Management operational plan for the Rockland Fish Pier

[From the U.S. Government Printing Office, www.gpo.gov]

HE
554
R6
M36
1986

wzl i

... ... ......... . . .. . ...... . ........... . ........ ......... . ... .. ...7

FLn aj'o@]

EASTERN
MID-COAST
PLANNING COMMISSION
July 17.1986
Mr. Robert Peabody US Department of Commerce
Chairman NOAA Coastal Services Center Library
Rockland Fish Pier Committee 2234 South Hobson Avcnuo
Rockland City Hall Charleston, SC 20405-2413
Rockland, Maine 04841

MANAGEMENT OPERATION, PLAN FOR THE ROCKLAND FISH PIER

Dear Bob,

The Eastern Mid-Coast Planning Commission, in cooperation with
the Eastern Maine Development Corporation and consultants James
R. Osterqard and Fourtin Powell are pleased to present to you the
Final Report for the MANAGEMENT OPERATIONAL PLAN FOR THE ROCKLAND
FISH PIER.

We feel that the information outlined in this plan provides a
launching for the development of a healthy, viable, commercial
fishing pier for the City of Rockland.

The team working on this Plan feel strongly that the Rockland
Fish Pier must be constructed immediately. We believe that the
City and the fishing industry as a whole have much to be qained
from this project. We enjoved working with you, Cathy Smith (the
City manager), the Rockland City Council members, and the Fish
Pier Committee members. We feel that a well thought out plan for
the pier has resultcd from our close working relationship.
We hope that this report addresses your questions and concerns
regarding the management and operational future of the Rockland
Fish Pier. If you have any further questions please do not.
hesitate to give me a call. Thank you for this unique
opportunity.

"Financal assistance for preparation of this document
was provided by a qrant from MAINE'S COASTAL PROGRAM,
through funding provied by U.S.Department of Commerce,
Office of Ocean and Coastal Resource Management, under
the Coastal Zone Management Act of 1972 as amended."

Sincerly,

Patricais A. Jennings
Executive Directer
Eastern Mid-Coast Planning Commission

MANAGEMENT AND OPERATIONAL PLAN FOR THE

ROCKLAND FISH PIER

TABLE OF CONTENTS

TITLE PAGE

Executive Summary 1

Management Recommendations 3

Operational Recommendations 5

Maintenance Summary 6

History and Introduction 7

Current Rockland Fish Pier Description 9

Fish Pier Drawings 12

Fish Pier Photos is

Economic Analysis is

Maintenance Schedule 21

Projected Costs of the Maintenance Schedule 21

Other Rockland Public Harbor Facilities 25

Current Users of the Rockland Fish Pier 26

Potential Commercial Users of the Fish Pier 28

Other Potential Users of the Fish Pier 32

Management Structure: Similar Piers 35

Stonington, Maine 36

Portsmouth, New Hampshire 36

Plymouth, Massachusetts 37

Stonington, Connecticut 41

EXECUTIVE SUMMARY

The City of Rockland is faced with an unusual opportunity
to provide an exceptional local facility for commercial fishermen
at the former McLoon Wharf. The intent of this document is to
summarize the findings of the consultant team retained to study
the management/operations options available to the City and to
make recommendations that will (1) tend to maximize the City's
return on its investment in the pier; (2) consider future
expansion of the facility; (3) tend to minimize future municipal
expenditures; and (4) assist in consolidating plans and
operations of all municipal harbor facilities.

RECOMMENDATIONS

1. THAT The City of Rockland should proceed immediately
with the construction of a commercial fishing pier on the
site of the former McLoon Wharf;

2. THAT the City of Rockland should create a Harbor
Authority to be the coordinators for the entire Rockland
Harbor including the new Fish Pier, the existing
Fishermen's Pier, all boat launching rampst the Public
Landing, mooring facilities, and any other future marine
related public facilities;

3. THAT the City of Rockland should encourage fishermen
to use the new facility through a positive management and
marketing program under the direction of a Harbor
Director;

4. THAT the City of Rockland should make a financial
commitment to the Fish Pier as indicated in this document
for the next twenty years;
I
S. THAT the City of Rockland should make the following
specific commitments to develop an expandable, efficient,
and economical Fish Pier:

a. Add all vertical pier surfaces to the
definition of the project area so that additional
major construction expenditures are not imposed
on the municipal budget;

b. Budget $7,500 per year from Fish Pier income
for continuing the maintenance schedule included
in the final report;

C. Include the necessary funds in the municipal
budget annually to cover routine expenditures
received by other municipal facilities (snow
plowing, insurance, etc.);

d. Provide a suitable surface for the Fish Pier
so that fish wastes do not accumulate and create
an unsanitary nuisance condition;

-1-

e. Require that no granite be removed from the
existing pier without the unanimous agreement of
the Engineer, the State, the City, and the
Contractor;

f. Accommodate the WILLIAM McLOON in her present
location using a combination of CEIP and private
funding;

g. Postpone the construction of the wooden
appendage at the end of the granite filled pier
until all other elements of the Fish Pier are
completed as detailed in the final report. The
exception to this recommendation is that the
foundation pilings should be installed to allow
Coastal Tankers Inc. to construct a, berthing
facility in their present location. When funding
becomes available to construct the appendage, a
more permanent material and design should be
developed than is offered by wood construction.

SUMMARY

MANAGEMENT (POLICY) RECOMMENDATIONS

1. That the City Council create a Harbor Authority consisting of
representatives of the fishermen, the fishing industry, the
general public,, and the City administration to establish
guidelines and direction for the utilization of the Rockland Fish
Pier.

2. That the City Council restructure the present Harbormaster
position to a Harbor Manager or Port Captain whose duty would be
to manage and market the Fish Pier and all other marine related
municipal facilities.

3. That the City Council establish a policy to manage the Fish
Pier, Fishermen's Pier, Public Landings, and the City's moorings
to optimize revenues consistent with serving the needs of the
facility users.

4. That the City Council establish priorities to accommodate
competing uses for the available harbor space. Those uses which
produce the most income with the least disruption to the
commercial fishing interests at the lowest cost and with the
least land demand should have the highest priority.

5. That the City Council market Rockland Harbor to the fishing
industry in a business-like manner encouraging the growth of
fishing related businesses.

6. That the City Council encourage development of land adjacent
to the Harbor for marine related industries.

7. That the City Council promote the Fish Pier for berthing of
vessels particularly during the winter months.

8. That the City Council promote the use of the Fish Pier for
commercial fishing interests and encourage the use of other
Rockland facilities for non-commercial fishing interests.

9. That the City Council advocate the following recommendations
related specifically to the construction of the new Fish Pier:

a. That the rotten wood portion of the McLoon Wharf be
demolished.

b. That the granite filled portion of the Fish Pier be
refurbished such that no additional expenditures will be
required by the City for other than routine maintenance.

C. That the foundation piles be replaced on the McLoon
Wharf to allow Coastal Tankers to reconstruct a berthing
facility for their oil tanker.

-3-

d. That construction funds not expended on "a", "b", and
"c" above be utilized to construct a concrete decked
extension to the granite filled pier where the wooden
McLoon Wharf was removed.

e. That floats and gangways be constructed and installed
when the Fish Pier is constructed to allow maximum use of
the facility.

SUMMARY

OPERATIONAL RECOMMENDATIONS

1. That during construction of the Fish Pier, the owners of
Coastal Tankers, Inc. be allowed to install fender piling and, a
catwalk adjacent to the foundation piles in such a manner that
the WILLIAM McLOON can be berthed in sufficient water
approximately in its previous location.

2. That water, electricity, and ice be available on the Fish
Pier.

3. That berthing for vessels be instituted on the western face
of the granite filled pier beginning with a 40' slip at the
inshore end, then a 501 slip, and two 701 slips.

4. That floating fenders (camels) be installed along the western
face of the granite filled pier to prolong the life expectancy of
the fender piles. If this camel system is installed, that fender
piles be pressure treated rather than untreated to extract
maximum life from the system.

5. That if floats are included in the redesign of the Fish Pier,
lobster fishermen be included as users of the facility.

6. That consideration be given to accommodating commercial
excursion vessels from the eastern face of the granite filled
pier.

7. That rules be promulgated clarifying the allowed uses,
prohibited uses, and any other information necessary for the pier
to function as designed.

-5-

MAINTENANCE SCHEDULE

YEAR ACTIVITY COST

1987 - Seal coating of the asphalt paving surfaces. $500.

1988 - Miscellaneous repainting, refiberglassing, etc. 250.

1989 - New cribbing in areas not rebuilt during 1986. 100,000.
Repairs to electrical and plumbing systems. 500.

1990 - Resealing of asphalt paving surfaces. 500.
Miscellaneous repainting, refiberglassinq, etc. 250.

1991 - Replacement of damaged fender piles. 5,000.

.1992 - Miscellaneous repainting, refiberglassing, etc. 250.

1993 - Resealing of asphalt paving surfaces. 500.

1994 - Miscellaneous repainting, refiberglassing, etc. 250.

1995 - Repairs to electrical and plumbing systems. 500.

1996 - Replacement of damaged fender piles. 15,000.
Resealing of asphalt paving surfaces. 500.
Miscellaneous repainting, refiberglassing, etc. 250.

1997 - Miscellaneous repairs at pier mid-life. 5,000.

1998 - Miscellaneous repainting, refiberglassing, etc. 250.

1999 - Resealing of asphalt paving surfaces. 500.

2000 - Miscellaneous repainting, refiberglassing, etc. 250.

2001 - Replacement of damaged fender piles. 55,000.

2002 - Resealing of asphalt paving'surfaces. 500.
Miscellaneous repainting, refiberglassing, etc. 250.

2003 - Repairs to electrical and plumbing systems. 500.

2004 - Miscellaneous repainting, refiberglassing, etc. 250.

2005 - Resealing of asphalt paving surfaces. 500.

TOTAL $187,250.*

These costs do not reflect any elements added to the pier after the
initial construction phase. For example, finger piers, floats,
buildings, etc. are not included in the maintenance budget.

-6-

ROCKLAND FISH PT-,-R

History and Introduction

The history of the Rockland Fish Pier began in November 1979 when
the voters of Maine approved an $11.9 million bond issue
including seven fish piers from Eastport to Kennebunkport. The
City of Rockland was allocated $600,000 in state money. On
September 30, 1980, the City received a draft contract from the
State Planning Office, funded by the Coastal Zone Management
program, for $8,400 for "A Feasibility Analysis of Public Fish
Pier Construction on the Rockland Waterfront". A Harbor
Improvement Committee was formed in February 1981 to combat
Rockland Harbor's poor image and problems such as water quality,
lack of moorings, and lack of attention to the harbor. This
committee evolved into the present Fish Pier Advisory Committee.
Arthur Thurston is the current Chairman.

On December 13, 1982, the City Council authorized a design
contract for a fish pier. The Maine Department of Transportation
approved a $123,000 engineering design contract on December 20,
1982, which was signed by Wright-Pierce, C. E. Maguire, Inc. in
February 1983. In April 1983, a delegation of Rockland officials
visited Kennebunkport (Cape Porpoise) and Portsmouth, New Hamp-
shire fish piers. A second proposal for a fish pier, to be
located in the North End, was made by Westatlantic, which was to
have built a freezer plant adjacent to their proposed site. On
May 3, 1983, Rockland voters approved, by a 476 to 454 vote, a
referendum for $150,000 in City funding for a fish pier. With
the local funding, a total of $1,250,000 was available for the
fish pier, including $600,000 from the state and $500,000 from
the Economic Development Administration. Bids for construction
of a new fish pier, which was to have been located in the South
End at the site of the Knox Pier (former Maine Central Railroad
pier) were received in September 1983. Prock Marine Company's
bid of $1,034,000, lowest of nine bids received, was $44,000 too
high. The construction of a new fish pier was not undertaken,
since any reductions in an already minimal pier would have
resulted in a pier which would not have met the needs of
fishermen. On January 9, 1984, the City Council voted to sell
the South End site to Cianbro, which had considered it for a
cement loading pier, for $115,000.

On May 2, 1984, the Rockland Harbor Committee endorsed the McLoon
Wharf site for a fish pier. Transfer of federal funding from the
South End site to McLoon Wharf was approved by the Economic
Development Administration on September 28, 1984, thus clearing
the way for purchase of the McLoon Wharf and design studies for
its reuse as a public Fish Pier.

The City of Rockland, in order to carry out its responsibilities
and to obtain the best, long-term use of the public Fish Pier,
has requested that a Management and Operations Plan be prepared
for the Fish Pier Committee. The Fish Pier, in the Crocketts
Point area of Rockland, off Commercial Street, is now owned
jointly by the City and the Maine Department of Transportation,
but will become the property of the City following completion of
the reconstruction. The agreement between the Maine Department
of Transportation and the City of Rockland, dated September 16,
1980, read, in part, "The City further agrees to continue the
maintenance and operation of the facility as a public commercial
fish pier for a minimum of twenty years following its
completion."

Current Rockland Fish Pier Description

Physical Review of the Existing Facility

The City of Rockland was able to develop a Fish Pier site by
making two purchases - the first being the former McLoon Wharf
and the second being a tract of land adjacent to the wharf.
Approximately $575,000 was invested in federal, state, and local
funds to make this purchase. According to records in the
Rockland Assessor's Office, the total parcel of land encompasses
1.76 acres.

Any increase in physical size of the pier would be prohibitively
expensive and time consuming. Removal of the dilapidated
buildings and paving of the pier will constitute the extent of
physical improvements to the pier. The possibility exists of
rebuilding all (or a portion) of the wooden McLoon Wharf which is
scheduled to be demolished as part of this project. (See
attached drawings). Other additions might include floats and
small wooden deck extensions. The existing wooden pier, the "L"
which extends northeasterly from the southern end of the solid-
filled portion of the pier, is approximately 651 x 175'. The
Engineer's proposal is to reduce that to 30' x 175'. The
significance of this change is that instead of having eleven feet
of water at the northwest side of the "L" at low water, there
would be less than one foot of water, making this side unuseable
for the majority of the shing boats.

The adjacent land parcel has potential for developing commercial
buildings and parking space. Ancillary facilities such as:
restaurants, marine supplies, storage facilities, etc. would be
quite compatible.

Priorities need to be set to accommodate potentially competing
uses for the available space. Those uses which: produce the most
income with the least disruption to the commercial fishing
interests; the lowest cost; and with the least land demand,
should have the highest priority and be encouraged.

The existing granite filled portion appears to require the least
expenditure to create the most productive pier area. The removal
of the dilapidated structures, some filling and grading prior to
paving, and a fender pile system, including installation of
camels, will provide the majority of the useful berthing and
unloading area of the project.

The existing "Ll' is approximately 651 x 1751 of timber
construction on top of an unfinished granite pier. The southeast
face of this section is higher than the elevation of the rest of
the granite filled pier and acts as a breakwater protecting the
area where the WILLIAM McLOON is presently berthed. There is
also a northeast granite wall and a short return forming a
northwdst wall. There is granite grout fill placed against the
southeast granite block wall of this section which slopes toward

-9-

the northwest. There appear to be remains of some cribwork among
the pilings. There is no granite block wall along the northwest
side for some 160' where the WILLIAM McLOON is berthed. Instead
there are timber fender piles tied into the timber deck above the
granite walls and a row of interior foundation piles.

The appearance of the granite "L" as it is hidden by the rotten
timber decking would suggest that at one time this section was
going to be surrounded in granite and filled. Indeed at the
juncture of the solid-filled pier and the "L", just easterly of
the slipway, some fill has been placed approaching the level of
the remains of the wooden deck.

Essentially, there are two proposals to consider for the
development of this "L". One is the design as it exists on the
Wright & Pierce drawings - a 30' x 175' timber structure limited
to pedestrian traffic. (The design is being revised to
accommodate light vehicular traffic. This change is anticipated
to increase the construction costs.) As designed, there will be
approximately eight inches of water adjacent to the northwest
side of the (reduced size) pier at low water.

The recommendation of this plan is to replace the timber
foundation piles on the northwest side of the "Ll', as called for
on Wright & Pierce drawings approximately 28' from the face of
.the granite wall, thereby allowing Coastal Tanker to drive fender
piling in their existing location tied back to the new foundation
piles. The new foundation piles will maintain the stability of
the granite fill and the interconnecting of the fender piles will
provide a stable berthing area for the McLoon. It is not known
how much decking can be installed on the top of these piles
within the current construction budget. The recommendation. of
this plan is that new decking be of more permanent material than
timber. Some form of precast concrete decking would be suitable.
The decking should be installed in phases from the face of the
filled granite pier across the entire 65' width from the
southwest granite wall across the foundation piles to the
fenderpile system at the McLoon berth. This could be
accomplished in a fashion similar to the system at the Lubec Fish
Pier where wooden foundation piles were driven and a concrete cap
was poured encapsulating the piles. Concrete planks were then
installed between this cap and the concrete cap covering the
stone riprap. In Rockland these planks could span between the
concrete cap on the granite wall to the cap on the foundation
piles to the cap next to the fendler piles.

Pier designs utilizing timber that is exposed to weather, tidal
water, or large moving vessels has a limited life-expectancy.
This will require substantial maintenance costs. As shown on the
plans, the Rockland Fish Pier costs are as follows*: foundation
piling timber at $16,800, timber pier at $130,585.25, timber
fender system at $68,802.50, and timber fender piles at $43,200.
The total is $259,387.75.

_10-

Ten years ago the McLoon Wharf supported oil trucks on the wood
pier. Today it is unsafe for pedestrian traffic. The proposed
new timber fender system uses untreated piles with a life
expectancy of 10-15 years. To observe the contract with EDA
requiring a minimum of 20 years of operation, the fender piles
will need to be replaced at a cost of approximately $75,000 by
the year 2001. Some $5,000 annually will need to be set aside to
pay for these maintenance costs. This is an unavoidable cost
whether the "L" is decked over or not. However, it may be
advisable to eliminate fender pilings along much of the southeast
face of the "L" if an additional take-out station is not to be
constructed at this time. The fender pilings could be added when
the deck is extended and a third take out station is installed.

A substantial difference in costs occurs when the timber pier
becomes 25-30 years old and significant maintenance must be
accomplished to continue to use the facility. A few more years
down the road and major reconstruction including new foundation
piling will be necessary. The granite filled pier will be
functional with only the fender system requiring maintenance.
(The paved surface will need some sealing and patching).

The economic questions appear to be:

Is the north-easterly "Lls important to the functioning of the
Fish Pier?

Is it important to make it as permanent as the rest of the
pier?

From an examination of the construction drawings the answer to
these two questions appears to be "no".

. Will the pier operate twelve months of the year? How will snow
and ice removal be addressed?

The proposed timber pier was not designed to be accessible to
snow removal equipment. The granite filled pier should be paved
to permit economical snow temoval and the timber wheelstops
should be redesigned to be less susceptible to plow damage. One
alternative might be to redesign the concrete cap with suitable
openings for drainage in place of the treated wood caplogs now
proposed. The fender pilings, ladders, and other elements of the
fendering system could be bolted to this concrete cap, which
could also serve as a wheelstop. Future expenditures what would
have gone towards replacement costs associated with the proposed
wooden structure could be used to extend the concrete decking
system previously mentioned.

I I

f
/- - - - - - - - - - - - - i

I
,- -- -1
./'f

1/1

I
1-@

EXI STING MCLOON PROPERTY WITHOUT 13UI L DI NGS

SCALE: I" = SO'

PROPOSED NEW ROCKLAND CITY PIER

SCALE: I" = 50'

0 0 0

RECOMMENDED ROCKLAND FISH PI EP DESIGN
SCALE: I,,

FINAL CONFIGURATION

"WOW an

one

Two views of the present McLoon berth, Above, looking from the
shore end of the pier in a southeasterly direction the vessel
half loaded at mid water. Note in the above photo the present
pilings set alongside the granite buttress. Below, looking in a
southerly direction into the present McLoon berth at low water
with the vessel fully loaded.

A
g,
306, i

-77

Above, the south face of the pier. The sardine carrier on the
left is lying in the approximate proposed herring take-out area.
Just to the right of the carrier's bow is the old ferry slip, to
be filled. The proposed wooden deck would start at the end of
the ferry slip and continue to the easternmost part of the pier.
Note the higher elevation of granite to the right of the photo.

Below, the south corner of the pier. The vessel to the left is
taking out groundfish at the present take out site, note the
derrick and boom. The sardine carrier to the right is just below
the present herring take out conveyor.

-16-

14V

Z;T

VII

Above, the easternmost face of the present wharf. Present plans
call for removal of at least one third of this granite to fill
the ferry slip. This granite is the breakwater for the berths
inside.

Below, the western face, shown last winter. Vessels' laying at
the south end have unloaded fish. The large building will be
removed. This is the view from the present Fishermen's Pier
below the Courier-Gazette building.

. . ... ..... .

7. .77

Rockland Fish Pier

Economic Analysis

In reviewing the financial information presented for the Rockland
fish Pier, one finds that the projections support the economic
viability of the project. This is not to be construed as an automatic
guarantee that a surplus will occur but that it will with prudent
management of the fish pier. The assumptions utilized in the
preparation of the projected income and expenses are conservative
based on the information gathered.

When one looks at each individual category, this conservative
approach becomes evident.

a) Tanker Berth - This is based on a reasonable rent
i-ayment , although the owners of the William McLoon
would be willing to pay additional rent based on
what services would be provided.

b) Take-out Berth (Groundfish) - The assumption of
$250,000 pounds per year is a minimum figure and
the poundage could be significantly higher. The
.03 per pound was arrived after discussions with
Rockland officials.,

c) Take-out Berth (Herring) - The 4 million pounds of
herring per year is also a minimum figure as is the
$3.00 per ton pumping fee. This figure has ranged
to as high as $10.00 per ton. Revenues for this
aspect could increase significantly based on the
per ton charge.

d) Twelve Berthing Spaces - If these spaces are fully
i-tilize'd then the revenue figures that are
presented here are attainable and are in fact
marginally higher than the $8,500 outlined in the
report.

e) Other Revenues - Other revenues could be realized
from providing additional services or other
berthing options (such as floats). Any of these
would have certain start-up costs and possible
ongoing expenses which would need to be carefully
evaluated before instituting any additional
revenue generating programs.

f) Expenses - The major expense will be for
maintenance o'f the fish pier. The assumptions
here are that these expenses will be needed to
update and maintain the facility. Although these
expenses may not equal the estimates initially,
excess funds must be placed in escrow to offset
additional expenditures in future years.

-18-

The numbers clearly indicate a surplus of income over expenses of
$21,000. Such an amount of revenue could be used to hire a person to
be facility manager tied in with harbormaster. Projecting revenue is
one thing but collecting it is another. For a surplus to be realized,
the money must be collected from the various parties. It is believed
that there has been difficulty in collecting money in the past for
harbor fees. The city needs to maintain a presence on the pier in
order to facilitate collections. Combining the harbormaster with a
pier manager may alleviate this problem.

In review, with prudent management and controls the fish pier should
operate at a surplus for the City of Rockland. The City needs to
exercise the control necessary and the fiscal management necessary to
make this happen.

ROCKLAND FISH PIER

INITIAL YEAR ESTIMATED REVENUES AND EXPENSES

PRESENT PROPOSAL

PROPOSED CONSTURCTION COSTS: $593,000
(based on Engineering estimates)

AVAILABLE REVENUE FROM PRESENT USERS:
1 berth
2 take out berths
12 berthing spaces

Projected income based on present users:
Tanker Berth (WILLIAM McLOON)
Rent @ $175/month + $2,100/year*

#1 Take Out Berth (Groundfish):
M & N SEAFOOD
250,000 lbs/year
@ $.03/pound + $7,500/year

#2 Take Out Berth (Herring):
ISLAND PUMP, INC.
4,000,000 lbs/year
@ $3.00/ton + $6,000/year
Rent @ $125/month + $1,500/year*

Rent for 4 berths, Southwest Face:
(Each berth used for three vessels)
230 feet of berthing space
@ $12.50/foot/year + $8,500/year
Total: $25,600/year

PROJECTED MAINTENANCE COSTS:
Fender pilings $5,000/year
Other $2,500/year
Total: $7,500/year

TOTAL: Present Rents $3,600/year*
Projected Revenues $18,100/year
(yearly income minus
maintenance costs)

NOTE: ADD $25,000/year for maintenance for first five years for
vertical surfaces north of shore end of main pier, if not
included in original project.

Maintenance Schedule

As with any capital project there are built in future costs
associated with the development of the Fish Pier. This section
deals with one aspect of those costs - the expense involved with
maintaining the facility in safe operating condition. Two
categories of expenses should be considered. The first is the
unplanned and unscheduled repair/replacement costs resulting from
accidents and unforeseen occurrences. These include but are not
limited to breakage caused by poor operating practices of fishing
vessels, damage due to abnormal weather conditions, paving damage
from gasoline leaking from parked vehicles, frost damage,
vandalism, etc. These situations require funds for repairs which
if not performed lead to long term unnecessary expenses. The
motivations for accomplishing this type of repair are to maintain
the image of the pier as an important public facility and to
avoid increasing the City's liabilities. A poorly maintained
facility invites additional abuse and creates hazards to
personnel, vehicles, and equipment.

The second type of expenditure is usually the most costly and it
involves the cyclical replacement of the elements which make up
the Fish Pier. Some pier elements will wear out, some will
deteriorate, some will break, and some will require replacement
for reasons of continued operational safety. While the costs are
high, the ability to plan and budget for these expenses allows
the City to set aside money each year in anticipation of actual
expenditures. After completing the estimates for work required
for pier upkeep, alternatives may be discovered making it
possible to decrease these costs.

Projected Costs of the Maintenance Schedule

The Rockland City Council has indicated that the income to cover
the costs of repairs/replacements will come from the revenues
generated by the Fish Pier. These revenues have been estimated
to begin at $20,600 the first year of operation and increase as
more fishermen use the facility. From these revenues will come
the maintenance costs and added operational costs for the fish
pier. From the previous Maintenance Schedule it can be seen that
during the first two years of operations only $750 is required
for maintenance of the facility. During year three it is
anticipated that all the work omitted during initial construction
as "too expensive" must be accomplished to continue to use the
facility without undue risk of accident liability. This cost is
estimated to be $100,000 since it is anticipated that none of the
700' of cribbed wall will be repaired during the construction
phase of the pier project.

From what sources will the funds to accomplish this work be
raised?

-21-

This plan proposes that $7,500 be appropriated each year from
pier revenues to cover the anticipated costs of repairs/-
replacements. During the nineteen years of pier operation
required by the funding agencies, a total of $142,500 could be
collected for maintenance work. The costs for those same years
are estimated to be $187,250 unless the deteriorated wooden
cribbing is replaced as part of the original project.

Because of a serious reservation that the pier will not be safe
to the public unless some portion of the wooden cribbing is
replaced as a part of the initial project, $50,000 of project
funds have been allocated'to the refurbishing of about one-half
of the wooden cribbing. This means that repairs to cribbing are
more important to the projbct than the new fire hydrant, than
loaming and seeding, than paved parking areas, or the wooden "L".

A $50,000 reduction in expenses to repair the wooden cribbing
will decrease the total maintenance costs over 19 years to
$137,250. Projected expenses are now less than the recommended
allocations for maintenance of $142,500. Assuming that pier
income averages $25,000 per year over the same time period, total
income revenues will approach one-half million dollars. Roughly
one-third of those monies are being allocated to maintenance.

At some future time the suggestion will probably be made that
more funds be withdrawn from the operations budget and placed
into the maintenance budget. This would allow additional pier
components to be constructed and maintained without municipal
fund allocations. This plan strongly advises that this not be
done since the rationale for allocating $7,500 per year to
maintenance was arrived at in part by considering the operations
requirements. It is, however, a municipal policy decision; one
which might be compared to going 1,000 miles further between oil
changes on all municipal equipment - saving a few dollars and
putting expensive resources at risk.

-22-

MAINTENANCE SCHEDULE

YEAR ACTIVITY COST

1987 - Seal coating of the asphalt paving surfaces. $500.

1988 - Miscellaneous repainting, refiberglassing, etc. 250.

1989 - New cribbing in areas not rebuilt during 1986. 100,000.
Repairs to electrical and plumbing systems. 500.

1990 - Resealing of asphalt paving surfaces. 500.
Miscellaneous repainting, refiberglassing, etc. 250.

.1991 - Replacement of damaged fender piles. 5,000.

1992 - Miscellaneous repainting, refiberglassing, etc. 250.

1993 - Resealing of asphalt paving surfaces. 500.

1994 - Miscellaneous repainting, refiberglassing, etc. 250.

1995 - Repairs to electrical and plumbing systems. 500.

1996 - Replacement of damaged fender piles. 15,000.
Resealing of asphalt paving surfaces. 500.
Miscellaneous repainting, refiberglassing, etc. 250.

1997 - Miscellaneous repairs at pier mid-life. 5,000.

1998 - Miscellaneous repainting, refiberglassing, etc. 250.

1999 - Resealing of asphalt paving surfaces. 500.

2000 - Miscellaneous repainting, refiberglassing, etc. 250.

2001 - Replacement of damaged fender piles. 55,000.

2002 - Resealing of asphalt paving surfaces. Soo.
Miscellaneous repainting, refiberglassing, etc. 250.

2003 - Repairs to electrical and plumbing systems. 500.

2004 - Miscellaneous repainting, refiberglassing, etc. 250.

2005 - Resealing of asphalt paving surfaces. 500.

TOTAL $187,250.*

These costs do not reflect any elements added to the pier after the
initial construction phase. For example, finger piers, floats,
buildings, etc. are not included in the maintenance budget.

-23-

Seal coating paved surfaces one year after initial installation
and every three years thereafter will dramatically extend the
useful life of paving exposed to oxidation rather than wear.
Traffic control painted lines will need to be redone following
sealing.

Miscellaneous repainting, refiberglassing, etc. is a program to
maintain all the ancillary equipment on the pier in excellent
condition. Every other year sigrfs, electrical cabinets, cleats,
markers, etc. will be checked and painted as part of an
evaluation program to maintain all elements of the pier.

One of the major expenditures is $100,000 to repair wooden
cribbing on those portions of the granite filled pier eliminated
from the Fish Pier project by budgetary constraints. Any areas
that can be accomplished as an addendum to the initial project
will reduce this future cost.

Another major expenditure is replacement of the fender pile
system at $75,000 over fifteen years. This expense is an
unavoidable cost and should be budgeted and performed as
scheduled.

-24-

Other Rockland Public Harbor Facilities

The City has four harbor facilities available to the public.
One, known as the Fishermen's Pier, is used primarily by lobster
boats and is located just north of the launching ramp used by
commercial boats. This pier was constructed with a Farmers Home
Administration grant in the spring of 1977 by Prock Marine
Company. Fishermen's Pier, although designed for commercial use,
also includes a landscaped area containing old navigational aids
donated by the Coast Guard. There is parking laid out for nine
vehicles. An additional paved area is used to serve the pier.
Most of the pier is solid filled, with vertical granite blocks on
the south face and rip-rap on the east and north faces. About
145 feet of frontage is available on the south face and about 60
feet on the east face. It is equipped with a light capacity
davit suitable for hoisting out lobster crates. Along the south
face, there are four 10 foot by 30 foot floats and a gangway,
suitable for boats in the under 50 foot size range. overhead
lights, power, and water are available at the pier. The south
side of the pier provides some shelter, being close to the pier
on which the Black Pearl Restaurant is located. There is a two
hour docking limit and no overnight tieup of boats is allowed.
The east face is exposed to easterly winds and waves, making it
unsuitable for berthing. The float and gangway once located
against the east face are now raissing as is a section of the cap
log and a fender piling. The north side is not designed for
berthing.

The launching ramp is paved with reinforced concrete. Below the
half-tide level, the surface has deteriorated to the extent that
the reinforcing mesh is exposed and rusting, making the ramp
unsuitable for use at low tide. No floats are provided. Parking
is available at the nearby pier and on the public right-of-way
which serves as access to the ramp.

To the south, the City owns a Public Landing, site of the annual
Seafood Festival on the first weekend in August. It includes a
pier and floats suitable for pleasure boat use. The Harbor-
master's launch, a surplus Coast Guard motor-whaleboat, is based
there during the summer. The City also owns a small number of
moorings which are made available for visiting yachts. Public
restrooms and showers are provided in the former yacht club
building, now the Chamber of Commerce. They are open during the
day, seven days per week, throughout the summer. The pier is
equipped with lights and power. Water is available to the
floats. The area is exposed to easterly winds and waves,
aggravated by the reflected wave action from the granite bulkhead
at the edge of the Landing, resulting in increased wave heights.
The floats are not suitable for berthing large vessels. Some of
the charter fishing boats, which take fishermen on day-long
trips, operate from these floats but do not berth there.

-25-

The city's State-funded launching ramp for pleasure boats is
located in the "South End", off Mechanic Street. It includes a
paved ramp, floats alongside the ramp, parking for 41 cars with
boat trailers, and parking for 7 cars without trailers. The area
is lighted, attractively landscaped, and adequately meets the
needs of recreational boaters who trail their boats to the water
from Rockland and the surrounding area. Although the area is
well sheltered, the limited water depth and lack of pier or wharf
facilities make it unsuitable for berthing boats. The floats
alongside the launching ramp are suitable only for loading and
unloading boats and guiding them on and off trailers.

The Maine State Ferry Service pier off Main Street serves the
State operated ferries which run to North Haven, Vinalhaven and
Matinicus. Its use is generally restricted to the ferries.
However, the MARY & DONNA, a 40 foot boat which is to operate to
Matinicus this summer, will use the small loading ramp to the
south of the Ticket Office. The east face of the pier is also
used occasionally by some of the larger, over 100 foot, cruise
vessels which visit Rockland during the summer.

As can be seen from the above summary, Rockland Harbor has a
number of facilities suitable for some public boating use, but
very limited facilities for large, over 50 foot, commercial
vessels. At the four facilities owned by the City, no public
berthing facilities are provided.

Current Users of the Rockland Fish Pier

The former McLoon Wharf currently has five regular users. The
WILLIAM McLOON, an oil tanker measuring 72 feet long, 20.5 feet
beam, with a loaded draft of 11 feet, has been based there since
she was constructed in 1953. This steel vessel, built by Blount
Marine, Warren, Rhode Island, is now owned by Coastal Tankers and
Petroleum, Inc., which was formed in June, 1983. Principals of
the firm reside in Rockland and Vinalhaven. The WILLIAM McLOON,
with a capacity of 50,000 gallons, carries four petroleum
products: regular gasoline, no-lead gasoline, #2 fuel oil, and
kerosene. Customers served are located on Monhegan, Matinicus,
Vinalhaven, North Haven, Islesboro, Isle Au Haut, Long Island,
(Frenchboro), Swans Island, Cranberry Islands, Crotch Island
(Stonington), and Southwest Harbor. Seasonal deliveries are made
to the Hurricane Island Outward Bound School on Hurricane Island,
Squirrel Island off Boothbay Harbor, and to the Maine Audubon
Camp on Hog Island (Bremen). For more than half these islands,
Coastal Tankers and Petroleum, Inc. provides the only delivery of
petroleum products. Because of this, the WILLIAM McLOON is vital
to the continuation of commercial fishing on these islands.

-26-

When receiving fuel from trucks, the WILLIAM McLOON requires on
shore fire fighting equipment, in addition to that onboard the
vessel. most fuel is taken on in South Portland, but some is
loaded at Rockland. The vessel berths against the inside,
northwest, face of the wooden portion of the wharf, which is
seriously deteriorated and barely serves as a walkway for crewmen
to reach the boat. At present, no direct vehicular access is
possible. Electric power is provided at the wharf, but no water
is available. Storage is also needed for "case oil", oil
delivered in cans or drums. Their current rent is $175 per
month. The vessel operates year-round. Parking for the crew of
three is available on the wharf.

Two herring carriers are usually berthed against the southwest
face of McLoon Wharf during the winter. That face of the wharf
provides the best shelter during storms. Near the south corner
of the wharf there are water depths adequate for the eight to ten
foot draft required by the carriers. Although the granite face
of the wharf is still sound, the wooden decking along portions of
this face of the wharf is unsafe and many fender pilings are
missing. During storms, vessels often nest two or three deep
along the face of the wharf.

The PENOBSCOT GULF, a 50 foot longliner, is berthed against the
southwest face near the south corner of the wharf. They use this
space to take out fish. This area is unobstructed by buildings
and the paving allows trucks to receive fish directly from the
vessels.

M & N Seafood, a fish packer, uses the wharf to receive fish.
They are estimated to receive between 250,000 and 500,000 pounds
of fish annually. They load their truck directly from vessels at
the wharf, often using a light derrick located on the southwest
face of the wharf near the south corner. They usually serve two
boats, one 42 foot and one 50 foot, which also berth there.
Together, the two boats are estimated to land about 150,000
pounds of fish annually.

Island Pump, Inc., which operated a herring pump on the wharf,
pumped herring from carriers lying against the southeast face of
the wharf. The pump, which is mounted on wheels, is now located
in the North End, adjacent to the wharf owned by Prock Marine
Company. Island Pump reportedly pays rent of $125 per month at
McLoon Wharf. A second herring operator used a conveyor, still
on the wharf, in a herring take out operation. This may indicate
the future potential of having more than one herring operator at
the Fish Pier.

North Atlantic, Inc., which operates a fleet of three to six
vessels in the 651 to 851 size range, is based in Portland. They
have recently made use of a private wharf in Rockland Harbor for
emergency repairs. They have occasionally taken out fish at
Rockland and have stated that they would like to use the Fish
Pier in the future.

0-7-

The southeast face of McLoon Wharf, although constructed entirely
of granite blocks, is now usable only near the south corner of
the wharf, since the wooden, pile-supported decking over the
northeasterly "L" of the wharf is seriously deteriorated. Few
fender pilings remain against the southeast and northeast faces.
A slipway, apparently designed to accomodate a gangway to allow
loading of a vessel alongside the wharf at low tide, is located
between the solid portion of the wharf and the wooden decked
portion. Extending approximately 75 feet northeast of the
slipway, there is granite grout fill almost to the level of the
wooden decking. It is supported by the granite block face of the
wharf and by cribwork on the inside, northwest, face of the
wharf. The grout fill continues at a lower level out to the
granite blocks forming the northeast face of the pier. This face
of the pier serves as a breakwater and provides good shelter for
the berthing areas inside the wharf, including those alongside
the Port Clyde Packing Company. Any reduction in the length of
this northeast face of the "L" would reduce the shelter and
,@_seful_ness of the entire area inside the "L".

Despite the loss of use of much of the wharf's frontage due to
deteriorated decking, McLoon Wharf continues to provide much-
needed take out and berthing space for commercial vessels. All
current users have indicated a desire to continue using the wharf
when it is repaired and becomes a public Fish Pier.

With proper design, a considerable increase in the usable
frontage, and in the unobstructed deck area, due to the proposed
removal of buildings on the wharf, can be achieved. The facility
can then serve many additional vessels, generating considerable,
additional rental income for the City.

Potential Commercial Users of the Rockland Fish Pier

As previously indicated, the initial potential users are most
likely to be those vessels and operators now using the McLoon
Wharf. These users will serve as key examples of a useful
commercial fishing pier. It will be important to accommodate
those users and to improve their facilities in order to attract
additional users to the pier. Due to the long delays which the
Fish Pier has experienced, there is considerable doubt on the
part of Rockland's fishermen concerning the future of the Fish
Pier and its usefulness to them. Good physical design, adequate
facilities, fair treatment of present users, and good management
are crucial to the long term success of the Fish Pier.

The owners of the WILLIAM McLOON have indicated a desire to
continue using McLoon Wharf and have been receptive to possible
relocation of their berth. During construction of the Fish Pier,-
the owners of Coastal Tankers, Inc. should be allowed to install
Te-nder PT-ii-ng and a catwalk adjacent to -the-fo-undation piles in
such a manner that the WILLIAM McLOON can be berthed in
-@-Uffic-ientwater, as close to its previous location as possible.

-21q-

Two herring carriers currently berthing at McLoon Wharf have
indicated a desire to continue to use the wharf. They need water
depths of eight to ten feet. The southwest face of the main part
of the wharf could accommodate, with existing water depths, 230
feet of berthing space. Berthing for vessels should be
instituted on the western face of t]Te granite filled pier
beginning with a 401 slip a-@ the inshore end, then a 501 slip,
and two 701 slips. The mechanics of this procedure should be
-,Y-ecidid by-a policy or rules committee. (The Harbor Authority).
It may also be possible to rent a slip to one party, who would
then "sublease" to a second and third vessel.

The owner of the longliner, PENOBSCOT GULF, wants to continue to
take out fish at this pier to his own buyer. His landings are
estimated to be about 100,000 pounds per year. Groundfish take
out rates vary with the service being provided. Along the Maine
coast, a vessel is generally charged $.03 to $.07/pound by a
packer for labor, wharfage, and ice. The City could expect to
receive $.01 to $.03/pound for use of the wharf.

If the City chooses to charge a take out fee of $.01 to
$.03/pound, the City could expect revenues of about $1,000 to
$3,000 per year from a vessel such as the PENOBSCOT GULF which
landed about 100,000 pounds per year, in addition to any berthing
f e e s

In Stonington, Maine, the vessels do not berth at their fish
pier, but all vessels are charged an annual fee of $10/foot for
take out. Their harbor committee worked out this rate in order
to try to be fair to the many different boats taking out there,
which are landing finfish, shellfish, and lobsters of widely
different values/pound. A $100/year users fee is charged to
those servicing boats at the pier, such as fish buyers or
packers, fuel trucks, mechanics, and welders. The "one fee"
system reduces the administration of the fish pier. They are now
trying to set rates for seasonal use of their pier. A per foot
charge of about $15/half or quarter year has been suggested. At
Rockland, a similar "one fee" system could be used, although
berthing fees would also provide revenue.

M & N Seafood, a fish packer, has ordered a new truck to expand
their operation. They have indicated a desire to continue using
McLoon Wharf. As mentioned above, the City could expect to
receive fees for fish landed at the wharf or a user fee, or both.

North Atlantic, Inc., which operates a groundfish fleet out of
Portland, would like to continue using Rockland for emergency
repairs and occasional unloading of fish. Depending on schedules
and vessel steaming time, Rockland could be a very attractive
unloading port for vessels whose fish are destined for the fish
auction in Portland. The City Council should market Rockland
Harbor to the fishing in4@ustry in a business-like manner
encouraging the growth of fishing related businesses.

-29-

It is critical for economic success of the pier that the herring
industry be considered. Income from herring coming across the
dock either by pump or by basket could reach $6,000 a year in the
first years and depending on rates charged and yearly landings
double that figure within two to three years. As noted
previously, there may be potential for more than one herring take
out operation at the Fish Pier. If floats are included in the
_e Ti
redesign of the Fish Pier, lobst r 7-s-hermen should be included
as users of the fa ility-

An additional herring carrier and a scalloper have expressed
interest in using the Fish Pier, another-indication of potential
growth in use of the wharf.

Contact with other public fish piers indicates the need for fuel
and ice availability to encourage vessels to use the facilities.
Sale of diesel fuel is a major source of income to the operators
of the Town Dock in Stonington, Connecticut, where a fixed
installation is located. They also sell ice. The Portsmouth,
New Hampshire fish pier, which now has an ice plant with 5
tons/day capacity, is in the process of adding a second and third
ice plant, one to be state-owned and one owned by the
cooperative.

Rockland now has more ice making capacity than Portland. Frank
O'Hara indicated that Rockland's ice plants have a capacity of
190 tons, greater than the 124 tons in Portland. Although some
fishermen worry that if they sell to independents they might not
be able to get ice this has never been documented. Some herring
carriers have had to wait in line for ice but this is normal in
all ports in New England. Therefore, with enough ice available
to meet the needs of the area's fleets there is no immediate need
for additional ice facilities. Although it is possible to obtain
ice in Rockland, the Fish Pier should- 'eventually have ice
availii-ble. The City should be recepi-17ve to bids from-private
operators for this service.

According to local oil dealers, there is little likelihood that
any dealer would install tanks to provide fuel. Fuel is
currently available at both O'Hara's and Stinson's wharves.
Common practice along the Maine coast is to buy from the dealer
of choice with truck delivery to the pier. We recommend that the
City permit fuel dealers to service vessels '@@t the pier. As in
Stonington, Maine, trucks using the pier for fuel deliveries
could be charged an annual fee.

The availability of marine supplies would also be an attraction
to commercial vessels. The City should encourage marine supply
dealers to lease space on the land area around the Fish Pier.

The plans call for availability of electricity and water to the
Fish Pier. Most piers which supply electricity as part of the
berthing fees have indicated that they would prefer to meter
electricity, since the boats' requirements differ. Metered

-30-

electricity tends to attract more vessels, since each is getting
what they pay for.

As indicated in the discussion of the physical layout of the Fish
Pier, it is anticipated that the "L" extending northeasterly from
the main part of the pier cannot be fully constructed using
available public funds. We recommend that:

a. The rotten wood portion of the McLoon Wharf be
demofl7--sh'ed.

b. The granite filled portion of the Fish Pier be
refu bisiied such that no additional expendi_@_ures-will be
required by the City for other than routine maintenance.

C. The foundation piles be replaced on the McLoon Wharf
to a-1-1-ow'coastal Tankers, Inc. to reconstruct a be.rthing
facility for their oil tanTe-r. -

d. Construction funds not expended on a "b", and c
above be utilized to construct a concrete decked
extension to the granite filled pier where the wooden
McLoon Wharf was removed.

e. Floats and gangways be constructed and installed when
the Fish Pier is constructed to @_,_Iow -maximum use of the
facility.

This would be a prime location for a private operator, who could
lease that portion of the pier from the City, improve it, and
turn over the completed pier to the City at the end of the lease.
While this would probably not occur immediately, if the Fish Pier
attracts sufficient business, the private sector may well be
interested in completing construction of this part of the pier.
It is anticipated that the proposed construction will stabilize
the granite block walls of this section and provide fender
pilings along the southeast face of the "L" to serve any
installed take out stations.

Although landings of groundfish and scallops are down, the
cyclical nature of the New England fishery must be recognized.
It is impossible to predict the future. However, several factors
seem apparent.

As resources become scarcer, harvesters will implement new
systems aboard their vessels to maximize the landed weight of
their products. In three Maine ports, Rockland, Portland, and
Boothbay Harbor, fleets are using new systems aboard their
vessels. Maine vessels have been trend setters in this regard.

Traditional landing facilities, those offering boom and basket
take out stations, will be needed for the next several decades.
However, facilities which offer space to unload containerized
products from vessels, either self-unloading or with shore-based
equipment, will attract vessels from the entire region.

Other Potential Users of the Rockland Fish Pier

Although the primary purpose of the Fish Pier is required by the
Economic Development Administration funding to be for commercial
fishermen, operators of other commercial boats in Rockland Harbor
were contacted to determine whether or not they would be
interested in using the Fish Pier in the future. These included
two deep-sea charter fishing boats, three powered excursion
boats, and one sailing boat.

The DOLPHIN, a 38'xl2'x3' deep sea charter fishing boat, Capt.
Ernest F. Rackliff, operates from Memorial Day to Labor Day from
the floats at the Public Landing. Occasional trips are also
picked up at the float provided by the Samoset Resort, just
inside the Rockland Breakwater. The DOLPHIN is licensed for 25
passengers and two crew and goes out for the entire day, seven
days per week, 7:30 A.M. to 4:30 P.m., with occasional evening
cruises. All-day parking is needed for six or seven cars to
accomodate passengers. This is available at the Public Landing.
Capt. Rackliff pays the City $500 per year for use of the floats.
The boat has been berthed at O'Hara's, at a cost of $50 per
month, since there is a night watchman for security.

The HENRIETTA, 40'xl3'x3', Capt. John Earl, is licensed for 30
passengers and two crew. She also operates from the floats at
the Public Landing, seven days per week, 7:30 A.M. to 6:00 P.M..
Her season is from May 15 to the end of September. All-day
parking for ten or more cars is provided at the Public Landing.
Although priviously berthed at O'Hara's, she will be kept at a
mooring in the Harbor this year. Capt. Earl also pays $500 per
year to the City, but would like a long term lease instead of the
current year to year bid process. Both Capt. Earl and Capt.
Rackliff expressed basic satisfaction with the use of the floats
at the Public Landing, since their low height and the long
gangway make loading and unloading of passengers easy. The hose
available is useful when the catch is cleaned, for washing down
the boat, and keeping the floats clean.

The LIVELY LADY, 43'xl2'x4', Capt. Amborse Peterson, Jr., is
licensed for 24 passengers and two crew. The LIVELY LADY, first
operated out of Rockland Harbor last year, provides one and two
hour excursions from the floats at the Black Pearl Restaurant
from mid-June to sometime in September. On Sundays, all-day
trips are scheduled to Matinicus Island, via Vinalhaven. They
require parking for 10 or more cars, up to three hours during
their short trips and for all day on Sundays. An inablility to
purchase insurance to use the City floats and a need to lie at
the City floats to attract business led to the use of the Black
Pearl Floats. The boat will be kept at a mooring this year, but
used O'Hara's wharf last year. The Samoset Resort also charters
the LIVELY LADY and allows her to use their float at no charge
for the convenience of guests at the resort.

The ISLAND QUEEN, a 42 foot power boat licensed for 35 passengers

-32-

and up to 7 crew, is home-ported at Northeast Harbor but is
operated from Rockland Harbor by Capt. Robert Bowman, for puffin
watching trips to Matinicus Rock. Due to the birds' habitats,
these trips end the first week in June, and the boat then returns
to Northeast Harbor for the balance of the season. The boat has
been kept at a mooring and only operated on weekends, Friday
through Sun.day, on the puffin watching trips. All-day parking
for 20 cars is used for the passengers. This year, due to the
early start of the operation, the floats at the Public Landing
were not in the water so the ISLAND QUEEN operated from the
floats at the fishermans pier next to the Black Pearl pier.

New to Rockland Harbor this year is the MARY & DONNA, a 40 foot
power boat, licensed for 28 passengers and two crew, operated by
Capt. Emery Philbrook of Matinicus. Her schedule shows a
departure from the Rockland Ferry Terminal at 9:OOA.M. for
Matinicus, returning to Rockland at 4:30 P.M. on Saturdays and
Sundays. Trips on Mondays and Fridays are also planned from
October 1 through June 1. She will augment the monthly State run
ferry to Matinicus and the daily airplane flights to the island
from Knox County Airport at Owl's Head.

The sloop ALADDIN, Capt. David Whitney, 401 x 9.51 x 5.5,
licensed for 6 passengers and two crew, operated from the Black
Pearl pier last summer. However, there was insufficient space
available there so she will operate from Buck's Harbor this year,
except for special occasions such as the Seafood Festival at
Rockland.

A second sailing vessel which provided day sails from the Samoset
Resort float last year, the ARGYLL, will not be operating here
this year due to other commitments. The Samoset is currently
seeking an operator for day sailing from their float.

All of the above vessels have been accomodated at existing
floats, public or private, in Rockland Harbor. Due to their
relatively small size and low freeboard, boarding is most easily
accomplished from floats. The long gangways even make it
possible to accomodate the physically handicapped, though they
must be assisted in and out of the boats. The Black Pearl has
obtained permits to increase their floats, which will provide
additional docking and possible berthing space for these smaller
craft.

Due to the greater visibility to the public, operations from the
Fishermen's Pier, the Public Landing and the Black Pearl pier
would seem more attractive to the operators. However, if
security was provided, the Fish Pier could very well attract some
of these boats for berthing.

Despite the departure of the VICTORY CHIMES, by this August, if
all goes as planned, Rockland Harbor will have the largest fleet
of sailing schooners in the United States. The vessels operating
from the North End Shipyard, recently augmented by the newly re-

33 -

launched AMERICAN EAGLE, also include the HERITAGE, ISAAC H.
EVANS, LEWIS R. FRENCH, and J. & E. RIGGIN. The NATHANIEL
BOWDITCH has already arrived at the Black Pearl pier. She is
expected to be joined in August by the HARVEY GAMAGE and a new
vessel, currently under construction in South Brooksville, Maine,
the SUMMERTIME. The recently rebuilt Arctic exploration
schooner, BOWDOIN is also based in Rockland and has been a
frequent visitor here.

The 110 foot excursion vessel, MOUNT KATAHDIN, formerly operated
from the Public Landing, now operates from Bangor. She came to
Maine from Portsmouth, New Hampshire, and usually goes south for
the winter. The facilities at the Public Landing were not, and
are not adequate for a vessel of this size. However, the
Fishermen's Pier, due to its greater height, could accommodate
loading to the upper deck of such a vessel or, alternatively,
from floats which were adequately anchored to resist the forces
generated by a large vessel. The MOUNT KATAHDIN boarded
passengers from the floats at the Public Landing to her main
deck. If a large excursion vessel again is based in Rockland,
_@_ _e n-
the Fi herm Is Pier should be considered for passenger boarding
'@_nd berthing of such a vessel-.

Berthing at the Fish Pier during the operating season might also
be possible for a vessel the size of the MOUNT KATAHDIN. Off-
season berthing has been available for the Rockland-based
schooners at a variety of locations around the harbor. if
conditions change, additional winter berthing may be needed in
the future, which might be accommodated at the Fish Pier. We
would recommend that the management of the Fish Pier remain aleTt-
To_opportunitie_@@___for erthing large vessel_Z_Pa@7t_1cu_1arly during
the winter, assuming space is available after the needs of the
commercial fishing boats are met.

Except for passenger handling, the needs of these various
commercial power and sailing vessels are similar to those of the
commercial fishing vessels of similar size. Berthing these
vessels could augment the income possible from commercial fishing
boats at the Fish Pier, particularly during the initial build-up
of business.

The Fish Pier could very well meet the needs of non-commercial
fishing vessels for fuel, water, ice (if needed), and supplies.
If there is sufficient space, berthing could be provided. Use by
non-commercial fishing vessels should be encouraged at other
locations in Rockland Harbor, such as the Fishermen's Pier or the
Public Landing.

Although the Fish Pier would undoubtedly become a tourist
attraction, as is the Town Wharf at Plymouth, Massachusetts, its
limited land area, about one and three-quarters acres, makes
provision of such facilities as a restaurant less compatible with
its main purpose - to serve the needs of commercial fishing.

-34-

Compatible commercial uses should be encouraged. it is
anticipated that there will be a very large market for private
investment adjacent to the improved waterfront facilities. The
City should plan accordingly for this mixed- use growth. We
recommend that the City establish fees for moorings and ding]@_y
tie-ups sufT_i:__c_ient to generate significant income.

Rockland's current fees for moorings are $5/year for residents,
$10/year for non-redidents. With about 50 moorings, even if all
were non-residents, only $500 would be realized. $10/year is
charged for dinghies. Camden, with a flat fee of $35/year,
receives about $7,350 from about 210 moorings. They charge
$15/year for dinghies. Rockport, with a sliding scale starting
at $25/year, has 197 registered moorings, generating at least
$4,925. Rockport charges $65/year for dinghies (the non-resident
rate is $130/year, but no spaces are available).

The important thing to remember is that the new Fish Pier should
be managed as part of the entire range of public facilities at
Rockland Harbor. All of these facilities, the Fish Pier,
Fishermen's Pier, Public Landing, and the City's twelve moorings
should be effectively managed to optimize the City's revenue.
These revenues must offset the required periodic expenditures for
maintenance and/or replacement of these facilities.

Management Structure: Similar Pier Facilities' Management

of five pier facilities studied, our research revealed no
publicly owned fish pier which was operated by a private
operator. The recent lease of the Town Wharf at Plymouth,
Masachusetts to private developers who will rebuild the pier and
control it, under lease agreements, for a total of 25 years,
seemed to be an example of the least municipal control. At
present, the Plymouth Selectmen and various committees manage the
Town Wharf. The tenants run most of the daily activities on the
wharf.

The Town Dock at Stonington, Connecticut, is operated by the
fishermen's association with relatively little town control. The
Harbormaster, a largely ceremonial position appointed by the
Governor in Connecticut, is the fishermen's association's
Dockmaster and supervises the daily operation of the Town Dock.

The Harbormaster manages the fish pier in Stonington, Maine.

The Portsmouth, New Hampshire, State Fish Pier is state owned,
but operation is done by the cooperative.

The Portland Fish Exchange is managed by a committee including
representatives of the harvesting sector (fishermen), processors,
and the general public.

-35-

Given the lack of any fishermen's cooperative in Rockland at this
time, it would seem necessary for the City to manage its Fish
Pier, at least at the beginning of operations. We would
recommend that a position of Harbor Manager or Port Captain be
created to encompass the present duties of Harbormaster and the
management and marketing of the Fish Pier This would be a full-
time, salaried position, and would involve the management of all
publicly owned facilities, other than the State Ferry Terminal,
in Rockland Harbor.

It would seem advantageous to create a Harbor Authority
(Commission) which would consist of members of the fish
harvesting, processing, and general public sectors. We would
suggest that such a committee consist of representatives of the
fishermen nd processors,_ appointed by their industries; the City
Manager or some other salaried member of the City government; and
members jTf -@-he public who could be electe'@i-. 'The C'ity Council may
also wish to have a representative on the committee. Committee
members should be elected or appointed for overlapping terms of
over one year to encourage continuity.

The committee would suggest priorities to the City Council which
would decide policies, and generally oversee the activities of
the Harbor Manager and his or her staff, but would have no role
in the daily operation of the Fish Pier or other public
facilities in Rockland Harbor.

A. Stonington, Maine

Stonington's new fish pier has been in operation about a year.
The pier manager is the town's Harbormaster, and is paid an
annual salary of $12,000. The fish pier is seen as successful by
the fishermen who have a much less congested facility to use than
formerly. Fuel and repair services are provided by private
operators who pay a fee to the Town for use of the pier.
Electricity and water are provided on the pier, as is space for
repair of fishing gear. Ice is desired and is therefore planned
to be provided in the future. Payment of annual take out fees in
a single payment has been a financial burden to some fishermen.
Fees for part-time or seasonal use of the pier have not yet been
decided. There are no fees based on poundage landed, and annual
landings for 1985 are not known. Gross receipts for 1985, from
take out and other user fees, were $9,450, with a net income of
$2, 100 .
B. Portsmouth, New Hampshire

The Portsmouth State Fish Pier was constructed in two phases. In
1975, $750,000 in state money constructed a 280 foot pier,
including dredging, bulkheads, and rip-rap. In 1978, a $440,000

-36-

EDA grant provided for the building, ice house, floats, paving,
fuel, hoists, and an additional 100 feet of pier. It went into
full operation in July 1979 and was full immediately. About 30
vessels, ranging in length from 26 feet to over 70 feet, are
berthed there. An additional 25 to 30 vessels use the pier on a
transient basis. Water depths are 11 feet at the outside of the
pier. Dredging, at a cost of $110,000, was done in 1982.

The pier started operation entirely under state administration.
The Portsmouth Fishermen's Cooperative now operates it under
contract with the state. The Portsmouth Fishermen's Cooperative
receives a percentage, which has resulted in payments of $20,000
annually to the state.

In 1983, fuel sales amounted to 300,000 gallons; 5,000 to 6,000
barrels of bait were sold to lobstermen; and 1,500 tons of ice
were sold. The single 5 ton/day ice plant, with a storage
capacity of 10 tons, has proven inadequate. At present two
additional ice plants are in the design stage. A berthing fee of
$12.50/foot/year and a variety of transient charges bring in
$24,000 to $25,000 annually in fees.

Landings for the year ending January 31, 1985 were 5,355,000
pounds. This fell to 4,050,000 pounds for the year ending
January 31, 1986. No per pound charge is assessed for fish
landed.

The Portsmouth Fish Pier has seen an increase in activity due to
IDE-e inadequate pier facilities along the East Coast, and they are
still carrying out improvements to meet anticipated needs.

.cc. Plymouth, Massachusetts

The Town Wharf at Plymouth, owned by the Town, is located
slightly north of the State Pier, at which the replica Pilgrim
ship, MAYFLOWER II, is berthed. The Town Wharf consists of two
major piers, one solid-filled, with a sectional concrete deck
measuring about 541 x 186' extending in a southerly direction,
with a smaller wood pile pier extending from its southwest
corner., The other, "T Wharf", extends easterly from the same
point of land and is entirely supported on wood piling. Berthing
space totals 1570 linear feet. A pumphouse and Harbormaster's
office are located on the concrete-decked pier. A gangway and
floats used by numerous outboard-powered skiffs, some of which
are lobsterboats, extends northerly from the base of the "T". To
the west of the solid pier is a gangway and float used for
dinghies, pleasure craft and the Harbormaster's launch. A State
launching ramp is located a short distance north of the "T
Wharf". All these facilities are protected by a stone breakwater
which shelters Plymouth Harbor and the southerly area of Plymouth
Bay, which includes Kingston on the west and Duxbury on its,
northern arm.

The Town of Plymouth, with a FY 1986 budget of $37,111,268,
allocated $83,341 to the Harbormaster And Waterfront Services, of
which $69,431 was for salaries and wages. In addition to a
Harbormaster, Assistant Harbormaster and Nightwatchman, a second
Assistant Harbormaster, Nightwatchman and a Marine Policeman are
hired on a seasonal basis. The Harbormaster has a 27' Nauset
fiberglass patrol boat equipped with radar and Loran C. The boat
has proven useful in assisting boats in distress. In 1985, there
were 6,408 dragger trips logged out of Plymouth Harbor, 1,510
visiting boats logged in, and an estimated 6,000 boats used the
launching ramp. There are an estimated 475 moorings in the
harbor, some of which are used by the whale-watching charter
fishing boats due to a lack of berthing space at the Town Wharf.
Seventeen fishing vessels, nine.party and charter boats, and five
large boats (one of 2001 length) used the Town Wharf for lodgeing
in 1985, for a total of 31 boats.

Beginning in 1984, the Town engaged McGrath, Sylva,& Associates,
Inc. to prepare studies leading to the replacement of; "T Wharf",
and upgrading of the Town Wharf and other harbor facilities.
Much of the following information was obtained from a c@opy of the
study, and from John F. Lenox, Planning Director, Town of
Plymouth.

The proposed project was designed to accomplish four broad
objectives:
1) To upgrade the commercial fishing facilities
to retain the existing fleet and to encourage more
offshore boats to locate in Plymouth;

2) To benefit the recreational boater through
improved launching facilities, parking, and floats for
dinghies and use by 'those on moorings;

3) To provide more visible accomodations for the
whalewatch and charter boats and reduce conflicts with
the commercial fishing boats; and

4) To broadly benefit businesses and even the
wharf by improved parking, lighting, streets, sidewalks,
and landscaping.

The preliminary budget included the following:

A. Pier Construction $1,793,000

B. Recreational Float 71,000

C. Parking Area 240,000
Total, including engineering/administration $2,304,000

A coastal Facilities Improvement Program (CFIP) grant was to be
applied for to cover about $1,000,000, with the Town contributing
$1,300,000. Annual debt service, over 20 years @ 8.5% was
estimated at $135,000, for a total Town obligation of $2,700,000.

38 -

Annual maintenance of the existing facilities for the 1981 - 1985
Fiscal Years averaged $25,200, including $42,000 for replacement
of the Harbormaster's boat in 1985. Income from all
harbor-related sources during 1985 was $78,299, or slightly less
than the $83,341 budget for 1986. Over the next five years, a
maintenance budget of $50,000 to $75,000 was suggested, in part
due to the age of the Fish Pier, constructed in the late 1950's.
Berthing Fees, @ $5.00/foot, yielded $7,850, with 480 moorings @
$15.00 each yielding $7,200. Most revenues came from leases of
Town-owned land at the wharf.

In order to cover costs of the proposed facilities, increases in
all areas were proposed. A summary of potential income showed
the following:

Berthing;
commercial fishing 1570 linear ft. $23,000 - $32,000
@ $15 - $20/ft
whale watch, charter 385 linear ft. $25,000 - $50,000
@ $65 or 5% of gross

Mooring fees: 480 moorings $48,000 - $52,800
@ $100 - $110

Fuel, ice, unloading: $14,500

Parking (metered): $51,000

Leases: $83,000 - $93,000

Potential Income; TOTALS $250,000 - $300,000

Future annual Town expenses related to the Town Wharf were
estimated as follows:

Harbormaster- $80,000

Maintenance - $75,000

Debt Service- $135,000
Total Expenses $290,000

Therefore, the estimated future income and expenses are
relatively in balance.

The overall economic impact from the commercial fishing fleet was
estimated as follows:

-39-

Pounds Value
Inshore boats (13) 4,000,000 $1,800,000

Offshore boats (6) --- $3,000,000

Lobster boats (35) --- $1,100,000
Total $5,900,000

Using a multiplier effect of 3, the net annual economic impact is
estimated at $18,000,000, with direct employment of about 110
fishermen, plus on-shore workers.

The consultant's statement on tourism is indicative of the
importance of the Town Wharf to visitors.

"The ability to experience firsthand a 'working
waterfront' and to see a piece of New England's fishing
industry provide the tourist with a special memory of a
visit to Plymouth. It is quite probable that the Town
Wharf and it's fishing fleet is second only to Plymouth
Rock as a tourist draw." (memorandum, Nov. 9, 1984)

Tourism, estimated at 1.5 million persons per year, is estimated
to create $40 million in local income. The Town Wharf is
estimated to generate $2.5 to $3.0 million from its restaurants
and fish markets. The whale watching and charter boat fishing
help make Plymouth a destination for tourists.

During 1985 a referendum approved Town appropriation of matching
funds to construct a new Town Wharf with a Coastal Zone
Management grant providing the balance. This was ruled invalid
on procedural grounds. A second referendum was defeated. The
Selectmen then endorsed a lease of the Town Wharf to private
developers who will build a new pier, for terms of 10, 10, and 5
years, with control of the pier to return to the Town in 25
years. The leasees will control parking and commercial
activities on the Wharf. Environmental permits approved by the
Massachusetts Department of Environmental Quality Engineering
(DEQE), were denied by the Plymouth Conservation Commission. The
Planning Director expects the State to override the local denial
during 1986.

Following the initial approval of the referendum, the consultants
prepared a report' on management issues. Five options were
discussed, none of which were subsequently followed due to the
leasing of the site. However, the Management Objectives
presumably remain valid. These were as follows:

"The first and foremost management objective should be to
develop and utilize the property for the benefit of a
broad c@oss ection of residents and tourists. Policy
@oals and objectives are most appropriately developed by
the Town's elected officials and existing boards and

-40-

commissions. The management entity's function is to
efficiently implement public policy that reflects the
goals and objectives adopted by the Town.

The second major management objective is to develop and
operate the property on a sound financial basis within
the parameters establisi@ej by public policy. The Town
iharf should b'e, to the extent possible, financially
independent and self sufficient. The revenue stream from
activities on the wharf should cover the debt service for
major capital improvements, as well as annual maintenance
and operating costs. The bottom line is that the Town
Wharf operations place no additional burdens on the
taxpayers of the Town of Plymouth.

The third and linal objective is that the Town Wharf be
managed on a proper, professional basis. This objective
requires a single focus on the Town Wharf concerns,
consistency in the management group, receipt of fair
market value for utilization of the property, a degree of
independence from town operations, and sufficient legal
authority to carry out the charge.

These three major objectives are essential components of
any management system. The success in achieving these
goals will rest on selecting an appropriate legal
structure and most importantly, on the selection of the
individuals charged with carrying out this difficult and
challenging task." (memorandum, January 25, 1985)

The Town's Fiscal Year 1986 budget for "All Town insurance"
included $77,300 in contractual services and $2,259,677 in
contractual outlays, for a total cost of $2,336,977. No
insurance was specifically charged against the Town Wharf.

The Town of Plymouth has made a strong effort, including a 1979
waterfront study, some of which has been implemented, to make
their entire harbor function as a unit to the long-term economic
I@enefit of ti@e Town. While some issues remain unresolved, the
Town has supported continuation 2f commercial fishing as part of
Tts economic future.

D. Stonington, Connecticut

The Town Dock, owned by the Town of Stonington, Connecticut,
consists of two parallel, paved, solid-filled piers, granite-
block-faced, with pile supported wood decking along the face of
the fuel and ice loading stations. No floats are provided,
access being by ladders. The paved deck of the south pier is used
for gear storage and repair as well as parking for fishermen's

vehicles. The piers extend westerly on the west side of
Stonington Borough, a small peninsula forming the east side of
Stonington Harbor, which is protected on the south by a stone
breakwater which extends across much of the harbor, with
navigational channels at its east and west ends. The piers
provide about 1700 feet of frontage, with a minimum water depth
of 6 to 7 feet with sheltered docking between the two piers and
on the north side of the inner pier. The piers and land were
purchased by the Town in 1966 for $250,000, which included nearby
land now occupied by the Town's wastewater treatment plant. The
piers were originally constructed by the New York, Providence &
Boston Railroad in 1837 as a transfer point between the trains
and steamboats to New York City. They have been used for fishing
and other commercial purposes since the 1890's, when use by the
New Haven Railroad stopped. Water depths were greater prior to
the September 1938 hurricane, which caused major changes to land
forms and water depths in Stonington and nearby Little
Narragansett Bay in Westerly, Rhode Island.

The Town has obtained a series of grants and loans to improve the
pier, including a $215,000 Industrial Development Bond (General
Obligation) toward construction of the fish packing building,
which includes the Harbormaster's office, on the north pier. The
total cost was $242,950, partly funded by Connecticut Department
of Economic Development grants. About $25,000 to $30,000 in
improvements are currently needed, according to Daniel Boyle,
Harbormaster, to make the plant more useful. The ice storage
plant was built in-1982 with an FmHA grant. The Town repaired
the packing plant foundation following damage by Hurricane
"Gloria" in 1985. The investment in the Town Dock is shown on
the following table.

Town Dock, Stonington, Connecticut

Purchase (1966) $250,000 Town Appropriation

Reconstruction (1966) $250,000 HUD Grant

Replace fish packing $242,950 $215,000 Industrial
building (1985) Development Bond (1)
(General Obligation)

Ice House (1982) $ 47,500 FmHA Grant

Piling, Fenders $ 90,900 Connecticut Dept. of
Economic Development
Grant

Resurfacing Piers $ 65,000 Connecticut Dept. of
Economic Development
Grant

Repairs to Packing House $300,000 Town Appropriation (2)
foundation - 1985/1986
Hurricane "Gloria"

-42-

(1) Paid for entirely by Fishermen's Association lease
agreement 20 years @ 5%

Principal $215,000
Interest $112,750
Total $327,750

(2) To be reimbursed by Federal Emergency Management
Agency (FEMA). (Six of eight parts of repair have been
reimbursed. Some grant assistance has also been
available from the Connecticut Department of Housing for
Repair of hurricane damage.)

According to Robert Weall, Director of Community Development, no
dredging has been done since 1979. Plans were prepared and
permits obtained prior to Hurricane "Gloria" but Connecticut
Department of Economic Development funds which were to have paid
for the dredging went to pay for repair of storm damage.

The Southern New England Fishermen's and Lobstermen's Association
Inc. leases the Town Dock for an amount sufficient to cover
principal and interest payments on the Bond which financed the
new fish packing house. The Association also covers the costs of
needed maintenance and pays the salary of the Harbormaster, who
also serves as their Dockmaster.

The Association charges $15.00/foot, a minimum of $600/boat, for
annual wharfage. Electricity and water are provided at no cost.
The Association receives a $.17/gallon mark-up on diesel fuel, a
significant source of revenue. The Harbormaster cites fuel as an
important factor, along with ice in encouraging use of the Town
Dock. According to the Director of Community Development, the
Town's investment has encouraged the retention and expansion of
Connecticut's only commercial fishing fleet. In 1966, there were
14 boats in the 60 to 65 foot size range and 15 lobsterboats at
the Town Dock. In 1984, there were 24 boats in the 60 to 65 foot
size range, and 22 lobsterboats based there. The Harbormaster
estimates about 30 large boats are based at the Town Ddock at
present, with about 30 transient boats from: Montauk, Greenport,
Long Island, New Haven and Bridgeport. A Connecticut Department
of Economic Development news release, dated March 23, 1985
estimated 3.2 million pounds landed at Stonington in 1984, with a
dockside value of $3,000,000 and a retail value of $10,000,000.
The Association receives $.20/100 pounds of product landed, based
on figures supplied by the fish buyers. A breakdown between
finfish and lobsters is not available.

Take out is available to all boats and buyers, with no
requirement to use the fish packer now occupying about one-half
of the packing house, which is designed to handle 7,000,000
pounds of fish annually. The Harbormaster feels that more

-43-

control over landing of fish, higher wharfage charges, and better
cooperation by boat captains is needed. The Planning Director,
Robert Birmingham, indicated that some fish are trucked to New
York City; Point Judith, Rhode Island; and Newport, Rhode Island
for processing.

The Town Dock is covered by the Town's general liability
insurance, which reportedly paid for injuries sustained at the
dock last year by a fisherman. Boats are required to handle all
fuelling, and would cover any damages resulting from fuel. The
Association also has insurance.

The Town of Stonington recently formed a Harbor Management
Commission to look at the general area of the Harbor. There is
no public recreational boating facility, but the Town leases a
small area at the Town Dock for $1.00/year to the Stonington
Small Boat Association for use by dinghies small enough to be
carried to and from the water. There is a State launching ramp
in nearby Pawcatuck, but the Town has no public moorings. A
"Town Beach" is operated by a private association.

Stonington's waterfront has proven increasingly attractive for
residential development, and some waterfront land has been
converted to condominiums. Since the 1960's, most of the fishing
families have been forced to move from the Borough (the area of
Stonington closest to the water and the location of the Town
Dock) by increased property values and resulting increases in
taxes. By way of example, the Finance Director cited the recent
sale of a 401 x 501 lot with a condemned house on it for
$462,000. According to a retired fisherman, recent dredging of
the harbor benefitted yachts but did nothing to restore depths
useful for the fishermen. The Harbor management Commission has
not yet prepared any plans for the harbor's future.

-44-

INNIIIIIINIIIIII
3 6668 14102 3-269 - -