PORTSMOUTH TANK FARM

REDEVELOPMENT PLAN

ROUGH FIRST DRAFT – September 2008

IMPORTANT NOTE: This is by not a finished product. The purpose of this first draft is to outline a plan and to begin to fill in what portions we can at this point. Included are ideas for redevelopment that may change pending further information and public input. Portions have yet to be started. There are maps, figures, and information to be added. A certain amount of reorganization must be done. And there are many questions for which we do not yet have answers.

The purpose of releasing a draft at this point is to inform the public, present some ideas, and get feedback.

On Chapter 3: We have not started writing Chapter 3 yet - an overview of strategies - because it is too soon to do so.

CHAPTER 1. PROLOGUE

The goal of the Redevelopment Plan (the Plan) for the Tank Farms is to fulfill a vision of a vibrant, economically viable, and tax-positive West Side. This entails planning the re- development of the area in a manner which is consistent with the Portsmouth Comprehensive Community Plan and the West Side Master Plan (WSMP). The Plan should maximize its utility for economic development while preserving its natural beauty and recreation/open space value for the community. This Plan is more than just a land use plan, as provision of utilities, methods of conveyance, and cleanup of contamination are equally important to the eventual use of these areas.

A.) A User’s Guide to the Tank Farms Redevelopment Plan The Tank Farm Redevelopment Plan is a comprehensive look at the future of the Tank Farms and how their development can be positive for the Town of Portsmouth. This subsection will help you navigate quickly through this complex document to get to those elements that are most important to you.

1. Prologue: Introduces the Tank Farms Redevelopment Plan, describes its structure, explains why the Plan was prepared, and explains how and by whom the Plan was created.

2. The Vision for the West Side: Briefly lays out the vision of a vibrant, positive future for the Tank Farms. 3. Overview: Functions as an Executive Summary of the Plan. After a physical description of the Tank Farm planning area, you will find a description of the objectives of this Plan along with and explanation of specific criteria for success of the Plan. The stage is set in the next subsection, Planning Context. Following this are two subsections summarizing the physical plan for the Tank Farms as well as implementation strategies to bring the physical plan into fruition. (THIS PART IS NOT YET WRITTEN.) 4. Planning Context: Sets the context of the Tank Farm Redevelopment Plan. The Planning Context assembles pertinent facts on demographics, the regulatory framework, economics, transportation, open space, natural resources, infrastructure and land use together to set the stage for the next two sections on strategy and implementation. 5. Planning Strategies: Describes in detail, all of the planning strategies that will fulfill the vision for the Tank Farms. The strategies address land use (options for patterns of land use, rezoning recommendations, recommendations for existing structure removal or improvement); economic development (priorities, specific recommendations); transportation (roadways and streets, transit options, bicycle networks, trails, paths and sidewalks); and utilities (water, sewer, and power recommendations). The usual planning horizon for land use and redevelopment plans is 20 years. 6. Implementation: Details how the planning strategies in the Tank Farm Redevelopment Plan can be accomplished. The section discusses military land transfer processes, project financing, Federal and State cooperation in transportation matters, marketing strategies for the Plan, and

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other topics that need to be addressed in order to make this Plan come alive. (THIS PART IS NOT YET WRITTEN.) Appendices: Provide maps and other expanded documents referred to in the body of the Plan.

B. The Need for a Tank Farms Redevelopment Plan 1. Once the U.S. Navy determines that some of its property is no longer needed, there are a series of steps for the Federal government to sell the property. Federal regulations afford State and local governments an opportunity to guide future development of this property before it is sold. It does so by establishing a “planning local redevelopment agency” (LRA) that is officially accepted by the U.S. Office of Economic Adjustment. The LRA is the single entity responsible for identifying local redevelopment needs and preparing a redevelopment plan for the Military Department to consider in the disposal of installation property. The creation of a "redevelopment plan" would include a plan that: (1) represents local consensus on the redevelopment with respect to the installation; and (2) provides for redevelopment of the property that becomes available. Short of actually purchasing the property, an option that happens later in the process, the redevelopment plan is the best opportunity to guide development of the tank farms.

The redevelopment plan is not just a vision and blueprint for the future; it also serves as a major decisional input for the Military Department's NEPA (National Environmental Policy Act) analysis and the remaining cleanup needed before property is transferred.

2. The high quality of life in Portsmouth is directly linked to the valued heritage of its distinctive balance of land uses and coastal character. Inappropriate, unplanned change along the West Side could profoundly affect the economic, social, and natural balance of the community.

The Portsmouth portion of Naval Station Newport has been withdrawn from active use over the years, with large areas of excess land potentially becoming available for reuse. Dispositions of up to 269 acres of former tank farms in Portsmouth, as well as adjacent roads and infrastructure may be likely in the foreseeable future. Planning is needed to promote multiple interests in land use, open space preservation, and economic redevelopment of this scenic and highly valuable property. Reuse of these parcels is the focus of the Plan.

The West Side in this area hosts large expanses of linked coastline and open spaces that can provide amenities and environmental value which benefit the citizens of Portsmouth, if they are systematically enhanced. Open space and view corridors cross private, public, and jurisdictional lines and will require coordinated action to retain.

For the past 20+ years, almost all new development in Portsmouth has been for single family housing. This trend is likely to continue, increasing the need for Town services, creating an imbalance between residential and non-residential uses, and creating a high property tax

As of 2005 State law requires all Rhode Island communities to adopt a plan to achieve a 10% “affordable” housing mix by 2025. (Portsmouth’s affordable level is just 2.4 %.) Such a plan

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was adopted into the Comprehensive Plan in 2006. It includes some affordable housing on the tank farm property, if possible.

C. Essential External Factors There are a number of local, regional, and regulatory factors that are not under the control of the PRA, yet have a profound effect on formulating a redevelopment plan.

Navy Master Plan Naval Station Newport completed its master plan and released it to the public on July 31, 2008. This Plan anticipates that all its property, including roads and infrastructure, in Portsmouth will be surplussed, with the exception of the Melville housing area.

Water and Sewer Water and sewer services are controlled by NSN (owns the lines) and the City of Newport (owns the water supply and sewer treatment plant). The Tank Farms have neither the infrastructure nor a supply allocation. The Navy will not relinquish any of its contracted capacity for water and sewer services as part of the sale of its properties.

Roads Access to the tank farms is from Burma Road and Stringham Road, both owned by the Navy but to be surplussed. The conditions of these roads and the willingness of the State to assume responsibility for these roads could impact redevelopment.

Cleanup The fuel storage tanks and the supply lines connecting them have all been cleaned. There remain some differences between the Navy and RIDEM on the remaining cleanup, monitoring and the like, as well as what to do with the tank structures. The redevelopment plan will also be used by the Navy to help determine remaining cleanup.

Dept. of Housing & Urban Development (HUD) HUD plays a role in approving the redevelopment plan, especially considerations for the homeless. This, in turn, is affected by cleanup decisions.

Rhode Island Property Tax Cap In FY2007 the State of Rhode Island recently imposed a decreasing cap on the absolute increase in real estate property tax levy that can be collected by any municipality. The impact of the tax cap is that a municipality as a financial entity cannot benefit from additional tax base, yet must absorb the costs of providing service to new development. The assumption is made herein that the tax cap will be amended such that it would be advantageous for the town to help develop this property.

Surrounding Developments Immediately adjacent and nearby development has an impact on the attractiveness of uses for the tank farm parcels. For example, the planned marina development would increase the need for more marine services uses, while major retail development nearby might

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absorb available disposable income from the market area, thus reducing the attractiveness of the tank farms for retail uses.

The Economy and the Real Estate Market The overall and regional economies are beyond our control. But through market studies, we can get a reasonable idea of desired uses.

D. Working Together to Create this Plan

1) The First Steps The Tank Farms Redevelopment Plan has its genesis in and is an integral element of the implementation of the Aquidneck Island Planning Commission’s (AIPC) West Side Master Plan (WSMP). Released in November, 2005, the WSMP represented the collaborative effort of hundreds of Island residents and supporters over a period of many years. Members of AIPC’s West Side Master Plan Task Force worked closely with Town Council members, municipal planners and local board members from the Island’s three communities, representatives from Naval Station Newport, Rhode Island Coastal Resources Center, Rhode Island Office of Statewide Planning, Rhode Island Department of Transportation, and the Newport County Chamber of Commerce to produce the West Side Master Plan.

The final and arguably most important section of the Plan, the implementation section, detailed how each of the WSMP’s various strategies could be accomplished. It then took each strategy and assigned stewardship, recommends tools, described the process, suggested standards for performance, and listed resources for implementation. These were incorporated into Implementation Guidebooks that were tailored for use by the council, boards, commissions, agencies, and leadership of Middletown, Newport, Portsmouth, Rhode Island, and the Naval Station Newport. It was, however, an overall strategy for a several square mile area. This plan concentrates on the tank farms and their immediate environs only.

Upon release of the WSMP, the Town of Portsmouth’s first implementation step was to incorporate the Plan’s principles, goals and strategies into its own Comprehensive Community Plan. The West Side Element of the Comprehensive Plan was adopted in June, 2006 with the purpose of articulating Portsmouth’s role in the future development of the West Side consistent with the broader regional goals and objectives of the WSMP.

The Portsmouth Town Council took their second implementation step by establishing, the Portsmouth Redevelopment Agency (PRA) in September, 2005. It had become increasingly clear that there was the possibility of surplussed US Navy land becoming available in the Tank Farms area and the Town wanted to have the proper legal entity in place to manage that possible transition. By State law, the first tasks of the PRA were to establish a district in which to apply their authority, identify “blighted and substandard areas” within that district that needed redevelopment, and most importantly, create a

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redevelopment plan for those areas. This Tank Farm Redevelopment Plan is the result of that effort.

2) Completing the Tank Farms Redevelopment Plan The PRA will see this Plan through to completion by working closely with the Town planning staff, other local committees such as the Portsmouth Economic Development Committee, the Wastewater Advisory Committee, and the Conservation Commission. They benefit from feedback from AIPC, the Portsmouth Town Council, and the Aquidneck Island Land Trust. Final steps in preparation of the Tank Farm Redevelopment Plan included:

ƒ Assembling and confirming various elements of the Planning Context – Over a two year period, all key facts, issues, and relationships were gathered together for study and review by the PRA. ƒ Establishing objectives and criteria for success – With data in hand, the agency set objectives for the redevelopment of the area and established benchmarks to determine their success. ƒ Studying options and issues – After mapping out probable roles and timelines of all the key players in the redevelopment of the area, the PRA created a list of all probable land use options and issues for discussion, consideration and further review. ƒ Assembling the Plan – Any outstanding issues were resolved and baseline recommendations were consolidated into the final Tank Farm Redevelopment Plan. ƒ Planning Board Review – Prior to Town Council adoption, the Planning Board will thoroughly review the PRA’s plan and made recommendations for amendments to the Plan. ƒ Town Council adoption – After a workshop for the Town Council to do a detailed review of the Plan and a Public Hearing for the Council to hear citizen input on the matter, the Portsmouth Town Council will adopt or amend the Portsmouth Tank Farms Redevelopment Plan. Presentation to the Congressional Delegation – etc.

Incorporation of West Side Master Plan in this document: This Plan draws extensively from the West Side Master Plan. The WSMP was written for the whole area, not town by town or sub-area by sub-area, so in writing this Plan it was necessary to paraphrase, summarize or even copy text and maps, including whole paragraphs, from the WSMP. Attributing each such instance would be distracting and not worth the time taken. The same is true for excerpts from the Portsmouth Comprehensive plan.

Accuracy and Timeliness of Facts Presented The facts presented herein are based on the best information available to the Portsmouth Redevelopment Agency as of the date of the latest revision of the Plan. Every attempt will be made to bring facts up to date just prior to formal adoption of the Plan.

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CHAPTER 2 - THE VISION FOR THE TANK FARMS & MELVILLE AREA

(Much of this part is taken from the WSMP – much is left to be done in this chapter.)

The vision for the West Side overall can be found in the West Side Element of the Portsmouth Comprehensive Plan. Much of that, in turn, was adapted from the West Side Master Plan. Both documents may be viewed at www.portsmouthri.com. This plan is the next logical step in planning future land uses of the tank farms.

1 PORTSMOUTH: DENSITY, DESIGN AND DIVERSITY IN A MARINA VILLAGE

The West Side Master Plan envisions the entire Melville/Weaver Cove area as a prime location for a mixture of uses including a marina, compact luxury housing and mixed-income housing, limited commercial and/or light industrial activities, an outdoor performance venue, some much needed utility infrastructure (wastewater treatment plan, wind turbines), a future transit stop, trails and open space, and preservation and expansion of marine-dependent economic activities including the boat building and yacht service area at Melville. Reconfiguration of the Burma Road/Stringham Road hairpin turn is also part of the plan. Together, Weaver Cove and the Melville area would constitute a mixed-use “Marina Village.”

The areas generally identified for residential development in the WSMP include the hillsides across Burma Road from Weaver Cove. Narrow hillside parcels would be suitable for the luxury residential village identified in the plan (as currently being pursued by the O’Neill Properties Group). The performance standards also recommend a maximum height of 40-60 feet and four stories in order to preserve view from the hillside luxury Weaver Cove Marina Village residential buildings. Nearly 1,500 boat slips have already been permitted for Weaver Cove.

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1.1 Options for a Marina Village Mixed - Use Overlay Zoning District

Full development of the Melville/Weaver Cove area as envisioned in the WSMP assumes the completion of environmental remediation at the Navy-owned Tank Farms, by the Navy and/or subsequent private entities and transfer to other owners for redevelopment. For the purposes of zoning, this area should be segmented to ensure reservation of areas identified for infrastructure and to ensure the preservation of marine-dependent uses, which could be threatened by higher- value real estate development.

The recommended zoning elements could be adopted as part of a mixed-use overlay district or could be incorporated as standards for a PUD district. An overlay district has the advantage of allowing multiple projects by diverse owners to go forward without substantial delay as long as they meet the requirements of the overlay. However, this approach would also require vigilance on the part of town staff to ensure continuity of public access, transportation improvements, and so on. A PUD has the advantage of requiring a detailed master plan that the town and the developer agree on in advance and which then can be built out over time.

The development patterns in the Melville/Weaver Cove area that would result from adoption of the zoning elements suggested would create new neighborhoods connected to one another and focused on activities at the waterfront. These neighborhoods would be designed with an exceptionally robust pedestrian network to assure easy access from hillside locations overlooking Weaver Cove and on Tank Farms #1 and #2 to activity centers on the waterfront. Public access along the waterfront is being assured by CRMC’s new Aquidneck Island Special Area Management Plan (SAMP) which requires a public walkway along the shore. Melville Boat Basin Area

• Consider the aesthetics of the development when looking landward from the water. Viewsheds to and from the water are equally important. Developers should be encouraged to prepare graphics to display how the development will look from a boat on the water. For example, the adjacent photo demonstrates a poor water-to-land viewshed. The photo shows the backside of Main Street, Skaneateles, New York, a small, resort town known for its walkable and distinctive community.

• Preserve and build upon highly-valued coastal community character. Building scale, lighting designs, walkway details, and landscape architecture should promote and enhance the coastal nature of the place. Developers should be encouraged to protect historic piers and bottomland structures that are locally valued as part of the landscape and determine options to retrofit historic structures that do not meet floodplain standards.

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• Plan seasonal and year round uses to achieve mutual benefits. The waterfront should be developed so that there are opportunities for local community members year round while accommodating seasonal user needs. In addition, developers need to recognize and prepare for increased housing, transportation, and water access needs of seasonal influx of non-residents.

• Enhance working waterfronts and prioritize water-dependent uses through blue- belting. Communities seeking new waterfront development should conduct an audit of existing water-dependent uses in the coastal blue-belt and enhance opportunities for priority uses identified but not yet in place and identify opportunities for enhancements to working waterfronts. Furthermore, using affordable housing inclusionary zoning as a model, developers and municipalities could apply the idea of affordable water-dependent occupancy to scaled boat slip fees as a means of addressing equity issues

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CHAPTER 4 - PLANNING CONTEXT

NOTE: This chapter contains a lot of important information. It needs a fair amount of reorganization. Nonetheless, it is important background to understanding current conditions and potentials.

A.) The Tank Farms Planning Area 1.) Areas, Boundaries, & Acreages

Narrative, including boundary descriptions and acreages will accompany all of the maps, similar to the PowerPoint presentation given on Sept. 24, 20084

2.) Inventory of existing buildings, structures, and roads

Narrative describing all above and below ground buildings, structures and roads with references to US Navy site plans (may be hard to reproduce) and / or maps in the previous section.

A conditions analysis of each is important. For example, are the major roads to be surplussed by the Navy (Burma and Stringham roads) sufficiently sound condition, or do they require repair or upgrading to be usable for a 20-year planning horizon? Is storm drainage sufficient? Are the interior roads within the Tank Farms usable?

B.) Demographics: The Changing Community A review of U. S. Census data, prior studies and analyses of population, employment, and statewide planning projections indicate the presence of the following trends on Aquidneck Island, and on the West Side in particular:

ƒ Overall island population peaked at about 76,400 people in the early 1970s. It decreased to about 61,000 in the 1980s, and is projected to remain practically unchanged during the next twenty-five years. ƒ The percent of newer residents in the total population of the island during the last thirty years has increased, even when the percent of new Navy employees relocating to the island has decreased. This trend is expected to continue. ƒ Seasonal population, which remains largely untracked, is estimated by some to reach up to 100,000 visitors each summer. ƒ Older segments of the population (55 years and older) are projected to grow at estimated rates of 1.4 to 2.6 percent annually during the next few years. ƒ Highest-income (above $100,000 annual income) groups are expected to increase at rates ranging from approximately 6 to 7 percent.

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ƒ ƒ Fortunately, the 2005 BRAC round resulted in an estimated net gain of 1150 positions within Naval Station Newport and the Naval Underwater Warfare Center. o That Navy does not have enough housing within the base to accommodate all the new positions, which will result in demand for new, predominantly rental, housing. o The increased activity at the Base will result in increased demand for products and services, as well as pin-off business for the various initiatives added there. ƒ Official state employment forecasts indicate that overall employment will grow by a cumulative total of approximately 5% over the next four to five years, possibly adding 1600 new jobs in the private sector.

C.) Regulatory Framework

1.) The State and Federal Maze Describe who owns the land now and if and how they intend to dispose of it. What is RIDEM’s role in monitoring clean up activities? Does RIEDC play a role in acquiring the land? Does CRMC have any jurisdiction? Will the upcoming SAMP Plan help guide our decisions?

2.) The West Side Master Plan Addressing the short and long-term planning issues of the West Side of Aquidneck Island, the West Side Master Plan represents the collaborative effort of hundreds of Island residents and supporters. Under the auspices of the AIPC, members of the West Side Master Plan Task Force worked closely with Council members, municipal planners and local board members from the Island’s three communities, representatives from Naval Station Newport, Rhode Island Coastal Resources Center, Rhode Island Office of Statewide Planning, Rhode Island Department of Transportation, and the Newport County Chamber of Commerce to produce this comprehensive regional planning document, the first of its kind in the State of Rhode Island.

The West Side Master Plan was finalized and released to the public on November 28, 2005 with the participation and overwhelming support from the Congressional Delegation, the Governor of Rhode Island, state and local officials, and the public at large.

Land use strategies for the West Side direct new development toward designated zones where it can best be absorbed and provide a public economic benefit, while preserving open space, environmental resources and aesthetic values. The open space, agricultural and recreational assets of the area will be preserved and expanded to the extent practical, with particular emphasis on corridors of land that are ecologically and aesthetically significant. Areas that should be conserved or used for public recreation might be eligible for a no-cost “public benefit conveyance” through the National Park Service.

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The strategies in the WSMP do not compose a comprehensive “land use plan” defining specific desirable uses for all of the parcels within the West Side; this is the role of the Portsmouth West Side Redevelopment Plan. The land use strategies of the West Side Master Plan are focused on those common regional interests that can be met by shaping land use in many locations.

3.) The Portsmouth Comprehensive Plan

Serving as a guide to development in the community, the Portsmouth Comprehensive Plan is the town’s primary policy document used in planning and decision–making by local officials. The Plan provides a long-range view of how we want our town to look and function. Reflecting the feelings and attitudes of the Town’s citizens, the Plan is the rational basis for our Zoning Ordinance and other land use controls. Portsmouth’s Comprehensive Plan was adopted in 1992, revised and approved by the State of Rhode Island in 2002, and is due for a periodic update in 2007.

State Enabling Legislation requires seven functional elements to be included in any Rhode Island municipality’s Comprehensive Plan. Those elements are Housing, Circulation, Open Space & Recreation, Land Use, Economic Development, Facilities & Services, and Natural & Cultural Resources. Many municipalities (ours included) incorporate additional elements as specifics dictate.

In participating in the creation of, and as part of the implementation strategy for the regional West Side Master Plan, the Town agreed to incorporate the parts of the WSMP pertaining to Portsmouth into our Comprehensive Plan. Rather than scattering bit and pieces of the WSMP into the various elements of the Plan, it was decided that Portsmouth would create a separate element of the Plan, pertaining just to the West Side. Functioning as a mini-Comprehensive Plan, the West Side Element of the Plan addresses all of the seven State-required elements, and in the same way the full Comprehensive Plan guides development in the rest of Town, the West Side element guides development on the West Side.

The purpose of this Element of the Comprehensive Plan is to articulate Portsmouth’s role in the future development of the West Side consistent with the broader regional goals and objectives of the West Side Master Plan (WSMP), the development of which was accomplished under the auspices of the Aquidneck Island Planning Commission.

4) ZONING The Town of Portsmouth has long had a “Waterfront District” in this area that is tailored to the needs of the marine trades as marina and industrial-type uses. The areas of Tank Farms 1 and 2 closest to the marine trades area is also designated “Waterfront District”.

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The higher elevations of Tank Farms 1 and 2 are currently zoned “Light Industry”, but that is expected to change as the Redevelopment Plan is further refined.

Tank Farms 3 and 4 are currently zoned “Open Space and Public Lands”, but that is expected to change as the Redevelopment Plan is further refined.

In 2007, the Town adopted a “Marina Village Resort Development “provision under the Planned Unit Developments section of the Zoning Ordinance. This permits considerably greater density than otherwise, in trade for access to the shore for the public, 10% of the housing units as “affordable” (see below), and requires that the marina be built at proportionally the same rate and time as the housing component.

The Town has adopted a number of other types of PUDs for resort style development, industrial development, and commercial development. It is the preference of this plan that all development within the Tank Farms utilize the PUD process, because it allows the developer creativity and flexibility, while allowing the Town to negotiate with a prospective developer to get the best possible result for the Town. This is a major advantage over conventional zoning, which allows a development by right only if it meets set dimensional criteria.

All the PUD’s incorporate Performance Standards that are based upon those set out in the West Side Master Plan. Strengthening of the Performance Standards in zoning is recommended.

STATE REGULATIONS

COASTAL RESOURCES MANAGEMENT COUNCIL (CRMC) CRMC has prime jurisdiction over environmental matters on and near the coastline. CRMC is, with the assistance of the Planner for all three island municipalities, creating a Special Area Management Plan that permits buildings and development much closer to the shoreline (50 ft. vs. 200 ft. in most locations) in trade for a continuous public access easement and pathway construction along the shore as well as Low Impact Development techniques like permeable parking areas and green roofs. This is expected to be adopted in the Fall of 2008. It will allow for considerably denser development than otherwise (as does the Town’s Marina Village PUD) in trade for these public and environmental amenities.

PORTSMOUTH’S GOALS AND OBJECTIVES FOR THE WEST SIDE INCLUDE:

1. Enhance Naval Station Newport by planning land uses along the West Side of Portsmouth that are compatible with the base’s mission, and by planning for the reuse of public and private property - This objective supports the continuation of the important missions at the Naval Station and recognizes that off-base, coordinated planning is key to its future.

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2. Plan for economic development that complements the physical environment and contributes to the local economy – Keeping in mind the core value that environmental quality along the West Side is linked to the quality of life and the long-term value of the entire community, the West Side of Portsmouth offers clear opportunities for economic development that can provide employment and tax base.

3. Provide more active and passive recreation for Portsmouth’s citizens, including increased vistas and public access to the shoreline.

NOTE: The entire text of West Side Element of Portsmouth Comprehensive Plan can be found in appendix X. Below are key paragraphs from the implementation sections of the West Side Element to support the Portsmouth Redevelopment Agency’s recommendations for redevelopment of the four Tank Farms. These paragraphs, taken directly or paraphrased from the Portsmouth Comprehensive Plan, form the rational basis for the Portsmouth Redevelopment Agency’s West Side Redevelopment Plan.

Land Use

• Promote the reuse of the former Tank Farms to support marine and marina-related businesses and economic development. This should include the preservation of adequate land in an appropriate location to provide an opportunity for a potential sewage treatment plant for Portsmouth.

• Promote the reuse of other former Tank Farms as sites for economic development including military-related research and development or other uses that will provide jobs and tax benefits, while preserving natural resources, and minimizing impacts on existing development.

• Encourage the expansion of marine-related businesses to enhance waterfront development as a priority land use at Melville. This objective recognizes the potential importance of former Tank Farms #1 and #2 to help support, directly and indirectly, the development of nearby marine and marina uses.

• Endorse the creation of a “marina village” development at Weaver Cove and adjacent lands. In order to create a more viable and attractive opportunity for reinvestment and expand public access and enjoyment, marina uses should be complemented by a mix of housing, restaurant, retail, and other uses at a moderate density.

• Promote the location of commercial and light industrial uses within the West Side of Portsmouth. Although expansion of these uses is expected to be limited, the opportunity offered by an enhanced transportation network makes the West Side an excellent candidate for these essential components of Portsmouth’s tax and employment base.

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Housing

• Limit the construction of new single-family market-rate residences along the West Side of Portsmouth, with the exception of affordable and work force housing, housing associated with recommended mixed-use areas and resort-type second homes.

• Support high quality resort-type residential development that is master planned on large land parcels, has low environmental impacts, and contributes substantially to the economy of the Island through service-related employment and enhancement of property values. The planned Weaver Cove Marina Village will contain up to 980 residential units.

• Promote the development of affordable and work force housing by leveraging the transfer and redevelopment of publicly owned land and promoting regional coordination that helps implement the affordable housing strategies of the Island’s constituent communities. Determine if planned cleanup would permit residential uses on portions of any of the Tank Farms.

Economic Development

• Advance the reuse of military land by focusing on economically beneficial uses.

• Facilitate marine-related development at Weaver Cove and promote marina-supporting upland resort development that enhances investment opportunities through a mixed-use approach.

• Build upon the local marine trades sector by to enhance Portsmouth’s status as a premier yachting location.

Facilities and Services

• Endorse the transfer, purchase or privatization of Navy utilities and regionally-important utility corridors to the extent that it is mutually beneficial. Privatization of the Navy utility system may provide benefits if it can be linked to solutions for private and public sector sewer and water needs.

• Work with all present and future stakeholders to secure a reliable, long-term supply of clean drinking water to support current and future development, both public and private, along the West Side. Investigate the potential of a desalination plant on one of the Tank Farms, both to provide public water supply to planned new development, and to augment peak summer demand Island-wide.

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• Support the provision of wastewater treatment systems and solutions that are needed to fulfill the economic development goals and land use vision contained in the West Side Master Plan. Provision of municipal wastewater treatment will improve the attraction for the expansion of marine trades in Melville, future expansion of the Raytheon campus, and development of the Tank Farms. This could also provide sewer service for certain areas of Portsmouth for which individual septic systems are not a good long-term solution. Investigate the potential of a sewage treatment plant on one of the Tank Farms.

o Former Tank Farm 3 may be suitable for construction of a municipal WWTF, if all impacts to adjacent development are carefully considered. Approximately twelve acres should be reserved for current and projected use.

• Acquisition of property from the Federal government for public utilities may be possible via a public benefit conveyance through the Dept. of Health and Human Services. Such land is set aside for 30 years for this purpose. Municipalities are given a certain amount to time for such use to take place.

• Promote the location of supplemental electric generation and distribution by sustainable means in locations and numbers that do not dominate the visual qualities of the land from prominent public vantage points. Ensure that wind turbines are placed such that they do not produce unacceptable levels of noise or vibration on adjacent properties.

Open Space & Recreation

• Promote the acquisition of portions of the unused military land for open space purposes through the Public Benefit Conveyance process. Such land is set aside in perpetuity as open space through this process.

• Encourage the expansion of the inventory of conserved open space in Portsmouth. West Side lands of high preservation priority include the Lawton Valley Brook Corridor, the Norman’s Brook watershed, and wetlands not associated with these systems. Particular attention should be paid to preserving Lawton Valley in its natural state.

• Continue to support the outdoor and recreational activities at the Melville Park and campground area, and provide physical linkages to nearby active and passive recreation areas through nature trails and bike paths. Undevelopable steep and wooded slopes are ideal for creating these linkages.

ƒ Provide strategic expansion of Melville Park to better protect the big lower pond, provide a permanent open recreation area near the campgrounds portion (already being used informally), and possibly a small area to provide more camping sites.

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Transportation

• Support the acquisition of Stringham Road and the Portsmouth section of Burma Road by the Rhode Island Dept. of Transportation in preparation for the realignment of the intersection of those roads, and for the so-called Shoreline Drive.

• Encourage the upgrade of segments of Stringham Road and Burma Road (Defense Highway) to achieve attractive travel times and to draw traffic from West Main Road. Upgrades will retain the current two-lane roadway configuration while retaining sufficient right-of-way for long term roadway widening, if and when warranted. Improvements should include enhanced site distance (clearing brush), drainage, access restrictions, and minor grade and geometric improvements. Signage directing tourists to this scenic roadway should also be accomplished.

• Support the re-alignment of the hairpin turn at the intersection of Burma and Stringham Roads. Relocation of one or both of these roads approaching the intersection and/or a roundabout at the intersection would improve traffic safety and allow a better turning radius for boat trailers gong to the planned marina at Weavers Cove.

• Encourage the planning, design, and creation of remote parking at stations and mass- transit stops in conjunction with the West Side transit strategy. A candidate site in Portsmouth in the extra wide railroad right-of-way owned by the State at the bottom of Stringham Road. Provision of a rail station and parking could be sited at this and the lower portion of Tank Farm 2.

4.) The Portsmouth Redevelopment Agency

Article VI, Section 18 of the Rhode Island Constitution establishes the “clearance, re- planning, redevelopment, rehabilitation and improvement of blighted and substandard areas” as a legitimate public purpose and “authorizes cities, towns, or local redevelopment agencies to undertake and carry out projects approved by the local legislative body for such uses and purposes.”

The Portsmouth Town Council has found that such blighted and substandard areas do exist in the Town of Portsmouth and established, by resolution on September 12, 2005, The Portsmouth Redevelopment Agency (PRA) for the purposes of guiding redevelopment in those areas (see complete resolution in appendix X).

In the resolution, the Town Council tasks the PRA with providing by report to the Council, a description of the areas in which blighted or substandard areas are found and recommendations as to the areas which should be designated for redevelopment. This Redevelopment Plan shall constitute such a report.

In addition to the tasking of Town Council, State law requires the PRA to establish a geographic district in which to apply its authority, and create a Redevelopment Plan (see

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appendix X for required plan contents) for that district. State law allows the inclusion of parcels or areas into the District that do not necessarily fit the definition of blight or substandard, but that can be logically included to facilitate effective redevelopment. It is the considered opinion of the PRA that, in order to adequately address the impacts of specific redevelopment strategies in the blighted areas on adjacent properties, a larger area must be established as a Redevelopment District. This gives the PRA the ability to integrate plans for the Tank Farms with nearby uses. However, the PRA has no intention of exerting its authority over any other parcels or areas within the District than the areas designated blighted or substandard.

Accordingly, The Portsmouth Redevelopment Agency establishes the West Side Redevelopment District but limits its authority to conduct redevelopment activities to four blighted and substandard areas that lie within the District, the so called Tank Farms, (see Section 2b). ref. MAP

D.) The Tank Farm Properties

NOTE: For ease of use, the maps of the tank farm properties and their environs are contained in appendix A.

a.) Underground Tanks, Sludge Pits and Ring Drains

Bouncing off the inventory in the previous section, this should be a complete description of the underground tanks ,when they were installed, how they were used, and how they have been dealt with since they became inactive (including the RIDEM permitting for discharge from the ring drains). There should be discussion of the sludge pit story as well.

b.) USN Pollution Remediation Activities

According to Navy Reports as of August 2007: – Tank Farms 1,2,3 • Cleanup of oil is underway and near completion. • Tanks clean and filled with water • A number of sludge pits and other possible contamination must be investigated and a plan for cleanup agreed upon.. • Estimated completion: 2012

– Tank Farms 4 and 5 • 2005 investigation and soil removal • Tanks imploded in place underground. • Estimated completion: 2008 • Groundwater monitoring will continue for a number of years.

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Narrative using info from the US Navy and describe the Navy’s activities. Their PowerPoint summary sheets could be paraphrased here and included in the appendix or pasted-in here in their entirety.

Underground Storage Tank Regulations and Remediation: Planning for reuse of the tank farm area is heavily dependent on RIDEM’s interpretation and implementation of its Underground Storage Tank (UST) regulations. RIDEM regulations provide for three equally unacceptable alternatives: ƒ Fill with sand or sand-slurry mixture: These tanks are simply too large to fill. Over 227,000 CY of fill (39,400,347 gallons) would be required to fulfill this requirement. ƒ Remove the tanks: Averaging 109 ft. in diameter and 27 ft. deep with 1 ft. concrete walls, starting an average 6 ft. under the surface, removing all 24 underground storage tanks would be a prohibitively expensive undertaking. ƒ Destroying (imploding) the tanks in place: While an initially attractive option, this was done on Tank Farm 4 in 1999. The result impacted an unacceptably large area far beyond the tanks themselves. o EPA’s informal guidance was that an area 100 ft. beyond the circumference of each tank would become unstable. The total horizontal surface area of the tanks in tank farms 1, 2 & 3 = 6.45 acres. Adding 100 ft. beyond the circumference of each = 50 acres rendered unstable, and thus unbuildable. o Neighboring houses as much as 500 ft. away report that underground streams appeared in their basements shortly after the implosions, sometimes through cracks caused by them, so the underground impact of these implosions is actually much further. Unmistakable signs of settling have already occurred over and around the former tanks, rendering large areas undevelopable. ƒ RIDEM regulations were written to deal with typical gas station and industrial storage tanks. Clearly, the only practical solution is for the remaining underground storage tanks in the tank farms to stay in place. RIDEM regulations must be amended or its interpretation thereof must be changed. ƒ If they stay in place, the tanks should continue to be filled with water (an interim solution implemented by the Navy), and the ring drains around the tanks must continue to operate. If the ring drains were closed, hydrostatic pressure from groundwater might lift the tanks toward the surface over time. The ring drains currently carry groundwater to oil/water separators near the shore. Despite thorough cleaning, some oil still mixes with the groundwater from some of the tanks. The Navy monitors and cleans these oil/water separators regularly. A land use control on any future owner of the property to continue this practice must be part of any disposition agreement.

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E.) Economic Factors: Jobs, Business Demand, Real estate and Housing

1.) Marine-Related business and Recreational boating

The significant cluster of world-class boat builders in the Melville section of Town identifies Portsmouth as a leader in the marine trades industry. The location of four top of the line yacht companies has attracted a large community of smaller marine support businesses that handle a wide range of specialized services for the boating industry and individual customers.

The marine group in Melville is poised for expansion into 35 acres of Navy land located in the midst of the existing marine businesses. Congress approved the sale of the land in 2002. Negotiations and evaluation of existing conditions is nearing completion with transfer of the land scheduled for early 2007. The expansion will provide much needed space for the boat builders and create new facilities for smaller marine support contractors.

The high value of the Melville area to the marine industry was demonstrated in 2007. Alden Yachts was located in Melville for over twenty years. Due to irresolvable issues with its landlord, the firm was forced to move out of the Melville site. Within a month of Alden’s leaving, the property was leased to Hunt Yachts from Massachusetts. Hunt had been seeking room for expansion and jumped at the chance to be in Melville. This example is indicative of the demand for space in the area. Once the transfer of land from the Navy is complete, Alden is planning to relocate back to the Melville area, probably in the aforementioned 35 acres.

2.) Commercial Office Space

The prospect for expansion of commercial office space is limited on Aquidneck Island. In part, this is because of the Island’s relatively remote location in relation to the major regional commercial centers. The Island has a highly specialized local economy that does not generate this type of use and the population is not growing significantly. An Island-wide market analysis done in 2005 for the WSMP projected absorption of office space for all of Aquidneck Island is only about 20,000 square feet per year – or the equivalent of one typical floor of a contemporary office building. So there will likely be only limited pressure for this use on the West Side.

The activity at Raytheon’s large facility in Portsmouth continues its resurgence following a low point in the early 90’s. The Portsmouth facility is now the global leader for naval and marine integrated systems for the defense industry and the

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civilian marine community. The company continues with major work in underwater detection and weapons systems as well as Navy missile systems. Raytheon has developed new uses for many of their systems in the field of homeland security for both government projects and private industry. It has a record of success in competing for Federal government contracts. Raytheon recently received new contracts from the Department of Homeland Security for the further development of harbor and port protection systems.

3.) Retail, Entertainment and Services

Located adjacent to the Tank Farm area is the site for the proposed (as of 2008) Weaver Cove marina. Critical DEM and CRMC permits have been approved for a 1,495 slip marina and related facilities. Work began in 2004, but progress has been slowed due to the necessity to first address historical contamination from prior military uses. The very expensive removal of contaminants and two rusting ships has been completed and praised by the RI Dept. of Environmental Management (RIDEM). A developer with extensive experience in the development of distressed property is preparing development plans to make the marina and related onshore development a reality. As of the date of this Plan, the approval process is well underway. This marina is drawing much attention, as it will ease the severe shortage of marina slips in Rhode Island. The developer also plans to include on-shore support services and housing units in a village setting. Construction of the first phase of 400 slips is scheduled to begin in 2008. The completion of all phases of the project will involve over $500 million.

The Town Planning Department identified the unique developments being planned for the West Side. To encourage smart growth in the development, the Town has approved changes to the Zoning Ordinance for the creation of Planned Marina Village Developments and Planned Resort Developments. These “Planned Unit Development” (PUD) regulations require marina and resort development to take place proportionally at the same rate as the housing. Incorporated with these new zoning ordinances are enforceable performance and preservation standards that will ensure site development of benefit to the Town.

4.) Affordable and Workforce Housing

The attractiveness of Aquidneck Island as a place to live has driven up housing prices and is leading to significant development opportunities, particularly for high-end products.

The rental market is tight and apartments are expensive. These and other factors have led to a persistent housing affordability problem that will require dedicated efforts to overcome. The Navy’s planned expansion of jobs at Naval Station Newport will add to the demand for rental housing, thus competing with the demand by civilian workforce housing. Expansion of the marine trades industry

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and other planned development of the Tank Farms will generate jobs, and thus generating a need for additional workforce housing. The entire region is in the midst of an affordable housing crisis. The younger age workforce cannot afford to live in the area, and are leaving for other parts of the country. The area cannot generate tax-positive business development if there is an insufficient workforce.

As a result the State of Rhode Island has required each municipality to adopt a “Low and Moderate Income Housing Plan” into its Comprehensive Plan that spells out methods and locations to encourage future “affordable” (per State definition) housing development such that in 20 years 10% of the housing stock will be “affordable”. Portsmouth’s adopted Plan includes 138 units to be located on the Tank Farms over the next 20 years (of 881 required for the Town as a whole). If we do not plan for approximately that number here, we will have to amend our plan to put them elsewhere.

The Planned Marina Village Development PUD regulations require 10% of the units to be “affordable”, so the aforementioned Weaver Cove development could reduce the number of affordable units to potentially be placed on the Tank Farms by as much as 98 to just 40.

Potential for development of housing on any of the Tank Farms is highly dependent on the level of contamination and cleanup. The Navy will only clean contamination to non-residential standards. Some areas of the Tank Farms may be clean enough for residential use. Some contaminated areas might be ‘capped’ (clay or impermeable layer covered with soil) to allow residential development. This Plan makes assumptions about where acceptable residential development might be placed in a mixed use setting, but acknowledges that detail study is required, which is beyond the scope of this plan.

F.) Transportation: Moving to, from and through the Tank Farms

1.) Historic Conditions – Defense Highway and Stringham Road

Existing roadway and traffic conditions were determined for the project study area. The existing conditions analysis is based on field observations conducted by consultants Edward & Kelsey and by Pare Engineering Corp., traffic data provided by previous plans and studies, and takes into account major planned or approved projects as made available by the various communities and provided by the client. Information was collected regarding roadway geometric conditions, traffic control, observed traffic volumes, and peak period traffic operations. The results of these investigations are described below.

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Roadway Network

West Main Road (Route 114)

West Main Road is a major north/south urban principal arterial. It provides access to the Mount Hope Bridge and Sakonnet River Bridge (via Route 24) to the north. To the south, it connects with East Main Road, joins Route 138 and provides access to the Newport/Pell Bridge. West Main Road is a two-way, four-lane road. The typical width of the road is approximately 46 feet with four 11-foot lanes and two one-foot shoulders. Speed limit varies from 30 to 45 mph. Parking is restricted on both sides of the street.

Because of increased use, the levels of service on sections of West Main road have already reached the failing category, especially in Middletown.

Burma Road (Defense Highway)

Burma Road is a north/south urban collector providing limited access between Stringham Road in Portsmouth and Gate 17 Access Road in Middletown. The width of the road is approximately 28 feet and includes bike lanes. The speed limit is posted at 35 mph. It provides access primarily to naval uses, including Tank Farms 3 & 4. It will be the access point for the planned Weaver Cove development. Future access for potential development at the former Freedom Bay property (at the Middletown town line) is also possible. This road has a “C” ranking for level of service. Greene Lane is the only other road connecting Burma Road and West Main road. A very sharp corner at Stringham road limits its current usefulness as a north-south artery at the northern end of the Island.

Stringham Road

Stringham Road is a minor east/west urban collector. It provides access between West Main Road and Burma Road. Beyond Burma Road, it provides access to the Melville area of Portsmouth and Melville Park. Stringham Road is the primary access to Tank Farms 1 & 2. The width of the road varies from approximately 20 to 24 feet. The speed limit is posted at 25 mph. There is a northerly bend in the road traveling from the east just prior to the intersection of Burma Road.

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2.) Area-wide Traffic Operations

West Main Road at Stringham Road

The intersection of West Main Road at Stringham Road is controlled by a four-phase traffic signal. The southbound approach of the intersection widens from two lanes to four lanes and provides an exclusive left-turn lane, two through lanes and an exclusive right-turn lane. The northbound approach provides an exclusive left-turn lane and two through lanes. Stringham Road widens from one lane to two lanes and provides an exclusive left-turn lane and shared left/through/right lane. Opposite Stringham Road is the site driveway to Dunkin’ Donuts. The northbound and southbound approaches have protected left-turn phasing. Stringham Road and Dunkin’ Donuts have split phasing.

RIDOT Improvement Projects

The following relevant Rhode Island Department of Transportation (RIDOT) project has been identified:

Burma Road, a two-lane roadway with a bike lane and no sidewalks, extends south from Melville at Stringham Road and provides access to the Town of Portsmouth Weaver Cove boat launch, the Navy’s Carr Point Recreation Area, Greene Lane, the Navy fire fighting training center, and the Town of Middletown transfer station before entering the more intensively used Navy base at Coddington Cove. This alignment parallels the Newport Secondary rail line and the shoreline and provides glimpses of unequalled views of Narragansett Bay.

Burma Road is recognized as a potential north/south alternative route which could be upgraded and used to alleviate congestion on Aquidneck Island. Current use of this road is limited to those with local knowledge. Effectiveness of this road as an attractive alternative is currently limited by the awkward Burma Road/Stringham Road intersection, by congestion at the Gate 17 Fleet Access Road area within the Navy base, and by the absence of a connection to Coddington Highway with Force Protection at the Navy base. Although public access through the Navy base was possible in the past, with the implementation of Force Protection, the route from Burma Road to Coddington Highway is no longer available. The upgrade of this road with improved connections should be evaluated as one of many options to improve transportation options through the West Side project area.

During the early 1980s RIDOT prepared a study for a possible Route I- 895, a circumferential highway connecting Route 138 in Kingston to I-195

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in Massachusetts with a route through Aquidneck Island. This highway was dropped from further consideration, based in part on the opposition of the Town of Middletown Town Council, who expressed concerns that their town would be used as a cut-through for Cape Cod-bound tourists from the metropolitan New York area. This limited access highway would have provided a connection between the Pell Bridge (Route 138) in Newport and Route 24 in Portsmouth along an alignment on or paralleling Burma Road.

To this day Burma Road corridor remains an attractive option for increasing north-south traffic capacity on the island. This road, located within the Navy base, was constructed above underground fuel lines which extend from the Defense Fuel Supply Point at Melville and the Tank Farms to Piers 1 and 2 in Coddington Cove. While the closure of the Tank Farms and planned demolition of Navy piers in Middletown would reduce the role of Burma Road for defense operations, the consolidation of several similar operations into NUWC in Middletown and additional training facilities at Naval Station Newport may actually increase the traffic on Burma Road.

A parkway concept similar in design to Route 138 across Jamestown, but with one lane in each direction, is recommended for consideration on the West Side. The Jamestown parkway includes two travel lanes separated by a landscaped median. To utilize existing topography and to provide a more visually attractive driving experience, travel lanes are at different elevations and the median varies in width. This alignment could extend from the signalized intersection at West Main Road and Stringham Road (Melville), continue west along Stringham Road and then south along Burma Road. With removal of a hairpin turn along the lower section of Stringham Road, a smooth transition could be made between Stringham and Burma Roads. The alignment would then skirt east of Naval Undersea Warfare Center (NUWC) and Naval Station Newport with an alignment that could extend from Wanumetonomy Golf & Country Club and other private development through Navy housing areas (to be privatized) to Coddington Highway.

3.) Inter-modal Travel

RIPTA Bus Service – RIPTA provides scheduled bus service along the West Side. Route 60 provides local service between Newport and Portsmouth on West Main Road with approximately 29 riders per trip. Additional routes such as the Route 63 provide local service within Newport. This bus averages 16 passengers per trip. RIPTA operates a bus garage within the area that is located on J.T. Connell Highway.

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Ferry Service – Ferry service is limited along the West Side today. Newport to Providence ferry service is seasonal and tourism based. Ridership on a year-round commuter ferry with service to Newport, Mt. Hope Marine Terminal in Portsmouth and Providence did not warrant continuation of service after the first year of operation in 2002. For this reason, no ferry service is being considered for this area in this Plan.

Bicycle Routes – The Defense Highway Commuter Bike Lane along Burma Road is the only designated bike route in the West Side planning area. However, that bike lane is basically a somewhat narrow shoulder, not suitable for a major bike path. Studies have been done by RIDOT for a major new bike path within the railroad right-of-way, adjacent to the tracks. At 72-84 ft. wide, there is ample room at all but overpasses over certain wetlands for both slower rail and biking. The new bike path is part of the WSMP.

Few roadways provide suitable connection between neighborhoods on the east side of the Island with the shoreline of Narragansett Bay. Stringham Road in Portsmouth is designated as “more suitable” and Washington Street and Third Avenue in Newport are designated as “suitable” for cycling by RIDOT. A Bicyclists’ Guide to Aquidneck Island identifies further options as suitable for cycling: Long Wharf and Admiral Kalbfus Road to Coasters’ Harbor Island in Newport, and Bay View Terrace and the road to the campground in Melville (see Figure 4-1, Transportation Context, page 4-10).

Rail Service - A railroad line, owned by the State of Rhode Island, runs the length of the west side of Aquidneck Island from adjacent to the Sakonnet River Bridge in Portsmouth to the Gateway Center in Newport. The bridge across the Sakonnet River to Tiverton was damaged beyond repair in 1985 and demolished in 2007. There are no plans for its replacement, so the possibility of a commuter rail off-Island is remote.

However, the rail line is currently used seasonally by the Old Colony RR and by the Newport Dinner Train as a tourist attraction, Due to the condition of the tracks and the age of the trains, speeds are limited to 10 mph.

The owner of the Dinner Train has, as of the spring of 2008, purchased a light rail train with plans to start a season tourist train between Newport and tourist attractions along the west side. A stop might include the Melville area.

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G.) Infrastructure: Serving the Tank Farms

1.) Water Service Most critical to this Redevelopment Plan is the resolution of water distribution issues for future private development in the Melville area. This section is currently served by two redundant Navy lines (10-inch low pressure and 12-inch high pressure service). The PWFD 36-inch line on West Main Road is currently not accessible for use in Melville because it is outside the service area, pumps are not sized for distribution to this area, and the PWFD does not have a contract with the City of Newport to assure that it will have the quantity of water to meet future expanded needs. Water service is a bit complex, but solving the water supply and distribution issue is an essential prerequisites for development of the Tank Farms. The Portsmouth Water and Fire District purchases water supply from the City of Newport and distributes it to most of the Aquidneck Island portion of Portsmouth. However, its service area does not include the area west of West Main Rd. from Melville Park to the Middletown line. Most of that area is served directly by the City of Newport, except for the Melville area, which is served through Navy water supply lines. PWFD does not have a contract with the City of Newport to assure future water quantity; it cannot provide service outside its limits, and its pumps are not sized to expand service to Melville. This places private development at some risk and without a guaranteed capacity for expanding in the future.

The Navy also purchases water from the City of Newport. When it disposes of the Tank Farms and roads in Portsmouth, the Navy will also sell its water supply lines. Unfortunately, the Navy will not apportion part of its water supply contract to the Tank Farms. Nor will they permit Portsmouth or private users to obtain water supply through their lines, other than certain former Navy parcels for which supply was allocated as part of property transfer, but not enough to accommodate major new development in most instances.

The Navy Public Private Venture (PPV) Office has indicated that for the short-term it intends to continue to provide water and sewer service to both the Melville housing area and the Anchorage housing area (including Quarters A), two Navy housing areas that were privatized; now owned by Balfour Beatty Communities. The Navy would retain the elevated storage tank at Melville together with an easement ???. The Navy intends to abandon the existing asbestos concrete pipes in place and provide new PVC service in approximately one quarter of the roadway in the housing areas (Phil Hakey, US Navy PPV Office, August 27, 2004). The Navy Public Works Officer (PWO) has indicated that water service to the Melville housing areas is separable, i.e. able to be separated from the Navy distribution system. (Naval Station Newport PWO, March 15, 2005). Balfour Beatty may negotiate with local municipalities for water service if the Navy does not intend to continue water service to these housing areas. Balfour Beatty is currently responsible for all water quality monitoring and issuance of any violation notices.

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The Melville Marine Trades area and the planned Weaver Cove marina parcels were purchased from the Navy in the early-mid 1980’s with small allocations of water supply and wastewater service included in the deeds. These allocations are inadequate to meet future supply needs, and already present problems in quantity and pressure.

The WSMP states: “While there is adequate water supply for the projected needs of the municipalities, issues regarding water supply purification and distribution must be addressed. ... Multiple options for remedying the water supply issues are possible within this forum, including regionalization alternatives, treatment facility upgrades, and ensuring compatibility among water demand and system size. While the water supply is sufficient to meet current projections, the likelihood of development, especially in the Melville area of Portsmouth, would require consideration of an additional water supply source. The Melville area could be serviced via Navy negotiations to secure a low pressure line. Alternatively, and among other options, PWFD or City of Newport Service could be extended to Melville."

Possible solutions for the water supply issue are discussed in Chapter 5 Planning Strategies.

2.) Wastewater (Sewer) Service Wastewater is a bit less complex than water supply, but no less important. The Town of Portsmouth has no sewer system whatsoever. Portsmouth has no municipal sewage treatment system and is accommodated by Individual Sewage Disposal Systems, package treatment plants, or hauling septage to the Newport facility. Like water supply, certain former Navy parcels were allocated wastewater capacity as part of property transfer, but not enough to accommodate major new development in most instances.

Possible solutions for the wastewater issue are discussed in Chapter 5 Planning Strategies.

3.) Electric, Gas, Telecommunications and Renewable Energy

Electric Supply • Service provided by Newport Electric Corporation. • West Side operation is currently supplying at well below capacity with 13,800 volt lines as a standard delivery voltage. • The West Side Lines could handle expansion of 30 to 40 percent growth in service demand within the West Side Lines. • Newport Electric provides power to the Navy who manages the lines along Burma Road and within the base. • Lines along West Main Road have a cross grid system in place permitting the ability to isolate areas for new feeds and repairs.

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Natural Gas Supply • Service provided by Providence Gas Company • Aquidneck Island is near capacity Q- Has new facility within the base alleviated this situation? • Main distribution line in West Main Road (55lbs pressure) with feeds to the west along Greene Lane and King Charles Drive

Telecommunications ƒ No projected limit on gas and telecommunications are anticipated in the project area.

ƒ Fiber optic lines are in place from Middletown to Raytheon. CHECK

Wind Energy ƒ The west side of Aquidneck Island has been identified as having potential for wind generation based on exposure to southwest winds. Wind turbine(s) at Tank Farm 3 are shown in the WSMP. The Navy is currently evaluating the potential of one or more wind turbines at Tank Farms 3 & 4, as well as McAllister Point in Middletown. They will provide the Town a copy when complete.

ƒ Therefore, the Navy is reserving up to 30 acres on Tank Farms 3 & 4 for that possibility. They hope to complete their study and make a decision before the BRAC process is complete. If unable to do so in time, they will continue to reserve up to 30 acres on Tank Farms 3 & 4, but cannot tell us at this time where that land will be.

H.) Natural Resources: A West Side Heritage

1.) Physical Inventory The Tank Farms area on the West Side of Portsmouth hosts a diversity of natural habitats ranging from estuarine mudflats and cobble beach, to salt marsh and freshwater wetlands along a network of named and unnamed streams. Upland woods and meadows provide additional habitat. The edge between these resource areas provides valuable habitat for estuarine, freshwater, and upland species of plants, animals and shorebirds. The Tank Farms themselves represent habitats that have reverted from intensive above-ground and underground fuel storage activity (basically bare ground during peak activity in the 1940’s), to scrub/shrub and woodland succession. The general view, especially from the water, is of a relatively undisturbed cobble beach and scrub growth along the railroad embankment, backed by woodland.

Several freshwater brooks and streams flow through Navy property in the Tank Farms area. Normans and Lawton Brooks and Melville Chain of Ponds flow adjacent to or within the drainage area of former Navy Tank Farms. Although the

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quality of these brooks may have been degraded through past practices at the Tank Farms, these brooks flow through areas otherwise undeveloped and inaccessible. These brooks are not generally subject to degradation by adjacent residential or highway development that would increase the potential for discharge of point and non-point sources of pollution. Freshwater wetlands are located along Normans Brooks and along the Lawton Reservoir / Brook drainage areas. In addition, freshwater wetlands are associated with the Melville Chain of Ponds. In these areas, freshwater palustrine emergent and palustrine forested/scrub shrub wetlands are located up-gradient of the open waters. Wetlands have also developed along drainage swales along both the Burma Road and the Newport Secondary railroad tracks running north-south through the area.

Steep slopes dominate the landscape on all four Tank Farms, starting 50 to 500 ft. from Burma Road, and thence eastward 200 to 400 ft. These steeply sloped areas represent impediments to construction, but opportunities for preservation and public use. Once the Tank Farms flatten out a bit, the views of Narragansett Bay are spectacular.

The crown jewels of the natural resources of the Melville area are without question the area known as Melville Park, just north of Tank Farms 1 & 2, and the nearly inaccessible rocky gorge known as Lawton Valley, running along the north boundary of Tank Farm 3. Both areas have long been identified as significant natural habitats worthy of high priority open space preservation activities by the citizen of Portsmouth.

Partly on Raytheon-owned property and partly on private land to the south, Lawton Valley, with its waterfalls and significant groves of old-growth trees, has remained mostly untouched and unmanaged over the years. Functioning as a natural corridor connecting the extensive open natural habitats surrounding the three center island drinking water reservoirs and Narragansett Bay at Weaver Cove, Lawton Valley is home to several State-listed bird species of concern as well as nationally significant old-growth stands of (insert tree names here).

Melville Park, a 152-acre tract of land given to the Town of Portsmouth “exclusively for public park or public recreational purposes” by the US government in 1978, has been developed as the Melville Campground, with the remainder retained as open space. Located just north of Tank Farms #1 and #2, this property extends from West Main Road to the Newport Secondary rail line with access to the shoreline across the tracks. Varied deciduous woodlands and evergreen stands provide excellent natural habitat as well as recreational opportunities. The previously mentioned Melville Chain of Ponds runs through this area and features a variety of wetland habitats to explore. The upper and lower ponds are significant freshwater fishing sites, both being Class Trout ponds annually stocked by the RIDEM Department of Fish and Wildlife.

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2.) Conservation and Preservation Trends and Issues As expressed in the West Side Element of the Portsmouth Comprehensive Community Plan, the Town promotes the idea that “the west side of Portsmouth contains large expanses of linked coastline and open spaces that can provide amenities and environmental value for the benefit of everyone, if they are systematically enhanced.” The Town’s commitment is threefold: (1) to create a system of conserved open space that would incorporate parks, wildlife parcels, greenways, scenic roads and vistas, waterfront property, and agricultural land, (2) to ensure that the citizens of Portsmouth continue to enjoy currently available public access to the West Side shoreline, as well as to expand opportunities for additional public access right-of-ways, and (3) to reaffirm the Town’s commitment to maintain the Melville Park and campground area as an important natural and recreational resource. This commitment, as well as recommendations from the West Side Master Plan, guides the Portsmouth Redevelopment Agency in the preparation of their Tank Farm Redevelopment Plan.

The West Side Master Plan identifies three important concepts in conservation and open space preservation: identifying key parcels for open space preservation, the concept of Greenways or the linkage of natural habitats, and the preservation and enhancement of scenic roadways and vistas. Chapter 5 of this Redevelopment Plan outlines the PRA’s strategies for Tank Farm redevelopment, keeping in mind the guidance from both sources as outlined above. The Town and the PRA have important partners in conservation and open space preservation in the Tank Farms area. The Aquidneck Land Trust (ALT), established in 1990, has been instrumental in preserving the Island’s open spaces and natural character, with over 1970 acres under conservation easements island- wide. One of their core concepts in land preservation is the idea of linkage of habitats to create natural corridors and recreational access. They have historically concentrated their efforts on parcels of land within three large Greenways, one of which, the Center Island Greenway, has its western boundary jut out purposefully to include the Lawton Valley area north of Tank Farm #3. This is important as, with ALT’s help, open space linkage from Melville Park, through the Tank Farms redevelopment area, and up Lawton Valley, connecting with the entire rest of the Island may finally be realized.

Another partner is the Raytheon Employees Wildlife Habitat Committee (REWHC). Established as a corporate initiative in 1999 and certified by the Wildlife Habitat Council in 2001, the REWHC engages in education programs, and conducts flora and fauna surveys on their west side property. They have pre- pared an active wildlife management plan that focuses on increasing biodiversity, increasing environmental and historical awareness, and protecting the beauty of their property in and adjacent to Lawton Valley.

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I.) Land Use: open Space and the built environment

1.) Adjacent Land Use Patterns

The Lands immediately adjacent to the Tank Farms Redevelopment District exhibit a broad array of land uses and are universally regarded as some of the most scenic as well as economically important lands in the State, including:

ƒ Raytheon Corporation – Portsmouth’s largest property taxpayer and employer.

ƒ Melville Marine District – a state designated “growth center” and important economic engine for the State and the Town of Portsmouth.

ƒ Melville Ponds and Campgrounds – 149 acres of wooded open space preserved in perpetuity from development.

ƒ Chase Farm – locally significant historic working farmlands.

ƒ Melville Mobile Home Park - One of only two mobile Home Parks in Portsmouth – approximately 350 residents.

ƒ Freedom Bay – partially completed senior active living center. As of this writing, the project is on hold pending a new arrangement between the project lender, which has taken possession of the property, and a new developer.

ƒ BayView Towers & Overlook Point – the highest concentration of multi- family housing in Portsmouth is primarily occupied by retirees and empty-nesters.

ƒ Redwood Farms – classic 1960’s era single-family residence subdivision of approximately 135 homes.

ƒ Carr Point – US Navy active recreational facility with baseball fields & picnic areas.

ƒ Weaver Cove – site for future 1495 slip marina and 900+ unit mixed-use “marina village.”

ƒ US Navy Housing – Approximately??? units of active Navy housing.

ƒ Melville School – one of three Portsmouth elementary schools.

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2.) Coastal Uses and the Waterfront District

While none of the Tank Farm property has a waterfront, development on the nearby waterfront has a significant impact on the future uses of the Tank Farms. In particular:

The continued expansion of the marine trades industry in the adjacent Melville and Bend Boat Basin area will create a demand for use of some of the Tank Farms area for boat storage in the short term and additional boat building and marine services in the medium and long term. It is expected that Tank Farm 1, which is closest to this area, will experience the greatest demand for such use.

The planned Weaver Cove development (major marina and resort-style housing) will both add to the demand for expansion of the marine trades area, and the provision of small scale retail, restaurants, and services.

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CHAPTER 5. PLANNING STRATEGIES

A. Land Use – The Physical Plan 1) Areas to be Preserved; Areas for Public Use; Areas to be Developed.

In making these decisions, one must consider all the existing conditions, as presented in Chapter 4. The physical planning process proceeds as follows: ƒ Areas to be Preserved: The process starts with an identification of natural features, both wetlands and other areas that must be preserved. ƒ Areas for Public Use: Next is a determination of areas that are logical for use by the general public, be it to enhance existing recreational and other opportunities or to create new opportunities. If capital expenditures are necessary, this includes a determination of how realistic it is to obtain necessary funds in during the planning horizon. ƒ Areas for Development: Areas for development is usually what is left, although there are often compromises made between desired public uses and areas for development. Factors such as topography and other natural features, adjacent uses, plus local and regional market forces. ƒ Interconnections: These land uses will not exist in isolation. How can the various uses support each other? How might they detract? What connections can be made?

There is always a balance to be struck among competing interests. A wise planning strategy attempts to ensure that various uses are supportive of each other.

2) Land Use Options for the Tank Farms (need subsection for each) a) Marine-Industrial Support Uses b) Commercial Uses c) Light-Industrial Uses d) Retail Uses e) Workforce Housing and Mixed Use f) Public Utilities g) Open Space and Recreation Uses

The below listed land use recommendations from the WSMP (specific to the US Navy Tank Farms) are not meant as a comprehensive land use plan defining specific desirable land uses,

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but as a guide to the Portsmouth PRA in creating the Portsmouth West Side Redevelopment Plan. With the goal of creating a redevelopment plan that is consistent with the WSMP, the PRA carefully considered each of these WSMP recommended land uses:

TANK FARM #1 - Area: 49 acres TANK FARM #3 - Area: 41 acres 9 acres non-developable (steep slopes) 12 acres non-developable (wetlands, steep) 40 acres developable 29 acres developable Reuse Options: Reuse Options: Marine Industrial Uses Waste Water Treatment Facility (+/-10 Transit Support (parking) acres) Light Industrial Wind Turbines Marine Accessory Uses (storage, parking) Recreation/Outdoor Theater Open Space Open Space Marina Accessory Uses (storage, parking) Marine Industrial Uses

TANK FARM #2 - Area: 96 acres TANK FARM #4 - Area: 94 acres 15 acres non-developable (steep slopes) 19 acres non-developable (wetlands) 81 acres developable 40 acres questionable (imploded tanks) Reuse Options: 35 acres developable Marine Industrial Uses Reuse Options: Marina Accessory Uses (storage, parking) Light Industrial/ Commercial Residential (Affordable Housing) Open Space Light Industrial/Commercial Hospitality/Resort Research and Development Wind Turbines Open Space Seasonal Outdoor Theater Residential (Affordable Housing)

Identification of Areas to be Preserved as Open Space Open space can include a range of areas that are primarily undeveloped and consist of open agricultural or shorefront property, fresh and saltwater marshes and adjoining uplands, wildlife habitats, land providing access to or views of the bay and ponds, land for unpaved and unpaved bicycle, bridle and hiking paths and for future active or passive recreational use. Open space protection must be flexible be adapted to suit specific conditions which may be unique to individual properties or terms of purchase and sale. Also, public access to open space parcels needs to be promoted and encouraged where such access will not threaten or jeopardize critical habitats or sensitive environmental values for which the land is being

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protected.

Acquisition of portions of unused military land for open space purposes through the Public Benefit Conveyance process is the preferred method of acquisition for open space and recreation. However, such land is set aside in perpetuity as open space through this process, so it is important to be certain.

The goals elicited in Chapter 4 under Open Space & Recreation can be achieved as follows:

LAWTON VALLEY BROOK NATURE PRESERVE (SEE MAP)

ƒ GOAL: Encourage the expansion of the inventory of conserved open space in Portsmouth. West Side lands of high preservation priority include the Lawton Valley Brook Corridor, the Norman’s Brook watershed, and wetlands not associated with these systems. Particular attention should be paid to preserving Lawton Valley in its natural state.

Lawton Valley Brook is a steeply defined “canyon” with waterfalls, and old growth trees. The Lawton Valley Brook corridor should be preserved as open space. This would not only connect West Main Road to the Narragansett Bay waterfront in the immediate project area, but would also provide connections to the Lawton Reservoir and ALT parcels in the central and eastern portions of the Island. Union Street may be a future corridor that people could use to get from West Side trails on the east side of the Island. Currently the Lawton Brook corridor consists of an undeveloped parcel owned by Raytheon and Bay View apartments along West Main Road and the Navy property along Burma Road and in a wetland corridor along Tank Farm #3. Public access could begin at a picnic area on the east side of West Main Road with passage under the road via a major culvert. It could provide recreational access to the public, to Raytheon employees as part of their trail network, and to Bay View residents once developed. Therefore, it needs to be created in a way that protects a wetland/wildlife corridor, preserves views, and preserves mature trees. Lawton Valley Brook corridor property owners, including Raytheon, Bay View apartments, and the Navy have worked together with ALT to conserve the rugged beauty, habitat, and connectivity to other resource areas that this property offers. Access to this area is currently limited by fence lines to secure the property. An agreement has been reached with the City of Newport for public access from Old West Main Road (City of Newport Lawton Valley Reservoir) where parking and a picnic table are provided. Visitors may walk through the conduit under West Main Road, for access to the waterfalls and gorge. The ultimate goal is to provide a connection to Weaver Cove and Narragansett Bay from the Center Island Greenway. This is an example of a multiple-entity, multiple-tool approach to land conservancy that may be applied to conservancy of other priority parcels on the West Side. Most of this area is located within the bounds of Tank Farm 3. A Public Benefit Conveyance would make this preservation effort permanent.

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WALKING / NATURE TRAIL TANK FARMS 1 & 2 (see map) • GOAL: Continue to support the outdoor and recreational activities at the Melville Park and campground area, and provide physical linkages to nearby active and passive recreation areas through nature trails and bike paths. Undevelopable steep and wooded slopes are ideal for creating these linkages.

An excellent opportunity exists to link existing and future development to Melville Park, which would, by itself, be a recreational amenity as well. A largely undevelopable slope running from Stringham Road to the Park exists on Tank Farms 1 & 2 a few hundred feet uphill from the railroad right-of-way. A bike/walk trail per haps 100-200 ft. wide along this sloped area would be an excellent amenity for other development in the area, be it the seasonal development planned in Weaver Cove or for the employees of industrial and commercial development in the entire Melville area.

EXPANSION OF MELVILLE PARK (see map)

ƒ GOAL: Provide strategic expansion of Melville Park to better protect the big lower pond, provide a permanent recreation area near the campgrounds portion (already being used informally), and possibly a small area to provide more camping sites.

This can be accomplished by:

ƒ TF 1: Between a road going uphill from the Melville area and the fence line to the north. This would be primarily to give more protection to the big pond from stormwater runoff. ƒ TF 2: A rectangular piece across from the old Navy fire station that includes Bldg. 77 to be used for active recreation. (Building 77 is to be demolished by the Navy.) This is an area the campgrounds have been using for some time. ƒ TF 2: A long narrow rectangle on the west side of Gen. Sullivan Rd. from just beyond the existing Melville Housing into the main campgrounds area. To be used for more campground sites.

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3) Rezoning Recommendations – (Bob 2-3 days) Currently much of Melville and Weaver Cove are currently within the Waterfront Zoning District, whose stated purpose is “to cater to marine activities such as commercial boat docks, boat service areas, marine equipment stores, boat storage and construction yards, boat repair facilities, bait and tackle shops, wholesale and retail fish and shellfish establishments, refreshment stands and marine oriented clubs.” By-right uses are all non-residential and mixed uses require a special permit from the Planning Board. The Tank Farm #1 is partially within the Waterfront District and partially zoned as Light Industry, which is the current zoning district for the Tank Farm #2 area.

a) PLANNED UNIT DEVELOPMENT (PUD) 1 The PUD approach to land local land use proposals will be employed for all development proposals for the tank farms. This will help ensure that developments are well-integrated and complementary to each other.

PUD regulations are intended to foster developments which are compatible with surrounding areas and which incorporate buffers or transition areas to reduce potential negative impacts on single family residential areas. The regulations are intended to encourage a mixture of compatible uses to create a sustainable and attractive environment for a wide variety of trades and businesses. The regulations are intended to be flexible, to allow for innovative design techniques, accommodate unique land uses and encourage creative approaches to development issues.

A coordinated design approach with an emphasis on compatibility with the natural environment and surrounding land uses and the allowance of a sufficient mix of uses and accessory uses to create a self-contained or self-sustained development park is encouraged. Planning of a project and calculation of densities over the entire project rather than on an individual lot-by-lot basis is permitted. A coordinated design approach should: • Break up the apparent mass and scale of large structures, as well as large paved areas, in order to ensure that such development is compatible with and does not detract from Portsmouth’s character, scale, and sense of place; • Help integrate large-scale development with its surroundings; • Promote and facilitate a safe and comfortable pedestrian scale environment; • Encourage a mixture of uses and sizes of structures; and • Reduce the visual impact of large areas of parking.

PUD regulations are intended to be flexible, to allow for innovative design techniques, accommodate unique land uses and encourage creative approaches to development issues. It is anticipated that public officials will have considerable involvement in determining the nature of the development through the development plan review process which will include consideration and application of aspects of both subdivision and zoning regulations.

1 This section a) is taken directly from Article VIII Section D of the Portsmouth Zoning Ordinance.

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b) PERFORMANCE STANDARDS Four levels of performance standard will be created: 1. Baseline Performance Standards - applicable to the entire area Baseline Performance Standards apply to the overall development of land and the management and improvement of roadways in the West Side. The development of land may adversely impact the surrounding resources, both on- and off-site. Performance standards for land clearing and construction can mitigate, if not eliminate, these impacts. Associated with land clearing, these standards preserve original topography, protect wildlife and archaeology, limit cut and fill, control erosion and sedimentation, and promote re-vegetation of the site. Street construction and improvement projects must also embrace performance standards to promote connectivity, transit continuity, and stormwater management

2. Specific Land Use Performance Standards – Including specific standards for large project development, commercial and mixed use development, reuse of military land, marina and marine-related development, agricultural land, open space, and scenic roadways and vistas. Large project development performance standards are relatively consistent with Smart Growth and Sustainable Design principles. The extended tenure and multiple phases of large projects create additional considerations aside from the standards for each element, which are described over the following pages. These standards enhance the long-term viability of large-scale projects by promoting sustainability, density, a range of housing types, commercial and cultural components, street and transit connectivity, ADA compliance, and aesthetic review processes.

The performance standards should recognize that length of time for full build-out may require the project to reconsider certain pieces or modify the original concepts. This could be very important in traffic management, for which long-term changes in traffic from unrelated development may require a different approach to maintaining flow, or allowing different traffic loads on the streets. This could also apply to utility systems and the standards that define long-term improvements and acceptable demands and loads.

Design guidelines should also distinguish between different sections of the project to ensure that the project is not completely homogenous, but instead provides compatible variation and accented areas for continued interest and coherence.

3. Performance Standards for the Reuse of Military Land Performance standards for the reuse of military land modify large project development performance standards according to the demands and realities of military property. These properties need additional standards for public benefit t and environmental restoration. Standards for access, utilities, open space, and economic viability also ensure a viable transition of the property.

4. Sustainable Site Planning and Design Performance Standards include: - Integrated planning and design processes to ensure coordination, synergy, and cost savings across disciplines. - Enhancement of existing natural features, habitats, and resources through open space conservation, stormwater management, and wildlife protection. - Creation of a network of sustainable open spaces, including natural, agricultural, and landscaped areas.

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- Circulation that emphasizes alternate modes of transportation, parking management, and innovative design practices applied to streets and parking lots. - Compact development that increases density in developed areas, encourages energy and water conservation, and promotes green building design and construction practices.

Appendix A “Performance Standards” of the WSMP will be adapted into the zoning ordinance specifically for tank farm redevelopment.

4) PLANS FOR FUEL STORAGE TANKS AND OTHER EXISTING STRUCTURES – w/ NAVY, DEM (This subsection should be moved to?) a) Fuel Storage Tanks Innovative reuse of some of the 24 underground tanks may be possible. Ideas include temporary pre-treatment storage of sewage, temporary storage of stormwater to be recycled for watering lawns and other non-potable uses, and aquaculture. Given the unknown ability to support buildings or even parking, with an average surface area of 9,355 SF, the ground above the underground tanks should be used for green space. There are two above-ground and two partially-above ground fuel tanks on Tank Farm #1. Depending on condition, it is likely that these tanks would best be demolished.

b) Other Structures(Bob 1/2 day) As of the date of this writing, it is assumed that all other structures within the tank farms will be demolished, either by the Navy or as part of an acquisition agreement. Pending a complete inventory and condition assessment from the Navy, it may be possible to re-sue some of the above-ground structures.

5) Putting it All Together: Growth Centers – (Bob & Gary 2-3 days) The overall land use strategy of this Plan is to target mixed-use redevelopment that supports existing uses and provides public economic benefit, within an attractive and accessible open space system. This strategy seeks long-term improvement, instead of short-term fixes. The Plan endorses an adaptable approach to land use decisions involving coordinated development, high quality design, public use opportunities, environmental awareness, and reasonable demands on the community support network.

The “West Side” element of the Portsmouth Comprehensive Plan has a number of implementation strategies specific to the tank farms area: ƒ Promote the reuse of the former tank farms near Melville to support marine and marina-related businesses and economic development. This should include the

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preservation of adequate land in an appropriate location to provide an opportunity for a potential sewage treatment plant for Portsmouth.

ƒ Promote the reuse of other former tank farms as sites for economic development including military-related research and development or other uses that will provide jobs and tax benefits, while preserving natural resources on these sites.

ƒ Encourage the expansion of marine-related businesses to enhance waterfront development as a priority land use at Melville. This objective recognizes the potential importance of former Tank Farms #1 and #2 to help support, directly and indirectly, the redevelopment of nearby marine and marina uses.

ƒ Endorse the creation of a “marina village” development at Weaver Cove and adjacent lands. In order to create a more viable and attractive opportunity for reinvestment and expand public access and enjoyment, marina uses should be complemented by a mix of housing, restaurant, retail, and other uses at a moderate density.

ƒ Support high quality resort-type residential and recreational development that are master planned as large land parcels, have low traffic and environmental impacts, and contribute substantially to the economy of Portsmouth through service-related employment and enhancement of property values.

ƒ Encourage the use of Transfer of Development Rights (TDR) to both facilitate the acquisition of potential open space and ensure the high-quality development of West Side landscapes.

ƒ Encourage the use of Performance Standards, Design Review Guidelines, Interim Planning Overlay Districts (IPODs), Conservation Development, and other innovative land use management tools in common practice to promote desirable development patterns.

ƒ Promote the location of commercial and light industrial uses within the West Side of Portsmouth. Although expansion of these uses is expected to be limited, the opportunity offered by an enhanced transportation network makes the West Side an excellent candidate for these essential components of the Island’s tax and employment base.

ƒ Promote “green” development as an economic strategy. The Leadership in Environmental Design (LEED) rating system, developed by the U.S. Green Building Council, should be used to evaluate both building design and sustainable site planning practices for development on the West Side.

B. Economic Development – PRA WITH EDC 1) Economic Priorities and Feasibility

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2) Specific Recommendations (Bob & Gary 3-4 days) a) Marine-related business and Recreational boating b) Tourism, Recreation and Open Space c) Affordable Housing as an Economic Strategy d) Mixed-Use Development e) Commercial Offices f) Renewable Energy g) Desalinization for Drinking Water Supply

C. Transportation - 1) Roadways and Streets – Onsite and Area-wide (Gary 1 day) a) Specific Improvements – WEST SIDE TRANS. PLAN 2) West Main Road and Stringham Road Intersection (Gary 1/2 day) 3) Stringham Road Hairpin (Gary 1/2 day) 4) On-site Tank Farm improvements (Gary 1 day)

D. Long Term opportunities and Transportation options - 1) Additional Capacity for Defense Highway –Shoreline Dr. Concept (Gary 1/2 day) 2) Expanded Rail Transit (Gary 1 day) 3) Water Transportation opportunities (Gary 1 day)

E. Bicycle Networks - (Gary 1 day & 1 day map) 1) Recommended Bicycle Trails 2) Defense Highway / Newport Secondary Bike Path

F. Trails, Paths and Sidewalks - (Gary 1-2day & 1 day map) 1) Connecting the Tank Farms

G. Utilities – NAVY, NEWPORT, PWFD, UTILITIES, ETC. 1) Water Supply (Bob -2-3 day) a) Opportunities for Coordination and Collaboration

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ƒ Support the establishment of a regular forum, ongoing discussions, and collaboration among the City of Newport, the Towns of Middletown and Tiverton, the Navy, PWFD, and RIEDC regarding water treatment and distribution issues. This forum should determine the best approach to providing all necessary drinking water distribution for current and future development in the Melville area of Portsmouth, as well as for future private development along the West Side.

ƒ Support potential Public Private Partnerships (PPV) dedicated to combining privatization of existing Navy utilities infrastructure with expanded service capacity in order to promote desirable future development associated with Navy land disposition, and large-area developments near Weaver Cove, Melville and other West Side locations.

b) Recommendations: Water Supply and Services (The following are excerpts from the West Side Master Plan) The WSMP offers the following opportunities for water service to existing and proposed development in Melville: Negotiation with the Navy for transfer or purchase of the 10- or 12-inch low pressure line Portsmouth, RIEDC and the Navy should work together to determine the suitability of transfer of one of the Navy’s lines from Lawton Valley to Melville to RIEDC or the Portsmouth Water and Fire District. A water supply consulting firm should be hired to undertake the inspection and evaluation required to determine suitability of transfer.

Disposition of either the 10-inch or 12-inch water line to Melville could be considered in the future. Engineering solutions appear to be feasible. Process and policy issues regarding liability, points of demarcation, easements and access points (including security of the Navy water supply) must be resolved. Prior to any negotiation the following information must be obtained: . • Layout and mapping of the subject line. . • Pipe type (%), age, and size of piping. . • Configuration of laterals, separate laterals for each unit or shared and divided within structure. . • Current population and uses served. . • Inventory of infrastructure components: number of valves, meters, hydrants, booster pump stations (specific details of booster pump stations, i.e. number and size of pumps, age), chlorination stations (including chlorination protocol), sampling stations, vaults (valve or meters), and the like within subject areas. . • Water demand records and records of operations and improvements: main breaks, relays of water line, cleaning, flushing, maintenance of hydrants, hydrant tests/testing, C-Value testing, water quality testing. . • Water pressures within the subject areas, with seasonal figures if available. • All readily available past system data detailing subject areas inclusive of system wide reports/studies and testing/sampling data and results.

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Based on this information, the following should be completed to fully understand the system and costs of necessary upgrades prior to negotiation: . • Conduct water quality analysis to determine any deficiencies in water quality. . • Consider required system changes for implementation to counteract any determined deficiencies in water quality. Prepare opinions of probable costs to reconfigure the system layout to eliminate dead end mains or stagnant areas within the system. . • Conduct pressure testing to evaluate system pressures and prepare opinions of probable costs to develop system changes for implementation to counteract any determined deficiencies in pressures. . • Perform hydrant test to evaluate fire flows. Prepare opinions of probable costs to develop and implement system changes to counteract any determined deficiencies in fire flows. . • Perform C-Value testing to determine conditions of pipes within the system. .

Prepare opinions of probable costs to develop and implement system changes to counteract any determined deficiencies in piping condition. • Perform operation of all system components to insure their working ability. Prepare opinions of probable costs to replace or correct any components with poor operational characteristics. Components should include but not be limited to valves, meters, hydrants, booster pump stations, sampling stations, and vaults (valve or meters). This information would provide the basis of negotiation. Options for ownership of the line could include the PWFD (with extension of the service area), the City of Newport (Newport currently provides water service to Raytheon, Bayview and the Redwood Road subdivision), a community water supply board, or RIEDC (similar to the system at Quonset). Extension of PWFD Service to Melville – As indicated above, this would require a contract with the City of Newport to assure adequate quantity to meet projected needs, extension of the service area to Melville, and reconfiguration of pumps to service this area. This option would require that water lines be extended to serve new development. Extension of City of Newport Municipal Service to Melville – Two options could be considered: extension of service through Raytheon or extension of service from Freedom Bay north along Burma Road to Melville. Further analysis would be required to determine if adequate supply and distribution networks would be available for either of these options. Continuation of “Wheeling Through” the Navy System – This option is not favored by either the Navy or the City of Newport.

Desalinization - Encourage investigation of placing a desalinization plant at tank farm #3 or #4, specifically to provide for peak summer demand, a period when the Island water supply is sometimes inadequate.

Private or Community Wells – Past developers have considered this option but found that yield was only sufficient south of the Tank Farms. This information would have to be confirmed and further investigated to determine the cost of implementation.

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Further analysis is warranted to investigate these options.

1. Encourage the Portsmouth Water and Fire District and the City of Newport to execute a contract that assures an adequate quantity and quality of drinking water will be available at an equitable fee for future needs in Portsmouth.

2. Endorse the transfer, purchase or privatization of Navy utilities and regionally-important utility corridors to the extent that it is mutually beneficial. Privatization of the Navy utility system may provide benefits if it can be linked to solutions for private and public sector sewer and water needs.

d) Recommendation: Energy Installation of a wind farm adjacent to the possible wastewater plant and/or desalinization plant should be considered to generate power to defray operating cost. Promote the location of wind turbine(s) to supplement electric generation and distribution by sustainable means in locations that do not dominate the visual qualities of the land from important public vantage points.

2) Sewer Systems (Bob -2-3 day) a) Opportunities and Recommendations

The WSMP offers the following opportunities for wastewater treatment for existing and proposed development in Melville and other West Side locations in Portsmouth: Although the Navy currently provides wastewater treatment to private development in Melville, it is not likely that this option will be available in the future. The Navy will be considering privatization of its sewer and water system in the future and is not likely to be interested in making this system more complex to operate through private agreements.

Municipal Wastewater Treatment Facility – Former Tank Farm #3 may be suitable for construction of a municipal WWTF. Approximately 10 acres should be reserved for current and projected use. Although this location is not convenient to areas of Town where failed ISDSs must be addressed per RIDEM, the Town of Portsmouth may realize several cost savings with a plant in the vicinity of Melville. By routing a sewer interceptor along the Newport Secondary, the need for pump stations could be reduced and traffic on local roads would not be disrupted for construction. Land Cost Savings – A “hot transfer” may be arranged for the transfer of property from the Navy to US Health and Human Services to the Town of public purpose conveyance would be at no cost to the Town.

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Treatment Cost Savings – Discharge from a plant at this location would be to Class SB waters, requiring a lower standard of treatment than to Class SA waters. Permitting Cost Savings – According to RIDEM’s Water Quality Regulations anti-degradation clause, there must be a compelling public project to discharge to SA waters (located off all other Portsmouth shorelines, including areas more convenient to failed ISDSs). If an alternative discharge to Class SB waters is available, the Town might be compelled by RIDEM to select that site. Note: one of the “tests” for degradation of SA waters would be to assess alternatives. If the Tank Farm site is a feasible alternative, it might preclude consideration of a plant in the northern section of Portsmouth with discharge to Mount Hope Bay or the Sakonnet River. Economic Development – Provision of municipal wastewater treatment would improve the attraction for the expansion of marine trades in Melville and future expansion of the Raytheon campus. Representatives of Raytheon have indicated their support for municipal treatment as this would eliminate costly and inefficient hauling to the Newport WWTF. Increased commercial and industrial property tax return would help counter balance the town’s current dependence on residential property value. Relative Isolation – The site of former Tank Farm #3 is relatively isolated from adjacent development and is exposed to prevailing southwesterly to northwesterly winds off the bay. Dispersion of any odors is best accomplished with exposure to prevailing winds. The proposed Weaver Cove residential development would be at a lower elevation and therefore should not generally be subject to any odors. Existing homes/apartments at Bay View / Rolling Hills Road would be uphill and downwind from prevailing winds. Buffering around a plant (1,000-foot minimum would be best) would help mitigate any odors. Raytheon’s decommissioned WWTF is in the same general location, located on the north side of Lawton Brook instead of to the south. Conventional ISDS – This would be a suitable wastewater treatment for single-family residential development. This land use is not proposed in Melville. Innovative ISDS – RIDEM has approved a series of Innovative or Alternative (I/A) ISDS Technologies for sites that do not meet the location, design or construction requirements of a conventional ISDS system. I/A Technology could be considered where sloping sites, high groundwater, soils with either slow or very rapid percolation rates, and sites close to wetlands, coastal ponds, drinking water supplies or other critical water resources would constrain suitability for conventional ISDS construction. Under current RIDEM policy, all new development sites must meet existing requirements for conventional systems before being granted a permit to install an enhanced treatment system using I/A technology. Multiple homes or businesses may be served by a single enhanced I/A ISDS in some situations. Private Industrial Wastewater Treatment (for multiple users) – RIDEM would have concerns about a privately owned and operated wastewater treatment plant for the Melville area that would serve multiple marine trade businesses. Municipalities or RIEDC would be best suited to operate a facility with diverse industrial pre-treatment requirements. Septage Hauling to the Newport WWTF – Future development along the Burma Road could be served by possible wastewater storage and primary treatment in former Navy Tank Farms with septage hauled to the Newport Wastewater Treatment Plant. This would be subject to a

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rigorous facilities planning review at the State and local levels. Raytheon currently collects its wastewater in the holding tanks of its former treatment plant and then hauls the septage to the Newport Wastewater Treatment Plant daily. As indicated above, Raytheon is interested in seek- ing alternatives to this arrangement. Off-peak Discharge to the Newport WWTF – Melville Marine Industries has an agreement with the US Navy to store up to 60,000 gallons of wastewater per day to be pumped back through the Navy system during off-peak hours. This service was negotiated to accommodate future marina/condo development in the Weaver Cove area. The Navy has indicated that it is not interested in negotiating similar arrangements in the future. Newport WWTF – Portsmouth is not currently party to the agreement between the City of Newport and the Town of Middletown and the US Navy, which has allocated percentage of wastewater capacity based on the contributions each made for plant upgrades and future needs for wastewater treatment. This allocation was determined on wastewater flows at a time when the Navy’s demand was significantly higher and does not represent the current distribution of flows between the three parties. A portion of the Navy’s allocation is currently unused. The Town of Portsmouth could pursue discussions with the City of Newport to renegotiate the allocations and initiate new contracts with the Town of Middletown, US Navy and the Town of Portsmouth. The strategic allocation of wastewater treatment capacity at Naval Station Newport is a consideration under federal land disposition processes. The commanding officer must preserve the base’s sewer capacity to be flexible for potential expansion under the BRAC process. Any negotiation for private WWTF service would reduce this strategic capacity. The Navy may be precluded from providing sewer service for private use based on security and legal issues. 3) Electric, Gas, Telephone, and Internet Recommendations (Bob -1-2 day) a) Opportunities and Recommendations Work with private utilities to ensure that adequate electric, gas, telephone, and internet are available. (We need more info on what exists within Burma & Stringham Roads.)

b) Renewable Energy Recommendations Former Tank Farms #3 and #4 are proposed for possible siting of wind turbines. Electricity generated could be used to defray operating costs at a municipal wastewater treatment facility or other municipal need.

Newport Secondary Utility Corridor – The Newport Secondary right-of-way and the Burma Road corridor should be retained for use as utility corridors. By designating the rail corridor for utilities, local roads would not be disrupted by construction or repair. The Newport Secondary could be utilized as an interceptor alignment from the Island Park and Common Fence Point neighborhoods to a potential municipal wastewater treatment facility at Tank Farm #3 in Portsmouth. Any rail upgrade, bike path construction, or busway connection should consider relocation, repair or upgrade of these utilities during construction.

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For information on sewerage Implementation, see WSMP Processes: The Intergovernmental Working Group: Utility Forum, p. 6-57; Processes: Utility Working Group Agenda Items, p. 6- 58; Resources: State Revolving Loan Fund, p. 6-59; Tools: Density Bonuses, p. 617; and Resources: Development Impact Fees, p. 6-40.

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The Area Existing Conditions Constraints The Area TF#1

TF#2

Strin gham Rd

TF#3

d TF#4 R a m ur B Tank Farm 1

Tank Farm 2 Tank Farm 2 Melville Ponds

Tank Farm 1 Hinckley 49 acres Complex Rail

The Back Yard New England Boatworks Hunt Marine Wetlands & Tough Soils Topographic 10’ contour lines

Tank Farm Underground 1 Tanks Huge Underground Tanks S t rin Melville Ponds g h am R d Tank Farm 2 96 acres

. Rd ma Bur TF#1

il Ra Hinckley Complex Tank Farm 2 Tank Farm 3

Tank Farm 4 BayView condos Raytheon

k o ro B n to Overlook w a Tank Farm 3 L 41 acres Point

Burma Rd.

Carr Point Recreation (Navy) TANK FARM 3 Redwood

Overlook Point Tank Farm 4 83 acres

Carr Point Recreation (Navy) Tank Farm 4

Underground Tanks were Imploded in place 1999