Appendix D: Environmental Assessment

1.0 INTRODUCTION

The National Park Service (NPS) has prepared this Environmental Assessment (EA) for the purpose of presenting a range of Management Alternatives to Congress and describing the respective environmental consequences of each option presented in this study. These management alternatives have been developed by the NPS pursuant to the New Bedford Special Resource Study.

A Special Resource Study is used by the NPS to evaluate a resource for national significance and to assess its suitability and feasibility for inclusion into the National Park System. As part of this special resource study, the study team developed and is now presenting a range of possible management alternatives, but has not identified a proposed or preferred alternative. The management alternatives represent possible options for use and protection of the resource, with various levels of Federal, state, local, and private involvement.

Upon completion of the New Bedford Special Resource Study and final NPS approval of its form and contents, this study will be transmitted to Congress. Ultimately, Congress will decide on the appropriate course of action. At that time, legislation may be introduced by Congress to authorize a new unit of the National Park System.

Purpose and Need for the Study:
Located in southeastern Massachusetts on Buzzards Bay, the city of New Bedford possesses historic and cultural resources representative of its rich and diverse past. As the 19th century whaling capital of the world, New Bedford was immortalized in Melville's literary classic, Moby Dick. In turn, the city became a major area for the manufacture of textiles, overseas shipping and is currently one of the most active fishing ports on the eastern seaboard. The city was also notable as a port of entry for many immigrant groups, particularly those arriving from the Cape Verde Islands.

In order to preserve and better use these resources, the city of New Bedford and local citizen's groups joined in collaboration with the Massachusetts Department of Environmental Management (DEM) to create the New Bedford Heritage State Park in 1989. The effort resulted in the creation of a master plan for the park, however state and local budgetary constraints made full implementation of that master plan infeasible. In 1990, representatives of the city and community groups approached their Congressional delegation seeking further assistance for the preservation of their waterfront resources.

In 1991, Congress directed the National Park Service to prepare a Special Resources Study of New Bedford's historic central and waterfront areas. The North Atlantic Regional Office of the National Park Service, in cooperation with the Waterfront Historic Area League (WHALE), was charged with preparing the study. In order for an area to become a National Park unit, it must meet all three criteria identified in the NPS "Criteria for Parklands" of national significance, suitability, and feasibility. The study process also calls for the development of a range of management alternatives for the study area. During the preparation of the study, other recent planning efforts were considered including the New Bedford State Heritage Park plan completed in 1989 and the city's harbor planning effort which continues under the guidance of Massachusetts Coastal Zone Management.

Having applied the "Criteria for Parklands," the NPS study team reached the following conclusions:

The New Bedford National Historic Landmark District and adjacent sites represent an outstanding example of buildings, sites, and streets associated with the nineteenth century whaling industry, a subtheme not fully represented in the National Park System. The Landmark District and historic sites also have exceptional value in representing the theme of maritime history. The study concludes that the Landmark District, and the Schooner ERNESTINA, meet the criteria for national significance as well as suitability and feasibility for inclusion in the National Park System.

2 .0 DESCRIPTION OF STUDY AREA

Physical Description:
In general. The Study Area is composed of approximately 13 city blocks reaching from the waterfront westward into New Bedford's Central Downtown district (See Maps 2 and 3 in Study). The resources involved represent a broad array of business, residential, and institutional structures that convey the importance, diversity, and financial power of the whaling era. These structures continue to be used to serve the material (ships chandleries, and supply houses) and social needs (restaurants, clubs, and taverns) of the waterfront community, as well as, the business and institutional needs of the city's broader population. The study's assessment of national significance concluded that "taken together, the National Historic Landmark district, the National Landmark ERNESTINA, and the other historic resources present at New Bedford clearly meet the criteria for national significance. If the story of whaling, with the human themes that are rightfully embraced within it, is to be preserved and presented anywhere, New Bedford is the logical and most suitable location to do so."

The Harbor. The broad harbor that New Bedford shares with the Town of Fairhaven is the most prominent natural feature of the area. Located at the mouth of the Acushnet River, the harbor is presently the home port of a contemporary fishing fleet that has the most valuable catch (in dollar value) of any port in the country.

During its heyday as a whaling port over 200 whaling vessels sailed from New Bedford. New Bedford's spacious harbor contributed to its success as a whaling port (in contrast to Nantucket's bar-blocked harbor), as well as to its continued use by a substantial deep sea fishing fleet.

In the 1950's, a hurricane dike was developed to shield the harbor from the open sea and protect the waterfront from major storm damage. The development of the dike was a direct response to extreme storm damage experienced during that decade resulting in the destruction of a considerable portion of the fishing fleet.

Architecture and Streetscape. The following description draws heavily from the National Register nomination form for the New Bedford Waterfront Historic District dated January, 1978, and the study's significance statement (See Map 3 in Study).

The New Bedford Historic District, bounded by portions of Acushnet Avenue and of Elm, Water, Rodman, Front, Commercial, and Union Streets, is comprised of eleven city blocks and part of a twelfth, totaling some 19.6 acres. Within this area, some 20 buildings, most of them constructed between 1810 and 1855, are significant examples of the architectureal types to be found in the commercial district of a major New England seaport of that period. In addition to the primary buildings, such as the Custom House and the banks, the District contains good examples of smaller Federal and Greek Revival buildings with shops on the ground floor and living quarters above, and several gable-roofed warehouses of brick or stone, two and one-half to four stories in height.

The Historic District is separated from New Bedford's still active waterfront, immediately to the east, by the John F. Kennedy Expressway (Route 18), a limited access highway providing a link to Interstate Route 195. To the north and the south of the district are areas devoted to mixed commercial-industrial use. On the west is New Bedford's central business district.

A number of non-historic, non-contributing structures exist within the District. Chief among these structures are a gas station at the corner of Second and Union Streets and a parking stucture and lot which occupy most of the block bounded by Acushnet Avenue, Barkers Lane, Second and William Streets. A parking structure also exists on Elm Street at the corner of Second Street. Many buildings in the area have been turned to new commercial uses and their character affected by inappropriate signing and changes in fenestration.

Among the buildings of primary interest in the District are the following:

United States Custom House: Designed by Robert Mills, architect of the Washington Monument, and constructed by Seth H. Ingalls in 1834-36, this two-story granite ashlar building has a giant Doric portico and low hipped roof. An outstanding example of a Greek Revival public building, this imposing structure testifies to the economic importance of New Bedford at its peak and illustrates the registration and record-keeping aspects of whaling and its contribution to government revenues.

New Bedford Institution for Savings. Designed by Russell Warren and erected in 1853; a one-story structure in Renaissance Revival style with brownstone front, brick sides and rear. With the Double Bank it conveys the commercial aspects of whaling and gives a sense of the economic impact of the industry.

Benjamin Rodman House. This Federal style mansion, built in 1820- 21, exemplifies how the wealth created by whaling was translated into substantial, commodious residential architecture, yet tempered by the restrained Quaker taste.

Mariners Home. Built circa 1790 as the residence of merchant William Rotch, Jr. and moved from the original location at William and North Water Streets, this Federal style building with clapboard front, brick ends, hipped roof, center hall plan with good detail and paneling. Beginning in 1857 it offered (and still offers) lodging to visiting sailors, thus representing the lives and concerns of ordinary seamen.

Seaman's Bethel. Described by Melville in Moby Dick, this two-story frame church was built in 1832. It was rebuilt in 1867 after a fire, at which time the front elevation was redesigned and the present tower added. Everything about this structure, in which worship services are still offered reminds us of the sea and its dangers.

Whaling Museum. Sponsored by the Old Dartmouth Historical Society, this massive 20th century building in Georgian Revival style houses extensive collections illustrating the history of the whaling industry.

Double Bank. Built in 1831 from designs by Russell Warren in the Greek Revival, Ionic temple style, the steps, foundation, and front wall of polished granite, with the remainder of brick. The portico supported by eight wooden columns, and an interior wall divides this "temple of finance" into halves.

Rodman Candleworks. Built in 1810, this three-story Federal style building was constructed of stone and later stuccoed. It has quoined window and door frames and corner quoins. Built for the manufacture of spermaceti candles, it was the city's first candleworks and continued in this function until 1890, exemplifying the economic activity and employment derived from whaling.

Bourne Counting House (also known as Merrill's Wharf Building and Durant's Sail Loft) is located within the Merrills Wharf Historic District (See Map 3). Built in 1847-48 and rehabilitated in recent years, this building is part of a relatively unaltered section of waterfront with direct links to the peak period of New Bedford whaling. It was the office of Jonathan Bourne, the most important owner of whaling ships of his day and a prominent early investor in textiles, symbolizing the transfer of whaling-derived wealth into new forms of investment. Structurally it is a massive granite block structure, originally three stories, now altered to three and one-half. Its window fenestration was substantially altered in a comptemporary rehabilitation, and it is the centerpiece of a separate (Merrill's Wharf) historic district, approved in 1977.

Rotch-Jones-Duff House. Located within the County Street Historic District (See Map 3), this historic house museum also offers significant insights into New Bedford's whaling era. The house was designed and built by John Upjohn for the Rotch family in 1833. The fine proportions of this Classical Revival house have been altered only by the addition of a belvedere and dormers on the roof. It stands as supreme witness to the enormous success of the whaling merchants of New Bedford during the golden age of whaling.¹³

Schooner ERNESTINA. The National Historic Landmark Schooner ERNESTINA, berthed on the waterfront, is another feature in the study area. The ERNESTINA, built in 1894 in Essex, Massachusetts, is the oldest Grand Banks fishing schooner in existence today. Historically, the ERNESTINA has transported thousands of Cape Verdeans from their island homeland to New Bedford's port. Many Cape Verdeans were involved in the nineteenth century whaling industry and their descendants continue to fish out of New Bedford.

Socioeconomic Environment:

New Bedford, a city of about 100,000 people, is located on the southeastern coast of Massachusetts where the Acushnet River empties into Buzzards Bay. The city's population is diverse with a variety of ethnic groups represented including substantial African- and Latin-American communities.

New Bedford is a maritime community and has traditionally relied on the sea for its livelihood. Fishing continues to be one of the city's primary industries. Although not the city's primary employer, the fishing port currently brings in the most valuable catch in the United States. A substantial portion of waterfront businesses continue to support the fishing industry. Manufacturing, followed by a growing service sector, currently provide most of New Bedford's jobs.

Overall, New Bedford is experiencing hard times economically. Since the mid-1980's the city has experienced severe job losses, high unemployment, and widespread economic disinvestment. Manufacturing, as an employment sector, has shown a decline of over 10 percent since 1982. New Bedford presently has one of the highest unemployment rates in the state.

The city is well served by Interstate 195 which connects to Providence, Rhode Island (about 30 miles to the west) and Cape Cod (about 20 miles to the east). New Bedford is also connected to Boston (about 50 miles north) by limited access, state highway routes 140 and 24. Ferry service to and from Martha's Vineyard is also available from New Bedford.

3.0 SUMMARY OF ALTERNATIVES

As recommended under NPS guidelines for the completion of Suitability/Feasibility Studies, a study team typically proposes three or more management alternatives for the study area. These alternatives offer options to ensure that any significant resources are protected, preserved, and interpreted to the most appropriate degree. The following alternatives were developed with public participation through general public meetings and consultation with the city, local organizations, and interest groups. This section describes the proposed alternatives and summarizes their potential environmental consequences. Because these alternatives make no site specific recommendations for development or other intensive activity, the evaluation of environmental consequences is fairly broad. The proposed alternatives and their potential environmental consequences are summarized below.

Alternative A: New Bedford National Historical Park. Under this concept, Congress would designate the core of the New Bedford study area as a new unit of the National Park System. NPS would have responsibility for planning and implementing programs for visitor use and interpretation in cooperation with local organizations. A General Management Plan would define priorities for site preservation and identify the location of a visitor orientation center, most likely in an existing historic structure.

Impacts to Natural Resources: The park area would be located within an area of intense urban development in which any existing natural resources have already been highly impacted. According to the state's Natural Heritage Program, there are no threatened and endangered flora or fauna inhabiting the study area. There are no wetland areas located within the study area. Development of a National Park unit will not appreciably contribute to further degradation of water or air quality or the integrity of other natural resources in this area.

Impacts to Cultural Resources: The park area encompasses one National Historic Landmark district and related resources located within three adjacent National Register districts. Under this alternative, federal development of a new visitor center is proposed and is expected to be located in an existing structure. Additional existing structures may be used by the National Park Service for the development of smaller interpretive centers. The specific locations of these sites have not been determined, however, any rehabilitation of historic structures will be accomplished in compliance with Section 106 of the Historic Preservation Act. It is anticipated that NPS involvement will ensure a basic level of preservation and maintenance of historic structures in the study area.

Impacts to Socioeconomic Environment: The New Bedford study area is presently a common destination for daytrippers. Inclusion into the National Park System will raise the area's profile to the national level, potentially prompting greater visitation. Under this alternative the visitor to New Bedford will be better oriented to area resources and will leave with a deeper appreciation of New Bedford's whaling heritage. This alternative proposes limited development on the waterfront in order to allow for continued public access to the waterfront and/or water based transportation, and for purposes of interpreting waterfront industry. Any development related to the use of the waterfront may be reviewed for consistency with Coastal Zone Management and Chapter 91 of the Massachusetts General Laws. Care will have to be taken to ensure that the waterfront's commercial areas are not subject to gentrification. These waterfront businesses are needed to support the activities of the nearby fishing fleet.

Air Quality, Parking & Traffic: Based on the study team's preliminary observations, heavy automotive and pedestrian traffic is unlikely to occur regularly and there is adequate parking available to accommodate an expected average daily volume of cars. Parking for busses is limited, but can be made available. On special event days, automotive and pedestrian traffic will exceed norms and will require further planning to adequately accommodate it. Proposed traffic improvements to Route 18 should enhance pedestrian and vehicular access to the waterfront from the city's downtown area and vice versa. Development of the proposed National Park unit will not appreciably contribute to further degradation of water or air quality or the integrity of other natural resources in this area.

Economic Impacts: The NPS Money Generation Model was applied to the study area using visitation projections over a ten year period. The visitor projections were based on those of comparable urban parks in the National Park system. Based on the results of the model, combined tourist and federal expenditures could have a substantial and positive impact on the local economy in terms of tax revenues, sales, and job creation. Although expanding tourism and related activities may require increased services at a greater cost to the city, the local property tax base will be largely unaffected due to NPS acquisition being limited to a visitor center building.

Alternative B: Technical Assistance. This alternative involves creating a technical assistance program with NPS staff assisting the development of a preservation and interpretive plan. The staff will work with a local partnership and local cooperators to provide technical assistance to the city for a specified time period and will initiate the implementation of the plan. Interpretive centers will be developed with grants from the Park Service, but no federal land ownership is anticipated in this alternative.

Impacts to Natural Resources: As in Alternative A, the park area would be located within an area of intense urban development in which any existing natural resources have already been highly impacted. According to the state's Natural Heritage Program, there are no threatened and endangered flora or fauna inhabiting the study area, nor are there wetland areas. However, under this alternative greater emphasis is placed on Palmer's Island which will continue to be managed by the city as recreational open space. As a result of this greater emphasis there may be an increase in visitation to the island and Fort Phoenix with all the accompanying impacts of increased recreational use.

Impacts of Cultural Resources: Under this alternative, there would be no federal ownership. Any development efforts would be sponsored by the local partnership and funded through a combination of private sources and federal grants. As with alternative A, Section 106 compliance will be undertaken as necessary. However, reliance on limited public and private money for on-going maintenance and preservation could hamper long-term protection efforts.

Impacts to Socioeconomic Environment: National Park Service technical assistance would enable historical and cultural organizations better advance and coordinate interpretive, educational programming and historic preservation. This may invite a higher visitation than presently experienced. Under this alternative, one or two interpretive centers will be developed to orient the visitor to New Bedford's resources. Facilities will be smaller and will not accommodate the range of interpretive media that a full visitor center would. Informational materials should still be adequate to orient the visitor. Under this alternative, use of the waterfront historic sites for interpretive purposes are possible under this alternative, including use of Palmers Island and Fort Phoenix. However, waterfront will continue to be dominated by commercial uses to the exclusion of other uses. Care will have to be taken to ensure that the waterfront's commercial areas are not subject to gentrification. These waterfront businesses are needed to support the activities of the nearby fishing fleet.

Air Quality, Parking & Traffic: As in Alternative A, major changes in the volume of automotive and pedestrian traffic are not expected to occur and parking for the average daily volume of cars appears to be adequate. Proposed traffic improvements to Route 18 should enhance pedestrian and vehicular access to the waterfront from the city's downtown area and vice versa. Proposed technical assistance efforts will not appreciably contribute to further degradation of water or air quality or the integrity of other natural resources in this area.

Economic Impacts: The NPS Money Generation Model was applied to the study area using visitation projections over a ten year period. The visitor projections were based on those of comparable urban parks in the northeastern United States. Based on the results of the model, combined tourist and limited federal expenditures could have a positive impact on the local economy in terms of tax revenues, sales, and job creation. Although expanding tourism and related activities may require increased services at a greater cost to the city, the local property tax base will be largely unaffected.

Alternative C: Local Action Option. This option relies on private nonprofit operation of historic sites and cultural programs paid for by public and private funds. The current operational level of local historic and cultural organizations should remain constant, assuming that local organizations will continue their tradition of preserving historic properties on an individual basis. However, it is possible that some of the organizations may not be able to continue their support for activities or preservation projects as they have in the past due to reduced levels of public and private funding.

Impacts to Natural Resources: This alternative does not propose further development within the study area. The alternative would result in limited to no further impact on the area's natural resources.

Impacts to Cultural Resources: This alternative does not propose any federal action for planning and development. The preservation program will rely heavily on infusion of public and private dollars. Current economic conditions have caused property managers to defer maintenance and rehabilitation of structures. Conservation of archives and museum collections will rely exclusively on the economic well-being of the current custodians. Under this alternative preservation and care of historic resources will depend on the vitality of the local economy.

Impacts to Socioeconomic Environment: The New Bedford study area will continue to be a common destination for daytrippers. Under this alternative the visitor to New Bedford will be oriented to area resources by volunteers at the existing visitor orientation center. Limited interpretive programs will be available. Proposed traffic improvements to Route 18 should enhance pedestrian and vehicular access to the waterfront from the city's downtown area. Under this alternative visitation is not expected to grow significantly, therefore, impact on the local economy is expected to remain the same. New demands on municipal services are unlikely.

4.0 CONSULTATION AND COORDINATION

During the course of the study a number of local interest groups, historical and cultural institutions, city departments, and concerned individuals were identified. A large number of these groups and individuals had been involved in the earlier state park planning effort ans sat on the New Bedford Heritage State Park Advisory Board. These advisory board members have continued their involvement and have contributed to the completion of this study. Many are also presently involved in the "Partnership", an informal organization of historical and cultural institutions which have coalesced around preservation and visitor use issues in the Waterfront Historic District.

Public involvement for the study occurred on a number of different levels. All of the organizations listed below were informed of the study and invited to share their thoughts and concerns. WHALE organized two major public information tours to further educate the public as to the purpose of the study and also published a newsletter that was distributed to over 1,000 groups and individuals. A general public meeting was also held to present the preliminary findings of the study to the public.

A number of state offices were also consulted during the preparation of the study. These offices were the source of needed information about resources, current state activities within the study area, and state policies and general laws that required consideration. The state offices that were consulted also appear below.

The following organizations were consulted during the study:

Bristol County Visitors and Convention Bureau
Cape Verdean American Veterans
Cape Verdean Beneficent Association
U.S. Coast Guard and Coast Guard Light Ship
Downtown New Bedford, Inc.
ERNESTINA/MORRISSEY Historical Society
Friends of Buttonwood Park
Greater New Bedford Chamber of Commerce
Heritage State Park Advisory Committee
The John Manjiro Historic Trail, a project of the Japan Society of Boston
City of New Bedford
New Bedford Harbor Development Commission
New Bedford Seafood Co-operative Association, Inc.
New Bedford Port Society
New Bedford Preservation Society
New Bedford Public Library and Archives
New Bedford Walking Tour Guides
New Bedford Visitor Information Center
North End Business Association
Old Dartmouth Historical Society and Whaling Museum
Rotch-Jones-Duff House and Garden Museum
Schooner ERNESTINA
South End Business Association
Whale Discovery Center, Plymouth, MA
Zeiterion Theater
Zoological Society

Commonwealth of Massachusetts:
Massachusetts Coastal Zone Management
Massachusetts Department of Environmental Management:
-- Heritage State Park
-- ERNESTINA
-- State Pier
Massachusetts Historical Commission
Massachusetts Natural Heritage & Endangered Species Program

IV. ENVIRONMENTAL ASSESSMENT: MATRIX OF MANAGEMENT ALTERNATIVES