, City of Boston,
                              Raymond L. Flynn.

                                                  40

                        Public Benefits From Proposed Development Projects

                        An important characteristic of the new development projects.in
                        Harborpark will be that they will reclaim the waterfront for
                        recreational purposes. The following development projects
                        will include a variety of benefits for the residents of Boston,
                        reflecting a heightened public awareness in project planning.

                         1.   The Fan Pier Project would produce as much as $18 million
                              in public improvements, including large public parks, a
                              marina and public taxi dock. A major element will be
                              the tree shaded Harborwalk, providing access to the
                              water's edge, and dramatic view corridors to the Harbor.

                         2.   The New Northern Avenue Bridge construction will
                              provide a reliable transportation link from the Interstate
                              System to industrial development activities at Boston
                              Marine Industrial Park, Commonwealth Pier and the Fish
                             'Pier. This will relieve truck traffic congestion from the
                              residential areas of South Boston. The new bridge will
                              continue the Harborwalk across Fort Point Channel, and
                              represent $11 million in public improvements.

                         3.   The Historic Northern Avenue Bridge is the existing
                              bridge, swung open and rehabilitated as a public dock
                              and boating supply store.    It will represent $800,000 in
                              public improvements.

                         4.   Rowes & Fosters Wharves will create over $2 million
                              worth of public improvements, including an eighth floor
                              Harborview deck, a domed central court with cafe, a
                              public dock with commuter boat terminal, and a continua-
                              tion of the Harborwalk.

                         5.   The India Wharf project will incorporate a continuation of
                              the Harborwalk along the edge of Harbor Towers. This
                              will represent a privately funded contribution of $300,000.
                              Outdoor art already exists in this, portion of Harborwalk.

                         6.   The Aquarium has existing amenities, including a public
                              seating area, seal pool, public sculpture and dolphin
                              show. Additional privately funded improvements will be
                              incorporated into this popular attraction.

                         7.   The Long Wharf and T Wharf projects will contain $18.7
                              million in public improvements. The restored Harbor
                              Islands. terminal on Long Wharf will provide docking
                              facilities for water taxis, harbor ferries, and pleasure
                              boats. Pier head improvements at T Wharf include an
                              exhibit of Harbor artifacts and historic ships.

                                                            41

                           8.  The Walk-to-the-Sea includes a public walkway through
                               Marketplace Center connecting an improved Waterfront
                               Park. Marketplace Center public amenities will include
                               the $300,000 landscaped walkway, a $175,000 archaeology
                               museum, and a $700,000 pedestrian ization of a portion of
                               Commercial Street, all privately.funded. Waterfront Park
                               is slated for a new bandstand, benches and trees, a
                               $265,000 improvement.

                           9.  Commercial Wharf is a $11.4 million private development
                               investment. This development will contribute public
                               ,open space improvements and will be an appropriate site
                               for a Wintergarden.

                         10.   Lewis Wharf will provide a continuation of the Harborwalk
                               at the pier heads and possibly a historic ship museum,
                               allowing a view of the Harbor. These privately funded
                               amenities could total over $2 million.

                         11.   Pilot House includes a Harborview and public seating.
                               Current amenities include public acces-s to the water's.
                               edge.

                         12.   Sargent's Wharf development offers a 300,000 square foot
                               opportunity for mixed income housing, office, retail, and
                               parking.   Development investment is projected at over
                               $3.8 million dollars and could produce substantial public
                               amenities, including a public boat landing and marina,
                               harbor taxi landings, waterfront viewing area, and a
                               continuation of the Harborwalk. The public amenity
                               contribution is estimated at $4.7 million.

                         13.   Union Wharf  is planned to include a continuation of the
                               Harborwal k, projected at $860,000, to be privately
                               funded.

                         14.   Lincoln Wharf/Fireboat Pier includes the San Marco
                               Housing Corporation's conversion of the old MBTA power
                               plant to 190 units of moderate income condominiums.
                               Included here is an additional 50,000 square foot oppor-
                               tunity for housing at the Coal Pocket Building as well as
                               opportunities for additional public open space.      Public
                               amenities will include a Tall Ships and public dock, as
                               well as a Harborview. These privately funded improve-
                               ments are estimated at $3.5 million. Also proposed is a
                               Maritime Museum, representing a private sector contri-
                               bution of $250,000. The private sector will also recon-
                               struct Battery Street, allowing -landscaped access to the
                               Fire Boat Pier, worth $160,000.

                                                        42

                       15.  Battery Wharf is the last working pier on the downtown
                            waterfront, with a lobster pound, and fish and produce
                            dealers. A public viewing area, and continuation of the
                            Harborwalk, will be privately funded, costing $250,000.
                            (Funding sources to be identified.)

                       16.  Constitution Wharf is proposed to include a continuation
                            of the HarborwalT, and construction of a public viewing
                            area; this work is estimated at $290,000.

                       17.  The North End Playground includes swimming pools,
                            baseball fields, boccie courts, tennis courts, playing
                            fields and a hockey rink.  Renovations to the playing
                            fields is estimated at $610,000. (Funding sources to be
                            identified. )

                       18.  The Charles River Dam Area will include a continuation
                            of the Harborwalk connecting the Paul Revere Landing in
                            Charlestown to the North End Playground. The Dam,
                            designed as a flood control project, provides viewing of
                            locks, fish ladders, an observation bridge, and public
                            exhibit and slide show of the dam. Harborwalk improve-
                            ments are estimated at $600,000. (Funding sources to be
                            identified.

                       19.  The Charlestown City Square/Rapids Warehouse DevelopLnent
                            inclu s a development opportunity at the Rapids Wharf
                            of $24 million. The project will generate 320 construc-
                            tion jobs, 830 permanent jobs, and $720,000 in property
                            tax revenues.  Public amenities of this project include a
                            continuation of the Harborwalk, privately funded at
                            $200,000.

                       20.  Hoosac Pier continues the Harborwalk, with the project
                            being privately funded at $350,000.

                       21.  Charlestown Shipyard Park includes the USS Constitution
                            and the decommissioned Navy destroyer, Cassin Young.
                            The public marina includes access to the waterfront, and
                            400 feet of docking space; the private marina provides
                            slips for 550 boats, 50 of which are for public docking.
                            Improvements here have been budgeted at $3.5 million.

                       Other Related Benefits

                       Dorchester Beaches

                       Harborpark will be important to providing public access along
                       the waterfront and linkage to other recreational areas of
                       Boston, such as the Malibu and Tenean beaches in Dorchester.

                                                 - 43

                         This linkage will be further extended as future public
                         bikeways and walkways will connect the beach areas with
                         marshes along the Neponset River.

                         Public Sailing

                         Harborpark will provide additional opportunities for public
                         sailing -- a favorite recreational sport of Boston residents.
                         As a result, this sport currently concentrated on the Charles
                         River and the Charles River Basin will be enjoyed in other
                         areas of Boston's Inner Harbor, making possible its integra-
                         tion with other recreational and cultural activities offered at
                         Harborpark.

                         Harbor Islands

                         Harborpark will open up many opportunities for linkages.
                         between Boston and its Harbor Islands. The new transporta-
                         tion facilities along Harborpark, including commute r/excu rs ion
                         boat/water-taxi terminals and public marinas, will facilitate
                         access to the Harbor Islands and greatly expand the variety
                         of recreational space that will be enjoyed by Boston residents.

                         Charles River

                         Harborpark will link to.the Charles River Esplanade -- an
                         existing public open space along the Charles River. As a
                         result, pedestrian movement will be facilitated between the
                         cultural and recreational events which already take place
                         along the Esplanade and those events which will be included
                         in Harborpark.

                                                           44

                                                        TABLE 3
                                              PROJECTS WHERE MAJOR
                                           PUBLIC AMENITIES ARE ADDED

                                                   Square
                                                   Feet           Activities             Scheduled
                         Project                   Added          Added                 Completion

                         Fan Pier                    688,725      Marina                   1987-89
                                                                  Water Taxi Dock
                                                                  Housing

                         New Northern     Avenue      19,925      Landscaped Park          1987-89

                         Historic Northern            46,875      Public Dock              1981-89
                         Avenue Bridge                            Marina
                                                                  Observation Tower

                         Rowes & Fosters              43,750      Boat Terminal            1985-87
                         Wharf                                    Observation Tower

                         Long Wharf/T Wharf          256,400      Boat Docks               1984-85
                                                                  Major Park               1987-89
                                                                  Historical Exhibit

                         Walk-to-the-Sea             gog,  000    Bandstand                1984-85

                         Commercial Wharf             17,920      Maritime Museum          1987-89
                                                                  Public Dock

                         Lewis Wharf                  37,880      Wintergarden             1987-89
                                                                  Aviary

                         Pilot House                  10,000      Harborview               1985-87

                         Sargent's Wharf              82,100      Water Tax.i Dock
                                                                  Public Boat Dock         1985-87
                                                                  Housing

                         Lincoln Wharf                40,990      Fireboat Pier            1985-87
                                                                  Tall Ship Dock           1985-87
                                                                  Maritime Museum

                         Battery Wharf                24,000      Harborview               1985-87

                         Constitution Wharf,          27,500      Harborview               1984-85

                         Charlestown City             50,000      Harborview               1984-85.
                         Square/Rapids                            Marina
                         Warehouse Develop.

                         Charlestown                 348,200      Major Path               1985-87
                         Shipyard Park                            Park
                         TOTAL           or        1,903,265
                                                  .43.7 acres

                                                              4S

                                                             TABLE 4

                                          POPULATION AND HOUSING UNITS FOR
                                               HARBORPARK NEIGHBORHOODS
                                                               1980

                                                                                              Housing
                             Neighborhood Areas                                Population     Units

                               (5)  Charlestown/Medford St., The Neck             3,770          1,607
                               (6)  Charlestown/Thompson Sq., Bunker              9,594
                                       Hill, Town Hill, Monument
                               (8)  North Dorchester/Columbia Point,              12,680         6,096
                                       Savin Hill, Columbia
                             (15)   South Dorchester/ Fields Corner               2,111             927
                                       East
                             (18)   South Dorchester/Neponset, Port               8,317          2,946
                                       Norfol k
                             (23)   East Boston/Central and Maverick              7,811          3,922
                                       Squares, Paris Street
                             (24)   East Boston/Eagle Hill                        9,305          4,085
                             (25)   East Boston/Harbor Viewl Orient               9,755          3,994
                                       Heights
                             (26)   East Boston/Jeffries Pt., Airport             5,307          2,562
                             (32)   Boston Harbor Islands/Crews of                1,748               1
                                       Vessels
                             (48)   North End/Waterfront                          10,859         6,168
                             (56)   South Boston/City Point                       8,658          3,827
                             (57)   South Boston/Columbus Park,                   6,736          3,222
                                       Andrew Square
                             (58)   South Boston/D Street, West                   6,319          3,307
                                       Broadway, Northern Section
                             (60)   South Boston/Telegraph Hill                   8,683          31702

                             Total  Harborpark                                   111,653        50,881

                             Total  City of Boston                               562,994       241,444
                             Harborpark as a Percentof Boston                     19.8%          21.1%

                             Source:     U.S. Census of Populations and Housing, 1980.

                                                                 46

                                                         TABLE 5

                             HARBORPARK PUBLIC IMPROVEMENTS AND INVESTMENTS

                                                                 Costs of Public
                                                                   Improvement
                                                            Public         Private       Development
                           Projects                         Sector         Sector        Investment

                            1.   Fan Pier                   $              $18,560,000   $279,000,000
                            2.   New Northern Ave. Br.       11,000,000
                            3.   Historic N. Ave. Br.            800,000

                                 TOTAL AREA 1               $11,800,000    $18,560,000   $279,000,000

                            4.   Rowes and Fosters          $              $ 2,130,000   $ 56,760,000
                            5.   India Wharf                                   120,000
                            6.   Aquarium                                      700,000
                            7.   Long Wharf/T Wharf          18,700,000
                            8.   Walk-to-the-Sea                 265,000.     1,175,000
                            9.   Commercial Wharf                             21800,000     11,410,000
                           10.   Lewis Wharf                     170,000      2,240,000     23,600.000
                           11.   Pilot House
                           12.   Sargent's Wharf               4,660,000,                   38,240,000
                           13.   Union Wha.rf                                  860,000
                                 TOTAL AREA 2               $23,795,006    $10,025,000   $130,010,000

                           14.   Lincoln Wharf              $              $ 3,500,00    $ 17,650,000
                           15.   Battery Wharf                                 250,000
                           16.   Constitution Wharf              290,000
                           17.   North End Playgrounds           610,000

                                 TOTAL AREA 3               $    900,000   $ 3,750,000      17,650,000

                           18.   Charles River Dam Area$         600,000   $             $
                           19.   City Square/Waterfront                        200,000      24,000,000
                           20.   Hoosac Pier                                   350,000
                           21.   Shipyard Park                 3,500,000

                                 TOTAL AREA 4.              $  4,100,000   $   550,000   $ 24,000,000

                           TOTAL                            $40,595,000    $32,885,000   $450,660,000

                                                            47

                  Citizen Participation

                            4

                                           CITIZEN PARTICIPATION

                        Decisions affecting the future of the Boston Harbor area
                        require the participation of numerous government agencies,
                        diverse interests from the private sector, and, most of all,
                        the people who live in Boston's neighborhoods. The ultimate
                        success of Harborpark, the translation of ideas and plans to
                        reality, depends in great measure on establishing a process
                        that assures citizen participation. The subtitle of this
                        document, "A Framework for Planning Discussion", says as
                        clearly and unequivocally as possible that the Harborpark
                        concept is simply the start of a community discussion and
                        exchange of views among a broad spectrum of groups and
                        individuals.  Citizen participation is the very heart of
                        Harborpark. Our,goal is to establish a new standard for
                        successful community involvement.

                        Citizens will help pu blic officials make hard choices about
                        Harbor related development and zoning policies while reviewing
                        specific project improvements. Citizen participation in
                        Harborpark will be structured so that community representa-
                        tives consider broad topics, such as transportation, infra-
                        stucture, economic development and land use patterns, as well
                        as specific development proposals.

                        This document presents ideas and concepts that set the
                        boundaries for the planning discussions which will follow.
                        While the document provides direction and basic principles,
                        the citizen participation process will examine and redefine
                        Harborpark into a comprehensive plan.      To do so success-
                        fully, the process must be public, open and fair.    The first
                        step toward guaranteeing an open and fair process     is creating
                        a Citizen Advisory Committee for Harborpark.

                        The Harborpark Advisory Committee

                        The Harborpark Advisory Committee will consist of fifteen
                        persons appointed by the Mayor. Five of the members will
                        represent governmental agencies concerned with the protection
                        and development of the Harbor. ' Five will represent community
                        groups concerned with the five Harborpark residential neighbor-
                        hoods (East Boston, Charlestown, North End-Inner Harbor,
                        South Boston, and Dorchester). The remaining five will be
                        individuals who have demonstrated special concern for Boston
                        Harbor and its importance to the City.; they will represent the
                        public at large.

                                                    40

                        These fifteen people will advise the Mayor and the  Boston
                        Redevelopment Authority on all matters concerning  Harborpark
                        and Harbor related policies. They will review reports and
                        proposals from BRA staff, as well as from developers and
                        community and environmental groups.

                        A major function of the Advisory Committee will be to review
                        and make- recommendations concerning the rezoning of the.
                        Harbor's edge, running from Chelsea Creek in the north to
                        Neponset in the south. The rezoning portion of the planning
                        exercise will be completed by December, 1985. Additional
                        responsibilities will include monitoring inter-governmental
                        activities and participating in the development of Harborpark
                        Phase One.

                        During the interim zoning period, the Committee will be
                        responsible for developing the list of approved and dis-
                        approved uses for the overlay district. As part of this
                        process, it will review development projects submitted to the
                        City which require approval under the interim zoning regula-
                        tions. The Advisory Committee will assure that the process
                        for controlling development throughout the Harborpark areas
                        balances the concerns of neighborhoods, private investors,
                        and government agencies. This comprehensive process will
                        produce a plan which provides for balanced growth and public
                        access in Harborpark.

                        Existing Advisory Committees

                        A number of citizen advisory  committees are currently involved
                        with Harbor related planning and projects. The Advisory
                        Committee will not replace these committees or other commit-
                        tees which may be established from time to time to advise on
                        specific projects. The Advisory Committee will develop a
                        close working relationship with existing and newly created
                        project advisory committees, and bring to discussions of local
                        projects a wider view of Harbor issues. Maintain,ing the
                        balance between the vital work of the project committees and
                        the broader perspective of the Advisory Committee will be a
                        critical part of the Harbor planning process.

                        Preliminary Implementation Schedule

                        Throughout the planning process, issues which arise will be
                        communicated to the community at large by newsletters and
                        the media.  Documents produced for each of the topics and
                        study areas will be distributed throughout the community.

                                                    49

                      Time Table

                      The following preliminary schedule should set the citizen
                      participation process in motion.

                      Harborpark Phase One

                      Months 1- 4 -    Public meetings and agreement on detailed
                                       goals
                      Months 5-11 -    Drawing specific plans for Harborpark
                      Months 12-15 -   Establishing parcel guidelines and
                                       implementation agreements

                      Coordination of Government Agencies

                      Months 1- 4 -    Public meetings and agreement on Harbor
                                       goals
                      Months 5-11   -  Detailing Harbor management plans
                      Months 12-15  -  Establishing inter-agency agreements

                      Re-zoning   -

                      Months 1- 4   -  Public meetings and agreement on. goals for
                                       each study area
                      Months 5-11   -  Detailing zoning revisions and a second set
                                       of public meetings for review
                      Months 12-15  -  Adoption of zoning amendments

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                                               ZONING

                      Zoning is the most effective land use control available to
                      Boston.  Effective zoning is a valuable planning tool and an
                      instrument of economic development. By defining appropriate
                      locations for various uses, zoning encourages beneficial
                      development and limits the public costs of growth.

                      EXISTING ZONING

                      Boston's Zoning Code was adopted in December, 1964. Since
                      that time, major physical, economic and demographic changes
                      have occurred in the City. The area that has been most
                      critically affected by these changes is the waterfront. As a
                      result of the decline of shipping in this region, the demand
                      for waterfront space from water-dependent industrial users
                      has decreased. One third of the land bordering Boston
                      Harbor (excluding Logan Airport) is now vacant.

                      The 1964 Harbor zoning mainly codified then-existing indus-
                      trial uses. Many of these uses are now considered unaccept-
                      able. For example, certain industrial uses along the Harbor
                      not only degrade water quality with hazardous chemicals, they
                      also make adjacent properties unpleasant to use and undesir-
                      able to develop. In Charlestown, scrap metal is stored in
                      open space on the Harbor's edge, and highly noxious uses
                      have been proposed adjacent to residential areas. In
                      Dorchester, next to the Port Norfolk residential areaj a large
                      paper company which has stored toxic substances for several
                      years is moving out, but a similarly undesirable use could,
                      under the existing Zoning Code, replace the outgoing use.
                      The table below describes the permitted uses under the
                      existing zoning designations.

                                                 Table 1

                             EXISTING ZONING DESIGNATIONS - SUMMARY OF
                                             PERMITTED USES

                      Zone       Name and Permitted Uses

                      W-2        Waterfront Industrial: Industrial uses allowed "if
                                 waterfront activity is required for receipt or
                                 dispatch of goods or for any other reason; other-
                                 wise conditional".* Multi-family and temporary
                                 dwellings are conditional; all other residential
                                 uses are forbidden. Most commercial and business

                          Boston Zoning Code 8-7,66.

           WATERFRONT OVERLAY PLANNING DISTRICT

                                            -/7

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                                                                                      STUDY AREA BOUNDARIES

                                                                                      1 INNER HARBOR
                                                                                      2 sourm sosToN PIERS
                                                                                      3 DORCHESTER BAY BEACHES
                                                                                      4 CHARLESTOWN WATERFRONT
                                                                                      5 EAST BOSTON WATERFRONT

                         Zone          Name and Permitted Uses

                         W-2           uses are conditional. W-2 currently covers more.
                         (con't)       land on the waterfront than any other zoning
                                       designation.

                         H             Residential, Apartments: All residential uses are.
                                       allowed except lodging houses., which are condi-
                                       tional: All retail, business uses are conditional
                                       or forbidden: All industrial uses are forbidden.

                         B             Retail Business and Office: All residential uses
                                       and most office, retail and business uses are
                                       allowed: Most industrial uses are forbidden in
                                       B-1, B-2, and B-4, and conditional in B-8 and
                                       B-10.

                         M-1, M-2      Light Manufacturing: Most light manufacturing,
                                       industrial, retail, business, and office uses are
                                       allowed. One and two family houses are forbidden;
                                       multi-family dwellings are conditional; heavy
                                       industrial uses are forbidden.

                                       General Manufacturing:     Residential uses are
                                       forbidden except some group care residences,
                                       which are conditional: Most other uses are condi-
                                       tional or allowed.

                         R-.5, R-.8    Two/Three Family Residential: Single family and
                                       multi-family dwellings are allowed: Some institu-
                                       tional uses are allowed: Most commercial and all
                                       manufacturing and industrial uses are forbidden.

                         PROPOSED ZONING

                         In order to change the pattern of waterfront use, to encour-
                         age and at the same time control Harbor redevelopment,
                         Boston must rezone its waterfront. Zoning revisions should
                         be the product of a comprehensive planning process, and
                         citizen participation must be the foundation of such a pro-
                         cess. Thus rezoning the waterfront will take time. Over the
                         next year, a comprehensive planning process for the waterfront
                         will be initiated. During the planning period we must guard
                         against introduction of land uses that would be incompatible
                         with the land use goals and revised zoning designations that
                         will evolve from the planning process. In order to establish
                         adequate safeguards, the Boston Zoning Commission will be
                         petitioned to establish an Interim Overlay Planning District
                         designation in the Boston Zoning Code. The Interim Overlay
                         Planning District will, until December 31, 1985, apply to the
                         Boston waterf ront.

                                                            53

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                        The Interim Overlay Planning District will consist of five
                        planning areas. These areas, their general planning goals,
                        and existing zoning are described below:

                        Area 1:   Inner Harbor Waterfront

                          o  The  downtown waterfront is generally defined by a line
                             running from the east side of Hoosac Pier in Charlestown
                             along Water Street to the new Charles River Dam along
                             Commercial Street and Atlantic Avenue; along the north
                             side of the Fort Point Cha@nel to West Second Street;
                             West Second Street to B Street; and northeast to Pier 4.

                          o  The general goals for this area are public access and
                             mixed use commercial, residential, and recreational
                             activities that make the transition from downtown activi-
                             ties to water-dependent and water-enhanced uses.       No
                             structures other than those which facilitate, public access
                             and recreation use should be built at the water's edge.
                             Heights should be no greater than two stories at the
                             Harbor's edge.    Inland heights should step up gradually
                             toward downtown Boston.

                          o  Existing zoning includes:
                             a)   light manufacturing (M-2, M-4)
                             b)   retail business and office (B-8, B-8-U)
                             c)   waterfront industrial (W-2)

                        Area 11:  South Boston Piers

                          �  This area is bounded generally by a line from Pier 4
                             southwest to West Second Street and along East Second
                             Street to Farragut Road.

                          �  The general goals for this area are   increased public
                             access, and mixed use commercial,    residential and indus-
                             trial activities that are compatible with the adjacent
                             residential areas, and that improve the connection
                             between the Harbor and the land.      No structures should
                             be built at the water's edge, and the structures closest
                             to the water should be no higher than two stories, step-
                             ping up to four stories inland.

                          �  Existing zoning includes:
                             a)   waterfront industrial (W-2)
                             b)   general manufacturing (1-2)
                             c)   light manufacturing (M-2. M-8)

                                                      55

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                       Area I 11: Dorchester Bay Beaches

                          o This area is generally bou ,nded by Castle Island, and
                            ends at Granite Avenue on the Neponset River below the
                            Port Norfolk area of Dorchester.

                          o The general goals for this area are retaining and enhan-.
                            cing the open space, parks, and beaches along the
                            Harbor, promoting residential uses, and protecting the
                            residential areas from industrial intrusion and impacts.
                            No structures other than for public recreational use
                            should be built near the water, and heights in this
                            planning area should be limited to three stories.

                          o Existing zoning includes:
                            a)   two and three family dwellings (R-.5, R-.8)
                            b)   residential apartments (H-1, H-2)
                            c)   general business and office (B-1)
                            d)   light manufacturing (M-1)
                            e)   general manufacturing (1-1)
                            f)   waterfront industrial (W-2)

                       Area IV: Charlestown Waterfront

                          � This area is generally bounded by the east side of
                            Hoosac Pier, Water Street, Chelsea Street, and Medford
                            Street to Sullivan Square; Sullivan Square northwest on
                            Mystic Avenue to the Somerville line.

                          � The general goals for this area are promoting public
                            access, mixed-use residential and commercial activities in
                            the Charlestown Navy Yard, mixed-use commercial and
                            compatible water-dependent manufacturing activities with
                            near-by residential areas, and providing employment
                            opportunities for the community.    No structure other
                            than those which facilitate public access and recreation,
                            or which are necessary for. water-dependent and maritime
                            uses, should be built at the water's edge, and no struc-
                            ture greater than two stories should be. built in this
                            area.

                          � Existing zoning includes:
                            a)   waterfront industrial (W-2)
                            b)   retail business and office (B-1, B-1-U)
                            c)   residential apartments (H-1-U, H-2-U)
                            d)   light manufacturing (M-1-U)

                                                    57

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                         Area V:    East Boston Waterfront

                           o  This area- is generally bounded by Chelsea Street from
                              the Chelsea River to East Eagle Street; East Eagle Street
                              to Conclor.Street; Condor Street to Falcon Street; Falcon
                              Street; to Meridian Street to London Street; London
                              Street to Maverick Street; Maverick Street to Harve
                              Street; Karve Street to Summer Street; Summer Street to
                              Orleans Street; Orleans Street to Webster Street; Webster
                              Street to Summer Street and east to Maverick Street;
                              Maverick Street to Logan Airport.

                           o  The general goals for this area are creating and inte-
                              grating a compatible mix of water-dependent, water-
                              related, and water-enhanced uses including housing,
                              commerce, recreation and open spaces, and public access
                              to and from the water.     Buildings nearest the water
                              should not exceed two stories, and heights should step
                              up inland but should not exceed three stories.

                           o  The existing zoning includes:
                              a)    waterfront industrial (W-2);
                              b)    light manufacturing (M-1, M-2).

                         INTERIM EXCLUDED USES

                         All existing residen tial uses in the Interim Overlay Planning
                         District will be entirely exempt from its controls. All other
                         changes in use or buildings within the Interim Overlay Planning
                         District will be subject to review and approval as explained
                         below. Changes in use must conform with the goals and
                         objectives of Harborpark which will be further defined in the
                         public planning process.    In the interim, the following uses
                         are excluded:

                         Area 1:     Inner Harbor  Waterf ront
                                     - All general manufacturing and heavy industrial
                                       uses including all uses which are objectionable   or
                                       offensive because of special danger or hazard,
                                       or because of cinders, dust, smoke, refuse
                                       matter, flashing, fumes or gases.
                                     - All wholesale and distribution warehousing.
                                     - All open storage of junk, chemicals, equipment
                                       or vehicles.
                                     - All motor freight terminal uses.

                         Area  11:   South Boston Piers
                                       All uses which are objectionable or offensive
                                       because of special danger or hazard, or because
                                       of cinders, dust, smoke, refuse matter, flashing,
                                       fumes and gases.

                                                        60

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                           Area 111:   Dorchester Bay Beaches
                                         All general manufacturing and heavy industrial
                                         uses including all uses which are objectionable or
                                         offensive because of special danger or hazard,
                                         .or because of cinders, dust, smoke, refuse
                                         matter, flashing, fumes and gases.
                                         All wholesale and distribution warehousing.
                                         All open storage and storage of junk, chemicals,
                                         equipment or vehicles.
                                         All general business and commercial uses other
                                         than those associated with residential uses.

                           Area I V:   Charlestown Waterfront
                                       - All heavy industrial uses including all uses
                                         which are objectionable or offensive because of
                                         special danger or hazard, or because of cinders,
                                         dust, smoke, refuse matter, flashing, fumes or
                                         gases.
                                       - All open storage of junk, chemicals, equipment
                                         or vehicles.

                           Area V:     East Boston Waterfront
                                         All general manufacturing and heavy industrial
                                         uses including all uses which are objectionable or
                                         offensive because of special danger or hazard,
                                         or because of cinders, dust, smoke, refuse
                                         matter, flashing, fumes or gases.
                                         All open storage and storage of junk, chemicals,
                                         equipment or vehicles.
                                         All motor freight terminal uses.

                           PROCEDURES

                           The Interim Overlay Planning District ordinance will be devel-
                           oped with citizen participation, as explained in the previous
                           section. The ordinance will be introduced this month.

                           Any applicant for a building. or change-in-use permit related
                           to non-residential property, within the Interim Overlay
                           Planning District, will have to receive an Interim Planning
                           Permit from the Board of Appeal before the Inspectional
                           Services Department can issue the requested permit.

                           The Inspectional Services Department must determine if an
                           Interim Planning Permit is required by any application for
                           change-in-use or bu.ilding permits.      if so, the application will
                           be denied and forwarded to the Board of Appeal and the
                           Boston Redevelopment Authority.

                                                            62

                         The Boston Redevelopment Authority, acting as Ahe City's
                         planning agency must, within ninety days, report to the
                         Board of Appeals whether or not the proposed action is
                         consistent with the planning goals for the overlay district,
                         with the comprehensive planning process, and with contem-
                         plated land uses.

                         The Board of Appeals will not, in any case, hold a hearing or
                         make a decision on the appeal until it has received a report
                         from the Boston Redevelopment Authority, unless the Redevelopment
                         Authority has not issued its recommendation within the required
                         ninety days.

                         In order to issue an Interim Planning Permit, the Board of
                         Appeal must find that the proposed action is consistent with
                         the land use objectives of the Interim Overlay District, and
                         that the proposed changes will not adversely affect the com-
                         prehensive planning process.

                                                     63

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                                    INTERGOVERNMENTAL COORDINATION

                        Developing a plan for. Boston Harbor would not be possible
                        without careful consideration of the roles, responsibilities,
                        and activities of the many government agencies, commissions,
                        and authorities that have jurisdiction over some aspect of the
                        Harbor.   A study of Boston Harbor by the Massachusetts
                        Institute of Technology's Sea Grant program found over 100
                        government actors on Harbor issues.* That report listed lack
                        of coordination as one of the most serious problems preventing
                        optimal development and utilization of the Harbor. Since that
                        time new initiatives such as the Legislature's Special
                        Commission on Boston Harbor have improved intergovernmental
                        communication and coordination' somewhat, but many problems
                        remain.

                        In addition to regulating activity on and around the Harbor,
                        government agencies are major investors in projects which
                        affect the Harbor and the surrounding communities.   Federal,
                        State, and local agencies have programmed approximately
                        three billion dollars for capital improvements around Boston
                        Harbor. The largest portion of these funds are for land
                        transportation projects (Central Artery Depression, Third
                        Tunnel, Seaport Access Road), sewage treatment and water
                        quality improvements, and development of the Harbor Island.
                        State Park and related mainland transportation terminals.

                        Public investment of this magnitude will draw substantial
                        private investment to the Harbor. The agencies involved
                        must closely coordinate their activities to make sure that
                        maximum public benefit is squeezed from every dollar, public
                        or private, invested in the Harbor.

                        The Harborpark planning process will involve relevant govern-
                        ment agencies at both the staff and executive levels. Five
                        spaces on the Advisory Committee are reserved for representa-
                        tives of Harbor-related agencies and authorities. In this
                        way, Harborpark projects will start from a base of cooperation
                        and coordination with funding and permitting agencies at the
                        regional, State and Federal levels.

                            Kildow, Judeth T., et al, Boston Harbor Management
                            Study, MIT SC 81-15, MIT, MIT Sea Grant College
                            Program.

                                                      64

                               PROPOSED PUBLIC INVESTMENT IN BOSTON HARBOR

                                                                                  COMPLETION
                          USE & ACTIVITY            AGENCY COST EST.                   DATE

                          TRANSPORTATION
                          3rd. Harbor Tunnel        DPW           $ 1,000,000,000      1994
                          Seaport Access Road       DPW           $   400,000,000      1994
                          Depression of
                            Central Artery          DPW           $1,000,000,000       1998
                          Northern Ave. Bridge      DPW           $   14,000,000       1988
                          Water Taxi                Private                            1985

                            SUB-TOTAL                             $2,414,000,000

                          WATER AND SEWER
                          Ft. Pt. Channel C&D
                            Station                 MDC           $   54,550,000    Unfunded
                          Reserve Channel C&D
                            Station                 MDC           $    5,314,000    Unfunded
                          East Boston CSO
                            Program                 MDC           $   20,386,000    Unfunded
                          Court Ordered Harbor
                            Clean-up                MDC           $1,100,000,000    Unfunded
                          CSO Improvements          BOS/
                                                    W&S           $    5,485,000    Unfunded
                          East Side & Main          BOS/
                            I nterceptors           W&S           $   66,500,000    Unfunded

                            SUB-TOTAL                             $1,252,235,000

                          PARKS & RECREATION
                          Harbor Islands State      DEM/
                            Park                    MDC           $   34,310,000       2005
                          Castle Island
                            Improvements            MDC           $    5,400,000       1986
                          Dredging of Boat          Water-
                            Channels                Ways          $    5,000,000       1986

                            SUB-TOTAL                             $   44,710,000

                          PORT IMPROVEMENTS
                          Conley Terminal           Massport      $   18,000,000
                          New Marine Terminal
                            (@BMIP)                 Massport      $   80,000,000
                          Fish Pier Renova-
                            tions                   Massport      $   18,000,000
                          Coast Guard Base
                            Upgrading               C.G.

                            SUB-TOTAL                             $   116,000,000
                            TOTAL                                 $3,826,945,000

                                                               6S

                          LAND AND WATER USE CONTROLS

                          Local Involvement

                          Along the Boston waterfront, land use decisions are the sole
                          purview of the City of Boston, except where the site is under
                          the control of another specifically authorized level of govern-
                          ment, such as Commonwealth Commissions (MDC) or
                          Authorities (Massport). Water use and management decisions
                          involve Commonwealth and Federal agencies, as well as the.
                          City of Boston..

                          Federal Involvement

                          Federal interest in water use regulation focuses on three
                          issues, only two.of which are germane to Boston Harbor.
                          These are protection of the navigational characteristics of
                          coastal waters, and improvement and protection of water,
                          quality.

                          Although there are many Federal laws affecting. coastal        water
                          management and water use.clecisions, seven, pertain in        parti-
                          cular to Boston Harbor:

                           �   Clear Air Act;
                           �   Federal Aviation Act'of 1958;
                           �   Federal Water Pollution Control Act;
                           �   Marine Protection, Research, and Sanctuaries Act;
                           �   National Environmental Policy Act;
                           �   Ports and Waterways Safety Act; and
                           �   Rivers and Harbors Act of 1899.

                          In some cases, management and, control responsibilities have
                          been passed through to the individual States for adminis-
                          tration.  In other cases, the authorities are exercised
                          through the issuance of permits (e.g., Rivers and Harbors
                          Act of 1899). Finally, in some cases (e.g., Ports and
                          Waterways Safety Act), the legislated authority has not been
                          fully exercised. For examp    le, through the Ports and
                          Waterways Safety Act, the U.S. Coast Guard has the
                          allthority to regulate vessel traffic in coastal waters,     includ-
                          ing Boston Harbor, but has not yet chosen to exercise that
                          authority.

                          State Involvement

                          State interest in water use regulation centers on three issues:
                          the protection of public trust resources, the improvement and
                          protection of water quality, and the protection of ecologically
                          significant resources.

                                                           66

                        DEVELOPMENT REGULATIONS

                        Federal Involvement

                        At the Federal level there are three separate but coordinated
                        permits, each with its own regulations, that must be obtained
                        before developing projects in or adjacent to Boston Harbor.
                        These are:

                        1.    Section 10 Permits control projects proposed for navig-
                              able waters to assure that they do not interfere with
                              navigation and that they live up to certain design. and
                              environmental standards;

                        2.    Section 404 Permits control the effect that a proposed
                              development has.on the quality of the water; and

                        3.    Section 103 Permits control the transport and discharge
                              of dredged materials into coastal waters.

                        The   U.S. Army Corps of Engineers serves as the lead agency
                        for -issuing these permits.

                        State Involvement

                        There are seven separate sets of State regulations that must
                        be complied with, prior to developing projects on Boston
                        Harbor. These include:

                        1.    Waterways Licenses to protect the Commonwealth's interest
                              in the public trust resources (submerged lands or tide-
                              lands) that would be affected by any proposed development;

                        2.    Consistency Approval assures that the proposed develop-
                              ment is. consistent with the policies of the Massachusetts
                              Coastal Zone Management Plan;

                        3.    MEPA Approval assures that the proposed development
                              does not adversely effect the environment as set forth
                              for in the Massachusetts Environmental Policy-Act;

                        4.    Water Quality Certificates protect the quality of coastal
                              waters;

                        5.    NPDES Permits control the discharge of pollutants into
                              coastal waters;

                        6.    Dredging Permits control the disposal of dredged materials
                              so that they will not injure water quality, degrade the
                              environment, or harm public health; and

                                                     67

                                      PERMITS REQUIRED BY LOCATION

                                                                Shore    Pie rhead
                                                      inland    Line     Line      Harbor

                 Planned Development Area Approval

                 Chapter 121A Proposal App roval

                 Section 10 Permit

                 Section 103 Permit

                 Section 404 Permit

                 Waterways License

                 NPDES Permit

                 Water Quality Certificate

                 Dredging Permit

                 Consistency Approval

                 Wetlands Protection Act Permit

                 Permit for Floats and Moorings

                 Approval for Floats and Rafts

                 MEPA Approval

                 Sewer Extension Permit

                 Municipal Service Connection
                  Permit

                 Cross-Connection Permit

                 Runoff Discharge Permit

                 Utility Installation Permit

                 Roadway/Sidewa.lk Construction
                  Permit

                 Municipal Water Service Permit

                 Water and Sewer Permits

                 Building Permits

                 Permit to StoreFlammable Liquids

                 Curb Cut Permits

                                                    60,

                         .7.  Sewer Extension Permits certify that the existing system
                              .of.sewers is adequate to accommodate the anticipated
                              sewage increase.

                         The Massachusetts Department ef Environmental Quality
                         Engineering serves as the lead agency for the permits, license,
                         and certificate listed above and the Executive Office of
                         Environmental Affairs serves as the lead agency for the two
                         approvals..

                         Local Involvement

                         in addition to,-zoning approval, there are two separate sets of
                         local regulations that must be complied with, prior to
                         developing a project on the Boston waterfront. These are:

                         1.   Wetlands Protection. Act Permits, issued by the Conservation
                              Commission,. protect the public interest in tidelands by
                              preventing damage to water supplies and fishery or
                              shellfish areas, and by preventing increases in flooding,
                              storm damage and pollution. A Wetlands Permit is required
                              for development of property within one hundred feet of
                              the water or in a flood plain;

                         2.   Temporary Float and Mooring Permits, which control the
                              location of certain developments so that they will not
                              interfere with other water uses. This permit is issued
                              by the Harbormaster (a member of the Boston Police
                              Department).

                         COMMISSIONS, AUTHORITIES,, AND AGENCIES

                         In addition to those agencies which regulate development in
                         Boston Harbor, there are agencies and authorities that own
                         or control land and facilities on the Harbor.

                         The Special Commission an Boston Harbor

                         This Commission was established by Chapter 25 of the Acts
                         and Resolves of 1979 to balance the economic, social, and
                         environmental interests related to Boston Harbor. Commission
                         members include representatives from both Houses of the
                         Massachusetts Legislature, representatives from Commonwealth
                         agencies having responsibilities relating to Boston Harbor,
                         appointed member from each of the cities and towns adjacent
                         to the Harbor, and representatives of major water user and
                         interest groups. The Commission meets monthly except
                         during the summer, and serves as a review board for all
                         legislation concerning the,protection and development of
                         Boston Harbor.

                                                        69

                         in its short history, the Commission established priorities for
                         expenditure of dredging funds, resolved disputes on complicated
                         legislative proposals, provided a means for inter-government
                         and citizen -government communication, and generally improved
                         the management of Boston Harbor.

                         The Commission is an important forum for assuring that, in
                         the Harborpark planning process, public and private efforts
                         are coordinated with public decision making.

                         Metropolitan District Commission (MDC)

                         The Metropolitan District Commission is a regional agency
                         responsible for water and sewer services, parks, roadways,
                         and policing in certain parts of the Boston. metropolitan area.

                         As the agency responsible for metropolitan water and sewer
                         service, MDC owns and operates the treatment facilities at
                         Dear and Nut islands in Boston Harbor. These facilities have
                         been a source of major pollution in the Harbor, but efforts to
                         improve these facilities have not proceeded due to lack of
                         funding and organizational difficulties.

                         Legislation has been filed to remove the MDC's water and
                         sewer authority and place the responsibilities in a new
                         Metropolitan Water Resources Authority. This new Authority
                         would have complete responsibility for the court-mandated
                         Harbor cleanup, and authority to sell bonds to finance its
                         activities.

                         The MDC has recently initiated major rehabilitation of its
                         beaches and recreation facilities, from Castle Island to the
                         Neponset River and Mattapan Square. Considerable funds
                         have been spent on rehabilitation efforts, particularly at Fort
                         Independence on Castle Island, and on acquiring the missing
                         links in a continuous pedestrian system along the Dorchester
                         shoreline. Additional funding must be obtained to complete
                         planned improvements for the beaches along the Dorchester
                         and- South Boston shoreline.

                         New waterfront recreation improvements have recently been
                         completed by the MDC in the North End between the Charlestown
                         Bridge and the City of Boston North End Playground.

                         Boston Water and Sewer Commission

                         The Boston Water and Sewer Commission, established by the
                         State Legislature in 1977, oversees water supply and sewer
                         service in the City of Boston. The Commission has embarked
                         on two major construction projects. The New Boston Main
                         and the East Side interceptors will dramatically improve water

                                                      70

                       quality in Fort Point Channel; they are important components
                       in the overall Harbor cleanup program. The second major
                       construction project is the Combined Sewer Outlet Improvement
                       Program, which will greatly reduce dry-weather, sewage flow
                       into the @ Harbor.

                       Massachusetts Port Authority (Massport)

                       Massport is the.Authority that owns and   operates seaports
                       and airports for the Commonwealth.    It owns marine terminals
                       in South Boston, East Boston, and Charlestown, the multi-
                       purpose Commonwealth Pier and adjacent Fish Pier in South
                       Boston, and Logan Airport.

                       Massport has been expanding and modernizing its    facilities to
                       meet the growing needs of maritime shippers.    It is making a
                       $116 million investment in the Port of Boston's future to
                       insure that Boston remains a working seaport.    Projects
                       include the following:

                         �  The $18 million Conley Terminal  container facility;
                         �  The $80 million development of the 47 acre Massport
                            Marine Terminal - a multi-purpose cargo facility at the
                            Boston Marine Industrial Park;
                         �  The $18 million renovation of historic Boston Fish Pier;
                         �  The revitalization of Massport owned property
                            Commonwealth Pier, Hoosac Park, and Bird Island Flats,
                            all of which have pedestrian access to the water; and
                         �  A contract with the Boston Redevelopment Authority to
                            prepare a master plan for the reuse of the Massport-owned
                            piers in East Boston (56 acres.on Piers 1-5).

                       Department of Environmental Management (DEM)
                       (Commonwealth Office of the Secretary of Environmental
                       Affairs)

                       The Department of Environmental Affairs is actively involved,
                       as the State's responsible agency, in carrying out the Master
                       Plan for Boston Harbor Islands.   Under the mandate of the
                       1972 Harbor Islands Master Plan, all of the Harbor Islands
                       (with the exception of the City of Boston owned Spectacle and
                       Long Islands, and privately owned Thompson Island) have
                       been acquired by the Commonwealth and preliminary improvements
                       have been made.    DEM has entered into a contract for updating
                       the 1972 Master Plan. Work is nearing completion and will be
                       presented to the public within the next few weeks. Prelim
                       inary indications are that DEM will require another $20 million
                       to complete the Master Plan recommendations and to improve
                       the Harbor Islands so that they are accessible to the public.

                                                   71

                                              HARBOR ISLANDS STATE PARK

                                                                                       COMPLETION
                            LOCATION                   AGENCY COST EST.                   DAT E

                            Long Wharf                 DEM          $ 9,000,000        1985-87
                            Long Island                                7,600,000       1985-87
                            Spectacle Island                          13,000,000       1,993-95
                            Georges Island                             1,000,000       1985-87
                            Hewitts Cove                              2 j 000, 000     1985-87
                            Bumpkin Island                               450,000       1996-2005
                            Gallops Island                               .460,000      1985-87
                            Lovells Island                               600,000       1996-2005
                            Rainsford Island                             200,000       1996-2005

                               TOTAL                                 $34,310,000

                            DEM-is also involved in     current waterfront projects. The
                            Long Wharf reconstruction project, for example, is underway
                            with $9 million in State funding.

                            Department of Environmental Quality and Engineering (Division.
                            of Waterways)

                            The Department issues tidelands licenses under Chapter 91
                            of the Massachusetts General Laws for development projects
                            on Boston Harbor. Under amendments to. the legislation
                            approved last year, new regulations are being promulgated
                            which require public benefits to outweigh public costs for
                            non-water dependent Harbor developments. Enforcement of
                            these new regulations will greatly assist in adding public
                            access and amenities to Harbor related projects.

                            Coastal Zone Management (CZM,)
                            This Federally mandated office is now a separate' Department
                            of the Commonwealth. CZM has developed a planning and
                            management program for coastal development activities. CZM
                            received $17 million to be granted to municipalities for con-
                            struction of marine facilities.    Projects of up to one-half
                            million dollars (matched with 50% local- funds) may be funded.
                            Eligible projects include a variety of waterfront improvements,
                            ranging from fishing piers to wharf reconstruction.            Final
                            regulations for disbursing the grants are being drafted.

                                                               72@

                       National Park Service

                       The National Park Service is proceeding with the rehabilita-
                       tion of,the USS Constitution National Historic Site in
                      .Charlestown. Pier 2 at the Charlestown Navy Yard will be
                       rehabilitated in 1985. All planned improvements for this site
                       will be completed within the next three years, at a total cost
                       of $1.7 million.

                       Land and Water Conservation Fund (LAWCF) (Department of
                       the Interior, National Park Service)

                       The National Park Service, through the Land and Water
                       Conservation Service, is a major funding source.for public
                       improvements along.. Boston Harbor. Beginning with the
                       Downtown Waterfront Park, and including the Charlestown
                       Shipyard Park and, a portion of Long Wharf, LAWCF has
                       funded in excess of $15 million of public recreation and public
                       access facilities. Additional neighborhood waterfront recrea-
                       tion projects have been undertaken by LAWCF in East Boston
                       at North Ferry Park and at Jefferies Point Park. While Land
                       and Water Conservation funds have diminished due to Federal
                       cutbacks, LAWCF remains an important resource for con-
                       tinuing improvements along the Harbor edge.

                       Coast Guard

                       The Coast Guard maintains navigation facilities, establishes
                       maritime regulations, provides protective and law enforcement
                       services and administers some marine facility grant programs.
                       In Boston Harbor, the Coast Guard is completing a major
                       rebuilding and renovation program for its North End base.

                       SIMPLIFICATION OF PROCESS

                       The proceeding section contains a partial list of the govern-
                       ment agencies and government permits required for waterfront
                       development. The following flow chart shows how complex the
                       process of finding and satisfying all relevant government
                       requirements is for the construction of a relatively uncompli-
                       cated marina.

                       Harborpark proposes, as one of its goals, to coordinate and
                       simplify this process by organizing joint review, public hear-
                       ing, and approval procedures for the maximum number of
                       permits. Similar efforts have been'successful elsewhere, most
                       notably for environmental approvals of projects on the Chesapeake
                       Bay, and as part of the Section 774 anti-snob zoning proced-
                       ures.

                                                       73

                                                           '21

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                          The failure to resolve this-problem has created a significant
                          barrier to new development, and has created unnecessary
                          costs which must be passed on by the developer. Simplifica.-
                          tion of existing procedures will reduce the cost and time
                          required for new developments, and thus make additional
                          money available for privately funded public improvements
                          without burdening either the developer, the eventual owner,
                          or user.

                          If the private sector is going to be required to internalize the
                          cost of public improvements in its total development costs, the
                          public sector should incorporate efficiency into its regulatory
                          process.

                                                          75

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                                                                                                                                                                                                                                                                            - - - - - - - - - -

                                          FOLLOW THROUGH

                       Over the next few months several key steps must be taken to
                       move the Harborpark process along. Some of these steps are
                       required to be taken by the City, some by other governmental
                       units, some by the private sector and some by the Advisory
                       Committee proposed in this report. Those interested in the
                       rational development of Boston Harbor will carefully watch the
                       progress of the following steps:

                        o Appointment of the 15 member Advisory Committee by
                           Mayor Flynn.

                        o Introduction of interim Overlay Zoning Ordinance to
                           Zoning Commission by the Boston Redevelopment Authority.

                        o Development of interim Harborpark Design Guidelines.

                        o  Publication of Planning Reference Materials on the
                           Institutional Framework of Harborpark.

                        o  Enactment of Water Quality Legislation, including funding.

                        o  Approval of the new Northern Avenue Bridge Design by
                           the State, including a public amenity package.

                        o  Review of Shipyard Park Development Proposals and
                           selection of a Developer.

                        o  Establishment of Project Action Committees for Fan Piers,
                           Dorchester Beaches, and Charlestown Navy Yard.

                        o  Publication of Developer's Kit for Sargent's Wharf.

                        o  Final Approval for Rowes & Foster's Wharves Development.

                                                   76

                                                              CREDITS

                                       THE BOSTON REDEVELOPMENT AUTHORITY
                                GRATEFULLY ACKNOWLEDGES THE CONTRIBUTIONS
                                          OF THE FOLLOWING STAFF PEOPLE:

                         Susan Allen                     Assistant Director for Urban Design and
                                                           Development Review
                         Lisa Alves                      Word Processing Center Technician 111
                         John Avault                     Economic Analyst
                         Barbara Barros                  Development Policy Planner
                         Linda Bourque                   Director of Zoning
                         Rod Brann                       Urban Design Intern
                         Gary Brown                      Planning Officer 11
                         Jeffrey Brown                   Economic Analyst
                         Mel Carrington                  Senior Draftsman 11
                         Lisa Clinton                    Xerox Services
                         Catherine Carroll               Administrative Assistant III
                         Bill Costa,                     Director of Graphic Design
                         Kerry Dacey                     Graphic Designer I
                         Emel Derbentli                  Planning Officer I
                         Alice Dinneen                  .-Office Manager
                         Edward Devitt                   Xerox Services Manager
                         Stephanie Dooley                Administrative Secretary
                         Loraine Downey                  Executive Secretary Conservation Commission
                         Roberta Downey                  Word Processing Center Assisant Manager
                         Roger Erickson                  Senior Landscape Architect
                         Martha Fitzpatrick              Landscape Architect Intern
                         Alex Ganz                       Director of Research
                         Chris Grace                     Special Assistant to the Director
                         Gail Grenes                     Landscape Architect Intern
                         Joan Greifield                  Administrative Secretary
                         Susan Haar                      Special Assistant
                         Liora Haymann                   Urban Design Intern
                         Alfred Howard                   Director of Transportation Planning
                         John Huggins                    Special Assistant to the Director
                         John Hurley                     Xerox Services.
                         Leon Jacklin                    Transportation Planning Officer 11
                         Carolyn Kaplan                  Special Assistant
                         Victor Karen                    Senior Architect
                         Herbert Kashin                  Consulting Artist
                         Bob Kroin                       Chief Senior Architect
                         Paul McCann                     Executive Assistant
                         Ralph Memolo                    Public Information Officer
                         Marty Minasian                  Cartographer IV
                         Dan Moon                        Chief of Graphic Design
                         Shirley Muirhead                Landscape Designer
                         Peter Neitz                     Senior Technician
                         Joseph Noonan                   Assistant Director for Finance Administration
                         Claire O'Connor                 Technician IV
                         Marc Older                      Senior Project Coordinator
                         Pratapp Patrose                 Development Policy Planner

                                                        77

                         Greg Perkins                Economic Analyst
                         Pierce Pearman              Senior Technican
                         Veronica Quirk              Technician I
                         Kimberly Robinson           Assistant Project Coordinator
                         Brana Rodrigo               Development Assistant
                         Arlene Saunders             Administrative Secretary
                         Pam Schooley                Landscape Design Intern
                         Paul Sebago                 Xerox Services
                         Richard Shaklik             Planning Officer,11
                         Marc Webb                   Assistant Director for Planning and Zoning
                         Marie Welby                 Administrative Clerk 11
                         Philip Zeigler              Director of Planning

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