Harbor and waterfront management plan a study

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

The City of Belfast, Maine
HARBOR
AND WATERFRONT
MANAGEMENT P,LAN

September 1991

HT
168
34 A Study By The City of Belfast
H3
'99' Harbor and Waterfront Management Plan Committee

PURPOSE

The Comprehensive Waterfront.and Harbor Management
Plan has been prepared to direct the management of
harbor and waterfront resources in the City of
Belfast. Like many Maine coastal ' communities,
Belfast faces the challenge to manage the impact
of future growth and development upon coastal
areas.

Historically, the harbor has been oriented towards
fishing and industrial uses. Within the past ten
years, however, there has been tremendous growth
in the number of recreational moorings. At the
same time, Belfast's waterfront has and will
continue to undergo major changes as some of the
waterfront's most prominent buildings are, or will
soon be, vacated (included is a vacant poultry
processing plant, a vacant shoe factory, an
operating lumber warehouse and, manufacturing
facility). The future use of these properties
will profoundly affect the harbor, the waterfront,
and the adjacent downtown area.
kN
City officials feel that, if existing planning
mechanisms are improved to direct harbor and
waterfront development in a manner that will
benefit the City, Belfast's harbor and waterfront
This
problems can be turned into opportunities.
project will provide Belfast with an opportunity
to assess problems and opportunities associated
with different development scenarios, and to
develop planning and implementation strategies
that will assist in maintaining and enhancing the
economic viability of the harbor and waterfront
area.

Recommendations contained within include both
short term and long term management implementation
strategies. This plan, therefore, , should be
utilized as a "tool kit" to be implemented and
updated over time. This plan provides the City of
Belfast with a management plan for future
utilization of its waterfront and harbor
resources. The plan also contains recommendations
for future shoreland zoning provisions, as well as
recommendations for municipal improvement
projects.

The City of Belfast, Maine
HAMOR and WATERFRONT AIMUNIFATA"
September 1991

A Study by the city of Belfast

Harbor and Waterfront Plan Committee

chairman: Lawrence Greenleaf
Interim Chairman: James Sutherland
Secretary: Frank H. Shaw
Committee Members:
Stephen Swayze Larry Moses
Peter Haddock Michael Bush
John Holmes James Lovejoy
Roger Webber John Krakar
Walter Ash, Jr. Alex Turner
Bruce Starrett John Worth
Peter McCarren C. Michael Rauch
J. Douglas Thompson

Plan Consultant:

SEBAGO TECHNICS9 INC.
Prime Consultant
William T. Conway
MARI(ET DECISIONS, INC. DESIGN SERVICE
Market Consultant Marine Consultant
Peter Piceirillo Robert E. Ware

ACIMIUDGMENTS
Funding Assistance:
The Maine Coastal Program
"Financial assistance f or preparation of this
document was provided by a grant from MAINE'S
COASTAL PROGRAM, through funding provided by the
Coastal Zone Management Act of 1972, as amended,
administered by the Of f ice of Ocean and Coastal
Resource Management, National oceanic and
Atmospheric Administration, under award
#NA90AA-D-CZ521.11 Specific aspects of this
document pertaining to economic revitalization
were accomplished through financial assistance
from the Economic Development Administration.
The Economic Development Administration

"This Economic Adjustment Strategy, as def ined by
the Market Potential Analysis Section of Part 5 of
this document, was accomplished by professional
consultants under contract to the County of Waldo
and the Waldo County opportunity Zone through
Economic Development Administration Adjustment
Strategy Grant No. (01-19-02993). The statements,
findings, conclusions, recommendations, and other
data in this report are solely those of the
contractor and do not necessarily reflect the
views of the Economic Development Administration."

Public Participation and Technical Assistance

The Committee wishes to express their appreciation
for assistance received by the following
individuals and organizations:

The Residents of the City of Belfast
Arlo Redman, City Manager
Robert Temple, City Code Enforcement officer
The Belfast Comprehensive Plan Committee
The Belfast Planning Board
The Belfast City Council
Tamara Risser, Maine Department of Community &
Economic Development
Robert Elder, Maine Department of Transportation
Robert Lewis, Maine Department of Marine Resources
Allison Jones Webb, Maine Tomorrow,
Comprehensive Plan Consultant

CONTENT

Page No.
PART 1: EXECUTIVE SUMMARY ............ 1

PART2: MARKET ANALYSIS SUMMARY ............. 15

PART 3: ANALYSIS AND POLICY DEVELOPMENT
21
. Future Land Use . Port and Harbor
Resources

. Public Access and . Municipal Action
Open Space Plan

PART 4: IMPLEMENTATIONT STRATEGY ........... 34

. Descriptive Summary - Potential Funding
Sources

. Priorities and Fiscal Expenditures

PART 5: APPENDICES ..................... 44

. Market Potential Analysis

. Public Opinion . Waterfront
Survey Zoning Language

. Inventory Mapping . Coastal Planning
Grant Application

EXECUTIVE
SUMMARY

EXECUT1111 SBMARY

]INTRODUCTION

The year 1991 marks the onset of a new era of
change on the Belfast waterfront. Perhaps more so
than at any time in the recent past, the City of
Belfast has a great opportunity to influence the
destiny of its waterfront image, character and
functional utility. The challenge is ultimately
created between the need to promote immediate
economic revitalization and the desire to control
the ultimate future of appropriate waterfront
development. This plan is developed in response
to waterfront planning policies established in
order to direct the future growth and management
of waterfront and harbor resources. The focus of
the plan is placed upon the importance of
shoreline and water resource management which
recognizes the inevitability of change and the
need for the City of Belfast to play an active
role in that process.

Process

The planning process is initiated by conducting an
inventory of existing conditions including, but
not limited to, existing land use, harbor
conditions and conflicting harbor uses, municipal
infrastructure, and sensitive natural resource
areas. Based upon analysis of existing
information, public opinion regarding waterfront
needs, and upon direction from the Harbor and
Waterfront Plan Committee, a series of goals and
objectives formulate the framework of the plan.
Finally, recommendations and implementation
strategies are developed to serve as a "tool kit"
for future management purposes. It is important
to note that many recommendations are long-term
and, in as much, require further evaluation and
implementation over time. Specific aspects of the
Comprehensive Harbor and Waterfront Management
Plan include the following...

WATERFRONT 1AN`D USE

Policy: To s timulate economic.revitalization of
the waterfront while supporting
shoreline management which gives
preference to water-dependent uses and
the provision of public access to the
waterfront, and to encourage
redevelopment which is compatible with
existing land uses and environmentally
sensitive areas.

In the last decade, the Belfast waterfront has
witnessed significant change respective to
waterfront land use. In the waterfront areas
adjacent to downtown, virtually all of the City's
most prominent buildings have been vacated.
Prominence, in this case, refers to the scale of
these large, industrial operations which have
since closed or relocated to other areas within
the City. in this process, a major sector of the
waterfront remains vacant and underutilized. on
the heels of industry leaving the waterfront came
the revitalization of the downtown and public
waterfront facilities. Main Street was improved
with granite curbing, brick sidewalks, benches and
period lighting fixtures. On the bay, a 'new
breakwater and launch ramp were constructed, and
the City established a public park with impressive
open space along the shoreline.

This plan establishes the framework for the future
of the Belfast waterfront. Based upon the review
of existing conditions, issues affecting
waterfront areas, and market assessment studies,
recommendations for waterfront land use are
responsive to viable alternatives for future
growth. As Belfast is poised for its next period
of change, proper management of land use
development is vital in controlling the ultimate
character of waterfront areasi

The Downto-Am Waterfront

In downtown waterfront areas it is recommended
that industrial uses be prohibited in the future.
As an exception, the Stinson Canning Company
property could remain industrial if abandoned for
more than one year, provided that the new
operation requires a waterfront location. Between
Front Street and the harbor, preference is given
to land uses which are dependent upon a waterfront
location. While these water-dependent uses and
marine-.related uses are preferred, additional uses
should be allowed in order to accelerate economic
development. Proposed pez-mitted uses include
retail stores and restaurants, professional
offices, municipal uses, and residential dwelling
units (limited to upper floors only).

The Waterfront and Harbor Management Plan
Committee considered and rejected a requirement
that a certain percentage of this area be
developed as water- 'dependent/marine related uses.
While this area contains the only suitable
conditions in the City for these uses, the
Committee finds that a percentage requirement
would negatively impact the rate of waterfront
redevelopment. In recognition of the importance
of water-dependent/marine related uses, however,
density bonuses and other incentives are proposed
for future projects including these uses. These
incentives should also be considered for
development proposals which provide for public
access to the waterfront or which preserve open
space and views to the harbor in all districts.

Less restrictive land use controls are proposed
uphill from Front Street and adjacent to the
downtown business district and residential
neighborhoods as these areas are not suitable for
water-dependent uses. Within this area, uses
include office complexes, hotels, motels, and
residential planned unit developments. Incentive
zoning opportunities are also recommended in this
area for development proposals which provide for
public access to the waterfront or which preserve
open space and views to the harbor.

Within the downtown waterfront area, the plan also
recommends that the City control the architectural
design of new structures and renovated structures.
This recommendation is made not to stifle
innovative architectural design, but rather to
ensure the compatibility of future projects with
existing downtown businesses and residential
structures. As redevelopment projects are
undertaken, existing structures will require minor
or significant external improvements in order to
comply with architectural compatibility
requirements.

Municipally owned properties in the downtown
,@aterfront areas will continue to-play a key role
in the redevelopment process. The Heritage Park
property should remain devoted to public access
and open space. It is further recommended that
the center building be removed in association with
the development of Federal Street as a primary
pedestrian link between downtown and the
waterfront. The remaining two structures should
be utilized to support the public landing, marine
related business, And visitor services.

Additional recommendations pertain to the sewage
treatment plant property, municipal parking areas,
and the land containing the Belfast and Moosehead
Lake Railroad. Due to its proximity to the
waterfront and downtown businesses, the sewage
treatment plant should be covered to reduce odors
and should be intensively landscaped to soften its
impact on adjacent land uses. Municipal parking
areas should be expanded to satisfy future demand
and should be landscaped to improve the pedestrian
experience and linkage to downtown and waterfront
pedestrian routes. As of this writing, the City
of Belfast is seeking proposals from the private
sector for the development of a'marina facility at
the railroad property. The Waterfront and Harbor
Management Plan Committee finds this effort to be
supportive of the overall plan presented herein.

The East Side Waterfront

Land use on the east side of Belfast Bay is driven
by two primary factors: harbor conditions and the
U. S. Route One corridor. As a general rule, the
east side of Belfast Bay is comprised of extensive
mud flats and, therefore, unsuitable for
water-dependent uses. As an exception, Youngs
Lobster Pound is an established business whose
activities include wholesale and retail lobster
sales, as well as a fine restaurant. The U. S.
Route One corridor supports a variety of land uses
emphasized by a proliferation of motel
establishments. In addition, the East Side
contains a significant residential population
which enjoys "the view" across the harbor to
downtown.

Analysis of existing developed areas reveals great
potential for future development on the East Side.
In addition to some undeveloped parcels, there
exists significant development potential between
the U. S. Route One "strip" and the waterfront.
Because this area is serviced by municipal
utilities and is relatively free from environment
constraints, it is generally suitable for
continued development.

This plan does not recommend changes to existing
zoning districts and permitted land uses on the
East Side, with the exception of dimensional
revisions required for compliance with State-
mandated Shoreland Zoning regulations. The
Waterfront and Harbor Management Plan Committee
finds that the mixed uses currently permitted in
this area are appropriate with historical and
recent development patterns. The Committee
further envisions this area as prime real estate
with great potential for positive social and
fiscal benefit to the residents of the City. Due
to the presence of U. S. Route One and harbor
conditions, development of the East Side will not
significantly detract from the revitalization of
the downtown waterfront.

The Passaas%wak=Waterfront

Some may f ind it dif f icult to identify where the
transition occurs between the Passagassawakeag
River and Belfast Bay. In physical and cultural
terms, the former and present U. S. Route one
bridge structures establish a definable edge
condition. Beyond the bridges one enters a
separate landscape characterized by steep terrain
and undeveloped areas interspersed with pockets of
residential development.

This plan recommends that future land use in this
area remain residential. In addition, excessively
steep areas should be designated for resource
protection in order to retain the integrity and
environmental character which exists today.

PUBUC ACCESS and OPEN SPACE

Policy: To ensure adequate future public access
to shoreline areas, while maintaining
the environmental integrity of the
coast, and to promote the retention and
development of open space in waterfront
areas.

The City of Belfast has established excellent
public access to the waterfront in association
with the Heritage Park property and public landing
development. As the physical and visual terminus
of Main Street, this access facility and
associated open space provide a strong connection
with downtown and offers an inviting atmosphere
within the heart of the Belfast waterfront. While
the City landing and park area represent
significant facilities for the City, future demand
for access and open space will necessitate the
development of additional facilities.

Competition for parking and access at the City
landing is created by various groups, including
commercial fishermen, recreational boaters,
marine-related businesses, and the seasonal
tourist population. The presence of the
Weathervane Restaurant further exacerbates
competition for parking space.

While the commercial fishing industry is limited
in Belfast, it is important to ensure that
commercial fishermen have adequate access to the
harbor. Presently, the fishermen utilize the City
landing and adjacent parking facilities. In so
doing, these individuals must use the ramp and
float system also used by recreational boaters.
This shared use inhibits commercial operations and
often offends recreational boaters. This plan
recommends that the City establish a location
separate from the City landing for the exclusive
use of the commercial fishermen in Belfast. The
Stinson Canning Company has expressed a
willingness to utilize a portion of its property
for this purpose. The City, in association with
local commercial fishermen, should pursue and
implement a perpetual access agreement in this
location.

Respective to the existing landing, the City
should consider further limitation and
restrictions for use of parking facilities. As
parking demand increases, the natural inclination
may be to expand parking facilities into the
existing open space and picnic areas. This action
would represent a loss of significant value to the
municipality. The City should continue to allow
short-term parking only and, as demand increases,
develop a drop-off zone supported by additional
public parking areas not located on the shoreline.

Implementation of future public access facilities
and open space areas may be accomplished by two
primary methods. The first method is to encourage
private development projects to incorporate these
amenities. Through incentive zoning provisions,
private developers may incorporate public access
to or along the shoreline into their development
plans. In addition, incentives may be offered for
the retention of open space and view corridors to
the harbor. Areas reserved for open space or view
corridors need not necessarily be available, for
public use.

Bonus or incentive zoning provides flexibility in
land use decisions. The municipality typically
retains discretion to permit or deny a specific
proposed "bonusable" amenity. Furthermore,
implementation does not demand a sophisticated or
expensive administrative program.

Incentives, which are considered on a case-by-case
basis, may include increased densities, reduced
setback dimensions, or other provisions related to
a specific development proposal. Under this
framework, the burden of the proposed incentives
lies with the development proposer, not with the
City. As aforementioned, the City may permit or
deny any proposal based on the merits of its value
'to residents of the City.

The second method for implementing additional
public access and open space areas is for the City
to take an active role in the development of these
facilities. Recommendations include the following
municipal objectives:

a Urban mini parks at the foot of Commercial
Street, at each side of the former U. S. Route
One bridge, and at the pedestrian exits from
the municipal parking area at Main Street.

a A passive recreation park adjacent to the Goose
River on the East Side.

a Perpetual retention of open space at the
City-owned Heritage Park property.

PORT AND HARBOR RESOURCES

Policy: To provide for maximum-utilization of
the harbor for commercial and
recreational use while protecting and
improving water quality and natural
marine resources.

The Belfast Harbor Advisory Committee is to be
commended for their efforts associated with harbor
management planning and operations.. in the past
six years, the Advisory Committee has undertaken a
comprehensive approach to the management of the
harbor and municipal port facilities. The harbor
ordinance currently in place is extremely
thorough. Mooring locations have been mapped in
accordance with the Maine State Plane Coordinate
System. In terms of operations, the harbor is
fiscally self-sufficient in terms of municipal
expenditures.

Recommendations pertinent to port and harbor
facilities include physical harbor improvements,
as well as the creation of additional mooring
areas. Physical harbor improvements proposed
include a 400 foot pier extending from Commercial
Street into the harbor. This facility would
provide for pedestrian access, as well as improve
conditions for future marina development behind
the breakwater.

On the opp osite side of the bay, a 500 foot wave
attenuation device is proposed to extend into the
bay from Patterson Point. While not intended for
pedestrian access or berthing, this structure will
mitigate wind and wave action within the harbor,
and improve conditions for marina development or
concentrated vessel moorage.

In addition to marina development within the
harbor, the Harbor Advisory Committee should
consider more effective use of moorage areas. In
lieu of individual point moorings, two point float
berthing systems should be utilized to increase
the density within moorage areas.

The plan further recommends dredging the area
beyond the U. S. Route One bridge to provide for
increased moorage space. Due to the height
limitation imposed by the former and lower bridge
structure, this area should be dedicated to power
boats only.

Finally, it is recommended that the City take an
active role in the protection of water quality and
marine resources within the river and harbor.
These resources provide habitat for shellfish and
marine worms which represent a commercial and
recreational resource to the community.
Additional species found in these waters include
Atlantic Salmon, Alewives, Rainbow Smelt, Mackerel
and the American Eel. In addition, intertidal
flats provide important 'habitat for numerous
species of waterfowl.

The Maine Department of Marine Resources veri fies
that, while these habitat areas were once open to
shellfish harvesting, they are presently closed
due to pollution. In cooperation with this and
other State agencies, the City should undertake a
long-range plan to improve water quality and
reopen these areas for commercial and recreational
use.

MAXIM ACTION PLAN

Policy: To promote the involvement of the City
of Belfast in the redevelopment of its
vaterfront and harbor as the City must
play a key role in the short-term and
future utilization of these resources.

Beyond plan components which address waterf tont
land use, public access and open space, and port
and harbor facilities, municipal leadership is
critical. Together, these aspects of the plan
formu'late the overall redevelopment plan and
define the City's control during the
implementation process. Key elements of municipal
involvement include the following:

Create a Waterfront Redevelopment Corporation
whose mission would be to actively pursue the
implementation of the Comprehensive Waterfront
and Harbor Management Plan.

Because a development corporation is formed for
public purposes and will not itself accrue
profit from its operation, it is tax exempt and
can be fueled by any combination of member
dues, private or public grants, State and
Federal loans, and in-house revenues. Specific
objectives of the development corporation
include the following:

Assist the Planning Board and City Council
in the implementation of revisions to
zoning ordinances.

� Assist the present owners or prospective
developers of the major vacant waterfront
parcels in the redevelopment plans for
these properties.

� Support the local commercial fishing
industry.

� Coordinate land and water development
issues with the Harbor Advisory Committee.

Pursue funding and grants to facilitate
harbor and waterfront improvement projects.

Maintain momentum and direction for the
waterfront redevelopment process.

Implement improvements to Front Street as a
means of enhancing the waterfront and
attracting private waterfront redevelopment
projects. Between Commercial Street and the
former U. S. Route One Bridge, Front Street
should be improved to include curbing,
sidewalks, landscaping and period lighting
fixtures. Design details should repeat those
used in the improvements to Main Street and
downtown. As part of these improvements, the
turning radius from Main Street onto
northbound Front Street should be increased
for improved safety.

Develop Federal Street as a primary linkage
between the municipal parking area on Main
Street and the waterfront. As vehicular
traffic will utilize Main Street as the
primary route to the waterfront, Federal
Street should be developed as a pedestrian
way from the downtown business district to
Front Street and Heritage Park. In
conjunction with this project, the City
should demolish the center building in
Heritage Park. Removal of this structure
will provide a strong visual link to the
harbor as the pedestrian descends Federal
Street from the downtown area.

Expand the municipal parking area on Main
Street as the demand for parking is increased
by waterfront redevelopment. The expansion
area should occur between the existing
parking area and the sewage treatment plant.
As retaining walls may be required for this
expansion, the city should plan for the
associated construction costs and proper
timing for this project. In conjunction with
this effort, the City should develop "pocket
parks" at both the Main Street and Front
Street pedestrian exit locations. The
descent to Front Street should be designed
for an accommodating route for handicapped
and elderly pedestrians. Pocket parks will
serve as pedestrian collection areas with
seating and community information kiosks.
Design details should be compatible with area
sidewalks; crosswalks should be planned to
direct pedestrian traffic across Main Street
to Federal Street and across Front Street to
waterfront destinations.

Conduct an engineering study of the sewage
treatment plant to determine methods of
reducing odors generated by the plant. Dome
covers should be considered as an alternative
solution. Should the City require expansion
of its treatment capacity, new sites should
be considered for additional facilities. if
new sites are not feasible, any expansion
must be carefully designed as- as to minimize
the impact on adjacent downtown and
waterfront areas. In the short term,
sufficient landscape materials should be
planted to screen the existing facilities.
In addition, the City should measure the
impact on water quality in the harbor
generated by the existing facility. if
feasible, the City should extend the outfall
to the outer limits of the harbor.

Establish waterfront mini-parks at the foot
of Commercial Street, and at either terminus
of the former U. S. Route One bridge. These
parks should include night lighting and
seating to support passive recreational use.

Establish a significant municipal park on the
East Side adjacent to the Goose River and its
confluence with the harbor. The City must
negotiate the right to implement this
facility with Central Maine Power Company,
present owner of the property. The park
design program should be focused on passive
recreation activities. Facilities should
include limited,, but sufficient, parking,
walking paths, seating, and night lighting.
In addition, interpretive signage should be
incorporated to provide educational
information on the Goose River, Belfast Bay,
fisheries and marine resources, and
hydroelectric infrastructure.

Remove the existing railroad tracks to the
south of the Belfast and Moosehead Lake
Railroad Yard. As industrial uses are phased
out of the waterfront, the existing tracks
will no longer serve any useful purpose.
Removal of the tracks will allow utilization
of the railbed as a pedestrian way.

Conduct an updated engineering study to
evaluate the structural stability of the
former U. S. Route One bridge. In the early
1980's the 'City conducted a study which
concluded that the bridge required repairs
for short-term stability and major structural
repairs for long-term utility. As a long
range objective, the City of Belfast should
implement the major structural repairs
required. In the short term, the City should
undertake an annual professional inspection
of the bridge to evaluate safety conditions
and close the bridge to pedestrian traffic,
if necessary. Ultimately, the bridge should
-serve as a pedestrian and bicycle path
linkage from the downtown waterfront to the
East Side.

MARKET
ANALYSIS SUMMARY
15

MARKET ANALYSIS SUMNMY

Market Decisions, Inc. Is role in the development
of the plan was to provide a brief overview of the
market supports for a limited number of uses as
they related to the waterfront redevelopment. The
four types of development that were analyzed
included:

1. Marina
2. Marine related retail
3. Hotel
4. Office

The market overview for each use included:

1. Identification of market area
2. Demographic and economic overview
3. Demand analysis of potential market supports

The overview does not include a detailed
evaluation of the competitive environment with
respect to each use. Therefore, though the demand
analysis may indicate the overall market for a
use, we cannot determine to what extent that
demand is currently being satisfied by comparable
facilities in the Belfast area. Because a
comprehensive market study was not conducted for
each use, definitive conclusions and
recommendations concerning the four different
uses, therefore, cannot be determined.

Marina Potential

Based on the trade area identified in the study by
Market Decisions, there are estimated market
supports for approximately 100 marina slips in
Belfast. It is important to note that this
estimate of demand is a "ballpark" figure based on
available official data sources and extrapolating
data from previous marina market studies.conducted
by Market Decisions in the mid-coast area. Since
no survey of boat owners has been conducted to
measure specific interest in Belfast Harbor, it is
difficult to determine demand with a high degree
of accuracy. However, Market Decisions believes
that the analysis does provide an order of
magnitude of the demand potential for the
development of a marina in Belfast. Market
Decisions cautions that previous marina studies
have indicated a price sensitivity with respect to
slip rents in the mid-coast area. This
sensitivity stems from, in part, the economics of
the area and a loyalty of boat owners to
inexpensive moorings at $30 (local) and $90
(non-resident) per season.

Market Decisions recommends that a prerequisite of
the development of a marina be a comprehensive
market study to determine: (1) cost analysis of a
marina; (2) a more specific determination of
demand for slips in Belfast Harbor; and (3) the
price sensitivity to those slips.

market Decisions recommends that the City of
Belfast pursue a private developer for a marina
project. Of the four uses analyzed, we believe
this to be the best use alternative. A marina
project should serve as a catalyst for the
long-term overall development strategy of the
'waterfront.

Marine Related RehdI

Much of the supply needs of boat owners in the
Belfast area are currently being served by area
marine retail stores such as Hamilton Marine in
Searsport, the largest marine retail store north
of Boston.

Market Decisions believes that the marine retail
use poses somewhat of a "chicken and egg" dilemma.
On one hand, the size and range of supplies
offered by a marine stoke will be directly related
to the size of the marina, including the number of
boats in slips and on moorings, as well as the
number of transient boats using Belfast as a
stopover point. ' The transient boat owner will
have the greatest influence on the range of
supplies to be offered. The other factor in the
dilemma is that marine supplies must be available
when the marina opens.

Therefore, Market Decisions recommends that a
marine supply store that sells a limited range of
items be part of the overall marina development
plan. Though most of the local boat owners will
choose to shop at Hamilton Marine (or one of the
other marine retail establishments in the
mid-coast region) to purchase a majority of their
supplies, a marine store on the waterfront can
serve to fill their immediate demands. Any marine
retail activity should position itself and provide
for flexibility with respect to providing a range
of supplies demanded by transient boat traffic.

Hotel Potential

Based on the trade area identified in the market
study, indications are that the market supports do
not exist at this time for a moderate size (40-50
room) hotel on the Belfast waterfront. The demand
f or transient rooms is generated by two broad
markets: leisure or pleasure travel and business
travel (including conventions and conferences).
Based on hotel industry standards and
requirements, a new moderate size project would
need to achieve a minimum annual occupancy rate of
65% in order to be profitable. Based on
historical occupancy rates of Belfast area hotels
and previous tourism market studies conducted for
the Maine State Development Office, it is doubtful
that this level of performance could be achieved.
Market Decisions recommends that this use not be
pursued at this time.

Mice Potential

Market Decisions (with assistance from the Waldo
County Opportunity Zone) estimates that there are
approximately 125,000 - 130,000 square feet of
office space in the Belfast area. This figure
does not include office space that is associated
with manufacturing facilities, such as Penobscot
Frozen Food or Stinson Canning. The demand for
office space depends on new business formation in
the area, on businesses relocating to the area,
and on local businesses expanding.

Based on national standards, on average
approximately 200 square feet of office spac Ie is
allocated per white collar employee. According to
the Maine Department of Labor, there was an annual
average of 640 white collar employees working in
the Belfast LKA in 1990. Based on an average of
200 square feet per employee, there is a current
estimated demand of 128,000 square feet of office
space in the market area.

Current market conditions indicate that much of
the office space being absorbed in Belfast
(primarily at the Belfast Center building) is by
firms seeking more space with better amenities,
such as parking,, for the same or lower lease
rates. Professionals, including doctors, lawyers,
accountants, etc., also have the option of
purchasing single family homes and converting them
to office space.

The Maine Department of Labor data does not
suggest that the Belfast area will likely
experience growth in white collar jobs that will
justify the need for the development of moderate
to large amounts of office space in Belfast during
the next five years.

Market Decisions recommends that development of
office space not be a primary focus of the Belfast
waterfront plan.

Any future potential for the creation of an office
space project on the Belfast waterfront will need
to offer quality space in flexible sizes, with
amenities such as ample parking, in order to be
successful. It appears that the current demand
for office space in the Belfast LMA is being
adequately served. Market Decisions believes
that, unless a moderate to large employer moves to
the area or Belfast can position itself as a
strategic location for a satellite office for
firms serving the mid-coast, there will not be
adequate growth in the employment sectors that
demand office space to make an office project
feasible at this time.

POLICY
DEVELOPMENT
21

ANALYSIS AND POLICY DEVELOPAWAT
FURODUCTION

This section of the comprehensive Waterfront and
Harbor Management Plan establishes a series of
policies and objectives which formulate the
framework for recommendations contained within the
plan. The policies and objectives are derived
from the study of existing conditions, issues
identified by these studies, market analysis and
assessment, and by public opinion received during
the formulation of the plan. Policies and
objectives plan components address waterfront land
use, public access and open space, and port and
harbor resources. .In addition, policies and
objectives have been developed respective to the
involvement of the City of Belfast in controlling
the future of its waterfront and harbor areas.
A. WATERFROW LAND USE

Polk,: To stimulate economic revitalization of
the waterfront while supporting
shoreline management which gives
preference to vater-dependent uses and
the provision of public access to the
waterfront, and to encourage
redevelopment vhich is compatible vith
existing land uses and environmentally
sensitive areas.
Objective The following specific objectives are
developed in support of this overall
policy statement which pertains to three
land use districts comprising the
Belfast vaterfront.

The Downtown Waterfi-ont

A-1. Utilize the City-owned Heritage Park
buildings to stimulate water-related land
uses, as well as for tourist information and
services.

These buildings contain approximately
2,600 square feet of leasable space and
are currently utilized primarily on a
seasonal basis. Year round utilization
will require improvements, including
insulation, plumbing, and mechanical
work.

The market analysis concludes that
marine uses will stimulate redevelopment
activity. Insomuch, the City has the
opportunity to lead this direction by
controlling the leases on existing
structures.

These buildings may serve as the
"municipal gateway" to the waterfront,
both from the land and from transient
harbor users. The City should capture
this opportunity to provide tourist
information services.

A-2. Promote the development of water-dependent
and water-related uses where conditions are
favorable for these uses.

The waterfront area between Commercial
Street and the old U. S. Route One
bridge is ideally suitable for these
uses, and there are limited
environmental constraints in this area.

These uses are most suitable within the
proximity of Heritage Park and existing
uses, including Belfast Boatyard,
Penobscot Bay Towing Company, and the
Consumer Fuels Company marina.

Public opinion favors these uses. The
percentage of responses from the public
opinion survey in favor of these uses
include marine-related retail (88% in
favor), marinas (73%), boat building and
repair (75%), and commercial fishing
(82%).

A-3. Permit the development of uses which are not
water-dependent nor water-related in
shoreland areas suitable for these uses, in
order to stimulate the rate of waterfront
redevelopment.

Market analysis and assessment indicates
that there is limited potential for
water-dependent and water-related uses
in the short-term future.

The size and configuration of waterfront
parcels dictates the necessity to
develop upper floors of existing or
proposed structures which does not
generally support water dependent nor
water-related uses.

Public opinion does not support zoning
amendments which would require land uses
which are water-dependent (65% opposed).
In turn, public opinion supports land
uses which are not water-dependent
provided that these uses are compatible
with and do. not interfere with
water-dependent uses (67% in favor).

A-4. Encourage redevelopment which is compatible
with the existing business district and
residential neighborhoods in order to
establish physical and cultural linkage
between these areas and the waterfront.

As Main Street exemplifies the
11character of the City" and provides the
primary route to the waterfront, the
City has the opportunity to establish a
strong linkage between this business
district and the waterfront.

Downtown -residential neighborhoods are
currently isolated from the waterfront
due to the scale of industrial buildings
and the undesirable pedestrian
environment associated with these
properties..

New structures or remodeled structures
should repeat materials used in the Main
Street district and in residential
neighborhoods in order to provide
continuity with existing structures.

A-5. Prohibit industrial uses in the downtown
waterfront with the. exception of the Stinson
Canning Company which is dependent upon its
waterfront location.

The 1990-1991 proposal to re-open the
Penobscot Poultry Plant raised serious
concern within Belfast and surrounding
communities. while many area residents
favored the proposal, their basis for
support was most probably based upon
prospective employment opportunities.

Industrial uses are incompatible with
existing business areas and residential
neighborhoods respective to the scale
and bulk of structures,, noise, truck
traffic and safety, and the general lack
of compatibility due to the, inherent
differences between industrial uses and
non-industrial uses.

Industrial uses may create. adverse
impacts upon water quality within the
harbor.

Industrial uses will deter the
development or redevelopment of
non-industrial uses on adjacent or
nearby waterfront properties, due to the
inherent aspects of industrial uses
described herein.

Public opinion survey respondents oppose
industrial uses which are not
marine-related (56% opposed) while
favoring marine-related industrial uses
(56% in favor).

The City of Belfast should consider the
acquisition of the Penobscot Poultry
Plant property as a means of initiating
the next era of activity on the
waterfront. With the "threat" of
re-opening of the plant removed,
desirable land useg"within the downtown
waterfront will be less hesitant to
locate in this area.

Stinsons Canning company is a
marine-related industrial use and is
somewhat isolated from the remainder of
the waterfront. As a fish processing
facility, Stinsons is dependent upon its
waterfront location at certain times
when the catch is off-loaded from the
harbor. Inasmuch, this operation should
continue as a permitted and accepted
land use with certain conditions for
future operations of the facility.

The East Side Waterfront

A-6. Promote the development of a mixture of land
uses currently permitted.

Harbor and waterfront conditions on the
East Side are generally not favorable
for water-dependent nor water-related
land uses.

Historical and recent land use
development on the East Side has been
comprised of numerous land use types.

Public opinion favors mixed use
development on the East Side. Given a
choice of thirteen possible land uses,
public responses favored all but one
(industrial uses).

A-7. Promote the protection of environmentally
sensitive areas from development activity.

Environmentally sensitive areas include
steep slopes in several locations,, as
well as the Goose River corridor as it
enters Belfast Bay.
The Passagassawakeag Waterfmnt

A-8. Limit future development within this area to
residential uses and related uses which do
not generate substantial traffic circulation.

Harbor and waterfront conditions in this
area are generally not suitable for
water-dependent nor water-related uses.

Existing developed areas are primarily
residential.

Roadways in the area have limited
capacity to absorb additional traf f ic
circulation.

A-9. Promote the protection of environmentally
sensitive areas from development activity.

Topographic conditions in this area are
comprised of excessively steep slopes;
erosion and flooding potential is
present along the riverfront.

B. PUBUC ACCESSANV OPEN SPACE

Policy: To ensure adequate future public access
to shoreline areas while maintaining the
environmental integrity of the coast and
to promote the retention and development
Objectives: of open space in waterfront areas.
B-1. Improve the Heritage Park property to
accommodate public access and passive
recreation use.

As a valuable asset to the City and
visitors, the existing "park" area
should emphasize pedestrian use. Site
improvements, including brick walkways,
benches, landscaping and lighting should
be planned.

B-2. Encourage the development of future public
access and open space through zoning
regulations and the development review
process.

Involve the private sector in this
effort by providing incentives for the
inclusion of public access and open
space in private development projects.

B-3. The City should take action to develop
additional public access and open space on
the waterfront,, particularly on the East
Side.

Public opinion strongly supports the
development of additional facilities.
70% of those responding to the public
opinion survey favor public open space
and waterfront parks, and 53% favor a
linear public pathway along the
waterfront.

While Heritage Park provides these
amenities on the West Side, there are no
such facilities located on the East
Side. '

Removal of the railroad tracks to the
south of the Belfast and Moosehead Lake
Railroad yard will allow the development
of a linear pedestrian pathway.

B-4. Ensure adequate access to the harbor for
commercial fishermen, the location of which
shall be separated from recreational access
facilities.

There are approximately a dozen
individuals who derive all of their
personal income as commercial fishermen.

While the commercial fishing industry in
Belfast is not as significant as in
other Maine coastal communities, it is
important that the City retain the
.availability of access for commercial
fishermen. Respondents to the public
opinion survey overwhelmingly support
the continuance of the industry within
Belfast.

A separate location for commercial
access to the harbor is necessary to
reduce conflicting use of the harbor
facilities between commercial fishing
and recreational user groups.
Commercial fishermen require adequate
parking area storage and staging areas,
and require moorings which are proximate
to these land facilities. Currently,
the commercial fishermen are restricted
to the City landing. Here, competition
for parking space is a problem, as well
as competition for float space. In the
summer of 1991, the Harbor Commission
and City Police established four parking
spaces at the City landing, reserved for
fishermen. While improving the
situation, this solution does not
address all the needs described herein.

C. PORT AAD HARBOR RESOURCES

Polia: To provide for maximum utilization
of the harbor for commercial and
recreational use while protecting
and improving water quality and
natural marine resources.

Objectives:

C-1. Plan for the long term implementation of
physical harbor improvements to mitigate wind
and wave action in order to increase the
potential for marina development and moorage
areas.

The current demand for moorings in Belfast
Harbor can be satisfied within the
existing mooring area. There is no
waiting list for moorings; however, there
is a waiting list for boaters who wish to
relocate closer to the City landing.

Within the next several years, demand for
additional moorings can be met through
reorganization of mooring locations and by
utilization of two point moorings, and by
marina development on the shoreline. The
Harbor Committee recently completed a
mooring grid plan which provides the basis
for mooring relocations.

With its elongated configuration and
east-southeasterly orientation to
Penobscot Bay, Belfast Harbor is subject
to extreme wind and wave action in
inclement weather conditions. Physical
barriers are designed-to mitigate these
condition s.

Market assessment and analysis concludes
that marina development will likely
serve as a catalyst for overall
waterfront development activity.
Physical barriers will improve
conditions for marina development.

Implementation of physical barriers
requires innovative design practices in
order to avoid adverse impacts upon
natural marine resources.

C-2. Where environmental impacts nay be avoided,
increase moorage areas through dredging
activities.

While the established policies promote
maximum utilization of the harbor, it is
equally important to respect the
environmental integrity of natural
marine resources.

C-3. Over time, the use of individual point
moorings should be decreased 'and more
efficient utilization of the harbor should be
implemented.

A two point, float system can
dramatically decrease the amount of
water area consumed by a single vessel.
As future demand for moorage increases,
the density of boats within the harbor
will require more efficient systems.

C-4. Continue to properly manage harbor resources
and maintain the fiscal self-sufficiency of
the harbor respective to municipal
expenditures.

Maintain and, where warranted, expand
the authority of the Harbor master and
Harbor Advisory Committee as required to
properly manage the harbor.

The City should continually evaluate the
fiscal expenditures required for
maintenance and management of the harbor
and assess harbor use fees required to
support these expenses.

C-5. Maintain and improve, where warranted, water
quality conditions and the protection of
natural marine resources.

Belfast Harbor and the Passagassawakeag
River support a variety of marine life
species which depend upon water quality
protection for their survival.

Shellfish beds which are presently
closed to harvesting due to pollution
represent a potential commercial and
recreational benefit to the community.

D. WAICIPAL ACTION PM

Policy To promote the involvement of the City
of Belfast in the redevelopment of its
waterfront and harbor as the City must
play a key role in the short term and
future utilization of these resources.

Objectives:

D-1. Establish a mechanism for the City to provide
initial and long term control within
waterfront areas.

The City should consider the immediate
establishment of a development
corporation as activity and change may
be imminent.

D-2. The City should enact zoning provisions.which
support policies and objectives respective to
waterfront land use.

Belfast has the opportunity to control
the type of development which occurs on
the waterfront through the application
of zoning regulations designed to
promote specific land uses.

Zoning provisions include general city
zoning codes, as well as State-mandated
shoreland zoning standards.

Specified land use types must be
considered with -respect for economi-c
viability in order to stimulate
waterfront redevelopment.

D-.3- The City should provide adequate
infrastructure and, where. appropriate,
infrastructure improvements necessary to
support and stimulate economic growth in
waterfront areas.

Infrastructure support includes sewer,
water, and utility services, as well as
streets, parking facilities, harbor
access facilities, pedestrian sidewalks,
and other functional requirements for
land development.

The City currently provides adequate
parking facilities in waterfront areas,
although competition for parking space
at the City landing is problematic in
summer months. The City should not
expand parking areas at the City landing
(due to the resultant loss of valuable
open space), but should plan for future
parking areas in other locations.

The amount of parking required in the
future depends on several factors.
current zoning provisions require new
businesses to provide their own parking
facilities; however, the City may waive
or reduce parking requirements for new
businesses which are water-dependent
uses, or which provide public access or
preserve views to the harbor. In this
respect, the City should plan for areas.
to absorb these parking needs, as well
as needs derived by tourism in
waterfront areas.

In order to "shape" the direction of
waterfront and harbor development, the
City may prioritize infrastructure
improvements in support of the desired
future utilization of these resources.

D-4. Development and utilization of waterfront and
harbor resources is a fluctuating and dynamic
process. Inasmuch, the City of Belfast
should undertake an initial, as well as a
long-term, commitment to monitor this process
on an annual basis. Over time, the City
-should update its policies in accordance with
fluctuating conditions and changing needs.

IMPLEMENTATION
STRATEGY
34

]INWWWAITATION STRATEGY

WRODUCTION

The implementation strategy is comprised of a
series of recommendations which are based upon the
analysis and policy development section of this
plan. The overall strategy is multifaceted as it
involves the participation of private landowners
and land developers, as well as the City itself.
Furthermore, the strategy provides a framework for
short-term redevelopment activity, as well as
long-term control over waterfront and harbor
utilization. Finally, it is important to
recognize the context in which this plan has been
developed.

Accept ance of this plan does not ensure that the
City can begin to implement the recommendations
contained herein. The plan components must first
be scrutinized by the Belfast Comprehensive Plan
Committee. This Committee is currently developing
the State-mandated Comprehensive Plan, scheduled
for completion by 1992. As part of this process,
the Comprehensive Plan Committee may incorporate
or delete portions of the implementation strategy
presented in the following pages. Upon completion
of the City-wide Comprehensive Plan, zoning
ordinance recommendations and fiscal budget
expenditures will be further scrutinized prior to
implementation and adoption by the City.

RECOMIENI)ATIONS

Recommendations presented herein are made in
response to the policies. set forth within the
plan. Each recommendation is correlated to a
specific objective established by the Waterfront
and Harbor Management Plan Committee. In
addition, priorities have been established to
direct the implementation efforts by the City of
Belfast.

Descriptive Summary or Recommendations

1. Create a Waterfront Re-Development
Corporation to actively pursue the
implementation of the Waterfront Plan:

a. Pursue funding and grants to facilitate
waterfront improvements.

b. Assist owners/prospective developers of
vacant waterfront parcels in the
redevelopment of these parcels.

Coordinate land/water issues with the
Harbor Advisory Committee.

d. Support commercial fishing industry.

e. maintain momentum and direction for
waterfront development.

2. Redefine existing waterfront Zone W-1 to
include all waterfront property between Front
Street and the harbor, *extending from
Commercial Street to Old Route One Bridge.
(See appendices for maps and zoning
language.)

a. Development within this zone promotes
water-dependent or water-related uses,
however, permits additional uses in
order to stimulate economic
redevelopment.

b. Industrial uses are limited to the
Stinson Canning property and are
required to meet the definition of a
water-dependent use.

C. Architectural design guidelines and
provisions for public access apply to
this zone.

3. Redefine existing waterfront Zone W-2 to
include all property between Front Street and
the DC, R1 and R2 zones. (See appendices for
maps and zoning langua ge.)

a. Development within this zone is less
restrictive than the W-1 Zone as
water-dependent and water-related uses
are not suitable.

b. industrial uses are prohibited in this
zone.

C. Architectural design guidelines and
provisions for public access apply to
this zone.

4. Retain the existing W-3 and W-4 zoning on the
East Side waterfront. Add provisions for
public access and preservation of views (see
Appendices).

5. Retain the existing R-2 and GP zoning on the
Passagassawakeag waterfront. Add provisions
for public access and preservation of views
(see Appendices).

6. Redefine Shoreland Zoning Districts and
regulations as follows: (See appendices for
maps-and zoning language.)

Shoreland.Zones are proposed as follows (see
maps for district boundaries):

a. CFMA -. Commercial Fisheries/Maritime
Activities Zone. This zone is a new
recommended zone proposed to encourage
marine related uses on the West side
waterfront. The location of this zone
is based upon waterfront and harbor
conditions which are suitable for these
uses.

b. GD General Development Zone. This
zone is mostly retained on the East Side
waterfront and on portions of the West
Side waterfront. This zone allows for
mixed uses and is less restrictive than
other shoreland zones with respect to
property utilization.

C. UR - Urban Residential Zone. This zone
is created to minimize the
non-conformance of existing intensively
developed residential property. city
water and sewer service is required in
this district.

d. LR - Limited Residential Zone. This
zone is mostly retained on portions of
the East and West Side waterfront in
areas where less intensive development
of the shoreline is appropriate with
respect to existing land use and natural
resources.

e.. RP Resource Protection Zone. This
zone is mostly retained on the East Side
where development would adversely affect
water quality, productive habitat, or
scenic and natural areas.

7. Acquire the Penobscot Poultry Plant property.
The City should pursue a community
Development Block Grant (see funding
assistance section) to assist in the purchase
and demolition of the existing structures.
Rationale for funding assistance may include
the following:

a. The plant creates urban blight on the
waterfront, inhibiting redevelopment
activity.

b. The plant poses potential environmental
hazards, including asbestos.

C. As time goes on, disposal of demolition
debris becomes increasingly difficult.

d. The City may provide municipal parking
on a portion of the property to
stimulate economic development of
adjacent parcels.

After purchase of the property and demolition
of the existing structures, the City should
solicit development proposals from the
private sector for redevelopment of the
property with specifications and guidelines
for development. Future use of the property
shall comply with the provisions of the
proposed W-2 zoning district (see
Appendices).

8. Implement Front Street Corridor Improvements,
including paving, curbing, sidewalks, street
trees, and lighting.

9. Develop waterfront parks at the following
locations:

a. , Commercial Street at the waterfront.

b. Each side of old Route I Bridge.

C. On C. M. P. land at Goose River
impoundment basin.

10. Implement a breakwater at the foot of
Commercial Street to provide for public
access and to increase harbor utilization.

11. Implement a wave attention device at
Patterson Point to increase harbor
utilization.

12. Develop mooring pool (motor boats only)
beyond Route 1 overpass. Suction dredge this
area.

13. As required to improve efficient utilization
of harbor moorage area, implement the use of
two point float moorings.

14. Establish a location for commercial fishermen
separate from Town Landing.

a. A short-term location near the
Weathervane or at Stinsons. Provide
parking for 10-15 vehicles and adequate
storage/staging areas, as well as
sufficient float space. Mooring
locations for commercial fishermen
should be proximate to this facility.
The City should investigate its apparent
ownership of water frontage at the'
Weathervane property in this process.

b. A long-term location between Belfast
Boatyard and old bridge; consider
additional location on East Side,
perhaps near Youngs Lobster Co. and/or
in association with wave attenuation
device.

15. Rehabilitate old bridge for pedestrian/,
bicycle access:

a. Update engineering study of bridge
condition. Close bridge if determined
unsafe for pedestrian use.

b. Implement short-term structural repairs.

C. Implement permanent structural repairs.

16. Develop Federal Street as the primary
pedestrian route/link to waterfront,
including paving, curbing, sidewalks, street
trees and lighting.

17. Improve turning radius from Main Street
turning left to Front Street.

18. Set aside municipal land for additional
parking between municipal lot and treatment
plant. Develop parking in accordance with
the demand for municipally controlled parking
spaces. Provide access to Front Street for
handicapped/elderly pedestrians. Incorporate
"Pocket Parks" at Main Street and Front
Street elevations.

19. Utilize City buildings at Heritage Park as
follows:

a. Marine-related retail
b. Public restrooms and showers
C. Belfast Maritime Historical
Museum and Exhibits
d. Tourist information/direction
e. Chamber of Commerce

20. Remove railroad tracks south of the B & M L
railroad yard and develop a pedestrian
pathway.

21. Implement passive recreation improvements at
Heritage Park, including walkways,
landscaping and lighting.

22. In conjunction with Federal Street
improvements, demolish the center building at
Heritage Park to allow for a view corridor
from Federal Street. Develop an "arrival
plaza" with pedestration, paving, seating,
lighting, and informational signage.

23. Conduct an engineering study of the sewage
treatment plant facility to evaluate
alternatives for the reduction of odor
generated by the plant. Consider the use of
domed covers as a potential method.

24. Conduct an engineering study to evaluate
potential demand for expansion of the sewage
treatment plant. Consider alternative sites
for new treatment facilities. Should
expansion be required at the existing site,
develop an expansion master plan which
incorporates recommendations contained
herein, respective to expansion of the
adjacent municipal parking lot and pedestrian
walkways to Front Street.

PlUORITIES AND FISCAL EXPENDITURES

This section of the plan organizes the
recommendations in terms of the applicable
objective relating to each alternative, the
general timeframe for implementation, and
projected fiscal expenditures. Timeframe
categories include "immediate" (1-2 years), "short
term" (2-5 years), and "long-term" (5-10 years).

IMMEDIATE MIPLEMENTATION (1-2 Years)

Policy Fiscal
Reference Recommendation Expenditure

D-1 1. Establish Waterfront
Redevelopment Corporation N/A

A-2 2 - 5. Implement Zoning
thru Ordinance Revisions N/A
A-9
and 6. Shoreland Zoning N/A
D-2 Revisions

A-5 7. Acquire Penobscot $500,000.00
Poultry Property/
Demolish Structures

D-3 8. Implement Front $250,000.00
Street Improvements
(1500 feet)

A-1 19. Utilize Heritage N/A
Park Buildings
Per Recommendations

D-3 23. Study Odor Reduction $ 10,000.00
at Treatment Plant

SHORT-TERM IMPLEMENTATION (2-5 Years)

Policy Fiscal
Reference Recommendation Expenditure
C-1 10. Implement Commercial $500"000.00
Street Pier

C-3 13. Implement Float N/A
Mooring System

D-4 14a. Establish Short- N/A
Term Commercial
Fishing Location

D-3 15a. Update Engineering $ 25,000-00
Study of Old U. S.
Route One Bridge

D-3 15b. Implement Short- $200,000.00
Term Repairs to
Old Bridge

B-1 21. implement Passive $100,000.00
Recreation
Improvements at
Heritage Park .

D-3 24. Study Treatment $ 50,000.00
Plant Expansion
Alternatives

LONG-TERM IMPLEMENTATION (5-10 Years)

Policy Fiscal
Reference Recommendation Expenditure

B-3 9. Develop Waterfront $250,000.00
Parks

C-1 10. Implement Wave $500,000.00
Attentuator at
Patterson Point

C-2 12. Develop Mooring $150,000.00
Pool Beyond
Bridges

B-4 14b. Establish Long- N/A
Term Commercial
Fishing Location

D-3 15c. Implement Permanent $750,000.00
Repairs to Old
Bridge

D-3 16. Develop Federal $100,000.00
Street Linkage
(400 feet)
D-3 17. Improve Turning: $ 75,000.00
Main Street to
Front Street

D-3 18. Expand Municipal $250,000.00
B-3 Parking, Develop
Pocket Parks

A-1 22. Demolish Center $ 15,000.00
D-3 Building at
Heritage Park.

I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I 44 APPENDICES
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COO
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St.

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NATURAL RESOURCES

Floodplain Areas Slopes Exceeding 20 %

Intertidal Zone

Marine Worm Habitat

aitlon

sow.
000 R Robbins #0 G
mono
LR -
D
S A G A S_ S L

Sapp j v F,

40*40 C6 FMA

St. T-J@..

i'r-1 nT-1

PROPOSED SHORELAND ZONES

LEGEND:
CFMA Commercial Fisheries [Maritime Activities District
GD_ General Development District
LR Limited Residential District
RP Resource Protection District
UR Urban Residential District

L@@Ap
atterson

Robbins

S A G A S S

St.

-Sj
..............
0,

rm -i i
MUNICIPAL ACTION PLAN
LEGEND:
Pedestrian Park
NMI Pedestrian Bicycle Route
0011Q Wave Attenuation

A S S A W A K G

01Y

C, as to

...................
St.
. . ....... . .....
rTIT-FF

MUNICIPAL ACTION PLAN.

LEGEND:

Access site for Commercial Fisherman Pedestrian Parks
Open Harbor. of Refuge Improve Treatment Plant Appearance
fit 11)

NMI= 1) Pedestrian Access Improvements Expand Public Parking At,ea
Improve Front St. as Waterfront Spine Waterfront Redevelopment Zone
01111[1'Breakwater from Commercial St. Extend Main St. CBD to Waterfront

A 'S S W A K A G

^Y
*W2
. ..... ........
........ .. ...

Ik J106

..... .. ....
&

UFTIT-Fj

PROPOSED GENERALZONES

Waterf ront Zone 1 RI Residential Zone I

Waterfront Zone 2 Residential Z6 ne 2

DC Downtown Commercial Zone

TECHINICAL AND FEWICUL ASSISTANCE

TECHNICAL ASSISTANCE

Coastal communities working to protect water
dependent uses or develop - other strategies to
implement Maine's coastal Policies -can obtain
technical assistance from the coastal planning
staff at the Office of Comprehensive Planning,
Department of Economic and Community Development,
Station #130, Augusta, ME 04333. For information
or assistance, please contact Francine Rudoff,
Kirk Schlemmer, or Tamara Risser at 289-6800.
Additional assistance may be obtained from the
following organizations:

Waldo County opportunity Zone
67 Church Street
Belfast, ME 04915
Contact: Michael Bush at 338-1139

Eastern Mid-coast Planning Commission
9 Water Street
Rockland, ME 04841
Contact: Tom Ford at 594-2299

Other sources of technical assistance include the
following organizations:

Maine Coast Heritage Trust (MCHT)
P. 0. Box 416
Topsham, ME 04096
729-7366
or
P. 0. Box 426
Northeast Harbor, ME 04662
276-5156

MCHT promotes conservation of Maine's coastline
and islands by negotiating gifts of land and
easements to conservation organizations. MCHT
offers professional advice and assistance to land
owners, land trusts, and municipalities.

Maine Municipal Association (MMA)
Community Drive
Augusta, ME 04330
623-8428

MMA provides assistance to towns in developing
zoning ordinances,, local code enforcement and
legal affairs.

Financial Assistance

A number of sources also provide financial
assistance to Maine communities to support
projects which enhance opportunities for
waterfront and harbor improvements.

Coastal Planning Grants are available for
municipal waterfront and harbor planning
@ctivities. These activities should result in
implementation strategies to further Maine's
Coastal Policies. Contact the Office -of
Comprehensive Planning, Department of Economic and
Community Development, 289-6800.

Coastal Implementation Grants are available for
the development of zoning ordinances, harbor
ordinances, detailed public access plans, and
other implementation efforts. Contact the Office
of Comprehensive Planning, Department of Economic
and Community Development, 289-6800.

Community Revitalization Grants are available for
downtown revitalization, housing rehabilitation
public facility improvements, and other local
programs that benefit low and moderate income
people.

For further information, contact the Office of
Community Development, Department of Economic &
Community Development, 289-6800.

Land & Water conservation Fund Grants are
available to support the acquisition and/or
development of outdoor recreation facilities,
including waterfront parks.

For further information, contact the Office of
Comprehensive Planning, Department of Economic &
Community Development, 289-6800.

Boating Facilities Program award grants for the
acquisition development and improvement of state,
regional or local recreational boat access sites.
Funds for the program are derived from the state
gasoline tax.

For further inf 'ormation, contact the Bureau of
Parks & Recreation, Department of Conservation,
289-3821*

The Maine Department of Transportation may have
funding available as MDOT has conducted a
State-wide study of port and harbor needs which
places an emphasis on funding projects not
traditionally funded by State and Federal
programs. Contact MDOT, Division of Ports and
Marine Transportation, 289-2841.

The Maine Department of Environmental Protection
administers Section 205; water quality planning
grants for projects determining the nature, course
and extent of water pollution. A local match of
funds is not required, but may be helpful in the
approval process. Contact the Maine D.E.P.,
289-3901.

The U. B. Army Corps of Engineers funds dredging
projects, but requires a local match. For
Congressionally authorized maintenance dredge
projects, the Army Corps pays 100% of the cost of
dredging, but the local government is responsible
for locating, procuring and preparing the disposal
site. For improvement projects (small-scale
navigational dredging projects that occur outside
of Congressional approval), the local government
must share the cost of dredging as well as locate,
procure and prepare the disposal site. Typically,
the local share of dredging costs is between 20%
and 50%, but it can be more. Contact the Maine
office at 623-8367.

The Economic Development Administration
administers public works grants, which in the past
have included commercial fishing piers. The
limited financial resources of the agency may
preclude use of this funding course at this time.
Contact the EDA through the Eastern Maine
Development Corporation at 942-6389.

PROPOSED ZONING UNGIAGE REMSIONS

Waterfront I - West Side Harbor

Purpose:

To promote, preserve andprotect water-dependent and
water-related uses which foster the maritime heritage of the
City of Belfast. This district is established due to its
suitability for uses which are dependent upon favorable
waterfront and harbor conditions. While this District
allows for diverse land uses which encourage economic
vitality to the waterfront, certain land uses which are more
suited to other locations within the City are prohibited.

1. Preferred Uses within this zone include:

a. *Water dependent uses, including marinas

b. **Water related uses, including the following:

1) chandleries and sail lofts
2) boat building
3) boat sales and repair
4) aquariums
5) fish and shellfish sales
6) marine-oriented 'museum or education facility
7) fabrication, storage and repair of fishing
equipment

2. Permitted Uses with Planning Board Review:

a. Retail stores and restaurants

b. Professional offices

C. Public parks and open space

d. Municipal uses deemed necessary by the City
Council but, prior to taking action thereon, the
Council shall hold a public hearing for which 10
days public notice shall be given.

P. Residential dwelling units (prohibited on the
first floor).

3. All other uses are prohibited within this zone.

Those uses that require, for their primary purpose, location on submerged lands or require direct
access io, or location in, coastal waters end which therefore cannot be located away from these
waters. These uses include, but are not limited to, commercial and recreational fishing and boating
facilities, ffnfish and shellfish processing, storage and retail and wholesale marketing facilities,
dock and port facilities, shipyards and boat building facilities, marinas, navigation sides, basins
and channels, and uses which primarily provide general public access to marine or tidal waters.

Those uses which do not require direct access to, or Location in, coastal waters but whose primary
purpose is to support the successful functioning of water-dependent uses.

h. industrial uses in buildings previously used for
industrial purposes provided that the proposed use
is water-dependent as defined herein.

4. Shoreland

The provisions of the Shoreland Zoning ordinance apply
to areas within 250 feet of the mean high water mark of
the Passagassawakeag River and Belfast Bay.

5. Standards

a. The proposed use must be consistent with the
purpose of this District as stated above.

b. Exceptions to the definitions of water-dependent
and water-related uses contained herein shall be
narrowly construed. The burden of proof shall be
placed upon the party proposing any such uses to
qualify the use as water-dependent or
water-related.

C. The general standards of performance in Chapter
Two shall be observed.

d. The following standards shall also apply:

Minimum lot size 10,000 square feet
Minimum lot frontage 50 feet
Maximum building height 35 feet
Minimum setback 10 feet from
each lot
line

e. The architectural design of new structures or
renovated structures or renovated structures shall
compliment the architectural heritage of Belfast.
Exterior facade materials prohibited include metal
siding, concrete and concrete block. Brick or
wooden clapboard facade materials are strongly
encouraged. Roof pitches shall be at lease 3 in
12 for all new structures.

6. Provisions for Water Dependent Uses, Water Related
Uses, Public Access and Viewing Areas

The Planning Board will consider the granting of
density bonuses and other incentives, such as setback
reductions, building height restrictions, and parking
requirements, for development projects which include
water dependent and water related uses, or which
provide for public access along the water, or which
preserve views from upland areas to the waterfront.

Consideration of density bonuses, setback reductions
and other development factors shall be subject-to the
requirements of the Shoreland Zoning ordinance and
State regulations administered by the Department of
Environmental Protection.

a. Under the provisions of Chapter One, Section IX of
this Ordinance (Contract Zoning), the Planning
Board may grant additional incentives to
applicants proposing water dependent uses, water
related uses, or public access to and/or
preserving views to the harbor. It shall be the
responsibility of the applicant to propose such
incentives. The authority to grant such
incentives shall be vested in the City of Belfast
Planning Board, in accordance with the contract
zoning provisions of the Ordinance.

PROPOSED Z01%1NG 1ANGUAGE REVISIONS

Mlatedront 11 - Downto"

1. Permitted Uses

a. Office complexes

b. Residential, excluding manufactured housing units.

C. Marine related activities, including boat storage.

d. Municipal uses deemed necessary by the City
Council, but, prior to taking hereon, the Council
shall hold a public hearing for which 10 days
public notice shall be given.

e. School, day nursery, municipal building or use,
public park, open space, institution of an
educational, religious, philanthropic, fraternal,
political or social nature.

f. Professional and business office.

g. Hotels and motels.

h. Retail stores and restaurants.

i. Wholesale business and services.

j. Public and private educational, assembly places
and medical facilities.

k. Craft production.

1. Accessory uses and buildings, including yard sales
on no more that 10 days in any calendar year.

2. Permitted Uses with Planning Board Review

a. Non-industrial uses in business larger than a
25,000 square feet and previously used for
industrial purposes and subject to the standards
defined herein.

b. Planned unit development.

C. Non-municipal public and quasi-public uses.

3. Shoreland

The provisions of the Shoreland Zoning Ordinance apply
to areas within 250 feet of the mean high water mark of
the passagassawakeag River and Belfast Bay.

4. Standards

a. The general standards of performance in Chapter
Two shall be observed.

b. The following standards shall also apply:

minimum lot size 10,000 square feet
Minimum lot frontage 50 feet
Maximum building height 35 feet
Minimum setback 10 feet from
each lot
line

C. The architectural design of new structures or
renovated structures shall compliment the
architectural heritage of Belfast. Exterior
facade materials prohibited include metal siding,
concrete and concrete block. Brick or wooden
clapboard facade materials are strongly
encouraged. Roof pitches shall be at lease 3 in
12 for all new structures.

5. Planned Unit Developments

In the case of planned unit development, the above
standards.may be modified inaccordance with the
special provisions of Chapter Two, Section V of this
ordinance.

6. Provisions for Public Access and Viewing Areas

The Planning Board will consider the granting of
density bonuses and other incentives, such as parking
requirements, for development projects which provide
for public access along the water and which preserve
views from upland areas to the waterfront, in
accordance with Chapter 1, Section IX of this
ordinance.

Consideration of density bonuses, setback reductions
and other development factors shall be subject to the
requirements of the Shoreland Zoning Ordinance and
State regulations administered by the Department of
Environmental Protection.

PROPOSED ZONING WGUAGE REVISIONS

Waterfront III

WaterCront IV

Residential 11

General Purpose

Add the following to "Standards" section of existing
Ordinance:

6. Provisions for Water Dependent Uses, Water Related
Uses, Public Access and Viewing Areas

Public Opinion Survey

ClW OF BEIFAST
Harbor and Mlaterft-ont Management Plan
April, 1991

The City of Belfast has retained a planning consultant to prepare
this study and has established a Harbor and Waterfront Management
Plan Committee to direct the consultant. The Committee is
interested in obtaining public opinion on issues to be addressed
by this study and has distributed this survey to all City
residents. Please take the time to respond to the questions
herein and feel free to volunteer additional comments.

The Committee wishes to receive all survey responses by May 1,
1991. Thank you for your interest and participation.
Back=ound Information:

1. Where do you live in Belfast?

Various locations

2. A.100% Permanent Resident B. 0% Seasonal Resident

3. A. 91% Own Property B. 8% Rent Property C. 1% Both
(If both, please respond to survey as a property owner.)

4. My property is:

A.-869- Residential C. 0% Industrial
.k
B. 10% Commercial D. 4% Undeveloped
E.. 0% Other (Specify:

5. My property is:

A.lVi On the waterfront B.67% Not on the waterfront C.15% Both
(If both, please respond to survey respective to waterfront
property.)
Study Area lAnd Use:

The map below depicts the study area for this planning
effort. The questions following pertain to your opinion of
land uses on both the EAST side and WEST side of the harbor:

6. Please indicate your response to present and possible land
uses on the EAST side and WEST side of the harbor:

AST SIDE WEST SIDE
PERCENTAGE A. B. JOC: No A B C. No
Favor 0 pose pinion F v* @sejopinion
RESPONSES: p a orlopp

6.1 Multi-Family A. S8 B. 27 C. IS A. 3S B. 41 C. 24
Housing

6.2 Restaurants A. S6 B. 33 C. 11 A. 72 B. 22 C. 6

6.3 Retail Stores A. S6 B. 38 C. 6 A. 62 B. 26 C._12
(Non-marine
related)

6.4 Retail Stores A. 79 B., 20 C. I A. 88 B. 6 C. 6
(Marine
related)

6.5 Professional A. S6 B. _23 C. 21 A. 50 B. 29 C. 21
Offices

6.6 Marinas A. 76 B. 12 C. 12 A. 73 B. 14 C. 13

6.7 Boat Building A. 82 B. 10 C. a A. 76 B. 12 C. 12
& Repair

6.8 Boat Storage A. 67 B. 21 C. 12 A. 53 B. 24 C. 23

6.9 Commercial A. SS B. 14 C. I A. 82 B. I C. 17
Fishing
Support
Facilities

6.10 Hotels, Motels A. 56 B. 26 C. IS A.-S6 B. 24 C._20

6,11 Bed & A. 6S B. 19 C. 16 A. 65 B. 19 C. 16
Breakfasts

6.12 Industrial A. 36 B. S6 C. 8 A. 39 B. SO C. 11
(non marine
related)

6.13 Industrial A. S6 B. 32 C._12 A. S9 B. 22 C. 19
(marine
related)

6.14 Sewage A. 12 B. 76 C. 12 A. 22 B. 67 C. 11
Treatment Plant

6.15 Public open A. 79 B. IS C. 6 A. 79 B. 12 C. 9
Space/
Waterfront
Parks
E

7. Would you support zoning amendments which would prohibit
land uses which are not water-dependent uses?

A. 27 Yes B. 65 No C. 6 Undecided

8. Would you support waterfront land uses which are not
water-dependent provided that these uses are compatible with
and do not interfere with water-dependent uses?

A. 67 Yes B. 27 No C. 6 Undecided

9. Would you support zoning amendments which would require that
new waterfront developments are architecturally compatible
with existing buildings on Main Street?

A. 3S Yes B. 47 No C. is Undecided

10. Would you support the promotion of increased tourism
specific to waterfront areas and redevelopment efforts?

A. 56 Yes B. 35 No C. 9 Undecided

11. Do you feel that additional public access to waterfront
areas is needed at this time?

A. 53 Yes B. 38 No C. 9 Undecided

12. Do you feel that public open space/waterfront parks should
be promoted in planning for the future of waterfront areas?

A. -71 Yes B. IS No C. I Undecided

13. Would you favor a linear public pathway along the
waterfront?

A. 53 Yes B. 36 No C. 11 Undecided

Harbor Facilities

14. Please note the adequacy of existing facilities at the City
landing:

PERCENTAGE RESPONSE A. Good B. Poor C. Undecided
14.1 Car Parking 43 43 14

14.2 Boat Trailer Parking 59 9 -32

14.3 Launch Ramps 69 20 11

14.4 Float Space so 29 -21

14.5 Skiff Space 32 38 30

14.6 Water Depth 53 21 -26

14.7 General Safety 68 15 17

14.8 Public Restrooms 72 16 12

15. Do you feel that navigation within the harbor is adequate?

A. 47 Yes B. 24 NO C. 29. Undecided

16. Is the present Harbor Ordinance satisfactory'.

A. 29 Yes B. 24 No C. 47 Undecided

17. Belfast has conducted numerous waterfront studies in recent
years. In the space provided below please indicate your
general comments about the waterfront and harbor areas and
what you think this planning effort should.accomplish:

Prohibit industrial uses - no exceptions (4)

Support industrial uses (2)

Promote mixed use development approach (4)

Promote tourism development (2)

Support commercial fishing activity (4)

Support marina development (2)

Provide tax incentives for waterfront development

No 'more taxes for waterfront development (2)

Harbor users should pay for harbor development/
maintenance (2)

Plan for increased public access and open space (6)

Continue operation of the railroad (4)

Return Greyhound bus service (2)

Clean up trash in waterfront/downtown

Improve road conditions and access

Develop waterfront promenade from Commercial Street
to bridge (3)

improve condition of old Route 1 bridge (3)

Separate management of City Landing from
Harbor Commission

Belfast should not become another Camden

Numbers indicate multiple responses by survey respondents

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1. Introduction:

The Comprehensive Planning and Land Use Regulation Act (30-A M.R.S.A.
Sec. 4301 et seq., hereafter, the Act) requires each municipality in the
state, except those municipalities within the jurisdiction of the Maine
Land Use Regulation Commission, to develop a local growth management
program. Under the Act, a local growth m .anagement program is comprised
of the following:

a) a comprehensive plan that complies with the provisions of
the Act, and

b) an implementation program that is consistent with a
complying comprehensive plan.

Having submitted your comprehensive plan for state review and
comment, it is time to begin focusing your efforts on the preparation of
an implementation ' program that will enable you to achieve the goals and
strategies set forth in that plan.

As was the case in the preparation of your comprehensive p lan, the
Office of Comprehensive Planning (hereafter, the Office) is prepared to
offer technical and financial assistance as you develop your
implementation program. These guidelines are designed to provide you with
information necessary to access this assistance. The following section
(Section II) describes the Act's requirements for a local implementation
program. Section III outlines the state funded and administered
implementation-grant program. Section IV outlines.the federally funded
coastal management grant program, a supplementar@ assistance program
available to coastal municipalities.

II. Local Implementation Program:

In order for your local growth management program to be
complete and effective, the comprehensive plan you have developed must be
implemented through the application of specific policies, programs,
regulations, ordinances, and other municipal actions. The mechanism by
which the implementation strategies identified in your plan are to be

Office of Comprehensive Planning -I-

achieved is known as the implementation program. At a minimum, the Act
requires that your implementation program include the adoption of a new or
amended zoning ordinance that is consistent with your comprehensive plan.
However, your implementation program may be much more encompassing and in
addition to a zoning ordinance may include activities such as the
development of a capital improvement program, ordinances and regulations
to guide site reviews of development projects, housing and economic
development programs or initiatives, community land banks or land trusts,
or interlocal Agreements designed to promote local and regional policies.
The Office encourages you to be creative in the implementation of your
comprehensive plan.

[FOR COASTAL XUNICIPALITIES] Local implementation programs developed
by coastal municipalities will also consist of policies, programs,
ordinances, regulations, and other activities that focus on the use and
management of coastal resources. Under the Act, coastal municipalities
are required to develop local policies and implementation strategies that
specify the approaches that will be taken to address Maine's nine Coastal
Management Policies. Moreover, the Act explicitly calls for the
development of implementation strategies that ensure the preservation of
@ccess to coastal waters and that discourage new development*that is
incompatible with uses related to the marine resources industry. Thus,
implementation programs for coastal municipalities may include, for
example, the establishment of special waterfront zoning districts,
development of a harbor ordinance, or preparation of a public access plan.

III. Implementation Grant Program:

The implementation grant program is a state administered,
participative grant funding program (up to 25% of the project cost must be
provided by the municipality) for the development and adoption of
implementation strategies identified in your comprehensive plan, provided
that your plan has been determined to be consistent with the Act. The
following parameters have been established for the administration of this
program.

A. Eligible Applicants: All municipalities that have
submitted a comprehensive plan for review by-the office are
eligible to apply for an implementation'grant. Although
grant applications will be accepted and pibcessed-prior to
local adoption of a plan, no payment will'be made prior to
the local adoption of a consistent plant,

B. Maximum Grant Amount: The maximum state share available to
each applicant is $12,500. Dependent upon the amount of
state assistance received, the required local match will be
0% (for requests of $2,,500 or less) or 33% of the state
funds requested in excess of $2,500.

Office of Comprehensive Planning 2-

Grant Amount @ocal Match Recruired

$ 0 - $ 2,,500 0% $0

$2,501 - $12,500 33% $ .33 - $3,333

C. Number of Applications per municipality: The program is
designed to provide each eligible municipality with I
implementation grant.

D. Reimbursement of Eligible Costs: You may be reimbursed for
eligible costs incurred after the date of your plan
submission. You should, however, be prudent in incurring
costs prior to receiving written comments on your plan from
the Office. The written comments received will indicate
whether your plan is consistent with the A 'ct or what
additional actions may be necessary to make it consistent.
ecall from the introduction to this s-ection that
implementation grants can only be used to carry out the
Implementation Strategies Section of a consistent plan.
Therefore, a town would not want to invest a lot of time,
energy, and finances in anticipation of reimbursement, to
establish an implementation program for a plan which is not
consistent with the Act. Municipalities that incur costs
prior to the adoption of a consistent plan do so at the
risk of not being reimbursed.

E. Eligible Costs: As provided for in the Act, implementation
grants can be used for costs directly related to the
preparation of policies, programs, and land use ordinances
directly related to the implementation of a consistent
plan. This makes these funds available for a variety of
different purposes. For example, you may want to hire or
retain legal or other professional services to amend or
develop a zoning ordinance or capital improvements program.
Or perhaps you and a neighboring community could use your
implementation grants to establish an interlocial-agreement
instituting procedures for joint planning board reviews of
large subdivisions impacting a shared resource or-facility.'
At a minimum, in order for a cost to be eligible it must
have been incurred:

3.) in the preparation of a,program, policy, or
ordinance designed to carry out the
intent of the Implementation Strategies Section
of a consistent plan, and

2) after the plan's submittal to the Office for
review and comment.

Office of Comprehensive Planning -3-

Please keep in mind that the implementation grant you may
receive is intended to assist you in establishing an
implementation program. It is not intended to finance
the ongoing operation of such a program, and therefore
recurring operational or maintenance costs will not be
considered eligible. It is your responsibility as the
applicant municipality to document that the costs
associated with the proposed activities are eligible and
that these activities will carry out the intent of the
Implementation Strategies Section of the your comprehensive
plan.

F. Application Procedures: An eligible municipality wishing
to apply for an implementation grant must fill out the
required application materials as provided by the of f ice.
This will include a narrative description of the activities
to be undertaken, documentation that the proposed
activities are consistent with the intent of
the Implementation Strategies Section of the applicant's
comprehensive plan, an itemized cost schedule for each
activity to be undertaken, and documentation that the costs
are eligible.

G Payment Procedures: Upon signing a contract with the
Office and adopting your plan locally, you will be able to
submit a request for payment for all or part of the
eligible costs. No more than two requests for payment will
be processed for each implementation grant. The first of
these requests for payment may not exceed 90% of state
share. Each request for payment must be accompanied by a
narrative description'of the work in progress. in
addition, the final request for payment must include a copy
of the completed activities. it is not necessary to submit
invoices with requests for payment. Invoices must,
however, be kept on file by the town.

H. Local Approval for Funding: There are several local
approvals which must be in place prior to yo 'ur receiving
implementation grant funds. These include,the following:
I Approval for the appropriation of",your local
share, if any

2) Pursuant to 30-A, MRSA, Section 5682,, approval
for the acceptance of State funds, and

3) Authorization for your town officials to enter
into a contract with the State.

Each of these approvals must be given by the I-ocal
legislative action appropriate to your community, either a
town warrant-article or a council action. These approvals

Office of Comprehensive Planning -4-

can be issued by a single legislative vote incorporating
all three approvals, or by a series of legislative votes,
each one specific to one of the approvals listed above. in
addition, the Town's approval for the acceptance of State
funds must be on file with the Department of Finance in
order for-the Office to process grant payments.

1. Role of the Regional Councils: Your regional council
may be available to assist you in the preparation of your
implementation programs. You should contact your regional
council to determine what assistance they are able to
provide in regard to your implementation program.

J. Hiring Consultants: Project'funds (state and local share)
may be used to hire consultants to assist you in developing
your implementation program. As was the case with your
planning grant, if you plan to hire a consultant for more
than $1,200, you must do so by contract and preferably
through a competitive selection process. You must send a
copy of any anticipated subcontract to the office for
review and comment prior to its execution. In obtaining
the services of a consultant, one of the following 3
approaches should be adhered,to:

a) Request for Proposal,

b) Request for Qualifications, or

C) Sole-Source Procurement.

Refer to your Planning Grant Guidelines or contact the
Office for information regarding these approaches to hiring
a consultant.

K. Record Keeping: The Office expects you to organize and
keep all records, documents, reports, invoices, letters, or
other material relating to the development of your
implementation program. It is advisable to maintain a file
of meeting minutes, advertisements of public meetings, and
correspondence with your regional council,' this Office, and
consultants. These files shall be available at reasonable
times for reviewl inspection, or audit by State personnel
and other personnel duly authorized by this@office.

IV. Coastal Management Grant Program:

To assist each coastal municipality with implementation of the
coastal elements of its comprehensive plan, the Office has established a
federally funded coastal management grant program. Like the state funded
implementation grant program, funds are available only if a local

Office of Comprebensive Planning -5-

comprehensive plan has been determined to be consistent with the Act.
Cost sharing for the coastal management grant program will be on an equal
basis (50% federal/50% local share). The following parameters have been
established for the administration of this program.

A. Eligible Applicants: All coastal municipalities that have
submitted a comprehensive plan for review by the Office are
eligible to apply for a coastal implementation grant.
Although grant applications will be accepted and processed
prior to local adoption of a plan, no payment will be made
prior to the local adoption of a consistent plan.

B. Maximum Grant Amount: The maximum,federal share available
to each applicant is $5000. The required local match will
be 50% Of the total project cost. Thus, for example, a
$5000 federal grant would be matched with $5000 of local
funds for a total project cost of $10,000.

C. Number of Applications per Municipality: The program is
designed to provide each eligible municipality with one
coastal management grant.

D. Reimbursement of Eligible Costs: Same as Section III (D)
for implementation grant program.

E. Eligible Costs: Coastal management grants can be used for
costs related to the preparation of policies, programs, and
land use ordinances directly related to the implementation
of the coastal elements of a consistent plan. The Maine
Coastal Program, together with the federal Office of Ocean
and Coastal Resource Management, have identified four high
priority implementation areas:

the development or improvement of local zoning or
other land use ordinances to address coastal
issues, such as protecting water dependent uses,
encouraging public access to coastal waters, or
protecting marine water quality;

the development of a *local harbor' ordinance
consistent with Title 38 of the Mal"he Revised
Statutes Annotated;

the development of a local harbor and waterfront
management plan, including a mooring plan; and
the development of a detailed public access plan.

[Note: Municipalities that accept coastal management
grant funds for the preparation of a harbor plan or
ordinance will be required to consider the
establishment of a mooring allocation policy that does

office of Comprehensive Planning -6-

not discriminate based on residency status.
Municipalities may, however, charge higher fees to
nonresidents, limit boat size in certain areas, and
favor certain types of uses (e.g. commercial
f ishing) . ]

While the office recognizes that each-comprehensive
plan will contain its own unique set-of implementation
strategies and priorities, we strongly encourage
coastal municipalities to use coastal management grant
funds to address one or more of these four important
areas. If, however, an applicant can demonstrate that
these four areas have been adequately addressed or are
not relevant, the municipality can use coastal
management grant funds to work on other pieces of its
implementation strategy related to Maine's Coastal
Policies. Coastal municipalities are also encouraged
to join together to address shared resources, such as
a harbor, river, or bay.

As with implementation grants, in order for a cost to
be eligible, it must have been incurred after the
plan's submittal to the Office for review and comment.
In addition, coastal management grants are not
intended to finance the ongoing operation of an
implementation program; therefore, recurring
operational or maintenance costs will not be
considered eligible.

F. Application Procedures: An eligible coastal municipality
wishing to apply for a coastal management grant must fill
out the required application materials provided by the
Office. This will include a narrative description of the
activities to be undertaken, documentation that the
proposed activities are consistent with the intent of
coastal implementation strategy elements of the applicant's
comprehensive plan, an itemized cost schedule for each
activity to be undertaken, and documentation that the costs
are eligible. if proposed activities are not related to
the four priority areas listed in section IV(E) above, the
applicant must demonstrate that these-areas bave been
adequately addressed or are not relevant.

Municipal officials are encouraged to contact Coastal
Program staff at the office to discuss potential coastal
management activities prior to submitting an application.
The Office has worked with many coastal municipalities on
waterfront zoning, harbor management and public_access
projects and can assist you with the preparation of a grant
application.

Office of Comprebensive Planning -7-

G Payment Procedures: Same as Section III(G) for
implementation grant program.

X. Local Approval for Funding: Same as Section III(H) for
implementation grant program, except that the municipality
should approve the acceptance of federal funds as well.

1. Role of the Regional Councils: Same as section III(I) for
implementation grant program.

J. Hiring Consultants: Same as section III(J) for
implementation grant program.

X. Record Keeping: Same as section III(K) for implementation
grant program.

V. Sample Warrant Article/Resolution:

As described in Section H above, prior to receiving an irplementati on
qrant, your municipal legislative body must vote to accept these funds.
Provided below and on the next page are a sample warrant article and
resolution which you can use as a basis for your article/resolution.

SAMPLE WARRANT ARTICLE
TOWN MEETING ACCEPTANCE OF IMPLEMENTATION GRANT FUNDS

Art. Shall the town vote to accept Implementation Grant funds as
provided by the Maine State-Legislature [or the Maine Coastal *Program of
the Department of Economic and Community Development], to raise the local
funds required as a match to the grant, to appropriate the grant and
required local matching funds for the development of an implementation
program pursuant to the Comprehensive Planning and Land Use Regulation
Act, to authorize the selectmen to contract with the'State Department of
Economic and Community Development for the grant, and to authorize the
selectmen to contract, as necessary, for materials and services needed to
achieve the purposes of the grant?

INFORMATION: Estimate amount of grant:

Estimated amount of local match:

If the town does not plan to raise new funds for
the local match, but rather plans to borrow the necessary funds or to
transfer the necessary funds from an existing account, it should replace
the word "raise" with "borrow" or "transfer from existing accounts."

Office of comprehensive Planning

SAMPLE RESOLUTION
TOWN COUNCIL ACCEPTANCE OF IMPLEMENTATION GRANT rUN'DS

WHEREAS the Maine State Legislature, through enactment of the
Comprehensive Planning and Land Use Regulation Act, has recognized that
local comprehensive planning is necessary to guide the future growth and
development of Maine municipalities so as to maintain and enhance the
quality of life for Maine citizens, and has established programs to
financially assist local comprehensive planning efforts,, and

WHEREAS the Office of Comprehensive Planning, within the State Department
of Economic and Community Development, has offered a matching grant to the
Town of to assist the Town's development of an
implementation program in accordance with the Comprehensive Planning and
Land Use Regulation Act,

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of
that the Council authorizes the Town Manager to accept an Implementation
Grant of $ as provided by the Maine State Legislature [or a
Coastal Management Grant as provided by the Maine Coastal Program of the
Department of Economic and Community Development], raise $ as the
required local match to the grant, appropriate the grant and required
local matching funds for the development of an implementation plan
pursuant to the Comprehensive Planning and Land Use Regulation Act,
contract with the State Department of Economic and Community Development
for the grant, and contract, as necessary, for materials and services
needed to achieve the purposes of the grant.
This' the day of 19

If the town does not plan to raise new funds for
the local match, but rather plans to borrow the necessary funds or to
transfer the necessary funds from an existing account, it should replace
the word "raise,' with "borrow" or "transfer from existing accounts."

Office of Comprehensive Planning -9-

Belfast Waterfront Study
Potential Uses

Prepared for

Belfast Waterfront Committee
and
The Waldo County Opportunity Zone

Prepared by

Market Decisions, Inc.
P.O. Box 2,414
South Portland, ME 04116-2414

September 1991

Table of Contents

Section Page

Executive Summary

Introductioni

The Belfast Labor Market Area 2

The Marina Market Area 9

Marina Demand Potential 14

Marine Related Retail Potential 19

Hotel Potential 21

Office Space Potential 31

MARKET
DECISIONS

Re,warch S Planning

EXECUTIVE SUMMARY

Market Decisions, Inc.'s role in the development of the plan
was to provide a brief overview of the market supports for a
limited number of uses as they related to the waterfront
redevelopment. The four types of development that were analyzed
included:

1) Marina
2) Marine related retail
3) Hotel
4) office

The market overview for each use included:

1) identification of market area
2) Demographic and economic overview
3) Demand analysis of potential market supports

The overview does not include a detailed evaluation of the
competitive environment with respect to each use. Therefore,
though the demand analysis may indicate the overall market for a
use, we cannot determine to what extent that demand is currently
being satisfied by comparable facilities in the Belfast area.
Because a comprehensive market study was not conducted for each
use, definitive conclusions and recommendations concerning the four
different uses, therefore, cannot be determined.

Marina Potential

Based on the trade area identified in the study by Market
Decisions, there are estimated market supports for approximately
100 marina slips in Belfast. It is important to note that this
estimate of demand is a "ballpark" figure based on available
official data sources and extrapolating data from previous marina
market studies conducted by Market Decisions in the mid-coast area.
Since no survey of boat owners has been conducted to measure
specific interest in Belfast Harbor, it is difficult to determine
demand with a high degree of accuracy. However, Market Decisions
believes that the analysis does provide an order of magnitude of
the demand potential for the development of a marina in Belfast.
Market Decisions cautions that previous marina studies have
indicated a price sensitivity with respect to slip rents in the
mid-coast area. This sensitivity stems from, in part, the
economics of the area and a loyalty of boat owners to inexpensive
moorings at $30 (local) and $90 (nonresident) per season.

Market Decisions recommends that a prerequisite of the
development of a marina be a comprehensive market study to

22Cwtage Rd./P.0. Box 2414 South Portland, Maine 04116-2414 (207) 799-2226

determine (1) cost analysis of a marina, (2) a more specif ic
determination of demand for slips in Belfast Harbor, and (3) the
price sensitivity to those slips.

Market Decisions recommends that the City of Belfast pursue a
private developer for a marina project. Of the four uses analyzed,
we believe this to be the best use alternative. A marina project
should serve as a catalyst for the long-term overall development
strategy of the waterfront.

Marine Related Retail

Much of the supply needs of boat owners in the Belfast area
are currently being served by area marine retail stores such as
Hamilton Marine in Searsport, the largest marine retail store north
of Boston.

Market Decisions believes that the marine retail use poses
somewhat of a "chicken and egg" dilemma. on one hand, the size and
range of supplies offered by a marine store will be directly
related to the size of the marina, including the number of boats in
slips and on moorings as well as the number of transient boats
using Belfast as a stopover point. The transient boat owner will
have the greatest influence on the range of supplies to be offered.
The other factor in the dilemma is that marine supplies must be
available when the marina opens.

Therefore, Market Decisions recommends that a marine supply
store that sells a limited range of items be part of the overall
marina development plan. Though most of the local boat owners will
choose to shop at Hamilton Marine (or one of the other marine
retail establishments in the mid-coast region) to purchase a
majority of their supplies, a marine store on the waterfront can
serve to fill their immediate demands. Any marine retail activity
should position itself and provide for flexibility with respect to
providing a range of supplies demanded by transient boat traffic.

Hotel Potential

Based on the trade area identified, in the market study,
indications are that the market supports do not exist at this time
for a moderate size (40 - 50 room) hotel on the Belfast waterfront.
The demand for transient rooms is generated by two broad markets:
leisure or pleasure travel and business travel (including
conventions and conferences). Based on hotel industry standards
and requirements, a new moderate size project would need to achieve
a minimum annual occupancy rate of 65% in order to be profitable.
Based on historical occupancy rates of Belfast area hotels and
previous tourism market studies conducted for the Maine State
Development Office, it is doubtful that this level of performance
could be achieved. Market Decisions recommends that this use not
be pursued at this time.

Office Potential

Market Decisions (with assistance from the Waldo County
Opportunity Zone) estimates that there are approximately 125,000 -
130,000 square feet of office space in the Belfast area. This
figure does -not include office space that is associated with
manufacturing facilities such as Penobscot Frozen Food or Stinson
Canning. The demand for office space depends on new business
formation in the area, on businesses relocating to the area, and on
local businesses expanding.

Based on national standards, on average approximately 200
square feet of office space is allocated per white collar employee.
According to the Maine Department of Labor, there was an annual
average of 640 white collar employees working in the Belfast LMA in
1990. Based on an average of 200 square feet per employee, there
is a current estimated demand of 128,000 square feet of office
space in the market area.

Current market conditions indicate that much of the office
space being absorbed in Belfast (primarily at the Belfast Center
building) is by firms seeking more space with better amenities,
such as parking, for the same or lower lease rates. Professionals,
including doctors, lawyers, accountants, etc., also have the option
of purchasing single family homes and converting them to office
space.

The Maine Department of Labor data does not suggest that the
Belfast area will likely experience growth in white collar jobs
that will justify the need for the development of moderate to large
amounts of office space in Belfast during the next five years.

Market Decisions recommends that development of office space
not be a primary focus of the Belfast waterfront plan.

Any future potential for the creation of an office space
project on the Belfast waterfront will need to offer quality space
in flexible sizes, with amenities such as ample parking, in order
to be successful. It appears that the current demand for office
space in the Belfast IMA is being adequately served. Market
Decisions believes that, unless a moderate to large employer moves
to the area or Belfast can position itself as a strategic location'
for a satellite office for firms serving the mid-coast, there will
not be adequate growth in the employment sectors that demand office
space to make an office project feasible.

INTRODUCTION

The Belfast Waterfront Committee requested Market Decisions,
Inc., to analyze the demand potential for four types of
,development. These uses include:

1) Marina
2) Marine related retail
3) Hotel
4) Office

Market Decisions conducted a market overview for each use.
The overviews included:

Identification of the market area, that is, the area from
which a majority of the users will originate.
Demographic and economic overview of the market area.
Demand analysis to determine the potential market
supports for the selected use.

The overview did not include any detailed evaluations of the
competitive environment as it relates to each use. Therefore,
though the demand analysis might indicate the potential for a type
of development, no determination has been made as to the portion of
the identified demand that may be available to support waterfront
redevelopment.

Based on the findings of previous market studies conducted by
Market Decisions, the primary market area for the City of Belfast
equates to those communities that compose the state-defined Belfast
Labor Market Area (LMA). The I14A includes the communities that
comprise Waldo County, less the Town of Winterport. This market
area applies to both the analysis for hotel potential and office
space potential. The marina market area is considerably larger and
includes not only the Belfast LMA but also part of the Bangor area,
Augusta area, and the Bucksport area. The marine related retail
market area includes those boat owners that currently use or may
use Belfast Harbor when and if a marina is constructed.

A discussion of the Belfast LMA serves as a reference point
for the market research portion of the Belfast Waterfront Study.
The next section provides an overview of Belfast and the area it
serves.

DESCRIPTION OF THE BELFAST LABOR 14ARKET AREA

Overview

The City of Belfast is located in eastern Waldo County,
approximately 27 miles north of Rockland and 34 miles south of
Bangor. It is linked to Rockland and Camden to the south via Route
1, Bangor to the north via Route 1A, and Augusta to the west via
Route 3. Route 1 is the major north/south coastal route and Route
3 is a major east/west route.

Belfast has historically been primarily a blue collar
community that serves as the economic hub for most of Waldo County.
This community has an urban character because of its location on
Belfast Harbor and Route 1. Belfast has established itself as the
retail center of eastern Waldo County and is the county seat. The
city has a variety of chain and independent retail stores that
cater to area residents and summer tourists.

Belfast is part of a state-defined labor market area (LMA)
that encompasses Waldo County, less the town, of Winterport.
Historically, this LMA has had unemployment rates well above the
state average. As of June 1991, the date of the latest published
data, the Belfast LMA was suffering 11.0% unemployment compared to
a statewide rate of 7.6%. The number of jobs in the LMA has grown
moderately from 5,710 in 1984 to 6,730 in 1990. (See Table 1.)

The Belfast LMA's economy is rooted in manufacturing, the
service sector, and the tourism industry. Since 1988, the number
of jobs in the INA has grown at less than half the average rate as
the previous four years. During the later two years, the LKA lost
jobs in both the durable and nondurable manufacturing sectors as
the area shifted toward more service oriented jobs. This shift is
indicative of Belfast's growing importance as a service and retail
center for most of Waldo County. The substantial growth in the
construction sector, fueled in part by tourism during the mid-
19801s, has been eroded during the last two years.

TABLE I
Av. Am. Av. Ann.
Preliminary % Change % Change
Sector 1984 1988 1990 19 84-98 1968-90

Total 5.710 6,550 6.730 3.5% 1.4%
facturing 1,860 1,510 1,350 -5.1% -5.5%
Durables 510 570 480 2.8% -8.2%
Nondurebtes 1,350 940 870 -8.6% -3.8%
Nonmenufacturing 3,840 5,040 5,370 7.0% 3.2%
Construction 230 550 420 24.3% -12.6%
Trans./Utilities 310 290 310 -1.6% 3.4%
Whotesate Trade 110 130 ISO 4.3% 17.7%
Retail Trade 1.060 1,520 1.600 9.4% 2.6%
Finance, ins. 100 90 90 -2.6% 0.0%
Services & Mining 1,020 1,260 1."0 5.4% 6.9%
Goverrvwnt 1,010 1,190 1,320 4.2% 5.3%

Source: Maine Dept. of Labor, 1984, 1988, and 1990 (preliminary)

The State Planning office has characterized Belfast itself as
a Small Economically Diversified City (Economic Distress and the
Changing Nature of Rural Maine, 1979). Such communities are small
job centers with populations of between 2,400 and 7,800. They are
relatively compact, with 55% - 90% of the communities' housing
located in their centers, and between 15% and 30% of the housing is
multifamily.

Penobscot Frozen Foods, a producer of baked potato products
located in Belfast, has just over 165 employees. Stinson Canning,
which produces canned sardines and fish products, employs
approximately 200 people in its Belfast Plant. As evidence of the
shift away from the manufacturing sector, Etonic closed its 'Men's
shoe factory in Belfast within the past two years, idling 75
workers.'

Additionally, a substantial number of people are employed by
the major retailers in Belfast. The retailers are supported both
by Waldo County's population of 32,000, many who treat Belfast as
a regional center, and by an active trade among summer tourists
visiting downeast coastal Mainel including points along Penobscot
Bay and Acadia National Park. Taxable consumer retail sales in the
Belfast area (including Belfast Economic Summary area) increased by
an average of 9.2% per year from 1984 - 1990, according to State
sales tax data: from $44.8 million to $76.7 million. The City of
Belfast accounts for 85% of those sales.

Belfast serves as a major employment center. Commuting data
from the 1980 U.S. Census indicates that approximately 82% of the
labor force in Belfast held slightly more than 52% of all jobs in
Belfast. Additionally, 63% of all.the town of Waldo's workers, 43%
of Morrill's workers, and 37% of both Searsmont's and Belmont's
workers commuted to Belfast.

Population and Household Growth

Between 1970 and 1980, the population of the Belfast LMA
increased at an average annual rate of 1.9% to 25,739. The City of
Belfast itself grew at a slow average annual rate of 0.5% to 6,243,
gaining about 290 people during the period. The population in the
rest of the LMA increased at an average annual rate of 2.4% to
19,496, gaining approximately 4,100 people. (See Table 2.)

Based on the 1990 U.S. Census data, the LMA has grown since
1980 to a current population of 29,843, for a slower average annual
growth rate of 1.5%. The City of Belfast's population is estimated
to have remained relatively stable, increasing at a -slow average
annual rate of 0.2% (similar to the previous decade), or about 110
people, to 6,355. The population of the rest of the LMA (excluding
Belfast) has experienced an average annual increase of 1.9% -- or
about 4,000 people -- to 23,488. According to the 1990 U.S. Census
lata, 410 people reside in group quarters in the LMA (149 of those
in Belfast).

TABLE 2
Belfast Waterfront Study
Population and Household Change
Belfast LMA

U.S. U.S.. U.S. Av. Annual AV. Ann.
Census Census Census Change 1995 Change
Population 1970 1980 1990 1980-192.0 Proj. 1990-1995

Belfast IMA 21,365 25,739 29,843 1.5% 31,922 1.4%

City of Belfast 5,957 6,243 6,355 0.2% 6,465 0.3%

LMA less City 15,408 19,496 23,488 1.9% 25,457 1.6%

Households

Belfast IMA 6,548 8,929 11,298 2.4% 12,358 1.8%
Group Quarters 317 410 410

City of Belfast 1,981 2,288 2,579 1.2% 2,699 0.9%
Group Quarters 112 149 149

LMA less City 4,567 6,641 8,719 2.8% 9,659 2.1%
Group Quarters 205 261 261

Household Size

Belfast IMA 3.21 2.85 2.61 2.55

City of Belfast 2.95 2.68 2.41 2.34

LMA less City N/A 2.90 2.66 2.60

Sources: U.S. Census
National Planning Data,Corp.
Market Decisions, Inc.

The number of households in the IMA increased during the
1980's. Based on the 1990 U.S. Census data, between 1980 and 1990
households in the IMA increased at an average annual rate of 2.4%,
or by 240 households per year. This 26.5% increase has brought the
total number of households to an estimated 11,298.

Looking at the City of Belfast alone from 1980 - 1990,
according to the available 1990 U.S. Census data, the number of
households has increased at an average annual rate of 1.2% from
2,288 to 2,579 (or 28 - 32 households per year).

In the rest of the Belfast IMA (less the City of Belfast) the
number of households has increased at an average annual rate of
2.8% (or 200 - 210 households per year) from 6,641 to 8,719.

Over the next five years the number of households in the LMA
is projected to grow at a somewhat slower average annual rate of
approximately 1.8%, to 12,358. The number of households in the
City of Belfast is projected to increase at an average annual rate
of 0.9% (or 20 - 25 households per year), reaching about 2,700 by
1995. In the rest of the LMA, the number 'of households is
projected to increase at an average annual rate of 2.1% (or 185 -
190 households per year), to about 9,660 households in 1995.

According to distribution estimates of National Planning Data
Corporation, the fastest growing head of householder cohort in the
Belfast LMA and the City of Belfast during the past ten years has
been the 35 - 64 year old age group. In the rest of the LMA, the
households headed by a person 35 - 64 and 65 years old or older
grew at approximately the same rate. The households headed by a
person 35 - 64 years old is by far the largest group in the LMA as
well as the two submarket areas. (See Table 3.)

Characteristics of the Population

The Belfast LMA's work force is a mixture of blue collar and
white collar workers. According to the 1980 U.S. Census data,
approximately 41% of the labor force worked in blue collar
occupations such as producers, craftsmen,. operators, or laborers
(versus a statewide average of nearly 37%). Another nearly 18%
held positions in sales and administrative support (versus a
statewide average of about 23%), while slightly more than 13%
worked in service occupations. Approximately 20% were employed in
executive/professional positions and about 2% were employed in
technical positions. Slightly more than it of the LMA's work force
were employed in farming (versus a statewide average of slightly
less than 4%).

By industry, in 1980 slightly less than 29% of the Belfast
LMA's work force were employed in manufacturing (versus a statewide
average of 27%) and about 27% were employed in the service sector.
Slightly more than 14% of the labor force worked in the retail
industry. The public administration sector and the
transportation/public utility sector each accounted for about 6% of
the work force. Approximately 7% of the labor force worked in
construction.

TABLE 3
Belfast Waterfront Study
Estimated Household Change
By Age Group
1990

1980 1990 Chancfe
Households Belfast LMA

<35 years old 2,719 2,821 3.8%
35 - 64 years old 4,228 5,840 38.1%
65+ years old 1,982 2,636 33.0%

Households - City of Belfast

<35 years old 631 597 (5.4%)
35 - 64 years old 1,039 1,287 23.9%
65+ years old 618 695 12.5%

Households - Belfast LMA
less Belfast

<35 years old 2,088 2,224 6.5%
35 - 64 years old 3,189 4,553 42.8%
65+ years old 1,364 1,941 42.3%

Note: Household numbers may not add to match those in Table 2 due
to rounding.

Source: U.S. Census
National Planning Data Corporation
Market Decisions, Inc.

In 1980, slightly more than 33% of the Belfast LMA's residents
over the age of 25 had not completed high school. About 40% had a
high school diploma only, approximately 13% had some college, and
more than 13% had a college degree.

Income levels in the Belfast LMA are in the lower range. In
1979, the per capita income of residents was $4,651, approximately
19% less than the state per capita income of $5,768. The 1990 per
capita income for the LMA is estimated by the National Planning
Data Corporation to be $10,286.

Median household income in the Belfast LMA in 1979 was
$11,407, approximately 17% less than the statewide median of
$13,816. The National Planning Data corporation estimates the 1990
median household income in the LMA to be $22,400.

In 1990, nearly 33% of all households in.the LMA are estimated
to have incomes below $15,000 and about 41% are in a moderate range
with incomes of between $15,000 and $35,000. About 27% percent are
estimated to have incomes exceeding $35,000. (See Table 4.)

TABLE 4
Belfast Waterfront Study
Estimated Household Income Distribution
Belfast LMA
1990

All All HH's HH's HH's HH's HH's HH's
income Range HH's HH's <35 <35 35-64 35-64 65+ 65+

Total households 11,298 100.0% 2,821 100.0% 5,840 100.0% 2,636 100.0%
under .$15,000 3,696 32.7% 863 30.6% 1,378 23.6% 1,452 55.1%
$15,000 - $24#999 2,622 23.2% 787 27.9% 1,302 22.3% 532 20.2%
$25,000 - $34,999 1,988 17.6% 567 20.1% 1,092 18.7% 327 12.4%
$35,000 - $49p999 1,889 16.7% 446 15.8% 1,232 21.1% 214 8.1%
$50,000 - $74,999 785 7.0% 127 4.5% 590 10.1% 74 2.8%
$75,000+ 317 2.8% 31 1.1% 245 4.2% 40 1.5%

Note: Some columns may not add exactly due to rounding. -

Source: U.S. Census
National Planning Data Corp.
Market Decisions, Inc., August 1991

THE MARINA MARKET AREA

Boundaries

The marina Is prospective primary market area is the contiguous
area from which 70% - 80% of slip users can be expected to be
drawn. The remaining 20% - 30% would come from fringe areas or
from beyond the market area.

The Belfast waterfront and its location within the region
strongly suggests that the market area will take on a north-south
orientation along the Route 1/1A corridor, which roughly follows
the coastline and along the Penobscot River-to Bangor. The inland
east-west axis (from Belfast to Augusta) is also served by a
highway network. Though Route 3 does not offers boaters
intervening opportunities (with the exception of China Lake), it
does provide generally easy access to the water at points in the
Belfast area.

Based on previous marina studies conducted by Market Decisions
in the mid-coast area, as well as the locational characteristics of
the Belfast waterfront, the primary market area's basic outline
will be Waldo County, Bangor metropolitan area, the immediate
Augusta area, and the Bucksport area. These boundaries have been
modified to reflect roadway patterns and distance from the site:
25 - 30 miles to the north, 10 miles to the southwest, 45 miles to
the west, plus nearby towns in Hancock County that do not front on
Penobscot Bay. This results in a 41-community primary market area:

Waldo Cou=
Belfast Morrill
Belmont Northport
Brooks Palermo
Burnham Prospect
Frankfort Searsmont
Freedom Searsport
Islesboro Stockton Springs
Jackson Swanville
Knox Thorndike
Liberty Troy
Lincolnville Unity
Monroe Waldo
Montville Winterport.

Penobscot County
Bangor Hermon
Brewer Holden
Glenburn Newburg
Hampden Orrington

Kennebec County
Augusta Vassalboro
China Windsor

Hancock County
Bucksport Verona
Orland

Democrraphics of Marina Market Area

Population: The market area I s population is growing slowly
and, according to the 1990 U.S. Census, the area's current
population is 133,482, up from 123,237 in 1980. The average annual
change during the decade is estimated at 0.8%. The population is
projected to grow by 3% - 4% over the next five years to
approximately 138,000. See Table 5. The Penobscot County portion
of the market area represents one-half of the population, the Waldo
County portion approximately a quarter, the Augusta portion
slightly less than one-quarter, and the Hancock County portion
about 5%.

Households: The rate of increase in number of households has
been nearly twice the rate of population growth. This is the
result of the full entry of the "baby boom" generation into its
household creation years, combined with fewer persons in each
household. According to the 1990 U.S. Census, there are currently
51,700 households in the market area, up from 44,046 in 1980, for
an average annual rate of increase of 1.6%. The number of
households is projected to increase by 6% - 7% over the next five
years to nearly 55,000. See Table S.

occupations: The market area's diverse occupational profile
reflects the regional service and white collar role of Bangor,
state government in the Augusta area, the tourist economy of the
coast, and a few sizable manufacturers (Champion International in
Bucksport, Eastern Fine Paper in Brewer, Ansewn Shoe in Bangor,
Bangor Publishing Co. in Bangor, GE and GTE in Bangor, Penobscot
Frozen Foods in Belfast, Stinson Canning Co. in Belfast). As of
1980, about 23% of employed persons were in executive/
administrative/professional positions and 30% were in other white
collar positions. About 15% were service workers and 30% were blue
collar workers. Slightly more than 2% were in farming and fishing
occupations. See Table 6.

Householder Age: As the baby boom generation ages, the market
area is "middle-aging." In 1980, about 1 in 6 householders was 35
-
44 years old. Today, more than 1 in 5 are in this cohort. And
in 1995, slightly more than I in 4 will be in this group. over the
next five years, 45 - 54 year old householders will gain shares as
well, as the first "baby boomers" begin to enter that cohort.
Young adults will decline as a percentage of all householders. see
Table 6. The demographic trend is significant, because 35-to-54
are the prime boat buying years.

--now

TABLE 5
Belfast Marina Demand Potential
population and Household Change
1970, 1980, 1990, and 1995 projections

Av. Ann. Av. Ann.
% Ch. 1995 % Ch.
1970 1980 1990 1980-90 Proj. 1990-95
Population
Belfast Marina Market Area 112,440 123,237 133,482 0.80-t 138,072 0.68%

Households
Belfast Marina Market Area 34,155 44,046 51,700 1.62% 54,958 1.15%
persons per Household
Belfast Marina Market Area 3.13 2.71 2.50 2.44

Source: U.S. Census 1980, 1990
National Planning Data Corp.
Market Decisions, Inc., 1995 projections

Market Decisions,, Inc., August 1991

TABLE 6
Marina Market Study
Selected Demographic Characteristics
Belfast Marina Market Area

Est. Proj.
occupation 1980 1990 1995
Executive/Admin./Prof. 22.8% N/A N/A
Technical/Sales 13.6%
Administrative Support 16.3%
Subtotal White Collar 52.7%
Production/Crafts 13.2%
Operatives/Laborers -16.7%
Subtotal Blue Collar 29.9%
services 14.9%
Farm/Fishing 2.5%

Householder Age
Under 25 9.0% 6.3% 5.8%
25 - 34 23.3% 21.5% 18.8%
35 - 44 16.5% 21.5% 22.5%
45 - 54 15.4% 15.5% 18.2%
55 - 64 15.3% 13.6% 12.7%
65+ 20.6% 21.7% 22.01%

Household Income Est. Proj.
(Unadj. for Inflation) -1979 1990 1995
Less than $15fOOO 55.4% 28.0% 20.3%
$15,000 - $24,999 27.4% 21.1% 17.0%
$25,000 - $34,999 11.0% 16.43% 15.9%
$35,000 - $49,999 4.5% 18.2% 18.1%
$50,000 - $74,999 1.3% 11.9% 17.2%
$75,000 - $99,999 0.3% 2.8% 7.9%
$100,000 or more 0.1% 1.6% 3.6%
Median $13,405 $25,506 $32,937
Median - Maine $13,826 $26,735 $34,684
Median - Portland MSA $15,568 $33,128 $44,205

Sources: U.S. Census
National Planning Data Corp.
Market Decisions, Inc.

Income: The market area can be characterized as moderate-to-
middle income. Its median household income is estimated at
$25,506, or about 95% the statewide level (and, for further
comparison, about 77% the level for the Greater Portland area; see
Table 6). About 49% of market area households are estimated to
have less than $25,000 income, while about 16% are estimated to
have $50,000 or more income. By 1995, it is projected that about
29% of households will have $50,000 or more income. Most of this
will be attributable to inflation (assuming an average rate of 4.5%
5.0%) However, there will also be real income growth as the
households with the highest incomes -- those headed by a person 35
54 years old become more prevalent in the market.

MARINA DEMAND POTENTIAL

Boating Trends in Maine

Different indicators suggest that the recreational boating
trend in Maine is relatively stable-to-increasing:

The long-term (20-year) trend nationally shows the
percentage of adults who participate in motorboating to
be stable (16% in 1966, 15% in 1985). [Source: Gallgr)
Leisure Activities Index, 1986)

The long-term trend nationally shows the percentage of
adults who participate in sailing to be on the rise (2%
in 1966, 5% in 1985).

Even a stable rate of participation indicates an absolute
growth in boating, since there are more adults today than
20 years ago (when the baby boom was still in youth).

Revenues from sales of boats in Maine have grown rapidly,
from $35.8 million in 1984 to $97.1 million in 1990, or
an average annual rate of growth of 18.1%. (Source:
Maine Bureau of Taxation) This burst in sales
undoubtedly is related to the baby boom's entry into the
"boat buying" cohort of 35-to-54 years old, and to the
state's strong economy during 1984 - 1988.

However, the number of boats registered in Maine and used
for pleasure has actually declined during the last six
years, from 106,281 in 1984 to 102,991 in 1990, or an
average annual rate of decline of 0.5%. [Source: Maine
Dept. of Inland Fisheries and Wildlife]

Boater Profile

Past surveys conducted by Market Decisions of owners of boats
that are 20 feet or longer provide an overall profile of serious
boaters in the midcoast region of Maine. It is important to note
that these previous studies did not include the Augusta area. It
@ust be cautioned that the profile is not precise, but nevertheless
is a useful approximation. Following are some applicable
highlights:

&ge: Between 45% and 50% of boat registrants are 35-to-54
years old, and 40% - 50% are 55 or older. Less than 10% are under
35. The Bangor area and Waldo County tend to have more middle-aged
(35-to-54) registrants, while Hancock County has a higher
proportion of retiree aged (65+) registrants.

Occupation: 40% - 45% of registrants are in professional or
other white collar occupations. 20% - 25% are retired, and
slightly less than 20% are in fishing or other marine-related
occupations.

Incomes: More than 50% have household incomes of $50,000 or
more. This ranges significantly among registrants from the areas
that comprise the market area.

Boat Length: Slightly more than 50% own boats that are 251 to
391 long. Approximately 40% own boats of 201. - 251 length, and
less than lot own boats of 401 or more.

Type: Three in five own powerboats, while two in five own
sailboats.

Excursions: Day trips are the typical type of excursion for
three-quarters of the boaters. Less than 10% typically take
excursions of a week or more. About 40% never stop at another port
before returning to their home port, while 35% - 40% occasionally
do, and 20% - 25% almost always do.

Demand for Slips

Within the marina market area (Waldo County, the Bangor area,
the Augusta area, and the Bucksport area), there are a total of
1,274 state-registered boats of 20 feet or longer. (See Table 7.)
This represents about 9.54 such boats for every 1,000 people in the
population. This ratio varies by geography:

No. Boats 1990 No. 201+
Area 201+ Pop. Boats/1,000 Pop.

Waldo Co. 524 33,018 15.87
Bangor Area 445 62,707 7.10
Augusta Area 220 30,612 7.19
Bucksport Area 85 7,145 11.90

TOTAL 1,274 133,482 9.54

Based on previous marina market studies conducted in the area,
the large majority -- 70% to 80% -- of large boat owners rent or
own a mooring for their boats. Only 5% - 10% rent a slip., In very
large part, this small percentage is due to a paucity of slips in
the area. Based on an extrapolation of past survey results, given
the choice of a mooring or a marina slip, approximately 55% - 60%
indicated that at least in theory they would choose a marina slip.
Applied to the population of 1,274 owners of 20-foot-plus boats,
this would suggest interest in the concept of a marina among 700
750 of them.

TABLE 7
Belfast Marina Demand Potential
20 Foot or Longer Registered Boats
Belfast Marina Market Area

1990 of 201+
4 201 Boats Population Boats/1,000 Pop.

Waldo County: 524 33,018 15.87
(94 Belfast)
,Kennebec County:
Augusta 132 21,325
China 43 3,713
Vassalboro 32 3,679
Windsor 13 -1,895
220 30,612 7.19
Hancock County:
Bucksport 39 4,825
Orland 33 1,805
Verona 13 515
85 7,145 11.90
Penobscot County:
Bangor 188 33,181,
Brewer 59 9,021
Glenburn 30 3,198
Hermon 27 3,755
Hampden 56 5,974
Holden 34 2,952
Newburg 12 1,317
Orrington 39 3,309
445 62,707 7.10

TOTAL 1,274 133,482 9.54

Source: Inland Fisheries and Wildlife
State of Maine
Market Decisions, Inc., August 1991

Preference for marina slip

Weighted
Total Waldo Bangor Augusta Bucksport
201 Boat Owners 1,274 524 445 220 85
Choosing Slip 57% 52% 721% 40% 50%
Total 722, 272 320 88 42

The number of boat owners who have a preference for a marina
slip drops by more than a half when a minimal cost for a slip
($45/foot/season) is incorporated. An estimated 26% of those who
are estimated to have a preference for a marina slip would be
willing to pay at least that much for a slip. Extrapolated to the
population of 20-foot-plus boat owners yields 300 - 350 boaters
still interested in the concept:

Willingness to Day $45/foot or more for marina slip

Weighted
Total Waldo Bangor Augusta Bucksport
201 Boat Owners 1,274 524 445 220 85
Choosing Slip 26% 22% 31% - 25% 23%
Total 328 115 138 55 20

Without a survey of the owners of boats 20 feet or greater in
the market area, it is impossible to predict what the level of
interest is with respect to slips in Belfast. Not all those who
are interested, in concept, in a marina slip would be interested in
a marina in Belfast Harbor. "Interest" frequently does not
translate into behavior. A rule of thumb is that 80% of those
expressing a high level of interest and 20% of those expressing a
lesser level of interest may actually act upon that interest if
given the opportunity. Assuming that boat owners in the market
area would have a similar level interest in a slip in Stockton
Springs as they would in Belfast, approximately 30% of the boat
owners could be expected to be both interested and to act on that
interest.

Estimated Intergst in Belfast Maring
(Adiusted to reflect level of interest and a willingness to Pay
S45/foot or more for a marina-slip)

Weighted
Total Waldo Bangor Augusta Bucksport
201 Boat Owners 328 115 138 55 20
with interest 31% 40% 30% 18% 20%
Total 101 46 41 10 4

Care must be used in accepting the results of this analysis as
an indication of demand potential. Since no survey was conducted
specifically to measure interest in Belfast Harbor, it is difficult
to determine, with any great accuracy, demand potential. However,
combined with a review of the market area's demographics and
conversations with knowledgeable people in the local boating
industry, we believe a reasonable estimate of total potential
demand for the marina is 100 - 110 slips.

As seen earlier, population growth in the market area is
projected to be modest over the next five years -- only about 0.8%
per year. However, growth in households headed by persons 35 - 54
years old -- the prime boat buying years -- will increase by five
tines that rate (about 3. 8 %/year) . Demand for slips can be
expected to follow this trend line. if so, in five years total
potential demand is projected at 120 - 130 slips.

Current B oat Accommodations in Belfast

There are currently 245 moorings and 8 mooring floats (which
hold two boats) in Belfast Harbor. According to the Harbormaster,
approximately 95% of these boats are used for pleasure. The number
of moorings has increased 133%, from 105 in 1985. The mooring fee
for Belfast residents is $30 per year, and the fee is $90 for
nonresidents.

The City provides a public launch, gas and diesel pumps, and
sewage pump-out.

John Holmes of Consumer Fuel installed 16 slips for seasonal
rentals in 1989. According to Mr. Holmes, currently 15 of the 16
slips are rented for the season and one slip is being used for
transient and short-term rental. The lease rate schedule for the
slips is: I

4 of Boats Seasonal Lease Rate Length of Boat
6 $1,200 up to 2741
8 $1,400 281 to 34h'
1 $1,700 351 to 431

The marina offers services such as water and electricity.

other than moorings, the transient boat owner has very limited
options currently in Belfast Harbor. The City Dock has
approximately 460 feet of floating dock. Space is rented for $0.75
per foot per night. (Example: a 35 foot boat would be charged
$26.25 for an overnight stay.) The facility is designed primarily
to accommodate small to moderate size boats; however, it can
provide accommodations for one boat up to 80 feet. The number of
boats that the dock can accommodate at one time depends on the size
of the boats. Additionally, there is one slip at John Holmes,
marina, and the Belfast Boat Yard occasionally will accommodate a
transient. The City Dock has space for up to three smaller boats.

MARINE RELATED RETAIL POTENTIAL

According to the previous surveys of boater owners in the mid-
coast area, only three features were clearly deemed "essential" for
a marina: fuel, deep water, and security. Features that were rated
somewhere between "essential" and "desirable" include water supply
to the slips and rest rooms. Services clearly rated as "desirable"
include repair service, equipment to haul boats, electricity at the
slip, ice, marine supplies, winter storage, and beverages/snacks.
Less important to consumers were a launch ramp, sewage pumping,
showers, laundromat, restaurant, nearby retail stores, and on-shore
lodging.

marina services vary by boater characteristics. Market
Decisions has found that year-round residents of the local area
near a marina consider the basics of fuel, water supply, security,
rest rooms, winter storage, and sewage pumping as "essential," as
well as groceries, lodging, and stores (though it is unclear why or
how they would use the latter services). None of the listed
features was rated by this group as generally unnecessary.

The size of a marine-related retail operation will be
determined by the size of the marina (number of boats in slips),
the number of boats on moorings in a harbor, and the amount of
transient boat traffic. The amount of transient traffic will be
important with respect to the range of supplies offered.

Based on mooring information supplied to Market Decisions by
the Harbormaster in Belfast, of the 238 mooring users identified on
the list, there are 125 sailboats, 104 motor boats, 8 row boats,
and one dingy. The following table provides a complete breakdown
by type of boat.

Motor Boats
Sail Inboard Outboard Inboard/Outboard Row Boat Dingy
125 37 43 24 8 1

The Belfast area is currently serviced by a number of nearby-
marine retail stores. The most noteworthy is Hamilton Marine in
Searsport. This store reportedly offers the fullest line of marine
suppliers of any store north of Boston. Hamilton Marine offers a'
complete line of marine hardware including chain, buoys, paint,
rope, fiberglass, fastenings, electronics, books, charts, and
safety equipment. Hamilton Marine also offers merchandise through
a discount catalog. Two other marine retail stores, Rockland Boat
in Rockland and Stetson & Pinkham in Waldoboro, also provide marine
supplies to boaters in the mid-coast area.

Because of the presence and proximity of Hamilton Marine, the
market for a mArine-related retail shop on Belfast waterfront will

primarily be those boats either on moorings or in slips in the
Harbor plus transient boat traffic. Area boaters who choose to
locate their boats in Belfast Harbor are likely to obtain a
majority of their marine supplies from sources such as Hamilton
Marine. The transient boat traffic is likely to require a greater
range of marine supplies than those boaters who live in the area.
The number of boaters who either utilize Belfast as a stopover
point or who recognize Belfast as providing a variety of marine
services will be a determining factor in the size and type of
marine supplies. offered. However, a small marine supply store
located on the Belfast waterfront could likely be supported by a
marina that contains 75 to 120 slips and upward to 250 boats on
moorings.

To determine the actual size and range of supplies offered
would require a survey of marine retail stores that are affiliated
with marinas. This survey would provide insights into the range of
retail supplies offered and the number of boat owners served, both
local and transient.

Market Decisions recommends that a marina store be considered
as part of the waterfront plan in conjunction with a marina. The
range of supplies offered should be limited to those that meet the
immediate needs of boat owners.. Examples of these supplies
include: rope, cleats, paint, brushes, sponges, bumpers, and non-
direct marine supplies such as coolers, flashlights, etc. The
range of supplies offered should be adjusted depending on the size
and type of boats in the harbor and the amount of transient
traffic. Wayne Hamilton of Hamilton Marine expressed interest in
the potential for a satellite marine retail store on the
waterfront.

HOTEL POTENTIAL

The Belfast lodging market area compares closely with what the
state has identified as the Belfast Labor Market Area (LMA). As
discussed in the section that provides an overview of the Belfast
LMA, the LMA includes the communities that comprise Waldo County,
less the Town of Winterport.

Resident employed

The resident civilian labor force in the Belfast market area
has been increasing at an average annual rate of 1.9% since 1984:
from 11,250 in 1984 to 12,610 in 1990. The unemployment rate among
this labor force has historically been above the statewide average.
For all of 1984 the unemployment rate in the Belfast LMA was 11%,
versus a statewide average of 6.1%. In June 1991, as previously
indicated, the unemployment rate for the Belfast LMA was 11.0%
versus a statewide average of 7.6%.

As of 1980, according to the U.S. Census data, nearly 29% of
the Belfast LMA's residents were employed in manufacturing
positions. Services, led by health and social servicest accounted
for one-quarter of all jobs held by IMA's residents. Retail trade
accounted for another 14% of the work force.

Analysis of Demand Potential

The demand for transient rooms is generated by two broad
markets: business travel (including conventions and conferences)
and leisure or pleasure travel. .

In 1988, the State Development office sponsored a
comprehensive statewide study of travel in Maine of both
nonresidents and residents. The study divided the state into
regions, one of which was the mid-coast region (of which Belfast is
a part). The study measured the economic impact of travel and the
tourism industry in the region. Measurements were made for 1986,
with estimates for 1987. The study evaluated the seasonality of
travel, the purpose of trips, and the type of accommodations used,
including hotels/motels.

Another study, which was carried out by the U.S. Travel Data
center, provides valuable statistics that assist in quantifying
demand for rental lodging. According to the study, during the year
August 1984 - August 1985, a total of 1,586,000 person-trips was
received by the mid-coast region.

Table a displays some characteristics of these person-trips.
Slightly less than half the trips were by nonresidents. A half
were taken in the summer months and slightly less than one-quarter
were taken in the fall. Only 3% of the trips were for business,
conventions, and meetings (compared to 7% for the purpose
statewide).

The proportion of the mid-coast visitors who used rental
lodging was 36%. This is slightly higher than the proportion of
statewide visitors (30%) that did so.

Business Demand

Major employers in the market area generate demand for
overnight accommodations in varying degrees. The Belfast area has
only a few large employers. The market area also includes a number
of satellite facilities including Stinson Canning and Ducktrap,
Inc. Penobscot Frozen Foods in Belfast and Delta Chemical in
Searsport are two of the largest employers in the market area. The
region's largest employer is Champion Paper in Bucksport.

The extent to which these firms generate overnight room demand
depends on market area served (the larger the market, the more
demand), size and type of business, and out-of-state vs. in-state
ownership (out-of-state ownership generates more-demand) . Based on
interviews with a sample of the principal area firms and
institutions, there appears to be very little business traf f ic into
the Belfast area that generates demand for overnight rooms.

In our discussions with Stinson Canning, they indicated that
any activity that would generate overnight room demand would be
associated with the main plant in Prospect Harbor. Most of the
business trips to the Belfast plant are day trips and very rarely
require an overnight stay. Harborside Graphics estimates 2-3 per
month and then an annual sales meeting that requires 12 rooms for
3 nights. Ducktrap, Inc., estimates 1-2 per month; Penobscot
Frozen Foods estimates 4 - 5 per month; and Mathews Brothers
estimates 2-3 per month.

District Court-Belfast indicated that a majority of the
lawyers that are involved with cases commute less than one hour.
Rarely is there a lawyer from out-of-state or somewhere else in
Maine who would generate an overnight stay.

Delta Chemical estimates 3-6 per month.

Champion Paper in Bucksport estimated 10 - 15 Champion
personnel from other plants require overnight accommodations per
month. Champion was not able to provide an estimate on other
sales/business people who stay overnight when doing business at
Champion. The Jed Prouty Inn, near the plant, serves as
accommodation for most of the business that requires overnight
rooms.

TABLE 8
Belfast Hotel Demand Potential
Selected Characteristics of Person-Trips
To Mid-Coast Region
August 1984 - August 1985

1. Resident vs. Nonresident

Nonresident 766,000 48.3%
Resident 820,000 51.74;

2. Pers on-Trips by-Season

spring 13.2%
Summer 49.4%
Fall 21.7%
Winter 15.6%

3. Person-Trips by Purpose of Trip

Visit friends and relatives 21%
For business/convention 3%
For outdoor recreation 23%
For entertainment 36%
For personal/family 1%
For other purposes 15%

4. Persgn-Trips by Type of Accommodations

Rental lodging (hotel, motel, bed & breakfast, etc.) 36%
Campground 24%
Nonrental 32%
other 1%
Day trips 8%

Source: Maine Tourism Study, 1984-85, Volume 1, Market Analysis
Market Decisions, Inc., August 1991

Most of the employers interviewed indicated little difficulty
in locating rooms most of the time. However, several mentioned
that there is a lack of selection and quality associated with
lodging facilities in the Belfast area.
Membership organizations also are potentially important
sources of demand. Many membership organization meetings and
seminars are one-day affairs., with minimal overnight demand.
However, most hold annual meetings and training programs that last
2-5 days. Because of a lack of bed base combined with function
rooms and restaurants, this potential market has not developed in
Belfast. At present the Samoset in Rockport has positioned itself
to capture a majority of this business in the mid-coast area.

Pleasure/Personal Demand

Pleasure and personal travel is generated by a wide variety of
activities, from weddings and funerals to shopping and vacations.

The Belfast market area is not a prime vacation destination
area, with the exception of China Lake to the west. it is,
however, a convenient stopover point for travellers to points
downeast, including Bar Harbor, Acadia National Park, the Ellsworth
area, and the maritime Canadian region. Local 'motel operators
report this as an important source of business.

The U.S. Travel Data Center estimates 1,500,000 - 1,600,000
annual person-trips into the mid-coast region for pleasure,
personal, and entertainment purposes. The mid-coast region extends
from Brunswick to Stockton Springs.

Thirty-six percent of these trips are for -entertainment,
another nearly 23% are for outdoor recreation, and 21% are to visit
friends and relatives. Nationally, only about 36% - 39% of all
pleasure/personal/weekend/vacation trips involve commercial
lodging. The share in the mid-coast region is in line with the
national averages, since there are a number of resort hotels in the
area. (See Table 8.)

Of those who are travelling in the mid-coast region for
pleasure or for personal reasons and who do use commercial lodging,
the Camden/Rockport market probably captures about 30% - 40% of the
total mid-coast region's person-trips taken for such purposes. The
Belfast area captures only about 3% - 5% of such trips.

indicators of Demand

The travel network -- in particular, the highway system -- is
a valuable indicator of change in overnight traveller potential.

The annual average daily traffic along Route 1 at the
Belfast/Northport town line increased by more than 1,900 vehicles

per day between 1983 and 1987 (the date of the latest information) .
This represents an average annual rate of growth of about 8.7%.
(See-Table 9.)

Annual average daily traffic counts on Route 1 on the
Belfast/Searsport town line increased at an average annual rate of
5.2%, from 7,680 vehicles in 1983 to 9,390 vehicles in 1987 (the
date of the latest data for the location). This increase
represented an average of approximately 1,700 vehicles per day.

On. Route 3 at a point referred to as Hayford Corner
(approximately 2 miles west of the Route 3/Route 1 interchange in
Belfast), the annual average daily traffic count increased by an
average 1,360 vehicles from 1983 to 1990. This represents an
average annual rate of growth of approximately 4.5%.

It is not known what portion of these vehicles carry overnight
@ravellers. Data by quarter, which would give a sense of the
importance of summer traffic and its role in tourism, is not
available.

A final indicator of potential demand is the taxable retail
sales records compiled by the Maine Bureau of Taxation. Lodging
sales within the City of Belfast have declined slightly from $1.64
million in 1989 to $1.61 million in 1990. on a quarterly basis,
during the summer months (peak tourist months) , taxable lodging
sales in Belfast increased from $943,000 in 1989 to $961,500 in
1990. (See Table 10.)

Seasonal Fluctuations

There are clear seasonal swings in demand for commercial
overnight lodging in the Belfast market. First quarter lodging
sales, according to state retail sales tax data, were about 4% of
the annual total in 1990; second quarter sales were about 18% of
the total; third (summer) quarter sales were about 60% of the
total; and fourth quarter sales were about 19% of the total. (see
Table 10.)

According to the Maine Tourism Study 1985-1986, the peak-
months for occupancy at hotels, motels, and resorts in the mid-
coast area were June, July, August, and September. (See Table 11.)
The occupancy rate during the four-month period ranged from 96.2%
in June to 99.9% in August. May and October were shoulder months
in which occupancy rates were 81.8% and 84.6%, respectively. Of
the lodging facilities that are operating in the off-season, the
occupancy rates are estimated to range from 10% - 30%.

TABLE 9
Belfast Hotel Potential
Traffic Counts
North Route 1 1983 1986 1987 1988 1990
Belfast/Searsport. 7,680 8,250 9,390 N/A N/A

South Route 1
Belfast/Northport 4,895 N/A 6,830 N/A N/A

Belfast
Hayford Corner
Route 3 3,786 4,060 5,050 N/A 5,140

Belmont
Route 3 3,525 N/A N/A N/A 5,020

Source: MDOT, Bureau of Planning
Market Decisions, Inc., August 1991

TABLE 10
Belfast Hotel Potential
Taxable Lodging Sales

1989 Quarter 1990 Quarter 1991 Quarter
Jan. 60.0) 13.4) 12.2)
Feb. 50.0) 155.6 28.9) 60.2 24.2) 83.1
March 45.6) 17.9) 46.7)
April 49.6) 26.2) 25.6
May 79.9) 279.3 106.8) 288.4
June 149.8) 155.4)
July 316.6) 345.8)
Aug. 366.7) 943.3 419.0) 961.5
Sept. 260.0) 196.7)
Oct. 115.1) 113.6)
Nov. 35.6) 260.4 62.5) 303.9
Dec. 109.7) 127.8)
TOTAL 1,638.6 1,614.0 N/A

Source: Maine Department of Taxation
Market Decisions, Inc., August 1991

TABLE 11
seasonality of Hotels, Motels, Resorts
Percent of Rooms Open
for Mid-Coast Region and by Month
MAINE
1986

REGION Jan. Feb. Mar. Apr. May June July Aug. Sept. Oct. Nov. Dec.
Mid-Coast 48.2 49.2 49.5 54.7 81.8 96.2 99.8 99.9 97.2 84.6 55.5 50.0
State Average 57.5- 57.8 59.6 64.1 . 86.1- 96.5 98.8, 99.2 96.1. 85.4 65.3 61.5

Source: Maine Tourism Study, 1985-1986, Economic Analysis
Maine Development office
Market Decisions, Inc.t August 1991

In Belfast, there are a total of 278 lodging rooms in motels,
bed and breakfasts (B&B Is), and cottages. The rooms by type of
lodging facility are:

Motels 156 rooms
B&B's 41 rooms
Cottages 81 rooms

Of the 7 motels and cottage facilities, 3 are open year-round; and
of the 10 B&B's, 6 are open year-round, and 4 are open from May to
October.

Based on a conversation with Jim -Lovejoy, president of the
Belfast Chamber of Commerce, historically the middle two weeks in
July and the first three weeks in August account for the period of
highest occupancy. During this period, occupancy rates among
Belfast's lodging facilities average between 70% and 80%. The
foliage season (mid-September to Columbus Day) accounts for the
second highest occupancy period, with rates ranging from 60% to
70%. During the shoulder month of June, occupancy rates range
between 35% and 40%. These rates reflect the occupancy rate among
those units that are open during each period.

A second indictor is the data from the U.S. Travel Center's
study, which indicated that about 16% of all trips to the mid-coast
region are taken in the winter, 13% in the spring, 49% in the
summer, and 22% in the fall. This breakdown shows less variation
than the lodging sales tax data because it includes travellers who
are not using commercial lodging (for example, relatives who are
visiting for holidays) as well as those who are.

Hotel Potential

Based on the indicators of demand, Market Decisions does not
believe that the necessary market supports exist for a moderate
size (40 - 50 room) hotel.

Based on national performance averages that are available,
moderate sized hotels (40 - 50 rooms) require a minimum average
annual occupancy rate of 65% in order to be a going concern. Using
an example of a 50-room hotel, a 65% occupancy rate would equate to
11,800 room nights (based on a total of 18,250 room nights -- 50
rooms x 365 days = 18,250). Based on a minimum 65% occupancy (or
11,800 room nights), each of the 50 rooms would have to be filled,
on average, 236 nights per year. To state it another way, the 50
room hotel would need to be full, on average, 8 months out of the
year. Evaluating the potential for a 50-room hotel in th .e current
@odging market in the Belfast area provides similar insights. As
indicated, there are currently 279 lodging rooms in Belfast. As
discussed earlier, the facilities experience wide fluctuations in
occupancy during the year. Assuming all the units were open year-
round and an average occupancy rate of 40%, this assumption would
equate to approximately 41,000 room nights (279 rooms + 40% = 112
rooms x 365 days = 40,880 room nights). As indicated, a 50-room

hotel at a minimum 65% occupancy would generate approximately
11,800 room nights. The addition of this hotel project would
increase the number of room nights in Belfast by about 45%.

Based on the indicators of demand and the requirements of a
new 50-room hotel, Market Decisions does not believe that the
necessary market supports currently exist for a moderate sized
hotel in Belfast. However, economic development in the Belfast IMA
may make a hotel project possible. If, for instance, the Searsport
Cargo facility were to be built, this could serve as a catalyst for
a hotel on the waterfront in Belfast.

OFFICE SPACE POTENTIAL

The demand for office space depends on new business formation
in the area (either by new business start-ups or regional or
national firms opening satellite offices), on businesses relocating
to the area,and on local businesses expanding. @

The market area f or of f ice space, or the area f rom which a
majority of office space users will originate, is the Belfast LMA.
This area is identical to the area that was identified as the
market area for hotel rooms. Therefore, the demographic and
economic information discussed in the last section is applicable to
the analysis for office space potential.

A widely accepted measure of demand for office space is the
number of white collar employees in an area times 200 square feet
per employee. This figure is then subtracted from the amount of
office space that currently exists in the market area. The
difference will indicate either the amount of pent-up demand or the
potential amount of surplus space that exists.

According to the Waldo County Opportunity Zone, there are
approximately 120,000 - 130,000 square feet of office space in the
City of Belfast. This office space is comprised of small, second-
and third-floor units in the downtown area (primarily above retail
space) and a number of significant office-oriented buildings. The
most notable of these is the Cobb Medical Building adjacent to the
Waldo County General Hospital. This building is owned by the
hospital and is oriented to medical professionals. It is two-story
and contains approximately 16,400 square feet.

The Belfast Center building (previously the Etonic plant)
contains approximately 45,000 square feet. This building was
purchased by Cave Co. in February 1991 and is being leased to both
office users and light manufacturing firms. Currently,
approximately 15,000 square feet have been leased as office space
and 15,000 square feet have been leased as light manufacturing
space. of the remaining 15,000 square feet, the building's owner
expects that a majority will be renovated and leased as office
space. Currently, the office suites that are being rented range
from 300 square feet to 3,000 square feet. All the users have
reportedly moved from other locations in Belfast. Currently, eight
of the office space tenants are social service agencies. The base
rent for office space is $0.55 per square foot (all utilities
included) per month. This rent rate equates to $6.60 (gross) per
square foot per year. This rent rate is adjusted if a tenant is a
high electricity user or if additional amenities are added to the
unit (such as air conditioning). The absorption rate of office
space for this project has been approximately 2,500 square feet per
month.

The old Steego Auto Parts building at the corner of Franklin
Street and Front Street contains a total of 5,800 rentable square
feet of of f ice space. The building's owner indicated that the
average rent is $0.50 per square foot (utilities included) per
month. The top floor, about 1,900 square feet, rents for $0.60 per
square foot (or $1,150 per month).

Based on national standards, on average approximately 200
square feet of office'space is allocated per white collar employee.
According to the Maine Department of Labor, there was an annual
average of 640 white collar employees working in the Belfast LMA in
@990. Based on an average of 200 square feet per employee, there
is a current estimated demand of 128,000 square feet of office
space in the IMA.

A survey of existing office space in the City of Belfast,
conducted by Waldo County Opportunity Zone and Market Decisions,
indicates that there is an estimated 120,000 to 130,000 square feet
of rentable office space in the City of Belfast. This space does
not include office space associated with manufacturing facilities
such as Penobscot Frozen Foods and Stinson canning or owner-
occupied professional space such as doctors' and lawyers' offices.
Additionally, based on Market Decisions' knowledge of Waldo County,
there does not appear to be comparable leasable office space in the
balance of Waldo County.

Based on these assumptions and square foot estimates, the
current demand for office space in the market area is being
adequately met by existing supply. The Belfast Center project has
placed a temporary strain on the officemarket in Belfast. As we
understand, all of the office s]@ace tenants in the project (a
current total of 15,000 square feet) relocated from other space in
Belfast. According to the building's owner, he has offered most of
the tenants "twice as much space at the same lease rate as they
were paying prior to relocating." This project is currently
offering an additional 15,000 square feet of office space that has
yet to be renovated or rented (but is included in the estimated
total of office space).

According to data provided by the Maine Department of Labor,
the number of white collar jobs in the IMA increased by 50 jobs
from 1984 to 1990. If the rate of growth were to continue at the
same pace over the next five years, there would be the potential
for an additional 8,000 to 10,000 square feet of office space in
the Belfast LKA. It is important to note that many professionals
such as doctors and lawyers purchase single-family homes in the
Belfast area (for reasonable prices) and convert them, in part or
whole, into office space to suit their needs. Therefore, some of
the estimated increase in demand may not be capturable by projects
offering rentable office space.

Any future potential for the creation of an of f ice space
project on the Belfast waterfront will need to offer quality space
(of which there is little in the Belfast area) in flexible sizes,
with amenities such as ample parking, in order to be successful.
@s indicated, it appears that the current demand for office space
in the Belfast IMA is being adequately served. Market Decisions
believes that unless a moderate to large employer moves to the area
or Belfast can position itself as a strategic location f or a
satellite office for firms serving the mid-coast, that there will
not be adequate growth in the employment sectors that demand of f ice
space to make an office project feasible.

File: 91107.Rpt
Sebago Technics

@ 11MMININIMR,
@ 3 6668 14102 8664 -