Taunton Today Also Suggests a Range of Opportunities for Taunton Tomorrow Including the Following

TAUNTON

TODAY

Existing Conditions Report for the Taunton Tomorrow Master Plan

Prepared for: City of Taunton

Consultant team: Stantec’s Urban Places Hodge Economic Consulting Bonnie Heudorfer Housing Consultant

September 2017

Table of Contents

1.0 TAUNTON IN TRANSITION ...... II

2.0 THE TAUNTON COMPREHENSIVE MASTER PLAN ...... 1

3.0 DEMOGRAPHIC AND SOCIOECONOMIC TRENDS ...... 4

4.0 DEVELOPMENT PATTERNS AND LAND USE ...... 12

5.0 TAUNTON’S NATURAL HERITAGE ...... 18

6.0 TAUNTON’S HISTORIC RESOURCES ...... 23

7.0 HOUSING AND NEIGHBORHOODS ...... 26

8.0 TAUNTON’S ECONOMY ...... 29

9.0 COMMUNITY SYSTEMS ...... 37

10.0 COMMUNITY FACILITIES AND SERVICES...... 48

11.0 LAND USE REGULATION ...... 49

1.0 TAUNTON IN TRANSITION

Taunton is one of Massachusetts’ “Gateway Cities,” a mid-sized city transitioning from its historic identity as an industrial powerhouse for more than 150 years to a new, 21st century role as a complete city that combines a vibrant downtown core, a diverse mix of opportunities in housing and jobs, and exceptional access to nature recreation. At times the transition has been difficult, but with diligent efforts and strong partners the city has been laying the foundation for transformation through investment in industrial parks, infrastructure, downtown revitalization, brownfields remediation, and environmental improvements.

Taunton was among the earliest European communities in colonial Massachusetts, dating from 1638 when settlers from Plymouth purchased land from Native Americans in today’s East Taunton. Taunton became a manufacturing center early in its history. Shipbuilding and iron production were important by the end of the seventeenth century. The ironworks led to production of nails, stoves, and ironware and, in the nineteenth century, brick mills, cotton textile mills, silversmiths were established and surrounded by worker housing in the Weir, Whittenton, Hopewell, Westville, and East Taunton. Population grew quickly as immigrants from Ireland, England, Canada, Portugal, Italy, and Cape Verde arrived to work in the factories. The Taunton River and, after 1835, the Taunton Branch Railroad shipped grain from rural areas and Taunton’s manufactures to the rest of the country.

In the twentieth century, despite some industrial decline, Taunton weathered the Great Depression of the 1930s with resilient industries such as stove and furnace production. The city’s population stagnated through the 1920s and 1930 but continuing small but steady growth through the 1970s helped the city support major capital improvements such as water and wastewater treatment plants and establishment of the Myles Standish Industrial Park. The 1980s and 1990s brought a modest surge of population and business growth and interstate 495 connected the industrial park to the region, helping it become very successful. The Silver City Galleria Mall thrived in the 1990s but devastated downtown retail.

The Great Recession of 2007-2009 hit Taunton hard and it has taken ten years for the city to begin to recover. New housing production slowed even before the recession and is gradually growing. The mall has struggled as a retail destination, replacing closed stores with new tenants, such as Bristol Community College. The combination of public improvements, property owners joining in a business improvement district, and enhanced promotion has renewed the potential for downtown. The Myles Standish Industrial Park—very successful and now the largest in New England—has expanded into the former Paul Dever State School site. At the same time, services have become the biggest employment sector in Taunton, as is the case in the state overall. City investments in water, wastewater, and transportation infrastructure are building the foundation for future success, in some cases replacing pipes from the 1870s.

Since 2010, Taunton leaders and many residents placed their hopes for Taunton’s transformation in two new projects—a South Coast Rail commuter rail station at Arlington Street near downtown and a resort casino. As of this writing, the outcome for both these projects is unclear. A commuter rail station in the east side of Taunton near the mall, which would not support downtown or Taunton’s urban core, is slated for an interim Phase 1 of South Coast Rail, with the Arlington Street station to open later under an as-yet unfunded Phase 2. The Mashpee Wampanoag casino project, which would provide payments to city government and jobs, is in litigation, with negative court decisions so far.

The Taunton Tomorrow master plan is an opportunity for Taunton residents, businesses, and other stakeholders to understand where Taunton is today, create an inspiring vision for where they want Taunton to be in 2040, and develop the strategies and actions needed to pursue that vision. While Taunton has made strong progress in recent years, it still faces many challenges. This report on Taunton Today also suggests a range of opportunities for Taunton Tomorrow including the following:

. Continued revitalization of downtown with housing, arts and culture, and entertainment . Continued brownfields remediation to help create destination clusters in historic villages . Enhancement and promotion of Taunton’s nature recreation opportunities with biking walking, and boating connections . Diversification of economic development and job creation, including new industrial park opportunities

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2.0 THE TAUNTON COMPREHENSIVE MASTER PLAN

A. What is A COMPREHENSIVE Master Plan? State Requirements The purpose of a comprehensive master plan is to MGL, Chapter 41, Section 81D requires influence the future—creating a framework to help a Massachusetts municipalities to prepare and adopt community be proactive to achieve a desired future, a master plan including these elements at a especially the long-term physical development of the minimum: community. Master plans typically have a time horizon . Goals and policies statement, based on an of ten to twenty years. The Taunton Tomorrow plan is interactive public process. . Land use plan element, current and proposed looking forward to 2040. Taunton’s comprehensive distribution of land use. master planning process has three basic parts: . Housing element, existing and forecasted housing needs and objectives. . Visioning. Taunton community members will . Economic development element, for the develop a consensus around a positive vision of a expansion or stabilization of the local economic future shared destiny. What are our values? What base and the promotion of employment opportunities. kind of community and place do we want . Natural and cultural resources element, Taunton to be in the future? What should we with an inventory of the significant natural, preserve and what do we need to change? cultural, and historic resource areas and strategies for the protection and management . Planning. In order to achieve the vision, we need of such areas. broad goals for a variety of interrelated topics and . Open space and recreation element, with an inventory of recreational and open space areas a set of strategies to reach the goals. and strategies for the management and protection of such areas. . Implementing. The plan will include an . Services and facilities element to analyze implementation plan to put the strategies into existing and forecasted needs for public action: priorities, responsible parties, a timeline facilities and services. and resources. . Circulation element, with an inventory of existing and proposed circulation and

transportation systems. The 2017 Master Plan project also includes creation of . Implementation program element which a separate Housing Production Plan to help Taunton defines and schedules the specific municipal provide affordable housing and work towards the actions necessary to achieve the objectives of state goal of 10% affordable housing units. each element of the master or study plan.

A master plan is adopted by a Planning Board vote B. THE 1998 TAUNTON MASTER PLAN after a public hearing and can be amended by the Planning Board after a public hearing. Taunton’s last master plan was adopted in 1998. The plan’s introduction began with a brief vision statement: “Taunton residents envision a city that grows and changes in a manner that preserves Taunton’s unique urban/rural setting, nurturing a vibrant downtown, village centers, and peaceful residential areas. We envision a City that protects the community’s historic character and develops so that new growth shares that same quality of design. “

1998 Master Plan Community Priorities During the community planning process, the following priorities emerged. Although much progress has been made on some of these priorities, others continue to be important to the future of the city.

. Open Space o Promote open space preservation

o Preserve the rural character of East and West Taunton

. Historic Character o Promote preservation of historic sites and buildings

. Downtown o Promote/rehabilitate downtown

. Housing o Promote affordable housing o Assist in locating affordable housing o Assist in financing housing costs

. Economic Development o Work to create a second industrial park o Work to create more job opportunities

. Transportation and Infrastructure o Cleaner streets/sidewalks o Improve road conditions o Emphasize road and water improvements

. Public facilities o Pursue construction of a new public safety facility for fire and police o Improve school maintenance and reduce overcrowding

1998 Master Plan Goals Based on the community priorities, the 1998 Plan included a number of broad goals for Taunton:

Land Use . Promote a pattern of land use that delivers the highest benefits in terms of health, safety, and well-being for all segments of the community. . Protect the sanctity and quality of existing neighborhoods. . Relate the use of land to the level of public facilities and infrastructure available or planned to be available. . Relate the use of land to its natural characteristics and varying suitability for development. . Preserve attractive vistas, streetscapes, and scenery. . Protect and preserve open space.

Natural and Cultural Resources . Protect, restore, and ensure the conscientious management of Taunton’s natural resources. . Protect ecologically sensitive areas from over-development. . Protect Taunton’s historic and architectural resources and their traditional setting. . Preserve, expand, and promote diverse cultural and educational activities. . Increase awareness of and access to Taunton’s natural and cultural resources.

Open Space and Recreation . Provide present and future residents with the opportunity to enjoy recreational facilities, open space, and natural resources in and around the City of Taunton.

. Protect, maintain, and enhance access to open space, natural resources, and recreational opportunities.

Housing . Establish patterns of development that promote the creation and maintenance of cohesive neighborhoods. . Promote patterns of land use that ensure a broad range of affordable housing. . Promote brownfield remediation and revitalization to help reduce open space loss while allowing development. . Provide housing opportunities for all citizens. . Integrate affordable housing throughout the city. . Upgrade all substandard housing stock. . Promote affordable housing consistent with historic preservation.

Economic Development . Promote economic activity that will ensure and enhance the quality of life for all residents. . Provide areas for economic development consistent with the community’s character and resources. . Control growth which creates a disproportionate demand on city services. . Identify and develop areas for mixed-use development. . Promote conditions that will produce and maintain a healthy and broad based business climate in the city. . Encourage economic development that is compatible with the city’s natural, historic, and cultural resources. . Promote regionalization as a means to strengthen economic resources . Preserve Taunton’s unique urban / rural mixture of community character. . Expand municipal revenue sources and increase municipal efficiency. . Develop and maintain circulation systems that will provide for the safe and convenient movement of vehicles, people, and goods; to, from, and within Taunton. . Improve the physical condition of streets and sidewalks to provide a more aesthetically pleasing and safe environment in which to live and work. . Promote a public transportation system that meets the transportation needs of all residents. . Encourage alternative modes of transportation. . Mitigate the traffic impact of residential and business developments.

Community Facilities and Services . Ensure a municipal administration that is responsive to the needs of the community. . Ensure and maintain the capabilities of Taunton’s protective services to deliver effective, comprehensive, and coordinated services. . Maintain municipal infrastructure so as to avoid excessive future costs as a result of deferred maintenance. . Provide a public water supply and delivery system that meets the public health, supply, potability, and safety needs of the city. . Ensure the adequacy of the sewage disposal system to dispose of waste without sacrifice to the quality of the natural or human environment. . Provide coordinated and state-of-the-art communication and information systems within Taunton’s government. . Plan for future municipal land needs. . Maximize grants received by the City.

. Provide a superior education environment for every resident of the city, allowing each resident to achieve his/her fullest potential, and ensure that all students receive equal opportunities within the system. . Promote public safety and a good quality of life in all neighborhoods. . Enhance the quality of life through services that promote the mental and physical health, education, and welfare of Taunton’s residents.

In the twenty years since the adoption of the 1998 plan, the city encountered difficulties, particularly as related to impacts of the Great Recession. However, plans and initiatives focusing on open space, downtown, and infrastructure—all of which were priorities in the 1998 plan— have been completed. The City is also investing in infrastructure improvements and its first five- year Capital Improvement Plan (CIP) is under development.

3.0 DEMOGRAPHIC AND SOCIOECONOMIC TRENDS

A note on terminology and data . Terminology: In the Master Plan, “City” will be capitalized when referring to the municipal government; “city” without an initial capital letter will refer to the community as a geographic and socioeconomic entity. . Data: This Master Plan and associated documents are being prepared between the 2010 and 2020 censuses. In addition to the decennial population counts, the U.S. Census Bureau now produces estimated data based on three- and five-year surveys of sample populations called the American Community Survey (ACS). Sample surveys of small areas, such as census tracts and block groups, are less reliable than of larger populations, such as the entire city, because of sample sizes. Agencies such as the Metropolitan Area Planning Council, the UMass Donahue Institute, and the Southeast Regional Planning and Economic Development District (SRPEDD), as well as proprietary databases, such as ESRI Business Analyst, also provide estimated data based on the Census and other data sources. These and other sources have been consulted for the Master Plan documents. Data is from the ACS 2011-2015 unless otherwise indicated.

A. POPULATION TRENDS

Taunton’s population is growing slowly.

. Change in population. Taunton’s population grew almost tenfold over the nineteenth century as Taunton became an industrial powerhouse and attracted immigrants to work in its ironworks, textile mills, silver factories, shipyards, and other manufacturers. Over the course of the twentieth century, the city’s population grew more modestly, especially in contrast to growth in adjacent rural towns. A small late-century population surge in the 1980s and 1990s came to an end during the Great Recession. Like the rest of Bristol County, Taunton has been growing relatively slowly in population since the recession. As of 2016, Taunton’s population was estimated by the Bureau of the Census to be 56,843, up 1.7 percent since 2010 but about half the rate of growth for Massachusetts statewide.

. Population projections. Between 2000 and 2010, a period which included the Great Recession, Taunton’s population declined slightly (by 0.2%, the first intercensal decline in the city’s history. In contrast, the Census Bureau’s 2016 population estimate of 56,843 indicates some recuperation from the recession. Projections of whether Taunton’s population will diminish, stabilize, or grow in the future depend on the base data and assumptions used. Population projections are based on interpretations of historic trends and expected changes that may affect population growth. The UMass Donahue Institute, with a methodology based on 2000-2010 data, projects a slight decline in population to 56,564 in 2030 and 55,966 in 2035. The Southeast Regional Planning and Economic Development District (SRPEDD)

Taunton’s regional planning agency, as part of its 2016-2040 long-range transportation plan, projects Taunton’s population at 63,169 in 2030, (an 11% increase from the 2016 Census Bureau estimated population of 56,843) and 65,543 in 2040, while MassDOT projects approximately 60,000. The Metropolitan Area Planning Council, as part of its federally funded MetroFuture plan for eastern Massachusetts, projected Taunton’s 2030 population under a “Strong Region” scenario (regional smart growth) as growing and under a “Status Quo” scenario, as declining slightly.

Figure 1. Population Projections for Taunton – 2017 to 2040

Taunton’s population is aging Figure 2. Age Group Trends for Taunton – 2010 to 2021 . Age composition. Like the rest of Massachusetts, Taunton’s population is Age Groups aging—but to a greater degree than 70000 Bristol County or the state. Between 2000 and the American Community 60000 Survey 2011-2015 estimates, Taunton’s median age rose from 35.7 years to 50000 75+ 40.9 years, a significantly greater increase than that reported for either 40000 55-74 Bristol County (3.9 years) or 35-54 30000 Massachusetts (2.8 years). 20-34 20000 As in most Massachusetts 0-19 municipalities, the aging of the Baby 10000 Boom generation (those born between 1946 and 1964) is responsible 0 for the shift. By 2030, when they will be 2010 2016 2021 65-84 years old, Boomers will still be a sizable bloc, but they may have very different needs or desires in terms of housing, transportation or other needs than they do today. Meanwhile, the number of preschool and school-aged children (18 and under) is projected to decline by 2030. The millennial generation (approximately ages 20-35 in 2018) is the largest generation in American history. Population projections for Taunton show some increase in this population by 2020, but not enough to change the overall trend towards an older population. In general, these trends are not unique to Taunton. A similar demographic

shift is occurring statewide, and Taunton’s population profile – current and projected – mirrors that of Bristol County and Massachusetts.

During the time horizon of this master plan (2018-2040), the millennial generation will be finding partners, getting married, having families, and making decisions on where to live. In recent decades, Taunton’s young adults, especially those with more education, have not made the choice to stay in Taunton.

Taunton is becoming more racially and ethnically diverse.

. Racial/ethnic composition. While Taunton’s and the region’s population remains predominantly non- Figure 3. Racial Composition of Taunton Hispanic White, the city is becoming more diverse. At the time of the 2010 Census, Taunton’s population was almost 84.5 percent non-Hispanic White, 4.5 percent non-Hispanic Black, 1 percent non-Hispanic Asian, 0.2 percent non-Hispanic American Indian or Alaskan Native, and 4.3 percent all other races and/or combinations. Hispanics, who can be of any race, made up 5.5 percent of the population. As might be expected, Taunton children and youth are more diverse in race and ethnicity than residents 65 and over.

Many Taunton residents have a strong ethnic identity and heritage.

. Ancestry. Taunton has long been home to a multi-cultural population with strong ethnic identities. Sixty percent of respondents on the most recent American Community Survey (2011-2015) identified with a single ancestry (rather than a mixture of ancestries), with Portuguese (32.5%) being the largest group by far. Other frequently cited ancestries were Irish (11.4%), Italian (4.9%), English (4.8%), French (3.7%), and Cape Verdean (3.0%). Residents identifying as Hispanic represented 6.7 percent of the population. Social clubs, soccer team clubs, and the Prince Henry Society continue to serve older residents of Portuguese origin. New Latino residents often find community in churches.

Twelve percent of Taunton’s population is foreign born. The majority of Taunton’s foreign- born residents have been here for more than 20 years, many for longer, are fluent in English and are U.S. citizens. The nineteenth century wave of immigration ended with more restrictive immigration laws in 1917. These laws were changed in 1965, followed by immigration of substantial numbers of Portuguese-speaking immigrants from Portugal, Cape Verde and Brazil. Since 2000 most of the recent arrivals have come from Latin America (47%), Asia (13%) and other regions (23%).

Family households predominate in Taunton, but there are many households without children and single person households.

. Household types. The Census Bureau defines family households as two or more people who live together and are related by birth, marriage, or adoption. This means that married couples without children at home are in the “family household” category. According to the 2015 American Community Survey, most (64.4%) Taunton households are family households. Families with no children present account for 37.7 percent of households. The vast majority of

the 35.6 percent of households categorized as “non-family households” are single-person households. Nearly 27 percent of the city’s households include a child or children under the age of 18, and 13 percent include very young children (under 6 years). More than three- quarters of the single parents raising children without a spouse present are female.

Households are getting smaller as the population ages.

. Household size. The average household size across the country has been declining over decades as families get smaller and more people live alone. In 2010, Taunton’s average household size was 2.47 persons, down from 2.50 in 2000 due to a decline in the size of homeowner households. Sixty-eight percent of renter households and 56 percent of owner households consist of just one or two persons. Older households typically are smaller than younger households with children present, and as Taunton’s population ages, its household size has been expected to drop further. As a result of the housing and employment crisis of the Great Recession, average household size grew slightly, but the long-term trend is expected to reemerge at the next census. The Metropolitan Area Planning Council, which prepared household estimates for Taunton as part of its MetroFuture plan, estimated that Taunton’s average household size would drop to 2.30 by 2030.

Figure 4. Household Types in Taunton

Household Types Source: Census 2010; ACS 2011-2015 35 30 25 20 15 2010 10 2015 5 0 % of all % of married % of single % of persons % of households couple with parent living alone households with children children households with persons above 65

School enrollment is stable.

. School population. Taunton’s public school enrollment has fluctuated around 8,000 between 2000 and 2016. Enrollment for academic year 2015-16 was 8,053. The public school district includes 13 public schools offering pre-K through 12th grade. As of 2016, 42 percent of Taunton’s students were considered economically disadvantaged and 53 percent participate in the National School Lunch Program which provides low-cost or free lunches to low-income school children from income-eligible families.1 There are five private, Catholic

schools serving 1,216 students (one middle/high school, one middle school, and two elementary schools). Taunton lags the state in educational and skills achievement.

. Educational attainment. Taunton and Bristol County lag behind statewide averages in educational achievement.(see Figure 5) both for a high school diploma and a bachelor’s degree. Over 82 percent of adults 25 or older in Taunton and Bristol County have a high school diploma, compared to 90 percent statewide. There is an even greater gap in college degrees. Twice as many adults statewide have a bachelor’s degree compared to Taunton adults (40 percent compared to 19 percent), and three times as many adults statewide have a graduate degree (18 percent statewide compared to six percent in Taunton).

Taunton’s comparatively low education levels reflect its older population and the fact that more educated young adults who grow up in Taunton do not stay in the city for a number of reasons. Since the most important factor in economic development is workforce, including the skills and education levels of the available workforce, lower educational levels in Taunton are consistent with lower average wages earned by Taunton workers and an industrial base that leans towards more blue collar jobs (wholesale trade, distribution, manufacturing, construction) with fewer higher-wage, higher-skill jobs in professional services, or research and development (R&D).

Figure 5. Educational Attainment for Taunton, Bristol County, and MA (2011-2015 estimate)

100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Taunton Bristol Co. MA

High School or Higher Bachelor's or Higher Graduate Degree

Source: American Community Survey data 2011-2015

B. ECONOMIC TRENDS

Taunton’s median income continues to be lower than the state’s and the county’s.

. Household income. The median income in Bristol County has been significantly lower than the statewide median for many years, and that is still the case. In most categories, Taunton trails the county. Adjusted for inflation, median household income in Bristol County dropped by more than 8 percent between 1999 and 2015; in Taunton, it dropped by more than 13

percent. A notable exception is the median income of Black and Asian households, which in 2015 was significantly higher for both groups in Taunton than it was countywide or statewide. Residents of East and West Taunton have higher median incomes than those in other parts of the city.

Taunton’s generally lower college educational attainment levels tend to correspond with more low- to mid-wage jobs. Taunton has a very large share of workers earning $25,000 to $50,000 (43%) but only 18 percent of workers earn $75,000 or more, compared to 33% statewide.

Figure 6. Share of Jobs by Annual Earnings for Full-Time Workers – Taunton, Bristol County, and MA

45% 40% 35% 30% 25% 20% 15% 10% 5% 0% $0 to $25k $25k to $50k $50k to $75k $75k and over

Taunton Bristol Co. MA

Source: U.S. Census Bureau, American Community Survey data 2011-2015

Taunton senior households and female-headed households are more likely to be poor.

. Poverty. Taunton’s poverty rate overall (12%, in 2011-2015), and among children (16%) and the working age population (11%), is slightly higher than the Massachusetts rate and slightly lower than the Bristol County rate. Among seniors, however, the city’s poverty rate exceeds that of both the state and county (13% compared to 11% and 9% respectively). Compared to married-couple families with children under age 18, with a low poverty rate of three percent, over a third of Taunton’s single mothers with children under 18 lived below the poverty line. Nonetheless, both of these rates are lower than the comparable county and statewide rates.

Taunton’s unemployment rates typically reflect state and county trends.

. Unemployment. Since 2000, Taunton’s unemployment rate has generally tracked state and county trends (Figure 7). However, Taunton’s residents had a more severe unemployment experience during the Great Recession as the rate exceeded 10 percent in 2010, and increased significantly above the state unemployment rate starting in 2008. The number and percent unemployed fell steadily as the economy rebounded and the economic boom in greater Boston extended to the rest of the state. Taunton’s unemployment rate stood at 4.8 percent as of March 2017, compared to 3.9 percent statewide.

Figure 7. Unemployment Rates for Taunton, Bristol County, and MA – 2000 to 2016

0 2000 2002 2004 2006 2008 2010 2012 2014 2016

Taunton Bristol Co. MA

Source: Massachusetts Executive Office of Labor and Workforce Development, Labor Market Information

Taunton is in the middle of the pack compared to nearby communities.

. Benchmark cities. Table 1 provides a snapshot comparison of Taunton to a small set of nearby cities and towns (Attleboro, Fall River, Mansfield, and New Bedford) and Massachusetts. While Taunton is sometimes compared to Fall River and New Bedford, Taunton is consistently better off than those cities. Taunton’s socioeconomic conditions are generally stronger than Fall River and New Bedford (where poverty rate levels exceed 20 percent) but not as strong as Attleboro and Mansfield. For example, Taunton’s median household income is just over $53,000 compared to almost $65,000 statewide, with higher income levels in Attleboro and Mansfield (the only town in this comparison). Attleboro and Mansfield residents have higher educational levels, lower poverty rates, and higher median incomes.

Table 1. Socioeconomic Data for Taunton and Comparison Cities – Resident-Based Data

% Median Bachelor's Household Degree or Poverty Population Income Higher Rate Unemployment (2015) (2015) (2015) (2015) Rate (Feb 2017) Taunton 56,789 $53,058 18.8% 12.4% 5.2% Attleboro 44,284 $67,736 31.1% 10.1% 4.4% Fall River 88,777 $35,213 13.8% 23.2% 8.5% Mansfield 23,687 $93,019 52.5% 3.0% 3.6% New Bedford 94,958 $37,574 15.9% 23.4% 7.9% Massachusetts 6,794,422 $64,509 40.5% 11.6% 4.2%

Source: U.S. Census Bureau, Population Division, Annual Estimates; American Community Survey data 2011-2015; Massachusetts Executive Office of Labor and Workforce Development, Labor Market Information (unemployment rates as of February 2017).

C. HEALTH INDICATORS

Taunton’s population is less healthy than the state as a whole.

Like other parts of Bristol County, data for Taunton indicates that the population is less healthy than the state overall. Taunton has two hospitals, Morton Hospital, a 120-bed acute care hospital that is part of the for-profit Steward Health Care System, and Taunton State Hospital, a 45-bed psychiatric hospital. There are also seven nursing homes in the City. Morton Hospital’s primary service area includes Taunton, Raynham, Lakeville, Middleboro, Dighton, and Berkley. Using data from a number of sources, including the Morton Hospital Community Needs Health Assessment, the United Way Needs Assessment, information collected from various data sources such as MassCHIP, and feedback provided via community and hospital-based councils, a study conducted by Morton Hospital in 2017 identified the following priorities for the Taunton community:2

. Chronic disease (including cancers, cardiovascular disease, and respiratory disease): As of 2010, cardiovascular diseases were the number one cause of death in Taunton. Lung cancer and breast cancer were respectively second and third. Heart disease is the primary cause of cardiovascular disease mortality. Those at risk for or diagnosed with chronic diseases like cancer and heart disease are smokers; adult men and women; seniors; and low-income families.

. Obesity and diabetes: In 2013, the percentages of overweight and obese adults in Bristol County were significantly higher than in the state as a whole. Adults and school-aged children are at risk for becoming obese. Low-income families are at risk for developing or being diagnosed with diabetes.

. Smoking and tobacco use: According to the 2009 Behavioral Risk Factor Surveillance System, an estimated 13,499 smokers live in Taunton (24.2% of adults, age 18+) and the adult smoking rate is 61% higher in Taunton than statewide.

. Access to primary and preventive care: As of 2013, Bristol County had significantly longer wait times for appointments with internal medicine specialists than the rest of the state. The county also maintains a higher than state percentage of adults in “fair to poor health” and adults who had 15+ days of poor physical health.

. Behavioral health: Like communities throughout Massachusetts, Taunton is suffering from an opioid abuse problem. There were 30 overdose deaths in 2016, almost twice as many as the 16 deaths in 2015. Taunton State Hospital has a substance abuse inpatient program for women. In 2014, Mayor Hoye convened an Opiate Taskforce bringing together public health, law enforcement and other community representatives to tackle the opioid problem openly with programs including home visits, support for overdose victims, and information and resources. The Taunton program has been used as a model for other communities.

Taunton has a range of programs that promote healthy lifestyles.

. City of Taunton Board of Health. In addition to enforcing federal, state, and local laws and regulations that protect health and ensure safety, the Board of Health identifies and investigates health problems and hazards, informs and educates the public about health

2 Morton Hospital Community Benefits Plan, 2017

issues, and mobilizes city departments and community organizations to support individual and community health efforts.

. Mass in Motion Transforming Taunton. This program, funded through a grant from the state Department of Public Health, is developing local activities to encourage physical activity and healthy eating, which play a role in reducing chronic diseases. It manages the Silver City Farmers’ Market, open once a week in Hopewell Park; organizes and supports community gardens such as the Bristol Commons Community Garden, the Taunton High School Community Garden, and a future Taylor Street Community Garden; organizes healthy eating events and nutrition education; and supports activities to promote walking, such as the Council on Aging Keeping Moving event and walking audits.

. Manet Community Health Center: is a non-profit organization dedicated to providing preventive, primary and non-emergency urgent care to all, regardless of financial circumstance or health insurance coverage status.

. Taunton Oral Health Center: a non-profit, full service dentist office with a downtown location as well as a mobile clinic.

. Behavioral health and substance abuse programs: Community Counseling of Bristol County provides mental health and substance abuse services for all ages. Learn to Cope is a support organization for people coping with family members with substance abuse problems.

. Church Green Farmers Market: well-established farmers market held on the First Parish Church lawn from mid-July to mid-October on Sundays, and includes fresh vegetables and fruits, homemade baked goods, local specialty foods, and handmade crafts.

4.0 DEVELOPMENT PATTERNS AND LAND USE

A. DEVELOPMENT PATTERNS

Taunton’s development patterns reflect its history.

Today, approximately 37% of the land in Taunton (11,542 acres) is developed while forest, wetlands, and open space account for about 53% of the land (16,492 acres). From 1971 to 2013 the amount of forested and open land decreased by 13%, while the amount of developed land increased by approximately 80% as housing was built in formerly rural areas of the city. However, Taunton development patterns still show a concentration of development in the more central part of the city and substantial natural and rural lands in the eastern, western, and northern parts of the city. Under current zoning, Taunton has significant amounts of land available for development, most of it zoned for residential development. When asked, residents have expressed a preference to preserve the natural and rural character of the city edges. The rate of development and land consumption slowed significantly after 2000 and residents’ interest in infill and redevelopment to support revitalization of downtown and the historic villages has grown.

. Residential patterns. Taunton’s 48.4 square miles of land and water (30,720 acres) show a pattern of development around the city center and the historic mill villages along the

Taunton, Mill and Three Mile Rivers where housing clustered around the mills in an era when people walked or took streetcars to work. As the city grew, neighborhoods filled in between the mills. The development patterns in these older parts of the city typically show houses on smaller lots on streets with small blocks laid out in a modified grid. A grid pattern of this type promotes walking and provides a variety of vehicle routes to navigate around the neighborhood and reach collector and arterial roads. In the rural areas of eastern and western Taunton, farms and eventually non-farm development extended along the major roads that became Routes 140, 44, and 138. Suburban style development slowly began to extend along the major roads after World War II. From the late 1970s, Taunton began to see small subdivisions carved out of forest and farm land off major roads. Larger subdivisions followed with cul-de-sac street patterns that funneled all traffic onto arterial streets.

. Non-residential patterns. Non- Modified grid development pattern in central Taunton. residential development patterns from the second half of the twentieth century are also quite different from the earlier industrial period. Separation of land uses became the standard. Shopping centers and malls (like the Silver City Galleria) were built on large sites with big parking lots. This was a response to the rise of national retail chains as well as residential suburbanization and car ownership. Industrial development patterns were also very different as industrial properties were grouped in industrial parks separated from residential and commercial areas—keeping the deleterious impacts of older industrial development, such as pollution, contamination, and eventually truck traffic impacts, away from neighborhoods. However, like the suburbanization of retail and Suburban style residential development pattern near Taunton housing, consolidated industrial High School.

parks require workers to find transportation.

B. LAND USE TRENDS

. Priority Development and Priority Taunton Priority Development and Priority Protection Protection Areas. As part of the South Areas Coast Rail Project, the City mapped Area PDA or PPA Acres Priority Development Areas (PDA) and East Taunton Business District Combined 187 Priority Protection Areas (PPA) in 2008 East Taunton Neighborhood Nodes Combined 63 and updated them in 2013. Former Riverworks Industrial Combined 23 Harrodite Mills Combined 9 PDAs are areas that are appropriate North of I-495 Business District Combined 51 for increased development or Whittenton Mixed Use Combined 33 redevelopment due to factors such as good transportation access; available Warner Boulevard Combined 14 infrastructure (primarily sewer and Route 138 Business Corridor Development 72 water); an absence of environmental Airport Development District Development 229 constraints; and local support. Taunton Dean Street TOD Development 23 Downtown Taunton Business has designated 2,760 acres as PDAs, Development 135 381 as combined development and District protection areas, and 3,536 as PPAs Galleria Redevelopment Development 142 (including Watson Pond and the Liberty and Union Industrial Park Development 357 Hockomock Swamp ACEC. Notable Myles Standish Industrial Park Development 246 priority development areas include Expansion and Life Science Center the Myles Standish Industrial Park, the Myles Standish Industrial Park Development 691 Downtown Business District, the Weir Mini Golf Redevelopment Development 45 Development Area, and the Route 44 Parcel 6A Housing Development 6 highway business areas. Route 44 Highway Business Development 364

PPAs are areas that are important to Target Station Site Development 70 protect due to the presence of Taunton State Hospital Development 148 significant natural or cultural Weir Redevelopment Area Development 232 resources, including, but not limited to: Aggregate Quarry Future Park Protection 143 rare and endangered species East Taunton Cranberry Bogs Protection 380 habitats; areas critical to water supply; Historic Hangar Protection 4 historic areas; scenic vistas, and; Hockomock Swamp ACEC Protection 2,177 agricultural areas. Taunton’s major Three Mile River ACEC Protection 547 PPAs include the Watson Pond area Watson Pond Protection 276 and the Hockamock Swamp area. Woodward Springs Park Protection 7

. Agriculture land use. According to the Open Space and Recreation Plan (2015), the city has 38 parcels and 689 acres of agricultural land designated as open space under the State’s Chapter 61A, Farmland Assessment Act. All of the designated farm lands are all privately owned. Agricultural land can be found in the more rural eastern and western portions of the city, as well as abutting Boyden Wildlife Refuge to the west, and on the State Hospital grounds. Taunton currently does not allow commercial agriculture in urban zones of the city. Active agricultural land, which occupied over 13% of the acreage in Taunton in 1971, today occupies only about 4% of Taunton’s land. This reflects a 33% decrease from 1999 (a loss of over 600 acres), when agricultural land accounted for slightly over 6% of Taunton’s total acreage. During preparation of the Open Space and Recreation Plan, community participants identified the remaining agricultural landscapes (including cranberry bogs) in western and eastern Taunton as valuable scenic resources.

The decline in the amount of active agricultural land reflects the region’s aging farming population, their heirs’ choice not to farm, and economic considerations. However, Massachusetts agriculture has become more economically viable in recent years because of diversification, value-added products, and specialty crops and products. There is also greater interest in farming today among young people, but the cost of purchasing or renting land can be a formidable barrier to entry in Eastern Massachusetts.

. Residential land use. As noted earlier, residential trends in Taunton have followed the suburbanization patterns typical of much of Southeastern Massachusetts but to a lesser degree than the towns surrounding the city. The historic concentration of retail around downtown and the historic villages remains an important defining characteristic of Taunton. However, vacant and underutilized sites that need redevelopment—and in some cases site remediation—are also significant in the central area of the city.

. Commercial land use. Commercial uses in Taunton include small retail and office uses downtown; strip retail on County Street (Route 140) and Winthrop Street (Route 44); and the Silver City Galleria Mall. The mall opened in 1991 and its success for about a decade was at the expense of downtown retail, which is now trying to revive as a retail center as the mall seeks a new role. The mall is losing traditional retail tenants, such as Macy’s in 2017, but has attracted new tenants such as Bristol Community College. The fate of the casino project—still unclear as this report is being written—will affect opportunities for the mall.

. Industrial land use. Myles Standish Industrial Park (MSIP), with over 1,000 acres, is very successful and has become the largest industrial park in New England, recently expanding into the former Paul Dever State School site. Taunton’s location between Boston and Providence, with quick access to I-495, has made the MSIP very attractive for warehousing and distribution. It has been harder to attract office, research and development uses, such as biotech, to the Dever site expansion. The vacancy rate is only 4%. The Liberty & Union Industrial Park (LUIP) is the City’s smaller industrial park with approximately 350 acres. The City sold 53 acres for the proposed Mashpee Wampanoag casino project. The City is looking for additional industrial park land.

. Institutional uses. In addition to City-owned properties, Taunton is the county seat of Bristol County and the site of the county courthouse and other county offices. State properties include Taunton State Hospital and, until recently, the Paul Dever State School. Other non- city institutional uses include the Bristol-Plymouth Vocational School. Morton Hospital is a for- profit institutional use.

Taunton’s industrial history left a legacy of contamination.

. Brownfields remediation. The mills and factories that created prosperity for Taunton also created industrial wastes that polluted the land and water. Today we call the contaminated, abandoned industrial sites “brownfields” that require remediation before they can be redeveloped and reused. The City of Taunton has been successful in accessing state and federal grants for brownfields cleanup, but important sites, such as Whittenton Mills and the Reed & Barton Complex still need remediation. Since 1999 the City of Taunton has received $4.5 million in brownfields grants from the Environmental Protection Agency, including a $500,000 revolving loan fund grant in 2017.

Brownfields remediation funds have been critical to the redevelopment of a number of sites in the City, including the transformation of the Robertson/Cohannet mill into the Robertson on the River housing development and the new Weir Village Riverfront Park.

5.0 TAUNTON’S NATURAL HERITAGE

Taunton is rich in natural resources and open spaces. A federally-designated Wild and Scenic River, two state parks, three Areas of Critical Environmental Concern, many small rivers and brooks, ponds and lakes, and remaining rural lands in the eastern and western parts of the city make Taunton a place of exceptional natural beauty and importance. A. WATER SYSTEMS AND RESOURCES

Taunton has exceptional water resources. Many of these resources served an important role in the city’s history of shipping and industry, but were also modified by dams and polluted by industrial wastes. Increasingly recognized as assets for quality of life and recreation, as well as environmental and habitat health, Taunton’s rivers, streams, ponds, lakes, and wetlands have been cleaned up, dams eliminated, and made available for recreation. The city’s water resources can be the foundation for a green network of habitat and nature recreation.

. Rivers and streams. There are three major rivers in the City of Taunton: the Taunton River, the Three Mile River, and Mill River-Snake River. In addition, four coldwater streams are state- certified Coldwater Fisheries Resources under the DEP’s “Outstanding Resource Waters” Program: Spring Brook in Massasoit State Park, the Segregansett River from its source in western Taunton, and two unnamed tributaries to the Taunton River. Taunton has many other named and unnamed streams and water bodies, many of which provide water access for various forms of passive and active recreation. o Taunton River. The Taunton River is the longest undammed coastal river in New England at approximately forty miles with a watershed that drains 562 square miles and touches forty-three cities and towns. It is tidal up to Taunton’s Weir Village Riverfront Park, which is fourteen miles north of Mount Hope Bay. It is a federally-designated Wild & Scenic River (2009), state-designated Heritage River (2002), and is part of the state designated Wampanoag Commemorative Canoe Passage (1976), a water route used by the Native Americans to travel from Massachusetts Bay in Scituate to the Mount Hope / Narragansett Bay in Rhode Island. The river is a major recreational resource, classified as fishable and swimmable (Class B) and has numerous public access points. o Three Mile River. The Three Mile River flows from its headwaters at the confluence of the Wading and Rumford Rivers in Norton to the Taunton River in North Dighton. The river drops only about twenty-five feet in elevation over its entire course and still has industrial dams in some areas, making recreational use challenging. o Mill River - Snake River. The river enters the city as the Snake River into man-made Lake Sabbatia on Bay Street. The river then flows out of Lake Sabbatia as the Mill River, continuing through the downtown and former industrial area and into the Taunton River. The Mill River portion of this system was dammed to provide water and water power for textile mills and silver operations along the river, which decimated the native herring fishery. After the decline of these industries, the aging dams created a significant flood hazard, requiring emergency repairs in 2005 to a Whittenton Mill dam. Two dams on the Mill River have been removed, and federal funding for removal of a third dam was received in 2017.

. Ponds and lakes. Taunton’s water resources also include a number of ponds and lakes. A chain of five ponds (Big Bearhole, Little Bearhole, Middle, Kings, and Furnace Ponds) make up the Lake Rico system in Massasoit State Park in East Taunton. These ponds are generally

accessible and offer public opportunities for fishing and canoeing, as are Watson Pond, in West Taunton, and Lake Sabbatia, a man-made lake located directly across Bay Street from Watson Pond State Park. Other ponds, such as Willis Pond, Black Pond, Oakland Mill Pond, Bunk Pond, and Prospect Hill Pond, are less accessible because of terrain and vegetation issues, or surrounding private property.

. Wetlands. Taunton’s wetland areas are a mix of fresh scrub-shrub swamp, wet forested areas, and areas of slow moving streams and adjacent floodplains. Significant wetland areas occur along the Three Mile River and along the Snake River corridor into the Hockomock Swamp. The quality of these wetlands varies according to their proximity to major roadways and surface water impoundments. River and stream flow is somewhat slow due to the relatively flat topography in the river corridors. Wetlands serve a number of important natural functions, including: protection of public and private water supply; protection of groundwater supply; flood control; storm damage prevention; prevention of pollution; protection of fisheries, and; protection of wildlife habitat. The Conservation Commission has adopted a local Wetlands Protection Bylaw that enhances the Massachusetts Wetlands Protection Act, which protects wetlands and the public interests that they provide.

. Aquifers. Although Taunton draws the majority of its drinking water from the natural reservoir in the Assawampset Pond Complex in neighboring Lakeville, there is a medium yield aquifer in northwest Taunton with two wells on the former Paul Dever State School property, and a medium yield aquifer in the eastern part of the city in the Massasoit State Park area.

B. NATURAL HABITAT

Taunton’s network of streams, ponds and wetlands provides for exceptional habitat diversity.

. Vegetation. Taunton’s mixed hardwood and softwood forests range from upland forests of oak, maple, beech, and birch in west and north Taunton to areas of sandy soils in east Taunton with scrub oak and pitch pine. Taunton’s wetlands include exemplary forest communities. In the Hockomock Swamp (the largest freshwater wetland in southern New England) some of the largest and best examples of Atlantic White Cedar Swamp in the state can be found. The Three Mile River Watershed contains spectacular Alluvial Red Maple Swamps and a rare Small-river (Silver Maple) Floodplain Forest. All three of these areas are considered Priority Natural Communities by the state’s Natural Heritage and Endangered Species Program (NHESP).

. Core habitat and biodiversity. The diversity of habitat in the Taunton River Watershed and its sub- watersheds provides good to excellent habitat opportunities for numerous fish and wildlife species. Taunton includes significant areas of biodiversity as identified in the BioMap2 program by NHESP and the Nature Conservancy. The map shows Core Habitat Areas that have retained intact ecosystems, and Critical Landscapes that are large landscape blocks with minor development impacts where adequate protection can support core habitat. Large undeveloped areas of swamp, forest, river corridor, and agricultural land, provide corridors and habitat connectivity that attract a variety of wildlife species, indigenous and migratory, to the Taunton area.

. Areas of Critical Environmental Concern. Taunton is one of only four communities in Massachusetts to contain parts of three state-designated Areas of Critical Environmental Concern (ACECs). An ACEC is an area containing concentrations of highly significant cultural, historic, archaeological, agricultural, inland surface waters, water supply, habitat resources, natural hazard areas, and special use areas. An area considered for ACEC nomination must document at least four (4) of these features in order to be eligible for designation. The Three Mile River ACEC documented all nine of these features. Taunton ACEC acreage: Three Mile River Watershed ACEC: 8,751 acres Hockomock ACEC: 2,300 acres Canoe River Aquifer ACEC: 1,250 acres

C. OPEN SPACE AND CONSERVATION LANDS

Taunton’s open spaces and rural areas are highly valued.

Taunton has a more than 5,951 acres of permanently protected conservation land and easements; 1,139 acres temporarily protected through the Chapter 61, 61A and 61B programs of tax abatements for land in forest, agriculture or recreation uses (with first right of refusal for the City in case of sale); and approximately 247 acres of park and recreation open space (not including school sites with recreational open space).

Open Space Type Acres Comments Publicly-owned conservation land: 20 sites 5, 568.98 . 80% in state-owned . Owned by the state and the Taunton Conservation Massasoit State Park and Commission Hockomock Swamp . 18% of Taunton’s land Conservation easements/restrictions: 12 314 . Conservation . Owned by Homeowners Associations in cluster Commission holds the developments easements Active park and recreation land: 11 sites 246.56 . Largest is Parker Municipal Golf Course (195 acres) Multi-purpose open space: 9 school sites Conservation and recreation land privately owned: 7 sites More . The Wildlands Trust of Southeastern Massachusetts than 68 . Taunton Sports Club acres . Taunton Eastern Little League . Western Little League . Taunton Youth Soccer Chapter 61 (Forestry): 20 parcels 359.63 Chapter 61A (Agriculture): 38 parcels 689.53 Chapter 61B (Recreation): 9 parcels 90.01 Source: Taunton Open Space and Recreation Plan (2015)

. A new, riverfront urban park opened in 2017. The City demolished the F.B. Rogers silver factory on the Taunton River, remediated soil contamination, successfully applied for grant funding, then used that funding to create the Weir Village Riverfront Park. The Park opened in mid-2017 and includes a boat rampand benches.. In addition, the impervious surfaces in the park (such as the parking lot and path) are designed to drain into rain gardens, which are green infrastructure designs that will remove pollutants from stormwater and snow melt before it drains into the river.

. The City’s 2015 Open Space and Recreation Plan goals focus on protection and connection. The 2015 Open Space and Recreation Plan developed six conservation and recreation goals: o Protect the quality and quantity of the city’s ground and surface water resources o Prevent the loss of critical natural resources and retain the integrity of existing o intact habitat areas and fisheries/wildlife corridors o Prevent the loss of the rural, cultural, and historical qualities and assets of the City o Develop a city-wide multi-use trail system including walking, hiking, biking, and water access features, where feasible o Promote coordinated, responsible land use management and planning o Expand and improve recreational opportunities that promote healthy, life-long experiences for residents of all ages and abilities

Open space and nature access issues include: o Massasoit State Park was closed in 2008 when lightning struck the campground and damaged electric systems. Volunteers, including mountain biking groups who value the park’s terrain, worked to maintain the park. It was reopened in 2015 to vehicles but the campground still is not functional. o Watson Pond State Park was also closed for a period of time but the swimming beach has reopened with lifeguards during the summer and more work is currently underway. o City-owned Rocky Woods in western Taunton has somewhat difficult access. However, mountain biking groups have created over 30 miles of marked trails. o The only public access on Lake Sabbatia is a boat launch. o Boyden Refuge lost its permanent caretakers, and the quality and safety of the park has decreased. o Trails around the city have been deteriorating and need to be reestablished. 6.0 TAUNTON’S HISTORIC RESOURCES

Source: http://bostonraremaps.com/wp-content/uploads/2015/08/brm2051-oh-bailey-taunton-ma-1875- 3000x2261.jpg

As one of the oldest communities in Massachusetts, Taunton has a rich history and inventory of historic resources.

. Historic designations. There are nine National Register How are Taunton’s historic Historic Districts and over 800 individual listings on the sites protected? National and State Registers of Historic Places. The National Register Historic Districts include the Taunton Listing on the National Register of Green District, Church Green District, Bristol County Historic Places honors the historic Courthouse Complex, Reed and Barton Complex, Old significance of a building or site, but Bay Road/Post Road, and Taunton State Hospital. Taunton it does not protect it from alteration or demolition—except if it may be also has a local historic district ordinance and has affected by a federal or state designated one local historic district, the Church Green government project. Local Historic District. A demolition delay bylaw provides for a six-month delay of demolition for properties older Taunton’s demolition delay bylaw than 50 years found to be preferably preserved. requires review of properties over Archaeological remains--prehistoric, early contact period, 50 years old when a demolition historic and industrial--have also been found in Taunton, permit is requested and may require a six-month delay to search especially along rivers and tributaries and are for an alternative to demolition if documented in the 2015 Open Space and Recreation the property is found to be Plan. preferably preserved. However, alteration of the building is not . Old Colony History Museum. Operated by the Old Colony subject to review. Historical Society, this museum focused on the history of Only structures within the Local Southeastern Massachusetts is located at Church Green Historic District are reviewed for in downtown Taunton. The Museum, which has an external alterations. The endowment, traditionally focused on the early history of alterations must receive a the region but is now enlarging its focus to include the Certificate of Appropriateness industrial and immigrant history of Taunton. In addition to before a building permit can be traditional museum activities to collect, preserve, issued. research, and exhibit historic materials, the museum has expanded its mission to become a “thriving regional center where visitors of all ages and origins develop a lifelong love of learning and an enduring connection to those who came before us.” Programs include visits by public school students, lecture series, walking tours, OCHM After Hours/First Thursdays program for artists and young professionals, and a summer mini-golf course with historic features.

The Union Mission Chapel-Historical Hall, built in 1867 on Cedar Street, is one of the few stone buildings in Taunton and has been vacant since 2009. Source: By Kenneth C. Zirkel - Own work, CC BY-SA 4.0 (Wikimedia Commons)

7.0 HOUSING AND NEIGHBORHOODS

The City of Taunton has focused on economic development, industrial development, and infrastructure improvements in recent decades. Although it has assisted in the development of affordable housing projects, there has not been an explicit strategy for housing development, whether market rate or affordable. The City has rehabilitation and repair assistance programs, supports first time homebuyer counseling, and has an affordable housing trust account with approximately $500,000 from a negotiated development agreement. Additionally, the City has a down payment and closing cost assistance program for first-time homebuyers that is run by Pro-Home. Taunton has not adopted the Community Preservation Act (which adds a small real estate tax surcharge for affordable housing, historic preservation, and open space and recreation projects, including access to state matching funds).

A. HOUSING

. Taunton has a more diverse housing stock than its neighbors. Less than half of Taunton’s housing units are single family detached structures. This reflects the city’s history of workers’ housing clustered around industrial villages, downtown development before the era of the car, and the relatively modest suburban expansion of housing after World War II.

Figure 8. Housing Stock by Size of Structure

Housing Stock by Size of Structure Source: ACS 2011-2015

50% 45% 40% 35% 30% 25% 20% 15% 10% 5% 0% Single Single 2-4 unit 5-19 unit 20 or more Mobile Boats, RVs, Family Family structure structure units homes Vans detached attached structure

. Taunton’s housing stock is relatively old. More than one-third (35.4%) of Taunton’s housing units were built in 1939 or earlier. Another two-thirds were built between 1940 and 1990. Fewer than 7 percent of the city’s housing units were built since 2000. . . Taunton’s housing stock has been growing slowly since 2000. Between 2000 and 2015, the city’s housing inventory increased at a rate (3.6%) that was just half that of Bristol County (6.5%). According to data collected by SRPEDD, between 2000 and 2016 Taunton issued permits for 1,430 housing units. Of those, 1,176 (82%) were for single-family homes and 254

were for units in structures Figure 9. Residential Building Permits with more than one unit.3 The peak year was 2005 Residential Building Permits when 159 new units (86% Source: SRPEDD single family) were permitted, with a precipitous 200 decline to 52 units in 2007. 150 By 2016, the number of 100 building permits had risen to 50 70 units, of which only 5 0 were multifamily (defined in 2000 2002 2004 2006 2008 2010 2012 2014 2016 the data as units in any Total Units Single Multi-family building with more than one unit). New housing production was already slowing before the recession began and is continuing today. . . The majority of Taunton homes are owner-occupied. Almost 63 percent of Taunton households own their homes while just over 37 percent rent, up from 62% in 2000. The youngest householders, and the oldest, are those most likely to rent. Over 92 percent of householders in the 15-24 years age cohort were renters in 2011-2015. That share dropped with each succeeding age group until, among those aged 60-64, only 26 percent rented. After age 65, the share of renters again increased. Even though a smaller share of middle aged householders rent, they represent a much larger rental pool because of their sheer numbers. They also represent a population that is more likely than younger households to be long term renters. . . Taunton has comparatively low Figure 10. Median Sale Prices in Taunton housing costs—and household incomes. Rents and home prices in the region and the City of Taunton are considerably lower than they are in similar communities closer to Boston. Taunton’s real estate market was very seriously affected by the Great Recession, with sales prices dropping over $100,000 between 2007 and 2012. Median prices have returned to pre-recession levels in 2017. . . Source: https://www.trulia.com/real_estate/Taunton-Massachusetts/market-trends/

3 SRPEDD bases its count on a survey local Building Inspectors.

. Many Taunton households need affordable housing. Massachusetts’ What is Affordable Housing? disproportionately high housing costs are Housing affordability is a function of housing cost, mitigated somewhat by the fact that household income and, in the case of home-ownership, financing terms. There are many ways to define affordable many residents have higher incomes. housing, but the most widely accepted definition is that used Taunton residents face the opposite by the federal government. The U.S. Department of Housing situation: housing costs are lower, but so and Urban Development (HUD) considers rental housing to too are incomes. Real incomes for be affordable if rent plus utilities paid by the tenant do not Taunton homeowners and renters fell by exceed 30 percent of gross household income. A tenant 5.3 percent and 20.4 percent, whose housing costs are between 30 and 50 percent of income is considered to be moderately “cost burdened.” respectively, between 2000 and 2015. At Those with housing costs that exceed 50 percent are the same time, housing costs were considered severely cost burdened. In the case of increasing. Adjusted for inflation, median homeowners, the standard is the same, but housing costs gross rent rose by 16.8 percent while the include the mortgage payment, real estate taxes and median monthly cost for owners with a homeowners insurance. mortgage increased by 8.8 percent. Homeowners with no mortgage debt outstanding – typically seniors who have paid off their mortgage – saw their housing costs rise by 38.7 percent. With housing costs rising, and incomes falling, cost burden will inevitably increase. . . Two-thirds of Taunton’s renter households lease their homes in 1-4 family dwellings, 53 percent in 2-4 unit properties. The city’s sizable stock of two and three family homes has long been a mainstay of its affordable rental inventory, but this is gradually changing as aging units are lost to deterioration and demolition and others become less affordable as they change hands or are upgraded. Even though less than 7 percent of the city’s housing qualifies as subsidized housing on the state inventory, nearly 20 percent of renters live in income restricted (affordable) homes in public or subsidized housing. Nearly 800 others receive federal or state housing vouchers to help them secure rental housing in the private market. . . The City is presently working with a non-profit, Neighborhood of Affordable Housing (NOAH) of Boston on the redevelopment of the Jones Block in the downtown. Robertson on the River – affordable housing redevelopment of the former Robertson/Cohannet Mills. The City is also having discussions with Neighbor Works of Quincy on potential affordable housing . projects.

B. NEIGHBORHOODS

Taunton neighborhoods reflect the city’s history.

Taunton’s rivers and historic mills provided the organizing principle for Taunton neighborhoods well into the twentieth century. Today, the different sections of Taunton are sometimes simply identified as East, North, West, and Central/South. Downtown has long been the civic core of the city and has an urban-scale downtown core with the iconic Taunton Green, imposing civic buildings such as the county courthouse, blocks of multi-story commercial and mixed use buildings. The streets surrounding the downtown core include a significant component of older two-, three- and four-unit rental buildings. Today residents tend to refer to Whittenton (on the Mill River) and “the Weir” (on the Taunton River) as the major neighborhood areas outside of downtown. East Taunton also has a recognized neighborhood identity, though its village center is very small. Neighborhoods which once had a more distinct identity include Britanniaville, on the Mill River around the Reed and Barton Company site, and Hopewell Village, near the site of a cotton mill, also on the Mill river, that burned down in the early twentieth century. On the Three Mile River, Oakland and West Villages (Westville) were also clustered around industrial employment centers in the western section of A mural commemorates a thriving Weir Village in 1900. the city.

8.0 TAUNTON’S ECONOMY

In the transition to a new economy, Taunton has focused especially on developing modern industrial parks, revitalizing downtown, and remediating and redeveloping contaminated industrial sites in the historic villages. The City’s welcome to South Coast Rail and the proposed First Light destination resort casino have also been part of its strategy. The industrial park strategy is a major success, downtown is improving, and the City has attracted federal and state funding for environmental assessments and a revolving fund to address brownfield sites.

A. EMPLOYMENT

Taunton has transitioned from a manufacturing to a service economy.

. Jobs in Taunton. As of 2016, Taunton’s businesses and organizations generated a little over 23,000 jobs, slightly down from 2001 when total employment was over 24,000. Table 2 provides a listing of the largest employers in Taunton based on data compiled for the state by private data provider Infogroup. Leading this list are a few larger operations related to defense sector R&D (General Dynamics at MSIP), the Morton Hospital, and government service. The list includes multiple wholesale trade / distribution companies, as well as Bristol County Savings Bank, and Quad Graphics (one of the larger manufacturing companies in Taunton).

Table 2. Largest Employers in Taunton (250 or more employees) Company Number of Employees Industry General Dynamics 1,000 to 4,999 Defense / R&D Morton Hospital and Medical Center 1,000 to 4,999 Health Care Taunton Civil Service 1,000 to 4,999 Government Taunton State Hospital 500-999 Health Care United Liquors Ltd 500-999 Wholesale Trade Agar Supply Co. Inc. 250-499 Wholesale Trade Bristol County Savings Bank 250-499 Banking/Finance Perkins Paper, Inc. 250-499 Wholesale Trade Quad Graphics, Inc. 250-499 Paper / Printing

Source: Massachusetts Executive Office of Labor and Workforce Development, Infogroup establishment data. Notes: There are numerous employers with 100 to 249 employees. United Liquors Ltd is a division of Martignetti Companies located at the Myles Standish Industrial Park.

Figure 11 shows the share of jobs, wages earned, and establishments in Taunton. Industries like manufacturing, wholesale trade, professional services, and information have a larger share of wages (green bar) than employment (blue), meaning that the industry tends to pay higher than average wages. Industries like retail trade and health care/social assistance have a relatively large share of jobs, and an even higher share of establishments (meaning few workers per establishment), but a relatively low share of wages.

Figure 1. Share of Taunton Jobs, Wages, and Establishments by Industry – 2015

30% 25% 20% 15% 10% 5% 0%

Employment Wages Establishments

Source: Massachusetts Executive Office of Labor and Workforce Development, ES-202 data

Meanwhile, Figure 12 provides data on the share of employment in Taunton compared to Bristol County and Massachusetts. The largest single sector in Taunton is health care and social assistance at 16 percent of all jobs, slightly below the share in the county (20 percent) and statewide (18 percent). This industry includes a mix of hospital and medical outpatient offices, along with a wide mix of non-profit social assistance organizations (which have a concentration near Taunton’s downtown). The next largest industry in terms of jobs in Taunton is retail trade with about 2,800 jobs, below the Bristol County average but above the statewide share of jobs.

Figure 12. Share of Employment by Industry – Taunton, Bristol County, Massachusetts – 2015

20%

15%

10%

Taunton Bristol Co. MA

Source: Massachusetts Executive Office of Labor and Workforce Development, ES-202 Data

The third largest industry in Taunton in terms of employment is wholesale trade, which has the greatest concentration of economic activity relative to statewide averages (10% of jobs in Taunton versus 4% in MA). Wholesale trade includes numerous distribution center activities and if anything, is underestimated in this data. This is because of two factors. First, as shown below, the Taunton Development Corporation estimates that there are about 4,100 distribution jobs at the Myles Standish Industrial Park (compared to 2,600 jobs in the latest state data). This may be related to a lag in reporting as the newly located Martignetti wine and spirits distribution company employs about 1,000 at the industrial park but this increase doesn’t appear to be showing up in the state data yet. Second, it’s possible that some distribution activity at businesses like the Boston Globe (printing) and Jordan’s Furniture (retail trade) may be counted in their “primary” industry.

Taunton also has a relative industry concentration in construction, transportation and warehousing, information, and public administration. The city is underrepresented in terms of jobs in business services and education (e.g., there are no private colleges in Taunton unlike many other parts of the state).

The city’s industry mix is not static but rather ever-evolving as shown in Figure 13 which presents industry employment in 2001, 2009 and 2015. The biggest job declines over this period were in retail trade and manufacturing, with wholesale trade generating steady growth (likely underreported here). Health care, similar to nationwide trends, is also a growth industry in Taunton along with construction, public administration, and accommodation and food services (restaurants).

Figure 13. Taunton Employment by Industry – 2001, 2009, and 2015

6,000

5,000

4,000

3,000

2,000

1,000

2001 2009 2015

Source: Massachusetts Executive Office of Labor and Workforce Development, ES-202 Data

. Taunton’s economy is part of a broader regional dynamic. The Taunton-Middleborough- Easton area saw very strong growth from 2000 to 2007 before a contraction with the Great Recession in 2008-2010, before recovering over the last five years. Of note, while the state (driven by Greater Boston) has now exceeded its previous employment peak and keeps expanding, the Taunton NECTA has still not reached its previous peak employment, demonstrating that the economic recovery has not been as robust in this part of the state.

Figure 14. Taunton-Middleborough-Easton NECTA and MA Employment Growth Index 2000-2016

1.15

1.1

1.05

0.95 2000 2002 2004 2006 2008 2010 2012 2014 2016

Taunton NECTA MA

Source: Massachusetts Executive Office of Labor and Workforce Development, Current Employment Statistics (CES- 790) Data (Note: NECTA stands for New England city and town area, similar to metropolitan statistical areas

. Comparisons with regional communities. Similar to the earlier comparison of Taunton to a small set of nearby cities and towns, Table 3 provides a selection of economic data to better understand Taunton’s economic development conditions. One telling data indicator is the jobs to population ratio which provides a sense of how the scale of the economic business base of the city relative to its population. Interestingly, Taunton, Attleboro, Fall River and New Bedford all have virtually identical ratios around 0.4 which is typical for places that act as both a regional job center but also have a fairly large share of residents who commute to jobs in other places. Interestingly, Mansfield has the highest ratio of the comparison cities, essentially equal to the statewide average, and indicative of the sizable industrial base of the town even if better known as a “bedroom community” with a large outdoor music venue. . . Also interesting is that Taunton’s average weekly wages are over $1,000, above the average for the comparison cities/towns (though still below the state average). This likely reflects the city’s relatively strong base of jobs in wholesale trade, construction, and information. Again, this data represents jobs based in Taunton rather than resident workers from Taunton. Taunton also has a relatively high commercial and industrial property (CIP) tax rate of $34.70 per $1,000 in value which generates over 38 percent of total property taxes, highest of the comparison cities and almost ten percentage points above the statewide average of 28.6 percent. This is another indicator of the importance of Taunton’s business base to the city’s fiscal resources.

Table 3. Economic Data for Taunton and Comparison Cities – Establishment-Based Data

Average Commercial Employment Jobs to Pop Weekly / Industrial Comm / Indust (2015) Ratio Wages Tax Rate Taxes % of Total Taunton 23,260 0.41 $1,011 34.70 38.3% Attleboro 17,839 0.40 $936 20.43 23.4% Fall River 35,314 0.40 $858 30.64 39.4% Mansfield 11,682 0.49 $868 20.08 28.8% New Bedford 38,283 0.40 $869 36.03 35.3% Massachusetts 3,428,259 0.50 $1,283 N/A 28.6%

Source: Massachusetts Executive Office of Labor and Workforce Development, ES-202 Data; American Community Survey data 2011- 2015; and Massachusetts Department of Revenue, Division of Local Services

. Industrial market analysis. Despite a longer-term decline in manufacturing, the Taunton area maintains a significant inventory of industrial real estate properties, with a relatively low vacancy rate. Demonstrating the growing demand for industrial space, net absorption has been steadily increasing over this time period with the region adding a net positive of 33 million square feet of occupied space. . . By far the largest and most active industrial area in Taunton is the Myles Standish Industrial Park (MSIP). Developed in phases over the past few decades, MSIP is now over 1,000 acres and as of 2016 included 112 companies and over 8,000 employees. Those totals don’t include a few new companies that are locating at the park such as the headquarters for Dennis K. Burk (oil distribution) with another 70 employees and an under-construction advanced manufacturing facility for Maxon Motor. Based on interviews with local leaders,

the park is now mostly built-out with a very low (4 percent) vacancy, and represents the largest industrial park in southern New England. . . The Taunton Development Corporation, which has overseen the development of MSIP, also manages the Liberty and Union Industrial Park (LUIP) near Rt. 24. That park is most notable as the home for Jordan’s Furniture (headquarters and distribution) and over 500 employees. It also is the site of the planned tribal resort casino (First Light). The total number of companies and employees at each industrial park are shown in Table 4. Combined, the parks contribute almost 9,000 employees working in Taunton, and over 120 companies. Industries at MSIP are fairly balanced between manufacturing, distribution, and services, with distribution activities generating the largest number of jobs.

Table 4. Number of Companies and Employees at Taunton Industrial Parks

Industries Companies Employees Manufacturer 30 2,056 Distribution 34 4,097 Service 48 1,943 MSIP Total 112 8,096 LUIP Total 10 845 TOTAL 122 8,941 Source: Taunton Development Corporation Note: Detail by industry for Myles Standish Industrial Park (MSIP), and totals . for Liberty and Union Industrial Park (LUIP) for 2016. . . While it is difficult to translate recent industrial market data into definitive projections of future demand, the data generally indicates a strong industrial market that has the potential to absorb additional space over time. Combined with the success reported at area industrial parks (though it often takes time to achieve build-out), the available evidence highlights industrial uses as a potential economic growth opportunity in Taunton as businesses seek industrially-zoned larger-scale sites with good highway access. . . Where Taunton residents work. The latest data on commuting patterns from the U.S. Census Bureau indicate that almost 30% of employed Taunton residents also work in Taunton. Twenty-eight percent work elsewhere in Bristol County; 39% work elsewhere in Massachusetts; and a small percentage (3.2%) work out of state (probably in Rhode Island). The cities and towns where Taunton workers commute to most frequently are Boston (2,632 workers), Brockton (1,369), Fall River, and Attleboro. . . Where Taunton employees come from. Over 16,500 workers commute into Taunton. In addition to the approximately 5,000 who live and work in Taunton, the cities and towns that provide the most workers commuting into Taunton for work are Fall River, New Bedford, Brockton, Attleboro, and Boston.

Figure 15. Taunton Commuting Patterns (2014)

Source: U.S. Census Bureau, Longitudinal Employer-Household Dynamics

B. PROPERTY VALUE AND TAXES

Taunton property values remain below pre-recession levels.

. Tax rates. As mentioned above, Taunton receives a relatively large share of its property tax revenue from its commercial and industrial businesses (over 38 percent) based on a rate of $34.70 per $1,000 in value. Residential properties, meanwhile, contribute 61.7 percent from a rate of $15.71 per $1,000 in value. Taunton and some of its Southeast Massachusetts cities experienced a much more dramatic rise and fall before and after the recession compared to statewide trends. This lack of recovery in assessed value directly impacts the fiscal resources of cities like Taunton.

. Assessed value. The changes in total assessed value are primarily driven by residential values with residential values starting to increase in 2017 but still well-below the level in 2007 ($3.6 billion in 2017 versus $4.9 billion in 2007). Commercial and industrial business assessed values have been relatively flat during this period, with steady growth produced by personal property. If the casino project overcomes legal challenges and goes ahead, it will provide $8 million annually in PILOT funds (Payment In Lieu Of Taxes) and other payments, resulting in a total of $14-$15 million annually to the City of Taunton.

C. DOWNTOWN REVITALIZATION

Downtown is one of Taunton’s greatest assets.

Downtown retains a very walkable urban form, many historic civic and commercial buildings, and, of course, Taunton Green. Making Downtown a live-work-shop-play neighborhood and a destination for visitors is a critical goal for Taunton. Today, the approximately 50 acres of downtown includes an estimated 70 businesses, 2,000 employees, and 1,000 residents, with a 10% vacancy rate.

. Downtown revitalization initiatives. The City has been working with downtown stakeholders in the last ten years to promote downtown revitalization. This has included $1.8 million in streetscape and infrastructure improvements on Main Street, mixed use zoning, open space improvements (Mill River Park and the Riverfront), and affordable housing development. A Storefront Awning and Sign program and a Rental Rebate program, to help new storefront businesses pay half their rent for up to two years, have been successful; the City Council approved a second round of funds ($50,000) for the Rent Rebate program beginning in July of 2017. In addition, a new Trial Court building was constructed in downtown. Private investment includes two restaurants, three retailers, and the Bristol County Savings Bank headquarters. Some of these improvements implement recommendations of the 2009 Downtown Taunton Development Study, though other recommendations, such as redevelopment of the Union Block, still await financing.

. Downtown organizations. In 2010, Taunton established a Business Improvement District (BID)with 130 contributing property owners providing an annual budget of approximately $130,000. These funds support staff, maintenance services, beautification, joint marketing, advocacy, and finding tenants. A nonprofit partner, the Downtown Taunton Foundation, pursues grants, plans cultural events such as concerts and block parties, runs the municipal art gallery, and (with the Chamber of Commerce) organizes the Lights On festival, which attracts thousands of people to the lighting of Taunton Green and myriad other family- friendly activities. The City and its partners are interested in creating and arts and culture districts. One project that is yet to receive funding is the District Center for the Arts which would involve renovation of the former District Court into a community performance and events center with rentable office space, at a total estimated cost of $1.1 million

According to BID members and other stakeholders, major issues for downtown include improvement of gateways to downtown and streets off Main Street; activation of empty upper story space; development of more market rate housing in and around downtown; streamlined permitting; and a perception that downtown is unsafe. Social service agencies locate in many downtowns where rents are relatively low because of access to public transportation for their clients, among other reasons. When there is not enough activity generated by businesses or events, the agencies and their clients sometimes appear more visible than they might otherwise be. This can affect perceptions of the downtown, even though it is not unsafe.

. 2016 ULI Report. The most recent planning effort for downtown is a May 2016 Technical Assistance Report by the Urban Land Institute. While the ULI report identified a number of assets and opportunities, it found some series challenges:

o The City’s lack of a capital planning process o Lack of a long-term vision for downtown, “a clear brand or compelling value proposition” o Cumbersome permitting process o Market rate housing and commercial development needs incentives to be feasible given existing rents and the cost of renovation or building, for example, upper story housing has a $30-40,000 financing gap per unit o Perception of downtown crime (despite low crime statistics) o Wayfinding for parking o Limits on pedestrian connectivity

. The ULI report’s recommendations include the following, some of which are already being implemented:

o Long term capital plan (Taunton’s first 5-year CIP is now being prepared) o Improved permitting process with a business advocate or ombudsman (under discussion) o Rebuilt City Hall downtown (architectural design underway) o Downtown vision, brand, marketing message and district plan o Improved access and use of Taunton Green through design o Marketing analysis and strategy o Visible police presence downtown o More placemaking activities such as festivals, farmers’ markets, pop up stores o Better connect Weir Street with Downtown through pedestrian improvements o Create a center for arts and culture

Source: By Kenneth C. Zirkel - Own work, CC BY-SA 4.0

9.0 COMMUNITY SYSTEMS

Taunton’s infrastructure and transportation systems are being improved after decades of deferred maintenance.

Some elements of Taunton’s infrastructure are nearly 150 years old and the City’s precarious fiscal condition for many years meant that infrastructure and roads did not receive the maintenance that they needed. But cities with unreliable and crumbling infrastructure cannot be truly successful. The City is now committed to modernizing its infrastructure. Water and sewer system improvements, along with road paving and reconstruction projects are underway. At the time of writing, the City is preparing its first five-year Capital Improvement Plan.

A. MOBILITY AND CONNECTIVITY

The major transportation question facing Taunton is whether, how, and when it will get a commuter rail station.

. South Coast Rail. As originally planned, including environmental approvals, South Coast Rail, with environmentally superior electric trains, would take the “Stoughton” route to an Arlington Street station near downtown Taunton and then continue in two lines to Fall River and New Bedford.

Because the cost of the Stoughton route is now estimated at $3.4 billion, the state has proposed a two-phase process. The state filed a notice of project change in March 2017 for a Phase 1 of South Coast Rail that would use diesel trains and incorporate an existing commuter rail route through Middleboro and a station in East Taunton at a location called Cotley Junction near the Galleria Mall. Service potential is limited because a segment of the route is single track so this option, to begin in 2022, would be short term. It would also be a 90-minute one-way ride to Boston from New Bedford, compared to 77 minutes for the Stoughton alternative. Investment would continue in Phase 2, which would include the Taunton Arlington Street Station, with electric train service to begin in 2030, at which point the Phase 1 service would end. This two-phase plan is controversial in the region because of fears that the Phase 2 route would never be built and local concerns about the Phase 1 route impacts. Figure 16. South Coast Rail Project For Taunton, the arrival of commuter rail at the Arlington Street Station has long been viewed as crucial to the continuing revitalization of downtown, just as the arrival of commuter rail has energized Attleboro and Mansfield. The Cotley Junction/East Taunton station would not bring the same benefits.

Taunton’s downtown and historic villages have walkability as part of their DNA but public transportation is limited and residents need a car for most activities.

. Pedestrian facilities. Walking around greater downtown has been improved with the completion of a sidewalk and streetscape improvement project that included concrete sidewalks, installation of new granite curb, drainage improvements, planting of shade trees, and the construction of wheelchair ramps to meet ADA requirements. However, the suburban and rural parts of the city are not well connected (according to sidewalk data from the Metropolitan Area Planning Council). Job centers and regional destinations such as the Myles Standish Industrial Park and Silver City Galleria Mall are not accessible by walking.

The organization Mass in Motion, an initiative of the Massachusetts Department of Public Health to make Massachusetts more walkable, conducted a series of walk audit projects with consultants from walkBoston. The audits include recommendations on pedestrian safety, appearance of walking routes, and changes to signage. The City is currently engaged in a

major sidewalk improvement program in order to ensure that all Taunton sidewalks are in full compliance with the Americans with Disabilities Act.

. Bicycle network. There are currently no designated bicycle facilities in Taunton, including on- street lanes, off-street paths, and bicycle parking locations. Despite this, Taunton residents use bicycles for recreational purposes and getting around town. SRPEDD released a Regional Bicycle Plan report in February 2016. An important element of the regional plan is the Taunton River Trail, which is currently being planned by the Taunton River Trail Committee. The core committee includes representatives from the Taunton River Watershed Alliance (TRWA), the Massachusetts Department of Conservation and Recreation (DCR), the Wildlands Trust, the National Park Service (NPS), the City of Taunton and SRPEDD. Other potential bicycle facilities are the Norton‐Mansfield Rail Trail at the Myles Standish Industrial Park in Taunton and connections into Easton and Brockton off the Norton‐Mansfield route. The Plan recommends communities consider installing bike racks near local businesses and including requirements for bicycle racks in bylaws and ordinances. . . Pathways Committee. Following up on an action item of the Regional Bike Plan and community interest, Mayor Hoye formed the Pathways Committee. The Committee’s mission is to work with the City's boards, commissions, and departments to create multimodal opportunities in Taunton. The Committee’s vision is for a network of complete streets that connect Taunton’s neighborhoods and open spaces for walking and cycling. The Pathways Committee is in the process of mapping potential paths and assessing the feasibility of alternatives, including the Taunton River Trail, between downtown and the new Weir Riverfront Park, and a spur from the River Trail to the Boyden Park. . . Vehicular transportation. Taunton is well-served by major regional arterial routes and highways. State routes 138, 140, 24 (running north- south) and 44 (running east-west) bisect the city. Interstate 495 (running east-west) passes through the northwest section of the city with an interchange located near the Myles Standish Industrial Park. The City is engaged in a road improvement and reconstruction program to catch up on many years of deferred maintenance. .

. Commuting. Most employed Taunton Figure 17. How Taunton Residents Commute to Work residents drive to work alone, though there is a relatively large percentage that carpool. The average commute time is 20.5 minutes, but slightly more than 4 % of the workforce (approximately 960 people) have “super commutes” of more than 90 minutes each way. . . Bus service. The Greater Attleboro- Taunton Regional Authority (GATRA) provides bus service to Taunton. GATRA’s services are fixed route bus routes and Dial-a-Ride (curb-to-curb service for senior citizens and transportation for disabled individuals). GATRA’s service runs from 6:00AM until 6:00PM on weekdays, and 9:00AM until 5:00PM on Saturdays. GATRA buses are ADA accessible and have front mounted bike racks for bicycle commuters. GATRA’s service extends to nearby communities as well as to Providence, Rhode Island. Bloom Bus provides express commuter service to Boston. Both GATRA and Bloom Bus have pick-up locations west of downtown. There is no public transportation service to employment centers like Fall River or New Bedford. A third bus service, Dattco, provides bus service to Boston, including Logan Airport, and New Bedford. . . Rail service. The nearest MBTA commuter rail train station towards Boston from Taunton’s downtown is Mansfield, about 13 miles to the northwest, on the Providence/Stoughton Line. The potential for South Coast Rail service is discussed above. Freight rail service in Taunton moves goods along the Bay Colony Line’s Dean Street Industrial track. This track runs 1.5 miles between the Weir Junction (south) and Ventura Grain on Longmeadow Road (this is the northern terminus of the Dean Street Industrial track). Customers along the line include Ventura Grain, Gallo (road salt), and Northeast Refrigerated. The track also has a connection to the CXS line which locally runs between Middleboro and Attleboro. This line is occasionally used to deliver goods to the Myles Standish Industrial Park. . . Airport. Owned by the City, Taunton Municipal Airport (King Field, TAN), located in East Taunton, is classified as a General Aviation/General Utility Airport and receives no City funding. It serves small airplanes with a maximum gross takeoff of 12,500 pounds. It is city- owned and maintained and operated by the Taunton Airport Commission. In an area of 245 acres, the airport has two runways, one asphalt and one turf and gravel surface, an aircraft refueling area, designated aircraft and land vehicle parking areas, historic and private hangars, a small terminal building, and a signal tower light. The airport is contained within the Airport District zoning definition. Approximately $150,000 in funding comes from the Federal Aviation Administration and there is some additional revenue from land leases for hangars. New uses could provide additional revenue, but the FAA has to approve any conversion from airport use and the airport is not well-located for any uses that would need good highway connections. Companies at the MSIP report that they do not use the airport or consider it an asset to them.

B. INFRASTRUCTURE SYSTEMS AND UTILITIES

Taunton is modernizing its infrastructure systems.

Taunton’s water supply comes predominantly from the state’s largest natural reservoir in Lakeville. Like many older cities, Taunton has been facing expensive water and sewer upgrades, including environmental requirements to eliminate sewer discharges into the Taunton River. The more densely developed part of Taunton is sewered, but the remaining more suburban and rural areas have septic systems. Taunton also has its own electric plant, the Municipal Lighting Plant, with competitive electric rates. The City is a regional provider of water, wastewater, and electric services to some adjacent towns. All three of these systems are enterprise funds, which means that their finances are separate accounts, financed by fees, from the City’s general fund.

. Drinking water. The city’s drinking water supply is from the Assawompset Ponds Complex (APC) located in the towns of Lakeville, Middleboro, Rochester, and Freetown, the state’s largest natural reservoir, and, to a lesser degree, two gravel-packed wells on the former Dever State School campus. The City is authorized by the state to withdraw 7.49 million gallons per day (MGD) from the two sources, 7.29 MGD from the APC and the remainder from the Dever Wells. The water from the ponds is treated at the Rocheleau Water Filtration Plant in Lakeville and from the Dever Wells at the Myles Standish Industrial Park Storage Tank. There are five storage tanks in the city. Taunton also distributes water to parts of Berkley, Lakeville, Middleborough, Raynham and Norton, as well as to North Dighton and the Bridgewater state prison. Taunton’s Department of Public Works is in the process of replacing aging water distribution pipes, which date back to as far as 1876. A water system master plan update is also underway, and is expected to be completed in late 2017. . . Wastewater collection and treatment. Taunton is 48% sewered, and the remainder is on septic systems. The city is currently developing a comprehensive wastewater plan. There are 141 miles of sewer pipes. Many septic systems in the rest of the city are believed to be failing. Veolia, a private contractor, operates the city’s wastewater treatment facility on West Water Street. The facility collects and treats municipal wastewater from sewered areas of Taunton and parts of Raynham and North Dighton. The facility is permitted by the Environmental Protection Agency to discharge to the Taunton River. Over the past two decades, the facility has had periodic challenges meeting the discharge permit requirements and the City and the EPA signed a consent order to separate CSOs (Combined Sewer Overflows). . . The City has invested some $60-70 million in sewer upgrade and separation work over the last ten years. There is a new water treatment facility at Myles Standish that treats and stores water for the municipal supply system pumped from the City’s Dever Wells. The City’s sewering upgrades and I/I program have also helped to improve surface and groundwater quality in targeted areas. An updated Comprehensive Wastewater Plan is in the Environmental Impact Report phase. The estimated future investment to improve the system ranges from $71 million to $100 million. . . Flooding and stormwater management. Cobb Brook, the Mill River, and areas along the Taunton River east of downtown have experienced chronic flooding and flood related problems due to historical development patterns that resulted in floodplain encroachment and diminished floodway capacity. Three initiatives address these issues: Wild and Scenic Taunton River designation, the Mill River restoration project, and the Cobb Brook remediation project. Elsewhere in the city, the Boyden Wildlife Refuge has experienced erosion and

sedimentation issues due to natural processes, resulting in undermining of the boardwalk and fencing along the slopes. . . The Mill River Restoration Project is underway, with the Hopewell Mills Dam removed in 2012, a fish ladder constructed at Morey’s Bridge Dam in 2012, the Whittenton Dam removed in 2013, and finally the West Britannia Dam will be removed in 2018.4 The Mill River is a tributary to the dam-free Wild and Scenic Taunton River which in turn flows into Narragansett Bay. National attention focused on the Mill River in 2005 when Whittenton View downstream at Whittenton Dam site with Dam came close to failing during an extreme natural regrowth in the foreground and flood. The crisis catalyzed the City, agencies, and completed channel restoration through the dam non-governmental organizations to examine the site, 2013, Mass EEOA public safety benefits of removing three aging dams on the Mill River. . . Taunton is incorporating green infrastructure projects when it has the opportunity, as in the permeable pavement and bioswales in the new Weir Riverfront Park, which will mitigate stormwater impacts on the Taunton River. Behind City Hall and the police station is Mill River Park. This park, completed in 2012, is a bio-retention area that doubles as a river walk. . . Solid waste. The Department of Public Works manages the city’s solid waste. The City has a “pay as you throw” system and single stream recycling. Waste Management, a private contractor, operates the city-owned Taunton Sanitary Landfill. Facilities at the 84-acre landfill site are landfill sections and cells, residential recycling/solid waste collection drop-off, municipal sewage sludge disposal, and a landfill gas-to-energy facility (operated by Fortistar Methane Group). The landfill is permitted to handle up to 685 tons per day. The landfill is scheduled to be closed in 2020, but a final decision on how the city will handle solid waste has not be approved. Future ideas for the closed landfill include a “brightfields” community solar site and a transfer station. . . Energy and telecommunications. The Taunton Municipal Lighting Plant (TMLP) was established in 1897. It is the municipal electric utility for the city. TMLP is the largest regulated municipal electric utility in Massachusetts. It produces, purchases, and distributes electricity to approximately 35,900 customers in the City of Taunton and the surrounding areas. TMLP’s residential electricity rate (750 kWh) was $101.59 in 2015. This rate is relatively competitive with other Massachusetts municipal light plans. In comparison, the best rate at that time was in Littleton ($85.98) and the worst rate was in Fitchburg ($177.95).5 The TMLP is interested in developing community solar for Taunton. . . The TMLP also operates an internet access business unit and provides services to approximately 400 customers as TMLP Online.6 TMLP provides fiber internet and network service to residential, commercial, industrial, and municipal customers in the area, including the entire Taunton school system as well as Morton Hospital and its associated medical

4 U.S. Fish and Wildlife Service 5 http://www.mapc.org/sites/default/files/MAPC_MLPWhitePaper_Jul2016.pdf 6 http://www.tmlp.com/annualreports/15AnnualReport/2015_Financials.pdf

facilities. Wired internet is also available in Taunton with Xfinity (cable), Verizon (fiber and DSL), and Windstream (DSL).

10.0 COMMUNITY FACILITIES AND SERVICES

. City Hall. Taunton City Hall has been temporarily located from 15 Summer Street into a re- purposed school since a fire in August 2010 rendered the nineteenth-century structure unusable. A new city hall at the original site on Church Green is under design and is expected to cost approximately $20 million. . . Public safety. Emergency services in Taunton face several challenges. The police and fire department facilities need to be upgraded. The police station was demolished in 1978 and the headquarters have been temporarily located in a re-purposed supermarket since. There are several district offices but only one is open. The central fire station is the oldest operating fire house in the country. The City is currently working on a combined fire and police dispatch center. Opportunities for future public safety improvements include a combined public safety facility with police and fire. . . Taunton public library. The library is located at 12 Pleasant Street. The building, a distinguished Beaux Arts design, was constructed in 1903, with a modern addition in 1979. It was added to the National Register of Historic Places in 1984. The library’s operating income is $1,196,531 and it has 207,693 books. . . Parks, cemeteries, and public grounds. The city has parks with 9 playgrounds, 19 sports fields/courts, one swimming pool, and a splash pad. The pool, splash pad and many fields are located at Hopewell Park. Passive recreation or nature parks include Boyden Sanctuary, Memorial Park, and Weir Riverfront Park. An improvement program for Memorial Park is underway. . . Council on Aging/senior center. With an aging population, senior services are increasingly important in Taunton. The City’s Council on Aging provides assistance in referrals and accessing services and provides programs for fitness, nutrition and meals, and recreational/social activities. . . Schools. The Taunton Public School district has been improving performance significantly in recent years. The state classifies schools into one of five accountability levels, with Level 1 as the highest. In 2016, three elementary schools were classified as Level 1, two at Level 2, and one at Level 3. The three middle schools were classified as Level 2, and the high school as Level 3. The preschool and alternative high school were not classified. The district’s performance still lags the state in the “Composite Performance Index (CPI).” The state Department of Education describes the CPI as “a number from 1-100 that represents the extent to which all students are progressing towards proficiency in a given subject. Then all students demonstrate proficiency on MCAS and/or PARCC tests, the CPI will be 100.”

Source: Massachusetts Department of Education, 2016 Taunton Public School District Report Card Overview (http://profiles.doe.mass.edu/reportcard/districtreportcardoverview2015.aspx?linkid=106&orgcode=02930000&fycod e=2016&orgtypecode=5&) . . In addition to the Taunton Public School System, there is a regional vocational high school, parochial schools, and a cosmetology trade school. - Public high schools: o Bristol-Plymouth Vocational Technical (students: 1,119, grades 9-12) o Taunton High (grades 8-12) o Taunton Alternative High School (grades 8-12) - Public elementary/middle schools (grades 5-7) o Benjamin Friedman Middle (students: 935) o John F Parker Middle (students: 457) - Public elementary schools (K-4): o Joseph C Chamberlain (students: 545) o Edmund Hatch Bennett (students: 390) o Elizabeth Pole (students: 382) o Hopewell (students: 338) o H H Galligan (students: 277) o Mulcahey Elementary School (students: 460) - Private high school (grades 9-12): o Coyle & Cassidy High School (students: 577) - Private elementary/middle schools in Taunton: o St Mary's Primary School (students: 266, grades pk-5) o Taunton Catholic Middle School (students: 207, grades 5-8) o Our Lady of Lourdes School (students: grades PK-5) - Trade School (cosmetology) o Rob Roy Academy-Taunton (full-time enrollment: 56) 11.0 LAND USE REGULATION

A. LAND USE REGULATION

The Taunton zoning ordinance has many conditional uses and allows a mixture of uses in a few places.

Municipalities in Massachusetts have the authority to regulate the use of land, building and structures under MGL Ch. 40A. Conventional zoning typically separates land uses—residential, commercial, and industrial—reflecting the fact that zoning was originally developed to protect residential areas, especially single family neighborhoods, from the noxious impacts of industrial uses in the early twentieth century. With the expansion of car ownership in the second half of the twentieth century, the separation of uses required by conventional zoning helped create the

familiar auto-dependent landscapes that we all recognize: subdivisions far from community destinations and stores, strip retail and malls, office campuses, and industrial parks. In general, Taunton’s regulatory system is based on a separation of land uses

However, older downtowns and centers like Taunton’s were built as walkable environments with a mixture of commercial and housing uses that are now seen as desirable. At the same time, the industries that did have adverse impacts on the mill villages that grew up around them no longer operate. In many cases, their legacy of contamination remains a challenge, but their walkable village character offers opportunities for mixed-use redevelopment.

. Residential districts. The City of Taunton has three Residential Zoning Minimum Lot residential zoning districts. While the minimum lot size in District Size (sq. ft.) the older, urban part of the city is 15,000 square feet, a Urban 15,000 large number of lots in older parts of the city are Suburban 30,000 located on smaller lots (the median lot in the Urban Rural 60,000 Residence District is 11,000 sf). This makes all of these lots nonconforming, requiring variances or special permits for changes of more than 10% of the total square footage, with some exceptions. The only residential uses allowed by right in Taunton are single family homes in the three residential zoning districts, and two-family homes in the Urban residential districts. All other housing requires a special permit—from the Zoning Board of Appeals for three-family dwellings (allowed only in the Urban and nonresidential districts), and from the City Council for any multifamily development of 4 or more units (allowed only in the Urban residential district, Central Business District, and Business District). In a mixed-use building, multifamily uses are allowed only in commercial and industrial districts with a special permit from the Zoning Board of Appeals. Cluster residential development is allowed in rural, suburban and industrial zoning districts with a special permit from the Planning Board.

. Commercial and industrial districts. There are three Commercial/Industrial Zoning business districts, one office district, and one industrial Districts zoning district in Taunton. In addition, there is an Airport Central Business District. Segments of Routes 44, 140 and 138 are in the Business Highway Business District, as are the mall and several Office locations with strip retail or big box centers. Industrial Highway Business zoning districts cover more land than suburban-style Industrial retail. Airport . . Open space district. Taunton’s Open Space and Conservancy District is primarily for preservation of open space. The only other uses allowed are indoor/outdoor skating and a stadium. . . Overlay districts. Overlay districts provide for additional design or other requirements that take precedence over the base zoning regulations.

o Two districts are focused on regulating structures that would be vulnerable to flooding: the Floodplain District and the Special Flood Hazard District. The Special Flood Hazard District covers Zones A and AE of the Bristol County Flood Insurance Map issued by FEMA. Floodplain Districts are described in the ordinance for segments of the Taunton, Three-Mile, and Mill River valleys, and the Cobb Brook valley. o The Water and Aquifer Resource Protection Overlay District is designed to protect the quality and quantity of groundwater and groundwater recharge areas.

o The Roadway Improvement Overlay District is used when the City acquires land for road improvements. It provides that conforming lots before the land is taken will continue to be regarded as conforming afterwards. o The Transit-Oriented Development Overlay District provides for mixed-use, walkable development around the proposed Arlington Street commuter rail station and the GATRA Terminal/Parcel 6A site. TOD requires a special permit from the Zoning Board of Appeals, specifies density, dimensional, and use requirements and also includes a limited number of site and architectural design standards.

. Mixed use areas. Upper story housing in existing commercial buildings is allowed in all business districts (except office). Multifamily developments are also allowed in the Business zoning district. Mixed use development is also permitted in the Transit Oriented Development Overlay District. . . Complex permitting system. Three entities have a major role in granting development permits including special-permit granting authority, depending on the type of project: City Council, the Zoning Board of Appeals, and the Planning Board. As noted earlier, any housing development with more than two units requires a special permit, as do many nonresidential uses. To receive a building permit, a multifamily or nonresidential project proponent must submit documents for approval to Planning and Conservation, the City Engineer, Board of Health, Fire, Plumbing/Gas Inspector, Public Works. (Section 440-306) Site plan review requires review within 15 days by twelve agencies, City Council, the Mayor’s office, and, if applicable, the Historical Commission and the Economic Development Director, and the Development Impact Review Board must provide a report incorporating all the agency reports within 20 days. Projects that meet certain threshold size are subject to a Development Impact Statement on traffic, environmental, fiscal, and community impacts, all based on impact standards identified in the ordinance.