HomeMy WebLinkAboutWilkes Square DRAFT Report_201402030853414597Wilkes Square Redevelopment
Town of Nantucket, MA September 15, 2010
Table of Contents
01 Overview
01 Background
02 Scope and Methodology
02 The Site and Context
01 Site Description and Features
02 Historic Context
03 Urban Design: Qualities and Challenges
04 Chapter 91 Requirements
05 Environmental Issues
06 Transportation Conditions
07 Real Estate Markets
03 Current Zoning
01 As of Right Options
04 Vision and Framework
01 Planning Principles
02 Development Fundamentals
03 Proposed Scenarios
04 Public Realm Opportunities
05 Pedestrian/Vehicular and Bicycle Circulation
06 Block Structure and Program Elements
07 Project Financials
08 Block Qualities
09 Massing and Height
05 Implementation
01 Implementation
06 Process
Town of Nantucket Team
Board of Selectmen
Rick Atherton
Brian Chadwick
Michael Kopko
Allen Reinhard
Patricia Roggeveen
Whitey Willauer
Downtown Revitalization Committee
Patty Roggeveen
Tracy Bakalar
David Baraham
Brian Chadwick
Kate Hamilton
Wendy Hudson
Flint Ranney
Andrew Vorce
John Wagley
John West
Project Manager
Andrew Vorce
Consultant Team
CBT Architects
Urban Design and Planning
Byrne McKinney & Associates, Inc.
Economic and Real Estate Analysis
Copley Wolff Design Group
Landscape Architecture
Nitsch Engineering
Transportation and Sustainability
Site Design Inc.
Civil Engineering
Epsilon Associates
Chapter 91
Wilkes Square Redevelopment 5
The Town of Nantucket has conducted a preliminary planning study
for the Wilkes Square (Candle Street) Redevelopment Site (Map)
including the National Grid, Greenhound, Winthrop, and Nantucket
Island Resort properties as identified in Article 90 of the Nantucket
2008 Annual Town Meeting. The site, located on the Waterfront at
the entrance to the town, and adjacent to downtown and half its
area, is a rare commodity to find in towns and cities and is highly
valuable to the Town of Nantucket.
The Board of Selectmen has charged the Downtown Revitalization
Committee with identifying goals for the Nantucket downtown area
that balance economic strength with community preservation, and
encourage greater venues for social activity while recognizing the
importance of planning. The focus of the study is to:
Attract a wide range of individuals through a multifunctional
environment including: housing, work, shopping, culture,
entertainment, government, and tourist attractions.
Balance the human, social, and economic needs with the
infrastructure requirements of parking, public transportation,
bike racks, road access, traffic flow, sidewalks, and shore front
walkways.
Attract commercial business to locate downtown by providing
guidance on financing, zoning, and preliminary site design
Protect the unique qualities, historical significance, and feel of
the Town.
Incorporate attractive space for civic gatherings.
Recognize the value of keeping the Town Government
in downtown.
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1:01
Background
The focus of this study is to create a redevelopment vision and
framework for the Wilkes Square site by responding to the goals
set out by the Town and by analyzing multiple variables related to
planning, economic development, traffic and transportation. This
is the beginning of a more detailed future study and development
of a Public-Private Partnership to redevelop the site. The outcome
of this study is intended to generate a framework for rezoning of
the site as well as a comprehensive approach for infrastructure
funding from various federal and state agencies. It is understood
that a cohesive vision for the site can meet all of the community
objectives as opposed to individual land owners acting on their
own under current zoning parameters. Ultimately, the scope of
this study is to promote economic development through good
planning.
The focus has been to develop a framework for the overall site
that considers public benefits as well as private sector incentives
to achieve these benefits. The framework is intended to be
highly flexible and create a structure for both physical and policy
development in the future. Lastly, the study is highly focused
on practicality of the project and a detailed set of “next steps”
towards implementation was developed.
The framework is an outcome of a six month long public process
and reflects feedback provided by public. The public outreach was
arranged through a series of formal meetings/presentations as
well as one on one interactions through a series of open houses. A
majority of the land owners have been included in the outreach.
1:02
Scope and Methodology
Wilkes Square Redevelopment 7
LIST OF STAKEhOLDERS
Board of Selectmen
Downtown Revitalization Committee
Planning Office
Historic District Commission
Town Association
Nantucket Regional Transit Authority (NRTA)
Representatives of Green Hound LLC
Representatives of NationalGrid
Representatives of Nantucket Island Resorts
Members of the Press
Salt Marsh Center
Business Owners
Residents of the Town
SChEDuLE
Jul 2009: Project Start - Reconnaissance and Data Collection
Sep 16 2009: First Meeting
Sep-Oct 2009: Development of Preliminary Alternatives
Oct 14 2009: Open House
Oct-Nov 2009: Development of Alternatives
Nov 18 2009: Third Public Meeting
Nov-Dec 2009: Development of Final Alternatives
Dec 05 2009: Christmas Stroll Open House
Jan 2010: Fourth Public Meeting
Jan 27, 2010: Final Public Meeting
September 15 2010: Submission of Findings
01 October 14, 2009 Open House
02 DRC Presentation
03 & 04 January 27, 2010 Open House
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Wilkes Square Redevelopment8
02 The Site and
Context
Wilkes Square Redevelopment 9
The study area is approximately a 5.65-acre area bounded by Main
Street, Commercial Street, Washington Street, and New Whale
Street. The site is currently owned by multiple land owners.
Premier Site and Opportunity For Nantucket
Situated on the waterfront directly adjacent to downtown and
located relative to key demand generators, Wilkes Square
represents a special opportunity for the Town of Nantucket.
The size of this site is equal to the six-block area between Main,
Broad, Federal, and Center Streets and is half as big as downtown
Nantucket.
Nantucket is a premier tourist destination in New England. The
year-round population of approximately 11,000 swells to 50,000
during the summer season. Downtown Nantucket primarily caters
to the visiting population today and is seasonal. Majority of the year
round population has withdrawn from living and engaging with it
due to traffic congestion and lack of attractions. Redevelopment of
the Wilkes Square site has a potential to set the stage to alleviate
some of the problems in downtown and find opportunities for
downtown to be an all season destination for both year round and
visiting populations.
1. WINThROP AND NIR SITES
These sites occupy the northern half of the site and comprise of the
following important elements:
a. Winthrop Parking Lot: This tree-canopied parking lot was
created in 1965 and provides the much needed parking supply for
the downtown today. This shared parking lot has approximately 120
parking spaces that are available on an unsecured basis for town
users. This parking lot is used as a flexible civic space during town
wide festivals such as the Christmas Stroll. This openness provides
2:01
Study Area Description
and Features
Wilkes Square Redevelopment10
a visual aperture from Main Street to the water. The Sycamore tree
that is located in the parking lot is one of the special features of the
site that requires careful consideration during the redevelopment
of the site.
b. harbor Fuel: Harbor Fuel is situated prominently on New
Whale Street on the waterfront and is the only remaining industrial
infrastructure on site. The Town license with Harbor Fuel for fuel
tanks expires in September of 2009 and the town is in discussion
with the owners regarding a plan to relocate the tanks to a site
outside of the downtown.
c. Grand union Grocery Store: Grand Union is a Nantucket
institution that serves both downtown residents and visitors. This
facility is praised for its convenience and affordability if not for its
modern-day functionality. The grocery store parking lot serves as
informal parking for other users of the downtown. The Grocery
Store lease with Winthrop expires in 2010.
2. NATIONAL GRID
This site occupies the Southern half of the site. This site was used to
generate electricity for Nantucket until recently. In 1996 the power
supply was switched to a cable connection underwater to the
mainland. Currently, there is a generator and substation building at
the southeast corner of the site. There is a requirement to maintain
a 20-foot clearance around this facility. In addition, vehicular access
to the barge in boat basin should be maintained. The site has since
been vacated and subjected to environmental clean up. There are
two brick buildings on site that present an opportunity for historic
preservation and reuse. The owners of the site have expressed
an interest in finding a workable redevelopment plan for their
property.
3. GREENhOuND LLC. SITE (NRTA)
This site is located closest to town on the western part of the
site. The site is currently the home for Nantucket Regional
Transit Authority’s shuttle bus station. NRTA runs seven out
of their 14 routes from this center. This service is key to the
transportation sustainability of the island with an annual ridership
of approximately 250,000 passengers.
WAS h INGTON ST
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01 National Electric Transformer Facility
02 NRTA Transportation Center
03 Grand Union Grocery Store
04 Old Brick Building on National Electric Site
05 Harbor Fuel
SCALE COMPARISON OF ThE SITE WITh DOWNTOWN
01 02 03
04 05
Wilkes Square Redevelopment 11
2:02
historic Context
The early period of 1800s was the
high point of the Whaling Industry in
Nantucket. The waterfront was a thriv-
ing-working and mixed-use area with
a contiguous urban fabric to down-
town. A combination of industrial and
residential architecture can be found
during this time with buildings ranging
from two to five stories tall. The later
half of the 1800s resulted in a decline
of Nantucket due to the end of the
Whaling Oil era. But the decline helped
Nantucket preserve its historic archi-
tecture. By 1870s Nantucket started to
redefine itself as a summer retreat and
a tourist destination.
The town of Nantucket is located on the busy harbor and the
downtown area contains some of the best preserved and most in-
teresting architecture. In 1966, the town was listed on the National
Registry of Historic Places. However, the Wilkes Square site went
through a series of transformations over the last 150 years, from a
thriving urban mixed-use district to an industrial waterfront. This
analysis sets up cues for the future redevelopment of this site.
1800s Thriving urban District
1800s
Thriving Urban District
1930s
Period of Industrialization
1960s
Exclusive Tourist Waterfront
Today
Towards an Urban Waterfront
Source: Nantucket Historical Association
Wilkes Square Redevelopment12
1930s
By the 1930s, automobiles have be-
come dominant in Nantucket and the
town expanded beyond the downtown
to the entire island. Fuel needs and
power generation transformed the
waterfront into an industrial area. This
was the beginning of the decline of
the waterfront as a thriving mixed-use
center.
1930s Period of Industrialization
1959
Source: Nantucket Historical Association
Wilkes Square Redevelopment 13
By this time, summer tourism had
become the primary industry on the
island. Realizing the tourism potential
led to extensive efforts in historic
preservation. Walter Beinecke, Jr., had
begun the revitalization of downtown
buildings, including the waterfront
wharves, to attract wealthy tourists.
In conjunction with the large scale
industrial uses, the positioning of the
waterfront to certain seasonal tourists
made the waterfront exclusive. Some
of the recent efforts through Chap-
ter 91 have enhanced access to the
waterfront.
1960s ExclusiveTourist Waterfront
Source: Nantucket Historical Association
Wilkes Square Redevelopment14
Image Title Image Title
2:03
urban Design
Qualities and Challenges
Seasonal Active Marine uses Transient and Vibrant Yet Chaotic
Wilkes Square Redevelopment 15
Beautiful Landscape Details
Pedestrian, Bicycle, and Vehicular Conflicts
Serenity and Chaos
Wilkes Square Redevelopment16
Views from and to the Water and Landmarks
Barriers to Access to Waterfront
Wilkes Square Redevelopment 17
2:04
Chapter 91
The Project site contains tidelands which were historically filled
and the Commonwealth regulates these through the Chapter 91
Waterways Program. The diagram depicts the historic high and
low water lines that the Department of Environmental Protection
(DEP) considers to be the “presumptive water lines”, for use in
determining Chapter 91 jurisdiction. Tidelands located “seaward
of the historic low water mark” are defined as “Commonwealth
Tidelands,” whereas tidelands located between the historic high
and low water marks are defined as “Private Tidelands.” The
landward limit of Chapter 91 jurisdiction is the first public way
or 250 feet from the current high water mark. Tidelands beyond
the first public way or greater than 250 feet are considered as
“Landlocked Tidelands.”
A recent Superior Court decision on the Arno property at 27 Easy
Street, Nantucket may have implications on Chapter 91 jurisdic-
tion for the Project site. That court decision found that the Arno
property was registered land in which the Land Court in 1922
clearly indicated that the Commonwealth’s and the public interests
in that property were extinguished when the Land Court registra-
tion occurred. The Arno court decision is currently under appeal.
Another example is the Dreamland Theater property, that was
not registered land, where the Commonwealth’s interest was not
extinguished. Therefore, the Dreamland project has been go-
ing through Chapter 91 licensing review. Going forward with the
Wilkes Square Project, it is suggested that the Town should have
counsel review the deeds for the project site to determine if the
deeds for this area are registered and similar to those at Arno.
Alternatively, a “Municipal Harbor Plan” can be used as a vehicle
to distribute some of the impacts of Chapter 91. Municipal harbor
plans establish community’s objectives, standards, and policies
for guiding public and private utilization of land and water within
Chapter 91 (21) jurisdiction.
Wilkes Square Redevelopment18
STRAIG
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MAIN ST
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Figure 1
Ch.91 Presumptive Lines
Wilkes Square Nantucket, Massachusetts
G:\BD\Nantucket\wilkes_sq\ch91_wetlands_fema.mxd
LEGENDLEGEND
Basemap: 2007 Orthophotography, NantucketGIS
Scale 1:9601 inch = 80 feet
0 40 80
Feet
Ch. 91 Presumptive High Water Line*Ch. 91 Presumptive Low Water Line*
Project Area Parcels
* Based on DEP-supplied GIS shape files
250-ft Setback from Existing High Water(dashed = inferred)
Coastal Beach
Coastal Dune
2005 MassGIS Wetlands
Zone AE
Zone AO
FEMA Flood Boundaries
Zone VE
2:05
Environmental
Issues
Most of the site contains some oil and fuel contamination due
to historic use of the property as an electric generating power
plant. A portion of the National Grid site has coal tar-related
contamination. A clean up has occurred which involved digging
up 10 feet of soil on the site, followed by a filter and capping.
Three wells have been installed that pump/treat this area.
Environmental issues and costs associated with the tank farm
site are unknown at this stage. It is very important to understand
these impacts going forward as they play a significant role in the
feasibility of the Wilkes Square Redevelopment.
2.06
Transportation
Downtown Nantucket has a unique transportation system
coexisting with diverse transportation modes making the
downtown vibrant yet chaotic. This uniqueness presents serious
challenges to downtown and is a result of special circumstances
including pressures associated with tourism and the need to
deliver almost everything needed to the island via the Steamship
Authority dock in the downtown core area. The Wilkes Square
Study area itself perpetuates traffic congestion due to the
combination of pick-up, drop off for the Hi-Line, Grand Union,
the town parking lot, etc, while a significant portion of the site is
unavailable for circulation. Severe conflicts between pedestrians,
bicycles, and automobiles exist. Significant dependence on
automobiles and lack of approrpirate parking accommodation
and management further aggravtes traffic congestioin in the
downtown area.
While the NRTA (Nantucket Regional Transit Authority) operates
public transportation with its transportation center located at
Candle Street. The current location and lack of adequate berths
for NRTA buses also adds to traffic congestion in the area. It
is fair to say that the transportation system has reached the
tipping point and is effecting the economic viability of downtown
Nantucket. There are several studies and measures that are being
contemplated by the Town and various stakeholders including
downtown parking management, park and ride shuttle systems
and a parking garage in downtown. While none of the options
provide the ultimate solution for the transportation problems,
a combination of these and many more is essential to solve the
downtown transportation challenge.
The unlocking of the Wilkes Square site can present additional
circulation capacity to alleviate some of the congestion and
provide an opportunity to consider a parking garage in close
proximity to the historic core.
01 View of Washington Street near Wilkes Square
02 View of the parking lot
03 View of Candle and Easy Streets
01 02 03
Wilkes Square Redevelopment 19
2.07
Real Estate Markets
Nantucket is an island economy: small, seasonal, relatively slow
growing, with unique appeal and thus reliance on the tourism and
retail service industries. Coupled with high land values and high
construction costs, housing is increasingly unaffordable for year-
round residents. Leveraging the economic power of the seasonal
visitor market to the benefit of year-rounders remains one of the key
objectives for a Wilkes Square redevelopment. A detailed market
analysis has been conducted to understand Nantucket’s market
conditions in order to inform the future market opportunities and
programming for the Wilkes Square Study area. These are some of
the findings:
Year round population and income increase will be modest:
Analysis of general demographic trends identifies a number of basic
issues which are likely to impact property within the Wilkes Square
Study Area in the near to mid-term. Most fundamental - Nantucket’s
resident population, household numbers, and income levels are
expected to increase only slightly over the next five years and the
cost of island living is high. This underscores the need for careful
targeting to meet the affordability limits of the local market and the
importance of external demand (seasonal visitor demand) to the
prospects for future growth and economic development.
A five-year planning period: Like the national and regional econo-
mies, Nantucket has also been hard hit by the current recession.
The local market is physically small and geographically isolated and
is heavily reliant on discretionary visitor spending from non-resident
consumers. Retail, hospitality, and construction (many tied to the
second home market) establishments dominate the employment
base making the economy uniquely vulnerable to external economic
shock. With limited residential growth anticipated in the near term,
the pattern and pace of Nantucket’s economic recovery is very much
tied to national and regional, rather than local demand factors.
MARKET SECTORS
Retail Market: On average, retail sales are projected to grow by
only 6% over the next five years, an annual rate of growth of 1.2%,
underpinned by the slow growth of resident demand and the an-
ticipated slow pace of economic recovery in the larger non-resident
marketplace (normalization expected in the 2013 to 2015 period).
Analysis suggests that opportunities for significant retail develop-
ment in the near term are limited, and that growth in the mid- to
longer terms will be very much tied to the implementation of effec-
tive management and marketing strategies and supportive business
incentives rather than to underlying economic expansion.
Residential Market: On average, growth in resident and seasonal
demand is expected to yield a need for up to 550 new housing
units in Nantucket over the course of the next five years. Analysis
suggests an overwhelming market preference for single-family
ownership (detached-attached-rowhouse-townhouse-duplex)
residences in both the year-round and seasonal buyer markets.
Market rate rental development does not appear to be marketable
or feasible. Apartment style units (flats, duplexes) may have some
appeal for the seasonal market if they can be positioned to exploit
water views or other nearby amenities. Opportunities for significant
housing development in Nantucket are likely to be constrained by
the economics of construction which will continue to drive prices
higher, but more critical is the pace of unit absorption which is
expected to be slow in the near term.
hospitality: The national and regional lodging markets continue to
suffer disproportionately from the effects of the recession, with lux-
ury product experiencing the greatest effects. The Nantucket mar-
ket is not immune and will be several years in the recovery mode.
While the barriers to entry in this market are high, the demand for
seasonal, waterfront lodging is strong and can be attracted if the
product can be positioned and priced to meet the market poten-
tial. New product delivery in the Nantucket market is not seen
as marketable before 2016. Analysis suggests that the product
attributes should be aimed at a limited service, more moderately
priced alternative to the existing luxury competitors. The ability to
keep control of the operating costs and keep development costs
down will be essential to feasibility.
OPPORTuNITIES
Proximity to downtown
Proximity to ferry
Proximity to yacht basin
Gateway location (from land and water)
Presence of grocery anchor
Presence of parking reservoir
Waterfront/waterview and other parcel attributes
Potential for larger footprint uses
Potential for community anchor uses
Potential for mix of complementary uses
Potential for public-private partnership
Potential for community support for the right program
huRDLES
Zoning and other regulatory limitations
Multi-party ownership
Third party lease contracts
High land values
Environmental constraints and costs
Construction cost premiums
Market and financing complexity
Development timing
Wilkes Square Redevelopment20
The majority of this site is currently located in the Residential
Commercial (RC) district, a broad zoning district created in 1972
when Nantucket first adopted zoning. From the beginning, it
was a poor fit for the waterfront area and was identified in the
Implementation section of the 2009 Master Plan to be phased out
by year 2015. The area surrounding this site was formerly in the
RC district, but was changed to the Commercial Downtown (CDT)
district, a primarily commercial zone compatible with the historic
downtown development pattern. This district was identified in the
Implementation section of the 2009 Master Plan to be expanded.
Working with individual landowners to extend the CDT district
to this site will be critical to fulfilling the potential of Nantucket’s
downtown waterfront. As the table above indicates, the CDT
district promotes a compact building form similar to other New
England seaport communities
In addition to altering the zoning district, further zoning incentives
should be explored. Current parking standards are inappropriate
03 Current Zoning
for Nantucket’s downtown, where the majority of parking spaces
are currently located on-street. Altering current parking rules to
allow for public alternatives is needed.
Article 90 of the 2008 Annual Town Meeting authorized the area
to be designated a priority development site pursuant to MGL
Chapter 43D. This state designation provides for expedited
permitting and provides priority consideration for a variety of State
grant programs. Policy 4.1.1b of the Master Plan recommended
designation of the study area.
Due to complications of MGL Chapter 91 it may also be beneficial
to amend Nantucket’s Harbor Plan and Harbor Overlay District
to include this area so that requirements for open space may
be aggregated in key locations within the site. Otherwise, it will
be very difficult to meet open space requirements on individual
parcels.
Setback
Lot Size Groundcover Ratio Front Side Rear Frontage Height
RC 5,000 50% 0 5 5 40 30
CDT 3,750 75% 0 0 5 35 30+ by special permit
Wilkes Square Redevelopment 21
AS OF RIGHT OPTION I : STATUS QUO
The National Grid site and the tank farm site are developed
for housing and ground floor uses to meet Chapter 91
Existing zoning parking requirements are applied
Grand Union and parking lot remain “as is”
Greenhound site remains “as is”
Existing privately owned and controlled parking is assumed to
continue as public parking
Total GSF: 73,000
Opportunities and Challenges
Private Sector
Least risky option for the ownership
Environmental clean up required
Chapter 91 requirements too onerous
Lowest value option for the ownership
Public Sector
Contributes to a greater privatization of waterfront site:
access secured by Chapter 91 only
Option does little to support the performance of
downown
Makes little contribution to island life year round, except
for the preservation of the existing grocery store
Economic benefits are mostly for the on site users
Fiscal impacts are positive, though constrained into the
future
Accommodates on-site parking requirements
Provides limited relief for downtown parking shortfall
Does not improve transportation in downtown
No significant cultural, civic, and convenience retail
spaces created
Least intervention and investment by public sector
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The site is currently located in RC-1 zone of Zoning Code of
Nantucket. This zoning allows two attached residential buildings
per a minimum of 5000 square feet lot. There is a 30-foot height
limit for buildings with a 50% maximum allowable ground coverage.
Various other uses such as hotels, commercial, and retail are
allowed under the current zoning. While the range of uses allowed
on the site are appropriate for this location, the lot size and height
restrictions promote detached suburban style development on this
premier site.
The study tested two “as of right” development scenarios on
the site. These represent the lowest and highest extremes to
demonstrate the base line for individual land owners against
which any proposed scenario will be judged. Further, benefits and
impacts to public are identified for each scenario.
3:01
As of Right Options
Wilkes Square Redevelopment22
AS OF RIGHT OPTION II : MAXIMUM BY-RIGHT
National Grid and Winthrop/NIR sites developed with full
envelope theoretically possible under zoning
Greenhound site remains “as is”
Total GSF: 139,000
Opportunities and Challenges
Private Sector
Redevelopment potentials difficult to achieve: the
theoretical maximum
Environmental clean up required
Chapter 91 requirements too onerous
Highest risk option - market and permitting
Highest value option (if achieved)
Public Sector
Contributes to a greater privatization of waterfront site;
access secured by Chapter 91 only
Increases density in the downtown without ensuring public
benefits in exchange
Option does little to support the performance of
downown
Makes little contribution to island life year round, except
for the preservation of the existing grocery store
Economic benefits are mostly for the on site users
Fiscal impacts are positive though constrained into the
future
Accommodates on-site parking requirements
Provides limited relief for downtown parking shortfall
No significant cultural, civic and convenience retail
spaces created
Least intervention and investment by public sector
Does not improve transportation in downtown and could make
conditions worse
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Wilkes Square Redevelopment 23
The Study developed a framework for the overall site that takes
into account public benefits in terms of public space, tax revenues,
civic programs, and transportation improvements as well as
private sector incentives to achieve those benefits. This framework
is a result of studying several aspects related to urban design,
planning, traffic and transportation, and economic development.
The framework is intended to be highly flexible and create a
structure for both physical and policy development in the future.
While the study developed a single overall framework, two
different scenarios within the framework are illustrated in this
section. As required by the scope of this study, one scenario
includes a parking garage, and the other does not.
TOWARDS AN uRBAN WATERFRONT
Wilkes Square Redevelopment 25
04 The Vision and
Framework
Aerial View of the Vision looking
from Southwest
Wilkes Square Redevelopment26
4:01
Planning Principles
AN ASSET TO ISLAND LIFE YEAR-ROuND
Connect Nantucket to its waterfront: make the site publicly
accessible
Deliver an authentic Nantucket ambience and sensibility
Improve the convenience (and safety) of negotiating through
and in the downtown in all seasons
Emphasize resident-focused services and amenities
Mitigate the impacts of visitor congestion and competition for
parking and public rights-of-way during the peak season
Preserve and enhance the working waterfront
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AN ASSET TO ThE PERFORMANCE OF ThE DOWNTOWN
Draw residents and visitors to the downtown (during the peak
and off-peak seasons)
Lengthen the time residents and visitors spend in the
downtown per trip/visit
Extend/enhance the performance of the downtown in the off-
peak months
Provides additional parking (beyond what’s needed on site) to
serve the downtown
AN ASSET TO ThE FISCAL hEALTh OF ThE TOWN
Leverage the value of an underutilized waterfront site
Leverage the value of surrounding properties in the downtown
Create additional tax revenues from both
Generate additional employment opportunities – temporary
and permanent
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AN ASSET TO ThE CuRRENT AND FuTuRE OWNERS
OF ThE SITE
Create value above and beyond what is currently allowed (more
density permitted than by-right options)
Provide a path to redevelopment within a clear and predictable
regulatory framework (a plan not a prescription)
Provide incentives for cooperation and planning across
property boundaries (making the whole worth more than the
sum of the parts)
Leverage private investment by using public funding sources
to underwrite expensive infrastructure and transportation
improvements (recognizing value given for value gotten)
Offer the opportunity for a reasonable return on both public
and private investment capital as measured in dollars and
public benefits
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Wilkes Square Redevelopment 27
The presence of market demand alone is not sufficient for new
development to succeed and thrive. The proximity to and nature of
a site’s direct demand sources; the quality, maturity, and walkability
of the site’s physical environment; the synergistic programming
of site uses; the availability of parking and/or accessibility to
transportation; the project design; and the underlying business
economics all have a profound effect on what kind of uses can
succeed in a particular project or site. The following is a list of
observations regarding the development attributes and economic
features of a successful development at Wilkes Square.
MACRO LOCATION
Nantucket’s New England island location creates a captive resident
demand condition. At the same time, the year-round market is
finite and slow-growing and vulnerable to economic change.
Nantucket’s ability to draw demand from outside its boundaries
and to extend its draw in the fall and spring seasons will continue
to be the critical factor for the performance of the existing markets
and for the future development potentials at Wilkes Square.
MICRO LOCATION
Projects with direct adjacencies to major demand generators such
as visitor attractions, major employment sources, public meeting/
assembly facilities, solid residential neighborhoods, transit centers,
etc. all enjoy better opportunities for development success. The
Wilkes Square location, relative to the downtown business district
to the waterfront and the Hy-Line ferry dock and Boat Basin in
particular, to the public bus terminal and the walking proximate
population density of the surrounding residential neighborhood,
enhance the potential drawing power and marketability of the site.
4:02
Development
Fundamentals
Macro Location and
Downtown Nantucket Market Area
Wilkes Square Redevelopment28
PEDESTRIAN ACCESS AND VISIBILITY
Retail and hospitality uses in particular do best when they can
be seen directly from the street and feel easily accessible on
foot without barriers such as escalators, elevators, major street
crossings, bridges, walls, fences, etc. Improving access to the ferry
and bus terminal, making safer pedestrian and bicycle connections
to and through the existing downtown and waterfront, and creating
a strong, walkable street grid with carefully integrated public open
spaces will all be critical to the marketability and feasibility of site
uses and to the economic success of the plan.
VEhICuLAR ACCESS AND PARKING
It is rare for development to be feasible or financeable without
parking. Ironically, most redevelopment plans are actually driven
by their parking solutions, because cars take up valuable ground
plane and development volume, displacing other uses. This is
particularly problematic when building heights are limited as they
are in Nantucket – as the volume of above grade development
potential is finite. Cars are also very expensive to accommodate,
especially if above or below-grade garages are involved. In many
cases it is the cost of parking that determines a project’s financial
viability (parking can cost up to $40,000 per space to build above-
grade and well over $100,000 per space underground if sub-
surface conditions are poor). So, notwithstanding the importance
of pedestrian and bicycle access and public transportation (land
and water), no redevelopment at Wilkes Square can occur without
a workable plan for vehicular access and parking. We also note
that the downtown parking supply is not sufficient to accommodate
the existing commercial and residential demand, a factor that
negatively impacts on the performance of the downtown today.
Any expansion of activity at Wilkes Square must fully accommodate
its own demand and should, if possible, strive to improve on the
current under-supply conditions.
CRITICAL MASS AND DEVELOPMENT SCALE
New developments tend to do best when they are a part of
and feel integrated with the larger environment. For example,
stand-alone retail spaces rarely do well unless they are occupied
by destination users (restaurants and some specialty stores) or
are targeted and sized to meet the specific demands of on site
users. Likewise, too few residential units or too few hotel rooms
can make a development feel insubstantial or isolated, creating
marketing and operational problems that impact feasibility.
Conversely, a project that is outsized or that fails to mesh well with
its surroundings can feel jarring or strange to the consumer which
can negatively affect marketability and financial performance.
For Wilkes Square, like many redevelopment projects, this means
walking the fine line between creating a project that is big enough
to warrant the redevelopment effort and succeed operationally, but
that is also compatible with and enhances rather than detracts from
the surrounding environment.
ENVIRONMENTAL QuALITY AND DESIGN
Great developments contribute to and enjoy the benefits of
great streets and neighborhood surroundings. The quality of
the pedestrian environment is critically important to the success
of both commercial and residential uses at the site. Retail and
hospitality uses in particular succeed best in a mature, organically
grown, active, pedestrian-scaled, walkable, attractive urban
context. Likewise, the residential consumer wants to look out
the window and step out the front door into an inviting, visually
appealing environment. The quality of the Wilkes Square
surroundings - quintessential Nantucket waterfront - is unparalleled
in this market. A project that can take advantage of this
environment while making its own positive contribution will enjoy
greater potentials for long-term success. This means ground floors
that are open to the street, and inviting to everyone rather than
insulating and isolating it for the benefit of on-site users alone. It
also means an overall design vision that is authentically Nantucket,
resonating with the existing historic fabric and makes the most of
its unmatched waterfront location and views.
Main Street - A Great Urban Environment
Wilkes Square Redevelopment 29
at Wilkes Square depends on the recovery of the underlying
economy and real estate markets and on the ability of the public
sector to help reduce the costs and uncertainties (i.e. permits and
approvals, site work, environmental, parking and infrastructure,
etc.) associated with redevelopment.
hIGhEST AND BEST uSE AND VALuE CREATION
Highest and best use refers to the use that is physically possible,
legally permissible, supported by the market, and generates
the highest value for the underlying land. Generally, for the
redevelopment of a site to occur, the highest and best use of
the land must warrant the development effort, risk taking, and
investment implied by new construction. For the Wilkes Square
site, the programming and development capacity studies show
that there are unrealized development potentials at the property
that are constrained today by physical factors such as the existing
improvements (esp. the tank farm) and uncertain environmental
conditions, and by legal factors including the existing regulatory
limitations of zoning, the local review process and Chapter 91.
Analysis of the development markets suggests that while the
current economic environment is weak, the future potentials are
promising , warranting an investment in planning and preparation
for the future (including work on the tank farm relocation, public
parking garage, infrastructure and intermodal transportation
center financing, additional environmental remediation, site
rezoning, Chapter 91 relief, streamlining local approvals, etc.).
Typically, a property that is improved with existing buildings or
under-improved will have a tendency to convert or redevelop
when the value of the land as if vacant exceeds the value of the
property as it currently sits. To position the property for future
redevelopment and to unlock this future value potential, the
physical and legal constraints to highest and best use will need
to be modified or removed – work that must begin now if those
opportunities are to be realizable when the markets stabilize.
DEVELOPMENT LEVERAGE AND SYNERGY
The most successful real estate developments make money for
their owners and generate positive impacts on their surroundings
- in economic terms this leveraging effect is realized through
more stable or higher property values, increased consumer
activity and sales volumes, more employment, etc. Even within
the boundaries of a large site, the effects produced by successful
mixing and siting of different program elements can produce
synergies that enhance the operational efficiencies and value of
the whole – creating a development that is more valuable than
the sum of its parts. Conversely, a poorly planned project at best
squanders this potential and at worst, impedes development from
happening at all. At Wilkes Square, the concepts of leverage and
synergy are vital to project success. Indeed, the high cost of island
construction (which can be 30 to 50% more than on the mainland)
and the volatility and small size of the market as already discussed,
create risks that can only be overcome through positive leverage
and synergy.
DEVELOPMENT TIMING AND PhASING
The real estate and financial markets are notoriously cyclical
and increasingly difficult to forecast. Successful developers
and owners manage their properties for returns today,
prepare for optimal performance in the future and are ready
to act opportunistically when conditions for development or
repositioning are favorable. In short, timing the market is difficult,
but waiting to take action is not an option either. Developers and
owners that fail to plan during the market trough are destined
to miss the cresting wave when it arrives. This is especially true
today, sitting as we are in the trough of an economic recession
– the time for stabilization is in sight – with real improvement some
three to five years away. Much can be done to ready the Wilkes
Square for redevelopment when the market opportunity allows
– including work on the tank farm relocation, public infrastructure,
and intermodal transportation center financing, environmental
investigations, site rezoning, Chapter 91 relief, streamlining local
approvals, etc. If these activities are not initiated until better times
arrive, it is likely that the property redevelopment will miss the next
economic cycle.
For projects such as Wilkes Square, that are likely to be
implemented over a period of time, devising a workable and
flexible parcelization and phasing plan is key to optimizing
property value and economic potentials long-term. A large
site that presents more than one way forward will generally
weather changing market conditions better than something more
prescriptive. That said, a flexible plan must still have a great first
step. The initial phase development efforts catalyze the future
and must therefore be carefully chosen to produce these down
stream incentives and of course, should succeed. An unsuccessful
Phase 1 has the potential to ruin future development prospects.
For Wilkes Square, we believe, the Phase 1 effort is best focused
on preparing the site for redevelopment with a concentration on
demolition, relocation and infrastructure construction (perhaps
including construction of an intermodal transportation center and
garage) as described above. Once the prep work is done, the
site presents several ways forward – a garage lead, a supermarket
redevelopment lead, and a new residential lead could all qualify as
a good first step.
DEVELOPMENT FEASIBILITY
For a development to be financially feasible, the value of the
project on completion – usually measured as a function of the
rents it generates or the sales it produces – must be greater
than the cost to build including the cost of the land, bricks, and
mortar (or shingles), the development soft costs (architecture fees,
permitting, legal, accounting, developer overhead, construction
interest, financing fees, etc.) and the entrepreneurial incentive.
On Nantucket, land (especially waterfront land) is expensive and
the costs of construction are higher than typical – by as much as
30% to 50%. Rents and sale prices are also high – but also highly
seasonal. This combination of high land and development costs,
coupled with the seasonality and volatility of the resulting revenue
potentials, produces thin margins for new development – even in
economic good times. The financial feasibility of redevelopment
Wilkes Square Redevelopment30
Preparing for the future is critical. The current uses (the tank
farm and the supermarket and parking lot as configured) clearly
represent an under-improvement of the site, but until a higher and
better use is physically possible and legally permissible (whether or
when the markets stabilize), it is likely that these uses will remain.
ENTREPRENEuRIAL COORDINATION AND CAPITAL
INVESTMENT
Successful real estate development projects require the assembly
and deployment of all the agents of economic production - land,
labor, capital, and coordination. The highest and best use of
the land must warrant the development effort, risk taking and
investment implied by new construction. Human and capital
resources must be available at a cost that can be supported by
the project and the developer/owner must have the expertise to
garner the resources and execute. If any one of these elements is
absent, development cannot occur. For the Wilkes Square site, the
future highest and best use potentials are judged to be sufficient
to warrant an investment in planning and preparation for the future.
That said, the development environment is uncertain and private
capital is scarce and risk adverse. Furthermore, it is not clear that
the current site owners have the technical capacity to take on a
redevelopment of this complexity. For these reasons, we believe
that public leadership and investment will be required to lay the
ground work for future redevelopment at the site. The site must
be rezoned to provide incentives for development in accordance
with Nantucket’s vision. Chapter 91 relief must be sought. Greater
certainty and speed must be created in the local approval process.
More must be done to understand how a relocation of the tank
farm can be implemented. Environmental costs and risks must
be identified and evaluated. A public financing plan, operating
plan and a land control strategy must be devised to create an
intermodal transportation center (that may or may not include
a public garage) and to support the necessary infrastructure
investments on and off-site.
In addition, we note that the economics of development n Nan-
tucket - even in good times – cannot support the premium costs
associated with extensive environmental remediation, structured
parking, or major new infrastructure investments. Public funding
sources will be needed to support these costs – in all likelihood
with some participation and investment at the local level.
ECONOMIC DEVELOPMENT
If successful, public sector investments in the future planning
and preparations for development at Wilkes Square will produce
a private sector redevelopment of the site. Analysis of the site’s
development potentials suggest that the returns to the town
from new property tax revenues could more than double in a
redevelopment scenario. Other economic activity will also result
including job creation (permanent and temporary construction),
increased sales revenues and taxes, and greater activity for the
downtown overall. It is also important to note that if public sector
development activity produces an intermodal transportation
center and/or public garage construction, the broader downtown
market stands to benefit whether private sector redevelopment of
the Wilkes Square site occurs or not (although it is not possible to
isolate these indirect effects).
STRONG VISION WITh A FLExIBLE PLANNING FRAMEWORK
Larger scale sites, especially those with multiple owners and
diverse use potentials, are most likely to be developed in phases
over time. By their nature, these projects tend to be more complex
and more costly to develop and may have exposure to multiple
real estate and political cycles. In these cases, it is especially
critical that a strong conceptual framework for redevelopment
be adopted - one that is shared by the permitting authorities,
private land holders and the public at large. A sustaining vision of
these larger sites’ future potentials helps to buoy redevelopment
implementation over time, even in the face of changing markets,
01 Straight Wharf
01
ownership, public attitudes, and administrations. At the same time,
the conceptual redevelopment plans for multi-phase developments
must be flexible enough to adapt to changing conditions
– presenting a vision and framework for future redevelopment not
a detailed programmatic prescription. Plans that are too narrowly
focused at the conceptual stage rarely become reality as they
tend to fall apart when inevitable changes are encountered. That
said, they must offer enough detail to inspire the support and
enthusiasm needed to drive implementation forward, illustrating
what the future could look like.
Wilkes Square Redevelopment 31
4:03
Proposed Scenarios
A
B C D
FE
1. Town Annex, Education, Residential, Commercial
2. Transportation Center, Residential, Commercial
3. Market, Cultural, Residential, Commercial
4. Surface Parking
5. Residential, hospitality, Commercial
6. Residential, hospitality, Commercial
REZONING SCENARIO I : ASSEMBLAGE/COOPERATION
Full site redevelopment undertaken with cross-boundary
ownership cooperation
Plan designed to deliver on urban design and economic
development objectives
Revised parking ratios are assumed
Chapter 91 requirements are assumed to be addressed by the
Municipal Harbor Plan process.
Total GSF: 161,000
Opportunities and Challenges
Private Sector
Shared benefits and burdens between all land owners
Environmental clean up required
Potential for 43D expedited permitting
Potential for public infrastructure funding for intermodal
transportation center
Low risk option - permitting and financing
High value potential with allowable density more than
double the status quo option
•
•
•
•
•
•
•
•
•
•
•
Public Sector
Substantial development capacity with public benefits with
a modest public parking program
Unlocks public access to waterfront
Improves pedestrian and bicycle safety
Makes a positive contribution to downtown Nantucket and
the waterfront - beyond the boundaries of the site and
produces synergy
Makes a positive contribution to island life year round,
with a balanced mix serving residents and visitors
On-site parking needs can be accommodated, but
limited parking capacity created for downtown
Creates intermodal transit presence and improves
transportation conditions in the downtown area
Provides significant cultural, civic, and convenience retail
spaces
Requires significant public private partnerships and
involvement and investment of the Town
•
•
•
•
•
•
•
•
•
Wilkes Square Redevelopment32
1. Town Annex, Education, Residential, Commercial
2. Transportation Center, Residential, Commercial
3. Parking Garage, Commercial
4. Market, Cultural, Residential, Commercial
5 Town Landing
6. Residential, hospitality, Commercial
7. Residential, hospitality, Commercial
REZONING SCENARIO I : ASSEMBLAGE/COOPERATION
(GARAGE)
Full site redevelopment undertaken with cross-boundary
ownership cooperation
Plan designed to deliver on urban design and economic
development objectives
Revised parking ratios are assumed
Chapter 91 requirements are assumed to be addressed by the
Municipal Harbor Plan process.
Total GSF: 174,000
Opportunities and Challenges
Private Sector
Shared benefits and burdens between all land owners
Environmental clean up required
Potential for 43D expedited permitting
Potential for public infrastructure funding for intermodal
transportation center
Low risk option - permitting and financing
High value potential with allowable density more than
double the status quo option
•
•
•
•
•
•
•
•
•
•
•
•
Public Sector
Substantial development capacity with public benefits with
a modest public parking program
Unlocks public access to waterfront
Improves pedestrian and bicycle safety
Makes a positive contribution to downtown Nantucket and
the Waterfront - beyond the boundaries of the site and
produces synergy
Makes positive contribution to island life year round, with
a balanced mix serving residents and visitors
On-site parking needs can be accommodated.
Significant parking capacity created for downtown
Creates intermodal transit center with affordable service
oriented retail spaces
Improves transportation conditions in the downtown area
Provides significant cultural, civic, and convenience retail
spaces
Requires significant public private partnerships and
involvement and investment of the Town
•
•
•
•
•
•
•
•
•
•
•
A
B C D
FE G
Wilkes Square Redevelopment 33
PROGRAM ExPLORATIONS
A range of program options were explored from status quo
alternatives that assume little or no public intervention or
involvement to more proactive redevelopment approaches that
assume public participation in seeding the future potentials of
the property. Each of these plans illustrates a mix of residential,
retail, hotel, and other commercial and institutional uses as well
as parking designed to meet identified market demand, the key
development feasibility parameters, and economic objectives
for the plan. The analysis assumes that economic improvements
anticipated over the next five years will deliver financial
performance and viability in keeping with past measures. Below
is the program tested from an urban design and economic stand
point.
* Public parking under shared parking: This measure assumes that
only residential units will have dedicated parking and the rest of the
parking supply will be shared by all the other uses.
Wilkes Square Redevelopment34
Wilkes Square Redevelopment 35
WILKESSQUARE CANDLE STREET
WAShINGTON STREET
OLD WhALE STREET MAIN STREETPublic Realm is the basis for the framework - the armature of
streets, public spaces, linkages, the grain of blocks, and the ground
floors of buildings. Nantucket is about water, but downtown
Nantucket has limited relationship to it. The framework unlocks the
currently private site to create various connections from the town
to the waterfront and also contemplates a network of public spaces
along it. These public spaces provide the opportunity to enjoy a
civic function or to have a meal in a restaurant or simply sit and
watch the water and boats uninterrupted by automobiles.
4:04
Public Realm
01 View from the boat basin
02 Public Realm Connections
01
01
02
02
Wilkes Square Redevelopment36
ThE TOWN LANDING
The Town Landing becomes the pivotal civic space on the
waterfront for civic functions and forms a special terminus to Main
Street. This also forms a gateway into town from Straight Wharf.
The buildings surrounding the town landing are required to have
significant public presence and access, particularly on their ground
floors. Town landing also becomes a visual organizing element
to the town and organizes various transportation functions. It will
be a focal point for various local events like the Daffodil Festival,
Christmas Stroll, Figawi Festival, and Taste of Nantucket. It will also
provide opportunities to engage year round residents, particularly
through the off-season by promoting additional events.
WILKES SQuARE
Wilkes Square monument is currently unidentifiable due to the
existing traffic movements and parking. The reorganization of
vehicular infrastructure proposed in this framework will create a
special plaza for the monument with the background of a civic
building. This will signify the gateway to downtown from the south.
STEEPLE STREET
A new east-west street between the town and the waterfront not
only enhances physical connections but also creates a vista to the
Unitarian Church from the water. These references to landmarks are
urban devices to create legibility in towns and cities.
BOAT BASIN WATERFRONT
The area of the waterfront between the Anglers’s Club and Com-
mercial Wharf is intended to be a more passive area. The existing
New Whale Street in this area will be discontinued for vehicular
access.
OLD WhALE STREET
The new north-south street between Commercial Wharf and
Main Street is a reintroduction of a historic street. The proposed
Old Whale Street is proposed on axis with the historic Macys
warehouse building. This is yet another urban device used in the
plan.
RELATIONShIP TO MAIN STREET
Main Street’s visual relationship to the water is extremely important
for Nantucket. Any new development should preserve and
maintain this view relationship. A combination of ‘the town landing’
and setting back of buildings maintains this relationship in the
proposed framework.
PETREL LANDING
Petrel Landing is a fabulous land resource presenting open views
to the water at the end of New Whale Street. The sequence of
public spaces along the Boat Basin should effectively connect and
engage Petrel Landing.MAIN STREET
TOWNLANDING MAIN STREETTOWN
LANDINGMAIN STREETSTEEPLE STREETUNITARIAN CHURCH
OLD WHALE STREET
OLD MACYWAREHOUSE
STEEPLE STREET
UNITARIAN CHURCH
OLD WHALE STREET
OLD MACYWAREHOUSE MAIN STREET
01 Composite concepts
02 Town landing
03 Steeple Street
04 Old Whale Street
05 Relationship to Main Street 01
02 03 04 05
Wilkes Square Redevelopment 37
02
Wilkes Square Redevelopment38
WILKESSQUARECANDLE STREET
WAShINGTON STREET
OLD WhALE STREET
01 View of Wilkes Square and Candle Street
02 View of the Town Landing
01
01
Wilkes Square Redevelopment 39
WILKESSQUARECANDLE STREET
WAShINGTON STREET
OLD WhALE STREET MAIN STREET01 View of the proposed Old Whale Street
02 View of the water from Main Street
01
01
02
Wilkes Square Redevelopment40
02
Wilkes Square Redevelopment 41
4:05
Circulation
The Proposed circulation is intended to enhance pedestrian and
bicycle access and safety coupled with improved movement of
automobiles through the downtown area. The introduction of Old
Whale and Steeple Streets and reorganization of the intersection
at Washington and Commercial Streets adds additional circulation
capacity for automobiles.
INTERSECTION OF WAShINGTON AND CANDLE STREETS
This intersection is currently a five-point intersection between
Washington south-bound, Commercial, Coffin, Washington
North Bound and Candle Streets. The proposal disaggregates
the intersection into two separate intersections where the fork of
Washington north-bound and Candle is separated from the rest of
the intersection. This significantly enhances pedestrian and bicycle
safety and traffic operations in this area.
NRTA BuS CIRCuLATION
A new Transportation Center is proposed in Block B of the master
plan providing all seven required berths for buses. The existing bus
routes that service Washington Street and Candle Street will be
rerouted into the Transportation Center. The buses currently travel
north from Washington Street onto Candle Street, turn left at Main
Street, and turn left again on Washington Street. This pattern adds
to the current congestion on Washington and Candle Streets. Under
future conditions, the buses will turn right from Washington Street
onto Commercial Street, turn left on Old Whale Street and turn
left again into the Transportation Center. The buses will then go
straight out of the Transportation Center to Steeple Street and cross
all the way to Washington Street, where they turn left to continue
on the exiting route. There are approximately nine buses during
each peak hour that serve this route. A fully equipped transportation
building is proposed on this block that includes ticketing facilities,
transportation offices, information center, lockers, showers, and
bicycle facilities.
10’
SIDEWALk
11’10’
SIDEWALk DRIVE LN
11’
DRIVE LN
8’
PARkING
16’
DRIVE LN
8’
PARkING
16’
SIDEWALk TOWN LANDING
OLD WhALE STREET SECTION LOOKING NORTh
OLD WhALE STREET SECTION LOOKING EAST AT TOWN
LANDING
8’10’
SIDEWALk
16’10’
SIDEWALkTAXISDRIVE LN
new WhALE STREET SECTION LOOKING NORTh
WASHINGTON ST.COMMERCIAL ST.COFF
IN
S
T
.
CANDLE ST.
WASHINGTON ST.COMMERCIAL
ST.
C
OF
F
I
N
ST
.
CANDLE ST.
Wilkes Square: Washington and Candle
existing intersection
Wilkes Square: Washington and Candle
proposed improvements
Wilkes Square Redevelopment42
10’
SIDEWALk
20’
ONE WAY STREET
> 10’
SIDEWALk
10’
SIDEWALk
11’10’
SIDEWALk DRIVE LN
11’
DRIVE LN
8’
PARkING
STEEPLE STREET SECTION LOOKING WEST
SALEM STREET SECTION LOOKING EAST
Wilkes Square Redevelopment 43
TAxI OPERATIONS
Taxi operations with respect to Hy Line are highly critical in this
area. The proposed scheme provides a dedicated space for taxi
waiting and pick up on New Whale Street between Salem and
Steeple Streets. New Whale Street is proposed to be discontinued
to vehicular access to improve pedestrian access to the waterfront.
PARKING ACCESS
There are two different parking solutions that are contemplated
in the two scenarios. One scenario maintains the existing town
parking lot in its place. In this scenario the parking lot will be
entered from and exited onto from the intersection of Salem
and Old Whale Street and exited onto Main Street. The second
scenario contains a parking garage in Block C. In this scenario the
parking garage will be entered and exited from Old Whale Street
only to distribute vehicles before entering the downtown system.
TRIP GENERATION AND DISTRIBuTION
Vehicles can enter the site at two locations, off Commercial Street
and Salem Street. Vehicles can exit the site from Commercial
Street and Main Street. There is a new drive called Steeple Street
being introduced between Commercial Street and Salem Street
across from the Transportation Center that runs one-way in the
westbound direction to Candle Street and Washington Street.
The existing volumes indicate that the majority of vehicles enter the
study area from Washington Street, with approximately 10%-15% of
traffic using Salem Street, Main Street, and Coffin Street. Vehicles
entering the study area from the south are more likely to use Com-
mercial Street to access the site, and vehicles entering the study
area from the north are more likely to use Salem Street. In addi-
tion, vehicles exiting to the north are likely to use Main Street, while
vehicles exiting to the south are likely to use Commercial Street
and Steeple Street.
The additional development, along with the additional circulation
capacity provided by the site, normalize one another in future
condition and the development does not significantly impact
downtown traffic conditions. The intersections with the highest
existing volumes are Washington Street at Main Street, Washington
Street at Salem Street, and Washington Street at Coffin Street.
The highest volume of existing traffic occurs during the weekday
midday peak hour, where there are approximately 700 – 800
vehicles at each of these intersections. The worst-case scenario
for proposed site trips occurs under zoning scenario 2 during the
weekday midday peak hour. This scenario will add approximately
95 to 150 site trips to these three intersections, increasing vehicle
traffic by approximately 12% -16%. From a level of service stand
point, no significant increases are expected except for these two
intersections.
WILKESSQUARECANDLE STREET
WAShINGTON STREET
OLD WhALE STREET MAIN STREETView of Wilkes Square traffic reorganiza-
tion and improvements to pedestrian and
bicycle safety
Wilkes Square Redevelopment44
4:06
Block Structure and
Program Elements
In the play out of a large scale undertaking like Wilkes Square,
flexibility is the key. The framework proposes to create seven
urban blocks that are highly flexible and support a range of uses.
The size and character of these blocks is intended to be identical
to that of downtown Nantucket. A multi-disciplinary analysis of
redevelopment programming alternatives was undertaken for
the site, grounded in the public’s aspirations for the property, the
market and development fundamentals described by this report
and urban design principles. The basic attributes and economic
characteristics of these program building blocks are summarized as
follows.
A VIBRANT LOCAL MARKETPLACE
Anchored by a mid-sized/multi-function grocery – modeled
after Whole Foods or Trader Joe’s in terms of merchandising,
but not necessarily these operators. The economic feasibility
could benefit from the entrepreneurial motivations of an
existing on-island operator.
The successful concept could include ancillary functions such
as a seasonal farmer’s market, a crafts market, prepared foods,
box lunches, catering or demonstration kitchen, outdoor
vending areas, café/coffee house, or other public gathering
places.
The large grocery store footprint would lend itself to other
entertainment opportunities above it for venues like a bowling
alley, arcade, climbing wall, golf practice facility, or other
indoor activity center perhaps with a youth-orientation.
The minimum size for critical mass and operational efficiency of
the grocery is 10,000 to 15,000 SF.
•
•
•
•
Notwithstanding the current zoning requirements, the
market will require parking at a minimum ratio of 1 to 1.5
spaces per 1,000 SF. These spaces can be accommodated
in a variety of ways without impacting marketability – on site
or in a common garage, provided that they are visible and
accessible and can be part of a shared pool.
The value of the existing building and the costs of new
construction create inertia and promote a status quo use that
will require incentives to overcome – prospects for higher and
better use, more profitability, a better parking arrangement,
etc. will be necessary to prompt redevelopment.
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Wilkes Square Redevelopment 45
The rental economics for new store development are thin – but
redevelopment of the existing grocery has the potential to
leverage value for other uses – on and off-site – especially if it
succeeds in creating more parking and a better anchor for year-
round activity in the downtown.
This use cannot support the cost of structured parking or other
cost premiums.
A COZY NEIGhBORhOOD OF WATERFRONT COTTAGES
Market analysis suggests a program of up to 50 units would be
viable from a demand and absorption perspective.
The supportable unit profile is small to mid-sized (<2,000SF/
unit average) – not McMansions on the Harbor.
The greatest market response (and the optimal price to
cost relationship) will be produced by an organic/Nantucket
cottage-style mix oriented to attached-townhouse and duplex
units with the potential for marketable flats above waterfront
and street facing ground floors.
The pricing is likely to fall in the mid to upscale tier (above
$750K) and can be expected to draw both seasonal and year-
round users – with an emphasis on the former.
Water views will carry a substantial premium as will direct water
frontage.
There is some potential for mixed live/work spaces, especially
where ground floors meet the commercial streets and water-
edge – but true “artist” live-work units would likely require a
subsidy.
Environmental conditions (both known and unknown) pose
the most significant impediment to residential development
feasibility at the site, as existing environmental restrictions limit
residential uses on the ground floors.
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Residential development plans for some portions of the site will
need to consider elevating living spaces above parking spaces
or additional remediation.
If the environmental issues can be managed, this use has the
most immediate development potential, given the relative
scarcity of waterfront residential opportunities and its ability to
carry the costs of new construction.
Notwithstanding the current zoning requirements, housing will
require parking at a minimum ratio of 1 space per unit. These
spaces can be accommodated in a variety of ways without
impacting marketability – on site or in a common garage – but
must be guaranteed.
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A SMALL NANTuCKET INN
Hotel markets have sustained a serious blow in the current
recession and are expected to take several years to stabilize.
Our analysis assumes a development opportunity well in the
future - 2016 or later.
Market potentials suggest that the supportable future hotel
program would contain no more than 50 rooms.
The feasibility analyses assume a seasonal (closed during
the winter and early spring months), independent operation
(probably not flagged).
Labor and operational issues for a seasonal operation add
complexity and cost that argues for a limited service facility.
Publicly accessible meeting, banquet, or a wedding venue
on the water could be provided through shared space at the
marketplace.
Likewise, any food and/or beverage service is assumed to
be delivered through an affiliation with an existing, local
restaurateur.
Notwithstanding the current zoning, on site parking would
be required at 0.5 spaces per key. These spaces can be
accommodated in a variety of ways without impacting
marketability – on site or a common garage and can be part of
a shared parking pool.
Given the high costs of development and operation, premium
costs are not supportable (permitting, environmental,
structured parking, etc.)
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Wilkes Square Redevelopment46
AN ACTIVE AND ACCESSIBLE WATER’S EDGE
Within the spirit and intent of Chapter 91, an eclectic mix of
small shops and marine-related activities landside would invite
public access to the water-edge and provide key services to
the boat basin and other users of the harbor.
The market will not support very much additional retail, so any
retail programming is expected to be modest – and is most
likely to be seasonal.
These ground floor uses might also provide the base upon
which to situate other above-grade waterfront uses including
residential and hospitality functions.
Watersheet activation concepts (oriented toward Petrol
Landing) could include public marina/boat club, boat rental
operation, public boat launch
These ground floor uses are viewed as ancillary to other
primary uses of the site
A CIVIC PRESENCE ON ThE hARBOR
Several of the alternative program options examined by this
study include a town-office annex conveniently located for
residents and town employees with parking to serve both.
The feasibility of this use is directly tied to the needs of the
town and the extent to which the creation of an annex facility
enables a more efficient operation or frees up space that might
be better deployed to other more economic purposes.
Such a facility might also allow for swing space to
accommodate both public and non-profit educational/cultural
users. However, public support or subsidies are likely to be
required.
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All of the concepts examined include space for development
of an Intermodal Transportation Center with off-street bus
berths, comfortable passenger waiting areas, visitor services
and information, central ticketing center for water and landside
activities, lockers, showers and heads for day visitors and
boaters - for all of the seasons. Such a facility is assumed to be
publicly funded primarily through State and Federal Sources.
Ground transportation queuing and parking areas, with flexible
spaces that can be reprogrammed in the off-peak months
would be a part of the site programming as would public open
space.
•
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A detailed land control strategy and financing plan will need
to be crafted to support public transportation and parking
programs.
WITh PARKING FOR ALL
The programs studied by this planning exercise assume that
parking would be provided to serve all on site redevelopment
demand.
All of the options tested, except Scenario 2 assume that
parking would be accommodated in surface lots or on new
streets created within the site.
Scenario 2 assumes that a 230-space, above grade-parking
garage would be constructed – a size sufficient to serve all but
the residential uses (which would have their own dedicated
spaces on surface), producing an excess to serve the downtown
market on the order of 120 spaces.
Our analysis demonstrates that none of the on-site
development uses examined by this study are capable of
shouldering the extra cost of structured parking construction
for their own use or others. The costs have been estimated on
a preliminary basis at between $7.5M to $10.0M or up to almost
$40,000 per space.
The ownership and financing of such an undertaking could take
many forms - public or private, taxable or tax-exempt, but we
believe that a public sector financing supported by investment
from the State and Federal governments – tied to Intermodal
Transportation Center development - is the most likely
approach to securing a garage commitment at the site.
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Wilkes Square Redevelopment 47
4:07
Project Financials
PLACEhOLDER
Wilkes Square Redevelopment48
Block C is situated immediately east of Candle Street and south of
Salem Street. It is an infill block primarily with special conditions.
This is the suggested block for a parking garage, should there be
one in this development. The scale and character of the Candle
Street facade is very important and should be carefully crafted,
particularly in the option where a parking garage is located. A
continuous street wall should be maintained on all sides of the
block. The corner of Salem and Steeple Streets is very important
as it fronts the ‘town landing.’ Special architectural expression and
ground floor treatment is important. Ground floor animation should
be maximized on all streets. Parking entry should be provided in
the middle of the block on Old Whale Street.
BLOCK COLD WHALE STREETSTEEPLE
T
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SALEM ST
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TCANDLE STREETBlock A is situated between Washington and Candle Streets at
Wilkes Square and presents a significant visual opportunity when
entering the town from Mid Island. Through the reorganization of
the intersection at Wilkes Square, a special prominence is given
to the new monument and the plaza. The prow shaped parcel
creates opportunities for a special building signifying the entry
into downtown. This building will be a backdrop to the Wilkes
Square monument and will be given special design consideration
including height exceptions. The parcel should also facilitate the
visual access to the Unitarian Church and allow for a vehicular
connection (Steeple Street) between Candle and Washington
Streets. Washington and Candle Street walls should be maintained
with active ground floor uses.
BLOCK A
Block B is situated immediately east of Candle Street and north of
Commercial Street. The southwest corner is occupied by National
Grid’s transformer facility. This facility will need to be maintained
with a 20-foot separation on all sides. The reorganization of the
Wilkes Square intersection provides additional built space between
the building and the realigned Candle Street. The built edge on
all sides should maintain a strong street wall with active ground
floor uses. Special emphasis should be given to the buildings along
Candle Street as they present an important backdrop to the entry
into downtown. The new transportation center will be located on
this block along Steeple Street. The existing historic brick building
at the northwest corner should be preserved, repurposed, and
integrated into the block. Bicycle and pedestrian connections
from the Washington and Commercial Street intersection to the
transportation should be created.
BLOCK B
4:08
Block Qualities
SALE
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Wilkes Square Redevelopment 49
Block D is a prominent parcel located at the corner of Main
Street and Candle Street as well as facing the ‘town landing.’ This
block should host an important civic program and celebrate its
presence on ‘town landing.’ Special consideration shall be given to
maintaining grand views to the water from Main Street. In addition,
creative ways of engaging the old sycamore tree should be an
important consideration. The facade facing ‘town landing’ will be
very special and should be treated with great design sensitivity.
BLOCK D
60 SPACES
The suggested parking garage is a three-story structure with the
ability to park on the roof. The foot print of a parking garage or a
market needs to be carefully handled in its design to respond to
the sensitive context of downtown Nantucket. There are several
examples of such parking garages in historic contexts around the
country that could serve as an example, should Nantucket decide
to build this garage. From a master planning perspective, the size
and location of the garage should be selected in order to have the
least visual impact on the context. It is also recommended that
the garage have flat floors with speed ramps to use various floors
including the roof top for other uses and events during the off-
peak seasons.
No. of Spaces: 230
Ground Floor: 50 spaces; Typical Floor: 60 spaces
ThE PARKING GARAGE
60 SPACES
MAIN STRE
ETSALEM S
TREET
OLD WHALE STREETC
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Wilkes Square Redevelopment50
Block E is situated on the waterfront at the end of Main Street. This
is ‘town landing’
BLOCK E
Block F is situated prominently on ‘town landing’ near the
waterfront. Special consideration should be given to the massing
and facade that faces the ‘town landing.’ A continuous street wall
should be maintained on all facades with possible exception along
New Whale Street where breaks are allowed to take advantage of
the views to the water. Special attention should be given to the
connection to and engagement of the Old South Wharf.
BLOCK F
Block G is located at the end of Commercial Street with
uninterrupted views to the water. A continuous street wall should
be maintained on all facades with a possible exception along
New Whale Street where breaks are allowed to take advantage
of the views to the water. The existing historic brick building in
the middle of the block should be preserved, repurposed, and
integrated into the block. Ground floors should be highly animated
and publicly accessible, particularly on the waterfront side.
BLOCK G
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Wilkes Square Redevelopment 51
Height and Massing
Wilkes Square Redevelopment
Nantucket
Old Whale Street Elevation
Main Street Elevation
Steeple Street Elevation
40’30’
40’
30’
40’
30’
40’
30’
Salem Street Elevation
BLOCK F BLOCK ESALEM STSTEEPLE STCOMMERCIAL STBLOCK F BLOCK D
(PROPOSED
MAREKT)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STBLOCK E BLOCK D
(PROPOSED
NRTA)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STBLOCK A
BLOCK F BLOCK D
(GARAGE)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STORANGE STBOAT BASIN
BOAT BASIN
BLOCK G(TOWN LANDING)UNION STUNION STDowntown Nantucket is a world heritage site with a great
architectural history. Wilkes Square Redevelopment attempts to
respect the quality of architecture and scale of the downtown while
catering to contemporary needs. To this end, the generic height of
most of the development is kept at 30’ while allowing for specific
exceptions to go upto 40’. This variation is found through out the
downtown area and creates visual interest and dynamism. This
variation also allows to maintain the densities for development
while providing public benefits like new streets, waterfront access
and town landing.
4:09
Massing and height
Wilkes Square Redevelopment52
Height and Massing
Wilkes Square Redevelopment
Nantucket
Old Whale Street Elevation
Main Street Elevation
Steeple Street Elevation
40’
30’
40’
30’
40’
30’
40’
30’
Salem Street Elevation
BLOCK F BLOCK E
SALEM STSTEEPLE STCOMMERCIAL STBLOCK F BLOCK D
(PROPOSED
MAREKT)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STBLOCK E BLOCK D
(PROPOSED
NRTA)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STBLOCK A
BLOCK F BLOCK D
(GARAGE)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STORANGE STBOAT BASIN
BOAT BASIN
BLOCK G
(TOWN LANDING)UNION STUNION STHeight and Massing
Wilkes Square Redevelopment
Nantucket
Old Whale Street ElevationMain Street Elevation
Steeple Street Elevation
40’30’40’30’
40’
30’
40’
30’
Salem Street Elevation
BLOCK F BLOCK ESALEM STSTEEPLE STCOMMERCIAL STBLOCK F BLOCK D(PROPOSEDMAREKT)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STBLOCK E BLOCK D
(PROPOSED
NRTA)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STBLOCK A
BLOCK F BLOCK D
(GARAGE)NEW WHALE STCANDLE STWASHINGTON STOLD WHALE STORANGE STBOAT BASIN
BOAT BASINBLOCK G(TOWN LANDING)UNION STUNION STWilkes Square Redevelopment 53
Wilkes Square Redevelopment54
05 Implementation
Wilkes Square Redevelopment 55
Promoting redevelopment beyond the status quo options will
require public leadership and investment. The site must be
rezoned to provide incentives for development in accordance with
Nantucket’s vision. Chapter 91 relief must be sought. Greater
certainty and speed must be created in the local approval process.
More must be done to understand how a relocation of the tank
farm can be implemented. Environmental costs and risks must
be identified and evaluated. A public financing plan, operating
plan, and a land control strategy must be devised to create an
intermodal transportation center (that may or may not include
a public garage) and to support the necessary infrastructure
investments on and off-site.
We note that the economics of development in Nantucket - even
in good times – cannot support the premium costs associated with
extensive environmental remediation, structured parking, or major
new infrastructure investments. Public funding sources will be
needed to support these costs – in all likelihood with some par-
ticipation and investment at the local level. The most critical next
steps include developing:
IMMEDIATE NExT STEPS
The first step after this study is for the Town of Nantucket
to analyze the recommendations and develop scope for a
detailed implementation study
Conduct an Implementation Study that accomplishes the
following:
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5:01
Implementation
Community Discussion
Form an inter-agency group
(DRC, HDC, Planning, Town
Association, Land Bank, land
owners Etc.)
Reprioritization of objectives
Develop a scope for
implementation study
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0 6 mo 24 mo
Implementation Study
Rezoning Plan and
Implementation
Revised program to meet
priorities (public vs. private
and garage vs no garage)
Public Private Partnership
Structure
Municipal Harbor Plan
Infrastructure Financing
Garage Financing, Pricing
and Operation
Chapter 43D designation
Land Appraisals
Land Control/Ownership Plan
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Phase I implementation
Funding procurement
Infrastructure construction
43D approvals
Land Acquisitions/Transfers
(if needed)
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48 mo
Phase II implementation
Funding procurement
Infrastructure construction
43D approvals
Phase II Implementation
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IMPLEMENTATION STEPS AND TIMELINE
Wilkes Square Redevelopment56
AN APPROACh TO ENTITLEMENTS ThAT BuILDS
CONSTITuENT SuPPORT
A flexible zoning framework with clearly articulated and
predictable parking and design standards that are supported
by local constituent groups (guidelines and trade-offs not
prescriptions)
A Municipal Harbor Plan that provides relief from the
prescriptive requirements but not the objectives of Chapter 91
A Massachusetts Chapter 43D designation that provides
expedited permitting for land owners/developers that works
within the guidelines of an approved Masterplan
A PuBLIC PRIVATE PARTNERShIP TO DRIVE IMPLEMENTATION
CRAFTED AROuND OPPORTuNITIES FOR:
Intermodal transportation and smart growth
Public parking and infrastructure improvements
Public access to the waterfront
Brownfields redevelopment
Downtown revitalization
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A MIxED FINANCE PLAN ThAT LEVERAGES CONSTITuENT
FINDING INTERESTS IN:
Intermodal transportation
Sustainable/green design
Smart growth
Historic preservation
Continuing education
Brownfields redevelopment
Downtown revitalization & public parking
Public access to the waterfront & watersheet
Bicycle and pedestrian paths
Beautification/scenic preservation/urban design
Maritime history/cultural preservation
Arts & culture
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AND INCLuDES PuRSuIT OF POTENTIAL FuNDING SOuRCES
SuCh AS:
Federal Transportation Administration
National Endowment for the Arts
US Department of the Interior
National Endowment for the Humanities
US Environmental Protection Agency
Mass Executive Office of Finance and Administration
Mass Development Finance Agency
Mass Health & Education Finance Agency
Mass Cultural Council
Mass Exec. Office of Transportation
Mass Department of Transportation
Mass Dept. of Environment Management
Mass Dept. of Conservation and Recreation
Mass Technology Collaborative
Mass Renewable Energy Trust
Office of Community Development
Local DIF/TIF/BID
Municipal Bonds
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Wilkes Square Redevelopment 57
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06 Process Sketches
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