HomeMy Public PortalAbout2021_0330_TC Packet_Central Business District Zoning Amendment TOWN OF WATERTOWN
1630 Department of
• - Community Development and Planning
PLANNING BOARD
Administration Building Board Members:
149 Main Street Jeffrey W. Brown, Chairman
Watertown, MA 02472 Janet Buck
Phone: 617-972-6417 Jason Cohen
Fax: 617-972-6484 Payson R.Whitney, III
www wtertown-ma.gov
PLANNING BOARD REPORT
This Report provides the Planning Board's recommendation to the Honorable Town Council for
the Council's public hearing on a Zoning Text Amendment to Section 5.01 and 5.03 (notes),
relating to the Central Business Zoning District.
ZONING AMENDMENT: Article V, Tables of District Regulations, Amend
Section 5.01 and 5.03 (notes), Central Business
Zoning District
DATE OF FIRST READING: January 19, 2021
DATE OF PLANNING BOARD HEARING: March 10, 2021
PLANNING BOARD RECOMMENDATION: Adoption (4-0)
I. PUBLIC NOTICE
A. Procedural Summary
As required by the Watertown Zoning Ordinance §9.22, notice of the Planning Board's March 10
hearing was given as follows:
• Published in the newspaper of record (Watertown Tab) on February 19 and 26, 2021
• Posted at the Town Administration Building on February 11, 2021
B. Planning Board Public Notice
1. Section 5.01 Table of Use Regulations
Change the designation from "N"to "Y"under the column labeled "CB"in each of row 5.a.1,
5.b.1, 5.e.1, and 5J.1; and from "N"to "N(17)"under the column labeled "CB"in each of row
5.a.2, 5.b.2, 5.e.2, and 5J.2., to allow Light Industry, Non-nuisance Manufacturing,
Laboratories/Research, and Renewable Research.
2. Section 5.03 Notes to Table of Use Regulations
Insert after note 16"(17) To further the preservation, continuing the adaptive reuse, and
modernization of existing, meaningful older buildings in Watertown Square, conversion greater
of 4,000 s.f. of building area is permitted subjected to Site Plan Review as provided in§9.03, if a
structure existed before the adoption of the Zoning Ordinance on March 29, 1937."
Zoning Amendment March 30,2021
Sections 5.01 and 5.03: Central Business Zoning District Planning Board Report
II. DESCRIPTION
A. Background
Applicant Berkeley Investments has acquired the Sasaki Associates, Inc. parcel (64 Pleasant
Street) and is considering options for reusing the former Chase Mills complex with uses that
would include a mix of office, lab, and small-scale manufacturing. The site consists of 2.6 acres
in the Central Business (CB)Zoning District, which currently does not allow lab and related uses.
The proponent consulted with Community Development and Planning staff and developed a
Zoning Amendment that would allow such uses only in structures that existed prior to the 1937
adoption of the Watertown Zoning Ordinance. For structures up to 4,000 square feet,
conversion would be by right, but if greater than 4,000 sf, conversion would require site plan
review. This would apply throughout the Central Business (CB)Zoning District.
B. Nature of the Request
The proposed Amendment changes Section 5.01 (Table of Use Regulations)to allow Light
Industry, Non-nuisance Manufacturing, Laboratories/Research, and Renewable Research in the
CB District and adds a note (17)to Section 5.03 to allow such uses in structures that existed prior
to the 1937 adoption of the Watertown Zoning Ordinance, by right up to 4,000 square feet and
with site plan review if greater than 4,000 sf.The proposed text is in the last section of this
report.
III. STAFF FINDINGS AND RECOMMENDATION
The 2015 Comprehensive Plan and 2011 Strategic Framework for Economic Development
contain goals and implementation recommendations that support the proposed zoning
amendment. Although the Plan targets life sciences and advanced manufacturing as key
industry clusters, this has not been previously allowed in the Central Business District as it has
been seen as an area for Retail and some office uses. The proposed amendment has addressed
this issue by limiting the locations where these uses are allowed to historic buildings. By doing
this it will allow for the preservation of the character of some of these existing buildings through
adaptive reuse,while not allowing for wholesale redevelopment of the Central Business District.
Therefore,these plans do support the proposed amendment:
• Three Comprehensive Plan elements (land use, economic development, and historic
and cultural resources) stress the importance of redevelopment of existing structures,
particularly those that are vacant or underutilized, and have historic value. Similarly,
the Economic Development Framework emphasizes the importance of redeveloping
underutilized properties and notes the steep cost of rehabilitating historic structures.
Recommendation 2C of the historic/cultural resources element suggests "zoning relief
for projects that preserve historic resources." The proposed zoning amendment
appropriately differentiates between new developments and adaptive reuse of pre-
1937 structures.
• The Plan's land use and economic development elements discuss the importance of
maintaining and strengthening the economic vitality of the Town's corridors and
squares. At the same time, its land use and transportation elements note the need for
traffic and pedestrian/bike improvements in Watertown Square. The proposed
amendment supports this balancing of interests in Watertown Square. With life
sciences such a hot industry at present, proposed redevelopment will allow for
Page 2 of 6
Zoning Amendment March 30,2021
Sections 5.01 and 5.03: Central Business Zoning District Planning Board Report
improved infrastructure on and around any proposed sites. However, laboratory uses
have lower employee density than office uses so proposals are unlikely to add to traffic
conditions in Watertown Square.
The proposed amendment allows lab, manufacturing, and related uses in smaller portions of
existing pre-1937 buildings (up to 4,000 sf) by right. This is consistent with language in other
zoning districts allowing a by right process for smaller spaces and allows a larger office or
commercial building to have flexibility for the use of a portion for a demonstration or small test
facility for a tenant. The Comprehensive Plan notes in the economic development element that
flexible, right-sized spaces are desirable within the Town's key industry clusters.
The rationale for a more comprehensive approach for buildings built prior to the Zoning
Ordinance was suggested by DCDP Staff to allow creative reuse of buildings within the district.
This flexibility would clearly allow lab type uses but would also allow for other uses in the
creative/maker economy that are often classified as light industrial/manufacturing in nature. A
few examples identified during the Comprehensive Plan process include uses such as certain
brewers, bakers, and ice cream manufacturing facilities with storefronts but also primarily
intended to make products for offsite use.
Based on this, staff supported a recommendation by the Planning Board to the Town Council of
approval of the requested change in zoning for the CB District.
IV. PUBLIC COMMENT
Seven people spoke during the public hearing. Curtis Whitney said he supported the proposed
redevelopment of Chase Mills and conversion to lab/R&D uses, citing the quality of the
developer and proposed adaptive reuse. However, Whitney said this could be accomplished
with a smaller overlay district that would allow Watertown Square to focus on small businesses.
Two other members of the public supported this view. Councilor Kounelis expressed concern
about the number of lab/office buildings proposed throughout the Town and the possibility of
market saturation, with the risk that these sites would have insufficient parking for other uses.
Councilor Piccirilli strongly supported the proposed zoning amendment, stressing the
importance of preserving the historic structures that are a key part of Watertown Square's
urban fabric. James Miner,the Chief Executive Officer of Sasaki, said he had worked at 64
Pleasant Street for 24 years; he and others at the company feel great attachment to the
complex. Sasaki saw the need to update the systems and couldn't afford to do that. When
Sasaki put the property on the market, it had interested buyers who would demolish the
structure and propose an office or housing use allowed in the CB District.
Councilor Donato and Piccirilli provided additional comments relating to a potential restriction
on the geographic area of the amendment, suggesting that flexibility across the entire district
was appropriate.
V. PLANNING BOARD DELIBERATION AND RECOMMENDATION
Board members asked a number of questions to clarify the proposed amendment. Member
Buck inquired about the scope of proposed uses; Applicant said that the reference to
"renewable" energy was part of the research category and not for on-site creation of renewable
energy (other than roof solar arrays or equivalent). Staff said that the proposed uses could
include possible storefront uses like brewers, bakers, maker and other creative economy spaces.
Page 3 of 6
Zoning Amendment March 30,2021
Sections 5.01 and 5.03: Central Business Zoning District Planning Board Report
Chair Brown confirmed that the Applicant could convert the 64 Pleasant Street property with
the present floor to ceiling heights. Member Cohen clarified the definition of adaptive reuse.
Staff said there could be fagade changes or other interior building alterations (as allowed
through building permits), but that this proposed zoning amendment was about a change in use,
not about the physical building, and that above 4,000 sf changes in use would be subject to site
plan review.
Member Whitney asked how many other parcels would be eligible for the additional uses.
Applicant said he recalls the number of buildings built since 1937 and over 4000 s.f. as around
13. Staff said it is hard to know the total number of eligible buildings without further study,
because some of the older buildings may be too small to be appropriate for the additional uses
and that any project would need to verify the age of construction.
Board members considered the option of creating a smaller overlay district or narrowing the
geographic definition of the proposed amendment. Councilor Donato, as a member of the
public, expressed concern that if the amendment limited the parcels that appropriate buildings
might be unintentionally excluded. Member Cohen said he would not limit the geographic
scope of the amendment. Councilor Piccirilli, as a member of the public, said he still supported
the amendment as proposed. The Board voted 4-0 to recommend adoption of the zoning
amendment.
V. PROPOSED ZONING LANGUAGE:
Following the Planning Board hearing, staff determined that the proposed language should be
revised to clarify that the new uses would only be allowed in existing structures built prior to the
Zoning Ordinance adoption of March 29, 1937, regardless of whether they are below or above
4,000 sf in area.The language, as revised, is consistent with the proposal as presented to the
Board. Below is the language initially proposed and the language as revised.
INITIAL LANGUAGE:
1. Section 5.01 Table of Use Regulations
Change the designation from "N"to "Y" under the column labeled "CB" in each of row 5.a.1,
5.b.1, 5.e.1, and 5.j.1; and from "N"to "N(17)" under the column labeled "CB" in each of row
5.a.2, 5.b.2, 5.e.2, and 5.j.2., to allow Light Industry, Non-nuisance Manufacturing,
Laboratories/Research, and Renewable Research.
2. Section 5.03 Notes to Table of Use Regulations
Insert after note 16:
(17)To further the preservation, continuing the adaptive reuse, and modernization of existing,
meaningful older buildings in Watertown Square, conversion greater of 4,000 s.f. of building
area is permitted subjected to Site Plan Review as provided in §9.03, if a structure existed
before the adoption of the Zoning Ordinance on March 29, 1937.
LANGUAGE AS REVISED:
1. Section 5.01 Table of Use Regulations
Change the designation from "N"to "N(17)" under the column labeled "CB" in each of row
5.a.1, 5.b.1, 5.e.1, and 5.j.1; and from "N"to "N(17)" under the column labeled "CB" in each of
Page 4 of 6
Zoning Amendment March 30,2021
Sections 5.01 and 5.03: Central Business Zoning District Planning Board Report
row 5.a.2, 5.b.2, 5.e.2, and 5.j.2., to allow Light Industry, Non-nuisance Manufacturing,
Laboratories/Research, and Renewable Research.
2. Section 5.03 Notes to Table of Use Regulations
Insert after note 16:
(17)To further the preservation, continuing the adaptive reuse, and modernization of existing,
meaningful older buildings in Watertown Square, if a structure existed before the adoption of
the Zoning Ordinance on March 29, 1937,conversion of a building or portion of a building area
of less than 4,000 s.f. is allowed by right and conversion greater of 4,000 s.f. of building area is
permitted subjected to Site Plan Review as provided in §9.03.
Relevant excerpts from the Table of Use Regulations are redlined on the next page.
Page 5 of 6
Zoning Amendment March 30, 2021
Sections 5.01 and 5.03: Central Business Zoning District Planning Board Report
As a Principal Use 5. Light Industry,Wholesale,Laboratory
NB LB CB I-1 I-2 0 PSCD ISC RMUD
Light Industry
1.All non-conversions;and,new
a. construction and conversions up to 4,000 N N N(17) Y Y Y SP N SP
s.f.ofbuilding area
2.New construction or conversion greater N N N(17) SP/SR SP/SR SP/SR SP/SR N SP/SR
than 4,000 s.f.of building area
Non-nuisance manufacturing
1.All non-conversions;and,new,
b. construction and conversions up to 4,000 N N N(117) Y Y Y SP N Y
s.f ofbuildinq area
2.New construction or conversion greater N N N(17) SP/SR SP/SR SP/SR SP/SR N SPISR
than 4,000 s.f.of building area
Office,including but not limited to
administrative,executive,professional,
and similar offices.
All non-conversions;and,new
C. 1.construction and conversions up to 4,000 N N Y Y Y Y Y N Y
s.f ofbuildinq area
2.New construction or conversion greater N N SP/SR SP/SR SP/SR SP/SR SP/SR N SP/SR
than 4,000 s.f.of building area
d Public or bonded warehouse,parcel or N N N N N N N N N
goods distribution.
Laboratories engaged in research,
experimental and testing activities,
including but not limited to the fields of
biology,chemistry,electronics,
engineering,geology,medicine,and
e. _.physics._._._._._._._._._._._._._._._._._._._._._._._..
1.All non-conversions;and,new
construction and conversions up to 4,000 N N N(17) Y Y Y Y N Y
s.f.ofbuilding area
2.New construction or conversion greater N N N(17) SP/SR SP/SR SP/SR SP/SR N SP/SR
than 4,000 s.f.of building area
f. Motor Vehicle Repair N N N SP SP SP N N N
g. Motor Vehicle Body Work N N N SP(4) SP(4) SP(4) N N N
h. Wholesale business,warehouse. N N N SP/SR SP/SR SP/SR SP/SR N SP/SR
i. Self-Service Storage Facility. N N N SP(9) SP(9) N N N N
Renewable or alternative energy research,
1' develo ment or manufacturin facili
._l�.............................9 _ ._._._..
1.All non-conversions,and,new
construction and conversions up to 4,000 N N N(17) Y Y Y Y N Y
s.f ofbuildinq area
2.New construction or conversion greater N N N (17) SR SR SR SR N SR
than 4,000 s.f.of building area
k. Medical Marijuana Treatment Center(16) N SP SP SP SP SP SP N SP
I. Adult Use Marijuana Establishment(16) N SP SP SP SP SP SP N SP
m. Marijuana Testing Laboratories N N N SP SP SP SP N SP
Page 6 of 6
lston&storrs
counsellors at iaw
Christian G.Regnier
cregnier@goulstonstorrs.com
(617)574-6591(tel)
January 20, 2021
VIA EMAIL ONLY
Mark S. Sideris,President
Town Council of Watertown
149 Main Street
Watertown,MA 02472
Email: msideris(&watertown-ma.2ov
Re: Proposed Zonin,2 Amendment for Central Business(CB)District
Dear Council President:
We are counsel to Berkeley Investments ("Berkeley")and coordinating with Sasaki Associates,
Inc.,the owner of property located at 64 Pleasant Street(the"Property"). On behalf of the property
owner,we are pleased to submit for the Council's consideration the enclosed proposed zoning
amendment for the CB District. Also enclosed are a Statement in Support of the zoning amendment and
authorization from Sasaki for Berkeley to represent it regarding the zoning amendment.
As detailed in the Statement of Support,the zoning amendment will allow the adaptive reuse of
historic buildings in the CB District and diversify employment opportunities in Watertown Square with
reduced construction-period impacts. We look forward to working with the Town Council,Planning
Board, Planning Staff and other boards,committees and interested parties on this exciting amendment.
We respectfully request the Town Council schedule this zoning amendment for the First Reading
and referral to the Planning Board at its next available hearing date.
Should you have any questions,please do not hesitate to contact me. Thank you.
Sincerely,
Christian Regnier
f
Attorney for Berkeley
Enclosures
cc: Steven Magoon,Director of Community Development&Planning
Gideon Schreiber, Senior Planner, Community Development&Planning
Goulston&Storrs PC Boston DC New York
400 Atlantic Avenue, Boston, Massachusetts 02110-3333 (617)482-1776 Tel www.goulstonstorrs.com
STATEMENT IN SUPPORT OF PROPOSED ZONING AMENDMENT
Historic buildings, such as those within the Chase Mills property in Watertown Square, are part
of Watertown Square's fabric. However,the costs to upkeep these buildings and bring them up to modern
accessibility, code, engineering and life safety standards, including to create a safe working environment
within the context of the pandemic, are substantial and frequently infeasible. Often in the life cycle of
these buildings, continued investment may not be economically justifiable. The zoning amendment
detailed below seeks to encourage the continued reinvestment in and preservation of these historic
buildings by enabling their adaptive reuse for lab/life science uses.
A. Pronosed Zoning Amendment(the"Amendment")
The Amendment would allow the conversion of existing, older buildings to lab/life sciences uses
within the Central Business(CB)District,which encompasses much of Watertown Square,including the
Chase Mills property located at 64 Pleasant Street. The uses allowed for such conversion would include:
(i) "Laboratories engaged in research, experimental and testing activities,including
but not limited to the fields of biology,chemistry, electronics, engineering,
geology,medicine, and physics";
(ii) "Light Industry";
(iii) "Non-nuisance manufacturing"; and
(iv) "Renewable or alternative energy research, development or manufacturing
facility"(collectively,the"Lab and Related Uses").
Currently,none of the Lab and Related Uses are allowed within the CB District. The Amendment would
allow(i)up to 4,000 sf of Lab and Related Uses as of right, and(ii) greater than 4,000 sf of conversion to
Lab and Related Uses subject to site plan review within structures pre-existing the adoption of the
Watertown Zoning Ordinance on March 29, 1937.The pre-existing structure qualification allows the
Amendment to pertain to the CB District generally,while limiting applicability to buildings that are
appropriate for and would benefit from preservation.
B. Adaptive Reuse Annroach
The Amendment aims to encourage continued reinvestment in historic buildings in and around
Watertown Square, and as a result, increase and diversify employment opportunities within the CB
District. Specifically,the Amendment supports the modernization of existing building space rather than
demolition and new construction. This adaptive reuse approach to historic preservation results in cleaner,
higher-efficiency, accessible buildings,without increasing density or materially increasing impacts. Such
adaptive reuse is significantly less impactful and more sustainable when compared to new construction.
Page 2
Moreover,the resulting upgraded space is intended to be re-tenanted with companies focusing on lab/life
science uses, expanding the range of employment opportunities available in the CB District.
Lab/life science businesses themselves are diverse in size, from start-ups with seed funding to
maturing research and development firms introducing therapies, as well as in employee makeup,with job
opportunities for lab technicians, accountants,PhDs,marketing specialists and more. The Amendment
will support downtown economic growth and vitality by creating opportunities for early stage life science
and biotech businesses to establish themselves in and near Watertown Square.
C. Consistencv with Watertown Planning
The Amendment is consistent with the Strategic Framework for Economic Development(the
"Framework"),which identifies life sciences as"an opportunity for further [economic] growth in
Watertown."For example,the Framework recognizes that"as [life science] firms have grown and moved
from research to product development to production and distribution, some have moved to surrounding
suburbs [outside of Boston and Cambridge] ... in search of larger and lower-cost facilities."The
Framework further recognizes that Watertown already hosts"a number of smaller firms conducting
pharmaceutical research."The cost efficiency of adaptive reuse that avoids new construction can unlock
competitive rents that attract expanding firms and retain smaller firms.
The Amendment also is consistent with Comprehensive Plan,which shows Watertown Square as
a Commercial Mixed Use Area intended"to be enhanced ... with mixed land uses where commercial
development is the primary use,including light industrial [and] research and development"uses.
Importantly,Watertown Square is identified as one of Watertown's"Established Commercial Squares."
The Amendment aims to continue the commercial vitality of this location,expanding and stabilizing the
potential employment base of the CB District with a vital industry.
D. Conclusion
The proposed zoning amendment allows the enhancement of historic buildings within the CB District.
Introducing life science businesses enables diversification of employment opportunities that can further
activate Watertown Square and support local retail and restaurants.Adaptive reuse of existing buildings
delivers modernized facilities with reduced construction-period impacts.
4837-7269-0903,v.2
PROPOSED ZONING AMENDMENT
Pursuant to the provisions of Massachusetts General Laws, Chapter 40A, Section 5 and
the Town of Watertown Zoning Ordinance Sections 9.20 and 9.21 the undersigned owners of
land to be affected by this submission, hereby submit to the Honorable Town Council of the
Town of Watertown the following proposed Zoning Amendment:
That the Town Council amend the Watertown Zoning Ordinance as follows:
Section 5.01 Table of Use Regulations
Change the designation from "N"to "Y"under the column labeled"CB" in each of row 5.a.1,
5.b.1, 5.e.1, and 5.j.1.
Change the designation from "N"to "N(17)"under the column labeled"CB" in each of row
5.a.2, 5.b.2, 5.e.2, and 5.j.2.
Section 5.03 Notes to Table of Use Regulations
Insert after note 16 "(17) To further the preservation, continuing adaptive reuse, and
modernization of existing, meaningful older buildings in Watertown Square, conversion greater
than 4,000 s.f. of building area is permitted subject to Site Plan Review as provided in §9.03, if a
structure existed before the adoption of the Zoning Ordinance on March 29, 1937."
Or to take any other action relative thereto.
4828-2272-8142,v. 8
The Parcel ID number of the affected parcel is#202 1 E U 64 Pleasant Street.
Respectfully submitted on this 20th day of January, 2021.
By: �
Sas i Associa nc.,and its successors-in-interest
Parcel ID 4202 1 E U
64 Pleasant Street
4828-2272-8142,v.8
The undersigned, owner of 64 Pleasant Street(Parcel ID#202 1 E 0) hereby authorizes Berkeley
Investments, Inc., to represent it for purposes of the proposed zoning amendment affecting the
property.
By:
Sas ' Asso
Parcel ID#202 1 E 0
64 Pleasant Street
4828-2272-8142,v,8